Draft Work Plan for Addis Ababa

Draft Work Plan for Addis Ababa Climate and Clean Air Coalition U.S. Environmental Protection Agency February 25, 2015 I. Introduction The Climate and Clean Air Coalition (CCAC) Municipal Solid Waste (MSW) Initiative facilitates cooperation to mitigate short-lived climate pollutant (SLCP) emissions from waste management activities. The City Government of Addis Ababa (CGAA) joined the initiative in 2013. As lead partner of the MSW Initiative, the U.S. Environmental Protection Agency (U.S. EPA) conducted preliminary scoping visits to Addis Ababa in February and July 2014. During these visits, CGAA and U.S. EPA representatives discussed the city s priorities for improving waste management and reducing SLCP emissions. The U.S. EPA and the CGAA developed this work plan to help address these priorities. The remainder of this document is structured as follows: Section II provides background information on waste management in Addis Ababa Section III describes the work plan s specific activities and tasks, and the roles that the CGAA and the U.S. EPA will play Section IV includes a draft timeline for the implementation of the work plan The references section provides citations for key information sources mentioned in the document Annex A provides information on other relevant third parties and projects in the waste sector in Addis Ababa. II. Background Addis Ababa is the capital of Ethiopia. For administrative purposes the city is divided into 10 subcities (see Figure 1), each of which contains several woredas (wards). There are a total of 116 woredas in the city. According to the 2007 Census conducted by the Ethiopian Central Statistics Agency, there are 2.7 million people living within the jurisdiction of the CGAA (Central Statistics Agency, 2007). However, the CCAC MSW Initiative City Assessment prepared by the U.S. EPA and the CGAA Solid Waste Disposal and Recycling Project Office (SWDRPO; CCAC MSW Initiative, 2014) indicates that the population of the city is 3.9 million. 1

Figure 1. Map showing location of 10 sub-cities and current dump site at Repi. Source: Artelia, 2013. Addis Ababa is one of the fastest-growing cities in Africa (3% annual growth). In addition, the city has a high rate of growth in per-capita gross domestic product (8% in 2013; World Bank, 2014). The city s rapid population and economic growth present a number of waste management challenges due to corresponding increases in waste generated (Community Development Research, 2011). Waste Generation The SWDRPO estimates that Addis Ababa generates 730,000 metric tons of MSW annually (CCAC MSW Initiative, 2014), and that the per-capita waste generation rate is approximately 2

0.45 kilograms per day (CCAC MSW Initiative, 2014). Other sources provided different estimates for these figures. For example, a study conducted by Artelia to support the development of the city s Solid Waste Management Strategy in 2013 estimates the total city-wide MSW generation amount to be 320,000 metric tons annually, with a per-capita generation rate ranging from 0.2 to 0.6 kilograms per day, depending on the level of income (Artelia, 2013). According to one study, 70% of the waste generated comes from households, 9% from commercial areas, 6% from street sweeping, 5% from industrial waste, and the remaining from hotels, hospitals, and other such facilities (Community Development Research, 2011). The Artelia (2013) study estimates that 76% of the city s waste comes from households, 6% comes from street sweeping, and 18% comes from commercial, industrial, hospitals, and other sources. The average composition of solid waste generated in the city, as estimated by the SWDRPO, is presented in Table 1. As the table shows, 65% of the city s MSW is organic. Waste Collection Table 1. MSW Composition in Addis Ababa. Component Percentage Organic 65% Paper 3% Plastic 3% Primary Waste Collection Tires 3% Metal 2% Primary waste collection falls under the Glass 1% jurisdiction of the CGAA s Cleansing Authority. Other 23% The Cleansing Authority has offices in each of the 10 sub-cities, but the waste collection Total 100% activities are primarily administered at the very Source: CCAC MSW Initiative, 2014. local level by woreda-specific offices. Primary collection is done by micro- and small-scale sanitation enterprises (MSEs) that are managed at the sub-city and woreda levels, with 10 15 people per MSE. Each MSE must register with the Cleansing Authority s sub-city representatives, who assign a collection zone to the MSE. There are approximately 750 such MSEs in the city (Community Development Research, 2011). MSE employees use 1.5-cubic-meter pushcarts to collect waste throughout the city (including some door-to-door collection). Collection occurs approximately once daily. The MSEs take the collected waste to skip points and deposit it in 8-cubic-meter containers (see Figure 2). These containers (called skips ) are often filled beyond their capacity; excess waste is piled next to the skips. There are approximately 1,000 skip points in the city, and approximately 2 skips per square kilometer (Artelia, 2013). Primary collection fees were previously levied on households based on the quantity of waste collected, but this resulted in residents dumping their waste in the open rather than paying for collection services. So the city now includes a flat-rate waste collection charge in water bills. 3

Figure 2. MSE employees emptying waste into skips. Source: Stratus Consulting. Secondary Waste Collection Secondary waste collection is also the responsibility of the sub-city Cleansing Authority offices. City-owned trucks retrieve waste from the skips and transport it to the city s one open dump site in the Repi neighborhood (see Figure 3). On average, each skip container is emptied twice weekly (Artelia, 2013). According to the CGAA, the primary challenge with secondary waste collection is that the skips fill up faster than the city can empty them because each trip to the dump site involves driving through traffic for multiple hours. On average, each round-trip from the skip point to the dump site takes 2.7 hours (Artelia, 2013). In addition, the city has no means to track the performance of its collection crews, and is interested in knowing what options are available to monitor drivers efficiency. According to one report (Community Development Research, 2011), only 58% of planned secondary waste collection trips in the city (i.e., trips from skip points to the dump site) are completed. This is due to a number of factors, including employee negligence, poorly designed collection route systems and time schedules, untimely emptying of skips, and poor truck maintenance (which leads to breakdowns). 4

Figure 3. Container truck transporting a skip to the dump site. Source: Stratus Consulting. Transfer Stations The city is in the process of constructing two new transfer stations. These transfer stations are expected to be completed in mid-2015. Waste collected from the city s numerous skip points would be transported to the transfer stations, which could potentially include composting, recycling, and incineration facilities. Waste that is not treated by these means would then be transported outside the city to a planned sanitary landfill in Sendafa. One of the transfer stations is planned to be located at the soon-to-be-closed Repi dump site (see section below on Waste Disposal ). Collection Efficiency The SWDRPO estimates that the city collects approximately 80% of waste generated (CCAC MSW Initiative, 2014). According to one study, the collection rate is only 75% and the remaining 25% is simply dumped in the open (e.g., in streets, drainage channels, rivers, and valleys) (Community Development Research, 2011). The Artelia (2013) study suggests that the city s collection efficiency is approximately 70%. Collection Coverage Improving collection coverage is a key area of interest to the city. The city estimates that 70% of the city (by geographic area) receives collection services. This rate has been improving over time, but the city believes that considerable improvements are still possible. Extending 5

collection into informal areas is seen as a key priority because these are the areas where waste burning is most prevalent. The city is also experiencing rapid growth in outlying areas where new condominiums are being constructed in large numbers. Reaching these areas remains a challenge because of the lack of adequate infrastructure (see Figure 4). Figure 4. New condominium on city periphery next to an unfinished access road. Source: Stratus Consulting. Open Dumping Open dumping is prevalent. The city acts promptly to clean waste that is dumped in the open, but it remains a significant problem. According to the city, the primary reasons why open dumping occurs include: Inadequate collection equipment. Skip containers are often over-filled, which causes them to overflow into streets and residential areas (see Figure 5). In addition, collection trucks spill considerable waste as they struggle to lift the skips. According to the Artelia (2013) study, the average skip container holds 9.3 cubic meters of waste when it is transported to the dump site, despite having a capacity of only 8 cubic meters. Poor navigability of roads. Another reason why open dumping occurs is that some areas of the city are completely inaccessible to collection trucks (e.g., due to traffic and construction). Uncollected waste in hard-to-access neighborhoods is typically dumped in the open. 6

Figure 5. Over-filled skips. Source: Stratus Consulting. Organic Waste Management The city is interested in developing composting projects, but access to quality organic waste for composting is a problem because the city s produce markets (a key source of quality organic waste see Figure 6) are in a hard-to-reach part of the city. To make it easier to collect and process organic waste and recyclables, the city is interested in constructing two transfer stations and accompanying composting/recycling facilities that could receive organic waste and recyclables from a 10-kilometer radius wasteshed. The city wants all recycling and organic waste-handling facilities to be run by private companies, as it lacks the capacity to run the facilities itself. At present, the city is considering issuing a request for proposals (RFPs) to elicit bids from private companies to design, construct, and operate a composting project at one of the two planned transfer stations. Recycling Approximately 5% of all waste generated is recycled (CCAC MSW Initiative, 2014). There is no formal recycling in the city, but informal recycling plays a key role (especially in recycling iron, other metals, and bottles). The informal recyclers do not need to register with the city; some are also the same private MSEs that collect waste, but many are individual entrepreneurs who walk the streets calling out for household recyclables. There are also approximately 1,000 recyclers who pick through waste at the Repi dump site to collect plastics, iron, and other materials (see Figure 7). These recyclers sometimes dig 10 meters and often set fires to recover valuable metals. 7

Figure 6. Organic waste from the Atkilt Tera market. Source: Stratus Consulting. Figure 7. Informal recycling at the entrance to the Repi dump site. Source: Stratus Consulting. The city is interested in undertaking efforts to better understand the potential for recycling programs. Such programs might involve formalizing the city s relationships with informal recyclers and potentially bringing in the current middlemen to serve as recycling facility managers. The city is very concerned about improving the quality of life for informal recyclers. 8

Waste Disposal The city currently has one dump site in Repi (Community Development Research, 2011; CCAC MSW Initiative, 2014) that has been in use for approximately 50 years (Community Development Research, 2011). The site received more than 1 million cubic meters of waste in 2013, and currently holds approximately 4.5 million cubic meters (Artelia, 2013). Part of the dump site is closed, but disposal continues in the main section of the site (see Figure 8). No cover is applied to the waste, little compaction occurs, and there is evidence of subsurface fires (see Figure 9). Figure 8. Map showing layout of Repi landfill (light shading). The area where current disposal operations are concentrated is highlighted with darker shading. Source: Google Earth. Originally the dump site was on the outer edge of the city (approximately 8 kilometers from the city center), but due to urban expansion it is now in the heart of the city. There are many homes and schools that have been built next to the dump site, and poor air quality is a significant concern in these areas. The dump site receives waste from all sources without specialized treatment: household, commercial, construction, and even hazardous and medical wastes (construction waste is becoming an increasingly big problem due the high rate of urban development in the city). The city does minimal compaction at the site, and does not apply any cover to the landfill. The city is planning on completely closing the Repi dump site in 2015 and is considering turning the site into a park. The city has installed a landfill gas collection system in the closed section of the dump site (see Figure 10), and has started constructing a flaring station to manage methane emissions from the site (see Figure 11). 9

Figure 9. Excavator moving waste from periphery to center of active section of dump site. Source: Stratus Consulting. Figure 10. Landfill gas vent in the closed section of Repi dump site. Source: Stratus Consulting. 10

Figure 11. Preliminary construction of landfill gas flaring station. Source: Stratus Consulting. As of January 2015, the city has started constructing a new sanitary landfill in Sendafa to replace the Repi dump site. The city expects that the first waste disposal cell at the new landfill will be completed in mid-2015. The city is very interested in receiving assistance for closing the current dump site and designing and operating the new sanitary landfill. The new landfill will be located approximately 25 kilometers from the city center (see Figure 12). Figure 12. Map showing location of Repi dump site and new Sendafa landfill relative to Addis Ababa city center. Source: Google Earth. 11

Waste-to-Energy The city is collaborating with a private company to plan a new waste-to-energy incineration facility at the soon-to-be-closed Repi dump site, along with a proposed new transfer station. The waste-to-energy facility would receive a portion of the residual waste from the transfer station (i.e., waste that is not separated for recycling or organic waste diversion). The waste-to-energy facility is expected to have a capacity of approximately 500 metric tons per day. Waste that is not used by the waste-to-energy facility would be transported from the transfer station to the new sanitary landfill in Sendafa. Integrated Solid Waste Management Planning With financial support from the Agence Française de Développement and technical support from Artelia, the city has a new (December 2013) solid waste management strategy to inform decision-making about waste management. See the Artelia (2013) report cited in the references section. III. Planned Scope of Activities The CGAA and the U.S. EPA have identified several priorities for CCAC support in improving waste management and reducing SLCP emissions from the waste sector in Addis Ababa. These include: Improving organic waste diversion Improving waste collection efficiency Supporting the design, construction, and operation of new transfer stations Supporting efforts to safely close the current dump site and operate and manage a new sanitary landfill, including support for potential landfill gas collection and utilization at both sites. 12

ACTIVITY 1: Complete a CCAC MSW Initiative City Assessment and SLCP Emissions Baseline A city assessment must be completed for each MSW Initiative pilot city. The assessment needs to consider a wide range of factors relating to waste generation, collection, and disposal, as well as a number of contextual factors, such as population change over time. In addition, in order to quantify the potential emissions reductions from the other activities identified in this work plan, it will be necessary to establish an SLCP baseline for Addis Ababa s solid waste sector. Targeted SLCPs include methane and black carbon. Efforts to reduce these emissions indirectly reduce traditional air pollutants such as ozone and particulate matter. A forthcoming tool being developed by the Institute for Global Environmental Strategies (IGES) will be used to model potential reductions in SLCP emissions from the waste sector. Task 1. Gather data Collect data on waste management through desktop information review and scoping visits. Task 2. Complete and finalize assessment Assist with collection of data. N/A Develop and revise draft city assessment. Task 3. Complete and finalize SLCP baseline Review draft city assessment. Develop SLCP emissions baseline for methane and black carbon. Review data inputs in SLCP Baseline Emissions Estimation Tool. Task 4. Model potential SLCP emissions reductions Model potential reductions from alternative waste management scenarios using IGES tool. Assist in evaluating draft version of IGES tool. Provide data inputs. Completed CCAC MSW Initiative city assessment. Completed SLCP emissions baseline. Completed analysis of potential SLCP emissions reductions. 13

ACTIVITY 2: Improve Organic Waste Diversion The city is interested in obtaining support from the CCAC in issuing a RFPs for the design and construction of a composting facility to be located at one of the proposed new transfer stations. Task 1. Organic waste management project planning support Provide guidance to CGAA on the general steps involved in planning an organic waste management project. Provide information on the specific aspects of the project planning for which CCAC support is needed. Task 2. Development of RFPs for composting project Provide guidance on key questions and considerations to think about when hiring a private company to develop a composting project. Provide support in developing the technical criteria for a RFPs for the composting project. Task 3. Networking Provide information on the specific aspects of RFPs planning for which CCAC support is needed. Provide data to support the development of the technical criteria for the RFPs. Develop background section for the RFPs. Guide to Planning Organic Waste Management Projects. Memorandum of project development and procurement considerations for composting facilities. Sample RFPs from other cities. Review of draft technical criteria for RFPs. Facilitate connections (e.g., through MSW Initiative city exchange) between city representatives and entities that have implemented similar projects. Assist in developing work plan for MSW Initiative city exchange. Identify individual(s) to serve as focal point(s) for discussions. Provide input into MSW Initiative city exchange work plan (e.g., identifying priorities and sharing information with other city representatives). List of events that will offer networking opportunities with municipal officials and subject-matter experts. Completed MSW Initiative city exchange. 14

ACTIVITY 3: Improve Waste Collection Efficiency The city seeks information on best practices for improving secondary waste collection efficiency, especially with respect to tracking and evaluating collection employees performance. The city also seeks information on best practices for siting, designing, and managing skip points to facilitate materials separation and cleanliness, and options for improving collection coverage in areas of the city that are difficult to serve (e.g., unincorporated areas). Task 1. Critical review of existing waste collection analyses Review existing waste collection analyses to evaluate their findings and identify remaining information gaps that need to be addressed. Provide access to existing waste collection analysis and data. Critical review of existing waste collection analyses, including needs assessment to identify additional information needed to inform decisions about waste collection system improvements. Task 2. Supplemental data collection and identification of priority opportunities Collect and review additional data on secondary waste collection, based on findings from needs assessment. Provide access to data. Task 3. Assessment of priority opportunities Collect and review additional data on secondary waste collection and assess priority opportunities for improving waste collection efficiency. Task 4. Networking Provide access to additional data on waste collection practices and costs. Facilitate meeting with officials of cities that have implemented relevant projects and participate in appropriate conferences and trainings. Identify and send an individual to participate in the identified event(s). Incorporate the information in decision-making activities. Brief memorandum identifying options for improving waste collection, including recommendations for two or three priority opportunities. Assess the technical and economic feasibility of two or three priority opportunities for improving secondary waste collection efficiency. List of events that will offer networking opportunities with municipal officials and subjectmatter experts. 15

ACTIVITY 4: Support the Design, Construction, and Operation of New Transfer Stations The city would like assistance in reviewing the design, construction, and operation of two new transfer stations. The city expects that the transfer stations will be completed in mid-2015. Task 1. Review of procurement and design materials for new transfer stations Review winning bidder plans for new transfer stations. Provide access to design and procurement materials. Task 2. Transfer station maintenance and operations training Develop training module on transfer station maintenance and operations. Transfer station engineers to participate in training and follow-up activities. Assessment of transfer station design and operation plans, with focus on identifying key considerations for mitigating SLCP emissions. In-person training. Training materials (e.g., presentation materials with links to additional information, memoranda with city-specific recommendations and links to additional resources). 16

ACTIVITY 5: Support Efforts to Safely Close the Current Dump Site and Operate and Manage a New Sanitary Landfill, including Support for Potential Landfill Gas Collection and Utilization at Both Sites The city seeks assistance in evaluating existing feasibility studies, design plans, and other documents related to closing the current dump site at Repi. The city is also seeking technical support and capacity building to support the design, construction, and operation of the new sanitary landfill in Sendafa, the first waste disposal cell of which is estimated to be completed in mid-2015. Task 1. Review of procurement and design materials for new landfill Review winning bidder plans for new landfill. Provide access to design and procurement materials. Task 2. Landfill maintenance and operations training Develop training module on landfill maintenance and operations for landfill gas collection and utilization, with a focus on start-up operations at the new sanitary landfill. Landfill engineers to participate in training and follow-up activities. Assessment of landfill design and operation plans, with focus on identifying key considerations for mitigating SLCP emissions. In-person training. Training materials (e.g., presentation materials with links to additional information, memoranda with city-specific recommendations and links to additional resources). Task 3. Review of Repi dump site closure plans for landfill gas collection and utilization potential Review Repi landfill closure plans for soundness and to ensure maximum potential for future landfill gas collection. Identify utilization options for potential future landfill gas energy project and provide information on other cities that have implemented such projects. Provide access to studies and assessments of Repi landfill design and closure. Landfill closure assessment that includes: - An analysis of key considerations to ensure the landfill can maximize landfill gas collection. - An analysis of potential end-user landfill gas energy projects. 17

IV. Draft Timeline Activity/Task Activity 1. Complete CCAC MSW Initiative city assessment and SLCP emissions baseline Target Completion Date Gather data August 31, 2014 Complete and finalize assessment September 30, 2014 Complete and finalize SLCP baseline January 31, 2015 Model SLCP emissions reductions using IGES tool April 30, 2015 Activity 2. Improve organic waste diversion Organic waste management project planning support September 30, 2014 Support for development of RFPs for composting project April 30, 2015 Networking April 30, 2015 Activity 3. Improve waste collection efficiency Critical review of existing waste collection analyses July 31, 2015 Supplemental data collection and identification of priority opportunities August 31, 2015 Assessment of priority opportunities April 30, 2016 Networking December 31, 2015 Activity 4. Support the design, construction, and operation of new transfer stations Review of procurement and design materials for new transfer stations April 30, 2015 Transfer station maintenance and operations training June 5, 2015 Activity 5. Support efforts to safely close the current dump site and operate and manage a new sanitary landfill, including support for potential landfill gas collection and utilization at both sites Review of procurement and design materials for new landfill April 30, 2015 Landfill maintenance and operations training June 5, 2015 Review of Repi dump site closure plans for landfill gas collection and utilization potential July 31, 2015 Estimated program completion date April 30, 2016 18

References Artelia. 2013. Final Report Solid Waste Management Strategy and Institutional Report. December. CCAC MSW Initiative. 2014. CCAC MSW Initiative City Assessment. Based on data provided in July and August 2014 by Shibru Tefera. Central Statistics Agency. 2007. Population and Housing Census Report-Addis Ababa Region 2007. Available: http://www.csa.gov.et/index.php/2013-02-20-14-51-51/2013-04-01-11-53-00/census-2007. Accessed 7/7/2014. Community Development Research. 2011. Ethiopia Solid Waste & Landfill: Country Profile and Action Plan. Report produced with funding from the Global Methane Initiative. World Bank. 2014. World Bank Data. Available: http://data.worldbank.org/. Accessed 12/1/2014. 19

Primary Collection Secondary Collection Feedstock Assessment Market Assessment Project Design and Construction Design Construction Improving Operations Access Road Design and Construction Improving Operations Sanitary Landfill Design and Construction Access Road Design and Construction LFG Energy Project Feasibility Assessment Repi Dump LFG Flaring System Design and Construction Support for Repi Dump LFG Flaring System Registration Under CDM Repi Dump Closure and Reclamation Recycling Facility Design and Construction Waste-to-Energy Facility Design and Construction Solid Waste Management Planning Public Outreach Data Collection ANNEX A. CGAA COMMITMENTS TO PROJECTS IN THE WASTE MANAGEMENT SECTOR (AS OF JANUARY 2015) Non-CCAC Activities and Programs in the Solid Waste Sector in Addis Ababa (as of December 2014) Improving Collection Improving Organic Waste Management Improving Transfer Stations Improving Landfill Design and Operations Other Organization Organization Type Financing Amount Start Date End Date Notes Financial Financial Financial Financial Agence Francaise de Bilateral Program 25 million 2012 2016 Technical Technical and Technical Financial Technical Financial and and and Developpement (AFD) Technical Technical Technical Technical Financial AT-Verband/ IGNIS/ Addis Ababa Technical Institute Bilateral Program 2008 2012 Technical Technical (funded by GIZ) Focus on World Resources Institute/ Echnoserve (funded by U.K. Department for International Development) Bilateral Program 2013 2015 World Bank - Urban Local Multilateral Government Development Program Program United Nations Multilateral Development Programme Program (UNDP) Climate Resilient Green Economy Facility (led by Ministry of Finance and Economic Development; Federally Funded funded by U.K. Program Department for International Development) Addis Ababa Cleansing Municipal Management Authority Program Addis Ababa Solid Waste Municipal Disposal and Recycling Program Project Office Addis Ababa Micro & Small Municipal Enterprise Development Program Bureau Cambridge/ Ethiopian Other Capital Electric Power Corporation Investment developing greenhouse gas (GHG) emissions baseline for city (including solid waste GHGs) Addis Ababa part of the program but no activity or funding yet Technical Technical $200,000 2014 2015 Financial 2013 2018 Financial Financial Financial Financial 2013 2018 Financial Financial Financial Financial Financial Financial Financial Financial Financial Financial Financial 2013 2018 Technical Financial $170 million 2014 2016 and Technical Technical Horn of Africa Regional Environment Centre and Network (funded by UNDP) Other Capital Investment Under negotiation Capacity Building Capacity Building Capacity Building Capacity Building Capacity Building IGNIS/ Environmental Other Capital Development Action in the Phase-out Investment Third World IGNIS: Income Generation and Climate Protection by Valorising Municipal Solid Wastes in a Sustainable Way in Emerging Mega-Cities. GIZ: Gesellschaft für Internationale Zusammenarbeit (German Agency for International Development). Financial and Technical 20