+ BACKGROUND, CHALLENGES AND OBJECTIVES

Background
In the early 1960s, Seoul had no designated areas for dumping waste. Since construction materials were expensive at that time, the Seoul Metropolitan City disposed of household garbage by selling it to private developers who used it for building embankments. The amount of garbage sold by the city accounted for 57% of the total waste generated in 1971 and 40% in 1974. Meanwhile, booming domestic manufacturing industry and consumption culture, emerging as a result of Korea’s rapidly growing economy, propelled a mass generation of waste on a massive scale. This is well shown in the fact that in 1977, the daily waste generation mounted to 7,000~14,000t; waste management was becoming a critical urban issue to address.

Seoul undertook a landfill construction project to accommodate the exponentially increasing waste. From 1964 to 1977, landfills constructed in outskirts of the city including Gunja, Sangwolgok, Eungam, Yeomchang, Bangbae, Apgujeong, Jangan, Gueui, Cheongdam, Songjeong and Nanjido.

During the period, new housing developments were planned for some of the areas near these landfills. As it was no longer possible to dump waste in these regions, acquisition of large-scale landfill sites in the vicinity of Seoul became a pressing urban issue. Against this backdrop, Nanjido was chosen as the site for a new landfill for its convenient location. It was subsequently designated as the “Waste Management Facility” by the Seoul Metropolitan Government (SMG) in August 1977.

Records show that the Nanjido Landfill was officially put into operation in March 1977. In general, the planning for a landfill should be carried out through a certain process: identification of suitable areas, detailed site investigation, capacity and cost evaluation, comparison of candidates, and final site selection. Due to the urgency of the project, however, the construction of Nanjido Landfill had to be completed without the due process procedures. As Seoul’s major landfill site, Nanjido Landfill took care of 78% of the total waste produced in Seoul from 1978 to 1992.

Waste management practice in Seoul during the 1980s until the 1990s was heavily reliant on landfills, dealing with the average daily waste generation of 30,000t. Because of its limited space, Nanjido Landfill was originally planned to have capacity of 45m and to operate for a period of 6 years. The plan to convert the site to agricultural use once the landfill is closed and capped after six years of operation, however, had to be modified with the delay in the construction of Sudokwon Landfill. Operation of Nanjido Landfill thus continued until the late 1992 after 15 years since its opening, taking care of 78% of Seoul’s household waste.

Since garbage was piling up in Nanjido Landfill to an overwhelming extent, a 89m-high soil wall made of recycling construction materials and briquette ashes, was constructed along the landfill, to add extra capacity in 1985. When the Nanjido Landfill finally had a well-overdue closure with 92 million m2 of trash, there was a massive pile of garbage, 92 to 94m in height, in the first site and another with a height of 97 to 99m in the second site. As the exhaustion of Nanjido Landfill raised public concerns about its impact on the environment and health, securing a new landfill site became an urgent urban issue.

Challenges

1) Local Resistance
When Sudokwon Landfill Site was under construction, local resistance was not as strong because the region had much less population back then. Soon, however, the area within 5km from the site would see an outburst in population, which exacerbated conflicts between residents and authorities. As of 2013, there were 200,000 residents in town where only 20,000 residents lived in 1980s. The residents became more aware of environmental impacts of the nearby manufacturing factories. As a result, concerns grew over possible degradation of their living environment from such facilities for sludge, leachate treatment and gas generation, etc.

Various measures were taken to address the controversy derived from misunderstanding and distrust. To collect public opinion, the authorities arranged Sudokwon Landfill Site Operation Cooperative (SLC) and discussed affairs related to the construction and operation of landfill and community support projects. Residents were encouraged to take part in site inspections and resident monitoring programs. Later, upon the inauguration of SLC, an operation committee was established consisting of community representatives to collect the residents’ opinions and provide them supports where they were in need. In addition, a community support fund was formed to prepare funding for improving the living environment and quality of life in the areas of influence. All of these approaches sought to minimise the landfill’s negative impact on public health and community environment.

2) Conflicts between Regions over Landfill Extension
As the government has consistently reduced the amount of trash it generates and improved waste management methods, the share of landfill had a substantial decrease. This, however, created conflicts over extending the life of Sudokown landfill between Seoul and Incheon city governments. Seoul, with the support of the Ministry of Environment, insisted on continuing the operation of Sudokwon Landfill Site until 2044. Incheon city government on the other hand, wanted it to stop taking trash by 2016 as originally planned. The government was initially favourable to Seoul and pursued the construction of the third landfill to the existing landfill site, but has changed its stance due to the public outcry.
Successful management of conflicts between different entities depends on mutual understanding built on agreements. Extension of the existing facilities would minimise local resistance when adequate strategies are in place. While the government is trying to reduce reliance on landfill, SLC has successfully provided residents with a greener waste management service.

+ ACTIONS AND IMPLEMENTATION

Pressed with an explosion in waste generation in the late 1980s and the limited capacity of the landfill in Nanjido, Seoul had to secure an additional site for waste facilities. Under this circumstance, construction of large-scale landfill was promoted on a reclaimed land of 20 million m2 located 40 minutes from Seoul. After establishing plan for securing the site in 1987, the construction began when the agreement on the construction and operation of the new landfill was signed in 1989 between the Ministry of Environment and the regional bodies. Sudokwon Landfill, the world’s largest sanitary landfill, has processed waste from Seoul and its vicinity with a population of 24 million people since 10 February 1992. As of May 2013, daily average waste of 13,400 tons from households, construction sites, and businesses went to Sudokwon Landfill. Employing sanitary landfill method, it is expected to accommodate 228 million tons of waste in total. 44.5% of the total municipal waste intake comes from the Seoul Metropolitan City; 16.5% comes from the Incheon Metropolitan Area and 39% from Gyeonggi-do. The landfill area is divided into 4 sites: the first site closed in 2000, and the second site is in use.



1) Site Selection
To accommodate rapidly growing urban population and waste produced, the government established a long-term plan for the construction of new landfills. After the SMG and Gyeonggi Provincial Government nominated twelve candidate sites in Gyeonggi-do, the results of feasibility studies revealed that none of the reviewed sites was suitable because an infinite sum of money would be required for purchasing the land and compensating for private properties and the small areas available. The available land area in Gyeonggi-do was also simply too small, and the prospect of a drastic increase in traffic drew objection. Furthermore, negative implications of separate dumping around Seoul for the environment and sanitation in the whole Seoul Metropolitan Area provoked opposition. After the Ministry of Environment took over the project and reviewed seven candidate sites, Gimpo district was chosen for its convenient location. Despite the inconvenience in leachate management and moving waste, locating a new landfill by reclaiming from the sea would save money for purchasing land and also facilitate more efficient use of land. The embankment construction for the new landfill site was completed on 18 February 1987.

2) Plan for Sudokown Landfill Construction
After Gimpo was chosen for the new landfill site, the Ministry of Environment and Dong Ah Construction signed a MOU in 1988. According to the agreements made among Seoul, Incheon and Gyeonggi-do in a meeting to discuss the new landfill construction, the central government is liable to finance the construction of the landfill and the road infrastructure was to be financed by the involved regional governments. Following the agreement, the “Plan for Sudokown Landfill Construction” was established in April 1987.

Several organisational changes have been made to eliminate overlap and confusion among different parties engaging in the planning, construction and management process of Sudokown Landfill.

(1) Coordination Committee for Sudokown Shore Landfill (1984)
Following the agreements regarding the construction, operation and management of the new landfill in Gimpo among the Ministry of Environment and the involved municipal governments (Seoul, Incheon, Gyeonggi-do), the Coordination Committee for Sudokown Shore Landfill was inaugurated. Its main duty was to enhance coordination among different municipal bodies. The committee decided issues such as how much each regional government should pay for the construction of the landfill and supporting infrastructure, organising a consolidated body for the management of the new landfill and other major issues related to the landfill management.

(2) Sudokown Landfill O&M Union (1991)
To improve the management of the completed landfill sites, restructuring of organisations was suggested. With Environmental Management Corporation taking over the affairs related to the already completed landfills, Sudokown Landfill O&M Union was launched for a joint management and operation of Sudokown Landfill Site on 11 November 1991.

(3) Sudokwon Landfill Site Management Corporation (SLC)
Under the “Law on the Establishment and Operation of Sudokwon Landfill Site Management Corporation” legislated in July 2000, SLC launched as a national body affiliated with the Ministry of Environment. Before the establishment of a consolidated body to streamline the fragmented management of the landfill site, conflicts and confusion arose between different regional bodies over the roles and responsibilities. Having integrated its predecessors, SLC is composed of three head offices, seven agencies, and two offices and run by 168 staff members.

Upon its inauguration in July 22, 2000, SLC arranged an operation committee consisting of local residents, environment experts and public officials. It also established Sudokwon Resident Council, the official community support entity. Major issues on the management of SLC are under the operation committee supervision before being passed onto the board of directors of SLC. Community support affairs are to be discussed through consultation with the Sudokwon Resident Council. As for the issues related to the landfill construction, decisions are to be made by the Ministry of Environment, SMG, Incheon Metropolitan Government and SLC.

+ OUTCOMES AND IMPACTS

1) Construction of World’s Largest Sanitary Landfill
Sudokwon Landfill Site is the world largest landfill site built on 20 million m2 of land. With its environmentally friendly management with advanced waste management technology, the negative effects derived from landfilling has been greatly reduced; it has created a more pleasant living environment for local residents. As a consequence of the persistent efforts to sophisticate leachate and waste treatment techniques, accomplishments of Sudokwon Landfill Site have been recognised worldwide.

2) Profit Generation through Resource Recovery
With the ongoing investments for developing high-tech land filling technologies, much effort is being made to make waste management more environmentally-friendly through waste-to-energy initiatives. Methane gas from the buried garbage is utilised as a source of energy, and is sent to the turbine to power the landfill site. Surplus methane gas is treated by the central incinerator to prevent greenhouse gas emissions. Altogether, SLC is expecting a substantial profit by reducing 1.21 million tons of CO2 per year and also from sales of carbon credits.
 
3) Dream Park
The closed first landfill has been now successfully rehabilitated into the biggest eco-friendly park in Korea.



This massive public amenity features wildlife preservations and arboretums and also offers a hands-on learning ground for its visitors. Dream Park, which took four years to build, was promoted as part of SLC's environmental project designed to restore nature in the site. The park has already established itself as a popular tourist attraction. 

+ REPLICABILITY AND SCALABILITY

1) Landfill Rehabilitation into a Park
Alongside a well-maintained sanitary landfill, expired landfill has been reclaimed for an environmental theme park, 36 hole-golf course, soccer fields and tennis courts. Environmental energy town will be powered by renewable energy and waste-to-energy technologies. Adjacent to other local development such as Incheon International Airport and Gyeongin Ara Waterway, the park is contributing to the local economy by attracting tourists.
 

2) Sustainable Energy Project under CDM
Sudokwon Landfill Gas Electricity Generation Project (50 MW) is registered as a Clean Development Mechanism (CDM) project defined in the Kyoto Protocol. It aims at achieving a LFG collection rate of 75% and power generation of 50W at Sudokwon landfill area. It is expected to earn saleable certified emission reduction (CER) credits, which may be traded in emissions trading schemes. CDM projects are expected to assist developing countries in achieving sustainable development. It has to be noted that successful implementation of CDM projects requires an approved baseline and adequate monitoring methodology, not to mention advanced technologies and expertise.

3) Tackling Organisational Fragmentation
Sudokwon Landfill Site was initially operated and managed by SLC made up of staff members from the three regional governments. However, the fragmented organisational structure led to poor accountability, disrupted project flows, and low administration efficiency. In July 2000 under the Ministry of Environment, SLC was established as a federal venture to streamline the management. Its inauguration has made an impact on the efficiency of the management and operation of the landfills, making SLC's case a good role model in the waste management sector.

+ BUDGET AMOUNT

1) Securing Land and Funding for Landfill
The site in Gimpo was originally a wetland reclaimed by Dong-ah Construction Ind. for agricultural use. The Ministry of Environment acquired the site at 52.3 billion won including 45 billion won for land purchase, 67 billion won for the loan interest payments and 0.6 billion for the bank commission.
Cost share arrangements between the involved regional governments for the construction were made by Coordination Committee for Sudokown Shore Landfill at a ratio of 100:16:16 (Seoul:Incheon: Gyeonggi-do). Each region’s share for reclaiming the site was apportioned on the basis of population of 1998. In detail, expenses made by Seoul Metropolitan Government included 27.3 billion won for acquiring the land, 25.6 billion for the first landfill construction, 24 billion for the installation of other facilities, and 25.2 billion for the second landfill.
 
2) Revenue
Majority of SLC’s revenues comes from the charge levied upon the waste received. Since 2007, revenues from charge collection have been on the decline due to the changes in government’s policies including strengthened regulations on inflammable waste intake, technological improvements in local incineration plant. However, with increased funding from regional governments for eco-tourism and community facilities and the third landfill site and increased CNG sales, the SLC’s short-term and mid-term growth prospects are positive.

3) Expenditures
The expenses portion of the budget accounts for costs associated with facility investments, construction and post-closure management, the community fund and operation of SLC and biogas stations, etc. Transfers of the excess of revenue over expenditures are saved for post-closure management. Together with increasing sales of Sudokwon Landfill Site, expenses are also expected to increase until 2017 as the city is preparing for the third landfill and environmental energy town project.