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Pohnpei State Solid Waste Management Strategy

2020 – 2029 (Action Plan: 2020‐2024)

Acknowledgements

This State Solid Waste Management Strategy (SSWMS) would not have been realized without the wholehearted involvement and commitment of key organizations and individuals. At the outset, the Pohnpei State Government would like to acknowledge the support and guidance of those who are working hard to solve waste problems.

First and foremost, we would like to extend our deepest gratitude to the Secretariat of the Pacific Regional Environmental Program (SPREP), the Japan International Cooperation Agency (JICA) and the Japanese Technical Cooperation Project for the Promotion of Regional Initiative of Solid Waste Management Phase II (J‐PRISM II) for providing the necessary technical assistance to the State of Pohnpei in the area of Solid Waste Management.

We would also like to thank all other parties that have been making efforts to make Pohnpei clean and beautiful, namely the FSM National Government Department of Environment, Climate Change and Emergency Management (DECEM), the Pohnpei State Environmental Protection Agency, the Pohnpei State Office of Transportation and Infrastructure, local governments (LGs) and the Pohnpei Waste Management Service, for sharing their experience and insight. Every individual who is a part of these organizations has provided tremendous contributions, giving his or her valuable time and experience to promote a cleaner Pohnpei. In Pohnpei, we say NI WAHU and KALAHNGAN EN KUPWUROMI.

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Foreword

Managing solid waste problems in an appropriate manner is of critical importance, as well as a challenge, for the capital State of Pohnpei. This SSWMS will serve as the basis for activities and programs of the State of Pohnpei to fulfill the tremendous need to manage and improve its solid waste management system. This SSWMS will guide us in improving the situation, but success can only be achieved with the full involvement and commitment of all stakeholders and community members.

The scope of this SSWMS is evidence of our commitment to protect our environment effectively and mitigate the social and economic impact of solid waste. The continued and concerted efforts of everybody will be vital for a cleaner Pohnpei.

For these reasons, I endorse this SSWMS.

Date _________________________ �.

Governor, State of Pohnpei Federated States of Micronesia

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Table of Contents

ACKNOWLEDGEMENTS ............................................................................................. I

FOREWORD ................................................................................................................. II

TABLE OF CONTENTS .............................................................................................. III

EXECUTIVE SUMMARY ............................................................................................. VI

FORMULATION OF STATE SOLID WASTE MANAGEMENT STRATEGY ........ 1

1.1 OBJECTIVES ................................................................................................................. 11.2 STRUCTURE OF THE NEW SSWMS ............................................................................... 1

PART ONE: CURRENT SWM SITUATION ................................................................. 2

CURRENT SITUATION AND ISSUES ................................................................... 2

2.1 STATE INFORMATION .................................................................................................... 22.1.1 GEOGRAPHY AND CLIMATE .................................................................................. 22.1.2 ADMINISTRATION ................................................................................................. 32.1.3 POPULATION ....................................................................................................... 32.1.4 ECONOMIC AND FINANCIAL SITUATION ................................................................. 32.2 CURRENT SITUATION ON SOLID WASTE MANAGEMENT ................................................ 42.2.1 OVERVIEW OF SWM FROM THE POINT OF VIEW OF WASTE FLOWS ...................... 42.2.2 TECHNICAL SITUATION OF SWM .......................................................................... 52.2.3 INSTITUTIONAL SITUATION OF SWM .................................................................. 192.2.4 FINANCIAL SITUATION OF SWM ......................................................................... 212.3 MAJOR CHARACTERISTICS OF SWM IN POHNPEI ....................................................... 212.3.1 WASTE GENERATION ......................................................................................... 212.3.2 WASTE DISCHARGE ........................................................................................... 222.3.3 WASTE COLLECTION SYSTEM ............................................................................. 222.3.4 RECYCLING SYSTEM BASED ON THE CDL PROGRAM .......................................... 222.3.5 MANAGEMENT OF THE PUBLIC LANDFILL SITE ..................................................... 22

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2.3.6 WASTE COLLECTION FEE ................................................................................... 232.3.7 COST FOR SWM ............................................................................................... 232.3.8 INSTITUTIONAL SETTINGS .................................................................................. 23

PART TWO: STRATEGY ........................................................................................... 24

THE STATE SOLID WASTE MANAGEMENT STRATEGY (SSWMS) .............. 24

3.1 BACKGROUND ............................................................................................................ 243.2 PURPOSE ................................................................................................................... 243.3 VISION ....................................................................................................................... 243.4 SCOPE ....................................................................................................................... 243.5 GUIDING PRINCIPLES ................................................................................................. 243.6 SWM ISSUES TARGETED UNDER THE SSWMS .......................................................... 253.7 KEY STRATEGIC ACTIONS AND TIME FRAME .............................................................. 263.7.1 KEY STRATEGIC ACTIONS .................................................................................. 263.7.2 TIME FRAME ...................................................................................................... 283.8 TARGET ..................................................................................................................... 283.8.1 SETTING FUTURE TARGETS ................................................................................ 283.8.2 FUTURE WASTE FLOW ....................................................................................... 293.8.3 SETTING THE PLANNING INDICES ........................................................................ 30

ACTION PLAN ...................................................................................................... 35

4.1 COMPONENT 1: IMPROVEMENT OF CDL SYSTEM ........................................................ 354.1.1 NECESSARY ACTIVITIES ..................................................................................... 354.1.2 IMPLEMENTATION SCHEDULE ............................................................................. 364.1.3 IMPLEMENTATION BUDGET ................................................................................ 374.2 COMPONENT 2: PROPER MANAGEMENT OF FINAL DISPOSAL SITE ............................. 384.2.1 NECESSARY ACTIVITIES ..................................................................................... 384.2.2 IMPLEMENTATION SCHEDULE ............................................................................. 394.2.3 IMPLEMENTATION BUDGET ................................................................................ 394.3 COMPONENT 3: IMPROVEMENT OF WASTE COLLECTION SYSTEM BY LOCAL GOVERNMENTS ................................................................................................................... 394.3.1 NECESSARY ACTIVITIES ..................................................................................... 394.3.2 IMPLEMENTATION SCHEDULE ............................................................................. 414.3.3 IMPLEMENTATION BUDGET ................................................................................ 42

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4.4 THE ACTION PLAN (THE PROJECT) ............................................................................ 434.4.1 SCHEDULE OF THE ACTION PLAN (THE PROJECT) .............................................. 434.4.2 COST OF THE ACTION PLAN (THE PROJECT) ...................................................... 44

ANNUAL WORK PROGRAM ............................................................................... 45

ANNEX 1 : CURRENT WASTE FLOW IN POHNPEI STATE .................................. 48

1. PURPOSE ................................................................................................................... 482. OUTLINE OF WASTE FLOW ................................................................................................ 483. METHODOLOGY ............................................................................................................. 503.1 BASELINE SURVEY .................................................................................................. 50

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Executive Summary

This new State Solid Waste Management Strategy (SSWMS) is formulated with the aim of enabling the State of Pohnpei to establish a technically sound and financially sustainable solid waste management (SWM) system. To do so, this ten‐year SSWMS consists not only of strategic elements, but also of a mid‐term Action Plan for the first five years, with technical, institutional and financially appropriate options, which will lead to the implementation of the SSWMS.

SWM Issues Targeted Under the Strategy

SWM issues targeted under the strategy are summarized as follows, based on the present situation, which has been identified technically and quantitatively through a waste flow analysis.

Issue 1: Improvement of the current CDL system

Beverage container recycling, often called Container Deposit Legislation (CDL), was started in Pohnpei in August 2012, in accordance with Chapter 3 of Title 27 of the Pohnpei Code. In 2016, the Code was amended to require importers to pay deposits at the time of import and not at the time of first retail sale, in order to tackle low deposit collections. As a result, deposits were collected properly and the recycling fund increased. On the other hand, it became clear that the recycling rate remained low, at about 50%. In order to increase the recycling rate, the recycling system — e.g. target items, collection frequency, collection places and the operation entity — needs to be reconsidered and improved.

Issue 2: Proper final disposal

The current public disposal site, which is located in Dekehtik, has been in operation since 1997. The private operator, Pohnpei Waste Management Service (PWMS), to which operations have been contracted out by the Office of Transportation and Infrastructure (T&I), runs the disposal site reasonably well. However, the second cell, which was constructed by PWMS based on the experience improving the first cell using the Fukuoka Method, is being filled up rapidly. Therefore, it is necessary to plan for the future, i.e. prepare for the third and fourth cells with a cost estimate, while sustaining daily operations in accordance with current standards.

Issue 3: Improvement of collection service

As for residential waste, municipalities are responsible for providing collection services. Currently, the collection systems employed by each municipality differ greatly from each other. The Nett Municipal Government (NMG) provides collection services regularly to all residents free of charge, while others such as the Kolonia Town Government (KTG) and Sokehs Municipal Government (SMG) also provide collection service regularly, but have introduced a collection fee system. However, the rate for collection fees is estimated to be as low as 16.9%; in addition, collection service is provided to all citizens regardless of payment of collection fees. In contrast, the U Municipal Government (UMG) and the Kitti Municipal Government (KMG) provide collection services only upon request to those who pay for the service. On top of these various municipal collection systems, there are also free collection days provided several times per year; this is very particular to Pohnpei. Some people accumulate their waste until these free collection days. This is the biggest challenge faced in the SWM sector in Pohnpei.

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Strategy

The Vision, Scope, Key Strategic Actions and Targets are provided in order to formulate this new Pohnpei State Solid Waste Management Strategy.

Vision

A sustainable Pohnpei State, where effective solid waste management practices are implemented in a socially, economically, and environmentally sustainable manner for the benefit of future generations.

Scope

This SSWMS covers the ten‐year period from 2020 to 2029, along with an Action Plan designed to be implemented during the first half of the period, from 2020 to 2024. A general review of the Strategy will be undertaken in 2024 to update its relevance to current needs and then plan the next set of activities for the remaining period of the Strategy.

This SSWMS covers solid wastes generated by households, institutions and commercial operations in the state. All of these wastes generated in Pohnpei are termed State Solid Waste (SSW) in this Strategy. The Strategy does NOT cover medical waste, hazardous waste, derelict vehicles, electrical and electronic waste, or waste oil.

Key Strategic Actions

This document provides for the following three strategic actions. These actions are explained in brief as follows:

1 Improvement of the CDL System

The CDL system in Pohnpei, which targets only aluminum cans as of June 2019, can be improved substantially through the following activities.

1.1 Develop a new facility and equipment

1.1.1 Procure new equipment

1.1.2 Construct a new recycling center near the current Dekehtik disposal site (approval needed from the Attorney General’s office regarding land use for a recycling center)

1.2. Amend the laws and regulations in order to expand target items

1.3. Organize public consultations on the above changes (inform importers and residents about the new target items and frequency of collection)

1.4. Contract out CDL operation to the private entity

1.5. Commence the new CDL operation by the private entity

1.6. Monitor the progress of CDL activities by Environmental Protection Agency (EPA)

2 Proper Management of Final Disposal Site

The current public disposal site, which is located in Dekehtik, has been in operation since 1997. While it is operated reasonably well, the current second cell is being filled up rapidly. Therefore,

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it is necessary to plan for the future, while sustaining daily operations in accordance with current standards.

2.1 Sustainable operation of the Dekehtik landfill site

2.1.1 Secure annual operation budget by T&I

2.1.2 Introduce gate fees to be collected from business entities at the disposal site

2.1.3 Contract out landfill operation to a private entity

2.1.4 Monitor the status of landfill operation by T&I and EPA

2.2 Expansion of the Dekehtik landfill site

2.2.1 Formulate an expansion plan for the current Dekehtik disposal site with necessary cost estimation by PWMS and submit the plant to T&I

2.2.2 Secure the budget for implementation of the expansion plan

2.2.3 Commence expansion work

2.2.4 Start using the new cell for landfill operation

3 Improvement of Waste Collection by Local Governments

As for residential waste, municipalities are responsible for providing collection services. Currently, the collection systems employed by each municipality differ greatly from each other. On top of these various municipal collection systems, there are also free collection days provided several times per year; this is very particular to Pohnpei. Some people accumulate their waste until these free collection days. This is the biggest challenge faced in the SWM sector in Pohnpei.

3.1. Confirm Local Governments’ (LGs’) willingness to improve their collection systems

3.1.1. Review current collection systems

3.1.2. Share concerns and issues in each municipality

3.1.3. Make a consensus to improve their collection systems

3.2. Improvement of collection systems

3.2.1 Kolonia Town Government

Review the current collection system in order to improve sanitary conditions intown

Examine the contents of contract with the private entity

Improve collection efficiency and discharge/storage method

3.2.2 Other municipal governments

Provide inclusive waste collection services to residents regularly

Find financial sources to cover collection costs

3.3. Enhance human capacities to improve waste collection

In order to improve waste collection services, activities such as training on inspection and the maintenance of collection vehicles (for SWM personnel in each municipality),

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and awareness raising activities on waste discharge practices (for residents) will be carried out.

Targets

Table 1 Strategy Targets

Item Unit 2017 2024 2029 Recycling rate % 26 27 27 Rate of collection service provided by LGs % 13 20 39

Rate of collection service on free collection days % 16 15 0

Rate of waste transported directly to landfill sites % 27 20 15

Action Plan

Taking the guiding principles detailed below in Section 3.5, and the SWM issues identified above, the specific activities required to implement this SSWMS are presented in an Action Plan. This Action Plan, which defines the priorities for the next five years, can be viewed as a five‐year project with cost estimation and schedule as shown below.

Implementation Schedule for the Action Plan (the Project)

The schedule for the entire Project is shown in the table below.

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Table 2 Implementation Schedule

Action Plan(Mid-term plan)2020 2021 2022 2023 2024


1.1.1 Procurement of new equipment1.1.2 Construct a new recycling center near the currentDekehtik disposal site1.2 Amend the laws and regulations in order to expand targetitems1.3 Organize public consultations on the above changes

1.4 Contract out CDL operation to the private entity1.5 Commence the new CDL operation by the private entity1.6 Monitor the progress of CDL activities by EPA

2.1 Sustainable operation of the Dekehtik landfill site

2.1.1 Secure annual operation budget by T&I

2.1.2 Introduce gate fees to be collected from businessentities at the disposal site

2.1.3 Contract out landfill operation to a private entity

2.1.4 Monitor the status of landfill operation by T&I and EPA

2.2 Expansion of the Dekehtik landfill site2.2.1 Formulate an expansion plan of the current Dekehtikdisposal site with necessary cost estimation by PWMS andsubmit the plan to T&I2.2.2 Secure the budget for implementation of the expansionplan2.2.3 Commence expansion work

2.2.4 Start using the new cell for landfill operation

3.1 Confirm LG’s willingness to improve their collectionsystems3.1.1 Review current collection systems

3.1.2 Share concerns and issues in each municipality

3.1.3 Make a consensus to improve their collection systems

3.2 Improvement of collection systems

3.2.1 Improvement of the collection system of KTG3.2.1 Improvement of collection systems of other municipalgovernments

3.3 Enhance human capacities to improve waste collection

Activities

1. Improvement of CDL system

2 Proper management of final disposal site

3 Improvement of waste collection by the local governments

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Implementation Costs for Project

Costs (US$) for the entire Project are shown in the table below.

Table 3 Project Costs

FY 2020 FY 2021 FY 2022 FY 2023 FY 2024 Total Component 1: Improvement of CDL system

31,500 31,500 521,500 36,500 36,500 657,500

Component 2: Proper management of final disposal site.

154,000 314,000 394,000 384,000 144,000 1,390,000

Component 3: Improvement of waste collection by the local governments

10,500 10,500 60,500 70,500 65,500 217,500

Total 196,000 356,000 976,000 491,000 246,000 2,265,000

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Formulation of State Solid Waste Management Strategy

1.1 Objectives

The previous Pohnpei State Solid Waste Management Action Plan covered the period from 2014 to 2018 and defined certain strategic elements for managing wastes, with due consideration given to the issues at that time. While a number of initiatives were undertaken, and some challenges were overcome, many issues remain to be tackled. Strategic efforts need to be re‐directed to focus on the remaining critical issues, as well as emerging ones currently faced in the solid waste sector in Pohnpei State (this Strategy is targeted for the main island of Pohnpei State).

Considering the situation, this State Solid Waste Management Strategy (SSWMS) is formulated to enable Pohnpei State to establish a technically sound and financially sustainable solid waste management (SWM) system. To do so, this new SSWMS consists of not only strategic elements, but also of a mid‐term Action Plan for the first five years, with technical, institutional and financially appropriate options, which will propel the realization of this new SSWMS.

1.2 Structure of the New SSWMS

This SSWMS is presented in two parts.

Part One provides an overview of the current SWM situation faced in the Pohnpei State waste management sector. In this part, a two‐step process is used to ascertain current issues: first, the current situation is described and measured; then, it is analysed. For the first step, the current waste flow is formulated based on a series of baseline surveys conducted in Pohnpei; this situation is technically as well as quantitatively understood. For the second step, the waste flow is used as the basis for identifying the issues and challenges.

Part Two presents the main body of the SSWMS. It consists of the following: (i) the strategy which sets out the policy directions for next ten years, along with numerical targets; (ii) a mid‐term Action Plan for the first five years, in order to progress towards the targets of the SSWMS; and (iii) annual implementation plans. Part Two will define the direction Pohnpei State should take to address the key issues presented in Part One.

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PART ONE: THE CURRENT SWM SITUATION

The Current Situation and Issues

2.1 State Information

2.1.1 Geography and Climate

The state of Pohnpei is known for its luxuriant inland vegetation and green tropical forest; it has been recognized as the “Garden Island of Micronesia” by the international community. Pohnpei is the largest and wettest island amongst the four states that make up the Federated States of Micronesia (FSM) and has 133.4 square miles of land area.

Southwest of Hawaii, Pohnpei sits in the middle of the Eastern Caroline Islands. The island is covered with green forests, cascading mountain streams, spectacular waterfalls, and hidden pools, and is surrounded by an exquisite marine environment produced by its barrier reef. Additionally, Pohnpei’s main topography consists of an outer barrier reef, an intertidal lagoon and a thick mangrove forest. Furthermore, the lowland area includes the outer edges of the island and the central mountain rain forest.

The center of economic activity in the FSM, Pohnpei has enjoyed the best of what nature provides, from an abundance of tropical fruits and stable crops to a constant and varied supply of fish and seafood. However, the process of rapid economic development over the past several decades has changed the lifestyle of the people who live there, to one that largely depends on imported goods. The consumption of these goods has significantly contributed to the increased generation of solid waste.

Figure 2‐1 Topographic Map in Pohnpei

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2.1.2 Administration

The Pohnpei State Government is divided into three branches, the Executive, Legislative and Judicial. In addition to the state government, there are eleven local governments (LGs) — six on the main islands, namely Madolenihmw, U, Kitti, Nett, Kolonia and Sokehs, and five on the outer islands of Sapwuafik, Pingelap, Kapingamarangi, Nukuoro, and Mwokilloa. Each municipality has its own governance structure, headed by a mayor or chief, with legislative functions performed by a Municipal Council. Pohnpei State also participates in national governance through its four Congressmen, two of whom serve four‐year terms, with the other two serving two‐year terms.

2.1.3 Population

Based on the 2010 Census of Population and Housing, Pohnpei’s population is 34,000 spread over coastal areas. Settlement is fairly even, with only Kolonia showing congestion due to its limited area and township. The island is surrounded by a circumferential paved road that follows the coastline and multiple secondary roads that run up towards the steeper parts of the island. Settlement is frequent along roads and in remote parts of the island, due to ease of accessibility. This has resulted in the wide dispersion of waste generating areas.

2.1.4 Economic and Financial Situation

The economic and financial situation in the FSM in 2017 can be summarized as follows.

Table 2‐1 Economic and Financial Situation

FY 2016 GDP current prices (US$ million): 331.4 Population: 102,453 GDP per capita (US$): 3,235 GNI per capita (US$): 3,769 GNDI per capita (US$): 4,839

Population GDP per capita Chuuk: 46,688 1,994 Kosrae: 6,227 3,376 Pohnpei: 37,893 4,349 Yap: 11,645 4,507

FY 2016 GDP estimates are "interim" until administrative data on gross business revenues become available FY 2010 FY 2015 FY 2017 GDP, % growth 2.0 5.0 3.2 Prices (annual percent change) - Consumer price index 3.6 0.0 0.0 - CPI Domestic items 5.7 0.3 1.6 - CPI Imported items 3.0 0.0 ‐0.1 Employment and Wages - Number of employees1 15,809 15,095 15,620 - Average annual wage2 7,661 8,301 8,408 - Average annual real wage 5,696 5,433 4,909 Government Finance Statistics, $ millions Revenue 200.3 207.9 282.3 - Tax revenue 35.6 39.0 64.0 - Grants 136.7 91.1 130.9 - Other revenue 28.0 77.8 87.5 Expense ‐135.8 ‐153.4 ‐174.4 - Compensation of employees ‐68.0 ‐69.8 ‐73.7

1 These figures include employees of both the private and public sectors. 2 These figures are average salaries of both the private and public sectors.

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- Use of goods and services ‐54.5 ‐67.8 ‐86.6 - Other expense ‐13.3 ‐15.8 ‐14.1 Net worth and its changes ‐62.4 ‐54.5 ‐108.0

Source: Economic Brief FSM FY 2017_ August 2018

2.2 Current Solid Waste Management Situation

2.2.1 Overview of SWM from the Point of View of Waste Flows

An analysis of waste flow is the very first step to understanding the current SWM situation well. A series of baseline surveys, including a waste generation survey at the household level, waste amount and composition survey (WACS) and a survey on incoming waste to the public landfill site, were carried out in July 2017. Based on the results of these surveys, the current waste flow for Pohnpei with the following information was drawn.

Waste generation by source: 64.6% of waste generated is from households, while the remaining 35.4% is from other sources such as shops, restaurants, businesses, and public institutions. Managing household waste is of great importance.

3R (Reduce, Reuse, Recycle): As much as 25.2% of generated waste is recycled on site. In addition, 0.7% of the generated waste is aluminum cans, at 250 kg (550 lbs) per day; this is recycled under the Container Deposit Legislation (CDL) Recycling Program.

Waste collection: Around 13.3% of waste generated, equivalent to approximately 20% of waste discharged, is collected by the paid collection services of local governments. Furthermore, 9.6% of waste generated, equivalent to approximately 14.5% of waste discharged, is collected by a private company. A certain amount of the discharged waste is collected free of charge, for example, on clean‐up days which are scheduled several times a year.

Final disposal:

(1) As much as 75.3% of the discharged waste, equivalent to 49.9% of the generated waste, is disposed at the public landfill site. The waste collected on clean‐up days is also disposed at the public landfill site.

(2) Only 46% of the incoming waste disposed at the public landfill site is collected by local governments and the private operator, while the remaining 54% is brought directly by households and business entities.

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Figure 2‐2 Waste Flow in Pohnpei State in 2017 (Unit: Tons/Day)

2.2.2 Technical Situation of SWM

a. Waste Generation and Composition

In order to understand the complete picture of waste generation, generation rates have been estimated3.

a.1 Waste Generation Rate (WGR) of Household Waste

As shown in Table 2‐3, waste generation rates (WGR) of household waste were calculated by totaling the (i) waste that is eventually recycled on‐site, (ii) waste that goes to the CDL program, (iii) self‐disposed waste and (iv) discharged waste. On‐site recycling and self‐disposed waste amounts were estimated based on the household survey on waste generation conducted in 2017. The recyclable amount calculated for the CDL program was estimated from the number of cans refunded based on data from the Department of Treasury and Administration (DTA) and the EPA. For the discharged waste amount per household, data from the Waste Amount and Composition Survey (WACS), carried out in 2017 in Pohnpei State, was used.

3 (i) WGR of household waste = waste generated per person per day (g (lbs)/person/day) (ii) WGR of state solid waste (g (lbs)/person/day) = Average generated waste amount of households per day + average generated waste amount of other than households per day)/population

4) On-siterecycling

13) Recyclables attreatment facility

11.6 0.325.2% 0.7% 0.0%

2)Household

waste

5)Recyclablesfor CDL*

12)Intermediatetreatment

(Recycling center)29.7 0.3 0.3

64.6% 0.7% 0.7%

1) MSWGeneration

6) Selfdisposal

14) Residue fromtreatment facility

46.0 3.7 0.0100.0% 8.0% 0.0%

3) Otherthan

household

7) Dischargewaste

8) Waste collectionprovided by LGs

15) Disposing topublic disposal

site

17) Finaldisposal waste

16.3 30.4 6.1 22.9 22.935.4% 66.1% 13.3% 49.8% 49.8%

9) Collection wasteby collection

company4.4

9.6%10) Waste

transported directlyto public disposal

site12.4

27.0% *Unit: ton/day11) Collectionservice at freecollection days

7.516.2%

*% is ratio shareing to 1) MSWgeneration waste amount

16) Recyclables atdisposal site

Total recyclableamount

0.0 11.9

Recycling rate tototal generationwaste amount

25.9%

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Table 2‐2 Composition of Generated Household Waste and Data Source

Composition of Generated Household Waste Data Source

Recyclable Waste that is recycled on‐site Household survey on waste generation in

2017 Recyclable for CDL program Data from DTA and EPA data

Non‐recyclable Self‐ disposed waste Household survey on waste generation in 2017

Discharged waste Waste amount and composition survey (WACS) in 2017

As seen in Table 2‐3, the WGR of household waste (total) is 743 g (1.64 lbs)/person/day. The rate can be broken down into (i) 289 g (0.64 lbs)/person/day for on‐site recycling; (ii) 5 g (0.01 lbs)/person/day for recyclable for the CDL program; (iii) 93g (0.21lb)/person/day for self‐disposal; and (iv) 356 g (0.78 lbs)/person/day for discharged waste. As much as 39.6% of generated waste at the household level is recycled at the source, and also partially disposed of on the source premises, with the remaining 60.4% discharged as waste.

Table 2‐3 WGR of Household Waste (2017)

Unit

Recyclable Non‐Recyclable WGR of Household Waste

On‐Site Recycling

Recyclable for the CDL Program

Self‐ Disposal

Discharged Waste

g/person/day 289 5 93 356 743 lbs/person/day 0.64 0.01 0.21 0.78 1.64

％ 38.9 0.7 12.5 47.9 100

The characteristics of waste composition in 2017 are described below.

By weight ratio, kitchen waste accounts for 30% of the discharged waste for household waste. Considering that kitchen waste is recycled in many households as livestock feed, kitchen waste as a percentage of total waste generation is extremely high. Plastics — including polyethylene terephthalate (PET) bottles — account for 16% by weight, with the next highest component by weight being diapers at 10%, an indication of the number of young children per typical household.

By volume ratio, plastics account for 44%, with the next highest volume category being cardboard at 16%. This shows that a large volume of packaging waste is a characteristic of the waste stream.

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Figure 2‐3 Composition of Household Waste (Weight %)

Figure 2‐4 Composition of Household Waste (Volume %)

a.2 Waste Generation Rate (WGR) of State Solid Waste (SSW)

Waste is generated not only by households, but also business entities and public institutions. WGR of non‐household waste is 408 g (0.90 lbs)/person/day, which was calculated by dividing the non‐household waste figure by the population figure. By adding WGR of household waste and that of

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non‐household waste, the WGR of all solid waste was obtained, at 1,151 g (2.54 lbs)/person/day.

Table 2‐4 WGR of State Solid Waste (2017)

Unit Household Waste Non‐Household Waste State Solid Waste g/person/day 743 408 1,151 lbs/person/day 1.64 0.90 2.54

% 64.6 35.4 100.0 (Source) Current Waste Flow of Pohnpei

b. Waste Discharge

Most households and business entities in Kolonia and some in other municipalities discharge waste through collection services provided by Local Governments (LGs). In most of the LGs, there is no rule that requires the use of specific kinds of containers for waste discharge, except in Kolonia, where big containers originally designed to store frozen tuna are re‐used as trash containers. In other municipalities, residents use various containers such as drums, rice bags, pig feed bags, trash bags and screen bins (drum‐shaped containers made with mesh wires). These containers are usually placed on the source premises or at curbside.

c. Waste Collection

c.1 Waste Collection by Private Companies

Many large scale stores, business offices and public institutions contract with private collection companies. Pohnpei Waste Management Service (PWMS) is the biggest collection company in Pohnpei. The company provides waste containers of different sizes to customers who mostly reside in Kolonia, according to collection frequency. Total number of containers distributed are around 70 as of June 2019. For once‐a‐week collection, the collection fee is US$40 per month, and for twice‐a‐week collection, it is US$80 per month.

c.2 Waste Collection by Local Governments

Collection service is provided individually by six LGs, namely Kolonia Town Government (KTG), and Sokehs Municipal Government (SMG), Kitti Municipal Government (KMG), Nett Municipal Government (NMG), U Municipal Government (UMG) and Madolenihmw Municipal Government (MMG), all of which are responsible for waste collection in Pohnpei.

A. Kolonia Town Government

Collection service in Kolonia Town is now privatized. The service is provided by a private company, Kleen Cut, which signed a one‐year contract with KTG. The collection area is divided into seven sections. In addition to the collection done by Kleen Cut, the KTG also collects waste itself every Friday in areas outside of Kolonia Town, but which are owned by Kolonia Town residents. KTG owns two 4‐ton compactor trucks and one 2‐ton dump truck. One compactor truck and a dump truck are lent out to Kleen Cut.

To discharge waste, large‐size containers (1.5m3), which were originally fabricated as frozen tuna containers, are distributed to residents in Kolonia Town. As these containers are very heavy and deep, workers have to turn them on their sides to rake out waste. There are concerns that the introduction of these large containers makes collection less efficient, poses risks to the safety of

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collectors and residents, and leads to unhygienic conditions, because waste is kept in the containers for a long period.

The waste collection fee is US$5 per month for households and US$20 per month for businesses. Schools and churches, as well as households with senior citizens over the age of 60, are provided with free collection service.

B. Other Municipal Governments (SMG, KMG, NMG, UMG and MMG )

Collection system Collection service in the municipalities of Sokehs, Kitti, Nett, U and Madolenihmw is provided by the municipal governments (MGs) themselves. The collection system for the five MGs is as follows:

- In Sokehs, Kitti and U, curbside collection is provided to residents who pay for the service. The collection vehicles are compactor trucks, small‐size dump trucks and/or flatbed trucks. Waste discharged to the primary road (main road) is collected by compactor trucks and waste discharged to secondary roads (inner roads) is collected by dump or flatbed trucks. As Kitti Municipal Government (KMG) owns only a compactor truck, collection service is provided only along the primary road and paved secondary roads.

- In U and Sokehs, the frequency of this paid collection service is once a week for residents. Collection days are Friday for U Municipal Government (UMG) and either Monday, Wednesday or Friday for Sokehs Municipal Government (SMG).

- In Nett, waste collection service is provided free of charge on Tuesday and Thursday (no collection fee is set for Nett Municipal Government (NMG)).

- In Madolenihmw and Kitti, regular collection days are not set. As for the collection fee, while one has been introduced in Kitti, it has not been introduced in Madolenihmw.

- In every municipality, various bags, e.g. plastic trash bags or rice and pig feed bags, are used to discharge waste into drums or onto a wooden platform made by residents themselves.

Collection vehicles and maintenance UMG, NMG, SMG, and KMG own four‐ton compactor trucks, while MMG owns a two‐ton compactor truck that does not currently function. All of these trucks were donated by international agencies. In addition, each MG owns flatbed or dump trucks that complement the collection work by compactor trucks. Regular inspection, maintenance and light repair are carried out by the MGs themselves, whereas heavy repair is contracted out to private maintenance shops.

Waste collection fee A waste collection fee has been introduced by KTG, SMG, KMG and UMG only, but not by NMG or MMG. The fee structures and fees collected in FY 2018 are shown in the table below.

9

Table 2‐5 Fee Structure and Fees Collected in FY 2018

LGs Fee Structure Fees Collected in FY 2018

KTG

Households: US$5/M Businesses: US$20/M Free collection: schools, churches and households with a member who is over 60

US$6,500

SMG

US$5/M Request: US$5/call Free collection: schools, churches and public offices

US$8,000

KMG Households: US$5/M Businesses: US$10/M US$1,000

NMG No fee collection ‐

UMG US$5/load Free collection: schools, churches and public offices

US$2,000

MMG No fee collection ‐

There are four clean‐up days a year in all six of the municipalities. With support from the state government as well as various organizations, the municipalities are able to provide free collection services on those days. As many residents keep their waste until one of these free collection, or clean‐up, days, waste is heaped up on the roadside or in backyards, causing sanitation and aesthetic problems.

C. Collection Coverage for Household Waste

As for residential waste, municipalities are responsible for providing collection services. Currently, the collection systems employed by each municipality differ greatly from each other.

Collection coverage by LGs is estimated to be as low as 16.9% in Pohnpei based on the incoming waste survey at the landfill site and the number of households which subscribe to collection service from municipalities.

While 30.7% of discharged household waste is transported directly to the landfill site, 52.4% of discharged household waste that is neither collected by LGs nor transported directly to the final disposal site is assumed to be collected on clean‐up days or discharged improperly in nearby open spaces.

Table 2‐6 Collection Coverage of Household Waste (by Municipalities)

Classification Collection

Coverage by LGs (%)

Directly Transported Waste

(%)

Free Collection on Clean‐Up

Days/Improper Discharge (%)

Total (%)

Pohnpei Island 16.90% 30.7% 52.4% 100.0% MMG 0.00% 7.6% 92.4% 100.0% UMG 19.10% 8.4% 72.5% 100.0% NMG 15.40% 51.1% 33.5% 100.0% SMG 20.60% 32.7% 46.7% 100.0% KMG 13.60% 4.9% 81.5% 100.0% KTG 32.93% 67.1% 0.0% 100.0%

10

*Collection coverage in KTG was estimated as follows: (Number of HH contracted with KTG for waste collection service)/(Total HH) = 331/1,005 = 32.93% *Because waste collected by LGs, with the exception of KTG, is considered mainly household waste, the collection coverage of those LGs was estimated as follows: Collection coverage = (Collected waste amount transported to landfill site)/(Discharge waste amount)

D. Revenue and Expenditure for Waste Collection in LGs

As collection fees are not adequately collected, the costs for waste collection are borne by revenue sharing and/or local revenue, e.g. business license fees, collection fees, court fees and fines, and car registration fees.

An outline of the waste collection system in each municipality is shown in Table 2‐7.

11

Table 2‐7 Waste Collection System

Provide

d by

Local G

overnm

ents

Item

KTG

SMG

KMG

NMG

UMG

MMG

Provider of collection

service

Private

contractor

and KTG

MG

MG

MG

MG

MG

Collection coverage

‐ Paid

‐ Free

Direct Transpo

rt

42.9%

(32.9%

) (10.0%

) 57

.1%

67.3%

(20.6%

) (46.7%

) 32

.7%

95.1%

(13.6%

) (81.5%

) 4.9%

48.9%

(15.4%

) (33.5%

) 51

.1%

91.6%

(19.1%

) (72.5%

) 8.4%

92.4%

(0.0%)

(92.4%

) 7.6%

Collection vehicle

Tw

o 4t co

mpactors

One 2t dum

p truck

One

4t c

ompactor

truck

One 2t dum

p truck

One

4t compactor

truck

One

4t compactor

truck

One 2t dum

p truck

One

4t compactor

truck

One 2t dum

p truck

One

2t compactor

truck

One

Small flatbed

truck

Collection metho

d Cu

rbsid

e collection

Curbsid

e collection

Curbsid

e collection

Curbsid

e collection

Curbsid

e collection

Curbsid

e collection

Discharge containe

r

Containe

rs (1.5m

3 ),

Drum

s and

bags

(plastic

bags,

rice

bags, p

ig fe

ed bags,

etc.)

Containe

rs (1.5m

3 ),

Drum

s and woo

den

platform

with

bags

(plastic

bags,

rice

bags, p

ig fe

ed bags,

etc.)

Drum

s and woo

den

platform

with

bags

(plastic

bags,

rice

bags, p

ig fe

ed bags,

etc.)

Drum

s and woo

den

platform

with

bags

(plastic

bags,

rice

bags, p

ig fe

ed bags,

etc.)

Discharge

place

made

with

metal

and

woo

den

platform

with

bags

(plastic

bags,

rice

bags, p

ig fe

ed bags,

etc.)

Mainly

woo

den

platform

with

bags

(plastic

bags,

rice

bags, p

ig fe

ed bags,

etc.)

‐Collection Freq

uency

‐Collection day

Once a week

Regular

collection:

Mon

. to Fri.

Once a

week

and

requ

est

Regular

collection:

Mon

., Wed

., Fri.

Once a

mon

th o

n average

No

regular

collection

Once a week

Regular

collection:

Tue., Thu

.

Once a week

Fri.(requ

est b

ase)

No

regular

collection

Collection Fee

Ho

useh

old: US$5/M

Busin

esses:

US$20/M

US$5/M

Re

quest: US

$5/call

Househ

old:

US$5/M

Bu

sinesses:

US$10/M

No co

llection fee

US$5

/load

No

collection fee

‐ Reven

ue (FY 2018)

‐ Re

venu

e sharing

‐ Local reven

ue

‐ (Collected

fee)

‐ Collection cost

‐ Rate of co

llection

‐ Cost to mun

icipal

revenu

e (%

)

US$748,500

US

$301,400

US

$447,100

(US$ 6,500)

US$ 70,000

9.4%

US$459,000

US

$414,000

US

$45,000

(US$ 8,000)

US$ 29,800

6.0%

US$442,300

US

$420,400

US

$21,900

(US$ 1,000)

US$ 15,800

3.6%

US$686,000

US

$297,000

US

$389,000

(0)

US$ 22,000

3.2%

US$261,200

US

$238,000

US

$23,000

(US$ 2,000)

US$ 17,000

6.5%

US$444,100

US

$422,100

US

$22,000 (0)

US$ 15,000

3.4%

12

Collection service in five MGs is provided by using both compactor trucks and small size dump or flatbed trucks.

Large size containers (1.5m3) are distributed in Kolonia Town. As those containers are very heavy and deep, workers have to turn them

on their sides and rake out the waste.

Waste is put on the wooden platform made by residents themselves in other municipalities.

d. Waste Disposal

In Pohnpei, 49.8% of generated waste, which is equivalent to 75.3% of discharge waste, is disposed at the public landfill site. Of the disposal amount, 54.2% of disposal waste is transported directly by residents, stores and other such sources of waste, 26.6% is collected by municipalities and 19.2% is collected by PWMS. Furthermore, 16.2% of generated waste, which is equivalent to 24.7% of discharged waste, is irregularly collected and disposed of at the public landfill site or partially disposed of improperly in nearby open spaces.

d.1 Outline of the Landfill Site

An outline of the public landfill site and the current status of O&M is shown in Table 2‐8.

Secondary road covered by small dump or flatbed truck

Primary road covered by compactor truck

13

Table 2‐8 Outline of the Public Landfill Site and O&M status

Item Content Name of the site Dekehtik landfill site Location In the Dekehtik area, located along the main trunk road from the airport to

the city center. Land owner State Government Area Approximately 4 ha Operation Contracted out to a private entity, named Pohnpei Waste Management

Service (PWMS) Outline of the final landfill site

The current final disposal site started operation in 1997. Under J‐PRISM I, improvement of the first cell along with environmental sanitation in and around the site was made by adopting the Fukuoka Method, i.e. installation of a leachate collection line and treatment pond. The improved first cell reached full capacity in 2018. PWMS constructed the second cell with money from the US Compact Fund, based on experience improving the first cell.

Management The contract with PWMS is single‐year, but with the permission and understanding of the Office of the Attorney General, the contract is renewed without a full bidding process. The source of the contract amount paid to PWMS had been the US Compact Fund, allocated for the environmental sector. However, as the Small Sector Grant (Environmental Sector) of the U.S. Compact Fund is no longer financing recurring costs from FY 2019 onwards, O&M costs for the landfill site has to be borne by the State and/or Federal Government fund from FY 2019. An EPA officer and a T&I officer examine the status of O&M to confirm whether EPA standards are met.

(Source) T&I

Closed first cell Newly constructed second cell

d.2 Incoming Waste

The incoming waste survey to the landfill site was carried out in July 2017 in order to understand the current situation of final disposal. The results are shown in Figure 2‐5. The average amount of incoming waste is 22.9 tons per day, while the average number of incoming vehicles is 140 per day. Of the disposal amount, 54.2% of disposal waste is transported directly by residents, stores and other such sources, 26.6% is collected by LGs and 19.2% is collected by PWMS. Detailed results about incoming waste at the landfill site are shown in Figure 2‐16. The rate of household waste disposed at the landfill site was around 30% and other waste such as commercial waste and public waste was around 70%.

14

(Source) Incoming Waste Survey (June 2017) Figure 2‐5 Number of Incoming Vehicles & Disposal Waste Amount (Tons/Day)

(Source) Incoming Waste Survey (June 2017)

Figure 2‐6 Detailed Results on Incoming Waste at Landfill Site

0

20

40

60

80

100

120

140

160

180

200

0

5

10

15

20

25

30

35

11-Jul 12-Jul 13-Jul 14-Jul 15-Jul 16-Jul 17-Jul Average

Number of Incoming Vehicles and Disposal Waste Amount

Direct transportation Collection company

Municipal collection Number of incoming vehicle

Tons No. of Vehicles

Kolonia(KTG) HH waste4.51t (19.7%) 0.83t (3.6%)

6.11t (26.6%)Other than HH waste

3.68t (16.1%)

Madolenihmw HH waste HH waste0.00t (0.0%) 0.00t (0.0%) 6.82t (29.7%)

U HH waste0.25t (1.1%) 0.25t (1.1%)

Disposal wasteNett HH waste 22.95t (100.0%)

0.42t (1.8%) 0.42t (1.8%)

Sokehs HH waste0.56t (2.4%) 0.56t (2.4%)

Kitti HH waste Other than HH waste0.36t (1.6%) 0.36t (1.6%) 16.13t (70.3%)

Waste transporteddirectly HH waste

12.42t (54.1%) 4.40t (19.2%)

Other than HH waste8.02t (34.9%)

Collectioncompany Other than HH waste

4.42t (19.3%) 4.42t (19.3%)

Municipalcollection waste

15

a.1 Waste Piled Up Until Free Collection on Clean‐Up Days

As revealed in the formulation of the current waste flow, 16.2% of generated waste, which is equivalent to 24.7% of discharged waste, is piled up on source premises or on nearby roadsides until it is collected free on one of the four clean‐up days a year.

b. Reduce, Reuse and Recycle (3Rs)

b.1 On‐Site Recycling

Through the waste generation survey at the household level, it is apparent that as much as 25.2% of waste generated by households is recycled at the source, on household premises. This includes kitchen waste used as feed for livestock or dried coconut fiber and husks used as firewood.

On‐site Recycling: Kitchen waste for feed to

livestock On‐site Recycling: Coconut shell dried for

firewood

b.2 Beverage Container Recycling System (BCRS) Based on the Container Deposit Legislation (CDL)

A. Outline of Recycling System

A BCRS in Pohnpei was started in August 2012, based on Chapter 3 of Title 27 of the Pohnpei Code pertaining to the recycling of beverage containers. In 2016, this Code was amended to require importers to pay deposits at the time of import and not at the time of first retail sale, in order to tackle the problem of low deposit collections.

Recycling item: Beverage aluminum cans only Deposit: 6￠/can; refund: 5￠/can; operation cost: 1￠/can Recycling location: KTG and MMG recycling centers. As MMG does not have a press machine,

cans that have been collected are transported to the KTG recycling center to press them. Due to limitations to the amount that can be dealt with at a time, approximately two hundred

people who have registered in advance are allowed to bring aluminum cans into the Kolonia recycling center at a time. More than one thousand people registered in 2015; of these people, approximately two hundred per collection day are informed once collection dates are decided.

Recycling is organized by the EPA with the support of KTG and MMG. Collection for recycling occurs approximately once per three months and for two days each time. Aluminum cans that have been collected are counted by a counting wire basket (500 cans per basket) and

16

the EPA issues a receipt according to the quantity of cans counted. The DTA collects deposits and manages them in the recycling fund, paying refunds based on

the receipts issued by the EPA. The DTA also manages gains on sales in the recycling fund, paying 50% of gains to KTG and

MMG, which operate recycling centers. The quantity collected at one time is enormous and therefore pressing the cans with a small

machine takes a substantial amount of time. The space available at the KTG recycling center is very small for collecting, pressing and storing cans in it.

Figure 2‐7 CDL System in Pohnpei

B. Recycling Rate and Financial Data

The number of cans deposited and recycled from 2013 to 2017 is shown in Table 2‐9. The quantity of cans deposited in 2017 was double the previous year. This is because regulations were amended and the timing of when taxation was imposed changed from the time of sale to time of importation. As a result, the recycling rate was 57%, which shows the actual situation of beverage container recycling in Pohnpei.

The amounts for deposits and refunds are compared in Table 2‐10. As with the quantity of recycled cans, the deposit amount increased rapidly in 2017 thanks to the regulatory amendment. More than US$0.4 million was accumulated in the recycling fund managed by the DTA.

Table 2‐9 Number of Cans Deposited and Recycled

Year Number of Cans Paying Deposit Number of Cans

Refunded Recycling Rate

2013 2,161,631 1,597,980 74%

2014 4,069,218 5,536,108 136%

2015 4,252,388 3,814,892 90%

2016 4,707,949 5,211,575 111%

2017 9,958,302 5,697,467 57%

17

Totals 25,149,488 21,858,022 87%

Source: DTA and EPA

Table 2‐10 Financial Data – Deposits & Refunds (US$)

Year Deposits (6￠) Refunds (5￠) Difference

2013 129,698 79,899 49,799

2014 244,157 276,805 ‐32,648

2015 255,143 190,745 64,398

2016 282,477 260,579 21,898

2017 597,498 284,873 312,625

Totals 1,508,973 1,092,901 416,172

Source: DTA and EPA

Aluminum cans are brought into KTG

recycling center Cans are counted by a counting wire basket

(500 cans per basket)

A receipt is issued according to the number

of cans

Approximately 200 people who registered in advance are allowed to bring aluminum cans

only on each collection day

18

2.2.3 Institutional Situation of SWM

a. Organization for SWM

a.1 Office of Transportation and Infrastructure (T&I)

T&I in Pohnpei, which was known previously as the Public Transport Authority, is an organization that evolved from the remaining part of the Department of Public Works (DoPW) after the Public Utility Company split away from DoPW. T&I’s activities relating to SWM are managing and supervising the contract with PWMS, which actually manages the landfill site. Before monthly payment to PWMS, the Officer in Charge (OIC) of T&I, along with the OIC of the EPA, supervises the situation at the landfill site and sees whether EPA standards are being met and that the expected services are provided.

Figure 2‐8 Organization chart of T&I (Source: T&I)

a.2 Pohnpei State Environmental Protection Agency (PSEPA)

As with the EPAs in other states, the EPA in Pohnpei is responsible for the formulation of environmental policies and programs, as well as their implementation and supervision. Other major activities include environmental education, environmental monitoring, and promotion of recycling.

Administrator

Geo Engineering Technician

GIS Engineer Architect Civil Engineer

Acting Administrator

Administrative Assistant

Administrative Technician

Const. Inspector III

Const. Inspector II

19

Figure 2‐9 Organization Chart of the EPA (Source: EPA)

b. Policies and Laws on SWM

In Pohnpei, the laws related to SWM are as follows.

Pohnpei Environmental Protection Act (1992) Solid Waste Regulations (1995) Pohnpei State Low No. 6L‐66‐06 Pohnpei State Code Container Deposit Legislation (the existing regulations related to solid waste

management are consolidated in the Pohnpei State Code) The table below lists the sections of the Pohnpei State Code related to waste management.

Table 2‐11 List of Pohnpei State Code Sections Related to Waste Management

Title Ch. Section Description 27 1 1‐109 Establishes the Pohnpei EPA with the power and duty to protect the

environment, welfare and safety, and to abate, control, and prohibit pollution and contamination of air and land.

27 2 2‐106 2‐107

Prohibits littering in public places Prohibits littering on premises

27 2 2‐119 Designates pollution of air, water and land as an offence 27 3 3‐106 Establishes the refundable recycling fee of 5 cents for each aluminium

can arriving in the state 27 3 3‐110 Imposes a deposit of 6 cents on all beverages produced or brought

into the state 27 4 4‐103 Prohibits the importation, use and disposal of non‐recyclable

shopping bag less than 5 mm

20

2.2.4 Financial Situation of SWM

a. Waste Collection Fees

Waste collection fees are set in most municipalities as shown below. However, in reality, income from collection fees is limited due to the low fee collection rate.

Table 2‐12 Waste Collection Fees and Income (2018)

LG Fee Structure (US$) Collected Fees (US$; FY 2018)

KTG

Household: US$5/Municipality (M) Businesses: US$20/M Free collection: schools, churches, and households with a member or members over 60

US$6,500

SMG

US$5/M Request: US$5/call Free collection: schools, churches and public offices

US$8,000

KMG Household: US$5/M Businesses: US$10/M US$1,000

NMG No fee collection ‐

UMG US$5/load Free collection: schools, churches and public offices

US$2,000

MMG No fee collection ‐

b. Expenditure for SWM and Total State Expenditure

According to the financial data submitted by T&I, the EPA and the six municipalities, total expenditure for SMW in Pohnpei was estimated at around US$283,600 in FY 2018.

Total disposal waste amount was 83,600 tons/year (22.9 tons/day x 365 days), and therefore the unit cost for SWM was US$3.4/ton (US$283,600/83,600 tons).

Table 2‐13 SWM Expenditure in Pohnpei in FY 2018

Item Expenditure (US$)

1. Waste Collection by six LGs US$169,600 2. Clean‐up campaigns ‐ 3. Contractual cost for landfill operations US$114,000 (FY 2016) Total US$283,600

Source: LGs, T&I and EPA data

2.3 Major Characteristics of SWM in Pohnpei

2.3.1 Waste Generation

While the waste generation rate (WGR) of household waste generation is calculated at 743 g (1.64 lbs)/person/day, WGR of non‐household waste is 408 g (0.90 lbs)/person/day. By totaling these

21

figures, the total WGR obtained for state solid waste is 1,151 g (2.54 lbs)/person/day. This rate is almost the same as those of other FSM states.

2.3.2 Waste Discharge

While 40% of what is generated is prevented from becoming waste by either recycling at the source or by self‐disposal within the source premises, the remaining 60% of the waste generated by households is discharged. The recycling rate — the amount of waste recycled on site divided by the amount of waste generated by both households and non‐households — is as high as 25.7%. This is a very good rate.

While as much as 75% of the discharged waste is appropriately disposed of at the public landfill site, the remaining 25% is piled up on the source premises or on nearby roadsides until they are collected free on one of the four clean‐up days that are scheduled per year.

2.3.3 Waste Collection System

As for residential waste, municipalities are responsible for providing collection services. Currently, the collection systems employed by each municipality differ greatly from each other. While NMG provides collection services regularly free of charge to all residents, others such as KTG and SMG also provide collection service regularly, but under a collection fee system. However, the collection rate is estimated to be as low as 16.9%, and the collection service is provided to all the citizens regardless of whether collection fees are paid. In contrast, UMG and KMG provide collection service only upon request, to those who pay for the service. On top of this variety of collection systems, there are also free collection days that are provided several times per year; this is very particular to Pohnpei. As noted above, some people accumulate waste until one of these free collection days comes. This is the biggest challenge faced by the SWM sector in Pohnpei.

As for non‐household waste, the major dischargers, such as big scale stores, business offices and public institutions, usually subscribe to regular collection services from private collection companies, which is implemented through a container collection system.

2.3.4 Recycling System Based on the CDL Program

In 2016, Chapter 3 of Title 27 of the Pohnpei Code was amended to require importers to pay deposits at the time of importation and not at the time of first retail sale, in order to tackle the problem of low deposit collection. As a result, deposits were collected properly and the amount in the recycling fund increased. On the other hand, the recycling rate remained low, at about 50%. In order to increase the recycling rate, the recycling system — e.g. collection frequency, collection location and the operating entity — needs to be improved.

2.3.5 Management of the Public Landfill Site

The current public disposal site, which is located in Dekehtik, has been in operation since 1997. The private operator, Pohnpei Waste Management Service (PWMS), which has been contracted by T&I, runs the disposal site reasonably well. However, considering the fact that the Small Sector Grant of the U.S. Compact Fund no longer finances the operation of the public disposal site, it is rather important to start considering how to secure financial sustainability; one option is to introduce tipping fees at the landfill site. Another issue is that the current second cell at the disposal site is being filled up rapidly, so it is important to plan regular monitoring of the remaining period of the disposal site and construction of a third cell in the near future.

22

2.3.6 Waste Collection Fee

Despite the fact that most municipal ordinances require the collection of waste collection fees, the number of households and other institutions that actually pay collection fees is rather limited. Thus, the municipalities that cannot provide regular collection services to the wider public, due to financial constraints, provide collection services only to those who pay collection fees. In order to expand collection coverage, it is necessary to consider how to secure the SWM budget. One such way could be the introduction of waste collection fees in an equitable and sustainable manner.

2.3.7 Cost for SWM

The total expenditure for SWM in Pohnpei was estimated at US$283,600 in 2018. The main SWM expenses were for (i) waste collection and transportation, financed by the municipalities; and (ii) operation and management of the disposal site, financed by the state. The total disposal amount was 83,600 tons/year (22.9 ton/day x 365 days); thus the unit cost for SWM was estimated at only US$3.4/ton (US$283,600/83,600 tons). One of the reasons why the cost is low is that nearly half of the disposal waste is self‐transported by households and/or businesses.

2.3.8 Institutional Settings

Waste collection is the responsibility of municipalities. While the public disposal site is operated and managed by PWMS, operation is monitored by both the EPA and T&I. The role of state organizations in Pohnpei is therefore rather limited.

23

PART TWO: STRATEGY

The State Solid Waste Management Strategy (SSWMS)

3.1 Background

The State Solid Waste Management Strategy (SSWMS) for Pohnpei is being formulated to establish a roadmap for a timeframe of ten years, from 2020 to 2029, to improve waste management practices in Pohnpei. The SSWMS is based on an understanding of the current state of SWM in Pohnpei.

With support extended through J‐PRISM II, the Pohnpei EPA and T&I are developing this strategy for the next ten years. This strategy supports the long‐term goals developed within the FSM as well as the Pacific Regional Waste and Pollution Management Strategy (Cleaner Pacific 20254), developed by SPREP and JICA.

3.2 Purpose

The SSWMS is being developed as a means to understand the current state and different facets of waste management in Pohnpei and, more importantly, to create a practical road map to improve the key components of waste management and address the challenges faced, with the aim of reaching a sustainable and truly integrated means of waste management in Pohnpei. This SSWMS is also envisioned as something that will be endorsed, adopted, and used as the guiding document for waste management activities; as such, it should be developed in collaboration and agreement with a wide range of stakeholders. Moreover, as a formal means of adoption, it will be approved by the board members of the EPA and endorsed by the Governor of Pohnpei State.

3.3 Vision

A sustainable Pohnpei State, where effective solid waste management practices are implemented in a socially, economically, and environmentally sustainable manner for the benefit of future generations.

3.4 Scope

The new SSWMS covers the ten‐year period from 2020 to 2029, with an Action Plan designed to be implemented for the first half of the period, 2020 to 2024. A general review of the plan will be undertaken in 2024 to update its relevance to current needs, and to plan activities for the remaining period of the plan.

The new SSWMS covers solid waste generated by households, institutional and commercial operations. Such waste is termed State Solid Waste (SSW) in this plan. The Strategy does not cover medical waste or hazardous waste.

3.5 Guiding Principles

Principle 1: Establish a financially sustainable SWM system with due consideration of “Post‐2023”

Financially speaking, the Compact Fund from the U.S. government has been supporting the

4 Cleaner Pacific 2025 is the regional SWM strategy formulated by SPREP and JICA. Refer to http://www.sprep.org

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environmental sector in Pohnpei. Since it is known that such financial support will end in 2023 and that every government sector is expected to undergo fiscal austerity, it is important, and urgent, to start considering the establishment of a self‐financing SWM system, with due consideration of “Post‐2023”. A User‐pays system, with the introduction of collection fees and/or tipping fees, is one possibility; another possibility could be a Public‐Private Partnership (PPP), such as contracting out further SWM‐related activities to the private sector.

Principle 2: Waste reduction through maintaining current practice as well as by improving the CDL program

Practices such as using kitchen waste as feed for livestock and dried coconut shells as firewood are rooted in the lifestyle of the Pohnpei people and are widely observed there. Appreciating and maintaining such practices greatly contributes to waste reduction. In addition, expanding target items to improve the current CDL program will prevent recyclables from being put into the garbage and will contribute to waste reduction.

Principle 3: Emphasis on capacity development

New challenges continuously arise along with social‐economic changes, and such challenges need to be tackled on a case‐by‐case basis in the field of waste management, for which the capacity development of SWM personnel is particularly important. The capacities of SWM personnel need to be enhanced through the implementation of key strategic actions; personnel need to become able to solve the evolving challenges and problems by themselves, and eventually establish a sustainable SWM system in Pohnpei.

Principal 4: Commitment to a clean and beautiful Pacific region

Waste is a grave threat to sustainable development in the Pacific Islands. Inadequate management of waste can affect the health of Pacific communities, degrade natural ecosystems, and reduce their resilience to the impact of climate change; ultimately, it can retard the social and economic development of Pacific Island countries and territories. Many countries and territories of the Pacific face heightened risks from the impact of poor waste and pollution management, since their economic bases (tourism, fishing and agriculture) are heavily reliant on an environment relatively free of waste. Furthermore, many waste issues are transboundary in nature, which means that poor control and management in one country (or region) can negatively affect neighboring countries. By considering all of these issues, this SSWMS is well‐aligned with the aspirations elucidated in Cleaner Pacific 2025, which aims to support the Pacific Island countries to develop practical and sustainable SWM systems.

3.6 SWM Issues Targeted Under the SSWMS

Issue 1: Improvement of the current CDL system

Beverage container recycling, often called CDL, was started in Pohnpei in August 2012, in accordance with the Chapter 3 of Title 27 of the Pohnpei Code. In 2016, this Code was amended to require importers to pay deposits at the time of import and not at first retail sale in order to tackle low deposit collections. As a result, deposits were collected properly, and the recycling fund increased. On the other hand, it became clear that the recycling rate remained as low as about 50%. In order to increase the recycling rate, the recycling system — e.g. target items, collection frequency, collection places and an operation entity — needs to be re‐considered and improved.

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Issue 2: Proper final disposal

The current public disposal site, which is located in Dekehtik, has been in operation since 1997. The private operator, PWMS, which was contracted out by T&I, runs the disposal site reasonably well. However, the second cell that PWMS constructed, based on experience improving the first cell with the Fukuoka Method, is being filled up rapidly. Therefore, it is necessary to plan for the future, i.e. prepare for the third and fourth cell with a cost estimate, while sustaining the daily operation at current standards.

Issue 3: Improvement of collection service

As for residential waste, municipalities are responsible for providing collection services. Currently, the collection systems employed by each municipality differ greatly from each other. NMG provides collection services regularly to all residents free of charge, while others such as KTG and SMG also provide collection service regularly, but have introduced a collection fee system. However, the rate for collection is estimated to be as low as 16.9%; in addition, collection service is provided to all citizens regardless of payment of collection fees. In contrast, UMG and KMG provide collection services only upon request to those who pay for the service. On top of these various municipal collection systems, there are also free collection days provided several times per year; this is very particular to Pohnpei. Some people accumulate their waste until these free collection days. This is the biggest challenge faced in the SWM sector in Pohnpei.

3.7 Key Strategic Actions and Time Frame

3.7.1 Key Strategic Actions

The strategy consists of the following three strategic actions. These actions and a brief description of their content are as follows:

1 Improvement of CDL System

The CDL system in Pohnpei, which as of June 2019 targets only aluminum cans, can be improved substantially through the following activities.


Procure new equipment

Construct a new recycling center near the current Dekehtik disposal site (approval needed from the Attorney General’s office regarding land use for a recycling center)

1.2 Amend the laws and regulations in order to expand target items

1.3 Organize public consultations on the above changes (inform importers and residents about the new target items and frequency of collection)

1.4 Contract out CDL operation to the private entity

1.5 Commence the new CDL operation by the private entity

1.6 Monitor the progress of CDL activities by the EPA

2 Proper Management of Final Disposal Site

The current public disposal site, which is located in Dekehtik, has been in operation since 1997. While it is operated reasonably well, the current second cell is being filled up rapidly.

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pohnpei state solid waste management strategy 2020 2029 ... · pohnpei state office of...

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