རརརརརརརརརརར རརརརརརརརརརརར · pdf...

National Integrated Solid Waste Management

Strategy

2014

རརརརརརརརརརར

རརརརརརརརརརར

རརརརརརརརརརརར

རརརརརརརརརརརར

རརརརརར

རརརར

ISWM Strategy Royal Government of Bhutan

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Table of Contents

1 INTRODUCTION AND CONTEXT ....................................................................................................................... 4

2 STATUS OF CURRENT WASTE MANAGEMENT IN BHUTAN .............................................................................. 4

3 CURRENT LEGISLATIVE FRAMEWORK ............................................................................................................. 6

4 ABOUT THIS STRATEGY DOCUMENT ............................................................................................................... 6

5 VISION, MISSION, KEY GOALS AND PRINCIPLES OF ISWM ............................................................................... 7

6 TARGETS FOR ISWM ......................................................................................................................................10

7 OPERATIONALIZING ISWM STRATEGY ...........................................................................................................11

8 TECHNOLOGICAL OPTIONS FOR PROCESSING OF WASTE ...............................................................................16

9 ENVIRONMENTAL IMPACT ASSESSMENT AND SOLID WASTE MANAGEMENT................................................16

10 ECONOMY AND FINANCING OF ISWM (FINANCING AND COST RECOVERY) ...............................................17

11 STRATEGIES TO CREATE AWARENESS ON ISWM ........................................................................................19

12 INSTITUTIONAL SETUP ...............................................................................................................................20

13 CAPACITY DEVELOPMENT MEASURES ........................................................................................................23

14 MONITORING AND ENFORCEMENT ...........................................................................................................24

15 SERVICE LEVEL BENCHMARKING FOR ISWM ..............................................................................................25

ANNEX I: TECHNOLOGY OPTIONS ......................................................................................................................28

REFERENCES ..........................................................................................................................................................30


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List of Abbreviations

CBE: Community-Based Enterprise

CFL Compact Fluorescent Lamp

DEC: District Environmental Committee

DoR: Department of Roads

DRA: Drug Regulatory Authority

EPR: Extended Producer Responsibility

GNH: Gross National Happiness

GHG: Greenhouse Gases

HCF: Healthcare Facilities

ICWM: Infection Control and Waste Management

ISWM: Integrated Solid Waste Management

PPP: Public Private Partnership

MoWHS: Ministry of Works and Human Settlement

MRF: Material Recovery Facility

NEC: National Environment Commission

NWG: National Working Group

O&M: Operation and Maintenance

PSD: Private Sector Development

PSP: Private Sector Participation

RGoB: Royal Government of Bhutan

RSPN: Royal Society for Protection of Nature

RSTA: Road Safety and Transport Authority

SME: Small and Medium Enterprise

SWM: Solid Waste Management

WtE: Waste to Energy


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1 Introduction and Context

Guided by the overarching development philosophy of “Gross National Happiness”, Bhutan is committed

to environmentally sustainable development. Environmental conservation is one of the cornerstones of

GNH philosophy and is enshrined as a constitutional mandate. However, with changing lifestyle, gradual

transition from a subsistence economy to a consumerist economy, and a growing urban population, the

country is experiencing a new set of environmental challenges including that of solid waste.

In Bhutan, the system of waste management is in a nascent stage. To effectively address the issue of solid

waste, the country requires to develop and operationalize an integrated system with the engagement of a

broad base of stakeholders that includes legislators and policy-makers, the private sector, local communi-

ties, civil society groups, and government authorities at the central and local levels.

Excessive generation and improper disposal of solid waste has become a major concern over the years. In

response to this growing challenge, the Royal Government of Bhutan (RGoB) enacted the Waste Preven-

tion and Management Act in 2009 and promulgated supporting regulations in 2012. The next step forward

is to put in place together a national strategy to operationalize and institutionalize a comprehensive set of

planning approach and practices for integrated solid waste management in keeping with the requirements

of legislation and regulations.

2 Status of Current Waste Management in Bhutan

In recent times, there have been a number of good initiatives in waste management in Bhutan. For exam-

ple, Thimphu’s pilot waste management system with support from United Nations Development Pro-

gramme (UNDP) is recognised as a good practice of partnership. Similarly, recycling businesses have been

promoted as small and micro enterprises through public advocacy and engagement with the private sec-

tor. However, the current situation in general is characterized by indiscriminate open dumping of solid

waste creating unsightly surroundings, choked drains and polluted waterways that contaminate the natural

environment and pose serious hazards to public health. Moreover, lack of proper waste management is

also jeopardizing Bhutan's reputation as a clean and green country, which would affect tourism, one of the

key target sectors for economic growth. The existing system of waste collection and segregation, recycling

and safe disposal is very limited and operational in only a few population hubs. An integrated solid waste

management system approach which considers all steps of the Solid Waste Management (SWM) cycle

and all aspects of sustainability is currently lacking largely due to scarce capacity in terms of institutional

set-up, trained human resources, and funds. A survey carried out to prepare this strategy document shows

that there is high public demand for such an approach and strongly suggests regular door-to-door collec-

tion with a service fee, which is affordable for the majority of the population.

In response to perennial problems of waste management and disposal and continued concerns expressed

by many stakeholders, the National Environment Commission (NEC) initiated a consultative process in

order to develop an Integrated Solid Waste Management Strategy for Bhutan. The process was launched

in December 2011, and a National Working Group (NWG) was formed. A survey of waste generation and

composition was carried out along with a customer satisfaction and demand survey in the five towns of

Paro, Thimphu, Phuentsholing, Bumthang and Mongar. In addition, a series of consultative workshops

and several bi-lateral meetings with relevant departments were held.

Previous and Current Survey Findings

The Ministry of Works and Human Settlement (MoWHS) did have a national data base, but it was nearly

five years old. It was felt necessary that a fresh survey of a few selected towns and inclusive of different

income groups be carried out to validate the findings of the earlier survey and update the data on waste

generation and composition along with a customer satisfaction and demand survey because:


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It is essential to understand waste generation and composition for preparing any waste manage-

ment strategy.

A robust waste prevention and recycling strategy cannot be developed without knowledge of

household and commercial waste generation and composition.

A customer satisfaction and demand survey would provide indications of levels of services, demand

along and participation as well as willingness to pay.

In the previous surveys, residential waste was assumed to be the largest waste component at 70-80%, with

per capita generation of approximately 0.540 kg/day. This survey included total general waste including

road sweepings reaching the dumpsite. Five towns were selected based on consultation with the NWG,

and a week-long survey was carried out at the household level to understand potential for processing.

While carrying out the survey in Paro, some villages were also included to understand the nature of waste

in the rural setting. The survey was undertaken together with Royal Society for Protection of Nature

(RSPN), an Non Governmental Organisation (NGO) which has experience in waste survey and developing

waste management interventions. It was carried out in the towns depicted in the map below. The survey

revealed that, per household, 1.95 kg of waste is generated excluding inert waste. For the commercial are-

as, waste generation rate was 2.40 kg (2007) and 1.95 kg (2012).

The customer satisfaction and demand survey carried out as part of this strategy development exercise in

the five surveyed towns across the country shows that solid waste management is a serious concern

among the citizens as well as the authorities managing it. The positive aspect is that citizens in all five sur-

veyed towns are ready to adopt good practices of segregation and pay a reasonable fee towards waste

management, which has so far been free of charge. Also, there is ample indication that some scope exists

for initiating public private partnership models for collection and transportation.

The condition of the dumpsites/landfills is not appropriate and needs immediate upgrading in Thromdes

and other places. There is a need to identify regional landfill sites for constructing sanitary landfill for a

cluster of municipalities. Many of the current dumpsites can be closed and could be developed into a ma-

terial recovery facility and temporary storage system to prevent open dumping in all habitats.


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Thromdes also expressed their concerns about lack of capacity and other human and financial resources to

manage solid waste efficiently. Processing and safe disposal were stated as key areas of concern, including

lack of a robust strategy to deal with the current waste problem.

3 Current Legislative Framework

Waste Prevention and Management Act of Bhutan 2009

In 2009, The NEC, being the overall regulatory authority for waste prevention and management, developed

and notified the Waste Prevention and Management Act of Bhutan 2009. This Act covers all forms of

waste including solid, liquid, gaseous, hazardous, non-hazardous, organic, inorganic, from residential, agri-

cultural, commercial, medical or industrial sources, produced by any person, and including materials being

stored for recycling or in the process of recycling. It also deals with transportation of waste in any form,

including import and export of waste.

The key goals of the Waste Prevention and Management Act of Bhutan 2009 are to protect and sustain

human health through protection of the environment by:

reducing the generation of waste at source,

promoting the segregation, reuse and recycling of wastes,

disposal of waste in an environmentally sound manner, and

effective functioning and coordination among Implementing Agencies.

Waste Prevention and Management Regulation, 2012

Three years later, the NEC promulgated the Waste Prevention and Management Regulation, 2012. This

regulation was adopted in accordance with section 53 of the Waste Prevention and Management Act,

2009.

The broad scope of the Waste Prevention and Management Regulation, 2012 applies to all point

sources of different waste types and their management by Implementing Agencies and monitoring au-

thorities. The Regulation came into force with effect from April 2012.

The purpose of this Regulation is to:

establish procedures to implement the purpose of the Waste Prevention and Management Act,

2009,

identify roles and areas of implementation of the Implementing Agencies (IA) for the purpose of es-

tablishing sound waste management practices including monitoring procedures at every organiza-

tion level, through efficient collection, segregation, storage, transport, reduction, reuse, recycling

and safe disposal of solid, liquid and gaseous wastes,

assign costs in proportion to the waste volume generated from the point source or by degree of

their hazardousness by levying waste management service fees, charges and fines for noncompli-

ance, and

control and prohibit illegal dumping or releasing of waste into the environment otherwise than

permitted by public notification.

4 About this Strategy Document

This strategy document suggests a stepwise planning approach based on practical experiences in many

different contexts, and a generic approach for a systematic waste management process that has been de-

veloped and successfully applied. The stepwise approach comprising seven steps covers the planning


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phase up to the start of implementation. In parallel to the planning process, a process of participation and

information of citizens is foreseen as highly critical. All Thromdes/Municipalities should ideally adopt this

planning process to develop their local strategy for Integrated Solid Waste Management (ISWM). The def-

inition of ISWM here is: “Integrated solid waste management refers to the strategic approach to sus-

tainable management of solid wastes covering all sources and all aspects, such as generation, seg-

regation, transfer, sorting, treatment, recovery and disposal in an integrated manner, with an em-

phasis on maximizing resource use and efficiency”. An integrated solid waste management system

follows the planning process described below:

Initiating and sustaining ISWM practice is going to be a complex multi-stakeholder process and needs

proper coordination and management as well as sufficient capacity within all stakeholder groups involved.

A multi-agency team of experts should be formed to guide and backstop Implementing Agencies (IA) at

the central and local levels to develop their sectoral and local ISWM implementation plans based on sec-

toral and local circumstances, needs and priorities.

5 Vision, Mission, Key Goals and Principles of ISWM

The Vision for the Royal Government of Bhutan for integrated solid waste management is “To move to-

wards attaining Zero Waste through maximizing resource recovery for creating sustainable waste man-

agement systems and protect the natural unique ecology of Bhutan”.

The Mission is “To promote and practice the 4 Rs (reduce at source, reuse, recycle, and responsibility)

principles of ISWM of all materials, and to protect the unique ecology of Bhutan and public health in part-

nership with all citizens at par with international standards”.

Participati on of citizens

Step 1: Organize the Study / Mobilization

Step 2: Define the Problem (Baseline Data)

Step 3: Establishing Strategic Planning

Framework

Step 4: Identify/Evaluate Options

Step 5: Develop Strategy

Step 6: Prepare Action Plan

Step 7: Implement the Strategic Plan

• Mobilize the Planning Process within relevant actors, in particular Thromdes, municipalities, villages and communities

• Collect and verify data on waste generation (current/trends), waste composition, WM system, stakeholders, recycling market

• Waste collection/recycling/treatment/disposal

• Definition of Institutional framework

• Financial management (Tariffs, cost recovery ...)

• Public awareness/information

• Within framework elements

• Define WM strategy and WM model to be introduced

• Implementation arrangements

• Arrangements and contracts

• Decision-making milestones

• Planning and preparation of implementation • Implementation, in particular at institutional, technical and

administrative level


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ISWM Strategic Goals and Objectives

The following are considered as the strategic goals and objectives for ISWM in Bhutan, in consonance with

both the Waste Prevention and Management Act 2009 and Waste Prevention and Management Regula-

tion of 2012:

Continuously move/promote towards “Zero Waste Bhutan” in partnership with the public, industry,

civil society organisations, government authorities at local and sectoral levels, municipalities, and

funding agencies.

Each ISWM planning is to honour the principles of GNH and Zero Waste Principles through in-

creased citizen participation in segregation, resource conservation, maximum processing and landfill

diversion.

Ensure environmental accountability and social responsibility of all waste generators, waste manag-

ers and service providers.

Introduce, and adhere to, the principles of Extended Producers’ Responsibility (EPR) for all non-

recyclable products.

Assist in the development of Public Private Partnership (PPP) both with private sector and civil socie-

ty organisations with public contribution via service fees for waste management.

Create and protect livelihoods through promoting and reforming the recycling sector.

Take up long-term extensive awareness on waste management as a strategy.

The Core Values of ISWM for Bhutan are:

commitment to the GNH principles

commitment to Environmental Justice and protection of public health

commitment to develop public private partnership for selected ISWM activities

commitment to move towards zero waste principles with non-thermal technology for municipal

waste


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commitment to seek public participation for ISWM planning, partnership and monitoring

Key Concepts and Principles for ISWM

The key concepts and principles adopted for Bhutan’s ISWM Strategy are listed below:

GNH Principle on Environment, Waste and Climate Change: Follow the GNH principles as men-

tioned in the GNH document with regard to environment and waste.

Zero Waste Management Principles: All planning for waste management should strive towards

zero waste management. It will avoid the use of any thermal technology for municipal solid waste.

Extended Producer Responsibility (EPR): Take back of non-recyclables in the current system

should be promoted through EPR, and there should be an increase in sales tax/custom duty on

products which cannot be recycled in the current system.

Polluter Pays Principle: Through implementing the Polluter Pays Principles at all levels, the cost of

waste management services should be reflected in the price of these services. The Polluter Pays

Principle is enacted and implemented to make the person/party responsible by paying for the dam-

age done to the natural environment through a service fee/payment for waste collection, transfer,

treatment and disposal through realistic tariffs for all waste generators.

The 4R Principle: The waste hierarchy here refers to the Four Rs. The 4 Rs are reduce, reuse, recycle,

and responsibility (including the responsibility of the generator), and classify waste management

strategies according to their desirability. These Rs are meant to be a hierarchy, in order of im-

portance of the steps: reduce, reuse, recycle, and bear the responsibility. The 4 Rs are described as:

Prevent and Reduce:

waste avoidance/prevention over any other form of environmentally sound disposal

Maintain content of hazardous substances in waste at the lowest possible level.

Reduce plastic and promote alternatives.

Reuse:

Reuse non-avoidable waste as far as possible.

Remove useable materials from the waste streams prior to their final disposal.

Recycle:

Maximise / enhance life cycle of both organic and inorganic products.

Responsibility:

Be responsible for waste management, and take measures to prevent waste-related pollution.

Financial Security and Full Cost Recovery: All Implementing Agencies should strive to create fi-

nancial security and full cost recovery of operation and maintenance cost of waste management

services, including processing and disposal.

PPP models: Serious efforts will be made to encourage public-private partnerships, including part-

nering with community based enterprises in all areas to implement sustainable waste management

systems.


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6 Targets for ISWM

Targets

The establishment of an integrated solid waste management system in Bhutan relates to the achievement

of the following short, medium and long-term targets: (See action plan for details)

Short-term targets, 2014-2018

Institutional set-up to be defined and operationalized for ISWM by MoWHS/Thromdes/Dzongkhags

by NEC in 2016

By the end of 2016, a study should be conducted to identify proper disposal sites by concerned

agencies.

By 2017, each Thromde/Dzongkhag should have at least one educational institute as a Zero Waste

Premise/Institution/Campus.

The concern agency must prepare or seek a list of legal and illegal (designated and non-designated

dumping places) by 2015.

All current small open dumpsites are closed down or upgraded to controlled disposal sites by 2018.

All urban areas receive regular waste collection services (at least 3 days in a week), and in rural areas,

a waste system is fixed based on minimum population and waste generation.

Create and promote extensive and regular ISWM awareness and education with all stakeholders.

Initiate processing of organic waste, starting with all habitats, with a simple aerobic system of com-

posting.

Create a storage system for each cluster of towns /rural areas for recyclables and rejects.

By the end of 2017, measures for diversion of biodegradable waste from dumpsite/landfill are initi-

ated and implemented through encouragement of decentralized or home composting or through

establishment of small-scale composting of organic waste, collected from the urban/rural areas.

By the end of 2017, all construction and demolition waste should have a separate space for storage

and should be used for filling purposes.

Initiate PPP in at least 4 Thromdes in waste management by 2018.

Implementing Agencies start recovering 50% of O&M cost through the polluter pays principle by

2018.

EPR policies are framed by 2017 and operationalized by the respective ministries by 2018.

The Ministry of Agriculture and Forest prepares a compost buy-back policy with at least full O&M

cost paid to the Implementing Agency by 2017.

By the end of 2017, at least one town should be able to become a Learning Lab City which should

have implemented this strategy for others to learn. All agencies should cooperate to make this pos-

sible. It should have a fully functional Material Recovery Facility and an upgraded landfill site, and it

should be able to divert at least 70% of waste by the end of 2018.

By the end of 2018, all municipalities must upgrade the dumpsites.

By early 2017, the entire urban population should be covered by separate collection and segrega-

tion of waste from both residential and commercial areas.

Initiate credible data collection on waste generation and composition including regular data collec-

tion on diversion of waste to calculate GHG emission avoidance from 2017 on.


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Medium and long-term targets, 2019-2030

Provided that results from the separate collection are successful, the separate collection service will

be extended to all urban and large villages, and no inorganic waste is to be thrown away, but should

be stored and sent to a centralized designated place. This should be started by 2019 and completed

by 2021.

70 % of resources should be recovered from generated waste by 2020 and zero waste by 2030.

Depending on the possibility of upgrading to full-scale sanitary landfilling, at least regional sanitary

landfills with a lifespan of 20-25 years shall be indentified and constructed wherever feasible.

By the start of 2019, all urban areas and rural villages should have created/constructed compost

sheds.

Storage systems for inorganic waste for all smaller municipalities and Gewogs should start by 2020

and be completed by 2022.

All waste diversion data to calculate GHG reduction for claiming Carbon Credits should be inventor-

ized by 2019.

Cost recovery for ISWM O&M should exceed 50% by 2020 and full cost recovery should happen by

2027.

All Thromdes adopt the ISWM planning process and implementation by 2020, and all Dzonkgas by

2022 or earlier.

By 2020, at least 1-2 towns become Learning Lab Towns as Zero Waste Models, at least half of the

total Thromdes and towns by 2025, and the rest by 2030.

7 Operationalizing ISWM Strategy

In order to operationalize the ISWM activities, it is important that all aspects of waste management system

such as storage, segregation, collection and transportation including processing and disposal be consid-

ered and designed before initiating any action. The Implementing Agencies must follow the ISWM plan-

ning process for this and work out the details of each and every activity including cost. The following key

activities of the ISWM are:

Waste Storage

It shall be mandatory for all households and commercial areas such as shops, restaurants, hotels,

vegetable markets, other institutions and public spaces to keep at least two containers (preferably

green for organic and blue for inorganic) for separate storage of waste as organic and inorganic

materials/waste.

The size of the container should be adequate to hold the waste with spare capacity to meet unfore-

seen delays in clearance.

All citizens should be asked to store waste only at defined places, and they should not throw away

any solid waste in their neighbourhood, in the street, open spaces and vacant plots or into drains.

All hazardous waste like healthcare waste and E-waste should be stored separately and labelled.

Vegetable markets produce large quantities of solid waste. Depending on the size of the market, the

local authorities may provide large-size containers with lids or skips for storage of market waste at

suitable locations within markets on full cost recovery as deemed appropriate.

Construction and demolition waste will be kept separately.


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Waste Segregation

All organic waste shall be segregated in GREEN bins and inorganic waste in BLUE bins

All kinds of Healthcare Waste should be kept in RED bags/bins, and other domestic hazardous waste

and E waste such as bulbs, CFL, batteries, etc. should be kept in a YELLOW bag/bin and should not

be mixed with any other waste.

All municipalities will strive for separate collection of inert waste like road sweep, drain silt, etc.

Construction and demolition waste will be stored separately.

Collection Systems

An adequate and efficient collection and transportation system is the most important aspect of SWM for

visibility of the SWM services. This also impacts to a great extent on the processing system of the waste.

The Implementing Agencies should arrange a collection system which has two containers or apply

any other appropriate measures to receive waste separately. In no case shall mixed waste be either

collected or mixed in the collected waste.

All collection system must be synchronised with primary and secondary collection and transporta-

tion system.

It is recommended that wherever possible, the Thromdes and Municipalities provide at least al-

ternate days of door-to-door collection systems in all residential areas at a preferred time of the

community.

Doorstep collection of waste shall be carried out through motorized vehicles having non-

conventional / sounding horns deployed for doorstep waste collection with active community par-

ticipation.

For all commercial areas including institutions, the Implementing Agencies shall decide the frequen-

cy and timing of services with the market associations/institutions and may increase the frequency

for more than alternate days or as per their requirement on cost recovery basis.

For collection of domestic healthcare waste and other domestic hazardous waste, including E–waste,

the Implementing Agencies should decide the frequency (once in a week/fortnight/month) and col-

lect it in separate bags/bins along with regular waste. No healthcare waste from hospitals/drug

stores shall be collected or transported unless in case of an emergency and on request by the hospi-

tals to the Implementing Agencies.

For small rural communities/Gewogs, a monthly transportation system of recyclables and rejects will

be arranged based on quantity and volume.

Construction and demolition waste will be collected separately at a cost fixed by the government.

Waste that is generated from car repairs from garages, particularly when waste water and different

kinds of oil and grease are used, should be separately collected and treated.


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Construction and Demolition Wastes

No person shall be allowed to dispose of construction waste or debris on the streets, in public

spaces, on footpaths or on pavements.

During construction or post-construction, all construction material or waste shall be stored only

within the premises of buildings.

The person renovating or constructing houses/shops etc. must inform the Thromde/Municipality of

the nature and quantity of waste to be collected and transported at a minimum fixed cost per trip.

In exceptional cases where storage of construction waste within the premises is not possible, such

waste producers shall take prior permission of the Thromde/Municipality for temporary storage of

such waste and, having obtained and paid for such permission, may store such waste in such a way

that it does not hamper the traffic, does not get spread on the road and does not block surface

drains or water drains.

All demolition and construction waste will either be separately transported by the generator or col-

lected by the municipality, with the waste generator then being charged additionally.

Transportation System

The Municipalities will preferably use hydraulic vehicles, both small and large, including tractor trol-

leys with a hydraulic system for waste collection and transportation.

Use of compactor trucks is recommended only for Thromdes.

All primary transportation system should align/synchronise with secondary transportation particu-

larly in the Thromdes.

Transportation of waste shall be in covered vehicles, and there should not be any spillage while

transporting or collecting waste.

Organic and recyclable waste shall always be transported separately or in separate containers.

Domestic healthcare waste and other domestic hazardous waste and E-waste thus collected should

be transported to the processing plants separately.

Transfer Stations for Secondary Transportation

The solid waste collected from door-to-door collection or from the community bins through the primary

collection system needs to be unloaded and stored at convenient covered places for its onward trans-

portation in a cost-effective manner. Transfer stations for waste storage depots which synchronize with

primary collection and transportation system are, therefore, required to be located at suitable sites in lieu

of open waste storage sites for Thromdes.

Litterbins in Streets/Public Places

With a view to ensuring that streets and public places are not littered with waste materials such as used

cans, cartons of soft drinks, used bus tickets, wrappers of chocolates, empty cigarette cases and the like

generated while on the move, litter bins may be provided in important streets, markets, public places,

tourist spots, bus stops, large commercial complexes, pedestrian footpaths, etc. at a distance ranging from

25 metres to 250 metres depending on the local condition and congestion/crowding rate.

All public transport places should have bins placed at taxi stands, bus stops/stands, truck stands, highways,

roadside eating joints, etc. All taxis, trucks and buses should carry compulsorily bags/bins for waste collec-


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tion, and the driver must inform all passengers to keep the waste in the bin/bag provided in the bus and

not to litter.

Communal Bin Free Streets/Areas

The Implementing Agencies should strive to make the city/town Communal Bin-Free to the maximum

possible extent. Large communal collection bins will only be placed in congested market areas, and com-

munity collection bins should not be allowed on roadsides, particularly in residential areas, thus creating it

bin-free areas/streets.

Street Sweeping

Cleansing of the public roads, streets, lanes, by-lanes and footpaths should be done on a regular basis in

all areas. A list of such roads and streets together with their length and width should be prepared.

A program for their regular cleaning should be worked out by the Implementing Agencies, and appropri-

ate collection and transportation should be carried out. The Implementing Agencies should keep the work

norms/staff strength in view and decide its frequency.

Prevention of Open Burning of Waste

All responsible agencies for waste management shall take immediate measures to prevent burning of any

type of waste in any manner.

Waste Treatment

Given the limited financial resources and land for disposal available within Bhutan, it is important to look

for appropriate technologies for treatment and processing along with the disposal system. As the effec-

tiveness of the collection by the municipal solid waste management system improves and the economy

develops, there will be an increasing need for more treatment and processing as disposal or incineration of

all waste is not a potential solution for Bhutan.

Processing and Treatment of Organic Component of Waste

Appropriate composting methods of organic waste shall be an integral part of waste processing.

It is recommended that Institutions like schools, colleges, other educational institutions, monaster-

ies, military establishments, etc. be asked to have their own composting systems in their own prem-

ises.

All municipalities shall set up composting sheds/facilities which have 100% additional capacity com-

pared to their present production of organic waste, keeping future requirements in sight.

In order to ensure quality of compost, the standards are laid down in particular by the Ministry of

Agriculture and Forest, or the internationally acceptable standards are adopted.

Bio-gas could also be experimented with for treatment of organic waste.

Home composting should be promoted and allowed wherever possible.

Recycling of Inorganic Materials

It will be imperative for Bhutan that an intensive waste to resource support structure be created

through awareness and penalty provisions to promote source segregation so that inorganic materi-

als can be retrieved at source and sent to recycle. Recycling of inorganic material could be encour-

aged through a study of waste flows, composition and future projections.


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All small towns and villages must have recycling storing centres (MRF) for the storage of recyclable

waste from where it can be transported to processing units.

At the Dzongkhag level, waste characterization needs to be carried out to determine the potential

for generation of inorganic materials for recycling.

Relevant Government ministries/departments should create incentives to stimulate market

demand for end products made from recycled material.

The Government should incentivize recycling entrepreneurship in technology import and also with

regard to products made from recyclable materials.

In the case of non-viability of full recycling, semi-processing of waste for some value addition

should be considered before it is exported to any neighbouring town/country for sale.

Recycling of Hazardous Waste

Some aspects of healthcare waste suitable for safe recycling should follow the guidelines prepared

by the Ministry of Health.

Safe recycling of E-waste should follow the guidelines/regulation prepared by the Department of In-

formation Technology and Telecom.

Recycling by the Informal Private Sector

Prominent waste reduction and recycling activity have been observed in the informal system of collection,

sorting and sale of the higher value waste materials to scrap dealers. For this, the Royal Government of

Bhutan needs to streamline the business licenses and support the waste dealing business with incentives.

The Implementing Agencies may take initiative to organize and mobilize the waste pickers, build their

capacity and integrate them in formal waste collection systems or engage them at MRFs, thus improving

their occupational and health safety and protecting their livelihood. Waste pickers should be provided

with identity cards, and the Implementing Agencies may create systems for environmental services pay-

ment.

Waste Disposal

Presently, there are no sanitary landfill sites in Bhutan. There are some controlled disposal sites but they

are often not functioning properly. There have been instances of leachate flowing directly into the water

bodies and waste spilling over into gorges. Neither is there enough capacity for developing the criteria for

siting and construction of engineered landfill sites. The capacity to run a properly engineered landfill site

does not exist in the country either. In view of this, maintaining individual landfill sites in all Thromdes and

Municipalities is not feasible. It is suggested that Bhutan aim for the construction of regional sanitary land-

fill sites which can cater for a cluster of towns.

The term ‘sanitary landfill’ is used herein to describe a unit operation for the final disposal of ‘Municipal

Solid Waste’ on land, designed and constructed with the objective of a minimum impact on the environ-

ment. As Bhutan has an ecology abundant with water resources, there are always chances of siting of sani-

tary landfills raising serious issues of water resources being in close proximity of disposal facilities.

Thromdes and Municipalities will have to close all micro-dumpsites and limit the disposal of munici-

pal waste to the upgraded dumpsites, one in each Thromde and its nearest towns and the rest in

other strategic places in Bhutan.

A GIS map should be drawn to list potential sites for regional sanitary landfill sites with a minimum

lifespan of 25-30 years to provide enough available capacity to serve the country for the next 30

years.


16

Individual sanitary landfills will be allowed only in exceptional cases where transportation of inor-

ganic waste is not an option or is not viable financially.

The MoWHS, in consultation with the NEC, should develop a list of potential sites for landfill con-

struction.

Landfilling should only be limited to rejects of processing, and no mixed waste or organic waste

should be allowed.

Landfilling of construction and demolition waste will be done in a separate space/identified disposal

ground where the waste can be stored and mined for future use in earthwork or road projects. If re-

quired, construction and demolition waste can be used as a daily cover at solid waste landfills; how-

ever, only a minimum thickness of cover should be provided.

Site Selection Criteria for Sanitary Landfills

Selection of a landfill site usually comprises the following steps for individual or regional landfill sites and

should be strictly followed:

setting up of locational criteria

identification of search area

drawing up a list of potential sites

geo-hydrological data collection

selection of a few best-ranked sites

environmental impact assessment

final site selection and land acquisition

construction quality criteria for sanitary landfill sites

8 Technological Options for Processing of Waste

The Implementing Agencies should adopt a suitable technology or combination of such technologies

which are environmentally sustainable to make use of wastes so as to minimize the burden on sanitary

landfills. The following criteria shall be adopted to opt for a technology for processing, namely:

Biodegradable wastes can be processed by composting, vermicomposting, anaerobic digestion (bio-

gas) or any other appropriate biological processing for stabilization of wastes. It should be ensured

that compost or any other end product shall comply with international standards.

Mixed inorganic waste containing recoverable resources shall follow the route of recycling.

No thermal technology or mass burn or incineration with or without energy recovery should be

used for processing of municipal waste.

The Implementing Agencies or any other operator of a processing facility willing to use any tech-

nologies should consult with NEC to get the approvals and comply with the standards.

9 Environmental Impact Assessment and Solid Waste

Management

A relative assessment of different technological options from an environmental angle is necessary keeping

in view the existing regulatory standards. The basic approach adopted should be to promote environmen-

tally sound waste disposal and treatment technologies wherein energy recovery is only an additional


17

benefit. An Environmental Impact Assessment (EIA) should be carried out for all waste processing and

disposal systems. The format of the EIA and conditions should be prepared by the NEC, and the NEC

should review such EIAs.

The process of Public Consultation for both processing facilities and disposal systems should be made

mandatory.

10 Economy and Financing of ISWM (Financing and Cost

Recovery)

Enabling Policy Instruments

Successful implementation of the 4R principles will require enabling policy instruments. Bhutan is in a nas-

cent stage of initiating the 4R principles, and enabling policy instruments should go hand in hand with the

initiation of the concept.

The government should frame policies and detailed guidelines in the following areas:

polluter pays principles

public private partnership

extended Producers Responsibility (EPR)

incentives for processing of organic waste and recycling of inorganic waste.

The points below are suggested to promote and expedite the above principles:

relaxation of rules and liabilities as deemed necessary for procurement of technology/machinery for

waste recycling/processing,

relaxation of taxes/fees/fines on activities benefiting the general public for taking up waste man-

agement related activities/work,

levying of taxes/fees/fines on activities adversely affecting the general public and environment,

capacity development support to the parties coming forward to participate in waste management

work/activities,

providing subsidies and/or soft loans to establish recycling or other waste processing plants,

incentivizing the market and consumers to promote use and buying of recycled products,

streamlining the business licenses for collection and transportation services as well as treatment and

processing to facilitate separation of such ventures from other commercial activities and provide

them support, wherever necessary,

introduction of double accrual system of accounting in municipalities.

Financial Security

In developing countries in general and in Bhutan in particular, the prospect of the government funding

waste management in full is limited. Without financial security, no innovative technology is sustainable.

Dependence on external (donor) assistance and loans from the financial institutions entails a high liability

risk. Therefore, developing an internal financing mechanism to ensure consistent financing is crucial in the

ISWM system in Bhutan. The avenues to establish such an inbuilt system include the polluter pays principle

and initiating PPP/CBE/privatization with enabling instruments.


18

Possible Sources of Revenue Generation for Creating Financial Security for

ISWM Operation and Maintenance

Polluters pay principle: All families/households/commercial area must pay for the operation and

maintenance cost of collection and transportation. This needs to be created and enforced as soon as

possible

The Waste Prevention and Management Regulation Act, 2012, should provide for the option of im-

posing a solid waste service tax/fee on non-degradable goods on import, or industrial production,

and for revenue to be ploughed back to the municipalities.

The Ministry of Agriculture and Forest should create and promote use of compost. It should also

make a buy-back arrangement (of 100% or some % of compost) from the processing agencies,

based on their O&M cost with some margins.

Privatization through enabling instruments: Relieving/reducing sales tax on recycled products

and/or incentivizing the markets to let waste recycled products survive. The market incentivizing

mechanism can either be through imposing heavy import tax on fresh resource goods to balance

the market price or by controlling the imports by applying legal instruments.

Privatization with incentives: Nurturing/encouraging private parties to undertake ISWM as a whole

or in parts through capacity building support, subsidies and/or soft loans, and promotion for eco-

nomically viable recycling activities.

Public-Private Participation (PPP)

Solid waste management is a crucial social and environmental service and could be a potential economic

activity where private initiative can make a difference in the efficiency of services and in the minimization

of waste problems, thus saving on municipal finances. Lack of state support and partnership can become

an obstacle in Bhutan, as PPP and private sector development (PSD) are nascent1. Therefore, an encour-

agement of public-private partnership is reiterated to implement sustainable waste management at least

for all the Thromdes. Both Government and Industry associations should actively promote Environmental

Entrepreneurship through capacity development support, guidance, facilitation, and viable fiscal conces-

sions.

Suggested Models of PPP for ISWM

Except for some NGO-led partnerships in this field that are limited to solid waste collection and a recently

launched PET bottle, paper, card board, and aluminium can collection system, no significant PPP or PSD

are visible in Bhutan. There are four basic types of arrangement for such partnerships that should be tried:

a contract model for collection, segregation and transportation for which the service provider is paid

by the local government

a contract model where the service provider is responsible for collecting a fee directly from the

waste producers for its services in full or part

a contract model where qualified service providers including Community Based Enterprises can con-

tract with any waste producer for the collection and processing of their waste with facilitation from

Public Implementing Agencies

an incentivized contract for processing and recycling of waste through concession and tax rebates

Basis for decision-making and evaluation of PPP for municipalities

Type of Characteristics Advantages Disadvantages Incentives required Remarks

1 Shimizu, 2006


19

Model and minimal requirement for PPP models

Large PPPs Large quantities of waste, long-term concessions, high investment

Investment and technology access, efficient services

Will not be interested in small towns, require long-term commitments for break-even

Concessions and long term contracts

Currently not feasible for size of towns in Bhutan

Small PPPs Often local enterprises, small liquidity, basic technology, innovative, efficient

Local capacity and knowledge of waste, Focus on livelihood and local solution, cost effective

Lack investment and technology access

Partnerships and handholding,

Joint capacity building with government Implementing Agencies, timely payments, leasing equipments, land, tax-free payments

A few such small PPPs should be piloted.

PSDs Efficiency in cost and operation, requires support and handholding

Brings in investment and technology, easy to monitor

Single PSPs can be monopolistic

Partnerships and handholding, joint capacity building with government Implementing Agencies, timely payments, leasing equipments, tax free payments

Should be tried for both collection, transportation and processing, promoting multiple PSD contracts

CSOs/CBEs Good at mobilization of community, better interface with community,

Efficient

Local capacity and knowledge of waste, good at awareness building, focus on livelihood and local solution, cost effective, suitable for small towns and rural areas

Long period for effective results and impact

Strong partnerships and handholding, joint capacity building with government Implementing Agencies, timely payments

Should be piloted in small towns and villages

11 Strategies to Create Awareness on ISWM

Both intensive and extensive awareness on waste management is key to the success of any waste man-

agement plan. Without a well-defined strategy on waste management, including person-to-person inter-

action, SWM may not deliver the required results. Hence it is of paramount importance to develop a de-

tailed awareness strategy for each of the stakeholders, public or private.

Educational Institutions:

Inclusion in the formal curricula in schools

Inclusion as co-curricula in other educational institutions, including monastic institutes

Promotion of school-based Nature/Eco Clubs

Demonstration of 4R programs in schools and other educational institutions

Waste Management Programs for Scouts/Police/Army training institutes

Clean up Campaigns of identified areas by school and college students


20

Urban Communities:

Extensive and intensive awareness and campaign on segregation and non-littering

Use of media for promoting 4R

Both formal and informal awareness program with relevant agencies

Voluntary services for ISWM

Rural Communities:

Inclusion in the curriculum of the Non-Formal Education programme

Village Cleaning Programs based on ISWM principles

Community-based awareness campaigns among other things relying on local folk events/ festivals

Commercial Entities:

In the case of Bhutan, the tourism sector would be a priority with emphasis on promoting best practices of

solid waste management among tour operators, hoteliers and their staff through training, sensitization,

and technical guidance.

The tourism sector association needs to be mandatorily roped into awareness and provide clear cut

guidance on waste management rules

Mandatory Training of Guides and Escorts in waste management rules

Tailored-made awareness program for Market Associations and Industrial associations

Awareness through all kinds of media

Development of IEC Materials:

The Implementing Agencies must create IEC materials and find innovative ways of awareness creation.

There should be types of information flow mechanisms for waste management awareness to all stakehold-

ers.

12 Institutional Setup

Apex Body for ISWM in Bhutan

The National Environment Commission (NEC) is the overall regulatory authority and will coordinate and

monitor all initiatives related to waste. It will also assess the overall performance of the Implementing

Agencies and provide them necessary technical support besides certifying the Issue of Hazardous or

Non-hazardous Waste pursuant to a scientific determination of whether a waste is of hazardous or non-

hazardous nature. From time to time, it will enact appropriate regulations for all kinds of waste manage-

ment and set the benchmarks of performance indicators and monitoring frameworks.

The NEC should create a Solid Waste Management and Resource Wing/Division which should enforce all

waste related regulations and should have punitive powers.

Lead Implementing Agencies

There are three Lead Implementing Agencies, namely Ministry of Works and Humans Settlement,

Thromdes and Dzongkhags. The Ministry of Works and Human Settlement will provide overall technical

assistance for ISWM.


21

The Thromdes and Dzongkhags will be responsible for implementation of ISWM systems. It is recom-

mended that all Thromdes and Dzongkhags create or rename their solid waste management section as

Solid Waste and Resource Section.

Role of Collaborating Agencies/Departments

Institutional setup for ISWM

All the collaborating agencies mentioned in the Waste Prevention and Management Act of Bhutan 2009

will frame the required and relevant policies and other enabling instruments to implement the Act and

Regulation in support and consultation with NEC and the Lead Implementing Agencies.

Ministry of Education

The Ministry of Education should ensure waste management education and awareness through relevant

curricular and extracurricular activities in schools/colleges/other institutions. It should encourage the heads

of all educational and training institutions to set up their own composting and recyclable collection sys-

tems. It should also encourage all educational institutions to set up zero waste schools/institutions.

Ministry of Economic Affairs

The Ministry of Economic Affairs will create facilitating policies and enabling instrument for promoting 4R

principles of waste management which can include promoting recycling entrepreneurship, import of

recycling technology, incentives for recycling businesses, etc.

Authority in ISWM

Collaboration Agency

CA 1

CA 2

NEC

Thromde A Dzongkgas MOWHS

Env.D

SWRS GE 1 ME GE 2 GE 3

CA 3

CA 4

CSOs

DE


22

The Road Safety and Transport Authority

The Road Safety and Transport Authority (RSTA) will be responsible for the management of waste

generated by the public transport services or passengers.

The RSTA will enforce the proprietor of all public transport service to provide public announcement

equipment inside vehicles, ensure that each vehicle has bins/bags for waste collection and have a

driver/conductor responsible for this, including safe storage and disposal.

Department of Roads (DoR)

Prevent and manage wastes within the right-of-way areas and provide for their clean-up when

wastes are found to be disposed within their rights of ways.

Manage wastes generated from the road construction or maintenance activities.

Suggest usage of construction and demolition waste in road construction.

Drug Regulatory Authority (DRA)

The DRA shall be responsible for issuing guidelines for the prevention and management of wastes stem-

ming from medicinal products and their sale. Along with the NEC, it will ensure that no pharmaceutical

waste or bio-medical waste gets mixed or disposed with municipal waste, except in an emergency situa-

tion.

The Ministry of Agriculture and Forest

Any individual, organization, institution or community conducting activities like camping, trekking, picnick-

ing, cattle herding, timber extraction, firewood collection, stone bathing, religious or cultural performance,

dumping of saw dust, quarrying and mining, research, surveying, inventory development, census, infra-

structural construction, NWFP collection, or educational or recreational visits or running small commercial

activities within a protected area or government reserve forest is prohibited from littering any nature of

inorganic waste and should be responsible for its collection and transportation to a nearby designated

place of processing.

MoAF will also create enabling instruments and policies to promote compost marketing and make buy-

back arrangements for compost produced from organic waste. It should set quality standards for compost

use as well.

Department of Information Technology and Telecom

The Department of Information Technology and Telecom will prepare policies and guidelines and other

enabling instruments to manage Waste from Electrical and Electronic Equipments (WEEE). The Department

can also consider introducing EPR for WEEE. Furthermore, it can consider having its own collection and

recycling mechanisms.

Civil Society Organisations

The Government will actively promote engagement with CSOs for the promotion of 4R principles, aware-

ness on segregation and recycling. It can also encourage CSOs to create collaborative platforms for taking

up waste management issues. Local Implementing Agencies may like to enter into partnerships with CSOs

for management of waste and creating zero waste communities.

Other Relevant Agencies


23

Similarly, all agencies which are stakeholders in solid waste management will create enabling policies, in-

struments and guidelines for promoting integrated solid waste management for achieving a zero waste

vision.

Waste Management at Dzongkhag and Gewog Levels

For the purpose of waste management within Dzongkhag, Dungkhag, Gewog, Chiwog, Yenlag, Thromde

and Institutions within a Dzongkhag, the District Environment Committee (DEC) constituted under Envi-

ronment Protection Act, (EPA) 2007 should ensure implementation of the waste regulations using this

strategy:

The DEC should follow the regulations and strategy for waste management within the Dzongkhag

including their implementation in Dungkhag, Gewog, Chiwog, Yenlag Thromde and Institutions

within the Dzngkhag.

Each Gewog, Chiwog, Yenlag or Thromde and Institutions within the Dzngkhag should have an MRF

cum storage system where it could store up to 4-5 tons of inorganic material which can be trans-

ported to the nearest processing site once in 2/3 months or as and when required.

Accountability for ISWM Activities

For the implementation of ISWM systems, the head of the Thromde/Dzongkhag/Gewog/Chiwog

should be made accountable for non-compliance.

For overall cleanliness and upkeep of the city, the person in charge of SWM should be made ac-

countable.

For compliance categories, the environment officers should be made accountable.

At the zone level, for cleanliness, including regular collection and segregation, Sanitation Inspectors

are accountable

For anti-littering enforcement, the Vigilance Squad and Sanitation Inspectors (with commensurate

power for on-the-spot fines given) should be made accountable.

13 Capacity Development Measures

The current capacity for ISWM within Implementing Agencies is very basic and limited to routine collec-

tion and disposal activities. Technical capacity is severely lacking among staff at all levels. This problem is

even more pronounced in small towns and villages. Most trainings carried out by the government are ad-

hoc and do not necessarily address the requirements of existing Act and Regulation.

Making the transition from individual learning to workplace performance outcomes and, subsequently, to

the development of capacity requires both a good training design and an appropriate institutional context.

Therefore, for training programs to be very effective, they will need to be embedded within the broader

institutional development strategies and functions for ISWM.

Furthermore, training builds capacity only when trainees have adequate resources and incentives to inte-

grate learning into their workplace. It is therefore important to ensure that the Lead Implementing Agen-

cies are able to own and implement as much as possible the Capacity Development of all related stake-

holders ranging from NEC to Implementing Agencies and Elected Representatives.

Hence it will be critical to create and develop a comprehensive Capacity Development Program for as-

sisting the service providers both public and private including the informal sector to perform adequate

jobs in solid waste management. Since the private sector and the informal sector are nascent in Bhutan, it

will require about 3-5 years of assistance to develop the private sector for ISWM services. The strategy for

Capacity Development should attempt to cover all urban areas wherever it seems economically feasible.


24

Capacity development is recommended as listed below:

Capacity building of the current national working group and other national counterparts throughout

the country on principles of ISWM and Zero Waste Communities

Regular capacity building of all Implementing Agencies public/private at all levels

Providing periodical short-term intensive training for the lower Thromde/Municipal officials and the

staff working in the field

Conducting periodical public campaigning on clean and healthy city themes by thromde/municipal

officials

Developing a team of local expertise in ISWM through both practice and external exposure

Developing a manual on ISWM for practitioner

Capacity Need Assessment Study based on a Institutional SWOT analysis

For capacity building of PPP and PSD, the capacity building assessment and design prepared by

UNDP and Thimphu Thromde should be used.

The emphasis of capacity building and development on a regular basis should be for the field staff.

It should focus on ISWM practices which should also include exposure trips to good practices.

14 Monitoring and Enforcement

There are generally two approaches to monitoring: top-down and bottom-up approaches. Top-down ap-

proach means that the relevant government authority designates dedicated personnel to monitor the

planned activities. Bottom-up approach means that cases or complaints are reported to the relevant gov-

ernment authority by any individual person, company or organization. Compliance, monitoring and en-

forcement are essential elements for effectiveness of government regulations because these regulations

are only useful and effective insofar as they can be complied through appropriate monitoring and en-

forcement.

For ISWM activity compliance, overall responsibility for Monitoring and Enforcement of Waste Prevention

and Management Act of Bhutan, 2009, and Waste Prevention and Management Regulation 2012 will rest

with the National Environment Commission, whereas the responsibility for day-to-day environmental mon-

itoring for ISWM activities will lie with the Implementing Agencies in respective Thromdes/ Municipali-

ties/Gewogs.

NEC should be given the necessary powers to penalize the Implementing Agencies in cases of non-

compliance of the Act (2009) and Regulation (2012).

Monitoring Mechanism at Local Level:

For larger towns, monitoring of implementation of this strategy should be done at three different levels

and should be coordinated by a Head of the Urban/Rural Area, who will form a Working Group on Envi-

ronment.

At the Thromde and Town Levels:

The Thromde Standing Committee on Environment will continually review progress made in implementa-

tion and will be assisted by the proposed Working Group on City Environment, which is to meet quarterly.

The committee will be responsible for the management and supervision of waste collection and segrega-

tion (including non-littering). It will also promote and monitor household-level compliance with the 4R

principle. Furthermore, it will keep the Implementing Agencies informed of non-arrival or delay of waste

collection vehicles or staff.

At the Zone Level:


25

For Medium-Level Towns, progress will be monitored and supervised by the zone-level Environment

Committee, which is to initially meet monthly, and later quarterly or as required and needed.

Dzongkhag Town Level:

At this level, a member appointed under the town committee will monitor the ISWM activities and its

compliance. All towns under the Dzongkhag will have an administrative officer and elected member in

charge of monitoring.

At the Lane/local Area Levels:

The lane/area committees will be responsible for the management and supervision of waste collection and

segregation (including non-littering). They will also promote and monitor household-level compliance with

the 4R principle. Furthermore, they will keep the Implementing Agencies informed of non-arrival or delay

of waste collection vehicles or staff.

At the Gewog/Chiwog Level:

At this level, one elected and one administrative officer will be assigned for routine monitoring of the

ISWM activities.

Grievance Redressal Mechanisms:

Computerized Complaints Redress System: All Thromdes should also set up an independent computer-

ized system for data collection and to process and coordinate complaints from residents.

Creation of an EPM/SWM Vigilance Squad: In collaboration with the city police and the Environment Pro-

tection Committee, the Thromdes should set up an environment vigilance squad with authority to monitor

all waste-related regulations and plans with powers for spot fines for non-compliance.

For enforcing Anti-littering provisions, the NEC/Implementing Agencies may decide to take the help of the

Royal Bhutan Police to achieve full compliance under the current Act/Regulation.

Key Elements of Monitoring and Enforcement

The key elements of monitoring the ISWM activities mentioned in the Regulation and Strategy are:

1. collection, segregation and transportation

2. processing of both organic and inorganic waste

3. illegal dumping at other than designated sites

4. Sanitary landfill management

5. Target achievements as mentioned in the strategy document

6. Any other activity mentioned in the Regulation

15 Service Level Benchmarking for ISWM

Service Level Benchmarking is now well recognized as an important mechanism for introducing accounta-

bility in service delivery in urban services, including solid waste management. It involves measuring and

monitoring of service provider performance on a systematic and continuous basis. Sustained benchmark-

ing can help utilities to identify performance gaps and introduce improvements through the sharing of

information and best practices, ultimately resulting in better services to people. The importance of service

level benchmarking should be recognized, and the Royal Government of Bhutan should launch the Service

Level Benchmarking (SLB) initiative in solid waste management. It should cover:


26

Solid Waste Management: ( All 100%) % Bench Marking: (100% for all)

1. Household level coverage of Solid Waste Management services 80%

2. Efficiency of collection of municipal solid waste 90%

3. Extent of segregation of municipal solid waste 80%

4. Extent of municipal solid waste recovered 80%

5. Extent of scientific disposal of municipal solid waste 90%

6. Extent of cost recovery in Solid Waste Management services 100%

7. Efficiency in redressal of customer complaints 100%

The principle of benchmarking is to be introduced and endorsed by the NEC in consonance with relevant

agencies. NEC may recommend to include Service Level Benchmarking as one of the conditions for alloca-

tion of performance-based grants to Thromdes/Dzongkhags/ for encouraging improved ISWM practices

and services.

Action Plan and Timeline

ISWM Activity 2014 2015 2016 2017 2018 2019 2020 2021-30

Data collection and inventiori-zation

All Thromdes collect credi-ble data on waste genera-tion and com-position

All towns do the same

Door-to-door collection of waste

To be started in all Thromdes

All Thromdes & small munic-ipalities provide 100% ser-vices

All towns are covered by door-to-door collec-tion

Segregation Initiated after 3 months of regular collection

All HH do segregation, penalty provi-sion initiated

All towns carry out segregation

All vil-lages practise segrega-tion

Segregation achieved 80% and above

Transfer sta-tions/ MRF

All Thromdes have at least 1 transfer sta-tion/ MRF

25% of towns have MRF

50% of towns and villages have MRF

100% towns and villages have MRF

Processing of organic Waste

10% of pro-cessing of organic waste starts

20% 30% 40% 100%

Recycling businesses

At least 4-5 semi- pro-cessing busi-nesses devel-oped

All informal businesses are formal-ized

Upgrading of current dump sites

All open, legal or illegal dump sites are identified

All illegal dumpsite are closed – identi-fied dumpsites are upgrad-ed at least in

All Dump sites are upgraded

Open dumping stops/ closed in all places


27

all Thromdes

Sanitary land-fills

Regional sanitary land-fills identified

At least 1 RL starts con-struction

All RL become opera-tional

Learning Lab Towns for Zero Waste

One town of less than 50,000 select-ed and initiat-ed

One town achieves 60% reduc-tion in waste dumping

Town be-comes Learning Lab Zero Waste town

2-5 towns be-come Learning Labs

Replica-tion starts

com-pleted in all areas

Zero Waste- ISWM practic-es

All Thromdes operational-ize Zero Waste prac-tices

All Dzong-khags adopt Zero Waste Practices

Zero Waste practices com-pleted

Polluter ays principles

All Implementing Agencies finalize Polluter Pays Principles

All Thromdes implement PPP

All towns initiate PPP

Zero Waste Schools

5 schools become ZWS

15 30 50 100 All

EPR EPR Policies final-ized

EPR policies apply

Financial secu-rity

10% of O&M cost recovery starts

50% O%M cost recov-ered

100% O&M cost recov-ered


28

Annex I: Technology Options

Technology/

Process

Advantages Disadvantages Approx. Cost

Biological Treatment Options

Anaerobic

Digestion

Energy recovery with production of

high grade soil conditioner.

No power requirement, unlike

aerobic composting, where sieving

and turning of waste pile for

supply of oxygen is necessary.

Heat released is less – resulting in

lower and less effective destruction

of pathogenic organisms than in

aerobic composting. However,

thermophilic temperature systems

are now also available to take care

of this.

Enclosed system enables all the

gas produced to be collected for

use.

Controls Greenhouse Gas

emissions.

Free from bad odour, rodent and

fly menace, visible pollution and

social resistance.

Modular construction of plant and

closed treatment needs less land

area.

Net positive environmental gains.

Can be done at small scale.

Unsuitable for wastes containing

less organic matter.

Requires waste segregation for

improving digestion efficiency.

Annual O&M and shutdown.

6-8 million tons for a

5-ton plant

Aerobic/

Vermin

Composting

Gives good stable compost

products, which can be safely used

as soil nutrient and conditioner.

Tried and tested for centuries all

over the world.

Cheapest of all organic waste

technologies for processing.

Requires more land space than

any other technique.

Fear of foul odour if not handled

by trained staff.

Large time span for maturation

from waste to compost

particularly in cold regions

3-4 million for a 5-

ton plant

Waste to Energy Options

Landfill Gas

Recovery

Least-cost option. The gas

produced can be utilized for power

generation or as domestic fuel for

direct thermal applications.

Natural resources are returned to

soil and recycled.

Suitable for large quantities of

waste.

Requires huge amount of waste

and landfill area.

Greatly polluted surface run-off

during rainfall.

Skilled personnel necessary. Soil

/ groundwater aquifers may get

contaminated by polluted

leachate in the

absence of a proper leachate

treatment system.

Inefficient gas recovery process

yielding 30-40% of total gas

generation. Balance gas escapes

into the atmosphere.


29

Significant source of two major

Greenhouse gases, carbon

dioxide and methane.

Significant transportation costs

to faraway landfill sites may

upset viability. Cost of pre-

treatment to upgrade the gas to

pipeline quality and leachate

treatment may be significant.

Spontaneous ignition/explosions

due to possible build-up of

methane concentrations in

atmosphere is a probability.

Incineration Most suitable for high Calorific

Value waste, pathological wastes,

etc.

Thermal Energy recovery for direct

heating or power generation.

Relatively noiseless and odourless.

Low land area requirement.

Can be located within city limits,

reducing the cost of waste

transportation.

Hygienic.

Least suitable for aqueous/ high

moisture content/ low calorific

value waste, and units require

continuous feed and high

calorific value waste.

Chlorinated waste, excessive

moisture and inert content may

cause toxic emissions.

Affects net energy recovery as

auxiliary fuel support may be

required to sustain combustion.

Concern for toxic metals that

may concentrate in ash and

smoke.

Very high capital and O&M costs.

Highly skilled personnel required

for O&M.

Overall efficiency low for small

WtE power plants.

60-80 million per

megawatt plant

Pyrolysis/

Gasification

Production of fuel gas/oil, which

can be used for a variety of

applications,

Compared to incineration, control

of atmospheric pollution can be

dealt with in a superior way, in a

techno-economic sense.

Net energy recovery may suffer

in case of wastes with excessive

moisture. High viscosity of

pyrolysis oil may be problematic

for its transportation & burning.

High cost and not a filed proven

technology.

90-120 million per

megawatt plant

Refuse Derived

Fuel (RDF)

Can replace some amount of coal

or other fuel in cement kiln or

where there are non-renewable

energy plants.

Requires high calorific value

waste.

Needs good standard pre-

sorting.

Requires more than 200 tons of

daily waste to be viable.

Concern that burning of

chlorinated material may cause

environmentally harmful

emissions like dioxins and furans.

120-150 million for a

100- ton plant


30

References

UNEP, report on Preparation of ISWM Strategy, 2005

RGoB, Waste Prevention and Management Regulation 2012

Thnimphu Municipality, PPP & ISWM Capacity Assessment and Capacity Development Strategy – 2012

Partnerships for Effective Municipal Service Delivery, Thimphu Thromde, Bhutan, (UNDP) 2012

Studying municipal solid waste generation and composition in the urban areas of Bhutan - Waste Management – Online First, published on October 16, 2009

ENHANCING MUNICIPAL SOLID WASTE MANAGEMENT SYSTEM WITH 3R OPTIONS IN THIMPHU, BHUTAN, by Yeshey Penjor, A thesis submitted in partial fulfillment of the requirements for the degree of Master of Science in Envi-ronment Engineering and Management – 2007

Patricia D. Millner, Food Safety & Sustainable Agriculture Laboratory Beltsville Agricultural Research Center 2010

Incinerators: Myths vs. Facts about “Waste to Energy” – GAIA 2003

National Strategy and Action Plan, ISWM – MoWHS, 2007

THE LOCAL GOVERNMENTS’ ACT OF BHUTAN, 2007

Manual on Municipal Solid Waste Management, Ministry of Urban Development, Government of India, 2001

Municipal Solid Waste Management

on a Regional Basis, Guidance Note, Ministry of Urban Development, Government of India, 2007

Formulation and Implementation of

Operation Strategies Used in Solid

Waste Management:

Case Study of City Council of Nairobi, Journal of African Research in Business & Technology

http://www.ibimapublishing.com/journals/JARBT/jarbt.html

Vol. 2010 (2010), Article ID 842702, 21 pages

Integrated Solid Waste Management Plan For the City of Nairobi, Kenya Developed by Members of the Environmental & Process Systems Engineering Group Led by Associate Professor Harro von Blottnitz University of Cape Town

Resource Up in Flames, The ECONOMIC Pitfalls of Incineration vs a Zero Waste Approach in Global South, Brenda Platt, Institute for Local Self Reliance – for GAIA, 2004

Republic Level Waste Strategic Master Plan, Montenegro – GOPA

Solid Waste Management - Strategy for the Pacific Region, 2005

A Handbook on Waste Management in Rural Tourism Areas, A Zero Waste Approach, Thanal & UNDP India

DEVELOPING AN INTEGRATED SOLID WASTE MANAGEMENT PLAN – A TRAINING MANUAL, Vol 1-4

Preparing a Waste Management Plan - A methodological guidance note- European Commission Environment DG

The MSW Planning Guide – ERM – Germany, 2001

Waste Prevention Act – Bhutan, 2009

Cost Related to Health Care Waste Management – WHO Guidelines

How are We managing Our Health Care Waste – Skat, 1999

Compendium of Technologies for Treatment / Destruction of Healthcare Waste, UNEP –

GUIDELINE FOR MEDICAL WASTE MANAGEMENT IN HEALTHCARE FACILITIES- Bhutan Draft Guidelines, MoH, 2013

UNOPS, 2007

UNOPS, 2007, MoWHS 2007A

Kuensel – 2005, 2006


31

Waste Survey Report MoWHS 2007


32

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