Solid waste management in lahore by Arshad Manzoor

Syndicate GroupGroup-1 13th PSMG COURSE FOR PROMOTION OF PMS OFFICERS FROM BS-17 TO BS-18

SOLID WASTE MANAGEMENT SYSTEM IN LAHORE: HOW TO IMPROVE IT?

Submitted by: 1. Mr. M. Arshad Manzoor 2. Dr. Muhammad Saleem Janjua 3. Mr. Ghulam Mustafa 4. Mr. Shabbir Ahmad Khan 5. Mr. Muhammad Tanveer Jhandir 6. Mr. Ejaz Asghar 7. Ms. Syeda Amber Nadvi 8. Mr. Hasib Shah Jahan

Chairman Secretary Member Member Member Member Member Member

A paper submitted to the Faculty of the MPDD, in partial fulfillment of the requirements of the 13th PSMG course for promotion of PMS Officers from BS-17 to BS-18. The contents of this paper are the end product of our own efforts and research and reflect our own personal views and are not necessarily endorsed by MPDD.

M. Arshad Manzoor

Signature ------------------------------Date

Paper supervised by: Mr. Ijaz Ahmad Minhas Deputy Secretary (Academic), MPDD Punjab, Lahore.

Email: 1. 2.

16th March, 2012.

----------------------------exec4lov@yahoo.com m.arshad_manzoor@yahoo.com

PREFACE We feel indebted to honorable Madam Rashida Malik, Secretary MPDD for providing excellent training facilities at MPDD, Lahore. Her vision, passion and commitment to create world class training environment have been a constant source of inspiration and motivation for each member of our group.

We also take the opportunity to express deepest gratitude and sincere thanks to our research supervisor Mr. Ijaz Ahmed Minhas, Deputy Secretary (Academic), MPDD Punjab, Lahore for his guidance, sincere advice, positive criticism, support, encouragement and patronage throughout the research work. In fact, he deserves highest approbation for his friendly attitude, continual follow up and active liaison with us.

Moreover, we are also very grateful to Ms Shahera Shahid, Senior Instructor, MPDD Punjab, Lahore for coordinating our 13th PSMG course which is mandatory for promotion of PMS Officers from BS-17 to BS-18. We are very thankful to her for help in every way in conducting this course. We are grateful for her guidance, truthful advice, positive criticism, support, and encouragement.

We also owe thanks to residents of DHA, Lahore and Bahria Town, Lahore who took the time to answer our rather lengthy questions about solid waste management system in their respective areas. We received many thoughtful and substantive responses from them. The comments of respondents gave life and direction to this research project.

Authors

ABSTRACT The impact of improper management of solid waste in Lahore has become more and more visible over the years. The Lahore Waste Management Company (LWMC) is basically responsible for provision of effective waste collection and disposal services in Lahore. But the company is, at large, unable to provide this service to all parts of the city effectively. The entire efforts are restricted to shifting waste from formal and informal collection points from parts of the city to dumping sites or low lying areas at the outskirts and regular road sweeping both manually and mechanically usually in affluent localities. Even secondary waste collection has been inefficient and marred by problems like less than expected number of trips of waste collection vehicles to lift the waste and fuel pilferage. Thus, there was a need to study why solid waste was not being managed properly by the responsible organisation (LWMC) in Lahore; and what measures or policy options would have to be taken to improve the solid waste management system in Lahore.

In this research paper, the following activities were performed: (1) a focused study of solid waste management (SWM) system of Lahore was carried out; (2) local best practices related to SWM system were analyzed; (3) international best practices related to SWM system were also analyzed; and (4) various policy options for improvement of SWM system of Lahore were identified and discussed.

The research concludes with the following policy recommendations: (1) continuing the present SWM system in Lahore; (2) outsourcing & privatization of SWM system in Lahore; (3) dividing Lahore into regions for effective SWM. Moreover, the research recommends taking the following actions: (1) promoting â&#x20AC;&#x2DC;recyclingâ&#x20AC;&#x2122; activities in Lahore; (2) ensuring private sector participation in SWM practices of Lahore; and (3) starting SWM capacity building & public awareness programmes.

GLOSSARY OF TERMS SWM

Solid Waste Management

SWMD

Solid Waste Management Department

CDGL

City District Government Lahore

BOT

Build Operate Transfer

LWMC

Lahore Waste Management Company

TABLE OF CONTENTS PREFACE........................................................................................ 2 ABSTRACT ..................................................................................... 3 GLOSSARY OF TERMS .............................................................. 4 TABLE OF CONTENTS ............................................................... 5 1.1 Background and Need for the Study ...................................................................................................... 7 1.2 Statement of the Problem .......................................................................................................................10 1.3 Objectives of the Study ...........................................................................................................................10 1.3 Scope of the Work ...................................................................................................................................10 1.4 Organization of the Paper ......................................................................................................................11 1.4 Utilization of Research Results ..............................................................................................................11

2. REVIEW OF THE LITERATURE ........................................ 12 3. METHODOLOGY ................................................................... 16 4. ANALYSIS OF LOCAL & INTERNATIONAL PRACTICES ................................................................................. 18 4.1 Analysis of Local Practices .....................................................................................................................18 4.1.1 Primary Data Collected ...............................................................................................................20 4.2 Analysis of International Practices ........................................................................................................22 4.2.1 Waste Reduction ..........................................................................................................................22 4.2.2 Collection and Transfer ..............................................................................................................24 4.2.3 Composting ...................................................................................................................................26 4.2.4 Landfill.............................................................................................................................................27

5. POLICY OPTIONS FOR IMPROVING SWM SYSTEM IN LAHORE ....................................................................................... 28

5.1 Option-1: To Continue with the Present System ..................................................................................28 5.2 Option-2 Outsourcing and Complete Privatization of SWM System .................................................29 5.3 Option-3 Division into Regions with Independent SWM Outfits ........................................................29 5.4 Promoting ‘Recycling’ Activities in Lahore ..........................................................................................30 5.5 Ensuring Private Sector Participation in SWM Practices of Lahore .................................................31 5.6 Starting SWM Capacity Building & Public Awareness Programmes ................................................33

6. CONCLUSIONS & RECOMMENDATIONS ...................... 34 BIBLIOGRAPHY ......................................................................... 35 APPENDIX .................................................................................... 37

1. INTRODUCTION 1.1 Background and Need for the Study Inadequate arrangements for solid waste collection and disposal are one of the causes of environmental degradation in cities of developing countries. Concerned local agencies find themselves unable to handle increasing quantities of waste. This often results in uncollected waste on roadsides, street corners or other open spaces in cities thus posing health risks for the people1. Cities in Pakistan are also facing this challenge of increasing quantities of solid waste in the wake of rapid urban growth and economic development. For instance, Shoaib et al (2006) highlight the problems of solid waste management facing the cities of Multan, Lahore and Gujranwala2.

The city of Lahore is no exception to the above mentioned situation where the impact of improper management of solid waste has become more and more visible over the years. According to the 2012 scenario, the Lahore Waste Management Company (LWMC) is basically responsible (operational side) for provision of waste collection and disposal service in Lahore. However, the Solid Waste Management Department (SWMD) of City District Government Lahore (CDGL) is engaged with the enforcement of solid waste management. But they are both unable to provide this service to all parts of the city effectively. The entire efforts are restricted to shifting waste from formal and informal collection points from parts of the city to dumping sites or low lying areas at the outskirts and regular road sweeping both manually and mechanically usually in affluent localities. Even secondary waste collection has been inefficient and marred by problems like less than expected number of trips of waste collection vehicles to lift the waste and fuel pilferage.

1 Imam, A, Mohammed, B, Wilson, D.C, and Cheeseman, C.R. Solid Waste Management in Abuja, Nigeria, in the journal Waste Management, 2008;28 468-472. 2 Shoaib, M, Umar, K.M, and Avais, S.M. Review and Status of Solid Waste Management Practices, Pakistan, in the Journal Electronic Green Journal, 2006;1(24) 1-16.

Lahore is the capital city of the province of Punjab in Pakistan. It is one of the important cities of South Asia. It is an ancient city and its history dates back to 150 AD when Ptolemy wrote Geographia and mentioned this city with the name of â&#x20AC;&#x2DC;Labolkaâ&#x20AC;&#x2122;3. At present, the city of Lahore comprises of a district with an area of 1772 Sq. Km4. Almost whole of the district has been urbanized. With the increasing population, the provision of civic amenities requires planning, funding and efficient delivery. With a population of almost 10,000,0005 in 2011, the delivery of municipal services demands much attention of the provincial and district governments. Solid Waste Management (SWM) is one of the important municipal services that are directly linked to the health of the citizens as well as necessary for cleaner environment.

According to a report published in 2008, â&#x20AC;&#x153;around 6000 tons of solid waste is generated daily in Lahore, while over 500 tons waste is generated in Lahore Cantonment Board, Model Town Society, Defence Housing Authority (DHA) and other areas. Sources revealed that out of this 6000 ton of waste, approx. 25-35 per cent remained on the roads due to the various reasons including low lifting capacity of SW, lack of proper training to staff regarding lifting garbage, absence of staffers from duties etc.6 According to 2007 estimates, the amount of SW produced in Lahore was about 5000 tons per day. This huge amount of SW generated in the city requires proper disposal arrangements. However, the so called landfill sites for disposal of SW are not managed scientifically which is a permanent environmental hazard for the citizens of Lahore. As per the above quoted report, there are three dumping/landfill sites in Lahore. These landfill sites are situated at Mehmood Booti, Kahna Kacha and Sagian Bridge, and the SWM staff of LWMC/CDGL has been dumping almost every kind of waste (including hospital waste) at these three sites for the last many years. These figures quoted above indicate that the state of cleanliness has not been satisfactory over the years, whereby the increasing population contributed a lot to further aggravate the situation. The need to improve solid waste 3

. http://www.itspakistan.net/pakistan/lahore.aspx Accessed on 15 March, 2012. . http://www.ajmalbeig.addr.com/pak_lahore.htm Accessed on 15 March, 2012. 5 . http://www.trueknowledge.com/q/population_of_lahore_2011 Accessed on 13 March, 2012. 4

. http://lahorenama.wordpress.com/2008/05/02/pollution-in-lahore-needs-to-be-checked/ Accessed on 10 March, 2012.

management system for the city of Lahore was recognized when it became part of the Lahore Urban Development Project (LUDP), which was initiated in 1978. In November 1980, pre-appraisal mission of the World Bank first addressed a SWM project. Metropolitan Corporation of Lahore (MCL) was designed as its executing agency. Solid Waste Management Department of City District Govt. Lahore (CDGL) was made responsible for the collection, transportation and disposal of the solid waste within the limits of CDGL.7

Later, the need for the improvement in SWM was recognized at the government level. In 2011, the Punjab Government converted some part of the SWM Department of City District Government Lahore (CDGL) to a company named as Lahore Waste Management Company (LWMC). This company has recently signed an agreement with a Turkish Company to upgrade the SWM services in 16 Union Councils of Data Ganj Bakhsh Town and Gulberg Town in Lahore in its first phase.

New techniques like community

participation are also being introduced by the LWMC for better SWM in the city.

In brief, proper solid waste management has remained a neglected urban service in Lahore. The federal and provincial governments have adopted a hands-off policy declaring it a local problem of Lahore rather than a national one. As a result, the load on LWMC to manage solid waste is greater than their meager resources. Hence system failure starts, which is a matter of paramount importance. Thus, there is a need to study why solid wastes are not being managed properly by the responsible public sector organisations in Lahore: What are the institutional structures of CDGL and LWMC? What are the current solid waste management practices in Lahore? What are the best practices of solid waste management in international context? And what measures or policy options should be taken to improve the solid waste management system in Lahore?

. http://www.lwmc.com.pk/content.php?cms_id=3

1.2 Statement of the Problem With the increasing population of the cities around the world, the solid waste management has become a much debated subject of urban governance. The city of Lahore in Pakistan is one of the ever expanding cities in terms of population and size. In Lahore, the provincial and district governments have taken up various proactive initiatives for efficient solid waste management in the selected areas of the city but many areas have been kept out of the scope of these initiatives. There is a dire need for the objective analysis of the present solid waste management regime in Lahore to make realistic and practicable suggestions to improve the system for effective, efficient and safe solid waste management in the city.

1.3 Objectives of the Study The main objectives of the study are as follows: •

Conduct a focused study of solid waste management (SWM) system of Lahore.

•

Analyze the local best practices related to SWM system

•

Analyze the international best practices related to SWM system

•

Identify policy options for improvement of SWM system of Lahore

1.3 Scope of the Work To achieve the objectives of the research study, following activities were performed:

•

Collected, reviewed and documented SWM system of Lahore

•

Analyzed local and international best practices related to SWM system

•

Identified policy options for improvement of SWM system of Lahore

1.4 Organization of the Paper This research paper revolves around the theme of solid waste management (SWM) system of Lahore. Further, it attempts to explore ways to improve the system. Specifically, the main sections of the paper are as under: •

Institutional structures of CDGL and LWMC

•

Current solid waste management practices in Lahore

•

Best practices of solid waste management in international context

•

Policy options required to improve the solid waste management system in Lahore

1.4 Utilization of Research Results •

Results will be helpful in enabling the Lahore Waste Management Company (LWMC) to better understand & control the solid waste problems in Lahore

•

Results will also be ready to lend a hand on finding out the issues related to SWM in Lahore for further research & investigation.

2. REVIEW OF THE LITERATURE Municipal solid waste management is a complex problem mainly due to the nature of waste, its ever increasing amount and financial limitations. The municipalities in developing countries do not have sufficient funds and expertise necessary to handle the increasing problem of solid waste management8. Effective waste handling skills can change the waste to resource9. Recycling is broadly acknowledged as a sustainable municipal solid waste management strategy10. Wilson et al. (2006) have explained that it is possible to improve waste management services provided the municipalities realize the importance of informal recycling11. The activities of waste pickers and scavengers constitute the informal recycling. “Informal waste recycling involves urban poor and marginalized social groups who use waste picking as a source of income, and often as their only survival strategy”12. Being the second largest city of Pakistan and the capital of Punjab province, Lahore is a large sprawling city accommodating an estimated population of somewhere around 10 million as per mid-2006 government estimates. Over the years the city has evolved as a cultural, educational, recreational, transportation, and industrial centre of the nation. Rapid and continual increase in population, economic growth and consumption activities have been contributing to ever increasing quantities of solid waste in the city. Table 1 (below) gives a description of waste composition and total waste generated presently in Lahore. Around 5700 tons of solid waste is generated daily from different sources with organic waste being produced in largest quantity (approximately 3025 tons or 53% of the total waste). It may be pointed out here that approximately 350-450 tons of organic waste is utilized for preparation of compost using windrows method by a private contractor on

8 9

Abu Qdais HA. Techno-economic assessment of municipal solid waste management in Jordan. Journal of Waste management 2007;727:1666–72.

Ancheta AA. Strengthening partnership between a local government unit and an NGO towards ecological solid waste management: a case study. Res Socialis Journal of UST Social Research Center 1st/2nd Semesters 2004;1–2: 308–18. 10 Suttibak S, Nitivattananon V. Assessment of factors influencing the performance of solid waste recycling programs. Resources, Conservation and Recycling 2008;53:45–56. 11 Wilson DC, Velis C, Cheeseman C. Role of informal sector recycling in waste management in developing countries. Habitat International 2006;30(4): 797–8. 12 Sembiring E, Nitivattananon V. Sustainable solid waste management toward an inclusive society: integration of the informal sector. Resources, Conservation and Recycling 2010;54:759–1026.

BOT basis under public-private partnership arrangement with City District Government Lahore (CDGL). The composting plant set up for this purpose is located at the only official dumping site at Mahmood Booti in the north of the city.

There is no proper system of door-to-door collection of waste from producers (e.g. households, commercial establishments etc.) except in some middle and high income localities where private sector operators offer this service on nominal charges. Generally waste is thrown by producers in or around waste containers (where available), open heaps at curb sides, open plots or other informal collection points or into open drains and sewers. The sanitary workers of the LWMC primarily collect waste by manually sweeping the streets and even by cleaning open drains and bring the same in handcarts or wheelbarrows to collection points. Waste from these collection points is then loaded onto vehicles of varying capacities by the concerned staff of LWMC and transported for final disposal. The rate of collection of waste generated in Lahore has been observed to be around 76% but only part of it reaches at the official dumping site for final disposal13. In the absence of adequate dumping sites at appropriate locations, the rest of the collected waste is dumped by drivers at any open space in and around the city. The uncollected waste (24%) is left at roadsides, street corners or open plots thus creating environmental nuisance and posing

health risks for the people14. A considerable amount of recyclable waste is also collected by scavengers from containers, informal collection points as well as from the dumping site. According to an estimate, roughly 15,000 scavengers are involved in recycling activities in Lahore and the total market value of recyclables is estimated to be around Rs. 2-3 million per day15. The practice of disposing off hospital waste (generated at the estimated rate of 3.5 tons per day) together with municipal waste also poses risks for human health and environment16. For instance, there are 40 hospitals in the public sector in the city but only 4 have incinerators for hazardous waste which according to an estimate accounts for 29% of hospital waste17. Generally sweepers of the hospitals collect waste from inside the hospital premises and throw it in roadside containers meant for household and commercial waste. The LWMC has a total of 8,544 staff to ensure proper handling of waste in Lahore. This includes 7,897 sanitary workers responsible to clean the roads and transfer waste from collection points to vehicles for further disposal. Although this strength of sanitary workers has been observed to be appropriate (810 inhabitants per worker based on 2006 estimated city population of 6.4 million) if compared to international bench mark (1000 to 1500 inhabitants per worker). Their number would need to be increased any way if 100% waste is to be removed from the city. Moreover, there is a big shortage of professional staff at the supervisory and management level. The situation concerning solid waste management expenditure and cost recovery has also not been encouraging. For instance, the SWMD of CDGL spent around Rs. 1459 million during the budgetary year 2006-07 (which formed 16% of the total budget of the CDGL) on waste management. As much as 82% (of Rs. 1459 million) was used in payment of salaries to staff while the rest of money was exhausted on fuel, some repairs and 13

Shoaib, M, Umar, K.M, and Avais, S.M. Review and Status of Solid Waste Management Practices in Multan, Pakistan, in the Journal Electronic Green Journal, 2006;1(24) 1-16. 14 Ernst Basler/ICEPAK. Punjab Solid Waste Management Reform, Draft Final Report, The World Bank, 2007. 15 Altaf, M.A, and Deshazo, J.R. Household Demand for Improved Solid Waste Management: A Case Study of Gujranwala, Pakistan, in the journal World Development, 1996;24(5) 857-868. 16 Iftekhar, A. Franchise Solid Waste Management System in a Low Income Neighborhood, Lahore (Pakistan), M Sc Thesis, Department of Urban Design and Planning, Norwegian University of Science and Technology, Trondheim, Norway, 2003.

maintenance. But against the spending, the recovery of cost of service (through solid waste management fee imposed @ 30% on water bill) was hardly 8% of the total recurrent costs18.

Now a day, The LWMC has a fleet of over 350 vehicles for transportation and secondary collection of waste from containers, skips, and open collection points located across various parts of the city. This includes arm rollers, open body trucks, tractors with trolleys/buckets, and compactors. These vehicles have been allotted for each of 9 administrative sub-divisions (town municipal administrations) of the city. The drivers and helping staff of each vehicle are required to collect waste from formal and informal collection points along a route and bring it to official dumping site for final disposal. For this purpose they are given a fixed amount of fuel depending upon the expected number of trips (generally 4 to 6) from various parts of the city to the dumping site. However, despite receiving fuel for expected number of trips, the drivers actually make as few trips up to the official dumping site as possible (generally not more than 2 trips) or curtail the trips by dumping waste (removed from the affluent or politically influential localities) in low income localities or areas having no political voice. The fuel thus saved is then sold by the drivers in the market at comparatively low price to supplement their income. These weaknesses in the waste management system have also been noted by Khan (2004)19 and Iftekhar (2003)20. The system has failed to perform satisfactorily due to lack of proper monitoring arrangements and method (for example accurate maintenance of log book) for controlling the movement of vehicles as well as lack of proper mechanism to measure work efficiency (for example the amount of waste lifted by drivers of each vehicle).

17 18

Adila, S.B., Nawaz, M.C., Majeed, K., 2008. Economic potential of recycling business in Lahore, Pakistan. Waste Management 28, 294â&#x20AC;&#x201C;298.

Ernst Basler/ICEPAK. Punjab Solid Waste Management Reform, Draft Final Report, The World Bank, 2007. 19 Khan, S. Franchise SWM Servicesâ&#x20AC;&#x201D;Case Study of Lahore, Paper presented at the 19th International Conference on Solid Waste Technology and Managment Philadephia, USA, 2004 20 Iftekhar, A. Franchise Solid Waste Management System in a Low Income Neighborhood, Lahore (Pakistan), M Sc Thesis, Department of Urban Design and Planning, Norwegian University of Science and Technology, Trondheim, Norway, 2003.

3. METHODOLOGY The methodology followed for this research project was in three main steps. As per research categories, this methodology is called as â&#x20AC;&#x2DC;three-pronged methodologyâ&#x20AC;&#x2122;. The details are given below; The first step was to conduct a literature survey in the library of the MPDD Punjab, Lahore, as well look at the scholarly papers available on the topic through internet. In this step, the data, information and literature available on SWM practices of Lahore was collected, reviewed and documented. On the basis of collected information, strengths & weaknesses in the waste management system of Lahore were critically reviewed and analyzed. It was observed that currently the system of SWM in Lahore appears to be unsatisfactory due to lack of proper collection and monitoring arrangements and techniques.

In second step, some basic questions related to solid waste management were developed for the survey to be conducted in some private housing schemes such as Defence Housing Authority (DHA), Multan Road, Lahore and Bahria Town (Safari Villas), Lahore. To finalize the questions, meetings within the syndicate group-1 members were held along with the research supervisor Mr. Ijaz Ahmad Minhas (Deputy Secretary Academic), MPDD Punjab, Lahore). The feedback from the meetings was incorporated in the final questions. Once the data was collected, it was then analyzed qualitatively.

Third step was based on the outcome of the literature review and primary data collected and analyzed qualitatively. In this step, current solid waste management practices in Lahore were discussed. In order to come to some concrete research analysis, best practices of solid waste management at international level were also examined and discussed. On the basis of all this discussion, some policy options required to improve the solid waste management system in Lahore were identified, examined, and discussed.

The approach that this paper adopted to complete the research is shown in the Figure 1 (below).

Need for the Study

Questions for Research

Objectives

Literature Review at MPDD Library / Internet

Research about SWM at DHA and Bahria Town

Policy options to improve SWM system in Lahore

Current SWM practices in Lahore

Best practices of SWM at international level Conclusions & Recommendations

Figure 1: Research Methodology

The methodology can be summarized as literature survey, research through interviews/questions, SWM analysis of Lahore, analysis of best practices of SWM at international level, and the identification of policy options required to improve the solid waste management system in Lahore.

4. ANALYSIS OF LOCAL & INTERNATIONAL PRACTICES 4.1 Analysis of Local Practices The increasing level of inefficiency of SWMD in lifting waste from various locations in the Lahore city prompted the Government of Punjab to bring some change for improvement. After reviewing the existing situation, the CDGL realized that the SWMD has the potential to improve service delivery at least by ensuring that the available resources in the form of staff, vehicles, and fuel are used to optimal level. It also identified the need to change the secondary waste collection system from input (providing diesel) to output/performance based (measured in terms quantity of waste brought to dumping site) by creating some incentive for the drivers for efficient working. Therefore, it planned the Performance Based System (PBS) of secondary waste collection whereby drivers of collection vehicles were to be paid in cash on the basis of amount of waste delivered at the dumping site. For this purpose a weighbridge along with computer centre was established at the dumping site (which started functioning in January 2006; before establishment of LWMC). It was expected that besides motivating the drivers to remove maximum quantity of waste, the new system will help in making the city clean. Moreover, it will not only resolve the problem of fuel pilferage but also ensure that drivers will be left with no option but to bring it to dumping site unlike the past practice of dumping the waste anywhere else.

The section below will provide an assessment of this new system of secondary waste collection (LWMC is recently established; so it is not possible to assess its working at this very early stage). The assessment is based on data obtained from a M.Sc. thesis where primary data was collected regarding 15 vehicles for which it was possible to make comparison of before and after situation of amount of waste delivered at disposal site (efficiency) and cost incurred in this process (cost effectiveness)21. The thesis indicates 21 Nazir, S. An Evaluation of Performance Based Solid Waste Collection System in Lahore, M Sc thesis, Department of City and Regional Planning, University of Engineering and Technology, Lahore, 2009

that some discussions were also held with concerned officials to clarify various aspects of the new and conventional systems of secondary waste collection. The impact of the PBS on cleanliness around collection points is based on comparative field observation done by the author as part of her M.Sc. thesis (see Nazir, 2009 above) along selected two PBS and two conventional routes in Lahore.

This system was launched in February 2006 initially on 44 selected routes with those waste PBS) to bring solid waste at official dumping site at Mehmood Booti (where weighbridge was setup). In the beginning, the fleet involved in collection and transport of waste comprised of arm-roll trucks, open trucks (dumper), tractor trolleys and compactors. Later, open trucks, tractor trolleys and compactors were pulled out of the PBS due to problems in managing the operation of these vehicles. For instance, these vehicles were to be used to remove waste from open dumps and heaps of rubbish located along the prescribed routes (unlike arm-roll trucks which were to collect waste from containers). But the staff (usually 1 driver and 2-4 helpers) of these vehicles started collecting waste from here and there as well in addition to the open dumps along the prescribed routes so as to bring more and more waste to the dumping site and hence earn as high incentive payments as possible. Similarly there were conflicts related to fuel consumption per trip. For instance, the drivers claimed higher quantities of fuel use (due to collecting waste from various places other than those along the prescribed route) as compared with the predetermined average quantities applied by managerial staff while calculating the incentive payments. The later were based on average fuel consumption by a vehicle plying on a prescribed route.

Presently, 100 (out of 362) routes in 6 (out of 9) towns are operational under the PBS (even the newly created LWMC has retained this initiative). Arm-roll trucks are involved in collection and transport of waste from containers placed along the allocated routes. One vehicle is allocated one route and the driver is accompanied with a helper. Although the number of containers/skips (collection points) varies from one route to another depending upon the nature of waste generating area and route-length, each vehicle on average lifts

waste daily from 6-7 containers/skips placed at different locations along the route. In the beginning waste removal was done seven days a week along PBS routes but now it is done six days a week with Sunday as weekly holiday. A team of inspectors is responsible to monitor the operation of staff along PBS routes with the view to maintain efficiency in waste collection and disposal. 4.1.1 Primary Data Collected Primary data through interviews was also collected. For this, some basic questions related to solid waste management were developed for the survey to be conducted at Defence Housing Authority (DHA), Multan Road, Lahore and Bahria Town (Safari Villas), Lahore. Mr. Mohammad Fareed, Assistant Security In-charge of the Defence Housing Authority (DHA) was interviewed. He told that the authority provides a packet of 30 shopping bags to the residents monthly under proper acknowledgement and the relevant staff of waste management of the Defence Housing Authority (DHA) collects those shopping bags from the garbage basket fixed outside the house of the residents before 12 noon daily. He further told that for this purpose DHA has 230 workers who provide service on bicycle or tractor. On reply to a question, the said official explained that the garbage lying openly (i.e. outside the fixed garbage basket) is not collected by the workers. According to that official, the residents of DHA are satisfied with this arrangement and the bill of this service is charged by the authority @Rs.300/- per month along with bill of water supply from every resident of 10 Marla House. Mrs. Malik, one of the residents of DHA, currently was residing at 41-D, also showed satisfaction with the system during the interview. Mr. Shameem, Asstt. Admin Officer of the Defence Housing Authority told that E.M.E. office charges Rs. 8/- to 10/- for one big shopping bag from Pathans who take away the garbage from the area of the authority and store it near River Edge Society. Pathans separate this garbage there and sell it to various â&#x20AC;&#x2DC;Kabarisâ&#x20AC;&#x2122; in bulk whereas residue remains unattended.

Interviews were also conducted regarding SWM system at Bahria Town (Safari Villas), Lahore. According to the interview survey, Bahria Town charge 1500/- from each house for the following services:•

Garbage collection

•

Street light

•

Water supply

•

Security

•

Sewerage

The above information has been collected from Mr. Abid Shehzad, Sub-Engineer, Captain Rtd. Irshaad, In-charge Planning Section, and Col. Rtd. Atiq G.M. (Maintenance) of Bahria Town who all are serving in the project currently. It is pertinent to mention here that waste baskets have been installed by the administration of the town and residents put shopping bags (with full of garbage inside) in these baskets and the Town Administration collects through vehicles from each home daily and then transfer and sell it to ‘Pathan Kabaris’ on daily basis.

The overall analysis of discussions as presented above (mostly about the PBS system) clearly indicates that the secondary waste collection service under PBS, which was initially started by the SWMD of the CDGL to bring improvement (now retained by the LWMC as well), is working efficiently and effectively. The increase in amount of solid waste being brought up to the disposal site, the overall reduction in cost of lifting the waste, and increase in income of the concerned staff of the LWMC, all serve as indicators of improvement in secondary waste collection along PBS routes in Lahore. Maintaining proper record and close monitoring of field staff have further ensured that the waste collection and disposal service under the PBS remains effective. However, the issue of cleanliness around skips needs to be addressed properly to improve aesthetic conditions and prevent scavenging. Similarly, the above discussions revealed that vehicle depreciation of waste collection vehicle due to increased number of trips under the PBS is

another issue. This not only requires strengthening of existing workshops of the LWMC but also additional funds to purchase new vehicles which would be needed any way to expand the waste collection and disposal service under the PBS to the remaining towns of Lahore. Purchase of new containers and hiring of additional staff would be other areas of investment to continue effective implementation of the PBS. Another pertinent issue (discussed above) is the shrinking capacity of existing official waste dumping site in the wake of improvement in waste collection efficiency under the PBS. In this context the LWMC would need to find new sites and invest in necessary infrastructure to ensure safe disposal of city waste in future.

4.2 Analysis of International Practices This section of the research paper aims to give practical guidance to urban managers in Lahore (dealing with SWM issues) regarding sound practices available in solid waste management at international levels. To do this, it draws on the experience of organizations involved in SWM from both industrialized and developing countries. By discussing and assessing current practices, it seeks to clarify the conditions under which specific technologies and policies are most appropriate for use in Lahore.

Since general guidance and the experience of others can be extremely useful in assessing and adjusting current SWM practices and in planning new systems in Lahore, the paragraphs below will briefly identify sound practices in a variety of SWM activities. The areas covered in this International Practices section of the paper are: (1) waste reduction; (2) collection and transfer; (3) composting; (4) incineration; and (5) landfills.

4.2.1 Waste Reduction The key concepts in solid waste reduction (including source reduction, source separation, waste recovery, reuse, and recycle) are as under;

Waste reduction: all means of reducing the amounts of waste that must be collected and disposed of by solid waste authorities. Ranges from legislation and agreements at the national level for packaging and product redesign to local programs to prevent recyclables and compostable organics from entering final waste streams. Source reduction: any procedure to reduce wastes at the point of generation, in contrast to sorting out recyclable components after they have been mixed together for collection. Source separation: keeping different categories of recyclables and organics separate at source, i.e., at the point of generation, to facilitate reuse, recycling, and composting. Waste recovery, materials recovery, or waste diversion: obtaining materials/organics (by source separation or sorting out from mixed wastes) that can be reused or recycled. Reuse: reusing a product for the same or a different purpose. Recycling: the process of transforming materials into secondary resources for manufacturing new products.

Perhaps in no field of MSW management are the differences between the industrialized countries and the developing countries so apparent as in waste reduction and materials recovery. Rising overall living standards and the advent of mass production have reduced markets for many used materials and goods in the affluent countries whereas, in most of the developing world, traditional labor-intensive practices of repair, reuse, waste trading, and recycling have endured. Thus there is a large potential for waste reduction in the former countries, and the recovery of synthetic or processed materials is now being emphasized. In developing countries, by contrast, the greatest potential for waste reduction currently rests with diverting organic and construction wastes. Subsidization of the full range of initiatives for waste reduction (from changes in manufacturing and packaging to source-separated collection and the promotion of recycling and composting)

by governments and/or private industry is becoming a norm in affluent countries. Most cities in Western Europe, North America, Australia, New Zealand, Japan, and some in Korea have adopted municipally sponsored source separation and collection systems. In some cases, the separation of post-consumer materials by waste generators has been made mandatory. The main motivation, from the point of view of municipal authorities, is to reduce materials that must be deposited in landfills. At the national level, under the rubric of producer responsibility, governments have crafted agreements and legal frameworks designed to reduce the generation of waste. For instance, agreements assign industry responsibility for achieving packaging reduction goals of 75% or more by 2020.

Throughout the developing world, urban places fall along a continuum from high recycling (e.g., Calcutta, Cairo) to very low recycling potential. (Typically the latter are remote islands or enclosed countries visited by affluent tourists, or having a military base, e.g., Suva, Guam, St. Kitts. Remote islands with low levels of consumption are characterized by high levels of waste reuse, e.g., Commander Islands, Aleutians, where even washed-up drift nets are crocheted into shopping bags).

4.2.2 Collection and Transfer When most people think about garbage, what they visualize is the collection of their waste. Collection is the only part of waste management which virtually everyone sees and is involved with. Collection is also by far the largest cost element in most SWM systems, accounting for 60-70% of costs in industrialized countries, and 70-90% of costs in developing and transition countries. Collection and street sweeping together comprise the single largest category of expenditure in many municipal budgets. Failure or inadequacy of collection, especially in developing countries where there is frequently considerable human fecal waste in the municipal solid waste, can lead to threats to public health. Transfer refers to the movement of waste or materials from the primary collection vehicle to a secondary, generally larger and more efficient, transport vehicle.

An optimal collection system involves far more than the choice of vehicle alone. There is a complex interaction of factors, and ignoring any one of them can result in a collection system which is inefficient or does not successfully meet the policy or technical objectives of the collection program.

Curbside, alley, or backyard collection A common point of collection in both developing and industrialized countries is at the curbside or the alley; the resident places full waste containers at the curb or in the alley behind the residence and retrieves them empty. This represents sound practice in many situations. Backyard collection is much less common, but is used in wealthier areas of some industrialized countries where there is a strong wish to keep waste out of the public eye, backed up by a willingness to pay for the added cost of such service. Collection frequency Sound practice depends on well-chosen collection frequency and timing. In developing or tropical cities, collection occurs as often as once per day, but there is disagreement regarding optimal collection frequency. In most industrialized cities, collection occurs once or twice per week, and even more frequently in urban areas where storage space is limited. Areas with a high density of small retail shops, hotels, and restaurants usually require daily collection. Sound practice in setting collection frequency should include analysis of the appropriate volume for containers, the needs and desires of the area or neighborhood, the public health risks that would arise from infrequent collection, avoidance of odors from uncollected waste, and the necessity of scheduling collection at times when streets are not crowded. "Just-in-time" collection Some cities use "just-in-time" collection systems, where residents bring out their wastes at the time the collection vehicle reaches a certain spot and signals its presence. This system reduces the health hazards associated with wastes on streets and roadsides, and prevents unauthorized waste picking. Just-in-time collection only works when households typically have someone at home to carry out the waste at the proper time. To enhance reliability, the collectors can ring a bell or announce their presence from a loudspeaker upon arrival in an

area. In squatter settlements in Bombay, an adaptation of the bell system is that the crew has hand carts to fit into narrow lanes and walk along ringing a bell; then they take the carts back to the vehicle on the road. A Dutch adaptation is to have a truck collecting hazardous wastes move through the neighborhood during the day, and then take up a stationary position at a centrally located point (such as a shopping center) in the neighborhood for several hours at the end of the working day, to allow those who were not at home to deposit their materials. Special collections Special materials, such as bulky items, white and brown goods (old appliances and electronics), furniture, leaves, construction materials and tree stumps, must often be collected separately, due to their size and the fact that they are generated irregularly. 4.2.3 Composting Composting solid waste for use as a soil amendment, fertilizer, or growth medium is important in many countries. Asian countries in particular have a long tradition of making and using compost. In Western Europe, a range of modern technologies is used to produce compost. At the same time, composting has the distinction of being the waste management system with the largest number of failed facilities worldwide. In cities of developing countries, most large mixed-waste compost plants, often designed by foreign consultants and paid for by aid from their home countries, have failed or operate at less than 30% of capacity. The problems most often cited for the failures of composting include: high operation and management costs, high transportation costs, poor quality product as a result of poor pre-sorting (especially of plastic and glass fragments), poor understanding of the composting process, and competition from chemical fertilizers (which are often subsidized). In many urban places, collection systems are too unreliable for urban authorities to consider running composting facilities efficiently.

4.2.4 Landfill Landfills are a vital component of any well-designed SWM system. They are the ultimate repository of a city's SWM after all other SWM options have been exercised. In many cases, the landfill is the only SWM option available after the solid waste is collected. The safe and effective operation of landfills depends on the sound planning, administration, and management of the entire SWM system.

Landfills are generally sited based on considerations of access to collection vehicles rather than hydrological or public health considerations. This practice ranges from cities in the more arid regions of the North such as Algeria, Libya, and Sudan to those in higher rainfall central countries such as Cameroon and Zaire. The environmental and health consequences for water sources at risk are more significant for the latter cities than the former. Over the past five years some countries, including Egypt and South Africa, have considered policy changes to promote upgraded landfills for their major cities. These facilities would be classified according to the type of waste they receive, their manner of construction, and their operating procedure.

In conclusion, as repeatedly stressed above, there are myriad differences in SWM practices from one place to another all over the globe. This section of the research paper does not ignore these differences, but attempts to draw some general conclusions that may nevertheless have wide applicability. It presents information about what is currently be ing carried out in relation to the SWM all over the world. Moreover, even at present there is not always agreement on what is practiced internationally in relation to SWM. Nevertheless, the principles on which the above discussion is based will likely be considered for a long time useful as a guide to decision making in SWM practices for Lahore.

5. POLICY OPTIONS FOR IMPROVING SWM SYSTEM IN LAHORE This section of the research report contains policy options to improve SWM system in Lahore. On the basis of all previous sections of the report, the following policy options have been considered for improving the SWM system of Lahore:

5.1 Option-1: To Continue with the Present System Present system SWM is working under the umbrella of public sector enforcement and financial support. As discussed above, the present system is facing capacity issues with limited area of service. Under the present system, only municipal areas of CDGL are getting SWM services from LWMC. The areas of cantonment Board, DHA, Model Town Society, and many other private housing townships are pursuing their own SWM activities. It is a fact that no integrated SWM system is being observed in the city of Lahore. It is also a fact that all the SWM outfits are disposing of their respective refuse into the common dumping sites. These dumping sites are not scientifically managed in Lahore.

Another limitation of the present SWM system is the financial dependence on the government funding. This dependence is creating inefficiency and non-capability in terms of innovation in development projects. There is no intrinsic revenue generation from the SW services. Therefore, it is obvious that there is little room for improvement in the absence of sustainable revenue generation out of the SWM services. Though the Punjab Government has invited a Turkish company to upgrade the capacity of the present system, yet the service area is so limited that it will not make many improvements in SWM in rest of the city. So, the first option could be that we retain the current practices in Lahore for SWM.

5.2 Option-2 Outsourcing and Complete Privatization of SWM System One of the options for improvement of SWM in Lahore could be outsourcing/privatization of SWM system. For exercising this option, two things would be pre-requisites. First would be some established and well equipped private SWM companies. Second would be to establish an elaborate regulatory framework for licensing, monitoring and controlling the SWM services. However, at present, both these elements are missing in Lahore. Therefore, the privatization of SWM will cause financial burden on the users without any surety of quality service. Privatization will render the SWM system an exclusive service for those who will be able to pay the charges. Hence, it is likely that privatization will not succeed in the present scenario of the affairs.

5.3 Option-3 Division into Regions with Independent SWM Outfits The Lahore city can be divided into regions for collection of solid waste. Each region will have its own independent organization with complete support of human resource and machinery. A solid waste charge can be imposed on users to finance the collection of SW in each region. A centralized control may be established for construction, maintenance and development of modern dumping sites. The collection of SW will get funds from the revenues of SWM charges. Also, a subsidy from the CDGL may also be allocated for the management of dumping sites. The SW regions will have semi-governmental set-ups for providing better working conditions to SWM workers. This option may be the best one for complete coverage of the city and better SWM in Lahore.

Whether any one of the options are implemented in Lahore or not, the bottom line is that we need to take immediate steps in order to better manage our solid waste. For this, the below steps are vital to be taken:

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Promoting â&#x20AC;&#x2DC;recyclingâ&#x20AC;&#x2122; activities in Lahore

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Ensuring private sector participation in SWM practices of Lahore

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Starting SWM capacity building & public awareness programmes

The details have been discussed below;

5.4 Promoting ‘Recycling’ Activities in Lahore As reviewed in the initial sections of this research report, there is considerable recyclable content in the solid waste generated in Lahore. Recyclable waste (mostly plastic waste) is released during all steps of production and after consumption of every recyclable product. Both the quantity and quality of recyclable waste is related to environmental problems. Quantitatively, post consumption recyclable waste is more important, as it is found in large volumes but with less weight. Some of the environmental issues of recyclable waste (mostly plastic) are litter, emissions of hydrogen chlorides and dioxins from incinerators and contamination from chemical additives. Plastic waste also presents a direct hazard to wildlife. The quantity of recyclable waste will rapidly increase as the economy and industry develops. Lahore, therefore, needs to introduce an efficient and effective recycling system as soon as possible.

The ultra-thin plastic bag is one of the most bothersome problems related to plastic waste. It is extensively consumed, notably in markets selling fresh food. In most cases, as they are thin and contaminated, they are usually not being reused. These discarded plastic bags that are littered along the streets, in rivers or hanged on trees in Lahore, cause considerable nuisance. Therefore, to reduce the amount of used and discarded ultra-thin plastic bags, their sale and use should be prohibited. Shopping center management staff of Lahore should monitor and assist retailers in accomplishing this legislation requirement. Due to their cheap cost, it is common practice for retail shops to give out free plastic shopping bags to customers. It is expected that if retailers are only allowed to use higher quality and

more expensive plastic bags, they would in effect tend to charge customers instead of giving away plastic bags for free. Shops that do not give out plastic bags may be perceived as less attractive for customers. The Punjab Government should make efforts that upon return of the more high quality plastic bag to the shop; the customer should receive a refund. This method will foster the reuse of plastic bags and a reduction of the total amount of plastic bags being originally consumed. Further, customers will be more inclined to use alternatives such as paper or textile bags.

The promotion of such a policy may not be immediate effective for inducing people to minimize their consumption of plastic bags. One reason is that the plastic bag product serves the function of providing convenient and hygienic protection of purchased goods. Another reason is that the production of ultra-thin plastic shopping bags only requires simple techniques and machinery, there are many producers in operation, and most of them are operating on a small scale. Low density polyethylene (LDPE) is the most common raw material for the production of plastic shopping bags. As in other countries, the task of dealing with the over-use and subsequent disposal problem of plastic bags is always arduous. In most cases, recycling involves costly collection and laborious preprocessing, such as sorting and cleaning. However, campaigns to persuade consumers to reduce their use of plastic bags for environmental reasons should be conducted continuously in Lahore for an extended period until consumers recognize that the usage of plastic bags is costly.

5.5 Ensuring Private Sector Participation in SWM Practices of Lahore In the context of current weak financial conditions of Punjab Government, the provision of SWM services is a costly and vexing problem; the extensiveness of service coverage is often low in Lahore, resources are insufficient, and uncontrolled dumping is commonly widespread, resulting in environmental problems all around the Lahore. Moreover, often LWMC cannot afford to provide the service to everyone. Thus, one solution could be proposed in this research paper is to contract service provision with the private sector in

the belief that service efficiency and coverage will improve, and environmental protection will also be enhanced in Lahore.

However, despite the efficiency of private participation, privatization is not a clear-cut solution to issues surrounding waste management service in Lahore where sanitation services should meet both efficiency and social welfare objectives. Private sector participation is successful only when the capacity of the private and public sectors is able enough to be charged in the waste management service. Before involving the private sector in public service of SWM in Lahore, it needs to be determined whether or not, or to what extent privatization is critical to achieving the goal for safe, accessible and affordable SWM in Lahore.

To involve the private sector in SWM in Lahore, the private contractors must have enough technology and capital investment to run the waste management service. The environmental industry, including the waste management industry, covers comprehensive technological realms from engineering and facilities/construction to equipment maintenance. When they are well situated to draw on local and international experience in the waste management field and introduce proven and cost effective technologies along with management expertise, Lahore could take advantage of private sector participation in its SWM. Also, in case of landfill sites or large-scale incinerators, the builder and operator of the facility should have appropriate technology and skilled technicians to control methane gas and prevent environmental contamination from leachate.

In addition, there should be a sufficient number of qualified service companies that are able to provide waste management service and competition should be created among them in Lahore. Studies of privatization have found that competition is generally more important than ownership itself in explaining improvements in performance in developing countries. Therefore, such competition is expected to lead to optimization of waste service as well as lower prices in Lahore.

5.6 Starting SWM Capacity Building & Public Awareness Programmes Incubating public awareness would be a key to successful SWM in Lahore. Waste is the result of human activities and everyone needs to have a proper understanding of waste management issues, without which the success of even the best conceived waste management plan becomes questionable. In order to create and enhance public awareness, the public of Lahore must be aware of the environmental impact and economics of waste management. First, education and advertisements should provide the information that illegal dumping and inadequate disposal cause environmental pollution on air, soil, ground water, and influence public health negatively causing diseases. It can be approached by suggesting a vision of a clean and pleasant Lahore. Emphasis should also be placed on the economics of the waste management. Public education and social activities would make people consider the notion that recycling saves natural resources and creates profits for the public and society.

In Lahore, creative efforts should be made to involve local formal and informal communities such as the women folk or village boards in recycling or cleaning a village and even self-monitoring on illegal disposal. LWMC could appoint civil personnel in the community, cooperate with non-governmental organizations and train women folk on aspects of community mobilization, or give financial or administrative incentives (e.g. sending representatives of the communities on field trips to SWM sites and an advanced model city of Lahore) to a best practice community.

In order to operate a successful solid waste management system in Lahore, officials in charge of waste management (operational side by the LWMC) and (enforcement side by CDGL) should properly understand not only the policy and strategy of waste management but also its environmental impact and social values.

6. CONCLUSIONS & RECOMMENDATIONS The overall analysis of discussions presented in this research paper indicates that the waste collection services by LWMC are working effectively to some extent. The increase in amount of solid waste being brought up to the disposal site, the overall reduction in cost of lifting the waste, and increase in income of the concerned staff of the LWMC, all serve as indicators of improvement in secondary waste collection along PBS routes in Lahore. Maintaining proper record and close monitoring of field staff could further ensure that the waste collection and disposal services are more effective. Moreover, the issue of cleanliness around skips needs to be addressed properly to improve aesthetic conditions and prevent scavenging.

Similarly, the discussions in this research paper revealed that depreciation of waste collection vehicles due to increased number of trips under the PBS is another issue. This not only requires strengthening of existing workshops of the LWMC but also additional funds to purchase new vehicles which would be needed any way to expand the waste collection and disposal service to all towns of Lahore. Purchase of new containers and hiring of additional staff would be other areas of investment to continue effective SWM in Lahore. Another pertinent issue (discussed in previous sections) is the shrinking capacity of existing official waste dumping site in the wake of improvement in waste collection efficiency in Lahore. In this context the LWMC would need to find new sites and invest in necessary infrastructure to ensure safe disposal of city waste in future. However, the present Punjab Government appears to make and implement new SWM plans to keep pace with a modern world.

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APPENDIX Photographs of SWM system in Lahore