Project Office, Marksa i Engelsa St., Poslovni centar “Vektra”, entrance IV, Flat 35, V floor, 81000 Podgorica, Montenegro Tlf: +381 81 234297; Fax: +381 81 234298; e-mail: [email protected]
Preparation and Implementation of a Republic-Level Solid Waste Strategic Master Plan Republic of Montenegro
Solid Waste Strategic Master Plan, Montenegro An EU-funded project managed by European Agency for Reconstruction
TABLE OF CONTENTS
Ministerial Foreword ……………………………………………………………………………9
European Agency for Reconstruction Foreword…………………………………………10
1.0 Republic-Level Waste Strategic Master Plan………………………………………..11
1.1 Objectives 11
1.2 The National Waste Management Policy 11
1.3 Format of the Plan 11
2.0 Development of the Waste Master Plan………………………………………………13
2.1 Strategic Goals 13
2.2 Statutory Requirements 13
2.3 Strategic Interim Objectives 13
2.3.1 Municipal waste 13 2.3.2 Hazardous and industrial waste 14 2.3.3 Healthcare waste 14 2.3.4 Sewage sludge management 15
2.4 Project Partners 15
3.0 Present Status of the Waste Management………………………………………...... 16
3.1 Municipal Waste 16
3.1.1 General 16 3.1.2 Waste generation and quality 17 3.1.3 Gap analysis 20
3.2 Hazardous and Industrial Waste 21
3.2.1 General 21 3.2.2 Aluminium Plant, Podgorica 22 3.2.3 Steel Plant, Nikšić 22 3.2.4 Thermal Power Plant, Pljevlja 23 3.2.5 Hazardous waste from the small and medium sized industry 23 3.2.6 Hazardous waste from households 24 3.2.7 Present hazardous waste management 25 3.2.8 Contaminated and potentially contaminated sites 26
3.3 Healthcare Waste 26
3.3.1 General 26 3.3.2 Actual situation of healthcare waste management 27 3.3.3 Waste classification 27
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3.3.4 Estimation of waste quantities 28 3.3.5 Proposals 28
3.4 Financial and Economical Status 29
3.4.1 General 29 3.4.2 Summary of observations from secondary material on 30 municipalities 3.4.3 Issues on future and sustainable solid waste management 30 3.4.4 Gap analysis 30
3.5 Institutional and Regulatory Structure 31
4.0 Waste Forecast………………………………………………………………………………35
4.1 Municipal Waste Forecast 35
4.1.1 Assumptions 35 4.1.2 Composition of municipal waste 37 4.1.3 Serviced areas 38 4.1.4 Future waste generation 39
4.2 Hazardous Waste Forecast 46
4.3 Healthcare Waste Forecast 48
4.3.1 Waste generation 48 4.3.2 Medium and long term waste forecast 51
4.4 Sewage Sludge Forecast 52
5.0 Waste Management Strategy……………………………………………………………53
5.1 Waste management framework 53 5.2 Strategy for Individual Waste Streams 54 5.2.1 Management of municipal waste 54 5.2.2 Management of hazardous waste 55 5.2.3 Management of healthcare waste 55 5.2.4 Management of sewage sludge 55 5.2.5 Management of waste dumps 56 5.2.6 Management of recycling system 56
5.3 Cost recovery 56 5.3.1 General 56 5.3.2 Lack of investment 57
5.4 Public Awareness Process 57
6.0 Management Plans…………………………………………………………………………58
6.1 Municipal Waste Management Plan 58 6.1.1 Introduction 58 6.1.2 Institutional 58 6.1.3 The management system 59
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6.1.4 Municipal waste infrastructure 59 6.1.5 Equipment needs 61 6.1.6 Investment costs 62
6.2 Hazardous and Industrial Waste Management Plan 64 6.2.1 Introduction 64 6.2.2 Institutional 64 6.2.3 Hazardous waste 64 6.2.4 The System 65 6.2.5 Community hazardous waste 67 6.2.6 Issues of special concern 67 6.2.7 Non-hazardous industrial waste 68 6.2.8 Investment costs 70
6.3 Healthcare Waste Management Plan 72 6.3.1 Strategy 72 6.3.2 Implementation 72 6.3.3 Investment and operational costs 72 6.3.4 Regulation on healthcare waste management 72
6.4 Sewage Sludge Management Plan 74 6.4.1 Introduction 74 6.4.2 Strategy 74 6.4.3 Future sludge handling and treatment 75 6.4.4 Technical and operational requirements 75 6.4.5 Investment, maintenance and disposal costs 76 6.4.6 Fee strategy 77
6.5 Landfill Site Selection Report 78 6.5.1 Introduction 78 6.5.2 Waste catchment areas 78 6.5.3 Technical solutions 79 6.5.4 Investments 80
6.6 Rehabilitation and Operation Plan of Present Dumpsites 81 6.6.1 Introduction 81 6.6.2 Strategy 81 6.6.3 Financial arrangements and investment proposals 82
6.7 End-of-life Vehicles Management Plan 85 6.7.1 Introduction 85 6.7.2 Strategy 85 6.7.3 Investment costs 85
6.8 Recycling Strategy 87 6.8.1 Introduction 87 6.8.2 Proposed recycling system 90 6.8.3 Equipment estimates 92 6.8.4 Investment costs 93
7.0 Institutional and Legislative Framework…………………………………………….95
7.1 Legislative Restructuring Package 95
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7.2 Institutional Restructuring Package 97 7.2.1 General 97 7.2.2 Ministry of Environment and Physical Planning 98 7.2.3 Montenegrin Environmental Protection Agency 99 7.2.4 Organisation of municipalities 100 7.2.5 Municipal waste management 102
8.0 Public Consultation and Participation…………………………………………………103
8.1 Public Participation Process 103 8.2 The Way Forward 103
9.0 Implementation of Master Plan…………………………………………………………105
9.1 Municipal Waste 105 9.2 Recycling Strategy 106 9.3 Hazardous Waste 106 9.4 Healthcare Waste 107 9.5 Sewage Sludge 107 9.6 Present Dumpsites 108 9.7 New Landfill Sites 110
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Annexes
Annex 1 Baseline Report
Annex 2 Waste Management Plan for Municipal Waste
Annex 3 Recycling Strategy for Municipal Waste
Annex 4 Waste Management Plan for Hazardous and Industrial Waste
Annex 5 Waste Management Plan for Healthcare Waste
Annex 6 Waste Management Plan for Sewage Sludge
Annex 7 Waste Management Plan for End-of-Life Vehicles
Annex 8 Landfill Site Selection Report
Annex 9 Rehabilitation and Operation Plan of Present Dumpsites
Annex 10 Legal Restructuring Package
Annex 11 Institutional Restructuring Package
Annex 12 Public Consultation and Participation
Annex 13 National Waste Management Policy
Annex 14 Project Working Documents: Draft ‘Waste Act’; Draft ‘White Paper on Waste Policy in Montenegro’ Draft ‘Legal and Institutional Framework’ Draft ‘Deed of Partnership’ European Waste Catalogue and Hazardous Waste Directive
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LIST OF TABLES
Table 3-1 Demographic and socio-economic basis data for Montenegro Table 3-2 Comparison of assumptions regarding yearly MW generated in Montenegro Table 3-3 Estimated yearly collected MW Table 3-4 Assumed MW composition in Montenegro Table 3-5 Amounts of separately collected raw materials in 2002 and 2003 and corresponding prices at the recycling centres Podgorica Table 3-6 Ranking of the performed infrastructural and operational measurements at the several disposal sites Table 3-7 Amounts of healthcare waste Table 4-1 Estimates on resident-specific municipal waste generation Table 4-2 Estimates on total municipal waste generation Table 4-3 Assumed municipal waste composition Table 4-4 Waste quantities in municipalities and catchment areas Table 4-5 Municipal waste generation 2005 - 2009 Table 4-6 Municipal waste generation 2010 - 2014 Table 4-7 Waste amounts accumulated at new landfills in the period 2007 - 2025 Table 4-8 Expected increase in recyclables is 23,5 % in the coming ten years period Table 4-9 Recycling target Table 4-10 Packaging waste forecast for 2004 Table 4-11 Packaging waste forecast for year 2009 and 2015 Table 4-12 Forecast of generation of hazardous waste Table 4-13 Forecast of hazardous waste generation in year 2004, 2007 and 2027 Table 4-14 Healthcare waste generation unit data Table 4-15 Healthcare waste unit data per day and bed Table 4-16 Estimate of population growth related to generation of HW Table 4-17 Estimate of number of beds in 2002 Table 4-18 Forecast of number of beds required Table 4-19 Forecast of HW waste quantities in 2009 Table 4-20 Forecast of HW waste quantities in 2024 Table 4-21 Sludge generation forecast Table 4-22 Sludge generation data in the regions Table 6-1 Review of location of Civic Amenity Sites Table 6-2 Review of equipment needs, short term municipal waste management Table 6-3 Review of equipment needs, medium term municipal waste management Table 6-4 Review of the number of required recycling containers, short term Table 6-5 Review of the number of required recycling containers, medium term Table 6-6 Total costs for collection equipment, short term Table 6-7 Total costs for collection equipment, medium term Table 6-8 Design parameter for hazardous waste facility Table 6-9 Data on industrial waste generation Table 6-10 Investment costs for establishment of the hazardous waste treatment centre Table 6-11 Costs of new equipment for management of HW Table 6-12 Costs of consumables for management system of HW Table 6-13 Sludge generation and composting data 7
Table 6-14 Basis data for solar drying system Table 6-15 Investment cost for sludge management Table 6-16 Waste landfill data Table 6-17 Total cost of new landfills Table 6-18 Construction costs of landfills for the first five years Table 6-19 Cost of operation of existing dumps, short term Table 6-20 Costs of remediation measures of waste dumps Table 6-21 Investment costs related to operation of existing waste dumps Table 6-22 Costs of emptying equipment Table 6-23 Data on equipment required for source separated recyclables Table 6-24 Investment costs for recycling scheme, short term Table 6-25 Yearly costs for recycling scheme, short term Table 6-26 Investment costs for recycling scheme, medium term Table 6-27 Yearly costs for recycling scheme, medium term
LIST OF FIGURES
Figure 4-1 Composition of municipal waste Figure 5-1 Integrated Waste Management Figure 6-1 Layout of the hazardous waste management system Figure 6-2 Layout of the proposed manifest system Figure 6-3 Fee distribution data related to sludge management Figure 6-4 Proposed catchment areas Figure 6-5 Effect of recycling on landfilled waste amounts Figure 6-6 Proposed network of Civic Amenity Sites Figure 7-1 Existing legislative structure Figure 7-2 Distribution of authority on Waste Management Figure 7-3 A Future organizational structure of Ministry of Environmental Protection and Physical Planning Figure 7-4 Organisation of Montenegrin Environmental Protection Agency Figure 7-5 Municipal work flow Figure 7-6 Proposal of future municipal organisation Figure 7-7 Future intermunicipal waste management company Figure 9-1 Implementation schedule for municipal waste management activities (2005 – 2009) Figure 9-2 Implementation schedule for recycling measures (2010 – 2015) Figure 9-3 Implementation schedule for hazardous waste management Figure 9-4 Short-term implementation schedule for healthcare waste management
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Ministerial Foreword
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Foreword by the European Agency for Reconstruction
The publication of this Waste Strategic Master Plan for Montenegro represents a significant milestone on the road to improving environmental conditions within the Republic. It establishes a strategy for developing a rational, effective and efficient solid waste management structure for waste streams such as municipal, industrial and healthcare waste. The Government of Montenegro’s policy of Integrated and Sustainable Waste Management has been used as a base during preparation of the Master Plan.
The European Agency for Reconstruction (EAR) has already actively supported the development of strategic Master Plans for wastewater treatment and disposal in the coastal, central and northern regions of Montenegro. In continuation of these efforts, EAR has financed preparation of the Master Plan for Management of Waste and this publication incorporates not only management plans but also associated restructuring packages for legislative and institutional issues. In this way, Montenegro will be better able to deal more sustainably with its waste. This will be a major step towards the improved use of resources and fulfilment of the Government of Montenegro’s overall goal of sustainable development.
It is our hope that the publication of the Republic-Level Waste Management Master Plan will facilitate establishment of a modern and, in the medium term, EU-compliant system of recycling facilities, transfer stations and landfills contributing to the considerable environmental benefits for the entire country. The implementation of the Master Plan sets an overall objective of achieving transposition of EU requirements and outlines EU goals toward waste reduction targets.
EAR will in the future work hard together with all stakeholders of Montenegro involved in the preparation and implementation of the proposed management systems for the benefit of the people of Montenegro. I am confident that this contribution will result in improved quality of life for the citizens of Montenegro, better utilisation of resources and promotion of economic growth.
Neil Bolland – Programme Manager, European Agency for Reconstruction, Podgorica
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1.0 Republic-Level Waste Strategic Master Plan
1.1 Objectives
Waste Strategic Master Plan provides conditions for the rational and sustainable Republic-Level Waste Management. The aim is to minimise the impact of waste on the environment, to improve resource use efficiency and to remedy past mismanagement of waste. The Master Plan sets the overall objective of ensuring progress towards sustainable management of waste generated on the territory of the Republic and in the medium term achievement of the waste reduction targets as indicated in relevant European Union’s waste related directives.
The Master Plan also establishes interim targets, which reflect the short-term needs to focus on municipal, hazardous, healthcare and other waste streams:
• Increase the amount of waste collected
• Reduce landfilling of waste generated
• Introduce recycling activities
1.2 The National Waste Management Policy
Republic of Montenegro has on the 26th of February 2004 adopted National Waste Management Policy which supplements the vision, principles and goals set out in the Environmental Programme as well as in already existing national regulations and standards.
This policy of integrated and sustainable waste management in Montenegro sets out a vision for the future waste management and defines objectives and strategies facilitating its achievement. The purpose if this policy is to:
promote the prevention and minimisation of waste generation and hence pollution at source;
promote the management and minimisation of the impact of unavoidable waste from its generation to its final disposal;
ensure the integrity and sustained "fitness for use" of all environmental media i.e. air, water and land;
ensure the remediation of any pollution of the environment by holding the responsible parties accountable;
1.3 Format of the Plan
The Waste Master Plan is incorporating major waste streams currently present in the Republic. The review of the current waste management situation has been elaborated and followed by preparation of respective management plans supplemented by proposals for legislative and institutional restructuring. Subsequently to issuance of the Master Plan, an Outline Investment Programme will be formulated and followed up by activities promoting the entire Plan towards International Financial Institutions.
The Waste Master Plan contains following waste management issues:
Baseline Report;
Waste Management Plan and Recycling Strategy for Municipal Waste;
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Waste Management Plan for Hazardous and Industrial waste;
Waste Management Plan for Healthcare waste;
Waste Management Plan for Sewage Sludge;
Waste Management Plan for End-of-Life Vehicles;
Landfill Site Selection Report inclusive Geological Reports;
Rehabilitation and Operation Plan of Present Dumpsites;
Legal Restructuring Package;
Institutional Restructuring Package;
Public Consultation and Participation;
National Waste Management Policy;
Project Working Documents: • Draft ‘Waste Act’; • Draft ‘White Paper on Waste Policy in Montenegro’ • Draft ‘Legal and Institutional Framework’ • Draft ‘Deed of Partnership’ • European Waste Catalogue
The system of management of municipal waste: is based on the network of new EU compliant landfills and gradual closure of the existing waste dumps. The operational base for these landfills is catchment areas consisting of two or more municipalities. It is also the base for the design and implementation of the system of municipal waste collection, transport and treatment. Recycling activities with the associated facilities are based on the presence of catchment areas and are supported by the proposed system of civic amenity sites, collection points, composting plants and intermunicipal landfills.
The system of management of hazardous waste: is based on the establishment of one Hazardous Waste Treatment Centre with the associated landfill and an incineration facility, serving the entire country considered as one catchment area. Treatment of waste involves method of solidification/stabilisation of inorganic and solid organic waste, incineration of waste and in the short term perspective, export of liquid organic waste. Export of special waste, such as PCB and batteries is also part of the proposed management system.
The system of management of healthcare waste: is based on the establishment of the collection of waste in each catchment area and disposal at the intermunicipal landfill at the particular landfill cell designated for disposal of said waste. Human tissue shall be disposed of at the local cemetery. Long term solution for Podgorica catchment area is incineration of healthcare waste in the hazardous waste incinerator established as a part of the Hazardous Waste Management System.
The system of management of sewage sludge: is based on the sludge production in three geographical areas, coastal, central and northern, following outline from Wastewater Master Plans for Costal and Central/Northern Regions. The sludge management will take place through Regional Companies which by applying of dewatering, drying and composting will be able to dispose the sludge in the environmentally appropriate manner. Therefore the sewage sludge management system involves also utilisation of the presence of the intermunicipal landfills.
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2.0 Development of the Waste Master Plan
2.1 Strategic Goals
The identified goals are based on the Terms of References for the project, the Environmental Law and the National Waste Management Policy implementing the basic principles of waste management, i.e. solving of waste problem at the source, application of waste hierarchy through waste prevention, waste separation, waste reduction, waste utilisation and recycling, application of rule of proximity and self-sufficiency and finally application of the rule of ‘polluter pays’.
The Waste Management Strategic goals are as follows:
• Determine main orientation of waste management for the medium term national development;
• Implement EU strategic plans through adoption of EU waste related directives;
• Determine priorities of waste management options;
2.2 Statutory requirements
A necessary component of future integrated and sustainable management of waste in Montenegro is compliance with the existing and future EU environmental and waste related legislation.
The prepared Waste Management Plans are taking into account requirements of existing Montenegro Legislation, supplemented with requirements of Waste Directive, Landfill Directive, Hazardous Waste Directive, Packaging and Packaging Waste Directive and others as required.
Furthermore, the Master Plan contains proposals for restructuring of current legislative structure in the light of the required approximation towards EU and the proposal for restructuring of the institutional build up at the national and municipal administrative level. Special attention has been paid towards controlling and enforcement measures through recommendation of establishment of Environmental Protection Agency and Project Implementation Agency, both inside the Ministry of Environmental Protection and Physical Planning.
2.3 Strategic Interim Objectives
2.3.1 Municipal waste
The work undertaken to develop Municipal Waste Strategy for Montenegro has clearly indicated that the current arrangements, which rely heavily on landfill disposal, are unsustainable and cannot continue due to new legislation and Government policy.
It has been concluded that the most reliable and cost effective way to achieve Government targets and comply with the Landfill Directive’s requirements is to develop an integrated waste management system that makes use of a range of options, including waste minimisation, recycling, composting and only limited use of landfill disposal.
In order to achieve this, there will need to be a significant shift in public attitudes to waste and sustained high levels of public participation in local schemes. This will not only require prolonged education and awareness raising activities, but also significant changes to long established and popular refuse collection arrangements, so that recycling and composting becomes far more convenient for the public.
A whole new infrastructure of waste management facilities will need to be developed in order to effectively transport, sort and treat the recovered waste.
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Changing the existing waste management system in Montenegro from one that is based on disposal to one that is based on resource recovery; stemming growth in waste arisings and, at the same time, minimising exposure to rising costs, represents a major challenge for the Government of Montenegro.
The key objectives of Republic’s Waste Strategy are to develop a waste management system that is affordable, meets future performance targets and complies with current and planned legislative requirements, by seeking to:
• Achieve maximum waste minimisation and promotion of waste awareness;
• Maximise recycling and composting;
• Introduce an appropriate fee structure and collection methodology.
The Strategic Interim Objective is to establish a network of EU compliant intermunicipal landfills associated within the associated catchment areas. This has to be reinforced by the implementation of recycling activities and expanded waste collection areas to the highest degree feasible.
In this connection, new facilities have to be established for recycling of waste, new equipment for efficient collection and transfer of waste shall be available and disposed waste residue shall be compacted and covered as per approved landfill operational plans.
2.3.2 Hazardous and industrial waste
A strategy for hazardous waste has also been prepared. The purpose of this strategy is to identify a hazardous waste management which does not represent barriers to the best economic and environmental management of hazardous waste, and identifies potential initiatives minimising these barriers.
The strategic interim objectives of the Plan are to establish a controlled system of production, treatment and intermediary storage of hazardous waste. Storage facilities will also serve for the initial years as an intermediary storage for export of the hazardous waste to treatment facilities abroad.
This shall diminish the hazardousness of the produced waste and establish storage of waste under controlled condition. The Plan operates also with the introduction of appropriate permitting, control and manifest system through legislative and enforcement measures.
With respect to the industrial non-hazardous waste, implementation of IPPC directive and introduction of activities related to industrial implementation of cleaner production measures are defined as strategic interim objectives.
It is also of importance to motivate industry to initiate utilisation of non-hazardous waste through appropriate methods.
2.3.3 Healthcare waste
Healthcare waste management plan operates with following interim strategic objectives:
To promote environmentally sound management of healthcare waste To integrate national and international regulative requirements To introduce best available treatment measures of healthcare waste
The plan operates with strong emphasis on the handling and separation of waste inside the healthcare units, proper storage, transport and disposal of collected waste.
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The Plan is supplemented by a “Proposal of a Regulation on Healthcare Waste Management” in order to strengthen the legislative issues related to management of healthcare waste and also to facilitate immediate implementation of the most urgent waste management measures.
2.3.4 Sewage sludge management
The objectives of the management of sewage sludge are concerned with measures leading to proper sludge treatment and utilisation process.
The objectives are:
Introduction of dewatering facilities; Introduction of drying facilities; Introduction of composting facilitates; Development of regional sludge management institutions; Introduction of relevant statutory requirements; Introduction of appropriate fee structure and collection methodology;
Introduction of said objectives will lead to environmentally sound management of sewage sludge and final usage either in agriculture, as mean for recultivation or as cover at the local landfill.
The above mentioned strategies are dependent on the introduction of Sewage Treatment Plants throughout the country through implementation of relevant Wastewater Master Plans.
2.4 Project Partners
As defined in Terms of Reference, the Ministry of Environment and Urban Planning is the direct Project Partner. Therefore the direct contacts have been established with the Ministry of Environment with the aim of coordination project activities and assistance with respect to the general views and common project approach. During development of project activities, extensive contacts have been undertaken with municipalities, industry and other institutions relevant for the performance of project activities. Public participation process is an essential part of the development of the management plans and especially during landfill site selection activities. This aspect received particular attention during development of project activities.
The project key players are:
• Waste producers, which includes everyone because people produce waste in aspects of their daily lives whether it be domestic, through business, leisure or any other activity; commerce; industry;
• Local authorities, through their planning, waste collection, treatment and disposal facilities;
• Government, as provider of policy and the regulatory framework together with control of resources;
• Montenegro Environmental Protection Agency (future), as environmental regulator and adviser;
• The voluntary and not for profit sector, as provider of voluntary environmental improvement initiatives.
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3.0 Present Status of the Waste Management
3.1 Municipal Waste
3.1.1 General
The data and information compiled were received mainly by addressing information holders out of the 21 Montenegrin municipalities in the period November 2003 - February 2004 on waste related issues supported by available statistical data and own assumptions of the corresponding consultants.
Municipal Waste (MW) in the context of this report is waste generated within the municipal infrastructure, in households, administrative and educational institutions, trade and tourist structures. The term comprises street sweepings, waste out of private and public green spaces and cemeteries, military institutions, agriculture and slaughterhouses. Commercial and Industrial Waste collected apart of other municipal wastes is usually designated as such, however still classified as MSW as long as it ends up at a municipal infrastructure and the municipality is requesting a fee for providing the corresponding service. Waste generated in healthcare facilities as well as during major construction and demolition activities is not subsumed under this term.
The term recyclables comprises all components which are presently or potentially sourced out of MSW and either reused directly (e.g. deposit bottles), or transferred to industries utilizing it as secondary raw material, or secondary fuel.
The terms compostables and/or biodegradables is applied herein for various organic materials representing a potential source for production of compost.
As the geographical structure of Republic of Montenegro shows some essential differences, which are important in means of MW generation, handling, transport and disposal the distribution in three regions corresponding with the official structuring issued by the Union of Municipalities is used here. The three regions are:
• Central region with the municipalities Podgorica, Niksic, Cetinje, Danilovgrad • Coastal region with the municipalities Bar, Herceg Novi, Ulcinj, Kotor, Budva, Tivat • Mountain region with the municipalities Bijelo Polje, Pljevlja, Berane, Rozaje, Plav, Mojkovac, Kolasin, Andrijevica, Pluzine, Zabljak, Savnik
The structural key numbers related to waste management issues for the regions and the entire country are given in the following table: Central Region Coastal Region Mountain Region Entire Country number 278.962 144.804 193.974 617.740 Population % 45 24 31 100 Tourism number 102.380 4.225.276 118.527 4.446.183 (over night stays/year) % 2 95 3 100 number 15.947 17.366 13.601 46.914 Refugees % 34 37 29 100 Unemployed number 39.300 12.784 30.826 82.910 persons % 47 15 37 100 Persons number 12.236 14.524 28.056 54.816 working abroad % 22 27 51 100
Table 3-1: Demographic and socio-economic basis data for Montenegro
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3.1.2 Waste generation and quality
3.1.2.1 Waste generation
One of the most important planning instruments for a sustainable and long term implementation of a waste management system is a sound data base regarding the current waste generation and qualities. The amount of the generated waste gives an estimation of the potential waste production.
This quantity differs significantly from the amount of waste collected, treated and disposed due to several informal waste reduction steps, which happen before the waste is collected and disposed. Informal waste reduction comprises internal reutilization, wild dumping, waste picking and waste burning.
The National Institute for Statistics estimates the specific waste generation with 1kg per inhabitant per day (~ 365 kg per inhabitant per year) in the Terms of Reference (ToR1) for a first approach. The project consultants refined the calculation for the currently generated MW. This calculation bases on the current data of permanent and temporary population and experiences gathered from countries comparable with Montenegro’s present status in respect of economic in general and waste handling particular. The refined data regarding waste generation are:
• 0,80 kg/cap/day in the central region • 0,90 kg/cap/day in the coastal region • 0,60 kg/cap/day in the mountain region • 1,50 kg/cap/day per overnight stay (tourist) • 0,25 kg/cap/day for refugees
Therefore a brief comparison of the yearly generated MW for each region based on the different assumptions is given in the following table.
Waste Generators Assumptions Nat.Institute for Project Overnight Region Population Refugees Statistics Assumptions stays (t/y) * (t/y) ** (%) Central 278.962 102.380 15.947 102.533 83.066 81 Coastal 144.804 4.225.276 17.366 57.170 55.491 97 Mountain 193.974 118.527 13.601 81.171 43.899 54 Entire 617.740 4.446.183 46.914 240.874 182.456 76 Country *data without consideration waste generated from tourists and refugees **data with consideration waste generated from tourists and refugees
Table 3-2: Comparison of assumptions regarding yearly MW generated in Montenegro
The “official figure” of the National Institute for Statistics with a MW generation of 240.000 t/y for the whole country is about one third higher than the consultants’ assumptions with 180.000 t/y. This remarkable difference is due to several considerations of the project consultants’ estimation of specific behaviour regarding consumption and internal reutilization of waste at the source.
In the central region the current estimated generation of MW is about 20% lower mainly due to the refined waste generation per capita. Considering the specific waste generation due to tourism, in the coastal region the current data hardly differ from the assumptions given in the ToR. In the mountain region the refined data are leading to a significant decrease due to lower specific waste generation in rural areas and to less population (about 13%) as estimated in the ToR.
1 Terms of Reference: Preparation and Implementation of a Republic-Level Solid Waste Strategic Master Plan Montenegro (Serbia and Montenegro), 2003 17
3.1.2.2 Waste catchment areas
All over the entire country MW generation happens day by day. But not for all waste generators a collection service is provided. Due to the answers of the distributed questionnaires and interviews with local experts, it is established that waste collection mainly is provided exclusively in the capital towns of the corresponding municipalities. In the coastal region there are additional urbanized towns connected to the collection service especially during peak season for tourism.
As no current data regarding the degree of collection service in the capital towns are available the project consultants are assuming for a first approach a degree of connection of about 80%. That means: 80% of the generated waste in the capital towns is collected by regular service. The waste generated in smaller towns, villages, settlements and dwellings is not collected. Therefore, the producers there dispose the generated waste, which is not reutilized, mainly by “wild dumping” at not suitable places.
As in the central region about 80% of the population lives in the capital towns, the degree of collection for this region with 62% is the highest. In the coastal region about 50% of the population are connected to the collection service, even about 40 % of the residents live in the capital towns. But in some other urbanized towns a collection service is also provided, especially during peak season for tourism. Thus, the degree of collection is comparatively high. Due to the low degree of urbanization and density of population the degree of collection in the mountain region is with 30% the lowest. There, about 40% of the population lives in the capital towns, the remaining in rural areas.
Derived from the assumed data for waste generation and the degree of collection the amount of collected waste can be estimated. The following table shows the assumptions for the amounts of collected waste per year for the entire country and the several regions.
Estimation MW Collected Generated Waste Degree of Collection Service Collected Waste Central Region 83.066 62 51.220 Coastal Region 55.491 47 26.305 Mountain Region 43.899 30 13.329 Entire Country 182.456 50 90.855
Table 3-3: Estimated yearly collected MW
From the total generated amount of 180.000 t/y of MW only 50%, therefore 90.000 t/y, are collected and disposed. The other remaining 50% of the waste are assumed to be dumped irregularly at not suitable “wild dumping”. But further information regarding the uncollected waste amounts are not available up to know.
3.1.2.3 Waste composition
Derived from the several data regarding MW composition an overall assumption for the composition of Montenegrin MW is done regarding the specific characteristics of the three main regions. In general the compositions in these regions are assumed to be similar, especially the considerable amount of recyclables. Tourist industry is known to generate disproportionate more waste from packaging materials due to final consumption (e.g. containers and bottles for drinking water and several beverages, card board boxes, glass bottles and plastic wraps). The survey of the MW composition of the three regions and the entire country is given in the following table:
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Assumed Composition of MW in Montenegro
All Data in Weight Percentage (%) Region Paper Glass Metal Plastic Organics Others Central 17 7 4 10 30 32 Coastal 25 10 5 15 20 25 Mountain 15 7 4 10 30 34
Entire 19 8 4 12 27 30 Country
Table 3-4: Assumed MW composition in Montenegro
The share of recyclable materials in MW waste is considerable: more than 40% of the generated wastes are so called dry recyclables like paper, cardboards, plastics, glass and metal. About one quarter of the wastes are organics, which can be reused as compost.
3.1.2.4 Waste collection
A comparable frequent collection service is established in almost every municipality. In most of the municipalities (10) the collection service is provided at least daily, even in very small towns. In three municipalities the MW is collected several times per day. Due to sporadic arising considerable higher waste amount during peak season for tourism some coastal municipalities are providing during this time collection service from twice up to seven times per day. Only in some smaller municipalities in the mountain region the waste collection takes place once or twice per week.
In the entire country of Montenegro, the MW collection equipment is more or less a quite uniform system. The companies responsible for waste collection provide mainly
• collection points with 1,1 m3 containers • collection points with 4-7 m3 skip containers • kerbside collection with 30 l or 80 l waste bins.
Smaller waste bins (30 respectively 80 litre) are only used in 3 municipalities. The most common system is MW collection with 1,1 m3 containers. More than two third of them are old and damaged. Additional also bigger skip containers with a volume from 4 to 7 m3 are distributed. From the smaller ones with a capacity of 4-5 m3 almost one quarter is characterized as old by the municipalities. More than 40% of the skip containers with a volume of 5-7 m3 are old.
In 14 of the municipalities the collection service shows a significant excess capacity from twice to almost 10 times of the required capacity due to the current waste generation. Up to now it is not clarified, whether daily collection (respectively collection twice per day, collection three times per day) covers really the entire serviced area or only certain sectors, but even assuming that only in certain sectors of the serviced area waste collection happens daily, there is still an excess capacity. Only in three municipalities the provided capacity and frequency of collection is sufficient and not over dimensioned for the corresponding generated waste.
Based on the information received from the municipalities regarding the vehicles used for MSW collection it can be assumed almost 25% of the vehicles are younger than 10 years. A considerable amount of the vehicles is even older than 20 years.
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3.1.2.5 Waste treatment and recycling
In the entire country of Montenegro there is no MW treatment plant under operation currently.
In Montenegro currently the activities regarding waste recycling are at a low degree. In Podgorica 5 collection centres are installed to improve the recycling system. In 2002 and 2003 following amounts of raw materials were separately collected:
Material Amount (t/year) Price (€/t) 2002 2003 2002 2003 Paper, cardboards 2.500 1.950 - 96 Steel 50 264 - 87 Tin cans 10 7,1-420 Aluminium 15 14,9-670 Copper 3,3-2.997 Car wrecks 200
Table 3-5: Amounts of separately collected raw materials in 2002 and 2003 and corresponding prices at the recycling centres Podgorica
3.1.2.6 Waste disposal
20 municipalities dispose the collected waste on own disposal sites. None of these disposal sites was selected under environmental sound aspects and does not contain any technical measurements e.g. liners to reduce or avoid environmental damages. At all disposal sites the collected waste is directly dumped on the land without any protective measurements.
Even though the operational standards are generally very low, a ranking of the corresponding performance at the several disposal sites is possible as follows:
Number of disposal sites meeting Ranking Criteria the criteria 1 Enclosed, fence/ramp, guard, covering 3 2 Covering without burning waste loads 2 3 Enclosed, ramp, guard 5 4 Frequently or permanently burning of waste loads 9
Table 3-6: Ranking of the performed infrastructural and operational measurements at the several disposal sites
For two disposal site no data are available regarding the operational performance.
3.1.3 Gap analysis
3.1.3.1 Waste catchment areas
As only in the capital towns a regular MW collection is performed, this reduced degree of service leads to following gaps:
• 50% of the generated waste (at least 90.000 t/y) is not collected and disposed by public services; • no information available whether 50% of the generated waste is burned (e.g. private heating) reutilized (e.g. animal feeding) or “wildly” dumped; • no information of the customs and behaviour of the household in rural areas are available regarding generated wastes; • no information available regarding restrictions and possibilities to extend the collection services for rural areas (accessibility of small towns, villages and settlements).
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3.1.3.2 Waste composition/recycling
• due to waste composition, there is high potential for recycling and composting, which is not used currently in a considerable scale.
3.1.3.3 Waste collection
For further assessment of the MW collection more detailed data regarding the service performance are necessary:
• current catchment areas with detailed characterization; • routing maps and routing times; • quantity of the collected waste; • checking of possibilities to extend the serviced area; • detailed inspection of the vehicles.
3.1.3.4 Waste recycling
For further assessment and improvement of recycling the following information are necessary:
• calculation of the recovered amounts of recyclables by the informal sector and identification of possibilities of integration in extended recycling activities; • possibilities and technologies for separation of recycling material at the source, collection, transport, storage, refining and process; • detailed market analysis for recyclables considering the local situation; • identification of the technical, logistical, organizational, economical and educational needs for strengthening recycling activities;
3.1.3.5 Waste disposal
Currently the collected MW is dumped at not suitable disposal sites. For further assessment and improvement the following information and measurements are necessary:
• Possibilities of short-term and middle-term improvement of the current existing disposal sites • Identification and assessment of the “wild dumping sites” • Identification of possibilities for rehabilitation of the “wild dumping sites” and existing disposal sites • Identification of suitable new landfill sites regarding ecological, technical and economical aspects • Possibilities of improvement of the waste quality and quantity disposed
3.2 Hazardous and Industrial Waste
3.2.1 General
Agriculture traditionally has been the mainstay of the Montenegrin economy. Between 1952 and 1985 industrial capacities were built to suit former Yugoslav republics. Capacities for the production of 400.000 t of raw steel, 1,000,000 t of bauxite, 280,000 t of hydrated alumina, 75,000 t of sea salt and 2,700,000 t of coal were built, as well as electric power plants. Such economic structure was completed by the capacities in:
• Forestry and wood processing; • Paper Production and processing, Graphic Industry; • Leather and Textile Processing industry; • Metal processing and engineering; • Production of machinery;
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• Electrical manufacturing industry; • Chemical industry; • Industrial processing of agricultural products.
In the 90ies economic situation of Montenegro changed, constrained by the effects of the conflicts and sanctions of recent years. Further most of the industries are technologically obsolete and characterized by a low rate of production capacity utilization.
Therefore Montenegro developed the Economic Reform Agenda, which presents a list of obligations that need to be realized in a defined timeframe and aimed achieving Economic Growth, with a decisive impact by the private sector, EU compatibility of legislation and processes, valorisation of Montenegro’s potential, particularly in areas that represent comparative advantages and the protection of environment
Montenegro will compete effectively in high value niches in agriculture, forestry and wood processing, using modern business and technological methods. The Agenda between others is linked with activities for sustainable development of Montenegro as an Ecological State. The obligations from the Agenda will influence the future industrial development and therefore the future needs for the Waste Management. It is of high importance that the obligation to meet timeframe for privatisation or private sector participation in remaining strategic companies especially KAP, Steelworks, port of Bar etc is met.
3.2.2 Aluminium Plant, Podgorica (Kombinat Aluminijuma Podgorica –KAP)
The aluminium plant has a production capacity for primary aluminium of 280.000 t per year based on Montenegro’s high quality bauxite. Additionally the company has a smelter for secondary Aluminium with a capacity of 17.000 t/year. The main wastes from the Aluminium plant are 350.000 – 420.000 t/year red mud, (7, 6 % of that is dry residue), which is classified like a non hazardous waste, but it needs a special treatment, cathode residue (spent pot lining) with around 7.000 t/year and other hazardous wastes like tailings, primary production slag, salt slag from secondary production, black drosses from secondary production, PCB from 157 transformators between others.
In KAP, 7 Million t of red mud is accumulated at two disposal sides. The first disposal side with a surface area of 170.000 m², which has an insulation layer, get stored 3,5 Mio t of red mud. The second basin with a surface area of 220.000 m², which doesn’t get any protection layer, contains yet 4 Million tons of red mud and is still in use. Alternatives for the recovery of the existing red-mud disposals should be analysed. There is a need to construct an adequate, new, red-mud disposal.
Additionally by the side of the red mud basins is another intermediate storage like dump site for all hazardous and non hazardous wastes from the production process of the aluminium plant. Technical and economical alternatives should be analysed including the possibility of moving the waste to an appropriate new landfill site or carrying out in-site sanitation of the dump-site.
Hazardous and non-hazardous waste resulting from the production process should be disposed of in the near future at a proper disposal site constructed according to Montenegrin legislation and oriented towards EU standards. It should be clarified where (within or outside KAP) and on which kind of management model (private/state) this landfill should be built and operated.
3.2.3 Steel Plant HK Željezara, Niksic;
Niksic Steel plant, which produces quality and high-grade steel in a wide range of sizes and grades, started work in 1956. Caused by the international sanctions and the influences on the steel market actually only 25 % of the production capacity of steel (300.000 t/year) is realised.
The main waste streams are as NHW Ash from the thermoelectric power plant (12.000 t/year) and sludge from the wastewater treatment as well as hazardous waste ash and slag containing heavy metals (6000 t/year) and PCB between others like Moulding/Foundry Sands.
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The Niksic Steel Plant has a landfill site 3 km distance from the factory located beside the river. This landfill used since 1956 is constructed without any impermeable membrane. There may be disposed millions of m³ wastes from the steel plant. A new landfill site, without any protection layer, too is located near to the old landfill site and used since 3 years.
There is a need for proper management of the hazardous and non-hazardous waste produced by the Niksic Steel Plant. The currently used landfill sites do not have any protection layers and are thus inadequate for both the non-hazardous and the hazardous waste. After/during privatisation, proper waste management has to be an important issue between Steel Plant and the Ministry of Environmental Protection and Physical Planning.
The old landfill site of the Niksic Steel Plant is being rented out. For the last 3 - 4 months, the Austrian company, “Franz Löschnig”, has been implementing a pilot project for the recycling of the deposit waste. The Ministry should monitor this pilot recycling project in a stringent manner.
3.2.4 Thermal Power Plant, Pljevlja
Based on the information of the ministry from the total annual quantity of the hazardous waste that is generated in Montenegro, most of it is in Pljevlja, total 571.000 tons Huge quantities of ash are generated at the Power plant and the rest of it are oils, crude oils, waste soaked with colours, ashes and slag from the boiler room and other hazardous waste. Annually, 280.000 tons of ash and slag are deposited in a landfill located on the Paleski Potok River Bank.
Nevertheless that there are some produced hazardous Wastes within the thermal power plant it should be mentioned that the main waste fractions from thermoelectric power plants like bottom ash, slag and boiler dust aren’t classified in the European Waste List as Hazardous wastes (in the case if there is no co-incineration with wastes which cause dangerous substances within the waste). Nevertheless these kinds of wastes need a special management.
As documented in particular by the “Economic Agenda”, the Government of Montenegro is taking steps towards privatising major state enterprises in order to boost industrial activity. However, the information at hand does not give any clear statement with regard to the future development of these enterprises, especially KAP and the Steel Company, etc. Furthermore, there is a great deal of uncertainty as to whether the privatisation process shall involve investments in new technology, and also whether the enterprises are to carry on working at full capacity or only be operated at reduced levels. All these aspects greatly influence the amounts of waste streams produced.
3.2.5 Hazardous waste from the small and medium sized industry
Numerous industrial companies have presently suspended their activities or are working at extremely low capacity utilisation rates due to the fact that they are in the process of being privatised and/or do not possess sufficient funds for new investments in order to improve their obsolete technology.
The Consultant got the possibility to visit some of these companies. Based on this it can be resumed that within the SME in Montenegro the main generators of industrial wastes are, and may be in the future too, the metal industry, the ports and shipyards, the wood processing, the paper processing industry and the food processing industry. However, hazardous wastes were also identified from commercial and personnel services (e.g. filling stations, photo shops, cosmetic institutions). Irrespective of the sector-specific industrial waste, the following significant waste flows were identified which, due to their quantities or their particular danger potential, require a solution to be found:
• PCB Waste was listed by the Ministry and some municipalities and industries as a special problem. No comprehensive statistics exist;
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• In the wood-processing companies, the high quantities of wood cut-offs and sawdust need a solution;
• In the coastal areas, oil-contaminated wastewater and sludge are the main industrial waste stream;
• In some municipalities there are problems with inadequate management of the waste from slaughterhouses; solutions are needed.
It could be observed that the environmental awareness especially in the small and medium-sized industries) is low. It therefore proved difficult to obtain sufficient and reliable information on types and quantities of waste generated.
Due to the lack of reliable data the Consultant has defined different industrial waste types potentially originating in the most relevant sectors: used mineral oils, oily waste water, oil contaminated soil and sludge, other oil contaminated wastes, dielectric liquids, used car batteries and accumulators, contaminated packaging materials, acids and organic chemicals, chlorinated and non-chlorinated solvents, substances containing asbestos, putrescible organic wastes, inorganic slag, ashes, moulding sand and enamel sludge, wooden remainings, and organic wastes.
It has been explained within the Baseline Report why an estimation of the volume of waste produced by small and medium-scale industry is not possible. Nevertheless, in order to obtain some sense of orientation, in the current situation we take the view that – without regard to the large-scale industry Montenegro would need to be classified as one of the smaller generators of hazardous waste.
Working on the assumption of a lower figure scale of 4 - 6 kg/IHW/inhabitant, for Montenegro with its population of 646.740, an amount of around 2.500 – 3.900 t/a of IHW would have to be expected.
With regard to the management of the waste in the small and medium sized industry, it is usual practice to burn or dump it, or to deliver it to the landfill of the municipality together with the communal waste.
At company level, the handling of waste (minimisation, separation from other types of waste, and storage) by the majority of companies is not adequately carried out to meet environmental requirements, let alone to comply with European standards. Small and medium-sized enterprises, in particular, are unaware of the negative effects of improper handling of hazardous and non-hazardous waste. Except for the declaration of intention in both important political documents, the “Economic Agenda” and “The Sustainable Development of Montenegro”, no steps have been taken at company level yet towards realising the policies on waste minimisation and cleaner technologies.
3.2.6 Hazardous waste from households
In Montenegro actually there doesn’t exist any evaluation about types and quantities of hazardous wastes from household. Nevertheless there exist international knowledge, which will help to construct a base for this kind of wastes. Therefore as typical hazardous wastes from households can be mentioned :
• Paint and varnish residues, associated products like Organic solvents, thinner, brush cleaner, paint remover; • Alkaline and acidic cleaner (e. g. stain remover, descaler, pipe cleaner), rust inhibitor; • Fungicides, herbicides, insecticides, rat poison ; • Aerosol cans, contaminated packaging material; • Treated wood and wood preservatives; • Fluorescent tubes, low energy light bulbs, thermometer;
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• Developer and fixer solutions, stop bath, film material; • Pharmaceutical products; • Natural or synthetic oil, e. g. motor/lubricating oil, related products, e. g. oil filter; • Car batteries, mercury batteries, lithium batteries, ZnC alkaline batteries; • Discarded electrical / electronic equipment, e. g. TV, PC, radio, electric shaver, ink cartridges, toner; • Contaminated construction wastes.
The potential of collected HHW vary in a wide range (0.4 to 4,7 kg/cap*a) from country to country, which means an annual amount between 250 and 3.000 t/year in Montenegro, expecting that the real amount would be near by the lower estimation.
3.2.7 Present hazardous waste management
For many years the management of industrial wastes in Montenegro has been of concern to the Montenegrin society, public and private organisations/institutions and administrative bodies on different levels. In several attempts, the authorities tried to assess the magnitude of the problem and to design strategies for appropriate solutions. However these efforts couldn’t finally lead to a rather satisfactory handling of these wastes.
Communal Waste Companies are not responsible for the industrial and hazardous waste from the industry. The collection of waste such as waste oil, different kinds of metal and paper and other valuable wastes and their transportation to recycling plants (mainly in Serbia), is already being carried out for economical reasons by small waste companies.
In the coastal area, one private enterprise - and in some cases, the waste generators themselves - started with the pre-treatment of oil-contaminated wastewater and sludge and transport the sludge for further treatment and final disposal, mainly to Serbia. The potential for expansion and improvement of these activities should be investigated.
According to the Ministry and some companies (Port of Bar, KAP, Steel plant) as well as municipalities (f.ex. Mojkovac) there are some PCB yet stored, as well as condensers and transformators filled with PCB´s stored and some equipment with Pyralen still in use. The Ministry of Environmental Protection and Physical Planning and other bodies involved are aware of the fact that appropriate collection, storage and disposal is necessary. There exist different plans for the export of these wastes.
Actually in Montenegro doesn’t exist any special facility for the incineration or any constructed landfill for hazardous waste complying with the Montenegrin legislation nor criterions of the European Union. The main generators of hazardous wastes like KAP or Steel Plant from Niksic are storing their wastes temporary on their own land. Additionally to these landfills the annual report from the Ministry is mentioning two other waste disposal side from industries: The electrodes plant in Plužine and the shipyard Bijela. On the other hand especially from the SME, the industrial and hazardous wastes are mixed with the communal waste and so transported to the municipal waste dumps.
Prior to decisions regarding new investments, more transparency is to be created regarding types and quantities of hazardous and non-hazardous waste in Montenegro, by means of setting up a waste reporting and monitoring system. Furthermore, prior to new investments in recycling and treatment facilities, it is recommended to investigate the possibilities of making use of existing units in Serbia and neighbouring countries, since the amounts of hazardous waste to be expected are relatively small.
It is of utmost importance to clarify all areas of responsibility and financing for each individual stage of the waste management: waste minimisation, transportation, recycling, treatment, final disposal, and remediation of contaminated sites. In this respect, the pros and cons of various co-operation models
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between the public and private sector with regard to industrial waste management, must be jointly taken into consideration and agreed upon.
3.2.8 Contaminated and potentially contaminated sites
Additionally to the old dumps for non hazardous and hazardous wastes from the main industries, there exit some high problematic tailing ponds from the mining industry in Mojkovac and in Suplja Stijena, where mainly flotation tailings from zinc and lead production are dumped. These old tailing ponds as well as the improper storage of industrial and hazardous waste in large enterprises pose a serious threat for the population and the environment.
3.3 Healthcare Waste
3.3.1 General
Healthcare waste is generated by large and small healthcare facilities, home healthcare as well as research operations and can be classified in two main categories: • Healthcare Waste similar to solid municipal waste • Special Healthcare Waste (SHW).
Special Healthcare Waste presents a high risk to human health and the environment because of the hazardous characteristics of some of its components. These risks are shared by the patients and the personnel who handle the waste inside and outside of the healthcare establishments, and are increased due to the heterogeneous nature and the presence of sharp objects such as syringes, scalpels, blades or broken glass which may cause infected injuries.
The present system of healthcare waste management in Montenegro has been analyzed in order to develop and introduce an effective overall concept for the handling of healthcare waste with the appropriate regulations and technology.
With reference to the legal and institutional situation, the investigations in Montenegro have shown a lack of legislative framework, by-laws and guidelines for the regular management and control of healthcare wastes.
The institutional and administrative arrangements for the provision of healthcare waste management functions and responsibilities in Montenegro are not defined specifically but enter into the general obligations and responsibilities of the Healthcare Administration. The Ministry of Health is in charge and responsible for all public healthcare establishments. It also gives permissions for the function of private institutions and controls them. For the control of the healthcare establishments the Government provides health inspectors, but up to now they did not include those of waste collection, treatment and disposal in their duties. However, there aren’t any specific regulations or guidelines for healthcare waste management of which they could make use.
From the healthcare and environmental protection point of view, the following summarised legal and institutional gaps were identified by the recent site investigations:
• Lack of legislative framework and guidelines; • Missing of an effective official control of standard and equipment inside the healthcare establishments; • Missing of a responsible person of the staff for safe and hygienic waste handling; • Missing of a regular official environmental and sanitary control of the landfill operations; • The healthcare establishments are organised in accordance with the following structure: o Healthcare Centres offer only ambulatory services and have generally no beds for stationary medical treatment;
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o General Hospitals offer all basic medical services; o Specialist Hospitals for certain diseases; o Clinical Centre of Montenegro which covers all medical disciplines; o Health Institute of Montenegro with several laboratories for biological and micro- biological investigations;
3.3.2 Actual situation of healthcare waste management
To investigate the actual Healthcare Waste (HW) management in Montenegro, some visits to healthcare establishments have been made in February 2004. The findings can be described as follows:
• The hygienic standard of the waste handling inside the visited healthcare establishments is, compared with the international standard, low and should be a cause of great concern;
• The wastes from the theatres, patient wards and laboratories are not collected in adequate one- way receptacles such as bags or containers but directly in waste bins or used cardboard boxes without any plastic bags placed within the receptacle to prevent its contamination;
• Due to lack of regulations and control the hazardous infectious wastes are disposed of together with the normal waste. There is no segregation of the waste in the patient wards and syringes and needles are not separated;
• Radioactive wastes from medical services are not manipulated safely in the required way but flushed down the sewage system;
• Infectious wastes from microbiological and virological laboratories seem to be treated accordingly;
• Lack of education and training of the staff about safe and hygienic waste handling;
Furthermore the following health risks of the actual management outside the healthcare establishments could be identified:
• For the lack of identification of the infectious and hazardous wastes by bags of different colour or labels, the waste transporting and disposal personnel is not able to identify the infectious and hazardous fractions and therefore exposed to risks by sharp contaminated articles;
• The infectious and hazardous wastes are not stored in appropriate places, to which only authorised personnel have access. Passers-by, playing children, scavengers and animals have the possibility to come into contact with dangerous items;
• Unacceptable transport of SHW, causing a serious threat to the health of the population;
• Improper handling and disposing of SHW on the landfills, endangering the personnel, scavengers and the environment;
• For the same reasons also scavengers of wastes at the landfill site are exposed to extreme risks of infection.
In summary, infectious and hazardous waste as well as human body parts are collected, transported and disposed of together with common waste, exposing it in that way to unauthorised persons, to scavengers of waste and to animals at the containers and at the landfill site.
3.3.3 Waste classification
The term "Healthcare Waste" (HW) is used to refer to all residues produced in healthcare establishments during implementation of their institutional functions; these residues can be more or less hazardous depending on their origin within the healthcare establishments. For the purpose of this project a proposal for the classification of Healthcare Wastes for the special needs of Montenegro has been worked out, taking into consideration available legislation of Montenegro as well as EU and WHO regulations.
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Correct handling and treatment of healthcare waste must be based upon consideration of various aspects, including the health and safety of all persons within the healthcare establishments, (staff, patients and visitors), and the protection of the population outside the healthcare establishments from contagious diseases. The specific physical and/or chemical properties of the waste with regard to its potential for harming the environment, and the ethical and aesthetic issues that are involved must also be considered.
From this, the necessity arises to classify the various types of waste into groups according to the management techniques which experience has shown are appropriate in each case. Thus, healthcare wastes can be classified based on the kind of management they require, as described in the following: Type A: Recyclable Waste All recoverable material for reuse or recycling Type B: Common Waste Waste similar to domestic waste and not requiring any special handling Type C: Infectious Waste Potentially infectious-contagious waste that requires special management inside and outside the healthcare establishments Type D: Anatomic Waste This waste type requires special treatment, not primarily in order to prevent infections, but rather for ethical reasons. Type E: Other Hazardous Waste This group covers waste types that, for legal reasons or because of their physical or chemical properties, are considered hazardous and necessitate special management.
3.3.4 Estimation of waste quantities
To plan the management of healthcare waste for a region or a country, it is necessary to know the quantities generated by the healthcare establishments. As far as known, measurements of healthcare wastes have not been carried out up to now in Montenegro. Therefore no local data on SHW amounts are available. To close this gap, some results of measurements in other countries have been introduces as base for the estimation of waste amounts. Upon consideration of several aspects a specific value of 2 kg/b*d of HW was found to represent well enough the reality of Montenegro and can be used for the future waste estimations.
The present project requires a waste forecast for a period of 20 years. Based on the available figures about population growth an estimated need of beds for the year 2024 of around 2.750 beds was calculated. This figure allows the following estimation of amounts of healthcare waste for the year 2024:
Healthcare Waste Types A + B, recyclable material and waste similar to municipal waste: 4.950 kg/day
Special Healthcare Waste Types C+D+E, potentially hazardous waste: 550 kg/day
Total Healthcare Waste during the year 2024 5.500 kg/day
Table 3-7: Amounts of healthcare wastes
3.3.5 Proposals
One of the objectives and needs of the project is to set up a legal structure which regulates and defines the following themes:
• Precise definition of all terms to describe the management of healthcare waste;
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• Classification of healthcare wastes;
• Internal management of waste in healthcare institutions;
• External management of waste from healthcare institutions;
• Permitted treatment methods;
• Specifications for the selection of healthcare waste handling equipment and material;
• Determination of responsibilities;
• Fines and penalties for non-compliance.
There is also a call for an effective control system of the healthcare waste management, which could be organised on two levels: 1. Responsible self-control 2. Official control.
As mentioned before, the healthcare waste types are classified in the present report according to the kind of treatment and disposal they require. This leads to the following management recommendations:
• In the case of the waste Type A and B, there are no sanitation-related reasons not to transport and dispose of them together with urban waste, once it has been removed from the healthcare establishments;
• By contrast, the waste Types C, D and E do indeed require special handling and disposal to prevent health and environmental damages, or a treatment to change their biological and physical character so as to reduce or eliminate the potential for causing disease;
• Therefore, extensive attention has to be given to provide the healthcare establishments with adequate material and equipment for the collection of the waste. A general upgrading of the hospital's internal collection equipment is necessary;
• For the management of healthcare wastes outside the healthcare establishments, a proposal has to be elaborated evaluating all the technical alternatives and considering the local particularities of Montenegro;
• Furthermore, every healthcare establishment should implement and supervise training and maintenance programmes for the nursing, cleaning and technical personnel;
• Training should also be directed to the municipal collection and disposal services personnel.
3.4 Financial and Economical Status
3.4.1 General
The Economic Reform Agenda outlines the government’s intentions on structural reform and here various important issues related to the solid waste sector are also outlined. The most important objectives are the following:
• Economic growth, with a decisive impact by the private sector; • EU compatibility of legislation and processes; • Valorization of Montenegro’s potential, particularly in areas that represent comparative advantages; • Improvements in the standard of living, with adequate educational and health system and a sustainable social security system; • Protection of the Environment.
The public administration is being strengthened and getting assistance in these efforts by USAID and EU under the Program for Reform of Administration in Montenegro (PARIM). Progress of the important privatization and decentralization processes will be conducive to sustainable management of the waste sector.
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3.4.2 Summary of observations from secondary material on the municipalities
• Tariffs are quite detailed and even complex in many municipalities – there is nothing like a “standard fee”;
• Responsibilities on public services are “delegated” to public utility companies for implementation; therefore each utility company is responsible for a number of services; From the material on accounts, that have been collected, it is impossible to analyze the revenues and the costs for solid waste management, as the figures for costs are aggregated for all the services delivered by the utility company;
Currently there is low sustainability of the solid waste management activities as follows:
• Low priority for solid waste management and payment of fees according to household survey (Master Plan on Wastewater Treatment); • Overvalued and very old equipment, which is currently being written off at scrap value; • Low affordability, willingness to pay by customers of waste management services; • Municipalities and utility companies need management and technical strengthening • The revenues from tariffs for waste management don’t cover the costs of services (including depreciation); • Administration, financial accounting, budgets, budget-follow up and other management aspects need strengthening; • financial flows from central government need to be clearly defined and transparent procedure; • The planning process (different than the urban plan) is still incipient and weak and will need attention (development plans for the municipality – geographical area, not only the city centre – population’s participation etc. etc)
3.4.3 Issues on future and sustainable solid waste management
• Modernization and strengthening of the administrative, financial and technical capacities at the municipal level;
• Transparent tariffs, set to cover operations and maintenance costs, as well as depreciation;
• An improved affordability and willingness to pay by all customers; bills have to be paid to their full amount in a timely fashion;
• Awareness and information campaigns in order to impact on people’s behaviour regarding solid waste issues; Improved environmental awareness of all citizens and visitors;
• A greater disposition towards inter municipal arrangements and investments in order to allow for affordable solutions (which address necessary economies of scale)
• The legal framework, national and EU standards must be harmonized and realistic, and municipal ordinances will be further defining the details at their level;
3.4.4 Gap analysis
The sustainability of the Strategic Master Plan will partially depend on the successful implementation of important project like PARIM, Good Local Governance, Community Revitalization through Democratic Action and other efforts to strengthen decentralization, planning processes, public administration in general, etc.
Each municipality and each utility company is unique and will be defined by the following methodology:
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• Map of each municipality, highlighting settlements above 200 persons, existing landfill and any other important issue for the Strategic Master Plan on Solid Waste; • Organization charts of the municipality and the utility company/companies; • Definition of waste streams – existing and potential producers/customers; • Environmental uniqueness specifically with reference to sustainable solid waste management; • Tariffs; • Assessment of the administrative and financial capacity and recommendations on strengthening; • Assessment of profitability of their solid waste management services, including the operations of the landfill; • Donor presence in that particular municipality; • Identification of any institution strengthening activities which are performed by the government and/or donors to the municipality and/or the utility company/companies.
It is recommended that the municipal level be the centre and focus of analysis.
Following needs to be addressed by the project:
1. A realistic projection for the next 20-25 years, based on actual data and situation in each specific municipality (see for details in the consultant’s report)
2. A consultation process for necessary dialogue on issues related to solid waste management
3. Analysis at each municipality and utility company concerning their specific conditions, as detailed above; accounting system, billing system, administrative system. Above all the technical experts need to process their analysis of the waste streams at the municipal level which are important for the Strategic Master Plan on Solid Waste: Municipal waste, health related waste (hospitals, clinics, dentists etc.), butcheries industry – toxic waste, sludge, construction demolition, vehicles – tires, landfill – existing and any illegal dumps which will need attention in the master plan.
4. Environmental Impact Assessment (EIA) process
5. Affordability and willingness to pay for solid waste management services will be crucial, given the problems that all utility companies are facing with low payment rates for services.
6. Systematic donor coordination on project-relevant issues
7. A sociological study on waste pickers in order to mitigate and minimize changes due to recommendations from Master Plan
8. Focus of the Strategic Master Plan will be at the municipal level, as outlined above, providing a basis for dialogue with the municipalities and with an ability to address inter municipal relations.
9. the elaboration of the Strategic Master Plan will also address the regulatory framework at the municipal level
3.5 Institutional and Regulatory Structure
In Art.1 Constitution of The Republic of Montenegro, Montenegro is designated as a “democratic, social and ecological state”. This must be understood as recognition and a directive for all-inclusive protection of environment and nature in the broadest sense and as a valuable constitutional rank. In addition to this protection, there is necessary, among other things, an environmental sound and economically rational solution of actual issues related to the waste management, because they have a short-term and a long-term impact on the environment and the health of people. Legislator has made a first step in the direction of solving this problem through passing laws and regulations in recent years.
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These laws are:
• Environment Law “Official Gazette of the Republic of Montenegro, No 12/1996”
• Law on Local Self – Management “Official Gazette of the Republic of Montenegro, No 45/91, 16/95, 23/96, 33/96, 42/03”
• Law on cleanliness, collecting and use of waste “Official Gazette of the Republic of Montenegro, No 20/81, 26/81, 2/89, 19/89, 29/89, 39/89, 48/91, 17/92, 27/94”
• Law on public utilities, “Official Gazette of the Republic of Montenegro, No12/95”
• Law on transport of hazardous substances “Official Gazette of the Federal Republic of Yugoslavia, No 27/90, 45/90, 24/94, 28/96, 68/02”
and the regulations are:
• Regulation on criterions for the selection of locations, the way and action for storage of the waste material, “Official Gazette of the Republic of Montenegro, No 56/00”;
• Regulation on sanitary – technical conditions that dumps and locations for delivering of feces have to satisfy, arrangements of dumps and locations for delivering of faeces and devastation of garbage and faeces, “Official Gazette of the Republic of Montenegro, No 20/83”;
In the direction of the complete development of the state due to the principle of the rule of law, and according to the political and economical perspectives of Montenegro, it is necessary to improve the legislative and administrative situation concerning waste issues by creating a unique waste management law due to the EU-standards which is called in other EU countries “Law on circulation Economy” or better “Law on Circulation of Substances”. By enforcement of a law like this, the present and newly created problems of waste management could be solved in a legislative advanced, progressive and ecologically acceptable way.
Therefore, a “Republic-level Waste Management Master Plan” concerning the legislative and administrative waste management issues should be made, with short-term realization, and middle- term and long-term effects.
These fundamental estimations should be observed by laws and regulations which need to:
• fulfil the constitutional aims and principles of the principles of the rule of law;
• serve the political will of Montenegro to enter EU and fulfil necessary law standards;
• justify fundamentals of a clear and unique legislative situation;
• give directions and effective solutions and necessary legal authorizations to management as an executive organ;
• not to slow down the economic development, but to support and improve it by pronouncing “Waste management” as a chance for economical development;
• include the citizens in the process and raise the level of their conscience by the information that waste is a public property;
• to accomplish, through timely connections of citizens and organizations to activities related to environment protection, and in this way getting as big support as possible for making decisions and taking actions on local and republic level.
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Backed by this point of view, including present and accessible law documents and court decisions in effect, following requirements are being needed:
• Inventory of regulations about what legislative issues are needed and where temporary legal solutions concerning waste have to be established;
• assumption of the future needed law regulation, for ex. Recycling, Re-use, etc.;
• systematic development of the important basic legislative issues and obligations and their solving and competency;
• treatment of all basic legal issues connected to waste in one resolution which would be a part of the “ Law on Circulation of Substances” or refer to it;
• political resolutions and setting aims of waste disposal in “waste management” sense in unique manner for the whole state;
• unique definition of the concepts and unique wording in the future legislation;
• basic regulations of obligations on national level (Ministries) and level above (agencies and municipalities) in that areas.
planning technical standards permissions leadership law and expert supervision finances
• treatment of specific law issues concerning waste, for ex. Health care, Industrial waste;
• integration and assimilation of present laws and regulations;
• Regulation and adaptation of the necessary administrative requirements;
• Creation of some administrative prerequisites
- at the ministerial level by provision of:
• organisational charts, and adaptation of the entire organisation • staff resources • finance resources • opportunities for staff training, and staff development
- at the municipal level as far as allowed (respectively required) by the principles of communal self- administration, eg. via financial compensations (national subsidies for pilot projects, etc.)
- Development of a National Agency reporting to the Ministry, equipped with the relevant administrative, staff and financial resources, divided in local representation units (eg. Coastal Region / Central Region / Mountain Region) with the goal to:
• concentrate waste related tasks on a sub-ministerial level • represent a link connecting the municipal and ministerial level • represent the national level on the local / regional level (principle of proximity) • execute ministerial tasks on the local / regional level.
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• ideological stimulus by creating representatives of NGO interests
• organization of education, informing and promoting on legislative, administrative and peoples level
At the end, we should highlight that the introduction of the changes of existing legislative and institutional set up is a very ambitious aim and because of the present condition, urgent introduction of relevant laws and regulation is necessary, and on the other side we should pay attention to the perfect adoption the EU standards which demand longer period for implementation.
The very significant fact is that management, capacities and citizens must not be exhausted by providing law regulations, so implementation should be accessible. It should be recognized that introduction of waste management supports development of public economy, especially stimulates SME and rises attraction of Montenegro from economical standpoint.
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4.0 Waste Forecast
4.1 Municipal Waste Forecast
4.1.1 Assumptions
Increasing volumes of waste are closely linked to increasing resource consumption. Prevention of waste therefore continues to be an important element in sustainable development. Sustainable development means that economic growth must not be linked to a corresponding growth in resource and energy consumption, and increased pollution, including waste.
It has been shown that the economy is responsible for 80% of the increase in the volume of waste. The greater the disposable income of the population, the more waste is generated. But the economy does not play an equal role for all fractions. The remaining part of the increase in the volume of waste is caused by other factors such as changes in legislation and production patterns.
The challenge is to decouple the increase in the volume of waste from general economic growth. Responsibility for solving the problem of increasing volumes of waste is shared by all sectors of society. Our initial goal is thus to ensure that increases in the volumes of waste do not occur at the same rate as the increase in economic development.
Initial project assumptions of waste generation have been defined in project’s Terms of Reference and can be used as a first assumption. Subsequently, review of actual waste generation conditions and related geographical and social conditions resulted in an adjustment of the initial assumptions. The results are depicted in the table below. Waste generation data per capita have been subsequently used in further calculations and predictions of the required landfill capacities. The highest daily specific waste generation of 0,90 kg per inhabitant is allocated to the Coastal Region according to the comparable higher economical capability, mainly due to the tourist related activities and commercial entities (e.g. hotels, restaurants) in this region.
For the Central Region a slightly lower specific municipal waste generation of 0,80 kg per inhabitant per day is assumed. A significantly lower specific generation of 0,60 kg per inhabitant per day is chosen for the Mountain Region. The Mountain Region is on one hand weaker in economic terms, and on the other hand waste (re)utilization within the household (feeding animals with organic waste) is widely practiced, especially in rural areas.
Derived from several experiences with waste management in tourist areas, a higher daily generation of municipal waste of 1,50 kg per tourist is supposed. This is related to the changed behaviour and consumption due to tourist activities, e.g. higher consumption of wrapped one-way products (take- away food) and beverage containers.
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Estimates on Specific Municipal Waste Generation
Source National Institute for Statistics GOPA Project Consultants kg/cap/d kg/cap/y kg/cap/d kg/cap/y Central Region: 1,00 365 0,80 292 Residential Coastal Region: 1,00 365 0,90 329 Population: Mountain Region: 1,00 365 0,60 219 Refugees: - - 0,25 91 Tourism (related to overnight stays): 1,00 1,50
Table 4-1: Estimates on resident-specific municipal waste generation
Based on the current demographic data including number of inhabitants, overnight stays of tourists, number refugees and residents working abroad and the refined data for specific waste generation the current Montenegrin municipal waste generation is shown in the following table:
Estimate for Generation of Municipal Waste Municipal waste amount 2004 (ton/year) Waste Generators Project assumptions National due to Tourism Persons Institute for due to persons due to local Municipality Population (overnight working RefugeesStatistics* total tourism working generation stays) abroad abroad Podgorica 1 168.812 41.680 10.352 12.507 61.658 51.263 63 766 50.434 Niksic 2 75.274 9.126 1.522 2.500 27.484 22.334 14 113 22.208 Central Cetinje 3 18.500 25.311 243 140 6.778 5.471 38 18 5.415 Region Danilovgrad 4 16.376 281 119 800 5.978 4.864 0 9 4.855 278.962 76.398 12.236 15.947 101.898 83.932 115 905 82.912 Bar 5 39.688 602.680 5.502 7.191 15.089 15.056 904 458 13.694 Herceg Novi 6 32.988 1.069.905 1.137 4.000 13.111 12.901 1.605 95 11.202 Ulcinj 7 20.326 452.060 6.202 1.360 7.871 7.995 678 516 6.801 Coastal Kotor 8 22.650 167.455 763 815 8.435 7.830 251 63 7.515 Region Budva 9 15.671 1.384.405 410 2.000 7.104 7.441 2.077 34 5.330 Tivat 10 13.481 134.138 510 2.000 5.055 4.855 201 42 4.611 144.804 3.810.643 14.524 17.366 56.664 56.077 5.716 1.209 49.153 Bijelo Polje 11 49.967 8.136 7.015 1.550 18.246 11.486 12 389 11.084 Pljevlja 12 35.751 11.344 1.098 700 13.060 7.971 17 61 7.893 Berane 13 34.912 8.689 5.922 5.716 12.752 8.509 13 329 8.167 Rozaje 14 22.559 3.767 5.003 1.140 8.238 5.328 6 278 5.044 Plav 15 13.725 1.335 7.879 2.000 5.011 3.627 2 437 3.188 Mojkovac 16 Mountain 10.015 609 251 235 3.656 2.230 1 14 2.215 Kolasin 17 Region 9.934 23.280 104 500 3.649 2.262 35 6 2.221 Andrijevica 18 5.697 10 686 1.515 2.079 1.424 0 38 1.386 Pluzine 19 4.270 1.306 25 140 1.560 951 2 1 948 Zabljak 20 4.206 30.727 39 105 1.566 979 46 2 931 Savnik 21 2.938 22 34 0 1.072 645 0 2 643 193.974 89.225 28.056 13.601 70.890 45.412 134 1.557 43.721 Total 617.740 3.976.266 54.816 46.914 229.451 185.421 5.964 3.670 175.786
Table 4-2: Estimates on total municipal waste generation
Considering the specific waste generation due to tourism, in the Coastal Region, the current data hardly differ from the assumptions given by the National Institute of Statistics. In the Mountain Region the refined data are leading to a significant decrease of the estimated waste amounts due to lower specific waste generation in these mainly rural areas.
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4.1.2 Composition of municipal waste
Information and data on the physical composition of municipal wastes are important in evaluation and establishment of following activities:
• selection and operation of suitable equipment for waste storage, collection, transport, treatment and disposal; • assessing the feasibility of waste reduction/reutilization at the source, recycling and energy recovery; • design of transfer stations, waste treatment/recycling plants and landfill disposal facilities.
Generally, municipal waste is composed of the listed main fractions:
• Organic waste (yard waste, green grass, leaves, branches from tree trimming, food waste, wood);
• Paper and cardboards (newspapers, books, magazines, commercial printing, office paper, paper packaging, tissue paper, paper towels, corrugated cardboards);
• Plastics (packaging material, containers, bottles, plastic bags, foils);
• Glass (bottles, container glass for food and beverage packing, flat glass e.g. windows);
• Metals (tin cans, aluminium, ferrous metals and non-ferrous metals);
• Textiles and leather;
• Others (dirt, ashes, street sweeping, dust, materials not identified). Several municipalities were asked in questionnaires and interviews regarding the waste composition in their region. Additionally, comparable experiences from countries in surrounding regions were taken into consideration for an assumption of the current Montenegrin waste composition. A field investigation regarding waste composition was not performed by the project. Following composition of municipal waste has been assumed for further considerations:
Assumption: Composition of Municipal Waste in Montenegro
Paper & Glass Metal Plastic Textiles Organics Other Total cardboard Central Region 17% 7% 4% 10% 5% 25% 32% 100%
Coastal Region 25% 10% 5% 15% 5% 25% 15% 100%
Mountain Region 15% 7% 4% 12% 5% 35% 22% 100% Average (weighed) 18% 8% 4% 12% 5% 28% 25% 100%
Table 4-3: Assumed municipal waste composition
In general the compositions in the Regions are assumed to be similar, especially due to considerable amount of recyclables. Tourist industry is known to generate disproportionate more waste from packaging materials due to final consumption (e.g. containers and bottles for drinking water and several beverages, card board boxes, glass bottles and plastic wraps). As the mountain region is characterized by a comparable higher share of population living in rural areas, the waste is supposed to contain a higher amount of organics.
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Fig 4-1: Composition of municipal waste
Composition of Municipal Waste
Other Paper & 25% cardboard 18% Glass 8%
Metal 4%
Organics Plastic 28% Textiles 12% 5%
4.1.3 Serviced Areas
All over the entire country generation of municipal waste happens day by day. But not for all waste generators a collection service is provided.
Based on the answers of the distributed questionnaires and interviews with national experts, it is established that waste collection mainly is provided in the major towns of the corresponding municipalities and only sometimes in surrounding suburban areas. In the Coastal Region there are additional urbanized towns connected to the collection service especially during tourist peak season.
As no current and precise data regarding the degree of collection service in the major towns and the entire municipalities are available, the project assumed as a first approach a degree of collection of about 85% for the major towns and about 15% in rural areas. That means that 85% of the generated waste in the major towns and urban areas and 15 % of the generated waste in rural areas is collected by regular service. The remaining waste generated in smaller towns, villages, settlements and dwellings is not collected. Therefore, the producers there dispose the generated waste, which is not reutilized, mainly by “wild dumping” at not suitable places.
As in the Central Region, about 80% of the population lives in the main towns, the degree of collection for this region of 70% is the highest. In the Coastal Region about 58% of the population are connected to the collection service, even about 40 % of the residents live in the main towns, but in some other urbanized towns a collection service is also provided, especially during peak season for tourism. Thus, the degree of collection is comparatively high. Due to the low degree of urbanization and density of population the degree of collection in the Mountain Region is 42% and the lowest. There, about 40% of the population lives in the capital towns, the remaining in rural areas.
Derived from the assumed data for waste generation and the connection rate to the collection service, the amount of collected waste can be estimated. The following table shows the assumptions for the amounts of collected waste per year for each municipality, the inter-municipal catchment areas and the entire country.
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Municipal Waste (ton/year) 2004 Name of the Associated Inhabitants Catchment Area Municipalities Census 2003 Share Generated Recycled Disposed Recycled and Disposed (%) Podgorica 168.812 51.263 1.925 35.459 73 Cetinje 18.500 5.471 0 3.999 73 Podgorica Danilovgrad 16.376 4.864 0 2.086 43 total 203.688 61.597 1.925 41.544 71 Niksic 75.274 22.334 0 15.251 68 Pluzine 4.270 951 0 349 37 Niksic Savnik 2.938 645 0 161 25 total 82.482 23.931 0 15.761 66 Bar 39.688 15.056 0 7.146 47 Bar Ulcinje 20.326 7.995 0 4.243 53 total 60.014 23.051 11.389 49 Herceg Novi Herceg Novi 32.988 12.901 200 7.808 62 Kotor 22.650 7.830 0 4.364 56 Budva 15.671 7.441 0 5.562 75 Budva Tivat 13.481 4.855 0 3.280 68 total 51.802 20.125 0 13.205 66 Bijelo Polje 49.967 11.486 0 4.375 38 Mojkovac 10.015 2.230 0 992 44 Mojkovac Kolasin 9.934 2.262 0 842 37 total 69.916 15.977 0 6.209 39 Plevlja 35.751 7.971 0 4.378 55 Plevlja Zabljak 4.206 979 0 412 42 total 39.957 8.950 0 4.791 54 Berane 34.912 8.509 0 3.390 40 Rozaje 22.559 5.328 0 2.367 44 Berane Plav 13.725 3.627 0 1.556 43 Andrijevica 5.697 1.424 0 422 30 total 76.893 18.888 0 7.735 41 Montenegro 617.740 185.421 2.125 108.442 60
Table 4-4: Waste quantities in municipalities and catchment areas
4.1.4 Future waste generation
For organizing any waste management system it is crucial to have knowledge about the timewise generation of waste quantities and qualities. These basic data are necessary in order to: • to estimate the required capacities for source separation, collection, transport, recycling, treatment and disposal;
• to estimate the operational and investment costs related to the corresponding options;
• to set achievable targets for connection rate of collection service, recycling and level of waste management; Therefore, a forecast of municipal waste generation is elaborated within the project.
A forecast for the generation of municipal waste is based on available data for demographic, economical and social development. Therefore, any prediction regarding the generation of municipal waste for coming years should be done with the necessary caution. A future revision of forecast according the corresponding current data in regular intervals is highly recommended.
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Generally, the amounts of waste and the corresponding composition are influenced by a lot different factors, for instance:
• Population growth;
• Changes in economic situation;
• Changes in demand for and nature of consumer goods;
• Changes in manufacturing methods;
• Effects of policy changes. The current forecast of municipal waste generation is based on the demographic data according the National Census 2003, the specific waste generation and the waste composition for the several regions and on the following assumptions: • Population growth The assumption for the yearly population growth bases on a comparison of the data from the National Census for the years 1991 and 2003. A steady annual population increase of 0,37% was assumed as nationwide average (specified with 0,81 % increase for the Central Region, with 1,26 % increase for the Coastal Region and a decrease of -0,68 % for the Mountain Region). • Economic development The economic development can be described by the Gross Domestic Product (GDP). Presently an annual average GDP growth of 3,5% is presumed for Serbia and Montenegro by international organisations. The national GDP development is differentiated in this forecast for the several Montenegrin regions. For the Coastal Region and the capital municipality Podgorica the GDP is set with average national GDP development +1,0%. For all other municipalities in the Central Region and the entire Mountain Region the GDP is set with average national GDP development -1,0%. As waste generation is connected to the economic development to a certain extent, herein the connection is assumed with 50%. This means, 2% increase of the GDP are resulting to 1% increase of waste generation. Furthermore, increase of waste generation is applied only for the ´consumer´ waste components (glass, paper & cardboard, metals, plastics, textiles). The fractions “organics” and “others” are supposed not to be connected directly to the development of the GDP.
Changes in demand for and nature of consumer goods, changes in manufacturing methods and effects of policy changes are not taken in account in this waste generation forecast.
The present situation of the performed waste management seems not to meet national or international standards respectively requirements. Improvement of municipal waste management especially in terms of optimization of waste collection, transport and disposal and increasing of recycling activities are very demanding future challenges.
4.1.4.1 Short-term perspective
The short term perspective, which lasts from 2005 to 2009, is based on the following assumptions:
• Generally, every technical measurement for improvement of the waste management service starts from 2006; • Extension of the connection rate to the collection service - in urban areas (definition according National Census 2003) stepwise increase from the level from 2004 of 85% to 92% in 2009;
- in rural areas (definition according National Census 2003) stepwise increase from the level from 2004 of 15% to 27% in 2009 excluding generally settlements with less than 190 residents;
• Introduction of source separation of several recyclable fractions as:
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- paper and cardboards stepwise increasing up to 40% in 2009 of the amount in the collected waste;
- glass stepwise increasing up to 20% in 2009 of the amount in the collected waste;
- metal tins and cans stepwise increasing up to 10% in 2009 of the total amount of metals in the collected waste;
- yard waste in urban areas stepwise increasing up to 7% in 2009 of the total amount of organics in the collected waste;
- yard waste in rural areas stepwise increasing up to 19% in 2009 of the total amount of organics in the collected waste;
- an comprehensive description of the planned introduction of the recycling system with the according targets and technical solutions is given the “Recycling Strategy”;
4.1.4.2 Medium-term perspective
The medium term perspective, which lasts from 2010 to 2014, is based on the following assumptions:
• Extension of the connection rate to the collection service: - in urban areas (definition according National Census 2003) stepwise increase from the level from 2010 of 93,3 to 100% in 2014;
- in rural areas (definition according National Census 2003) stepwise increase from the level from 2009 of 48,3% to 75% in 2014 excluding generally settlement with less than 190 residents;
• Extension of source separation of several recyclable fractions as: - paper and cardboards stepwise increasing up to 60% in 2014 of the amount in the collected waste;
- glass stepwise increasing up to 50% in 2014 of the amount in the collected waste;
- metal tins and cans stepwise increasing up to 30% in 2014 of the total amount of metals in the collected waste;
- yard waste in urban areas stepwise increasing up to 15% in 2014 of the total amount of organics in the collected waste;
- yard waste in rural areas stepwise increasing up to 42% in 2014 of the total amount of organics in the collected waste;
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4.1.4.3 Short-term forecast of the generated municipal waste
Based on the above explained assumptions a forecast of the generation of municipal waste a short- term period of 5 years is calculated. The results of the projection of the waste generation from 2005 to 2009 entire country of Montenegro are shown in the following figure:
Municipal Waste Generation Montenegro 2005 - 2009
250.000
200.000
150.000
100.000
Amounts per year(ton/year) 50.000
0 2005 2006 2007 2008 2009 Other 45.516 45.775 46.037 46.303 46.573 Paper & cardboard 36.017 36.963 37.939 38.944 39.981 Organics 51.135 51.378 51.625 51.877 52.133 Textiles 9.496 9.727 9.965 10.211 10.464 Plastic 22.808 23.379 23.967 24.573 25.198 Metal 8.177 8.383 8.595 8.813 9.038 Glass 15.036 15.422 15.819 16.229 16.651
Table 4-5: Municipal waste generation 2005 - 2009
For the following 5 years an increase of the total municipal waste generation from about 188.000 tonnes/year in 2005 to about 200.000 tonnes/year in 2009 is estimated. This means an increase of about 8% compared to the current amount of 185.500 tonnes/year in 2004.
The municipal waste contains a considerable amount of recyclable fractions as paper, cardboard, organic, plastics, metals, glass and to restricted scale textiles. The total amount of recyclables is about 75% of the municipal waste.
It is necessary to highlight the possibilities of recycling as one of the important aspects of waste reduction. Therefore, the project prepared an additional “Recycling Strategy” which includes the main measures proposed for the next 10 years in order to achieve a considerable rate of recycling especially for municipal waste.
Organics are the main fraction with about 25 weight percentage, followed by the fractions “others” with about 23% weight percentage, paper and cardboards with 20% weight percentage. Plastics amount 13%, glass 8% and textiles and metals each about 5%.
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As the amount of consumers’ products (e.g. paper, cardboard, plastics, metals etc.) increases about 13% the amount of organics and other waste increases only 2 to 3%.
4.1.4.4 Medium-term forecast of the generation of municipal waste
Based on the previously outlined assumptions a forecast of the generation of municipal waste a medium-term period of 5 years is calculated. The results of the projection of the waste generation from 2010 to 2014 for entire country of Montenegro are shown in the following figure:
Generation of Municipal Waste Montenegro 2010 - 2014
250.000
200.000
150.000
100.000
Amounts per year (tons/year) year per Amounts 50.000
0 2010 2011 2012 2013 2014
Other 46.847 47.124 47.405 47.689 47.978 Paper & cardboard 41.051 42.153 43.291 44.463 45.673 Organics 52.393 52.658 52.928 53.202 53.481 Textiles 10.724 10.992 11.269 11.554 11.847 Plastic 25.842 26.507 27.191 27.897 28.625 Metal 9.270 9.509 9.756 10.010 10.272 Glass 17.087 17.536 17.999 18.476 18.968
Table 4-6: Municipal waste generation 2010 - 2014
For the following 10 years an increase of the total waste generation from 185.000 ton/year in 2004 to 225.000 ton/year in 2014 is supposed. This means an increase of about 19% compared to the current amount is assumed. As the amount of consumers’ products (e.g. paper, cardboard, plastics, metals etc.) increases about 32% the amount of organics and other waste increases only 6 to 7%. Compared with the short-term waste generation until 2009 an increase of the total waste amount of 200.000 ton per year to 225.000 ton/year is assumed. This means an increase of 9%. The amount of the consumer’ products will increase about 14% and the amount of organics and other waste 3%.
The composition of Municipal Waste changes slightly during the next 10 years: paper and cardboard will increase from currently 18% to 21% glass from 8% to 9%, metal from 4% to 5%, plastics from 12% to 13%, textiles from 5% to 6%.
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The share of organic will decrease from 28% to 26% and other waste from 25% to 22%. Therefore, the waste generated at the source is supposed to contain about of 80% of material, which can be recycled respectively reused.
4.1.4.5 Long term forecast (landfills)
The waste forecast which has to be used for the prediction of the capacity of the new landfills is covering the coming twenty years period (2006-2025). It is assumed that the operation of new landfills will start in 2006. The parameters used for the establishment of quantities are the same as for establishment of short and medium term waste forecasts.
The following waste disposal accumulated amounts have been established for each municipality as a necessary twenty years landfill capacity:
Period 2007 - 2025 Tonnes Podgorica 909.000 Cetinje 93.000 Danilovgrad 65.000 Catchment area Podgorica 1.067.000 Bar 251.000 Ulcinj 137.000 Catchment area Bar 388.000 Herceg Novi 235.000 Catchment area Herceg Novi 235.000 Budva 140.000 Kotor 133.000 Tivat 88.000 Catchment area Budva 361.000 Niksic 356.000 Savnik 5.300 Pluzine 9.000 Catchment area Niksic 370.300 Berane 101.500 Rozaje 60.500 Andrijevica 16.000 Plav 44.000 Catchment area Berane 222.000 Bijelo Polje 132.500 Mojkovac 27.000 Kolasin 26.000 Catchment area Mojkovac 185.500 Pljevlja 91.500 Zabljak 8.600 Catchment area Pljevlja 100.100
Table 4-7: Waste amounts accumulated at new landfills in the period 2007 - 2025
4.1.4.6 Forecast of recycling rates
Based on the forecast of municipal waste generation and the associated waste composition, efforts have been made to establish the amounts of recyclables with the associated targets.
Currently, 140.000 tonnes of the municipal waste consists of recyclable material, this means 75% of municipal waste.
Material Quantity (tonnes) 2004 2009 2015 Paper and cardboards 35.100 40.000 46.900 Glass 14.700 16.700 19.500
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Metals 8.000 9.000 10.500 Plastics 22.300 25.200 29.400 Textiles 9.300 10.500 12.150 Organics 50.100 52.100 53.800 TOTAL 139.500 153.500 172.250
Table 4-8: Expected increase in recyclables is 23,5 % in the coming ten years period
Some important aspects have to be considered when setting targets for waste prevention and recycling for the next 5 respectively 10 years for the entire republic:
• Current waste management system is deficient with respect to recycling activities; • No reliable analysis exist regarding waste composition, especially with respect to the potential of recyclables.
Therefore taking into account the specific Montenegrin circumstances, a stepwise implementation of recycling is suggested with the following targets:
Target (in weight % Fulfilment of the Recycling Material related to the collected Region Target (year) amount)
30 2009 Entire Montenegro Paper, cardboard 60 2014 Entire Montenegro
20 2009 Entire Montenegro Glass 50 2014 Entire Montenegro
20 2009 Rural area of Montenegro
Yard Waste (calculated as 40 2014 Rural area of Montenegro percentage of the amount of organic waste) 7 2009 Urban area of Montenegro
15 2014 Urban area of Montenegro
Tins (calculated as 10 2009 Entire Montenegro percentage of the amount of metals) 30 2014 Entire Montenegro
Construction and Demolition 25 2009 Entire Montenegro Waste 50 2014 Entire Montenegro
Table 4-9: Recycling target
The forecast shall pay special attention to the amount of packaging and packaging waste which is an essential part of all recyclables. Therefore attempts have been made to establish a forecast of packaging waste amount which have to be expected today and in ten years time.
Based on the experiences from 12 EU Member States the quantities of packaging and packaging waste in municipal waste from commercial entities and households is calculated: Packaging from Commercial Packaging from Households in Material Entities in 2004(tonnes) 2004 (tonnes) Paper and cardboards 12.000 2.100 Glass 2.050 8.200 Metals 960 3.800 Plastics 4.700 8.700 TOTAL 19.710 22.800
Table 4-10: Packaging waste forecast for 2004
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As expected, the majority of paper and cardboard packaging waste is generated in commercial entities, while majority of glass and metal waste originates from households. The calculated forecast of packaging and packaging waste for years 2009 and 2015 is outlined in the subsequent table. The amount of packaging and packing waste from commercial entities and households increases from 42.500 tonnes in 2004 to 48.200 tonnes in 2009 and 55.700 tonnes in 2015. The share of packaging and packaging material in the amount of recyclables in municipal waste amounts from 30 to 32%.
Packaging and Packaging Waste (tonnes) Material 2009 2015 Commercials Households Commercials Households Paper and cardboards 13.600 2.400 16.000 2.800 Glass 2.300 9.300 2.700 10.100 Metals 1.100 4.300 1.300 5.100 Plastics 5.300 9.900 6.200 11.500 TOTAL 22.300 25.900 26.200 29.500
Table 4-11: Packaging waste forecast for year 2009 and 2015
With respect to the generation of construction and demolition waste, as a first approach it is assumed that a yearly generation of construction and demolition waste will be 200 to 300 kg/cap/year. This means a yearly generation of 130.000 to 200.000 tons per annum for the short-term and medium-term perspective.
4.2 Hazardous Waste Forecast
To establish a hazardous waste management system it is necessary to estimate the ongoing generation of hazardous waste amounts and categories. This is not an easy task and normally any exact numbers will not become known until treatment and disposal possibilities have been made available to the generators and even under such circumstances the numbers may be flawed due to underreporting and continued improper disposal on the part of generators.
To attempt to deal with this difficulty an estimation system2 developed for this purpose has been used in combination with findings of various field visits. The system provides unit hazardous waste generation numbers per employee per type of industry and through utilising the project findings, the following generation has been established in accordance with the categories A through Z3.
The following generated hazardous waste amounts have been estimated:
Category A (tonnes/year): 1152 Waste oil Category B (tonnes/year): 3796 Organic waste containing S or halogens Category C (tonnes/year): 916 Liquid, calorific organic waste without S or halogens Category H (tonnes/year): 3810 Organic waste without S or halogens Category K (tonnes/year): Negligible Mercury containing waste Category O (tonnes/year): Negligible Reactive waste Category T (tonnes/year): Negligible Pesticides & herbicides
2 The system was originally based on the reporting of hazardous waste generation in Denmark and further improved though use in various developing countries in the Far East and Eastern Europe. 3 Detailed description of categories to be found in ‘Hazardous and Industrial Waste Management Plan’ 46
Category X (tonnes/year): 8911 Inorganic waste Category Z (tonnes/year): 207 Other waste Total, all Categories (tonnes/year) 18.792
Table 4-12: Forecast of generation of hazardous waste
The Categories A and C seem to be underestimated, but this is due to the fact that only a few motor vehicle maintenance and repair shops have been identified as industrial since they are included in the municipal waste stream. According to the Baseline Report there should be approximately 5.000 tonnes/year of waste oil which is included in this category. This oil has a value and it is therefore to a large extent collected through private initiatives and recycled or used as fuel. It is likely that a dedicated hazardous waste management system will received only small amounts of this category and for the purpose of this report it was decided to use the amount calculated.
To estimate the required design basis for establishing the hazardous waste management treatment system the GDP growth factor4 is used and ten years of growth at this rate is assumed. As design basis for the landfill, twenty years of growth is used.
A certain amount of household hazardous waste will also be generated every year. There is no reliable data on these quantities available, but a good estimate would be in the range from 0.5 to 1 % of the household waste generated. Since Montenegro has relatively low average income level, it is realistic to assume that the number would be in the lower end of this range. The estimated amount of household waste generated is approximately 190.000 tonnes/year and the resulting household hazardous waste generation is therefore 950 tonnes/year.
Household hazardous waste is, however, not expected to be received in large amounts in the treatment system initially because it will take considerable time to raise awareness and introduce procedures and systems enabling separation of the hazardous waste fractions from the household waste. For the purpose of this estimate it is assumed that the treatment facility will receive 500 tonnes per year of household hazardous waste. Since this is not expected to contain much of category X waste, it is assumed that it will contain equal amounts of Categories A, B, C, H and Z wastes.
Furthermore, it is a known fact that not all hazardous waste will actually enter the management system, partly due to improper disposal and partly due to recycling. In addition, cleaner technologies will be developed over the years resulting in less waste generation.
For these reasons, the numbers selected as a design basis are set at 20% caption for the first year of operation and increasing with 10% per year for the next 5 years and stabilising thereafter at 75% of the estimated amounts considering increased amounts of captured waste coupled with decreased production due to cleaner technologies.
With the above assumptions the following hazardous waste amounts are calculated
Design Basis Design Basis After 20 Years Category \ Year 2004 2007 2027 At Start-up Operation 2007 2027 Category A (tonnes/year): 1252 1388 2669 1041 2002 Category B (tonnes/year): 3896 4319 8304 3240 6228 Category C (tonnes/year): 1016 1126 2165 845 1624 Category H (tonnes/year): 3910 4335 8333 3251 6250 Category K (tonnes/year): Negl. Negl. Negl. Negl. Negl.
4 GDP growth factor as defined by the project. 47
Category O (tonnes/year): Negl. Negl. Negl. Negl. Negl. Category T (tonnes/year): Negl. Negl. Negl. Negl. Negl. Category X (tonnes/year): 8911 9880 18994 7410 14245 Category Z (tonnes/year): 307 340 654 255 491 Total, all Categories (tonnes/year) 19292 21388 41119 16042 30840
Table 4-13: Forecast of hazardous waste generation in year 2004, 2007 and 2027
In addition to these waste streams there will be significant amount of MARPOL5 wastes. One Montenegrin company, Hemosan, is already dealing with this type of waste (presently 8.500 m3/year) and is planning to increase its capacity to deal with all MARPOL waste, which is estimated to be 75.000 – 100.000 m3/year. This can be done at a relatively low price since a large portion of oil is recoverable. In addition, the shipping companies seem to be willing to pay for the service and it is assumed that this makes it a viable private business that does not need specific government involvement other than introduction of legislative and enforcement measures.
4.3 Healthcare Waste Forecast
4.3.1 Waste generation
It is understood that no measurements of healthcare waste (HCW) generation have been undertaken in Montenegro. Therefore international studies have been used to estimate current and potential HCW quantities. In the future these figures can be adjusted when data is made available from the implementation of the system. Extensive studies have been undertaken to determine if there are any significant correlations between the quantity of waste produced and healthcare parameters. The unit commonly used for HCW is the quantity of waste produced per bed per day and is expressed in kilograms per bed and day (kg/b*d). The total waste produced by healthcare establishments is calculated by RM + MW + HW6.
Studies in Europe, North and South America have shown that this rate can vary from 1 and 7 kg/bed/day and vary due to the level of complexity and on the degree of specialisation of the institutions. The quantity of SHW (infectious, anatomic, and other hazardous wastes - cytotoxic and cytostatic waste, toxic substances and others) for legal reasons requires special management varies between 3% - 30% of the total waste. Table below contains examples of waste generation for different waste types in other countries.
Amount of waste in kg/b*d Town and Country Hospital Type RM + MW + GHW SHW University Hospital 2,00 0,10 Freiburg, Germany Municipal Hospital 1,40 0,05 Municipal Hospital 1,60 0,20 Buenos Aires, Argentine Private Hospital 3,00 0,30 Beijing, China Municipal Hospital 1,60 0,15 Accra, Ghana University Hospital 1,20 0,20
5 The MARPOL Convention is the main international convention covering prevention of pollution of the marine environment from ships from operational or accidental causes. It consists of two treaties adopted in 1973 and 1978 respectively. 6 RM-recoverable and recyclable materials; MW-waste similar to municipal waste; HW-healthcare waste; HW=GHW+SHW; GHW-general healthcare waste; SHW-special healthcare waste; 48
Freetown, Sierra Leone Municipal Hospital 1,65 0,32 Mean value 1,78 0,22 Overall mean value 2,00 kg/b*d
Table 4-14: Healthcare waste generation unit data
The overall mean figure given in the table above will be used to estimate the volumes of HCW generated in Montenegro. To ensure that this figure is realistic a comparison-calculation has been used to illustrate that the mean value for RM + MW + HW is 2 kg/bed/day.
The Clinical Centre of Montenegro in Podgorica produces 15 of 5 m3 containers of HCW each week which are approximately 70% full. This waste is then transported to the local landfill and dumped. The specific weight of HCW is much lower than municipal waste and by using German measurements the weight for GHW is 250 kg/m3 and for SHW 100 kg/m3. For the total waste generated at healthcare establishments, a mean specific weight of 230 kg/m3 has been used. From this information the following quantity of waste produced by the Clinical Centre can be estimated as:
• 15 containers / week x 5m3 x 70% x 230 kg/m3 = 12.000 kg/week.
The quantity of waste produced from the Clinical Centre of Montenegro, calculated by number of beds is:
• 752 beds x 2 kg/b*d x 7 days = 10.500 kg / week
The correlation between the result from table above and the calculations deemed to be acceptable and the specific value of 2 kg/bed/day represents the current situation in Montenegro and will be used for future waste estimations.
In calculating long term needs of Healthcare Waste Management (HCWM), it must be taken into consideration that as a country develops a stronger economy more waste is usually generated.
Also the waste management process begins with waste avoidance, waste minimization, reuse and recycling techniques. Therefore the quantity of waste produced by a healthcare institution depends not only on the size, type and quantity of services offered but also on the education of the healthcare personnel, the standard of services, the infrastructure of the healthcare establishments, the economy and the local traditions. Efforts should be made to install effective recovery systems for reusable and recyclable materials as to reduce the amount of waste that has to be disposed.
Considering all this factors, the estimation of the total future production of RM, MW, GHW and SHW is based on the following assumptions and figures:
• Specific amount values of the different waste types: RM + MW + GHW 1.80 kg/bed/day SHW 0.20 kg/bed/day
• Average repartition of the different waste fractions of HW: Waste Type Amount of waste in kg / day / bed Recoverable material RM 0,60 Similar to MW 0,60 GHW 0,60 SHW 0,20 Table 4-15: Healthcare waste unit data per day and bed
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• Population growth: For the calculation of the future generation of HCW the population growth must be considered.
Residential Population in Montenegro Municipality No Census 1991 Census 2003 Alteration vs 1991 Podgorica 1 145.696 168.812 15,9%
Niksic 2 Central 73.878 75.274 1,9% Cetinje 3 Region 20.139 18.500 -8,1% Danilovgrad 4 14.573 16.376 12,4% 254.286 278.962 9,7% Bar 5 34.282 39.688 15,8% Herceg Novi 6 27.006 32.988 22,2%
Ulcinj 7 Coastal 19.667 20.326 3,4% Kotor 8 Region 22.112 22.650 2,4% Budva 9 11.538 15.671 35,8% Tivat 10 11.146 13.481 20,9% 125.751 144.804 15,2% Bijelo Polje 11 54.437 49.967 -8,2% Pljevlja 12 39.188 35.751 -8,8% Berane 13 37.473 34.912 -6,8% Rozaje 14 22.330 22.559 1,0% Plav 15 15.684 13.725 -12,5% Mountain Mojkovac 16 10.725 10.015 -6,6% Region Kolasin 17 11.044 9.934 -10,1% Andrijevica 18 6.552 5.697 -13,0% Pluzine 19 5.219 4.270 -18,2% Zabljak 20 4.900 4.206 -14,2% Savnik 21 3.680 2.938 -20,2% 211.232 193.974 -8,2% Total 591.269 617.740 4,5%
Table 4-16: Estimate of population growth related to generation of HW
Table above shows an increase of 4.5% in population growth for a period of 12 years.
• Bed capacity in hospitals
The existing bed capacity of the hospitals in Montenegro is currently about 2.440 beds with a population served of approximately 618.000 residents, which results in approximately 4 beds per 1,000 residents.
Public healthcare institutions Number of beds in 2002 Healthcare Centres 51 Public Hospitals 2.296 Military Hospital 90 Total 2002 2.437
Table 4-17: Estimate of number of beds in 2002
• Forecast period
The plan requires a short term (up to 5 years) and long term (up to 20 years) interventions.
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Based on these figures it can be estimated the following population growth and hospital bed needs for Montenegro:
Year Population Hospital beds required 2004 620.000 2.480 2009 632.000 2.530 2024 670.000 2.680
Table 4-18: Forecast of number of beds required
4.3.2 Medium and long term waste forecast
Therefore the following estimation of amounts of healthcare waste for the medium term period, year 2009:
Waste Type Hospital beds 2009 Specific quantity kg/bed/ day Waste Quantity in kg in 2009 RM 2.530 0,60 1.520 MW 2.530 0,60 1.520 GHW 2.530 0,60 1.520 SHW 2.530 0,20 510 Total 5.070
Table 4-19: Forecast of HW waste quantities in 2009
The estimation for healthcare waste for the long term, year 2024:
Waste Type Hospital beds 2024 Specific quantity kg/bed/ day Waste Quantity in kg in 2024 RM 2.680 0,60 1.610 MW 2.680 0,60 1.610 GHW 2.680 0,60 1.610 SHW 2.680 0,20 540 Total 5.370
Table 4-20: Forecast of HW waste quantities in 2024
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4.4 Sewage Sludge Forecast
The sludge production forecast is based on the data originating from Wastewater Master Plans for Coastal, Central and Northern Region. The management plan operates with the three implementation scenarios:
Short Term: At present there is no sewage treatment plant in function except in Podgorica.
Mid Term: 2009 – it is planned to construct in several municipalities sewage treatment plants according to the present connection rate of 36% - 40%. It is also planned to start up with primary – mechanical cleaning which processes untreated raw sludge.
Long Term: 2019 – it is planned to increase the connection rate up to 80% in several municipalities and to implement secondary treatment (biological and stabilization).
The design of future treatment facilities, transport system and associated investments are based on the sludge generation forecasts as outlined in the table below: Sludge Sludge Sludge DS/year) DS/year) DS/year) Plant (tonnes of (tonnes of (tonnes of Production Production Production Sludge Region Region Landfill Landfill Sewage
Municipality Municipality 2004- 2008-2019 2019-2028
Herceg Novi 1 (X) 1.785 1.785 Bar (X) 2.450 2 Ulcinj (X) 1.020 1.020 Kotor+ Tivat (with Tivat) 1.785 1.785 Coastal 3 Budva (X) 965 Cetinje (X) 790
Podgorica 4 X 1.650 5.240 6.560 Danilovgrad (X) 90 635
Niksic Central (X) 470 2.920
Savnik 5 (X) 20 115 Pluzine (X) 25 165 Berane (X) 195 1.355 6 Rozaje (X) 125 880 Bijelo Polje (X) 280 1.940
Mojkovac 7 (X) 55 390
Kolasin Northern (X) 55 395 Andrijevica (X) 30 220 Plav (X) 75 530 8 Zabljak (X) 30 175 Pljevlja (X) 200 1.390 SUM 1.650 11.480 26.465 Table 4-21: Sludge generation forecast
Sludge production expressed in the amount of dry solids will increase essentially when wastewater plants will go on-stream from year 2009 onwards. It is expected that during the period 2009 through 2019, the sludge production will more that double. Gradual introduction of municipal wastewater plants will result in production of following sludge amounts as related to regions: Total sludge production Year 2009- Year 2019- tonnes of (DS) per year Coastal Region 2.805 5.990 8.795 Central Region 4.150 3.608 10.115 Northern Region 1.090 4.945 7.555
Table 4-22: Sludge generation data in the regions
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5.0 Waste Management Strategy
5.1 Waste management framework
National Waste Strategy set out a framework for change in the way Montenegro deals with waste facilitated by a statutory and policy framework for waste. The Strategy shall be supported by the existence of the network of waste management facilities, data on waste generation and characteristics on waste treatment and disposal.
The key elements of the strategy are:
• to reduce the generation and environmental impact of all forms of waste;
• to ensure that the health of people and the quality of environmental resources are no longer effected by mismanagement of waste;
• to address all elements of waste hierarchy;
The Master Plan represents in our opinion the best overall balance between the benefits and impacts, both in principle and for the specific waste stream in question. The application of future permitting and enforcement procedures helps to reduce the amount of waste being generated, or help to re-use or recover value from waste.
The Master Plan assures that there is adequate provision of waste management facilities to meet an appropriate share of national requirement, having regard to Montenegro’s ability to absorb further waste development without unacceptable adverse impact upon people, transportation systems or the environment.
The Master Plan secures sufficient permitted (EU compliant) landfill capacity to dispose of the waste arising in Montenegro during the coming twenty years period. It is anticipated that the pattern of waste management will change in response to initiatives to move waste up the waste hierarchy and away from landfills. Hence the Montenegro Waste Master Plan has been prepared on the basis of the following specific objectives:
• self-sufficiency in management of waste generated;
• new and EU compliant intermunicipal waste disposal sites;
• integrated waste management system based on the principles and policies outlined in the National Waste Management Policy; Any process of change can be painful for the parties involved and need to be positively driven by committed players. Taking this strategy forward will require positive action in the following areas:
• raising public awareness of the waste issues;
• improving the quality and flow of information;
• changing behaviour of the key players;
• developing initiatives to move waste up the hierarchy;
• facilitate the development of the network of waste management facilities;
• establishing statutory base where necessary;
This Plan is an integrated proposal taking into account major aspects impacting the achievement of strategic goals. This is depicted in the following figure, where both waste hierarchy, waste management and their impact on individual waste streams is taken into account.
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Figure 5-1: Integrated Waste Management
Municipal Waste Waste Prevention
Hazardous & Waste Industrial Waste Reduction
Sewage Sludge Waste Recycling
Institutional & Waste Legislative Set up collection, treatment, transport, and disposal
It is our hope that this Plan will contribute to establishment of an effective and comprehensive framework, including an organisational structure, infrastructure and services in order to achieve sustained improvement of current waste management practices.
5.2 Strategy for Individual Waste Streams
Waste Management system has to be organised in such a way that there is a smoothly operating system and a high degree of environmental protection. The development of new waste management facilities and services will take time to put in place and during this initial period there will need to be a continuing reliance on landfill disposal. As new facilities and services are developed and introduced, the reliance on landfill disposal will be significantly reduced. However, landfills will always be required in order to provide a final disposal route for municipal and hazardous waste and some of the residues from recycling, composting and for materials that can only be safely dealt with by disposal to landfill. There will therefore be a need to secure landfill capacity for some of municipal and treated hazardous waste throughout the lifespan of this strategy.
5.2.1 Management of municipal waste
The Plan describes measures associated with basic elements of the management of municipal waste with special emphasis on the household and commercial waste. Municipal waste management services related to collection, transport, storage, utilisation and finally disposal shall be available to all citizens of Montenegro to the extend feasible in the coming years. Same shall apply to economic entities (enterprises, institutions and organisations). The services provided shall comply with the environmental, techno-economical and hygienic requirements. It shall also be convenient and affordable to customers.
The entire system shall be based on the established waste forecast, covering waste generation during next decade. Intermunicipal or even regional solutions shall be promoted in order to reduce costs and utilise capacities and capabilities of the future municipal waste management system.
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5.2.2 Management of hazardous waste
Management of hazardous waste is based on the principle that the management of waste generated is the responsibility of waste generators. However it is the responsibility of the authorities to assure that facilities able to treat this kind of waste are established and are able to treat both liquid and solid hazardous waste. It is also responsibility of the authorities that the treatment facility is associated with the adequate system of collection and registration of waste and is functioning in environmentally correct manner.
The established hazardous waste management infrastructure shall encompass the waste disposal facilities consisting of hazardous waste landfill, stabilisation facilities and in longer terms incineration facility. Management of accumulated hazardous waste and polluted areas shall be addressed in the Plan supported by improvements in the legislative system and availability of financing sources. The collection and transport of hazardous waste shall be based on the ‘manifest system’ which follow the waste from the place of generation to the place of final disposal.
5.2.3 Management of healthcare waste
The Plan addresses establishment of an infrastructure for safe disposal of healthcare waste.
It is the responsibility of the individual healthcare waste generator to ensure that the premises for which it is responsible meet the necessary requirements. Additionally, compliance with an effective policy on healthcare waste, from its generation to its disposal, is essential. The strategy needs to be endorsed by senior managers and backed through clear lines of accountability.
This Management Plan outlines:
• Waste categorisation criteria; • Policies on waste handling and transfer, setting out the arrangements — with sufficient investment in suitable equipment;
• Appropriate arrangements for storage, transportation and disposal of clinical waste which are both cost effective and flexible enough to adjust, so far as possible, to future changes in regulations and demand; • Satisfactory methods by which healthcare waste can be rendered safe in a manner consistent with environmental protection.
5.2.4 Management of sewage sludge
The strategy of the “Management Plan for Sewage Sludge” is to outline measures related to:
Institutional aspects; Legal Aspects; Technical Aspects; Managerial Aspects; Financial Aspects; Implementation Activities;
The Plan also implements waste hierarchy measures with respect to reduction of generated sludge quantities and its reuse/recycling. Processing of the sludge delivered from the sewage plant is essential part of the Plan and due attention to be given to technical issues, making the sludge treatment system most efficient at the lowest possible investment costs.
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5.2.5 Management of waste dumps
Current management of existing municipal waste dumpsites is deficient and there is a lot of room for improvements which can be implemented immediately. This is applicable both for landfill operational plans and presence of necessary equipment.
It is immediate requirement that operators of the dumpsites prepare a technical and financial strategy for remediation/rehabilitation and include all necessary closure measures in order to reduce environmental impact.
The first immediate steps are already proposed in the Plan with respect to each particular dumpsite. Implementation of these recommendations would be the first step in the improvement of current operational conditions and therewith improvement of current environmental situation. The final closure and remediation of existing dumps shall be performed when new landfills become operational. The closure/remediation process shall take place based on the established priority list.
5.2.6 Management of recycling system
Strategy for the national recycling system for the coming ten years period is based on the proposed management of municipal waste and is focussing on following issues:
• Separate collection at the source and recycling of paper and cardboards from waste from households, small entities and commercials; • Separate collection at the source and recycling of glass from waste from households, small entities and commercials; • Separate collection at the source and recycling of tins and cans from waste from households, small entities and commercials; • Separate collection at the source and composting of green waste; • Recycling of construction and demolition waste; This recycling strategy also considers one additional recycling activity which is not an integral component of a recycling system in a narrower sense:
• Separate collection of hazardous waste from households and small entities;
5.3 Cost recovery
5.3.1 General
In the area of waste management, it is important to ensure greater environmental effect from the investment made. Many factors play a part in which solution should be chosen – available treatment and collection technologies, willingness to separate waste, and many others.
For the proposed waste management methods, the basis was the knowledge that the environmental effect achieved through a specific measure also corresponds to the cost. The cost of providing an adequate institutional structure and implementation of management plans with the associated facilities imposes the requirement of full cost recovery through charging of waste generators for the management of their wastes. The costs arising during implementation of the proposed landfill sites will incur not only initial capital costs but also recurring annual cost for operation and maintenance together with long term costs for restoration and aftercare. The Waste Management needs to give great attention to economic factors in decisions, so that collection methods and form of treatment are chosen that are environmentally and cost effective.
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Householders are unaware of the full cost of collecting and disposing of their wastes since this is simply presented as a waste collection fee. In some cases, local authorities are unwilling to place the full cost of collection and disposal on their waste collection customers. The actual cost of these services is therefore not fully understood by householders and producers of commercial waste. There is some evidence to suggest that where full costs are applied, householders and businesses try to avoid them by fly tipping. A culture change is needed to ensure people recognise the environmental costs of their activities and to be prepared to pay them. Local authorities need to ensure that local businesses are aware that commercial waste collection and disposal costs are not part of the uniform business rate. The cost of household waste collection and disposal arrangements should be separately identified on the tax bill to ensure householders are aware of such costs.
5.3.2 Lack of investment
The movement from current collection and disposal arrangements towards more sophisticated separate collection systems and recycling facilities will involve high transition costs. The consequential savings realised through moving up the hierarchy are not always fully recognised or achievable by the waste producer, particularly in respect of household waste. However, rising disposal costs resulting from higher landfill standards, Landfill Tax and the need to reduce biodegradable waste disposed of to landfill, are focusing attention on the issue of investment now to bring about future savings.
Therefore the strategy contains several new initiatives covering the entire waste management spectrum and main waste streams. The majority of these initiatives are directed towards improvement of the existing system through implementation of EU directives, and making new knowledge available through implementation projects. The Strategy cannot be implemented without financial support for the majority of the initiatives outlined.
5.4 Public awareness process
Waste represents resources that are on their way to being lost. The challenge ahead is to limit the loss of resources as far as possible, in an efficient manner, taking into account both the environment and economics. Preventing the loss of resources is not an easy task and it is vital that people and enterprises are actively involved. Information must make it clear to people and enterprises where they can make a difference. Local solutions will be given focus, and the benefit must be clear for the relevant players. There must be no doubt about when and where it is worth saving resources.
All elements of the waste management system are of great importance in relation to society as a whole. Therefore campaigns related to issues of waste collection, recycling and disposal shall be elaborated and implemented soonest possible. Special attention shall be given to illegal dumping which seems to be widespread throughout the country. Illegal dumping is a major problem that raises significant concerns with regard to safety, property values, and quality of life in the communities. In addition, it is a major economic burden on local government which is typically responsible for cleaning up dump sites.
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6.0 Management Plans
6.1 Municipal Waste Management Plan
6.1.1 Introduction
This Municipal Waste Management Plan defines a fundamental future orientation of the way the municipal waste is going to be managed in the coming years as a consequence of new governmental waste management policy adopted in 2004.
The existing system of management of municipal waste is not leaving up to the requirements of being an integrated and sustainable system. Initial investigation revealed that the necessary equipment for the daily collection of waste in not available or in technically bad conditions. As a result the waste collection rate is not appropriate. The amount of waste disposal containers in municipalities improved recently but the situation in this respect is far from ideal. The disposal facilities or rather ‘waste dumps’ throughout the country are not leaving to EU Landfill Directive requirements and have to be replaced as soon as possible by a net of EU-compliant landfills. No formal system of collection and utilisation of recyclables and a net of recycling facilities exists and is not supported by the waste and packaging accounting system.
As a consequence of the present situation, a plan for upgrading of the system has been proposed focusing on the following issues:
• Stepwise extension of the waste collection rate; • Establishment of catchment areas for municipal waste; • Establishment of a net of intermunicipal landfills based on the established catchment areas; • Establishment of a formalised system of waste recycling;
Municipal Waste Management Plan is furthermore supported by the Municipal Waste Recycling Strategy outlined under point 6.8 of this Plan.
Major aspects of institutional strengthening, technical needs and investments have been considered and are part of the management plan, which operates with both short (2005- 2009) and medium term (2010-2014) activities.
6.1.2 Institutional
Today’s municipal waste management requires specialisation, large investments and high operational costs. It is therefore of highest importance that the costs of waste management and the establishment and operation of the municipal waste management is optimised. This can be done by establishment an intermunicipal company undertaking all the functions required by a modern waste management system on line with the proposed establishment of intermunicipal company managing establishment and operation of the intermunicipal landfill.
The quite essential costs involved in running the municipal waste management company requires a high amount of waste generators if the waste fee has to be kept at reasonable and affordable level for the public. Additionally following advantages will be obtained by the proposed set up:
• Company will be specialised on waste management issues; • High specialisation of the workshops will be possible; • High degree of equipment utilisation can be obtained; • Better negotiation position towards decision makers and financial institutions; • Higher preparedness for future competition;
It is proposed that the waste management company is established on the basis of common existing legal principles with involved municipalities as shareholders. Transfer of function and departments from the existing municipal waste management companies should take place in order to maintain and
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expand the existing activities and to make this transition as smooth as possible and utilising the existing know-how accumulated during years of operation.
6.1.3 The management system
Traditionally in Montenegro waste management is handled on a municipal level by individual local authorities. In recent years, with the policy trend away from landfill and towards more innovative solutions to municipal waste management, the regional approach is being encouraged. Many of the possible solutions such as recycling, biological treatment, thermal treatment and new standards with regard to the landfill of waste are quite onerous and expensive. Thus significant benefits accrue from the regional approach in terms of economy of scale, particularly in less densely populated rural municipalities.
Therefore the proposed system of management of municipal waste consists of following elements:
• Intermunicipal waste management companies; • A network of intermunicipal waste landfills; • Waste collection and transport system; • Appropriate fee structure; • Appropriate legislative structure; • Appropriate institutional structure.
It is envisaged that the municipal waste will be managed by eight intermunicipal waste companies (as described under point 6.1.2 above) and facilitated by the presence of a network of EU compliant landfills and appropriate waste collection and transport system. The collection rate shall increase every year for the coming time and shall cover in ten years time 100 % urban areas and 75 % rural areas. This gives on average a coverage rate of 92 %.
6.1.4 Municipal waste infrastructure
The proposed system of the management of municipal waste is based on a comprehensive infrastructure which is build to the certain extend on the existing system of waste collection and transport.
The key elements of the future waste plan infrastructure incorporates activities also related to recycling of fractions of municipal waste, such as paper, glass, plastic and C&D waste.
It is proposed that the future waste infrastructure consists of following elements:
• The current kerbside collection of municipal waste is maintained and expanded so goals outline under 6.1.3 ‘Management system’ are achieved;
• A collection and transport system of municipal waste and recyclables;
• A network of recycling collection points is established and maintained in order to start initial systematic recycling activities and gain necessary experience;
• A network of Civic Amenity Sites is established facilitating collection of recyclables and supplementing the network of collection points. Delivery of municipal special waste and municipal hazardous waste is promoted though existence of CAS.
• A network of green waste composting facilities being part of the recycling system and possibly future sludge management;
• A network of Construction & Demolition waste recycling facilities;
• A network of EU-compliant intermunicipal landfills;
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In order to comply with these requirements, a system of existing kerbside collection shall be expanded significantly through presence of adequate amount of large capacity compactor trucks (20 m3) supplemented with adequate amount of containers with volume of 1.1 to 10 m3. Additionally a certain amount of skip trucks shall be available for collection of waste disposed in skip containers having capacity of 3 to 7 m3.
The analysis of the distances to the intermunicipal landfill revealed that the longest distance exist from Andrijevica (50 km), Plav (75 km), Pluzine (65 km) and Zabljak (75 km). The preliminary analysis of a possibility of introduction of compactor equipped transfer stations showed that this option is not economically viable as compared with collection and transport of waste by 20 m3 compactor trucks.
An essential part of the infrastructure is availability of well equipped and capable workshops allocated to each intermunicipal company in order to maintain rolling stock and repair possibilities of collection containers. It is also important that landfill compactors and loaders are maintained at the same workshops.
A network of Civic Amenity Sites (CAS) has been proposed with the criteria that each municipality should have at least one CAS. The presence of CAS and recycling collection points supplement the municipal waste collection system and is described in more details in chapter 6.8.2 ‘Proposed recycling system’. As not all municipalities require a fully equipped CAS, a number of partially equipped CAS has also been introduced. A review of the proposed number and location of future CAS is outlined below.
Name of the Associated Number of Fully Number of Partly Catchment Area Municipalities Equipped CAS Equipped CAS
Podgorica 5 Cetinje 1 Podgorica Danilovgrad 1 total 7 Niksic 2 Pluzine 1 Niksic Savnik 1 total 2 2 Bar 1 Bar Ulcinje 1 total 2 Herceg Novi Herceg Novi 1 Kotor 1 Budva 1 Budva Tivat 1 total 2 1 Bijelo Polje 1 Mojkovac 1 Mojkovac Kolasin 1 total 1 2 Plevlja 1 Plevlja Zabljak 1 total 1 1 Berane 1 Rozaje 1 Berane Plav 1 Andrijevica 1 total 2 2 Montenegro 18 8 Table 6-1: Review of location of Civic Amenity Sites
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6.1.5 Equipment needs
Based on the outlined municipal waste management system and the waste forecast for the short (2005-2009) and medium term (2010-2014) period, following equipment needs to have been established:
Short term:
Catchment Area 20 m3 compactor 1,1 m3 containers 5 m3 containers Skip truck Bar 3 1.086 262 1 Berane 2 535 215 1 Budva 2 1.639 143 1 Herceg Novi 3 952 110 1 Mojkovac 2 410 183 1 Niksic 4 1.933 137 1 Pljevlja 1 444 66 1 Podgorica 6 5.684 303 3 TOTAL 23 12.683 1.419 10
Table 6-2: Review of equipment needs, short term municipal waste management
Medium term:
Catchment Area 20 m3 compactor 1,1 m3 containers 5 m3 containers Skip truck Bar 2 1.356 328 1 Berane 1 630 255 1 Budva 3 1.866 159 1 Herceg Novi 1 1.115 129 1 Mojkovac 1 494 221 1 Niksic 2 2.089 149 1 Pljevlja 1 464 69 1 Podgorica 5 6.358 344 3 TOTAL 16 14.372 1.654 10
Table 6-3: Review of equipment needs, medium term municipal waste management
With respect to the equipment needs related to the national recycling system, following requirements are established for short and medium term perspective:
Short term perspective (2005-2009):
Number of recycling containers Catchment Area Paper Glass Tins & Cans Yard TOTAL &Cardboard Waste Bar 418 130 196 117 861 Berane 203 92 128 127 550 Budva 417 139 208 91 855 Herceg Novi 265 83 124 64 536 Mojkovac 132 62 107 87 388 Niksic 301 101 173 96 671 Pljevlja 74 32 55 36 197 Podgorica 646 297 486 259 1.688 TOTAL 2.456 936 1.477 877 5.746
Table 6-4: Review of the number of required recycling containers, short term
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Medium term perspective (2010-2014):
Number of recycling containers Catchment Area Paper Glass Tins & Cans Yard TOTAL &Cardboard Waste Bar 644 251 452 207 1.554 Berane 303 135 279 214 931 Budva 575 224 446 141 1.386 Herceg Novi 380 148 267 104 899 Mojkovac 247 113 232 177 769 Niksic 386 157 322 136 1.001 Pljevlja 106 48 94 48 298 Podgorica 1.124 477 913 396 2.910 TOTAL 3.765 1.553 3.005 1.423 9.746
Table 6-5: Review of the number of required recycling containers, medium term
6.1.6 Investment costs
Substantial capital and operational costs are required to implement the new strategy. These costs are a combination of capital and operational costs which can be passed into private sector service providers in terms of collection costs and gate fees and also planning/regulation/public education costs. These latter local authority costs cannot be passed on nor can the costs of remediating closed landfills. Substantial funding is therefore required for each local authority to meet non-operational legal responsibilities. These costs must be borne by the local authorities.
If not covered by an enhanced gate fee at public facilities, these will have to be paid from other funding sources or other similar mechanism. A further option is the introduction of a landfill tax and its diversion to local authorities to meet their new obligations under the Waste Management Legislation. Private/Public Partnerships (PPP’s) involving the local authority and private sector may be a further institutional arrangement as a funding mechanism.
The necessary investment costs are outlined below and are based on the equipment needs defined in the previous chapter.
6.1.6.1 Collection equipment:
Short term (2005-2009):
All investments are in €
Catchment Area 20 m3 compactor 1,1 m3 containers 5 m3 containers Skip truck TOTAL Bar 405.000 299.866 183.389 90.000 978.255 Berane 270.000 147.658 150.215 90.000 657.873 Budva 270.000 452.344 100.296 90.000 912.640 Herceg Novi 405.000 262.853 77.128 90.000 834.981 Mojkovac 270.000 113.237 128.367 90.000 601.604 Niksic 540.000 533.577 95.616 90.000 1.259.193 Pljevlja 135.000 122.443 46.541 90.000 393.984 Podgorica 810.000 1.568.750 212.148 270.000 2.860.898 TOTAL 3.105.000 3.500.728 993.700 900.000 8.499.428
Total investment costs: 8.499.428 €
Table 6-6: Total costs for collection equipment, short term
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Medium term (2014):
Catchment Area 20 m3 compactor 1,1 m3 containers 5 m3 containers Skip truck TOTAL Bar 270.000 374.147 229.429 90.000 963.576 Berane 135.000 173.806 178.406 90.000 577.212 Budva 405.000 515.141 111.551 90.000 1.121.692 Herceg Novi 135.000 307.736 90.298 90.000 623.034 Mojkovac 135.000 136.245 154.816 90.000 516.061 Niksic 270.000 576.585 104.288 90.000 1.040.873 Pljevlja 135.000 127.930 48.603 90.000 401.533 Podgorica 675.000 1.754.809 240.851 270.000 2.940.660 TOTAL 1.158.242 900.000 8.184.641
Total investment costs: 8.184.641 € Table 6-7: Total costs for collection equipment, medium term
The cost of maintenance and operation should be considered as additional to the numbers above and can be found in the ‘Municipal Waste Management Plan’.
6.1.6.2 Workshops
It is envisioned that each of the catchment areas shall establish a workshop with proper tools and equipment as well as spare parts and other consumables as required for proper repair and preventive maintenance of the vehicles, containers and other equipment. Since the present status of the workshop buildings and equipment is unknown a provisional sum should be set aside per catchment area. This sum is consisting of the following main items:
1. Refurbishment of existing buildings € 40.000 2. Tools and equipment € 30.000 3. Spare parts and other consumables € 20.000 4. Miscellaneous € 10.000
Total per catchment area € 100.000
It is also estimated that each workshop on average will require one month initial training and one month follow up training about a year into the operation. Provision of a training expert with local support etc. for 16 man-months will cost about € 350.000.
Costs of capacity building at all administrative levels have not been substantiated in this report. However it is necessary to consider that preparation of supporting legislation, training and establishment of data collection, permitting and enforcement system will require additional investments, especially prior and during initial phase of the implementation of the plan.
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6.2 Hazardous and Industrial Waste Management Plan
6.2.1 Introduction
The focus of future Montenegrin hazardous and industrial waste management should be to achieve sustainable development and cleaner production, together with an emphasis on good waste management practices.
Pollution prevention is preferable to reliance on end-of-pipe pollution controls. However, although cleaner production and pollution prevention can reduce the quantities of waste and eliminate pollutants, treatment and disposal of remaining wastes will still be required.
Today there is virtually no knowledge of even the most basic data on industrial and hazardous waste. There is no database containing basic information on all enterprises in the country. Furthermore, there are virtually no attempts to manage industrial and hazardous waste in a proper manner resulting in various, some of these very severe pollution and contamination problems and, finally, the capacity of the authorities to enforce existing legislation is extremely limited although the existing legislation to a large extent provides the required power.
A basic assumption in connection with formulating a management strategy is that wastes are defined by EU waste list 2000/532/EC. More operational definitions, for the purpose of defining treatment and disposal methods for hazardous wastes, are, however, introduced.
6.2.2 Institutional
Controlling Hazardous and Industrial Waste will be the responsibility of the Environmental Protection Agency (EPA). In certain cases the EPA may delegate the controlling authority to the municipality where the generator is located.
Management of Hazardous and Industrial Waste is the responsibility of the generator. The generator of non-hazardous industrial waste has three options:
1. The waste can be dealt with by the generator locally 2. The industry can contract the local municipality to collect the waste, or, 3. The industry can contract with a private permitted management company.
Likewise, hazardous waste can be managed by the generator, provided reuse or recycling is performed within the process generating the hazardous waste. If the hazardous waste is no longer contained within the process, any management method requires a permit by the EPA, or that the hazardous waste is delivered to the national hazardous waste management system by permitted transporters.
6.2.3 Hazardous waste
A National Hazardous Waste Management System shall be established. This consists of the necessary rules and regulations, including enforceable permitting requirements as well as a treatment and disposal facility, which for the first years will also serve as a temporary storage and transfer facility for export of the most difficult waste to treatment facilities abroad.
The intention is that the treatment and disposal facility initially will be established as a public utility owned by the government. Since the EPA is the controlling authority, EPA and the Ministry of Environment obviously are excluded as possible owners of such a facility, and another ministry, or organisation should be chosen for this. The facility will be similar to any other process industry in character, and it therefore seems reasonable that the ministry mostly involved with industry and dealing with industry’s concern is also the facility owner. In Montenegro, that is the Ministry of Economics and therefore this ministry should
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be the facility owner. This arrangement will provide a clear split of responsibilities between the controlling authority (EPA) and the owner and operator. Another option would be to establish private or public/private ownership of the facility. This option should be preferred as this could ease financing of the plant and would comply with current privatisation efforts of the government.
In the case of public ownership of the plant, it is foreseen that the facility be privatised after a certain period of time. The exact timing will have to be decided upon after the system has been established and industry has been taught to apply and utilise the system properly. It is envisaged that a period of 5 to 10 years will be required for this.
The operation of the hazardous waste treatment and disposal facility requires special inputs. It is therefore recommended that intensive capacity building be provided through the first three years of operation.
6.2.4 The System
Initially some waste will be exported so that it is not necessary to establish an expensive “under- utilised” incinerator until a real need has been established. The facility required for proper management of hazardous waste will therefore be constructed in stages and in such a way that some of the units can be used first for temporary storage and export and later as integrated parts of the complete treatment facility.
The concept of the management system is outlined below and depicts functions and elements which are expected to be part of it. All elements, such as services, commercial activities, households and industry are assumed to generate hazardous waste. The key elements of the system are local authority collection system, Civic Amenity Sites and treatment centre. This proposed set up shall be supported by appropriate legislative, enforcement, manifest and data system.
Figure 6-1: Layout of the hazardous waste management system
SERVICES COMMERCIAL
Waste Other Households Industry Oil hazardous waste
Oil Other
Waste hazardous
t
LOCAL AUTHORITY Recycling and recovery COLLECTION SYSTEM
TEMPORARY STORAGE (Civic Amenity Sites)
HAZARDOUS WASTE TREATMENT CENTRE
INDUSTRY Storage Storage facilities Landfill Stabilisation/ Solidification unit Incineration plant
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It is suggested that a treatment facility and an integrated landfill will be located at an area close to KAP, which is believed to be the largest hazardous waste generator in Montenegro. A fence will enclose both the facility and the landfill. The access will be through a gate where there is a guardhouse. Adjacent to this a laboratory and administration building will be located. The traffic on the site is planned to give a natural flow between the gate, the unloading areas, the storage areas, stabilisation and the secure landfill.
The following design basis has been established:
Export capacity (tonnes per year – to 2015) 3.982 Inorganic treatment/stabilisation capacity (tonnes per year)7 15.057 Capacity of incinerator (tonnes per year - from 2015)8 8.776 Landfill capacity (m3 for 20 years operation) 280.125 Area required for landfill (hectares) 47 Area required for the whole facility (hectares) 8
Table 6-8: Design parameter for hazardous waste facility
Hazardous waste poses, by its very nature, a potentially serious risk should accidents occur during transportation. Therefore, safety and risk aspects of the transportation arrangements have to be considered carefully and these transportations should all be considered as transportation of dangerous goods, and the necessary precautions should be taken. The relevant authority of Montenegro should issue a certificate of approval for each vehicle.
The hazardous waste treatment facility shall only accept waste that is fully identified and declared in a Manifest. The Manifest form shall be obtainable from the treatment facility. The Manifest describes the waste and its classification and it is the basis for the correct handling during transport as well as the appropriate final treatment, thus forming the basis for all subsequent activities. Figure below depicts such a system, where all three elements, generator, transporter and Treatment, Storage and Disposal (TSD) facility are involved.
Fig. 6-2 Layout of the proposed manifest system
7 Estimated required capacity in year 2020. 8 Estimated required capacity in year 2020. 66
As a first important step, a Conceptual design has been developed as a basis for a detailed cost estimate for the hazardous waste treatment system. Associated estimates of the operational costs have also been established. To ensure that the facility is properly managed a proposal for capacity building has been developed with the related costs.
6.2.5 Community hazardous waste
In addition to industrial hazardous wastes, there will be other hazardous waste streams that need to be managed properly. This includes hazardous waste generated from community activities such as household hazardous waste and hazardous waste from commercial activities, institutions and smaller vehicle maintenance facilities (garages).
Community hazardous waste generators include the following target groups:
• Hotels • Schools and universities • Petrol stations • Photo shops • Print shops • Garages • Laundries and dry cleaners • Office buildings • Governmental institutions • Households
A system consisting of special collection trucks manned with specially trained staff and interacting with the community amenity sites is described and related cost estimates are presented.
6.2.6 Issues of special concern
Contaminated Sites
Several environmental studies have been performed, or are in the process of being performed at KAP, but none of them are comprehensively dealing with the wastes that have been disposed of. It is therefore recommended that Terms of Reference (TOR) for a study of this sector be developed. The TOR should include a definition of a sampling and testing programme as well as specific definitions of Objectives, Outputs, Tasks, Method of Work as well as Inputs.
The resulting study should as a minimum include the following:
• Extend of serious groundwater pollution from the disposal sites; • Plan for minimising the continued spread of the groundwater pollution; • Plan for future protection of the groundwater; • Plan for remediation of the disposal sites (red mud, anodes, hazardous waste and PCB); • Cost estimate for the above.
Other contaminated sites identified in this study include the following:
• Residues from the scrap iron and steel plant HK Zeljezara, Niksic; • Tailing pond from the mine Suplja Stijena in Pljevla; • Tailing pond from the mine Brskovo in Mojkovac;
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As for the KAP ponds and dump sites, ToRs should be developed for elaboration of remediation studies. Also, other larger industries should be investigated similarly since the sites are highly likely to be greatly contaminated.
PCB
PCB (polychlorinated biphenyls) has been and is still used mainly as a dielectric fluid or insulator in capacitors and transformers.
Although a specific survey of PCB has not been performed throughout Montenegro, the main sources and potential sources have been identified in the course of project.
Electricity generation, transmission and distribution could be expected to have large amounts of PCB, but an internal survey showed that no oil exceeding even 10% of the EU limit of 50 ppm were in existence.
The major amount of PCB and PCB contaminated oils and materials have been identified at KAP. KAP may have close to 700 tonnes (including transformers and capacitors) and more may be identified in connection with remediation of the hazardous waste dump site. A smaller amount is located at the Niksic steel works (less than 2 tonnes including capacitors) and at Port Bar (less than 6 tonnes of PCB/PCB polluted transformer oil).
It is likely that other industries also have small amounts of PCB stored or in operation, but most likely the total amount in Montenegro is less than 700 tonnes.
The following action is recommended:
1. The PCB not in operation to be exported for destruction immediately
2. PCB containing equipment still in operation should be replaced as soon as possible or at least phased out in accordance with EU requirements
Alternatively a specialist contractor can be employed to perform the collection in Montenegro and export the PCB to a special hazardous waste incinerator for destruction. Several hazardous waste management companies may provide such service.
6.2.7 Non-hazardous Industrial Waste
The nature of non-hazardous industrial wastes may be very distinct in nature and are often generated in large amounts. This makes it unrealistic to develop a central treatment centre for such wastes and individual solutions will have to be developed for various types of industry.
The long term goal is to introduce the EU IPPC9 Directive through the national law. Working text of this law has already been prepared10. Short (and long) term the emphasis shall be on implementation of cleaner technology within the industry. This shall be achieved through capacity building and training of industry.
It should be considered to establish an organisation charged with the responsibility to advice and educate industry in cleaner production methods (with a view to the IPPC requirements) and, if cleaner production is not feasible, in proper waste management methods (obviously also including hazardous waste). Such an organisation could:
• Prepare, implement and report on cleaner production pilot projects in selected industries; • Advise industry on hazardous and non-hazardous waste management methods;
9 Integrated Pollution Prevention and Control 10 Serbia & Montenegro – EU Fifth Meeting, Podgorica, 16 July 2004 68
• Prepare awareness campaigns on the subjects above; • Implement the awareness campaigns. Initial activities have been started for establishment of the National Cleaner Production Centre in cooperation with UNIDO9. The establishment of this centre will require intensive training of the staff which will be in charge. This is best achieved through “on-the-job training” and it is recommended that the start-up will be achieved through contracting international specialists to work with local counterpart during the initial years of operation.
There are huge amounts of non-hazardous industrial waste disposed of throughout Montenegro. In most cases it is not posing an environmental problem while in others the environmental impact may be severe. The most well know disposal sites also contain hazardous wastes and are therefore addressed in the sections dealing with hazardous wastes. Very limited information is available on other sites and they will have to be dealt with locally and not through a national plan. To the extent possible, the responsible industries should clean up these sites.
To establish a basis for further considerations on industrial non-hazardous waste, an estimate of the ongoing generation and categories has been developed. Industrial waste generation is always difficult to estimate, but the results are believed to provide the right order of magnitude. The total amount estimated is approximately 850,000 tonnes per year.
Management Methods
The major generators consist of two individual generators which obviously have to manage their waste streams locally by themselves. KAP (~375.000 tonnes/year) is one of them and is dealt with elsewhere in this document.
The other major generator is the power plant in Pljevlja (~278,400 tonnes/year). A landfill with a proper liner system should be established at this facility. Furthermore, the present wet transport system for ash and slag should be exchanged with a dry system thereby avoiding excess water in the landfill.
The other large industrial generator groups consist of:
Industry Group: Approximate Generation Tonnes per year Wood products 80.000 Food Manufacturing Industries 40.000 Non-metallic mineral products 25.000
Table 6-9: Data on industrial waste generation
Wood Products
Almost all waste from the wood industry can be utilised one way or another, but very often there is a large potential for waste minimisation, which should be investigated before other solutions are considered. Wood waste may have a high value, especially if a market for products made from wood waste is developed11.
11 E.g. wood pellets for fuel will only have a value if potential customers have furnaces that can utilise pellets as fuel) 69
Food Manufacturing Industries
Like in every case it should be explored if the waste products can be minimised through cleaner production techniques (this is often only a question of better house keeping). After this option has been exhausted other methods has to be considered as discussed in the following.
Most of the waste fractions from this group will be organic and therefore biodegradable, and a large part may be used directly as fertilisers. Otherwise, special biological treatment systems should be developed for this purpose.
Biological treatment of organic waste material can be made by aerobic composting or by anaerobic digestion (oxygen-free fermentation) or by a combination of anaerobic digestion and aerobic composting.
It is advisable to establish cooperation between the municipalities, various industries and possibly farmers that may have disposal problems for manure and slurry in connection with development of any kind of treatment and disposal system to ensure an integrated approach which will be beneficial to as many generators as possible.
Non-metallic Mineral Products
The waste generated from this industry group typically consists of reject materials from the production or use of:
• Concrete products; • Bricks; • Tiles and ceramics; • Glass; • Building materials made from rock (e.g. slate); • Other materials made from rock; • Construction materials (e.g. aggregates);
Furthermore, wastes resulting from excavation of sand and gravel and similar activities will be included in this waste group.
The majority of these wastes will be inert and may be discarded according to the landfill requirements for inert waste. However, a large part, if not all, can with benefit be reused as construction material. The majority may be used as secondary aggregates, some as asphalt filler or similar and yet other parts as bedding or backfill material.
The character and possible use of these wastes are very similar to that of construction and demolition wastes and any solution developed for any of these wastes should take into consideration both waste groups.
6.2.8 Investment costs A summary of the cost estimates of the proposed technical assistance, investments and operating costs is shown below:
Cost estimate for: Unit Cost Conceptual design (hazardous waste treatment) € 450,000 Capital cost (hazardous waste treatment wo/i12) € 22,000,000 Capital cost (hazardous waste treatment w/i13) € 32,520,000 Operating cost (hazardous waste treatment wo/i) €/year 3,509,700 Operating cost (hazardous waste treatment w/i) €/year 2,060,000 Capacity building (hazardous waste treatment) € 1,512,000
12 Without incinerator 13 With incinerator 70
Capital cost & training (community hazardous waste) € 350,000 Terms of Reference, KAP remediation study14 € 20,000 PCB collection and disposal € 2,000,000 Cleaner production organisation including pilot projects € 1,600,000
Table 6-10: Investment costs for establishment of the hazardous waste treatment centre
14 Several remediation studies are required and TORs for each of these will cost € 20,000 71
6.3 Healthcare Waste Management Plan
6.3.1 Strategy The present plan for “Healthcare Waste Management" is a tool that aims: • to prevent infectious pollution inside and outside the healthcare establishments; • to protect human health inside and outside of the health care establishments; • to protect the environment by promoting environmental sound management; • to integrate national and international standards; • to consider the present technical and economical possibilities of Montenegro. The plan takes into account the existing and future national and EU legislation related to health care waste management (HCWM). The additional legal tools, institutional and administrative arrangements for the provision and control of healthcare waste management functions and responsibilities are also provided. The guiding principle for HCWM should be the prevention of waste, therefore, there is a strong need for campaigns to develop and raise the awareness of the necessity of waste avoidance and waste recycling.
6.3.2 Implementation Concerning Healthcare Waste (HCW) handling, the requirements of disposable receptacles, puncture- resistant containers and circular or rectangular metallic bag-holders with lids are explained, as used open containers and waste-baskets without lids are not useful. Bags and containers must have distinctly different colours and markings according to their treatment or destination. The requirements of the transfer areas, internal transport vehicles and the central storage room for Special Healthcare waste (SHW) are also defined. SHW should be treated and/or disposed by a recognized method in permitted central plants to which the waste must be transported by special collection tours. For transport of SHW, especially designed vehicles are required. Concerning healthcare personnel, the technological advances call for control of hospital infections to be interdisciplinary, involving not only physicians, but spanning an entire group of professionals with different specialised tasks. Every member of staff: medical, nursing, cleaning, engineering, technical, administrative and auxiliary personnel, must be trained in his or her responsibilities. To manage HCW each healthcare establishment or health care waste generator - a waste management plan should be developed. This plan should be submit it to the competent authority. For the implementation of the Master Plan, a general upgrading of the hospitals internal collection equipment is necessary. Concerning the external transport, the acquisition of a special transport vehicle is required. Regarding waste treatment, Montenegro has no adequate incineration plant for hazardous wastes at its disposal. Evaluating the particular possibilities and needs of Montenegro, in the short term period the controlled disposal of SHW in a sanitary landfill is recommended, except for anatomical parts. Anatomical HW such as recognisable human body parts and placentas can be buried in local cemeteries.
6.3.3 Investment and operational costs The costs of the required instruction courses, equipments and materials for the implementation and operation of the proposed short term waste management system at the healthcare institutions of Montenegro are roughly estimated: • Initial investment for the short term period 430.000 € • Consumables for 1 year operation 200.000 €
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Implementation Equipment Number of Price per Amount in units unit Euro Waste bins with foot-operated lid for medical waste 1000 40,00 40.000 Mobile bag holders with lid 300 160,00 48.000 Transport carts, wheeled trolley 80 200,00 16.000 Construction or remodelling of an enclosed space 12 15.000,00 180.000 Deep freezer 20 1.500,00 30.000 Rectangular hard-plastic transport containers 450 60,00 27.000 Special Transport Vehicle 1 50.000,00 50.000 Infrastructure on the landfill site for the special cell and the cleaning 9.000 of transport containers Instruction and training of personnel 20.000 Public awareness campaigns 10.000 Initial investment for the short term period 430.000
Table 6-11: Costs of new equipment for management of HW
Consumables for 1 year operation Number of units Price per unit Amount in Euro
Common black plastic bags for waste similar to MW 160.000 0,15 24.000 Blue plastic bags for GHW 160.000 0,25 40.000 Yellow plastic bags of 100 micron thickness with the symbol for 60.000 0,50 30.000 biohazard Red plastic bags of 100 micron thickness with the symbol for 20.000 0,50 10.000 biohazard Puncture proof rigid containers for sharps 20.000 2,00 40.000 Bag closers of plastic or wire 400.000 0,05 20.000 Personnel protection equipment for the collection personnel 160 50,00 8.000 Operation costs of the transport vehicle 8.000 Construction and Operation of a special cell at landfill 400 m3 50,00 20.000 Total per year in the short term period 200.000
Table 6-12: Costs of consumables for management system of HW
6.3.4 Regulation on healthcare waste management
In connection with the preparation of the management plan for healthcare waste, a supporting and supplementary regulation has been prepared. It is intended to outline good management practices for healthcare waste and being a regulatory base for all healthcare institutions in Montenegro and covers all administrative levels. This regulation integrates existing nationals and international relevant legislation, facilitates transposition of EU requirements and incorporates present technical and economical capabilities in Montenegro. Individual chapters concern:
• General provisions; • Waste classification; • Waste management; • Treatment and disposal methods; • Licensing and permitting issues; • Control and supervision issues.
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6.4 Sewage Sludge Management Plan
6.4.1 Introduction
Sewage Sludge Management Plan presents the short-mid and long-term situation exclusively in the field of sewage sludge management in Montenegro.
Further this management plan provides detail information on population, sewage and sludge production, future scenarios about treatment possibilities and reuse of treated sewage sludge. Legislative and institutional issues are also addressed, like proposing of limits and operation guidelines for sludge treatment and a proposal for a sludge management database. Calculations related to all kind of sludge treatment methods like dewatering, solar drying, incinerating and logistical matters are included.
This plan is prepared in short- mid and long-term measurements, whereas short-term measurements are defined till 2008, mid-term steps till 2019, long-term measurements till 2029.
The management plan for sewage sludge aims to prepare a sustainable management plan to prevent, reduce and recycle sludge from sewage treatment plants and to minimize disposal activities with the intention of protecting human health, reduction of environmental impacts, protection of drinking water resources and increasing of hygienic conditions. The measures, described in this plan are following relevant EU-Directives and are focused on technical and financial best practise methods.
The management plan for sewage sludge aims to give an overall guideline for short- mid and long- term measurements in regards to:
• Institutional Aspects; • Legal Aspects; • Technical Aspects; • Management Aspects; • Financial Aspects; • Implementation and Activities;
6.4.2 Strategy
According to the EU-Directives and national constitution the main strategy in handling of waste and sewage sludge has to be followed:
o Prevention o Reduction o Processing, Recycling and Reusing o Disposal Priority Triangle
In general, the highest priority is given to the prevention and reduction of sewage and therefore of sludge. At present, there is a very high water consumption and therefore wastewater production. It is essential that an active campaign for householders and commercial institutions to reduce there water consumption should be undertaken prior to the construction of the first WWTP in order to reduce the quantity of waste water produced.
For households this is difficult because only 30 – 50% currently pay for their water supply. The municipalities should therefore develop a model to increase the payment rate for water supply. In parallel there should be a public awareness campaign developed and implemented to sensitise the population on this issue. For commercial institutions a reduction of sewage water can be enforced due to an environmental ordinance on recycling of wastewater streams.
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Further sludge reduction is gained through treatment and stabilization of wastewater. A 25% reduction in sewage sludge can be achieved by the aerated sludge sewage treatment plant system. Plant optimisation on existing wastewater treatment plants can reduce sludge quantity
The next priority for sludge reduction includes Processing, Recycling and Reuse. It is important that every possible use for the sludge is explored before its final disposal as this is the last option on the waste triangle hierarchy. For sludge with a defined quality, there are possibilities to use it for agriculture, forestry, rehabilitation works and green areas. Treated sludge can also be reused for landfill management.
6.4.3 Future sludge handling and treatment
The management of sludge depends on the available possibilities of prevention, reduction, treatment and disposal. All these factors have to be taken into consideration. Further recycling and reusing steps are depending strongly on the sludge quality and shall be associated with the reduction of quantity, which can only be reached by further processing and treatment of sludge. A rough classification can be done:
Quality A+ drying - for agriculture use
Quality A: composting -for agriculture use
Quality B: composting - for agriculture use and park / green areas
Quality C: drying - for incineration and/or recultivation of landfill and mining areas
Lower quality C – drying for recultivation of landfills and mining areas
6.4.4 Technical and operational requirements
Sewage sludge can be treated by applying one of the following methods:
• Physical stabilisation; • Chemical stabilisation; • Biological stabilisation; • Reduction of pathogen germs and pasteurisation.
The recommended biological treatment is composting process. It requires a bulking agent to provide the right consistency to the sludge for aeration in solid form and also to provide the correct carbon/nitrogen ratio. Straw or wood by-products are often used as this bulking agent but municipal waste can also be used. Municipal waste is available but there are problems associated with its use. The inorganic refuse must be separated out so that only material suitable for ultimate use in agriculture is blended with the sludge as a bulking agent. The composting process has to be carefully controlled to avoid odour generation. Several treatment steps have to be taken into consideration such as storing,mixing,turning and sieving.
The required sludge inputs and the resulting outputs for sludge stabilsation process by composting for each region are outlined below:
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Region Sludge input (tonnes/year) Compost material Required surface area (tonnes/year) (m2) Coastal 3.115 1.636 4.970 Central 3.737 1.962 5.961 Northern 2.785 1.462 4.443
Table 6-13: Sludge generation and composting data
As a supplementary treatment method, the Plan proposes solar drying applicable for municipalities of Herceg Novi, Podgorica, Berane and Pljevlja. Basic data for this process are depicted below:
Basic Data for Solar Sludge Drying Method Sludge Treatment Sun Drying Method Use sec. Treatment Evaporation Input Height Evaporation Sludge input Plant 0 [mm/a] [in m/m²] [l/m²*month] [t/m²] Input DS% 30 % 5.040 0,75 420 0,75 Sludge output Water evaporated Drying Period Area needed Density of sludge 1.000 kg/m³ (30%DS) [t/m²] [in l/m²] [in months] [in m²/ton input] Output DS% 70 % 0,32 429 1,02 1,4 Density of sludge 750 kg/m³ (70%DS)
Table 6-14: Basis data for solar drying system
6.4.5 Investment, maintenance and disposal costs
The only short term investment is required for the Podgorica Plant with 295.000 € allocated to dewatering facility and 269.500 € allocated to solar drying facility. The mobile dewatering plant shall be transferred after 2009 to the north, to serve Pluzine, Savnik and Zabljak. Mid term investments start in 2008/2009 and include dewatering plants, solar drying plants and associated transport facilities. For dewatering of 11.480 ton of sludge DS an investment of 2,1 Mio. € has to take place. Investment in solar drying facilities is expected to be 1,15 mill €, in composting facilities 3,11 mill. € and in associated transport facilities 0,64 mill €. Long term investments start in 2019 and involve extension activities of the existing plants with a total investment capital requirement of 2,52 mill. €, of which dewatering activities require investment of 0,32 mill. €, solar drying 0,36 mill. €, composting 1,816 mill. € and transport 0,028 mill. €. The distribution of the investments for individual municipalities and the associated sludge production is outlined below:
Investment Costs (€) 2004-2008 2009-2018 2019-2028 Bar 0 944.000 Herceg Novi 890.000 3.500 Ulcinj 113.000 0 Tivat & Kotor 444.000 0 Budva 639.000 114.000 Cetinje 1.800 69.000 Costal Region 2.087.800 1.130.500 Podgorica 1.659 2.211.000 0 Niksic 374.000 228.000 Danilovgrad 69.000 860 Central Region 1.659 2.654.000 228.860 Bijelo Polje 760.000 320.000 Pljevlja 294.000 319.000 Berane 487.000 519.000 Rozaje 112.000 860
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Plav 68.000 860 Mojkovac 68.000 860 Kolasin 68.000 860 Andrijevica 68.000 860 Pluzine 112.000 860 Zabljak 117.000 860 Savnik 73.000 860 Northern Region 2.227.000 1.164.880
TOTAL Montenegro 1.659 6.968.800 2.524.240
Table 6-15: Investment cost for sludge management
6.4.6 Fee strategy
The base for the calculation of the required fee in accordance with the different investment periods is the input of pollution (sludge). Therefore the specific costs have been calculated [in € / Dry Substance x year] as base for the monthly fee calculation. Primary factors have been chosen, like an amount of 15,5 kg Dry Substance per year and each inhabitant [PE15 = Population Equivalent] and a household member density of 3,5 inhabitants in every household [HH].
From the year 2004 only Podgorica shall be taken into consideration. The fee for sludge treatment, shall be 0,87 € per household per month and should be charged before the investment occurs to create a pre-payment situation. From the year 2008/09 a fee of 0,20 till 0,80 € per household and months, depending on the location shall be charged. A cross-subsidising fee 0,5 € per HH x month is proposed.
Figure 6-3: Fee distribution data related to sludge management
1.00 Tariff short term [in €/month] Tariff mid-long term 0.75 [in €/month]
0.50
0.25
0.00 Bar Plav SUM Ulcinj Niksic Budva Savnik Rozaje Cetinje Berane Pljevlja Zabljak Pluzine Kolasin Mojkovac Podgorica Andrijevica Bijelo Polje Danilovgrad Herceg Novi Herceg Kotor+ Tivat Kotor+
15PE is equal to 150 litter water consumption per day = equal to 60 mg BOD 77
6.5 Landfill Site Selection Report
6.5.1 Introduction
The principles of integrated waste management as put forth in the management hierarchy of the project are designed to minimize the quantity of waste disposed in landfills. The recycling, composting, and resource recovery programs that make up a part of the waste management system for municipal waste divert materials from landfill disposal and decrease the volume of landfill space required to serve Montenegro’s’ population.
Despite the existence of these programs, it is recognised the unique characteristics of landfilling as a waste disposal option, not the least of which is the reality that landfill space, unlike other forms of infrastructure, is a depletable resource.
Recycling, composting and resource recovery are all factors in increasing the life of a given landfill volume, however given existing technology, there will always be a need to landfill some portion of the waste stream. It is reasonable to assume that although the need to provide replacement capacity can be delayed through recycling, composting and resource recovery programs, it cannot be prevented. The availability of landfill capacity is a driving force behind the solid waste management system decision making process.
6.5.2 Waste catchment areas
The population density and therewith the amount of municipal waste generated, geographical conditions and possibilities of transport of waste were the main factors taken into account when catchment areas had to be established. The entire republic has been divided into the following 8 catchment areas:
• Bar (municipality Bar, Ulcinj) • Berane (municipality Berane, Rozaje, Andijevica, Plav) • Budva (municipality Budva, Kotor, Tivat) • Herceg Novi (municipality Herceg Novi) • Mojkovac (municipality Mojkovac, Bijelo Polje, Kolasin) • Niksic (municipality Niksic, Savnik, Pluzine) • Pljevlja (municipality Pljevlja, Zabljak) • Podgorica (municipality Podgorica, Cetinje, Danilovgrad)
Fig. 6-4 Proposed catchment areas
PLJEVLJA
PLUZINE ZABLJAK
BIJELO POLJE SAVNIK MOJKOVAC BERANE KOLASIN ROZAJE NIKSIC ANDRIJEVICA
PLAV DANILOVGRAD
HERCEG PODGORICA TIVAT CETINJE KOTOR
BUDVA
BAR
ULCINJ
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The Municipal Waste Management Plan and associated Recycling Strategy are based on the proposed catchment areas. Future network of landfills and transfer stations are based on the proposed division and the forecasted waste amounts.
Each catchment area will be served by one intermunicipal landfill, constructed in accordance with requirements of EU Landfill directive and meeting other requirements outlined in the attached reviews of individual landfills. In most cases the landfill will have facilities for recycling of waste, composting facilities for green waste and sludge treatment.
The intermunicipal landfill for the municipalities of Budva, Tivat and Kotor has not been included in this report as municipalities were not able to allocate the appropriate permanent landfill site for the evaluation by project experts and inclusion in the subsequent plan. The financing of the feasibility study, design and construction of this landfill will be done through financial means supplied by the World Bank (MESTAP project).
Waste to be Waste to be Landfill at Municipalities inside Population landfilled in landfilled in municipality the catchment area covered 2007-2011 2004 [t] [t] Bar Bar, Ulcinj 60.000 11.400 78.000 Berane, Plav, Andrijevica, Berane 76.000 7.750 51.600 Rozaje Budva Budva, Kotor, Tivat 52.000 13.200 78.500 Herceg Novi Herceg Novi 33.000 7.800 49.800 Mojkovac, Bijelo Polje, Mojkovac 70.000 6.200 42.500 Kolasin Niksic Niksic, Pluzine, Savnik 82.000 15.800 87.600 Pljevlja Pljevlja, Zabljak 40.000 4.800 25.600 Podgorica, Cetinje, Podgorica 204.000 41.600 242.400 Danilovgrad TOTAL 572.000 108.550 656.000
Table 6-16: Waste landfill data
6.5.3 Technical solutions
The basic concept of the development of the new intermunicipal landfills is based on stepwise construction incorporating construction of the landfill base for five years disposal of waste. Subsequent extension should take place on as needed basis with five years intervals. In this way the immediate investment needs will be restricted and development of the landfill controlled depending on the waste production rates and the extent of recycling and waste recovery activities.
The construction activities will be preceded by the performance of the feasibility study incorporating Environmental Impact Assessment and worked out financial application. The conceptual designs outlined in the attached descriptions for each intermunicipal landfill and future design and construction activities are following requirements of the EU Landfill Directive.
All proposed locations have been found technically acceptable, except the Podgorica location:
• The proposal of placing the landfill at the same location as the existing one is only partially acceptable due to proximity of the settlements and existence of underground water reservoirs beneath the current and proposed location. Additionally, project registered essential public resistance for the proposed location. • As no other alternative locations have been proposed by the municipality, project followed the request from the municipality of taking into consideration the existing site. Deficiencies of this decision have been pointed out to the municipality by the project
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6.5.4 Investments
Budget investment costs are also outlined in each landfill proposal. The summary of the investment costs associated with the development of the landfills for the first five years are summarised below. The budget costs are based on the unit prices (where available) and outlined in the description of each landfill. The costs of each Feasibility Study is assumed to be 200.000 € per landfill, irrespective of location and size of the landfill.
The investment costs for the municipality Bar are not included in the review below although the cost review is outlined in the respective report. This is due to the fact that the development of the Bar intermunicipal landfill will be financed by the World Bank. The financial means are already available, inclusive the costs to carry out the required EIA. The current investment needs can be defined as follows:
First phase of the construction activities covering five years 23.520.000 € waste disposal (of which construction costs are 12,760,000 € and additional costs covering feasibility study, design, construction supervision, operational equipment amount to 10,760,000 €) The total costs for the six intermunicipal landfills are 61.110.000 € Immediate need would be for the performance of the 6 feasibility studies (1,200,000 € - included in the initial investment above)
Table 6-17: Total cost of new landfills
Net Invest for Costs Landfill Total Additional Landfill at landfill first 5 first 5 area invest costs municipality volume years years, [ha] [Mio. €] [Mio. €] [m3] [Mio. €] [Mio. €] Bar 4.00 500,000 0.00 0.00 0.00 0.00 Berane 5.80 307,000 9.72 3.12 1.72 4.84 Herceg Novi 3.60 990,000 5.40 1.32 1.03 2.35 Mojkovac 3.50 640,000 7.04 1.80 1.30 3.10 Niksic 2.60 410,000 6.38 2.04 1.19 3.23 Pljevlja 1.85 120,000 3.31 1.11 0.66 1.77 Podgorica 32.50 4,010,000 29.26 3.37 4.86 8.23 TOTAL 61.11 12.76 10.76 23.52
Table 6-18: Construction costs of landfills for the first five years
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6.6 Rehabilitation and Operation Plan of Present Dumpsites
6.6.1 Introduction
The rehabilitation plan focuses on the short- and mid-term requirements for the current dumpsite remediation, rehabilitation and closure strategy in Montenegro. Long-term measurements are defined as construction and operation of new sanitary landfills and are detailed in ‘Landfill Site Selection Report’.
The rehabilitation plan also provides detailed information on waste production, the location and situation of present operated dumpsites, technical proposals on the remediation, rehabilitation, closure measures and after-care recommendations for each dumpsite. The calculations used in determining these measures have been included.
The Legislative and institutional issues are also addressed, which includes proposals for standards and operational guidelines for dumpsite management and for a dumpsite, landfill management database.
The master plan is prepared in short- and mid-term interventions, where short-term interventions are defined till End of 2004 and the mid-term steps up to 2006. Long-term strategy, the construction and operation of sanitary landfills in accordance with European Legislation is defined by another project.
6.6.2 Strategy
The dumpsite remediation and rehabilitation plan16 aims to undertake the following:
• prepare a sustainable management and operation plan for current landfills. • prepare a technical and financial strategy of remediation, rehabilitation and closure measures to reduce and prevent environmental risks from the current uncontrolled waste disposal sites with respect of protecting human health, reduction of environmental impacts, protection of drinking water resources and increasing of hygienic standards.
The measurements, described in the rem-rehab plan, are following the relevant EU-Directives and are focused on technical and financial best practise methods.
The rem-rehab plan for present disposal sites intends to give overall guidelines for short17 and mid- term18 requirements, which include the following aspects:
Institutional Aspects; Legal Aspects; Technical Aspects; Management Aspects; Financial Aspects; Implementation and Activities;
16Remediation and Rehabilitation Plan – in following short rem-rehab Plan 17short term steps: time frame till construction of new sanitary landfill sites 18mid term steps: parallel to opening of new sanitary landfill sites 81
6.6.3 Financial arrangements and investment proposals
Short- term Investment Calculation:
Operation - Short Term No.CD Site Location Site Name Zone Entrance Tracktype Communicaton Transfer to Office Loader set regional Landfill SUM 2 1 1 Podgorica Cemovsko Polje 1 1 1 Podgorica 271.450 2 2.1 Niksic_01 Mislov Do 1 1 1 Niksic 271.450 3 2.2 Niksic_02 Mislov Do II - 4 3 Danilovgrad none - 5 10 Cetinje Vrtijelka 1 1 1 Kotor 271.450 6 4 Bar Volujica - 7 5 Herceg Novi Dugunja 1 1 Herceg Novi 268.750 8 6Ulcinj Kruce 1 1 1 Bar 271.450 9 7.1 Kotor_01 Vrmac - 10 7.2 Kotor_02 Tresnicki Mlin - 11 7.3 Kotor_03 Lovanje III - 12 7.4 Kotor_04 Metkova Voda - 13 8 Budva Petrovac - 14 9.1 Tivat_01 Krabovac Coastal Region - 15 9.2 Tivat_02 Karlardo - 16 9.3 Tival_03 Lovanje I - 17 9.4 Tivat_04 Lovanje II - 18 11 Bijelo Polje Kumanica 1 1 Pljevlja_01 6.450 19 12.1 Pljevlja_01 Jagnilo1 1 1 6.450 20 12.2 Pljevlja_02 Jagnilo2 - 21 13 Berane Budimlja 1 1 1 Berane 271.450 22 14 Rozaje Njegush 1 1 1 271.450 23 15 Plav_01 Komaraca - 24 16 Plav_02 Gusinje 1 1 1 Podgorica 271.450 25 17 Mojkovac Podbisce 1 1 1 Mojkovac 271.450 26 18 Kolasin Bakovic 1 1 6.450 Mountain Region CentralRegion 27 19 Andrijevica Suceska 1 1 6.450 28 20 Pluzine Gradec - 29 21 Zabljak Kljestina 1 1 6.450 30 22 Savnik Separacije - SU SUM 14,00 9,00 13,00 2.472.600,00
Table 6-19: Cost of operation of existing dumps, short term
To reach a certain minimum requirement for operation the following equipments need to be distributed:
• Heavy machinery – a track type loader, with a minimum weight of 19 tons. • Office (control and registration) facilities - mobile office container, 20ft length, with integrated wet cell. • Communication sets, which consists of 1 base and 3 handsets.
The prices for this equipment:
• heavy machinery are 265.000 Euro each machine • office containers including generator for electricity 3.700 Euro each • communication sets 2.700 Euro each
As the equipment is mobile in character it can be transferred to the new regional sanitary landfills and used in their operations, after the sites have been closed. The table above shows the proposal of transfer of equipment and facilities onto the future regional landfills. This measure is a short-term one, requires 2.5 Mio Euro and influences the summary investment of short-term measures.
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Following table shows the summary of rem-rehab measures, split in short-mid and long-term steps:
Rehabilitiation Measures No.CD Site Location Site Name Zone SHORT-TERM MID-TERM LONG-TERM SUM 1
1 1 Podgorica Cemovsko Polje - - - - 2 2.1 Niksic_01 Mislov Do 89.290,00 - - 89.290,00 3 2.2 Niksic_02 Mislov Do II - 78.104,10 - 78.104,10 4 3 Danilovgrad none - - - - 5 10 Cetinje Vrtijelka - 160.290,20 127.379,60 287.669,80 6 4 Bar Volujica 131.771,40 386.068,50 - 517.839,90 7 5 Herceg Novi Dugunja 49.952,00 376.908,00 - 426.860,00 8 6 Ulcinj Kruce 11.130,00 140.998,80 85.300,50 237.429,30 9 7.1 Kotor_01 Vrmac 377.472,30 - - 377.472,30 10 7.2 Kotor_02 Tresnicki Mlin 203.598,00 - - 203.598,00 11 7.3 Kotor_03 Lovanje III 176.145,50 - - 176.145,50 12 7.4 Kotor_04 Metkova Voda - - - - 13 8 Budva Petrovac - - - - 14 9.1 Tivat_01 Krabovac Coastal Region - 263.713,20 - 263.713,20 15 9.2 Tivat_02 Karlardo 62.000,00 - - 62.000,00 16 9.3 Tival_03 Lovanje I - - - - 17 9.4 Tivat_04 Lovanje II - - - - 18 11 Bijelo Polje Kumanica 85.540,00 44.870,80 9.434,00 139.844,80 19 12.1 Pljevlja_01 Jagnilo1 - 24.367,50 - 24.367,50 20 12.2 Pljevlja_02 Jagnilo2 6.420,00 - - 6.420,00 21 13 Berane Budimlja 24.465,90 60.895,90 - 85.361,80 22 14 Rozaje Njegush 285.495,30 91.990,20 - 377.485,50 23 15 Plav_01 Komaraca 280.156,40 - - 280.156,40 24 16 Plav_02 Gusinje - 279.101,00 47.260,00 326.361,00 25 17 Mojkovac Podbisce - 156.386,20 53.400,00 209.786,20 26 18 Kolasin Bakovic - 212.617,40 65.379,40 277.996,80 Mountain RegionMountain Region Central 27 19 Andrijevica Suceska 8.541,50 12.855,70 - 21.397,20 28 20 Pluzine Gradec 165.000,00 79.350,81 - 244.350,81 29 21 Zabljak Kljestina 4.890,00 78.882,00 - 83.772,00 30 22 Savnik Separacije 165.000,00 65.818,51 230.818,51 SU SUM 2.126.868,30 2.513.218,82 388.153,50 5.028.240,62
Table 6-20: Costs of remediation measures of waste dumps
For rem-rehab (and closure) measures a financial need of 5,03 Mio. € was calculated which resulted from the separated calculation of each site, described under chapter covering technical requirements.
A summary of the rem-rehab measures and investment of facilities, equipment and heavy machineries are documented in following table:
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Investment No.CD Site Location Site Name Zone SHORT-TERM MID-TERM LONG-TERM SUM Total
1 1 Podgorica Cemovsko Polje 271.450,00 - - 271.450,00 2 2.1 Niksic_01 Mislov Do 360.740,00 - - 360.740,00 3 2.2 Niksic_02 Mislov Do II - 78.104,10 - 78.104,10 4 3 Danilovgrad none - - - - 5 10 Cetinje Vrtijelka 271.450,00 160.290,20 127.379,60 559.119,80 6 4 Bar Volujica 131.771,40 386.068,50 - 517.839,90 7 5 Herceg Novi Dugunja 318.702,00 376.908,00 - 695.610,00 8 6 Ulcinj Kruce 282.580,00 140.998,80 85.300,50 508.879,30 9 7.1 Kotor_01 Vrmac 377.472,30 - - 377.472,30 10 7.2 Kotor_02 Tresnicki Mlin 203.598,00 - - 203.598,00 11 7.3 Kotor_03 Lovanje III 176.145,50 - - 176.145,50 12 7.4 Kotor_04 Metkova Voda - - - - 13 8 Budva Petrovac - - - - 14 9.1 Tivat_01 Krabovac Coastal Region - 263.713,20 - 263.713,20 15 9.2 Tivat_02 Karlardo 62.000,00 - - 62.000,00 16 9.3 Tival_03 Lovanje I - - - - 17 9.4 Tivat_04 Lovanje II - - - - 18 11 Bijelo Polje Kumanica 91.990,00 44.870,80 9.434,00 146.294,80 19 12.1 Pljevlja_01 Jagnilo1 6.450,00 24.367,50 - 30.817,50 20 12.2 Pljevlja_02 Jagnilo2 6.420,00 - - 6.420,00 21 13 Berane Budimlja 295.915,90 60.895,90 - 356.811,80 22 14 Rozaje Njegush 556.945,30 91.990,20 - 648.935,50 23 15 Plav_01 Komaraca 280.156,40 - - 280.156,40 24 16 Plav_02 Gusinje 271.450,00 279.101,00 47.260,00 597.811,00 25 17 Mojkovac Podbisce 271.450,00 156.386,20 53.400,00 481.236,20 26 18 Kolasin Bakovic 6.450,00 212.617,40 65.379,40 284.446,80 Mountain RegionMountain Region Central 27 19 Andrijevica Suceska 14.991,50 12.855,70 - 27.847,20 28 20 Pluzine Gradec 165.000,00 79.350,81 - 244.350,81 29 21 Zabljak Kljestina 11.340,00 78.882,00 - 90.222,00 30 22 Savnik Separacije 165.000,00 65.818,51 - 230.818,51 SU SUM 4.599.468,30 2.513.218,82 388.153,50 7.500.840,62
Table 6-21: Investment costs related to operation of existing waste dumps
5 Mio Euro would cover the financial (investment) need for reh-rehab measure and 2,5 Mio Euro would be required for hardware investment, which would be later transferred to the new regional sanitary landfills. A total investment amount of 7,5 Mio Euro would be needed to cover all risk reduction measures and to guarantee meeting the requirements for minimum standard of operating the existing site, until their closure, later on.
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6.7 End-of-life Vehicles Management Plan
6.7.1 Introduction
Today, the collection of ELV’s and the partial recycling of materials from ELV’s is operated through small scale scrap dealers. These dealers collect most of the ELV’s, strip the remaining valuable materials and ship the scrap to the steelworks. The scrap metal, batteries, aluminium and copper wiring have a positive economic value and are recycled. The remaining materials, including hazardous wastes such as oils are disposed in an uncontrolled manner and can cause localised pollution.
There are no overall regulations to manage ELV’s effectively however there are some national and municipal regulations which regulate them. Some municipalities are addressing the problem of abandoned vehicles as many car owners dispose of them in an uncontrolled manner and often abandon their ELV where convenient. Localised pollution of the environment by waste oils, battery acids and through burning of the ELV is common practice.
6.7.2 Strategy
The proposed strategy is based on three key elements which include the following:
• introduction of a de-registration system for cars; • introduction of a disposal contribution to finance collection and recycling of ELV; • development of co-operative compliance schemes where the industry (importers) assumes responsibility for collection and recycling of ELV’s.
A gradual introduction of the ELV regulation, combined with substantial training for the industry and the Ministry of Environmental Protection and Physical Planning (MEPPP) is proposed. As the scrap dealers manage to recover most of the ELV’s and recycle a substantial amount of the materials, no significant immediate investment in equipment is foreseen.
Recycling of other materials than metals is addressed with a strong link to the overall Recycling Strategy in the Master Plan.
6.7.3 Investment costs
Two main packages for financial support are identified: • The development and training of the industry sector organisation, in combination with training on co-operative compliance schemes for the MEPPP; • The investments in equipment for the save removal and storage of hazardous substances.
Development and training for the industry is best combined with the actual draft of the ELV regulation and could be set up as “training on the job” project. Issues to be addressed are: • Development of a collection scheme in co-operation with the importers and scrap dealers; • Development of a industry sector organisation that could serve as a forerunner of a management organisation for the collection and financing of the collection; • Analysis of collection costs, short term and long term based on an operational collection scheme; • Development of the market for recycling, including acceptance and quality procedures; • Upgrading existing car workshops to ensure sound removal of hazardous materials without compromising the open and competitive market for car workshops; • Development of a monitoring and accounting system for the collection, in co-operation
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with the industry or the proposed management organisation.
Based on similar projects executed under the PHARE programme of the EU or under the Pre- accession programme of the Dutch government indicate that the costs of such a project are in the range of 300,000 to 400,000 €.
For investments in equipment to safely remove hazardous substances two options are available. • establish dedicated centres, as outlined in the Management Plan – this option has the advantage that a small number of centres can cover all ELV’s and that this can be easily combined with the proposed certificate of destruction and de-registration. The disadvantage is that it might result in a monopolised control of the ELV market. • support the purchase of equipment by present day car workshops - the disadvantage of being the large number of these workshops. Advantages are that they can start working in an overall more environmentally sound way and that it can be combined with a licensing structure for these organisations. This could be managed by the proposed management organisation.
The analysis of which is the preferred option should be done in close co-operation with the industry and could be part of the training on the job project described above. Support for the investment can be in the form of direct financial support and grants or in the form of a revolving fund, set up by the disposal contribution and complemented with international aid. It is obvious that loans from such a fund can gain the support the commitment from the industry.
An estimation of the costs for the equipment are presented below and are based on information from an equipment manufacturer in the Netherlands. Most of the equipment can be made in Montenegro but time constraints made a review of this not possible.
1 De-pollution platform, with a 2-layers tool-car € 6.387
4 work platforms € 625 € 2.500 All necessary tools € 997
Brake fluid extraction unit € 1.290
Oil storage tank 2.400 litres in leak container € 1.651 2 Liquids storage tanks 1200 litres in leak containers and 1 € 2.545 battery container
Total cost for ‘stand alone’ working station € 15.370
Table 6-22: Costs of emptying equipment
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6.8 Municipal Waste Recycling Strategy
6.8.1 Introduction
Recycling Strategy is intended to facilitate introduction of recycling process through the entire country and in particular to introduce the process of implementation of requirements defined in the EU Directive 94/62/EC on packaging and packaging waste.
Today in Montenegro only informal recycling system exists although some attempts are started by municipal companies to remediate current situation. Collection, sorting, recycling and recovery of packaging waste is not carried out to the extend necessary and this type of waste is disposed at the current landfills together with the rest of the municipal waste. One of the biggest obstacles to achieve the recycling targets is the shortage of collection and sorting facilities in Montenegro. Implementation of packaging excise duty for alcohol and non-alcoholic beverages packaging, the initiative of packaging and packaging waste collection and reusing will be responsibility of waste management companies. Waste management companies suppose to collect packaging and packaging waste in the way that they consider most suitable and financially profitable.
A big proportion of collected packages will originate in the current system from landfills or general bins and or containers. It means that the collected packaging waste is of law quality (dirty) and therefore further processing (washing, drying, cleaning) is expensive and in many cases not even feasible. This type of collection method is also unhygienic. It also does not encourage participation of the entire community in the collection of packaging and packaging waste nor does it establish an even collection network, which is necessary for recovery of said waste type. Such system offers limited possibilities of existence of proper recycling system and preserves a low public awareness.
6.8.1.1 Recycling targets
The Directive on Packaging and Packaging Waste lays down certain targets for the recovery and recycling of packaging waste. The Directive recommends that 25-45 percent of packaging waste is recycled supplemented with the requirement that not less than 15 % of each packaging material (paper, glass, plastic and metal) is also recycled.
The recycling targets for Montenegro are closely related to the waste amounts generated and have been calculated for two significant periods: 2009 and 2014. Targets for individual waste fractions and collection regions are outlined in the chapter 4, “Waste Forecast”.
The impact of recycling activities during the first years of the implementation of the system will not be impacting the amount of the waste landfilled to a noticeable degree.
However, as the waste collection rate and recycling rate increases, the amount of waste diverted from the landfills will be essential and is expected to reach 50.000 tonnes in year 2014, as depicted in the subsequent graph. Expected rated of recycling will be approximately 23 % at the same time.
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Figure 6-5: Effect of recycling on landfilled waste amounts
Municipal waste, effect of recycling
250,000
200,000
150,000 Generated Recycled Landfilled 100,000 For disposal
50,000 Amount of waste (tonnes/year) waste Amount of
0 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 Year
6.8.1.2 Introduction of producer responsibility
To collect as much secondary raw materials as possible, it is necessary to introduce a system of producer responsibility for the collection and handling of packaging waste. This should include:
• the introduction of a product tax; • the obligation to take back empty packaging; • introduction of a mandatory refundable deposit for disposable packaging; • setting of targets for the collection and handling of packaging waste.
If producers assume the responsibility for the attaining established targets for the collection and handling of packaging waste, they should be exempted from the product tax and the refundable deposit.
After the introduction of this system, the amount of collected and recycled packaging waste is envisaged to perhaps exceed the recycling targets set in the current strategy.
Producers must assume responsibility for the collection, recovery and recycling of the waste derived at the end of the life-cycle of their products. The responsibility of producers is particularly important for the management of packaging, and would involve the following:
• an obligation to accept back used packaging; • an obligation to recycle or recover in some other way the collected packaging; • the maintenance of records of packaging and packaging waste; • the submission of data for national accounting of packaging and packaging waste.
The principles of producer responsibility should be regulated by a special law on packaging and packaging waste management, which should be adopted as soon as possible. Producers’ responsibility should not necessarily involve financial liability, i. e. the obligation to cover the costs of packaging waste. Producers can themselves participate actively in the development of the
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packaging waste management system by assuming responsibility for attaining the established targets, and through rational organisation of the work, which in turn will contribute to the reduction of waste management costs. The most reliable way to ensure producer responsibility is to establish a system whereby a voluntary contract is signed between producers and the Government (or its authorised institution), under which the producers would undertake to attain the targets set for packaging waste management. One of the most essential conditions for the functioning of an efficient packaging waste management system is the availability of reliable information on the packaging placed on the market and the generation of packaging waste. The development of an information system on packaging and packaging waste should be a common concern of producers relevant ministries and municipalities.
6.8.1.3 Co-operation between local authorities and producers
After producer responsibility is introduced, producers will be responsible for the targets set for the collection and recycling of packaging waste, and will collect the waste which used to be previously collected under municipal waste management systems. This does not mean, however, that the responsibility of the local authorities for the management of secondary raw materials will be abolished. First, local authorities are responsible for the collection of waste other than packaging waste from producers and retailers (such as newspapers and other waste paper). Furthermore, the infrastructure for the collection of recyclable waste is already in place in local authorities – local authorities have special means for the collection of recyclable waste and they can continue to use them. It is assumed that the collection of secondary raw materials is the obligation of municipalities that it may be conducted only with the knowledge of local authorities and that producer will have to have contracts with municipalities. In general, these contracts may be of two types:
• the producer covers the municipality’s costs for the collection of packaging waste and it is considered that the producer has collected such waste (in other words, it may be said that the producer hires a municipality for this job)19; • producer undertakes to collect their own packaging waste, while the municipalities are responsible for the collection of other waste.
6.8.1.4 Initiatives for development of waste recycling
Increases in the potential capacities of waste recycling systems, new containers or modern enterprises will not ensure the growth of waste recycling volumes or the attainment of the targets without a well co-ordinated system. To create such a system it is necessary to ensure the following:
• reliable waste accounting ; • accounting of packaging placed on the market; • municipal waste management systems; • co-operation between local authorities; • implementation of the “polluter - pays” principle; • introduction of producer responsibility; • establishment of producers’ associations; • a functioning market for secondary raw materials; • charges for the disposal of waste at landfills (landfill tax); and • that the public are informed and involved.
19 Similar systems where municipalities collect the packaging waste and the producers pay for the collection exist in many EU member states 89
6.8.1.5 Waste accounting
For the effective management of a waste recycling system it is necessary to have reliable information both on the generation and recycling of waste and on the quantities of products (e. g. packages, oils, etc.) which are going become waste after their useful life. At present the information available in this area is rather fragmented if at all available, whereas data on the existing market for packaging is virtually unavailable. To ensure the provision of reliable information on the generation and recycling of waste that is appropriate for making for technical and political decisions, it is necessary to conduct a stringent control and periodical assessment of both the primary waste accounting and the state statistical information. The collection and processing of reliable data on the generation and recycling of waste is one of the most important requirements for the development of waste recycling.
6.8.1.6 Information on the packaging placed on the market
It is necessary to develop a recording system of the quantities and kinds of packaging placed on the market, as this is the only way to plan ahead and set targets for the effective collection of packaging waste. It is proposed that the Department of Statistics collects data on the generation, imports and exports of new packaging as well as data on packaging placed on the market with imported goods.
Establishment of a system which requires companies to maintain detailed records on the packaging of their goods is a huge and unrealistic task at this stage. However a study is necessary to estimate the current quantity of packaging entering the Montenegrin market and to develop a methodology for regular assessment of quantities of packaging placed on the domestic market and individual municipal markets in the future.
6.8.1.7 Producer’s Association
In order to develop a cost-effective system of packaging waste management it is necessary to develop a rationalised system of waste collection and recycling. The future law on the management of packaging and packaging waste should encourage producers to join the producers’ association, which would facilitate the attainment of the set targets.
Such an association should conclude voluntary contracts with the institution authorised by the Government, which would spell out the producers’ obligations to collect waste, and the procedures for maintaining information on packaging and packaging waste. The producers’ association could then develop a joint plan and organise a joint system for the collection and management of packaging waste.
To be able to attain the targets set for the collection and recovery of packaging waste the producers will either have to develop new waste management systems or use the existing ones. Both cases will require financing. Certain limitations should built into the waste management systems developed by the producers themselves which would ensure that the system manages their waste as a result of their funding, rather than the general management of waste from other enterprises. For example, producers should be allowed to mark their packaging with special markings and develop systems, which could be used for the exclusive management of waste bearing particular markings.
6.8.2 Proposed recycling system
The proposed recycling scheme for Montenegro is based on a network of different components. The key elements of the system are:
• Source separation of several recyclable fractions from municipal waste;
• Provision of a decentralized container system with high coverage rate in every municipality, installed as collection points in urban areas as well as in rural, comprising about 5.700 to 9.700 individual receptacles for collection of source separated recyclables;
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• Provision of centralized civic amenity sites (CAS) located in every municipality, comprising 24 units in the entire country;
• Establishment of 8 inter-municipal catchment areas with one sanitary landfill in each;
• Inter-municipal cooperation agreements regarding joint operation of the inter-municipal landfills and utilization of vehicles for collection and transport of recyclables;
Considering specific Montenegrin conditions, the following combination of systems for collection, sorting and processing of recyclables and separate collection of hazardous household waste is recommended for the first step of a recycling program:
• Collection points with individual containers for paper/cardboard, glass, tins and cans with following transport and if necessary temporary storage. At a collection point, accumulated recyclables are taken by the consumer to a definite location and placed into individually marked receptacles. In order to maximize public participation, the collection points and collection schedule must meet certain local and organizational requirements. • Collection for yard waste with individual containers with following production and utilization of compost; • Civic amenity sites
is in this context defined as an attended facility to which citizens and small-scale business can bring various types of household waste. The purpose is to establish a service facility for optimising collection of certain types of waste and recovery of secondary materials. Most recycling stations are designed for users to haul waste by means of cars, cars pulling trailers and small pickup trucks. However, access by foot or bicycle is also possible.
• Mobile sorting facilities for construction and demolition waste Sorting and crushing of construction and demolition (C&D) waste can be defined as a mechanical treatment, which is required in order to be able to reuse the waste. End products of this treatment are secondary raw materials sorted in fractions according to the aggregate size plus soils. They can successfully replace competing virgin materials in the construction or other industries.
• Mobile collection of hazardous household waste
Household hazardous waste is defined as “such waste that could potentially increase the hazardous properties of municipal waste when landfilled or composted”. This mobile collection system supplements collection activities for this kind of waste taking place at the Civic Amenity Sites. It is a specially equipped truck stopping at certain predetermined places where general public and small waste generator can deliver their hazardous waste. The project assumed that the distribution of CAS and recycling collection point should be as even as possible throughout the country, resulting in a network supplementing the municipal waste collection and transport activities. As the amount of population and therewith the waste generation in certain municipalities can not justify fully equipped CAS, the proposal does operates with partially equipped CAS. Should the future amounts of collected recyclables and other waste justify extension of the existing facilities, this can be easily implemented. The figure below outlines the allocation of CAS in each municipality.
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Figure 6-6 : Proposed network of Civic Amenity Sites
PLJEVLJA 1
PLUZINE ZABLJAK 1* 1 1* BIJELO POLJE SAVNIK MOJKOVAC 1 BERANE 1* KOLASIN 1* 1 ROZAJE NIKSIC ANDRIJEVICA 2 1* 1* PLAV 1 DANILOVGRAD
HERCEG 1* 1 PODGORICA 1* TIVAT CETINJE KOTOR 5 1 1 BUDVA 1 BAR 1 1 ULCINJ
6.8.3 Equipment estimates
The estimate of the required equipment for the proposed recycling system bases on:
• generation of the recyclable material • connection to the regular collection service of municipal waste • proposed targets of recycling of the recyclable material • frequency of collection The table shows the number of required receptacles and vehicles required for collection of source separated recyclables.
Equipment Short-term Medium-term Paper and Yard Waste Paper and Yard Waste cardboard cardboard 1,1 m3 container 2.456 877 3.766 1.423 Compactor truck, 20 m3 3 10 Compactor truck, 8 m3 1 Glass Tins and cans Glass Tins and cans 1,0 m3 igloo 936 1.477 1.554 3.005 Flatbed truck with crane 8 9
Table 6-23: Data on equipment required for source separated recyclables
Additionally, every inter-municipal landfill is supposed to be equipped with a wood branch shredder and a paved area for composting. In the entire country 16 fully equipped and 8 partly equipped civic amenity sites will be installed. It is estimated that residents will bring about 20kg/inhabitant/year in the short-term period and about 40kg/inhabitant/year in the medium-term period of different wastes and recyclables. The civic amenity sites will be equipped with several skip containers for collection and storage of the various materials. For transport of the materials from the civic amenity sites to the inter-municipal
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landfills in every catchment area 1 skip truck is required. Therefore, 8 skip trucks are required for the entire country.
For recycling of construction and demolition waste 2 mobile units are supposed to be sufficient in the short-term period. Based on the experiences from the first phase it should be decided whether the purchase of further mobile units is necessary.
6.8.4 Investment costs
Based on several assumptions for depreciation of the equipment, costs for repair and maintenance, salary of personnel and other specific information the cost of the recycling system is calculated. In the following tables a survey of the required costs of installation and operation the proposed recycling scheme is given.
Investment Costs for the Proposed Recycling Scheme Short-term Perspective Price (€) Collection of Source Separated Recyclable Material 3.444.249 CAS System 4.361.953 Recycling of Construction and Demolition Wastes 880.000 Total Investment 8.686.202
Table 6-24: Investment costs for recycling scheme, short term
The investment costs for the proposed recycling scheme are estimated to be about 8.700.000€ for the short-term perspective. About 50% are related to the investments for the CASs, less than 40% result from the investment for collection of source separated recyclable material and 10% for the recycling of construction and demolition waste.
Yearly Costs the Proposed Recycling Scheme Short-term Perspective Costs per Year (€/year) Collection of Source Separated Recyclable Material 1.294.809 CAS System 1.316.350 Recycling of Construction and Demolition Wastes 216.843 Total Yearly Costs 2.828.002
Table 6-25: Yearly costs for recycling scheme, short term
The yearly costs for the proposed recycling g scheme are estimated to be about 2.830.000€ per annum. 47% are related to the costs for the CASs, about 46% result from the investment for collection of source separated recyclable material and less than 8% is for recycling of construction and demolition waste.
Investment Costs for the Proposed Recycling Scheme Medium-term Perspective Price (€) Collection of Source Separated Recyclable Material 5.345.891 CAS System 180.000 Recycling of Construction and Demolition Wastes 440.000 Total Investment 5.965.891
Table 6-26: Investment costs for recycling scheme, medium term
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The additional investment costs for the proposed recycling scheme are estimated to be about 5.600.000€ for the medium-term perspective. About 90% are related to the investments for collection of source separated recyclable materials. About 7% result from the investment for recycling of construction and demolition waste and about 3% for the investment for CASs.
Yearly Costs the Proposed Recycling Scheme Medium-term Perspective Costs per Year (€/year) Collection of Source Separated Recyclable Material 2.078.629 CAS System 1.316.350 Recycling of Construction and Demolition Wastes 325.343 Total Yearly Costs 3.720.322
Table 6-27: Yearly costs for recycling scheme, medium term
The yearly costs for the proposed recycling g scheme are estimated to be about 3.720.000 € per annum. 56% are related to collection of source separated recyclable material. More than 35% result to the costs for the CASs and less than 10% is for recycling of construction and demolition waste.
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7.0 Institutional and Legislative Framework
7.1 Legislative Restructuring Package
In the light of the introduction of the management plans for municipal, industrial, hazardous, healthcare waste and sludge, it is necessary to follow this development by review and revision of the existing legal system in Montenegro with relevance to waste management. The proposed restructuring measures do recognise the responsibilities of the Government and municipalities in the field of waste management.
‘The Legislative Restructuring Package’ is part of the ‘Terms of Reference’ for the project and is meant to propose future legislative development related to proposed management measures for individual waste streams supplemented with review of compatibility with existing EU legislation. The restructuring proposal takes also into account recently adopted ‘National Waste Management Policy’ and governmental plans of EU accession in the decade from now on.
Legislative restructuring package provides a proposal of a legislative base supporting waste management structure for all waste streams outlined in the waste master plan.
The objectives of the proposal are to:
1. Present suggestions for a way to establish an updated legal framework for the management of waste in Montenegro; 2. Present suggestions for changes to the law that will put Montenegro into conformity with the relevant European Union environment legislation; 3. Provide documentation to the Ministry and the Government facilitating their preparation for the transposition of the EU waste directives in Montenegro.
The restructuring package has been based on the existing environmental and waste related national legislation. Particular attention has been paid to provisions, principles and responsibilities outlined in the Environment Law, adopted in 1996, Law on maintenance of public areas, collection and use of waste (Waste Law) from 1981 and other relevant regulations. The existing legislative structure is depicted in the figure below, also indicating the impact of EU relevant legislation.
Figure 7-1: Existing legislative structure
Montenegrin Constitution (1994)
Environment Law Law Law on Waste (1996) on Local Self (1981) Management (1991)
New Law
New Law
New Law EU Directives
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The review revealed that with the exception of the Environment Law, the existing Montenegrin laws and regulations on waste are a mixture of:
• Assignments of general authority to control waste, given to a ministry of the Republic or to the municipalities,
• Very precise restrictions and tasks of waste management, given to the municipalities; the public utilities; and the physical or legal persons who produce, hold, treat, recover, recycle or dispose of waste, that are unenforceable and do not reflect current waste management standards and practices.
• The two implementing regulations neither reflect current technical standards for sanitary landfills, nor do they conform to the applicable European Union directives.
Furthermore, The Environment Law is broadly consistent with the European Union’s principles of environmental management. It provides adequate authority to the Government and the Ministry of Environment to design, adopt and implement a strong environmental protection programme. However, The Environment Law should be amended to clarify the articles concerning waste management and bring it into conformity with the Waste Framework Directive.
The much amended Law on the maintenance of public areas, collection and use of waste (hereinafter “Law on waste”) is more than 20 years old and a hodgepodge of general obligations and overly precise requirements that do not reflect the current situation in Montenegro. This law should be replaced by a detailed Law on waste management that transposes the Waste Framework Directive, the Directive on hazardous waste, and the Landfill Directive.
The two regulations on “The disposal of waste and material from septic tanks”, and on “Hazardous waste to landfills” adopted in 1983 and 2000, respectively should be repealed as they are incorporated in the proposed laws and upgrades of the existing legislation.
Based on the analysis performed and conclusion reached, project prepared three draft legal texts as a basis for developing legal and institutional waste management system in the future.
The three draft legal acts make up the core of the legal restructuring package and they are:
• Draft Law amending the Environment Law to establish a system of waste management,
• Draft Law on waste management,
• Draft Order of the Minister of Minister of Environmental Protection and Physical Planning on the development of Waste Management Plans.
In order to facilitate the approximation process towards EU, the needs have been outlined and related to the transposition of relevant waste directives for bringing Montenegro’s legislation on said issues into conformity with European Union requirements. Therefore ‘Tables of Concordance’ have been developed covering transposition of:
• Waste Framework Directive 75/442/EEC • Hazardous Waste Directive 91/689/EC • Landfill Directive 1999/31/EC
Some general criteria have also been developed for assessing the value of laws and regulations which regulate relations between citizens and the state (e.g. in the field of the environment), and the legal instruments available in Montenegro for managing waste.
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7.2 Institutional Restructuring Package
7.2.1 General
Following legislative changes proposed in ‘Legislative restructuring package’, a proposal has been worked out for an update and change of the existing institutional set up at both ministerial and municipal level. The restructuring work has also been based to the greatest possible extend on the review of the present institutional situation and the expected approximation activities towards EU taking place in the coming years.
The institutional restructuring proposal is a part of the overall waste management master plan and should facilitate implementation of individual waste plans with respect to enforcement, control and implementation of waste management activities at both administrative levels.
The institutional restructuring proposal is founded on following principles:
• Clear definition and distribution of competencies – no overlaps;
• Clear distribution of tasks – private and public;
• Clear communication lines;
• Organised for dialogue and partnership internally and externally;
• An enforcement and service organisation;
• Information is organised and shared through easy access;
• Integrated human resources development;
• All delegations, licenses and authorizations are clearly defined;
• Integrated monitoring and control system.
The possible institutional set up has been outlined giving both the Ministry of Environment and the municipalities a comprehensive picture of organisational possibilities and therewith enabling them to undertake balance and priorities decisions.
It is intend of the government of Montenegro to initiate the EU approximation process soonest possible in order to become a full member in 2014. In the light of this wish, a proposal has been elaborated in order to establish an administrative structure, in particular at the Ministry of Environment, able to cope with the increased demand both external and internal. Implementation of transposed EU directive requires a flexible, lean and capable administrative structure able to perform tasks of legislative nature, enforcement, control and guidance on waste and environmental issues.
The current distribution of authority between ministry and municipalities has been maintained and should be able to function under new circumstances, when the whole country is divided in waste catchment areas, intermunicipal landfills and intermunicipal waste management companies. A figure below depicts such a set up.
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Figure 7-2: Distribution of authority on Waste Management
Ministry Of Environmental Protection and Physical Planning
Municipality Municipality Municipality Municipality
Municipal Municipal Waste Municipal Waste Waste Managemen Managem t Managem ent ent Company Company Company
7.2.2 Ministry of Environment and Physical Planning
The organisational vision related to the Ministry of Environment is partially based on the existing structure and partially has been supplemented with new proposal depicting future institutional requirements. When fully reorganised, the Ministry of Environment and Physical Planning should not only maintain current functions but be able to undertake a coordinated and efficient performance of environment and waste related tasks of:
• enforcement, permitting, control and data management through ‘Environmental Protection Agency’; • securing funds, establishment and implementation of projects through ‘Project Implementation Agency’; • integrated human resource development, improvement of competence of both ministerial and municipal staff and having clearing house function on waste and environmental issues through ‘Centre for Environmental Competence’; • consultations with group of representative of public and industry on environmental and waste related issues through ‘Environmental Council’; • consultations with inter-ministerial forum through ‘Environmental Coordination Board’; • preparation, transposition and review of environmental legislation and approximation of EU directives through ‘Law and Regulations’ department; • review and preparation of issues related to environmental economics, environmental management systems, Life Cycle Analysis, cleaner technology issues through ‘Environmental Economics & Management’ department; • preparation and development of policies and plans related to environmental and waste related issues both at national and sector related levels and monitoring of the implementation activities through ‘Policy and Planning’ department.
The proposed organisation has also been depicted below.
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Figure 7-3: A Future organizational structure of Ministry of Environmental Protection and Physical Planning
Minister
Environmental Coordination Council Board
Permanent Secretary
Project Implementation General Manager Agency
Environmental Urban Law & Economics & Policy & Planning/ Housing & Regulations Management Planning Buildings Public Utilities
Montenegrin Centre for Montenegrin Environmental Protection Agency Environmental Competence
As a consequence of the proposed organisational change to the Ministry of Environment, the current ‘sector’ divided activities and structure should terminate and gradual introduction of the new proposal should take place.
It is crucial for the implementation timeframe that the steps for the establishment of the ‘Environmental Protection Agency’ and ‘Project Implementation Agency’ are taken when the funds are made available in order be able to respond to the coming changes and future environmental obligations.
7.2.3 Montenegrin Environmental Protection Agency
As described above, one of the key new elements of the proposed structure of the ministry is establishment of the Montenegrin Environmental Protection Agency. This unit will be in charge of all functions related to:
• enforcement and control of implementation of environmental legislation, hereunder all waste related laws and regulations; • issuance and enforcement of environmental permits for establishment, operation and closure of any facility having juridistiction under Ministry of Environment; • issuance of any permit for transport, storage and treatment of waste and sewage sludge; • performance of environmental surveillance on all environmental media; • environmental and waste data collection and reporting; • environmental certification of facilities and processes;
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Figure 7-4: Organisation of Montenegrin Environmental Protection Agency
Protection
Overall
Environmental Soil Water Protection Industry & & Issues & Chemicals Waste Aquatic Transport Environment
As shown above, the performance of the above mentioned major tasks are proposed to be divided into four offices:
• Soil & Waste; • Water & Aquatic Environment; • Industry and Transport; • Chemicals;
Additionally, tasks of general issues of integration and coordination of environmental protection of nature, ground water, food and consumer products, maintenance and operation of environmental data bank and environmental certification shall be performed by the office dealing with environmental protection issues.
General management and administration should be performed by ‘General Management and Administration Office’. Its tasks apart form performing coordination activities will be budgeting and accounting, personnel management and development and internal auditing and quality assurance.
A very essential function of enforcement and control activities related to laws, regulations and issued permits will be performed by the ‘Office of Inspectors’ which is an integrated part of EPA, servicing all the above mentioned offices. The work will be supported by the presence of the laboratory, waste and environmental data collection system, permit registration system hereunder data on waste export and import licenses.
7.2.4 Organisation of municipalities
Municipalities are acting inside the framework layout by the ‘Law on Local Self-Management’. This law is also applicable to the management of environmental and in particular waste issues. Municipal work flow with respect to environmental and waste management can be depicted as follows:
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Fig 7-5: Municipal work flow
Municipal Work Flow (environment and waste management)
PoliciesPolicies PermitPermit AndAnd InitiateInitiate MonitorMonitor t PlansPlans AuthorizeAuthorize OperateOperate ReportReport pu ControlControl In PublicPublic ContractContract ParticipationParticipation
k c a b d DATA COLLECTION ee DATA COLLECTION F
The municipalities are requested to prepare all relevant waste management plans at their administrative levels. This has to be based on the national waste management plans, ‘National Waste Management Policy’ and legislative framework. Therefore the first activity step is to establish municipal policies and plans supplemented with public participation followed by issuance of waste management permits for the operation activities performed by enterprises in coordination with ‘Environmental Protection Agency’. The activities of the enterprises suppose to materialise municipal plans related to environment and waste. Municipalities have the obligation to follow up on the waste management activities permitted on their territory through the presence and acting of EPA’s inspectors. They have also obligation of the reporting on all environmental and waste related issues facilitated by relevant data collection. In order to comply with these tasks, a certain restructuring of current municipal administrative structure will be necessary, so the future organisation will be as follows:
Fig 7-6: Proposal of future municipal organisation
A Municipal Organisation
Mayor
Municipal Assembly
General Management Public Utility Company
Economy Policy & Urban Human Operations Inspectors Contracts Planning Dvlpm Resourc Maint + Finances Environm Infrastruct Social MEPA …….. ….. Property.. Health…. Insp.
Private Operator
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The overarching decision making body is the Municipal Assembly authorized by law to make statutes, municipal byelaws and other formal decisions on municipal organisations, plans, development and activities. The underlying administration should be organised to facilitate the Assembly and should be capable of preparing the decisions to be made and to carry them out the way they were decided. Detailed description of the tasks allocated to each of the offices is described in the ‘Institutional Restructuring Package’.
In this context it is worth mentioning the ‘Office of EPA Inspectors’ which is directly related to the environmental enforcement and control activities, hereunder waste management. Presence of EPA inspectors at the municipal level will inevitably reinforce the cooperation between ministerial and municipal administrative levels and accelerate transfer of waste management related know-how and information to local communities.
It is expected that collection and transfer of waste data, permitting details and information related to waste export and import will be essentially improved by such an organisational arrangement. As the packaging and packaging waste issues will receive in the near future a great attention at the national and municipal level, the presence of inspectors will also facilitate implementation of management system of recyclables especially related to packaging waste.
7.2.5 Municipal waste management
Currently municipal waste management is undertaken by municipally owned management companies, one in each municipality. Based on the proposed waste catchment areas (‘Municipal Waste Management Report’) and establishment of associated intermunicipal waste disposal landfills (‘Landfill Site Selection Report’) , it is inevitable that operational and therewith financial requirements will be very high in the coming years. This would mean that the present arrangement of one waste management company per municipality is inadequate and shall be reconsidered.
As an alternative it is proposed to establish intermunicipal waste management companies utilising the same approach as for establishment of intermunicipal landfills. In this connection project prepared a draft document entitled ‘Deed of Partnership’ which is a framework of intermunicipal cooperation. The future structure of tasks performed buy intermunicipal waste management company is outlined below and in principle resembles set up of current activities of municipal companies. The difference will be that these functions are performed through cooperation between two or more municipalities as share holders.
Fig 7-7: Future intermunicipal waste management company
Municipality Landfill Direct and Monitor
Company Re Execute Cyc ling
Trans fer stations
House Indu Sludge Slurry Civic Trans Hold strial Amenity port waste Sites
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8.0 Public Participation Process
8.1 Introduction
In order for the Strategy to be successful it will be necessary to change public attitudes to waste so that there is a greater commitment to recovery schemes and a willingness to participate in new approaches to waste collection and move away from existing arrangements. It will also be necessary to ensure that key stakeholders are aware of the need to change existing waste management arrangements and to secure their full commitment to the Strategy and meeting the challenges that lie ahead.
It is therefore considered that the Municipalities should try and secure a high profile for the Strategy and that the implementation of a public education and waste awareness campaign should be undertaken as a high priority. The aim of the campaign would be to provide information and advice on waste, to encourage the necessary behavioural changes required to ensure support for, and commitment to, new waste management arrangements. This initiative would consist of a promotional campaign aimed at the general public, where the potential for joint activity with other local authorities, retailers and manufacturers would be sought; as well as an educational programme aimed at schools that would seek to incorporate waste management into the national curriculum through the production of curriculum support materials, and by providing the opportunity for the development of recovery schemes within schools in which pupils could participate.
Public involvement has been ongoing since the commencement of the project in September 2003. The initial public consultation has involved placing a public notice in local/national newspapers inviting for participation in presentation meetings of Baseline Report. This was followed by several interviews with TVCG and local radio stations. Presentation of Baseline Report has been made in Northern, Central and Coastal Region.
A briefing document was also circulated to public and interest groups outlining preliminary findings from the Baseline Report.
Public consultation process continued with the siting of new landfills for municipal waste. The sites proposed by the municipalities throughout the country have been evaluated by the project and most appropriate locations presented to the public at the Public Campaign meeting in each catchment area. These meetings have been preceded by placement of notice in local/national newspapers and posters placed around the city.
8.2 The Way Forward
Establishing the policy of increasing the public awareness for environmental and waste problems is the responsibility both of Ministry of Environment and Physical Planning and municipalities. This policy should demand that all companies dealing with waste include campaigns for development of public awareness in their management programmes. All public campaigns should be reinforced by legislation enforcing and controlling management of waste at all levels, inclusive illegal dumping. Dialogue and information is a key factor in each public awareness activity as this is the only way of engaging public in waste related matters and finding feasible and durable solutions acceptable to all parties involved.
To ensure the public awareness approach to change peoples behaviour is institutionalised, we propose that a new positions created within Ministry of Environmental Protection and Physical Planning (MEPPP) for dedicated ‘Environmental Campaign Officers’ (ECOs). These officers will coordinate all activities on environmental protection, with waste being one of these activities. These positions are similar to those in Western European Agencies and have been adapted to meet the local administrative structures. ECOs will undertake a mixture of activities aimed at specific audiences to ensure the messages on wastes reaches the public and key stakeholders for action to be undertaken to improve the situation.
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The proposed public awareness activities and professional development of ECOs and municipal environmental officers are designed to build strategic competencies within MEPPP and the municipalities to allow them to influence key stakeholders (tourist industry, education establishments, NGOs, mass media, village communities etc) in a professional and focused manner.
There are currently a number of strategic windows of opportunity which can be used immediately to positively influence a change of behaviour of the society to wastes management issues and allow them to become part of the solution. These include European Agency for Reconstruction funded solid wastes master plan, ongoing international investments into landfill construction and remediation and ongoing educational and NGO activities in solid wastes management. These can be used as the initial base for the ECOs and municipal environmental offices to work with and build their campaigning activities on.
Given the immediate priority to stop dumping at a number of municipal dump sites, it has been recommended to use the ongoing and proposed dump remediation programmes and the opening of the new world bank funded landfill site and the proposed regional landfills to stimulate change of behaviour in the publics attitude to wastes management. In parallel to this it is also essential to sensitise the public on municipal wastes collection and recycling activities to further motivate them to become part of the solution.
Short and medium term institutional development requirements have been proposed to ensure that the policy can be implemented.
Currently, public access to information is increasingly considered an integral part of democracy. The right of access to environmental information is one of the most important instruments of environmental protection. Moreover, it is considered an indispensable precondition for implementing the disclosure to society principle included in the State Environmental Policy. This right is crucial for “public participation”, therefore for the influence that society, citizens and their groups may have on environmental decision-making. Active citizen participation in the decision-making process is impossible without easily available and credible information. Environmental information can be an independent tool of environmental protection. Disclosure of disturbing information (often with participation of the media) starts the process of public critique. The availability of information on the environment may influence decisions of entrepreneurs whose activities impact the environment. These entrepreneurs, in order to improve their image among clients, may change their policies, technologies and sales and supply structure to those less harmful to the environment. Experience of countries that have successfully introduced access to information legislation confirms that it is an efficient tool of environmental protection.
The mechanisms described above grant citizens and representative bodies the right to demand disclosure of official materials that relate to environmental protection. Many countries have adopted legislation requiring administration bodies to disclose information used in decision-making. In many countries, the obligation of collecting and disclosing information is a crucial component of environmental impact assessment legislation. Legislation of numerous countries, e.g. of the EU Member States, require preparation and disclosure of reports on the environmental impact assessment prior to making decisions that relate to the environment. The public must be involved in the preparation of the report, and the report must be made publicly available. A number of domestic, international and EU legal acts relate to public participation in the environmental decision-making process. The most important documents in this area are: Council Directive 85/337/EEC of 27 June 1985 on the Assessment of the Effects of Certain Public and Private Projects on the Environment, amended by the Council Directive 97/11/EC of 3 March 1997; Directive 2001/42/EC of 27 June 2001 on the Assessment of Effects of Certain Plans and Programmes on the Environment and the Aarhus Convention.
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9.0 Implementation of Master Plan
The Plan’s top priority is to promote aggressive waste reduction. This is applicable to all waste streams. New companies or waste generators entering the waste management activities shall demonstrate how they will comply with the waste management hierarchy as condition of receiving land use and business permit.
The Plan provides a sound basis for source reduction and for planning and siting needed for waste management facilities, which offer alternatives to continues reliance on disposal of waste in an uncontrolled manner.
The Plan promotes widespread education of citizens on all aspects of waste management issues.
9.1 Municipal Waste Management
For sustainable implementation of the proposed municipal waste management system various implementation measures are suggested and listed below: • Obtaining necessary approvals and consensus • Agreements of the provision of the financing bodies • Action plan and detail planning • Public awareness and education program • Capacity building • Monitoring, supervision and control • Financial appraisal • Research and development The proposed time schedule with the various steps for implementation is shown in the following figure:
Figure 9-1: Implementation schedule for municipal waste management activities Short-term Medi um-Term Impl ementati on 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 Approval of the Strategy Fi nanci al Apprai sal Short-Term Acti on Plan Public Awareness Campai gn Capaci ty Building Procurement of the Equi pment Speci fi cati on of Equi pment El aborati on of Tender Documents Eval uati on of Tenders Delivery of the Equi pment Di stri buti on of the Equi pment Start of the Regul ar Waste Management System Regul ar Performance of the MWM System Data Collection Adaptati on of the MWM System Reporti ng Research and Devel opment Medi um-Term Acti on Plan Public Awareness Campai gn Capaci ty Building Procurement of the Equi pment Speci fi cati on of Equi pment El aborati on of Tender Documents Eval uati on of Tenders Delivery of the Equi pment Di stri buti on of the Equi pment Extensi on of the MWM System Regul ar Performance of the MWM System Data Collection Adaptati on of the MWM System Reporti ng 105
9.2 Recycling Strategy
The implementation plan for short and medium term activities is outlined below. Short term implementation activities consist of preparatory public campaign, institutional capacity building, and purchase of equipment followed by introduction of the system itself and supplemented by data collection activities. This period is envisaged to start immediately and continue until 2009.
Medium term development of recycling system involves reinforcement of public campaign activities in order to increase the rate of collection of recyclables, continued collection of relevant waste data and implementation of necessary adjustment of the system. Duration of this period is expected to vary five years, from 2010 to 2015, where the recycling targets have to be met and adjusted depending on the requirement of environmental aquis negotiated with EU during this period.
The proposed time schedule with the various steps for implementation is shown in the following figure:
Figure 9-2: Implementation schedule for recycling measures (2010 – 2015) Short-term Medium-Term Implementation Measures 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 Approval of the Strategy Financial Appraisal Short-Term Elaboration Action Plan Public Awareness Campaign Capacity Building Purchase of the Equipment Elaboration of Tender Documents Eval uation of Tenders Delivery of the Equipment Distribution of the Equipment Intrduction of the Recycling System Regular Performance of the Recycling System Data Collection Adaptation of the Recycling System Reporting Research and Development Medium-Term Detail Planning Public Awareness Campaign Capacity Building Purchase of the Equipment Elaboration of Tender Documents Eval uation of Tenders Delivery of the Equipment Distribution of the Equipment Extension of the Recycling System Regular Performance of the Recycling System Data Collection Adaptation of the Recycling System Reporting Research and Development
9.3 Hazardous Waste Management
A tentative time schedule for the planning, designing, construction and initial operation of the hazardous waste treatment facility is shown below:
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Figure 9-3: Implementation schedule for hazardous waste management
ID Task Nam e 2005 2006 2007 2008 Qt r 4 Qt r 1 Qtr 2 Qt r 3 Qt r 4 Qt r 1 Qt r 2 Qt r 3 Qt r 4 Qt r 1 Qtr 2 Qt r 3 Qt r 4 Qt r 1 1 Identification of the site 2 Feasibility Study 3 Approv al of FS 4 Conceptaul design 5 Tendering, detailed engineering 6 Purchase & Construction 7 Operational Training
It is planned that this facility will be supplemented with the incineration plant from year 2015.
9.4 Healthcare Waste Management
Implementation of the measures outlined in the Management Plan implies immediate general upgrading of the hospitals internal waste collection system. This step shall be followed by introduction of appropriate transport facilities and controlled disposal at the existing dumpsites, except human tissue. It is envisaged that said measures will be operational until new landfill are available (2007-2008) and new incineration plant is established in 2015.
Schedule of Short Term Implementation Activities:
Figure 9-4: Short-term implementation schedule for healthcare waste management
ID Task Nam e 2005 2006 2007 2008 2009 Qt r 1 Qt r 2 Qt r 3 Qt r 4 Qtr 1 Qt r 2 Qt r 3 Qt r 4 Qtr 1 Qtr 2 Qt r 3 Qt r 4 Qtr 1 Qt r 2 Qt r 3 Qtr 4 Qt r 1 Qt r 2 Qt r 3 Qtr 4 1 Tender for internal collection and transport equipment 2 Acquisition of the internal collection and transport equipment 3 Defining and acquisition of the pacakaging material 4 Tender for special storage rooms 5 Cons truction of Special storage rooms 6 Ac quisition of freezers 7 Tendering for special transport v ehicle 8 Ac quisition of s pecial transport vehicle 9 Acquisition of hard plastic transport containers 10 Preparation of a restricted area and special cells at the 11 Training of personnel 12 Evaluation of the system
9.5 Sewage Sludge Management
This Plan operates with short- mid- and long term implementation schemes. Following issues are proposed for the implementation:
Short Term (2004-2008):
Institutional Requirements
• developing of Regionalisation
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• polluter pays principal and fee collection methodology • institutional participation, authorisation and certification • environmental corporate quality management • reporting system and data base development
Legal Requirements
• development and implementation of regulations
Technical Requirements
• Changing of operational mode of WWTP Podgorica • Investment in additional sludge transport facilities for WWTP Podgorica
Financial Requirements
• Approval and implementation of fee structure for sludge management at WWTP Podgorica
Public Awareness Requirements
• Start public awareness and participation programme in Podgorica • Start public awareness and participation programme in Herceg Novi, Ulcinj, Kotor & Tivat, Danilovgrad, Niksic, Andrijevica, Plav, Berane, Rozaje, Kolasin, Mojkovac, Niksic, Savnik, Zabljak and Pluzine.
Mid Term (2008-2009/2018):
Institutional Requirements
• Certification and environmental corporate quality management • Implementation of facility neighbourhoods
Technical implementation
• Dewatering • Solar drying treatment • Composting plants • Transport
Financial requirements
• Approval and implementation of fee structure for all WWTP
Public Awareness Requirements
• Start of public awareness campaign for all WWTP • Implementation of public participation strategy for Budva and Cetinje
9.6 Management of present dumpsites
This Plan also operates with short, medium and long term planning of implementation activities. Following issues are proposed for these two periods:
Short term (2004-2005):
Institutional Requirements
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• developing of Regionalisation • polluter pays principal and fee collection methodology • institutional participation, authorisation and certification • reporting system and data base development
Legal Requirements
• development and implementation of regulations
Technical Requirements
• removal of waste, stabilisation measures, implementation of minimum operational standards, installation of minimum facilities and equipment in Niksic, Ulcinj, Bijelo Polje, Berane, Rozaje, Andrijevica and Zabljak municipalities • closing of dumpsites in Niksic_02, Bar, Herceg Novi, Kotor_01,02,03, Tivat_02, Pljevlja_02, Pluzine, Savnik
Public Awareness Requirements
• Start public awareness and participation programme in Podgorica • Start public awareness and participation programme in Herceg Novi, Ulcinj, Kotor & Tivat, Danilovgrad, Niksic, Andrijevica, Plav, Berane, Rozaje, Kolasin, Mojkovac, Niksic, Savnik, Zabljak and Pluzine.
Mid term (2005-2006):
Institutional Requirements
• developing of Regionalisation • polluter pays principal-Establishment of funding • institutional participation, authorisation and certification • reporting system and data base development
Legal Requirements
• development and implementation of regulations o landfill regulations o funding o implementation of soil protection regulations
Technical Requirements
• risk reduction measures, partial closures and stabilisation measures, monitoring activities in Niksic, Cetinje, Ulcinj, Tivat_01, Bijelo Polje, Pljevlja_01, Berane, Rozaje, Plav_02, Mojkovac, Kolasin and Andrijevica.
• Closure measures in Pluzine, Savnik and Zabljak.
Public Awareness Requirements
• Follow up on public awareness and participation programme in Podgorica • Implementation of public awareness and participation programme in Herceg Novi, Ulcinj, Kotor & Tivat, Danilovgrad, Niksic, Andrijevica, Plav, Berane, Rozaje, Kolasin, Mojkovac, Niksic, Savnik, Zabljak and Pluzine.
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9.7 New Landfill Sites
Implementation of the plan for establishing new municipal waste disposal site should start immediately as the need for EU compliant intermunicipal landfills is imminent. It is envisaged that feasibility studies could start as soon as the funds for this activity are available followed by the design and construction phases.
The entire time period for feasibility study, design and construction of the seven EU compliant landfills serving 7 catchment areas is expected to be approximately 2 years. The period could be shortened as the construction activities planned in the first phase would incorporate only the landfill capacity for the first five years of operation. However availability of the funds is a decisive factor.
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