Sector Assessment Report on Solid Waste Management

WSP - SWM SECTOR ASSESSMENT REPORT

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1. INTRODUCTION State of Kerala has a population of 31.84 million, spread over an area of 38,863 sq. kilometers. People living in urban areas account for 26% of the State population. Out of this urban population, 5.18 million live in 53 municipal councils and five corporation areas which account for 16.26% of the State population. This State is ranked at No.2 among the Indian States as the best State to live in by a study conducted by India Today in 2005. The State has 14 Districts, 5 Municipal Corporations, 53 Municipalities, 1 township and 991 Gram Panchayats. The density of population is 819 persons per sq. km as against 363 for all India and sex ratio is 1058 females to 1,000 males. Per capita income of the State is estimated at Rs. 27,048 at current prices for 2004-05. State of Kerala is known for very high standards of health, education, and other parameters for a good quality of life, but it has been facing significant challenges in the area of municipal solid waste management. For various reasons this area has remained neglected over a period of years and has now become a matter of great concern for maintaining health, sanitation and good quality of life for the citizens. Solid waste management has also a direct impact on tourism industry which is being aggressively promoted by the State for its economic development. The subject of solid waste management has remained neglected in the state, mainly on account of lack of priority to the subject by the municipal authorities. Paucity of funds, lack of technical know how, inadequate human resources, and apathy of citizens to maintain cleanliness in the city have all contributed to reasons of inadequacy in service. Institutional weakness and lack of enforcement have added to the problems of waste management and the situation is becoming critical with the passage of time. Looking to the gravity of the situation in the country, public interest litigation was filed before the Supreme Court of India seeking directions to all States and Urban Local Bodies (ULBs) to improve the situation expeditiously. The Hon’ble Supreme Court set up an Expert Panel to look into all aspects of municipal solid waste management and based on their recommendations, gave directions to class I cities having population above 100000 to improve the systems of waste management and directed Government of India to frame appropriate rules for the management of municipal solid waste in the country. The Ministry of Environment and Forest of GoI accordingly framed “Municipal Solid Waste (Management and Handling) Rules 2000 under the Environment Protection Act, 1986 making it mandatory for all Municipal authorities in the country irrespective of size and population to implement the directions contained in the rules by 31st December, 2003. Most of the ULBs in the State have not been in a position to implement the aforesaid rules and situation has continued to remain highly unsatisfactory in spite of instructions given by the State Authorities from time to time.


2The Government of Kerala, therefore, decided to play a pro-active role in the development of solid waste management systems in the State and set up a high powered mission called ‘Clean Kerala Mission’ (CKM) chaired by the Hon’ble Chief Minister. The Mission has the membership of various Ministers of related Departments. The Mission has also formed an Empowered Committee comprised of Senior Officials of Departments concerned, headed by the Chief Secretary and a Working Committee comprising of the Secretary, Pollution Control Board, Urban Affairs Department, Director of Panchayats, Commissioner of Rural development, Director, TSHM, and Chief, Decentralized Planning, SPB, Kerala and chaired by Principal Secretary, LSG (Urban). One among the main objectives of the CKM is as under: "TO IMPLEMENT SOCIALLY ACCEPTABLE, TECHNICALLY FEASIBLE, OPERATIONALLY SUSTAINABLE, FINANCIALLY VIABLE& ENTREPRENEUR ORIENTED WASTE MANAGEMENT SERVICE" The Clean Kerala Mission has been trying to play an important role to achieve this objective by providing technical and financial assistance to the LSGs in the State and doing hand-holding to facilitate improvement in solid waste management practices in urban areas but with a very limited success. The mission has been facing several challenges while extending technical assistance to municipal authorities which are briefly mentioned below:

• The State has high density of population and rural urban continuum making it difficult to plan systems limited to municipal areas only leaving aside other urban and rural areas adjacent to municipal areas.

• Scarcity of large parcels of suitable waste land. • Heavy monsoon spread over six months in an year • The water table is high in the coastal zones and some areas of mid land.

Therefore, it is extremely difficult to find suitable parcels of land for setting up treatment and disposal facilities.

• Not in my backyard - NIMBY SYNDROME is very common. People object to setting up any solid waste management facility in their vicinity, making it difficult for the decision makers to zero down on the location to construct treatment and disposal facilities.

• Municipal authorities lack technical know how and in-house capabilities to manage SWM services.

Looking to the challenges faced by the CKM as stated above and the difficulties being experienced by the mission in implementing MSW Rules 2000, WSP-SA, World Bank, has come forward to assist the mission through a study which may suggest the strategies to make the CKM more effective and in improving the overall situation in SWM in the State of Kerala. SEUF has been assigned with the task to undertake the study.


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2. SCOPE OF ASSIGNMENT, APPROACH & METHODOLOGY To find the solutions to the challenges faced by the Clean Kerala Mission, carry out an in-depth study of existing situation and devise strategies to strengthen the CKM and facilitate the improvement in solid waste management systems. The study particularly aims at: (1) Strengthening CKM

(2) Increasing the in-house capabilities of the provider agencies and their autonomy in decision making as well as making them accountable to deliver efficient SWM service.,

(3) Increasing the ability of provider agencies to raise & access finance and effect cost recovery for sustainability of service and debt servicing; (4) Detailed assessment of SWM sector at the sectoral, programmatic and service provider level,

(5) Development of guidelines for institutional strengthening and reform of the SWM sector.

Approach and Methodology The methodology envisaged was (a) collection and analysis of primary data through intensive field surveys, stakeholder analysis, Key Informant Interviews, cross checking and analysis; (b) collection of secondary data and analysis and (c) employ specific instruments and tools for sector assessment and development of policy guidelines. The detailed methodology given in Table 1 was planned and adopted to accomplish the task in accordance with the ToR.

Table 1 Methodology

Methodology Explanation

Categorization of ULBs All 53 ULBs categorized into 3-4 groups on the basis of key parameters and sample selected from each cluster on a normative basis.

Consolidation approach in SWM

Develop a ‘stakeholder model’ for cooperation (win-win partnership)in the context of rural urban continuum

Willingness to pay for This would be done at the later stage of the study. However, we


4SWM have adopted benchmark approach in WTP along with secondary

evidences. Provider Assessment Role, responsibility, accountability mapping, governance

parameters Stakeholder Analysis Invetorization of stakeholders, identification of key stakeholders,

map stake gainers/stake losers, map perceptions, concerns, incentives and disincentives

Technology assessment Inventorise technologies, appropriateness analysis, technology mix and forecasting to develop strategy.

Demand forecasting and Investment requirements

Estimate the SW generated, ULBs and for the state, estimate the investment requirement, assess investment pattern, identify gaps and suggest innovative approaches including local resource mobilization

Analysis of regulatory framework

Map the existing regulations, rules, institutional actors, enforcement effectiveness, constraints, consensus building tools

Institutional Analysis Institutional mapping, roles and responsibility assessment, SWOT, capacity building needs, governance standards and design model to suit the future challenges.

Stakeholder workshops Conduct stakeholder workshops to validate the draft/final reports/guidelines

Environmental Impact assessment

EIA would be done to assess the environmental impact of the current practices and future strategies, quantify the impact through quantitative and qualitative tools. (please see details below)

Multi-Stakeholder Assessment and design co-operative model

Inventorization of stakeholders, Priorities them according to the perceived/real stake, group them into stake losers and gainers and develop strategy to maximize positive gains and to minimize loss. Also use the system to develop win-win scenarios for conflict resolution and consensus building.

FGDs and KIIs FGDs and KIIs would be conducted mainly to assess, the stakeholder perception, awareness standards, key expectations and expert views on the status, prospects and future strategies.

Sustainability Evaluation Developing a sustainability matrix, assessment would be done in selected ULBs as to the technical, financial, institutional and managerial sustainability of SWM practices.

Co-operative Model for Regional Facility

Rural-urban Kerala has very little variation in SWM issues and limitation of land availability. The viability of investments could be best established by developing a co-operative model. In selected ULBs, scope of such experiments would be explored, using stakeholder analysis, conflict resolution models, viability analysis.


5Key Outputs The key deliverables from the assignment are given in Table 2.

Table 2 Key Deliverables

Inception Report

Approach to the study including methodology, study tools, survey forms, out line (content sheet of final report)

Intermediate Status Report Summary/presentation of the preliminary findings of the data collection and desk review (Sec 2.1 of ToR) Status assessment.

Intermediate Status Report II Presentation/summary of the preliminary structure and content of the reform guidelines (section 2.2 of ToR)

Draft Final Report 5 Hard copies, all findings compiled Final Report 10 Hard Copies and Power point presentation Methodology Adopted for Undertaking the Study 1. Provider Assessment a. Constitution of Survey Team A team of seven members was constituted for the primary survey including environmental experts and social assessment experts. The team was trained thoroughly before the survey commenced. b. Categorisation of ULBs and Primary Survey There are 17 coastal 3 high land and 33 mid land urban local bodies in Kerala. For the survey, 10% sample of each category representing grade I, II, III municipalities and north, south, central regions were selected. The municipalities selected were given in Table 3.

Table 3 Categorisation of ULBs

Alappuzha Ist Grade Coastal Central Quilandy 3rd Grade Coastal North Punalur 2nd Grade Highland Central Aluva Ist Grade Midland Central Koothuparambu 3rd Grade Midland North Neyattinkata 2nd Grade Midland South

WSP - SWM SECTOR ASSESSMENT REPORT 6c. Focus Group Discussions In order to capture qualitative information FGDs of municipal staff, workers, health officials, Kudumbashree workers, rag pickers, drivers, health officials etc were conducted in selected municipalities as part of the provider assessment. 2. Key Informants Interview A total number of 15 Key Informants were interviewed including Principal Secretary , LSG (Urban), Principal Secretary (LSG Rural), Executive Director, Kudumbashree, Member secretary, SPCB, Director (Tourism), Director of Municipalities, Director CKM, Dr. R.V.G Menon, IRTC, scientists, elected representatives, officials and sector experts. 3. Case Studies A total number of 20 cases were identified according to expert opinion and ten were prioritised. The list of case studies and their focal theme is given in Table 4.

Table 4 List of Case Studies

Municipality / Corporation Focal theme Mangalpadi grama panchayat, Kasrgod

Stakeholder cooperation model -single processing unit- 2,3 grama panchayats

Malappuram CKM good model, compost plant etc Guruvayur Pilgrim tourism, failure of treatment unit Kottayam Vadavathoor Health impact, Environmental Impact Assessment Kozhikkode Kudumbasree (segregated house hold collection) Kochi, Panampalli Nagar Organized rag pickers in door to door collection Punalur Biogas Alappuzha, Thumpoli Decentralised vermin composting North Paravur Technology municipal level vermi composting Thrissur Private involvement in transportation

All case studies have been conducted and those completed in all respects are given in this report. 4. Expert Visit to Selected Municipalities The team of consultants visited Malappuram, Chalakkudy, North Paravur, Alappuzha and Kayamkulam Municipalities, attended council meeting, met different stakeholders, conducted field visits to have 1st hand information on storage at source, segregation, primary collection , secondary storage, transportation, processing and disposal of waste. Additionally, the team assessed the Willingness of the citizens to pay for SWM, conducted Stakeholder Analysis,


7Technology Assessment, Investment requirement Assessment, Analysis of Regulatory Framework, Institutional Analysis Environmental, Impact Sustainability Evaluation etc. 5. Stakeholder Consultation Workshop A stakeholder consultation workshop was conducted at Trivandrum involving officials, NGOs, experts, regulators, and related institutions. The Principal Secretary, LSG, Urban delivered the key note address, raising the key issues to be deliberated. The feed back of study team regarding the status and compliance of SWM in five municipalities visited and what they captured from key informants interview were presented in the workshop, followed by detailed consultations. The key findings from the stakeholder workshop are given in Annexure 1. 6. Secondary Data Collection and Desk Review Secondary data was collected from different institutions including CKM, Municipal Directorate, Planning Board, Kudumbashree, State Pollution Control Board (SPCB), Centre for Development Studies(CDS), Centre for Earth Science Studies(CESS), School of Environmental Sciences -Mahatma Gandhi University etc and various websites were reviewed.


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3. LEARNINGS FROM THE FIELD - PROVIDER ASSESSMENT Background As part of the consultancy support to the Clean Kerala Mission of the Government of Kerala to develop policy and institutional reform guidelines for SWM in Kerala a provider assessment study was conducted in selected municipalities. A six member team from Socio Economic Unit Foundation with expertise in Social, Engineering and Financial domain was fielded for this purpose. The team spent a total of 51 days in the field visiting the municipalities and had interaction with the municipal staff, NGOs as well as common person to elicit their opinion on issues pertaining to the present MSWM services. This is a brief report on the major findings of the study. Selection Criteria Based on normative norms and factoring criteria like geographical locations, demographic details, municipal grade etc. six municipalities, representing 11% of the total municipalities in the state were selected. The name of the municipalities, date of formation, grade, and district geo-physical conditions is shown in Table 5 below:

Table 5 Geo-Physical Conditions of Assessed Municipalities

Sl.No Name Date of

formation Grade District Location Wards Sanitary

Circle 1. Aluva 1921 1 Ernakulam Midland 23 2 2. Neyyattinkara 1913 2 Trivandrum Midland 41 1 3. Kuthuparambu 1990 3 Kannur Midland 25 1 4. Alappuzha 1919 1 Alappuzha Coastal 50 6 5. Koyilandy 1993 3 Kozhikkode Coastal 41 1 6. Punalur 1971 2 Kollam High land 32 1 The area, grade and economic status of the six municipalities are tabulated in Table 6.


9Table 6

Economic Status of Assessed Municipalities Sl.no Name Area

/sq.km Population No.

of HHs APL (%) BPL(% Slum %

1. Aluva 7.17 28210 6251 18324 (76% )

5184 (21.5%)

602 (2.5%)

2. Neyyattinkara 28.78 69467 17363 58296 (83.91%)

11171 (16.08 %)

*NA

3 Kuthuparambu 16.76 29532 5789 25312 (85.71%)

4220 (14.28%)

*NA

4. Alappuzha 46.71 184388 42413 130368 (70%)

51520 (27%)

2500 (1.35%)

5 Koyilandy 29.05 68998 13088 63396 (91.88%)

5602 (8.11%)

6 nos.

6. Punalur 34.60 47235 11261 29235 (61%)

18000 (38%)

*NA

Source: Data from last published Vikasana rekha & Pauravakasa rekha, Lasted updated list of BPL / APL families from CDS office, Data collected from general administrative section of each municipality, * not available with municipality or kudumbasree Methodology The primary data collection format consisted of two parts.

1) A format for assessing the services offered by municipality on SWM and Financial aspects.

2) Annexure on the tariff and collection efficiency, informal sector, incentives and disincentives, technology, health and environment, and citizen’s perspectives on the present SWM system.

In addition to the formats as mentioned above, data was also collected through key informant interview, personal meetings and informal discussions. Waste Generation None of the municipalities visited had a scientifically based figure of the volume of waste generated. To calculate the overall waste generated, the procedure normally resorted to was by extrapolating the estimate of waste collected by a certain percentage. The other procedure was to apply an average per capita norm. From the figures provided by the municipal authorities in the six municipalities, the average per capita waste generated is found to be 260 gm / day. The quantity of total and per capita waste generated tabulated on the basis of data provided by the municipal officials is shown in Table 7 below:

WSP - SWM SECTOR ASSESSMENT REPORT 10

Table 7

Waste Generation According to Municipal Officials

# The figure seems to be very high. There were no records available to substantiate the generation of waste in a disproportionately large quantity.

Grade 1 Grade II Grade III Particulars Aluwa Alappuzha Punaloor

Neyyattinkara Quilandy Koothuparambu

Population 28210 184388 47235 69467 68998 29532 Waste / Day – Tons 20 56 10 8.9 8 8 Per capita waste (g) 709# 304 212 128 116 271

Sources of Waste Generation On an overall basis 30% of the waste generated was from domestic sources, 38% from commercial institutions (including hotels and restaurant, market place and slaughter house) and 32% from other sources including constructional debris. It was found that there was a direct relation with the share of domestic waste with the grade of the municipality One of the reasons may be that the average households per sq km in Grade II municipality was 465 as compared to 889 in Grade I municipality, implying greater land holding facilitating at source waste disposal.

Comparison of Source wise Waste Generation based on Municipal Grade.

Domestic

Domestic

Domestic

Commercial

CommercialCommercial

Others

Others

Others

0%

10%

20%

30%

40%

50%

60%

Grade 1 Grade 2 Grade 3

Municipal Grade

Physical Composition The physical composition of the waste was provided by the municipal authorities (except Koothuparambu). No records were found where a scientific analysis of the waste composition was carried out in any of the municipalities. Based on the data provided, the average waste composition across the five municipalities were as follows: Organic waste 62%, Paper 6.94%, Plastics 8.69%, Rag 6.73%, Glass 3.25%, Metals 2.2% and other wastes constituted 10.10% of the total waste.


Physical Characterstics of Waste

62.07%

6.94% 8.69% 6.73% 3.25% 2.20%10.11%

0%10%20%30%40%50%60%70%

Organic Paper Plastic Rag Glass Metal Others

Components

Component wise the variation from the average <15%>. Major variation was observed in the share of organic waste (Low 8.80%, High 6.57%), Plastic (Low 8.80%, High 6.57%) and others (High 12.69%, Low 7.34%). For the other components the variation was range bound and was observed to be less than 5%. The component wise maximum and minimum variation is shown in Table 8, while municipality wise vacation is plotted in the graph below.

Variation in Physical Characerstics of Waste Ac nicip

15%

uw

ross Mu alities

0%

5%

10%

-15%

-10% Al-5% a

A lappu zha

Punalo or

Ne yyattinkara

Quilan dyPerc

ent

OthersMetalGlassRagPlasticPaperOrganic


Table 8 Component Wise Maximum & Minimum Variation (%)

The 27% of recyclable materials indicated by the study in the cities visited is not based on any scientific study but is a rough estimate as claimed by the municipal authorities. Other studies carried reveal a substantially lesser quantity with Kudumbashree claiming 16% of recyclables, study in Calicut revealing 12%. The average recyclable should therefore on an average across the municipalities be around 15%.

Waste Storage Practices at Source On an overall basis the households where door to door collection of waste was being practiced worked to 22%. There is a significant variation across the municipalities with one municipality (Aluwa) achieving 90% success where as the next municipality Quilandy and Allepy practicing this in only 20% and 10% of the households. No such system was in place in Punaloor and Neyyatinkara. If Aluwa (a small municipality with an area of only 7 Sq km and highly urban in nature) were to be excluded, the practice of door to door waste collection was practiced by les

the households.

Organic Paper Plastic Rag Glass Metal Others Low 8.80 2.78 8.31 4.27 1.25 0.80 12.69 High 6.57 2.94 5.19 4.33 1.25 0.82 7.34

than 8% of

Storage Practices

020406080

Aluw

100120

a

Punaloor

Ne yyattinkara

A lappu zha

Quilan dy

Kooth

gePe

rcen

ta

HH storing Waste

HH storing Segregated

uparambu

Waste

Target

ource is virtually non-existent. Except for 6 wards in lds of the municipality), the system was not in place

The practice of storing segregated waste at sAllepy (representing 5% of the total househo

WSP - SWM SECTOR ASSESSMENT REPORT 13in any of the other municipalities. The overall compliance of segregated waste storage across the six municipalities worked to less than 1% of the total households. Collection The efficiency of removal of total waste generated appears to be very low. The study team had rranged for the weighing of the transported waste in four municipalities namely Punaloor,

uilandy. As a ratio of the total waste generated (as claimed by the unicipal authorities) the waste removed

collecting 71% of the claimed waste, while in Neyattinkara, Quilandy and Punaloor it was 63%, 44% and 37% respectithe total waste generated were to be co at the standard rate of 300 gm apita, th epy in f rginally shows a better by ving 72% of the waste, while in case of the other three municipalities th re was a substantial drop in the efficiency with

aNeyyatinkara, Allepy and Qm

overall was found to be only 54%. If the standard norm of 300 gms / capita of waste generation was to be factored, only 35% of the waste thus arrived is actually getting removed in the four municipalities. Amongst the four municipalities, Allepy had the best efficiency by

vely. If

mputed /day/c en All act ma remo

Waste Removal Efficency

2030405060

ste

(Ton

s) Waste ActuallyTransported

Generation - as

010

oor

Ney

ara

ppuzh

a

Quilan

dyW

a

Puna

yattin

k

Alal

claimed

Generation @250 gm percapita

ePunaloor and Neyyatinkara at 26% and Quilandy achieving only 17%. A graphical representation of the quantity of waste generated and transported in the four municipalities is shown alongside. A brief tabulated detail of community involvement is contained in Annexure 2. Transportation of Waste In all most all of the municipalities the vehicles engaged for transpiration of waste to the disposal site were uncovered. Even in cases where tarpaulins were there it was found that during most part of the travel these were not used. For 4 municipalities where a test check of the actual waste transported was done, it was found that excepting in one municipality (Aleppy) the utilization of vehicle was on an average 39-66% only when compared to the total waste generated in the city as claimed by the municipal authority. Vehicle availability (as percentage of days per year) is shown in Table 9 below:

Table 9

Vehicle Availability (%)

Aluwa Allepy Punaloor Neyyatinkara Quilandy Koothaparambu 95% 50% 80% 60% 80% 80%

The vehicles available with the mun tilized. The present capacity of the functioning vehicles was found to be adequate to transport the entire waste generated as claimed

icipality are under u


14by the authorities if the vehicles could make only 2 trips. On an average the distance to the

is 07-08 Km. If the available functioning vehicles we o , there will be an excess capacity of 8-10 tones in the four municipalities where test check of per

d was held.

here all the waste (calculated @ 300 gms per day per capita) was to come uncipal waste stream, the existing cap f the trans vehicles (@ two evealed that ly marginal additions to t quired. I rth

a scenario ere 10 te @300 r capita wi to the municipals y unlikely. T erefore i e safely assum e present vehicle availability

on a general basis is in fact sufficient to transport the waste generated m plemented. A tabulated data on

exure 3.

disposal site re to make tw trips a day

day waste transporte Assuming a scenario wfully in the Mtrips per day r

acity ohe existing capac

portingity is re on t is wo

mentioning thatstream is highl

whh

0% wast can b

gms peed that th

ll come

with the municipalitiesanageprovided a good m

is given in ent practice is im the available vehicle

Ann

functionin ehicle, installed capacity, present efficiency and excess / as per e presen e generated as claimed by th cipality a der gm w e genera er capita ar n in Table

Table 10

Vehicle Efficiency

The details of g v their shortage of vehicles the scenario of a 300

thast

t wasttion p

e muni10.

nd une give

Particulars

Punaloor

Neyyattinkara

Alappuzha

Quilandy

No. of Functioning Vehicles

2 4 16 4

Waste Generation: - As claimed 1 10.00 8.90 56.00 8.00

- @ 300 gms/ day/person

2 14.17 20.84 55.32 20.70

Waste Transported: - As claimed 3 4.00 4.00 26.00 5.25

- As Weighed 4 3.70 5.60 39.65 3.50

Installed Capacity - Single Trip

5 9.00 8.50 35.40 9.00

Present Utilization (Actual Weight Transported / Installed Capacity)

6 = 4/5 41% 66% 112% 39%

Shortage / Excess Capacity - On Waste generated as claimed - Tons - One Trip / Day 7 = 1 - 5 -1.00 -0.40 -20.61 1.00


15 - Two Trip / Day 8 =

(5X2) -1 8.00 8.10 14.79 10.00

Shortage / Excess Capacity - If Waste generated @ 300 gm per capita

- One Trip / Day 9 = 5 - 2 -5.17 -12.34 -19.92 -11.70

- Two Trip / Day 9 =(5X2)

- 2

3.83 -3.84 15.47 -2.70

Disposal The quantity of waste collected is disposed in the dumping yard in 5 municipalities. In Aluwa the waste is dumped in pits in dumping yard and is daily covering with red earth, but there are complaints from residence in the locality about the process of dumping. The dumping yard of Allepy is quite large, but the whole area is dumped with large quantity of waste along with plastic carry bags, causing serious environmental pollution. In Punaloor the dumping site is a sloping valley and is water logged. Here the waste is disposed in pits and covered with soil from the pits periodically. In Quilandy dumping site, vermi composting with Kudumbashree and biomass process by one individual is carried out. In Koothaparambu, even though land has been purchased there is no processing or treatment and waste is being crudely dumped. The wastes are piled up very near the entrance itself. Many dogs are seen in the yard. At times the rag pickers set fire to the waste to recover metallic things from the waste. In Neyyatinkara, there is no municipal owned dumping yard and waste is dumped mostly in pits formed by clay mining for brick making. Decomposing of waste is delayed in all the disposal sites as the waste is disposed of by the citizens in tied up carry status of disposal in the municipalities is shown in Table 11:

bags. The


16

Table 11 Waste Processing, Disposal and Land Availa

bility

Name Aluwa Allepy Punaloor Neyyatinkara Quilandy Koothaparambu

Waste Collected / tpd 1

18 26 4 4 5.25 4

Qty of waste disposed / tpd

18 26 4 4 Qty after composting not available.

4

Process of waste disposal

Dumping with daily cover

Crude dumping

Crude dumping

Crude dumping

Vermi composting and Biomass

Crude dumping

Area of disposal site

2.43 acres located in adjacent panchayth 7km away

13.5 acre located in adjacent panchayath 7km away

3.5 acre located with in municipality 7km away

No disposal site

1.25 acre located within the municipality 4 km away

4.5 acre located within the municipality 3 km away

Engineered Land Fill (ELF) None of the LSGs in Kerala are disposing waste in engineered land fill. In most cases the authorities are not even aware of this regulatory requirement, with the notion that crude dumping

ould for all practical purposes suffice. The technical competence to design and maintain ELFs are also found to be lacking. The present practice varies form crude dumping to spreading

perficial soil coverings over the waste dumped.

lities would still have to go for substantial additional curement of land. Besides the financial implication, availability of large pockets of land

for the municipalities would be extremely difficult to locate. broad assumption of 15 acres of land per 1 lakhs population ( for a 4 m height

, Allepy 154% and Quilandy would have to purchase 878% of extra land than

w

su The MSWM Rule 2000 makes disposal of waste on an engineered landfill a mandatory requirement. Even assuming that the financial and technical competence of the municipalities gets upgraded, most of the municipaprowithin transportable distanceWorking on a landfill) and the need for setting the processing plant at one acre for every 20 tons of waste generated, it was found that in the six municipalities additional land would have to be procured. Municipality wise Koothaparambu require an additional 0.57 acres, while Aluva would require 1 acre, Punaloor 4.5 acres, Quilandy 10.5 acres, Neyyatinkara 11.82 acres and Allepy 19 acres. In terms of percentage Koothaparambu would have to go for 13% of extra land, Aluwa 27%, Punaloor 130%

ed by the municipality. 1 As claim

WSP - SWM SECTOR ASSESSMENT REPORT 17what they presently own.A comparison of the available land with total land required for setting

p ELF and processing plant is shown in the graph below: u

Land Requirement for ELF & Present Availability

0

10

2030

40

50

Aluwa

Punalo

or

Neyya

ttinka

ra

Alappu

zha

Quilan

dy

Koothu

param

bu

Acr

es RequiredAvailable

The ‘NIMBY’ syndrome in Kerala is very strong. Therefore it is difficult to say whether the

unicipalities in Kerala would be able to setup ELFs in each city and will not be able to operate nd maintain the same professionally. Therefore the cities my have to consider the option of gional facility on cost sharing basis.

Willingness To Pay (WTP) Of the 300 people interviewed 67% were willing to pay for facilities to be provided for house to house/institutional level collection from door steps. 33% however felt that it was not required/they were not able to pay for such services. Of the 67% who were willing to pay, 44% said that they are ready to pay any amount ranging between 10 to 40 while 22% where ready to pay 40-80 and 11% where ready to pay 81-120, while 4% was ready to pay 100-200. 90% of people were not sure about the amount. A graphical representation of Willingness to Pay is shown below:

mare


Un willing – 33%

WillingUnwilling
Willing – 67%
Willingness to Pay - Overall - -

Amount wise break up of those willing

Rs. 10 - 40Rs. 41 - 80Rs. 81 - 120Rs. 121 - 160Rs. 161 - 200Not Sure


19Biomedical Waste IMA is providing treatment facility of the biomedical waste. Hospital development committee is taking initiative for this in Kerala. Compared to the number of institutions present and the biomedical treatment facility available, only 20% of the institutions have treatment process which implies that biomedical waste is either getting diverted into the municipal stream or is being disposed of buried without treatment. The facilities available for biomedical waste management are given in Table 12.

Table 12 Biomedical Waste Management Facilities

Biomedical Institutions Sl.no Name

Individual Facility Common Facility

Total Institutions qty -tpd

1. Aluva 8 8(IMA) 43 / 0.5 and no information about lab

2. Alappuzha 1 3(IMA) 34 /no information on quantity

3. Punalur 6 10(IMA) 25 /1.5 4. Neyyattinkara 2 1 24 / 2.036 5. Koyilandy 2 6 (IMA) 24/0.335

6. Kuthuparambu 1 1 (IMA) 15/.325

Trainings and Capacity Building The training facilitation in Aluwa, Quilandy and Koothaparambu has been done by Clean Kerala Mission. From the inter action it was obvious that the municipal staff have not received any systematic training on SWM. Investments in IEC and capacity building of all stakeholders which is very crucial for MSWM is virtually absent and the participation of public institutions and community is not addressed. Details of the number of trainings provided are given in Table 13:

Table 13 Training Programmes Provided

Name Aluwa Allepy Punaloor Neyyatinkara Quilandy Kootha

parambu Trainings and Capacity building

2 Nil Nil Nil 2 2


20Finance In spite of the team spe ies, extracting financial

formation and data proved extremely difficult. Most of the municipalities visited had a heavy ccounts maintenance. The prevalent system does not facilitate easy extraction of

ions as they are spread over various acco eads and also b, time spent, purpose of use etc. Presently, this has to be

unt. The process has not ye fully completedhe secondary data obtain eam as also

the core team. The final findings shall be updated in the

w:

he o(DLaudit isthe DLconducted any audit for the last unicipalities visited by the team Pro r Procureadministration capabilities of th

tentiona evenue loss. The local bodies do not have the technical, legal or dministrative capability to draft, negotiate or conclude a procurement contract professionally.

ravated on account of lack of any specific guidelines containing at e municipalities should adhere to while implementing a SWM

ntracts is also p registers are ance. Study Challakudy ss mon

llo

n ing ope w composting even though s post plant is run by a so t which r ortant o e rs. The c mploys 8 o tions. T m pality pr d nds to

e ting e r At p e e avera– 40 thousand per month. The working of the compost

plant is summarized in Table 14 below:

nding substantial time visiting the municipalitinbacklog in aSWM related transact unt h need apportionment based on nature of joculled out from multiple heads of acco t been . The present financial analysis is based on t ed by the t from the details of municipalities visited by provider assessment report to be annexed with the final report of this study. A draft report on the financial, audit and procurement issue is given belo Audits T m st frequent audits at the municipalities are the audit by Director of Local Fund Audit

FA) and Performance audit conducted by the office of State Performance Auditor. DLFA the basic watchdog on financial propriety at the Municipalities. The audit compliance by FA remains abysmal with substantial audit arrears. It was found that DLFA had not

two years in any of the m

cu ement & Contract Management

ment and proper contract administration was found to be very weak in the project e municipality. This has led to the opening up avenues for

l pilferage causing rinaThe situation is further agg

ast the broad parameters thleproject. Besides, the monitoring of cobeing kept to monitor contract performMunicipality throws light on the un-profeA brief note on the state of affairs is as fo

The Chalakudi municipality is processifacility of vermi composting also existMunicipal Chairperson and Secretary astaff and one supervisor to do the compsociety by way of grant to meet the mexpenditure comes to approximately 30

oor. No ords and of the composting unit at

proper rec

ional ws:

itoring and management of work contract.

g waste us n wind ro. The com cie y in the e the imp ffic beare so iety esting funcnthly op

he exp

unicind tu

ovires

ed funt, th

the ge o

ra i e.


Table 14

Working of the Compost Plant, Chalakkudi Particulars Eye Estimate As per Weight2

Waste Brought (Tons) 1.50 5.00Compost Generated @ 30% per ton 0.45 1.50Per Month Compost generation (Tons) 13.50 45.00Per Month Compost generation (KGs) 13,500.00 45000.00Sale Price of compost per KG (Rs.) 2.00 2.00Monthly society Income by sale of Compost (Rs.) 27,000.00 90,000.00Average per month operating expenditure 3 (Rs.) 45,000 Concerns:

1. The team was told that there was a big demand for the compost and the local persons used to come to the plant and take away the product. In this scenario it is difficult to understand why then is the society contemplating bringing done the price of compost

5 / KG.

0,000 per month.

Devolution of Plan Funds

howing a declining trend except in 2003-04 where there was a spike in plan funds from 53% to 60%. On an average over 2000-01 to 2004-05, the ratio of plan funds to own funds has been 55% to 45%. In 2004 – 05 the plan funds was 52% of the own funds. This shows that the municipalities have been trying to mobilize more

further down to Rs. 1.7

2. From the table above it is evident that the average income to the society on account of sale of end product should be in the range of Rs.50,000 to 60,000 per month. If this be the case, then there is no requirement of monthly grant from the municipality to meet the recurring expenditure of the society which the team was told is presently in the range of Rs. 4

The trend of total state funds (plan and non-plan) to own funds has been

s

2 The team had asked the municipal authorities to take lorry weights used for transportation. Accordingly, it was estimated that on an average 5 tons of weight was being actually transported. 3 The recurring expenditure is calculated as follows: 7 staff @ 120/day, 1 staff @ 140/day, 1 Supervisor @ 5,000 per month, cow dug, miscellaneous expenditure = Rs.5,600. Total monthly expenditure = Rs. 40,000.

Table 15

Plan Funds to Own Funds (Rs. Crores)

Year Plan Funds Own Funds Total Amount % Amount % Amount

2000-01 8 (58) 6 (42) 142001-02 6 (52) 5 (48) 112002-03 9 (53) 8 (47) 172003-04 12 (60) 8 (40) 202004-05 10 (52) 9 (48) 20

WSP - SWM SECTOR ASSESSMENT REPORT 22revenue from internal resources. A graphical representation of the ratio of plan funds to own funds is shown below:

0

5

10

15

Rs. Crores

2000-01 2001-02 2002-03 2003-04 2004-05

Plan Funds to Own Funds

Plan FundsOwn Funds

Composition of Own Funds

roperty tax constitutes 20% of the total own funds. On an average it varied from 16% to 23%

is graphically represented longside.

Pacross the five years from 2001 to 2005. Other taxes and other income contributed 30% and 32% respectively. Income by way of license fees was 5%, rental income 11% and income by way of fine was 2% of the own funds. The average composition of own fundsa

Propertey Tax20%

Other Tax30%

Licence FeeRental Income

Fine2%

Other Income32%

5%11%

WSP - SWM SECTOR ASSESSMENT REPORT 23The overall property tax collection efficiency varied from 88% in 2003-04 to 75% in 2001-02. On an average across the five years the collection efficiency was 82%. The collection efficiency across the five years is shown in the graph below.

Propertey Tax Collection Effeciency

2000-01, 85%

2001-02, 7

2002-03, 83%

2003-04, 79%

75%

80%

85%

5%

88%90%

2003-04,

65%

70%

2000-01 2001-02 2002-03 2003-04 2003-04

Total

Composition of SWM Operating Expenses The operating cost in Kerala with out sanitary land fill is very high as compared to average cost of Rs.900/MT in Indian cities and about Rs.1200/MT in mega cities. The per tonne SWM operating cost over a period of three years is given in Table 16 below.

Table 16 SWM Per Tonne Operating Cost

Municipality 2002-03 2003-04 2004-05

Koilandy 1140 1317 1289 Punalur 1904 1999 1860 Neyaattikara 1919 2638 2000 Alappuza 1140 1317 1289 Aluva 2104 1996 2460 Koothuparambu 1079 1500 1650 Average 1548 1795 1758

WSP - SWM SECTOR ASSESSMENT REPORT 24 T

Establishment, 84

80

90

Vehicle, 9Uniforms, 2Contractor, 4 Others, 1

0

10

20

30

40

50

60

70

Per

cent

Total

he average expenditure on establishment

le both for repair and maintenance as ell as fuel was 9%. On an average 4% was

paid in the municipalities to the contractors basically for operating the processing plant. SWM being a highly labour intensive job it is but natural that the proportion of establishment expenditure would be higher. A graphical representation of the composition of the SWM expenditure is shown alongside.

was 86% of the total expenditure on SWM with Salary and pension constituting 84% and uniform 2%. The amount utilized for vehicw

Provider Assessment Team – Internal Assessment & Opinion The team felt that information on SWM practic was hard to be obtained. This applied equally for social, technical and financial information. There appeared to be un-coordinated effort amongst the administrative, finance and the public health section of the municipality with most of them functioning as independent water tight compartments. A common strategy towards an agreed goal was conspicuously missing. A significant observation was that the municipalities were not aware of comprehensive guidelines on implementation of SWM in spite of the Supreme Court committee report and MSWR rules 2000 in force. In most of the municipalities the concerned staffs were found to be woefully inadequately equipped with the current practices and technologies in vogue. For example most of the municipalities were providing / contemplating to provide domestic bin for segregated waste storage. This is not the mandate for the municipalities, especially in scenarios where there exists already a resource crunch. Instead of attempting to leverage resources, most of them were more inclined on spending on non essential items having no plan on their operation sustainability.

On a macro level, the whole accounting and financial management practices requires revamping which includes immediate updating of backlog in accounts, standardization of budgeting formats, switch over to double accounting system, rationalization of documentation process and a planned computerization plan which should ultimately result in data availability from LSGs on a real time basis. This should be targeted through proper planning and capacity building interventions. The final report on provider assessment will dwell on these issues in detail after analyzing the final financial data which is in the process of being collected.

es


25Similarly the concept of ELF was found to be universally absent. Most of them (administrative as political) were of the belief that waste o d from the city hidden means waste issue resolved. The concept of safe di issue. Similarly, the concept of joining hands to address the issue was found to be lacking. The team felt that there is an urgent

f o f ination on the seriousness of the issue in terms of legal, and le of sustainable capital investment with a proper O & M

strategy addressing the i and environment in the context of solid waste have to be intensivel gated.

ar ns r s given in Annexure 4.

nce removesposal is still not an agenda

need oal

rientation, in health ang

ormation dissems. The conceptsoci

pr mary issues of health, financey and immediately propa

A summ y of lesso lea ned and implications in MSWM in Kerala i Ca tud Seven cases of diverse te t have been studied as part of the sector ass s nexures (Annexures 6,7,8,9,10, ,1

se S ies

in rventions in municipal solid waste managemenes ment. The detailed case studies are given in different an

15 6) and the lessons learned from these case studies are given in Table 17 .


Table 17

Lessons from Case Studies

ULB/ GP

Focus Area Lessons learnt

Thris

sur

Cor

pora

tion

Priv

atiz

atio

n of

Tr

ansp

orta

tion

Arr

ange

men

ts

nce responsibility

Uninterrupted service delivery Satisfactory performance Avoidance of cumbersome vehicle maintenance procedures Poor ownership of complia Requirement of increased operational supervision Performance satisfaction linked to contractual transparency

ards Poor compliance to environmental safe gu

Puna

lur

Bio

gas

A municipality owned community operated system Financially viable, management poor

; saving on transportation recovery

ement bility

t unattended

Poor participation of stakeholders in planning and implementation Environmental issues reduced Onsite processing facility Demonstrative effects on resource Low land requirement Easier operational flexibility; minimum skill requir

e leading to anaesthetic premises and poor sustaina Poor maintenanc Requirement of leachate treatmen Local capacity building Common ownership not fully materialized A clear operational and maintenance plan not yet materialised

Ala

ppuz

ha

Dec

entra

lised

Sol

id W

aste

M

anag

emen

t

system and common system

eholds

carry bags- Local skill development

Cost effective SWM technology introduced strated f municipality

les

60 % households started vermi composting Experimented individual waste management Easy to scale up Good community participation Women empowerment Organic farming successfully demonstrated in 36% of the hous IEC campaign resulted in reduction of plastic use

Alternatives for plastic Improved environmental conditions

Wealth from waste demon Reduction in the burden o Segregation at source led to value addition of recyclab


Kot

taya

m

ss

m septic tanks are

igh concentration of iron and zinc

lation

ELF is insufficient it of a ridge.

nadequate ement

of ted MSW

Envi

ronm

enta

l Im

pact

Aes

smen

t of t

he D

ispo

sal S

ite

Poor MSW Compliance Site located in a summit of a ridge along a side slope 70% of the area of the dumping yard filled 100 to 125 households within a distance of 500 All types of waste including infectious waste, sludge from

dumped. The site breeds stray dogs Nuisance due to flies and mosquitoes on increase. Birds drop waste in the wells, water bodies and residential premises. No collection and treatment of leachates

Leachate water spread and flow over roads makes adverse impact due to skin diseases

The groundwater is highly corrosive, contains hand exhibit high bacterial load

Complaints about smell Often catches fire – related issues The sanitary workers affected by allergic rashes. No protective measures, except unsafe foot wear.

Social iso Drastic reduction in land values Immediate closure required The land allotted for the new plant and

nt at the side slope and ELF on the summ Location of plaEnvironmental issues will be continued.

No space for green belt and buffer zone Proposed leachate collection and management i No provision for treatment of excess leachate and storm water manag Segregation at source not envisaged in the new proposal There will be adverse impact on air environment due to the composting

un segrega The local people are not informed

Man

galp

adi G

P

Inte

r – P

anch

ayat

C

oope

ratio

n M

odel

agreement leads to efficiency Additional income for hosting GP Good demonstration model Local employment opportunity enhanced Land scarcity issues solved through participation Cost effective and simple technology

Ownership by single GP Participation of two G Ps

Operation, processing and marketing by NGO (PPP) Win Win potential

Transparent


atio

n Community initiated and managed system Good community motivation and community involvement

nitial stage Existing organisational structure utilised (Residents Association)

Good netw ations Willingness to pay for imary collection demonstrated Hands on capacity building exercise

tion i atus of r Income from recycla o monthly income No synchronisation between prim collection and transportation leads to over

w of seco rn as continue t

tainerized h waste led to es l g

Serious lag in e rogram Health precauti sly. No proper coordination between municipa a

pickers.

Koc

hi C

orpo

r

Rag

pic

kers

Org

anis

ed fo

r Prim

ary

Col

lect

ion

Collective ownership of the project Good relationship between Corporation and community in the i

Good resource po strated (Sponsorships etc) Successful completion accelerated scaling up

oling demon

orking with social organispr

Transforma n financial and social stbles in addition t

ary

ag pickers

flo Corporatio Con Fai

nda y containers a facilitator failed to and carts and mixed

heir support

tab ish subsequent processinducation and training pons not considered seriou

mes.

l w ste workers and the rag

Koz

hikk

ode

Invo

lvem

ent o

f Kud

umba

sree

in D

oor t

o D

oor C

olle

ctio

n

antity inc s n stollection as an entrepreneurship ment opp en

Steady incom Better job th a creased Reduction in issues of stray dogs, rats, mosqu Money saving due to reduced drainage blocks Enhanced m horit u Enactment of leg the program Improved SWM enhances political prospects- Active participation of elected

d liveliho ily. edness red

f a ing primar ion i li

of com y n of via s before prog ntial

Qu Waste c Employ

rea ed when primary collectio

ortunity for 700 wom

arted

itoes

e an maid servant, status in

onitoring vigilance of the autal measures enhanced

y s pported the programme me progress

members. Secure

ebtod for women and their famuced. Ind

Ignorance oaffects its v

Absence Estimatio

sp tial aspects while plannabi ty.

petition affects the qualitble number of group

y collection and transportat

ramme commences is essefor success.


29 Best Practices A few best practices consolidated from sec in Table 18 below

le 18 Best Pra ovat ste a

(S c

ondary sources is given

Tabctices / Inn ive Initiatives in Solid Wa

e ondary sources )

M nagement

No Location & Agencies involved

Focal theme Details of Process / Methodology

Lessons for Scaling up

Eramalloor, Cherthala, Aleppy

1.

or Farmers Society

Waste Processing by farmers

•

farming by farmers

, iety

•

• Farmers clubs/ societies can act as an agency for decentralized SWM

re. • direct

incentives by higher productivity and price.

Eramallosociety

Promoting vermi composting and bio

• Providing training and other inputs i.e. tanksworms etc. from socCollecting excess manure produced by farmers

• Promotion of bio farming creating demand for bio manuFarmers getting

Navanirman School, Vazhackala, Cochin

2.

Navanirman School

Waste Processing

• Installed Bio gas plafor treatment of bio wastes Bio gas using for cooking for food at School Canteen Providing

nt

•

• food to the er

coming to the common stream.

• The production of bio children at a low

price.

• Institutions can treat their waste through bio gas unit and hence reduce the waste

gas will save the cost ofcooking fuel.

Marancherry, Malappuram

3.

Salkara Community Hall (private)

Waste Processing by Private Auditorium

•

•

• halls can

reduce the use of plastic and other non decaying materials and start their own treatment systems.

Reduction of plastic &

Avoiding the use of plastic cups and plates at the premises Composting the bio wastes and manure is using in the farms

Auditorium and community

4. Pathippalam, ng by

ts

• Veg hants form n the

• Pro at the

• Thecan find solution for the was t

• Pro

Perumbavoor Waste Processifederation of merchan

etable merced a federation i

market cessing of waste source itself

traders of a market

te managemenproblem

cessing of waste at


30General Marketing Federation & Dept. of Env. studies, Cochin University

• Bac

• Processing capacity is 7 ton

onl

souComposting Using teria

es per day & total project cost is 3 lakhs

y

rce itself

VizhinjamTrivandrum

, 5.

izhinjam Grama anchayath & Bio

tech

gas

Processing

• 2.5and 5750 lit liquid waste treating per day from 575 houses through household bio gas units

• Yearly producing cooking gas worth approx. Rs. 22 lakhs

• GPs can adopt the model, through which, getting a considerable volume of cooking gas and a solution for waste problem.

VP

Household level Bio units for Waste

tones Solid Waste

Kalamassery, Cochin

6.

Rajagiri College of Social Science

Promotion of Bio gas Units & Generation of electricity from bio gas.

• College is continuing a campaign on SWM, providing technical guidance and working models established in its surroundings.

• Educational institutions can a play a vital role in IEC for Solid Waste Management.

Thalipparampu, Kannoor

7.

Juma Ath Mosque trust Committee, Jyothi Bio gas, Trivandrum

Generation of electricity from bio gas.

• Mosque committee installed a biogas unit (7 lakhs cost) and producing electricity to light 100 CF lamps in the Mosque and nearby market.

• Private ventures also possible in SWM using the cost recovery methods of SWM

Kodikuthumala OLH Colony, Choornickara, Alwaye

8.

Community level composting in the colony

• Colony people segregating and composting solid waste of their and from nearby places without any charges other than the price getting from the sale of compost manure.

• Every colony or group of families having enough space can adopt the model

Alappuzha 9.

Leo XIIIth School and Socio Economic Unit Foundation

Vermi Composting and bio farming in the school

• N.S.S. Volunteers collecting, segregating and composting the Paper and other organic wastes produced at the school

• Students can a play a imperative role in the Solid Waste Management.

• Can be scaled up to launch campaigns like “My school and My Premises and


31• The compost being

used in the school garden and getting income from sale

My Future” at the district and state level

Kumbalangi

10. Gas plants

plants in 740 houses

from 600 biogas

Latrine-plants

e a model for any eco-village /

Tourism Department

and Nature Friendly

plants and 140 nature friendly

eco tourism initiatives

HH level Bio • Producing biogas • Can b


32

4.

A F SO W T AG M IN TH T

As stated earlier, Kerala has 5 Municipal Corporations and 53 Municipalities of which 12 are Grade-I, 22 Grade-II and 19 Grade-III. A detailed ULB-wise status report of MWSM is g n in

nne

ST TUS O LID AS E MAN E ENT E STA E

iveA xure 5. Qua uali M W

elia on qua qua of waste generated is important for oping an ste lle transporta and atment and dispos whic acking in e nal ailable dary a (Tab an h Municipalities

uantity of waste generation is reported either on the basis of aintained by them about the quantity of ansporte ,

ade or on approx ation based on eye estimates without any ho e base of ment of waste or meas me o e transpor d.. ile ing the quantity of waste c ed cises were done by n s. Thus ata has very little authe

e per cap nerat come 0.178 kg. The estimation of Municipalities range m high p pita 0.70 /h low as 034 oo )Bo se fig s are n liab similar figures are there in a study

mation. tification of generation has not been

p ethod of assessing collected st collected qu es and eparat r re se.

ntity and Q ty of S R ble data ntity & lity devel y sy m ofco ction, tion, tre al of waste h is l th state.A ysing av secon dat le 19) d t e information gathered from& CKM, it is observthe reco

ed that the q rd m waste tr d on a day to day basis

based on the no. of trips m imaut ritativ weigh urement of volu f wast te Evenwh assess ollect , no vehicle weighing exerMu icipalitie the d nticity. Th average ita ge ion s to fro very er ca of 7 kg ead (Thalassery) to as 0. kg(K thuparambu th the ure ot re le. Almost conducted by CESS for the Greater Kochi region. This is also based on secondary inforHence it appears that quanby source wise sam

done in any of the Municipalities le surveys (direct method ) or by indirect m

wa e, un antiti s ed fo cycling/reu


33

MSW Generation in Municipalities

Table 19 Estimated

Sl. No

Name of Municipality

Population, ’ 01

MSW generation /day

Per capita generation in tons

Sl. No


Population MSW generation / day in tons

Percapita generation in kgs

1 Alappuzha 177079 25 0.141 28 Iringalakuda 28873 4 0.139

2 Kottayam 60725 16 0.263 29 Kudungallur 33543 5 0.149

3 Chenganassery 51960 0.000 30 Shornur 42022 5 0.119

4 Aluva 24108 12 0.498 31 Malappuram 58490 6 0.103

5 Palakkad 130736 30 0.229 32 Manjeri 83704 20 0.239

6 Kannur 63795 25 0.392 33 Perinthalmanna 44613 10 0.224

7 Thalassery 99386 70 0.704 34 Kanchangad 65499 10 0.153

8 Thuruvalla 56828 6 0.106 35 Nedumangad 56138 8 0.143

9 Perumbavoor 26550 7 0.264 36 Varkala 42273 9 0.212

10 Thirur 53650 4 0.075 37 Paravur (South) 38649 2 0.051

11 Vadakara 75740 10 0.132 38 Adoor 28943 15 0.518

12 Kasaragod 52683 10 0.190 39 Mavelikkara 28440 3 0.105

13 Neyattinkata 69435 6 0.086 40 Chengannur 25391 5 0.197

14 Attingal 35648 8 0.224 41 Vikom 22637 3 0.133

15 Punallor 47226 4 0.085 42 Kalamassery 63176 5 0.079

16 Pathanamthitta 37802 5 0.132 43 Chavakkad 38138 5 0.131

17 Kayamkulam 65299 7 0.107 44 Guruvayoor 21187 8 0.378

18 Cherthala 45102 8 0.177 45 Cittoorthathamangalam

31884 3 0.094

19 Pala 22640 6 0.265 46 Otapalam 49230 8 0.163

20 Thodupuzha 46226 5 0.108 47 Ponnani 87356 20 0.229

21 Kothamangalam 37169 4 0.108 48 Kalpatta 29602 3 0.101

22 Muvattupuzha 29230 6 0.205 49 Payannur 68711 4 0.058

23 Kunnamkulam 51585 10 0.194 50 Koothuparambu 29532 1 0.034

24 North Paravur 30056 4 0.133 51 Thaliparambu 67441 5 0.074

25 Thrippunithura 59881 7 0.117 52 Quilandy 68970 6 0.087

26 Angamaly 33424 5 0.150 53 Mattannur 44317 8 0.181

27 Chalakudy 48371 6 0.124 Total 2731093 487 0.178

Source: Clean Kerala Mission Studies done by NEERI in 1996 in Indian cities have revealed that quantum of waste generation varies between 0.21-0.35 kg/capita/day in the urban centres and it goes up to 0.5 kg/capita/day in large cities. Per capita waste quantity for various Municipalities with different population is presented in Table 20.


Table 20 Per Capita Waste Quantity for Various M ies with Different Population Range

Source: NE The eration in the Municipalities i erala can therefore be taken inimum 0.2kg/capita/day (1996). Since the above figures e bas o y in 1996, the t generatioshould be assessed at higher rates considering the increasing trends in waste generation. Study conducted by Urban Development S ion U , ia and Paci egion of thW nsidering the relation between GNP and per capita waste generation the rate iestima grow at an nential rate o 1.41 r per annum. Hence the present ge a n be put arou 42 kg/head/d The Mu alities as pthi s given in 21 below.

Population range in lak kg/head/day

unicipalit

h Average per capita-

< 1.0 0.21

1-5 1 0.2

5-10 0.25

10-20 5 0.3

ERI- 1996

waste gen n K as m 1 ar ed n stud curren n

ect nit East As fic R e orld Bank co s

ted to expo f pe centner tion ca nd 0.2 ay. total generation in the nicip er s a sumption is Table

>50 0.50


35

Table 21 MSW Generation as Per Standard Norms

No Name of Population MSW generation Sl.Sl.

Municipality /day Municipality generation/day No Name of Population MSW

1 Alappuzha 177079 43 28 Iringalakuda 28873 7

2 Kottayam 60725 15 29 Kudungallur 33543 8

3 Chenganassery 51960 13 30 Shornur 42022 10

4 Aluva 24108 6 31 Malappuram 58490 14

5 Palakkad 130736 32 Manjeri 83704 20 32

6 Kannur 6379 a 44613 11 5 15 33 Perinthalmann

7 Thalassery 99386 9 16 24 34 Kanchangad 6549

8 uvalla 5682 N 8 14 Thur 8 14 35 edumangad 5613

9 Perumbavoor 26550 42273 10 6 36 Varkala

10 Thirur 5365 Para h) 649 9 0 13 37 vur (Sout 38

11 Vadakara 75740 18 38 Adoor 3 7 2894

12 Kasaragod 52683 13 39 Mav 7 elikkara 28440

13 Neyattinkata 69435 17 40 Chen 6 gannur 25391

14 Attingal 35648 9 41 Vikom 22637 5

15 Punallor 47226 1 42 Ka 15 1 lamassery 63176

16 9 Chavakkad 381 9 Pathanamthitta 37802 43 38

17 Kayamkulam 65299 16 44 Guruvayoor 21187 5

18 Cherthala 45102 11 45 Cittoorthathamangalam

31884 8

19 Pala 22640 5 46 Otapalam 49230 12

20 Thodupuzha 46226 11 47 Ponnani 87356 21

21 Kothamangalam 37169 9 48 Kalpatta 29602 7

22 Muvattupuzha 29230 7 49 Payannur 68711 17

23 Kunnamkulam 51585 12 Koothuparambu 29532 7

24 North Paravur 30056 7 51 Thaliparambu 67441 16

25 Thrippunithura 59881 14 52 Quilandy 68970 17

26 Angamaly 33424 8 53 Mattannur 44317 11

27 Chalakudy 48371 12 Total 2731093 661

Taking averages based on standard norms or on studies conducted elsewhere need not hold good in some special cases e.g. Guruvayoor, where per capita generation is high, as the large number of pilgrims arriving there adding to the per capita waste generation rate.. Similar situation will arise at Pathanamthitta, Chengannur where generation is high during Sabarimala pilgrim season. During detailed study of current SWM Scenario in Guruvayoor and Aluva, it is revealed that: The generation of waste on normal days in Aluva Municipality is 20 tons /day. this figuretons seems to be very high as it amounts to 0.709 kg/capita/day

of 20 .


36The curren e Kg. On an average this temple a day (Source Guruvayoor Dewasom) which goes up to , generate 3.30 tons/day while the generation of elephant dung & elephant food waste is 7.80 tons.This a ds to the per capita average of the city.

he quantity of waste generated in Kerala applying the percapita norms rrived from different studies and estimations is given in Table 22.

t g neration in Guruvayoor is reported to be 8 tons which means per capita 0.378. 35,000 pilgrims visit

50 000 during Sabarimala season. Guruvayoor Dewasom (Temple and GD sources)

d Each Municipality need to make its own assessment of the quality of waste generated which is one of the crucial basic data for developing SWM Programme. Municipalities need to update this data from time to time. Ta

Table 22 Waste Generation in Kerala in 2006

Population

2001 Percapita

waste generation

(g)

Tot Waste generation (MT/day)

Projected population

2006

Projected pc

gener ation

Tot waste generation

2006 (MT/d)

5 Corporations 2456618 400 983 2543812 429 1091

53 Municipalities 5810307 300 1743 6016535 322 1935

999 Panchayats 23574449 200 4715 24776983 214 5312

Total Waste Generatio erala n in K 7441 8338

Quantity of Waste Reaching Municipal Stream

y of generation, Municipalities need to know the waste reaching Municipal stream. When talbetween waste generation and waste collection. There is always a gap between the quantity of w e gen nd a lly ed Quantity of waste reaching Municipal stream = Quantity of waste generated – quantity of waste

parat for recove , recyc ng and source level disposal. The rther r ctio e to separation of waste at interm te ges waste collection, transportation and disposal by rag pickers and workers. 10-15 % of waste may reach the Municipal stream. It is observed th e waste reaching Municipal stream is on the risewhere door step collection is introduced as wastover the waste to waste collector by the rag pickers.. Efforts of source segregation, aste m m on lo roc g, help tion

ith regard to the ch l qu of l o av p ry dt the following:

In addition to the data on quantit

king about waste quantities one must make a clear distinction

ast erated a the qu ntity of waste fina ne s to be collected.

se ed ry li

re will be fu edu n du edia ly sta ofnot

at th e generator find it more convenient to hand

at the door step and the recyclable waste does not get retrieved w ini isati and cal p essin can

in waste reduc .

W emica ality waste, Municipa ities d not h e any rima ata genera analyzing the waste arising excepted by


• Studies done by different agencies for Kannur, Aluva Kottayam , Kochi and Thriruvanathapuram 1

• Analysis done by CESS in Greater Cochin Area as part of the Carrying Capacity Study.

The results of the secondary information collected are summarized in Table 23& 24 given below. There is not much of data a nsity, moisture and chemical

ry of results of study conducted by CESS as part of the g capacity study.

ties of MSW

Sr. Sampling Density Moisture Calorific Organic C N P K

vailable on the properties like deproperties. The Table 24 is the summacarryin

Table 24

Physico Chemical Proper

No. Locartion/area (Kg/m3) Content (%)

Value Matter (%)

(%) (%) (as P205 %)

(K2O)

(K.Cal/kg) (%)

PH C/N

1 Changanasseri 613 51.04 1331 8.3 31.95 18.53 0.55 33.51 0.49 0.54

2 Chengannur 688 60.58 1670 7.7 26.57 15.41 0.5 30.58 0.2 0.61

3 Muvattupuzha 538 45.08 923 8.1 30.67 17.79 0.37 47.95 0.37 0.54

4 Pala 420 56.76 1198 6.6 23.73 13.76 0.5 27.69 0.3 0.37

5 Kottayam 510 58.98 1408 7.4 32.27 18.72 0.33 56.89 0.52 0.46

6 Alappuzha 570 61.61 2393 7 31 17.98 0.53 34.25 0.72 0.44

7 Kothamangalam 472 58.12 2664 6.8 52.43 30.41 0.76 39.86 0.47 0.54

8 Aluva 522 53.74 1523 6.6 41.76 24.22 0.53 46.13 0.24 0.51

Study Area (avg.)

541.63 55.74 1638.75 7.31 33.80 19.60 0.51 39.61 0.41 0.50

Source: CESS – Carrying Capacity Studies

Table 23 Quality of Waste Summarised from Different Studies

Component in % Aluva Kannur Kottayam Trivandrum Cochin Average Organic 70.83 68.73 69.25 69.09 58 67.18Paper 9.72 8.2 6.8 2.25 4.9 6.37Plastic 6.94 6.67 4.25 2.79 1.1 4.35Rags 5.55 1.4 2 1.31 2 2.45Glass, Ceramic,

eather, Rubber 2.77 2.18 4.85 2.

L1 0.3 2.44

Metals 1.38 1.4 2 0.21 0.7 1.13Earth, stone 2.77 1.49 1.33 19.05 14 7.72Others 0.04 9.93 9.52 3.2 19 8.331Kottayam study has been carried out by ANERT in 2002 , Kannur ( MNES -2002), Thiruvanthapuram ( Capital city Development Project – 2003), Aluva (Aluva Municipality -2006) .The study detail of Cochin is not known.


38The values- density, calorific value, C/N ratio - in this study appears to be on the higher side when compared to values assessed by MoEF Solid Waste Management Manual -2000. The values are given in Table 25. Long spells of monsoon could be one of the main reasons of high density of waste in Kerala.

Table 25 MSW Parameters in Indian Cities

ensity D C/N ratio Calorific Value

350-500 30-35 800-1000 Kcal/kg Source Manual of SWM – 2000

compostable, while about 15 % has potential for recycling. In general 60-75 % can be made available for composting through an

alities, and d data with

nsultants to take up survey and analysis. Clean Kerala Mission may support Municipalities in generating reliable data by conducting studies in representative Municipalities. Principal Deficiencies in SWM systems in the state: 1. No Storage of Waste at Source

The general tendency of the citizens is to keep their houses, shop and establishments clean, but there is apathy on their part to keep their surroundings clean. In absence of any system of

ollection of waste from the door dispose of the waste on e streets, open spaces, drains, water bodies, etc. as and when waste is generated. The system of

, trade, institutional bin for the storage of waste at source has not evolved in the r the storage of waste at

ource in the areas where Kudumbashree scheme has been introduced recently.

at source does not generally exist and waste is seen isposed of on the streets or water bodies as could be seen from the photographs below.

Tables above indicate that around 67% of the waste is

organized collection and about 15 % can be recycled. Different studies indicate the current separation for recycling is about 8-10%, while through segregation at source it may be possible to recycle around 5-7% more. For conversion of organic fraction to compost, the moisture content and the C/N ratio are found suitable. However the data in Table 25 shows higher values of C/N ratio. Such circumstances, the feed has to be amended with cow dung or other nitrogen rich waste. Suitability of waste for various processing options is discussed in a subsequent section. Since the information is scanty on quantity and quality of waste generated in the Municip

liable data is crucial for developing SWM projects, it is necessary to get the requirerethe assistance of co

primary c step, it is an age old practice to thhaving domesticcities and towns across the State. Very few citizens keep domestic bin fos

The situation as on 2005 assessed by Clean Kerala Mission, which has been validated by study team in among eighteen representative municipalities, has revealed that only seven towns/cities out of fifty eight have adopted the practice of storage of waste at source, partially. In the rest of the cities/towns the system of storaged


quite a sizeable roportion of recyclable waste such as paper, plastic, metal, glass, etc. is disposed of by the

aste thus forms part of municipal solid waste. This waste accounts for about 15% of the total waste generated in the municipal areas. This waste is partially collected by the rag pickers from

s as could be seen from the photographs below.

tion of waste from the door steps was almost non existent in the tate till the year 2001 (an exemption is Cochin) as Municipal authorities have never considered

collection of waste at source as their primary duty and instead they are collecting the waste through street sweeping. This has resulted in treating the streets as receptacle of waste as could be seen from the photographs below.

2. Partial Segregation of Recyclable Waste at Source

On account of socio economic considerations, there is a common practice of segregating certain recyclable/reusable material at source such as newspapers, used bottles, plastic milk bags, etc. which are sold for a price to “kabadiwalas” (Akri purchasers). However, pcitizens along with domestic food waste, trade waste, etc., without segregating the same at source. The system of segregation of recyclable waste which is presently mixed with the food waste, is almost non-existent except to some extent in Kozhikkode and Kannur .Recyclable w

the streets, bins and dumping ground

3. No primary Collection of Waste from the Source of Generation The system of primary collecS


w municipalities in the State have introduced the system of collection of waste is however picking up under the

udumbashree scheme of Government of Kerala where quite a good number of urban poor are ction of waste on levying a monthly charge

mewhere between Rs.20 and Rs.60 per month. The municipal authorities are however legging

Sweeping of streets is not carried out on a day to day basis in all residential and commercial areas and instead it is generally carried out on main commercial streets and important residential areas. Rest of the areas are generally ignored and cleaned occasionally or not at all. The citizens are expected to put their waste into municipal bins from where the municipal authorities collect the waste from time to time. The street sweeping operations are generally carried out using inefficient tools and equipments. In most of the cities/towns long handle brooms are given for street sweeping but their design in inefficient as the broom only picks up the litter and not the dust from the streets with the result separate efforts are to be made for removing str he sweepers are not given appropriate

on the ground ausing in sanitary conditions. The tools and equipments used in certain cities could be seen

Now a very ferom the door step in parts of the city. This systemf

Kentering into the field of door to door collesobehind in pursuing the scheme to cover the entire city/town under the scheme. The involvement of Kudumbashree workers in door to door collection is very promising as it helps in door to door collection of waste without any financial burden on the local body and makes the operation sustainable due to levy of monthly charge directly by the waste collector.

4. Irregular Sweeping of Streets

eet dust. Thand cart for carrying the waste to the waste storage depot. The design of the traditional hand cart necessitates multiple handling of waste and the waste has to be depositedcfrom the photographs below.


5. Unhygienic Secondary Storage of Waste In most of the cities and towns, the municipal authorities have identified hundreds of locations on the road side for secondary storage of waste. Most of these sites are open and very unhygienic. At few sites, round concrete bins or open metal bins are kept which are small, and ill-designed. The secondary facilities are not capable to contain the waste reaching at the waste

t resulting in to ove aste. Waste generally does not get collected on a day from the open waste storage sites; it emits fowl smell and creates unhealthy

around the bin and serious resentment from the neighbourhood. The pathetic

storage depo rflow of wo day basist

conditionscondition of waste storage depots could be seen from the photographs below.

port the waste to the treatment ite. The transportation efficiency is also very low. As per Economic Review

Very few municipal authorities have of late introduced neat mobile containers in lieu of open dust bin sites which have, to some extent, improved the situation in those towns. 6. Inefficient Transportation of Waste The system of transportation of waste adopted in most of the cities is inefficient as it necessitates manual and multiple handling of waste. Generally open trucks and tractors are used for transportation of waste and a team of four to six labours accompany each vehicle. They pick up the waste from the waste storage depots manually in small baskets and deposit the same into the trucks/tractors by throwing the baskets up to be caught by the sanitary workers standing inside the truck and once the truck is full they transfacility/disposal s

WSP - SWM SECTOR ASSESSMENT REPORT 422005, about 2500 metric tones of waste is generated in the cities of Kerala, out of which hardly 50% is collected on each day and the remaining waste is left to decompose on road margins, drains, canals, water bodies and open spaces. The system of transportation, besides being inefficient, is injurious to the health of the workers. The system entails throwing the waste at a height of about 7-8 feet which results in contaminated dust particles spreading in the atmosphere which are in-hailed by the work force and cause respiratory infections and problems of health for the sanitation workers. The inefficient system of transportation could be seen from the photographs below.

provided tarpaulins or plastic portation and they are used while transporting the waste to

It is however observed that several municipal vehicles have beensheets to cover the truck during trans

e disposal sites. th

While the state is facing a serious problem of transportation of waste as stated in economic review 2005, there are some examples where municipalities have done well by involving private sector in transportation of waste. A case study on ‘Privatization of Transportation in Solid Waste Management’ in Thrissur Municipal Corporation is given in Annexure 6. 7. No Treatment of Waste By and large no treatment of waste is carried out by the municipal authorities in the State. Most of the municipalities take the waste to the dumping ground for disposal without any pre-treatment. Of late, Trivandrum, Kochi, Thrissur, and Kozhikkode Municipal Corporations and Changanacherry, Vadakara, Neyyattikara, North Paravur, Chalakudy, Guruvayoor, Payyannur, Thaliparamba and Malappuram Municipalitis have set up vermi composing or wind row

posting plants for treatment of part of municipal solid wacomor

ste. Most of them are small plants king with low efficiency. Some bio gas plants that have come up in the State could be seen

om the photographs below. Bio gas plants are most suited for vegetable and animal waste. ey could be set up near the vegetable market or fish or meat market. A case study of bio gas

ant set up in a town named Punalur is given in Annexure 7

wfrThpl . Eight such plants have already come up in the states and five more plants are in progress.


t of Waste through Composting

here are a few cities / towns in the State which have resorted to composting as a method of eatment of waste and in the process they have reduced the quantity of waste going to landfills. ecentralized composting is also attempted successfully in a few areas which reduce the need of ansportation of waste to a central facility and enable a location solution of the waste generated. case study of Thumpoli in Alappuzha town is given in Annexure 8

Decentralized Option of Treatmen TtrDtrA , which demonstrates the

iability and desirability of decentralized composting.

. Unscientific Disposal of Waste

he disposal of waste is being carried out by all the Municipal Corporations and Municipalities the State in a very unscientific and unhygienic manner. There is not a single

ngineered/sanitary land fill in the State. The waste is disposed of in open grounds/low lying reas situated in close proximity to residential areas where waste is neither spread nor covered ausing alarming in sanitary conditions and problems of air, land and water pollution.

ost of the municipalities have some land available with them for treatment and disposal of aste as can be seen in Annexure 5.

v

8 Tineac

Mw The availability of land for treatment and disposal is not dequate with any Municipality as per the normal yardstick of 2 acres land per 10,000 opulations if 4 metre filling at the land fill is adopted. The requirement of land could be educed to half if the land filling could go up to 10 metres. The availability of land is thus very adequate to set up both treatment and disposal facilities at these sites. The pathetic condition

f existing dump yards could be seen from the photographs.

aprino


EUF carried out a case study of Kottayam municipality to ascertain the overall situation of Smanaging municipal solid waste, following the seven essential steps and carried out the environmental assessment of the disposal site. The details of which are given in Annexure 9. MSW Flow –Present Scenario

On Plot disposal (30%)- Open/pit /crude

composting / burning

Disposal in community facility/open

throwing (70 %)

Uncollected 22 %

Collection by ULB – 44 %

Segregation of recyclables (8%)

Processing (4%) Crude Landfill (40%)

Generation


45Creation of Common Facilities for Treatment and Disposal of Waste Looking to the problems encountered by the municipalities in findings suitable parcel of lands for treatment and disposal of waste and high cost of maintaining a treatment or disposal facility for a small town, a participatory approach is emerging and municipalities are coming together to

t up a common facility or develop a model of inter municipal / inter panchayat cooperation in eatment and disposal of waste. A case study of such a model in Kasaragod district is given in

Annexure 10.

setr

9. Week Institutional Arrangements The institutional arrangement for the management of municipal solid waste is ineffective in most of the municipalities. Waste management is a subject of environmental engineering or public health engineering; but it is being handled in all small urban local bodies by persons of the level of Sanitary Inspector or below and in larger municipalities or Corporation by Health Officers. The engineering inputs are by and large lacking. Absence of engineering inputs has led to open dumping grounds and absence of engineered land fills in the State. Many municipalities do not have even qualified Sanitary Inspectors to manage the solid waste management services. The existing staffs also do not have adequate training to scientifically plan and provide SWM services. Some efforts have been made by the Clean Kerala Mission to provide training to staff and officials at various levels, but it appears that municipalities need hand holding to put appropriate systems in place and have adequate qualified staff as recommended by the Supreme Court Committee on Solid Waste Management or in the National Manual on Solid Waste Management.

10. Poor Financial Health The municipal authorities in the State do not have a strong financial base. They are heavily dependent on State Government grants and funds for carrying out their day to day activities including solid waste management. The levy of taxes is inadequate and levy of user charges is almost non-existent except in some towns where Kudumbashree schemes have been implemented partially. In North Paravur municipality they get better return from vermi compost as the composting process is directly done by the municipality by involving a women group. On account of paucity of funds, municipal authorities have not been in a position to implement of all the essential steps of solid waste management nor have they created a mechanism of cost recovery to sustain their efforts to improve solid waste management services. 11. Lack of Community, NGO/Private Sector Participation Though the subject of solid waste management requires active community participation in storage of waste at source and its primary collection from the door step, the community participation is substantially lacking in the State on account of lack of efforts on the part of the municipal authorities. NGO and private sector participation is also minimal in managing municipal solid waste as municipal authorities have all along felt that they are the provider of service and that they are capable to do so. The concept of NGO and Public/Private Partnership is


46not fullytreatmenGradual

appreciated. Only a few municipalities have ventured to involve private sector in t of municipal solid waste and have involved private sector in setting up compost plants.

involvement of informal sector in door to door collection of waste under the udumbashree scheme is taking place introducing the element of community/public/private K

partnerships in solid waste management.


47

5. REGULATORY FRAMEWORK

adequacy of Implementation of Municipal Laws

he Municipal authorities in the State of Kerala are governed by the Kerala Municipality Act, 994. All municipal authorities in the State are under an obligation to provide solid waste anagement services as per Sections 326 to 345 contained in Chapter 16 of the Act.

he aforesaid provisions of the municipal law are quite adequate to meet the expectations of eeping the cities clean and meet the standards of health and sanitation, but they are not

plemented seriously by the Urban Local Bodies in the State with the result the level of service ontinues to be far from satisfactory.

he MSW Rules envisage municipal authorities to take following seven essential steps to prove the systems of solid waste management.

Prohibit littering of waste on the streets – ensure storage of waste at source in a segregated manner

Primary collection of waste from the doorstep Daily street sweeping

Transportation of waste in covered vehicles rocessing of waste by composting or power generation

The fo by the cities/towns before the end of Decem of all the seven steps has not bee d in the country including Kerala State. Partial com ore steps mentioned above. The o of MSW Rules 2000 in 128 Class I cities of India is giv i

In T1m Tkimc Tim

Abolish open waste storage sites – provide covered containers

P Disposal of non-biodegradable waste at the engineered landfills

a resaid seven steps were required to be compliedber, 2003. However, for various reasons, the compliance

n one by most of the Municipalities pliance has been done by several cities in respect of one or m c nsolidated position of compliance

en n Chart 1.


The Consolidated Position of Compliance of MSW Rules 2000 in 128 Class I Cities of India

The reasons of no try, have been as nder.

s in ensuring storag , segregation of recyclables, primary the doorstep, secon nd transportation of waste

blic awareness Lack of wide publicity th Lack of finances to create Resistance to change Difficult to educate slum dwellers Non cooperation from households, trade and commerce Citizens not willing to spend for separate bin for recyclable Lack of sufficient knowledge on benefits of segregation Lack of litter bins in the city Non availability of primary collection vehicle and equipme Lack of powers to levy spot fines

rce odern vehicles

Chart 1

60

70

80

90

100

n-compliance, as reporte al cities across the cound by severu

Constraint e of waste at source

dary storage acollection from Lack of pu , motivation, education

rough electronic and print media awareness

s

nts

Lack of financial resou s for procurement of bins and m

Disposal‐SLFProcessing of waste

TransportationStorage DepotStreet

Sweeping

Primary collection

Segregation of recycables

Storage at source

0

10

20

30

40

50

ITEMS TO COMPLY

OF

52%

9% 1.4%

COMPLIAN 72%C

EPERCENTAGE 41%

33% 38% 29%

WSP - SWM SECTOR ASSESSMENT REPORT 49Status of Compliance in Kerala

Information in respect of complibut from whatever data is availabcompliance status as given in the

State

ance of MSW Rules by all the cities is not adequately available le is compiled by the Clean Kerala Mission in 2005 reveals the Table 26.

Table 26

m the above data that the leve pliance is still far from satisfactory and

oncerted measures are required box solutions for the implementa A comparative study of the provisions in the KMC Act, 1994 a

tatus of the implementation of these laws / ru

Compliance Status Compiled by Clean Kerala Mission

It is observed fro l of comto step up the compliance by thetion of MSW Rules, 2000.

c municipalities adopting out of

nd MSW Rules 2000 has been les have been studied carried out and the present s

under: and tabulated as

Comparative S

Table 27 tatus of KMC Act, 1994 and MSW Rules 2000

MSW Rules 2000

KMC Act -1994 and amendments

Present status

Storage at source Section 327(1) :All premises to

provide receptacle of size specified by Secretary for the purpose of storage at source

Storage at source is getting increasingly accepted. Municipal intervention by supplying bins and organizing door step collection has improved the situation. A continued effort by way of undertaking a phased programme for creating awareness is lacking

Segregation of waste at source Schedule II (2) Municipal authority shall organize awareness programme for segregation of waste Schedule II (1-3)

Section 327(2A )The secretary by public notice direct owner or occupier of any premises to segregate waste for easy collection and disposal of such

Municipalities have initiated the process by motivating community with supply of two bins for segregating organic waste & other fractions.

Segregated storage at source (partial) 4/58 Partial collection from source 9/58 Partial composting 12/58 Partial biogas (market/laughter house waste) 3/58 Sanitary land filling 0/58


50It shall be the responsibility of generator of waste to ensure delivery of waste in accordance with collection and segregation system notified by Municipal Authority .

waste

Primary collection of Municipal solid wastes Schedule II (i to vi ) Arrange Primary collection of waste from the doorstep using containerized handcarts, or small vehicles, etc., at pre-informed timing using bell ringing system

Section : 329 The secretary may with the sanction of council introduce door step collection either by municipal employees or by contract

Primary collection of waste from door step has been initiated in xxx Municipalities Coverage varies from 10% to 90%. Vehicles used are hand cart with or with out containers /three wheeler

Street Sweeping Section 326 (a) Regular

sweeping ,cleaning of streets and removal of sweepings there from

Need based schedule is absent in Municipalities. Sweepings are openly heaped and removal of sweepings not being done simultaneously

Secondary storage of Waste Schedule II (3) Storage facilities are to be set up and shall be so designed that waste stored are not exposed open and shall be aesthetically acceptable and user friendly. Facility should take in to account of waste generated in a given area. Abolish all open waste storage sites/bins and provide closed containers for the storage of waste so that waste is not exposed to open atmosphere Manual Handling of waste shall be prohibited

Section 326 (d-i & iv) Municipality to make adequate arrangements-depots ,receptacles and places for temporary deposit of waste

Three major Municipalities have partly introduced container (dumper) for secondary collection. All other Municipalities still have open collection /open metal or Cylindrical concrete sections. Absence of adequate storage facility is generally absent . Manual handling is still a common practice

Transportation Schedule II (4) Vehicle used for transportation of waste shall be covered. Storage facilities set up are to be attended daily and cleaned before overflowing. Transport vehicle are to be designed that multiple handling of waste is avoided. Ensure

Section 326 (d-ii ) Municipality to make adequate arrangements for covered vehicles for removal of waste

Transportation vehicles are mainly trucks and tractors, seldom covered. Manual loading and multiple handling is common


51transportation of waste in closed vehicles on a day to day basis synchronizing with secondary storage system and avoiding multiple and manual handling of waste. Processing of waste Schedule II (5) The biodegradable wastes shall be processed by composting, vermicomposting anaerobic digestion or another appropriate bio-logical processing for stabilization of waste. Incineration with or without energy recovery including pelletisation can also be used for processing waste in special cases.

Section 332 The Municipality may for the purpose of recycling, treating, processing or converting such waste in to compost or any other matter construct, acquire or operate and manage any establishment and run it on a commercial basis or may contract out such facility Section 331 (3 ) Municipality to make a ts for rrangemenpreparation of compost and the disposal of it by sale

Municipalities resorted to composting /biogas generation with varying degrees of success. The process adopted vary from windrow composting, vermin- composting , power intensive shredder attached composting units , biogas plant in slaughter house /market.

Disposal of Waste Sc (6) il l hedule II Landf ling shalbe restricted to non-biodegradable, inert waste and other waste that are not s ble uitaeither for recy ng o for cli r biological processing.

Section-3 ery Municip31 Ev ality sh l ide d notify suitable al ntify anl within r outsi uniciands o de m pal area for the purpose of final disposal of waste

No Municipality has initiated sanitary landfilling and still resort to crude dumping

Prohibition of littering & Penalty for littering Schedule II(1). Prohibit l ing itterof waste in urban areas

S on 340 No person shall ecti : put o use to put a bbishr ca be ny ru or filth or debris in to any public place not intended for deposit of waste Section 340 (2) The Secretary or an officer authorized for the purpose shall , on being satisfied that any person shall put or cause to be put any rubbish or filth or debris in to any public place not intended for deposit of waste impose a fine on the spot that may not exceed two hundred and fifty rupees . Secretary shall initiate prosecution against the person if he fails to pay the fine imposed.

Impo ion penal is sit of ty marginal. Official are rel ant in im ing uct pospenalties as t is no p ical here olitsupport to imp enaltieose p s.


52 Information in respect of compliance of MSW Rules by all the cities is not adequately available but sample data has been gathered from selected Municipalities in a qualitative manner. The compliance to various provisions of the MSW Rules 2000 has been evaluated based on a questionnaire compiled from the salient aspects of the rule. The questionnaire is given as Annexure 11. The answers to the questionnaire are translated into a scale of 100% for full compliance of the rule. The compliance has been assessed based on the definition as provided in the glossary. In the absence of actual figures for various questions, qualitative categorization of the level of service in terms of minimal, moderate, appreciable, significant and extreme and attribution of values by dividing the scale from 1 to 20, 21 to 40, 41 to 60, 61 to 80 and 81 to 100 respectively has been done. These values are substituted in a matrix framework to assess the level of compliance for each component of MSW management. The evaluation matrix is given as Table

8. The compliance at the National level as indicated above is also given in Table 28 for 2comparison.

Table 28 Compliance of Municipal Solid Waste (Management & Handling) Rules, 2000 as on May 2006


Segre-gation

Primary Storage

Primary collectio

n

Secondary

storage

Sweeping Transportation

Processing

Disposal Overall Score

Malappuram 10 30 18 0 40 55 55 0 26

Chalakkudi 0 35 15 0 40 65 65 0 28 N.Parur 0 35 25 0 40 50 40 0 24

Alappuzha 15 20 20 40 40 54 15 0 26

Kayamkulam 0 25 15 0 30 35 0 0 13 Kottayam 0 50 35 20 50 60 0 0 27

Kerala 4 33 21 10 40 53 29 0 24 National 33 41 38 29 72 52 9 1.4 34

t is observed from the above data that the level of compliance iIe

s still far from satisfactory. The va t

wh asign capptran o important aspects for env nexh tawa nfoc dthe mu d in the open at public places or stored in open

lua ion indicates that primary storage, sweeping and transportation activities are appreciable ere s processing is moderate. The level of segregation at source and secondary storage are ifi antly low. The collection, sweeping and transportation can be further improved by ropriate scheduling, providing protective measures and enforcing its use, covering the sp rtation vehicles. The segregation of waste is one of the most iro mental up gradation and improvement of processing and disposal efficiency. However, it ibi the least compliance which can be improved only by taking significant efforts for re ess creation, action plan on plastic wastes etc. There is requirement of consistent and

use effort for improving source segregation. The secondary storage system is deplorable in nicipalities as the waste is either dumpe


53bin hstorage ey are placed in an adhoc manner without considering the

opulation density of the area and distance to be covered for dumping waste in the containers.

a serious concern as it has lead to open dumping in thickly populated and environmentally lems due to pollution. There are three reasons for the

ck of initiatives for developing engineered landfill. There is a lack of technical support, land

spect to the Solid Waste Management are detailed in the Kerala Municipality ct, 1994 (KMA, 1994) and Kerala Panchayat Raj Act 1994 (KPRA, 1994). Further, the

Solid Waste (Management & Handling) ules, 2000 under the Environmental Protection Act, 1986and has set the minimum standards

s, t e conditions of which generally is extremely poor. The number and capacity of the open bins are also inadequate as th

pThis results in an extremely un aesthetic scenario in municipalities. Though some of the municipalities have installed processing plants and the technology used is composting, there is requirement of upgradation and streamlining. The lack of engineered landfill in any municipality isfragile regions causing considerable problaavailability and weak environmental monitoring. The level of compliance also varies in different municipalities. The main reasons attributable are lack of priority to the subject by the elected representatives, lack of trained man power and the lack of coordination between the administrative, engineering and health wings. The inadequacy of technical support, reviews and enforcement also are causative factors for the poor performance level of the Municipalities. Evaluation of Existing Regulatory Mechanisms The prime responsibility of providing solid waste management services in the state is entrusted to the Local Self Government Institutions (LSGI) both in the urban and rural areas. The provisions with reAGovernment of India has brought out the Municipal Rand measures that are required to be taken by the municipal authorities to protect the environment. . As per these Rules and Acts, the LSGIs, State Pollution Control Board, District Collector, Secretary in charge of Urban Development and Central Pollution Control Board are the key agencies entrusted with specific responsibilities, roles and functions The responsibility mapping of these agencies is given in Annexure 12. The analysis of roles, responsibility, functions and the level of performance indicates lack of involvement of some key agencies, lack of integration of institutional potential etc. As a result, the progress in the field solid waste management is extremely poor. There has not been any attempt to establish interrelationships between these agencies (even departments with in a Municipality) and carry forward the programme in an integrated manner.. Some of the salient aspects noted from the lack of inter-relationships are as follows.

The Collectors (DMs) of the respective districts are not actively involved in ensuring the

The state agencies are not actively involved in allotment of suitable lands for treatment

ment agencies have almost been inattentive to the requirement of compliance to the rules and acts by the Municipal authorities.

compliance of the rules.

and disposal of waste. The monitoring and review of implementation has been very poor. The enforce

There has not been any effective follow up from the State and Central enforcement agencies for reviewing the compliance.


54 The mission constituted for facilitating and integrating the activities are administratively

and technically ill-equipped. Though there is adequate regulatory framework, its enforcement mechanism is very poor. The Government has taken innovative steps ted special purpose vehicle (SPV) for spearheadi coherent. Environmental Regulatory Standards So not properly hand uces only one f f

es place. Since th ive of ement sy ability, it is impor o

ensure that the technologies and methods ment is the least impacting ones in the c ronm e the SWM sys is

o environ fixed cons e due to in nt, environ l

management ironmenta ards stipula n the MSW Rules 2000. This requires th ditions, impact of various technologies ces, e ties and mon g requirements

Environmental Impact Assessment of T There are se vogue unicipa Waste (MSW SW its volu r minimizing t possible. e

al s ersion exclusive r biodegradable waste and the other based sion for mixed wastes. The biological method inclu aerobic nd biomethanation. The th l method inclu cinerati a technology. The selection of a technology by a Municipal authority is generally based on the suitability of the waste in ter and ch position, capital and recurring cost t recovery and inclu assessing the

ment nology i , assessment of impacts has been carried ologies

and creang the implementation of SWM activities but the progress is very slow and in

lid waste management systems if led , may red orm oe mainpollution and during this process, other form

object of pollution may tak

ental sustainsolid waste manag stem is environm tant t used for solid waste manage

ontext of baseline envi ental scenario of the place wher tem installed. Inthe baselin

rder to ensure this,ts

mental regulatory standards have to be anageme

ideringconditions, impac terventions for solid waste m menta possibilities, env l monitoring and the monitoring stand ted i

e assessment of baseline con and ongoing practi nvironmental mitigation possibili itorin.

echnologies

veral technologies in for the treatment and disposal of the M l Solidm o). The treatment of M is essentially carried out for reducing

far ase f

he burden on disposal afterrocesse

recovery of utilizable resources asical conv

Therare essenti ly two treatment p , one based on biolog ly fo

on thermal converdes composting (An , Aerobic and Vermi) a ermades pelletisation, in on, pyrolisis, gasification and plasm

ms of its physical emical com s, cos technical feasibility ding land availability. The practice of

environ al feasibility of tech s virtually absent. Thereforeout for various techn and given in Annexure 13. It indicates that com

t. posting

is the techno m envi Environmen of C

i tent enviro y consequent to the ongoing solid waste management ssmen s activities linkedcurrent pract

in which present are given in earlier chapt ssessment stages, first by identifying the impacts and he pote entification of impacts has been

logy that has minimu ronmental impac

tal Impact Assessment urrent Practices

In order to dentify the persis nmental qualit practices, impact asse t has been carried out for variou to the ices.

The activities and the manner they are performed in Kerala ater. The impact a is carried out in two second by assessing t ntial of impacts. The id


55carried out lations the impacting activities fro e ongoing practices. Accordingly, the potential impacts identified and their qualitative nature is given in Tab

Type and Nature of Impact of

using cause-effect re hip by identifying m th

le 29.

Table 29

Current Practices of Solid Waste Management

Environ-mental

attributes sses Impacting activities/stre Type of impact

N

I

atureof

m tpacLand Irregular collection

Improper storage Composting practices Open dumping of MSW

Littering and improper land use Soil contamination Possibility of soil conditioning Inefficient use of land and pollution

MA MA MB AA

Air quality Irregular collection Poor segregation Improper storage Poor fleet operation Composting practices Open dumping of MSW

Emission of methane, hydrogen sulphide Foul odour due to putrefaction Emission of methane, hydrogen sulphide Emission of particulate matter Foul odour due to improper practices Emission of green house gases

MiA MA MA MA AA

MiA

Water quality Irregular collection Improper storage Inadequate sweeping Composting practices Maintenance of plant Open dumping of MSW Covering of refuse with soil

Contamination due to clogging of drains Contamination due to leachate discharge Clogging of drains Leachate discharge due to poor management Leachate discharge due to poor capture Contamination due to discharge & seepage Seepage of leachate to groundwater

MA MiA MA MA MiA AA MA

Aesthetics Irregular collection Improper storage Inadequate sweeping Poor fleet operation Composting practices Maintenance of plant Open dumping of MSW

Eye sore due to littering Unhygienic places Eye sore due to littering Dust, littering and spillage of leachate Foul odour Foul odour Unhygienic dump yard, foul odour

AA AA MA AA AA MiA EA

Health Irregular collection Improper storage Inadequate sweeping Poor fleet operation Composting practices Open dumping of MSW Covering of refuse with soil

Nuisance of flies and vectors Spread of worms and flies Spread of vectors due to clogging of drains Dust and smoke Occupational diseases Respiratory/allergic diseases due to burning Contamination of water

MA AA AA MiA MiA AA MA

Accidents Improper storage Composting practices Open dumping of MSW Covering of refuse with soil

Fire accidents Wounds due to improper handling Animal menace Gas accumulation and exp

MiA MiA AA

losion MiA Employ-ment Irregular collection

Improper storage Inadequate sweeping

Reduced opportunity Poor efficiency of labour Poor efficiency of labour

MA MA MA


56Composting practices Maintenance of plant Open dumping of MSW Covering of refuse with soil

Re rtunity duced oppoLoss of man days Reduced opportunity, loss of man days Enhanced employment

SA MiA MA MiB

Income Irregular collection Poor segregation Improper storage

adeq eePoor f tComp pracMaintenance of plant Open dumCovering of refuse th so

In uate swleet oposting

ping ion tices

era

ping of MSW wi il

Loss of income Quality deterioration and reduced income Loss of income Los cos of in me Inefficient e sxpense Qu te on u omality de riorati & red ced inc e Loss due poor efficiency Loss of resource Loss of resource

MA AA AA MiA MSA

MiA SA

M

A

iA MiA- Minimally adverse; - Mo ely - Ap iably erse; SA- Sig antly verse - MA derat adverse; AA prec adv nific ad ; EAExtremely adverse; MiB- nimally beneficial; MB- Moderately ben al; A Appreciably b ficial; SB- Mi efici B- eneSignificantly beneficial; E xtreme enefi B-E ly b cial The assessment of th pact tent as b car out g L old ix a lysi

ong diffe s and mental attribu re e uate ter portance and m ude ord

he magnitude, the weighting schem pproach is used. The term magnitude is used in the sense of degree of extensiveness or scale of act in the overall importance of the impact. It

according to the relative erits degr of im rtan betw and among the ental attributes. In the case of d w e m gem , im tanc atin f ental attribut sthetics (5), Air quality (4), Water quality (4),

(3), Accidents (1 mployment (2), Expend (1 e es e ndicating the rate of importance in an arbitrary scale of 1 to 5. It indicates the relative

pact. In tes in

action re in each cell therefore

emely beneficial impact.

e im po ial h een ried usin eop Matr na s. Forthis, the various cause-effect relationshipsenviron

between and amms of their im

rent acagnit

tivitie. In tes a val d in er to

evaluate t e a

would vary m or ee po ce eenenvironmenvironm

soli ast ana ent por e r g oes is taken as Health (5), Ae

Land ), E iture ); th valu in th pare thesis inimportance of an environmental attribute on the overall environmental scenario of the impact zone. Similarly, the magnitude of impact due to the activities is also considered in the scale of 1 to 5 indicating the magnitude of impact of a particular activity on the concerned environmental component of the project. The impact assessment is carried out by assigning the activities on the x-axis and environmental attributes likely to be affected by the activities on the y-axis. Each cell of the matrix represents a subjective evaluation of the impact of a particular activity on a

articular attribute in terms of magnitude and importance. A blank cell indicates no impthe matrix ‘no sign’ (positive number) indicates beneficial impact and negative sign indica

verse impact. The importance and magnitude of the impact are given on a scale of 1 to 5adeach cell. This numbers indicate the relative importance of an environmental attribute on the overall environmental scenario of the impact zone and. The magnitude and importance are multiplied to get a score for each cell of the matrix. The scores of individual cells in each row are added to determine the total impact of all project activities on each component. Similarly, the scores in individual cells in each column are added to determine the total impact of eachon all the environmental components likely to be affected. The total sco

ary between –25 to +25 representing extremely adverse impact to extrvAccordingly, the impact potential assessed is given in Table 30.


57Table 30

Impact Assessment Matrix for Current Solid Waste Management Practices

Activities

Attributes Ir

regu

lar

colle

ctio

n

Poor

se

greg

atio

n

Impr

oper

st

orag

e

Inad

equa

te

swee

ping

Poor

flee

t op

erat

ion

Com

post

ing

prac

tices

Mai

nten

ance

of

plan

t

Ope

n du

mpi

ng

of M

SW

Cov

erin

g of

re

fuse

with

soil

Tot

al

Land -6 -- -6 -- -- 6 -- -9 -- -15

Air quality -4 -4 -8 -- -8 -8 -- -12 -- -44

Water quality -8 -- -4 -8 -- -8 -4 -12 -8 -52

Aesthetics -15 -- -15 -10 -15 -15 -5 -25 -- -100

Health -10 -- -15 -15 -5 -5 -- -15 -10 -75

Accidents -- -- -1 -- -- -1 -- -3 -1 -6

Employment -4 -- -4 -4 -- -8 -2 -4 2 -24

Expense -2 -3 -3 -1 -2 -4 -1 -4 -1 -21

Total -49 -7 -56 -38 -30 -43 -12 -84 -18 -337

The current practice of waste management has serious implications on aesthetics, health, water quality and air quality. Therefore, considerable effort required by way of evolving appropriate nvironmental management plan and its implementation to upgrade the current practices to the

tory standards. The environmental management plan so evolved need to give thrust on improving the current practices, especially with respect to open dumping, storage,

he Ministry of Urban Development which is the line Ministry for the Municipal authorities in nment and Forest, Ministry of Agriculture and Ministry of Non-

conventional Energy Sources have taken certain measures to help the States and the Municipal

l aspects of solid waste management. The manual has been circulated to all States and large ULBs and the same

eenvironmental regula

primary collection, composting practices, street sweeping and fleet operation. Measures Initiated by Central and State Government to set up Compliance Tthe country, Ministry of Enviro

authorities to comply with the rules expeditiously which are briefly described as under.

1. Preparation of a National Manual on Solid Waste Management Ministry of Urban Development, GoI, Central Public Health and Environmental Engineering Organization (CPHEEO) formed an Expert Committee to prepare a National manual on Solid Waste Management. A comprehensive manual has been prepared covering al


58has been put on sale in all government book depots. This manual can be used by the Municipal authorities in designing their own systems of waste management.

With a view to help ULBs to arriving at an appropriate decision in regard to choice of capacity building in the area of solid waste

nt of India constituted a Technology Advisory Group to study various d identify appropriate technologies suitable under the Indian condition,

elopment has taken up training programmes in various States through tate level training institutions to provide training to Municipal officials at various levels to

enable them to design systems of solid waste management. Ministry of Environment and Forest has also conducted several workshops and training programmes in the country or has financially supported training and capacity building programmes for ULBs. 4. Financial Support

The Ministry of Urban Development has successfully managed an allocation of Rs.2500 crore to the ULBs in the country for solid waste management from the 12th Finance Commission Grants of Govt. of India. All the States have been allocated funds as per their population and certain other considerations. 5. Model Projects

The Ministry of Environment and Forest has taken up a scheme of having one model project in each State with 50% financial support of the Ministry for putting the entire system in place in one city if the State Government and the city concerned mobilize the balance funds. 5 to 6 States have already benefited from the project with more states likely to get similar support shortly. 6. Publication of Guidelines

Ministry of Environment and Forest and CPCB has published guidelines on various aspects of solid waste management to assist the municipal authorities in the country.

7. Financial Support to Compost Plants

The Ministry of Agriculture has introduced a scheme to give financial support to municipal authorities for setting up compost plants to the extent of Rs.50 lakh per plant.

2. Creation of Technology Advisory Group

technology, look at financial options and for management, Governmetechnological options anprepare a framework for training and capacity building and a compendium of various schemes extending financial support to local bodies for improving solid waste management services. The Report of the Technology Advisory Group has recently been published and made available to the States and ULBs by Government of India for their guidance. 3. Training and Capacity Building Programmes

The Ministry of Urban DevS


598. Financial Support to Waste to Energy Plants

istry of Non-conventional Energy Sources has come out with a comprehensive scheme rting waste to energy projects in the country and also help research and development in r.

erala

g their mandate in SWM across the

investments, irrespective of

The Minof suppo

is sectoth

Measures Initiated by Government of K Clean Kerala Mission n the context of the poor performance of ULBs, in discharginI

state, need for adherence to the MSW rules 2000, in the wake of the Supreme Court directions, to provide technical support, empower, facilitate and co-ordinate the ULBs in effective SWM in the State and too ensure standardization and quality assurance, the Clean Kerala Mission (CKM) was set up by GoK in the year 2003. In 2005, the GoK has issued directions to the ULBs to obtain

andatory technical sanction from CKM for any capital mown/plan/borrowed funds.


60

6. TECHNOLOGY ASSESSMENT

Wh i olid Waste (MSW) foll i 1. Comoffering e long run. The sol provides for scientific management of

aste all through the project development and implementation.

. Reliable and Cost Effective Solution. There is a need to evolve a credible solution that (i) is suit lerange o latory requirements and (v) makes optimal use of ava b Screen Tec o The mathe f ll

ile dentifying the solution to the problem of management of Municipal Sow ng requirements have been considered as paramount:

prehensive Solution: The solution should address the problem of entire waste generation a credible roadmap for ultimate sustainable MSW management in th

ution therefore should have a phased strategy thatw 2

ab for local waste characteristics, (ii) is cost effective, (iii) can be applied for MSW in the f 5- 70 tons, (iv) meets the regu

ila le sites and their capacity.

ing of Technologies

hn logies for Processing/ Treatment of Municipal Solid Waste

in technological options available for processing \ treatment of municipal solid waste, are o owing.

1. Composting 2. Vermi-composting 3. Anaerobic Biomethanation 4. Incineration 5. Gasification & Pyrolysis 6. Plasma Pyrolysis 7. Production of Refuse Derived Fuel (RDF)/ Pellatization

The Technology Advisory Group of Govt. of India has looked at the above options as under. Advantages/ Opportunities and Limitations / Barriers of Different Technologies for Their Applicability in India Composting Composting of MSW is currently the most important biological route for recycling matter and nutrients from the organic fraction of MSW. Full scale composting technology for (i) source separated MSW (ii) mechanically separated MSW, (iii) mixed MSW is already commercially


61available and in use, and its further application is limited only by process economics and the availability of markets for the composted MSW, which include applications like use as manure, soil conditioner for parks, gardens, agricultural lands, landfill cover, etc., depending upon its omposition/quality.

dvantages/Opportunities

nditions, waste from slaughterhouse and dairy waste. • Can be done from a small scale to a large scale.

imitations/ Barriers

• able fraction of MSW; not very suitable for wastes

ssed. r tone of waste input in full-scale plants during

concern from open compost plants if not managed properly. ts.

• contaminated compost from MSW if entry of biomedical waste, lant

site. nt of land is relatively more for open compost plants.

• In case of vermi composting source segregation of organic biodegradable waste is

The quthat of compost produced from mechanically separated MSW, and of that produced from mixed MS (of haza ke it impossible for their removal after the composting is done. In the abscontam ardous substances, etc. It is critical that compost so pro cthroughobjects The S n limits for heavy metals content in com te and address parameters for

c A

• Age old established concept for recycling of matter nutrients to soil. • Simple and straight forward for adoption, for source separated MSW. • Does not require large capital investment, compared to other waste treatment options. • Suitable for organic biodegradable fraction of MSW, yard (or garden) waste, waste

containing high proportion of lignocelluloses materials which do not readily degrade under anaerobic co

L

Suitable for only organic biodegradwhich may be too wet.

• Problems relating to the complexity of the raw waste, which need to be addre• Around 30-35 kWh energy is consumed pe

sieving and turning of waste pile for supply of oxygen. • Emissions of environmental • Operations get hampered during heavy rains for a few days at the open compost plan• Open compost plants if not managed well could emit bad odour and create fly menace.

Risk of production of hazardous industrial waste arid other toxic material is not restricted at the compost p

• The requireme

essential. Worms are likely to die if any toxic material enters the stream of compostable matter. This also requires more land than microbial composting.

ality of compost produced from source segregated organic waste is generally better than

W without any separation). Grinding of MSW should be avoided as it can mask the presence rdous material and maence of waste segregation at source, there is possibility of the produced compost being inated by heavy metals and toxic/ haz

du ed be environmentally safe and, if the compost is marketed for agriculture, it is ensured proper testing and certification that it is free from heavy metals, toxic materials, sharp

, glass, etc.

M W Management & Handling Rules 2000 have laid certaipost produced from MSW that these standards are adequa


62safe agricultural use. It is, therefore, necessary to ensure that the standards laid down are met and

n place to ensure that the same are strictly implemented. Pending the same, gricultural use of compost derived from MSW calls for caution.

ost (residual sludge), it rovides a value addition to the aerobic (composting) process and also offers certain other clear

n terms of energy production/consumption, compost quality and et environmental gains.

wastes and, other putrescible wastes, this may be too wet and lacking in structure for aerobic composting.

aste input). .

• The net environmental gains are positive.

odour, rodent and fly menace, visible pollution and social resistance. mprovement of economics with increase in energy price and or buy-back

re. eams from industry agriculture.

Lim t

•

organism). • Problems relating to complexity of input waste need to be addressed, as in case of aerobic

composting process. • Requires waste segregation for improving digestion efficiency (biogas yield) and

improving quality of residual sludge. • While the liquid sludge can be used as rich organic manure, either directly or after

drying, its quality needs to be ensured to meet statutory standards. No grinding of waste material should take place.

• Disposal of process waste -water requires treatment to meet statutory standards. • Biogas leakage, posing environmental and fire hazards. • Generally more capital intensive than aerobic composting.

a mechanism is put ia Anaerobic Digestion/ Biomethanation Biomethanation is an age old established technology for disinfections, deodorization and stabilization of sewage sludge, farmyard manures animal slurries and also for industrial sludge. Its application for organic fraction of MSW is, however, more recent and less extensive. As it leads to bio-gas/ power generation in addition to production of comppadvantages over composting in Advantages/ Opportunities

• Suitable for kitchen

• A net energy-producing process (100-150 kWh per tonne of w• Totally enclosed system enables all the gas produced to be collected for use

• Modular construction of plant and closed treatment needs less land area. • Can be done at small scale. • Free from bad• Potential for i

power tariff in futu• Potential for co-disposal with other organic waste str

ita ions/ Barriers

Suitable for only organic biode• gradable fraction of MSW; does not degrade any complex organics or oils, grease, or ligno-cellulosic materials such as yard waste. Heat released is less, resulting in lower and less effective destruction of pathogenic organisms than in aerobic composting. (If temperature is increased it will kill micro


63 Application in India

a processing method for mixed MSW, which can be very effective in preparing an nriched fuel feed for thermal processes like incineration or for use in industrial furnaces.

• The RDF pellets can be conveniently stored and transported. ectively take care of imbalances in input waste feed to power plant.

ing rainy season. • Distinct possibility of contamination of RDF fluff / Pellets, by toxic/hazardous materials,

t be removed completely from mixed MSW by sorting; not safe for burning in the open,’ for domestic use.

discharges, already exists/ is planned to be set up simultaneously, to consume the pellets.

Recently a 5 MW power plant based on biomethanation technology for power generation at Lucknow was constructed and operationalized but unfortunately has been closed down for various reasons, one among them being non-supply of appropriate quality of MSW to the plant. The organic content in the waste supplied to the plant is reported to be as low as 15%. Lack of due diligence on the part of the investor is also one among the chief reasons. Biomethanation technology on a small scale is functioning at Vijayawada and at other places in the country for the treatment of very special organic waste collected from canteens, etc. Production of RDF / Pellets It is basically e Advantages / Opportunities

• Can eff As it involves significant MSW sorting operations, it provides a greater opportunity to remove environmentally harmful materials from the incoming waste prior to combustion. Limitations/ barriers

• Energy intensive • Not suitable for too wet MSW dur

which can no

• Plant for production of RDF fluff will be useless until a dedicated power plant with necessary pollution control systems to meet statutory limits for air emissions, other


64Application in India

he Department of Science and Technology of Technology Information, Forecasting and Ass smmunicipal solid waste to separate combustible fraction and densification into fuel pellets to a sca o of Mumbai Municipal Corporation. Fuel pellets produced in the demo plants were found to have calorific value in exc ound Ks. 1000 per tonne in a atransfer . Selco International Limited, Hyderabad for scaling up and commercial ope i6.6 MW erate MSW derived fuel and generate electricity. DST has also

ansferred the technology to M/s Sriram Energy Systems Ltd to set up a similar plant at

for waste

eatment and disposal and/or the waste has high calorific value on account of large component

An c 0 tpd MSW was installed at Tim p Value MSW. Adv t

Value waste, pathological wastes, etc. Can reduce waste volumes by over 90 % and convert waste to innocuous material.

ous feed and high through put can be set up. Thermal energy recovery for direct heating or, power generation.

s and odourless

cated within city limits, reducing the cost of waste transportation.

T

es ent Council (TIFAC) New Delhi had initially perfected the technology of processing

le f 2 tons per hour in a demonstration plant at Deonor dump yard

ess of 3000 K Cal / Kg consistently and the fuel was test marketed arnd round Mumbai. Thereafter, the DST technology of processing MSW into fuel pellets was

red to M/srat on. The Technology Development Board of DST and TIFAC is assisted Selco to set up a

power plant to incintrVijayawada. Both these plants are operational since November, 2003. However serious doubts have been raised about the suitability of this plant for the treatment of MSW. It is alleged that agro waste is being used in a very large proportion to raise the calorific value and very little MSW is used. Incineration

This technology is used in developed countries only where there is a shortage of land trof paper, plastic; packaging material, etc. It is an important method of waste disposal volume reduction and conversion to innocuous material, with energy recovery. When the waste is dry, it may not need any auxiciliary fuel except for start-up but when and the input waste is mixed MSW rich in inert and moisture co, supplementary fuel may be needed to sustain combustion, adversely affecting net energy recovery. Application in India

In ineration plant for 3.75 MW power generation from 30ar ur, Delhi in the year 1987 could not operate successfully due low Net Calorific

an ages/ Opportunities

Most suitable for high Ca

Units with continu

Relatively noiseles Low land area requirement.

Can be lo Hygienic.


65 Limitat

for disposal of aqueous/ high moisture content/ low Calorific Value and chlorinated waste.

d personnel required for plant operation and maintenance. Concern for emission of particulates, SO; NOx, chlorinated compounds, ranging from I

Concern for toxic metals in particulates that may concentrate in ash; need for care in their

resence of chlorinated hydrocarbons like PVC, in the waste is a matter of great concern. It is temperatures during the combustion process can eliminate

e fabric filtration systems can remove up to 99 percent of alkaline scrubbers can remove sox. Activated

rb anced processing. However, dioxins are most ction are not yet completely clarified and

re not yet completely established.

r fication Plasma Pyrolysis Vitrification (PPV) / Plasma Arc Process

heric pollution can be dealt with in a superior way, in techno-economic sense.

NO and SO gases emissions do not o rmal operation due to the lack of oxygen in the system.

Plasma Pyrolysis Vitrification attractive for disposal of mixed hazardous wastes. Toxic ials get enc us mass, which is relati to handle than

r/ Gasifier ash.

Capital i Net energy recovery may s ase of wastes with excessive mo inert

content. High viscosity of pyrolysis oil may be problematic for its transportation & burning.

ions/ barriers

Least suitable

Excessive moisture and inert content affects net energy recovery. High capital and O &M cost. Skille

to Dioxins

removal and disposal. Pclaimed that maintaining very highvirtually all dioxins produced. Also thosother contaminants in the form of particulates and ca on reactor and catalytic rectors are used for advcontroversial issues, and the mechanism of their produtheir removal methods a

Py olysis /Gasi Pyrolysis Gasification processes are established for homogenous organic matter like wood, pulp etc. while Plasma Pyrolysis is a relatively new technology for disposal of particularly hazardous wastes, radioactive wastes, etc. These are now being reorganized as an attractive option for disposal of MSW also. In all these processes, besides net energy recovery, proper destruction of the waste is also ensured. These processes, therefore, have an edge over incineration. Advantages/ Opportunities

Production of fuel gas, fuel oil, which replace fossil fuels. Compared to incineration, control of atmosp

ccur in no

mater apsulated in vitreo vely much safer incinerato

Limitations and Barriers

ntensive. uffer in c isture and


66 Concent toxic/ haz er a wil are in

handling and disposal.

n in I ia

No such plants have so far come up in India or else where for the disposal of MSW. It is an emerging technology for MSW a be successfully demonstrated for large scale

The decision to implement any particular technolo rocessi t of MSW depends

of factors as under.

/quality of the waste sence of was

bility for the energy produced Market for c di e Energy pric for as Cost of alter Level of capital and labour cost Land price

he ion needs to b ec ic viability of any option at the ke g in view the local conditions and the available physical and financial

s. The urban local bodies should follow their own standard procedure of inviting bids different options on merits. Due im e needs to be given to

are techno economically most viable/ sustainable in long run, environmentally m and loc eeds, besides to ity experiencelid te management.

ove aspects are further brought in to the matrix in Table 31, bringing in, operational, itability in M ipalities.

Table 31 Matrix of Processing Technologies

meters Biological Method Thermal Method

ration of ardous matt in Gasifier sh, which l need c

Applicatio

nd

nd yet toapplication. Choice of Technology

gy for p ng treatmenon a number The origin Pre Availa

hazardous/ toxic of outletsompost/anaerobic

es/buyback tariffnatives

te

gestion sludgenergy purch

sed on t

e

In general, tspecific siteresourceand evaluating

decisepin

e ba hno-econom

portanc options whichost friendly

are suited to the area of so The ab

al n was

the capabil and of the technology provider in

financial aspects and su

unic

Para

Compost Anaerobic Digestion

Incineration Pelletisation ication

Pyrolysis/ Gasif

Basic Principle icro-

organisms

Degradation by anaerobic micro-organisms

Combustion Refining of MSW to form fluff

Anaerobic Thermo-chemical Conversion/Themo-chemical conversion

Degradation by aerobic m


67Primary Product H Gas ts

is Gas Compost Bio Gas (C 4

and CO2) and Compost

Synthetic RDF Pelle(High calorificfluff)

Fuel and Synthes

Secondary Products

,

amendment

ble fuels

- Heat, PowerFuels,Chemicals, Soil

Electricity Fines for composting

Electricity, chemicals, some marketa

Suitability to Municipal Waste

Good Good

d

Medium (considering high moisture content and low calorific value of the

)

and low calorific value of MSW)

Low (High moisturecontent anlow calorific value of MSW)

MSW

Low (High moisture content

Suitability of Treating Mixed Waste

No Yes No Yes No

Waste segregation

Principally, source separated biodegradable waste

nutrients are to be recovered with minimal contamination.

pally

rated e

matter and nutrients are to be recovered with minimal

ation

All waste except plastic (since plastics

s,

In particular suitable for segregated

ing

e

Most suitable for well defined dry organic waste

since matter and

Princisource sepabiodegradablwaste since

contamin

cannot beburnt as per MSW Rule2000).

MSW havlow moistureand high calorific valu

fractions and low moisture

Acceptance oWet Organic Fraction (kitchen wastes)

f

auxiliary fueliing

Yes Technically ally

especially given low calorific

)

Yes Yes Yes- but will require possible (usu

not applied

valueAcceptancGarden

e of

Yes Not Usually Yes Yes Possible

and ParkWastes Acceptance of Organic Waste

tels and

but normally no

from HoRestaurants

Yes Yes Yes Yes Possible

AceptanPaper and

ce of

Board paper possible Small amounts of No Yes Yes Possible

Excluded waste fractions

Debris, Metal, Plastic, Glass, and Mixed Municipal Waste as far as possible

Debris, Metal, Plastic, Glass

Debris, Metal ris,

Debris, Metal Wet household waste, DebMetals


68Important Waste Parameters

sired

ture content > 50% Organic/Volatile

C/N ratio :

re content > 50%Organic/Volati

40%

- 30

< 45% c/Volati

le matter >

bon

Total Inerts

Calorific

0

ture Content < 10-15%

ic/Volatile matter >

re Content < 45% Organic/Volatile

> 40% Fixed Carbon

Total Inert

Calorific Value 0 kcal/kg

and DeRange 1

Mois

matter > 40%

25 - 30

Moistu

le matter >

C/N ratio : 25

Moisture content

Organi

40% Fixed Car< 15%

< 35%

Value > 1,20kcal/kg

Mois

Organ

40%

Moistu

matter

< 15%

< 35%

> 1,20

Nutrient recovery

Yes*: 2-4 kg N/1-2 kg P/

ton ton

1-2 kg K/ton

.5 kg N n

0.5 - 1 kg P per ton

pr

Yes*: 4.0 -4per to

2.5 - 3 kg Kton

No No No

Products for recycling or recovery,

eight - % of

post ibres, % fluids

% ash

(including clinker, grit,

sting and other recyclable

trified h

(including clinker grit, glass, char) (w

waste input) glass), 3% metals

products like plastics

3% metal

18-25% com 30% f50-65

15-25bottom

Fines for compo

15-25% vibottom as

Residuals for other waste

2-20% overflow sieving (plastic,

2-20% overflow

3% fly ash (including flue

3% fly ash

treatment or fland filling (weight -% owaste input)

ones) sieving (plastic, metal, glass, stones)

gas residues) (including flue gas and gas cleaning residues)

or metal, glass, st

f

Resource Recovery Potential

Yes Yes limited Yes Yes

Energy Recovery

No Yes Yes Yes Yes

Waste Volume Reduction

Medium Medium High High High

Ease in Operation

Proven technology

Yes; Very Common Yes Yes in US and EU (In India,

and Industrial Hazardous Waste)

Yes No/Yes (Relatively few

continous operation)

incineration is being used for destruction of Biomedical

plants in Europe and US with long periods of

Scale of Operation in India

Small to medium Small Small Medium Small with selected waste


69Commercial Scale Operation in India

Yes Yes No- except small plants

Yes No

Land Requirement

Medium - High Medium Low Low Low

Cost of Treatment

Low to medium Medium to high

Low to medium

Low to medium

High to very high

Capital Investment Cost

Low to medium Medium to high

High High High

Labour requirement

Low Medium Low Medium Low

Level of skill Low Medium-High Medium High High O& high Medium High M Cost Low Medium Dec raapp ti

m Medium Medium Medium ent lization High Mediulica on

CapMin a

dm s

Poor Poor Poor Poor acity of Average icip lities to ini trate/MA

onitor Marketability of Low to medium Medium to Medium to LoEnd roducts high high

w to medium

Low to Medium P

Environmental impact

Very low Low h High Medium Hig

t is observed from the matrix that when the waste suitability and environmental acceptability

Bio-methanation

ts. Composting and bio-

rms consume lant and animal waste and slowly convert them into a soil-like substance, which is nutrient rich

for plant growth. Compost provides energy, minerals, nutrients and micronutrients, useful

Icriteria are applied independently or in combination, following two technologies qualify as technologies that can be considered for treatment of MSW in municipalities.

• Composting •

Composting seems to be the most suitable option of the two. Out of the different technologies of composting ordinary windrow composting is the simplest operation. Bio-methanation has some limitations compared to composting especially in the feed stock. Segregation of waste has to be relatively high degree. Hence this option is best suited to waste arising from slaughter houses, fish, meat markets & easily degradable vegetable waste from markemethanation are discussed in detail in the subsequent section.

Composting Composting process is one of the commonly used treatment and disposal techniques in Indian towns/cities. The end product is a stable material called 'compost' and the compost may be used as low-grade manure and soil conditioner depending on quality.

Composting Technologies Composting is a slow natural process were mixed bacteria, fungi, insects and wop


70microbes and water-retaining humus to the soil. Both aerobic and anaerobic processes can be adopted for composting purposes. The aerobic windrow process may be completed in 45-60 days including time required for maturation with available technologies, on any scale, even with mixed non-toxic waste, by repeated turning and aeration.

Vermi composting is a process in which earthworms consume decayed plant and animal waste

In vessel -in closed vessel with aeration and forced air circulation Anaeroibic composting

with the help of bacteria in their gut, to excrete fine-grained soil-like vermi-castings rich in minerals and microbes. The compost produced is very beneficial to plants and free of germs. The following processes are well suited to small-scale segregated biodegradable waste at de-centralized locations.

Turned windrow- Aeration by turning Static windrow – Forced aeration

Vermi – composting Various waste composting projects in India is summarised in Box 1.

Box 1

Waste Composting Projects in India

Aero f solid waste is bic composting: In broad terms, microbial decomposition of the organic fraction oknown as composting. Decomposition of organic solid waste can be accomplished either aerobically (in the presence of oxygen) or anaerobically (in the absence of oxygen). Approximately, 35 composting projects with designed treatment capacity is generally between 200 and 300 MT per day have emerged / finalized in the country over the past five years. Most of the compost plants are in the States of Maharashtra, Tamil Nadu, Andhra Pradesh and Kerala (Two nos). The largest operating plant is located in Calcutta and has a treatment capacity of 700 MT per day, ndrum has commissioned the first fully covered plant covering an area of 12,000 sq. feet. while TrivaKozhikode is modernizing the plant by providing facility for full covering. The capital investment requirement for such projects is typically in the range of Rs.30-75 million (100-700 MT per day capacity) and the project financing has predominantly been driven by promoter equity. Composting with earthworms (vermi composting): It might be mentioned that every good aerobic compost heap harbours earthworms, but vermi composting is set up in such a way that the worms can multiply optimally and do thorough processing of all compostable matter. The end product is a compost of ideal constitution and structure. A vermi compost unit has to be set up in such a way that the worms are protected against birds, rodents and ants. It also has to be protected against heavy rains and /or be extremely well-drained. Daily attention is a must, as a drop in ideal water content interferes with the optimal activity of the worms. Various earthworm species are being propagated as ideal candidates for vermi compost, but it is always possible to use the species which are locally available. Another useful and valuable product of vermi compost is vermi wash, which is said to have growth-promoting and pest-repelling properties. In order to harvest vermi wash, the vermi culture is handled slightly differently. Vermi composting is done in Municipalities in Kerala as decentralized processing option.


71Vessel composting process is faster compared to open aerobic systems, but require segregated

exp(40%ope

Anacomnvi obic composting can be accelerated in biogas igesters, where the harvested methane becomes a useful fuel and the slurry produced is useful

gas digesters are not high, some of the pathogens are

high, anaerobic conditions set in and the optimum moisture content is known to be 50% -60 %. Higher moisture content may be required while

s known to have good insulation properties and hence the released heat results in increase in temperature of the decomposing mass. As some of the heat loss occurs from the exposed surface, the actual rise in temperature is slightly less. When the decomposing mass is disturbed, the resultant heat loss results in drop in temperature. Under properly controlled conditions, temperature is known to rise beyond 70oC in aerobic composting and a further rise in anaerobic conditions. This increased rate of biological activity results in faster stabilization of materials. On the other hand, very high rise in temperature would result in inactivation of enzymes and organisms. Studies carried out have shown that the activity of cellulose enzyme reduces above 70oC and the optimum temperature range for nitrification is 30o to 50oC beyond which nitrogen loss is known to occur. The temperature range of 50o to 60oC is thus optimum for nitrification and cellulose degradation.

waste, composting containers, forced aeration systems. There is not much of in country erience especially with MSW as feed stock. However the in vessel systems occupy less space

of windrow system) and the process is odour free and aesthetically acceptable. Capital & rating costs are high.

erobic composting processes are very slow because it takes up to 180 days to produce post in airless pits or underground trenches in the ground, and generate methane, an ronmentally harmful greenhouse gas. Anaere

dorganic manure. As temperatures inside bionot killed. It is useful for cooked food waste in de-centralized operations.

Factors Affecting the Composting Process

a) Organisms: Aerobic composting is a dynamic system wherein bacteria, actinomycetes, fungi and other biological forms are actively involved. The relative predominance of one species over another depends upon the constantly changing food supply, temperature and substrate conditions. Facultative and obligate forms of bacteria, actinomycetes and fungi are the most active in this process. In the initial stages, mesophilic forms predominate and thermophilic bacteria and fungi take over in the final stages of composting. Thermophilic actinomycetes and fungi are known to grow well in the temperature range of 45oC to 60oC.

b) Moisture: The moisture tends to occupy the free air space between the particles. Hence,

when the moisture content is very

composting straw and strong fibrous materials, which soften the fibre and fills the large pore spaces. In anaerobic composting, the moisture content used will depend upon the method of handling.

c) Temperature: The aerobic decomposition of a germ mole of glucose releases 484 to 674

kcal energy under controlled conditions, while only 26 kcal are released when it is decomposed anaerobically. Municipal solid waste i


72 d) Carbon/Nitrogen (C/N) Ratio: The organisms involved in stabilization of organic matter

part of Nitrogen and hence the initial C/N ratio of ost favourable for composting. Research workers have reported that the optimum

ronmental conditions. However, e such as straw, sawdust, paper

er house waste etc., are added

Par The particle size of the material being composted is critical. Because smaller particles usually have m ore microbial activity on their surfaces, whi f the particles are ground up, they pack clos e. This is especially important when the s composting progresses, there is a natu timum particle size has enough surface area for rapid mic microbial respiration.

he particle size and void large uired.

tion is sometimes done after the composting process is completed to improve for specific markets. Hence generally no can only add to capital and operating costs

le production costs.

utilize about 30 parts of Carbon for each1:30 is mvalue range is between 26-31 depending upon the other enviwhenever the C/N ratio is less than optimum, carbon sourcare added while if the ratio is too high, sewage sludge, slaughtas the source of nitrogen.

ticle Size & Use of Culture/ Inoculums

ore surface per unit of weight, they facilitate mh leads to rapid decomposition. However, if all oc

ely together and allow few open spaces for air to circulatmoisture content. Amaterial being composted has high

tion. The opral process of size reducrobial activity, but also enough void space to allow air to circulate for feedstock composition can be manipulated to create the desired mix of T

space. The size reduction will be required only for garden waste, banana stem and similarsized vegetable matter. Hence simple chopping of large size vegetable matter is only req

ucFurther size redthe aesthetic appeal of finished composts destined grinding of total waste is required and such facilities leading unaffordab During the development of composting process, various innovators have come forward with inoculum, enzymes, etc. claimed to hasten the composting process but investigations carried out have shown that they are not necessary. The required forms of bacteria, actinomycetes and fungi are indigenous to the municipal solid waste and under proper environmental conditions, the indigenous bacteria adapted to municipal solid waste rapidly multiply as compared to the added cultures. However sanitization and accelerated composting by adding suitable inoculums may be done for decentralized operations done close to habitation.


73Compost Production from Municipal Solid Waste

AssuOneDedDeduct loss of volatiles duri

Assu post produced is 244 kgs

the w

80% qty of compost will be 540 kgs

f he absence of waste segregation at source there is possibility of the end

product being contaminated. It is critical that compost so produced be environmentally safe and the farmer be assured of its quality. Standardization of compost quality would also have a bearing on its demand. Solid Waste Management rules issued by Ministry of Environment and Forests, GOI attempts to address the risk and include standards, which are to be met. However, it needs to be established that these standards are adequate and address all parameters. Further it is imperative that these be strictly implemented. It would also be useful to test the raw material coming to these composting facilities to ensure that it excludes hazardous and medical waste. Waste segregation at source must also be aggressively promoted. Market for Compost Demand for compost will ultimately drive the price of the end product, which in turn will dictate the sustainability of such operations. It is important that there exist a market for the product. Creating a market would require the Government to set and maintain stringent standards regarding the quality of end product educate users about the benefits of compost and draw up a marketing plan. The following factors can affect the demand for the product:

A. Compost from crude mixed waste

ming waste reaching at site has 50% of organic content ton of waste will have 500 kgs of compostable fraction uct 25 % of moisture loss in the process 150 kgs

ng decomposition @ 15% = 45 kgs Qty of compost = 305kgs of compost

ming an extraction efficiency of 80%, the com(This qty may vary from 200 kgs to 250 kgs depending on organic and moisture content in

aste)

B. From segregated Municipal Organic Waste Assuming 25 %loss of moisture content - deduct 250 kg Volatile losses @15% -deduct 75 kg Qty of compost - 675 kg Assuming extraction efficiency of

The quantity of compost may vary between 400 and 550 Kg depending on the organic and moisture content. Key Risks in Waste Composting Projects in India

Compost Quality One of the key risks associated with compost produced from municipal solid waste is quality othe end product. In t


74

The type of agriculture or horticulture in the region. Interestingly, Excel Indu imately 95% of their compost is

purchased by farmers for growing sugarcane, 25% decrease in use of chemical fe ong these farmers. Further, their compost

eive good respo ja tra and Madhya Pradesh.

Farmers’ preferences: F are of of using compost in conjunction with chem

Marketing Plan: It is im g drawn up. This should include a broad assess l production capacity and demand for such product.

at compost mus direct be ntially demand. Further, compost is bulk ical fertiliz mes act as a detriment to farmers while ts use. It is therefor mpost finds application in local neigh be n duct increases, pricing will be affected

Price is an important issue. Surv ers appear comfortable with a price of around Rs.2, 000 to Rs.2, 500 per MT, when the following two parameters regarding the product are held as a constant: (i) the produc consistent quality; and (ii) it is delivered at the closest point of their purcha Higher price range is there for vemi compost. Studies recomme 00-

mmercially viab

comparative analysis of aerobic composting technologies is done in Table 32 to screen most propriate system.

stries Ltd. reports that approxgrapes, bananas, etc and has resulted in a

rtilizers amdid rec nses from the farmers in Gu rat, Maharash

armers need to be made aw the benefits ical fertilizers; and

portant that a proper marketinment of the tota

plan be

The distance th t be transported has ao chem

aring on cost, and pote sometiier compared t ers and this may

considering i e preferential that the cobouring areas. It must also oted that as compost pro.

eys show that farm

t is of an assured and se of other agricultural inputs.nd a production cost of Rs 12le.

1500 for windrow compost to run the plants co

Aap


75

Table 32 Aerobic Composting Systems

System Advantages Disadvantages

Turned windrows No electric power required.- except for mechanical sieving Existing farm machinery (Tractor mounted attachments) can be used. Choice of pre-treatment of MSW possible.(With out initial segregation) Turning mixes and reduces the need for grinding. Mechanical breakdown of particles process occurs more rapidly.

Labour intensive. Extensive land required. Loss of nitrogen occurs. No odor control. Weather influenced.(When roofing is required for windrow yard , the civil cost is high)

Aerated static piles Closer process control. Better pathogen destruction. Easily automated. Shorter process. Less land is needed as piles can be bigger.

Electric power required. Labour peaks at formation and breakdown of piles. Limited choice of amendments. Material must be well mixed and sized from the start.

In vessel systems Reduced labor. No weather problems. Odour control. Better process control. Fast composting. Less land required. Consistent product quality. Contained system to reduce potential for contamination.

High capital cost. Operating and maintenance Expertise required.

Vermi composting No power required except for sieving, Odour free, High quality end product. Vemi wash is rich in plant nutrient.

Labour intensive, Feed stock not contain spicy food waste, careful monitoring of temperature and moisture. The pits have to be protected from ants, rats.

Of the aerated compos ermi composting. The process has flexibility in terms of scale and ease of operation. Vermi composting though requires

nitor product and he et d

he re datio re:

r drow postir ostin

ince Vermi composting require segregation of spicy/oily food waste, the process should be estricted to market and other vegetable waste. Biomethnation also requires segregated waste onsisting of vegetable fruit, meat, fish waste and hence it will be ideal market and slaughter ouse waste.

ting systems, options are Tuned windrows and V

careful mo ing, the end quality is high nce good mark emand.

T final commen ns a

• Ae obic win com ng: • Ve mi comp g • Bi o- tion methana

Srch


76

7. SWM PRACTICES VIS-À-VIS PUBLIC HEALTH The public health impacts and environmental risks involved in solid waste management activities are serious, but often ignored in the background of the state’s low mortality and high morbidity syndrome. But the threat due to frequent outbreak of typhoid, gastro enteritis, emergence of diseases like leptospirosis (weils disease), and mosquito related diseases like dengue fever, japanese encephalitis etc which are directly linked to water, sanitation and solid waste management are on the increase in Kerala. The increasing trend of incidences of communicable diseases in Kerala exemplifies this (Table 33; Figure 1). The figure indicates that eventhough the morbidity has come down considerably, the disease incidences continues to increase. It underlines the fact that the causative factors are not adequately addressed. It is perceived that in the State, illness such as infectious diseases, allergies, respiratory damage, cancers and diseases involving direct or indirect ingestion of infectious micro-organisms are on the increase. The recent out break of chikungunya in the coastal areas of Kerala is reported to be linked to vector breeds in fresh water and hence to garbage accumulation and poor environmental hygiene. Similar is the case with occupational injuries and accidents. The solid waste management is also linked to emission of greenhouse gases, toxic fumes and fine particulates, discharge of different physico-chemical pollutants to water and soil, water contamination including that due to Persistent Organic Pollutants (POP) and various socio-environmental issues. Therefore, it is

orthwhile to attempt an examination as to the major health and environmental risks involved

Table 33

wwith respect to various activities linked in solid waste management.

Incidence of Communicable Diseases in Kerala

Diarrhoea Dengue fever Leptospirosis Japanese encephalitisNo Year Cases Death Cases Death Cases Death Cases Death

2000 636934 47 0 0 1174 87 11 1 2001 601734 33 74 0 2582 129 2 0 625196 28 163 1 2928 199 1 0 2002 2003 668582 15 3866 35 2162 98 14 0 2004 706421 21 839 7 1449 76 11 0 (S rce: Hand Book on Statistics of Communicable Diseases, Department of Health Services, 2005) ou


Figure 1

Incidences of Communicable Disease and Morbidity

720000 250

700000

200

640000Dis

ease

s

Dea

th

660000

680000

100

150

CasesDeath

600000

620000

50

5800001999 2000 2001 2002 2003 2004 2005

0

Toxic, allergenic and infectious substances emanated in situ based on the nature and composition of raw waste

Gases, dusts, leachates, particle sizes emitted/discharged during the decomposition of the

ciden ing in traffic, shovelling, lifting, equipment v

• Odour, noise, vibration, s, residuals, explosions, fires etc

caused during proce n

s that give omponents of MSW management system su

MSW Handling Practices and General Health and Environmental Issues Some of the major factors that lead to health impacts and environmental risks are: •

•waste

• Injuries and ac ts while handling waste, especially while work

ibrations etc

accidents, air and water emissionssi g

The processe r e to these factors includes all the functional c

imary collection, street sweeping, is

ch as source storage, segregation, pr


78secondary storage, seco a e scenario with respect to these function owing:

tori not widespread in the state • The segregation of w t ban households

practices it as per th • The primary collect on existent in the state except

ULBs siness units.

• Sweeping of streets n ll residential and commercial areas; the tools and equipment e

c s as receptacle of waste. n ized and designed bins n

• The transportation s e it mostly uses open

trucks and necessita tem entails throwing the waste at a heigh f n contaminated dust particles spreading in the atmosphere

e, treat s. The systems

established are large i icient and poorly operated • The final disposal o a nitary

landfill. The public health and e i management are

in Table 34

e 34 MSW C

Components of

MSW Management

nd ry collection, processing and disposal. In general, thal elements in the ULBs of Kerala indicates the foll

• The practice of s ng the solid waste generated at source is

as e at source is almost negligible as only about 6% of ure inference from six ULBs

ion of waste from the door steps is almost nKerala Buin a very few

through the Kudumbasree Clean

is ot carried out regularly in a us d are inefficient

• ULBs promote se on ry storages on the road sides, ending up treating the street

Ge erally, the storage sites are neither provided with appropriately sda

or maintained hygienically

yst m adopted in most of the cities is inefficient astes manual and multiple handling of waste. The syst o about 7-8 feet which results i

• By and larg ment of waste is practiced only by a very few ULBly nappropriate, incompatible, and ineff

f w ste is through open dumping as no ULBs own an engineered/sa

nv ronmental issues due to various functions of MSWbrought out .

Tabl omponents, Practices and Public Health Issues

Practices & Public health issues

Storage at source •

es odents, flies

Poor storage/ no storage at source leading to: Spread of litters in the premises

• Un aesthetic public plac• Increased menace of r• Increased potential for infectious diseases

Segregation Lac

• he recycling options

k of source segregation leading to: • Foreclosing the use of biodegradable at source

Foreclosing t


79• Increasing the quantity of waste to municipal stream • Reducing the processing & disposal efficiency • Release of toxic substances to recovery stream

Primary collection •

s

• Possibility for communicable diseases

Lack of primary collection leading to: Increasing ‘NIMBY’ syndrome

• Accumulation of waste on roads and roadside drain• Unaesthetic public places • Increased mosquitoes and flies

Street sweeping Inadequate cleaning leading to: • Significantly littered streets • Increased dust nuisances • Increased incidence of allergic diseases

Secondary collection Inadequate/ in appropriate secondary collection leading to: • Accumulation of faecal matter, blood, body fluids, animal flesh,

hazardous chemicals & heavy metals • Emanation of volatile organic and greenhouse gases • Accretion of waste in roadside drains • Clogging of drains and channels causing floods

breeding lly toxic materials and infectious micro organisms

• Habitats for insect • Spread of potentia• Increased potential for infectious diseases among sanitary workers

Transportation Improper loading and inefficient transportation leads to: • Spillage enroute due to open trucks • Undesirable loading procedure and injury to workers • Spreading of contaminated dust particles and its inhalation by

workers • Respiratory infections and skin diseases for the workers • Nuisance to public due to exhaust fumes and dust

Processing Absence/ inadequate processing leads to: • Emission of sulphurous gases and volatile organics in case of

improper digestion • Down gradient leachate flow in the absence of leachate recycling,

water contamination • High bio aerosol and particulates in the premises causing respiratory

illness • Emission of chlorinated and brominated dioxins , furans, volatilized

heavy metals etc on incineration • Flies and bird menace

Disposal Crude dumping leads to: • Possible emanation of benzene, toluene, ethyl benzene, methylene

chloride, dichloro methane, carbon tetrachloride from dump sites • Nuisance due to smell and allergic infections due airborne

particulates


80• Injuries due dog and rodent bites and puncture wounds

• Fire incidences and sliding of waste due to waste dump protection adaches o emissio ane, car e

and ca on mLead poisoning due to hazardous content in waste Emission of volatilized heavy metals on ning

• Down gradient flow of leachate and water contam

• Flies and bird menace

• He and nausea due t n of meth bon dioxidrbon m oxide e ission

• • bur open dumps

ination The ongoing practices as briefed above, lead to both occupational health risks to workers and environmental health risks to residents and workers. Since worker exposure times are shorter than resident exposure times, some risks may be less for workers than for residents. On the other

am rkers s leading to increased risks for workers over residents. Residents include

infants, young children, wome -bearing age d senio hildvulnerable to toxins because they ingest more water, food, and air per unit of body weight; their

fy and excrete toxins; and any disruption during wth lo nt of r organ, n ous, ine

and reproduc andr ). MSW Linked Health Risks in the Country The detailed studies on various public health aspects linked to solid waste management practices

f Trichuris trichiura (a human whipworm) and Ascaris lumbricoides (a human roundworm) in

hand, contthat reach res

inant levels to which wo

n of child

are exposed can be significantly higher than those idents, thu

, an rs. C ren are particularly

metabolic pathways are less developed to detoxitheir gro years can easily disrupt deve

igan, 1998pme thei erv immune, endocr

tive systems (L

are very limited in the country. Certain indicator studies, exemplifying the gravity of health risks involved with the MSW workers and residents in the neighbourhood of processing plant, dumping yard, are compiled in Table 35. It is recorded that 33 Indian cities showed the presence osolid waste samples as early as in 1970. This was based on the analysis of about 1500 solid waste samples. The stool samples of solid waste collectors and a control group of similar socioeconomic background revealed that 98% of the solid waste collectors were positive for parasites, while only 33% of the control group was positive.


81Table 35

Occupational Health Issues of SWM Activities in Major Cities of India

Affected Group Place/ Location

Health Issues Type Total

tested Affected

%

Affected Control

Group-%

Remarks

Chronic cough 40 -- Jaundice 37 -- Diarrhea 85 -- Fever & cold 72 -- Eye disease 63 -- Skin infection 15 --

Calcutta- scattered dumps

Injuries

Waste pickers at open dump

180

29 --

Based on year long observation in 1995

Respiratory diseases 71 34% Diarrhoea 55 28%

Calcutta – Dhapa dump

Waste pickers at

400

Control group- nearby farmer

Parasite infection dump site 32 12% population of 50 who uses solid waste as fertilizer

Respiratory diseases 73 -- Diarrhoea 51 -- Skin infection --40 Eye disease 90 -- Injuries 22 --

Bombay

pickers at dum

17.5 --

on clinical examination &

Chronic chestinfection

Waste 95 Based

p site disease records

(Source: osition of waste pickers in SWM: Modes, Assessment, Appraisal, and Linkages in alore, New Delhi. 6-10 . M. 1995. Gender related labour market fragmen in the informal recycling sector. A study in alore, India. M.Sc.

sis. U The Netherlands. Pp- 31-2. Nath. K.J. et 995. Socioeconomic and Health aspects of recycling of urban solid tes th alcutta. All India Institute of Hygiene an blic Health. Sponsored by the World Health organization, Regional ce., N

he injuries mainly include dog bites, pinprick, rat bites and eye injury. Puncture wound was

shed vision, redness, itching, watering etc. Most of the waste pickers at alcutta, Delhi, Bombay and Bangalore complained of chronic backache and joint pains.

The mos elhi are tuberculosis, bronchitis, asthma, pneumonia, dy

ld an e l ativ eing y the n were p nchiti s in he sts o s nd that eosinophils were elevated in 59% of

children, 42% a f indicate parasitic infection, and i c is d tha morbiddumpsite waste pickers in I picking child have 2.5 re potential of morbidity that non-waste pi ildren from the housing areas. The

l s are reported to rave ny of the small cities as well, but poorly documented.

Huisman, M. 1994. The p BangPp.4 4; Van Esrd tation

a 1 Bang

Thewas

niv. of Amsterdam. rough scavenging, C

l., d Pu

Offi ew Delhi) Tfound to be very common to dumpsite waste pickers and waste recyclers. The clinical examination indicated that 90% of waste workers had decreased visual acuity and they complain of eye burning, diminiC

t commonly experienced diseases among waste pickers in Bangalore and New Dsentery, parasites, and malnutrition. About 38%

of the women pickers have lost one chi d 10% hav ost 3 or more, the causd viru

e factor bquoted bblood te

se womef waste picker

diarrhoea, tein Delhi, Ind 61% o

tanus, small ox, bro s an fections. Tia showedmen. of women,

may also indElevated eosinophil levels

It cate allergindia indicate

diseases. reporte t the ity data from times mo that waste ren

cking ch g

sameoccupationa health issue be very in ma


82MSW Linke ks in

iss ed to anag ented for mcities both in an s. The a dication o the linkage between dise lid w rs d waste pidumps suffer ffic ll as from open burning and underground fires. The occupational health data generated on waste handlers and control groups

Rom s by omanian f H and P nce rrh n igh g w rs

general population, by a relative risk factor over 10 time neral and 25 times in the capital city. The data also indicated t handlers had 1.7 times more relative risk with respect to ophthalmo s a s elative reg s. It was also noticed that the disease incidence were higher for the workers after they became waste

is k w g

ences of ef After Wa

No

d Health Ris Elsewhere the World The public health related ues link MSW m ement are better docum any

developing d developed c han

ountrie re was cle r in f ase incidences an from dust crea

d wasteted by tra

dling. So, as we

aste workesmoke derive

and

ckers at open

from 168 the incide

anian citie of acute dia

the Roea was co

hat the waste

Institute osistently h

ygiene er amons in ge

ublic Healthaste handle

indicated that than for the

logic disease nd 1.3 time more r risk with

a high-ris

ard to physic

ork with

al injurie

pickers. The Table 36 indicates that waste paspects.

icking re ard to health

Table 36 Incid Diseases B ore and Became ste Pickers

Diseases Incid fore Aences Be (%) Incidences fter (%)

1 2 3 4 5 6 7

Diarrhoea Parasit es ic diseasDysentery Stomach trouble Colds Eye trouble Headache

20 18 11 33 48 6 3

3245 27

68 86 18 23

The health risks associated with various practices involved in solid w gem g waste picking, handling, transportation, composting, incineration, landfilling, open dumping etc are given in T

Table 37 Environmental and Health Issues Linked to Various Components of SWM

n ffected popula

aste mana ent includin

able 37.

Pollutant/ Contami ant A tion SWM Practices

ssues ype Type Magnitude Health i T % affected

Remarks

Suspended particulate matter

(25 Respiratory

ailment

Pickers 40% 70%

50 etro

Manila in 1981

4600 µg/m3

times higherthan standard)

Skin diseases, Studied 7workers in M

Picking & Handling

Methane emission /m Chronic cough

Pulmonary

Children 23%

53%

Clinical exam on

ila

20 mg 3

(Background level- 0.3mg/m3

Wheezing, Short breathing

25% 19%

194 children in Metro Man

problems Diesel fumes -- Asthma

Allergy Waste collectors

-- -- Transportation

Bio aerosol 104-105 cfu/m3

6 7 3Infection Waste loading -- Geneva

10 -10 cfu/m Diarrhea workers Denmark


83VOC- 92 types 0.9-8.1 mg/m3 Neurological

problems --- Denmark

Airborne micro-organism

103 cfu/m3

Infection Diarrhea

Plant workers ---

Gram negative bacteria (A.niger)

100 times higher than background

Infection Plant workers ---

3 German studies in 1994

Composting

Airborne bacteria & Fungi (Aspergillus fumigtus)

2-10 times higher than background

Infection Shredding & turning workers upto 500m of the site

--- Helsinki, Finland; various studies in UK, USA, Canada

Heavy metals (Mercuri, Lead, Cadium, Arsenic)

Lead concentration- 2500 µg/m3

(WHO st’dard -

Neuro toxity Workers, generally cleaners

100% workers 3 incinerators at New York in 1992

1 µg/m3)

Incineration

VOC (Dioxins, 4 time higher Cancer Workers & Residents upto 1- USA, UK Furans, Hydrocarbons)

than background level

nearby population

2 km of the incinerator

Emission of Hydrogen sulphide, Methane, Carbon monoxide

0.085 – 0.193 tonne of methane per tonne of solid waste

Neurological impairment, Narcotic effect Combustion

Workers & nearby population

Onsite workers & residents upto 1 km perimeter

Metro Manila Land filling

*VOC- Dichloromethane, Benzene, Vinyl chloride, Benzene

2 lakh tonne Cancer Kidney disease Leukemia



Oveall emission estimated for USA landfills

Emission of Carbon monoxide

55 mg/m3 Headache, wheezing, narcotic symptoms



Metro Manila

VOC- toluene, Ethyle benzene,

Toluene- 700µg/m

Methyl chloride, benzene- 120 ease

Leukemia dump site

Methyl chloroform µg/m

3; Ethyl Cancer Kidney dis

Onsite workers -- Bangkok’s open

3

Parasite infection Hook work Protozoa

Various types of skin infections

Workers & their children

65% children 98% children 97% waste pickers

Bangkok Metro Manila Olinda, Brazil

Discharge of leachate with high organic conten

>20000 mg/l of COD;

Diarrhea, Cholera,

Workers & down gradient

--- Conakry, Guinea (1990),

t >10000 mg/l of BOD (5 days);

people

Heavy methals; fecal bacteria

Open dumping

Insect breeding Rodent breeding & feeding

Vibrio cholera (46%) Escherichia coli(76%) Salmonella (12%), Shigella (5%)

Dengue fever Cholera Plague Leptospirosis

Community

6400 per lakh of population 2000 cases

Venezuela, El Bolson, (Argentina) Tamwe (Mynamar)

(Source: Sandra Cointreau. 2006. Occupational and Environmental Health Issues of Solid Waste Management. Special emphasis on Middle and Lower Income Countries, Urban Sector Board, The World Bank Group, Washington, D.C. p.57 ) *VOC-Volatile Organic Compounds The Table 37 indicates the serious public health issues involved with all the functional components of solid waste management elsewhere in the world. There are cases of higher blood lead levels (16 µg/dl) in incineration workers who had most often cleaned the precipitators. The


84blood lead levels were further high (28.7 µg /dl) for workers who did not regularly wear his protective device. The particulates containing heavy metals, associated with the bottom and fly sh from incinerator, pollute air with carcinogenic risk. Most of the incinerators, especially in

d of over ten years, with increasing distance from the cinerators.

% to below 17% causing asphyxiation. This happens if the landfill gas accumulates to ratio of 1:4 in air. The possibility of production of carbon dioxide (CO ) is also high in such

ent

adeveloping countries, have short stacks and no particulate control and hence accentuate the pollution risk. A study carried out in the USA during 1990 on the mutagencity of a solid waste incinerator and two medical waste incinerators indicated that the completeness of combustion and the effectiveness of pollution control equipment affect mutagenic potency significantly, than the nature of the material burned. A study carried out in Great Britain since 1974 indicated that there was decline in cancer incidence of over fourteen million people living within 7.5 km of 72 solid waste incinerators, over a perioin There is also a case of high infant mortality rate among waste picking community, such as 240 deaths per 1000 live births compared to national rate of 98 per 1000 (Cairo, 1981). The major causative diseases for increased infant death rate were neo-natal tetanus, diarrhoea, respiratory infection and measles. The causative factor was linked to poor public health management as evident from the reduction in infant mortality rate (117 deaths per 1000 live births) after improving working conditions, basic sanitation, education, and birthing assistance by 1991. In landfill sites and open dumps, there is possibility of reduction in oxygen content from the normal value of 21a 2areas. CO2 is heavier, and can thus concentrate in a landfill valley. The air containing 4-5% carbon dioxide can induce unconsciousness and a concentration over 9% can cause death. Similarly, accumulation of methane to concentrations of 5-15% by volume of air, can lead to combustion or explosion at the instance of sparks. Environmental protective measures have been found to reduce the health impacts due to solid waste management activities. Certain Scandinavian studies indicated that the exposure to organic dusts reduced significantly when the loading height of the truck was raised from 1 m to 4 m above ground and bins were mechanically raised to this higher elevation for emptying. Similarly, pest control measures in uncollected solid waste and at open dumps reduce the possibility of rodents breed and feed. Injuries and Accidents Linked to Solid Waste Managem The cases of injuries are common during collection, transportation and disposal phases of solid waste management. The number of occupational accidents in the Danish waste collection activity was 95 per 1000 workers per year, compared to only 17 per 1000 nationally for all workers during 1989 – 1992. The U.S. Department of Labor considers solid waste collection as the seventh most dangerous job in the USA since 1998. They reported that the relative risk of waste collectors being killed was 10 times greater than other workers’ risk, and that 81% of mortalities resulted from vehicular accidents. Waste collectors had a fatality rate of 48.8 per 100,000, based on 1996 nationwide statistics. Between 1992 and 1996, 111 waste collectors were killed in the USA. Most injuries among New York solid waste workers were experienced during waste loading (60%) and driving (30%), with over 60% of all injuries occurring during the later


85part of the work shift suggesting a fatigue factor. A Brazilian study reported accident levels of about 700 per 1000 waste collectors per year. A survey of disposal sites throughout the UK indicated that there were 51 incidents of biogas explosions at disposal sites from 1963 to 1981 out of which 47 occurred the transition from open

umps to sanitary landfills. This was due to the greater generation and containment of methane,

ore organic material was available to enerate methane. By 1989, a total of 2 deaths and 9 injuries were directly attributable to

inadequate control over landfill gases. There are intentional fires in dumpsites for m g the nuisance of flies, odours, and rodents.

he waste pickers sometimes burn piles of waste with cans, in order to remove their coatings or p rap of control and spread as has happened in a construc n SA n t four hec r t out d excavat . kl o 15-foot lly fu ll blaze could guished and, ultimately, could hes around it. There a paccumu io 0 re1994 when 100,000 tonnes of solid waste slid toward a coastal village. Inadequate drainage and steep sl s f en dump in Ca 992; and a similar acc 5 years rl nnes tary landfill in B the un rg e

erati ented fire al o te ss (a u e people at raniye- laergr n r f t

MSW Man era The sce i s that the p ents linked to solid waste m India and tion in the state is more sever due to the poor complianc to management in the state, especially in source segregation, processing and sanitary disposal (Interim eport, July 06, pp.--). Combined togethe t tion of wastes on road sides and public places, delayed colle te clogged open drains, treatment of biodegradable without a e ate dumping of waste in small parcel of land in areas with ation etc. This, in turn, has high significance on the public health scen io phoid, dengue fever, amoebic and bacillary dysentery, gas e y new generation diseases, accidents and injuries. B ,

ddue to compaction and soil cover and increased anaerobic conditions within the deposited mass of waste. Consequent to the elimination of open burning, mg

inimizinT

aper w pers. These fires, at times, get outtio debris landfill in North Carolina, U

es got fire and took 6 weeks to i 1999, where the entire landfill of abou

the fire with the use of bulldozers anta puors There was also a fire in 1999 at an O ah ma, USA sanitary landfill that “produced

e ed by shredded tires in the landfill. The only be contained by digging trenc

(5 m) flames and thick smoke”, partia not be extin

re also accidents reported from open dumlat n of waste. A man was killed and 25

s due to sliding of steep and unstable sidents evacuated in OPortino, Spain in

ope were reputedly the cause. A large slidelcutta, India, in July 1

o solid waste buried 2 children at an opident occurred in Tangra (Calcutta), Indiaof solid waste occurred from the saniea ier. A huge slide of about a million to

ogota, Colombia in 1997. Fire in de round cavities is also common due to ths caused large displacement of the was

leven homes and killing 39genmaUmund

on of methane gases. Unprecedbo t 1.2 million cubic meters), engulfing

Hekimbasi, Istanbul in 1993. The accumu tion of methane and its explosion in the he landslide. ou d cavities was considered as the trigge

agement and Public Health Issues in K

or

la

nar o in India and elsewhere indicateanagement is severe in

ublic health issues, injuries and accid at many places elsewhere. The situa

e various functional components of MSW

R r, hese factors have led to accumulaction of putrefied waste, was

dh ring to specific protocols, indiscrimin high density of popul

ar of the state marred by malaria, tytro nteritis, salmonellosis, cholera and manut lack of good quality data on health and


86environ f e managemen ces. However, indicative id waste dump the functional c ment of avoid g The enviro and health issues of three ope d ode, Thiruva n l 3

38 nvironm ed to the Selected SW Open Dump Sites of

ace

mental aspects hinders the establishmentt and health inciden

o direct correlation between solid wast information available from various sol

requirement for full compliance to all theing sites of Kerala urgently necessitates omponents of integrated solid waste management system, especially the require

in the open dumping practices.

nmental n umps in the state, namely, Kozhikk8. na dapuram and Kottayam are given in Tab e

E

Pl

Tableental and Public Health Issues Link

Kerala

SWM Practices & Environmental Issues

Health, Social and Economic issues

Koz

hikk

ode

•

•

•

ent

•

• rains

•

tion and respiratory problems to

many people nearby • Necessitated shifting of about 32 families (about

200 people) to nearby TMM LPS for two days; many people admitted to nearby hospitals.

• Clearance of the yard to make space for constructing 3 covered sheds, led to shifting 18 families (82 persons) among the 40 families within 50 m proximity of the yard to a relief camp (Community hall, Beypoor Panchayath) on 18th July 2005.

edical etc.,

• o

ow from dumping yard ker

• the relief camp- small under

• problems, 4 had

Nearby area is subjected to devaluation of land- No land transaction in the vicinity of the yard during the last 10 years.

• unity experiences social eling of inferiority

• Youngsters from the locality has difficulty in

in public places and buses.

Poor layout of 18.5 acre land designated for SWM and inappropriate land use there. Waste accumulation since 1936- volume of waste dump now is about 23 x 105 m3 Height of the dump is dangerously poised causing slides

• 160-180 tpd of waste disposed at the yard • Inadequate & improper waste treatm• Poor upkeep of 300 tpd compost plant

Movement of waste to a portion of the yard to make covered space, disturbance to nearby population

• Fire & smoke at the dump yard during summer. A severe one in Feb-06.

• Surface water drains of the yard got clogged due to non-degradable, causing several cesspools

• Flooding of the yard during rains • Incessant leachate outflow including dirt from

the yard to the neighbourhood Leachate reaching nearby fresh water drains and Kallai river- flooded water from the dreaching residential compounds and fresh waterwells Stray dog menace and birds nuisance

prepared cubicles made of tin sheets, each accommodating upto 12 members of a family. Among the 47 affected, 13 of them had skindiseases, 5 had respiratory• Foul smell and contamination of wells

• Further, fire & severe smoke in the dump yardled to suffoca

• Involved an expenditure of Rs. 3.02 lakh for 2005-06 to provide food, water supply, massistance, accommodation, electricity,excluding school bus Provided free water supply connections to the families whose wells were damaged due tleachate fl

• Supplying 96000 lpd of water (12 trips of tantrucks) daily to the affected areas Dismal situation at

vomiting and nausea and one had jaundice. •

Adjacent commexclusion and fe

getting marriage proposals • Students from the locality get teased and

sidelined by school/college mates • Nearby residents of the yard often gets isolated


87T

hiru

vana

nd • Air pollution at composting plant and yard- High levabove permissible level of 140 µg/m ; RPMSO x are within the permiss

2S, methane Nearbypolluted- TDS (1560 mg/l), BO

/l), Lead (0.88 mg/l), C tal coliforms (>1100 pe 0 ml)

the permissible levels. d Fecal coliforms (460 per 1 l) in

adient groundwater exhibit high heavy metal

centration (Lead- 36 mg/kg; Zinc-

Down gradient pollution of water and soil due to nic and heavy metal rich

leachate to public stream. ssibility of health im ient

n

apur

am

• Modern aerobic composting facility, claims to be of 300 tpd capacity

• Composting protocols often ignored - heap of waste in the plant causing anaerobic conditions, smell & flies

• Inadequate leachate storage facility& reuse- leachate being discharged to nearby perennial stream

• Absence of ELF- caused a huge dump of semi and un-composted waste on a valley

• Absence of surface water drainage causing percolation of large quantity of rain water in valley dump- outflow of leachate and dirt

• One family on the down gradient location near the open dump has skin and allergic diseases- such health issues are less severe for up gradient population

• Data from Vilappil PHC indicates that the incidences of respiratory diseases have increased since the year 2000.

• Requirement of Rs.1.5–2 crore for sanitary closure or land filling of the open dump

• Negligence of composting protocols to increase bio-aerosol concentration within the plant and its premises (as evident from high SPM) affecting the health of workers

dumping • els of SPM (156-202 µg/m3)

3the discharge of orga

, 2 and NO

Trace of Hible levels; • Po

popu stream water D (230 /l), mg

admiumCOD (735 mg(0.06 mg/l) To r 10are above

-Coli an• E 00 mdown grSoil data• conmg

101er- 55/kg; Arsenic- 1.9 mg/kg and Copp .9

mg/kg)

pact to down gradlatio

Kot

taya

m

• All types of waste including infectious waste,

of rain water to down gradient valley •

• Accumulation anin the valley floor- contaminates nearby aquzones anHighly ith h

nce gh ce e

usage o cideIncidence fire an oke i msummer- severe ad m sm foul smell for many days

r qu in s o omp s ppre

• Incidences of dog bites of people and killing

irds of different types frequent the site, feed on the remnants and pick up pieces and drops them

tial

es of allergic diseases • Sanitary workers in the dump yard are affected

rasation i ines ie te n

vi n e n anco ab aDrastic u djacent a eas

sludge from septic tanks in the dump • Dump yard of 14000 m2 located on slope

without drainage system- indiscriminate flow

domesticated animals • Nuisance due to flies and mosquitoes • B

Stagnation of water on adjacent roadsfloors and pits in the yard

d stagnation of polluted water

in the wells, water bodies and residenpremises

• Increase in incidenc

, valley

ifer d paddy fields

• corrosive groundwater wn of zin

igh ria

by allergic• Social isol

likcoload

ntratio(z

iron &nt

c and hi bacte l inc conf fungi

ration m)

ay be du to high

• of d smverse i

s compact of

on in oke &

• Ai ality with a radiu f 500m f the du ite is a ciably adverse

hes ncluding reported cidences

g out rom e relativ and fr nds of n backi fsits fearimmunic

g the flile dise

s, waterses.

pollutio d

•

reduction in land val es in a r

ELF- ndfill uspen tic er; Par atte

he situation as found at Kozhikkode, Thiruvanandapuram and Kottayam are representative of

ic

Engineered La ; SPM- S ded Par ulate Matt RPM- Respirable ticulate M r;

Talmost all the dump site in the state. The Kozhikkode Corporation is one of the first local bodies who initiated a programme for solid waste management by establishing and operating an aerob


88composting plant. However, the performance efficiency of the plant was poor due to

nsegregated waste being provided, lack of operational protocols, poor leachate management system and absence of sanitary landfill faci ompost rejects and inert waste. This is true with the Waste Managem egation, primary collection and transportation with the involvement of informal sector, the enviro l conditio and

ard is extremely poor causing posing serious health concerns. The indicative data given on health status of the sanitary workers and people residing near th ng yards

t highlights the necessity of establishing facility for final disposal of rejects in f Engineered Land Fill (E grati tween the various c the

and backward linkages and compatibility. Table 39

Health Status of Re rs in Trivandrum

ulities for c

Trivandrum as well. Though the two Corporations have launched Integratedent System by introducing source segr

nmenta ns at the processing disposal yin Table 39 e dumpicorroborate this. Ithe form o LF) and inte on be omponent ofISWM system ensuring appropriate forward

fuse Worke

Refuse workers Control Group Disease No of incidence % N co of inciden e % Anemia 12 24 11 16 Gastrointestinal diseases 19 38 18 26 Respir diseases atory 31 62 17 24 Skin diseases 16 32 10 14 History of Jaundice 21 42 4 6 Trachoma 11 23 -- -- No of samples 50 70 (Natio onment Resear te (NEERI), 1971)

e a son of locations, r ompost plant, the post plant and Trivandrum s given in e 40.

Table 40 uali e Processing and Disposal Site of

Thiruvananthapuram Corporation (2003)

viear to compost plant

Vilappilsala compplant & dumping ya

Triva Standard for 24 hrs

nal Envir ch Institu Th ir quality compari three a village near the Trivand um ccom city i Tabl

Ambient Air Q ty in and around th

Location Thinavila llage

Nost

rd ndrum city

Pa r Max Min ean Max Mean Max M Mean ramete M Min in SPµg

167.4 148. 6.3 215. 85.7 20 160.4 14 156.5 M /m3

6 15 6 1 2.3 8.5 140

RPµg

.4 28.6 46.1 .5 43.4 38.6 M 33/m3

30.5 38 42.3 35.2 60

SO 22.4 17.1 0.0 22 .1 14.9 14.0 2 µg/m3 2 .4 17 20.0 12.5 60 NO 18.6 15.2 7.2 24 .6 18.5 16.8 Xµg/m3 1 .8 19 22.6 15.2 60CH 121 105 2.8 193 42 16 -- -- 4µg/m3 11 1 8.5 -- NSH2 7 5 6 10 6 7.9 -- -- Sµg/m3 -- NS

(Source: fill at Vilappilsala, Thiruvanantha DFC and W th Associates. . )

s ata on water q y from th essing a sposal y availab the

Project Feasibility Report on Engineered Land puram. I ilbur Smi 2003 The econdary d ualit e proc n id d ard, as le at three locations Kozhikkode, Trivandrum and Kottayam are given in Tables 41, 42, 43 and 44.


89

The Physico-Chemical Qua s from Kozhikkode (2005) Parameters Sample 1

m) Sample 2

ppStandard for Discharge to

Table 41 lity of Water Sample

(pp ( m) Water bodies (ppm) Chloride 258 58 1000 Sulphates 400 200 200 Disso 880 210lved solids 357 0 Hardn 92 300 ess 3 164 (Source: o Corpo f Calicu

able 42 Surface Water Quality in and around Dumping Yard and Compost Plant, Vilappilsala,

Tr rum (20No it owallur

du- u/s of plant

owallur du- d/s of

lant

ramana r d/s of luence

its as per 296 Class

C

Personal communication fr m ration o t)

T

ivand 03) hS. Parameter Un Ch

thoC

thop

Karive

nfco

LimIS:2

1 pH 7.7 8.0 7.3 5 6.5-8.2 Colour Hazen 1 1335 3 10 3 Temperature 0C 29.2 .8 .3 NS 29 314 Conductivity µS/cm NS 345 2480 46 5 Chloride mg/l 78 2 00 48 12 66 Hardness mg/l 48 640 8 NS 7 Sodium mg/l 29.2 170 9 2 NS8 Potassium mg/l 19 286 1 NS9 Dissolved Oxygen mg/l 6.1 6 6.5 >4 10 Total Dissolved Solids 0 00 mg/l 215 156 25 1511 Total suspended Solids 12 4 NS mg/l 21 112 Total Nitrogen (as N) 4.1 35 NS mg/l 0.17 0.13 Sulphates mg/l 3.8 .7 .2 400 72 114 Fluorides mg/l 0.2 14 .2 1.5 0. 015 Iron as Fe mg/l 0.2 13.2 0.06 750 16 Manganese mg/l <0.01 1.5 <0.01 NS 17 Oil & Grease mg/l <1 1 <1 NS 18 BOD mg/l 5.6 230 3.2 3 19 COD mg/l 12 735 10 NS 20 Phenolic compounds mg/l <0.001 <0.001 <0.001 <0.001 21 Total coliform /100 ml >1100 >1100 1100 <5000 22 Fecal coliform /100 ml 460 1100 460 0 23 Pesticides mg/l <0.001 <0.001 <0.001 <0.001 24 Mercury mg/l <0.001 <0.001 <0.001 NS 25 Copper mg/l 0.03 0.02 <0.01 1.5 26 Zinc mg/l 0.05 0.05 0.02 15 27 Lead mg/l 0.03 0.88 <0.01 0.1 28 Cadmium mg/l <0.01 0.06 <0.01 0.01 29 Chromium mg/l <0.01 0.2 <0.01 0.05 (Source: (Source: Project Feasibility Report on Engineered Landfill at Vilappilsala, Thiruvananthapuram. IDFC and Wilbur Smith Associates. 2003. )


90

o ameter Un

u/s of plant of plant yard IS:2296 Class

Table 43 Groundwater Quality in and around Dumping Yard and Compost Plant, Vilappilsala ,

Trivandrum (2003)

S.N Par it Open well-

Open well within the

Open well d/s L

plant yard

imits as per

C 1 pH 7.6 8.2 8.1 6.5-8.5 2 Conductivity µS/c 172 226 323 NS m 3 Chloride g/l 28.3 250 m 22 714 Hardness (as CaCO3) g/l 60 76 60 300 m 5 Sodium (Na) g/l 9.5 8.8 39.3 NS m 6 Potassium (K) g/l 4.7 2.3 3.0 NS m 7 Dissolved Oxygen g/l 5.6 5.2 5.5 NS m 8 Total Dissolved Solids g/l 105 200 50 m 140 0 9 Total suspended Solid g/l 16 NSs m 13 17 10 Nitrogen (as N) g/l 6.8 0.35 NSm 4.8 11 Sulphates (SO4) mg/l 4 1 NS 19.3 4.12 Fluorides mg/l 0.2 2 1.0 0.17 0.13 Iron as Fe g/l 0.78 0.01 0.m <0.01 < 3 14 Manganese as Mn g/l <0.0 NSm 1 0.04 <0.01 15 Oil & Grease g/l <1 NSm <1 <1 16 Phenolic compounds g/l <0.001 <0.001 <0.001 0. m 00117 Total coliform 00 210 1100 Absent /1 ml Nil > 18 Fecal coliform 00 Nil 460 Absent /1 ml Nil 19 Pesticides mg/l Abs Abs Abs 0.01 20 Mercury mg/l <0.001 <0.001 <0.001 0.001 21 Copper mg/l 0.01 <0.01 <0.01 0.05 22 Zinc mg/l 0.04 0.01 <0.01 5 23 Lead mg/l 0.03 0.02 0.02 0.1 24 Cadmium mg/l <0.01 <0.01 <0.01 0.01 25 Chromium mg/l <0.01 <0.01 <0.01 0.05 (Source: 20

(Source: Project Feasibility Report on Engineered Landfill at Vilappilsala, Thiruvananthapuram. IDFC and Wilbur Smith Associates. 03. )


91

Table 44 ical and Biological Parameters of Groundwater in Surrounding Zones of Dumping

Yard, Vadavathoor, Kottayam

Most critical values in the zones surrounding the dumping yard

Chem

S. Parameter Unit

0-100m 101-200m 201-300m 301-400m 401-500m

Maximum desirable value

No.

1 Total hardness mg/l 59 44 30 15 7 100 2 Total Alkalanity mg/l 40 32 17.9 12.2 7.2 -- 3 Acidity mg/l 22.3 32 30.5 29.9 24.3 -- 4 Chloride mg/l 49.8 28.2 33.2 19.2 14.9 200 5 Sulphate mg/l 13 18.2 10.3 4.5 3.2 150 6 Nitrate mg/l 12.4 8.8 10.2 8.8 2.8 45 7 Phosphate mg/l 2.1 1.2 0.31 0.21 0.09 -- 8 Calcium mg/l 42 32 15.8 12 3.2 75 9 Magnesium mg/l 8.3 6.3 5.2 3.8 1.9 30 10 Iron mg/l 5.9 4.8 5.2 1.7 1.6 0.3 11 Zinc mg/l 36.7 24.8 27.8 15.4 11.3 3.0 12 Manganese mg/l 0.06 0.8 0.11 0.97 0.012 0.1 13 Copper mg/l 0.06 0.09 0.06 0.05 0.03 0.1 14 Sodium mg/l 17.4 19.8 11.8 4.5 2.8 -- 15 Potassium mg/l 8.9 6.2 2.3 1.3 0.81 -- 16 Dissolved Oxygen mg/l 3.9 3.3 4.8 4.0 3.7 -- 17 BOD mg/l 1.48 3.05 1.90 3.32 1.42 -- 18 COD mg/l 44 30 32 30 30 -- 19 Total coliform MPN 1100 1100 1100 1100 1100 0 (Source: Shailaja P.S. 2003. Assessment of groundwater quality around the solid waste dumping site of Kottayam municipality. M.Phil Thesis. School of Environmental Sciences. Mahatma Gandhi University. Kottayam. P.69. )


92

8. INSTITUTIONAL ASSESSMENT MSWM Governance Status in Kerala

GoK in this regard is the merger of Rural development with Local Self Government Department, which would go a long way in effective

(priority allocation to SWM), the current status of SWM in the State is extremely poor. Obviously, LSGs have not accorded priority to the sector, in allocation

ence to the 7 steps by 53 ULBs is minimal .It is very low with respect to segregation at source and treatment and deposal in sanitary land fill is nil.

ent has been the man t lusively with the MSW manage processing disposal and pen p tracting out /out sourcing whole or p t ation with the waste generators etc.

ent (Urban), f financial resources,; (b) Director of Municipalities,

onitoring; (iii) the Clean Kerala Mission,

Government of Kerala: Local self Government (Urban) Functionally, the Secretary to the Department of Local Self Government has the overall responsibility of enforcement of the provisions of the MSW rules in the metropolitan cities and the District Collectors are responsible for enforcement with in territorial limits of their jurisdiction. The GoK has taken many positive steps by empowering the PRIs by way of comprehensive decentralization, vesting with powers, functions, and responsibilities and financial resources. GoK has constituted the CKM under the chairmanship of the CM, issued a

Though GoK has been a pioneer State in the process of decentralization, the State is still reeling under the institutional development dilemma of co-existing departmental structures parallel with the LSGs. One of the crucial decisions taken by the

co-ordination and integration. Despite many proactive measures by GoK, equipping the LSGs with financial resources, facilitating investment through the Clean Kerala Mission and enabling the processes with supportive orders and guidelines

and management. Overall adher

According to the Kerala Municipality Act, 1994 solid waste managem

da ory responsibility of the ULB. Section 326 to 345 deals excrtation,ment including storage, segregation, collection, transpo

ve in providing for conal rovisions. The Act is very proactiar of the functions, vesting the responsibility of waste segreg

Institutional Structure in SWM in Kerala The institutional actors in USWM in the State are (a) GoK – Local Self Governmhaving the overall mandate of allocation orelease of financial resources and coordination and mwhich is the nodal agency for facilitation and technical support; (iv) LSG (Municipalities and Corporations) with the constitutional mandate of SWM and service provision and (v) Kerala State Pollution Control Board (KSPCB), having the mandate for regulation. A brief assessment/discussion on these institutions is given below:


93number of guidelines for investment and management under the decentralized planning process.

or Corporations, GoK has negotiated and finalized support from ADB and constituted the Infrastructure cell in the Directorate of Urban Affairs. The KUDFC has also been given the mandate of financing investments in SWM. The Chief Secretary is filing the compliance report before the Supreme Court from time to time. Directorate of Urban Affairs Director of Urban Affairs is the head of the Department with his headquarters at Trivandrum. The Director is assisted in the discharge of his duties by the Joint Director (General), Joint Director (Health), Law Officer, Finance Officer etc.

The Joint Director (Health) is expected to supervise the health and sanitation activities of the ULBs, renders advises to the Director as regards the improvements and innovations to be made in the fields of public health, sanitation, prevention of food adulteration and urban basic service activities in the urban bodies in the State. The department has Regional Offices located at Kollam, Kochi and Kozhikode.

Functions of the Department

The key functions of the department, specifically related to SWM is as under:

To act as a nodal channel for transfer of plan funds to the ULBs Guide ULBs in the augmenting their financial resources Watching the utilization of funds Monitoring the implementation of Food Adulteration Act

Periodical reviews are being made by the department in the implementation of the various programmes. The revenue collection made by the ULBs was being reviewed by the department and necessary instructions imparted to the officers concerned whenever necessary.

Infrastructure Development Cell (IDC)

GoK has set up an IDC with the Directorate to help the ULBs in the state to prepare economically viable projects. The Principal Secretary, LSG (urban) chairs the cell, which omprises of the Chief Town Planner, MD, KUDFC, KSPCB, ED, Kudumbashree as mem ers nd the Director is the convener.

F

c ba


Director

L.O. Joint Director Joint Director Sr. Finance J.S.

P.O.

The Directorate, as it stands now does not have any significant contribution to the sector of SWM in general. The Department co-exists as a monument of the bygone era of centralized administration. The role of the Directorate has also not been redefined to take up the new challenges in the context of decentralized governance. There is very weak coordination, monitoring and review.

L

D. Section J.S.

H. Section

P.F.O. S.S

C1 Section.

C2 Section.

A2 Section.

A1 Section.

C3 Section.

C1 Section.

C5 Section. B7 Section.

C4 Section.

J.S.

J.S

C5 Section.

B3 Section

B4 Section

B5 Section

AA J.S. S.S. S S

B1 Section

B2 Section

A4 Section A5 Section

A3 Section

J.S J.S J.S

B6 Section.

B8 Section


95Clean Kerala Mission Clean Kerala Mission (CKM) was set up by GoK in the year 2003 with the following objectives:

To implement socially acceptable, technically feasible, operationally sustainable, financially viable & entrepreneur oriented waste management services

of biomedical wastes through common facility approach To improve the environmental conditions of the state through integration of

ties - solid waste, sewage, waste water etc. To support the enforcement machinery & entrepreneurs- drive for cleaner

production and environmental management To unleash the creativity & energy of communities, businesses and institutions to

protect and improve the natural environment and to make environmental consciousness a preoccupation and cleanliness acts a habit to reverse any chance of ecological collapse

ver the years, CKM has been successful in generating awareness about the gravity and need for omprehensive approaches in SWM, ensuring a certain level of technical standards in vestments, building capacities of ULBs in conceptualizing and designing integrated SWM

roposals and triggered investments through a sort of incentive funds allocated to CKM by GoK nder the planning process. The CKM has been instrumental in encouraging 43 out of 53 ULBs come up with integrated proposals for SWM. Over the years they have sanctioned and leased Rs 10.81 Crores for setting up facilities in 38 ULBs in the State. Of the approved total vestment to the tune of Rs. 31.48 Crores, the share of CKM stood at 35%.However allsaid and

one, the improvement in SWM on the field is much below expectations and lacks rofessionalism.

KM has made good start in certifying and authorizing service providers in solid waste anagement through a process of normative selection, to help the ULBs in procurement and

iring of services. However, the system needs to be made totally normative and published in the eb with provision for public delisting/blacklisting, in the event of unethical practices and in

ompetency. Integrated proposals prepared by ULBs are at times crude with many technical aws. Most of the proposals lack comprehensive and integrated approach, as the major focus is n primary collection by supply of domestic bins and some form of composting. The much

ured nd fills are very few. Project appraisal and technical evaluation of the proposal by CKM needs

cking and monitoring of the implementation of the pproved projects, even when there are violations.

itoring system is weak. As such, the SWM practices are unscientific; ULBs do not provide adequate allocation to the sector, and significant

To enable the disposal

various waste management activi

Ocinputoreindp Cmhwcfloneeded thrust on secondary storage, improved transportation systems and long terms seclafurther improvement. There is little traa The annual allocation to CKM from GoK is showing a declining trend, from Rs. 1000 lakhs in 2004-05 to Rs. 500 lakhs in 2005-06 and Rs. 386 lakhs in 2006-07. Though every LSG is expected to provide a annual report to CKM on the ststus of MWSM in a prescribed format, it is not being enforced, compiled and analyzed. The mon

wastage of financial resources through wrong investments. Though CKM has made a good beginning, looking from the baseline status in 2002, their performance needs to be substantially

WSP - SWM SECTOR ASSESSMENT REPORT 96strengthened to meet the challenges of ensuring adherence to the statutory stipulations under the MSW rules, facilitating capital investments through innovative approaches, empowering ULBs in ensuring financially and technically sustainable SWM systems, ensuring standardization and quality assurance in procurement procedures, building capacities of key stakeholders and to create public awareness.

As an insti io allenges.

erala State Pollution Control Board The KSPCB was constituted in 1974 (originally the Kerala State Board for Prevention and Control of Water Pollution, renamed as KSPCB in 1984. The Board is implementing the Air (Prevention and Control of Pollution) Act, 1981, the Environment (Protection) Act, 1986 and related Rules and Notifications. The Board is working under the Department of Health and Family Welfare, having regional and district offices.

The Board is constituted by the Government of Kerala. It consists of up to 17 members. The term of office of all members, except that of the Member Secretary, is three years. The Board has

CKM Staffing and Manpower The Organogram of CKM is given below. Cabinet sub Committee

Empowered Committee

Mission

Mission Director

Sr. Consultant (HR

Sr. Consultant Sr. Consultant Administrative

& IEC (Technology & Design) (Technology & Design) Officer

tut n CKM needs substantial strengthening to take up the emerging ch K

IEC, Awareness Campaign, Training

Capacitation, Incentives Networking NGO’s, ReviewMonitoring

Administration, Finance Accounts, Audit, Budget Liaison with Govt. Dept

Technology, System design Implementation Support Capacitating, Rules &

Regulation, Biomedical Sanitation,Studies

&Agencies


97representation from the Government (Directors of Factories and Boilers, Industries and Commerce, Science Technology and environment, Joint Secretary,

ealth & Family Welfare Dept, and Joint Secretary, Finance Department. The LSGs are also presented along with public sector companies and the private sector. The organgram of the SPCB is given below.

has key functions under the Water Act, (prevention, control or abatement of pollution of water odies), Water Cess Act, Air Act, functions under the Public liability Insurance Act, under the nvironment Act, Hazardous Waste (management and Handling) Rules, etc. Specifically, the oard also implements the following sector related rules.

) Bio-medical Waste (Management and Handling Rules)

to receive from institutions generating, collecting, receiving, storing, transporting, treating, disposing and/or handling biomedical wastes applications for authorization, to process the same and issue/ refuse/ renewing/ cancel/ suspend authorization;

to compile and furnish to the Central Pollution Control Board annual reports from occupiers /operators;

to inspect and verify facilities and records; to receive and act upon reports of accidents.

anufacture and Usage Rules

to receive and process applications for permit to manufacture or recycle plastic carry bags and containers and to issue/refuse/renew/cancel permits.

ii) Municipal Solid Wastes (Management and Handling) Rules,

liance with standards on ground water, ambient air, leachate quality and incineration;

HreK

ItbEB (i

(ii) Recycled Plastics M

(i

to monitor compquality, compost

to receive and process application for authorisation for setting up waste processing and disposal facility and to issue/refuse/renew/cancel authorisation;

to furnish annual reports to the Central Pollution Control Board.

WSP - SWM SECTOR ASSESSMENT REPORT 98T

Accounts Wing

Technical Wing

Administrative Wing

District Offices: Kozhikode,

Palakkad, Wayanad, Malappuram

District Offices: Ernakulam, Alappuzha

Kottayam Thrissur

District Offices: Thiruvanantha puram, Kollam, P th thitta

Head Office

Central Laboratory

Regional Office Thiruvananthapuram

Regional Office

Regional Office

Chairman 15 Members

Member

Water Quality

Clearance

Hazardous Wastes

Bio-Medical & Municipal

Public awareness

&

CESS

Planning

IT & EMCBP

Legal Co-ordination

Air Quality

he Organogram of KSPCB

istrict Planning Committee

he constitution of District Planning Committees (DPCs) is mandatory under article 243ZD of e Constitution and is a common item for both Panchayats and Municipalities. The District lanning Committees are to take up integrated planning for urban and rural areas in the district. he draft development plan to be prepared by District Planning Committees has to address ritical matters of common interest.

rticle 243ZD of the Constitution stipulates that four-fifths of the total number of members of PC will be chosen from the elected members of the Panchayat at the district level and of the unicipalities in the district. Their numbers will be in proportion to the ratio between the

opulation of the rural areas and of the urban areas in the district. The rest are to be nominated.

he primary task of the DPC should be to prepare the draft development plan (It should not be ependent on individual plans of the Panchayats and the Municipalities). The District Panchayat an facilitate the Panchayats and Municipalities in the process.

D TthPTc ADMp Tdc

WSP - SWM SECTOR ASSESSMENT REPORT 99 The DPCs can play a key role to formulate environmental management plan with focus on

he sector should ittee and have to be capacitated to meet the requirements.

responsibility of service provision. They ent service. Over all, they are responsible for

icipalities Act, 1994 and the Solid Waste anagement Rules, 2000. They are to seek authorization from the State Pollution Control Board

(KS posal facility, including landfills, furnish annual rep s

he following figure depicts the organization structure of solid waste management in a . According to grade and requirements, the staffing varies, particularly those with

spect to the lower level sanitary workers. Mu c

ISWM for the district and can guide the local bodies for the same. Experts in thave to be nominated in the comm Municipal Authorities The Municipal authorities are vested with the primary collect taxes for facilitation of solid waste managemthe functions as envisaged in the Kerala MunM

PCB) for setting up waste processing and disort and complying with the schedule I, II, III and IV of the Rules.

TMunicipalityre

ni ipal Solid Waste Management - Organogram

Municipal Secretary

Health Officer**

*Sanitary Workers

Municipal Council

*Health Inspector Grade 1

*Health Inspector Grade 2

*Junior Health Inspector Grade 1

*Junior Health Inspector Grade

Engineering Wing Finance Wing

Drivers


100 **

*HO post sanctioned for 1st grade municipalities, HI only for 2nd & 3rd grade municipalities Th o g to the grade of the municipality.

Rol &

cc d ng are, inter alia, the key responsibilities Bs.

tan in Education

ation of funds ents, Procurement of equipments etc wer to sanction up to a maximum of 50,000 rupees.

Healt

•

• • alth wing

Health Inspector

• anagement

• •

Junior

• • ste management of wards.

• Enquiry & reports for HO

e n of various categories of workers may varies accordin es Responsibilities

A or ing to the information collected, the followiassociated with solid waste management, in the UL S d g Committee on Health and

• Budget preparation / alloc• Sanction of funds for paym• During emergency needs po

Secretary

• Overall responsibility of Solid Waste Management • Co ordination of Health, Engineering & Finance departments • Administrative Head of staff • Notification of SWM system with in the municipality • Enforce penal provisions • Liaison with Council

h Officer / Health Supervisor

In charge of Solid Waste Management – Supervision of all SWM activities • Sanction of licensees to Dangerous and offensive trades

Enquire and take action against public nuisances / complaints Functioning of clinics under municipal he

Supervisory role of waste m• In charge of Health/ waste management of a Circle.

Inspection to hotels, slaughter houses, fish meat markets etc Enquiry & reports for HO

Health Inspector

Field work In charge of Health/ wa

• Inspection to hotels, slaughter houses, fish meat markets etc


101Sanitation Workers

• Sweeping of roads and footpaths • Collection of domestic, trade, institutional wastes • Transportation of wastes

I

ole of Engineering Wing/ Municipal Engineer

ocess

prove productivity. In many of the municipalities, additional staff recruited on different pre een working. It has been reported that productivity and discipline of the casual workers are better than the permanent workers and bsenteeism and leave among the former are very high. There are also reported issues of lack of

rd d eering de ys. ve e g e

functional deficiencies have been noticed across.

• erence SW found to an 10% an averasome efforts are being made in door to door collection and improved transportation in

vehicle rocess disposal are wea ith pracsingle scientific/engineered landfill.

s ed ser redibility cr the statas they have never seen improved management, there is a huge burst of resistance

q for the purpose. • Not even a single processing/disposal is having valid authorization as of now in the

• eff cost ery and e ternal resource m

rall pro y of orkers is l ainly on ac la discipline clarity of roles and responsibilities and accountability. Drastic overhaul is necessary for improving management.

• Other cleaning works specified by HI or JH R

• anitary land filling prS• Maintenance of vehicles • Estimation or valuation • Construction works if any

Every municipality is apparently understaffed as reported by them and visible incentives for

cruitment is not matched by efforts to imretexts is s

aco-o ination among t

tary/Chairperson often playshe heath an engin partments leading

such issues. In to delageneral th

Pro-acti following Secr crucial resolvin

The adh to the M rules is be less th on ge. Though

covered s, the p ing and practices k, w tically not a

• Poor SWM ha generat ious c isis across e among the people, and

against land ac uisition

State. Very little

potential. orts in recov xploiting in obilization

• The ove ductivit the w ow, m count of ck of and

• The enforcement of rules and punishment for volitions is minimal. Even the data of cases reported, notice issued, punished and prosecuted is not consolidated.

• The standing committee of health, which is in charge of the SWM function, needs significant orientation and capacity building as their focus on the SWM functions is not to the desirable level.

• Significant capacity building of all the staff and elected representatives are essential.


102In short, the ULBs are very weak in effective management of solid waste, maintenance of assets reated, and recovery of costs and enforcement of penal provisions. At least in some occasions,

nd lack of technically

ent services. The Table 45 and

r anaging municipal solid waste.

Table 45

Man Power Assess ent

Sl. Name of the wn

Population Area uantity of Existing

ngth

Existing

staff

cofficials have been asking for hands off policy from the elected representative in intervening when actions are initiated against violations.

Assessment of Capabilities of ULBs in MSWM

1. Man Power Assessment

Most of the municipalities in the State have inadequate manpower aualified staff to effectively provide solid waste managemq

shows the area, population, waste generation, labour strength to manage the waste pervisory staff deployed giving an idea of inadequacy or otherwise of appropriate manpowesu

for m

m

No To (sq.kilometers) Qwaste generated per

labour stre

supervisory

day 1. Attingal.

3 JHI 36000 16.87 15 MT 54 1 HS, 2 HI,

2. Cherthala. 45102 16.188 8 MT 37 1 4

HS, 3 HI, JHI

3. Changanacherry 51960 13.5 20 MT 102 1 HS, 2HI, 5JHI

4. Kothamangala , 2 HI m 37169 40.04 7 MT 32 1 HS4JHI

5. Quilandy. 1 HI, 4 JHI 66515 29 10 MT 23 6. Pathanamthitta 23.5 10 MT 24 1 HS, 2 JHI 37802

7. Palakkad. 130736 26.6 -- 207 + 93 1 HO,1 HS 6 HI,10 JHI

The above table shows some municipalities such as at Sl.No.2, 4, 5, 6 have less manpower than required whereas municipalities at Sl.No. 3 and 7 have much more manpower. The supervisory staff is also not distributed uniformly among the municipalities as per their population. In cities below 2 lakh population, 1 HS per 1 lakh population, 1 HI per 50,000 population, 1 JHI per 25,000 population could be considered adequate. They must however be qualified Sanitary Inspector. The cities could also have lower level supervisors from among the sanitation workers at the rate of 1 supervisor per 12,500 population.


103Implementation Readiness of SWM Rules 2000 Overall there is a demonstrated evidence of implementation readiness. The fact that GoK has constituted the CKM, supported strongly the decentralised devolution of resources, issued specific guidelines are indicative of the commitment towards finding a scientific solution to the issue. The KMA 1994, Supreme Court directives, the MSW Rules 2000 and the XII Finance Commission award specifically focussed on MSW component are all supportive to accelerate the process. However, there is a strong need for standardisation and quality assurance, as the local bodies are often taken for a ride by the market forces by selling technological options that may not be appropriate and optimal. The technical evaluation system is not very effective. Institutional Arrangements: Key Roles and Responsibilities The institutional arrangements and their key roles and responsibilities are given in Table 46.

Table 46 Institutional Arrangements: Key Roles and Responsibilities

Institution Roles and Responsibilities Remarks and Suggestions

Political Leadership

Vision setting, policy formulation, planning

Visions are set. However, SWM has to be taken up as a priority

Sector Ministry/LSG Urban

Co-ordination, financial allocation, polices and guidelines, monitoring

M&E system needs to be strengthened. Expenditure and financial tracking of plan funds are not properly done

Finance & Budget Department

Allocation and monitoring No specific roles related to MSW

Planning Department

Formulation of V Year plans, annual plans, constitution of task forces and recommendations to GoK

No Task Forces have been constituted specifically for SWM and the priority so far assigned to this sector is very little.

Health Department

Compliance of Biomedical Waste (Management and Handling ) Rules 1998

Monitoring system not effective both private and government facilities.

State Pollution Control Board

Regulation, monitoring compliance of MSW rules, authorisation of process sites, consolidation of annual return on SWM from ULB

Not effectively done. Annual returns are not submitted and consolidated. No analysis of compliance standards made and recommendations given to the Government.

Directorate of Municipalities

Coordination, fund flow and monitoring

Weak in coordination

CKM Nodal agency facilitating the implementation of MW Rules, 2000

Weak in implementation

ULBs Service provision and maintenance of systems. Enforcement of MSW rules and KMA under its jurisdiction. Seek authorisation from KSPCB and file annual report.

Overall management weak and poor. Cost recovery practically little and a significant component of the maintenance is being subsidised


104R&D Not much institutional focus in the

State except KAU, IRTC, Environmental Science Departments of Universities, CDS, SEUF

Mostly action research in technology options, like composting. Some documentation done however, no single place of consolidation.

KILA Capacity building for LSGs Very little focus on SWM, curriculum is being developed by CKM

Kudumbashree Poverty reduction mission Entry into the Door to Door collection through cost recovery as part of employment and income generation actives mostly by women SHGs. Need to be scaled up scientifically in muni. Areas with regulation of cost and std. of service.

NGOs Focussed on action research Basically they are not networked and and their capabilities in awareness creation, demand generation, social marketing, capacity biding is yet to be harnessed to the benefit of the sector.

Private Sector Service support in transportation, processing and disposal

Not in a significant way, however, once the climate is ready sector is capable of making a big entry. Regulation and disciplining the sector is an essential condition for success, which is the responsibility of the Government.

Organizational and Implementation Capacities In so far as the functional roles and responsibilities are concerned, the implementation capacities of the key institutional actors are to be significantly strengthened. The situation that despite the well laid down Acts, rules and responsibilities, the citizenry has to approach the judiciary for improved services is not a healthy sign. As a regulator, the KSPCB has very little capacity to discipline the ULBs, CKM therefore needs substantial capacity building to make it effective, ULBs are very poor in service provision standards. Wastage of resources has occurred in the absence of in house capacity, awareness, MIS, and streamlining the functions. Key Stakeholders: Training & Capacity Building Needs Table 47 provides the key stakeholders and their capacity building needs.

Table 47 The Key Stakeholders and Capacity Building Needs

Institution Roles and Responsibilities Capacity Building Needs Political Leadership at state leval

Vision setting, policy formulation, planning, approvals

Awareness of importance of SWM, financial needs, exposure visit, knowledge of health & environmental implications of poor SWM,, innovative


105Institution Roles and Responsibilities Capacity Building Needs

financing, role of informal sector., need of PSP., concept of regionalisation etc

Sector Ministry/LSG Urban

, financial allocation, State polices and guidelines, monitoring, enforcement

Do

Finance & Budget Department

Allocation and monitoring Innovative financing, awareness and orientation, financial sustainability

Planning Department/ SPB

Formulation of V Year plans, annual plans, constitution of task forces and recommendations to GoK

Need of land and finance on Priority for SWM, Impact of poor SWM on health and environment , innovative financing and resource mobilization, M&E

Health Department

Compliance of Biomedical Waste (Management and Handling ) Rules 1998

Impact of SWM on Public health, preventive measures

State Pollution Control Board

Regulation, monitoring compliance of MSW rules, authorisation of process sites, consolidation of annual return on SWM from ULB

Regulatory framework , enforcement mechanism, technology options, monitoring standards ,constraints of ULBs

Directorate of Municipalities

Coordination, fund flow and monitoring

Monitoring and evaluation

CKM Nodal agency facilitating the implementation of MW Rules, 2000

Project evaluation, technology options, training and capacity building, networking, standardisation and programme/project management, innovative financing,PSP and NGO participation, demand generation and social marketing, IEC and awareness creation, M&E,expo. visits

ULBs Service provision and maintenance of systems. Enforcement of MSW rules and KMA under its jurisdiction. Seek authorisation from KSPCB and file annual report.

Management techniques, technology options, scheduling and training, decentralisation, delegation, allocation of roles and responsibilities, exposure visit, best practices, documentation, accounting system, cost effective analysis.community,NGO and PSP, cost recovery

R&D Not much institutional focus in the State except KAU, IRTC, Environment Science Departments of Universities, CDS, PDS, CESS, SEUF

Action research, appropriate technologies, technology forecasting, environmental evaluation

KILA Capacity building for LSGs Capacity building, Curriculum setting,


106Institution Roles and Responsibilities Capacity Building Needs

networking, Kudumbasree Poverty Reduction Mission Deficiency in service, Door to door

collection, community composting, Demand generation, quality assurance, awareness and capacity building, IEC, occupational health

NGOs Focussed on action research Action research, MSW rules implementation, demand generation, net working, IEC, Community composting

Private Sector Service support in transportation, processing and disposal

Role of PSP in SWM,Corporate social responsibility, ethical standards, quality assurance, contracting mechnism.

Citizens Compliance, payment of taxes and levies, demanding quality service, social monitoring

Awareness of MSW rules, role of citizens in improveing SWM services, participatory planning and management, social audit, rating of services

Training and Capacity Building Proper implementation and operation of SWM in tune with the Municipal Solid Waste (Management& Handling) Rules 2000 is possible only if proper training and capacity building is imparted to Municipal managers, staff, and workers. The ultimate delivery of services will depend up on efficiency of the service providers target groups for training are:

Senior level officers-Decision makers Middle level officers-Managers and technical staff/supervisory staff Junior Level –Technical staff Elected members NGOs Workers Service providers

Sen meet th est technological options and various financing options, and effective PSP models etc. Middle level , lower level staff and workers being the cutting edge functionaries, appropriate training programmes have to be organized for them on the new concepts of SWM, health, environmental, legal implications and functional aspects. Audio visual aids and exposure of new systems through visits to other local bodies should form a part of the training programme. Refresher courses for all levels of staff should be organized every five years for updating the knowledge to improve the services. The senior level officers should be frequently exposed to

ior level officers need to know the mandatory needs of SWM and the cost effective ways to

em on time, b


107developments taking place in various parts of the state and country by sending them out on city visits and for attending workshops, seminars, training courses etc. Target group 1 -Municipal Sanitary Workers Topics

Personal & Social Hygiene, Health & Safety aspects of the present system Audio Visual presentation on present deficiencies in SWM service Audio Visual presentation on impact of poor SWM on health and environment Salient features of Sanitary Provisions in the Municipal Waste (Management &

Handling Rules) Audio visual presentation of clean localities, best practices in other parts of the

Country Brief presentation of the SWM upgrading Project Health benefits of the upgraded system with focus on elimination of manual handling. Use of different equipments in SWM Public Participation in SWM Do’s and Don’ts in SWM Working norms in the proposed system

Target group 2 - Municipal Health &Engineering staff Training Objective To enable the participants to make informed decisions about the up gradation of SWM services within the frame work of Municipal Solid Waste (Management & Handling) Rules 2000. Learning Outcome 1. To know the system deficiencies, key features of the environmental, health, institutional, financial &legal aspects of SWM and technological options and understand the relative costs and benefits of such options Topics

Solid waste management-background issues, health and environmental aspects, need for up gradation.

Sources and types of solid waste, waste generation rates, density, composition. Waste reduction-through RRR, material recovery, rag picker activity and the role of

informal sectors, The role of Municipalities, sound practices in other municipalities. Storage & segregation at source- why segregation& storage, primary collection systems, role of community and their participation, Role of sweepers, planning an efficient sweeping and collection system. Tools and equipments-brooms, containers, primary collection vehicles.


108 Secondary collection-synchronization with primary collection, transfer stations, container

placement, number, type size. Transportation- vehicle selection, alternatives for collection vehicles, vehicle routing,

maintenance, workshop facilities. Processing of waste-processing options, composting, market for compost, local level

processing. Sanitary land filling –options for meeting statutory and environmental requirements, site

selection and procurement, site development, operation, monitoring and closure of sites. Institutional issues-management information system, capacity building, decentralization,

regulatory frame work, Financial aspects, cost recovery, cost reduction. Community, NGO, private participation-need of participation, organizing participation. Developing an SWM plan, formulation of action plan. Delivery method will be presentations, brain storming, group discussion, group exercise,

felid trips. There has to be visits to other local bodies to get exposed to best systems developed in

the country. Ward Committees There is a Ward Committee for every Ward in Kerala. The elected councilor of the ward concerned is the Chairman of the Ward Committee. The Committee consists of not more than 50 persons nominated by the Chairperson of the Municipality in consultation with the councilor. The members of the Ward Committee are drawn from various categories such as residents associations, doctors, teachers, etc., and these categories are mentioned in the Act. The Ward Committee will meet at least once in three months. The current responsibilities of the Committee are that of prepare and supervise the development schemes for the ward, encourage harmony and unity among various groups, mobilise voluntary labour for social welfare programmes, give assistance for identifying beneficiaries for the implementation of welfare and development schemes. This is besides assisting in timely collection of taxes, fees and rents. The duration of the Wards Committee is for five years. If properly capacitated the Ward Committee can play a key role in awareness creation, participatory planning, networking and harnessing ward level CBOs, pool in ward level resources and in participatory monitoring. Co-ordination among Institutional Agencies It is observed that there is a total lack of coordination and synergy between the directorate of urban affairs, the CKM, the State Pollution Control Board and Municipal Authorities. Everyone acts independent of each other. There is lack of coordination and inter departmental support mechanism. The directorate of urban affairs now feels that the CKM which is responsible to implement MSW Rules and the role of the Directorate is only to pass on the funds earmarked for the municipalities for SWM. They hardly monitored the performance of the municipalities in


109implementation of MSW Rules 2000. It is unfortunate that the directorate which is supposed to be the controlling authority on the municipalities has washed off its hand from regulating them in implementing SWM Rules. The authority which controls the finances of the municipalities and which regulates them on a day to day basis should remain in the loop and in ensuring

istance of CKM.

The State Pollution Control Board which is a regulatory agency also feels helpless in ensuring compliance by the municipal authorities for various reasons. There is a need for the pollution control board to take proactive role in guiding the mission as well as the municipal authorities in implementing MSW Rules and simultaneously putting pressure on them to perform. The CKM need to have a strong coordination mechanism with the directorate of urban affairs and the pollution control board to ensure expeditious implementation of MSW rules in the State. Each of these three authorities should remain connected and support each other towards achieving the goal. A few representatives of municipalities of different grades should also be in the coordination committee so that all issues of the municipalities could also be resolved appropriately.

implementation of the rules with the technical ass


110

9. FINANCIAL RESOURCES Perspective Consequent on the 73rd and 74th amendments of the Constitution of India, the State Legislature enacted the Kerala Panchayat Raj Act, 1994 (Act 13 of 1994) and the Kerala Municipality Act, 1994 (act 20 of 1994). Government transferred responsibilities, institutions and schemes relating to matters enlisted in the Schedules of the respective Acts to the Panchayats and Municipalities, with effect from 2 October 1995. Fiscal Devolution On an average, the State has been transferring around 30% of the plan outlay, (renamed as ‘Kerala Development Plan’ in 2002-03), to the LSGs. The year wise transfer from 1997-98 to 2004-05 is shown in Table 48.

Table 48 Plan Outlay and Release to LSGs (Rs. Crores)

State Plan Budgeted Outlay YEAR State LSG %

State Revised

Release to LSG

Percentage

1997-98 2855.00 749.00 26.23 2698.66 745.20 27.61

1998-99 3100.00 950.00 30.65 3039.09 910.33 29.95

1999-00 3250.00 1020.00 31.38 3107.45 830.50 26.73

2000-01 3535.00 1045.00 29.56 2493.25 761.38 30.54

2001-02 3015.00 850.00 28.19 2260.00 657.05 29.07

2002-03 4026.00 1342.00 33.33 3425.00 1058.26 30.90

2003-04 4430.25 1317.00 29.73 3796.23 1438.15 37.88

2004-05 4800.00 1350.00 28.13 3913.57 1163.72 29.74

Average Transfer per year 30.30 2004-05 release includes Rs.335 crore re-allocated to LSGs consequent to the closure of PD accounts as on 09.07.2003. Source: Outlay - State Planning Board Release - IKM (1997-98 to 2003-04) DPOs ( 2004-05)

Plan Cuts Over the years on account of the overall cut in the budgeted plan size, the release to the LSGIs have been substantially less than what was originally budgeted. In fact except in 2004-05 (where in the release to LSGIs included a sum of Rs.335 Crores which was re-allocated to LSGs

WSP - SWM SECTOR ASSESSMENT REPORT 111consequent to the closure of PD accounts), the plan cuts have been significant. In 1999-00 the cut was 18.58%, while in 1999-00 it was 27%. The next two years show a near equal cut of 22.70% and 21.14%. In the year 2004-05, provisional figures reveal a plan cut of 13.80%. The plan cut over the period 1997-98 to 2004-05 is shown in the graph below:

Cut in Plan outlays to LSGIs

-200

-100

0

100

200

300

400

1997-98

1998-99

1999-00

2000-01

2001-02

2002-03

2003-04

2004-05

Year

Rs. (

Cror

es)

Source Data: Economic Review 2005. Devolution of Funds to LSGIs Out of the total devolution of plan funds to LSGIs, the share of Municipalities was 9% in 2003-04 and 8.89% in 2004.05. Basically, there has not been much change in the percentage wise allocation across various LSGs in the two years. The LSGs wise devolution of funds during the year 2003-04 and 2004-05 is shown in Table 49.

Table 49 LSGs Wise Devolution of Funds(crore)

2003-04 2004-05 LSGs

Amount Released % Amount Released % 1. Grama Panchayats 813.03 56.53% 657.28 56.48% 2. Block Panchayats 189.96 13.21% 158.01 13.58% 3. District Panchayats 200.93 13.97% 162.5 13.96% 4. Municipalities 129.87 9.03% 103.47 8.89% 5. Corporations 104.36 7.26% 82.46 7.09% Total 1438.15 100.00% 1163.72 100.00%Source: Economic Review 2005

Fund Utilization


112 Of the funds released to LSGs in 2004-05, the average utilization rate was 79.97% with Municipalities spending 81.32% of the amount released as compared to Gram Panchayts which spent 83.35% of amount received. Amongst the LSGs the lowest utilization was by corporations which spent only 68.75% of the funds. Significantly there was a lesser utilization by the LSGs across the board in 2004-05 (79.97%) as compared to 2003-04 (93.58%). The comparative utilization of funds released to LSGs in the two years is shown in the Table 50.

Table 50 Fund Utilisation

% Utilization of funds released(crore) LSGs 2003-04 2004-05

Gram Panchayts 98.95 83.35 Bloc Panchayats 95.91 81.32 District Panchayats 77.66 69.81 Municipalities 93.56 81.32 Corporations 78.22 68.75 Total 93.58 79.97 Source: Economic Review 2005. The reasons cited in the economic survey for the drop in utilization in 2004-05 was firstly on account of the introduction of bill system and secondly because of the new disbursement policy in respect of plan funds where in the total outlay was now being transferred in monthly instalments. Sectoral Spending From the sectoral point of view, between 2003-04 and 2004-05 the expenditure for all tiers of LSGIs cumulatively in the infrastructure sector was lower by 7.9%, while in Municipalities the drop was by 8.54%. Across the LSGs the expenditure incurred in the service sector and for non-classified projects rose significantly. Sectoral variation in the expenditure for the year 2003-04 and 2004-05 is shown in the Table 51.

Table 51


113Variations in Sector wise expenditure between 2003-04 and 2004-05

Production Service Infrastructure Non Classified

Project

Village Panchayat 2.2 -0.56 -8.66 6.99 Block Panchayat -7.34 4.69 -8.33 10.99 District Panchayat -9.64 6.9 1.84 0.89 Municipality 0.89 4.22 -8.54 3.44 Corporation 4.91 -8.23 -5.96 9.88

Total -0.5 0.3 -7.09 6.29 Source: Economic Review 2005

An area of concern is the under investment by the LSGs in the productive sector which has been significantly less when compared with the investments by the state. As against the state average of 17.18%, the expenditure in productive sector for Municipalities stood at 6.69% in 2003-04 and 7.58% in 2004.05. For the same period the figures for the corporations was 2.6% and 7.51%. In fact none of the LSGs have spent the minimum stipulated expenditure in the productive sector. Source of Funds to Municipalities The classification of funds which is available to the Municipalities is as follows:

1. Category A: Development Expenditure Fund: - These are Development Funds provided to Local Self Government Institutions as per 3rd S.F.C recommendations for the implementation of schemes prepared by them under the Decentralised Planning Programme.

2. Category B: These funds consist of both Plan and Non-Plan funds for the implementation of transferred schemes/functions.

3. Category C: Funds for Maintenance Expenditure: - Funds for Maintenance expenditure for Road Assets and Non-Road Assets such as schools, hospitals, agricultural farms, water supply schemes, etc.

4. Category D: General Purpose Fund (GPF):- Funds earmarked for general expenditure including traditional functions of Local Self Government Institutions. These funds can also be used for any other expenditure viz. salary, honorarium, wages, rent, electricity and water charges, telephone charges, printing etc.

5. Category E: These consist of a) Funds received from Government of India through DRDA/District Collector,

Director of Urban Affairs, Kudumbasree etc. for the implementation of Centrally


114Sponsored Rural and Urban Sector Schemes like SGRY, SGSY, IAY, Total Sanitation, IHSDP, NREGS etc.

b) Funds received from World Bank, Asian Development Bank, UNDP, etc, through the State Government.

c) Funds received from District Collector for Drought Relief/Flood Relief, Funds from Literacy Mission etc.

6. Category F: consists of beneficiary contribution, own funds of the Local Self Government Institutions consisting of tax and Non-tax revenue, EMD, Security Deposit, Retention Money etc.

7. Category G: This category consists of other funds received by LSGIs like loan from KURDFC, HUDCO etc. not coming under any of the other categories.

Assessment of Municipal Resources Plan Funds The municipalities in the state are heavily dependant on state for resources, especially to meet capital expenditure. During 2000-01 to 2003-04, ratio of Plan funds to total income of the municipalities4 varied from 42% to 50%. The provisional figures of 2004-05 however indicate a correction with the ratio coming down to 37%. Even though the quantum of plan funds in absolute terms has shown an increasing trend, the plan fund to total receipts have been declining. Excepting one municipality, the ratio over the course of the last 5 years has shown a declining trend. The year wise ratio of plan funds to total income for the four municipalities is shown in Table 52.

Table 52 Ratio of Plan funds to Total Income

Municipality 2000-01 2001-02 2002-03 2003-04 2004-05

Allepy 64.20% 46.63% 53.92% 69.18% 46.46%

Attingal 36.90% 44.18% 35.18% 39.49% 27.95%

Chalakudi 46.86% 41.89% 37.39% 42.50% 33.91%

Mallapuram 34.46% 34.67% 43.80% 51.49% 40.48%

Total 45.60% 41.84% 42.57% 50.66% 37.20%

Source: Preliminary primary data collection by the team.

4 Provisional data processed for 4 municipalities namely Allepy (Grade – I), Attingal (Grade II), Chalakudi (Grade II) and Mallapuram (Grade II). Confirmation on data accuracy shall be officially obtained. Figures subsequently with respect to Municipal resources are based on these data.


115LSGIs have been demanding an increase in the share of plan allocation. The 12th Finance commission and the 3rd State Finance Commission have also dwelt on the issue and recommended a reassessment of the devolution process. An area of immediate concern that needs to be resolved is the deductions at source by way of adjustments from the maintenance grant made by the Directorate of Municipalities on account of amount payable to KWA. This deduction is done without any consideration to the service level provided by the KWA in the concerned municipalities. Own Resources The main source of own income (tax and non tax) for the municipalities is by way of Property tax, Professional Tax, License fees etc. In most cases income from own sources of the municipalities hardly suffice to meet the salary commitments. Income by way of property tax on an average is between 9.5% to 11% of the total receipt of the municipalities5. In 50% of the municipalities, the collection showed a declining trend in 2004-05 (Year to Year basis). On an overall basis the sample data revels a slight downtrend (9.93% to 9.67%). The Municipal authorities need to improve in the property tax system both from the demand and collection point. The 3rd State finance commission as well as the TFC has made recommendations on the issue of property tax. The ratio of property tax to total income for the four municipalities is shown in Table 53.

Table 53 Ratio Property Tax to Total Income

Municipality 2000-01 2001-02 2002-03 2003-04 2004-05

Allepy 8.72% 10.14% 7.10% 8.03% 9.51%

Attingal 15.60% 15.79% 15.07% 11.16% 12.91%

Chalakudi 6.20% 9.07% 11.91% 11.65% 9.27%

Mallapuram 8.65% 9.48% 9.20% 8.89% 7.00%

Total 9.79% 11.12% 10.82% 9.93% 9.67%

With both plan assistance and property tax showing a declining trend, this to a certain extent can be viewed as a positive indicator as it implies that the Municipalities have explored other sources apart from the conventional property tax to boost their resources. The trend of total state funds (plan and non-plan) to total income for the four municipalities is contained in Table 54 below. For the period 2000-01 to 2002-03, it has been steadily declining. The increase in 2003-04 can be attributed to the increased flow of funds from the state on account of the closure of PD accounts. There however has been a sharp increase in 2004-05,


116where in from the average of 50.32% in 2000-01 the figure has gone up to 56.39%. This is a matter of concern as it implies poor counterpart resource generation from municipalities. The issue needs to be analyzed further bearing in that the 2004-05 figures are provisional and the computation is done from a very small database of four municipalities. The figures shall be reassessed in the next report.

Table 54 Total Funds Received from State to Total Income

Municipality 2000-01 2001-02 2002-03 2003-04 2004-05

Allepy 65.31% 59.90% 55.76% 70.28% 64.74%

Attingal 47.13% 52.47% 51.56% 60.37% 52.65%

Chalakudi 48.16% 47.84% 44.30% 49.57% 51.77%

Mallapuram 40.70% 40.22% 52.83% 58.48% 56.41%

Total 50.32% 50.11% 51.11% 59.68% 56.39%

Municipal Finance & SWM Accounting, Financial and Procurement Management in Municipalities Accounting In order to facilitate better accounting standards, Municipalities were to switch over to double accounting system from April 2006. As of June 2006, the municipalities continue to follow single entry, cash basis of accounting. In most of the LSGIs there is heavy back log in finalization of accounts. Of the 1215 LSGIs in the state accounts finalization is pending6 from 18.37% for FY 1995-96 to as high as 99.75% for FY 2003-04. Many of the municipalities have hired the services of retired hands to update their accounts and it is expected that situation will improve shortly. The prevalent system does not facilitate easy extraction of SWM related transactions. Presently, this has to be culled out from multiple heads of account. There is an urgent need to rationalize SWM related accounting. Asset Accounting The Government had transferred assets and liabilities of the institutions relating to the transferred subjects to the LSGIs in the process of decentralization. In spite of the taking special efforts to update the asset details, the work remains pending especially with regard to SWM assets.

6 Source CAG Report as on 31st March 2004


117 Budgeting Budget preparation exercise in most of LSGIs is a mechanical process. Generally previous years figures are included with slight cosmetical adjustments.However huge variations in budgeting estimate both in receipt and expenditure side are observed in some cases. There were cases where shortfall of over 50% on receipt side and saving of 90% on expenditure side was observed. Audits There is a plethora of financial checks inbuilt in the system, which includes:

a. Inspections from Finance wing. b. Audits by Director of Local Fund Audit (DLFA) c. Supplementary audit wherever entrusted by CAG. d. Performance audit including provision for special performance audits.

Rules permit that performance audit under section 5, audit under section 295 , and departmental inspection under rule 26, even though being independent can be inter related and the inference of one report may be depended for the purpose of another report. The most frequent audits at the municipalities are the audit by DLFA and Performance audit conducted by the office of State Performance Auditor. DLFA audit is the basic watchdog on financial propriety at the Municipalities. The audit compliance by the DLFA remains abysmal with substantial audit arrears. Reporting

All municipalities are supposed to send a ‘Monthly Progress Report’ by the 5th of the following month to the Regional Office. An extract of the balance in the PD accounts as of the end of the previous month is also to be sent to the Finance Officer, Muncipal directorate and also to the State Performance Audit Officer. The Municipal Directorate reveals that collection of figures from Municipalities is a tedious process with most of the municipalities not complying with the requirements.

Procurement & Contract Management Procurement and proper contract administration is perhaps the weakest link in the project administration capabilities of the municipality. The local bodies do not have the technical, legal or administrative capability to draft, negotiate or conclude a procurement contract professionally. The situation is further aggravated on account of lack of any specific guidelines containing at least the broad parameters the municipalities should adhere to while implementing a SWM project.


The situation is no better in the award of work contracts with municipalities either paying a lot more for the services rendered or getting sub standard service for the amount paid. The costing of the operations is not scientifically done which results in accepting substantially high charges by the private operators. While finalizing waste processing contracts the estimation of waste transported has a significant bearing in the fixation of contract value. In most of the cases the municipal authorities resort to eye estimation resulting in huge under or over estimation. For instance at Chalukkudi as per eye estimation the weight was calculated as 1.5 tons but actual weighing revealed the quantity brought at nearly 5 tons.

More serious issue is the situation where assets created out of tax payers' money is run by third parties without any contractual framework. (Attingal Municipality). These situations are more dangerous as they may result in erosion of the asset base itself.

There is an urgent need for framing practical contracting and procurement procedures in the municipalities especially for sectors where technical, legal and managerial inputs are critical. An assessment of different contracts / agreements established /signed by 7 ULBs with private parties is given in Annexure 14. Conclusion On a more macro level, the whole accounting and financial management practices requires revamping which includes immediate updating of backlog in accounts, switch over to double accounting system, rationalization of documentation process and a planned computerization plan which should ultimately result in data availability from LSGs on a real time basis. This should be targeted through proper planning and capacity building interventions. One issue that the state government may dwell upon is the forming of a common accounting service pool for the state service. Financial Issues in SWM SWM is generally considered to be dirty and costly business. The basic questions to be answered in this context are:

The case of Kayamkulam Municipality is a classic example of comprehensive contract mis-management with mistakes in the technological, procurement and managerial aspects. In this instance the municipality had in response to a tender for the supply and erection of an incinerator (wrong technology), ignored the lowest offer from a State Government undertaking (mis-procurement) and paid as advance a sum of Rs.21.50 lakh. The firm did not supply the plant even though the contract for supply and erection expired in June 2003.(wrong contract administration).


1191. Whether funds at the disposal of the municipality are adequate to discharge their mandate

on services to be provided in respect of activities transferred under the decentralization process.

2. Whether funds available give the Municipalities discretion to prioritize SWM. 3. Whether the funds invested have been worthwhile 4. Whether the Municipalities have the funds to sustain investments made

The issue of resource adequacy has to be looked into bearing in mind the activities that need to be performed to have an efficient SWM system. The activities can be broadly divided into two main heads i.e. setting up the essential infrastructure for SWM, procurement of tools, equipment and vehicles and day to day operations and maintenance of the SWM services. Capital and revenue expenditure is required to be incurred to carry out the aforesaid activities. The capital and revenue expenditure can be further classified into the following sub activities:

1. Capital Expenditure

a. Procurement of Land for treatment and disposal facilities. b. Creating Infrastructure for treatment & disposal facility. c. Procurement of tools,Vehicles & Equipment for collection, secondary storage,

transportation, treatment and disposal of waste.

2. Revenue Expenditure

1. Salary to staff 2. Operation & maintenance of Vehicles and equipment 3. Operation and Maintenance of treatment and disposal facilities 4. Uniform

State Government’s Initiatives In this context the approach of the state government is quite clear. In the guidelines issued by government for preparation of annual plans under the tenth five year plan by local governments, its specifically stresses on formulating “Stand Alone Commercially Viable Projects” where the revenue stream can by itself meet the repayment requirements and also generate enough resources for smooth maintenance of the assets and higher future investment.

However, in its effort to assist municipalities in the implementation of SWM programs, the State Government has provided funds over and above the plan funds through Clean Kerala Mission which provides financial support as per the criteria mentioned below:

a) 100% for remediation of existing dump yard to a clean SWM yard with a ceiling of Rs. 5 lakh

b) 100% for Awareness and IEC campaign for effective popularization of 'Segregated Waste Collection', principles of 'No Waste on Ground', 'Reduce,


120Reuse, Recycle, Recover and Replace waste', 'Decentralized Waste Management' etc. with a ceiling of Rs.5 lakh

c) 100% assistance for introducing segregated storage and collection system from source with a ceiling of Rs.10 lakh

d) 25% assistance for improving transportation system and setting up or modernizing processing plant with a ceiling of Rs.30 lakh.

e) 100% assistance for setting up a model engineered landfill for one year with a ceiling of Rs.10 lakh.

12th Finance Commission The 12th Finance Commission has recommended an amount of Rs.25,000 Crores for LSGs across the country for the period 2005-10. It recommended sharing of the resources between Panchayats and Municipalities in the ratio of 80:20. The state share from the Rs. 20,000 Crores meant for Panchayats comes to Rs. 985 Crores (4.93%) and for the Municipalities it comes to Rs. 149 Crores (2.98%). Further the TFC has recommended that at least 50 per cent of the grants provided to each state for the Urban Local bodies should be earmarked for the scheme of solid waste management through public-private partnership. The state government has neither passed on the grant thus received nor has it issued any directions making it mandatory for the ULBs to set aside equivalent fund from the plan assistance for MSWM as recommended by the commission. Assessing Municipal Capacity in Discharging SWM Mandate To comment upon municipality’s ability to discharge SWM functions as contained in the SWM rule 2001 is dicey as ‘Unutilized Opportunities’ by the municipality needs to be properly assessed before deciding on the adequacy of resources. This assumes significance in the scenario where on an average the municipalities are utilizing only 80% of the plan assistance released by the state. In 2003-04 unspent amount by Municipalities itself is around 20 Crores. Capital Requirements In order to finance the capital requirements for providing SWM services the CKM provides funds which are over and above the plan assistance received by the LSGIs. On an average CKM finances approximately 35% of the project cost. Most of the municipalities already have land which should be at least sufficient for processing needs. The requirement of land for disposal needs to be assessed separately and is discussed later under this section. Municipalities are further enabled wherein the government has allowed municipalities to prioritize SWM by allowing disbursement of general purpose grant only after deducting outlay including municipality’s counter part contribution for total sanitation projects under CKM. Under sectoral classifications also the productive sector includes provision for compost generation from solid waste management. It is quite obvious that if proper planning is done at the municipality level, the capital requirement for setting up SWM facility should not be a constraint.


121Recurring Expenditure The municipalities have been spending 4% to 16% of their total expenditure on SWM. The ratio of SWM expenditure by Municipalities to Total funds is shown in Table 55.

Table 55 Ratio of SWM Expenditure to Total Funds

Municipality Funds From

State Govt. Own Funds Funds from

CKM Total Funds Operating

Expenditure for SWM

% Expenditure for SWM to Total Funds

Attingal 22,459,551 15,875,366 4,327,000 42,661,917 4,731,323 11.09%

Chalakudi 31,841,768 21,640,000 3,900,000 57,381,768 2,363,500 4.12%

Allepy 91,877,600 50,034,000 141,911,600 22,712,281 16.00%

Malappuram 34,304,270 26,503,392 60,807,662 3,013,752 4.96%

An analysis of recurring expenditure on SWM in the 4 municipalities reveals that 86.34% of the operational expenditure incurred by the Municipalities is on account of Salary, Wages and pensions. Only 8.2% expenditure is incurred for vehicle maintenance and fuel expenditure. As percentage of total expenditure, the figure varies with Allepy and Attingal spending 11.41% and 10.53% while Mallapuram and Attingal spent 5.11% and 3.41% of the total expenditure on SWM operations. Details of the spending pattern of the four municipalities are shown in Table 56.

Table 56 Anyalisis of Recurring Expenditure on SWM - 2004-05

Municipality Staff Payment to

Contractors Vehicle

Maintenance Uniform Fuel Others Total

Allepy 95.17% 3.16% 1.67% 100.00%Attingal 91.27% 2.93% 2.93% 2.86% 100.00%Chalakudi 63.25% 12.69% 10.58% 0.78% 12.69% 100.00%Malappuram 95.64% 0.91% 0.86% 2.58% 100.00%Total 86.33% 3.17% 4.40% 1.56% 3.82% 0.72% 100.00% In terms of per capita expenditure, expenditure per HH and expenditure per sq. km again Attingal and Allepy show to spend substantially higher than the other two municipalities. While this may be because of special localized issues, the huge variation amongst the municipalities and the substantially high administrative cost requires a re-look at the service delivery


122mechanism in itself. The per capita, per household and per sq km cost of SWM service is given in Table 57.

Table 57 Anyalisis of Recurring Expenditure on SWM

SWM Recurring Expenditure Municipality Total Area (Sq

KM) Population HH Sq KM Population HH

Allepy 22,712,281 46.77 177,079 32,203 485,616 128 705

Attingal 4,731,323 14.76 35,648 6,674 320,550 133 709

Chalakudi 2,363,500 25.23 48,371 8,626 93,678 49 274

Malappuram 3,013,752 53.70 58,490 7,973 56,122 52 378

Total 32,820,856 140.46 319,588 55,476 233,667 103 592

In the given context under business as usual scenario the options before the Municipality is to:

a. Continue with the current systems and practice. b. Prioritize SWM service at the cost of other deliverables c. Find ways and means to make the service self financing.

The Kerala Muncipal Act mentions that “Municipality by a resolution determines to levy property tax, and it may comprise of a tax for general purposes and a service tax and the service tax may comprise of a sanitary tax to provide for expenses connected with the general sanitation of the municipal area and the removal of rubbish, filth and carcasses of animals from the private premises.” The TFC also has also recommended the user charge to be made obligatory by Municipalities. Apart from the option of levying sanitary tax, Municipalities have the option of levying ‘User charges’ for providing specialized services and ‘Penal charges’ for offending sanitary rules. As against the constraints in imposition of fines, administrative charges can be levied by the municipality from the offenders on the strength of council decision. The Kerala Economic Review has dwelled on the issue of cost recovery and mentions that the return from social services where in government is making huge investment has been abysmally poor. This has primarily resulted because of the policy of successive governments of imposing low user charges at the time of implementation and then again not revising them in light of changing economic scenario even when the per capita income and wages/salary levels have increased in the State. It is seen that the expenditure on SWM is very low as compared to the importance of the service. Besides, hardly any expenditure is incurred by the Municipalities on door to door collection, transportation and disposal of waste. There is a need to increase the allocation of funds for SWM


123to improve the quality of service or levy of user charges to increase the revenue to meet the additional cost. Way Ahead

It is imperative for the municipalities to explore new avenues and take bold decisions in terms of improving cost recovery to improve the quality of public services and make them sustainable. There is an urgent need to streamline solid waste management systems, including door to door collection, secondary storage, transportation and more significantly waste treatment and disposal systems. The amount now being spent for SWM is meant for cosmetically removing the waste from the front of our eyes and dumping it elsewhere. The amount spent for treatment & disposal is less than 5% of the total expenditure on SWM. The allocation of funds has to increase to cover all the essential steps of SWM appropriately which can be done by levy of user fees and or raising sanitary tax. Models exist in state, where municipalities have through the help of CBOs (Kudumbashree) initiated door to door collection activities by charging a small user fees. The study by IL&FS Ecosmart Limited submitted to WSP on Willingness to Pay for Solid Waste Management Services conducted at Kottayam reveals that the residents were ready to pay for improved services provided by private sector operators either through added tax or through user charges to the service provider. Preliminary working reveals that if the model were to be scaled up the amount thus collected would not only be able to sustain the whole gambit of present SWM activities of the municipality but would also be able to finance to a large extent the capital expenditure requirements. For keeping the cost low, land fill activity should be regionalized. It has been proved that having common landfill brings down the cost substantially. The service provision should clearly look into the financial costs of an integrated service. Besides if all the 900 Panchayats, 53 municipality and 5 corporations functioned as water tight institutions, it would mean that there would have to be 1000 landfill sites in the state. Not only is it financially unviable, there will be no technical people who can manage them besides appropriate land would not be available within transportable distance. For economical, technical & managerial angle, this activity should be regionalized by the state government. This should not be viewed as an encroachment on municipal rights by the ULBs but considered as a help to them. To meet the cost of treatment facilities areas where economies of scale could be leveraged and cross linkages amongst various institutions are possible should be explored. Typically, various state institutions could be linked to ensure purchase and use of the manure produced in the city processing plants. This would in itself make the processing units a financially profitable venture besides generating substantial job opportunities. This will also attract private sector to set up treatment facilities without putting any burden on the municipal authorities.


124

10. STATUS OF INFORMAL SECTOR Definition of Informal Sector

There are quite a number of definitions for informal sector. International Labour Organisation (ILO) in its book ‘The Dilemma of the Informal Sector’ defines informal sector as any small scale initiatives with the following features.

• They produce and distribute a wide range of goods and services • They consist largely of independent, self employed producers, sometimes employing

family labour and / or a few hired workers or apprentices • They operate with very little capital, or none at all • They utilise low levels of skills and technology, and therefore operate at low levels of

productivity • They generally earn very low and irregular incomes • They are usually unregistered and unrecorded in official statistics • They have little or no access to organised markets, credit institutions, formal

education and/or training institutions • They are not recognised, supported or regulated by governments • They are almost invariably beyond the pale of social protection, labour legislation,

and protective measures in the work place • They are generally unorganised and in most cases beyond the scope of action of trade

unions and employers’ organisations

Status and Contribution of Informal Sector Informal sector activity in solid waste management is significant in any urban centre in India. The sector itself is part of a business chain, driven by market forces, comprising a wide variety of stakeholders with diverse financial backgrounds, handling millions of tons of waste and millions of rupees daily, with a lesser investment compared to other businesses. The contribution of informal sector to Solid Waste Management (SWM) is remarkable but never acknowledged. The increase in number of rag pickers is considered as one of the indications of urban poverty. Majority of the rag pickers are women or children who live in extreme poverty. Rag Pickers The total urban population of India is around 300 million as of 2006. This population generates 115,000 tons of waste per day; that is 42 million tons a year. Out of this waste around 10 % of waste is retrieved by rag pickers and passed on for reuse or to the recycling industry through the middlemen. It is estimated around 4 million tones of recyclable waste is retrieved by around 575,000 rag pickers a year. The average daily collection of a rag picker is estimated as


125approximately 20 kg and average daily income as Rs.50/-. The estimated turn over of the rag pickers’ business in India has been estimated at about Rs12280 million with almost no investment. Rag pickers form the most vulnerable group among the various stakeholders of the informal sector. They are mainly immigrants from the nearby states and live in extreme poverty. Unlike in other states, rag pickers are seen in Kerala without any urban-rural difference. They engage in work using a sack for collecting materials. Quite often the entire family is engaged in rag picking. They collect what people throw in their back yards, roadsides, drains etc. They pick up recyclables disposed of at the collection points, community bins, dumping sites etc., after households hand over saleable material to waste purchasers and rest to primary collectors or municipal workers. Rag pickers mainly get paper, small bottles, broken bottles, tins, pet bottles, plastic covers, iron pieces, packing materials, food packing materials etc. Typically, no capital investment is involved in rag picking other than a hand cart or tricycle, that too only in some cases, and these are often assembled using the scraps they get. They get a daily haul of 15 - 30 kg of recyclable waste depending upon the facility they have, the location they have selected, and also the season. The daily income of a rag picker ranges between Rs.30/- and 80/-. Many rag pickers said that the business is the best in summer not only in terms of quantity but in terms of value as well. According to Census 2001, Kerala has an urban population 8.27 million which generates 2359 tons of waste per day. Different studies show that the percapita waste generation in corporations in 2001 is 400g and in municipalities it is 300g. Since the urban growth rate in Kerala is 0.7% and the yearly waste increase is about 1.4 % the total urban waste generation in 2006 is estimated as 3026 tons per day. Since the current recyclable waste retrieval rate is about 10 % by rag pickers, about 303 tons of waste is retrieved everyday. If this quantity is not retrieved by the rag pickers this would come to the municipal stream and would add the burden of urban local bodies. The study conducted by SEUF in six municipalities and one corporation shows that the daily collection by a rag picker varies between 15 and 30 kg. By taking an average of 22.5 kg per rag picker per day it is estimated that about 13500 rag pickers are currently engaged in waste picking in urban areas. If a rag picker gets three rupees per kg on average, a yearly turn over of rag pickers in urban Kerala alone is about Rs 330 million. In addition to the livelihood of about 13500 rag pickers the urban local bodies (ULBs) also gain from this situation. The provider assessment done in six municipalities shows that the current solid waste management cost per ton of municipal waste ranges between Rs.1600.00 to 2000.00. The methods are not scientific and do not comply with the MSW Rules. Thus total savings of the municipality for a year just because of the rag pickers is Rs.176 million to 221 million. The contribution of the rag pickers to the waste management system is sizeable. What the rag pickers collect is what others throw. The Kudumbashree experience in Trivandrum Corporation shows that after initiating segregation of solid waste, they get 16% recyclables. When Calicut Corporation started segregated collection their daily quantity reduced to 160 tones from 180 tones. (The non biodegradable waste collected separately twice a week by a plastic manufacturing company with Rs.2 per kg.) This indicates that percentage of recyclable waste is

WSP - SWM SECTOR ASSESSMENT REPORT 12611%. This of course is in addition to a certain quantity collected by rag pickers. Therefore, it could be concluded that if household level segregation and storage is promoted, the retrieval rate of recyclables could be increased to 15% or even more. The waste pickers collect waste from streets, community bins and dump sites without any health precautions. They are unaware of the potential health hazards of their occupation. Though the bio medical waste is supposed to be managed by Indian Medical Association (IMA), there are incidences of bio medical waste in municipal solid waste. Majority of the rag pickers walk bare footed and work with uncovered hands while collecting recyclables from heaps of waste.

Rag pickers are mainly squatters or pavement dwellers. The main stream communities keep them away not because of the nature of their occupation and their untidy looks but also because of fear of theft. In order to resolve the theft problem, Kerala Police has started issuing identity cards to the rag pickers in many areas. There is a need to initiate measures to strengthen this sector and also to upgrade the current occupation of rag pickers. Rag pickers form an exploited lot, with major chunks of their revenue going to the middlemen A cooperative organisation of rag pickers could be thought of, which would purchase the materials from rag pickers and pass it on to the industry. A model of community initiated and managed (Panampally Nagar Residents Association) primary collection using rag pickers is given in Annexure 15. Waste/Rag Buyers and Dealers There are two systems to collect recyclable waste from the waste generator. One set of people called "kabadiwalas" i. e. waste buyers who purchase recyclable waste such as news papers, bottles, tins, plastic materials etc. and sell that material to the dealer who passes on the same in a bulk quantity to the recycling industry. Another set of people are rag pickers who are poorest among the poor. They pick up discarded recyclable material from the streets, bins and dump yards.

WSP - SWM SECTOR ASSESSMENT REPORT 127The chain of transactions in the rag picking business starts from rag pickers at the lowest end and extends to include rag buyers, sub dealers, main dealers, recyclers etc. The economic and social status of the stakeholders also enhance as they go up the value chain from rag pickers to the other end.

The waste purchased by waste purchasers cannot be treated as municipal solid waste. What they collect are the valuable materials that the households retain temporarily for while disposing the other waste. No estimate of the number of waste buyers is available so far. Typically, the small amounts of working capital that the waste buyers need for buying the materials from households is often provided by waste dealers. Over the years the waste buyers establish informal bond with the waste dealers; who even give advance to buy recyclable material which varies from Rs.100 to Rs.500 depending on the capacity of the waste buyer. In many urban centres the dealers also provide hand carts or tricycles to enhance collection.

In Thrissur Corporation, there are waste dealers who own 3 to 30 hand carts and they assign as many number of waste buyers for collection. A waste buyer collects 30- 70 kg waste per day. The daily income of a rag buyer generally varies between Rs.75 and 250. The rag pickers without any investments pick up recyclable waste, segregate the same and sell the same to the middle man or sub dealer or a rag buyer. The average quantity of waste and the average daily income of a waste buyer are given in Table 58 below.

Table 58 Daily Collection of a Waste/Rag Buyer

Sl No

Items Collecting price Rs/kg

Selling price Rs/kg

Margin Rs/kg

Average daily collection kg

Average income Rs.

1 Paper 3 4 1 15 152 Book paper 4 7 3 12* 363 Iron 5 8.50 3.50 8 284 Tin 2.50 4 1.50 3.5 5.255 Plastic 4 8 4 3 126 Bottles 1/piece 1.60/piece .60 8 nos 4.807 Packing 1.50 2.50 1.00 8 8 Total 49.5 109.05 Source: Shanthi, a rag buyer in Pathanamthitta Municipality (May 2006) * Mainly in April – May months The rag pickers/buyers sell the materials to small depots. These depots either sell it to buyers from outside or directly to recyclers. This is a self-contained business that runs on very little investment. Since no specific skills are required and the working capital requirement is low, it is an avenue for livelihood for numerous poor people from within the state and outside. There are people who collect recyclables from

WSP - SWM SECTOR ASSESSMENT REPORT 128various sources using bicycles, tricycles, auto-rikshaws, pick up vans etc. The system has got its own merits and is better left undisturbed. Recycling Waste Channel The recycling waste channel is not an easily visible one and therefore the market factors that determine its performance are yet to be analysed. There are 32 depots for recyclables in Kottayam Municipality (2004). The quantity of waste received by them is shown in Table 59 below.

Table 59 Quantity of Waste Received by Waste Depots in Kottayam Municipality

Category of Depots Quantity Received /day Total in kg Small depots- 16 50kg/day 800 Medium depots- 12 200 kg/day 2400 Large depots-4 500 kg/day 2000 Total 5200kg/day Source: Ecosmart 2004 The average waste collection in Kottayam Municipality (KM) is 17 tons per day excluding waste disposed off by the households in their premises, whereas the total quantity of waste generation is about 39 tons per day (Ecosmart, 2004). The waste depots deal with 12% of the total waste generated, but this may include what the rag buyers/ pickers collect from nearby rural panchayats. The waste reaching the recycling market could be improved through source level segregation.

Waste generators

Rag buyers

Backyards, Secondary Collection, Disposal sites

Rag pickers / Municipal workers

Sub dealers

Main dealers Recyclers


129The study conducted among the waste dealers in Thrissur Corporation reveals the fraction of recyclable/ reusable waste. The major fraction of the recyclable/reusable waste is news paper, card board packing, bottles (Beer and liquor bottles), metal scrap, and plastic items. A lot of people earn their livelihoods by engaging in rag dealing. There are about 30 people from Pattambi and Ongallur panchayats who are involved in rag dealing business in various cities of the State. Recycling Centres in Ongallur Grama Panchayat There are 15 bottle dealing units in Ongallur that procure used bottles from recyclable dealers spread in various cities. They also buy bottles directly from liquor shops and bars. After an initial cleaning process at the bottle dealing unit, the bottles are transported to different companies for re use. Altogether they handle 20 truck loads of glass bottles a day. More than 200 varieties of bottles are handled in these units; the cost of each varies according to the type. Certain varieties such as beer bottles and pint bottles have got a regular demand while others are kept in the go-down till there is a boost in their demand, which is occasional. Around 150 women are employed here to clean the bottles. 80% of the bottles are reused in Kerala and 20% goes to Tamil Nadu. The major customers in this sector are distilleries. There is a 20% breakage in handling the bottles. White broken glass pieces are sent to Excel Glass Factory in Alappuzha. Green bottles and their pieces do not fetch reasonable price in the market. The caps of the bottles are separated at the units and are sent to a separate market. Medicine bottles that reach here are sent to Tamil Nadu. A couple of small scale pellet making units also operate in Ongallur panchayat. Investment and Return As mentioned earlier in this report, the investment in informal sector is very low. The primary role of the dealers is to collect waste and pass it on to the industry without making much investment. The business is labour intensive with people working in collection, segregation, packaging, loading, and transporting waste materials to the industry. The wages given to the persons involved in the entire process of collection, segregation and transportation are extremely low compared to other sectors. Even though the business involves reasonably high profits, it cannot be considered a lucrative business as the profit owes it to the low wages paid to the labour involved at various points in the value chain. The net monthly profit gained by the dealer ranges between Rs.2185 to about Rs 17450 per person who engaged full time in this work. The wide range in profits shows that there is enough room for improvement. Table 60 shows the investment and return in 4 shops in Thrissur.


130

Table 60 Investment and Return

Shop 1 Shop 2 Shop 3 Shop 4No of business partners 1 1 2 2Monthly Profit (Rs.) 17,450 2,185 12,150 29,350Annual ROI 741% 807% 391% 548%Net Profit to Monthly Expenses (%) 436% 437% 213% 309%Break Even Period (Days) 49 45 92 66 The dealers face a lot of problems while transporting waste materials to the recycling industry in other districts or states. Majority of the small scale dealers do not have sales tax registration and therefore end up selling the materials to major dealers who may have registration. This helps major dealers gain larger margins. Since these materials are used and thrown and are already taxed during its initial sale, many dealers expressed their disappointment in bringing it in the purview of value added tax (VAT). Management of recyclable waste after collection is as important as collection itself. Tax reduction and exemption could be considered in order to promote this industry. Kudumbashree Kudumbashree, an entrepreneurship based poverty alleviation programme of the Government of Kerala is the most important player in collection of waste from the doorsteps. They entered into solid waste management as an economic opportunity (Clean Kerala Business) to eliminate poverty. Kudumbashree is the State Poverty Eradication Mission launched by the Government of Kerala with the active support of Government of India and the national bank for Agriculture and Rural Development (NABARD). Kudumbashree aims at eradicating absolute poverty by 10 years under the leadership of Local Self Governments. Grass Root Level Community Based Organisations (CBO)

Women are organised into Neighbourhood Groups, (NHGs). Each NHG consist of 20-40 women with five functional volunteers- Community Health Volunteer, Income Generation Volunteer, Infrastructure Volunteer, Secretary, and President. These groups are coordinated at the ward level through Area Development Society (ADS), by federating eight to ten NHGs. The coordinating apex body at panchayat level is the Community Development Society (CDS), which is a registered body under Charitable Societies Registration Act.

WSP - SWM SECTOR ASSESSMENT REPORT 131Functioning of the CBOs The NHG members meet once in a week to discuss various issues and also to deal matters related to the management of their small saving scheme. The aspirations and demands voiced out in the NHG meetings essentially form the ‘micro-plans’, which are scrutinised and prioritised to form a mini-plan at the level of ADS. After consolidating the mini-plans by judicious prioritisation process at the level of CDS, the ‘CDS Plan’ is formed which is also the ‘Anti-Poverty Sub-Plan’ of the Local Self Government. Evolution of Clean Kerala Business On identifying the gap in existing SWM system, Kudumbashree entered in to it looking at it as an economic opportunity.

Initially there was some reluctance to get into waste collection. This was overcome through orientation and training programmes organised by Kudumbashree. The name ‘Clean Kerala Business (CKB)’ was given to enable women to engage in the business with dignity and to recognise it as an enterprise. CKB workers are provided with uniforms, badges, gloves etc which enhance their self esteem and also provide them with protection against hazardous materials and also. Kudumbashree identified a number of management experts from different universities for providing training to women. This emerged as a mutually rewarding exercise. While the experts got an opportunity to translate their academic knowledge into practices applicable at the local level, the women gained from the training programmes. Pilot Programme in Trivandrum Corporation Trivandrum Corporation, like other similar civic bodies has been facing severe problems in solid waste management. Kudumbashree pilot programme was launched in Trivandrum in Year 2000, and covered five divisions of the Corporation. Fifteen members from Community Development Societies (CDS) were selected and three groups of four members were formed, while three members were retained as substitutes. In the initial phase each group planned to cover 400 households for door step collection at a user fee of Rs.25/household/month to get a minimum income of Rs.2000/person/month. The total income expected at this stage is given in Table 61.

Absence of Primary collection

Conversion of this opportunity into an

enterprise

Kudumbashree's intervention

Existing


Table 61 Trivandrum CKB Income Estimation for Pilot Programme

1. Income for sub groups 3 x(400x25) Rs. 30,0002. From hotels / shops / Marriage Auditoriums Rs. 10,0003. From the sale of recycling wastes Rs. 5,000 Total Income Rs. 45,000 Initially there was some resistance from the Corporation workers as they saw the presence of women in waste collection as an invasion to their occupational territory. However, the resistance subsided subsequently as the women went ahead with their business. Now the number of households has been increased and a Kudumbashree CKB worker gets an average of Rs. 3500 per month. There are women who earn as much as Rs 7800/- per month. Now the Corporation has come forward and started ‘segregated primary collection’ in 25 wards with Kudumbashree CKB workers.

Scope of Clean Kerala Business Considering the wide grass root level net work of Kudumbashree and the prevailing level of unemployment in the State, waste collection and management is a good opportunity for employment generation. Certain compliance criteria as per Schedule 2 (1) of the Municipal Solid Waste (Management and Handling) Rules 2000, that provide openings in this regard is given in Table 62 .


133

Table 62 Compliance Criteria Provide Openings in Primary Collection and Processing

Section 2(1), Municipal Solid Waste (Management and Handling) Rules 2000

Parameters Compliance Criteria Collection of municipal solid waste

1. Littering of solid waste shall be prohibited in cities, towns and in urban areas notified by the State Governments. To prohibit littering and facilitate compliance the following steps shall be taken by the municipal authority namely:

i) Organising house to house collection of municipal solid wastes through any of the methods like community bin collection (central bin), house to house collection, collection on regular pre informed timings and scheduling by using bell ringing of musical vehicle (with out exceeding permissible noise levels);

ii) Devising collection of waste from slums and squatter areas or localities including hotels, restaurants, office complexes and commercial areas;

iii) Waste from slaughter houses, meat and fish markets, which are bio degradable in nature, shall be managed to make use of such wastes;

iv) Collected waste from residential and other areas shall be transferred to community bin by hand driven containerised carts or other small vehicles;

v) Waste (garbage and dry leaves) shall not be burnt 3. It shall be the responsibility of generator of wastes to avoid littering and ensure delivery of in accordance with the collection and segregation system to be notified by the municipal authority as per para 1(2) of this schedule.

Processing of municipal solid wastes

Municipal authorities shall adopt suitable technology or combination of such technologies to make use of wastes so as to minimise burden on landfill. Following criteria shall be adopted, namely:

i) The biodegradable wastes shall be processed by composting, vermin-composting, anaerobic digestion or any other appropriate biological processing for stabilisation of wastes. It shall be ensured that compost or any other end product shall comply with standards as specified in Schedule-IV;

ii) Mixed waste containing recoverable resources shall follow the route of recycling. Incineration with or without energy recovery including pelletisation can also be used for processing wastes in specific cases. Municipal authority or the operator of a facility wishing to use other state-of-the-art technologies shall approach the Central Pollution Control Board to get the standards laid down before applying for grant of authorisation.

As the Rules insist on house to house collection there is ample opportunity before Kudumbashree as they are the pioneers in door step collection in Kerala. At present Kudumbashree is mainly involved in door-step collection. However, in certain municipalities their involvement goes up to transportation to the dump site and also in processing. Many groups own a small vehicle and a


134hand cart and they get a satisfactory income. There are excellent examples for composting done by women’s groups, North Paravur is a case in point. This option could be further explored. A Consistent and Sustainable Income In Malappuram out of the twelve micro entrepreneur groups (Self Help Groups – SHGs) four are in Clean Kerala Business. The four CKB groups together include 40 women. For door step collection they charge Rs.30 per household and Rs.50 per shop. One municipal vehicle with a driver is provided exclusively for CKB business. For loading and unloading purposes one member from each group travels in the vehicle on rotation basis. In order to reduce their work load, CKB members have planned to purchase four Ace vehicles. The present status of CKB in Malappuram Municipality provided in Table 63.

Table 63 The Present Status of CKB in Malappuram Municipality

Group No of Households

Covered No of Shops Covered

Wards Covered Monthly Income In Rs

I 316 30 14, 15 10980II 250 22 17,18 8600III 350 27 19,20 11850IV 376 24 21,22 12480 Total 43910 A CKB worker thus gets an average income of Rs.1391 per month for five to six hours work a day in addition to what they get from recyclables. As per municipality guesstimate CKB workers handle three tons of waste daily. In Kozhikkode Corporation the Kudumbasree CKB covers 54.27% of the households (39,545) for which 649 women are involved. In the first phase primary collection started in 7 wards and later extended to the remaining. Of the total 12000 shops and other establishments, the CKB workers cover about 3000, which is about 25%. The approximate percentage pattern of income and expenditure of one of the CKB groups in Kozhikkode is given in the two charts below


63%

27%

5%

5%

Income from Houses

Income from Trade Houses

Income from sale of scrapw astesIncome from Other Sources

10%9%

9%

15%3%

54%

Fuel Expense (Diesel)

Wages paid to Driver

Other Expenses

Loan Remittance

Reserve Funds

Payment to workers

Additional Income from Recyclables Approximate quantity of recyclables that a CKB group in Alappuzha collect in a month by covering 100 houses and related shops is given in Table 64

Table 64

Quantity of Recyclables Collected by a CKB Group in Alappuzha

Sl.No. Particulars Quantity Collected Per Month1 Plastic 25kg2 Packing cardboards etc 50kg3 Metal 25 kg4 Milk cover 20kg5 Glass 50 kg Total 170kg

WSP - SWM SECTOR ASSESSMENT REPORT 136 Daily collection of recyclables is thus five to six kilograms per 100 households. At a price of Rs.3/- per kilogram a group makes a minimum of Rs.15-18 a day by covering 100 houses and shops in the vicinity of the houses. This translates into an additional income of Rs.450 /- to 550 /- per month for the group. This is more than 30% of what they make by collecting other waste materials that are not recyclable. The pilot Kudumbashree experience in Trivandrum shows that there is an additional 16% income from selling recyclables. Clean Destination Unit (CDU) in Alappuzha Tourism Department/ District Tourism Promotion Council (DTPC) selected women from different Kudumbashree units as part of the ‘Clean Destination Unit’ programme in Alappuzha. Twenty nine women are engaged in the activity in four different groups. The details of CDU are shown in Table 65.

Table 65

Details of Clean Destination Unit (CDU)

1. Beach, Alappuzha 10 women Assigned by Tourism department 2. Railway station 4 Assigned by Tourism department 3. Boat Jetty 10 Assigned by Tourism department 4. Punnamada 5 Assigned by DTPC

One person gets a salary of 2500/- per month. The salary is given by the department or the Council that has assigned the women. Except those who work at the Boat Jetty, these women do not have access to basic amenities required at the work place. A sizeable percentage of women working in these groups are widows. Initially men were against these women getting into waste handling business. However, the problem was resolved subsequently as the women stayed in the business and gained community support and acceptance. Kudumbashree Kozhikkode model – A well functioning primary collection system supported by the Corporation is given in Annexure 16.

Issues in Fixation of User Charges Typically, user charge for households and institutions is fixed jointly by Kudumbashree and the Municipality. Prevailing average rates are Rs 30/- per household and Rs 50/- per institution. There are exceptions such as a household being charged Rs 60/- per month. This however, depends on the quantity of waste and the willingness of the household to pay for the services. Exceptions are there in the user charges levied up on institutions as well. For instance, there are shops in Alappuzha that pay a user charge of Rs 450/- per month and some hospitals in North Paravur pay as much as Rs 600/- per month. Compared to the arduousness of the task involved,


137these cannot be considered high rates. However, there is an argument against differential pricing that those who pay less may eventually be left out thus affecting the sustainability of the programme. There are further complications involved in charging for the various types of services. In North Paravur, bins are provided at shops and a user fee of Rs 10 is charged per bin per day. The shops, in their attempt to reduce the number of bins, stuff more waste into a bin than what it could actually take. This leads to two problems. First, it could lead to accidents. For instance in North Paravur, Ms Thankamani, a member of Shreyas group faced two accidents related to over-stuffing of bins. She had to spent Rs 20,000 on treatment, which is a huge amount given the fact that she does not have any other source of income. Second, over-stuffing of bins deprives women of their legitimate remuneration from the business. It is important here that a system is in place to fix the user charges on a normative basis thus eliminating the possibility of bargaining and related tensions. Health Issues Six years is probably too short a period to assess waste induced health hazards on people who handle solid waste. Even though usage of gloves and boots are insisted up on, these are not used in practice. The main reason cited for lack of use is inconvenience. In order to pre-empt the emergence of serious health problems in future, it is important that best practices are put in place. There should be periodic educational and monitoring programmes. One of the main problems faced by the women working in plants is absence of the very basic amenities. Safe drinking water is available, and there are no latrines or urinals. Lack of such essential amenities at the work place could lead to serious health problems. In North Parvur, there is no urinal in the vermin-compost plant where seven women are working. In Alappuzha members of the Clean Destination Unit are facing the same problem. There are even incidences of sexual harassment in isolated plants. CKB groups collect non biomedical waste from many hospitals. Though biomedical waste is sent separately to Image, Palakkad, the facility of IMA, needles and other infected materials are often found in the waste collected by the CKB group. There are a lot of hospitals that do not send biomedical waste to IMA. Several medical laboratories normally resort to open dumping of infected waste. Rag Pickers vis-à-vis Kudumabshree Wherever Kudumbashree units have started primary collection of solid waste, the income of rag pickers has been adversely affected. This hampers the subsistence of rag pickers and therefore is a humanitarian issue. The need of the hour is a system that could accommodate both Kudumbashree units as well as rag pickers. Rag pickers should be integrated into Kudumbashree systems and could be deployed by the municipality through informal sector in door to collection of food waste as well as recyclable waste. If this integration is not possible for any reason, their role diversification could be another option. For instance, in the urban local bodies rag pickers


138could be entrusted with primary collection while Kudumbashree could take up further value addition in terms of processing, transporting, recycling etc. This would not only ensure that the rag pickers are able to pursue this livelihoods option but would help them get out of the clutches of middlemen as well. Such a system would enhance their earnings.

udumbashree could help enrol the rag pickers and formulate and conduct training programmes for them. Kudumbashree’s strengths in organising such training programmes by drawing in expertise from academic and management institutions would come handy here. Training programmes should include those for adopting best practices in waste collection and handling, use of hand gloves, boots etc., along with special programmes to improve their self esteem and quality of life. Even programmes to improve their literacy and numerical skills could be thought of. If registration and identity cards are made a practice for rag pickers, then formal association with Kudumbashree could help overcome the social stigma attached to them at present. This would take them a long way in leading a life with dignity. Capacity Building for Alternative Routes Another option could be to follow what the Panampalli Nagar Residents Association has done in Kochi. There are certain complaints about dwindling quality of services as Kudumbashree monopolises waste collection. There are apparently two problems. The quality of service suffers and rag pickers are deprived of their livelihood option. This is an outcome of the present system in which Kudumbashree gets into an arrangement with the urban local body for door-to-door collection. Such an agreement invariably tends to be exclusive. The best option is to involve resident welfare association, voluntary organization or NGO to take up the work of door-to-do collection and engage Kudumbshree workers or rag pickers for door-to-door collection on a monthly charge payable to them for four hours part-time work. This amount may be recovered from the beneficiaries in the form of user fees by the RWA/Association/NGO as the case may be. Municipality may prescribe the user fee and authorise the informal sector to provide service and recover the prescribed user fee directly. The user fee may vary between Rs. 10 and Rs. 30 per household per month depending on the cost recovery municipality desires to have. Door-to-door collection alone could be done by charging Rs. 10 to Rs. 15 per month from the households and Rs. 20 to Rs. 30 per month from shops and establishments. A higher charge up to Rs. 30 from households and Rs. 50 to Rs. 60 per month from shops and establishments could be levied to cover even the cost of transportation and disposal. The waste collector could be assigned 150 to 200 households/shops etc. and paid around Rs. 2000 per month for part-time work and remaining money could be collected by the municipality to meet the other cost of services to make the SWM system sustainable. This will protect the interest of rag pickers as well as Kudumbashree workers, give them employment opportunity and make the municipal services sustainable. The rag pickers will have an added advantage of taking away the separately collected recyclables and make an extra income from the sale of the same to the waste dealers simultaneously reducing the quantity of waste to be handled by the municipality.

K


139

11. ATTRIBUTES AND GAPS AT A GLANCE Sound vision and conducive state policy in place

Though CKM was created to give focus on a long-term vision for a waste free, unpolluted, hygienic and clean Kerala, and to evolve a new healthy citizenship believing in zero waste concept, that of reduction, reuse, recycle and recover at least 80% of the waste generated and a society inclined to create wealth from waste, there was no focus on scientific disposal of solid waste. As of today there is no state vision or policy for integrated solid waste management.

Informed community participation and vibrant citizenry

Awareness and demand are the basic drives behind any improved services and its sustainability. Lack of awareness among decision makers, PRIs, and community regarding integrated solid waste management is a crucial issue today. The public health and environmental impacts of unsafe disposal is not considered seriously. Active and demanding community and a platform for their participation like ward committees are virtually absent. The current SWM is very poor and there is high willingness to pay for improved services.

Appropriate institutional arrangements in place to support/ facilitate ULBs in discharging their obligations

There are multiple state agencies (DUA, CKM, SPCB etc) and their functions are overlapping. The coordination between these agencies is very poor. Their roles and responsibilities like training, communication, monitoring, enforcement etc are not properly shouldered. The capacity of these institutions to provide technical expertise, standards, contracting etc is seemed to be weak.

ULBs capacitated technically, financially and managerially

The district planning structure under democratic decentralisation is not effectively utilised for regional integrated solid waste management planning process. The diffused responsibility for solid waste management within ULB results in poor service delivery. The technical and managerial capacity of the ULBs to discharge their SWM obligations is very poor. There is no ring forced budgeting for integrated


140SWM and levy of user charges is in a nascent stage.

Integrated service delivery ending in safe disposal

The storage at source and primary collection are very low. Though there is reasonable coverage regarding transportation the efficiency is poor and cost is high. The coverage of treatment of municipal solid waste little but it is commercially vulnerable. Safe disposal of waste is totally absent in the state of Kerala.

Regulatory frame work in place and enforced

The poor SWM status is not because of the absence of proper regulatory frame work. The Kerala Municipalities Act and MSW Rules are sufficient enough but the enforcement mechanism is weak. There is no system of monitoring of performance and no ULBs having the authorisation to enforce MSW Rules.

Sound system of performance rating and monitoring

There is no reliable information regarding SWM status either with GoK, ULBs or with the general public. SWM indicators and benchmark are totally absent. A performance rating system is not established and the monitoring responsibility is not allocated to any agency.


12. NEWS GALLERY

Chikungunya hits Kerala; 20,000 ill

CNN-IBN Tuesday , October 03, 2006

THE DEADLY BITE:

Sanitation drive begins in city Special Correspondent 13-102006

Thiruvananthapuram:Mass organisations and institutions launched public campaigns and cleaned up various places across the city, ahead of the State-wide sanitation and vector control programme to be inaugurated by Chief Minister V.S. Achuthanandan on Friday morning.

Prisoners at the Central Jail cleaned up the premises on Thursday morning. Students and teachers of Vidyadhiraja higher secondary school joined hands with residents of Udarasiromani Road to observe sanitation day. At a function organised at Vellayambalam, they lighted candles and took a pledge to keep the city clean.

A State-level monitoring committee headed by the Chief Secretary and district-level committees have also been constituted. A public outreach programme has already been held and a door-to-door awareness campaign is on.

Chikungunya hits Kerala's tourism

CNN-IBN, urday , October 07, 2006 Sat

A DIFFERENT CASUALTY: Tourism, Kerala's economic lifeline, has taken a big hit due to Chikungunya.

Cherthala (Kerala): The mosquito onslaught in Kerala has virtually brought daily life of people in Alappuzha district to a standstill. The tourism industry across the backwater district have been hit the hardest.

The Cherthala bus stand - one of the busiest transit points for buses plying across the state - has been almost deserted lately.

Says District Transport Officer, Cherthala, A Suresh, "Some ten per cent of our employees are affected by Chikungunya. The fever is spreading all over Kerala and we are facing almost 20 per cent of service cancellations due to the fear of the epidemic.”

And that's not the only casualty. Tourism, the economic lifeline of the state, has taken a big hit too. Houseboats are no longer in demand, with tourists prefering to stay away from the backwaters. With the industry taking a beating, the livelihood of many is on the line.

Says a houseboat owner Vignesh, "We are facing so many cancellations due to


142Chikungunya. People no longer want to book houseboats, holiday packages or anything near to the water in popular holiday spots.”

Will chikungunya s tourism

ndustry? eorge Iype in Alappuzha, Kerala ctober 11, 2006 hindu

Hundreds of houseboats are lined up across the serene backwaters of Alappuzha these days. And if chikungunya, the deadly viral fever that has hit Kerala is not contained soon, many more such boats used extensively by foreign and domestic tourists for joyride would also be empty.

Peak tourism season begins in God's Own Country from the middle of October. After

e successful Kerala Tourism Mart last onth, the state's waterways, villages and sorts were all set to get peak bookings.

But chikungunya, the relatively rare form of viral fever transmitted to humans by infected mosquitoes, could spoil this year's tourism party in Kerala, warn tour and travel industry operators.

Says E M Najeeb, chairman, Indian Association of Tour Operators, Kerala Chapter: "Chikungunya has already led to some cancellations. Many domestic tourists and foreigners have postponed their journey. The industry will be badly hit if the disease

not checked immediately."

ealth experts say small canals, inlets and uddy pools located on the banks of the embanad Lake that are carpeted with frican weed are mainly responsible for the osquitoe menace.

And even though tourism boomed in Kerala in the last few years, attracting international attention, nothing substantial has been done in cleaning up the backwaters, ponds and villages surrounding them.

Kerala Tourism -- as the state tourism department is known -- registered a 34 per cent increase in foreign tourist arrivals in the first half of 2006. Domestic and foreign tourist arrivals to the state have grown over the past few years, rising from just over 50 lakh (5 million) in 2000 to nearly 70 lakh (7 million) in 2005.

According to the World Travel and Tourism Council, Kerala will register the world's highest growth in the field of tourism. As a matter of fact, destinations in Kerala has been virtually 'sold out' till next March.

Today, the question that lurks in everybody's mind is: Will chikungunya kill Keral tourism industry?

Director of Kerala Tourism B Suman admitted that the disease has created anxiety in the market.

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WSP - SWM 143DRAFT FINAL REPORT

13. PHOTO GALLERY





WSP - SWM DRAFT FINAL REPORT

148

Documents

Sector Assessment Report on Solid Waste Management