SWM Current scenario & Legal Frame workxa.yimg.com/kq/groups/22892591/1096240028/name/reading... · Web viewCurrent Scenario Legal Framework Economics of Waste Institutional Framework

TRAINING MODULE ON MUNICIPAL SOLID WASTE

MANAGEMENT

Sponsored by

Working towards better urban living

Prepared by

Supported by

City Managers’ Association, Karnataka (CMAK),City Managers’ Association, Karnataka (CMAK),2121stst Floor, Public Utility Building, Floor, Public Utility Building,MG Road, Bangalore -01MG Road, Bangalore -01Ph: 080 25590333 Fax:080-25590332 Ph: 080 25590333 Fax:080-25590332 E mail: [email protected] mail: [email protected] Web: www.cmakarnataka.comWeb: www.cmakarnataka.com

State Institute for Urban Development (SIUD)State Institute for Urban Development (SIUD) ATI Campus, Lalitha Mahal Road, ATI Campus, Lalitha Mahal Road, Mysore-11Mysore-11Tel : 0821-2520116 Fax : 0821-2520164Tel : 0821-2520116 Fax : 0821-2520164E mail E mail [email protected]@yahoo.co.in,, www.siudmysore.gov.inwww.siudmysore.gov.in

Karnataka Urban Infrastructure Development Finance Corporation

Directorate of Municipal Administration

mailto:[email protected]

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List of Modules:

1. Current Scenario

2. Legal Framework

3. Economics of Waste

4. Institutional Framework

5. Information, Education &

Communication

6. Waste Treatment Technologies

7. Waste Disposal Options

Prepared by SIUD & CMAK 2

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1.1 Introduction to Solid Waste

Each household, human, animal generates garbage or waste day in and day out.

Items that we no longer need or do not have any further use for fall in the category of

waste. We generally tend to throw them away from our sight.


OBJECTIVE OF THE CHAPTER

At the end of the chapter the participants will understand the current scenario & Legal framework in municipal solid waste management, Status of MSW in India & Karnataka and cost aspects for sustainable MSW in Karnataka.

CHAPTER 1

Current Scenario & Legal Frame Work

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1.1 Classification of solid wasteSolid waste can be classified into different types depending on their source:

a) Household waste is generally classified as municipal waste,

b) Industrial waste as hazardous waste, and

c) Biomedical waste or hospital waste

Municipal solid waste (MSW)

Municipal solid waste consists of household waste, construction

and demolition debris, sanitation residue, and waste from

streets. This garbage is generated mainly from residential and

commercial complexes.

Hazardous waste (HW)

Industrial waste is considered hazardous as they may contain toxic substances.

Certain types of household waste are also hazardous. Hazardous wastes could be

highly toxic to humans, animals, and plants; are corrosive, highly inflammable, or

explosive; and react when exposed to certain things e.g. gases.

Hospital/ Bio - Medical Waste (BMW)

Hospital waste is generated during the diagnosis, treatment,

or immunization of human beings or animals or in research

activities in these fields or in the production or testing of

biological. It may include wastes like sharps, soiled waste,

disposables, anatomical waste, discarded medicines,

chemical wastes, etc. These are in the form of disposable syringes, swabs, bandages,

body fluids, etc. This waste is highly infectious and can be a serious threat to human

health if not managed in a scientific and discriminate manner.

1.2 How does MSW affect us? Improper disposal of MSW has serious results for the environment and human health. Problems can spread over a wide area. For example disposal of wastes into nallahs, canals and rivers can pollute the water supply along the whole length of the watercourse. Infections and diseases can spread from dump sites into the general population.


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Health Hazards Skin and eye infections are common Dust in the air at dumpsites can cause breathing problems in children and adults Flies breed on uncovered piles of rotting garbage and spread diseases like

diarrhea, dysentery, typhoid, hepatitis, and cholera. Mosquitoes transmit many types of diseases like malaria and yellow fever

Dogs, pigs, cats and rats living around refuse carry a variety of diseases including plague and flea born fever

Intestinal, parasitic and skin diseases are found in workers engaged in collecting refuse.

In particular, organic domestic waste poses a serious threat, since they ferment, creating conditions favorable to the survival and growth of microbial pathogens. Direct handling of solid waste can result in various types of infectious and chronic diseases with the waste workers and the rag pickers being the most vulnerable.

Ground water pollution The most serious problem is groundwater contamination. As water filters through any material, chemicals in the material may dissolve in the water, a process called leaching. The resulting mixture is called leachate. As water percolates through MSW, it makes a leachate that consists of decomposing organic matter combined with iron, mercury, lead, zinc, and other metals from rusting cans, discarded batteries and appliances. It may also contain paints, pesticides, cleaning fluids, newspaper inks, and other chemicals. Contaminated water can have a serious impact on all living creatures, including humans, in an ecosystem.

Air pollution When waste is burnt heavy metals like lead, toxic gases and smoke spreads over residential areas. The wind also carries waste, dust and gases caused by


17.3 1819.8

25.527.7

32.2

41.4

23.1

28.7

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5

10

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25

30

35

40

45

1950 1960 1970 1980 1990 2000 2005 2015(estimation)

2030(estimation)

Year

Perc

enta

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UrbanpopulationIn India

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decomposition. Putrefaction of waste in sunlight during daytime results in bad smells and reduced visibility.

1.3 Current Scenario of Municipal Solid Waste Management The problem of MSW, when combined with rapid urbanization and unplanned development is expected to be of such magnitude that significant reasons exist to initiate immediate action for improvement of this appalling situation. Indian municipalities have overall responsibility for solid waste management (SWM) in their cities. Their duty is to ensure environmentally sound and sustainable ways of dealing with waste generation, collection, transport, treatment, and disposal. The per capita of MSW generated daily, ranges from about 100 g in small towns to 500 g in large towns.

There has been a significant increase in municipal solid waste (MSW) generation in Karnataka in the last few decades. This is largely because of rapid population growth and economic development in the state. MSWM has become a major environmental issue.

1.3.1 Facts about Municipal Solid Waste Management in India & KarnatakaGraph 1: Urban Population trend in India.

Source: Census data (1971-2001).


The unhygienic use and disposal of plastics and its effects on human health has become a matter of concern. Coloured plastics are harmful as their pigment contains heavy metals that are highly toxic. Some of the harmful metals found in plastics are copper, lead, chromium, cobalt, selenium, and cadmium. In most industrialized countries, colour plastics have been legally banned. In India, the Government of Himachal Pradesh has banned the use of plastics and so has Ladakh & Kodagu district.

78

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0 1 0

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72.01

11.64

6.23

1.01 1.43 0.23

6.53

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75.2

1.5 0.93.1

0.2 0.1

19

0 00

10

20

30

40

50

60

70

80

90

Compostablematter

Paper &cardboard

Polyhtene Cloth, rubber,PVC etc

Glass Metal Dust, ash &sweeping

Hazardouswaste

Other (InclIndustrial)

Type of waste

Perc

enta

ge

Rajabapaiah,1988 (%)

Tide, 2000 (%)

Exnora undated(%)

1971 1981 1991 2001

25,938,236

35,531,830

44,977,000

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0

10,000,000

20,000,000

30,000,000

40,000,000

50,000,000

60,000,000

Year

Popu

latio

n

Year

Population

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Note: Highest Decadal growth was observed in 1971-1981 (26.75 %) & Lowest Decadal growth in observed in 1991-2001 (17.32 %)

Graph 2: Population Growth in Karnataka

1.3.2 Municipal Solid Waste Composition in India:The composition of Municipal solid waste is as follows


3435.333

4049

2929.923

1015.447

6800

1932 1964

1282

335

3500

0

1000

2000

3000

4000

5000

6000

7000

8000

CC (7) CMC (44) TMC (94) TP (68) BBMP

popu

latio

n in

thou

sand

Populationin thousand

wastegenerated(tonnes)

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A World Bank publication (Hanrahan, Srivastava, and Ramakrishna 2006) estimated that in 2000, urban India produces approximately 100,000 metric tons of MSW daily or approximately 35 million metric tons of MSW annually.

Quantity of Municipal Solid Waste in Indian Urban Centers

Cities having Population

(million)

Number of Urban

Centers

Total Population

(million)

Average generation (per/capita/day)

Quantity (tonnes/day)

< 0.1 328 68.300 0.21 14343

0.1–0.5 255 56.914 0.21 11952

0.5–1.0 31 21.729 0.25 5432

1.0–2.0 14 17.184 0.27 4640

2.0–5.0 6 20.597 0.35 7209

> 5.0 3 26.306 0.50 13153

Source: Background material for Manual on SWM, NEERI, 1996.Note: 0.6 kg/ capita/day of MSW observed in metro cities

1.3.3 Quantity of Municipal Solid Waste generation in Karnataka


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Source: Directorate of Municipal Administration (DMA), Karnataka.

1.4 Components of Municipal Solid Waste Management:

1.5 Cost Analysis of SWM components in Karnataka scenario.


GenerationWaste generation encompasses activities in which materials are identified as no longer being of value (in their present form)

Segregation & storage at source Source segregation & storage is of primary importance because of public health concerns, handling waste and aesthetic consideration.

Collection Collection from door step is most crucial part of MSWM, their by keeping the city clean

Secondary Storage This makes sure that the wastes will be stored at intermediate point and will be easy for transportation activity

Secondary transportation

The waste collected & stored will be taken out to treatment/landfill site for further processes.

TreatmentTreating the waste collected so that this won’t cause any environmental hazards.

Scientific Disposal The remaining waste (inert material) will be disposed scientifically.

431

1214

956

810 754

1632

1123

855

0

200

400

600

800

1000

1200

1400

1600

1800

CC's CMC's TMC's TP'sULB Category

cost

(In R

s.)

Actual

As perActionplan

Average expenditure in CC

Vehicle O&M1%

Sanitary Materials & Uniform

1%

Miscellaneous2%

Diesel + Vehicle hire6% Salaries

69%

Contracts21%

Expenditure in CMC

Diesel + Vehicle hire

+Vehicle O&M - 12%

Miscellaneous25%

Salaries63%

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The expenditures spent towards municipal solid waste management are analyzed below in comparison to the approved action plan. Generally, the amount towards salaries & contracts contributes 75 to 90 % spent. This also indicates that the treatment & disposal is being neglected, which can lead to severe problems.

Note: The analysis is done based on the samples collected from Karnataka. 4 City corporations, 3 City municipal council, 3 Town municipal council & 3 Taluk panchayats

In all the cases, the estimated amount is always less than the actual spent. The amount spent in CC is 35 % more than estimated; in CMC is 6 % more than estimated, in TMCs 18% more than estimated and in TPs its 75 % more than estimation. The analysis also shows that amount spent (also in estimation) in TMCs is more than that of CMCs


Actual expenditure in TMCs

Salaries74%

Diesel + Vehicle hire+ Vehicle O & M

6%

Purchase of equipments5%

Sanitary Materials & Uniform

0% Contracts15%

Actual Expenditure in TP's

Contracts18%

Diesel + Vehicle hire+Vehicle O&M

5% Salaries68%

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1.6 Implementation of Solid Waste Management in Urban Local bodies In Karnataka

The objective is to develop and implement scientific & sustainable methods for Integrated

Solid Waste Management (ISWM) comprising of segregation, storage, collection,

transportation, treatment and disposal of waste by proper utilization of resources (men,

money and materials) in Urban Local Bodies of the state, as per the provisions of MSWM

Rules 2000 and state policy.

The ISWM is being implemented in a phased manner under the 11th and 12th finance

commission grants.

1st phase (2004) – 57 ULBs under Nirmala Nagara Programme

2nd phase (2006) – 73 ULBs (Town municipal councils)

3rd phase (2007) – Remaining 91 ULBs (Town Panchayats)

The major activities taken up under implementation of ISWM


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Procurement of land for landfill site.

Development of landfill site, i.e. formation of internal and external approach roads,

Fencing/compound wall construction, drilling of bore well, construction of watchman

shed, plantation of trees, development of waste processing and disposal facilities etc.

Procurement of tools, equipment & vehicles as per the approved Action plans which

are required for ISWM implementation.

Carrying out IEC activities through selected NGOs, to create awareness among the

general public about SWM.

Development of centralized/decentralized composting units with the help of SHGs/

RWAs/ NGOs/ ULB staff.

Progress achieved in implementation of SWM program (up to May 2009)

1.6.1 Landfill site details: Total No. of ULBs 218Exempted from establishing landfill site 1Number of ULBs disposing/intended to dispose MSW in common landfill site(Channapattana CMC in Ramanagara CMC site, Vijayapura TMC in Devanahalli TMC site, Ullala TMC in Mangalore CC site, Saligrama TP in Udupi CMC, Shahabad NAC in Shahabad CMC site, Bhimarayanagudi NAC in Shahapura TMC, Maddur TMC in Mandya CMC site)

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Possession of the land already taken / Authorized for taking possession 183Number of land acquisition/purchase in progress 27

1.6.2 Inertization and Land fill site development (as on May 2009) Under KUDCEM project Mangalore, Karwar, Udupi and Puttur have developed

sanitary landfill facilities

Under fast track cities project, Shimoga and Belgaum are in the final stage of

developing integrated waste treatment and sanitary land filling facilities on BOT basis

Out of 182 ULBs having landfill sites, 132 ULBs have prepared action plan and

completed preliminary infrastructure works in the landfill site.

18 selected ULBs have invited Expression of Interest (EOI) to develop integrated

MSW treatment and land filling facilities on BOT basis


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1.6.3 Procurement of tools & equipment (as on May 2009) Infrastructure in the form tools, equipments & vehicles provided to ULBs as per the

SWM action plan.

All 57 ULBs (including 8 ULBs, recently merged with BBMP) in first phase, 73ULBs

in second phase and 86 ULB (out of 91) in the third phase have finalized the action

plan for SWM.

108 ULBs have invited the tender for the procurement.

79 ULBs have started Door to Door collection.

More than 1000 SHGs have been identified and more than 400 SHGs have been

involved in door to door collection

63 ULBs have started the secondary collection and transportation

1.6.4 Information, Education and Education (IEC) program: (as on May 2009)To create awareness among public about scientific handling and management of waste,

IEC activities were taken up in ULBs through the selected NGOs.

In the first phase, IEC was taken up in 43 NN towns

In the second phase, IEC programme was extended to 23 CMCs & 66 TMCs.

In the third phase, it was extended to remaining 81 ULBs.

1.7 Municipal Solid Waste Management Issues in KarnatakaFollowing are the sector wise issues, which are the hurdles to be crossed for successful

implementation of MSW rules. The recommendations to overcome such hurdles have also

been given for the reference.

1.7.1. Public participation & IECIssues

Lack of vision and planning for creating awareness

Lack of community involvement in planning, IEC activities & monitoring mechanism.

Lack of seriousness of issue among the local bodies, elected Rep. & community

IEC toolkit provided to ULBs is not being effectively utilized.

Recommendations

Plan & Conduct IEC activities

Involvement of stakeholders like NGOs, SHGs, educational institutes, senior citizens,

elected representatives etc.


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Circulating of awareness materials

Close monitoring of activities

1.7.2. SegregationIssues

Lack of support from public for segregation at source.

In spite of introducing a system for two types of waste collection, local bodies are not

using the set up effectively

ULBs are not convinced with the two bin system

1.7.3. Primary waste collectionIssues

Lack of people support for Storage of waste at source

Systematic approach to Door–to–Door (D2D) collection schedule across the ULBs is

lacking

Waste is not collected daily (D2D) in many of the ULBs

Waste collection in slums households is still a major concern

User fee Collection Efficiency is low (ranging between 20 to 40%), which is

questioning the Sustainability of SHGs

Enforcement of Law against defaulters is not initiated

Elected Representatives are not supporting user fee collection

Recommendations

Awareness creation

Encourage public involvement during planning

Use of local SHGs/RWAs to be increased

The User fee collection efficiency needs to be improved

Enforcement of law

1.7.4. Secondary Collection & Transportation Issues

Frequent shifting of storage containers

Manual handling of waste without safety measures.

Waste from storage points are not cleared timely.


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Littering and Maintenance of storage points to be emphasized

Lack of monitoring system by ULBs

Recommendations

Use safety gears

Effective utilization of secondary containers

Regular clearance frequency of waste from storage points

Monitoring through advanced technology and public participation

1.7.5. Treatment & Disposal: Issues

Public litigation

Landfill site not being used effectively

Lack of seriousness by the ULBs

Political interference

Decentralized system needs to be concentrated more.

Lack of monitoring

Recommendations

Awareness creation about the plan & implementation

Conduct Public hearing/ interaction frequently

Proper Development of LFS as per rules

Effective adoption of technologies

Decentralized system for organic waste

Scientific Disposal

1.7.6. Administration & PlanningIssues

Most of the towns need to revise action plan

Often SWM is planned without much of consultation with community /public, which

ends up with lack of participation from both ends.

Institutional strengthening and human resources development has to be concentrated.

Often in most of ULBs, Bio- Medical & industrial wastes are being mixed with

municipal solid waste.

Recommendations


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Revision of Action plan

Conduct Public meeting/ interaction frequently for planning, Implementation and

administration

Plan for effective financial administration

Regularly impart training

Exercise penalty clauses and give notices to defaulters


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The Rules, acts, policy related to solid waste management will be explained to have a better understanding.

CHAPTER 2

Legal framework

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2.1 Legal Frame work in India

In India, SWM is the primary responsibility and duty of the municipal authorities. State

legislation and the local acts that govern municipal authorities include special provisions

for collection, transport, and disposal of waste. They assign the responsibility for

provision of services to the chief executive of the municipal authority.

A public interest litigation was filed in the Supreme Court in 1996 (Special Civil

Application No. 888 of 1996) against the government of India, state governments, and

municipal authorities for their failure to perform their duty of managing MSW adequately.

The Apex Court forced the government and local bodies to improve the situation. The

Supreme Court then appointed an expert committee to look into all aspects of SWM and

to make recommendations to improve the situation. After consulting around 300

municipal authorities, as well as other stakeholders, the committee submitted a final report

to the Supreme Court in March 1999. The report included detailed recommendations

regarding the actions to be taken by class 1 cities, by the state governments, and by the

central government to address all the issues of MSWM effectively.

On the basis of the report, the Supreme Court directed the government of India, state

governments, and municipal authorities to take the necessary actions. The Ministry of

Environment and Forests was directed to expeditiously issue rules regarding MSW

management and handling. Such rules were already under development and had been

under consideration for quite some time. Thus, in September 2000, the ministry issued the

Municipal Solid Waste (Management and Handling) Rules 2000 under the Environment

Protection Act 1986.


Legislative BodyThe Parliament-creates legislation, policies and acts to manage MSW

Ministry of Environment and Forests (MoEF)-oversee the implementation of the federal legislation waste

Karnataka State Government (GoK)implements the federal legislation regarding waste.

Urban Development Department of GoKDecision making, providing required funds, issuing GOs, Amendments etc.

Directorate of Municipal AdministrationProviding guidelines, proposing Policies, amendments, capacity building, release of funds, monitoring progress,

Deputy CommissionerDC of the concerned district shall have the overall responsibility for the enforcement of the provisions of MSW rules

City Corporation/ Municipal councils/ PanchayatsProvides waste management services or operates disposal, recycling, or composting facilities.

Private Formal Sector- does most of the collection and transportation of the waste and may operate disposal, transfer, and recycling facilities.

Private Informal Sector-collection of the recyclable waste, transfer to the recycling facility and recycling of waste.

Central Pollution Control Board (CPCB)- Coordinates the activities of the

State Pollution Control Boards and to perform functions prescribed by the Govt.

Karnataka State Pollution Control Board (KSPCB)- sha l l monitor the shal l monitor the compliance of the standards regarding ground compliance of the standards regarding ground water, ambient air, leachate quality and the water, ambient air, leachate quality and the compost quality including incineration standards compost quality including incineration standards as specified under Schedules II, III and IV. grant as specified under Schedules II, III and IV. grant o f a u t h o r i z a t i o n f o r f o r m I , I I Io f a u t h o r i z a t i o n f o r f o r m I , I I I

2.2 Role of Stakeholders in MSWM

Legal frame work in India

National level Rules & Acts

Environmental Protection Act, 1986,

Municipal Solid Waste Rules, 2000

Bio Medical Waste Rules, 1998

Hazardous Waste Rules, 1989

Plastics Rules, 1999

Battery Rules, 2001

State level Acts & Policy (Karnataka)

Karnataka Municipalities Act, 1964

Karnataka Corporation Act, 1976

Environment Impact Assessment Notification of 2006

State policy on ISWM, 2003

Karnataka Transparency in Public Procurement, 1999

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2.3 Rules, Acts Policy related to SWM

Note: Contract Labor Act Details Are covered In Institutional Aspects

2.3.1 The Environment (Protection) Act, 1986The main objective of this Act is to provide the protection and improvement of environment

(which includes water, air, land, human being, other living creatures, plants, microorganism and

properties) and for matters connected therewith. There is a constitutional provision also for the

environment protection.

It is an Act to provide for the protection and improvement of environment and for matters

connected there with: WHEREAS the decisions were taken at the United Nations Conference on

the Human Environment held at Stockholm in June, 1972, in which India participated, to take

appropriate steps for the protection and improvement of human environment;

AND WHEREAS it is considered necessary further to implement the decisions aforesaid in so

far as they relate to the protection and improvement of environment and the prevention of

hazards to human beings, other living creatures, plants and property;


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BE it enacted by Parliament in the Thirty-seventh Year of the Republic of India

2.3.2 MSW Rules 2000MSW Rules sets out compliance criteria for collection, segregation at source, transportation,

processing and final disposal.

Dumping of MSW in oceans, rivers, open areas, compaction and bailing are not acceptable.

The biodegradable waste has to be processed by means of composting, vermi composting,

anaerobic digestion or any other appropriate biological processing for stabilization of wastes.

Mixed waste containing recoverable resources should be recycled.

Land filling should be the waste disposal method for non-biodegradable, inert waste and

other waste that are not suitable either for recycling or for biological processing.

Objective:The goal of effective MSWM services is to protect public health and natural resources

(water, land, air) by improving MSWM activities by reducing waste generation, separation

of MSW and recyclable material, and recovery of compost and energy.

The objective of the MSW management plan is to

Provide direction for carrying out the waste management activities viz., collection,

transportation and disposal as per the guidelines of MSW Rules.

Provide directions to establish integrated MSW processing and landfill facilities

including appropriate means and technology and

Enhance the ability of ULBs to effectively provide waste management services to their

citizens.

Note: the MSW rules is given in Enclosure

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Subject to the provisions of this Act, the Central Government, shall have the power to take all

such measures as it deems necessary or expedient for the purpose of protecting and

improving the quality of the environment and preventing controlling and abating

environmental pollution

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Summary of Report of the Committee Constituted by the Hon’ble Supreme Court of India (March, 1999) Storage of Waste at Source

No waste shall be thrown on the streets, footpaths, open spaces, drains or water bodies. Waste shall be stored at the source of waste generation in two bins/bags, one for food

waste / bio-degradable waste and another for recyclable waste such as papers, plastic, metal glass, rags etc.

Waste such as used batteries, containers for chemicals and pesticides, discarded medicines and other toxic or hazardous household waste, if and when produced, should be kept separately from the above two streams of waste.

Segregation of Recyclable WasteThe local bodies shall direct households, shops and establishments not to mix recyclable waste with domestic food / biodegradable waste and instead keep recyclable / non- biodegradable waste in a separate bin or bag at the source of waste generation.

Primary Collection of WasteDomestic, trade and institutional food / bio-degradable waste, shall be collected from the doorstep or from the community bin on a daily basis.

Recyclable waste material / non bio-degradable waste other then toxic and hazardous waste shall be collected from the source of waste generation at the frequency and in the manner, notified by the local body from time to time.

Domestic hazardous / toxic waste material shown in annexure ‘b’ shall be deposited by the waste producers in special bins that may be provided by the local body at various places in the city for depositing such waste.

Sweeping of Streets & Public SpacesAll public roads, streets, lanes and bye-lanes having habitation or commercial activity on one or both sides of the street shall be cleaned on a daily basis, assigning a clearly demarcated area to each sweeper and street sweepings shall be deposited in the container placed at the temporary waste storage depot established in the city.

Provision of Litter BinsAdequate numbers of litter bins shall be placed in urban areas at railway stations, bus station, market places, parks and gardens and important commercial streets to prevent the littering of streets and public places.

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Temporary waste storage depots for onward transportation of wasteAll open waste storage sites should be abolished expeditiously and all dust bins made of cement pipes, metal rings, masonry construction should also be replaced in a phased manner by a temporary waste storage facility in the form of a neat, mobile, closed, large body container, or a parked vehicle, for temporary storage of waste collected through containerized hand-carts / containerized tricycles etc., from the door steps and / or from the community bins, for onward transportation of waste in a cost effective manner.

Transportation of WasteTransportation of waste shall be done regularly to ensure that the containers / trolleys and dustbin sites are cleared before they start over-flowing. The frequency of transportation shall be arranged accordingly. The system of transportation of waste must synchronize with bulk storage of waste at the temporary waste storage depots. Multiple and manual handling of waste should be avoided.

Recommended Processing and Landfill OptionsAll organic / bio-degradable wastes collected from households, shops, markets, hotels and other establishments shall first be composted by following suitable methods of composting with or without power generation as deemed appropriate. Only rejects and domestic hazardous waste shall be carefully land filled. Bio medical waste shall be processed and managed as per the bio-medical waste (management and handling) rules, 1998.Institutional Aspects & Capacity BuildingThe local body shall take adequate measures for institutional strengthening through induction of professionals, decentralization of administration, delegation of powers, human resources development, private sector and NGO participation.

An expert committee appointed by the Supreme Court identified the following deficiencies in the SWM system in India. No storage of waste at source Partial segregation of recyclable waste No system of primary collection of waste at the doorstep Irregular street sweeping Inappropriate system of secondary storage of waste Irregular transport of waste in open vehicles No treatment of waste Inappropriate disposal of waste at open dumping grounds

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a. Responsi

bility of municipal authority.- Every municipal authority shall, within the territorial area of the municipality, be

responsible for the implementation of the provisions of these rules, and for any

infrastructure development for collection, storage, segregation, transportation, processing

and disposal of municipal solid wastes.

The municipal authority or an operator of a facility shall make an application in Form-I,

for grant of authorization for setting up waste processing and disposal facility including

landfills from the State Board or the Committee in order to comply with the implementation

program laid down in Schedule I.

The municipal authority shall comply with these rules as per the implementation schedule

laid down in Schedule I.

The municipal authority shall furnish its annual report in Form-II, - a. to the Secretary-in

charge of the Department of Urban Development of the concerned State or as the case may

be of the Union territory, in case of a metropolitan city; or b. to the District Magistrate or

the Deputy Commissioner concerned in case of all other towns and cities, with a copy to the

State Board or the Committee on or before the 30th day of June every year.

b. Responsibility of the State Government and the Union territory Administrations.

The Secretary-in charge of the Department of Urban Development of the concerned State

or the Union territory, as the case may be, shall have the overall responsibility for the

enforcement of the provisions of these rules in the metropolitan cities.

The District Magistrate or the Deputy Commissioner of the concerned district shall have

the overall responsibility for the enforcement of the provisions of these rules within the

territorial limits of their jurisdiction.


The deficiencies are primarily caused by apathy of municipal authorities, lack of community involvement, lack of technical know-how, and inadequate financial resources. They constitute the main challenges that authorities must tackle to improve the system of waste management in the country.

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c. Responsibility of the Central Pollution Control Board and the State Board or the Committees

The State Board or the Committee shall monitor the compliance of the standards regarding

ground water, ambient air, leachate quality and the compost quality including incineration

standards as specified under Schedules II, III and IV.

The State Board or the Committee, after the receipt of application from the municipal

authority or the operator of a facility in Form I, for grant of authorization for setting up waste

processing and disposal facility including landfills, shall examine the proposal taking into

consideration the views of other agencies like the State Urban Development Department, the

Town and Country Planning Department, Air Port or Air Base Authority, the Ground Water

Board or any such other agency prior to issuing the authorization.

The State Board or the Committee shall issue the authorization in Form-III to the municipal

authority or an operator of a facility within forty-five days stipulating compliance criteria and

standards as specified in Schedules II, III and IV including such other conditions, as may be

necessary.

The authorization shall be valid for a given period and after the validity is over, a fresh

authorization shall be required.

The Central Pollution Control Board shall co-ordinate with the State Boards and the Committees with particular reference to implementation and review of standards and guidelines and compilation of monitoring data.

d. Management of municipal solid wastes Any municipal solid waste generated in a city or a town, shall be managed and handled in

accordance with the compliance criteria and the procedure laid down in Schedule-II.

The waste processing and disposal facilities to be set up by the municipal authority on their

own or through an operator of a facility shall meet the specifications and standards as

specified in Schedules III and IV.

e. Annual Reports. The State Boards and the Committees shall prepare and submit to the Central Pollution

Control Board an annual report with regard to the implementation of these rules by the 15th

of September every year in Form-IV.


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The Central Pollution Control Board shall prepare the consolidated annual review report on

management of municipal solid wastes and forward it to the Central Government along with

its recommendations before 15th of December every year

f. Accident Reporting. When an accident occurs at any municipal solid wastes collection, segregation, storage,

processing, treatment and disposal facility or landfill site or during the transportation of such

wastes, the municipal authority shall forthwith report the accident in Form-V to the Secretary in-

charge of the Urban Development Department in metropolitan cities, and to District Collector or

Deputy Commissioner in all other cases.

g. Application forms

Form – IAnnexed in AI

Application for obtaining authorization for treatment and landfill operations

Form – IIAnnexed in A2

Format of annual report to be submitted by the municipal authority

Form – IIIAnnexed in A3

Format for issue of authorization

Form – IVAnnexed in A4

Format of review report to be submitted by KSPCB to Central PCB

Form – VAnnexed in A5

Accident reporting

Note: All the forms I to IV has been provided in the enclosure/ annexure

2.3.3 Bio Medical waste (Management & Handling) Rules, 1998

Salient features: These rules regulate (& applicable to all persons involved in) generation, handling,

collection, storage, transport, treatment and disposal of Bio-Medical Waste (BMW). The KSPCB is the prescribed authority for the implementation of the Rules The BMW shall not be mixed with other wastes. The ULB shall pick up & transport segregated non-biomedical waste generated in the

hospitals & nursing homes, as well as duly treated BMW for disposal at the municipal dump site

Color coding for different types of BMW is provided (Yellow, Red, Blue/white, Black)


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2.3.4 The Recycled Plastics Manufacture and Usage Rules, 1999.

a. Purpose:

To regulate the manufacture and use of recycled plastics, carry bags and containers.

b. Provisions:

Under Section 4: Imposes a ban on the use of carry bags/ container made of recycled plastic for food stuffs. Under Section 5: A person may manufacture carry bags/container made of plastic, except for foodstuffs. Under Section 8: Thickness of the carry bags made of virgin plastics or recycled plastics not to be less than 20 microns and, Under Section 10: Manufacturer to get registered with CPCB/ KSPCB

2.3.5 Hazardous wastes (Management & Handling) RulesThe Ministry of Environment & Forests, Government of India, notified the Hazardous Waste (Management & Handling) Rules on July 28, 1989 under the provisions of the Environment (Protection) Act, 1986, which was further amended in the year 2000 and 2003 for effective management of hazardous waste (HW), mainly solids, semi-solids and other industrial wastes, which do not come under the purview of the Water (Prevention and Control of Pollution) Act and the Air (Prevention and Control of Pollution) Act and also to enable the Authorities to control storage, transportation, treatment and disposal of waste in an environmentally sound manner.Salient Features of this rules is, For proper collection, storage, treatment and disposal of hazardous waste either by the

occupier or by the operator of a facility. Empowers KSPCB to grant authorization to an operator or occupier for any of the above

activities and to either suspend or cancel an authorization The Hazardous waste shall not be mixed with other wastes.

2.3.6 Batteries (Management & Handling) Rules, 2001 Salient feature of these rules are:

The term ‘Battery’ used in the rules means lead acid battery, which is a source of

electrical energy and contains lead metal

KSPCB is the implementing authority of the provisions of the rules

Applicable to every manufacturer, importer, reconditioner, assemblers, dealers,

recyclers, auctioneers, consumers, bulk consumers involved in manufacturing , process

and sale of batteries


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2.3.7 Karnataka Municipal Act 1964 Before the MSW rules 2000, in Karnataka ULBs were handling MSWM under Karnataka

Municipal Act following provisions were made to keep the city clean. The sections related

to MSWM are given below.

a. Powers for the prevention of Nuisance,

Section 224, Depositing dust, etc,-(1) Whoever deposits or causes or suffers any member of his family or household to

deposit any dust, dirt, dung or ashes, or garden, kitchen or stable refuse, or filth of any kind,

or any animal matter or any broken glass or earthenware or other rubbish or any other

thing that is or may be a nuisance, in any street or in any arch under a street or in any drain

beside a street or on any open space or on the bank of any river, Water-course or nallah ,

expect at such places, in such manner and at such hours as shall be fixed by the municipal

council, and whoever commits or suffers any member of his family to commit nuisance in

any place as aforesaid, shall be punished with fine which may extend to twenty five

rupees.

(2) Whoever throws or puts or causes or suffers any member of his family or household to

throw or put any of matter above described or, expect with the permission of the

municipal council, any night-soil into any sewer, drain , culvert , tunnel , gutter or water-

course, whoever commits nuisance, or suffers any member of his family to commit

nuisance, in any such drain, culvert, tunnel or water-course or in such close proximity

thereto as to pollute the same, shall be punished with fine which may extend to twenty five

rupees.

General Penalty, Service of Notices and Miscellaneous: Provisions, Section

263,General Penalty.- Whoever, in any case in which a penalty is not expressly provided by

this Act or any rule or bye-law there under, fails to comply with any notice, order

requisition issued under any provision thereof or of any rule or bye-law there under or

otherwise contravenes any of the provisions of this Act, or rule or bye-law there under

shall be punished with fine which may extend to one hundred rupees, and in the case of

continuing failure or contravention with an additional fine which may extend to ten

rupees for every day after the first during which he has persisted in the failure or

contravention.


Waste Generators

Collection Vehicles

Secondary Storage facility


Treatment/ processing options

Disposal options

Engineered landfill Sanitary landfill

Secondary containers (3.0 m3, 4.5 m3 & 7.0 m3 capacity containers)

Dumper placer Tractor placer Tractor/lorries

Resource recovery (segregation)

Composting (aerobic/anaerobic)

Waste to Energy (Bio methanization, RDF, pelletisation, etc)

Street sweepingHouseholds

Slums Non slums

Commercial Establishment

Bulk waste generators

A type B type C type

Push cart Tricycle Auto tipper Lorries HDPE bins

Waste Generators

Collection Vehicles

Secondary Storage facility


Treatment/ processing options

Disposal options

Engineered landfill Sanitary landfillEngineered landfill Sanitary landfill

Secondary containers (3.0 m3, 4.5 m3 & 7.0 m3 capacity containers)Secondary containers (3.0 m3, 4.5 m3 & 7.0 m3 capacity containers)

Dumper placer Tractor placer Tractor/lorriesDumper placer Tractor placer Tractor/lorries







Street sweepingHouseholds

Slums Non slums




Households

Slums Non slums



Households

Slums Non slums




Push cart Tricycle Auto tipper Lorries HDPE binsPush cart Tricycle Auto tipper LorriesPush cart Tricycle Auto tipper Lorries HDPE bins

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2.3.8 Karnataka State policy on integrated solid waste managementKarnataka State policy covers the necessary technical or organizational details of SWM.

This talk about sweeping streets, providing secondary storage container in various parts of

the city for storage of waste, and transporting waste to disposal sites. It specifies in clear

terms which responsibilities belong to the citizens or stakeholders. Moreover, they do

mention specific collection systems (such as door-to-door collection of waste), mandate

appropriate types of waste storage depots, covered waste transport issues, and aspects of

waste treatment or sanitary landfills. Thus, unlike most other state legislation, Karnataka

state has a clear policy for an efficient SWM service.

The below flow diagram explains about the state policy,

2.3.9 KTPP Act 1999Salient features of this rules is, Objective to streamline the procedure accountability in public procurement No procurement entity shall procure goods/ services except by inviting tenders


Karnataka is the first state to bring SWM state policy in India.

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Notifications regarding purchase/procurement has to be published in state/district tender bulletin

Tenders shall be opened at the time & place given in notification in presence of tenders or representatives

Procedures for scrutiny of tenders is provided Two cover system, acceptance of tender, rejection of tenders, power to give directions,

appeals, penalty has been provided

2.4 Action on defaulters (littering) or Legal Options for ULBs

2.4.1 Penalties for violations under the E.P.A.1) Whoever fails to comply with or contravenes any of the provisions of this Act, or the

rules made or orders or directions issued there under, shall, in respect of each such failure or contravention, be punishable with imprisonment for a term which may extend to five years or with fine which may extend to one lakh rupees, or with both, and in case the failure or contravention continues, with additional fine which may extend to five thousand rupees for every day during which such failure or contravention continues after the conviction for the first such failure or contravention.

2) If the failure or contravention referred to in sub-section (1) continues beyond a period of one year after the date of conviction, the offender shall be punishable with imprisonment for a term which may extend to seven years.

2.4.2 Levying penalty for PollutersAccording to KMA, 1964, the defaulters can be punished by the Honorable court and in this regard, the municipalities (In Karnataka) need to file a case in their Judicial Magistrate Court of the concerned ULB. In order to simplify the job of municipalities, following format for filing cases in court and notice format for the polluters is given below

Note:

1) Municipalities are informed to maintain separate file in this regard 2) Notice format for polluters (first time offense and repeatedly offense is given

separately)3) Follow the case no. and reference formats


Companies and government departments can be prosecuted under E.P.A.

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Case no. (ULB/ Year/ Notice/ Sl.no)

Notice under Sec. 224 of Karnataka Municipalities Act, 1964You Sri/Smt.…………………… (Name) S/o or W/o……………….. Residing at………………………………… Have created nuisance in public premises by………………………………… (Quote the reason) at ………………… (Place) on ……………………….. (Date) at ……………. (Time).

There is a provision to impose a fine of Rs. 25/- (Rupees Twenty Five only) as per the section 224 of Karnataka Municipal Act, 1964.

Therefore you are here by directed to deposit a sum of Rs. 25/- (Rupees Twenty Five only) before Honorable Judicial Magistrate Court at ……… …………. (Place) without fail upon receipt of summons from Respective honorable court.

Place: Signature of theDate Commissioner/ Chief Officer

of the CMC/TMC/TP---------------------------------------------------------------------------------------------------------------------Sec. 224, Depositing of Dust Etc. of KMA, 19641) Whoever deposits or causes or suffers any member of his family or household to deposit any dust, dirt, dung or ashes or garden, kitchen or stable refuse or filth of any kind or any animal matter, or any broken glass or earthenware or other rubbish or any other thing that is or may be a nuisance, in any street or any arch under street or in any drain beside a street or on any open space or on bank of any river, water course or nallah, except at such places, in such manner and at such hours as shall be fixed by the municipal council, and whoever commits or suffers any member of his family to commit nuisance in any such place as aforesaid, shall be punished with the fine which may extend to twenty five rupees2) whoever throws or puts or causes or suffers any member of his family or household to throw or put any of the matter above described or, except with the permission of the municipal council, any night soil into any sewer, drain culvert, tunnel, gutter or water course, and whoever commits nuisance, or suffers any member of his family to commit nuisance, in any such drain, culvert, tunnel or water course or in such close proximity thereto as to pollute the same, shall be punished with fine which may extend to twenty five rupees


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Case no. (ULB/ Year/ Notice/repeat/ Sl.no)

Notice under Sec. 224 read with Sec. 263 of Karnataka Municipalities Act, 1964

You Sri/Smt.…………………… (Name) S/o or W/o……………….. Residing at………………………………… Have created nuisance in public premises by………………………………… (Quote the reason) at ………………… (Place) on ……………………(Date) at ………… (Time).

Further, you are here by informed that in spite of direction/ judgment passed by Honorable court ……………………. (Reference no. given by court) dated………………. Imposing a penalty of Rs. 25/- (Rupees Twenty Five only) with a direction to yourself not to repeat the same habit of ………………………….(quote the reason for earlier fine), you have violated the provision of Sec. 224 of Karnataka Municipalities Act, 1964 by creating nuisance once again by……………………………………………. (Quote the reason).

Therefore there is a provision to impose a fine up to Rs. 100/- (Rupees one hundred only) as per Sec. 224 read with Sec. 263 of Karnataka Municipalities Act, 1964.

You are here by directed to deposit a fine to be imposed by Honorable Judicial Magistrate Court at …………. (Place) without fail upon receipt of summons from Respective honorable court.


of the CMC/TMC/TP


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---------------------------------------------------------------------------------------------------------------------Sec. 224, Depositing of Dust Etc. of KMA, 1964

1) Whoever deposits or causes or suffers any member of his family or household to deposit any

dust, dirt, dung or ashes or garden, kitchen or stable refuse or filth of any kind or any animal

matter, or any broken glass or earthenware or other rubbish or any other thing that is or may be a

nuisance, in any street or any arch under street or in any drain beside a street or on any open

space or on bank of any river, water course or nallah, except at such places, in such manner and

at such hours as shall be fixed by the municipal council, and whoever commits or suffers any

member of his family to commit nuisance in any such place as aforesaid, shall be punished with

the fine which may extend to twenty five rupees

2) whoever throws or puts or causes or suffers any member of his family or household to throw

or put any of the matter above described or, except with the permission of the municipal council,

any night soil into any sewer, drain culvert, tunnel, gutter or water course, and whoever commits

nuisance, or suffers any member of his family to commit nuisance, in any such drain, culvert,

tunnel or water course or in such close proximity thereto as to pollute the same, shall be punished

with fine which may extend to twenty five rupees

Sec. 263, General Penalty of KMA, 1964

Whoever in any case in which a penalty is not expressly provided by this act or any rule or bye-

law there under, fails to comply with any notice, order or requisition issued under any provision

thereof or of any rule or bye law thereunder or otherwise contravenes any of the provisions of

this act, or rule or bye-law thereunder shall be, punished with fine which may extend to one

hundred rupees, and in the case of a continuing failure or contravention with an additional fine

which may extend to ten rupees for every day after the first during which he has persisted in the

failure or contravention.


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Reference no:- (ULB/Year/Court/Sl.no)

Application under Sec. 224 of Karnataka Municipalities Act, 1964

I, Commissioner/ Chief Officer of City Municipal Council or Town Municipal Council or Town Panchayat ………………………………(ULB) state that I had issued notice under section 224 of Karnataka Municipalities Act, 1964 to Sri./Smt………………………………..S/o or W/o …………………….. residing at …………………………………. (Place) for having created nuisance by ……………………. (Quote the reason) vide case number…………………….. (Given in notice)

In this connection, it is prayed that this honorable court may please issue summons to the above named person, hear the case and pass appropriate orders to impose a penalty of Rs. 25/- (Rupees Twenty Five only) for having created nuisance in the interest of justice & equity


of the CMC/TMC/TP---------------------------------------------------------------------------------------------------------------------Sec. 224, Depositing of Dust Etc. of KMA, 19641) Whoever deposits or causes or suffers any member of his family or household to deposit any dust, dirt, dung or ashes or garden, kitchen or stable refuse or filth of any kind or any animal matter, or any broken glass or earthenware or other rubbish or any other thing that is or may be a nuisance, in any street or any arch under street or in any drain beside a street or on any open space or on bank of any river, water course or nallah, except at such places, in such manner and at such hours as shall be fixed by the municipal council, and whoever commits or suffers any member of his family to commit nuisance in any such place as aforesaid, shall be punished with the fine which may extend to twenty five rupees2) whoever throws or puts or causes or suffers any member of his family or household to throw or put any of the matter above described or, except with the permission of the municipal council, any night soil into any sewer, drain culvert, tunnel, gutter or water course, and whoever commits nuisance, or suffers any member of his family to commit nuisance, in any such drain, culvert, tunnel or water course or in such close proximity thereto as to pollute the same, shall be punished with fine which may extend to twenty five rupees.


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Reference no: - (ULB/Year/Court/Repeat/Sl.no)

Application under Sec. 224 read with Sec. 263 of Karnataka Municipalities Act, 1964

I, Commissioner/ Chief Officer of City Municipal Council or Town Municipal Council or Town Panchayat ………………………………(ULB) state that I had issued notice under section 224 of Karnataka Municipalities Act, 1964 to Sri./Smt………………………………..S/o or W/o …………………….. Residing at …………………………………. (Place) for having created nuisance by ……………………. (Quote the reason) vide case number…………………….. (Given in notice)

It is submitted that the defended vide number…………………. (Reference no given in earlier Notice) dated………………. To deposit a fine of Rs. 25/- (Rupees Twenty five only) for having created nuisance. This Honorable court has imposed a fine of Rs. 25/- (Rupees Twenty five only) vide order/ judgment ………………….. (Ref no quoted by court) dated………………… The defendant has deposited a fine of of Rs. 25/- (Rupees Twenty five only) vide receipt no. …………………..

In spite of direction from the commissioner/ chief officer of CMC/TMC/TP and the judgment passed by this Honorable court imposing a fine of Rs. 25/- ( Rupees Twenty five only) with a direction to the defendant not to repeat the habit of creating nuisance, the defendant has created nuisance once again by …………………………… (Quote reason)

Therefore it is prayed that the Honorable court may be pleased to hear the defendant & impose a fine up to Rs. 100 /- (Rupees one hundred only) in the interest of justice & equity


of the CMC/TMC/TP---------------------------------------------------------------------------------------------------------------------


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Sec. 224, Depositing of Dust Etc. of KMA, 1964

1) Whoever deposits or causes or suffers any member of his family or household to deposit any

dust, dirt, dung or ashes or garden, kitchen or stable refuse or filth of any kind or any animal

matter, or any broken glass or earthenware or other rubbish or any other thing that is or may be a

nuisance, in any street or any arch under street or in any drain beside a street or on any open

space or on bank of any river, water course or nallah, except at such places, in such manner and

at such hours as shall be fixed by the municipal council, and whoever commits or suffers any

member of his family to commit nuisance in any such place as aforesaid, shall be punished with

the fine which may extend to twenty five rupees

2) whoever throws or puts or causes or suffers any member of his family or household to throw

or put any of the matter above described or, except with the permission of the municipal council,

any night soil into any sewer, drain culvert, tunnel, gutter or water course, and whoever commits

nuisance, or suffers any member of his family to commit nuisance, in any such drain, culvert,

tunnel or water course or in such close proximity thereto as to pollute the same, shall be punished

with fine which may extend to twenty five rupees

Sec. 263, General Penalty of KMA, 1964

Whoever in any case in which a penalty is not expressly provided by this act or any rule or bye-

law there under, fails to comply with any notice, order or requisition issued under any provision

thereof or of any rule or bye law there under or otherwise contravenes any of the provisions of

this act, or rule or bye-law there under shall be, punished with fine which may extend to one

hundred rupees, and in the case of a continuing failure or contravention with an additional fine

which may extend to ten rupees for every day after the first during which he has persisted in the

failure or contravention.


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2.5 Schedules & Application Forms To Be Submitted To KSPCB

List of forms to be submitted

Form –I Application for obtaining authorization (For Processing & Disposal Facilities)

Form - II Format of Annual Report to be submitted

Form - V Accident reporting

Form-I Application for obtaining authorization (For EIA Authorization)

Flow chart for activities to be followed related to landfill site (with KSPCB)


MSW landfill site

Consent Authorization

For Establish (CFE)

For operation (CFO)

Fresh Renewal Fresh Renewal

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At the end of the chapter the participants will understand the Economics related to MSWM. The budget & costing provisions will be explained

CHAPTER 3

Economics of MSWM

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3.1 IntroductionMunicipal authorities in India are autonomous governments that provide essential services to the

citizens at the local level. This institutional arrangement came into being during the 18th-century

British regime. Over the past three centuries, state governments have established urban local

bodies (ULBs) to provide basic services: 4,378 cities and towns in India have municipal

authorities to provide basic essential services. Local bodies were recognized by the 74th

constitutional amendment in 1992, which clearly defined their roles and responsibilities. They

need to perform certain mandatory duties and are required to raise sufficient financial resources

to meet their obligations.

Among those mandatory duties is a minimum level of solid waste management (SWM) service

in accordance with the Municipal Solid Waste (Management and Handling) 2000 Rules. Because

SWM is an obligatory duty of municipal authorities, they cannot escape the responsibility of

providing those basic services on the grounds of paucity of funds, but must find or raise funds to

provide for SWM. This chapter describes the traditional financial resources of municipal

authorities in India and highlights the situation of levy and recovery of taxes and charges

resulting in the poor financial health of ULBs.

The chapter also provides suggestions for improving the financial discipline of ULBs and

elaborates on the methods of assessing funding requirements for various SWM services. It also

advises on the strategy of financing through user fees or taxes to meet the cost of SWM services

and suggests ways of minimizing SWM service costs by enhancing community,

nongovernmental organization (NGO), and private sector participation.

3.2 Existing Financial Situation of the Municipal AuthoritiesThe state laws governing municipal authorities establish their powers to levy taxes, charges, fees,

and the like for raising money to meet their statutory obligations. Municipalities, of course, need

adequate and recurrent cash flows to provide a service. Without recurrent revenues, service

provision must rely on transfers from another level of government or grants, making the service

difficult to sustain.

3.2.1 Sources of IncomeMunicipal authorities levy taxes, charges, and fees such as those listed next to gain

revenues and to improve their financial situation. Some municipalities also levy monthly


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user fees or charges for water, drainage, and sanitation to meet the necessary

operating and maintenance cost of the service. By and large, however, municipal

authorities suffer a major deficit of funds to meet their obligations. Many municipalities

do not generate sufficient funds even to pay their staff members’ salaries.

The following are principal sources of municipal authorities’ income:

Property and house taxes

Octroi duty (Not applicable to Karnataka state)

Water tax

Fees for passing building plans

Levies on advertisement through hoardings, signboards, and so forth

Rents from municipal properties

Fees from licenses for various trades

Parking fees (optional)

3.2.2 Levy and Recovery of Taxes and ChargesDespite powers given to ULBs to impose taxes, most municipal authorities do not levy sufficient

taxes. The tax base is generally very weak. The basic valuation from which the level of taxes is

calculated is faulty or is deliberately kept low to reduce the burden on the taxpayers. Elected

representatives shy away from imposing new taxes or increasing the tax rates for fear of public

outcry or losing their constituency. They do not appreciate that if they fail to provide services for

want of funds, public outcry or distrust could be worse. Mostly, elected officials cannot muster

the courage to convince citizens that “there’s no such thing as a free lunch.”

The situation for tax recovery is also very poor. First, many taxable properties are not registered.

Certain property holders somehow manage to escape the tax net. Those who are assessed are

quite often under assessed and do not pay their taxes regularly. Second, the mechanism of tax

recovery is poor. The rates of tax recovery generally range between 30 and 50 percent. In this

situation, the financial health of ULBs in India is poor, and they are unable to fulfill their

obligations.

3.2.3 Dependence on Government GrantsMost municipal authorities in the country are not in a position to meet their financial needs from

the internal financial resources of the area. They therefore fall back on the state government for


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grants. The states give the municipalities grants for paying staff salaries as well as for carrying

out development work. This dependence on state government grants is not sustainable in the long

term, and municipalities need to find ways to fund services from their own resources.

Following are the main sources of grants that municipalities can obtain:

State Finance Commission grants

12th Finance Commission grants

Jawaharlal Nehru National Urban Renewal Mission (JNNURM) grants

Urban Infrastructure Development for Small and Medium Towns (UIDS&MT) scheme

grants

3.2.4 Allocation of Inadequate Funds for SWMMunicipal decision makers do not give adequate priority to SWM. Financial allocations go for

staff salaries as the first priority, and what is left is spent on visible infrastructure projects. Very

little is allotted to improving SWM services, varying between 1 percent and 30 percent of the

total municipal budget depending on the size of the municipality.

Most of the budget for SWM is consumed in salaries of sanitation workers and transport of

waste. Very little or none is set apart for actual treatment and disposal of waste. The percentage

of expenditures for various solid waste services is as follows (Supreme Court 1999):

70 to 75 percent on street sweeping

25 to 30 percent on collection

0 to 5 percent on disposal

3.2.5 Failure to Levy SWM cessDespite having a government order for collection of SWM cess, expect few ULBs it is not being

implemented. Where ever primary collection is carried out through SHGs, it is being collected as

User fee. Poor collection efficiency of User fee collection is making SHGs not coming forward

for primary collection activity.

3.3 Strategies for Improving the Financial Situation The municipal authorities need to take a careful look at their finances and implement a

transparent financial and accounting system that will allow them to impose expenditure

discipline and make judicious use of limited funds available. The following measures could help

improve the financial health of municipal authorities:


SWM Training Module

1. Identify priority areas.

Prioritize the services the municipal authority has to provide.

Put SWM service in the top priority list because it is an essential service and obligatory for

the municipal authorities to perform.

Put all nonobligatory functions in a separate category of duties that may be performed only

after providing adequate funds for satisfactory performance of all essential services.

Ban wasteful expenditures.

2. Define priorities for obligatory services. Decide the minimum level of service the municipal authority would like to provide in each

category of service in a given timeframe.

Estimate the funds required to provide that level of service.

Set the priority of the essential services among themselves, giving due priority to SWM

services.

Allocate funds for each service.

Decide the critical area in each service and use the funds to optimize the benefits to society.

Defer expenditures that can wait.

3. Improve tax collection efficiency Critically look into the existing mechanisms and efficiency of tax collection and collection

of charges, fees, and other income sources prescribed by the municipal authorities.

Identify the leaks or lapses in the system.

Plug the leaks and maximize the efficiency of collection of taxes, charges, and fees.

Get professional or private sector help in this area wherever required.

Use the additional funds generated through this effort for the essential services.

Streamline procedural steps for debt collection from non payers/ defaulters.

4. Review the existing rates and charges Compare existing rates of taxes and charges to the current cost of services.

Make sure that citizens are reasonably taxed for the services they receive. Rates that are too

low may be suitably increased to reduce the gap between income and expenditure.

Rationalize the property tax structure, preferably on the basis of carpet area or plinth area

rather than on the basis of rents.


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Introduce the element of cost recovery for specialized services rendered, particularly in the

case of doorstep services or nondomestic waste collection services.

5. NGO and private sector participation List all the SWM activities performed by the municipal authority.

Identify the areas where NGO or private sector participation or contracting out of services

is desirable.

Change policy: instead of being a provider, become an enabler of the service.

Determine which services can be covered by the private sector, an NGO, or a cooperative

for direct payment from users to reduce the burden on the municipal authority.

In such areas, carefully monitor the performance of the NGO or private sector provider to

ensure required levels of service are met.

6. Review establishment costs Critically review overhead costs and the job requirements of officers and staff.

Set work norms carefully.

Review human resource needs.

Reduce surplus staff members, if any, or redeploy them where needed.

Economize in expenditure in all activities of the municipal authority.

All the efforts from 1 to 6 will improve financial discipline and put the municipal authority in a

more comfortable position to plan expenditures for essential items of work. The improved fiscal

efficiency of a municipal authority may even make it eligible for funding by financial

institutions. A municipal authority should have a sinking fund for planned and timely

replacement of vehicles and equipment.

3.4 Costing and Budgeting of SWM ServicesSolid waste management constitutes from 30 to 60 percent of municipal budget expenditure,

depending on the income sources of the municipal authorities. The main expenditure categories

under SWM are salaries and allowances, consumables, vehicle repair and maintenance,

contingencies, and other.

As much as 30 to 50 percent of municipal personnel in a local body are engaged in SWM

activities. Most of this staff is engaged in street sweeping. A recent survey by the National


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Institute of Urban Affairs shows “salaries of sanitation workers” for SWM in class 1 cities

constitute as much as 75 percent of total SWM expenditure (Asnani 2006: 180). At 85 percent,

this amount is even higher in class 2 cities.

Each city or town should have a full-cost accounting system that shows the exact cost of SWM

service and takes into account all hidden costs. Furthermore, it must take into account past and

future outlays, overheads, and operating cost. Depreciation and amortization should also be

shown so that the cost of service and financial liability is known. The full-cost accounting should

reflect not only what has been spent on SWM but also what is committed to be paid regardless of

when the money is spent. For example, payment can be made before or after the operating life of

the landfill facility.

All this information is necessary for making informed decisions on what service needs special

attention to reduce cost. It also clarifies what strategies need to be adopted for private sector

participation, public-private partnership, or NGO participation in SWM service in lieu of

departmental service. Furthermore, knowing the actual cost involved in SWM services will help

make communication with the public transparent when authorities must advocate for financing

through user fees.

Municipal authorities must work out the operating, maintenance, and capital costs required for

each component of SWM service. The costing should take into account personnel costs for

primary collection, secondary storage, transport, and disposal of waste. It should also take into

consideration the cost of tools and equipments, the debt-servicing charges, and operating and

maintenance costs. Careful assessment of operating and maintenance costs is essential. SWM

collection equipment has a relatively short life, so such costs are substantial. All hidden costs of

supervision and administrative expenses not directly booked under SWM budget heads must also

be taken into consideration to ascertain the true cost of service. Individual costing for each

component is critical because each component could be contracted out, and this information will

assist in preparing the tender documents.

Budgeting for SWM should be done every year, taking into account needs for operation and

maintenance of SWM services as well as investment costs for procuring tools, equipment, and

construction of treatment and landfill facilities. Projected increases in population and quantity of


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waste generation also should be taken into account when determining the financial requirements

of municipal authorities, and provision should be made to account for all expenditures.

Generally, municipalities prepare their budgets using an incremental approach that is based on

the previous year’s budget. Annual budgeting should include the projections and SWM works to

be undertaken in the next financial year. Municipal authorities need to take into consideration

whole-project costs when preparing their budgets and then breaking the project costs up into

costs for yearly activities. Annual budgets should be prepared after detailed costing. Costing

should include tax recovery, debt payment, and contingencies.

Many municipalities are not aware of the norms or criteria for providing SWM service and find

working out the costs difficult.

Note: The economics model for city having a population of 1 lakh is provided for the

reference in CD (soft copy)

3.5 Strategies to Minimize the Cost of SWM Service Having established the cost of service, the municipal authority needs to adopt a strategy for

minimizing the cost. Looking at the efficiency of service and its cost-effectiveness is the first

step. Wherever the services are inefficient and cost is higher than expected, municipalities need

to consider whether the private sector or NGOs could provide the service more cost-effectively.

3.5.1 Redeploy Surplus Staff MembersMany municipalities have surplus staff members, and output is very low. They need to redeploy

the surplus staff members according to the yardstick previously provided to reduce the cost of

SWM service.

3.5.2 Involve Private SectorThe municipal authority, to the extent possible, can explore the possibilities of community,

NGO, or private sector participation for reducing the cost of service. Experience has shown that

a 50 percent cost saving takes place when service is appropriately privatized. Nevertheless,

improper contracting schemes without proper monitoring and enforcement mechanisms can be

prejudicial for the system.


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3.5.3 Set up transfer stations and Decentralized waste treatment systems

The transfer stations enable to segregate waste and also transport inerts in large volumes to

landfill site. The decentralized waste treatment puts less pressure on centralized treatment unit

3.5.4 Set up centralized waste disposal facilities (regional landfill sites)

This will enable cluster of nearby municipalities to have less Operation & maintenance cost

along with effective utilization of landfill site.

3.6 Raising Financial Resources for SWM

3.6.1 Levy SWM cess

The municipal authorities need to seriously consider introducing a sanitation or SWM cess to

meet the cost of service. A small amount of cess linked with property tax can be levied for SWM

service to meet capital costs.

3.6.2 Levy User Fees

User charges can be an equitable means of funding SWM services if properly administered. They

are an excellent means of cost recovery. User charges may be used as an incentive to reduce

waste generation and encourage recycling, so that those who pollute more pay more (the polluter

pays principle). Increased public awareness of solid waste issues and public involvement in the

decision-making process may provide the opportunity to adjust user charges to reflect real costs

of providing solid waste services.

It is essential that citizens know the cost of service and be motivated to share the cost in the form

of user fees or user charges to sustain the service. Initially, a small charge can be levied to meet

the O&M cost of primary collection of waste from the doorstep. If good-quality service is

provided regularly, people will be willing to pay the user fees without much hesitation.

3.6.3 Revenue from Recovery and Treatment of Waste

Waste recycling, composting, and waste-to-energy operations may generate operating revenues

or at least reduce the cost of waste treatment. Such programs provide direct paybacks in terms of

tangible financial benefits associated with recovered materials and conserved energy as well as

additional benefits from the avoided costs of land filling. Furthermore, these programs help

increase the life span of the landfill facility.


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3.6.4 Fines & Royalties

Fines needs to be collected as per KMA (1964) to defaulters, who pollute and where as royalties

can be collected from service provider

3.6.5 Private Sector Financing for Waste Treatment and Recovery

Because municipal authorities lack sound financial health, the private sector is being invited to

invest in waste treatment. The role of the private sector in financing resource recovery

(composting, waste-to-energy) facilities is growing in India. Many composting facilities as well

as two power plants have been set up in the country with private sector involvement. Although

private sector funding is a potential source, it is feasible only if potential profit exists.

3.6.6 The 12th Finance Commission Grants and JnNURM Fund

Municipal authorities can access the funds made available under the 12th Finance Commission

grants to all the states and JNNURM funds made available to 63 selected megacities, state

capitals, and a few historical cities. Other cities can access the fund under the UIDS&MT

scheme of the government of India.

3.6.7 Government of India Subsidy for Compost Plant and Waste-to-Energy Projects

The Ministry of Agriculture (MOA) and the Ministry of Environment and Forests (MOEF) have

been actively promoting waste composting, while the Ministry of New and Renewable Energy

has designed schemes to promote waste-to-energy projects. Furthermore, the MOEF sanctioned a

project to the Central Road Research Institute for conducting research for effective use of

municipal solid waste in road construction.

3.6.8 Ongoing Government of India Schemes to Promote Municipal Solid Waste Composting

The MOA and the MOEF have two separate schemes to promote municipal solid waste

composting. Both schemes provide only subsidies and do not follow through on implementation

and performance monitoring. As a result, the effect of these schemes is not known at the central

government level.


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The MOA introduced a centrally sponsored plan for balanced and integrated use of fertilizers in

1992 (Eighth Five-Year Plan, 1992–97), under which support is given to local bodies and the

private sector (included recently) for setting up composting plants for converting municipal solid

waste into compost. This grant is available for up to one-third of the project’s cost, subject to a

maximum of Rs 5 million per project. The grant is provided for buildings, plant, and machinery

only. The allowable treatment capacity of the plant is 50 to 100 tons per day. According to the

MOA, 38 projects were taken up under this scheme. The total central assistance proposed during

the Ninth Five-Year Plan (1997–2002) procedure for release of central grants through state

governments was Rs 180 million, and the budget provision during 2002/03 was Rs 50 million.

Very little is allocated from these grants.

The MOEF provides financial subsidies of up to 50 percent of the capital costs to set up pilot

demonstration plants on municipal solid waste composting. The ministry also extends limited

financial assistance for waste characterization and feasibility studies. The scheme was first

introduced in 1992. Subsequently the MOEF had sanctioned three pilot projects for qualitative

and quantitative assessment of the solid waste in the cities of Hyderabad, Shimla, and

Ghaziabad.

Recently, a few more demonstration projects have been sanctioned, and they are being

implemented in North Dum Dum and New Barrackpore municipalities in West Bengal,

Chandigarh, Kozikode in Kerala, and Udumalpet in Tamil Nadu. Three more projects in

Kohima, Suryapet, and Mandi are also likely to be sanctioned shortly.

3.6.9 Support from the Central Government for Waste-to-Energy Projects

The national program on energy recovery from urban and industrial waste was launched by the

Ministry of Non-Conventional Energy Sources during 1995, with the approval of the

Commission for Additional Sources of Energy. Recently, the Ministry of New and Renewable

Energy has announced an accelerated program on energy recovery from urban waste during

2005/06, which will provide financial assistance for setting up projects for recovery of energy

from urban waste (see the incentives described in table). The financial assistance for any single

project is limited to Rs 80 million.


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Incentives under the National Program on Energy Recovery

Program Incentive

Project for power generation from municipal solid waste

involving refuse-derived fuel

Rs 1.5 crores per

megawatt

Power project based on high-rate biomethanation technology Rs 2 crores per

megawatt

Demonstration project for power generation from municipal

solid waste based on gasification-pyrolysis and plasma arc

technology

Rs 3 crores per

megawatt

Biomethanation technology for power generation from cattle

dung, vegetable market waste, and slaughterhouse waste

above 250 kilowatt capacity

50% of project cost;

maximum of

Rs 3 crores per

megawatt

Biogas generation for thermal application Up to Rs 1 crore per

megawatt equivalent

Project development assistance Up to Rs 10 lakhs per

project

Training course, seminar, workshop Rs 3 lakhs per event

Note: 1 lakh equals 100,000 rupees; 1 crore equals Rs 10 million.

Financial assistance of 20 percent higher than those specified for various categories of projects

will be provided for projects in the North Eastern Region and special-category states: Himachal

Pradesh, Jammu and Kashmir, Sikkim, and Uttranchhal. The Supreme Court of India has,

however, ordered the government of India not to sanction any subsidies for projects based on

municipal solid waste until further decree of the Supreme Court. Therefore, governments of

India subsidies for waste-to-energy projects are on hold at the moment.

3.7 Incentives for SWM Infrastructure FinancingIn addition to financial and technical support from central and state governments, the following

incentives are available for financing solid waste infrastructure in urban areas.


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Tax Exemption of Certain Bonds Issued by Local Authorities

Tax Holiday for the Project Entity for Solid Waste Management

Tax Exemption for Income of Infrastructure Capital Funds and Companies

Availability of Funds by Sale of Carbon Credits

Sectorial Lending by Financial Institutions (ICICI, HUDCO, IDBI, IFCI, NABARD, ILFS

etc)

Bilateral and Multilateral Donors ( e.g. INEP, Indo German bilateral program, Swedish

energy agency etc)

3.8 Carbon FinanceCarbon finance provides an opportunity for an extra source of revenue for SWM projects in

developing countries. The main idea behind it is that industrial countries will pay for projects in

developing countries that contribute to the reduction of GHG emissions. Therefore, carbon

finance can be used with any technology that leads to the reduction or avoidance of carbon

emissions. Given that solid waste is a significant source of pollution—in particular emissions of

methane gas by anaerobic degradation—carbon finance represents a good opportunity for solid

waste projects in developing countries and gives incentives to operators to focus on good design

and environmental awareness to obtain this source of revenue.

Countries that signed the Kyoto Protocol have committed to reducing their GHG emissions by

certain targets. However, if countries maintain or increase emissions, they will have to engage in

emissions trading. For this reason, the Kyoto Protocol created market mechanisms for emissions

trading to help countries achieve their commitments on reducing GHG emissions. According to

the European Union, an estimated annual 430 million tons of carbon dioxide must be reduced

worldwide to meet the Kyoto Protocol’s emission reduction targets. These mechanisms to trade

emissions allow countries with excess emissions units to sell them to other countries that are

unable to meet their commitments. Among the mechanisms created, the clean development

mechanism (CDM) allows the creation of carbon funds through which governments and

companies in rich countries contribute money to purchase project-based GHG emissions

reductions in developing countries. Industrial countries pay for projects that cut or avoid

emissions in poorer nations, and poorer nations benefit from revenues and advanced technology.


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3.8.1 Carbon Credits

Projects in developing countries that reduce emissions and contribute to the sustainable

development of the country qualify under the CDM and can earn certified emission reductions

(CERs). On the basis of the reductions of emissions achieved, projects will earn CERs that can

be sold to the carbon fund. The price of CERs is a function of market demand and supply. For

example, the 2006 price paid was, on average, US$7 per ton of carbon dioxide emission

reduction or US$147 per ton of avoided methane. One ton of carbon dioxide equivalent is 1 ton

of CER. Given that methane is a gas 21 times more potent as a GHG than carbon dioxide, 1 ton

of avoided methane emissions is worth 21 tons of carbon dioxide equivalent, or 21 CERs.

The projects that certify their emissions reductions can obtain CERs and sell them to the carbon

fund. According to CDM rules, project proponents can choose between two options for the

crediting period to earn CERs:

A 10-year crediting period, with no option of renewal

A 7-year crediting period, with the option of two renewals

Projects can earn carbon credits up to a maximum of 21 years. Currently, carbon finance buys

credits until 2012. Therefore, the sooner projects can be identified, the more years of revenue

they can earn.

3.8.2 Solid Waste and Carbon Finance

Because municipal solid waste is a significant source of methane emissions, solid waste projects

can take advantage of the carbon finance mechanism. As already mentioned, methane is a gas 21

times more potent as a GHG than carbon dioxide; it is produced when organic waste decomposes

under anaerobic conditions. Landfills in particular are one of the greatest sources of methane

emissions.

Projects that qualify for carbon credits not only bring the benefit of additional revenue to the

project, but also contribute to increasing the life of the landfill, generating new sources of

energy, creating additional jobs, and improving environmental conditions. In many cases, solid


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waste projects applying for carbon funds increase their internal rate of return by more than 5

percent.

To register under the CDM, the project has to meet the following criteria:

The project leads to measurable reductions in GHG.

It represents an additional activity, meaning that it does not represent the common

practice or normal course of action.

It contributes to the sustainable development of the country.

Additionally, the project needs to be approved by the designated national authority, and a Project

Design Document must be developed, including a baseline methodology and a monitoring plan. i

The transaction cost for registering a project ranges from US$50,000 to US$250,000, depending

on project size and type. Registering a project takes approximately one to three years.

Registration ends when an emission reduction purchase agreement is signed. The future of CDM

after 2012 is unclear because no decisions have been made on what will happen after the first

Kyoto Protocol commitment period (2008–12).

The following SWM projects can include carbon finance components to reduce methane

emissions:

Landfill gas recovery

Composting

Incineration and anaerobic digestion

Recycling



At the end of the chapter the participants will understand the institutional aspects of MSWM

CHAPTER 4

Institutional Aspects 52

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3 1. INTRODUCTION

The subject of solid waste management (SWM) has remained neglected for the past several

decades with the result the level of service is highly inadequate and inefficient. For improving

the solid waste management services it is essential to adopt modern methods of waste

management having a proper choice of technology which can work in the given area

successfully. Simultaneously, measures must be taken for institutional strengthening and internal

capacity building, so that the efforts made can be sustained over a period of time and the system

put in place can be well managed.

Institutional strengthening can be done by adequately decentralizing the administration,

delegating adequate powers at the decentralized level, inducting professionals into the

administration and providing adequate training to the existing staff. It is also necessary to fix

work norms for the work force as well as for supervisory staff and the output expected from the

vehicles and machinery utilized.

Non-Governmental Organisations/ private sector participation also needs to be encouraged to

make the service competitive and efficient. It is therefore, necessary that the local body takes

adequate measures for institutional strengthening through induction of professionals,

decentralization of administration, delegation of powers, human resources development, and

private sector and NGO participation. This may be done as under:

2. DECENTRALIZATION OF ADMINISTRATION

In large cities the SWM services can be performed effectively only if its administration is

adequately decentralized. Decentralization can be at least 3 tiered

-one at the Ward level, second at the Zone level and third at the city level. The SWM functions

would get focused attention if all functions of the city administration are decentralised at

Ward/Zone/Division levels and senior officers are placed in-charge of each Zone/Division

functioning independently with adequate delegated powers.


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The SWM functions may be decentralised as under:

2.1 Ward Level Administrations

The ward level administration should be fully responsible for ensuring storage of segregated

waste at source, primary collection of waste, street sweeping and taking the waste to waste

storage depots, clearing debris and cleaning surface drains and public spaces. The cleaning of

each street, lane, by-lane, markets and public space should be regularly supervised by the ward-

level supervisors. The presence of all SWM officers in the field during morning hours is most

essential. A grievance redressal system of the Ward should be put in place in each ward.

Involvement of Ward Committees:-

These Ward Committees, as and when formed, may be very profitably involved in improving

SWM services at the Ward level. These Committees could be motivated to help in the following

areas:-

Creating public awareness at the Ward level;

Formation of Residents Association/ Neighborhood Committees to ensure public

participation in source segregation of recyclable waste and deposition of domestic waste in

the handcarts on time during primary collection;

Involving school children in preventing littering of streets by the people;

Interfacing with the people and officials and help in redressal of public grievances on SWM

at the ward level;

Supporting the effort of cost recovery for the services rendered;

Encouraging NGO participation.

2.2 Zonal Administration

Administrative Zones should be made for a group of wards. The Zonal administration should

effectively supervise and support the work of the Ward administration and also provide Zonal

level support such as construction and upkeep of flooring under the communal waste storage

sites, transportation of waste from the communal storage sites to the transfer station, processing

plant and disposal sites. If the Zones are not allotted adequate vehicles for the transportation of


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waste due to paucity of vehicles, the transportation of waste may be coordinated centrally for

optimum utilization of the fleet of vehicles in 2 or 3 shifts.

2.3 City Level Administration

The city level administration should supervise and support the Zonal administration and in cases

where the fleet of vehicles is not decentralized at the zonal level, the central SWM Department

should look after the transportation of waste from the waste storage sites on a daily basis.

The Central SWM Department should be responsible for procurement and upkeep of vehicles,

construction of transfer stations, setting up and maintenance of processing plants, incineration

plants as well as for managing the disposal sites in an environmentally acceptable manner.

The central SWM department should also be responsible for the procurement of land for

processing and disposal of waste. As a Head Office it should take policy decisions and co-

ordinate the activities of all the zones and the wards and be answerable to the Chief Executive

and elected body for the efficient functioning of the department. It should look after the

recruitment of manpower, human resources development, training etc.

3. HUMAN RESOURCES DEVELOPMENT

Human resources development is very essential for internal capacity building for any

organisation. Training, motivation, incentives for outstanding service and disincentives for those

who fail to perform are essential for human resources development.

Concerted efforts should be made by the local body to inculcate among its officers and staff a

sense of pride in the work they do and to motivate them to perform and give their optimum

output to improve the level of services of the city and the image of the local body.

3.1 Training

Solid Waste Management has been a neglected subject for the past several decades. Systems

have, therefore, not developed to improve the service. Knowledge of new technology and

methods coupled with training at all levels is necessary. No specialized courses have so far been


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designed to meet need of different levels of staff. Short and medium term courses should,

therefore, be designed for the sanitation workers and supervisory staff. Special training and

refresher courses may also be conducted as under:-

3.1.1 Special Training to Unqualified Staff

Unqualified supervisory staff should be given in service training to qualify for supervising

sanitation works. They may be sent out for training to the All India Institute of Local Self

Government or such similar institutions which designs special courses for sanitation supervisors.

3.1.2 Refresher Courses for All Levels of Staff

Refresher courses should be conducted for the sanitation workers as well as supervisory staff at

least once in every 5 years, or they should be sent for training to get an exposure to advance in

this field.

3.1.3 Exposure to Municipal Commissioner/ Chief Executives

It is necessary to give an orientation to the Municipal Commissioners/Chief Executives of the

local bodies and make them aware of this important aspect of Urban Management. They may

therefore be given exposure to SWM through short training programs.

3.1.4 Exposure to Elected Members

Whereas the Municipal Commissioners or the Chief Executives are responsible for day-to-day

affairs of the urban local bodies, the elected members are the policy makers and their sanctions

are essential for any major investments or improvements in SWM services. It is, therefore,

necessary that the members of the elected wing such as the Mayors/Presidents of the

Corporations/Municipalities and other important office bearers of the local bodies are given

appropriate orientation towards the need of modernization of solid waste management practices

in the urban areas and the importance of the same in terms of health and sanitation in the

cities/towns. If these members are given an appropriate exposure, they would automatically

support adequate financing for solid waste management services and strengthen the hands of

chief executives in the implementation of modern methods of waste management and they would

also help in getting public support through their network of field workers.


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3.1.5 Design SWM Courses

SWM courses may be designed and regularly updated for Engineering, Medical and applied

science disciplines. Academic institutions at the national and state levels should be involved in

this exercise by the concerned departments of Central and State Governments respectively. The

syllabus of the engineering colleges, medical studies as well as sanitary inspectors’ diploma

courses should lay adequate emphasis on solid waste management.

3.2 Promotional Opportunities

Adequate promotional opportunities should be available in the decentralized SWM hierarchy to

maintain the interest of the supervisory staff to remain in the department.

4. Work Norms (Normative standards)The following normative standards shall be followed for different SWM & cleaning activities

Name of the SWM Tools, Equipment and Vehicles

Unit requirements proposed per annum

Unit Manpower required

Door to door collectionOne command area = 1000 house holds / shopsPush carts with 6 bins

1 for 200 households / Shops 1 per pushcart

Tricycle with 8 bins 1 for 250 households / Shops 1 per tricycle

Auto Tipper 1 for 1000 households / Shops1 driver + 1 helper per auto tipper

Street SweepingBrooms 4 for each sweeper One sweeper for every 1000

m of road lengthPushcarts 1 no for every 2 workers

Metal Tray/ Metal plate

2 nos for every sweeper

Ghamela 1 no for every loaders/sweepers

Hand gloves 4 sets for every loader/sweeper


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Face mask 2 nos for every worker

Gum boots 1 set for every worker

Uniforms 2 set for each worker

Tractor trailers 1 no. for every up to 25 Kms of street sweeping with 7 years of life

1 driver + 3 loaders (2 to 3 trips/day, 2.0-2.5 tons per trip, 200 Kgs to 300 Kgs of waste / Km )

Tipper Trucks 1 no. for every 40 Kms of street sweeping with 7 years of life

1 Driver+ 4 loaders , (2 to 3 trips/day, 4.0-4.5 tons per trip, 200 Kgs to 300 Kgs of waste / Km)

Secondary Collection & Transportation

3.0 cum Containers(1.2 Tons Cap.)

1 Container for every 1000 households or approx. for 1 ton of waste which ever is higher

4.5 cum Containers(1.8 Tons Cap.)

1Container for every 1500 households or approx. 1.6 tons of waste which ever is higher

Tractor Placer 1 for every 5 to 7 nos of 3.0 / 4.5 Cum Containers – 5 to 7 trips a day

1 Driver + 1 Helper

Twin Container Dumper Placer

1 for every 10 to 14 nos of 3.0 / 4.5 Cum Containers – 5 to 7 trips a day

1 Driver + 1 Helper

Cleaning of Markets/Slaughter Houses

Tools & Equipment as same as street sweeping

Requirements are as same as street sweeping

1 worker / 400 m2 area, for two time cleaning everyday

Tractor trailers 1 for every 6 to 8 tons of waste,3 to 4 trips a day or

1 driver + 3 loadersUnloading distance is less than 10 Kms,

Tipper Truck 1 for every 10 to 14 tons of waste,3 to 4 trips a day

1 driver + 4 loaders Unloading distance is more than 10 Kms,

Cleaning of Office premises, Parks, Public grounds etc


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Tools & Equip. as same as street sweeping

Requirements as same as street sweeping

2 workers for every 7500 m2

Tractor trailers 1 for every 6 to 8 tons of waste,3 to 4 trips a day

1 driver + 3 loaders

Unloading distance is less than 10 Kms,

Tipper Truck (Big) 1 for every 8 to 12 tons of waste,3 to 4 trips a day

1 driver + 4 loaders

Unloading distance is more than 10 Kms,

Cleaning of Public Toilets

Brooms/Brushes 4 nos for each worker / year 1 worker for every 2 toilet blocks consisting 10 WCs, with three time cleaning Gloves 4 set for every worker / year

Boots 1 set for every worker / year

Uniforms 2 sets for every worker / year

Note: The updated action plan template is provided in the CD

5. The entire administration of swm department to Be under one umbrellaWith a view to avoiding the problems of lack of coordination and passing of the responsibility on

others, it is necessary to have one person exclusively in charge of SWM in the city. The overall

control in relation to collection, transportation, processing and disposal of all waste, including

workshop facilities, should lie with him. He should also be responsible for the cleaning of open

drains under 24 inches depth, collection of silt, construction waste and debris and vehicle

deployment and maintenance. This work should not be left to the Engineering Department,

which should however continue to be responsible for the removal and transportation of silt from

the underground drains, storm water drains or surface drains exceeding 24 inches depth, and the

left over waste material from their Engineering and major road works.


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6. Inter-Departmental Co-OrdinationSince the SWM department depends greatly upon the support of various departments of the local

body, more particularly the Engineering department, the Chief Executive of the local body

should hold regular monthly co-ordination meetings to sort out problems faced by the SWM

department such as expeditious repairs of roads, drains, water-supply pipe-lines etc. which cause

hindrance to street and city cleaning. The reinstatement of roads dug up by utility services should

also be given priority.

The Apex Committee should ensure that repeated digging of road is avoided for laying of

services by various utilities at time. The works to be carried out by various utilities on a

particular road should be coordinated to prevent frequent digging of roads. Laying and

maintaining of services in slums, provision of public health engineering services and water

supply for public toilets and road construction in the slums to improve overall health and

sanitation in the city may also be regularly reviewed in the co-ordination committee meetings.

7. Encouragement To NGOs and Waste Collector CooperativesNGOs may fully involved in creating public awareness and encouraging public participation in

SWM planning and practice.

The local body may also encourage NGOs or co-operative of rag pickers to enter this field and

organize rag pickers in doorstep collection of waste and provide them an opportunity to improve

their working conditions and income. The local body can give incentives to NGOs in their effort

of organizing rag pickers in primary collection of recyclable and/or organic waste, and provide

financial and logistic support to the extent possible.

8. Voluntary Organization/ Ngo/ Private Sector ParticipationSWM services are highly labour intensive on account of increased wage structure of the

Government and municipal employees this service is becoming more and more expensive.

Private sector participation or public private partnerships may be considered by urban local

bodies keeping in mind the provisions of the Contract Labour (Regulation and Abolition) Act

1970 of the Government of India. This will check growth in the establishment costs, bring in

economy in expenditure and introduce an element of healthy competition between the private

sector and the public sector in solid waste management services. There should be a right mix of


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private sector and public sector participation to ensure that there is no exploitation of labour as

well as of the management.

9 Incentives To The Private SectorSolid waste management, processing and disposal is an area where the private sector has still not

shown much interest. The private sector has, therefore, to be given some incentives by way of

long term contract, assured supply of garbage at the plant site, lease of land at nominal rates for

entering this field. This matter is explained in detail in chapter 20 of the Manual.

10 Levy Of Administrative ChargesWith a view to ensure adherence to the instructions given by the civic body to the citizens and

making them aware of their civic responsibility of not littering the street and throwing the solid

waste anywhere on the streets or open spaces, it is recommended that provision should be made

in the relevant by-laws, rules etc to recover Additional Cleaning Charges from the citizens who

dispose of waste on the street or in open public places necessitating the cleaning of the road

again by the local body. The power to levy such charges should be delegated to the supervisors

of the level of Sanitary Inspectors and above. The amount of additional cleaning charges to be

levied should be specified for different categories of offenders and should be kept higher for

repeat offences.

11 Redressel Of Public GrievancesThe local body should draw up a citizen's charter clearly stating what level of service it proposes

to provide to the citizens and how soon citizens can expect their grievances to be attended.

Sanitation being very vital for health and environment, efficient machinery should be organized

by the local body to receive public complaints and attend to them expeditiously. Formats may be

prescribed for receiving such complaints, replying to the applicants as soon as the complaints

have been redressed and for monitoring the pending complaints.

12 Management Information System

12.1 Objective

A good Municipal Solid Waste management practice is the key to keep a city clean. This

requires collection of critical information which is not just for keeping the records up-to-date but

used effectively for taking corrective measures as well as proper planning for future. Some


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information is, therefore, required to be collected to have an overall idea of the prevalent

situation; deficiency in the system and likely requirements of the further information which

could highlight deficiencies in the system on day-to-day basis and could be used for taking

corrective measures has to be collected at regular intervals to monitor the services.

Computerisation of such information helps at all the levels of administration to work not harder

but smarter, increases the level of job satisfaction, and also to establish strong and reliable

information data base necessary to facilitate the decision making and monitoring process for

management. With the advancement of information technology, Geographic Information System

(GIS) could be introduced in large cities and integrated with Management Information System.

Similarly, there is a need for a citizen interface to seek comments, suggestions etc., in respect of

utility services.

12.2 Need

Information that needs to be recorded and studied includes relevant information of the

department for planning process as well as specific information to know whether every one

involved in SWM services is performing his duty well, adequate vehicles are given to the SWM

Dept. by the workshop, the vehicles give their optimum output, the repairing and maintenance of

vehicles and equipment at the workshop is properly done, the vehicles carrying the waste to the

disposal site are optimally utilized, the processing plants are performing well, landfill sites are

well managed etc. The first thing each morning the chief executive should see is whether

anything unusual or unsatisfactory has happened needing immediate remedial measures. A list of

items is given below on which the data should be collected and kept on record for planning

purposes and a few performances are designed for monitoring the activities done by various

sections of SWM department as under which may be utilized by the local bodies with suitable

modifications.

12.3 Data collection (Monthly Information Booklet)

The Directorate Municipal administration is introducing monthly information booklet, which needs to be followed here after. This helps in monitoring of SWM activities


CMAK has prepared the online application format, which will be launched during the month of July 2009. This online application will be helpful for the administrators to monitor the activities

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I. Reports to be reviewed daily

(a) Collection of Waste:

i. Number of sweepers required to report for duty.

ii. Number of sweepers actually reporting for duty

iii. Number of sweepers absent

iv. Areas left unattended

v. Arrangements made or proposed to be made for clearing the backlog.

(b) Inspection by Supervisors for Street Sweeping & Primary Collection:

i. Number of persons required to supervise

ii. Number of persons supervised during the day

iii. Number of cases where performance found satisfactory

iv. Number of cases where performance was not up to the mark

v. Action taken or proposed to be taken

vi. Complaints received and attended

(c) Inspection of Cost Recovery Services:

Such as Hotels, Hospitals, Commercial streets and Offices

i. Number of cost recovery sites under his charge

ii. Number of sites inspected

iii. Deficiencies noticed

iv. Complaints received and attended

v. Action taken or proposed to be taken

(d) Inspection of Bulk Community Waste Storage Sites:

Number of sites in the area under his charge

i. Number of sites inspected

ii. Number of sites found well maintained

iii. Number of sites found ill maintained or needing repair or replacement

iv. Action taken

v. Number of unauthorized waste disposal sites or sites identified during field visits.

vi. Action taken


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(e) Inspection of Silt Removal Sites & Building Waste Disposal Sites:

i. Number of silt removal sites inspected

ii. Number of sites found satisfactory

iii. Number of sites where silt was found lying outside the manhole or surface drain.

iv. Number of construction sites / construction waste disposal sites visited

v. No. of sites where construction waste was found disposed of unauthorized.

vi. Action taken

(f) Recovery of Additional Cleaning Charges:

i. Name of the ward

ii. Areas visited

iii. Additional cleaning charges recovered: Number Amount (Rs)

From households

From shops

From offices

From other establishments

From road side vendors, eating points

II. Report to be sent Monthly

12.4. PROJECT MONITORING

For any Project of Solid Waste Management an effective information system is necessary to

monitor the progress as well as the operation and maintenance of the project, time to time.

12.5. PUBLIC AWARENESS AND TRAINING

12.5.1 public awareness

Public awareness is an important activity in Solid Waste Management to keep the system

sustainable. The Information related to public awareness is necessary for creating a sustainable

system.


Follow Monthly Information Booklet format to launched during July 2009and apart from that the data format provided in Annexure can also be reviewed

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12.5.2. Training to Ward Councilors

In the context of 74th amendment to the constitution with decentralized Local Body

administration training for Ward Councilors in the area of Solid Waste Management is essential.

Training for SWM staff at all levels is also essential.

12.5.3 Partnership Role for Public Awareness

1. NGO

2. CBO

12.5.4 Mode of Implementing Public Awareness Programs

1. Audio & Video program

2. IEC program

3. Child to child education

4. School education

12.5.5. Public Participation

Total number of sweepers allotted for door to door waste collection work in each

ward.

Number of sweepers getting good response from citizens in the matter of doorstep

collection.

Number of sweepers not getting response from the public

Percentage of public participation

Improvement in this area over the last month.

12.6. INSTITUTIONAL ORGANISATION

The information on Institutional Organization is very much essential for Solid Waste Management for any Town / City / Local Body with responsibilities and roles, for setting up an effective administration set-up.


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12.7. POLICY GUIDELINES

Information and Policy guidelines for Solid Waste Management regarding administration, enforcement, Waste processing concession, Hospital waste, Handling of legal matters are found essential for day-to-day management.

1. National Policy2. State Policy3. Solid waste Handling Rules notification4. Central and State PCB guidelines5. World Health Organization guidelines

12.8. FINANCIAL AND ECONOMIC ASPECT

The information on Finance and Economical aspects are essential for Solid Waste Management for implementing various schemes of projects and also to get revenue from various cost recovery system for any Town / City / local body for itsself sustenance. Also for seeking external financial assistance.

12.9. LEGAL ASPECTS

Information on Legal aspects are essential to enforce and maintain Environment Sanitation. The following information are to be made available in each Ward / Town / City and also to the public.

Municipal ActPublic Health ActPenalties and enforcementAdministrative chargesSpecial service chargesPublic Interest Litigation cases.

12.10. COMPLAINT REDRESSAL

Information on complaint redressal on public grievance is essential to update and get a feed-back on the nature of complaint and time taken for redressing complaints and for taking positive steps to improve the services to the public.Following are the steps for complaint redressal system to be followed:

1. Citizen Charter2. Centralized complaint cell3. Zonal level complaint cell4. Ward level complaint cell


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5. Norms for Redressal of complaints6. Monitoring of complaint redressal

FORMAT DAY/WEEK/MONTHSl. No. Date Name of the Complainant and Address Nature of ComplaintDetails of action takenRemarks

13. Private Sector Participation

1. INTRODUCTION

Solid waste management (SWM) is one of the obligatory functions of the urban local bodies in

the country. The local bodies are, therefore, required to provide adequate services for the

collection, transportation and disposal of waste. SWM service is highly labour intensive and on

account of increased wage structure of the Government and municipal employees, this service is

becoming more and more expensive. Besides, the efficiency of the labour force employed in the

urban local bodies is far from satisfactory. High wage structure and inefficiency of the work

force results into steep rise in the cost of service and yet the people at large are not satisfied with

the level of service being provided by the urban local bodies. It is, therefore, necessary that the

local bodies may seriously consider private sector participation in solid waste management.

2. PRESENT SCENARIO

Private sector participation is relatively a new concept in India for handling solid waste. Private

sector has so far not been attracted in this important area of municipal service. However, private

sector participation is being attempted by a few local bodies in the country for the past few years,

which has remained restricted in the area of awarding contract for transportation of waste from

waste storage depots/dust bins. In some cities, contracts are also given to clean streets, provide

bullock carts with labour for primary collection of waste, provide only vehicles with or without

drivers for transportation of waste, set up treatment facilities for the final disposal of waste with

or without financial participation of the urban local body.

3. MEASURES TO BE TAKEN BY LOCAL BODIES


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Private sector participation or public private partnerships may be encouraged/attempted by the

urban local bodies keeping in mind the provisions of

Contract Labour (Regulation and Abolition) Act 1970 of Government of India where contracting

out of the services already being provided by the urban local bodies can be prohibited/restricted

by the State Government and some states have accordingly prohibited contracting out of such

services. Therefore, while considering any measure of privatization one should keep in mind the

provisions of above law and the restrictions imposed by the respective state governments in this

matter. Urban local bodies may move the respective state governments to get exemption from

engaging contractors for providing SWM services or even privatizing those services.

Private sector participation should generally be considered in those areas where Municipal

Corporations or municipalities are not providing the service. This will check the growth in the

establishment cost, bring economy in expenditure and introduce the element of healthy

competition between the private sector and the public sector in solid waste management services.

There should be right mix of private sector and public sector participation to ensure that there is

no exploitation of labour as well as of the management.


RELEVANCE OF CONTRACT LABOUR (REGULATION & ABOLITION) ACT, 1970(a) Under Section 10(1) of the said Act, the competent authority to abolish/prohibit a particular activity or to exempt Urban Local Body from the purview of the said Act is the concerned State Government.(b) Unless and until a particular activity under the said Act is abolished/prohibited by the “Appropriate Government”, the contract labour can be employed.(c) If a particular activity is of perennial nature, “Appropriate Government” can abolish such activity under Section 10(1) of the Act, in consultation with the Advisory Board and direct the local body to carry out such a function with its own labour/work-force and not through contract labour.(d) If a State Government which is an “Appropriate Government” for a local body has not prohibited activities such as street sweeping, garbage collection, etc., contract labour can be employed by a local body to carry out the same until the State Government abolish such activity.(e) If a private agency takes up the job of collection of household waste and transport the same either to the municipal dust bin or up to the designated dumping sites as per an agreement reached with individual household or by the residential associations, the said activities cannot be taken as done at the instance of the Urban Body and such Urban Local Body can not be taken as the principal employer.(f) The existing contract labour Act is being considered for review by the Government and it will take some time to finalise the same.Source: Ministry of Labour, Govt. of India.

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4. AREA WHERE PRIVATISATION CAN BE ATTEMPTED

Private sector participation may be considered in newly developed areas, under served areas and

particularly in the areas where local bodies have not been providing service through their own

labour force. Some of the examples of the areas where private sector participation can be

considered are as under: Door to door collection of domestic waste, door to door collection of

commercial waste, door to door collection of hospital waste, hotel waste, construction waste,

market waste, setting up and operation and maintenance of waste disposal facility, setting up and

operation and maintenance of waste treatment plants, supplying vehicles on rent, supplying

vehicles on lease, repairs and maintenance of vehicles at a private garage, transportation of waste

on contractual basis, etc.

The contracts should carry a provision of penalty for failure to perform the contractual

obligation. The local body while giving a contract to a private sector, voluntary

organization/Non-Governmental Organisation (NGO) should make an enabling provision in the

contract to inspect the performance of the private contractor from time to time and as a matter of

rule should inspect the performance of the private contractors to maintain the quality of services,

prevent corrupt practices and take remedial measures,. The formats should be prescribed for such

inspections and results of inspections should be reported to the higher authorities at regular

intervals.

The local body may also encourage NGOs to enter into this field and organise the waste

collectors in doorstep collection of waste and provide them an opportunity to earn their living.

The local body can give incentive in cash or kind to NGOs in their effort of organising waste

collectors in primary collection of recyclable and/or organic waste.

5. INCENTIVES TO PRIVATE SECTOR

Solid waste management is one such an area where private sector has still not found much

interest. Private sector has, therefore, to be given some incentives by way of long term contracts,

assured supply of garbage at site, lease of land at nominal lease rent, etc., for entering this field.


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Contracts may be given for collection & transportation (As per the approved action plan) for a

period not less than 3 years so that the contractor may be in a position to invest money for

buying equipment. The contractors will have no interest in short-term contract, as investment

made may become redundant if the contract is not subsequently renewed.

Private sector may be offered waste land at a nominal rent for not less than 15 years for setting

up treatment plants such as compost plant, bio-methanation plant, energy generation plant, etc.

The terms for getting royalties from the private sector can be worked out by local bodies through

mutual negotiations.

If vehicles etc. are to be taken on rent or workshop facilities are to be taken

from private sector, the term of contract can be for 3 to 5 years so as to enable the private sector

to invest money in the procurement of vehicles and machinery.

However, private sector participation may be encouraged in such a way that it does not affect

the interest of the existing labour, it does not violate the provisions of the above law, does not

exploit the private labour and yet reduce the burden of the urban local body of new

establishment. This will substantially help in improving the quality of service of the urban local

bodies, effect economy in expenditure and would also give a scope to private sector entering in

waste management market.

An arrangement of BOO (Build, Own and Operate), BOOT (Build, Own, Operate and

Transfer) or any other arrangement which may be transparent and beneficial to local body may

be made keeping in view above observations.

There may be situations where urban local bodies may not have adequate lands for waste

treatment and/or disposal or local bodies find it difficult to manage the same departmentally. In

such situations they may consider private sector providing waste treatment and disposal facilities

on its own land or on municipal land and local body may pay tipping fees for the treatment and

disposal of their garbage by private entrepreneur. However, cost benefit analysis should be

carefully carried out by the local body while agreeing to such an agreement.

6. SOME EXAMPLES

Bangalore, Jaipur, Rajkot, etc., cities award contracts for transportation of waste from the

temporary waste storage depots through contractor’s labour and vehicles. Tenders are invited and

the lowest bidders are given the annual contracts for transportation of waste. Payments are made


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on per metric tonne basis, restricting the total tonnage per truck and having a penalty provision

for failure to perform or delay in clearance of bins.

In the city of Surat contracts for night cleaning of important roads are given to keep the major

roads clean. Rate per square metre is fixed for making the roads dust free with the help of

brushes. The measurements of roads are taken keeping in view the portion of the road width to

be cleaned and not the entire road width. Giving contract of cleaning 0.75 metre road width on

each side of the road is considered adequate for street cleaning to keep the roads clean and dust

free.

Hyderabad city has introduced a contractual system of street cleaning as well as transportation

of waste where the city is divided into operational groups and contract is given keeping in view

the quantities of waste generating in that area under normal circumstances. The contractors are

paid fixed monthly amount for the area allotted to them.

City of Mumbai, Bhopal, Bangalore, Thane, Ahmedabad, etc., have entered into a contractual

arrangement with private sector for setting up compost plants themselves or through a franchisee

where either the private sector or its franchisee invest money and the local body provides assured

quantity of garbage at the processing plant without levying any changes. The private sector pays

some royalty to local body and undertakes all the responsibility of managing the waste and its

conversion into compost

The State Government of Tamil Nadu has exempted the Chennai Municipal Corporation from

the purview of contract labour (Regulation & Abolition) Act 1970 vide its order No. 40 MS No.

99 dated 8th July 1999 allowing the said municipal corporation to engage contract labour for

sweeping and scavenging activities. The private sector participation has been operationalised in

one zone of the city since 5th March, 2000.


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At the end of the chapter the participants will understand the concepts of IEC, importance and effective utilization of tools for better implementation of MSWM

CHAPTER 5

Information, Education & Communication

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5.1 Introduction

A clean city is a concerted effort by the city managers and the civil society. The

decision-making process for managing solid waste in urban areas is going through a

paradigm shift from the “decide, announce, defend” premise of local authorities to more

involved public participation.

Solid waste management (SWM) is an activity in which public participation holds the key

to success. An urban local body (ULB) can never be successful in SWM without active

community participation. The solution is not in the hands of one stakeholder but

depends on the interest and participation of all stakeholders.

Awareness and education campaigns should target municipal authorities, elected

representatives, schools, nongovernmental organizations (NGOs), media, trade

associations, families, and the public at large. To economically and efficiently operate a

waste management program, regardless of the strategy, requires significant cooperation

from the waste generators. Public involvement is therefore necessary in all waste

management and disposal activities.

5.2 What is Information, Education, and Communication (IEC) Providing INFORMATION about the management system and initiatives likely to be

taken by ULB

EDUCATING stakeholders about the advantages of MSWM and their behavior

which could cause environmental pollution/ Nuisance

COMMUNICATION among the public/ community/ stakeholders to create

awareness, thereby making MSWM sustainable

4.3 IEC activities Themes Sensitize the community about ill effects of improper waste handling & disposal

Assist community to appreciate financial benefits of source segregation

Educate community not to oppose new scientific system as it involves required safe

guards to prevent pollution


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Encourage Citizens to pay user charges for primary collection of waste

Promote Community to support engineered disposal facilities to avoid environmental

degradation


Dayal Committee of Government of India (Report 1995) has advocated that IEC approach should Ensure that the people become aware of the problems of waste

accumulation and the way it affects their lives directly. Ensure that the people generate less waste by cutting back on

waste generating material and by following clear defined practices of waste management.

Create public awareness against big waste generators and provide information to monitor the performance of these sources of waste.

Inform the people about waste management program of the government and municipal bodies.

Promote public participation in waste management efforts through private partnership where feasible.

Propagate the message that the "Clean City Program" is both analytical and purposive and that solutions proposed are within the framework of government initiatives and legally appropriate.

Citizens co-operation is vital to reduce, reuse and recycling of waste and in

keeping garbage off the streets, by keeping biodegradable "wet" kitchen

and food wastes unmixed and separate from recyclable "dry" wastes and

other hazardous wastes. Their participation in primary collection of waste,

using community bins for storage of waste generated in multistoried

buildings, societies, commercial complexes and slums is also essential. If

the reasons for doing so are explained, public participation is bound to

improve.

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5.4 Strategy for integrated waste management Community participation in management system

Source segregation is the primary focus

Handholding CBO’s/ RWA’s

Promote or develop creative communication tools & IEC materials

Encourage stakeholders in Monitoring system

Documentation & Analysis, followed by learning

Review & improve of IEC planning

5.5 Community Participation in SWMCommunity is in the centre of all the activities, yet it is ignored by the decision makers

and made to merely wait and watch and ultimately what people get in hand is what they

do not want or what is not in their priority. This creates a void between the

administrators and those administered and an atmosphere of apathy is created which

distances people from government initiatives. Public awareness, effective community

participation, transparent and clean administration, introduction of citizen charters and

accountability at all levels can only bridge this gap.

The urban local body can never be successful in MSWM without active community

participation, whatever may be the investments made from the municipal or

Government funds. The local bodies are the institutions of grass root democracy having

elected members representing a small group of electorate. It also has an outreach

service at the ward level through which it can easily interact with the people on almost

all-important issues. The local body should therefore, seriously consider involving

community in all programs

5.5.1 Identification of the Areas in Solid Waste Management Where Community Participation is EssentialSWM involves several stages of activities where people's participation is critically

required in some of them and urban local body has to do the rest of the work. Following

are essential areas where in public participation is critical

1. Reduce, Reuse & Recycling (R R R) of waste.


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2. Not to throw /litter on the streets, drains, open spaces, water bodies, etc.

3. Storage of organic/bio-degradable and recyclable waste separately at source.

4. Primary collection of waste

5. Community storage/collection of waste in flats, multi-storied buildings, societies,

commercial complexes, etc.

6. Pay adequately for the services provided (user fee).

7. Awareness creation among themselves

8. Waste processing/disposal at a community level (optional)

5.5.2 Reach the CommunityThe local body should decide the methodology to be adopted for reaching the

community and seeking their cooperation and effective participation in SWM services.

This is a very difficult area of activity and unless this is done meticulously, desired

results will not be achieved.

The essential steps in this direction is to select representative samples of the

community and go through a consultative process to ascertain the perceptions of the

people about the SWM services being given to them, their expectations and extent to

which they are willing to support and participate in the process. Their choice of

technological options available also needs to be ascertained.

The consultative process could be taken up as under: -

a. Identification of ProblemsIdentify problems of waste management through site visits and consultation with local

population at the time when the community is generally available for interaction. It may

either be in early morning or late evening. The areas may be selected by following the

method of drawl of representative samples. Situation analysis may be done by the

persons who know the subject reasonably well, know local language and can

communicate with local population effectively. Such persons may be Non-Governmental

Organizations, Community Based Organizations or knowledgeable individuals. They

should try to find out the prevalent situation of waste management in the area under

observation and ascertain the perceptions of the people about the services provided. In


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this exercise the local councilors, local leaders, NGOs, etc., may be invited to

participate.

b. Finding out Optional SolutionsHaving identified the deficiencies in the system and known the public perceptions, the

next essential step is to think of optional solutions to tackle the problems, workout the

cost implications and level of public participation needed.

c. Consult Community on Options AvailableHaving done this homework, there should be second round of consultative process

where the options worked out may be discussed with the community along with cost

implications and their support required. Their suggestions may be sought on each

solution proposed. The community may be encouraged to give their views freely.

If we ask the people straight away the solutions of the problems they may not be able to

give right kind of suggestions as they have no exposure of various technological

options. They must, therefore, be first appraised of the options available and then asked

to give their considered opinion on what will work in their area and how much they are

willing to cooperate.

d. Workout the Strategy of ImplementationAfter the consultative process, strategy for implementation of the system may be

worked out and pilot projects may be taken up in the areas where better enthusiasm is

noticed and demonstrate the successes to other areas and gradually implement in rest

of the areas of the city/town. It is desirable to implement the new program in a few areas

to begin with, monitor its success carefully and extend the program to other areas

thereafter with suitable modifications wherever necessary.

5.6 Action plan for IEC activitiesPlanning of IEC activities is the most crucial and fundamental aspect SWM. A

systematic approach, keeping in view of social, technical and financial aspects has to

be developed in association with community participation. Following are the steps

towards achieving successful implementation MSWM

1. Stakeholder Identification

2. Identify IEC Tools

3. Prepare IEC Activity chart


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4. Develop IEC .Materials

5. Implementation of IEC activities

6. Documentation

7. Monitoring of activities

8. Enforcement

5.6.1 Identify Stakeholders/ Target Group

5.6.2 IEC Tools and Techniques

Limited target

Organizing workshop/public hearing/interaction session

Door to Door motivation

Conduct Awareness Programs for School

Circulate Pamphlets

Competition, debates, drawing competitions,

Conduct field visit

Infinite target

Usage of Media- TV, News Paper, Video shows, Tele-film,

Place Hoardings, Posters at strategic locations in the city


Individual Household Community (RWA/ CBO)

SHG’s/ NGO’sNCC, NSS, Scouts,

Elected representativesStanding committee

Professional Practitioners(Engineers, Doctors)

Others(TV, Theatres, Tourists, Guides etc)

Stakeholders/ Stakeholders/ Target GroupTarget Group

Institutions

Large Bulk Generators(Hotel, Markets, choultry)

Small Bulk Generators(Street vendor, Mobile vendor)

Bulk Generators

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Conduct Rallies, Jatha

Mike Announcements to be regular

Involvement of religious leaders, medical Practitioners, noted personalities

Organize Street Play, field visits

Clean-up Drives through collaborative effort

Signature Campaign

Conduct Exhibition

Use of mop up Vehicles to sensitize the people

Preparation of booklets

Circulate Technical Manuals

Developing Key Messages

Note: the samples are here with enclosed in Annexure & CD

5.6.3 Preparation of IEC activity chart

For Each of target group, select different tools

Prepare a time schedule

Estimate the cost required

5.6.4 Develop IEC materials

The IEC toolkit has been provided for this purpose, where in different types of IEC materials

samples is given. The different types of IEC materials need to be developed depending on the

location and target groups for materials like banners, hoardings, pamphlets etc. Sufficient

number of IEC material copies to be made available.

5.6.5 Implementation of IEC activities

Implement IEC activities as per schedule or plan.

Note: the sample format are here with enclosed in Annexure & CD

4.6.6 Documentation

Prepare & submit Monthly, Quarterly and Annual report on:

List of activities carried out/proposed

Expenditure/budget


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List of institutions/organizations/establishments/individual participation in propagation of

awareness to be maintained

Training and capacity building of ULB staff

Any other public interaction related activity

Lessons learnt

5.6.7 Monitoring Mechanisms

Developing Monitoring Formats from Community level to city level

Public Grievances Documentation and circulation among the stakeholders

Continuous Feed Back Questionnaires to improve the system

Introduce “SWATCHA ADALAT” (An interactive session, where in public hearing of

MSWM related problems at least once in two months)

5.6.8 Enforcement

All said and done, all human beings are not the same. There are people who understand easily as

soon as they are told to behave, there are also people who are hard to understand and there is a

special category of people who do not want to understand. While all efforts should be made to

educate the people to effectively participate in the management of waste, they also need to be

told that they can be punished if they fail to discharge their civic duties. The provision of

penalties may be made known to the people and details of those punished should be publicized

widely to deter others.

To begin with, the enforcement should begin at the public places, market places, etc. and

gradually extended to cover residential areas. Discipline should be brought about in the public

offices first so that correct examples be set before the people.


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Bangalore: Swabhimana

Through Swabhimana, a platform of NGOs, stakeholders (different groups

of citizens and governmental agencies) and waste retrievers were made

aware of the SWM problem.

Residents were motivated and formed into committees. Meetings and

competitions were organized as were camps and treks. Programs in

schools showed films and distributed posters, pamphlets, handbills, and

songs. Through such programs, many other methods of communicating

messages relating to waste management were shared with the citizens.

Training programs were also held for all levels of officials of the

government agencies working in the area. Meetings were also held with the

contractors who were in charge of clearing the garbage.

Priorities were set on the basis of achieving maximum participation from

citizens by involving them in the planning, in motivating their neighbors, and

in executing the project through citizens committees. Both the Bangalore

Development Authority and the Bangalore City Corporation are fully

involved as implementing agencies along with Swabhimana. The citizens,

because of these stakeholder analysis activities, have found a direct link to

these government agencies.

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Citizens Charter in Namakkal: A 10-Point Charter to Achieve Zero-Garbage StatusBy implementing the tasks on its 10-point charter, Namakkal became free of garbage. It

announced its zero-garbage status on January 7, 2003. The charter follows:

1. Extend the scheme of door-to-door collection with segregation to the entire town and make streets and roads free of garbage.

2. Introduce night sweeping at bus stands and on important roads and maintain cleanliness throughout the day.

3. Extend door-to-door collection and street sweeping to holidays and Sundays. 4. Maintain parks, gardens, and open spaces through participation by NGOs and

voluntary agencies. 5. Remove encroachments from roads and streets and prevent reencroachments. 6. Prevent the roadside hotels, truck repair shops, and other businesses from dirtying

Salem Road and maintain the road by planting trees. 7. Remove stray pigs and dogs from the town. 8. Levy SWM service charges on hotels, kalyanamandapam (marriage halls),

commercial complexes, and garbage-generating industries. 9. Generate vermicompost from organic waste through eco-friendly techniques by

involving voluntary organizations and private bodies on a build, operate, transfer basis, sell the inorganic recyclable garbage, and convert the compost yard into nandavanam (gardens).

10. Engage two mop-up teams with two auto model carriers to remove waste around the clock and make the town free of garbage all the time.

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At the end of the chapter the participants will understand the options available for treatment of MSWM and selection of treatment technologies for their city

CHAPTER 6

Waste Treatment Technologies

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6.1 Introduction

Municipal Solid Waste Management involves the application of principle of Integrated Solid

Waste Management (ISWM) to municipal waste. ISWM is the application of suitable techniques,

technologies and management programs covering all types of solid wastes from all sources to

achieve the twin objectives (a) waste reduction and

(b) Effective treatment of waste.

Waste Reduction

It is now well recognized that sustainable development can only be achieved if society in

general, and industry in particular, produces ‘more with less’ i.e. more goods and services with

less use of the world’s resources (raw materials and energy) and less pollution and waste.

Production as well as product changes have been introduced in many countries, using internal

recycling of materials or on-site energy recovery, as part of solid waste minimization schemes.

Effective treatment of Waste

Effective solid waste management systems are needed to ensure better environment, human

health and safety. They must be safe for workers and safeguard public health by preventing the

spread of disease. In addition to these prerequisites, an effective treatment system must be both

environmentally and economically sustainable.

1. Environmentally sustainable: It must reduce the environmental impacts of waste management

as much as possible.

2. Economically sustainable: It must operate at a cost acceptable to community


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6.2 Hierarchy of Waste Management Options

Waste Management HierarchyKey Initiatives to achieve objectives

Indicators of ISWM ProcessActivity Objective (Priorit

y)

Waste minimizat

ion

Minimize the quantity of waste generated

1-Highest

1. Financial incentives for minimizing waste generation &/or disincentives for waste generation

2. creation of market demand for "low waste" products

3. Establish responsibility of those who profit from products to participate in managing those products when they are discarded

4. Public awareness in support of waste minimization.

Reduction in amount of

waste generated

Collection

Remove waste from all urban areas

25. Rationalize over serviced areas6. Phase increased service into under serviced

areas

percent of population receiving service

Reuse

Where feasible, reuse products discarded as waste

3

7. Financial incentives to encourage reuse8. Link cost of disposal to generator of the

waste9. control import of used products10. Establish responsibility of those who

profit from products to participate in managing those products when they are discarded

11. Create reuse infrastructure & systems12. Establish health, safety & environmental

reuse standards

Use of reusable

products in preference

to disposable products where

choice exists

Compost (Recycle)

Recover the value from wastes through

4 13. Use Financial incentives/ market value of materials to encourage recycling/ composting

Decline in quantity of recyclable/

compostable


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composting

14. link cost disposal to generator of the cost15. control import of non recyclables/ non

compostable products16. Establish responsibility of those who

profit from products to participate in managing those products when they are discarded

17. create technology appropriate recycling/ composting infrastructure & systems

18. Establish health, safety & environmental recycle standards

material in waste

disposal facilities

Waste to Energy (Energy

Recovery)

Recover energy from waste through alternate technologies- Production of electricity, gas etc

5

19. Establish tipping fees20. create technology appropriate energy

recovery infrastructure & systems21. Establish health, safety & environmental

recovery standards22. May need to guarantee delivery of fixed

tonnage & calorific value of waste23. provide disposal capacity to

accommodate ash & residual wastes24. Ensure availability of supplementary fuel

to fire incinerator systems

Decline in quantity of

waste in waste

disposal facilities

Adequate protection of

human health &

environment

Disposal of waste

Protect human health & the environment from the effects of residual wastes

6-Lowest

25. Establish health, safety & environmental disposal standards

26. Appropriate selection of waste disposal sites & technology

27. Charge for use of waste disposal facilities on full cost accounting basis, and on user pay basis

28. Establish responsibility of those who profit from products to participate in managing those products when they are discarded.

Reduced reliance on

waste disposal

facilities for managing discarded

waste

Adequate protection of

human health & the environment

.

6.3 Waste treatment options

The waste treatment options for effective waste management systems are


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1. Resource recovery through sorting and recycling (4R’s) i.e. recovery of materials (such as

paper, glass, metals etc.).

2. Resource recovery through waste processing i.e. recovery of materials (such as compost) or

recovery of energy through biological, thermal or other processes.

3. Waste transformation (without recovery of resources) i.e. reduction of volume, toxicity or

other physical/chemical properties of waste to make it suitable for final disposal.

Source separation of bio-waste, construction and demolition waste as well as hazardous waste is

rarely done; consequently most of the waste collected is a mixture of these components. Such

mixed waste is rarely suitable for biological\ processing or thermal processing as it has high

content of inert material, low calorific value and indeterminate mixing of hazardous elements

(such as insecticides, paints, batteries etc.) at the micro level. In some cities, good quality bio-

waste is collected from fruit and vegetable markets and subjected to biological processing

(aerobic) to produce compost. Such processing plants help reduce the quantity of waste reaching

landfills.

Thermal processing of mixed municipal waste has not been successful in India. Biological

processing of mixed municipal waste yields low quality compost which may have contaminants

in excess of permissible limits. Biological processing becomes viable once construction and

demolition waste and hazardous waste streams are isolated from the bio-waste stream.

Thermal processing of waste becomes viable only if sufficient high calorific value components

(such as paper, plastic) are present in the waste. Waste transformation is usually not a major

component in an integrated municipal waste management system. However, some sorting and

shredding at the landfill site may be undertaken as transformation processes prior to land filling.

6.3.1. Resource recovery through sorting and recycling

A Types of Sorting

i. Sorting at Source

Sorting at source (home sorting) is driven by the existing markets for recyclable materials and

the link between the house holder and the waste collector

ii. Centralized Sorting


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Centralized sorting is needed wherever recyclable materials are collected in a commingled

(mixed) state. Mechanized sorting facilities using magnetic and electric field separation, density

separation, pneumatic separation, size separation and other techniques are used in some

developed countries. Such facilities are usually prohibitively expensive in comparison to hand

sorting.

iii. Sorting Prior to Waste Processing or Land filling

Home sorting and centralized sorting processes normally recover most of the recyclable

materials for reuse. However, a small fraction of such materials may escape the sorting process.

Sorting is also undertaken just prior to waste processing, waste transformation or land filling to

recover recyclable materials. In a landfill, sorting may be carried out by rag pickers immediately

after spreading of a layer of waste. In waste processing or transformation centre’s, manual

sorting or size separation is usually undertaken.

B Sorting Operations

Sorting can be carried out manually or through semi-mechanized and fully mechanized systems

i. Manual sorting operations comprise of

(a) Unloading the waste

(b) Manually (with protective measures) spreading the waste

(c) Hand picking (with protective measures) visually identifiable waste for reuse

(d) Collecting and stockpiling the remaining waste.

ii. Semi-mechanized sorting operations comprise of

(a) Unloading of waste (mechanized)

(b) Loading of waste on conveyor belts (mechanized)

(c) Hand picking of visually identifiable waste off the belt for reuse (manual)

(d) Collecting, stocking and reloading the remaining waste (mechanized)

iii. Fully mechanized sorting operations comprise of

(a) Unloading of waste

(b) Size reduction of waste through shredders and crushers

(c) Size separation of waste using screening devices

(d) Density separation (air classification) of waste

(e) Magnetic separation of waste


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(f) Compaction of waste through balers/crushers

(g) Reloading of waste

C Reduce, Reuse, Recycle, Recovery (4R Concept)

Reduce

Ideally, waste should be avoided. Waste that can be avoided stops being a burden for the

municipality. Valuable natural resources can therefore be saved

Reuse

Reuse happens when something that already fulfilled its original function is used for another

purpose. However, reuse does not involve reprocessing or transforming the item. Old tires that

are used in fences or as boat fenders, steel drums that are reused as compost bins, or plastic bags

that are reused as liners for household waste bins.

Recycling

Recycling means the reprocessing of used materials that would otherwise become waste.

Recycling of organic matter produces compost, which can be used as a soil substitute in gardens

and horticulture and contributes to improved agricultural production.

Recovery

Recovery relates mainly to energy recovered from waste. Waste that cannot be reused or

recycled can be, for example, incinerated to generate heat or electricity. Another option—for

organic waste—is anaerobic digestion to produce biogas. The appropriateness of such recovery

strategies depends on the composition and calorific value of the waste.

D Guidelines for Sorting For Material Recovery

(a) Sorting of the waste at the source must be accorded the highest priority by the urban local

bodies.

(b) The existing system of the kabari-wallah, which efficiently recovers the dry-recyclables and

bulky waste (white goods) from the source, must be facilitated.

(c) The role of rag pickers in collecting and recovering recyclables (not taken by the

kabariwallah) must be recognized and strengthened at the community level by using their

services at the household/source level with the help of NGOs/private sector participation.

(d) Municipalities must have separate waste collection, transportation and disposal streams for:


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(i) Biodegradable waste

(ii) Mixed waste (comingled waste)

(iii) Construction and demolition waste

(iv) Hazardous waste

(e) Biodegradable waste should be used for biological processing at a central facility/

decentralized facility.

(f) Construction and demolition waste should be processed for re-use or stored in landfill cells

capable of being mined for reuse.

(g) Hazardous waste should be transferred to hazardous waste landfill or processed

appropriately.

(h) Horticulture waste from parks and gardens should be composted at the site or at a

decentralized facility to be operated by the municipality.

(i) Mixed waste (comingled waste) should be sorted into the various streams listed in section 8.8

either at a transfer station or at a centralized sorting facility. If this is not feasible, mixed waste

can be sent to a processing facility which has a well designed pre-sorting/post-sorting facility

where the mixed waste can be sorted into separate streams. Mixed waste not found suitable for

processing should be land filled

6.3. 2. Resource recovery through waste processing

Biological or thermal treatment of waste can result in recovery of useful products such as

compost or energy.

i. Biological Processes

Biological treatment involves using micro-organisms to decompose the biodegradable

components of waste. Two types of processes are used, namely:

(a) Aerobic processes: Windrow composting, aerated static pile composting and in-vessel

composting; vermi-culture etc.

(b) Anaerobic processes: Low-solids anaerobic digestion (wet process), high solids anaerobic

digestion (dry process) and combined processes. In the aerobic process the utilizable product is

compost. In the anaerobic process the utilizable product is methane gas (for energy recovery).

Both processes have been used for waste processing in different countries – a majority of the

biological treatment process adopted world-wide are aerobic composting; the use of anaerobic

treatment has been more limited.


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ii. Thermal Processes

Thermal treatment involves conversion of waste into gaseous, liquid and solid conversion

products with concurrent or subsequent release of heat energy. Three types of systems can be

adopted, namely:

(a) Combustion systems (Incinerators):

Thermal processing with excess amounts of air.

(b) Pyrolysis systems:

Thermal processing in complete absence of oxygen (low temperature).

(c) Gasification systems:

Thermal processing with less amount of air (high temperature).

Combustion system is the most widely adopted thermal treatment process world-wide for MSW.

Though pyrolysis is a widely used industrial process, the pyrolysis of municipal solid waste has

not been very successful

6.3.3. Waste Transformation Prior to Disposal

At the end of all sorting processes, biological processes and thermal processes, the non-utilizable

waste has to be disposed off on land. Prior to this disposal, waste may need to be subjected to

transformation by mechanical treatment, thermal treatment or other methods to make it suitable

for land filling.

Mechanical Transformation

Sorting of waste may be undertaken to remove bulky items from the waste. Shredding of waste

may be undertaken for size reduction to enable better compaction of waste.

Thermal Transformation

In regions where land space is very scarce (e.g. islands), waste with low calorific value may be

subjected to combustion without heat recovery to reduce the volume of waste requiring disposal

on land.

Other Methods

To reduce toxicity of wastes e.g. hazardous wastes or biomedical wastes, special detoxification

transformations may be undertaken. Some methods used are autoclaving, hydroclaving,

microwaving, chemical fixation, encapsulation and solidification. These methods are usually not

applied to MSW.


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6.4 Basic Factors in Planning and Execution of WTE plants

The important factors which need to be considered and taken into account while planning any

Waste to Energy facility and for selecting most appropriate, Techno-economically viable

technology, are given below:

i. Cost of Collection & Transportation of Wastes

The logistics of waste collection/ segregation and its transport to plant site are of fundamental

importance. Sufficient consideration should be given to the costs involved in the same. In the

specific case of MSW, collection and transportation costs often account for the largest proportion

of MSW treatment costs, which may be as high as 70% and may preclude consideration of

certain technologies e.g. Sanitary Landfilling at faraway sites.

ii. Scale of Treatment

The waste quantity available/ to be processed is another major factor requiring careful

consideration. Large scale treatment would be advantageous for large cities where large waste

quantities are discharged in limited area. Small scale treatment on the other hand may be more

suitable for low discharge density/ small quantities of wastes to be treated. Such facilities will

have the advantage that they can be operated easily and quickly. However, collection and

transportation costs in this case (involving wide area) are bound to be higher than in the latter

case involving a limited area, and a trade-off will be necessary.

iii. Local Conditions/ Existing Waste Management Practices

The viability of any Waste to Energy Project, critically depends upon an assured availability of

the requisite quantities and quality of the waste. Implicit, therefore, will be the need to ensure

proper linkages in waste management right from its generation at source to final disposal. The

waste management practices generally vary with: the local socioeconomic and physical

conditions, rates of waste generation, and wastes composition. The last two factors also

determine the potential for energy recovery within the over all frame-work of the waste

management system. The local socioeconomic conditions and existing SWM practices may,

however, over-ride certain solutions which otherwise are techno-economically more viable.

Conversely, there will be a need to improve the existing waste management practices/ local

conditions to suit the selected technological option/ maximize energy recovery component. For

example, wastes of different qualities from different activities often get mixed up with the Urban

Municipal waste stream. Some of these wastes have a very high percentage of organic matter and

accordingly a high energy recovery potential. It should, therefore, be ensured that such wastes


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are collected and transported directly to the energy recovery facilities and not allowed to get

mixed up with other waste streams with low energy recovery potential.

iv. Physical and Chemical Characteristics of the Waste

A careful evaluation of percentage of bio-degradable/ combustible constituents/ moisture content

of the waste and its chemical composition is necessary for selection of most appropriate

technology.

Wastes from vegetable/ fruit yards and markets, agricultural and food processing units etc.

contain high concentration of bio-degradable matter and are suitable for energy recovery through

anaerobic de-composition. Solid wastes having a high proportion of paper and wood products, on

the other hand, will be suitable for incineration.

The composite solid wastes in urban areas in India are characterized, in general, by low

percentage of combustibles and high percentage of inorganic/ inerts and moisture and are not

very suited for incineration. The waste is generally rich in bio-degradable matter and moisture

content and can be treated anaerobically in Sanitary Landfills or Anaerobic Digesters for energy

recovery.

In situations, where waste containing high percentage of combustibles and low percentage of

inorganic/ inerts and moisture, is either available or can be 306 ensured, through either adoption

of effective waste segregation/ processing methods or in any other manner, the Incineration /

Gasification / Pyrolysis options can be gainfully utilized.

v. Seasonal Fluctuations in Wastes Quantity & Quality

This is important as any imbalance between the availability of requisite quantity and quality of

wastes and the energy demand/ utilization pattern may adversely affect the project’s viability. In

case of conversion to steam/ heat energy, it would be necessary to consume them in the vicinity

of the plant as soon as produced. Otherwise, the technologies of transportable and storage type

energy conversion viz. gasification/ pyrolysis (conversion to fuel oils), densification (conversion

into fuel pellets) may be considered to tackle such imbalance.

vi. Treatment/Disposal of Rejects/Effluents

The method of treatment and disposal of the final rejects/ effluents should be considered in

advance. The utility of the same should also be considered as in case of anaerobic digestion,

where about 70% of the input is discharged as sediment (digested sludge), but the same after

being stabilized through aerobic treatment, can be used as a good fertilizer.


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It should be borne in mind while adoption of any particular technology that MSW, though not

classified as Hazardous or Toxic, may also contain some such waste component (solvents, paints,

pesticides, sewage sludge, pathological wastes from hospitals, etc.). Proper Waste management

requires that such waste materials are stored, collected, transported and disposed off separately,

preferably after suitable treatment to render them innocuous and not mixed with the Urban Waste

stream. The possibility, however, of Toxic & Hazardous wastes being present in the MSW,

should be carefully examined and duly taken into consideration during their treatment/

processing and in the design of the WTE plants. Plastic wastes may account for 1-10% of the

total Municipal Solid Wastes.

They are highly resistant to bio-degradation, which makes them objectionable for release to the

environment and of special concern in waste management. Plastics have a high heating value

making them very suitable for incineration. However, PVC when burnt, may, under certain

conditions, produce dioxin and acid gas, which calls for adequate safety measures as already

discussed in previous sections.

vii. Energy End-Use

Effective marketability of end products (thermal energy/power/fuel oil/gas/pellets) will be a

crucial factor determining the projects viability and needs to be tied-up in advance. In case of

projects aimed at power generation, the availability of grid close to plant site would, of course,

be necessary to enable wheeling of the generated power to third parties or its sale to utility.

viii. Capital and Recurring Costs

These will be governed by, inter-alia, the Land area requirements and the auxiliary power/water

requirements of the project besides availability of infrastructure and manpower with adequate

expertise and skill for smooth operation and maintenance.

ix. Environmental Impact

A relative assessment of different technological options from environmental angle is necessary

keeping in view the existing regulatory standards. The basic approach adopted should be to

promote environmentally sound waste disposal and treatment technologies and wherein energy

recovery is only an additional benefit. It should also be kept in view that a problem/ solution in

waste disposal does not become a problem in air pollution or water pollution. In general, the

ideal technology to choose should be the one which requires, per unit volume of the waste

treated, the minimum space, generates the minimum rejects requiring further disposal and/ or

effluents requiring least treatment before final usage on discharge, demands least O&M efforts


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on the part of user agency in terms of both O&M expenditure and manpower, has the best impact

on minimizing environmental pollution, requires the least initial capital investment and, of

course, recovers the maximum net energy. In practice, however, a trade-off between these

aspects would have to be made and the decision based on techno-economic viability of any

option at the specific site keeping in view the local conditions and the available physical and

financial resources.

6.5 Technologies Available for Municipal Waste Treatment

6.5.1. Composting

Composting is defined as a controlled process involving microbial degradation of organic matter

(MoEF, 1999). There are various types of composting, but they can be categorized into three

major segments – aerobic composting, anaerobic composting and vermicomposting.

a Anaerobic Composting

In this form of composting, the organic matter is decomposed in the absence of air. Organic

matter may be collected in pits and covered with a thick layer of soil and left undisturbed for 6-8

months. The compost so formed may not be completely converted and may include aggregated

masses

b Aerobic Composting

A process by which organic wastes are converted into compost or manure in presence of air,

aerobic composting may be of different types. The most common is the Heap Method where

organic matter needs to be divided into three different types and need to be placed in a heap one

the other, covered by a thin layer of soil or dry leaves. This heap needs to be mixed every week

and it takes about 3 weeks for conversion to take place.

In the Pit Method the same process as above in done, but in pits specially constructed/dug out for

this purpose. Mixing has to be done every 15 days and there is no fixed time in which the

compost may be ready (depends on soil moisture, climate, level of organic material, etc.). The

Berkley Method uses a labour intensive technique and has precise requirements of the material to

be composted. Easily biodegradable material, such as grass, vegetable matter, etc., is mixed with


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animal matter in the ratio of 2:1. This is piled and mixed at regular intervals. Compost is usually

ready in 15 days

c Vermi composting

Vermi composting involves use of earthworms as natural and versatile bio-reactors for the

process of conversion. Vermi composting is done in specially designed pits where earthworm

culture also needs to be done. As compared to above, this is a much more precision-based option

and requires overseeing of work by an expert. It is also a more expensive option (especially

O&M costs are high). However, unlike the above two options, it is a completely odor less

process making it a preferred solution in residential areas. It also has an extremely high rate of

conversion and so quality of end product is very high with rich macro and micro nutrients. The

end product also has the advantage that it can be dried and stored safely for longer period of time

6.5.2. Bio-Methanation

While bio-methanation is generally classified as a Waste To Energy process, unlike the previous

three alternatives, which use thermo-chemical conversion, this uses bio-chemical conversion

similar to composting process. It basically taps the methane gas generated from the bio-chemical

reaction in wastes dumped in aerobic digesters.

6.5.3. Pelletisation

This refers to creation of fuel pellets (also called refuse derived fuel or RDF) from MSW.

Pelletisation generally involves segregation of incoming waste in to low and high calorific

material followed by separate shredding. Different heaps of shredded wastes are mixed together

in suitable proportions and solidified to produce RDF pellets. Pellets are small cylindrical pieces

with a calorific value of 4000 Kcal/kg. Since this is quite close to calorific value of coal, it can

be used as a substitute. However, calorific value of the pellets completely depend on the calorific

value of the waste stream which needs to be sorted in Indian conditions to allow only the right

type of waste to come through.

6.5.4. Pyrolysis/Gasification


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In this process, combustible material is allowed to dry/dewater and is then subjected to

shredding. These are then incinerated in oxygen deficient environment (pyrolysis). Gas produced

from this process can be stored and used as combustible source when required. However, quality

of the gas also depends largely on quality of waste stream and requires high calorific value waste

inputs. Different types of pyrolysis/gasification systems are available which can be used

depending on local conditions; some of these include Garrets Flash Pyrolysis process, ERCB

process, Destrugas Gasification process, Plasma Arc process, Slurry Carb process, etc. Recent

studies for Indian scenario clearly show that while net power generation for thermo-chemical

conversion processes is around 14.4 times the quantity of waste input (in kW), the same for bio-

chemical conversion process is 11.5 times the waste inputs (provided 50% of waste inputs are

volatile solids). However, in terms of environmental impact, the later is far safer option than the

previous.

6.5.5. Incineration

Incineration is the process of controlled combustion at around 800oC for burning of wastes and

residue, containing combustible material. The heat generated during this process can be

recovered and utilized for production of steam and electricity. This method is usually used to

achieve maximum volume reduction, especially where there is a shortage of landfill facilities. It

is also usually a cost effective method o disposal (CPCB, 2000). However, in Indian conditions,

it is not always very successful due to the low calorific value of Indian wastes (low combustible

material). Also it is not classified by the MNES as an innovative practice and so looses out on

many incentives otherwise provided by the MNES for Waste To Energy plants.

6.6 Parameters affecting Energy Recovery

The main parameters which determine the potential of Recovery of Energy from Wastes

(including MSW), are:

Quantity of waste, and

Physical and chemical characteristics (quality) of the waste.

The actual production of energy will depend upon specific treatment process employed, the

selection of which is also critically dependent upon (apart from certain other factors described

below) the above two parameters. Accurate information on the same, including % variations

thereof with time (daily/ seasonal) is, therefore, of utmost importance.


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The important physical parameters requiring consideration include:

size of constituents

density

moisture content

Smaller size of the constituents aids in faster decomposition of the waste.

Wastes of the high density reflect a high proportion of biodegradable organic matter and

moisture. Low density wastes, on the other hand, indicate a high proportion of paper, plastics and

other combustibles. High moisture content causes biodegradable waste fractions to decompose

more rapidly than in dry conditions. It also makes the waste rather unsuitable for thermo-

chemical conversion (incineration, pyrolysis/ gasification) for energy recovery as heat must first

be supplied to remove moisture.

The important chemical parameters to be considered for determining the energy recovery

potential and the suitability of waste treatment through biochemical or thermo-chemical

conversion technologies include: -

Volatile Solids

Fixed Carbon content

Inerts,

Calorific Value

C/N ratio (Carbon/Nitrogen ratio)

Toxicity

The desirable range of important waste parameters for technical viability of energy recovery

through different treatment routes is given in the Table below. The parameter values indicated

therein only denote the desirable requirements for adoption of particular waste treatment method

and do not necessarily pertain to wastes generated / collected and delivered at the waste

treatment facility. In most cases the waste may need to be suitably segregated/ processed/ mixed

with suitable additives at site before actual treatment to make it more compatible with the

specific treatment method. This has to be assessed and ensured before hand. For example, in case

of Anaerobic digestion, if the C/N ratio is less, high carbon content wastes (straw, paper etc.)

may be added; if it is high, high nitrogen content wastes (sewage sludge, slaughter house waste

etc.) may be added, to bring the C/N ratio within the desirable range.

Desirable range of important waste parameters for technical viability of energy recovery:


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Waste Treatment Method Basic principle Important Waste Parameters

Thermo-chemicalConversion

-Incineration

-Pyrolysis

-Gasification

Decomposition of

organic matter by

action of heat.

Moisture content

Organic/Volatile matter

Fixed Carbon

Total Inerts

Calorific Value (NetCalorific Value)

< 45 %

> 40 %

< 15 %

< 35 %

>1200 k-cal/kg

Bio-chemicalConversion

-Anaerobic

Digestion/

Bio-methanation

Decomposition of

organic matter by

Microbial action.

Moisture content

Organic /

Volatile matter

C/N ratio

>50 %

> 40 %

25-30

6.7 Advantages/ Opportunities And Limitations/ Barriers Of Different Technologies For

Their Applicability In India

Contents to be taken from technical committee report (pg 24 to 29)

6.8 Guidelines for enabling decision making regarding choice of technology

Contents to be taken from technical committee report (pg 30 to 31)


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6.9 Technologies for treatment of MSWM

6.9.1 Composting:

The composting details along with the design proposal for 50 ton, 100 ton, 300 tons is provided

in the annexure (in CD-soft copy)

6.9.2 Anaerobic Digestion (AD)

In this process, also referred to as bio-methanation, the organic fraction of wastes is segregated

and fed to a closed container (biogas digester) where, under anaerobic conditions, the organic

wastes undergo bio-degradation producing methane-rich biogas and effluent/ sludge. The biogas

production ranges from 50-150m3/tonne of wastes, depending upon the composition of waste.

The biogas can be utilized either for cooking/ heating applications, or through dual fuel or gas

engines or gas / steam turbines for generating motive power or electricity. The sludge from

anaerobic digestion, after stabilization, can be used as a soil conditioner, or even sold as manure

depending upon its composition, which is determined mainly by the composition of the input

waste.

Fundamentally, the anaerobic digestion process can be divided into three stages with three

distinct physiological groups of micro-organisms:

Stage I: It involves the fermentative bacteria, which include anaerobic and facultative micro-

organisms. Complex organic materials, carbohydrates, proteins and lipids are hydrolyzed and

fermented into fatty acids, alcohol, carbon dioxide, hydrogen, ammonia and sulfides.

Stage II: In this stage the acetogenic bacteria consume these primary products and produce

hydrogen, carbon dioxide and acetic acid.

Stage III: It utilizes two distinct types of methanogenic bacteria. The first reduces carbon

dioxide to methane and the second decarboxylates acetic acid to methane and carbon dioxide.

Factors, which influence the Anaerobic Digestion process, are temperature, pH (Hydrogen Ion

Concentration), nutrient concentration, loading rate, toxic compounds and mixing. For start-up a

good inoculums such as digested sludge is required. A temperature of about 35-380C is generally

considered optimal in mesophilic zone (20-450C) and higher gas production can be obtained


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under thermophillic temperature in the range of 45-600C. Provision of appropriate heating

arrangements and insulation may become necessary in some parts of the country.

Anaerobic Digestion (AD) of MSW offers certain clear advantages over the option of Aerobic

process, in terms of energy production/ consumption, compost quality and net environmental

gains:

(i) AD process results in net production of energy.

(ii) The quality of the digested sludge (compost) is better as Nitrogen is not lost by oxidation.

(iii) Its totally enclosed system prevents escape of polluted air to atmosphere.

(iv) The net environmental gains are positive

Main Steps in Anaerobic Treatment of MSW

Pre-treatment:

To remove inerts and non-biodegradable materials, upgrade and homogenize the feedstock for

digestion and to promote downstream treatment processes.

Anaerobic Digestion:

To produce biogas for energy to de-odorise, stabilize and disinfect the feedstock.

Post-Treatment:

To complete the stabilization of the digested material and to produce a refined product of

suitable moisture content, particle size and physical structure for the proposed end-use as organic

manure.

Effluent Treatment:

To treat the liquid effluent to specified standards before final disposal.

Different Designs and Configurations of AD Systems

Different designs and configurations of AD systems have been developed by various companies

to suit different total solid concentration in the feed and microbial activity i.e. single phase, bi-

phasic, multi-phasic. The more popular ones are broadly categorized as low/ medium and high

solids, two phases and leach bed systems.

6.9.3 Refuse-Derived Fuel (RDF) based Power Plants:


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In an RDF plant, waste is processed before burning. Typically, the noncombustible items are

removed, separating glass and metals for recycling. The combustible waste is shredded into a

smaller, more uniform particle size for burning. The RDF thus produced may be burned in

boilers on-site, or it may be shipped to off-site boilers for energy conversion. If the RDF is to be

used off-site, it is usually densified into pellets through the process of pelletisation.

Pelletisation involves segregation of the incoming waste into high and low calorific value

materials and shredding them separately, to nearly uniform size. The different heaps of the

shredded waste are then mixed together in suitable proportion and then solidified to produce

RDF pellets. The calorific value of RDF pellets can be around 4000 kcal/ kg depending upon the

percentage of organic matter in the waste, additives and binder materials used in the process, if

any. Since pelletisation enriches the organic content of the waste through removal of inorganic

materials and moisture, it can be very effective method for preparing an enriched fuel feed for

other thermo-chemical processes like Pyrolysis/ Gasification, apart from Incineration. Additional

advantage is that the pellets can be conveniently stored and transported.



At the end of the chapter the participants will understand the options available for disposal of MSWM

CHAPTER 7

Disposal of MSWM102

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7.1 Introduction

Land filling is the ultimate disposal process for Municipal Solid Wastes (MSW) management.

The quantity of MSW for land disposal can be substantially reduced by setting up of waste

processing facilities and recycling the waste materials as much as possible. It is estimated that

the inert wastes for land filling occupies 40-55% of the total wastes depending upon type of city.

The landfill is an unavoidable component in MSW Management and its planning and design,

construction, operation & maintenance involves technical skills and safety measures in terms of

health and environmental protection. The Municipal Solid wastes (Management & Handling)

Rules, 2000 specify relevant points with regard to site selection for proposed landfill site,

facilities requires at landfill site, specification for land filling, pollution prevention, water quality

monitoring, ambient air quality monitoring, plantation at landfill site, closure of landfill site/ post

closure, etc. These specific provisions are to be implemented as per rules and need to be ensured

during the planning and design stage.

7.1.1 Land filling of Municipal Solid Waste

(a) Land filling will be done for the following types of waste:

(i) Comingled waste (mixed waste) not found suitable for waste processing;

(ii) Pre-processing and post-processing rejects from waste processing sites;

(iii) Non-hazardous waste not being processed or recycled.

(b) Land filling will usually not be done for the following waste streams in the municipal solid

waste:

(i) Biodegradable waste/garden waste;

(ii) Dry recyclables.

7.1.2 Environmental Impact

The impact of dumping municipal solid waste on land without any containment causes the

following problems:

(a) Groundwater contamination through leachate

(b) Surface water contamination through runoff

(c) Air contamination due to gases, litter, dust, bad odour


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(d) Other problems due to rodents, pests, fire, bird menace, slope failure, erosion etc.

7.1.3 Criteria for Identifying Suitable Land for Landfill Sites

Place Minimum siting distance

Habitation 500 meters

Rivers, lakes, bodies of water 200 meters

Non meandering water (canal, drainage,

and so forth)30 meters

Highway or railway line 300 meters from center line

Coastal regulation zoning Landfill site not permitted

Earthquake zone 500 meters from fault line fracture

Flood-prone area Landfill site not permitted

Airport 20 kilometers

Note: Delphi Method is provided in CD

6.2 Disposal options for MSWM

Three options are available for safe disposal of MSW treated, they are

1. Engineered Landfill (Pit method)

2. Sanitary landfill

7.2.1 Pit Method:

The solid waste management system here consists of digging pits of typical dimensions 5 m

wide, 2.5 m deep and 50 m long or to any required length so that the pit will cater for one month

of operation. The waste is filled from the top till the pit is filled. Adequate care is taken to cover

the pit with plastic sheet during monsoons to ensure that direct rainwater does not enter the pit.

Then the top of the pit is again covered with a liner of with average 15 to 30 cm of soil and

compacted to 95 % Procter density using appropriate rollers. The soil, which was originally


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excavated from the site, is stored at site for this purpose. The soil is placed such that a slope of 1

in 20 is provided from the centre. A plastic liner made of discarded HDPE sacks used for cement

bags etc. stitched together is placed on this compacted soil over the entire pit area. Another layer

of average 15 cm soil compacted as given above is placed on the top with slope towards the

edge.

Additional pits are dug and the above procedure is followed for filling and covering the pit as

required on an ongoing basis. In the above process the waste inside the pit is an-aerobically

composted. If a market for compost exists the waste can be exhumed from the pit sieved in 4 mm

sieves and sold. The rejects in the process would be refilled in the subsequent pits or a special pit

dedicated to rejects. The pits from which wastes have been removed can be used again for

refilling. A complete record of the pit with the number and date of filling and what was filled

shall be maintained for future reference.

Note: Designs are given in CD

7.2.2. Sanitary Landfill

The Sanitary landfill approach is based on the MSW rules 2000. The landfill is based on

concepts of isolation of the landfill from surface water and containment of wastes within the

landfill. This would involve development of the landfill site with provision of the basic

infrastructure of proper road access, gatehouse with weighbridge, building with record rooms

and facilities of storage, washing and toilets for staff. The landfill proper would be developed for

isolation of the wastes from surface runoff and containment of the waste to protect against

movement of leachate directly to ground. Liner systems with leachate collection would be

provided. A leachate treatment facility would also be provided. The waste would be tipped to a

plan and covered daily. Monsoon waste placement plans would be made. Once the planned waste

levels are reached a cover liner would be provided. The landfill would be developed with 20-25

year perspective. A detailed plan for implementation would be prepared prior to investment.

Note: Designs are given in CD

7.2.2.1 Essential Components for sanitary landfill

The seven essential components of a MSW landfill are:

(a) A liner system at the base and sides of the landfill which prevents migration of leachate or

gas to the surrounding soil.


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(b) A leachate collection and control facility which collects and extracts leachate from within and

from the base of the landfill and then treats the leachate.

(c) A gas collection and control facility (optional for small landfills) which collects and extracts

gas from within and from the top of the landfill and then treats it or uses it for energy recovery.

(d) A final cover system at the top of the landfill which enhances surface drainage, prevents

infiltrating water and supports surface vegetation.

(e) A surface water drainage system which collects and removes all surface runoff from the

landfill site.

(f) An environmental monitoring system which periodically collects and analyses air, surface

water, soil-gas and ground water samples around the landfill site.

(g) A closure and post-closure plan which lists the steps that must be taken to close and secure a

landfill site once the filling operation has been completed and the activities for long-term

monitoring, operation and maintenance of the completed landfill.

7.2.2..2 Sanitary Landfill Planning and Design

The details are given annexure (CD-soft copy)

From page 18 to 77 of CPHEEO manual 17 chapter

Note: Estimation of landfill capacity, height, area along with the typical example is

provided in CD (soft copy)

6.3 Landfill as Per MSW Rules

6.3.1 Requisites of Landfills:

The Sl. No.6.under Schedule-II of MSW Rules, 2000 prescribes that land filling shall be

permitted to non-biodegradable, inert waste and other wastes that are not suitable either for

recycling or for biological process. Land filling shall also be carried out for residues of waste

processing facilities as well as pre-processing rejects from waste processing facilities. Land

filling of mixed waste shall be avoided unless the same is found unsuitable for waste processing.

Under unavoidable circumstances or till installation of alternate facilities, land filling shall be

done following proper norms. Landfill sites shall meet the specifications as given in Schedule-

III.


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7.3.2 Specifications for landfill Sites:

(a) Site selection:

Landfill identification shall be done by ‘Development Authorities’ for the area falling under

‘Development Authority’, otherwise it shall be done by the concerned Municipal authority. The

site selection shall be done based on examination of environmental issues. The landfill site shall

be planned and designed with proper documentation of a phased construction plan as well as a

closure plan. The landfill facility shall be nearby waste processing plant or an integral part of it.

The landfill site shall be designed for 20-25 years. The proposed landfill site should be away

from habitation clusters, forest areas, water bodies, monuments, national Parks, Wetlands and

places of important cultural, historical or religious interest. Also, approval shall be taken from

the concerned authorities in case the landfill site is located within 20 km from the airport/airbase.

(b) Facilities at Site:

The landfill shall be fenced with proper gate at entrance for monitoring incoming

wastes/vehicles, to prevent entry of cattle, to keep record movement of vehicles and wastes, etc.

Also, provision of weigh-bridge may be made for assessing quantum of wastes. Drinking water

and other sanitary facilities and other safety measures including health check up shall be

provided to workers.

(c) Specification for land filling:

Waste subjected to land filling shall be compacted in thin layers to achieve maximum capacity of

landfill. The disposed wastes shall be covered immediately/at the end of working day with 10 cm

of soil. Prior to commencing monsoon period, an immediate soil cover of 40-65 cm thickness

shall be placed on the landfill with compaction to prevent rainwater infiltration. Proper drainage

to be provided to divert run-off water from the active landfill cell.

After completion of landfill, a final capping shall be provided with

(i) A barrier of soil cover of 60 cm of clay or amended soil with permeability of 1X10-7 cm/sec,

(ii) On top of the barrier soil layer, there shall be a drainage layer of 15 cm and

(iii)On top of the drainage layer, there shall be vegetation layer of 45 cm to support natural plant

growth to minimize soil erosion.


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(d) Pollution Prevention:

In order to prevent pollution problems from landfill operation the necessary steps should be

taken viz.

(i) Diversion of storm water to minimize leachate generation and to avoid flooding/water

logging,

(ii) Construction of non-permeable linings system at the base and walls of waste disposal area

against contamination from domestic hazardous wastes. The liner shall be a composite barrier

having 1.5 mm HDPE or equivalent having permeability least than 1X10-7 cm/sec. The water

table should be at least 2 m below the base clay or amended soil barrier layer.

(iii) Provision of leachate collection and treatment shall be made as per standards specified in

Schedule-IV,

(e) Water quality monitoring:

Ground water quality to be monitored within 50 m periphery of landfill site. Also, ground water

quality data to be generated before construction of landfill site for future reference.

(f) Ambient air quality monitoring:

Installation of landfill gas control system including gas collection system shall be made at

landfill site to minimize odor generation, prevent off-site migration of gases and to protect

vegetation planted on rehabilitated landfill surface. The concentration of methane gas at the

landfill site shall not exceed 25 LEL. The landfill gas collected from the facility shall be utilized

either direct thermal application or power generation, otherwise, landfill gas shall be flared to

prevent direct escape. Passive venting will be allowed if flaring is not possible.

(g) Plantation at Landfill site:

A vegetative cover shall be provided over completed site as follows; (i) Selected species of

locally adopted non-edible perennial plants that resistance to drought and extreme temperature

shall be allowed to grow, (ii) The roots of the plants grown should not penetrate more than 30

cm, (iii) The plant species shall have ability to thrive on low-nutrient soil and (iv) the density of

plantation shall be sufficient to minimize soil erosion.

(h) Closure of landfill site and post- care:


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The post-closure care of landfill site shall be conducted after fifteen years and long term

monitoring to assess; (i) maintaining integrity and effectiveness of final cover and repair

required, (ii) efficiency of leachate collection system, (iii) ground water quality and action

required to improve, (iv) maintenance and operation of gas collection system to meet the

standards. The closed landfill may be used for human settlement after 15 years of post-closure

care by ensuring gaseous emission and leachate compliance.

(i) Special provisions for hilly areas:

Cities/ towns located in hilly areas shall adopt location specific methods of disposal with

permission of concerned SPCB/PCCs.

6.4 Regional Landfill site management

6.4.1 Introduction

Pursuant to the Municipal Solid Waste (Management and Handling) Rules 2000, the municipal

authorities in India are required to construct sanitary landfills for the disposal of waste.

Therefore, they need to identify large parcels of land that meet the technical parameters

prescribed by state pollution control boards and large enough for the disposal of waste for 20 to

30 years. Then they need to find a way to construct and operate the facilities.

For medium or small municipalities, finding land, building a sanitary landfill, and running the

operations can be extremely difficult. The challenges are related to getting enough funds for the

construction and operation, finding the technical personnel to operate the heavy machinery, and

fighting the opposition from the neighborhoods where the landfill is located.

In this situation, a group of neighboring municipalities creates a common landfill facility on a

cost-sharing basis on a large parcel of land at a suitable location away from the cities. The

operation and management is handled through a professional agency, the cost of which is shared

by the participating municipalities in the form of tipping fees proportional with the waste

delivered to the landfill site for disposal. Generally, the regional approach minimizes the scope

of public objections and facilitates construction of large landfills that can be managed

professionally in a cost-effective manner.


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7.4.2 Why Regional concept is required?

Following are the major constraints in which pushes towards setting up regional landfill

facilities:

Unavailability of suitable land. A major problem being faced by the municipal authorities is

unavailability of suitable land that meets the state pollution control board criteria and can be

used for 20 to 30 years for disposal of waste. The high cost of land close to cities and the

NIMBY (not in my back yard) syndrome make locating an appropriate parcel of land

difficult. The NIMBY syndrome occurs when the population that is affected by the

construction of a new landfill opposes its construction.

Lack of technical know-how and finances to develop and maintain the facility scientifically.

The criteria laid down for construction of a landfill are very stringent and difficult for a

small municipal authority to meet. Most small municipal authorities do not have technical

personnel and adequate financial resources to set up engineered landfills that meet the

standards laid down in the 2000 rules. Moreover, they lack the knowledge and resources to

operate and manage the facility once it is functioning.

Current approaches of municipal authorities. Despite all the difficulties encountered by the

municipalities, they have not attempted to find “outside the box” solutions. Current thinking

revolves around setting up a disposal facility in each town on a small parcel of land within

or outside the city because better options are not available.

7.4.3 The Regional Landfill Concept

Regionalization refers to bundling the waste disposal needs of several towns or cities and

tackling the problem of all of them by creating one regional facility. The region could encompass

a large metropolitan area that includes several contiguous municipalities. Alternatively, a cluster

of small towns could share a common disposal facility.

Regionalizing the implementation of landfill facilities has many benefits. The single most

important reason for considering regional facilities is economy of scale. Setting up and operating

a sanitary landfill is a complex and expensive exercise. Creating small facilities is most often not

practical or viable. Typically, for a sanitary landfill to be economically viable it needs to have a


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minimum capacity of 250 to 300 tons per day. An assumed per capita average waste generation

of 0.3 kilograms per day would correspond to a city with a population of at least 800,000 to

1 million. For towns having lower levels of population—say less than 500,000—constructing

disposal facilities would be economically unviable. Furthermore, municipalities cannot afford the

expense of technical experts to construct and maintain a small facility because those experts will

be underused; also, a small municipality will have more difficulty purchasing heavy machinery

and paying for its day-to-day maintenance. The cost-effective and viable solution lies in adopting

a regional approach that enables two or more municipalities to derive the benefits of economy of

scale.

7.4.4 Technical Benefits of Regionalization

The technical benefits also should not be overlooked:

The municipality has greater access to technical resources and professional expertise.

It can use large and sophisticated equipment (for example, compactors).

Large landfills allow waste to be stacked to greater heights—over 30 meters, compared with

the common practice of 5 to 10 meters. Greater height also corresponds to greater depth of

land filling, which implies a substantial increase in available air space and hence waste

disposal capacity per acre of land, meaning lower capital cost per ton of waste.

A regional facility can be located at a considerable distance from the municipality, which

helps overcome constraints on land availability.ii Additional transport costs can be

substantially offset by the cost savings in disposal and treatment.iii

A large landfill facility allows for proper planning and development of the site, with

provision of an adequate greenbelt and other amenities that make the facility less offensive to

the surrounding population. Over time, this improvement would help reduce the public

opposition to location of landfill facilities.

7.4.4 Financial Benefits of Regional Landfill

Regional landfills have a number of benefits:

ii

iii


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Reduction in the fixed costs (for example, lining, equipment, human resources, land, and

overhead) per unit of waste because of the greater amounts of waste and the allocation of

costs among several municipal bodies

Cost saving because of sharing of overhead and maintenance costs among participating

municipalities

Sharing of professional management

Improved bargaining power to buy better equipment and systems at lower costs

The potential economy of scale is illustrated in table below, which lists estimated costs of waste

processing and disposal for various towns and cities of Maharashtra. As is evident, the cost per

ton can drop sharply with rising waste loads.

Table : Economy of Scale for Treatment and Disposal of Waste

City (revenue

division)Classification

Population

(2001)

Waste

(tons/day)

Estimated cost per ton

of waste treatment and

disposal (Rs)

Aurangabad Corporation 1,000,000 300 191.73

Latur (Aurangabad) Class I 299,828 120 289.71

Wardha (Nagpur) Class I 111,070 40 320.80

Yavatmal

(Amravati)Class I 120,763 25 562.72

Hingoli (Hingoli) B class 69,552 15 617.19

Talode

(Nandurabar)C class 25,034 5 1,154.71

In general, the greater the volume of units processed, the lower the per unit cost because fixed

costs can be spread over more units and more efficient technology can be applied. This effect is

referred to as an economy of scale. The per ton cost of MSW activities or paths in the long run

will reflect their relative economies of scale.

These economies of scale are evident in the terms of the recently signed contracts with private

providers. For example, a midsized Indian city signed a contract for a 15-acre sanitary landfill


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catering to 150 tons per day, with a tipping fee of Rs 450 per ton. In contrast, a larger metropolis

has entered into a contract for a 100-acre sanitary landfill catering to 900 tons per day, with a

tipping fee of only Rs 185 per ton.

7.4.5 Challenges of Regionalization

Despite all the advantages that regionalization of landfills brings, many challenges need to be

addressed. The main challenge occurs when two or more municipalities come together with

different resources and different goals. Although neighboring municipalities share many

common SWM needs and concerns, disparities in population, geography, industrial base, or other

characteristics may make it difficult for them to agree on specific regional projects.

Municipalities considering regionalization should recognize that the costs and benefits of

regional projects, although shared, will not necessarily be identical for all communities.

Municipal officials might need to consider the tradeoffs of sharing common facilities. For

example, a community that sends its waste to a facility shared with another municipality benefits

from not having to site and manage the landfill within its jurisdiction. However, it will probably

be subject to fees levied by the community in which the waste management site is located. In

contrast, for a municipality that hosts the site, the benefits come from cheaper waste disposal and

the fees that it charges to other municipalities. However, it bears all the potential conflicts

associated with siting a waste facility within its jurisdiction (see USEPA 1994).

Transport of waste across jurisdictions could also be a source of conflicts. Regionalization

sometimes can require that waste be transported over long distances and through neighboring

areas and communities. Moreover, routes leading to a regional solid waste facility might see an

increase in traffic. The source of conflicts is related to the concerns over the resulting congestion,

pollution, and roadway wear and tear.

Municipalities should explore these and other potential barriers thoroughly before embarking on

any regional strategy. By acknowledging the potential obstacles up front, municipalities can take

constructive steps to overcome these challenges. Most of the time, the benefits of regional

landfills outweigh the potential problems, given room for negotiation among municipalities.


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