FINAL REPORT SITUATIONAL ANALYSIS DEVELOPMENT OF GUIDELINES, STANDARDS AND REGULATIONS FOR THE MANAGEMENT OF SEPTAGE AND SLUDGE

Transcription

1 FINAL REPORT SITUATIONAL ANALYSIS DEVELOPMENT OF GUIDELINES, STANDARDS AND REGULATIONS FOR THE MANAGEMENT OF SEPTAGE AND SLUDGE Submitted to Pan American Health Organisation (PAHO) 2-4 King Street Kinston Jamaica Prepared by 4 Chelsea Avenue Kingston 10 Jamaica June 2005 Environmental Consultants & Project Managers Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 1

2 FINAL REPORT SITUATIONAL ANALYSIS DEVELOPMENT OF GUIDELINES, STANDARDS AND REGULATIONS FOR THE MANAGEMENT OF SEPTAGE AND SLUDGE Submitted to Pan American Health Organisation (PAHO) 2-4 King Street Kinston Jamaica Prepared by 4 Chelsea Avenue Kingston 10 Jamaica June 2005 Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 2

3 TABLE OF CONTENTS 1.0 INTRODUCTION Background Approach Organisation of the Report THE JAMAICAN EXPERIENCE Policy, Legal and Institutional Framework Policy Framework Regulatory Framework Institutional Framework Data and Applied Research Quantity of Septage (On Site Systems) Quantities of Septage (Portable Systems/Chemical Toilets) Transportation, Treatment and Disposal Practices Transportation Treatment and Disposal Illegal Disposal Septage Treatment Works Emerging Opportunities Summary GLOBAL EXPERIENCE Developing Countries Use of On Site Systems Regulatory Framework Disposal Options Developed Countries United States Canada Some Insights MANAGEMENT AND DISPOSAL TECHNOLOGIES Septage Characteristics Options for Treatment and Reuse Land Application Treatment at Wastewater Treatment Plants Independent Septage Treatment Plants Suitable Treatment Options for Jamaica OUTCOMES OF THE WORKSHOP Overview Consensus Building CONCLUSIONS AND RECOMMENDATIONS Conclusions Recommendations REFERENCES Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 3

4 LIST OF TABLES Table 1 List of Persons Interviewed during the Investigation Table 2 Relevant Policies impacting on Septage Management Table 3 List of Relevant Legislation for the Management of Septage Table 4 Percentage On Site Sewage Treatment Systems in Major Towns In Jamaica Table 5 Location of Chemical Operators Table 6 (a) List of Cesspool Operators Table 6 (b) Location of Cesspool Operators Table 7 Percentage On Site Treatment Systems in Urban Areas Table 8 Characteristics of Faecal Sludges and Comparison with Tropical Sewage Table 9 USEPA Pollutant Limits for Biosolids Disposal at a Public Contact Site Table 10 Characteristics of Septage and Sewage Solids Table 11 USEPA Characteristics of Septage Table 12 Heavy Metal Concentrations in Septage and EU Standard for Admissible levels in Sludges used in Agriculture Table 13 Summary of Options for Handling Septage at WWTPs Table 14 Advantages and Disadvantages of Septage Treatment and Disposal Approaches LIST OF PHOTOGRAHS Photograph 1 Cesspool Haulers Offloading in Receival Sump at the Greenwich STP Photograph 2 Sepatge Flowing in Canal with Grit Chamber at Greenwich Photograph 3 A View of a Non Functional Sedimentation Tank at Greenwich Photograph 4 A View of Non Operational Digester at Greenwich Photograph 5 (a) Untreated Septage Flows in Discharge Drain at Greenwich Photograph 5 (b) Untreated Septage Flows in Discharge Drain at Greenwich Photograph 6 A Map Showing the General Location of the Osborne Store Ponds Photograph 7 The Access Road to the Osborne Store Disposal Site Photograph 8 A View of the Septage Disposal Ponds in Osborne Store, Clarendon Photograph 9 A View of the one of the Septage Disposal Ponds in Comfort, Clarendon Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 4

5 ACRONYNS AAUS BOD CDM CERS CPC COD CREDP FC FS GTZ JPSCO Mgd MOA MOH NH4-N NH3-N NEPA NRCA NSWMA NWC PAHO PCJ STP SOW SRC SS TKN TP TS TVS USEPA WRA WWTP WSP Assigned Amount Units Biochemical Oxygen Demand Clean Development Mechanism Certified Emission Reductions Chief Parliamentary Council Chemical Oxygen Demand Caribbean Regional Energy Development Project Faecal Coliforms Faecal Sludge German Development Assistance Agency Jamaica Public Service Company Limited millions of gallons per day Ministry of Agriculture Ministry of Health Ammonium Nitrogen Ammonia Nitrogen National Environment and Planning Agency Natural Resources Conservation Authority National Solid Waste Management Authority National Water Commission Pan American Health Organisation Petroleum Corporation of Jamaica Sewage Treatment Plant Scope of Work Scientific Research Council Suspended Solids Total Kjeldahl Nitrogen Treatment Plant Total Solids Total Volatile Solids United States Environment Protection Agency Water Resources Authority Wastewater Treatment Plant Waste Stabilisation Ponds Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 5

6 GLOSSARY Application Site The area over which the biosolids are applied. Biosolids Any product consisting totally or in part of organic matter that results from a wastewater treatment process (referred to as sewage sludge) or septic tank sludge. Classification The process of assigning biosolids into classes based on their quality. Composting The aerobic decomposition of organic constituents at elevated temperatures to produce a highly stable humus like material. Several composting techniques may be used. Contaminants Potentially toxic elements occurring in biosolids which may affect plant or animal growth or human health. Digestion Mesophilic anaerobic digestion typically at 30 35ºC for days. Faecal sludge Sludges of variable consistency collected from so-called on-site sanitation systems; viz. latrines, non-sewered public toilets, septic tanks, and aqua privies Land Disposal Application of biosolids where beneficial use is not an objective and normally at rates which exceed the nutrient requirements of crops/pastures or plants, or the requirement for organic matter. Land Application Spraying or spreading of biosolids on to the land surface or their injection below the land surface. Landfill A waste disposal area that has been approved for the purpose and licensed by the EPA. Pathogens Microorganisms such as bacteria and viruses, helminths (worms), and protozoan parasites such as Giardia, Entamaeta and Cryptosporidium, which can cause disease in humans and animals. Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 6

7 Public Toilet Sludge Sludges collected from unsewered public toilets (usually of higher consistency than septage and biochemically less stabilised) Septage Septage, the informal term for hauled sewage, classifies all matter (liquids and solids) that is pumped out of septic tanks and holding tanks. Such tanks are found on residential, commercial and industrial properties. Septage is raw and untreated sewage, and must not be confused with sewage biosolids, which is the term applied to municipal sewage from a sewage treatment plant (STP) that meets specific standards. Sludge Sludge is residual waste or the byproduct of wastewater treatment processing. Stabilisation The processing of biosolids to reduce or eliminate the potential for putrefaction and which as a result reduces pathogens, vector attraction and potential to generate offensive odours. Vectors Insects and animals, such as flies, mosquitos and rodents, which are attracted to the putrescible organic material in biosolids and which may spread pathogens. Wastewater Treatment Plant The processing facility that treats wastewater to render it acceptable for discharge to the environment and which as a result produces biosolids and minor residuals. Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 7

8 EXECUTIVE SUMMARY The following are the main conclusions of the situational analysis: Jamaica does not currently have the policy and regulatory framework to effectively manage septage; Jamaica has the functional institutions and a willing private sector which can formed the basis for the development an effective septage management framework; Institutional strengthening and capacity building within the public sector will have to a necessary prerequisite to an effective septage management framework. These capacity issues relate to staffing, training, data, and monitoring and evaluation; There is currently no reliable locally available data on the quantity of septage and its characteristics. This type of data is essential for an effective planning and decision making and its absence represents a significant gap; Globally, there is sufficient experience in the technologies for the treatment and disposal of septage to inform Jamaica s decision making in that regard; and In developing a septage management framework it is important to view the material as a resource and to find approaches for its management which will not be detrimental to human health or the environment but will exploit its potential as a resource. In moving to develop a regulatory framework for septage there is much which can be learnt from other jurisdictions as well as the local experience with regard to the development of regulations. According to Vesilind (2000), "the responsibility of the regulator is to incorporate the best available science into regulatory decision making. But problems arise when only limited scientific information is available. The complexity of the environmental effect of sludge on human health leads to scientific uncertainty and makes sludge disposal difficult. 1 Bearing in mind its current reality, Jamaica should base the development of the regulatory framework on an ethical model that calls for a regulator to optimise the benefits of health and environmental protection while minimising costs within the constraints of technical feasibility. Therefore the replication the strict standards or limits established in industrialized countries without taking into account the local conditions may be entirely inappropriate and result in an exercise in futility. In light of all those considerations the following recommendations are offered: 1 The challenge of faecal sludge management in urban areas strategies, regulations and treatment options,, Water Science and Technology, 2002 Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 8

9 A phased approach to the implementation of guidelines and standards with a tightening of the standards as local capacities improves. The guidelines which are firstly established must meet health concerns; The commencement of applied research in the area of septage quantification, qualification and application involving the Ministry of Agriculture, MOH, NIC, SRC and WRA as the relevant public sector bodies; Incorporation of data management information system in the management of septage; The development of clear guidelines for the location and use of on site systems. Efforts to be made where possible to move away from onsite systems particularly in areas where there is a risk of contamination of surface and ground water; The NWC sewage connection policy to be vigorously implemented in sewered areas to increase the level of connection to available sewage systems to 1005; The Ministry of Health through is Public Health arm to be responsible for the licensing and monitoring of septage haulage contractors; The establishment of independent regional septage treatment and disposal facilities should be encouraged. A system of incentives to be developed (enabling environment); and The proposal being prepared by the SRC to be seriously examined as a possible solution to the country septage treatment problem. This proposal can be widen to incorporate private sector interests. Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 9

10 1.0 INTRODUCTION 1.1 Background The 2001 census reported that approximately 72.5% of households 2 in Jamaica have on site systems for the disposal of excreta. These systems are emptied by cesspool operators however; the MOH has no regulations or guidelines to effectively manage the collection, transportation, treatment and disposal of septage in the country. The Ministry of Health (MOH) with the support of the Pan American Health Organisation (PAHO) is currently working to regularise the management and disposal of septage and biosolids in Jamaica. In this regard, a consultant was contracted to develop in consultation with key stakeholders and interested parties guidelines, standards, and regulations for the management of septage and sludge in Jamaica. The Scope of Work (SOW) for the project was as follows. Specifically the consultant was required to: 1) Conduct a situational analysis to determine the present operational system and management of management of septage in Jamaica. 2) Collaborate with stakeholders in the regulatory agencies and private sector to develop a regulatory and monitoring system for operators and other persons involved in collecting, transporting, treating and disposing of domestic septage, industrial septage, sludge and temporary systems. 3) Review policies, guidelines, standards and regulations obtaining in other regional and international jurisdictions on septage management. 4) Develop drafting instructions to be sent to the Chief Parliamentary Council (CPC) for regulating domestic and industrial septage, industrial sludge, temporary treatment systems, licensing of cesspool servicing companies, and permit for transport operators. 5) Prepare guidelines and standards for the management of domestic and industrial septage, industrial sludge, temporary treatment systems, licensing of cesspool servicing companies, and permit for transport operators (this to include occupational health and safety standards). 6) Make presentation(s) on the guidelines to at least three public consultations. 2 Draft Report, The Collection, Transport and Disposal of Septic Tank and Absorption Pit Waste in Jamaica Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 10

11 This report provides the findings of the situational analysis of septage disposal in Jamaica. It also examines experiences in other jurisdictions. The findings on both the local and international experience formed the basis of the analysis and have informed the subsequent development of the guidelines and regulations. 1.2 Approach During the situational analysis, the consultant reviewed, examined and evaluated the current practice for disposal of septage in Jamaica and other countries, through interviews, sites visits and publications. The table below details the persons who were interviewed during the investigations. Table 1 List of Persons Interviewed during the Investigation Organisations South East Regional Health Authority Southern Regional Health Authority Western Regional Health Authority National Environment and Planning Agency (NEPA) National Water Commission (NWC) Scientific Research Council (SRC) Intra Island Cesspool Rentalotequipment Persons Interviewed Mr. Samuel Cameron, Mr. Glasford Gordon, Mr. Everton Baker, Dr. Karen Webster & Mr. Errol Mathie Mr. Vernal Webster, Miss Keisha Wright & Mr. George Brown Mr. Basil McFarlane Mrs. Paulette Kolbusch Miss Michelle Roberts & Mr. Donald Hewitt (Kingston) Miss Murray (Montego Bay) Miss Julia Brown Mr. Errol Campbell Mr. Roy McGill Miss Nicole Taylor Desk top web based searches were carried out to investigate septage management practices within other countries in order to learn from their experiences and applied the lessons learnt to the situation in Jamaica. Reports from the United States, Canada, Europe, Australia, Africa and Asia were reviewed. 1.3 Organisation of the Report Chapter one of the report provides information on the background to the project and the approach adopted by the consultant in conducting the situational analysis. Chapter two outlines the current experience in Jamaica while Chapter three reviews the experiences in other jurisdictions. Chapter four examines the management and disposal methods utilized across the globe and chapter five the outcome of the workshop. The final chapter provides the conclusions of the analysis and the recommendations for Jamaica. Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 11

12 2.0 THE JAMAICAN EXPERIENCE 2.1 Policy, Legal and Institutional Framework Policy Framework There is currently no policy and legal framework in the country which makes direct reference to the management and disposal of septage. However, there are a number of policies and laws which have a direct or indirect bearing on any effective management framework which will be developed for the sector in the future. In terms of the existing policy framework, the following policies will need to be considered and where necessary harmonised and integrated with regards to the development of a policy framework for the management of septage in Jamaica (Table 2). Table 2 Relevant Policies impacting on Septage Management Policy Sewage Connection Policy Regional Framework for Planning Land Policy National Irrigation Policy National Solid Waste Policy With respect to the National Water Commissions (NWC) Sewage Connection Policy, the full actualization of that policy will have a significant impact on the quantity of septage which will have to be treated and as well as the size and design of treatment facilities. The National Irrigation Policy will be of some import if land application of septage on agricultural fields is one of the disposal methods employed by the country. As too will be the Regional Framework and Planning Land Policy as it relates to land use issues. Sludge generation is an inevitable by product of most aerobic sewage treatment plants (STPs). The NWC has in the past made attempts to package and market dried sludge as a soil conditioner/fertilizer to the agriculture sector. This attempt has had disappointing results. As a consequence of this sludge will have to be disposed of in landfill sites and the Solid Waste Policy will be of relevance in that regard Regulatory Framework The current legal framework for the management of septage while not entirely nonexistent where it does exist is relatively weak. Table 3 lists some exiting and pending legislation which have some relevance for the management of septage in Jamaica. Within the MOH, the legal instruments would be the Public Health Act under which any practice which threatens public health in general could be dealt with as well as any practice which may create a nuisance. However, there are no supporting regulations which would allow for the licensing of septage haulers, treatment and disposal of septage and its overall management. Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 12

13 Table 3 List of Relevant Legislation for the Management of Septage Legislation Public Health Act National Solid Waste Management Act Water Resources Authority Act Litter Act Natural Resources Conservation Authority (NRCA) Act NRCA Wastewater and Sludge Regulations NRCA Permit and Licensing Regulations Authority Environmental Health; waste management; pollution control Control of solid waste Protect surface and underground resources Control of litter in public places Protect and manage natural resources and control pollution Control effluent discharge Control environmentally sound development The National Environment and Planning Agency (NEPA) are in the process of gazetting the Wastewater and Sludge Regulations which is a combination of the trade effluent, industrial sludge and sewage effluent regulations. The regulations are expected to be in force sometime in These regulations will have an indirect impact on septage management if septage is treated in the wastewater treatment plants (WWTPs) the effluent must meet the NEPA discharge standards. Interestingly, the NWC has developed influent guidelines for the wastewater it will treat in its plants, these guidelines will have some considerable bearing on whether septage can be accepted at NWC facilities without pretreatment (although this is the current practice). NEPA will also play a role in with regard to the establishment of any new or upgrading of existing waste treatment facilities through the Permit and Licensing Regulations. This process may involve an environmental impact assessment (EIA) for locating and operating such a facility. The Water Resources Authority (WRA), formerly known as the Underground Water Authority, is a statutory body of the Government of Jamaica. The WRA was established by the Water Resources Act of 1995, which repealed the Underground Water Control Act and the Water Act. The WRA replaced the Underground Water Authority as Jamaica's hydrologic agency. The WRA is responsible for the management, protection, and controlled allocation and use of Jamaica's surface and underground water resources. The WRA is consulted by the NEPA on issues related to the location of treatment facilities as these may affect surface or groundwater resources. The National Solid Waste Management Authority (NSWMA) with the National Solid Waste Management Act and Litter Act is of relevance to the disposal of biosolids Institutional Framework Institutionally, the Ministry of Health through its Central Board of Health will have overall lead responsibility for development of the policy and legislative framework to Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 13

14 manage septage in the country. This task will be undertaken in collaboration with NEPA, WRA, NWC and the NSWMA. While there is a role for the private sector in the management of septage in Jamaica, this role has been mainly confined to participating in the development of policy and regulations, providing septage haulage services and investment in treatment facilities. It is the opinion of the consultant that there are currently sufficient functional institutions and private sector participation in the sector to support its further development. However, as the sector is regularised certain capacity issues as it relates to (i) staffing, (ii) financing, (iii) training (iv) applied research and (v) monitoring and enforcement will have to be addressed. 2.2 Data and Applied Research Many factors affect the chemical and physical characteristics of septage, including the users habits; septic tank size, design, and pumping frequency; water supply characteristics and piping materials; the use of household chemicals and water softeners; and climate. Septage has high levels of grease, grit, hair, and large solids that can clog pipes. The material also contains parasites, viruses, and bacteria that can cause disease. The design of efficient and effective septage treatment facilities and the development of suitable disposal options are significantly dependent of the characterisation of septage. Septage can be generated from domestic, commercial, industrial sources or a combination of all three sources. The characteristics of the septage depend on its source. Many municipalities within the United States have reported substantial discrepancies between published data and actual characteristics of local septage. 3 During the investigation the Consultant located very limited locally generated data on septage. This is considered a significant gap as local information about septage characteristics is essential to its proper management. Total reliance on externally generated data is not advisable. For example, if land application of biosolids is to be seriously considered as a disposal option the nature of the material in terms of pathogen and heavy metal content as well as nutrient profile will be of importance. Given the variable composition of septage and its different sources, local analyses should be preformed. 2.3 Quantity of Septage (On Site Systems) A study supported by PAHO in the year estimated that approximately 1.9 million cubic meters of septage are generated annually. Verification of this figure was difficult within the scope of this investigation however, a review was done of on site systems in major population centers in the country. The results shown in Table 4 show that for the seven major towns septage generation rates were in the order of 155,000 cubic meters each day. While this figure does not necessarily represent the volume which has to be 3 USEPA, Guide to Septage Treatment and Disposal, 1994 EPA/625/R-95/002 4 Draft Report, The Collection, Transport and Disposal of Septic Tank and Absorption Pit Waste in Jamaica Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 14

15 disposed of as that will be dependent on many factors including septic tank size, pumping frequency and water supply characteristics. However, the difference in the two numbers point to be need to have a reliable method of estimating septage generation rates in order to adequately address the establishment of disposal facilities. The sparity of reliable data in this regard points to the need to incorporate into any future management framework a data gathering mechanism which allows for better quantification and prediction of septage generation rates to facilitate better planning and management of the sector. Table 4 Percentage On Site Sewage Treatment Systems in Major Towns In Jamaica Town Percentage (%) On Site Systems Estimated Septage Generated (cubic meters/day) Kingston ,000 Black River Negril - 9,400 Montego Bay - 22,600 Falmouth ,500 Ocho Rios 67 1,800 Port Antonio 86 2, ,503 Source: Literature Review Development of Jamaica s National Programme of Action (NPA) for the Protection of the Coastal and Marine Environment 2.4 Quantities of Septage (Portable Systems/Chemical Toilets) There are approximately eight (8) operators who supply chemical/portable toilets in the country. Table 5 shows the distribution of operators by parish. The types of portal systems range from flush units with wash basins, flushed units with urinals to non flush systems. During interviews with the operators the consultant was unable to determine the chemical composition of the solution placed in these toilets. These toilets are in some cases emptied by the operator or cesspool haulers that service the residential, commercial and industrial sectors. However, the physical and chemical characteristics of the waste removed from chemical toilets would differ from septage because of the difference in residence time, water and chemical usage. There was no waste characterisation data available locally on this waste stream. Table 5 Location of Chemical Operators Parish Numbers of Operators Kingston 4 St. Ann 1 Trelawny 1 St. James 1 Westmoreland 1 Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 15

16 2.5 Transportation, Treatment and Disposal Practices Transportation The transport of septage is operated by private sector cesspool haulers who are located throughout the country. The tables below list the operators and location of the operations on a parish by parish basis. Table 6 (a) List of Cesspool Operators Citywide Cesspool Emptier Intra Island Cesspool (May Pen) Mandeville Cesspool Services Cesspool Specialist (Old Harbour) West Indies Cesspool All Island Cesspool Emptier Central Cesspool Services Roy McGill Cesspool Emptier Kelly Cesspool (Spanish Town) St. Andrew Cesspool Alpha Cesspool Services Water&Waste Environmental Solutions Jamaica Cesspool Stephen Plumbing Service and Cesspool Kingston Cesspool Emptier Adolph s Cesspool Cleaning Burkett & Sons Cesspool Emptier Wards Cesspool and Construction Table 6 (b) Location of Cesspool Operators Parish Number of Cesspool Haulers Kingston 10 St. Catherine 3 Clarendon 2 St. James 4 Westmoreland 4 St. Ann 1 Manchester Treatment and Disposal The operators empty septic tanks and absorption pits from residential, commercial and industrial sites. In theory the disposal of the septage should take place at the two official facilities operated by the NWC; the Bevin Avenue facility located in Montego Bay (Western Jamaica) and the Greenwich Treatment Plant a primary sewage treatment plant (STP) in Kingston. The Bevin Avenue Plant operates six days a week from Monday to Saturday from 8:30 am to 4:00 pm. The facility consists of a secondary treatment STP. To use the plant cesspool operators have to purchase waste dumping coupon booklets One coupon costs nine hundred and fifty dollars (J$950). The coupon contains information on the name of the hauler. The coupon is handed in at the security office at the entrance of the plant. The office retains the original copy of the coupon. Once the coupon is handed in the hauler is allow to enter the facility to discharge. Each discharge should be tested for its grease content. Loads containing high grease levels are not allowed to off load. Approximately, Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 16

17 415,000 United States gallons (around 1,600 cubic meters) of septage is off loaded at the facility daily 5. At the Greenwich facility approximately 750 loads of septage or one million United States gallons (3,800 cubic meters) is offloaded at the plant each month 6 (See Photographs 1 to 5). The system of coupons is similar to what obtains at the Bevin Avenue plant. However, the actual treatment of the septage is significantly compromised because of the non operation of the sedimentation tanks and digesters at this facility. In reality, very little treatment takes place with the exception of removal of some grit. The untreated septage flows directly into the Kingston Harbour on of the country most valuable national assets. More recently the Can Cara Disposal Site has been approved by NEPA as a regional treatment and disposal site. The facility an activated sludge plant will handle a maximum of eight trucks (estimated 12,000 US gallons) daily. Photograph 1 Cesspool Haulers Offloading in Receival Sump at the Greenwich STP 5 Personal discussion, Miss Murray, NWC, Montego Bay 6 Personal discussion, Marlene Roberts, NWC, Kingston Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 17

18 Photograph 2 Sepatge Flowing in Canal with Grit Chamber at Greenwich Photograph 3 A View of a Non Functional Sedimentation Tank at Greenwich Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 18

19 Photograph 4 A View of Non Operational Digester at Greenwich Photograph 5 (a) Untreated Septage Flows in Discharge Drain at Greenwich Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 19

20 Photograph 5 (b) Untreated Septage Flows in Discharge Drain at Greenwich There are two unofficial disposal sites both located in the parish of Clarendon which are used by cesspool operators to dispose of septage. The genesis of these disposal sites appeared to have come out of a need to find an environmental acceptable method of disposing of septage. Both operators had previously been offloading septage into sewage treatment ponds in the area one operated by the NWC and the other by the Heart Academy. However, this practice was discontinued because the off loading appeared to have adversely affected the operation of the sewage waste stabilization ponds. Both operators consulted the Clarendon Health Department and received approval to build sealed ponds to dispose of the septage. Notably, the NEPA did not license or permit either facility and the ponds appeared not to have been designed according to standard good engineering practice. One of the septage disposal sites is located in Osborne Store and is operated by Mr. Roy McGill. No method of record keeping was observed at the site. Although built as facultative waste stabilization ponds the consultant observed the first pond was basically anoxic at the time of the visit (See Photographs 6 to 8). Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 20

21 Photograph 6 A Map Showing the General Location of the Osborne Store Ponds Photograph 7 The Access Road to the Osborne Store Disposal Site Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 21

22 Photograph 8 A View of the Septage Disposal Ponds in Osborne Store, Clarendon Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 22

23 The other disposal site in Clarendon is located on a five acre property in Comfort and is operated by Mr. Errol Campbell (See Photograph 9). Mr. Campbell said that the site was basically used to support his own operation and is occasionally used by other operators. There were no records on the site but it was estimated that 120 loads 36,000 US gallons (136 cubic meters) were offloaded each month. Photograph 9 A View of the one of the Septage Disposal Ponds in Comfort, Clarendon Also in this case, the construction of the ponds was not subject to design according to acceptable engineering standards. The situation of the ponds in Clarendon clearly demonstrates the dilemma of the management of septage in Jamaica. On the negative side it shows the lack of an adequate regulatory and monitoring framework and suitable treatment and disposal facilities. On the positive side it shows that the private sector is willing to invest in disposal facilities to support their business operations. The irony of the situation is that these two unofficial sites may be less deleterious to the environment in their present operating scenario than the official septage disposal site at Greenwich. The challenge to the country now is to provide the enabling environment which will allow the development of the sector based on sound technical options for treatment and disposal of septage an appropriate an effective institutional, legislative and enforcement framework. Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 23

24 2.5.3 Illegal Disposal The consultant tried to determine the level of illegal disposal of septage in the country, discussions were held with the public health departments, WRA, NIC and NEPA and in all cases while there was anecdotal information there are no official records documenting the issue. 2.6 Septage Treatment Works Officially only two sites are designated for septage disposal, the NWC operated Bevin Avenue (Montego Bay) and Greenwich primary treatment STPs. In addition, two unofficial poorly designed waste stabilisation ponds are found in Clarendon (See Section 2.5). None of these facilities treat nor have the design capacity to treat the estimated 1.9 million cubic meters of septage generated annually. 2.7 Emerging Opportunities Anaerobic digestion is one of the proven methods to treat septage producing a stabilized sludge and methane as valuable byproducts. The Scientific Research Council (SRC) with the support of the Ministry of Commerce and Technology is currently conducting a preliminary feasibility study on The Commercial Production of Biogas from Aerobic Sludge and Septage. The study which view waste as a resource is being supported by the European Union through GTZ and CREDP. The project is examining using the methane to generate electricity and supply the grid. The key stakeholders are involved in the process; NWC, NSWMA, Jamaica Public Services Company (JPSCO) and Petroleum Corporation of Jamaica (PCJ). The intention is to locate such treatment facilities strategically throughout the island. The preliminary feasibility report should be available by early January If the results of the study are favourable this may resolve the issue of treatment of the septage, although the issue of disposal of the biosolids would still need to be resolved. Fortunately, the anaerobic process produce less and more stable solids that aerobic processes. The matter for characterisation of the septage and biosoilds and the need for applied research to see the appropriateness for agricultural application will be necessary. In addition to the SRC initiative, WAYMAY Limited a local firm through its Water & Waste Environmental Solutions Division has written to the MOH 7 expressing n interest in constructing a waste treatment facility to treat septage in the Kingston and St. Andrew area. The proposal also includes the use of anaerobic technology and the generation of electricity to supply the grid. The generation of methane which is the used for energy is a potential project under the Clean Development Mechanism (CDC) of the Kyoto Protocol. The Protocol commits Annex I Parties (Developed Countries) to individual, legally-binding targets to limit or reduce their greenhouse gas emissions. Under the Kyoto Protocol, industrialized 7 Letter to Director of Environmental Health Unit, MOH, November 1, 2004 Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 24

25 countries are to reduce their combined emissions of six major greenhouse gases during the five-year period to below 1990 levels. The Protocol s entry into force means that: i) Thirty industrialized countries will be legally bound to meet quantitative targets for reducing or limiting their greenhouse gas emissions. ii) The international carbon trading market will become a legal and practical reality. The Protocol s "emissions trading" regime enables industrialized countries to buy and sell emissions credits amongst themselves; this market-based approach will improve the efficiency and cost effectiveness of emissions cuts. iii) The Clean Development Mechanism (CDM) will move from an early implementation phase to full operations. The CDM will encourage investments in developing-country projects that limit emissions while promoting sustainable development. iv) The Protocol s Adaptation Fund, established in 2001, will start preparing itself for assisting developing countries to cope with the negative effects of climate change. The Protocol envisages a prompt start to the CDM, allowing certified emission reductions CERs to accrue from projects from the year 2000 onwards. Under emissions trading, an Annex I Party may transfer some of the emissions under its assigned amount, known as assigned amount units (AAUs), to another Annex I Party that finds it relatively more difficult to meet its emissions target. It may also transfer CERs, ERUs or RMUs that it has acquired through the CDM, joint implementation or sink activities in the same way. Here lies the opportunity to generate funding for the solid waste management project. Jamaica ratified the Convention in January 1995 where under the Convention and therefore can enter into agreements to sell CERS. Under the Clean Development Mechanism (CDM), Annex I Parties (Developed Countries) may implement projects in non-annex I Parties (Developing Countries) that reduce emissions and use the resulting (CERs) to help meet their own targets. The CDM also aims to help non-annex I Parties achieve sustainable development and contribute to the ultimate objective of the Convention. Jamaica as a party to the protocol can through projects under the CDM earn carbon credits which can go a far way in covering the costs of the treatment and disposal of septage. Finally, the NWC proposes to build sewage treatment facilities at the Soapberry Site. The construction of this new facility offers the opportunity to incorporate into the design appropriate unit operations for the treatment of septage. 2.8 Summary The following summarises the major findings: Currently there is an absence of an effective policy, legal and institutional septage management framework Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 25

26 Functional institutions (MOH, MOA, WRA, SRC, NSWMA, NWC & NEPA) exist within the public sector to form the basis of an effective management framework These functional institution face capacity constraints which would have to be addressed in the development of an effective system for the management of septage Inadequate locally generated data exist on septage and or sludge characteristics. The absence of which impacts adversely on the country s ability to appropriately design treatment facility or utilise the land disposal option(s) Private sector capacity exist for the collection and transport of septage There is currently only two appropriate official treatment facilities for the treatment of septage (Bevin Avenue & Can Cara) The emerging opportunities offered by SRC and WAYMAH may be part of the solution to effectively treating septage along with the addition of septage treatment facilities in the design of the Soapberry facility. Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 26

27 3.0 GLOBAL EXPERIENCE 3.1 Developing Countries Use of On Site Systems In urban areas of many developing countries, the disposal of excreta disposal is a significant challenge. Every day, all around the world, thousands of tons of septage from on-site sanitation installations, are disposed of untreated. The untreated septage is either used in agriculture or aquaculture or discharged indiscriminately into lanes, drainage ditches, onto open urban spaces and into inland waters, estuaries and the sea, causing serious health impacts, water pollution and eye and nose sores. Table 6 provides data on the percentage urban households served by on site systems in some developing countries. Table 7 Percentage On Site Treatment Systems in Urban Areas 8 Country Percentage Manila 78 Philippines (Towns) 98 Bangkok 65 Ghana 85 Tanzania >85 Latin America >50 In many of these countries in the larger cities, septage collection and haulage are faced with great challenges: Emptying vehicles often have no access to pits; Traffic congestion prevents efficient emptying and haulage; Emptying services are poorly managed; Suitable sites for treatment and use or for final disposal may be found at the outskirts of cities only; and Cesspool haulers discharge their load at shortest possible distance from the points of collection to save time and cost. In many cities, dumping sites for septage is close to squatter or formally inhabited lowincome areas where they threaten the health of this ever-growing segment of population. Children, in particular, are at greatest risk of getting into contact with indiscriminately disposed excreta Regulatory Framework In many developing countries problems exist with regard to establishing a regulatory framework because of the limited scientific information which is available as well as the relatively weak institutional capacity. 8 The challenge of faecal sludge management in urban areas strategies, regulations and treatment options,, Water Science and Technology, 2002 Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 27

28 In the majority of less-industrialized countries, effluent discharge legislation and standards have been enacted. The standards usually apply for both wastewater and sludge treatment and are often too strict to be attained under the unfavorable economic and institutional conditions prevailing in many countries or regions. Quite commonly, effluent standards are neither controlled nor enforced. The complexity of the environmental effect of sludge disposal on human health leads to scientific uncertainty and makes decision making about its disposal difficult. The challenge often faced by developing countries is basing environmental health regulations on available technology versus the local economic and institutional resources. Additionally, replicating the strict standards or limits established in some industralised countries without taking into account local conditions often leads to inappropriate and ineffective regulatory frameworks. The challenge for many of these developing countries is to put in place an effective system and moving over time to improvements as the institutional and technical capacity and financial resources improve. A review of one experience in South Africa a relatively wealthy developing country maybe a useful case study to examine. In South Africa, the country is currently reviewing its Sewage Sludge Standards which were developed in The first sludge guidelines were developed by the Department of Health from In 1991 the Health Department established the first guide to Permissible Utilisation and Disposal of Sewage Sludge which was managed through the Health Act. The 1991 guidelines were interim and between were subject to considerable debate as consensus could not be reached between the Department of Health, Department of Water Affairs and Forestry, Department of Agriculture an the Department of Environment Affairs and Tourism. In 1997, a consensus was reached with the publication of Sludge Guidelines in The guidelines aimed to have safe handling, disposal and utilisation of sewage sludge. The sludge was classified based on its potential to cause odour nuisance, fly breeding and transmit pathogenic organisms to humans and the environment. Sludge application restrictions were established. However, today the guidelines are being reviewed because the regulated community sludge producers cannot meet certain metal limits. The legislative framework is now being reviewed with the following considerations: Research that is the development of the local knowledge base for the management of sewage sludge within the South African context Phased approach that requires input of all stakeholders Develop addendum to first regulation which would clarify issues in 1997 sludge guidelines The South African experience in the context of the developing country experience has a number of lessons for the Jamaican process: 1. Standard development must be supported by local research. 2. The development process is an iterative on and can benefit significantly by a phased approach to implementation. 3. Stakeholder participation at all levels is critical. Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 28

29 3.1.3 Disposal Options Proper septage treatment and disposal, either in combination with wastewater or separately, is being practiced in only a few countries to date (e.g. Argentina, Ghana, Benin, Botswana, South Africa, Thailand, Indonesia, and China). The treatment options used comprise batch-operated settling-thickening units; Imhoff tanks; non-aerated stabilization ponds; combined composting with municipal organic refuse; extended aeration followed by pond polishing; and anaerobic digestion. With regard to septage and sewage characteristics the table below provides some comparisons between faecal sludges, septage and sewage in tropical countries. Table 8 Characteristics of Faecal Sludges and Comparison with Tropical Sewage 9 Public Toilet Sludge Septage Sewage Characterisation Highly concentrated, FS of low Tropical sewage mostly fresh FS; stored for days or; weeks only concentration, usually stored for several years; more stabilised than public toilet sludge COD (mg/l) 20, 50,000 < 10, ,500 COD/BOD 2:1... 5:1 5: :1 2:1 NH4-N (mg/l) 2, 5,000 < 1, TS 3.5% < 3% < 1% SS (mg/l) 30,000 7, Helminth eggs (#/liter) 20, 60,000 4, ,000 Source: (Heinss et al., 1998) 3.2 Developed Countries Arguably the United States and Canada have the most developed regulatory framework for the management of septage of the developed nations. The following section of the report outlines their regulatory frameworks. This section provides a description of the regulatory framework in these countries United States In the United States both state and Federal Regulations govern septage disposal. The Federal Regulations set minimum standards and state regulations are often the more stringent of the two. 9 The challenge of faecal sludge management in urban areas strategies, regulations and treatment options,, Water Science and Technology, 2002 Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 29

30 The USEPA regulations; EPA Rule 503: The Standards for the Use or Disposal of Sewage Sludge establishes the requirements for the final use or disposal of sewage sludge (biosolids) and domestic septage when: Applied to land to condition the soil or fertilize crops or other vegetation grown in the soil; Placed on a surface disposal site for final disposal; or Fired in a biosolids incinerator. A. Land Application of Domestic Sewage to Non-Public-Contact Sites In the Unites States, typical methods of land application include spraying or spreading on the soil surface, or plowing, disking, or injecting into the soil. If the septage is incorporated into the soil by plowing or subsurface injection, lime stabilization may not be required. If the septage is lime stabilized it may be applied directly to the soil surface. The most detailed federal land application restrictions apply to the application of septage to sites where crops will be grown. The maximum annual volume of domestic septage applied to any land depends on the nitrogen content of the septage and the nitrogen needed by the crop. Nitrogen requirements needed by the crop depend on soil conditions, temperature, rainfall, and length of growing season. Some key elements of a successful operation and maintenance of land application as pointed out by the EPA are as follows: (i) (ii) (iii) (iv) (v) (vi) (vii) Provision of septage receiving and holding facilities to provide operational flexibility(optional). Proper septage treatment prior to application. Control of septage application rates and conditions. Proper operation and maintenance of the application equipment. Monitoring of septage volumes and characteristics soil, plants, surface water, and ground water. Odor control. Good record keeping for five years. The table below shows the pollutants limits established by the USEPA for septage disposal on public contact sites. Table 9 USEPA Pollutant Limits for Biosolids Disposal at a Public Contact Site Pollutant Ceiling Concentration Limits for all Biosolids Pollutant Concentration Limits for EQ and PC Cumulative Pollutant Loading Rate Limits for Annual Pollutant Loading Rate Limits for Final Report, Situational Analysis, Development of Guidelines, Standards and Regulations 30