Public Assistance 

Debris Monitoring Guide

FEMA 327 / October 2010

FEMA 327 Public Assistance Debris Monitoring Guide i

Table of Contents

Introduction.................................................................................................................................................1

Chapter 1: FEMA, State, Tribal Government, and Applicant Monitors .............................................3

Debris Monitoring Roles and Responsibilities ..........................................................................3

Applicant Debris Monitors...........................................................................................................5

Duties of Debris Monitors ............................................................................................................5

Chapter 2: Eligibility Requirements.......................................................................................................11

FEMA PA Program Debris Removal Eligibility.......................................................................11

Eligible Debris Removal..............................................................................................................11

Ineligible Debris Removal...........................................................................................................11

Eligible Monitoring Work and Costs.........................................................................................11

Ineligible Work and Costs...........................................................................................................12

Project Supervision and Management Costs ...........................................................................12

Reasonable Level of Effort Guidance........................................................................................12

Level of Effort for Debris Loading Sites ...................................................................................12

Level of Effort for Debris Management Sites...........................................................................13

Reasonable Cost Guidance .........................................................................................................13

Chapter 3: Debris Monitoring by Debris Type .....................................................................................15

Vegetative Debris .........................................................................................................................15

Construction and Demolition Debris........................................................................................15

Hazardous Waste .........................................................................................................................15

Household Hazardous Waste.....................................................................................................16

Electronic Waste ...........................................................................................................................17

White Goods .................................................................................................................................17

Soil, Mud, and Sand.....................................................................................................................17

Vehicles and Vessels ....................................................................................................................18

Putrescent Debris .........................................................................................................................18

Infectious Waste ...........................................................................................................................18

Chemical, Biological, Radiological, and Nuclear-Contaminated Debris.............................19

Documenting Eligible Work and Costs for Public Assistance Funding...............................19

Documenting Force Account Debris Operation Costs ...........................................................20

Documenting Contractor Debris Operation Costs..................................................................20

Monitoring Reports .....................................................................................................................21

Electronic Load Tickets and Automated Reporting................................................................21

Chapter 4: Force Account vs. Contract Monitoring.............................................................................23

Using Force Account Resources to Monitor Operations........................................................23

Using Contractor Resources to Monitor Operations .............................................................23
ii FEMA 327 Public Assistance Debris Monitoring Guide

Chapter 5: Debris Monitoring Contract Provisions and Methods ....................................................27

Basis of Payment ..........................................................................................................................27

Duration of Contract....................................................................................................................28

Performance Measures and Termination Clause.....................................................................28

Conflict Resolution Process ........................................................................................................28

Impacts of Different Types of Debris Removal Contracts on Monitoring...........................28

Unit Price.......................................................................................................................................28

Lump-Sum ....................................................................................................................................29

Time-and-Materials .....................................................................................................................29

Appendix A: Job Aids ..............................................................................................................................33

Debris Monitor Duties and Responsibilities ...........................................................................33

General Debris Monitoring Tips and Considerations ............................................................36

Debris Monitor Guidelines for Estimating Quantities ...........................................................37

Types of Debris and Monitoring Considerations ....................................................................40

Debris Monitor Responsibilities for Load Tickets...................................................................42

Types of Debris Removal Contracts and Monitoring Considerations .................................43

Appendix B: Sample Debris Monitoring Plan and Monitoring Forms.............................................45

Appendix C: Monitoring Contract Process/Documents .....................................................................55

Sample Request for Proposal Cover Letter for Debris Monitoring Services .......................55

Sample Scope of Services for Debris Monitoring Services ....................................................58
FEMA 327 Public Assistance Debris Monitoring Guide iii

C&D Construction and Demolition

CBRN Chemical, Biological, Radiological, and Nuclear

CFR Code of Federal Regulations

CY Cubic Yards

DAP Disaster Assistance Policy

DEQ Department of Environmental Quality

DMS Debris Management Site

EMMIE Emergency Management Mission Integrated Environment

EPA U.S. Environmental Protection Agency

FAR Federal Acquisition Regulations

FEMA Federal Emergency Management Agency

GIS Geographic Information System

GPS Global Positioning System

GSA U.S. General Services Administration

HHW Household Hazardous Waste

M&IE Meals and Incidental Expenses

OMB Office of Management and Budget

PA Public Assistance

POV Privately Owned Vehicle

PW Project Worksheet

RCRA Resource Conservation and Recovery Act

RFP Request for Proposal

S/NC Selection/Negotiation Committee

Acronyms and Abbreviations

FEMA 327 Public Assistance Debris Monitoring Guide 1

Introduction

When a disaster or emergency that generates large amounts of debris occurs, eligible applicants 

(State governments, local governments, Indian Tribes or authorized Tribal organizations and 

Alaskan Native Villages, and certain Private Nonprofit organizations) may request Public 

Assistance (PA) grant funding from the Federal Emergency Management Agency (FEMA) to 

offset expenses incurred from debris removal. Effective coordination is required between the PA 

applicant, the State, and FEMA to ensure that debris removal operations are efficient, effective, 

and eligible for FEMA PA grant funding. Eligible PA applicants are encouraged to monitor their 

debris removal operations and document eligible quantities and reasonable expenses to ensure 

that the work is eligible for PA grant funding. Monitoring debris removal operations requires 

the PA applicant’s comprehensive observation and documentation of debris removal work 

performed from the point of debris collection to final disposal. Monitoring debris removal work 

involves constant observation of crews to ensure that workers are performing eligible work in 

accordance with PA guidelines and all applicable Federal, State, and local regulations. Failure to 

properly monitor debris removal operations may jeopardize PA funding. 

Accurate documentation of debris removal and disposal operations and eligible associated costs 

is the outcome of a good debris monitoring program. This documentation serves as the basis 

for PA Project Worksheets (PWs)—the documents that authorize grant reimbursements from 

FEMA. Debris monitoring documentation is critical to verify that debris operations are eligible 

for reimbursement, costs are reasonable, contract and procurement processes are appropriate, 

quantification of the debris is accurate, and the tracking of the debris to its final disposition is 

recorded and in compliance with all regulatory requirements.

An applicant may conduct debris operations in any manner it deems appropriate. However, 

only costs associated with applicants, facilities, and work deemed eligible according to FEMA 

eligibility criteria and complying with special consideration requirements are reimbursed 

under the FEMA PA Program. Therefore, these eligibility criteria and special consideration 

requirements should be taken into account by the applicant when developing its debris 

management plan. The benefits of debris monitoring should be balanced with the costs 

associated with the effort; therefore, the level of monitoring needs to be proportional to the 

eligible debris removal.

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Chapter 1: FEMA, State, Tribal Government, and Applicant Monitors

FEMA 327 Public Assistance Debris Monitoring Guide

Chapter 1: FEMA, State, Tribal Government, and 

Applicant Monitors

Debris Monitoring Roles and Responsibilities

A number of different entities play a role in monitoring debris removal operations. It is 

important that these entities work together to resolve issues that may arise. Monitoring 

responsibilities and tasks of the different partners in the debris monitoring operations are 

addressed in this section. 

Debris monitors need to understand FEMA PA policies and guidelines, including eligibility 

issues and specifically those relating to debris. However, the final determination of any PA 

debris eligibility issue will be made by FEMA PA management personnel. 

FEMA Public Assistance Staff

The primary role of FEMA technical and debris monitoring specialists is to ensure that PA grant 

requirements and eligibility criteria are met by the applicant in all areas of the debris operation. 

FEMA debris monitoring specialists can guide applicants on the eligibility of debris removal 

efforts, but do not make eligibility determinations. Eligibility determinations are made by 

FEMA PA management personnel. 

FEMA debris monitoring specialists are responsible for: 

z Safety

{ Identifying possible health/safety risks and requiring proper field safety gear

z Eligibility

{ Verifying overall compliance with PA eligibility criteria

z Compliance

{ Checking debris loading, staging, reduction, and disposal sites at 

random to ensure compliance with PA eligibility criteria

{ Reporting any noncompliance, misconduct, or other negative 

actions to the appropriate FEMA representative for coordination 

and resolution with State and applicant representatives

z Debris Operations

{ Validating truck and trailer capacity certifications 

{ Evaluating operational efficiency 

{ Overseeing documentation requirements

FEMA debris monitoring specialists do not direct field operations on behalf of the applicant. 

The applicant has the primary responsibility for implementing and managing the debris 

monitoring activities.

Refer to Appendix A: Job Aids. 
4 FEMA 327 Public Assistance Debris Monitoring Guide

Chapter 1: FEMA, State, Tribal Government, and Applicant Monitors

State/Tribal

While the applicant has the primary responsibility for daily monitoring operations, the State 

is responsible for verifying that those monitoring activities are implemented. The State should 

conduct random monitoring at loading and disposal sites to ensure compliance with PA grant 

requirements. 

The State should ensure that the applicant is performing all required responsibilities of 

adequate monitoring, including: 

z Safety

{ The contractor is complying with public and employee safety standards

{ Safety requirements are being met during the conduct of debris operations on State 

highways and roads (including load limits and truck covers, where required)

z Compliance

{ All work complies with local ordinances and State and Federal regulations

{ Environmental compliance is occurring on all debris management sites (DMSs)

{ Appropriate preservation measures are taken for places and buildings 

pertaining to the State’s historic and archaeological treasures

z Debris Operations

{ Trucks are measured, certified, and operate properly

{ Trucks are loaded properly and loads are accurately evaluated

{ Load tickets are properly completed and controlled by the applicant

z Management and Oversight

{ Debris sites are properly mobilized and administered

{ Accurate records and appropriate documentation are kept

{ Contractor activities are conducted as mandated in contractor scope of work

Refer to Appendix A: Job Aids. 

Applicant

The applicant has the primary responsibility for monitoring its debris removal operations. The 

applicant fills three roles in monitoring debris removal operations: field supervisor, loading 

monitor, and tower/site monitor. 

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 to take to document and correct 

non-compliance issues. If an applicant decides to undertake 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 State and FEMA prior to 

implementation to ascertain compliance. 
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Chapter 1: FEMA, State, Tribal Government, and Applicant Monitors

FEMA 327 Public Assistance Debris Monitoring Guide

Refer to Appendix B for a sample debris monitoring plan, including monitoring forms. Contract 

documents are located in Appendix C.

Applicant Debris Monitors

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. For force account debris removal operations, debris monitors ensure that the debris 

removal operations are efficient, safe, and properly documented to substantiate the applicant’s 

grant claim. 

General Debris Monitor Qualifications

Applicant debris monitors should have a complete understanding of their responsibilities and:

z Fully understand their responsibilities in accordance with the terms of the debris 

removal contract and other specific guidance provided by the applicant 

z Possess the capability to estimate debris quantities accurately and objectively 

z Understand all phases of debris management operations, including 

loading sites, DMSs, and final disposition locations

z Be able to differentiate between debris types

z Be able to fill out load tickets properly

z Understand site safety procedures 

z Communicate effectively and efficiently

z Possess previous construction site experience (preferred)

z Have general knowledge pertaining to the operation of 

large construction machinery (preferred)

Debris monitors do not need to be registered professional engineers.

Duties of Debris Monitors

Applicants need to provide monitoring for 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.

Loading Site Monitors

The loading site monitors will perform on-site, street-level debris monitoring at all loading 

sites to verify debris eligibility based on contract requirements, and initiate debris removal 

documentation using load tickets. Loading site debris monitors’ primary jobs are to:

z Estimate load volumes and issue 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)
6 FEMA 327 Public Assistance Debris Monitoring Guide

Chapter 1: FEMA, State, Tribal Government, and Applicant Monitors

z Maintain logs of daily subcontractor performance, eligibility, or other activities as required 

Their other duties include, but are not limited to: 

z Safety

{ Checking the area for safety considerations, such as downed power lines, children 

playing in the area, traffic control needs, and safe operation of trucks and equipment 

{ Implementing all safety requirements

{ Performing a pre-work inspection of debris collection areas before 

loading to identify the location of covered utility meters, transformers, 

fire hydrants, mail boxes, etc., as a baseline to account for any 

collateral damage as a result of the debris removal operation

{ Ensuring that debris loads are contained properly before leaving the loading area

z Eligibility

{ Determining whether each load is to be claimed for reimbursement based upon PA 

eligibility criteria and marking load tickets if ineligible for FEMA reimbursement 

{ Documenting eligible hazardous trees, including hangers, leaners, and stumps 

{ Verifying global positioning system (GPS) readings or an address/location of leaning 

trees, trees with hanging limbs, and uprooted/exposed stumps that constitute an 

immediate threat; a separate ticket should be written if required in the contract

{ Not issuing tickets for trucks that arrive at pickup sites already loaded or partially loaded 

{ Ensuring that force account labor and/or debris contractor 

work is within the assigned scope of work 

z Compliance

{ Certifying truck measurements

{ Obtaining the requirements outlined in all debris removal and disposal 

contracts, to ensure the contract requirements are implemented correctly

{ Reporting to supervisor if debris removal work does not comply with all 

local ordinances, as well as State and Federal regulations (i.e., proper disposal 

of hazardous wastes) 

z Debris Operations

{ Ensuring that hazardous wastes are 

not mixed in with debris loads 

{ Recording equipment details for timeand-materials contracts, including 

the type of equipment, the hours each 

piece of equipment was used along 

with operator name, and downtime 

of each piece of equipment by day 

Figure 1: Contractor debris operation
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Chapter 1: FEMA, State, Tribal Government, and Applicant Monitors

FEMA 327 Public Assistance Debris Monitoring Guide

{ Ensuring only debris that is specified by the applicant is 

collected for loading and hauling (Figure 1) 

{ Ensuring only debris from public areas is removed

{ Ensuring the work area is clear of debris before 

equipment moves to a new loading area

{ Evaluating and recording performance and productivity of debris removal crews

z Communication

{ Remaining in constant contact with debris management/dispatch center or supervisor

{ Reporting issues (such as safety concerns, contractor noncompliance, and equipment use) to their field supervisor

{ Photographing and providing a written document of any damages made to 

utility components, driveways, road surfaces, private property, vehicles, etc.

{ Performing other duties as directed by the debris management 

project manager or designated debris management personnel

Tower/Site Monitors

Debris monitors at a DMS are often referred to as “tower” or “site” monitors.” The tower/site 

monitor’s role encompasses the following scope of duties: 

z Safety

{ Checking the area for safety considerations, such as downed power lines, children 

playing in the area, traffic control needs, and safe operation of trucks and equipment 

{ Implementing all safety requirements

z Compliance

{ Obtaining the requirements outlined in all debris removal and disposal 

contracts, to ensure the contract requirements are implemented correctly

{ Reporting to supervisor if debris removal work does not 

comply with all local ordinances, as well as State and Federal 

regulations (i.e., proper disposal of hazardous wastes) 

z Debris Operations

{ Ensuring that hazardous wastes are not mixed with debris loads 

{ Recording equipment details for time-and-materials contracts including 

the type of equipment, the hours each piece of equipment was used along 

with operator name, and downtime of each piece of equipment by day 

{ Accurately measuring and documenting load hauling compartments for 

trucks and trailers to compute volume capacity in cubic yards (CY) for each 

truck and trailer prior to its commencement of debris hauling operations 

{ Recertifying truck capacities on a regular basis

{ Verifying calibration of scales (if tonnage contract is used for debris removal)
8 FEMA 327 Public Assistance Debris Monitoring Guide

Chapter 1: FEMA, State, Tribal Government, and Applicant Monitors

{ Ensuring that truck loads are accurately credited 

{ Estimating the percentage of full capacity for each truck or trailer load 

{ Ensuring that trucks are not artificially loaded (e.g., debris 

is wetted, debris is fluffed or not compacted) 

{ Initialing each load ticket before permitting any truck to proceed 

from the tower entrance to the dumping location

{ Properly and accurately completing and physically controlling 

load tickets (for both tower and loading monitors) 

{ Monitoring site development and restoring DMSs 

z Communication

{ Remaining in constant contact with debris management/dispatch center or supervisor

{ Reporting issues (such as safety concerns, contractor noncompliance, and equipment use) to their field supervisor

Field Supervisor

The applicant’s field supervisor is responsible for scheduling and deploying the loading and 

tower/site debris monitors and overseeing their daily activities at loading sites and disposal and 

staging sites. The field supervisor resolves field operational, eligibility, and safety issues, and 

communicates these issues to the applicant. Communication and coordination of daily activities 

with FEMA, State, and applicant field personnel is required. The field supervisor also conducts 

or oversees truck certifications, load measurements, and photo-documentation as required. The 

field supervisor collects daily logs from the debris monitors and tabulates truck load data for 

the daily report.

In addition to the general qualifications for debris monitors detailed above, field supervisors 

need to:

z Possess the ability to communicate with field staff as well as management

z Be able to resolve conflicts and issues in the field

z Understand when to elevate issues to the applicant’s management

Field supervisor duties include, but are not limited to:

z Safety

{ Being familiar with, maintaining, and implementing all safety requirements

z Eligibility

{ Ensuring that a reasonable level of effort is applied to the monitoring 

process, commensurate with the debris operations and the schedule 

(refer to Section 3.3, Reasonable Level of Effort Guidance) 

{ Ensuring only eligible debris is collected for loading and hauling
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Chapter 1: FEMA, State, Tribal Government, and Applicant Monitors

FEMA 327 Public Assistance Debris Monitoring Guide

z Compliance

{ Obtaining and becoming familiar with the requirements 

outlined in all debris removal and disposal contracts

{ Making unannounced visits to all loading and disposal sites within an assigned area

z Debris Operations

{ Ensuring only debris from approved public areas is loaded for removal

{ Assisting in the measuring of all debris hauling trucks and trailers 

with the appropriate contractor representatives, if applicable

{ Taking photographs of all trucks and trailers used in the debris 

operations to establish a baseline inventory of equipment

z Management and Oversight

{ Serving as the first-line of management for the debris monitors and assisting 

as necessary with any questions or conflicts that arise in the field

{ Preparing a daily written report of all activities observed and including photographs

{ Being familiar with all phases of the debris management operation, 

including loading sites, DMSs, and final landfill sites

Chapter 2: Eligibility Requirements

FEMA 327 Public Assistance Debris Monitoring Guide 11

Chapter 2: Eligibility Requirements

FEMA PA Program Debris Removal Eligibility

In order to be eligible for PA Program funding, debris must be generated by a Presidentially 

declared disaster; 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 (44 CFR §206.223 and §206.224).

Applicants should consult the Public Assistance 

Guide (FEMA 322); Public Assistance Debris 

Management Guide (FEMA 325); and FEMA’s 

Recovery 9500 Policy Series for detailed guidance on debris and general eligibility criteria under 

the PA Program. This information is also available online at www.fema.gov/government/grant/

pa/debris_main.shtm.

Eligible Debris Removal

The applicant is responsible, through the use of debris monitors, for ensuring that the claimed 

debris removal activities are completed in accordance with contract specifications and other 

supplemental guidance, and that appropriate costs are claimed to the FEMA PA Program 

for reimbursement. FEMA PA management personnel will determine eligibility based on the 

defined scope of work of the debris removal operation, field observations, documentation, and 

monitoring costs. 

Ineligible Debris Removal

An applicant is free to authorize the removal of any 

debris it deems appropriate. However, the removal 

of ineligible debris should be clearly documented 

and delineated as ineligible in the loading tickets, 

monitoring notes, and summary of debris totals. If 

an applicant chooses to process ineligible debris, it 

must be separated from the FEMA claim, and any 

monitoring costs associated with that work are ineligible for FEMA funding.

Eligible Monitoring Work and Costs

Reasonable costs associated with the following activities may be eligible for PA funding:

z Labor and material costs associated with field supervisors, loading and tower/site 

monitors, and completing documentation as necessary to substantiate PA grant funding 

z 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) 

z Training of debris monitors on debris removal operations, debris 

monitoring and documentation processes, and FEMA eligibility. Note: 

FEMA can provide training to applicant debris monitors upon request. 

Only FEMA has the authority to make 

eligibility determinations for FEMA PA 

Program grant funding.

Final determinations on eligible costs are 

not made in the field. They are made by 

FEMA PA management personnel during 

development and review of the PWs. 

Therefore, it is imperative that debris 

removal and debris monitoring procedures 

be well documented throughout debris 

operations. 
Chapter 2: Eligibility Requirements

12 FEMA 327 Public Assistance Debris Monitoring Guide

z Use of electronic load ticket system or automated debris monitoring system 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. 

Ineligible Work and Costs

Costs that FEMA determines to be associated with an unreasonable level of effort, including 

disproportionate numbers of debris monitoring personnel and clerical staff related to the scope 

of the debris removal operation, are not eligible debris monitoring costs under the PA Program.

Project Supervision and Management Costs

Costs considered project supervision or management costs, as defined under Disaster 

Assistance Policy (DAP) 9525.6, Project Supervision and Management and Supervision Costs, 

differ from eligible debris monitoring costs. Project supervision and management costs 

should be separated, documented, and claimed separately in accordance with DAP9525.6. The 

eligibility of this work and its cost will be evaluated separately and on a case-by-case basis in 

accordance with DAP9525.6. 

Such project supervision or management costs may include costs associated with direct 

management of the debris removal operation by an applicant’s in-house staff, 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.

Reasonable Level of Effort Guidance

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 commensurate with the magnitude of the disaster, the types and 

quantities of debris to be removed, and the scope of the debris removal operation. 

Level of Effort for Debris Loading Sites

Historical data for debris monitoring operations suggest the following level of effort may be 

appropriate for field efforts. 

Rural areas: One loading monitor should be provided for each loading site to verify that the 

collected debris is eligible under PA Program criteria. The number of loading monitors can be 

amended to allow one monitor to oversee two or even three contractor loading sites, as long 

as the truckloads are reviewed at a controlled access point and the collected debris can be 

documented and verified as eligible or ineligible.

The fees associated with using staff with professional qualifications may not be considered reasonable 

for reimbursement from FEMA. In order to be eligible, the applicant must document the reason specific 

professional qualifications are required. 
Chapter 2: Eligibility Requirements

FEMA 327 Public Assistance Debris Monitoring Guide 13

Urbanized or higher-density areas: One loading monitor should be provided for every three to 

four loading sites. This presumes that 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 (temporary or permanent). 

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) 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 documentation. Larger or 

faster operations may require additional clerical support. The number of 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 clerical support.

Reasonable Cost Guidance

Costs associated with debris monitoring must be reasonable and necessary as defined by 

the Office of Management and Budget (OMB) Circular A-87 and Title 44 Code of Federal 

Regulations (CFR) Part 13. Competitively bid debris monitoring contracts that comply with 

Federal, State, and local procurement regulations and procedures will establish reasonableness 

for debris monitoring costs. However, FEMA will determine reasonable costs for contracts that 

are not competitively bid. 

FEMA’s Recovery Fact Sheet 9580.201, Debris Contracting Guidance, includes cost analysis 

guidance that applicants may use to help assess reasonableness. The Fact Sheet provides 

guidance to applicants in conducting analyses of:

z Labor: Are labor rates, labor classifications, and number of proposed labor 

hours reasonable for the proposed scope of work? The labor rates should be 

commensurate with the skill level required by the job function. Professional 

engineers and qualifications are not required to perform debris monitoring duties. 

z Materials and Supplies: Are costs necessary and reasonable?

z Profit: Was profit negotiated as a separate element of the contract price?

FEMA and applicants may also use other sources of cost information when assessing the 

reasonableness of force account labor costs, including, but not limited to, FEMA Cost Codes 

available in the Emergency Management Mission Integrated Environment (EMMIE). 

Applicants are encouraged to use all of these resources and other available sources of 

information in their assessment of reasonable debris monitoring costs. 
Chapter 2: Eligibility Requirements

14 FEMA 327 Public Assistance Debris Monitoring Guide

Debris Operations – Level of Effort Scenario

The U.S. Army Corps of Engineers developed this scenario based on historical data from 

multiple disasters. Every disaster and impact area is unique; accordingly, debris removal 

and monitoring operations vary based on the conditions of each disaster. 

Scenario: A storm generates approximately 1,000,000 CY of debris, and the cleanup 

period is estimated to be 60 days. Each debris removal crew can load and dispose of 600 

CY/day. The calculation of CY per crew for the duration of the cleanup period is:

60 days x 600 CY/day = 36,000 CY per crew

If the storm generates roughly 1,000,000 CY of debris, and one crew can move 36,000 CY 

of debris within 60 days, 28 debris crews would be needed to haul debris in this scenario. 

One loading monitor can be used for every three to four crews (if circumstances allow). 

If 28 crews are used, 10 loading monitors and 2 field supervisors would be needed to 

effectively monitor the pick-up portion of the debris operation at the loading sites. 

If the cleanup period is protracted, the number of crews and loading monitors may be 

reduced. However, the overhead costs associated with keeping personnel in the field longer 

may increase the overall costs of the debris monitoring mission.

Planning assumptions:

1.A typical debris removal crew consists of: 

z One front loader or knuckle-boom 

z Four to five trucks (depending on the travel time and distance to the DMS)

2.A typical debris removal crew can transport approximately 600 CY of debris per day

3. The number of loading monitors should be based on: 

z Estimate of the amount of debris to be moved from the 

rights-of-way (FEMA-eligible debris) to the DMS

z Estimated timeframe for cleanup
Chapter 3: Debris Monitoring by Debris Type

FEMA 327 Public Assistance Debris Monitoring Guide 15

Chapter 3: 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: Job Aids 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 flat bed trucks, dump trucks, and grapple loaders. 

Considerations for Monitoring Operations

z Hand-loaded trucks/trailers are graded 

at 50 percent of a load because of the low 

compaction achieved by hand-loading, 

pursuant to DAP9523.15, Debris Operations – 

Hand-Loaded Trucks and Trailers (Figure 2).

z This type of debris may be recyclable or 

have salvage value. Document separation 

and salvage operations when implemented.

z For special vegetative debris considerations, 

refer to Disaster Assistance Fact Sheet 

9580.204, Documenting and Validating 

Hazardous Trees, Limbs, and Stumps.

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, fully cured 

asphalt, equipment, furnishings, and fixtures. The definition of C&D debris may vary between 

jurisdictions—what is included in one jurisdiction may be excluded in another. 

Considerations for Monitoring Operations 

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 present an immediate threat to be considered for FEMA 

eligibility.

Hazardous Waste

The applicant should comply with Federal, State, and local environmental requirements for 

handling hazardous waste. 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 lists (refer to Title 40 of the CFR Part 261) or exhibits at least 

one of the following four characteristics: 

Figure 2: Hand-loaded truck
Chapter 3: Debris Monitoring by Debris Type

16 FEMA 327 Public Assistance Debris Monitoring Guide

z Ignitability 

z Corrosivity 

z Reactivity 

z Toxicity 

Considerations for Monitoring Operations 

z Hazardous wastes may require 

segregation and special 

handling (Figure 3)

z Improper segregation of the hazardous 

waste debris should be documented

z If unsafe practices are observed 

during the handling and disposal of 

hazardous materials, the appropriate 

authorities should be notified

z 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

z Monitor hazardous material processing 

carefully and regularly to verify that 

proper precautions are taken and that 

the chain-of-custody is maintained

z 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 includes 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.

Considerations for Monitoring Operations 

z Verify and document that HHW is picked up and handled by specialists 

licensed by the Grantee’s Department of Environmental Quality 

(DEQ) and managed in designated areas within the DMS

Figure 3: Segregation of hazardous debris
Chapter 3: Debris Monitoring by Debris Type

FEMA 327 Public Assistance Debris Monitoring Guide 17

z 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 computer monitors and televisions. Typically, these 

products contain minerals and chemicals that require specific disposal methods.

Considerations for Monitoring Operations 

z Ensure that e-waste is segregated

z Ensure that e-waste is removed intact, collected, and stored at the DMS for later processing

z This type of debris may be recyclable or have salvage value, document 

separation and salvage activities that are implemented

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. 

Considerations for Monitoring Operations 

z Document that white goods are 

collected separately, cleaned and 

processed to remove putrescent 

debris inside and to remove all oils, 

solvents, and refrigerants (Figure 4)

z 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

z 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, and storm surges often deposit soil, mud, and sand 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. 

Considerations for Monitoring Operations 

z 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. 

Figure 4: White goods being staged
Chapter 3: Debris Monitoring by Debris Type

18 FEMA 327 Public Assistance Debris Monitoring Guide

z Contaminated soils may require special handling depending 

on the contaminant. Document any contaminated soil issues to 

ensure proper handling, processing, and disposition.

z Verify that any contaminated disaster-generated soils are addressed by specialists 

from the State’s DEQ and/or EPA and managed appropriately in designated areas. 

Vehicles and Vessels

Vehicles and vessels may be damaged, 

destroyed, displaced, or lost as a result of a 

disaster (Figure 5). 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.

Considerations for Monitoring 

Operations 

z Verify that each vehicle or vessel identification number is 

documented and processed appropriately. 

z Verify that collected vehicles and vessels are transported to a collection 

area where they are secured and protected. Depending on the 

ownership, the vehicles can be returned, salvaged, or destroyed. 

z Verify that vehicles are processed to remove all minerals 

and fluids before processing or destruction. 

z 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. Putrescent debris handling must comply with applicable Federal, State, 

and local requirements. 

Considerations for Monitoring Operations 

z Document that putrescent debris is collected in accordance with 

contract specifications or other specific requirements. 

z 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 removed 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 

Figure 5: Boat and vessel debris
Chapter 3: Debris Monitoring by Debris Type

FEMA 327 Public Assistance Debris Monitoring Guide 19

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.). Upon review of applicable Federal statutes, 

regulations, and policies governing infectious waste, FEMA will determine eligibility on a caseby-case basis.

Considerations for Monitoring Operations 

z Document that the disaster-related infectious waste is collected and separated in 

accordance with prescribed safety and medical practices. Local, State, or Federal 

health officials may dictate the collection process, including collection containers, 

protective gear, decontamination requirements, and disposal methods.

z The volume of debris should be documented, but is typically 

secondary to proper documentation of the collection method. 

z Verify that infectious waste debris quantities are well documented and 

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. 

Considerations for Monitoring Operations 

z 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. 

z Be aware of the types of evidentiary material being sought in case CBRNcontaminated debris is encountered outside of the identified crime scene area. 

z 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.

Documenting Eligible Work and Costs for 

Public Assistance Funding

Proper documentation enables an applicant to fully account for debris clearance and removal 

costs incurred as a result of a Presidentially declared disaster. The 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, 
Chapter 3: Debris Monitoring by Debris Type

20 FEMA 327 Public Assistance Debris Monitoring Guide

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.

Documentation is required to support an applicant’s request for PA funding for debris 

clearance, removal, and disposal work. The following describes the types of documentation that 

can support an applicant’s reimbursement request. This documentation should be supplied to 

FEMA PA staff for inclusion in the PWs 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 documentation includes:

z Payroll records of full-time and temporary employees 

who worked on the debris removal operation

z Records of applicant-owned equipment used in the debris removal 

operation, including documentation of equipment hours in 

service, associated equipment rates, and operator name

z Invoices of rental equipment used in the debris removal operation

z Documentation from permitted final disposal locations including:

{ Invoices of disposal tipping fees

{ Quantities of debris disposed

z 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

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), 

including load tickets and tower logs, which will provide information on:

z Locations of debris removal 

z Type of debris removed

z FEMA debris removal eligibility determination

z Debris quantities (volume or weight, determined at inspection site)

z Identification of debris hauling truck/trailer and contractor 

z Location of permitted final debris disposal site

z Documentation of labor, equipment, and materials charges including hours 

of service, and associated charges (for time and materials contracts)
Chapter 3: Debris Monitoring by Debris Type

FEMA 327 Public Assistance Debris Monitoring Guide 21

z Documentation of quantities of debris reduced or recycled 

at DMSs and associated detailed charges

z 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 in a PW. FEMA and the 

State 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 

costs claimed in the PW. Refer to Appendix B: Sample Debris Monitoring Plan and 

Monitoring Forms.

Monitoring Reports

Applicants should have debris monitors submit daily reports, to the applicant, 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 very labor and 

time intensive, and can result in significant levels of human error. 

Recent advances in automated debris management tracking systems have provided 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, 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 2: 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.

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. Debris removal contractors are required to adhere to 

contract terms and to monitor the performance of their crews. 

Chapter 4: Force Account vs. Contract Monitoring

FEMA 327 Public Assistance Debris Monitoring Guide 23

Chapter 4: Force Account vs. Contract Monitoring

Applicants may use force account resources, contractors, 

or a combination of both to monitor their debris removal 

operations. When the debris monitoring activities are 

beyond the capacity of an applicant, it may contract out 

such services. When using contract services for debris 

monitoring, the applicant is augmenting its workforce 

with additional staff and expertise that does not normally 

reside within its own force account labor. (Force account 

eligibility criteria are detailed in 44 CFR §206.228.)

Using Force Account Resources to 

Monitor Operations

Applicants are encouraged to use their own employees to monitor debris removal operations, 

as their employees are the most familiar with the jurisdiction and know the priorities of the 

applicant’s debris management plan. Force account labor tends to have a vested interest in 

keeping debris monitoring costs to a minimum. 

Other benefits of using force account labor for debris monitoring include:

z The local workforce may be able to respond immediately after the disaster 

z Standard timesheet and equipment 

documentation procedures are typically 

adequate for documentation purposes

Using Contractor Resources to Monitor 

Operations 

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. 

Reasonable costs associated with using debris monitoring contractors to perform certain 

activities can be reimbursable under the FEMA PA Program. Applicants should use competitive 

contract bidding procedures when procuring these services and should also use proper 

oversight of these contracts to ensure compliance with contract terms.

Applicants are strongly encouraged to consider the following guidance when procuring and 

overseeing contracts for debris monitoring services: 

z Procurement Process

{ Applicants must use competitive bidding procedures to meet procurement 

requirements for Federal grants, as set forth in 44 CFR Part 13.36, Procurement.

{ 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 State or local laws, codes, or ordinances. 

Applicants can expedite the 

procurement processes during 

emergencies by having competitive 

contracts already established before 

a disaster occurs. Methods include:

•	Pre-drafted contracts 

•	Pre-qualified contractors 

•	Pre-positioned contracts

Does the applicant have access to a 

local labor force qualified to perform 

monitoring functions? Options may 

include:

•	University students 

•	Code enforcement employees 

•	Retired local government 

personnel
Chapter 4: Force Account vs. Contract Monitoring

24 FEMA 327 Public Assistance Debris Monitoring Guide

{ Require bidders to provide copies of references, licenses, 

financial records, and proof of insurance and bonding.

{ Document procedures used to obtain/award contracts (procurement 

information, bid requests, and tabulations, etc.).

{ Applicant’s legal representatives should review the contract, 

and process used to procure it, to ensure that the applicant is in 

compliance with all Federal, State, and local requirements.

z Scope of Work

{ Verify that all requests for proposals, bids, and contracts have a well-defined 

scope of work, specified costs, basis of payment, performance schedule, and 

descriptions of the type of service provided by each labor category and skill class. 

{ 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. 

{ Require use of a load ticket system (paper or electronic) to record 

with specificity (e.g., street address) where debris is picked up 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 are reasonable. 

z Reasonable Cost

{ Ensure that debris monitoring contract costs are reasonable and necessary as 

defined and required by OMB Circular A-87 and 44 CFR Part 13. Competitively 

bid contracts that comply with Federal, State, and local procurement 

regulations and procedures will establish reasonable costs for the work.

{ Complete and document a cost analysis to demonstrate price 

reasonableness on any contract or contract modification where adequate 

price competition is lacking, as detailed in 44 CFR §13.36(f), Contract 

Cost and Price. Guidance for completing a cost analysis is included in 

the Recovery Fact Sheet 9580.201, Debris Contracting Guidance.

z Contract Requirements

{ Ensure that your time-and-materials contract (most commonly used contract type 

for debris monitoring) contains a not-to-exceed clause pursuant to 44 CFR §13.36.

Section 307 of the Stafford Act requires communities to give preference to local firms in the awarding 

of contracts in major disasters and emergencies to the extent it is feasible and practicable. This 

includes contracts for debris clearance. Preference may be given through a local area set-aside. 

Applicant’s should also take the necessary steps to ensure there are opportunities to award contracts 

to minority, women-owned, and Labor Surplus Area businesses and firms whenever possible. FEMA 

will review, on an ongoing basis, procurement documents to validate that affirmative steps to utilize 

minority and women-owned businesses are being followed during the administration of an award.
Chapter 4: Force Account vs. Contract Monitoring

FEMA 327 Public Assistance Debris Monitoring Guide 25

{ Award contracts to responsible bidders who are reputable and qualified 

licensed contractors. Applicants should conduct reference checks on contractors’ 

performance history with the State’s contractor licensing board and with 

previous clients before awarding contracts. Applicants should also verify that 

potential contractors are not on a State’s “Debarred Contractor” listing. 

{ Require the contractor to provide a safe working environment, 

including properly constructed monitoring towers.

{ Ensure that you keep complete and accurate records of contractor 

activities and costs to include in your reimbursement requests.

Applicants should always use their standard procurement processes and practices that conform 

to local and State procurement policies and regulations, as well as those required by Federal 

regulations. Be aware that in some instances Federal regulations may require more competitive 

procurement processes than local and State regulations. Applicants jeopardize FEMA PA 

Program funding when procurement procedures are overlooked in the interest of time. 

Applicants are strongly encouraged to work with State 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 determine whether the process meets the standards set forth in CFR §13.36, Procurement. 

FEMA can also review contracts for compliance with Federal requirements.

Applicants may enter into any contractual arrangements they wish. However, FEMA is not bound to 

applicant contractual obligations because it is not a party to those contracts.

Chapter 5: Debris Monitoring Contract Provisions and Methods 

FEMA 327 Public Assistance Debris Monitoring Guide 27

Chapter 5: Debris Monitoring Contract Provisions and Methods

Contracting out debris monitoring services does not absolve the applicant of its 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. To ensure that the contracts are in accordance with the Federal, State, and local 

procurement laws, the applicant debris planning staff should seek guidance from their legal 

counsel.

Basis of Payment

The basis of payment and the payment process should 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 scope of work and costs for the service are key factors in analyzing reasonable costs. 

Reasonable costs are those that include a reasonable level of effort 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 as well as the 

schedule requirements and the applicant’s overall concept of operations, including 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 should include provisions on the basis of payment, contract 

duration, performance measures, termination for convenience, and a conflict resolution process. 

The applicant should:

z 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.

z Provide supervision and oversight of the debris monitoring operations to ensure that 

only approved and necessary hours are applied to the debris monitoring contract.

z 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.

Typical documentation for debris monitoring reimbursement includes:

z Personnel assignments, duties, and responsibilities

z Timesheets

z Debris monitoring reports

z Debris totals (CY and tonnage) 

z DMS reports

z Exception reports (when debris monitoring reveals problems with debris operations)

z Truck/Trailer Certification reports 

z Geographic information system (GIS) planning and progress reports 
Chapter 5: Debris Monitoring Contract Provisions and Methods 

28 FEMA 327 Public Assistance Debris Monitoring Guide

z Debris progress reports

z Safety reports

Duration of Contract

To ensure that debris monitoring and removal services are conducted expeditiously, contracts 

should include specific timelines for work to be completed. The duration and scheduled 

milestones of the contract should be clearly stated. 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).

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. In addition, the contract should 

include a convenience and default clause for early termination, thereby allowing the applicant 

to terminate the contract if the contractor does not deliver services in the manner specified in 

the contract. 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. Refer to Appendix 

C: Monitoring Contract Process/Documents for contract documents, including an RFP cover letter and a 

sample scope of services.

Impacts of Different Types of Debris Removal Contracts on 

Monitoring

There are several types of debris removal contracts that can be utilized. 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: Job Aids.

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 6). The contractor uses estimated quantities 

to establish a total contract price. 
Chapter 5: Debris Monitoring Contract Provisions and Methods 

FEMA 327 Public Assistance Debris Monitoring Guide 29

Impact of Unit Price Contracts on Debris Monitoring

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 tons) during the debris processing 

is essential. 

z Debris monitoring is essential during 

pick up, transportation, eligibility 

determination, segregation, staging, 

reduction, and final disposition.

z 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 scope of work can be identified and quantified. These 

bid requests include a set of specifications that have a well-defined scope of work 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.

Impact of Lump-Sum Contracts on Debris Monitoring 

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. 

z The DMS site/tower monitors should carefully review the processing of 

materials, especially the quantities of materials collected for processing (grinding, 

chipping, incineration) and the quantities at the back end of the processing.

z 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.

z When applicable, the debris quantities entering a DMS should be compared 

with the debris quantities that have been processed (chip piles or outbound 

truckloads can be measured to corroborate the debris volumes).

Time-and-Materials

Time-and-materials contracts may be used when the scope of work necessary to achieve an 

outcome is unknown. The FEMA PA Program will typically only reimburse applicants for 

a time-and-materials contract for eligible debris clearance during the first 70 hours of work 

following a declared disaster. After the first 70 hours of work, the applicant should have 

sufficient information to effectively solicit a competitively procured lump-sum or unit price 

contract. For types of debris work where time-and-materials contracts are the most cost-effective 

Figure 6: Debris monitors determine type and 

quantity of debris 
Chapter 5: Debris Monitoring Contract Provisions and Methods 

30 FEMA 327 Public Assistance Debris Monitoring Guide

and well-suited options, applicants should work closely with the State and FEMA when 

awarding such contracts to ensure PA eligibility requirements are met.

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, 1 CY bucket, and operator = 

$50/hour. The contractor is paid based on the actual time spent to perform the specified tasks 

and equipment use. The contractor is also paid for the actual cost of materials used during 

operations.

Impact of Time-and-Material Contracts on Debris Monitoring 

Monitoring time-and-materials contracts is extremely important. Debris monitors should 

produce daily inspection reports that clearly quantify the amount of work accomplished each 

day, including:

z The number of hours worked (scheduled work hours/crew size).

z The type and quantity of each type of truck/trailer/equipment used (Figure 7).

z Verification of equipment hours. Only active work hours 

should be submitted for FEMA reimbursement.

z Standby time is not eligible for FEMA reimbursement.

z 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.

z The weather conditions as 

they affect daily work.

z Production rates for each 

staging and reduction site.

z Quantities of debris hauled (CY). If 

debris is hauled based on CY, load 

tickets may be used as a way of 

checking contractor efficiency.

Figure 7: Type and duration of equipment used 

must be documented 
Chapter 5: Debris Monitoring Contract Provisions and Methods 

FEMA 327 Public Assistance Debris Monitoring Guide 31

Table 1 outlines the monitoring requirements for each type of contract.

Type of 

Contract

PW Scope of 

Work

Monitoring Required Crew Efficiency Collection Site DMSs Disposal Site Compliance

Comments

Lump-Sum Defined debris 

quantities and 

reasonable costs. 

Estimate is basis 

for contract costs.

ü ü

• 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. ü ü ü ü ü • 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.

ü ü ü ü ü

• Assess debris eligibility at collection site

• Document debris quantities

• Verify debris processing weights

• Verify calibration of scales

Time-andMaterialsBased on labor, 

equipment, and 

materials records. 

Reasonable costs 

evaluated by 

determining costs 

per unit.

ü ü ü ü

• Assess debris eligibility at collection site

• Typically used for road clearance activities 

during the Response Phase

• Eligible costs are typically limited to 70 work 

hours

• Supervising and monitoring every work crew 

is required

• Tracking debris removal quantities is still 

required to determine reasonable costs

Table 1: Monitoring Requirements by Contract Type

Source: FEMA Disaster Assistance Fact Sheet 9580.203, Debris Monitoring

Appendix A: Job Aids

FEMA 327 Public Assistance Debris Monitoring Guide 33

DEBRIS MONITOR DUTIES AND RESPONSIBILITIES 

FEMA Debris Monitor State/Tribal Debris Monitor Applicant Field Supervisor

Safety

• Ensure 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)

• N/A • 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 collected 

for loading and hauling

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 

Debris Specialist for appropriate 

coordination and resolution with 

State and applicant officials

• Ensure all work complies with local 

ordinances and State 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 within an 

assigned area

• Take photographs of all trucks and 

trailers used in the debris operation, 

to establish a baseline inventory of 

equipment

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 by the 

applicant

• Ensure only debris from approved 

public areas is removed

• Assist in measuring all debris 

hauling trucks and trailers with 

the appropriate contractor 

representatives, if applicable

Management and Oversight

• N/A • Ensure debris sites are properly 

mobilized and administered

• Ensure accurate recordkeeping and 

appropriate documentation

• Ensure contractor activities are 

conducted as mandated in contractor 

scope of work

• 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: Job Aids
Appendix A: Job Aids

34 FEMA 327 Public Assistance Debris Monitoring Guide

DEBRIS MONITOR DUTIES AND RESPONSIBILITIES (continued)

Applicant Debris Loading Monitor 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

• Before work begins, inspect areas to identify covered 

utility meters, transformers, fire hydrants, mail boxes, 

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

• 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 requireme

Eligibility

• Determine whether each load is to be claimed for 

reimbursement based on established 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 scope of work

• N/A

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 State and 

Federal regulations (i.e., improper disposal of hazardous 

wastes) 

• 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 State and Federal 

regulations (i.e., improper disposal of hazardous wastes) 

• Verify relevant permits were obtained for debris reduction 

methods such as burning 
Appendix A: Job Aids

FEMA 327 Public Assistance Debris Monitoring Guide 35

DEBRIS MONITOR DUTIES AND RESPONSIBILITIES (continued)

Applicant Debris Loading Monitor Applicant Debris Tower/Site Monitor

Debris Operations

• Ensure that hazardous wastes are not mixed into loads 

• Record the types of equipment used (for time-andmaterials contracts) 

• Record the hours equipment was used, including down 

time of each piece of equipment by day (for time-andmaterials 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

• 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 cubic yards (CY) for each truck and trailer prior to 

its commencement of debris hauling operations (recertify on 

regular basis)

• Recertify truck capacities on a regular basis

• Ensure that truck loads are accurately credited

{ Estimate the percentage of full capacity for each truck or 

trailer load

{ Ensure trucks are not artificially loaded (e.g., debris is 

wetted, fluffed, or not compacted)

• Collect load ticket from truck driver and initial each load 

ticket before permitting any truck to proceed from the tower 

entrance to dumping location

• Physically control load tickets

• Ensure that all debris is removed from trucks at DMSs

• Monitor site development and restoration of DMSs

• Oversee debris reduction (burning, chipping)

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

• Remain in constant contact with debris management/

dispatch center or field supervisor

• Report issues (such as safety concerns, contractor noncompliance, and improper equipment use) to field supervisor
Appendix A: Job Aids

36 FEMA 327 Public Assistance Debris Monitoring Guide

GENERAL DEBRIS MONITORING TIPS AND CONSIDERATIONS

Equipment

• The most common unit of measurement for vegetative and C&D debris is the cubic yard (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. Refer to FEMA Recovery Fact Sheet RP9523.12, Debris Operations – Hand-Loaded Trucks and Trailers.

A truck with no tailgate or no solid tailgate cannot be compacted to its full capacity; therefore, FEMA only considers a 

maximum of 85 percent of the certified truck capacity for reimbursement purposes.

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.

• 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.
Appendix A: Job Aids

FEMA 327 Public Assistance Debris Monitoring Guide 37

GENERAL DEBRIS MONITORING TIPS AND CONSIDERATIONS (continued)

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 construction and demolition (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 Challenge: 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.

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.

• Walk around the truck. 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).

• A truck is 100 percent full only when the debris is filled completely to the brim and the truck is heaped above the 

sideboards. The truck must have a tailgate that secures the entire back end of the truck.

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 and FEMA Debris Monitoring 

Specialists 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: Job Aids

38 FEMA 327 Public Assistance Debris Monitoring Guide

60 Percent Debris Load in Truck 75 Percent Debris Load in Truck 

85 Percent Debris Load in Truck 95 Percent Debris Load in Truck 

85 Percent Debris Load in Truck w/ No Tailgate 75 Percent Debris Load in Truck w/ No Tailgate 

If truck bed measured 20 cubic yards (CY), this 60 percent load

would be 12 CY.

If truck bed measured 20 CY, this 75 percent load would be 15 

CY.

If truck bed measured 20 CY, this 85 percent load would be 17 

CY.

If truck bed measured 20 CY, this 95 percent load would be 19 

CY.

This truck has no structural tailgate—the capacity would 

automatically be reduced from 20 CY to 17 CY (85 percent 

reduction). Then the debris load itself is 85 percent of fully 

loaded—14.5 CY. 

This truck has no structural tailgate—the capacity would 

automatically be reduced from 20 CY to 17 CY (85 percent 

reduction). Then the debris load itself is 75 percent of fully 

loaded—12.8 CY.

DEBRIS MONITOR GUIDELINES FOR ESTIMATING QUANTITIES
Appendix A: Job Aids

FEMA 327 Public Assistance Debris Monitoring Guide 39

Truck without a structural tailgate. Its maximum load is

automatically reduced to 85 percent of the rated truck size. 

Truck without a tailgate. Its load capacity is automatically

reduced to 85 percent. Slat-sided trucks may not be capable of 

being mechanically compacted. This means the truck capacity

should be further reduced. 

Truck without a tailgate. Its maximum load capacity is reduced to

85 percent. This truck is claimed to be ‘fully loaded’ with

branches sticking above the top and beyond the back of the truck 

bed—the actual load is only 75 percent. 

Truck with branches extending above the top of the truck sides. 

Although claiming to be ‘fully loaded,’ the load is filled with air 

pockets and the actual load is only 70 percent of the rated load 

capacity. 

This 20-CY roll-off container has a tailgate (in open position). 

The load appears to be near top of truck sides and was estimated 

at 85 percent. The assessment was done from the ground; no 

monitor tower was used at this DMS (see next photograph). 

This is the actual load from the 20-CY container truck shown on 

left. It measures approximately 4 CY when on the ground. 

DEBRIS MONITOR GUIDELINES FOR ESTIMATING QUANTITIES
Appendix A: Job Aids

40 FEMA 327 Public Assistance Debris Monitoring Guide

TYPES OF DEBRIS AND MONITORING CONSIDERATIONS

Types 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 handloading, pursuant to Recovery Policy RP9523.15, Debris 

Operations – Hand-Loaded Trucks and Trailers

• This type of debris may be recyclable or have salvage 

value; document separation and salvage operations 

when implemented

• For special vegetative debris considerations, please see 

DAP Fact Sheet 9580.204, Documenting and Validating 

Hazardous Trees, Limbs, and Stumps

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 Public Assistance 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 Department 

of Environmental Quality (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
Appendix A: Job Aids

FEMA 327 Public Assistance Debris Monitoring Guide 41

TYPES OF DEBRIS AND MONITORING CONSIDERATIONS (continued)

Types 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 State and Federal laws in 

securing possession

{ Applicant has verified chain-ofcustody 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 manmade 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: Job Aids

42 FEMA 327 Public Assistance Debris Monitoring Guide

TYPES OF DEBRIS AND MONITORING CONSIDERATIONS (continued)

FEMA References

• Public Assistance Guide (FEMA 322)

• Public Assistance Policy Digest (FEMA 321)

• Title 44 of the Code of Federal Regulations

• 9500 Series Policies and Fact Sheets 

• Debris Management Guide (FEMA 325)

• Debris Monitor Field Guide (FEMA B-587)

• Debris Monitoring Guide (FEMA 327)

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: Job Aids

FEMA 327 Public Assistance Debris Monitoring Guide 43

TYPES OF DEBRIS REMOVAL CONTRACTS AND MONITORING CONSIDERATIONS

Contract 

Type Description of Debris 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 scope of work can be 

identified and quantified; use for a 

well-defined scope of work with a finite 

contract period

• Loading monitors must validate that only contractidentified 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-andMaterials 

Contract

• Used when the scope of work 

necessary to achieve an outcome is 

unknown—contractor is paid for actual 

time, equipment usage based on hourly 

rates, and materials used

• FEMA typically only provides funding 

for the first 70 hours of work after 

a declared disaster using this type 

of contract; subsequently, applicant 

should be able to define scope 

definitely enough to obtain a lump-sum 

or unit price contract

• Monitoring must be thorough

• Inspection reports should be produced every day and 

should include the following information:

{ Number of hours worked

{ Type and quantity of each type of truck/trailer/

equipment used

{ Verification of equipment hours—document active 

work hours only; “stand-by” time is not eligible for 

FEMA funding

{ Verification of labor hours compared to equipment 

hours

{ Document weather conditions as they might affect 

daily work

{ Monitor production rates for each staging and 

reduction site

{ Monitor performance

{ Check quantities of debris hauled (cubic yards [CY])

{ 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

FEMA 327 Public Assistance Debris Monitoring Guide 45

Appendix B: Sample Debris Monitoring Plan and 

Monitoring Forms

Sample Forms and Tables are intended as guidance and should be modified to meet 

State and local procurement rules and regulations.

1.0 General

The _____________ has entered into a contract with ____________________________ for the 

purpose of: 

z Removing storm-generated debris from _________ rights-ofway and hauling the debris to a temporary debris management site 

(DMS) for volume reduction and/or to a final disposal site

z Setting up and operating _____ (_) DMS located at __________________

z 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 work day 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.
Appendix B: Sample Debris Monitoring Plan and Monitoring Forms

46 FEMA 327 Public Assistance Debris Monitoring Guide

Figure B-1: Sample Debris Load Ticket

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 

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.

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.
Appendix B: Sample Debris Monitoring Plan and Monitoring Forms

FEMA 327 Public Assistance Debris Monitoring Guide 47

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 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 

Number

Truck 

Number

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

48 FEMA 327 Public Assistance Debris Monitoring Guide

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:

z 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). 

z The tower/site monitor will record the name and the arrival time 

of the truck and confirm the type of debris in the truck. 

z 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: 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.

z 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.

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 
Appendix B: Sample Debris Monitoring Plan and Monitoring Forms

FEMA 327 Public Assistance Debris Monitoring Guide 49

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/

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:

z Capacity of hauling bed (CY)

z License plate number

z Truck identification number assigned by the owner

z Brief physical description of the truck

z Photographs

Determining an accurate capacity for each truck is important. Refer to Truck Certification Form 

Calculation Instructions (on page B-12) for additional information. 

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.
Appendix B: Sample Debris Monitoring Plan and Monitoring Forms

50 FEMA 327 Public Assistance Debris Monitoring Guide

Figure B-5: Truck Certification Form

Truck Information

Make Year Color

Truck Measurements

Performed By:__________________

Volume Calculated By:__________________

Both Checked By:__________________

Date:_______________________

Date:_______________________

Date:_______________________

Driver Information

Owner Information

Name:___________________________________________________

Address:___________________________________________________

Phone Number:___________________________________________________

Name:___________________________________________________

Address:___________________________________________________

Phone Number:___________________________________________________

Truck Identification:___________________________________________________

Truck Capacity:___________________________________________________

Photo

License
Appendix B: Sample Debris Monitoring Plan and Monitoring Forms

FEMA 327 Public Assistance Debris Monitoring Guide 51

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

52 FEMA 327 Public Assistance Debris Monitoring Guide

Measurements

Truck Measurements Length (L) = Width (W) ft = Height (H) ft =

Length1 (L1) ft = WidthH (WH) ft = HeightH (HH) ft =

Length2 (L2) ft =

Radius Radius ft = Height (H) =

Calculations

Bed Volume (Basic) + cyd

Hoist Volume - cyd

Radius Volume - cyd

Cubic Yards

Total = cyd

Measurements

Truck Measurements (Basic) Length (L) = Width (W) ft = Height (H) ft =

Length1 (L1) ft = WidthH (WH) ft = HeightH (HH) ft =

Length2 (L2) ft =

Radius Radius ft = Height (H) =

Calculations

Bed Volume (Basic) + cyd

Hoist Volume - cyd

Radius Volume - cyd

Total = cyd Cubic Yards

Measurements

Truck Measurements Length (L) ft = Diameter (D) ft =

Calculations

Approx. Volume (3.14 x (D/2)2 x L) /27 = cyd (round bottom portion only)

Cubic Yards

((L1+L2/2) x WH x HH)/27 =

EXTRA TRAILER

DUMP TRUCK

ROUND BOTTOM TRUCK

((L1+L2/2) x WH x HH) =

(3.14xR2

xH)/27 =

Hoist Measurement

(3.14xR2

xH)/27 =

(LxWxH)/27 =

Hoist Measurement

(LxWxH)/27 =

Round Bottom Truck

L

Hitched Trailers Require

Separate Certification and

Unique Truck Number H

Trailer/Truck Combination

W

H

L

H Radius W

L

Truck Measurements

Hoist Hoist

L

Hoist

L1

W L2

H

Hoist

L1

W L2

H

Figure B-6: Truck Dimensions
Appendix B: Sample Debris Monitoring Plan and Monitoring Forms

FEMA 327 Public Assistance Debris Monitoring Guide 53

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

FEMA 327 Public Assistance Debris Monitoring Guide 55

Appendix C: Monitoring Contract Process/Documents

Sample Forms and Tables are intended as guidance and should be modified to meet 

State and local procurement rules and regulations.

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. 
Appendix C: Monitoring Contract Process/Documents

56 FEMA 327 Public Assistance Debris Monitoring Guide

The RFP should be limited to 10 pages and address the following:

z Office location responsible for this project

z Key personnel

z Evidence of satisfactory completion of disaster debris 

monitoring in the past 5 years at similar jurisdictions 

z 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) 

z Summarized past relevant experience for each response should include the following:

z Type of disaster—hurricane, tropical storm, tornado, etc.

z Type of jurisdiction—city, county, district, or combination

z Collection debris monitoring assignments

z DMS debris monitoring assignments

z Final disposal debris monitoring functions

z FEMA reimbursement actions and issue resolution

z List of references 

z Knowledge and experience with applicant solid waste regulations 

and the disaster debris management policies

z Sub-consultant(s)/subcontractors that may be used on this project

z 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. 
Appendix C: Monitoring Contract Process/Documents

FEMA 327 Public Assistance Debris Monitoring Guide 57

The ________________ will not consider oral/written communications, prior to the conclusion of 

short listing firms, that vary the terms of the submittals.

Presentations/Interviews

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 state and local 

procurement rules and regulations.
Appendix C: Monitoring Contract Process/Documents

58 FEMA 327 Public Assistance Debris Monitoring Guide

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 local, State, 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:

z 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.

z 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.

z 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.

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. 
Appendix C: Monitoring Contract Process/Documents

FEMA 327 Public Assistance Debris Monitoring Guide 59

Services include, but are not limited to: 

z Overseeing and supervising loading site and disposal site debris monitoring activities

z Scheduling debris monitoring resources and deployment timing

z Communicating and coordinating with City/County personnel

z Providing suggestions to improve the efficiency of collection and removal of debris

z Coordinating daily activities and future planning

z Remaining in contact with debris management/dispatch center or supervisor

z Identifying, addressing, and troubleshooting any questions or 

problems that could affect work area safety and eligibility

z Supervising the accurate measurement of load hauling compartments 

and accurately computing volume capacity in cubic yards (CY)

z Documenting and recording measurements and computations 

z Documenting truck hauling compartment condition using digital photographs

z Preparing a master log book of all hauling equipment 

used by the City’s debris removal contractor

z Compiling, reconciling, and documenting daily, in an electronic spreadsheet 

format, all eligible debris hauled by the debris removal contractor(s) 

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:

z Providing trained debris monitoring personnel at designated loading 

sites to check and verify information on debris removal operations

z Monitoring collection activity of trucks 

z Issuing load tickets at loading site for each load

z 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 are operated safely

z Ensuring that Freon-containing appliances are sorted and ready for Freon removal 

on-site or separating transport for Freon removal before final disposal

z Performing a pre-work inspection of areas to identify potential 

problems such as covered utility meters, transformers, fire hydrants, 

mail boxes, etc. to mitigate damage from loading equipment
Appendix C: Monitoring Contract Process/Documents

60 FEMA 327 Public Assistance Debris Monitoring Guide

z 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) 

z Ensuring the work area is clear of debris to the specified level 

before equipment is moved to a new loading area 

z Properly monitoring and recording performance and productivity of debris removal crew

z Remaining in regular contact with debris management/dispatch center or supervisor

z Ensuring that loads are contained properly before leaving the loading area

z Ensuring that only eligible debris is collected for loading and hauling

z Ensuring that only debris from approved public areas is loaded for removal

z 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:

z 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

z Documenting measurements and computations

z Completing record of contract haulers’ cubic yardage and 

other recordkeeping as needed on the load ticket

z Initialing each load ticket before permitting trucks to proceed 

from the check-in area to the tipping area

z Remaining in regular contact with debris management/dispatch center or field supervisor

z Performing other duties as directed by the dispatch/staging operation, 

debris management project manager, or other designated personnel

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:

z Supervising the preparation of detailed estimates and 

submitting them to the City/County debris manager

z Implementing and maintaining a disaster debris management system 

linking the load ticket and debris management site information, including 

reconciliation and photographic documentation processes
Appendix C: Monitoring Contract Process/Documents

FEMA 327 Public Assistance Debris Monitoring Guide 61

z 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.


FEMA 327

Catalog No. 00000-0