Guam
Nothing Ado About Much
Years of Inaction Grow Guam’s Garbage Woes
Solid waste disposal problems are particularly acute in the Pacific Islands. Land area is limited, shipping garbage is seldom practical and the Islands’ pristine environments are fragile.
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With its westernized economy, Guam generates 300 to 500 tons of refuse per day. But Guam’s failure to deal with its solid waste problem has resulted in a 50-acre landfill in the middle of the island that was declared full to capacity 12 years ago—and is still used because no alternative has been developed. The dump catches fire and burns spectacularly once or twice a year, requiring the evacuation of nearby residents. And the leachate from the trash pile runs into the Longfit River below the dump and eventually into the ocean at Pago Bay.
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The runoff was the basis of a “friendly” lawsuit by the U.S. Environmental Protection Agency against the government of Guam under the federal Clean Water Act. Currently the dump is operated under a consent decree from the court as local and federal officials determine the best course of action. “We’re looking at three-year pursuit of two major components: closure of the Ordot dump and plans to establish a compliant, state-of-the-art municipal solid waste management facility,” says Fred Castro, Guam Environmental Protection Agency administrator.
Before Ordot can be closed, a new site must be identified and developed. The more densely populated northern half of the island sits over the aquifer that provides most of the island’s drinking water, making it unsuitable for a landfill. The far south is not considered accessible enough because of road quality and hauling time.
Three central sites have been identified. Consideration of Guateli, near the island’s western shore has diminished since the discovery of a seismic fault line running through the area. Malea, also on the western side of the island behind Piti village, proved an unpopular choice with villagers. In a recent public hearing “the Piti residents came out in massive protest,” says Castro. The most likely site is adjacent to the current landfill.
The major obstacle to solving the waste problem during the administration of former Governor Carl Gutierrez was the existence of a controversial contract to build a waste-to-energy plant (in which trash is burned to fuel a 5 megawatt generator). The contract was originally issued to International Energy Enterprises Inc. in 1982. Under the agreement, the Guam Economic Development Authority would help IEEI secure funding. When IEEI defaulted, it sold the license to Guam Resource Recovery Partners in 1988.
The contract in its current form gives GRRP the right of first refusal to “design, construct and operate a new landfill.”
Charging conflict of interest, a suit was brought against the contract. In December 2001 Superior Court Judge Steven Unpingco ruled that the contract predated, and was exempt from, Guam’s 1983 procurement law. He also ruled that P.L. 24-57 illegally interfered with the governor’s duties under federal law. The case is now in the Guam Supreme Court and a ruling is imminent.
Funding for a new landfill—estimates range from $20 million to $50 million—is to come from user fees. Implemented in 1999, billing and collection of a $8 monthly residential fee has been erratic. About 30 percent of the fees are being collected, says Joe Morcilla, the new director of the Department of Public Works. Morcilla hopes to boost revenue by contracting a private collection agency. Commercial trash haulers pay $45 per ton. The fees are expected to generate $5 million to $7 million annually.
Recycling is considered vital to extend the life of both old and new landfill. But shipping costs and inconsistent markets have kept recycling in Guam to a minimum. Guahan Waste Control collects and ships cardboard from commercial customers motivated by a processing fee that is less than the user fees at Ordot. Government policies to recycle paper have been largely ignored. Aluminum can collection varies with market prices. Since Ordot has stopped accepting large appliances and hazardous waste, private recyclers charge users additional processing fees. However, the disposal fees have led to an increase in illegal dumping in jungle areas. In addition, residents made liberal use of typhoon debris collection sites following Chataan and Pongsona. “The government has to come up with some sort of incentive or subsidy (for recycling),” says Castro. “The subsidies can be justified in terms of cost avoidance.”
With all the compounding problems, any solution to Guam’s solid waste problem is years away.
