By John Trotti

The Southeastern Public Service Authority (SPSA) is the regional solid waste management authority for eight communities in southeastern Virginia: Chesapeake, Franklin, Isle of Wight, Norfolk, Portsmouth, Southampton, Suffolk, and Virginia Beach. SPSA's 2,000-mi.² service area is home to 1,088,400 residents, all of whom generate approximately 6 lb. of solid waste each day. It is SPSA's responsibility to dispose of this solid waste in an environmentally sound and cost-efficient manner. SPSA accomplishes this goal through its integrated waste management system that includes several waste processing, recycling, and disposal components.

SPSA began in 1976 by agreement of the local municipalities with the responsibility of implementing a regional solid waste disposal system that included a resource recovery operation featuring a refuse-derived fuel (RDF) plant and a power plant.

Design was initiated on the RDF and power plants in 1978. During the period from 1979 to 1984, 30-year contracts were executed with SPSA's eight member communities providing for them to deliver 95% of their waste to SPSA and to pay established fees. Also during this period, the United States Navy obtained a $160 million congressional appropriation to acquire and operate the power plant. Transfer station sites were selected, and design and construction of these facilities began. In 1982, a 308-ac. site in Suffolk was acquired for the regional landfill. With completion of the disposal facility, SPSA's operations officially began in 1985. In the years that followed, additional transfer station sites were selected.

With the completion of the RDF and power plants in 1987, SPSA's goal of establishing a regional integrated solid waste management system was achieved.

Facilities

Waste-to-energy station in Portsmouth

SPSA operates several facilities that are key components in its solid waste management system. These include a waste-to-energy (WTE) complex that comprises the RDF and power plants, a Subtitle D sanitary landfill, eight transfer stations strategically located throughout the service area, two yardwaste facilities, and a tire processing facility. A brief description of these facilities is provided below.

WTE Complex

The two components of SPSA's WTE complex include the RDF plant and power plant, both of which are located in Portsmouth, VA.

The RDF plant processes nearly half of the solid waste generated in southeastern Virginia into fuel. MSW is unloaded, separated, and stored on the facility's 1.3-ac. tipping floor. From the tipping floor, MSW is fed into one of three processing lines where it is processed into fuel. Each line includes transfer conveyors, two trommels, one shredder, and two magnetic separators. From the processing lines the resulting RDF is conveyed to the power plant. During 2002, SPSA handled 737,610 tons of solid waste at the RDF plant. Benefits from its operation include reduced dependence on fossil fuels, reduced use of landfills to bury solid waste, and the extraction of energy from waste sources.

The steam plant burns approximately 1,500 tpd of RDF, operating 24 hours per day, 365 days a year to meet the Norfolk Naval Shipyard's steam and electrical demands. The plant contains four 180,000-lb./hr. steam-generating boilers. Normally three boilers are in continuous operating, leaving a fourth in reserve or available for maintenance. Each boiler burns about 20 tph of RDF with furnace temperatures exceeding 1,800°F.

Portsmouth RDF plant

Suffolk composting facility

During 2002, 614,821 tons of RDF were burned at the steam plant. Each boiler is also capable of burning coal, although coal use is limited for economic reasons.

The steam plant produces 100% of the shipyard's steam for process and heating, including that used by ships under repair or berthed in the shipyard. Demand is seasonal since much of the export steam is used for heating. The plant supplies a portion of the shipyard's electrical needs with three turbine generators capable of producing 20,000 kW each. Generally three generators are operated. Any excess electrical power flows to Dominion Virginia Power.

In 1995, SPSA performed a $31 million retrofit of each boiler flue gas pollution control equipment by installing a spray drier absorber and a fabric filter baghouse in each flue gas line. The purpose of this retrofit was to comply with the more stringent emission limits presented in the Clean Air Act amendments. The design that was chosen exceeded the maximum achievable control technology that was proposed by the US Environmental Protection Agency.

The spray drier absorber performs two functions: (1) It reduces acid gases by intimate contact with the flue gas and (2) cools the temperature of the flue gas so that the reformation of organics, such as dioxins and furans, does not occur. The fabric filter baghouse removes any particulate from the flue gas stream before it is discharged out of two 275-ft. stacks.

The effectiveness of this technology is measured using two methods. First, continuous emission monitors are installed in the flue gas stream and can measure the concentration of sulfur, one of the constituents that make up acid gas. There is also an opacity monitor, which is a continuous monitor that measures the amount of particulate emitted from its stacks. The second method used to determine the effectiveness of pollution control equipment is annual stack emissions testing performed by a third-party contractor.

In 1998, SPSA modified its wastewater systems at the power plant by segregating the cleaner streams from the streams that were exposed to ash or chemical injection. The two large settling ponds to where the wastewater flows were replumbed so that wastewater would be redirected back to the power plant for reuse in some equipment, such as the ash bottom drags, fly-ash conditioners, flash tanks, and in the flue gas dilution water system.

This reuse of water not only minimizes the need to use Portsmouth city water but also eliminates approximately 300,000-400,000 gal. of wastewater per day that would otherwise flow to Hampton Roads Sanitation District (HRSD) for processing. A flow meter connected to the pump discharge to HRSD continuously monitors the effectiveness of this modification, and samples of the settling pond water are taken to determine the "cleanliness" of the wastewater.

Regional Landfill

The regional landfill is the final disposal site for solid waste that cannot be recycled or beneficially reused. It receives approximately 2,000 tpd of solid waste. Solid waste received at the landfill is spread, compacted, and covered at the end of each workday.

The landfill is constructed with a double composite synthetic liner to prevent leachate from seeping into and contaminating the groundwater. Pipes underlying the landfill collect and transport leachate to a holding and aeration pond, and from there it is pumped to HRSD for treatment and disposal. The landfill has an extensive network of groundwater monitoring wells that are routinely sampled to ensure that the groundwater integrity is not breached by the operations of the disposal facility.

SPSA's goal is to reduce reliance on landfilling as much as possible to preserve space and extend the life of the regional landfill. As such, the 308-ac. landfill site is also home to several ancillary facilities that utilize innovative methods to manage the region's solid waste. These include a ferrous metals recovery plant, a landfill gas recovery plant, and a soil remediation facility, all of which are privately operated. The landfill also houses a tire processing facility, one of SPSA's two yardwaste facilities, and a household hazardous waste (HHW) collection facility.

Transfer Stations

SPSA operates eight solid waste transfer stations throughout its service area. These intermediate facilities receive waste from municipal, commercial, and residential customers and serve as the first point of waste separation within SPSA's waste system.

SPSA transfer vehicles deliver processable waste to the RDF plant for processing into fuel and deliver nonprocessable waste to the regional landfill for disposal. SPSA's transfer stations vary in size, ranging in capacity from 30 to 1,500 tpd.

Yardwaste Facilities

These facilities receive such items as grass clippings, leaves, pine straw, woodwaste, and tree trimmings, which are processed into recycled mulch and compost. Sold under the name Nature's Blend, the mulch and compost products are made available to landscapers, nurseries, and the public.

SPSA's Suffolk composting facility is the only facility in South Hampton Roads to participate in the US Composting Council's Seal of Testing Assurance Program. This ensures that customers are receiving high-quality compost.

Tire Processing Facility

Located at the regional landfill, SPSA's tire processing facility shredded more than 277,000 tires in 2002. Resulting tire shred has beneficial uses that include alternative daily cover for the landfill and tire-derived fuel that is burned at the power plant. The tire facility is one of several that assist the Virginia Department of Environmental Quality with the cleanup of waste tire piles throughout the commonwealth.

Programs and Services

SPSA provides a number of environmental programs and services for its member communities and the businesses and residents. The HHW collection program and various recycling activities allow citizens to play a proactive role in the protection of the environment. SPSA's various business services assist local businesses with managing their solid waste disposal costs and minimizing their environmental liability.

The environmental programs and services include HHW, collection, curbside recycling, drop-off recycling centers, business/multifamily recycling, battery and used-oil recycling, a document destruction program, a safe sharps disposal program, transit advertising, consulting services, a speakers' bureau, proprietary waste disposal, residential boat disposal, white-goods recycling, and school and community environmental education programs.

Customer-Service Approach

Yardwaste facility, Virginia Beach

From its inception, SPSA has maintained a simple customer-service approach. It asked its member communities to identify the types of solid waste services they needed and then set out to meet those needs. SPSA was established for the purpose of fulfilling the region's need for an integrated solid waste disposal system. The member communities selected the components of the system, deciding early that resource recovery, recycling, and landfilling would play major roles. SPSA was tasked to site, design, and construct these facilities to meet the needs and specifications of the communities it serves.

Every aspect of SPSA's operations is targeted to meet the needs of the recipients of SPSA's services. The hours of operation of facilities are set to accommodate member communities and may also be adjusted to satisfy commercial customers.

For the convenience of citizens, SPSA's curbside recycling service is scheduled concurrently with normal pickup of household trash. Several HHW collection events are held each month on Saturdays and weekdays. All SPSA customers can deliver their wastes to any facility within SPSA's system regardless of where they live or conduct business within the service area.

SPSA also strives to be a valuable resource for information and assistance for the member communities. It serves as the region's reporting agency to fulfill Virginia's mandatory reporting requirement of recycling activities. SPSA assists several of its member communities by overseeing the postclosure care of closed local landfills. This involves groundwater sampling, gas monitoring, compliance inspections, and regulatory reporting for these facilities. SPSA provides these services at no cost and thereby saves the communities thousands of dollars in avoided consultant fees.

Environmental Protection and Compliance

It was decided early in the planning phase of SPSA's development that SPSA facilities and operations would meet or exceed the requirements of existing environmental laws and regulations. At SPSA, environmental compliance is the expectation; beyond compliance is the goal.

In addition to operating regulatory compliant facilities, SPSA's goal is to maintain aesthetically pleasing facilities that enhance surrounding communities. SPSA's Grounds and Maintenance Department works diligently to maintain and beautify the grounds of SPSA's facilities. In fact, it has been said that many of SPSA facilities do not look like trash facilities. SPSA's Norfolk transfer station is just one example of SPSA's clean and well-manicured facilities.

SPSA's EMS efforts began in 2000 and continue today. SPSA recently enlisted the services of EnSafe Inc., an environmental consulting firm, to assist the authority in obtaining third-party certification to the ISO standard within nine to 12 months.

Long-Term System Availability

SPSA was created for the purpose of providing long-term solid waste solutions for southeastern Virginia. SPSA's board of directors and executive staff are continually working to make certain that SPSA fulfills its purpose.

SPSA was originally created under a 50-year charter in 1976. In July 2002, it successfully lobbied for state legislation that extends the authority's existence into perpetuity. In addition, SPSA has initiated several measures to ensure the long-term availability of its integrated solid waste management system. These include but are not limited to:

• pursuit of buyers for excess steam and electricity produced at the power plant,
• extending the life of the existing landfill and securing landfill expansion capacity,
• renegotiation of SPSA's contracts with its member communities that expire in 2018,
• planning and constructing new solid waste facilities to accommodate anticipated future waste volume increases,
• continual evaluation and revamping of SPSA's programs and operations to adapt to an ever-changing solid waste industry.

SPSA has taken steps to ensure that the region's future landfilling needs will be met. The permit application process for Cell VI at the existing landfill, which will provide disposal capacity until 2015, has already begun. SPSA also purchased an adjacent parcel of land to house Cell VII, which will provide and additional 20-plus years of disposal capacity.

Financial and Business Management

Because SPSA provides a full range of waste management services on a regional basis, its eight member communities realize significant efficiencies through economies of scale.

SPSA is easily the largest waste management system in the state of Virginia, providing environmentally sound disposal for more than 1 million tpy of waste. With its large WTE system and curbside recycling programs, however, less than 39% of that waste is landfilled, while more than 61% is recycled or otherwise put to beneficial use by WTE.

SPSA provides this full range of services at cost-effective rates in Virginia's challenging waste management economy. Virginia is the next-to-largest waste-importing state in the country, second only to Pennsylvania. With a significant number of privately owned megalandfills within close proximity to SPSA's service area, attracting waste collected by private haulers has been particularly challenging. This especially is true since the two largest private haulers in SPSA's service area also operate those privately owned megalandfills.

Within SPSA's service area, private haulers collect approximately 50% of the waste generated from commercial generators. Both the quantity of and revenue from this waste are essential to SPSA—the quantity to provide fuel for WTE and the revenue to provide financial support for a system sized to meet the region's entire (residential and commercial) waste management needs. SPSA has met the challenge of securing this commercially generated waste through contracts that offer the private haulers favorable rates guaranteed over a period of years to not exceed those tipping fees paid by the member communities.

SPSA continues to be one of the lowest-cost providers of commercial solid waste disposal in Virginia. Table 2 compares SPSA's commercial tipping fees with several solid waste authorities in Virginia.

It is difficult to make an "apples to apples" cost comparison between SPSA's recycling program and other programs within the commonwealth because factors impacting operating costs, such as number of residents served, the types of materials collected, and method of collection, vary greatly. Overall, SPSA's recycling programs compare favorably with those of other authorities offering similar services. Table 3 provides a brief comparison between SPSA's curbside recycling program and those of the Virginia Peninsula Public Service Authority and the Central Virginia Waste Management Authority.

Change Management Process

SPSA has adopted the philosophy of "continuous improvement" as the primary vehicle for implementing change within the authority. SPSA's model for implementation consists of four phases, each of which is a plan for the critical actions required to implement continuous improvement. While the four phases are sequential, it is not necessary to complete one phase before moving on to subsequent phases.

The model is not a template placed over the organization and blindly followed. It is, however, a guide to the critical actions that must take place if continuous improvement is to have a chance to succeed. The key components of SPSA's continuous-improvement system include leadership, teamwork, process management, and continuous improvement tools.

SPSA's continuous-improvement process works as follows. Any SPSA employee can submit to his or her director an idea or a suggestion to improve any SPSA policy, process, or procedure. Depending on the scope of the proposed change (e.g., at the departmental level or organizational level), the department director or entire executive staff reviews the merits of the suggestion. If SPSA management approves the idea, it establishes a Process Improvement Team (PIT) to evaluate in detail the feasibility of its implementation.

The PIT, consisting of SPSA employees from different departments with relevant knowledge and expertise on the subject matter, meets for a period of six to eight weeks and prepares a recommendation report. Required elements of the report include identification the problem; description of the current policy, process, or procedure; and list of possible alternatives to the current policy, process, or procedure.

Since March 2000, SPSA has initiated more than 10 formal PITs, which have made more than 50 recommendations to improve SPSA operations. Approximately 80% of those recommendations have been implemented or are in the process of being implemented.

A few organizational changes resulting from the PIT process include implementing a 24-hour operating schedule at the Norfolk and Landstown transfer station, construction of the Suffolk transfer station at the regional landfill (currently in the permitting and design phase), and establishing accurate tare weights of all SPSA vehicles and all other vehicles crossing SPSA's scale system. SPSA currently has two active PIT that are evaluating the feasibility of establishing a nonmonetary employee recognition program and implementing a method to recover recyclable cardboard from SPSA's wastestream.

Host Community Considerations

As the host community for SPSA's regional landfill, the City of Suffolk receives free landfill disposal of the municipal waste generated within its borders. Suffolk municipal waste may be delivered to the landfill by city vehicles or by private contractors who collect waste on the city's behalf. Suffolk generates approximately 50,000 tpy of municipal waste, which equals a $2.75 million annual savings in disposal costs. In addition, commercial waste generated within the city of Suffolk may be disposed of at the landfill for a discounted rated that is one-third of the normal tipping fee. This serves as an economic incentive to attract businesses to the city. As an added benefit, SPSA assisted the city with closing its old landfill and currently oversees the postclosure care for that facility.

John Trotti is the editor of MSW Management.

MSW - September/October 2003