EnvironmentalAssessment/AnalysisReports ___

Report E0043

Mexico -Northern BorderEnvironment Proj ectEA Category A

Environmental AssessmentExecutive SummaryJanuary 1994

This report has been prepared by the Borrower or its Consultant

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cMCO

NORTHIERN BORDER ENVRONMENT PROJECT

ENVIRONMENTAL ASSESSMENT EXECUTIVE SUMMARY

MEXIo

ENVIRONMETAL ASSESSMENT

EXECUTIME SMRY'

Table of Contents

Introduction .................................................

Legal and Administrative Framework .

Existing Municipal Solid Waste Siti tion..4

Sectoral Environmental Impacts.6

Analysis of tarnatives .

Mitigation of Existing Impacts through Project Implementation .......... 7

'Mitigation of Residual Environmental Impacts. 9

Monitoring and Evaluation .................. 1....0... ........... i0

Institutional Needs ............... 10

Public Participation .............. 11

Bibliography ........................................ i...... 11

I This document summarizes the environmental assessment and social studies done for the Norlhern BorderEnvironment Project and for the Second Solid Waste Management Project. From the outset. it was decided to do thiswork for the two projects together. (see para- 2 on page 1) and that plan was Ioblowed throughout. In the final write-upof the Executive Summary, reference to the Northern Border Environment Proiect was inadvertenwly om:ried from theitle pages. The arwhed document is identical to thc version finalized in January 1994. except tiat s inadvenentomission has been corrected.

MEICO NORTHERN BORDER ENVONMENT PROJECT

ENVIRONMENTAL ASSESSMENT

EXECUTIVE SUMMfARY

Instroduxcdon

1. The Mexico Second Solid Waste Manapment Project will support th investment needsof pariipating cities through the implemtation of comprehensive and integrated solid wastemanagement plans. In addition, it wiU include institutional strengthening components for fedea,state and local agencies in the sector, and a socal component (resettment and woksklconversion) for scavengers and infornal solid waste worker. The government has identledsolid waste collection, treatment, and disposal as top priority for environmental protection inmedium cities in the context of its 100-cities program. World Bank investnent in the sector inMexico was initiated in 1986 with the Solid Waste Management Pilot Project which included 12cities. When completed, the Second Solid Waste Management Project will have providedtechnical assistance and financing to more than 30 additional medium size cities in Mexico.Integrated Solid Waste Management Plans for seven cities have already been prepared: ElCarmen, Torreon, Monclova, Matamoros, Queretaro, Reynosa, and Tijuana. Plans for additional8 cities (San Luis-Rio Colorado, Juarez, Ensenada, Tapachula, Cdaya, Coaeacoalcos, LoAMoches, and Piedras Negras) are near completion and plans in another 25 cities have beeninitiated.

2. This executive summary is based on the findings of the following technical,environmental, and social studies undertaken by the Government as part of project preparation:Environmental Assessment of the Solid Waste Sector in Mexico, Social Program of the SecondSolid Waste Sector Project, Alternative Options for Scavengers in Mexico, and project specificenvironmental assessments as part of the integrated solid waste management plans for sevencities. Three of these cities are included in the proDosed Mexico Northern Border FnvironmentProiect and therefore this summary also fulfils Bank requirements for the solid waste componentof that Proiect. These reports are available in documentation center of the Secretariat of SocialDevelopment (SEDESOL) in Mexico City. Formal Bank review of the final reports was carriedout before appraisal by the Bank. These reports conform fully to Bank policy guidelinesregarding environmental and social issues. All above reports have been cleared by theGovemment and have been made available in the Public Information Center of the World Bankin Washington.

Legal and Administrative Framework

3. Article 115 of the Mexican Constitution (amended in 1983) gives municipalities theresponsibility to create, transform, and deliver services for municipal solid waste collection anddisposal. Regulation of toxic and hazardous wastes remains a federal responsibility. Theprincipal environmental law in Mexico is the 1988 "Ley Generl de Equilibrio Ecol6gico yProtecci6n al Ambiente" (General Law for Ecological Equilibrium and Environmental

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Protection). Although over 100 stndards and ecological criteia have been promulgated byDecmber 1993, comprhensive standards for the solid waste sector do not exist, as the curtstandards are lmited to toxic and hazardous wastes and incineation effluent air quality. At thefederal leve, ther ar three principal environmental regulatons of the law: enviromaassessment, hazardous wastes and air pollution control. Environmental assessment requi tar applied to hardous and toxic wastes but not to municipal wasts. AU states ceptCampebe, have developed Ecological Equlibrm and Environmental Protection laws basedon th federal environmental protection law; none of these laws, with the exception of the tateof Mexico's, have made secial povisions for solid wastes and environmental ass- -. tbqeond those of the federal law.

4. Other kgilaon which may be considered as relvant to the solid waste sect, :cd.ethe Fedral Health Law, which regulates on-premise handling of toxic wastes ger aced byhospitals and cinics; fte National Water Law, and its regation for the Pevention a . Cootof Water Polluto; and the Federl Public Wors Law which reqires an assessment of natrArmsources which may be impacted by a public investmt. References to the municipal s**waste sector are scarce in the above regulations; for instance, leachates are not included daein the water polution control regulaions or in feder water quality monitoring plans. TheHealth Secretariat does not give high priority to air pollution, leachates and odors from solidwastes. Technical specificaions for municipal solid wastes are also lacking; most thnicalnorms for the solid waste sector published by the Secretariat of Commerce and IndusirialDevelopment (under the Nonns and Standards Law) refer only to sampling and laborat. procedures for solid wastes analysis. Table I summarizes the existing regulatory framework forsolid wasts in Mexico.

LEVEL LAWS REGULATIONS

FEDERAL * General law for Ecologitzi Equilibrium and * Environmental AsesmetEnvironmnunl Protectior * Hurdour Wass

1* Pvention and Coatrol of Air Pollution

* Nationul Watr Law Pmeen'tioo and Control of Water Pollution

* Fedenl Hcalth Law * !sndluk of Solid/Toxic Wastes within

* Federl Public Works Law* i.w-4=mem of Naunal Resource tmpacs

* Noms and Standards LawStid d SLWnlpnhAnalysis P4oc-.du.a

STAT E Sa* Laws for EcologiciL Equilibrium and * Environmeanzm Asaessrane iEvironmceaul Protection (orwl in Mexico stage)(All states exc:pt Campeche)

MUNICIPAL * Policc and local goevrnmcnt rcgulaitons* Collection* Municipal Land UseuUrban Expansion Plans

Table I Regulatory Framework for Solid Waste and Environment in Mexico

5. At the federal level, SEDESOL has the responsibility for sector planning and poli::yformulation. Development of federal regulaton and its enforcement rests with SEDESOL'sautonomous agencies: the National Ecological Institute (INE) and the Offce of the Attorney

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Genal for Environmental Protection (PFPA), respedvely. However, th areas of pi yarcs now limited to the management of hazardous and tmic wastes. Water quality monhitg,mainly for human consumption and agricultural uses, is managed by the National WaterCommiisson (CNA). Envionmental control of municipal solid waste services is r bof the stares and municipalities. Howeva, implementation of envintl SStprocedures is uneven among states and almost non-eistent at the municipal levd. Table 2summesacisting institutional framework for solid waste management and envirominMedco.

FUcnCONS

I TONS SOLDWASE EVIRONWTALASSESSMEN

F SEDESOLE * DIE Reguisoamdousvmm) RaguIa} _ wdUSD INMa)E * MA Monitringleafaceieat MonitoringfelorcatR SARH (Apicmhm andA War resowc Secretriat)L * CNA Wauer Quality Rrgulaions.

?Aoring (PoabilcAgriculwrt;not solid wac lchaze)

S So" GovanmentT Ecolo Sccrctriu Regulnions. moitoring. Rcgulaions. monitmring.A enforcement. imptlaenttion. enaorcment,impltlcUtatio".TE

L Municipality0 * Publc We*sl Regulion. mukorng.C Dirctat enforemcat. impllmcntatiou. NONEA * Solid WacL D.em

Table 2 Instiional Frameworrk for Solid Waste and Environment

Existing Municipal Solid Waste Situaion

6. Collection, transfer and final disposal of solid waste are inadequate in most cities inMexico. Of the estimated 60.000 ton/day produced in the nation, only about 60% gets collectedand 2% (1200 ton/day) is disposed in functional landfills (see Figure 1). Collection is impededby poor management, equipment and interference by truck scavenging. Uncollected waste isburned in open areas, left in the streets or discarded in open land and waterways. Traditionallyfinal disposal of collected municipal wastes has been through open dumps located in barrenareas, ravines or waterways both within and outside cities. Of the 97 existing controlled finaldisposal sites, only 11 can be considered as technically functional landfills. National epezienceswith incineration and composting have been rare and have produced discouraging results.Clinical wastes are also improperly collected, treated or disposed. Data collected in 1993 in thecontext of project preparation in selected Mexican cities are summarized in Table 3. Per-CaPitasolid waste generation (estimated today in 0.7 kgtperson/day) is rapidly increasing. Accordingly,the solid waste sector will exert an even greater environmental pressure in the future.

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Uncollected40sb 24,W0 Tonday

P6odu00on _p____ _Dump_,

eMow 25.200 TardayTan/day

Collected

To-/d Lanry

jOX I Controlled , .20 TaNday

.~~~~~~~~~~~~~~~opu --Iqr Ton/iday

EE Landfills Witof tot duetan [ Opeatng Probims

i X of pii.c#on * - ~ - -~ Pt 9,600 Ton/day

El1

Figure 1: Solid Waste Situation In Mexico

3om seSdmol a"~ We" oti ai sla.

wm Wa________ Trns. Tornao MoacIov Haamni R.oo. .J mCEl .

;,opulion 1 .023.000 600.000 190.000 3US.000 400.000 600,000 190.00

Solid Wa. 1.400 500 ISO 345 360 374 132. roducio a To/day

aNlleeion

Coclcctioucve?agc 95% 9SS 70% foo6

Frqu.Jy Uly: d aily: day: dilj-: dJily dafy: daily:downZowm Noah awf downtown N OeWOWO dovntown downta.

ll)week 31week.- I/wee I3 days: m/3 day: IJ3 daymtesideial Souh rezidemi atdsidem rcsuiidenaj

Transfer S'rion Yen No N No Yes I No

Fmnal DisposalT ype I cosrolled I landfill Open dump Opts, dump Open dump Open dump Open dump

landfil Mmcnullcd

Ana.r b 45 is 20 30 4 2 2

Table 3 Solid Waste Managemeut in Selected Cities

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7.- An estmated 2S,0000 prbage scavengers or Opepenadores" and their families wodk*din some caLs, reside, in opew dumps thoughout Mexc, with 15,000 esimated in Me qalone A large p=eente of an are women and children. Working condtions aeop.The number of yp nadomsm vary from city to city. Scavenger situadon in selected cdds Ispresend in Table 4. Scavenging for recyclable maerials, perhaps the only effective nc)!ftefort in all of Mexico, adversely impacts landfll operations and sold waste collctdon doIits inherent benecial natme.

. ~ -- -:;u

Son Luin_ua Noue MacIl Rlo Coordo R_yam Wa,amom Theam

Usca.ge -- l0 ISO so 30 370

S Woae 50% 30% 30% 25% 60% 49% 45

IChde 10% 20% MS- 10% 10% 10%

Main Mvdh prodaos ASamlawm Minwa Alumnu Ahmhumi Whm aim n4uCadowd k0a Cawp C__e km Aloin Csui

oWr Coppr Cadbd C _dbowd AlUinviu CowppeCh.u 1o Boom

Comn ity Aacisno Ye. No No No No No No

Icr tofire living in None None Noeo None None None nos- oI I I I I I _

Table 4 Scavenger Siuation in Selected Cities

Setorl Env Unment ImMi

8. Envmironmental impacts from uncollected and inadequate dispsal of solid wastes hve xotrocuved adequate attention in Meico and accordingly, eisting data is bodi scarce and limited.However, nnmental impacts due to t existing deficits in solid waste services areunquesdonably being exerted on urban centers and natural ecosystems. The main negativeimpacts of the present situation are:

Urban Aesthetics

9. Garbage left or scattered in the streets leads to proliferation of vectors (mainly insectsand iats). Trafic congestion is exacerbated by garbage trucks. These two are all too commo:apublic nuisances in most urban centers in Mexico, contributing to urban environmental qualitdegrdation.

Surface and Groundwater Pollution

10. Surface and groundwater pollution cases from open dump seepage or leachates have beendocumented in some areas of Mexico. Surface water pollution from open dumps is vAdt ricities like Tuxpan, Tampico, Coatzacoalcos, and Villa Hermosa, where garbage left in urbandrainage channels easily finds its way to local rivers and strears. The Escondida Lake inReynosa has been used as a site for trash disposal by scavengers living in the area. TheAcapulco Bay and El Carmen beach areas are good examples of ocean water pollution caused

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by solid wastes Some studies have idendfied aquifer contmination from solid waste leachatein the area of Celaya (Guanajuato) and Santa CainaL The aquifer in Santa Catarina is thesource of potable wae for an important area in the Mexco Valley.

Air Pollution

11. Unpleasant odors and irritating dusts from uncontrolled fires and wind dispron in opmdumps are important air pollution sources in some cities. Visibility problems for land and airtraffic have bee reported in some areas such as Tomeon.

Healnt and Social Impacts

12. Litle is known about the linkages bt'wen the existing solid waste siation in Mezand health efcts Hower, the lack of aprpriate continer, the inceang contact of 1bpopulation with parbage, and the indiscriminate handling of hospWital wastes together widimunicipal wastes, pose a re health tbr!at potential for the populin as a whole. U&population graps at hig!heit risk are the 'piep;uoresK az. 4 the solid waste workers in each city.which perform their work without minimua. hygienic, sanitary, or safeqt conditions. S1knlacerations and respiratory illnesses have been ported as common diseases among these groupsby preparatory work undertken in this project. As informal workers pepenadores do not enjoyprotection from Mexican labor laws. Children form a high pcntage of the Tpepenadores'.suffering the most the efect of unhealthy conditions and lack of schooling opporunities.

Sensitive Ecosystems

13. Uncontrolled was(e disposal of solid wastes has been identified as a major distbancefactor for sensitve wend ecosystms, specially mangroves. Cities like El Carmen have sattheir mangmve areas decreased and degraded by open dumps.

AdildV f mt iveZ

14. Analysis of alternatives has been and will be an impcmiant process in the projeStContainerizing and mechanic collection systems fulfill requirements of low cost and case ofoperation. A technical analysis of treatment methods, after elimination of incineration *ndcomposting, selected disposal in sanitary landfills as the most suitable altemative for mediamto small cities in Mexico. However, municiealities can propose other altematives for flnancikgif they conform to sound technical, econoie -nd environmnetal criteria. For cities with higvipotential for groundwater pollution do to gtgh grwundwatez alles, a Ligh density landfill isproposed. This type of landfill - consisting of compacted bales of trash piled up in a-pproprforms- presents additional advantages such as smaller area reauiremnents, and less leaclh3.generation and cover material. Landfill sites with and without 'pepena" (orderly recycling by"pepenadores" through conveyor belts) will be routinely analyze I in each city.

Mitigaton of Existing Imp:- through Project Implementation

15. The project has been designed to upgrade the deteriorated environmental conditio"scaused by non-existent or deficient collection and disposal systems for municipal wastes -specially in relation to water pollution, public nuisances, urban and rural aesthetics, and health -and to set up efficient sectoTal environmental management for the future. The project will

7

mprve solid waste sermices for an emated 15 million people i the cties which paticipateia th propwm. Impoved managemeat of hospital wastes will zeduce public health conseqmsfrom unconbolled disposal of nectious and pathological wase. The efiect of the project on theaisting envirnmental is summarzed in Table .

INIGRAD SOLUllONACTIVrrY PUEST SrTUAIION IVEOFOL

STORAGE _A==a dmbuui_ Ckmdm0_cowd dg*SU&

COLLECTION uVdmmed hM.h-m.ybg md dshag of

LA1 or& auem D__ TRANQORTATON _gqhr Lmdlq dr csim

Unloadin Lb= commAi

Pep in situ Site MW_ujPINAL DISPOSAL UKoUzbn dm _ UmoadinAm -

U=ommud C hI71*m Udsmouy of

_______ Sa~~~~~~~~mimiy baed IafTad hidig dwuhg

REUrORATION Nqkcwed LANduap.MfiUKi0M

________ ~~~~~Subnq~muw

Table S Mitigujom o'euazting envirouncuten1 pactshrough prcject iplementafion

16. The main technical fcature that will be par of the design, construction, and operationof proposed solid waste management systems include:

(a) Introuction of new co;anriztinsystems for storage of garbage, andequipment maintenance and routine cleaning activities for containers.

(b) Solid waste collection in appropriate vehicles with compacting chambers, rearloading, and container lifts.

(c) Setting up of low cost routing with suitable schedules for garbage collection;maneac and clean-up schedules for collection equipment; and traflic and

frequency control for final trips to landfills.

(d) Implementation of state-of-the-art sanitary landfill design, construction, andoperation: enclosure of premises; runoff and drainage systems; availability ofwater for dust control; unloading control areas; clay or impermeable lining of

- ~~~~~landfiLl base; gas control systems; leachate control and recycling (if necessary);waste compacting (up to 0.7 ton/in3 for middle density landfills, and up to 1.2

8

tolm' for high desiwty landfills); isolation of the ae with appropriate vegetatin*baTrer geomorphological rstrion of landfill ara according to projected ue.Deign periods for landfills will be 10 years, but total area will be required tohandle up to 20 yean of solid waste generation.

(e) Reordering pepenadores' activities in landfill by establishing suitable areas forreycling through conveyor belts.

(f) Sealing off ceisting open dumps and clean-up of surrour.ling as;complementary measuies for future use of these areas wull be identfied.

tg) Independent colecdon of hospitl wastes using airtight containers an. disposal ihspecially designed cells in landfills.

Project Location and Operation

17. Envirnmcantl impacts due to project siting, construction, and operation will be kept toa minimum through adequate environmental sreening mechanisms during city-specific solitwaste manag.lent feasibility studies. For example, for the initially appraised cities. disturbanc.of naturAl ecesystems was found to be negligible or minimal; theme will be no need to reloa clocal population from proposed landfill sites. In al sub-projects, strict enironmeital pollutio:control measures as indicated in para. 16 will be implemented and wells will be installed f.:rgroundwater Wuality monitoring

social Imnpacts

18. Perhaps the most sensitive impact of the project is associated to the closure cf the xistiLgopen dumps and the implementation of efficient collection systems. The modernization of solidwaste collection and dispos31 systems will restrict, if not eliminate, many of the opporunitiesfor scavenging. In addition, the closure of existing dumps may dispLe families who camiotafford the most economical types of formal sector housing. Although the number of fmiim sactually living on the premises of existing dumps is very low, the closure of these dumps,together with the location of the new landfills farther away from the cities, may altagcth*rimpact the means of livelihood of these groups. The magnitude and importance of these impw+swill vary from citY to city according to the existing scavenger situation and the distance fsnmthe city of the proposed landti site.

19. With the objectives c mnaintaining the positive aspects of scavenging as a transitionziphase to a ni ore industrialiceJ recycling and ensuring fair compensation for involunta,resettlement and possible loss of means of livelihood, the project has introduced the followiripmitigative and compensatory measures:

(a) A Policy Statement from the Government of Mexico to address the scavengerissues.

(b) Each participating city will be required to present a Social Plan for addressing itsparticular scavenger problem as a condition of credit eligibility. A draft manual

9

fior the prepartion of these plans as well as prelimiary phlns for two cdtes 'ben prpared. The fnal version of the manual will be agreod at negotadons ift

*~~~~ ~ ~ rE . 9.

'(c) ^4A ciix oot which wiR finance: ) infrastructr for amore I_rAcyng; (i) resetement from open dumps or inadequat mainined UMwhich wil be closed or rehabilitated; and (M) a training and wwllCOnVCt5O program t ope up odh anploymet opportunities, includi, ff

worldng within the implemented collecdon and teament systems.

S~ ~. . .. ... .,*,,., --. -. 1',^,:

20. Monitoring of envcondims will be a requiemet of projeat impl_emeatWels for grundwater quality monitori wMll be s ard component of all landfills. Jaiatadannual cificatons fom the PFPA will be required for all municipaies in order ao urecompliance with sound technical specificatiou-sind wordng cndidons of impeleachate and gas control, and drainag wsstems, and any oe erironmental pollutioomeasures. Final designs of all solid waste collecton and dipoa systms wi be required todeliver an Envirnmental Supervision Plan which will include the supevi on of poJecteecution and constuction works (assring the impleentation of all mitigative measu) andmonitoring plans for groundwater pollution, and leachates and gas generation.

I;0ttinl Neefi

21. Although rcent ent gi ation has estabshed organizational stuctu at tesu:t and municipal levels for 2ssessment and monitoring of environmental impacts of ubanC, infrastruct ivesmnts, s isufflient and inaquly red pernd, compounded eltif any expi in this ara, have hampered thir effcive fnctioning. Aloot almunicipalities operate solid waste systems through municipl divisions. The project wil aeanean eve greater demand for technically qified staff in the sector. Taining in soi wasmanagement, opeation of landfills, monitoring procedures, and enrnmental assessment willbe a carried out trough a national ftaining program to be financed by the projectEnvironmental assessment of all proposed sub-projects will be a principal eligibility criteria formunicipalities.

22. Establishing independent cost centers for municipal solid waste services and imprvigmunicipal management and regulations wiU be supported under the proposed project. Staundardsand regulations for solid waste collection, and construction and operation of landfills bhar beenand will be incoxporated in the Integrated Solid Waste Management Plans of all ciies whichinclude: regulatons on the nature and type of acceptable urban solid waste to be hand by thesystems and waste identification methods; establishment of collection schedules for the urbanarea and ttaffic regulations for waste transportation; continer cleaning frequencies; compactingrequirements for solid wastes and covenng materials, and hickness of cover layers; leachate andgas control systems s tions; required sanitary conditions at landfill sitcs; futue use ofrestoted landfills; and environmental monitoring plans.

23. The Sectoral Environmental Assessment identifies major institutional and regultoydeficiencies for the sector and proposes an Action Plan to improve environmental managementin the sector. The plan includes: p,eparation of federal standards for municipal solid wast

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including , among other aspects, the location, design, construction, and operation of landijis,and water quality, lachate and gas monitoring in landfill aras; a proposal for the resulctunngof solid waste management at the state and municipal levels; an evinmental assessentprocedure for muncipal solid waste projects to be implemented at the stte level, and generaluaon by. sdel and se government to help municipalies improve their solid wae

gt cabilities. A detailed plan of aciion for;the implementation of these proposalswould be aged upon during project appraisal.

24. In addition to supporting the improvement of organized recycling activities by scavges,the project will iitiate the development of national recycling policies thrugh two studies whichwill eaMine prices, mt:lcets, and incentives for recyclable products, and downstm., em mer. impact of recycling and the need for improvemert in the technology used by therecycling induty. Discussion of the findings of these studies and an action plan would bediscussed duing the project's mid-tem review.

Public afli3on25. Public participation mechanisms will be identified for all social plans and for theintegrated solid wast managemcnt plans. The Sectoral Environmental Assessment and thrIntegated Solid Waste Management Plans for seven initial cities have been made available tuthe public in SEDESOL's documentation center. The Social Plans for two cities and the drafPmanual for te e design of social plans will also be made public. Public information campaign:.will be cznied out during project design in each participating city.

Bibfili-

1. SEDESOL, Evaluaci6 Ambiental del Secto dr Desechos S61idos en Mexico, ABC Estudiosy Proyecios S.A. de C.V., December, 1993.

2. SEDESOL, Plan Maestro de Desechos Solidos, URBEPLAN, January, 1994.

.ueretaroMt,nclovaToneon

. El CarmenJuarez

. Matamoros

. Tijuana

3. SEDESOL, Programa Social del Segundo Proyecto de, Desechos S61idms, Maria Elena Castro,January, 1994.

4. SEDESOL, Manual y Guia de Reasentamiento y Programas Sociales, Maria Elena Castro,January, 1994.

5. SEDESOL, Evaluaci6n Preliminar de la Problemgtica de los Pepenadores en Siete CiudadesFronterizas, ABC Estudios y Proyectos S.A. de C.V., November, 1993

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