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3D"SCS_Engineers_300_dpi_long_bar"3D"Version_3B1_jep_visions_200_dpi"
Solid Waste Management Study
2018 and Beyond
A Study Prepared on Behalf of the
February 8, 2010
3D"HRPDC
My nam= e if Bob Gardner, and I am a senior vice president of SCS Enigineers, and have directed the study we have conducted for the Region.  Thank you for having me today to address this very important study.  I have been in the solid waste business for nearly 30 years and the study we have completed is one of the more complicated that I have been involved in.

My goa= l today is to provide a broad overview of the scope of=   our study for the Region and the key findings and recommendations.=

We are= not asking you to make a decision on anything at this point.  There is time to digest the resu= lts of this study and to consider other current initiatives at SPSA that may materially affect the results of our study.

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3D"SCS_log=3D"HRPDC
SCS Scope
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•= ;Task 1 - Review Existing Regional Solid <= span style=3D'font-size:88%'> Waste System
•= ;Task 2 - Evaluate Future Technology and = Facility Needs
•= ;Task 3 - Evaluate Institutional Models for = = Solid Waste Management
•= ;Task 4 - Facilitation with Chief = Administrative Officers
•= ;Task 5 - Prepare Report and <= span style=3D'font-size:88%'> Recommendations
2
Let me= first provide a broad overview of the scope of work we were tasked with completing.

Tas= k 1 involved reviewing the Regions current solid waste system in order to understand the capacities, status, and plans for the key transportation, processing, recycling, and disposal assets.

Tas= k 2 involved a consideration of future technology and facility needs.  We evaluated various alternative biological, chemical, and thermal conversion technologies and their applicability and feasibility of implementing these in the the Region.  We also evaluated key facility n= eeds for transferring and disposing solid waste throughout the Region.<= br>

Tas= k 3 involved the evaluation of various institutional models that are used elsewhere throug= hout the United States and considering the applicability of various organizati= onal and governance models to the Region in order to operate a more efficient Regional organizational model to manage the Region’s solid waste

Tas= ks 4 involved working with the Region Chief Administrative Officers to address the comp= lex issues of solid waste in the Region and to provide feedback as we progres= sed through out evaluations.
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3D"SCS_log=3D"HRPDC
Evaluation Factors
=
=
•Technology status and reliability
•Institutional status and reliability
•System reliability
•System flexibility
•Funding approach
•Ease of implementation
•Financial metrics
• <= /div>
•
3
Why sh= ould the Region cooperate in the future to jointly manage solid waste?  This is one of the fundamental questions that initiated this study.&nbs= p; We were asked to look at this challenge from a “clean slate” perspective.  W= e were told that this study was to be a forward looking study, and not an audit = of SPSA.  We were asked to focu= s on the future on not on the past.  However, we have also addressed the present in terms of bridging f= rom where you are today to the future.

In con= ducting our evaluations of the technical, facility, and institutional alternatives,  we considered multiple factors  as shown on this slide.

For ex= ample, many of you may have heard of the thermal conversion technology, “Plasma Arc” as a technology that some claim may be feasible for safely managing solid waste.  We carefully considered the status, verifiable operating record, and reliabi= lity of the technology, and concluded that the technology, although proven in other industries, has not been fully demonstrated to manage significant w= aste flows as we have in the Region

We als= o considered other factors in evaluating alternatives such as overall system reliabili= ty, flexibility, how the system would be funded, how easy it would be to implement, and financial metrics.

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Assumed 2018 Conditions
=
=
•Current system debt retired
•In Region disposal capacity
•Out-of-region disposal capacity
•Transfer station network
•Waste-to-energy
•C&DD disposal capacity
•Solid waste quantities
•Feasible technologies
•Recycling
4
Critic= al to our evaluation was the establishment of baseline conditions for the analysis.  We were charged w= ith looking 10-years into the future and evaluating what the world might look like.  To do that, we made k= ey assumptions.

-We= assumed all debt associated with the existing solid waste system would be retired and that that SPSA would continue as a viable entity.
-We= projected out-of-region disposal capacity for MSW, and assumed that CD&D waste disposal would= be provided by the private sector
-We= assumed the WTE facility could be maintained to serve the Region during the planning period.
-We= made projections on waste quantities, which quite frankly, may vary significantly, either up or down depending on the economy, but we made certain conservative assumptions on growth.
-We= made certain assumptions on feasible technologies that could be readily employed in the Region
-We= also assumed that the Region would be committed to meeting it regulatory recycling goals.
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Pro Forma Evaluation
=
•Evaluated various cooperative scenarios
•Disposal
–New regional landfill
–Out-of-Region disposal
•WTE
–Maintain existing RDF WTE Facility
–Expand with mass burn WTE Facility
–Abandon existing RDF WTE Facility
5
We dev= eloped a pro forma model to evaluate the financial implications of various cooperative scenarios and the application of alternative processing and disposal approaches.

The co= operative scenarios look at regional cooperation versus independent management of s= olid waste by the member communities.

We eva= luated siting a new regional landfill, and contracting for disposal at out-of-region landfills.

We als= o evaluated the implications on facility sizing and costs of maintaining the existing= RDF WTE Facility, expanding the system using mass burn technology, replacing = the existing system, and abandoning WTE all together.
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3D"SCS_log=3D"HRPDC
Pro Forma Results
=
=
•Siting a new Regional Landfill a significant factor to control costs – provided lowest NPV costs
•Regional landfill only scenario (without WTE) lowest cost NPV <= /span>
•Transport and disposal in out-of-region landfill had highest NPV costs
•
6
Here a= re some of the overall conclusions from the pro forma analysis, which is just one of the evaluation factors you will need to consider.

Siting= a new regional landfill  as close = as possible to where the waste is being generated is the single most importa= nt factor in controlling long-term disposal costs for the region.  The scenarios that were “landfill only” scenarios, with no WTE, resulted in the lowest NPV.

Transp= orting to an out-of-region landfill resulted in the highest NPV cost compared to siting and operating your own.  We = also considered various tip fee and transportation cost sensitivities based on input from the regional soli d waste firms.


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3D"SCS_log=3D"HRPDC
Pro Forma Results
=
=
•If contract out for disposal, operating the WTE facility reduces N= PV costs compared to eliminating WTE
•Operating system with existing WTE facility generally 5 to 8 percent hi= gher costs (assuming Regional Landfill), but allows for significant volume reduction and energy recovery
•
7
This n= ext finding is important.  If you are unabl= e to site a new regional landfill and are forced to contract out for disposal, having the WTE in the system reduces the NPV costs compared to the option= of operating without it.  In ot= her words, the WTE provides a hedge against accelerating transportation costs= .

The WT= E facility provides numerous benefits including volume reduction, energy recovery, a= nd a renewable energy resource.  = It also has value with respect to issues relating to  Base Realignment (i.e., Navy wan= ts to be reduce reliance of foreign oil) and the Governor’s report on cli= mate change.


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3D"SCS_log=3D"HRPDC
Pro Forma Results
=
=
•Expanding WTE capacity resulted in the highest NPV costs
•Cooperating appears to provide long-term value, although in the early ye= ars some savings could be realized by individual member communities
•Host fees could provide substantial benefit to community hosti= ng landfill and WTE facility
8
I supp= ose it shouldn’t come as a surprise, but expanding the WTE capacity turned= out to result in the highest net present value cost.  As such, we only evaluated it for Scenario A.

In gen= eral, cooperating appears to provide long-term value to the region, although in= the early years, several communities could potentially have lower costs.

Our an= alysis did include the imposition of host fees for the WTE facility and a new region= al landfill, and these communities could receive benefit from hosting these facilities, if the region decided to do so.  These host fees could assist in = the overall siting process.



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3D"SCS_log=3D"HRPDC
Pro Forma Results
=
=
•City of Virginia Beach has most flexibility with respect to disposal= options and ability to control costs, at least in the short-term a= nd possibly long-term depending on fate of permitting efforts at Landfill No. 2
9
We als= o highlight in the report that the City of Virginia Beach has the most flexibility compa= red to the other Region members with respect to disposal options.

It has= its own landfill.  It has capacity i= n the short term and possibly in the long-term to handle its own disposal needs.  As such, they can ex= ert more control on their disposal costs.

Howeve= r, they have indicated that they also recognize the value of the volume reduction and energy recovery from the Region’s WTE Facility, and understand that= it helps to conserve is disposal capacity.
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3D"SCS_log=3D"HRPDC
Cooperation - Pros
=
=
•Various systems already in place
•More efficient development of facilities
•Current shortcomings are resolvable
•Some joint responsibilities after 2018
•C= ost efficiencies, especially relating to siting = a new regional landfill
•Economies of scale
•Leveraged purchasing
•Solid waste planning
•Achievement of recycling goals
•
10
As you= and others in the Region consider whether to cooperate together after 2018, we identifi= ed the following advantages and disadvantages associated with continuing your cooperative agreements to manage solid waste.  We also considered the advantage= s and disadvantages of  each jurisdiction independently managing its solid waste, and they basically mirror those associated with cooperating:
-Yo= u already have in place the administrative, technical, and facility systems to manage the Region’s waste.  Y= ou don’t have to reinvent the wheel.
-Op= erating on a regional basis allows for the more efficient development of facilities and considers local sensitivities.
-Fr= om our review of the institutional issues, we believe that many of the current governance shortcomings that have been identified are resolvable.
-If= you cooperate, and maintain the Authority structure, you maintain certain powers to site facilities for the Region that would be lost if you don’t agree to cooperate, and we believe this is material.
-Th= ere are the obvious advantages of leveraged purchasing and economies of scale.
-Tw= o other important factors are that the regional authority could continue to provide solid waste planning, versus each of you doing so independently, and  help greatly in reporti= ng achievement of recycling goals from a Regional perspective, when  individually some of you wouldn’t meet the goals.


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3D"SCS_log=3D"HRPDC
Cooperation - Cons
=
=
•Loss of autonomy and control
•Reduced flexibility to respond to changes in market conditions
•Increased organizational and governance complexity
•Interplay of regional politics in implementation of Authority’s mission
• <= /div>
• <= /div>
• <= /div>
•
11
But wh= at about the disadvantages.
Coo= peration results in a lost of autonomy and control of one’s own destiny.  Many of you have complained sharply in the current economic situation that the Region faces with respect to solid waste disposal.

You= have less flexibility to respond to changes in market conditions.  The situation that occurred in  1990s with the Carbone decision = is just one example of this.  T= he current impasse on flow control is another.

Coo= peration obviously increases organizational and governance complexity.  It is hard enough to get things through your own City Councils and County Boards, and with the Region, you multiply that times 8.  But = you have handled this over the last couple of decades.

And= finally, there is the interplay of regional politics that impact the implementation of the Authorities mission.  Rate setting, flow control  yard waste management, and out-o= f-area waste are several examples where regional  political interests have been at= odds with SPSA’s direction.
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3D"SCS_log=3D"HRPDC
Institutional Recommendations
=
=
•Scope and function dependent on   decision regarding ownership and operation of a regional landfill and= the RDF WTE Facility and Mission of the = organization
•Proportional representation
•Board membership qualifications
•Debt management
•System funding approach
•
12
If the= advantages of regional cooperation are ultimately compelling, the scope and function of= the regional authority after 2018 will be dependent on the assets it will be managing such as the landfill and/or WTE facility, and the overall Missio= n of the organization.   SPSA’s mission has evolved over time.  Its major function is to provide transfer and disposal services through transfer stations, the landfill, a= nd the WTE facility , but it also provides recycling contract management, ya= rd waste (sort of), solid waste planning, special waste management.  Defining  what you would want a regional e= ntity to do for you will be an important first step.  We discuss in our report some of= the advantages and disadvantages of  providing collection, recycling, and disposal services independent= ly or cooperatively.

Our re= port also evaluated various institutional models and compared those against your current approach and we recommend that you consider proportional representation, something two of your larger members have said would be critical for even considering cooperating in the future.  We also recommend requiring mini= mum qualifications for Board members in order to insure that a broad range of technical, legal, administrative, financial, and organizational skills are provided.

We als= o suggest that debt be managed more aggressively, and be retired on a set schedule, and that  an alternative funding approach be considered, which I will discuss in more detail later.=
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3D"SCS_log=3D"HRPDC
Landfill
=
•New Regional Landfill should be sited
•Siting approaches
–Region performs siting studies, purchases = land, permits, and develops site
–RFP process for privates to site, permit, and then sell back to Regi= on, with provision for life-of-site operations contract
•Schedule tight
–
13
As I m= entioned a moment ago, siting a new regional landfill is the single most important factor relative to controlling long-term disposal costs for the Region.  We recommend you proceed with th= at.

The sc= hedule is tight, and there are several approaches we recommend you consider, although  doing the siting o= n your own provides you the greatest degree of flexibility and choice.
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3D"SCS_log=3D"HRPDC
Waste-to-Energy
=
•RDF WTE Facility a valuable asset to the community
–Volume reduction
–Energy recovery
–Hedge against increased transportation costs
•Can be maintained and upgraded to serve Region during plann= ing period
•Facility extenstion study recommended
14