Institutional Structuring for Sustainable Development

Transcription

1 Institutional Structuring for Sustainable Development The following provides a brief understanding of the solid waste management system as it exists in Trinidad and Tobago and the elements that are necessary for sustainable development of an institutional structure suitable for the proper management of solid waste. Prepared by Gina Wharwood - Projects Manager SWMCOL (The Trinidad and Tobago Solid Waste Management Company Limited) 1.0 INTRODUCTION Solid waste has existed since man has been walking the face of the earth. We seem to leave a trail of waste wherever we traverse. In Trinidad and Tobago we have been so notorious for our littering that we have earned the nickname "Charlie" (a character symbolising filth and garbage in Trinidad and Tobago). While the humour of this can be seen in the caricatures that we have developed, there are serious implications for the environmental health of present and future generations. Poor management of solid waste not only disfigures the aesthetics of an area but also results in other far-reaching consequences in the form of pollution to the air, land and water systems to which our survival as a species is so integrally linked. 2.0 DEFINITION OF SOLID WASTE What is solid waste? A simple enough answer is "garbage" or "rubbish". How many of us have thought to examine what is garbage and what becomes of it? For one thing, some of it is very clearly visible on our coastlines, having been eventually washed ashore after being cast adrift by careless individuals. As an island state this is an important issue. What about the rivers of packaging material for which plastic has been a major contributor? Few can traverse a sidewalk without encountering litter. Which of us has not walked by an undeveloped area or property and seen more garbage than grass. Old, rusting, discarded appliances, vehicle parts, these are all par for the course. But these commonplace everyday items which we take for granted also form the basis of the definition of waste. Figure 1 - Bulky waste awaiting collection during one of the country's clean-up campaigns

2 Definition of waste (EM Act): Any material discarded or intended to be discarded which constitutes garbage, refuse, sludge, or other solid liquid semisolid or gaseous material resulting from residential, community, commercial, industrial, manufacturing, mining, petroleum or natural gas exploration, extraction or processing, agricultural, health care, or scientific research activities. Because of industrialization and new developments in technology, the chemical and physical properties of the products being used in manufacturing and processing have added to the complexity of the items being disposed. The material is no longer comprised of simple inert items that can be buried with little effect on the surrounding environment. We are therefore exposed to more hazardous materials. A Hazardous Substance means any substance, which, by reason of its chemical or physical properties, and based on technical, scientific and medical evidence is determined to cause through handling or from a release, harm to human health or the environment. A common regulatory approach used in developed countries is to classify waste using the following categories: non-hazardous solid waste (household waste industrial waste sludges, and hazardous waste 3.0 SOLID WASTE MANAGEMENT SYSTEM A solid waste management system seeks to provide a system for the management of waste from the point of generation to the point of final disposal. This process has been often referred to as management from 'cradle to grave'. The key elements involved in any system include the following:.waste generation and storage.collection - transportation and transfer.treatment and disposal.reduction, reuse and recycling All of these components exist in the systems here in Trinidad and Tobago but the level of efficiencies of the various systems is a major concern. Why is it necessary to manage these items in the first place? It is necessary because waste provides a risk to human health and the environment in which we live. The degree to which we will address the system design is based on the level at which we perceive the risk. One example is the continuation of a landfill site at Beetham, which is located in a swamp. The information available now on the importance of wetlands is far greater than when the solid waste master plan was developed in the 1980s. If this information was available at the time when the decision was taken to formalize the landfill site, the outcome may have been different.

3 Many of the developed countries have spent the last 10 to 15 years establishing their hazardous waste management systems since they only recently (in the 1970s) started having significant impacts from this type of waste. Trinidad and Tobago has had a faster rate of industrialization than surrounding countries, and has done so due to the availability of petroleum resources which generate significant volumes of hazardous waste. Unlike the developed countries whose infrastructure in the areas of waste management and environmental education has developed in tandem with their rate of industrial growth and waste generation rates, developing countries have copied the industrialization practices which relate to economic growth but have neglected the cost factors associated with environmental protection issues. This, therefore, questions the approach to sustainability. Can countries continue to develop economically without addressing the environ-mental issues associated with waste generation? There are several factors that must be managed at each stage of the waste management system. 3.1 Waste Generation and Storage The public health laws specify the quantity of waste to be put out for collection and the types of receptacle into which they can be placed, but these laws were written in Plastic bags and bins are now commonplace but no control is placed on the quantity of waste. This is a challenge to the implementation of any recycling system. 3.2 Collection - Transfer and Transportation Collection activities are usually the most costly in any waste management system. Efforts range from private sector to Municipal Corporation activities. Collection units, which are mostly truck-mounted compactors for normal domestic waste, skip vehicles which collect a variety of bins, and stationary compactors, tend to focus more on industrial commercial and institutional waste (ICI waste). Figure 2 - Glass recovery activity, part of the local glass recycling industry

4 The Municipal Corporations usually indicate the vehicle specification in the tendering process but little review has been done on the minimum criteria or route management systems. Private enterprise offers a multitude of systems for paying customers but does not have a standard to be met other than what the customer demands and is prepared to pay for. Presently, there is no body that monitors what these various haulers provide. 3.3 Treatment and Disposal The management of the municipal disposal site is shared by the Municipal Corporations, the Tobago House of Assembly (THA) and The Trinidad and Tobago Solid Waste Management Company Limited (SWMCOL). The three major landfills in Trinidad are run by SWMCOL and receive more than 75% of the total volume of waste (see Figures 3 and 4). This, however, is the result of a cabinet directive for which the company receives a management fee. Presently the other sites fall under the responsibility of the municipal body within whose boundaries they are located. Figure 3 - Leachate pond at the Forres Park Landfill, South Trinidad There are no parameters set for the minimum-operating standards of a landfill site. However, SWMCOL has been fairly successful in maintaining certain standards of operation under drastic cost constraints, a situation common to many countries in the region. The Municipal Corporations have sole jurisdiction over the sites but have not had the same level of success. There is some pending legislation to be instituted by the EMA, which should address some of these issues. Figure 4 - Temporary storage of bulky waste at the Forres Park Landfill, South Trinidad

5 Many of the disposal sites have reached capacity and some decisions need to be made such as accessing alternative landfill sites or implementing transfer station systems that route the waste to one central landfill. 3.4 Reduction, Reuse and Recycling The waste generated is the result of the use of the earth's resources, which have been extracted, processed and used to manufacture items useful to man in his daily life. The processes used to produce these items generate waste and the items themselves eventually become waste, which must be disposed. Since the distribution of the earth's resources is such that it is only economical to extract the materials in certain areas (i.e. where there are relatively high concentrations), one has to be concerned about the availability of these materials for future generations. Additionally, the waste that is generated must be managed in such a way that it does not present a risk to future generations. With available land at a premium on small islands and if landfilling is the preferred method of disposal every effort should be made to keep the amount of waste entering the site to a minimum. The approaches that should be examined are: the consumption or use of certain material with a view to reducing waste generated (REDUCTION) use of the same item for longer periods of time or with increased number of uses (REUSE) reprocessing of items scheduled for disposal so that a new item is created (RECYCLING) There are several private organizations involved in recovery efforts for material that will eventually be recycled. There are presently two materials that complete the recycling loop in Trinidad, glass and steel. Most other materials have to be shipped to other countries for processing. Recovery efforts include items such as paper and cardboard, plastic (PET), nonferrous metal, ferrous metals and glass. Composting efforts have been at the level of pilot projects only, addressing mostly yard waste. Since mostly private investors are involved, only the higher grade or the early accessible sources of recyclable material are targeted. This is what allows the project to break even or to be profitable when there are shipping costs involved. However, it also means that only small percentages of the total waste streams are diverted (17%, for which ferrous scrap makes up a large percentage). There are no existing government agencies responsible for examining the waste streams and establishing current waste generation data. The latter are needed to guide the waste minimization efforts of the country relating it to the economic development and the level of

6 awareness of the country. This leaves the waste minimization activities in the hands of private enterprise with no incentive other than profit. The recently formed Ministry of the Environment, using a cabinet-appointed committee, formatted a strategy for development of the recycling industry. While it identified the role of Government largely as a facilitator, developing market and industries, incentives and disincentives and public education and awareness, it did not specifically identify which arm of government will have this responsibility. 4.0 ACTIVITIES REQUIRING COORDINATION The solid waste management system, while it works, is less than efficient. There have been a number of activities that have been targeted by various agencies and have been singled out for attention. While there are short-term benefits for finding immediate solutions, there is a need to coordinate a long-term approach that addresses the changing needs of a developing economy while creating the culture that is needed to have a system work efficiently. (a) Information Base The only body that currently generates data is SWMCOL and this in an attempt to lead the industry. However, of late some of their efforts have been tapering off in an attempt to stay competitive. The EMA, while it is mandated by law to compile information on the state of the environment, cannot collect what has not been generated in the first instance. These activities are only achievable if there is a continuous flow of data that allow for informed decisions to be made. Data needs to be complete and accurate and developed to some recognized standard. There is a general need for information on waste generation's rate and classification data, which is needed to inform the planning process for the waste management system. (b) Public Sector Direction Government is frequently approached by various companies promoting new and innovative waste management systems. SWMCOL has often been asked to act as advisor to access the applicability to the local industry. These systems are often component items that rely on large infrastructure for their success. There needs to be an integrated approach to all aspects of the solid waste management system. This occurs only as far as Government policy makers wish to direct national efforts.

7 (c) Private Sector Involvement As with the recycling initiatives, the Government would benefit from sharing ideas with the private sector in areas such as equipment selection. (d) Public Awareness and Education In the early 1980s SWMCOL performed this role but this was discontinued when the Company was given the mandate by Government to become commercially viable. Some aspects of this role will be addressed in the general environmental awareness that is presently being undertaken by the EMA but the comprehensive approach needs a coordinated effort. (e) Staff Training There is a need for ensuring that professionals, technicians and manual workers are adequately trained in effectively carrying out a comprehensive waste management system. Larger private waste companies have their key personnel attend industry shows to keep abreast of technology but small organizations are generally followers. SWMCOL has maintained a fairly dynamic group of professionals through good hiring practices, continuous training (including short course upgrades and waste expos) and subscribing to current periodicals and other literature. Other members of staff are kept abreast through various training workshops as part of the quality drive and documented management system. (f) Research and development There are developments in other countries that could assist in improving local systems, but on few occasions can they be implemented without adaptations to the local environment/culture. This effort needs to be coordinated for the country. 5.0 WHAT IS NEEDED FOR SUSTAINABILITY is some organization that will give clear direction to the development of a system of operation in which there is continuous development and which addresses the following key elements: (a) Permitting and licensing of the various handling and disposal facilities.

8 (b) Regulations, guidelines and standards for the various waste management functions. (c) A programme and a plan of action for the country which are reviewed on an annual basis to maintain compatibility with country requirements. (d) Standard contract specifications which could cover the specifications for such items as:. Hazardous waste storage facilities. Solid waste disposal facilities. Collection practices for various Municipal Corporations (e) Tender evaluation procedures, including the technical requirements that need to be considered in contract evaluation. (This function however, does not require the organization to actually evaluate the tender after submission.) (f) A financial system for the management of solid and hazardous waste. (g) Implementation and management of an information system. (This should involve the formulation of a database to include information such as priority pollutants, hazardous substances in use, waste generation rates, key generators, etc. In addition, the system can be used to manage the manifest system for hazardous waste and other controlled substances.) 6.0 CONCLUSION While SWMCOL is a state company with the capability of guiding the solid waste management system it has been caught in the dilemma of choosing between profitability and decisions in the national interest. Because of funding constraints it has had to be innovative and this has contributed to some of its successes in the recycling arena. However, there are limits to which such innovation can be allowed to go without compromising the integrity of a system, as with the funding constraints with the disposal functions. While the company is aware of what needs to be done for future planning - such as waste classification exercises and environmental testing - this is not being done with the frequency that it should, in order to provide reasonable data on which decisions can be made. This is due largely to the fact that the disposal function is seen as a service line to be examined in the context of what the client (Government) is prepared to pay for. An authority-like structure should have Government's support in taking the steps needed to protect the public by ensuring that the required resources are assigned to the various component elements (from cradle to grave) so that they function well. Existing authorities sometimes have not been seen to function with the efficiency that is expected.

9 Ideally, the structuring of an ideal solid waste management system requires both a corporate authority and a corporate entity if the responsibilities are to be shared and carried out efficiently and effectively. BIBLIOGRAPHY 1. Garraway, Edison - MBA, B.Sc. Environmental Sciences. "Changing Approaches to Solid Waste Management in Trinidad and Tobago" November. 2. Garraway, Edison - MBA. B.Sc Environmental Sciences. "Recycling Initiatives in the Caribbean" September 3. Trinidad and Tobago Solid Waste Management Company Limited / Marshall Macklin Monaghan International Inc. (Canada). "A Proposal for the development of a Solid and Hazardous Waste Management Programme for Trinidad and Tobago" Tyler, Seth D. "Trinidad and Tobago Hazardous and Oily Waste Planning Report". A Draft Report prepared for IDB February. 5. USEPA. "Decision-Maker's Guide to Solid Waste Management, Second Edition" August. 6. Williams, Ronald A. "Proposal for the development of a Solid Waste Authority in Trinidad and Tobago