Solid Waste Management in Greece: large steps forward

Transcription

1 Solid Waste Management in Greece: large steps forward By Mavropoulos Antonios, Head of SWM Dept. of EPEM SA Member of Hellenic Solid Waste Association Solid Waste Management (SWM) in Greece is usually considered as a major environmental, social and economical problem. Although there are a lot of things to be done in order to harmonise current SWM with the EC standards, there is no doubt that last 5 years significant evolution has been achieved. New legislation, new facilities, market expansion and a corresponding expansion of the related research and consultants activities are some of the indicators that represent different sides of this evolution. At the same time new challenges have to faced, on the road ahead to implement the national and EC goals. 1. Solid Waste Management until 1994 Greece has a population of 10.2 million. In order to understand the problem of SWM in Greece, someone has to know that a large part of the country consists of small-populated islands (over 100) and mountainous areas, with thousands of communities up to inhabitants. On the other hand, almost 50% of the population live in Athens and Thessaloniki. This distribution results in a population density of 79 inhabitants / km 2, which is almost half of the EU average. The administrative system consist of 3 levels: municipalities, prefectures (group of municipalities) and regions or peripheries (group of prefectures). Municipalities have the most critical role concerning the implementation of SWM activities. Until recently there were around 5600 communities and 360 municipalities resulting, among others, great difficulties in institutional building, financial resources management and organisation of SWM. The waste disposal until 1994 was characterised by the thousands of dumpsites (4850) 1 that have been recorded officially, 70% of which were uncontrolled (corresponded to 35% of the total waste quantities). Additionally, 1420 licensed semi-controlled landfills were recorded, which received 65% of the total Municipal Solid Waste (MSW), but of course they were not sanitary landfills. The practice of sanitary landfilling was too scarcely used. The proportion of the population served by regular collection system was around 70% 2, while in numerous small islands and isolated villages collection was rarely organized. Recycling activities were relatively developed with remarkable results, mainly due to private sector efforts, providing a diversion rate of 5.96 % 3. Finally, institutional development was too poor reflecting some general problems of Greek administration system and of course the lack of technical and economical resources. SWM was not, also, a priority issue. 1

2 2. Quantities and composition of Solid Waste The generated MSW in Greece is estimated around tons for the year Although there is no reliable information system concerning SWM activities, this figure seems to be very close to reality when it is compared with the available measurements. Around tons of hazardous wastes are generated per year, by different industrial sectors, while hospital wastes reach tons per day or tons per year 4. Figure 1 presents the annual growth rate of GDP and the annual growth rate of MSW in Greece, for the last 6 years. % GDP% MSW % Figure 1: GDP and MSW growth rates in Greece within 1994 and 2000 The generated MSW is expected to grow with a rate of 0,7% per year, while hazardous waste seem to be reduced, mainly due to industrial activities reduction and the introduction of clean technologies. It should be noticed that the projection for population growth is around 0,4% per year and that obviously provides an increase to the national average MSW production per capita and day (special production kg/(capita & day)). So it is expected that the special production will rise to 1,13 kg/(capita & day) 4 around 2010, while at 1997 it was 0,97 kg/(capita & day) 5. Figure 2 presents the projections for special waste production and population. 2

3 10,672,000 1,14 POPULATION 10,670,000 10,668,000 10,666,000 10,664,000 10,662,000 Special production Population 1,12 1,10 1,08 1,06 1,04 1,02 1,00 Special production (kg/capita & day) Figure 2: Projections for population and special waste production in Greece 4 Regarding the composition of MSW, only a few analyses have been implemented resulting in difficulties for the monitoring of changes by the time and the seasonal variations. While the average composition is presented in Table 1, it is more important to underline the main trends. Table 1: MSW composition in Greece 5 Material % W/W Putrescibles 47% Paper 20% Plastics 8,5% Metals 4,5% Glass 4,5% Other 15,5% Packaging waste 20% Hazardous household waste 0,5% Firstly, there are some strong indications that the organic fraction decreases year by year, especially in big cities, like Athens and Thessaloniki, with a rate around 0,3 0,35% per year 4. Secondly, plastic and paper seem to be increased, in big cities also, with a rate of 0,15 0,2% per year 4. Taking into account that these two cities generate almost half of the total waste in Greece, the reduction of organic fraction and the increase of plastic and 3

4 paper in big cities will result in similar changes on a national level, also. These changes are considered to result of: The increased use of packaging materials. The reduction of the kitchen waste due to increased preparation of the standardised commercial food. The increased concentration of population in urban areas These trends indicate that MSW composition in metropolitan areas of Greece, by the time, will be almost the same like the composition of other metropolitan areas in Europe. The designers of SWM systems in big cities should take this point into account very seriously. 3. Current Solid Waste Management EC funds coming from the 2 nd Support Framework in combination with national financial resources have been utilised in order to promote SWM activities in every level, including studies, construction of new facilities, equipment etc. Between 1994 and 2000, around 300 million EUROs have been spent for SWM activities, in more than 40 prefectures and urban areas of the country. The results of the 6-years efforts are described below. 3.1 Legislation Greece has adopted the famous waste hierarchy since 1996 and the national goals are: 1) the prevention and/or the reduction of generation of wastes and of their hazards potential 2) the utilization of wastes a. by recycling, reusing, recovering and any other process that aims to produce secondary raw materials and b. for the production of energy 3) the environmental sound disposal of the residues As it is obvious the adoption of the waste hierarchy is not enough in order to improve SWM. It has to be completed with specific measures, terms and specifications that will promote appropriate solutions to specific problems. So the most important SWM issues are contained in the following regulations: Common Biministrial Decision 69728/824/96 Measures and terms for SWM Common Biministrial Decision /1016/97 Technical specifications framework and formation of general programs for SWM Common Biministrial Decision /1016/97 National planning for SWM Common Biministrial Decision 14312/1302/2000 Detailed guidelines concerning National Planning for SWM All these regulations provide, more or less clearly, the following: The general guidelines of the policy for the solid waste management. The framework of technical specifications and general management programs. 4

5 The specific measures and responsibilities that should be embodied in each management level (municipalities, prefectures, and regions). The goals that have to be achieved, according national plan and EC goals. Two more regulations are expected to complete the legal framework about SWM. The regulation for the packaging wastes, which is to be issued soon and the regulation for the European directive 99/31 for sanitary landfills, which is expected to be issued in the next months. Finally, the administration structure has changed, providing valuable help to SWM efforts. By the end of 1998, there was a major change in the administrative map of Greece resulting in less than 1000 municipalities in stead of the previous This fact is of crucial importance, because: It has already helped municipalities to organise SWM activities in larger areas, using scale economy advantages. It will result in better human resources management and education. It will allow more efficient financial resources management. 3.2 Facilities Using the above-mentioned 300 million EUROs, a lot of successful public works were implemented. So the map of SWM facilities of Greece consists of the following. Landfills Twenty-two (22) sanitary landfills have already been constructed, serving 52% of the population. More over, this period sixteen (16) sanitary landfills are under construction. The completion of these landfills will rise the percentage of the served population to 64% 5, possibly by the end of Around 15 more landfills are under preparation and will be constructed within next two years. The construction of these landfills is a non- alternative option because they will serve as the first step in every SWM plan. The management of each landfill provides the practical way to join different municipalities in a managerial scheme. On the other hand, it should be underlined that in a lot of cases these landfills will serve as a disposal site for a short period of 2 5 years an then they will serve for treatment residues disposal. Treatment facilities There is a mechanical separation - compost facility operating in Kalamata, with a processing capacity of tons per year. 5

6 In a few months a new modern treatment facility will start to operate in Athens (construction works will be completed until the end of 2000). It consists of a mechanical separation facility and an organic treatment facility and it will produce large quantities of secondary materials and compost. Its capacity will be around tons per year, which is around 9% of the total waste generation of the country. Another similar facility is under preparation in Thessaloniki, with a capacity of around tons per year (6% of the total waste generation of the country). It will be ready, normally, by the end of Some other treatment projects (at least 6) are also under preparation. Such projects include mechanical separation facilities, compost and biogasification facilities and an incineration plant 4. Recycling Two Material Recovery Facilities (MRF) are already in operation. The first one was constructed and it is operated (for 5 years) by HERRA (a non profit association of industries) in co-operation with some municipalities in Athens (Amaroussion, Vrilissia etc.). It serves inhabitants and its performance is high qualified. The program is based on a typical dual separation system (wet and dry waste) and a recovery rate of 32% is achieved. Another small MRF has been constructed and it is operated in the island of Zakynthos, serving inhabitants for 4 years. Some other 10 facilities are under preparation. Although there are a lot of recycling efforts in different municipalities, the most important programs are those located in Athens and Thessaloniki. They are source separation programs, for paper only, serving 2 and 1 million inhabitants correspondingly. These programs have increased recycling rates to 30% for paper, 37% for aluminium and 28% for glass. It is obvious that these rates will increase more in next years, especially when the large treatment facilities of Athens and Thessaloniki will start their operation. The overall recovery rate for recyclable material (plastics, paper, metal and glass) is estimated at 21% and the diversion rate is estimated at 8,69% 5. Collection Regular collection rate has been increased to 90%, while the rest 10% concerns isolated communities and small islands with less than 500 inhabitants. Hospital waste A special collection system has been established to Athens and a modern treatment facility is under construction, with a capacity of around tons per year. A similar project is prepared for Thessaloniki, with a capacity of tons per year. 6

7 Restoration of abandoned landfills Six (6) big uncontrolled or semi-controlled landfills are under restoration (two in Attica, three in Thessaloniki and one in Crete Island), with a total cost of 40 million EUROs. Some more twenty (20) restoration projects are under preparation. Table 2 presents a comparison between the present status of SWM in Greece and the status until Table 2: SWM in Greece - steps between 1994 and Remarks Population served (%) by sanitary landfills are under preparation Sanitary landfills Diversion rate (%) ,69 Diversion rate will increase remarkably as soon as large treatment facilities will start their operation Collection rate (%) The rest 10% concerns isolated communities MRF facilities are under preparation Treatment facilities facilities are under preparation Restoration projects projects under preparation 3.3 Preparation of SWM plans According the Greek legislation, no financial support, from any possible resource, will be given to any municipality for SWM activities, if an integrated SWM plan (master plan) do not exist for the whole prefecture or region. Greece consists of 53 prefectures. 21 of them have completed their master plan, while 20 more are going to complete their master plans within next year. 3.4 Infrastructure institutional building Remarkable steps have been implemented at this sector also. Around Athens and Thessaloniki, large municipalities associations have been created and developed (one for each case) gathering all the urban municipalities. These associations have undertaken the most critical duties (disposal, recycling, transfer stations) while collection remains still under each municipality control. Similar associations have been developed around every landfill, resulting in an institutional building concerning SWM. A lot of research programs have been implemented by Greek Universities about special SWM problems and a new generation of qualified researchers and consultants are activated in SWM projects. The foundation of Hellenic Solid Waste Association (HSWA) which is going to be a national ISWA member, is a consequence of the infrastructure development. 7

8 4. Some remarks for the future Although it is obvious that SWM in Greece is transformed rapidly into a much more improved activity, no one can be satisfied from the present SWM development. Of course someone can say that in 6 years Greece covered 10 or 15 years efforts and this may be true. But comparing the present SWM in Greece and the environmental standards that have been set up by the national plan, in accordance with the EC goals, the right comment is to say: We did a lot We have to do more than we did For the period , the total financial resources that will be spent for SWM activities (coming from 3 rd EC Support Framework and from national resources) are estimated between million EUROs. The main part will be spent for new treatment and disposal facilities. Although it is not yet clear, there is a possibility that some projects will be implemented using private sector funds also. That will introduce an innovation to Greek SWM market, which is not used at such projects. This is a challenge, for both the public and the private sector, since their co-operation has not yet been proven efficient. Last 4 years, a shift was realised. Consultants, researchers and the relevant authorities moved from the traditional disposal options to treatment and utilisation of waste. A new shift must be made in order to move from the construction of treatment and disposal facilities to a self sustainable performance of SWM systems. On the other hand, treatment and disposal will not be sustainable if they will not be combined with significant efforts for waste prevention and reduction, and this is another challenge, maybe the most important, for all the parties involved in SWM. In order to promote waste reduction and sustainable performance, there are some critical issues that have to be implemented and programmed. First, Greece needs a reformulation of the economical instruments concerning SWM, with the introductions of recycling motives, landfill taxes etc. A detailed cost estimation should also be applied, in every municipality, in order to create self sustainable systems. Second, a national information system concerning SWM should be developed. Such a system will be very useful, especially if it will be combined with additional research on SW composition and quantities. Third, a national system for hazardous waste management has to be established, as soon as possible. 8

9 Last, but not least, a detailed strategy has to be developed in order to implement the EC goals concerning the reduction of the organic fraction that goes to landfills and the goals for packaging waste. References 1. Alexaki, M. & Agapitidis, I. (1995) Guide for Solid Waste Management in the Greek Periphery (3 rd edition), Athens, Greece, EETAA 2. Agapitidis, I. & Frantzis, I. (1998) A possible strategy for municipal waste management in Greece, Waste Management and Research, 16:3: pp OECD Report (1992) Environmental Directorate, Environmental Policy Committee, Paris, France 4. Ministry of National Economy (2000) Report for the current SWM in Greece, Athens, Greece 5. Ministry of Physical Planning, Public Works, and the Environment (1998) National plan for an integrated Solid Waste Management, Athens, Greece 9