chapter 3 waste 138 - Ministerio del Medio Ambiente

138
chapter 3 waste
Chapter 3
Waste
1] Background
139
2] Pressure: Waste generation
140
3] Response to the Waste Generation Pressure
156
[ HIERARCHICAL WASTE STRATEGY ]
A Prevention
B Reuse
C Recicling
A
Actions or measures aimed at avoiding or
reducing waste generation, diminishing the
presence of hazardous material or of the
pollutants in them, and minimizing the
significant impacts that these might generate on
the environment or people’s health.
D Energy
Valorization
C
Valorization actions through which wastes are
transformed into new products, excluding energy
valorization.
D
Use of a residue as fuel in a production process.
B
Action consisting on the use of a material or
product previously utilized as an input in the
production process that originated it.
E Disposal
Actions aimed at a final waste disposal in places authorized
for this purpose complyeing with current regulations.
139
Introduction
Abstract
Even though waste generation is inherent to any social organization, it gains more relevance with the appearence of major human settlements, requiring an adequate management in order
to avoid negative impacts on health and the environment.
Background 1
In nature there are no wastes, everything is reincorporated into the cycle
through trophic chains and biochemical cycles, only ecosystems with anthropic presence generate waste.
Wastes are substances or objects that are discarded once they reach the
end of their useful lives and are then treated through valorization or elimination. The main environmental impacts that final waste disposal (adapted
from IDB, 2009) may generate include the following:






Effects on water quality and alteration of the hydraulic characteristics, on
both surface and underground water;
Change in biomass quantity, type of vegetation and fauna;
Change in the physical, chemical and fertility properties of soil (e.g., pollution
by oils, fats, heavy metals, and acids, among other residues, and activation
of erosion by changes in topography);
Atmospheric emissions of dioxins and furans, hydrogen sulfide, among others;
Emission of greenhouse gases, such as methane and carbon dioxide, as a
result of anaerobic biodegradation processes in sanitary landfills;
Diseases caused by sanitary vectors, whose appearance and permanence
waste chapter 3
140
chapter 3 waste
1995
can be directly related to the inadequate execution of one of the stages of
waste management;
100%
Landfills and
Dumps
Landscape impacts;

Risk of accidents, such as explosions or cave-ins;

Mental and mood deterioration of people directly affected due to the
proximity of the waste;
2005
40% 60%
Landfills and
Dumps

Sanitary
Landfills
1] Sanitary Landfill: Place set
aside for the final disposal of
waste, which complies with the
current regulation (Sanitary
Authorization, according to
S.D. N° 189, in addition to the
Environmental Qualification
Resolution). Landfill: Place set
aside for the final disposal of
waste that does not comply with
the current regulation, but has
Sanitary Authorization according
to Resolution N° 2.444. Garbage
Dump and Municipal or Urban
Landfill: place set aside for the
final disposal of waste that does
not comply with the regulation
in force and does not have a
Sanitary Authorization, according
to Resolution N° 2.444.

Bad smell;

Acoustic pollution derived from waste transportation.
Although this is a complex matter, Chile has made significant improvements
in this area. In 1995, all residential waste was disposed of in landfills and
dumps; however, by 2005 more than 60 percent of waste was disposed of in
sanitary landfills that comply with a series of sanitary and environmental technical requirements1 (CONAMA, 2005, p.12).
Despite this progress, it is necessary to improve current environmental and
sanitary regulations, address existing legal loopholes, enhance inspection, and
develop public institutional capacity to coordinate all of the stakeholders with
competence in waste management.
However, it is worth noting that waste management has been approached
mainly in a reactive manner, thus limiting it only to collection and final disposal,
without further attention to other valorization alternatives.
Pressure:
2 Waste Generation
Waste generation at the national level
In Chile, for decades, waste management has been approached as a concern
in different social sectors, but with no effective solutions. The complexity of
this issue still confronts us, also, to production and consumption patterns
that favor an increasing waste generation. Among the main causes are the
following:
141

waste chapter 3
The process of population growth, distribution and concentration;
The physical characteristics of the country and the distribution of the
economic activities, that result in the presence of many sites located far
away from populated areas that make inspection difficult and facilitate the
creation of illegal garbage dumps;


An increased consumption as a result of higher incomes;
The existence of institutional, regulatory, inspection, and management
deficiencies.

Information on the generation and management of wastes in the country
is limited. Different studies have been carried out on waste generation by
origin and destination which, in most cases, correspond to registries of final
disposal sites.
The study "Collection, Analysis, Generation and Publication of National Information on Solid Wastes in Chile" was carried out between 2009 and 2010.
Based on the revision of previous studies and surveys to municipalities and
companies that generate and receive wastes, the results of the study show
the following estimates for 2009; a generation of 16.9 million tons of waste,
from which 6.5 million tons are municipal waste and 10.4 million tons are
industrial waste. This data does not include massive mining wastes2.
However, it is important to point out that this study was performed on the
basis of surveys and estimates, therefore, the information on some topics is
incomplete and imprecise.
Municipal Waste Generation
Residential waste management, understood as collection, transportation
and disposal, is a service that is operated by each municipality. This activity,
even though it is regulated and supervised by the State, requires additional
standards to address waste management as a whole.
There are two factors that have significant influence on residential waste
generation: the number of inhabitants and their income level. The number of
inhabitants is the key factor on which the total municipal waste generation
depends. At an individual level, income is the variable that most affects per
capita waste generation.
Figure 1 shows how the Metropolitan Region, where almost 50 percent of
the nation's population is concentrated, generates the highest amount of
municipal waste with a participation of 43 percent, followed by the Biobío
Region with 10 percent and the Valparaíso Region with 7.4 percent.
16.9
million
6.5
10.4
municipal
waste
industrial
waste
million
million
2] This report does not incluide
information about massive mining wastes,
because not data were available about it
142
Arica and Parinacota
chapter 3 waste
Municipal waste
generation per region,
2009.
114,489
Tarapacá
fig.
189,806
1
Antofagasta
196,289
Source: Own
elaboration, based on
the "Primer reporte
sobre manejo de
residuos sólidos en
Chile", CONAMA, 2010a.
103,433
Atacama
220,860
Coquimbo
483,739
Valparaíso
2,807,247
Metropolitan
Libertador Gral. B. O’Higgins
Maule
343,694
Biobío
359,862
Araucanía
Los Ríos
645,875
Los Lagos
425,234
147,563
Aysén del Gral.
Carlos Ibañez
369,925
44,918
Magallanes and Chilean
Antarctica
50,000 tons/year
64,669
"The maps published in this report that refer
to or are related to limits or boundaries
of Chile do not commit the State of Chile
in any way, according to Article 2, letter g
of the Decree with Force of Law N° 83 of
1979 of the Ministry of Foreign Affairs. The
Cartographic information is based on Datum
WGS84 and it is mearly referential".
100,000 tons/year
143
residuos capítulo 3
143
waste chapter 3
144
chapter 3 waste
At the local level, the influence of the number of inhabitants and their income level can be more clearly appreciated. Figures 2 and 3 present the total
generation of municipal waste, population, and per capita generation of the
communes of the Metropolitan Region. The most populated commune of the
Region is Puente Alto, which also corresponds to the one with the highest total
waste generation.
Municipal waste generation per
communes in the Metropolitan
Region, 2009.
Source: Own elaboration, based
on the "Primer reporte sobre
manejo de residuos sólidos en
Chile", CONAMA, 2010a.
fig.
2
Puente Alto
Maipú
La Florida
San Bernardo
Las Condes
Pudahuel
Peñalolén
Quilicura
Santiago
El Bosque
Providencia
Recoleta
Renca
Vitacura
Ñuñoa
Estación Central
Cerro Navia
La Pintana
Lo Barnechea
La Granja
Quinta Normal
Macul
Conchalí
Pedro Aguirre Cerda
La Reina
Lo Espejo
San Miguel
Melipilla
La Cisterna
Lo Prado
Huechuraba
Cerrillos
Colina
San Ramón
Independencia
Penaflor
San Joaquín
Talagante
Lampa
Buin
Padre Hurtado
Paine
Isla de Maipo
El Monte
Calera de Tango
Tiltil
Pirque
San José de Maipo
Curacaví
María Pinto
San Pedro
Alhué
284,934
tons
Puente Alto
45,664
tons
Pedro Aguirre Cerda
1,909
tons
Alhué
Tons
0
50,000
100,000
150,000
200,000
250,000
300,000
145
waste chapter 3
At the same time, the commune of Vitacura has the highest rate of per
capita waste generation.
Figure 4 shows a national geographical projection of the average income
per inhabitant and of the per capita residential waste generation per inhabitant, respectively, up to 2009.
fig.
Puente Alto
Maipú
La Florida
San Bernardo
Las Condes
Pudahuel
Peñalolén
Quilicura
Santiago
El Bosque
Providencia
Recoleta
Renca
Vitacura
Ñuñoa
Estación Central
Cerro Navia
La Pintana
Lo Barnechea
La Granja
Quinta Normal
Macul
Conchalí
Pedro Aguirre Cerda
La Reina
Lo Espejo
San Miguel
Melipilla
La Cisterna
Lo Prado
Huechuraba
Cerrillos
Colina
San Ramón
Independencia
Penaflor
San Joaquín
Talagante
Lampa
Buin
Padre Hurtado
Paine
Isla de Maipo
El Monte
Calera de Tango
Tiltil
Pirque
San José de Maipo
Curacaví
María Pinto
San Pedro
Alhué
3
Per capita waste generation by
communes of the Metropolitan
Region, 2009.
Source: Own elaboration, based on
the "Primer reporte sobre manejo
de residuos sólidos en Chile",
CONAMA, 2010a.
2.09
kg/day/inhab
Vitacura
0.54
kg/day/inhab
Curacaví
kg/day/inhab
0
0.5
1.0
1.5
2.0
2.5
146
chapter 3 waste
N
N
Average per capita income ($)
Waste Generation
(ton/year)
75,000 - 170,000
30 - 28,000
170,001 - 280,000
28,001 - 79,000
280,001 - 550,000
79,001 - 161,000
550,001 - 1,500,000
161,001 - 285,000
No information
Average per capita income and
municpal waste generation,
2009.
fig.
Note: It is important to note
that the data was obtained
from surveys and estimates,
therefore information is
incomplete and imprecise.
4
Source: Own elaboration, based
on the "Primer reporte sobre
manejo de residuos sólidos en
Chile", CONAMA, 2010 and the
CASEN 2009 survey, MIDEPLAN.
"The maps published in
this report that refer to
or are related to limits
or boundaries of Chile
do not commit the State
of Chile in any way,
according to Article 2,
letter g of the Decree with
Force of Law N° 83 of 1979
of the Ministry of Foreign
Affairs. The Cartographic
information is based on
Datum WGS84 and it is
mearly referential".
0
250
500
km
0
250
500
km
147
waste chapter 3
Currently, most municipalities limit their management to final waste disposal on their own or through contracts with private companies. In general,
such organizations have not shown a real willingness to manage their waste
issues as a whole and they usually try to eliminate them without considering
strategies such as promoting the prevention of their generation or their potential valorization. Likewise, contracts for final disposal usually discourage
recycling initiatives, due to the fact that the costs per ton diminish as the
amount disposed increases.
Despite this fact, some municipalities have formalized recycling through
contracts for differentiated collection. Moreover, there is an informal market
of recyclers and intermediaries for paper and cardboard, junk and other recyclable waste collection, and there is also a formal market with companies
that recover paper and cardboard, junk, plastic, and tinplate, in the main
cities of the country.
Figure 5 shows that more than 50 percent of municipal waste generated
in the country could be valued, which would substantially reduce the waste
sent to final disposal sites, and thus lower the costs invested by municipalities on this item.
3%
3%
7%
7%
10%
48%
11%
11%
Metals
Fabrics
Bulk
Glass
Paper, cardboard and paper products
Other
Plastics
Organic matter
fig.
5
Composition of Municipal Waste
Generation, 2009.
Source: Own elaboration, based on
the "Primer reporte sobre manejo de
residuos sólidos en Chile", CONAMA,
2010a.
148
chapter 3 waste
In terms of final waste disposal sites where municipal solid wastes are
deposited, it is estimated that 69 percent were dumped in sanitary landfills,
which are facilities that comply with current regulations, 22 percent in landfills, which are facilities that comply with the regulation dating from 1980, and
9 percent in garbage dumps, which are facilities that do not comply with any
type of regulations. These are located mainly in rural areas and municipalities
with a low number of inhabitants.
To better illustrate this problem, the regions of the country with a complete
registry of waste disposal sites were identified. With this information, maps
were developed to include, for every commune, final waste disposal sites and
per capita income, obtained from the CASEN survey carried out by MIDEPLAN
in 2009 (Figure 6).
The Metropolitan Region of Santiago currently has three sanitary landfills:
Loma los Colorados (Til Til), Santiago Poniente (Maipú) and Santa Marta (San
Bernardo), which cover the needs of most of the communes of the region.
Figure 6 shows that the communes with the highest incomes do not have final
waste disposal sites, exporting their waste to other communes. It also reveals
that in some communes, such as Puente Alto, there are still many small illegal
garbage dumps.
Per capita income and final waste
disposal sites for the Metropolitan
Region, 2009.
Note: Illegal landfills and small
garbage dumps in the Metropolitan
Region are not authorized.
fig.
6
Source: MIDEPLAN, CASEN Survey,
2009. Ministerio del Medio Ambiente,
Catastro de Sitios de Disposición
Final de Residuos, 2009.
Colina
##
###
###
##
#
#
Lo Barnechea
Quilicura Huechuraba
#
Vitacura
# ## #
### #
# #
Las Condes
Pudahuel ## ## ###
La Reina
Santiago
#
#
#
Peñalolen
María Pinto
Maipú # #
#
#
La Florida
Padre
#
#
Hurtado
##
# Puente
#
#
Calera
# de Tango # # Alto #
#
Peñaflor
#
San
# ##
Bernardo #
El Monte Talagante
#
#
#
San José de Maipo
#
Pirque
Buin
Isla de Maipo
Curacaví
Type of waste disposal
Garbage Dump
Sanitary Landfill
Landfill
Illegal Landfill and small garbage dumps
Average Per Capita Income ($)
75,000-170,000
170,001-280,000
280,001-550,000
550,001-1,500,000
Tiltil
Melipilla
#
Paine
San Pedro
Alhué
"The maps published in this report that refer to or are related
to limits or boundaries of Chile do not commit the State of Chile
in any way, according to Article 2, letter g of the Decree with
Force of Law N° 83 of 1979 of the Ministry of Foreign Affairs. The
Cartographic information is based on Datum WGS84 and it is mearly
referential".
0
25
Km
50
149
waste chapter 3
Final disposal in sanitary landfills presents significant economies
of scale and, thus, regulation discourages having more disposal sites
from an economic point of view. However, it is important to note that
since 2006 there has been little progress in the improvement of final
waste disposal in sanitary landfills.
Illegal landfills and small garbage dumps are mostly located in peripheral
urban areas, mainly affecting low-income communes and generating a negative impact on their budgets; forcing them to allocate economic resources,
equipment and staff to classify, extract, transport, and remove waste that
has been illegally disposed of in public spaces.
In some cases, this coincides with the lack of spaces available to devlop
outdoor entertainment activities, a situation that damages the quality of life
of their inhabitants.
fig.
7
fig.
8
Small dump on a river
bank.
Photograph by
Víctor Rojas, 2011.
Small dumps in the
commune of Puente Alto
Source: Ministerio del
Medio Ambiente, Quick
Bird Image, 2008.
chapter 3 waste
150
Promoting a higher waste valorization, without disregarding sanitary aspects, would allow a reduction in the demand for final waste disposal sites.
Figure 9 shows the Araucania Region, which has communes with lower urban density and of more rural characteristics. The per capita income observed
is homogeneous and there are final waste disposal sites in almost all the
communes of the region. Three of these sites are sanitary landfills: Villarrica
Private Sanitary Landfill (Villarrica), Coipué Sanitary Landfill (Freire) and Nueva
Imperial Private Sanitary Landfill (Nueva Imperial).
Per capita income and final waste
disposal sites in the Araucanía
Region, 2009.
fig.
9
Source: MIDEPLAN, CASEN Survey,
2009. Ministerio del Medio Ambiente,
Catastro de Sitios de Disposición
Final de Residuos, 2009.
Renaico
Angol
Los Sauces
Purén
Collipulli
Ercilla
Victoria
Traiguén
Lumaco
Curacautín
Perquenco
Galvarino
Type of waste disposal
Garbage dump
Landfill
Sanitary Landfill
Average per capita income ($)
75,000-170,000
170,001-280,000
280,001-550,000
550,001-1,500,000
No information
Carahue
Lautaro
Cholchol
Lonquimay
Temuco
Vilcún
Melipeuco
Nueva Imperial
Saavedra
Padre las Casas
Freire
Teodoro Schmidt
Pitrufquén
Gorbea
Toltén
Loncoche
"The maps published in this report that refer to or are related to limits or boundaries
of Chile do not commit the State of Chile in any way, according to Article 2, letter g
of the Decree with Force of Law N° 83 of 1979 of the Ministry of Foreign Affairs. The
Cartographic information is based on Datum WGS84 and it is mearly referential".
Tipo disposición de residuos
Basural Cunco
Relleno sanitario
Vertedero
Ingreso promedio per cápita ($)
75.000-170.000Pucón
170.001-280.000
Cu rarrehue
Villarica
280.001-550.000
550.001-1.500.000
0
25
Km
50
151
waste chapter 3
Figure 10 illustrates the case of Los Lagos Region, which only has landfills
and dumps in the main populated areas. Garbage dumps do not seem concentrated in just one particular commune.
San Pablo
San Juan de la Costa
fig.
San Pablo
San Juan de la Costa
Osorno
10
Osorno
Puyehue
Río Negro
Source: MIDEPLAN, CASEN Survey,
2009. Ministerio del Medio Ambiente,
Catastro de Sitios de Disposición
Final de Residuos, 2009.
Puyehue
Río Negro Puerto Octay
Per capita income and final waste
disposal sites for Los Lagos Region,
2009.
Puerto Octay
Purranque
Purranque
Frutillar
Frutillar
Fresia
Puerto Varas
LlanquihueFresia
Puerto Varas
Llanquihue
Los Muermos
Puerto Montt
Los Muermos
Puerto Montt
Maullín
Cochamó
Maullín
Cochamó
Ancud
Ancud
Dalcahue
Hualaihué
Dalcahue
Hualaihué
Castro
Castro
Chonchi
Type of waste disposal
Garbage dump
Landfill
Sanitary Landfill
Average per capita income ($)
75,000-170,000
170,001-280,000
280,001-550,000
550,001-1,500,000
No information
Chonchi
Futalelfú
Quellón
Futalelfú
Chaitén
Quellón
Chaitén
Palena
Palena
0
25
Km
100
50
0
25
50
Km
100
"The maps published in this report that refer to
or are related to limits or boundaries of Chile
do not commit the State of Chile in any way,
according to Article 2, letter g of the Decree
with Force of Law N° 83 of 1979 of the Ministry
of Foreign Affairs. The Cartographic information
is based on Datum WGS84 and it is mearly
referential".
152
chapter 3 waste
Industrial Waste Generation
Information on industrial waste is even more limited. Although there are
estimates on industrial, hospital, mining, construction, and sylvo-agriculturallivestock waste generation, according to which in 2009 they represented 61.5
percent of the total national waste, information regarding their current management is still insufficient. One exception is the generation and management
of radioactive waste, which is regulated and inspected by the Chilean Commission of Nuclear Energy3.
However, because the scarce information available is incomplete or broadly
estimated, it is not possible to break down industrial waste generation by region. Figure 11 shows an overview in terms of this type of waste distribution at
a national level, which does not include massive mining waste. It is important
to note that this data has been obtained mostly from surveys, and that it has
not been validated with the respective sectors.
3] Another case is that of
manufacturers and importers of
pesticides, who are at a stage of
promoting the triple rinse of their
containers, to later proceed with
their elimination, thus avoiding
their illegal disposal in rural areas.
National Industrial Waste Generation
per Sector, 2009.
Note: Construction waste includes
excavation. Industrial waste
information is outdated, incomplete
or broadly estimated.
Source: Own elaboration, based on
the "Primer reporte sobre manejo de
residuos sólidos en Chile", CONAMA,
2010.
fig.
11
1%
Water
Treatment and
Distribution
4%
Energy
Production
6%
Mining and
Quarries
56%
15%
Construction
18%
Manufacturing
Industry
Agriculture and
Forestry
153
waste chapter 3
Hazardous Waste Generation
Before the entry into force of the regulation (Supreme Decree N° 148 of
Ministry of Health) on hazardous waste management, dated from 2005, the
estimate on the generation of this type of waste was of approximately 30,000
tons, mainly due to the lack of specific regulations.
The Organisation for the Economic Co-operation and Development (OECD)
recommended in its 2005 Environmental Performance Review of Chile to:
"Strengthen chemical and hazardous waste management according to international agreements, notably the Stockholm, Rotterdam and Basel Conventions;
complete and implement national plans for persistent organic pollutants and
hazardous waste; strengthen enforcement activities, develop pollutant release and transfer registers and improve the regulatory framework to better
manage chemicals throughout their life cycle" (Recommendation 49).
According to this recommendation, the above mentioned regulation established a definition for hazardous waste and created a declaration and
follow-up system for large waste generators (one or more kilograms per
month for acute hazardous waste, and 1 or more tons per month for other
hazardous wastes). The Hazardous Waste Declaration and Follow-up System
(SIDREP, by its acronym in Spanish) has been implemented since 2006. The
data obtained from the SIDREP shows a continuous increase in waste declarations up to a total of 422,800 tons per year in 2010, as shown in Figure 12.
Tons/year
450,000
fig.
400,000
12
350,000
300,000
250,000
200,000
150,000
100,000
50,000
0
2006
2007
2008
2009
2010
Year
Annual Generation of Declared
Hazardous Waste
Source: SIDREP 2011
154
chapter 3 waste
Figures 13 and 14 illustrate the generation of hazardous waste by sectors,
composition and generation by regions, respectively.
In the SIDREP, there are 72 facilities for disposal and/or valorization of hazardous waste, which during 2010 managed the declared waste. However, the
total amount received is even higher since there are still hazardous wastes
being declared in paper and this information has not been digitalized yet.
National Generation of Hazardous
Waste, 2009.
Source: RETC, 2011
D
fig.
13
2%
Transportation, storage
and communications
Mix of different waste
3%
Electricity, gas and water
supply
123,894
Mix of various residues
46,438
Residues containing hexavalent chromium compounds
39,639
Acid solutions or solid acid
35,671
Residues with arsenic compounds
Mineral oils unfit for their originally intended use
21,964
Residues from waste disposal or treatment operations
21,518
12,645
Waste oils/water, hydrocarbons/water mixtures, emulsions
9,942
Waste chemical substances arising from research and development
which are not identified and/or are new
8,603
Waste resulting from surface treatment of metals and plastics
Tarry residues resulting from refining
4,041
Lead Residues
3,747
Basic solutions or bases in solid form
3,157
Contaminated soils or materials
3,099
Contaminated packages and containers
2,667
Wastes from resin production, preparation and use
2,638
Residuos with cooper compounds
842
615
Residues from ink production, preparation and use
0
fig.
40,000
14
Hazardous Waste Composition , 2009.
Source: MMA, 2011.
80,000
120,000
Tons
155
waste chapter 3
Figure 15 shows that the main destination of hazardous waste during 2010
was the Metropolitan Region, with a total registry of 204,032 tons, followed
by the Antofagasta Region, with a total of approximately 135,000 tons.
34%
52%
1%
Exploitation of
mines and quarries
Manufacturing
industries
Wholesale and retail
trade
8%
Others
Arica y Parinacota
Tarapacá
Antofagasta
fig.
Atacama
15
Regional Origin
and Destination of
Hazardous Waste,
2010.
Source: SIDREP, 2011
Coquimbo
Valparaíso
Metropolitana
Libertador Gral.
Bernardo O'Higgins
Maule
Bío-Bío
Disposal
Araucania
Generation
Los Rios
Los Lagos
Aisén y Gral. Carlos
Ibáñez del Campo
Magallanes
0
50,000
100,000
150,000
Tons/year
200,000
250,000
156
3
chapter 3 waste
Response to Waste
Generation Pressure
In Chile, the regulatory framework associated to waste dates back to 1967,
with the publication in the Legal Gazette of the Sanitary Code, which regulates
specific aspects regarding hygiene and safety of the environment and the
workplace. Relevant laws and decrees are listed in Table 1.
The emphasis of waste management has historically been placed on properly solving its final disposal. However, it has become evident that it is not
enough to concentrate efforts on solving the final disponsal issue with sanitary
and environmental adequacy and it is necessary to redefine the waste management approach in our country.
In order to address the complexity of this problem, in 2005 the Directive
Council of the National Commission for the Environment, approved the Policy
for Integrated Management of Solid Waste, prepared by a Technical Committee
with representatives of the Ministry General Secretariat of the Presidency, the
Ministry of Health, Ministry of Economy, Undersecretariat of Regional and Administrative Development, and the National Commission for the Environment.
This policy has the objective of "achieving that the management of solid
waste is performed with a minimum risk for the population's health and the
environment, triggering an integrated view of waste, that ensures a sustainable and efficient development of the sector". Executive secretariats were
created to implement this Policy, both at a national and regional level.
One of the relevant aspects included in this policy is the need to have integrated waste management that covers all of the stages of a product, from its
elaboration to its disposal. This model, generally used in developed countries,
has proven its effectiveness through time.
157
Table 1
Laws and Decrees Related to Solid Waste Management
Entry into Force
Laws and Decrees
1967
Decree with Force of Law (D.F.L.) N° 725, of the Ministry of Health, that establishes the Sanitary Code.
1992
Supreme Decree (SD) N° 685 in which Chile ratifies
the Basel Convention that regulates transboundary
movements of hazardous wastes and stipulates the
obligations of the Parties to ensure the environmentally sound management of them, particularly their
disposal.
1994
Law N° 19.300 Environmental Framework Law, which
incorporates the topic of waste in the Environmental
Impact Assessment System, article 10, (letters i and
o).
2000
SD N° 594 of the MINSAL on basic sanitary and environmental conditions in the workplace (derived from
SD N° 745 from 1993).
2004
SD N°148 of the MINSAL, which establishes the Sanitary Regulation on Hazardous Waste Management.
2007
SD N° 45, of MINSEGPRES, which establishes the emission standard for incineration and co-incineration.
2008
SD N°189 of MINSAL, which regulates basic sanitary
and safety conditions in sanitary landfills.
2009
SD N° 6 of MINSAL, on the management of waste
generated in healthcare facilities.
2009
SD N° 4 of MINSEGPRES, for the management of sludge generated in wastewater treatment plants.
2010
Law N° 19.300 Environmental Framework Law modified by Law N° 20.417, which establishes the Role of
the Ministry of the Environment in proposing policies
and creating regulations, plans and programs related
to waste (article 70 letter g).
waste chapter 3
158
chapter 3 waste
In terms of waste management, the first objective is to avoid its generation;
if this is not possible, efforts must concentrate on minimizing it; and, if this is
not possible, only then potential final disposal must be assessed. This sequence in waste management is known as hierarchy and is illustrated in Figure 16.
The hierarchy considers the following stages:
π Prevention: Actions or measures aimed at avoiding or reducing waste generation, diminishing the presence of hazardous material or of the pollutants
in them, and minimizing the significant impacts that these generate on the
environment or human health.
π Reuse: Action consisting of the use of a material or product previously utilized
as an input in the production process that originated it.
π Recycling: Valorization actions through which wastes are transformed into
new products, excluding energy valorization.
Prevention
Reuse
Hierarchichal Waste Strategy
Source: Adapted from
Hertfordshire Waste
Partnership, 2007
fig.
16
Recycling
Energy
Valorization
Disposal
159
waste chapter 3
π Energy valorization: Use of a residue as fuel in a production process.
π Disposal: Actions aimed at a final waste disposal in places authorized for this
purpose that comply with current regulations.
Annual follow up on valorization and elimination programs allows monitoring to see if there are reductions in the amounts disposed of, favoring
valorization.
Figure 17 shows the trend to recover wastes for valorization and disposal, respectively, during the 2007-2009 period, while Figure 18 reports on
the distribution of recovered and valorized wastes among different options.
Recycling
43%
Municipal Waste Collected at a
National Level and Destination,
2007-2009.
Composting
52%
fig.
17
18
7
Vermiculture
4%
6
Other
1%
Million tons
5
4
Recovery - Other
Recovery - Vermiculture
Recovery - Recicling
Recovery - Composting
Disposal - Garbage Dumps
Disposal - Sanitary Landfills and Landfills
3
2
1
0
2007
2008
Year
2009
Source: Own elaboration, based on
the "Primer reporte sobre manejo de
residuos sólidos en Chile", CONAMA,
2010.
Recovery of Municipal Waste, 2009.
Source: Own elaboration, based on
the "Primer reporte sobre manejo de
residuos sólidos en Chile", CONAMA,
2010.
160
4] Valorization is understood as actions
aimed at recovering residues or one of
their components, with the purpose of
reincorporating them into production
processes and/or generating new
materials, products or energy.
chapter 3 waste
Since it is not mandatory for all regions to declare waste flows and management to authorities, the valorization figures of the main waste fractions, such
as paper and cardboard, scrap and glass, among others, were estimated based
on information provided by the main companies dedicated to the valorization
of industrial and/or municipal waste, as shown in Figure 19.
One of the pending challenges is enhancing the adequate valorization4 of
generated waste. It is estimated that the valorization rate of waste generated
in Chile is still incipient, close to 10 percent (CONAMA, 2010a). However, the development of markets for valorization of wastes such as paper and cardboard,
glass, plastic and metals, has experienced an important growth during recent
years. Some experiences have been implemented at a local level, encouraging citizen participation and commitment for waste valorization. For example,
there are outstanding initiatives in the municipalities of La Pintana, La Reina,
Ñuñoa, Peñalolén, Viña del Mar, Talcahuano, Las Condes and Vitacura, among
others.
Type of Waste
Ferrous
metals
Source: Own elaboration, based
on the "Primer reporte sobre
manejo de residuos sólidos en
Chile", CONAMA, 2010a.
Percentage Valorized (%)
286,000
82%
74,000
54%
Papers and
Cardboards
913,000
41%
fig.
Aluminum
10,000
40%
19
Glass
266,000
29%
Organics
3,008,000
10%
Plastics
668,000
4%
Other non-ferrous
metals
64,000
3%
Tetrapak
18,000
2%
Mineral and
synthetic oils
National Generation and
Valorization by Type of
Industrial and Municipal Waste,
2009
Amount
Generated
(million tons)
161
residuos capítulo 3
161
waste chapter 3
Modifying the vision towards an integrated approach to
waste, without disregarding sanitary aspects, will allow us
to reduce the demand for final disposal sites, particularly for
those with no environmental standards or regulations.
162
5) Recommendation 3 Review the
scope for introducing new economic
instruments (e.g. product charges on
hazardous waste, air emission charges,
water pollution charges) and improve
trading mechanisms.
Recommendation 4 Further apply the
polluter pays and user pays principles
through appropriate charges (e.g.
on waste management, for access to
protected areas, for natural resources),
with due regard to social constraints.
chapter 3 waste
The OECD, in its 2005 Environmental Performance Review for Chile, also
establishes a series of recommendations5 to promote waste valorization such
as: "Further the application of 'the polluter pays' and 'user pays' principles
through appropriate charges on waste management" and "review the scope for
introducing new economic instruments such as charges on hazardous waste,
among others" (Recommendations 3 and 4).
The Ministry of the Environment is currently working on a draft bill for
waste management that includes a new instrument, called Extended Producer
Responsibility (EPR).
The EPR implies that a producer, manufacturer or importer must take responsibility for the product, once its life cycle is over. This concept, developed
in Europe in the 90s, is especially applicable to mass consumption products
such as oils, tires, computing equipment, batteries, containers and packaging,
lamps, and electric devices. The positive results obtained with this policy have
resulted in its application to a greater number of products.
By transferring the responsibility of managing waste derived from products
from the municipality to the producer, the latter must consider the costs for
its management in its market price. Therefore, the producer is motivated to
consider improvements in the product design regarding, for example, its life
cycle, the presence of hazardous substances, and its disassembly, in order to
facilitate its valorization. On the other hand, when considering the costs for
the management of the product at the end of its life cycle in the sale price, the
principle of "the polluter pays" is then being put into practice.
In 2009, pilot EPR projects were started in Chile with four selected products:
Disused tires, used lubricant oils, electronic devices (computing equipment
and cellular phones), and lead-acid batteries.
Besides the need to change the approach in waste management, a process
of continuous improvement for waste disposal sites must also be sought. In
this regard, the Undersecretariat of Regional and Administrative Development
(SUBDERE) of the Ministry of Interior started the National Solid Waste Program
in 2007, whose objective is to improve the sanitary conditions and environmental quality of urban and rural areas, as well as to implement integrated
and sustainable systems for the efficient management of Domestic Solid Residues (DSR).
Among the actions included in this program are the construction of new
sanitary landfills, purchase of machinery and equipment for their operations,
landfill closure, training and assessment for municipal technical departments,
improvement of the regional planning capacity for residential solid waste management, stregthening of the inspection capacity, State sanitary and environmental control, among others. Table 2 shows the progress of the Program up
to 2011.
163
National Solid Waste Program at a Regional Level, 2011
Minimization
Projects
2
1
1
1
Tarapacá
2
Antofagasta
1
1
1
1
Approved plans
Regional plans under development
1
Landfills under
construction
1
Management
Plans
Communal plans
1
Landfill
Construction
Designed landfills
Arica and
Parinacota
Closed landfills
Region
Assessment studies
of closure plans
Landfill
Closure
Studies
Table 2
waste chapter 3
Atacama
5
Coquimbo
3
Valparaíso
1
Metropolitan
1
O´Higgins
1
El Maule
2
Biobío
16
Araucanía
15
11
2
Los Ríos
4
2
1
3
Los Lagos
11
10
2
2
Aysén
1
1
1
1
3
7
1
1
1
1
9
1
2
3
2
1
1
61
Source: SUBDERE, 2011
3
9
Magallanes
Total
1
1
29
7
4
13
1
6
2
32
164
6] The Pollutant Release and Transfer
Register (PRTR) is a public access
database, aimed at recording,
gathering, systematizing, preserving
and disseminating information
on emissions and waste that are
potentially hazardous fo health and
the environment that are released into
the environment, generated through
industrial or non-industrial activities
or transferred for their valorization or
disposal.
The information on releases, waste
and/or transfer of pollutants, will
be provided by the different sources
or institutions forced to report this
data to the responsible State agency,
through the One-Stop-Shop System.
The registry must also include the
estimation of releases and wastes of
those pollutants that are not included
in the current regulation, in the case of
releases from diffuse sources, or that
are estimated because they are part
of international agreements signed by
Chile. Estimates will be made by the
Ministry of the Environment, with the
information provided by the different
State agencies.
chapter 3 waste
On the other hand, to achieve an adequate waste management it is necessary to revise, update and complement the scarce and dispersed information
available. It is essential to improve data on the amount and characteristics of
generated waste, its generation sources, and current management, considering all stages, from generation to valorization or disposal, passing through its
collection, storage, transportation and pre-treatment.
Besides the country's needs for information, there are also the commitments
with the OECD, an organization that requires that the information be in-sync
to that available from other member countries. At the same time, Chile must
meet, within previously set deadlines, a series of requirements from this organization regarding definitions, regulations, transboundary waste movements,
among others.
The Ministry of the Environment has made efforts to record municipal waste
generation. The initiatives that have already been executed until now are listed
in Table 3. The Ministry of the Environment is in the process of developing the
National System of Waste Declaration (SINADER by its acronym in Spanish),
with the objective of integrating the declaration of wastes in a single platform,
which will be implemented through the Regulation of the Pollutant Release
and Transfer Register (PRTR).6
Table 3
Municipal Waste Registries
Years
Product
2000 – 2006
The Ministry (CONAMA) prepared an annual registry of domestic
solid residues, based on the information provided by the
municipalities and the Regional Ministerial Health Secretariats
(Health Services). The information was restricted to deposited
waste and there was a lack of information from several
municipalities and final disposal facilities. At the same time, the
data was not validated, except for the Metropolitan Region.
2007 – 2008
Revision of the data in the registry of domestic solid residues,
completion with data missing from municipalities and final disposal facilities, generation and final disposal factors were
also applied.
2009 – 2010
The study "Gathering, Analysis, Generation and Publication of
National Information on Solid Wastes in Chile" was carried out.
This included the revision of previous studies as well as sending
surveys to municipalities, to companies that generate waste and
to waste receptors. The main findings of this study were
presented in the Report on Solid Waste Management in Chile,
released in 2010.
165
References
Comisión Nacional del Medio Ambiente (CONAMA), 2005. Política
integrada de gestión de residuos sólidos. Santiago, Chile.
Comisión Nacional del Medio Ambiente (CONAMA), 2009. Inventario nacional de fuentes de emisión de dioxinas y furanos. Santiago, Chile.
Comisión Nacional del Medio Ambiente (CONAMA), 2010a. Primer
reporte sobre manejo de residuos sólidos en Chile. Santiago, Chile: Conama.
Comisión Nacional del Medio Ambiente (CONAMA), 2010b. Levantamiento, análisis, generación y publicación de información nacional sobre
residuos sólidos de Chile. Santiago, Chile: Conama.
Hertfordshire Waste Partnership, 2007. Hertfordshire municipal
waste management strategy: draft core strategy. Available at: http://www.
wasteaware.org.uk/strategy/corestrategy.pdf.
Meijer, J. (jmeijer@mma.gob.cl), 13 September 2011. RE: Información
Residuos. Email to M. SERRANO (mserrano@mma.gob.cl).
Ministerio del Medio Ambiente (MMA), 2011. Registro de emisiones
y transferencias de contaminantes. Available at: http://www.retc.cl.
Organización para la Cooperación y Desarrollo Económicos
(OCDE), 2005. Evaluaciones de desempeño ambiental, Chile. Paris, France.
Terraza, H., 2009. Manejo de residuos sólidos. lineamientos para un
servicio integral, sustentable e inclusivo. Banco Inter-Americano de Desarrollo. Departamento de Infraestructura y Medio Ambiente. Technical note
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