ANNEX 2: Action Fiche for Pacific Hazardous Waste Management (Pac Waste)

Transcription

1 ANNEX 2: Action Fiche for Pacific Hazardous Waste Management (Pac Waste) 1. IDENTIFICATION Title/Number Pacific Hazardous Waste Management (Pac Waste) 15 Pacific ACP countries CRIS: FED/2012/ Total cost 8 million (EU contribution: 100% from EDF 10) Aid method / Method of implementation DAC-code Sector Joint Management with an International Organisation (Secretariat of the Pacific Regional Environment Programme - SPREP) Waste Management / Disposal Environmental policy and administrative management 2. RATIONALE 2.1. Sector context Poor waste management is a major threat to sustainable development in Pacific island countries and territories, as it has negative impacts on the region s environment, as well as on public health, water resources quality, fisheries, agriculture, tourism and quality of life in general. While significant progress is underway in the management of solid waste generated by households in many Pacific island communities, hazardous waste, including asbestos, e-waste and medical waste, remains essentially unmanaged. Improper management of medical waste can result in contamination of water supplies or aquatic environments, release of toxic pollutants to the air, and infection risks to communities and animals living near landfills. Pacific island countries have a history of use of asbestos-containing building materials. Natural disasters and building deterioration lead to increased concentrations of airborne asbestos fibres, whose inhalation can cause serious lung disease or cancer. Electrical and electronic equipment, the use of which is increasing rapidly in Pacific island countries, contain a range of hazardous materials including heavy metals, bromated flame retardants and other toxic substances. Therefore, improperly managed discarded electrical and electronic equipment (e-waste) poses significant environmental and human health risks. Appropriate waste management through coordinated collection (and stabilisation in case of asbestos), storage and disposal of these hazardous waste streams are thus essential for protection of human health and the environment. 1

2 The specific objective of this project is to help Pacific ACP countries adopt costeffective and self-sustaining waste management systems to protect public health and the environment while at the same time encouraging economic growth. The focus is on the three hazardous waste streams that are considered as priorities in the region: medical, e-waste and asbestos. These are also the objectives of the Pacific Regional Solid Waste Management Strategy which was adopted by SPREP (Secretariat of the Pacific Regional Environment Programme) members in November The Strategy covers the management of domestic, commercial, institutional and industrial solid waste. The key priorities identified include sustainable financing, integrated solid waste management, legislation, public awareness, communication and education, capacity building, environmental monitoring, policy, planning and performance, and support for the solid waste industry. Environment Acts have been passed in the majority of Pacific island countries and territories. Regulations specifically concerning the management of solid waste are in force in five of them and have been drafted in another three. Each country has enacted other pieces of legislation relevant to the management of solid waste, particularly concerned with the effect of solid waste management on public health. Progress achieved in the domains of prevention, generation, recycle, reuse, and recover (3Rs), collection and transport of solid waste varies from one country to another. Some common challenges to the management of solid waste are however identified. These include increases in waste generation caused by economic and population growth, limited availability of suitable land (on small islands and atolls) for waste disposal, the remoteness of many countries, resulting in higher waste management costs and the small and sparse populations, which limit potential economies of scale. The Regional Solid Waste Management Strategy will be reviewed in 2014 to incorporate all waste management including hazardous waste. However, detailed regional strategies for the management of priority hazardous solid waste such as asbestos and e-waste have already been completed at the request of SPREP Member countries and endorsed in The medical waste strategy is already integrated in the Regional Solid Waste Strategy and aims at the provision of costeffective systems for treatment and final disposal of wastes, compliant with applicable (e.g. World Health Organisation) standards and the relevant obligations under international conventions, such as the Stockholm Convention. Training of operators of medical waste systems to adequate capacity level is also foreseen. Challenges are related to, inter alia, ineffective segregation of medical wastes at the source, persisting technical problems at existing incinerators. In addition, some of the incineration plants provided by donors in the past are not compliant with current international best practices as specified by the Stockholm Convention. In many cases, incinerators are located at hospitals, i.e. in densely populated areas, with a potentially significant negative impact on public health and the environment. The project's objectives will be reviewed, if necessary, in light of the adoption of the new comprehensive Pacific regional Waste Management Strategy

3 The project falls under the second Focal Area of the 10 th EDF Regional Indicative Programme: Sustainable Management of Natural Resources and the Environment, and more specifically under point 2.6: Waste and Pollution. Protecting human health and the environment from hazardous substances is also mentioned as one of the key aspects of the Environment and Natural Resources Thematic Programme ( Strategy Paper and Multi-annual Indicative Programme) Lessons learnt The implementation of the Pacific Regional Solid Waste Management Strategy has provided useful lessons and guiding principles for the development of successful waste management initiatives. These included: adoption of a participatory approach involving key stakeholders to influence behaviour change; promotion of personal and corporate responsibility for waste management including the user/polluter pays approach; adoption of an integrated solid waste management program which includes options for reducing the amount of waste that needs to be disposed of through combining the 4Rs (Refuse, Reduce, Reuse, Recycle waste), as well as the use of modern waste disposal methods; and the adoption and promotion of a precautionary approach to waste management, mindful of future demographic trends and technological advances. The project is also in line with recommendations of the Regional Initiative for Solid Waste Management in the Pacific Region (Agence Française de Développement, 2006). The present project builds on lessons learned from these programmes, particularly with respect to the gaps identified in the available data on hazardous waste, their responsible management in line with international best practices, the adoption of specific policies and regulations and the limited exchange of information and collaboration among the countries in the region Complementary actions The project complements a number of current and upcoming national and regional waste management initiatives which promote integrated waste management, enhance capacity building, and facilitate waste recycling. The EU interventions include, among others the Fiji Solid Waste initiative ( 2.7 million), for the rehabilitation of the Lami Dump, the solid waste component ( 1.17 million) of the Tuvalu Water, Sanitation and Waste Management Project ( 4.4 million), which provides equipment and support for proper dump management systems; waste stream separation; composting and recycling; hazardous waste; community outreach; as well as improved waste services and the INTEGRE project benefitting EU Overseas Countries and Territories (French Polynesia, New Caledonia, Wallis and Futuna and Pitcairn) including a 1.3 million allocation for the management of solid waste. Additional waste management support to the region is provided by the Agence Française de Développement, though a 1 million for vocational training in waste management, Japan (through the Japan International Cooperation Agency), through 3

4 a 5-year, US$10 million ( 7.5 million) regional solid waste management project, NZAid is providing NZ$3 million ( 1.8 million) for the improvement of solid waste disposal in Kiribati government over the next three years to improve national solid waste landfill management and remove scrap metal from the atoll. In addition, SPREP coordinates the implementation of a US$7 million ( 5.3 million) Global Environmental Facility (GEF) project under the GEF-Pacific Alliance for Sustainability, which is designed to reduce the emission of dioxins and furans by promotion of composting of organic waste to reduce their uncontrolled burning. Other waste management projects that have been recently successfully implemented in the Pacific include recycling projects and campaigns in RMI/Guam, the Western Micronesian Pacific Islands and Kiribati, a regional programme on Persistent Organic Pollutants (POPs) in twelve Pacific island countries and an e-waste initiative in Cook Islands Donor coordination The primary forum for donor coordination of regional programmes is the Pacific Islands Forum which oversees the Pacific Plan as a framework for strengthening regional cooperation and integration. While each CROP 1 agency has its own mandate, their roles and responsibilities are inter-linked and they each contribute to achieving the overarching goals of the Pacific Plan. Overall coordination and monitoring of waste management and pollution control activities including donor support in the region is led by SPREP, whose annual SPREP meetings endorse waste and pollution management work programmes. Regular coordination among donors is ensured by regular meetings with SPREP, who maintains a well-established network of regional waste management representatives. 3. DESCRIPTION 3.1. Objectives The overall objective of the project is to contribute to building a healthy, economically and environmentally sustainable Pacific for future generations. The specific objective or purpose is to support Pacific ACP countries' efforts to adopt cost-effective and self-sustaining priority waste management systems. The project will focus specifically on three hazardous waste streams (asbestos, e-waste and medical waste) that are considered priority waste streams and are not currently adequately funded through other management programmes. These objectives are in line with those of the Pacific Regional Solid Waste Management Strategy , whose overall goal is that "Pacific Island Countries and Territories will adopt cost effective and self-sustaining Solid Waste Management systems to protect the environment, in order to promote a healthy population and encourage economic growth. 1 Council of Regional Organisations in the Pacific 4

5 3.2. Expected results and main activities Expected results are as follows: Result 1: Pacific hazardous waste status and management options assessed and prioritized. Result 2: Best available practices in priority hazardous waste management implemented in demonstration Pacific countries. Result 3: Enhanced capacity and appropriate policies and regulatory frameworks in place to mitigate and better manage hazardous waste streams achieved in Pacific island countries. Result 4: Improved regional collaboration and information exchange on hazardous waste management practices. A series of actions is foreseen, in view of attaining the above objectives. These will consist of preliminary assessment activities followed by the implementation of works and the provision of supplies in specified demonstration countries. Such actions will focus, primarily on the three (solid) waste streams (asbestos, e-waste and medical waste), which have been recognised as the top priorities for intervention in the region and for whose satisfactory management largely insufficient resources have been mobilized so far by either local and regional authorities or international donors. For convenience, the main activities encompassed by the project are grouped into the four result areas below. Activities in result area 1: Assessment of hazardous waste status and prioritisation of waste management options A thorough assessment of the status (flows, with reference to currently employed treatment technologies and disposal routes) of solid hazardous waste in the Pacific islands and atolls will be carried out. The analysis will take stock of existing data that will be reviewed and validated, for the prioritisation of key areas for intervention. Best-practices for the management of asbestos, e-waste and medical waste will be identified and adapted (as necessary) to the specificities of Pacific islands and atolls for the development of regional guidelines. Activities in result area 2: Demonstration of best available practices in priority hazardous waste management in selected Pacific countries Cost-effective and sustainable hazardous waste management solutions will be implemented in line with contemporary best practices (adapted to the particular island and atoll environments) on the basis of the guidelines and priorities identified in the framework of activities included in the result area 1. The identification of the specific interventions to be implemented will take account of countries' most urgent needs and priorities and of an assessment of the potential impact that can be achieved at country and regional level in the given sector through the envisaged interventions. In addition, it will be ensured that the appropriate policies and regulatory framework are in place before specific demonstration activities are approved. The EU Delegation will be actively involved in the site selections and requested to provide explicit approval. Proposed medical waste management solutions will be adapted to the national health care situation in demonstration countries. The selected interventions will 5

6 include the purchase and commissioning of appropriate technology for medical waste treatment and disposal and the provision of adequate training to local staff. Asbestos-containing materials will be stabilized in prioritised occupied buildings in demonstration countries, with the demonstrable objective of minimising longterm community health impacts. Priority will be given to public buildings (e.g. including schools and hospitals), account taken of occupation factors. Reception facilities of Pacific ports exporting hazardous waste will be upgraded to use best practices and state-of-the-art technologies, including monitoring and detection systems, facilities and equipment for the safe handling and temporary storage of hazardous waste and IT tools for the traceability of the waste. End-of-life electrical and electronic goods (e-waste) and asbestos-containing waste stockpiles will be treated as appropriate (including immobilisation of asbestos fibres), collected and stored in safe, dedicated medium-term storage facilities prior to recycling or export for safe disposal, following the implementation of the above port upgrading measures. A model integrated waste management system will be established in a demonstration Pacific atoll country. The project will pay for the initial stockpile shipments (asbestos and e-waste). Management structures (i.e. waste management utilities) derived from the project will then pay for ongoing waste shipments via the user pays principle backed up by legislation developed through the project, in line with the priorities expressed by the Pacific countries and reflected in the Pacific Regional Solid Waste Management Strategy Ongoing shipments will be managed at the national level based on approved regional asbestos and e-waste management strategies that devolve down to a national level with a national strategy (which mirrors the regional strategy). Regional oversight of hazardous waste shipments will be maintained via the Basel and Waigani Conventions which are coordinated by SPREP. These ensure that the waste is permitted for export and also has the correct receiver paperwork including environmental permits and additionally that the waste is being received by an accredited facility (secure landfill site in New Zealand for asbestos as an example; Simms metals Australia recyclers for e-waste as another). Activities in result area 3: Building capacity and provision of assistance in policy and regulatory framework development to mitigate and better manage hazardous waste streams Training in hazardous and solid waste best management practices will be provided and integrated as a core requirement for all relevant local personnel at demonstration sites, with a focus on women where these are more at risk of exposure. Options for legal and institutional financial measures to prevent the recurrence of e-waste stockpiling through improved life-cycle management of electrical and electronic products will be proposed and guidelines drafted as a core component of the project. This must include a careful assessment of the manufacturers' return options and the elaboration of a model (user pays) tariff or deposit system to cover the eventual costs of re-exporting, proper recycling and/or disposal at the end of products' life. Such guidelines will be the basis for the improvement of national regulations to which, 6

7 inter alia, the implementation of demonstration actions will be conditional. Technical advice will be provided to national authorities to this effect. National Customs and Environment Officers will be trained in the requirements of the Basel and Waigani Conventions for trans-boundary transport of hazardous waste. Activities in result area 4: Strengthening regional collaboration and information exchange on hazardous waste management practices A methodology that encourages the effective exchange of best practices (twinninglike arrangements) within Pacific ACPs and between Pacific ACPs and OCTs will be established. The aim of these partnership arrangements is to provide an interactive and collaborative two-way information exchange on common problems and solutions (best practices) for hazardous waste management, among similar Pacific communities and to promote exchanges and lessons learned between Pacific ACP and OCT countries. Similarly a network of Pacific waste recyclers will be established to promote exchange of best practices, and dissemination of lessons learned at the regional level will be achieved through the organisation of a regional workshop showcasing demonstration projects including the atoll waste management and port infrastructure upgrade interventions. Finally, upon completion of the project, a major regional workshop will disseminate information and technical details arising from the major outcomes of the above activities. Special attention will be given to ensure the equal participation of women in all the above activities Risks and assumptions The institutional risks attached to this project are limited as the project is embedded within a Pacific Regional Waste Management Strategy that was adopted in 2009 by all partner Pacific ACP countries following a broad consultative process. Many Pacific island national governments have also subsequently developed complementary National Waste Management Strategies that align with, or mirror the Regional Waste Management Strategy. There is a limited risk that some Governments might not give sufficient importance to the management of hazardous waste, and hence be less pro-active than others to come forward with support, or be unreceptive to the transfer of demonstration project information. Risks associated with the project are also related to capacity of Pacific island countries government officers to be trained in hazardous waste management best practices, and for those that are trained, their availability to undertake the tasks into the future, given the often competing priorities of other duties and high rates of staff turnover. In particular, Governments' support will be essential to fund longterm operational costs and maintain capacity to operate installed medical incinerators, and to maintain capacity to manage stabilised asbestos-containing infrastructure into the future. Sustainable management of hazardous waste will also almost certainly require the introduction of national import tariffs that will be held in trust to finance ongoing collection and disposal of e-waste. Identified risks will be addressed through an in-depth consultation process with national stakeholders in order to ensure ownership and commitment to the activities to be implemented. In particular, consultations aiming at ensuring ownership and 7

8 commitment to the activities will be organised before the commencement of any demonstration activity in the framework of result area 2. Selected countries will be those willing and able to actively participate and gain concrete, lasting benefits from in-country projects. Country selection will also be based on the interest and commitment of local councils, NGOs and other project partners Crosscutting Issues Climate change will have a critical impact on waste management into the future. Sealevel rise may result in the flooding of coastal dumpsites and increase the pollution of coastal waters. In small and low-lying atolls, solid waste containment will also be a real challenge, often requiring the construction of costly seawalls. Increased numbers and intensities of storms and cyclones could damage infrastructure and result in increased quantities of asbestos-containing disaster waste which must be managed. Mitigation measures including a shift towards renewable energy technologies will create new or enlarged hazardous waste stream such as lead acid batteries which Pacific island countries and territories (particularly in atoll nations) will have to manage. Furthermore, best practice incorporated into all aspects of project design will account for environmental risk and health impacts including those related to climate change. Project selection under the asbestos component will focus on minimizing risks for women and young children (by focusing on public community structures and school buildings in particular). The project will ensure that risk assessments include gender differences when appropriate, as women or men could be potentially more exposed to certain risks (in the asbestos and medical waste departments) and trainings of personnel will be delivered in a customised manner taking these differences into account Stakeholders SPREP has a wide range of regional and national stakeholder relationships, which often overlap in various areas/line ministries and across sectors. At the national level SPREP works in close coordination with government ministries and utilities in charge of waste management and the regulation of pollution. Stakeholders identified and consulted in the first stage of this project, through a call for expression of interest to identify a first range of potential priorities, have been national environment departments, national health departments, hospital managers, disaster response offices, and public works departments. Proposed target non-government participants involved in waste management, public health, local government administration and planning, conservation activities, as well as members of local communities, the private sector and other relevant stakeholders will be consulted at the commencement of the project as a key regional assessment task. The consultations will give due attention to the gender dimension to take into account particular needs of both men and women. Apart from the stakeholders involved in the consultations mentioned above, it is expected that the entire population (including e.g. fishers) and stakeholders in the tourism sector will benefit from the project results. 8

9 4. IMPLEMENTATION ISSUES 4.1. Method of implementation A Financing Agreement will be signed between the European Commission and the Pacific Island Forum Secretariat (PIFS). The project will be implemented by joint management through a Standard Contribution Agreement with an international organisation SPREP, to be signed immediately after the signature of the Financing Agreement with PIFS in accordance with Article 29 of the Regulation (EC) No 215/2008 on the financial regulation applicable to the 10 th European Development Fund. ) which mentions:" where the Commission implements EDF resources by joint management, certain implementation tasks shall be delegated to international organisations in the following cases: (b) wherever the Commission and the international organisation elaborate a joint project or programme". SPREP has passed the Four Pillar Institutional Assessment in SPREP has been charged by the governments and administrations of the Pacific Region with the protection and sustainable development of the region's environment. It has a de facto monopoly as it is the only regional body mandated to implement the actions proposed by the project. Specifically, SPREP is mandated to take action on waste management and the control of pollution (as one of the organisations four strategic priorities in accordance with the 2011 to 2015 Strategic Plan). The project will be managed primarily through a SPREP team consisting of a senior Project Adviser (project manager and technical expertise) and a Project Officer (project administration and technical support) recruited to the project. In agreement with the backbone strategy, these long-term advisors/managers will be based in SPREP and become an integral part of SPREP's waste management team and will report to the Waste Management and Pollution Control Division Director. The implementation team will also work closely with SPREP's Solid Waste and Hazardous Waste Management Advisers to access their specific waste management expertise. The Project Adviser will be assisted by a small technical advisory committee which will meet quarterly. The Project Steering Committee will take place annually. It will be responsible to oversee and validate the overall direction of the project. It will review the outcomes of the previous year and review/modify the Logical Framework, if needed. It will also agree on the work programme for the following year. The Steering Committee will be composed of: The SPREP project team; A representative of the Regional Authorising Officer (PIFS); A representative from each country covered by the project; A representative from the Delegation of the European Union. Other stakeholders (other donors/ regional organisations/private sector/national ministries/etc) may be invited as observers if deemed relevant. Establishment of (or the co-operation of pre-existing) in-country management and advisory groups involving relevant government and non-government stakeholders will also be critical to the success of the project and will also be an important project governance and implementation component. 9

10 A preliminary desktop analysis of the regional status of hazardous waste management combined with detailed country information requested from countries has provided a preliminary, cost-benefit gap analysis for on-ground project interventions. This has been augmented with the inclusion of associated projects, to produce a preliminary, priority country list by waste stream for intervention. It is expected that varying levels of medical waste assistance will be completed in fourteen countries, e-waste interventions in seven countries, asbestos in interventions in three countries and one atoll islands will receive assistance for integrated atoll country waste management Procurement and grant award procedures All contracts implementing the action shall be awarded and implemented in accordance with the procedures and standard documents laid down and published by SPREP. Centralised Management (Audit and evaluation) Independent consultants recruited directly by the EU on specifically established terms of reference will carry out external evaluations. A final audit of the programme must be carried out by an independent Audit Company. The provision for Audit and Evaluation are included under the Financing Agreement. Audit and evaluation contracts must be awarded and implemented in accordance with the procedures and standard documents laid down and published by the Commission for the implementation of external operations, in force at the time of the launch of the procedure in question. Participation in the award of contracts for the present action shall be open to all natural and legal persons covered by EDF. Further extensions of this participation to other natural or legal persons by the concerned authorising officer shall be subject to the conditions provided for in Article 20 of Annex IV of the Cotonou Agreement Budget and calendar The estimated costs of the project activities in Euro are as follows: Project Result Budget ( ) CA with SPREP Total 7,850,000 Project Auditing and Evaluation (outside CA) 150,000 Grand Total 8,000,000 SPREP is not providing co-financing for the action. Timetable: The foreseen operational duration is 48 months (4 years) following the signature of the Financing Agreement. 10

11 4.4. Performance monitoring The project will monitor the transition from a baseline condition identified by a regional priority hazardous and solid waste status and management options assessment, through documentation of implementation of identified best available practices in demonstration Pacific countries. Associated indicators will include annual monitoring programme results from demonstration sites as well as evaluation reports of regional and national coordinating committees and from participants on training and capacity building activities. Key indicators have been articulated in the Logical Framework. More detailed indicators, baselines and targets will become available after the completion of the initial assessment (Result 1). The project will be monitored by the Steering Committee in compliance with standard procedures and using a pre-established monitoring system, tracking deliverables under each result area. Independent Result Oriented Monitoring (ROM) missions recruited by the EU will also carry out assessment of activity progress and achievement of project outputs and objectives. Regional consultative meetings including the annual SPREP meeting will provide a strong platform for information exchange on project progress Evaluation and audit Mid-term and end-of-term external evaluations will be carried out via independent consultants recruited directly by the EU (centralised management). A final audit of the project must be carried out by an independent Audit Company. Financing provisions shall be made under the Financing Agreement for these purposes Communication and visibility Regional collaboration between Pacific Island Countries and Territories will be facilitated to ensure regular information exchange, and to foster greater cooperative arrangements on best practice hazardous waste management methods and programmes. This will include the establishment of a network of Pacific waste recyclers. Dissemination of lessons learned will be achieved through national and local committees and through completion of a regional workshop showcasing demonstration projects including the atoll waste minimisation project and port infrastructure upgrade works. The EU guidelines on visibility shall be applied. EU financial support shall be highlighted in all activities, reports and media releases. The EU logo shall be clearly displayed on all project deliverables and at project events. EU promotional material shall also be produced and distributed during the project. Provisions have been made under the Contribution Agreement for this purpose. A communication plan for the project will be developed at inception phase. 11