Biosolids: The Search for a Final Resting Place

Transcription

1 Biosolids: The Search for a Final Resting Place Environmental Public Health Leadership Institute Fellow: Keith E. Hunter, R.S., M.P.H. Assistant Director; Sumter County Health Department 415 E. Noble Ave., Bushnell, FL 33513, , Keith_Hunter@doh.state.fl.us Mentor: Charles H. Henry, R.S., M.P.A. Environmental Administrator; Sarasota County Health Department Acknowledgements: Rolland Shrewsbury, R.S., B.S. Environmental Manager; Sumter County Health Department

2 EXECUTIVE SUMMARY: Every day across the country, billions of gallons of wastewater are generated by homes and businesses. This wastewater is treated at wastewater treatment facilities producing a high-quality liquid effluent that can be discharged to water bodies. This process also produces a solid residue byproduct (sewage sludge), that with further treatment yields Biosolids. Biosolids are defined by the USEPA as nutrient-rich organic materials resulting from the treatment of domestic sewage in a treatment facility. When treated and processed, these residuals can be recycled and applied as fertilizer to improve and maintain productive soils and stimulate plant growth. 1 The problem explored in this leadership project involves the challenges of Biosolids Management, including the ever declining options for disposal and the continuing concerns of the public for health effects and environmental impacts. The project involved the formation of a partnership of state and local stakeholders to discuss the current state of Biosolids regulation and the future of the industry. A review of the current scientific literature to assess the safety and health concerns as they relate to Biosolids disposal was conducted and a public education campaign initiated. The rule governing the management, use, and land application of Biosolids in the State of Florida is currently undergoing a revision (Chapter FAC). The last time the rule was amended was The tracking of this rule revision has coincided with the development of this project. By increasing knowledge and understanding of Biosolids and partnering with interested stakeholders, a Biosolids Management System can be developed that protects human health and the environment while also ensuring the beneficial uses of Biosolids remain. INTRODUCTION/BACKGROUND: Currently in the State of Florida, 66% of Biosolids are land applied, 17% are landfilled, and 17% are distributed and marketed (as fertilizer) 2. There are three classes of Biosolids in the State of Florida. These are; Class B, Class A, and Class AA. Class B Biosolids are the lowest level of treated Biosolids that can be land applied. Class A is treated further than Class B, and Class AA is further treated beyond that of Class A. There are greater restrictions on Class B land application than for Classes A and AA. This is because Class A and AA have reduced levels of pathogens as a result of the treatment process. This process generally involves higher temperatures and longer treatment times. The short and long-term impacts of this project include: A better understanding of citizen concerns regarding Biosolids disposal. Establishment of a mutually agreeable comprehensive management system for Biosolids disposal for Sumter County. Increased partnerships between Public Health leaders and community stakeholders. Better public understanding of the beneficial uses of Biosolids and the lack of public health risk when properly managed. Increased understanding of the importance and value of Biosolids as a fertilizer product.

3 Public understanding of the actual vs. perceived public health risk when Biosolids are properly managed. The Biosolids industry, both nationally and in the State of Florida, is at a crossroads. With increasing development and population growth, finding available land for disposal is becoming more difficult. Policy makers and industry will have to move toward production of Biosolids that pose little or no risk to public health or the environment (Class A and AA). Although Class B Biosolids have restrictions on use (including restricted public access), health concerns remain. These concerns are heard by state and local leaders who err on the side of public health when developing policy. It should ne noted that there has not been a causal association between biosolids exposure and adverse health effects 3. The overarching goal should be improved public confidence in the disposal of Biosolids utilizing one or more viable long-term methods. This vision can only be achieved by addressing citizen concerns in a meaningful way, developing public education campaigns, funding further research, and modifying existing rules and regulations to ensure the protection of public health and the environment. Problem Statement: A lack of knowledge and understanding about Biosolids disposal amid increasing population growth and development has led to fewer disposal options. A comprehensive approach to the management of Biosolids is needed.

4 BEHAVIOR Behavior Over Time Graph: Available Land GAP The gap highlights the lack of knowledge and understanding of Biosolids. Negative Public Perception Nitrogen Levels in Florida Springs Local County-Level Regulation TIME Figure 1: Behavior over Time Graph Figure 1 illustrates that the negative public perception of Biosolids (particularly land application) has increased. Available land for disposal continues to decline over time due to increasing population levels. Nitrogen in Florida springs has increased and local county level regulation has increased over time. The gap between local county-level regulation and rising negative public perceptions can be attributed to the following factors:

5 Lack of public education of the actual health risk associated with Biosolids disposal Lack of understanding of the beneficial uses of Biosolids and its importance and value as a fertilizer The need for more advanced levels of treatment due to increasing population growth and development The need for better enforcement for rule violations The need for more collaboration between stakeholders (regulators, industry, citizens) Proposed changes to the rule governing Biosolids disposal in the State of Florida have addressed some of these issues. However, much more needs to be done to create a long-term viable solution to Biosolids management in Sumter County, Florida.

6 Causal Loop Diagrams and applicable Archetypes: Shifting the Burden We want to protect environment and Public Health We want to be responsive to our constituents We need to put this stuff somewhere! Use of Local County-Level Enforcement O B S Harsher Restrictions and Closures Reduced land availability for disposal Advanced treatment is too costly Citizen Concerns about Biosolids Disposal amid increasing population growth and development. Illegal Dumping Willingness of stakeholders to develop/implement desired changes. Cost concerns O B S Require advanced levels of treatment of Biosolids to minimize risk to Public Health and the Environment. Develop Biosolids education programs. Better enforcement of rule violations. Time/resources for Public Education. Costs of advanced treatment.

7 Figure 2. Causal Loop Diagram and Applicable Archetype: Shifting The Burden Figure 2 illustrates the Shifting the Burden Archetype used for this project. The local government is attempting to solve the problem with the quick fix of increased regulatory oversight. Generally speaking, officials err on the side of public health when confronted with this type of issue. This may have an immediate short-term impact, but it ignores the underlying causes of the problem and can lead to unintended consequences such as illegal dumping. The lower loop represents the way to long-term viable Biosolids management. The archetype provides us with a look at how this solution can be achieved through increased education, better enforcement, and revised requirements for Biosolids treatment. In addition, increased resources need to be devoted to the effort and a commitment from stakeholders is essential. 10 Essential Environmental Health Services: Figure 3: Osaki, Ten Essential Public Health Services 4

8 This project links closely with four of the 10 Essential Environmental Health Services. Inform, Educate, and Empower This project focuses on informing, educating, and empowering community leaders and citizens with information on the importance and beneficial use of Biosolids as well as the relative risk to public health and the environment. Mobilize Community Partnerships This project seeks to bring community leaders, industry representatives, citizens, and others together for frank discussion and common understanding of the challenges facing the Biosolids industry and the way forward. Develop Policies This project may provide the impetus for local communities to develop a comprehensive Biosolids Management Plan in their jurisdiction to provide a long-term strategy for the management of Biosolids. Enforce Laws State agencies and local jurisdictions must enforce existing rules and laws as written and update them as the Biosolids industry changes. National Goals Supported CDC Health Protection Goals The CDC Health Protection goal supported by this project is Healthy People in Healthy Places. More specifically, Healthy Communities which states Increase the number of communities that protect, and promote health and safety and prevent illness and injury in all their members. This project seeks to do this by encouraging the development of a comprehensive approach to the management of Biosolids. National Strategy to Revitalize Environmental Public Health Services This project supports two of the goals of the National Strategy to Revitalize Environmental Public Health Services. The first is Goal IV, Communicate and Market. This project seeks to enhance communication and information sharing of the various stakeholders to enhance the understanding of a specific environmental public health topic (Biosolids disposal). The second and primary goal supported by this project is Goal VI, Create Strategic Partnerships. This project seeks to create partnerships among all stakeholders, including policy makers. Environmental Health Competency Project: Recommendation for Core Competencies for Local Environmental Health Practitioners This project supports at least two of the Core Competencies from the Environmental Health Competency Project. The first is Assessment: Research. A review of current literature on the topic of Biosolids disposal was necessary for this project. The second Core Competency supported by this project is Management: Problem Solving. It was necessary to clearly understand the complexity of the Biosolids problem, to articulate it, and to present appropriate solutions and the appropriate steps needed.

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10 PROJECT OBJECTIVES/DESCRIPTION/DELIVERABLES: Biosolids Management Program Objectives Process Objectives: Program Goal 1. To increase the knowledge and understanding of all residents and visitors to Sumter County of the actual health and environmental risks associated with the land application of Biosolids. 2. To safely manage the disposal of Biosolids in a manner that protects public health and the environment. Health Problem Illegal and/or improper treatment and disposal of Biosolids contributing to elevated Nitrogen levels in Florida s springs and negative public perceptions of Biosolids disposal practices. Outcome Objective The number of citizen complaints regarding Biosolids disposal (statewide) will be reduced by 50% by January Determinant Number of confirmed cases of illegal/improper treatment and disposal of Biosolids. Impact Objective Confirmed cases of illegal/improper disposal of Biosolids will be reduced 50% by January Contributing Factors 1. Lack of availability of cost effective disposal options. 2. Presence of a restrictive regulatory environment (at the local level). 3. Lack of public understanding of the beneficial uses of Biosolids. 4. Negative perceptions of the land application of Biosolids. Process Objectives 1. By December, 2009, a community partnership will be established with representatives from the Biosolids industry and local officials. 2. By February, 2010, establish a mechanism for data collection and analysis of improper Biosolids disposal with comparison to public perceptions. 3. By April, 2010, establish an education and outreach program to raise public awareness of the benefits of recycling Biosolids as a soil additive and the lack of public health risk when properly managed.

11 METHODOLOGY: Events and Activities Event: Establish a partnership to advance the safe and beneficial uses of Biosolids. Activities: Identify potential community partners. Hold quarterly meetings with community partners to develop an Environmental Management System (EMS) for Biosolids. Event: Develop a process for data collection and analysis for review with community partners. Activities: Determine current state of public perceptions of Biosolids disposal locally and statewide. Event: Cooperative plan implemented. Activities: Education and outreach materials developed, printed, and distributed. Article on recycling of Biosolids in local print media. Tour local facility where Environmental Management Systems are in place. NEXT STEPS: As this project has developed, the complexity of the issues has become more and more apparent. There are many interested parties with very strong opinions on this topic. In spite of the challenges, communication has improved greatly among stakeholders. However, the establishment of a Comprehensive Biosolids Management System for Sumter County has been slow to develop. Further discussion with partners is needed. Subsequent steps will involve additional partnership meetings along with education and outreach to raise public awareness of the beneficial uses of Biosolids when properly managed. EXPECTED OUTCOMES: The value of a comprehensive Biosolids Management System in Sumter County, Florida is a means to proactively protect human health and the environment while also ensuring the beneficial uses of Biosolids will remain for years to come. By achieving increased communication among stakeholders and education of residents, concerns will be addressed in a more meaningful way. The ultimate goal is the disposal of Biosolids in a way that is safe and has the public s confidence.

12 LEADERSHIP DEVELOPMENT OPPORTUNITIES: Keith E. Hunter RS, MPH My participation in the Environmental Public Health Leadership Institute has had a great impact on my personal and professional life. The tools I have learned and the knowledge gained can be used everyday at home and at work. Through the Skillscope 360, Myers-Briggs, and Change Style Indicator, I learned a great deal about myself and my tendencies. This has helped me to become a more effective communicator. Understanding the various personality traits and the strengths of each has helped me become a better team leader. I am truly grateful for my participation in Cohort V and would like to thank the mentors, coaches, and staff of EPHLI for a rewarding and meaningful experience.

13 ABOUT THE EPHLI FELLOW Keith Hunter is the Assistant Director of the Sumter County Health Department in Bushnell, Florida. He was recently promoted to Assistant Director after 10 years as the Environmental Manager. In his current position, Mr. Hunter oversees the Environmental Health, Health Education, Fiscal, and Preparedness departments. Mr. Hunter has a BS degree in Natural Resource Conservation from the University of Florida and a Master s degree in Public Health with a concentration in Environmental Health from the University of South Florida. He is a Registered Sanitarian with over 18 years experience in Public Health.

14 REFERENCES 1. EPA, Biosolids: Frequently Asked Questions, 2. Florida Department of Environmental Protection, Domestic Wastewater Residuals, 3. NRC, National Biosolids Applied to Land: Advancing Standards and Practices (2002) 4. Osaki, Carl, RS, MSPH, Northwest Center for Public Health Practice, 10 Essential Environmental Health Services.