http://www.depweb.state.pa.us/biosolids/cwp/view.asp?A=1291&Q=483647
Biosolids 2000 Program
With the tools in place to promote greater public acceptance of biosolids, the next step is to give a focus to
the public acceptance effort. The Biosolids 2000 Program was formulated in 1995. The program’s goal is to have
biosolids recycling publicly acceptable worldwide by the year 2000. This program should be carried out at all levels of
organizations having responsibility for biosolids recycling - local, state, provincial, and federal governments
throughout the international community.
The underlying strategy to promote biosolids recycling encourages positive thinking (away from the disposal mentality)
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Pennsylvania Biosolids Program
Originally published in the September-October 1997 issue of the Keystone Water Quality Manager. A publication of
the Pennsylvania Water Environment Association.
Biosolids 2000: Public Acceptance of Biosolids Recycling
By Peter S. Machno, Ph.D. and Jane Forste
Abstract
Public acceptance of biosolids recycling is a significant issue facing biosolids managers in the 1990s. With the
cessation of ocean disposal in the United States, Australia and the European Community, a major cost-effective
alternative is land application. Land application often involves working in communities other than those where
biosolids originate. Interaction with neighbors requires biosolids managers to adopt new communications skills. In
1990, the Water Environment Federation adopted “biosolids” as the new term to describe treated solids from a
wastewater treatment facility that can be recycled beneficially. Biosolids is a much more accurate term than “sewage
sludge” to describe a product that has been treated, regulated and can be used as a fertilizer. Biosolids managers
and organizations worldwide recognize that public acceptance is essential for any successful biosolids recycling
program. The Biosolids 2000 Program was developed to articulate the goal of making biosolids recycling publicly
acceptable throughout the globe by the year 2000.
Introduction
Public acceptance is essential to biosolids recycling. As agencies around the world move from ocean disposal and
landfilling of wastewater solids, biosolids recycling through land application becomes more visible to the public. The
public, in turn, wants assurance that biosolids recycling is both good for the environment and safe. Since a perceived
risk is just as real to people as is scientific risk assessment, decision-making is often driven more by perception than
reality. Public acceptance efforts based only on scientific data and information about risk assessment do not
necessarily increase public acceptance of projects. Our challenge is to change public perceptions over time through
credible communications efforts.
With respect to biosolids, more than 20 years of extensive, detailed scientific studies worldwide have clearly
established that treated municipal wastewater solids can be used safely on land in a variety of ways. Quality standards
for safe, beneficial uses are based on conservative risk assessments of the impact of biosolids on the
environment, crops, animals and humans. Why then does a negative perception about the use of this material
persist? Part of the answer lies in a lack of understanding — a common and natural human apprehension. The
average citizen knows little or nothing about wastewater treatment, pretreatment programs that protect the integrity of
this treatment and the composition of the treated solids. All of these issues need to be addressed in an outreach effort
to gain public acceptance.
When developing a dialogue with communities where biosolids will be processed or used, it is important to establish
the link between the commitment to clean water and the need to manage the solids from wastewater treatment. All
wastewater treatment organizations are committed to even greater improvements in water quality, yet can be
burdened with a history of negative perception of the byproduct of these improvements.
The Biosolids 2000 Program, launched in 1995, aims to have biosolids recycling publicly acceptable throughout out
the world by the year 2000. The program is well under way and has been embraced by many organizations and
agencies worldwide. Recycling includes all beneficial uses of biosolids from land application to energy recovery. The
1993 communications plan developed for the Water Environment Federation by the Powell Tate public affairs firm
serves as a road map for the mission of educating the public and gaining acceptance of biosolids. The plan was
developed under a US Environmental Protection Agency grant to WEF to support beneficial use of biosolids.
The plan identifies obstacles to overcome and the opportunities to be maximized in achieving greater public
acceptance. It is based on motivational research and a review of media coverage which included municipal wastewater
agencies and private companies.
WEF Biosolids Communications Plan
Powell Tate, the consultant, provided a strategy for a comprehensive program to achieve public acceptance with
outreach efforts and industry communications. As with such initiatives, it should be viewed as a beginning and a
framework for ongoing activities. Broad public understanding and support will be achieved only with a sustained effort
that is thoughtfully planned and executed.
The communications campaign is designed to enhance public perception and understanding of biosolids recycling in
order to gain broad general acceptance. Improved public perception will provide better support for biosolids
management programs and thereby improve the environment and protect human health. This, in turn, should help
advance the goals of the US Environmental Protection Agency in supporting beneficial use.
The strategy for the communications plan focuses its efforts on “gatekeepers.” Such a campaign identifies key
organizations and individuals for the initial outreach program. This approach makes the best use of limited funds,
educates well-respected individuals and organizations, and provides accurate information to these gatekeepers for
distribution to their constituencies.
The nature of the biosolids product represents a key contributor to public skepticism about its beneficial use.
Therefore, the communications plan includes an approach to be reflected in the messages which de-emphasizes the
product (biosolids) and focuses attention, wherever possible, on the process (recycling).
Materials and spokespersons should reflect a regional orientation to neutralize potential resistance to “importing the
product from the outside.” Spokespersons and materials should reflect local community perspectives so that people
will recognize the value of biosolids recycling and not view it as an imposition by outsiders. Local or state leaders who
provide statements of support are more effective than the same support coming from someone outside the area.
Regional spokespersons and materials are viewed more favorably by elected officials at all levels of government.
Theme and Audiences
Given the results of the survey and the attitudes revealed, and recognizing that no one theme can communicate every
message about an issue, WEF’s Biosolids Public Acceptance Task Force adopted the following theme:
Biosolids Recycling:
Beneficial Technology for a Better Environment
The first and essential “audience” is the industry’s water quality professionals. They must understand and accept the
importance of the messages based on this theme. How these messages are communicated to various audiences was
identified as critical to the success of the communications plan.
“Gatekeepers” refers to individuals and organizations whose opinion on an issue is valued by the public because of
their expertise, authority or position. Gatekeepers can be teachers, doctors, community leaders, the media, scientists
and other knowledgeable professionals. Both the public and elected officials defer to their opinions on any issue, and
they serve as sources of information to other gatekeepers (e.g., the media) when they in turn form their own opinions.
Therefore, educating gatekeepers in biosolids recycling is a critical first step in the communications plan.
Gatekeepers include:
academics/agricultural scientists
water quality professionals
public health officials
agricultural groups/farming representatives
environmentalists
regulatory officials
media
Gatekeepers should be approached on all points of the political spectrum to avoid politicizing biosolids issues. The
above audiences were selected for their ability to help address one or more of the potential obstacles identified by the
consultant. For example, public health officials provide credibility to messages concerning health; agricultural experts
can address questions about scientific research; and environmentalists provide support for the environmental benefits
of recycling biosolids.
While elected officials are an important general audience, they are not included as gatekeepers because the research
showed that they lack credibility with the public. They are, however, an important audience, and must be educated
about biosolids recycling.
Spokespersons and Third-Party Allies
Spokespersons differ from third-party allies and industry supporters in that spokespersons are usually directly linked
to, or affiliated with, the industry. Spokespersons usually have or represent a financial stake in the outcome.
Spokespersons should be articulate, telegenic individuals knowledgeable on the issue, experienced and well
respected. Spokespersons can provide media interviews, byline articles, editorial briefings, appearances, panel
discussants and speakers as appropriate at regulatory and legislative hearings. Spokespersons should be trained
specifically in media relations to communicate appropriate messages, handle different types of interviews and make
effective presentations. More than a dozen spokespersons from the various regions of the United States have been
trained.
In contrast, third-party allies do not have a proprietary interest in the outcome of an issue but participate because they
perceive their constituencies will be directly affected. As an example, the American Association of Retired Persons
may take a position on a controversial travel issue because its members are frequent travelers. The organization will
work with various partners to ensure that the issue is settled favorably. The third party accepts no funding for this
work, but provides other resources instead. Because third-party allies have no direct financial stake in the issue, their
support adds credibility to the messages. Some potential third-party allies for the biosolids communication effort
include environmental and agricultural organizations.
Third-party allies may serve as spokespeople in a number of ways. They can be quoted in news stories, meet with
regulators and others in support of an issue, write a letter to the editor when requested, participate in a media tour or
undertake educational activities with their members.
In summary, the difference between spokespeople and third-party allies lies in determining where the loyalties lie. A
paid spokesperson’s primary loyalty is to those whose top priority is furthering the issues. A third-party ally is, first and
foremost, loyal to the constituency he or she represents and speaks out on the issue solely because of its impact on
that constituency.
In the research survey, “water quality professionals” were viewed favorably as credible messengers on biosolids.
Therefore, the spokespersons for this public acceptance campaign are presented as water quality professionals.
Regional spokespersons are trained in media and presentation skills and are available to the media in their respective
regions as “water quality professionals” knowledgeable in the field of biosolids recycling. These individuals can be
scheduled for editorial board visits, media interviews, meetings with community leaders and appearances in public
forums in their region. An ongoing outreach campaign to the media using these individuals is essential to
communicate messages to gatekeeper audiences and, through them, the general public.
Biosolids 2000 Program
With the tools in place to promote greater public acceptance of biosolids, the next step is to give a focus to the public
acceptance effort. The Biosolids 2000 Program was formulated in 1995. The program’s goal is to have biosolids
recycling publicly acceptable worldwide by the year 2000. This program should be carried out at all levels of
organizations having responsibility for biosolids recycling - local, state, provincial, and federal governments
throughout the international community.
The underlying strategy to promote biosolids recycling encourages positive thinking (away from the disposal mentality)
and involves sharing experiences with others. Biosolids managers should be prepared to:
Provide consistent and timely information to the gatekeepers. Brochures and videos assist gatekeepers in making
information available to their constituents
Partner with international, national, regional, and local organizations to share biosolids management information.
Maximize the best use of all the organizations with interests in biosolids management. International organizations
include the Water Environment Federation, Australian Water and Wastewater Association, and European Water
Pollution Control Association. In the United States, the Association of Metropolitan Sewerage Agencies, American
Water Works Association and regional agencies such as the Northwest Biosolids Management Association and
Biosolids Recyclers of Southern California can all provide support.
Become proactive on biosolids recycling issues. In the wastewater industry we typically are in the reactive mode,
hoping that controversial issues never appear or will disappear on their own. It is essential to move into a different
paradigm of reaching out to the gatekeeper audiences before controversy arises. Rather than apologizing for
biosolids recycling, we must continually emphasize that it is good for the environment, and it makes common sense.
Conclusion
As we approach the year 2000, biosolids recycling is becoming common practice, with more than 50 percent of US
biosolids being used beneficially. There is ample reason to hope that large scale public controversy will become a
thing of the past. The communications tools to achieve public acceptance are available. Model programs such as King
County Washington’s Mountains to Sound Greenway biosolids program demonstrate how the biosolids
communications plan can help achieve public acceptance of biosolids recycling. The key to success is working in
partnerships with the various gatekeeper publics as outlined in the communications plan.
All biosolids organizations and management agencies worldwide need to find ways to communicate so they can benefit
from the experiences of successful programs and learn from any that were less successful. One of the objectives of
the Biosolids 2000 Program is to create a global biosolids information highway so that biosolids information is readily
available to everyone. In the near future everyone will be connected through E-mail on the Internet, and it will only
take a few minutes to send a note to someone 10,000 miles away without the cost of a telephone call or fax. Each of
us should encourage our organization to embrace the Biosolids 2000 Program and make biosolids recycling publicly
acceptable in our community by the year 2000.
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