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16 Solid Waste Management Plan Davao City Infrastructure Development Plan and Capacity Building Project FINAL REPORT PART II Chapter 16 Solid Waste Management Plan 16 SOLID WASTE MANAGEMENT PLAN 16.1 Institutional and Financial Framework 16.1 The responsibility for solid waste management rests unequivocally with the LGUs. This mandate is clearly defined in the Local Government Code and the Solid Waste Management Act (RA 9003). Hence, the LGU has to ensure service provision, which it can do directly or through an outsourced modality. It is empowered by the LGU Code and the BOT Law to use PPP arrangements for any or all components of solid waste management (SWM). For example, it can partner with junk shops for materials recovery; enter into a service contract with trucking companies for hauling of solid waste; or a BOT arrangement for a landfill site; or a joint venture (JV) arrangement for a waste-to-energy (WTE) plant. 16.2 Presently, Davao City funds its SWM service provision directly through budget appropriation. The service does not generate revenues as there are no user fees charged. The Code allows the city to charge fees and to create an economic enterprise for the service provision. This is an option that the city could consider to ease the current financial burden. 16.3 Furthermore, the city can also enter into PPP or JV arrangements which may have the advantage of having the capital investments provided by the private partner, availing of advance technology and management expertise. However, considering the profit orientation of private partners, the city has to ensure that the critical risks are avoided or mitigated, primarily demand, regulatory factors (e.g., pricing and technical standards), and credit of the LGU for off-take arrangements. The city has to ensure as well that it has the capacity to implement and manage PPP or JV arrangements, notably preparation or evaluation of proposals (involving technical, financial and legal and institutional analyses), procurement and contract award, and contract management over the life of the concession period. 16.4 One mechanism in risk mitigation, especially for risks allocated to the city is through the provision of guarantees, usually involving compensation to the private proponent once risks are triggered. As such, the city should also be knowledgeable in managing both the direct obligations and contingent liabilities in the contract. 16.5 A WTE plant project should be prepared, constructed, operated and monitored in line with the National Solid Waste Management Commission's (NSWMC) Resolution No. 669 in 2016 or the ‘Adopting the Guidelines Governing the Establishment and Operation of Waste to Energy Technologies for Municipal Solid Wastes’. 16-1 Davao City Infrastructure Development Plan and Capacity Building Project FINAL REPORT PART II Chapter 16 Solid Waste Management Plan 16.2 Solid Waste Management System for the Year 2045 1) Current Municipal Solid Waste Stream in Davao City 16.6 All the waste stream in its current state cannot be factually determined. Based on findings from the field visit, however, the assumed current municipal solid waste stream in Davao City is shown in Figure 16.2.1. Source: IM4Davao Team Figure 16.2.1 Current Municipal Solid Waste Stream in Davao City 16.7 In the calculation, the only measured figure is collected waste of 596 tons/day, which was recorded at the weighbridge in the new Carmen Sanitary Landfill Site. There are several MRFs in Davao City that treat valuables and organic waste from households and institutions. However, every MRF can recycle only a couple of hundred kilograms per day due to lack of budget for electricity and fuel to operate recycling equipment. Most recycling methods are implemented manually. Therefore, the MRFs currently cannot recycle such capacity that affect the comprehensive waste stream in Davao City. 2) Projection of Solid Waste Amount 16.8 The computation for the projected volume of solid waste is based on the 10-year Integrated Solid Waste Management Plan in Davao City. The plan used the projected population based on the CLUP, and the total waste amount is calculated using the following formula: (Total waste amount) = (Population) x (Unit discharge amount per capita) x (collection rate in the designated collection area). 16.9 The unit discharge amount per capita was determined by the waste characteristic survey conducted in 2017, and it is 0.58kg/capita/day. Following the equation, the projected volume of municipal solid waste between 2017 and 2045 is shown in Table 16.2.1 and Figure 16.2.1. By 2045, the city will be generating around 1,602 tons of solid waste per day. 16.10 As for the recycling rate, CENRO is aiming for 100% collection of the waste by 2025, as described in the 10-year plan. 16-2 Davao City Infrastructure Development Plan and Capacity Building Project FINAL REPORT PART II Chapter 16 Solid Waste Management Plan Table 16.2.1 Projected Municipal Solid Waste Amount in Davao City Unit: kg/ day Year 2017 2022 2030 2045 Total waste amount 834,767 1,023,310 1,274,976 1,601,736 Biodegradable 389,557 550,581 638,381 801,989 Non-Biodegradable Recyclable 144,299 202,441 234,723 294,880 Residual 227,304 324,939 376,755 473,313 Special Waste 14,756 21,663 25,117 31,554 Source: 10-year Integrated Solid Waste Management Plan (2018-2027) Waste amount (kg/day) (kg/day) amount Waste Source: IM4Davao Team Figure 16.2.2 Projected Municipal Solid Waste Amount in Davao City 16.11 Even if 3R implementation is enhanced every year, the municipal solid waste amount in 2045 would be over 190% of the 2017 level due to the increase of population. The breakdown of the total waste amount is based on the characterization survey conducted in 2017, and in 2045, it might be the key to treat biodegradables as recyclables. In the meantime, in order to manage the whole waste continuously, residual waste should be treated or disposed appropriately. 3) Consideration of Solutions on Solid Waste Management 16.12 Appropriate countermeasures are necessary at each stage of the waste stream in order to manage the entire waste in the future. From the discharge of waste at origin to final disposal, Davao City must implement the necessary measures in a step-by-step manner. 16.13 At the waste discharge stage, all households and institutions should reduce their amount of generated waste. From Japan’s experience in 3R implementation, it took 8 years to reduce the total waste generation after the comprehensive recycling laws were enacted. Considering the promotion period of recycling to the public, it actually took over 18 years to make the recycling practices effective. Nowadays, the recycling rate is approximately 20%, which can be adopted as a target in Davao City in the future. 16.14 At the collection stage, it is necessary to increase the number of waste collection vehicles to collect all discharged solid waste. In addition, expansion of the collection area should be implemented simultaneously with the increase in vehicles. Waste collection 16-3 Davao City Infrastructure Development Plan and Capacity Building Project FINAL REPORT PART II Chapter 16 Solid Waste Management Plan vehicles should be increased every year. At the same time, some barangays are quite far from the current waste management facilities like a sanitary landfill or MRFs. For example, Marilog District is located at the edge of the city, and CENRO is planning to install a small-scale landfill with an MRF in a barangay so that the district could manage its waste independently. 16.15 At the intermediate processing stage, the alternatives for Davao City are introduction of WTE facilities and installation of MRFs. WTE technology can reduce the amount of waste to one-tenth, which can prolong the service life of sanitary landfills. In fact, Davao City has started a WTE project. With a capacity of 600 tons per day, the city will install a WTE plant in several years and it will be operated by a private sector for 20 years. Once the WTE plant is in operation, the remaining capacity of the landfill could be saved and prolong its service life. The WTE plant can be the main engine of the city’s SWM system. Meanwhile, the existing MRFs in the city all have a small capacity up to 20 tons per day, and in the current situation the actual output from a MRF is supposed to be up to 500kg per day. Although the increase of MRFs is technically possible, the impact to the entire waste volume in the city might be really limited. If a large-capacity MRF is to contribute in the SWM system, a feasibility study for such a facility should be conducted. Prior to this, Davao City should formulate an integrated SWM plan that will take into consideration the installation of a large-scale MRF. 16.16 RA 9003 encourages all LGUs to undertake efforts to realize and operate MRFs continuously. However, there are few cases in the country that a large capacity MRF is operated successfully and continuously. Following are reasons why this is so: (i) Lack of continuous recycled material dealers; (ii) Lack of continuous incoming recyclables to MRFs; and (iii) Low quality of recycled materials. 16.17 Especially in composting, only good raw materials and the appropriate mixture of materials can be suitable for making compost for farming. Thus, some barangays make compost with only good raw materials like banana peels or some other specific materials from market places. For the success of MRF operation including a composting system, there is a need to prepare a feasibility study and undertake market development to support the eventual installation of the MRF.
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