GOVERNMENT OF INDIA

MINISTRY OF URBAN DEVELOPMENT

http://moud.gov.in

Central Public Health and Environmental

Engineering Organisation (CPHEEO)

IN COLLABORATION WITH

German International Cooperation

2016
In keeping with the advancements in this sector, updates as and when found necessary will be hosted in the
Ministry website: http://moud.gov.in/ and the reader is advised to refer to these also.

All rights reserved

No, portion of this document may be reproduced / printed for commercial purpose without the prior permission of
the Ministry of Urban Development, Government of India

Designed under contract with GIZ by Aspire Design, New Delhi

Part I:
An Overview

Part 1 - Salient FeatureS oF the mSwm manual: an overview iii

 MESSAGE

v
vi Manual on Municipal Solid WaSte ManageMent

FOREWORD
viii Manual on Municipal Solid WaSte ManageMent
PREFACE

x Manual on Municipal Solid WaSte ManageMent

ix
ACkNOWLEDGEMENT
xi
xii Manual on Municipal Solid WaSte ManageMent
xiv Manual on Municipal Solid WaSte ManageMent

xiii
 VISION STATEMENT

The Ministry of Urban Development’s vision of Swachh Bharat emanates from the
vision of the Government, articulated in the address of The President of India in his
address to the Joint Session of Parliament on 9th June 2014:

“We must not tolerate the indignity of homes without toilets and public
spaces littered with garbage. For ensuring hygiene, waste management and
sanitation across the nation, a “Swachh Bharat Mission” will be launched.
This will be our tribute to Mahatma Gandhi on his 150 th birth anniversary to
be celebrated in the year 2019”

To accomplish the vision of Swachh Bharat expeditiously, particularly on solid waste

management, the Ministry of Urban Development (MoUD), through this Manual, aims
at guiding all waste generators particularly Urban Local Bodies towards Sustainable
Solid Waste Management by adopting suitable measures for waste minimisation at
source with an emphasis on the principles of 3Rs, comprising Reduce, Reuse and
Recycle; with proper systems of segregation, collection, transportation, processing,
treatment and disposal in complete harmony with the environment and in line with
prevalent regulations.
 TABLE OF CONTENTS

Message v

Foreword vii

Preface ix

Acknowledgement xi Vision Statement xv Abbreviations xxi

Chemicals and Compounds xxvii

Metric Conversion Table xxix

1. Introduction: How to use this Manual 3

1.1 Background 3
1.2 Salient Features 4
1.3 Structure of the Manual 4
1.4 Layout of the Manual 5

2. Management Aspects: Planning, Institutional and Financial Aspects 6

2.1 The Regulatory Framework: Key Requirements by the
Solid Waste Management Rules, 2016 and Other Directives 6
2.2 Modern Integrated Municipal Solid Waste Management:
Concepts and Benefits 8
2.3 Preparation of a Municipal Solid Waste Management Plan – A
Seven Step
Approach 11
2.3.1 Step 1: Policies, Programmes and Legal Framework 13
2.3.2 Step 2: Assessment of Current Situation and Gap Analysis
13
2.3.3 Step 3: Stakeholder Consultation for Municipal Solid Waste
Management Planning 13
2.3.4 Step 4: Preparation of draft Municipal Solid Waste
Management Plan 13
2.3.5 Step 5: Schedule for Implementation 13
2.3.6 Step 6: Stakeholder Consultation for Municipal Solid Waste
Management Plan Validation 14
2.3.7 Step 7: Municipal Council Approval for Municipal Solid Waste
Management Plan and Implementation Including Public Private
Partnership 14
2.4 Role of State and Regional Level Authorities 14
2.4.1 Creation of Regional Facilities 15
2.5 Understanding Local Solid Waste Management Needs 15
2.6 Role of Stakeholders In Municipal Solid Waste
xvi Manual on Municipal Solid WaSte ManageMent
 Management Planning 16
2.7 Establish Appropriate Institutional Mechanisms 17
2.8 Ensure Sustainable Financing for Municipal Solid Waste
Management 18
2.9 Make-or-Buy Decisions / Public Private Partnership (PPP)
22
2.10 Centralised Vs. Decentralised Municipal Solid Waste
Management Systems 25
2.11 Role of the Informal Sector 26

3. Technical Aspects: Segregation, Collection and Transportation 27

3.1 At-source Minimisation: Options to Reduce the Amount of Waste
27
3.2 Waste Segregation, Collection and Transportation 29
3.2.1 Segregated Collection and Transportation 30
3.2.2 Street Cleaning and Drain Cleaning 33

4. Technical Aspects: Processing and Treatment of Municipal Solid Waste 34

4.1 Waste treatment: How to Select Appropriate Technologies
34
4.2 Recycling and Recovery 43
4.3 Processing Technologies 44
4.3.1 Material Recovery Facility 44
4.3.2 Composting 44
4.3.3 Waste to Energy 45
4.3.4 Incineration 45
4.3.5 Biomethanation 46
4.3.6 Refuse Derived Fuel 46
4.3.7 Technologies Under Development 47
4.3.8 Construction and Demolition Waste Management 47

5. Technical Aspects: Solid Waste Disposal in Municipal Sanitary Landfills 48

5.1 Where it All Ends: Ensure Planning and Operation of State-of-the-
Art
Landfills 48

6. Municipal Solid Waste Management Plan Implementation 50

6.1 Municipal Solid Waste Management Plan Implementation and
Requisite Clearances 50
6.2 Contracting Arrangements for Municipal Solid Waste
Management
Plan Service Provision 52

xvii
 6.2.1 Enabling Conditions for Successful Private Sector Participation
and
Public private Partnership Contracts 53

7. Management Aspects: Monitoring Municipal Solid Waste Service Provision 54

7.1 Monitoring Municipal Solid Waste Management Plan
Implementation 54
7.2 Importance of Operation and Maintenance for Ensured Service
Delivery 56

8. What to do with ‘Special Waste Including Domestic Hazardous Waste’? 57

9. Adequate Training and Capacity Building for Municipal Solid Waste

Management Plan Staff 58

10. Effective Community Participation through Information, Education and

Communication 59

11. Research & Development and Demonstration Project Needs for the
Municipal Solid Waste Sector 59
11.1 Quantity and Characteristics of Municipal Solid Waste 59
11.2 Segregated Storage at Source 60
11.3 Collection and Transport of Segregated Waste Streams 60
11.4 Processing of Municipal Solid Waste 61
11.5 Sanitary Landfilling 61
11.6 Remediation of Dumpsite 61

12. Roadmap 61

LIST OF FIGURES AND TABLES

FIGURES

Figure 1.1: Integrated Solid Waste Management Hierarchy 9

Figure 1.2: Seven-Step Approach for Developing a Municipal Solid Waste
Management Plan 12
Figure 1.3: Municipal Solid Waste Management Gap Analysis 16
Figure 1.4: Types of Costs to be Reflected in the Full Cost Accounting (FCA) 19
Figure 1.5: Illustration of Solid Waste Management Revenue Streams 21
Figure 1.6: Bins for Collection of Dry, Wet and Domestic Hazardous Waste at Households
30 Figure 1.7: Flow Chart of Household Waste Collection, Transportation and Disposal
32 Figure 1.8: Typical Fractions of Municipal Solid Waste Generated in India 43
Figure 1.9: Components of a Sanitary Landfill 48
Figure 1.10: Components of Short Term (5 years) Municipal Solid Waste
Management Plan Implementation 50
xviii Manual on Municipal Solid WaSte ManageMent
 TABLES

Table 1.1: Options for Contracting Services 22

Table 1.2: Indicative Criteria for Selection of Appropriate Technology or
Combination of Technologies 35
Table 1.3: Service Level Benchmarks for Solid Waste Management 55

ABBREVIATIONS

ABC Asphalt, Brick and Concrete

ABS Area Based System
AD Anaerobic Digestion
ADB Asian Development Bank
ADDA Asansol Durgapur Development Authority
ADS Air Density Separator / De-stoner
AFR Alternative Fuels and Raw material
ALM Advanced Locality Management
AMC Asansol Municipal Corporation
APITC Andhra Pradesh Industrial & Technical Consultancy Organization
APPCB Andhra Pradesh Pollution Control Board
ASR Auto Shredder Residue
ASTM American Society for Testing and Materials
xix
 BARC Bhabha Atomic Research Centre
BBMP Bruhat Bangalore Mahanagara Palika
BFB Bubbling Fluidized Bed
BIS Bureau of Indian Standards
BOD Biochemical Oxygen Demand
BOO Build Own Operate
BOOT Build Own Operate and Transfer
BOT Build Operate Transfer
C&D Construction & Demolition
CA Concession Agreement
CAA Constitutional Amendment Act
CBG Compressed Biogas
CBOs Community Based Organizations
CCF Clean City Foundation
CE Combustion Efficiency
CEO Chief Executive Officer
CFB Circulating Fluidized Bed
CFL Compact Fluorescent Lamps
CIPET Central Institute of Plastics Engineering and Technology
CMA Commissionerate of Municipal Administration
CMWMF Common Municipal Waste Management Facilities
CNG Compressed Natural Gas
CoC Cochin Municipal Corporation
COD Chemical Oxygen Demand
CoP Corporation of Panaji
CPCB Central Pollution Control Board
CPHEEO Central Public Health and Environmental Engineering Organization
CPU Carcass Processing Unit
CPWD Central Public Works Department
CREDAI Confederation of Real Estate Developers’ Associations of India
CRRI Central Road Research Institute
CSI City Sanitary Inspector
CSP City Sanitation Plan
CSTR Continuously Stirred Tank Reactor
D2D Door-to-door
DBFOT Design, Build, Finance, Operate and Transfer
DBO Design-Build-Operate
DBOOT Design-Build-Own-Operate and Transfer
DC Drain Cleaning
DEA Department of Economic Affairs
DMA Directorate of Municipal Administration
DMC Durgapur Municipal Corporation

xx Manual on Municipal Solid WaSte ManageMent

 DPR Detailed Project Report
DRANCO Dry Anaerobic Composting
DRE Destruction Removal Efficiency
DWCC Dry Waste Collection Centres
EAC Expert Appraisal Committee
EDMC East Delhi Municipal Corporation
EIA Environment Impact Assessment
EM Effective Micro Organisms
EMP Environmental Management Plan
EoI Expression of Interest
EPF Employment Provident Fund
EPR Extended Producer Responsibility
EPS Expanded Polystyrene
EPTRI Environment Protection Training and Research Institute
ESI Employees’ State Insurance
ESP Electrostatic Precipitator
ETP Effluent Treatment Plant
EU European Union
FAQ Frequently Asked Question
FCA Full Cost Accounting
FCO Fertilizer Control Order
FGT Flue Gas Treatment

FRP Fiber Reinforced Plastic

GCL Geo Synthetic Clay Liner
GDP Gross Domestic Product
GHG Green House Gas
GIS Geographic Information System
GNCTD Government of National Capital Territory of Delhi
GoI Government of India
GPRA General Pool Residential Accommodation
GPRS General Packet Radio Identification
GPS Global Positioning System
GSB Granular Sub Base
GSI Geologic Survey of India
HAPs Hazardous Air Pollutants
HDPE High-Density Polyethylene
HH Households
HRT Hydraulic Retention Time
HUDCO Housing and Urban Development Corporation
IARI Indian Agricultural Research Institute
IC Internal Combustion

xxi
 ICICI Industrial Credit and Investment Corporation of India
ICT Information and Communication Technology
IDBI Industrial Development Bank of India
IDFC Infrastructure Development Finance Company
IEC Information, Education and Communication
IEISL IL&FS Environmental Infrastructure and Services Limited
IFCI Industrial Finance Corporation of India
IGCC Integrated Gasification Combined Cycle
IL&FS Infrastructure Leasing and Financial Services
ILO International Labour Organization
IMD Indian Meteorological Department
IPNM Integrated Plant Nutrient Management
IREDA Indian Renewable Energy Development Agency
IS Indian Standards
ISWM Integrated Solid Waste Management
ITB Instruction to Bidders
JBIC Japan Bank for International Cooperation
JMC Jabalpur Municipal Corporation
JnNURM Jawaharlal Nehru National Urban Renewal Mission
KfW Kreditanstalt für Wiederaufbau
KKPKP Kagad Kach Patra Kashtakari Panchayat
KKPNSPS Kagad Kach Patra Sahkari Patra Sansthan

KMC Kolkata Municipal Corporation

KPI Key Performance Indicators
LCD Liquid Crystal Display
LCS Leachate Collection System
LCV Light Commercial Vehicle
LDO Light Diesel Oil
LDPE Low-density polyethylene
LED Light Emitting Diode
LEL Lower Explosive Limit
LIC Life Insurance Corporation of India
LoI Letter of Intent
LPG Liquid Petroleum Gas
M&E Monitoring & Evaluation
MCD Municipal Corporation of Delhi
MCGM Municipal Corporation of Greater Mumbai
MIS Management Information System
MMRDA Maharashtra Metropolitan Regional Development Authority
MNRE Ministry of New and Renewable Energy
MoA Ministry of Agriculture
MoEFCC Ministry of Environment and Forests & Climate Change
xxii Manual on Municipal Solid WaSte ManageMent
MoUD Ministry of Urban Development
MPPCB Madhya Pradesh Pollution Control Board
MRF Material Recovery Facility
MSW (M&H) Municipal Solid Waste (Management and Handling)
MSWMP Municipal Solid Waste Management Plan
NABARD National Bank for Agriculture and Rural Development
NABL National Accreditation Board for Testing and Calibration Laboratories
NAC Notified Area Committee
NAPCC National Action Plan on Climate Change
NBCC National Buildings Construction Company
NCC National Cadet Corps
NCRPB National Capital Region Planning Board
NCV Net Calorific Value
NEERI National Environmental Engineering Research Institute
NGO Non- Government Organization
NGRI National Geophysical Research Institute
NIMBY Not in My Backyard
NMC Nashik Municipal Corporation
NMMC Navi Mumbai Municipal Corporation
NMSH National Mission on Sustainable Habitat
NTPC National Thermal Power Corporation
NUSP National Urban Sanitation Policy
O&M Operation and Maintenance
OEM Original Equipment Manufacturer
OHSAS Occupational Health and Safety Assessment System
OMC Optimum Oxygen Content
OWC Organic Waste Converters
PBG Performance Bank Guarantee
PBVS Parisar Bhagini Vikas Sangha
PCC Pollution Control Committee
PCMC Pimpri Chinchwad Municipal Corporation
PFDF Pooled Finance Development Fund
PIL Public Interest Litigation
PIM Project Information Memorandum
PNG Piped Natural Gas
PPE Personal Protection Equipment
PPP Public Private Partnership
PROM Phosphate Rich Organic Manure
PS Polystyrene
PSA Pressure Swing Adsorption
PSP Private Sector Participation
PTO Power Take-Off
PUF Polyurethane Foam
xxiii
 PVC Polyvinyl Chloride
PVP Parisar Vikas Programme
RA Recycled Aggregates
RCA Recycled Concrete Aggregates
RCC Reinforced Cement Concrete
RDF Refuse Derived Fuel
RFID Radio Frequency Identification
RFP Request for Proposal
RFQ Request for Qualification
RMC Ready Mix Concrete
RPM Respirable Particulate Matter
RSPM Respirable Suspended Particulate Matter
RWA Resident Welfare Association
S.I. Sanitary Inspector
S.O Sanitary Officer
S.S. Sanitary Supervisor
S.S.I Sanitary Sub-Inspector
SC&T Street Collection & Transportation
SCR Selective Catalytic Reduction

SEAC State Expert Appraisal Committee

SEHB Shimla Environment Heritage Conservation and Beautification Society
SEIAA State Environment Impact Assessment Authority
SHGs Self Help Groups
SLB Service Level Benchmark
SLF Sanitary Landfill Facility
SMC Saharanpur Municipal Corporation
SMS Stree Mukti Sanghathana
SNCR Selective Non-catalytic Reduction
SOP Standard Operating Procedure
SPCB State Pollution Control Board
SPFE State Pooled Finance Entities
SPI Society of the Plastics Industry
SS Street Sweeping
SSD Saturated Surface Dry
SSS State Sanitation Strategy
STP Sewage Treatment Plant
SWaCH Solid Waste Collection & Handling
TCLP Toxicity Characteristic Leaching Procedure
TEAM TERI Enhanced Acidification and Methanation
TERI The Energy & Resources Institute
TOR Terms of Reference

xxiv Manual on Municipal Solid WaSte ManageMent

TPD Tonnes per Day
TSDF Treatment, Storage & Disposal Facility
UAFP Up-flow Anaerobic Filter Process
UASB Up-flow Anaerobic Sludge Blanket
UDD Urban Development Department
UIDSSMT Urban Infrastructure Development Scheme for Small & Medium Towns
UIG Urban Infrastructure and Governance
ULB Urban Local Body
UNDP United Nations Development Programme
UNFCCC United Nations Framework Convention on Climate Change
UV Ultra Violet
VAT Value Added Tax
WEEE Waste of Electrical and Electronic Equipment
WMC Warangal Municipal Corporation
WOW Waste Out of Wealth
WPLF Waste Processing & Landfill
WTE Waste to Energy
CHEMICALS AND COMPOUNDS

As Arsenic
C Carbon
C6H5OH Phenol / Carbolic Acid
Cd Cadmium
CH4 Methane
Cl Chloride
CN Cyanide
CO Carbon monoxide
Co Cobalt
CO2 Carbon dioxide
Cr Chromium
Cu Copper
F Fluoride
H2S Hydrogen sulphide
HCl Hydrochloric acid
HF Hydrogen fluoride
Hg Mercury
K Potassium
K2O Potassium Oxide
KF Potassium fluoride
Li-ion Lithium-ion
LSHS Low Sulphur Heavy Stock
Mn Manganese
Multi station
xxv
 MS
N Nitrogen
Ni Nickel
NO Nitrogen monoxide
NOx Nitrogen oxides
P Potassium
P2O5 Phosphorus pentoxide
PAHs Polychlorinated Aromatic Hydrocarbons
Pb Lead
PCBs Polychlorinated biphenyl
PCDD Polychlorinated di-benzodioxins
PCDF Polychlorinated di-benzofurans
PET Polyethylene terephthalate
pH Acidity or alkalinity of a solution

PM Particulate Matter
POP Persistent Organic Pollutants
PP Polypropylene
Sb Antimony
Sn Tin
SO2 Sulphur oxide
SO4 Sulphate
Th Thorium
TI Thallium
TOC Total organic carbon
TPH Tonnes per Hour
V Vanadium
VOC Volatile Organic Compound
Zn Zinc

xxvi Manual on Municipal Solid WaSte ManageMent

METRIC CONVERSION TABLE

AREA
ha Hectares 1 hectare = 2.47 acres or 1,07,639 square feet
(sq ft)
sq.km Square kilometre 1 sq. km = 0.386102 square mile (sq mi)
LENGTH
km Kilometre 1 km = 1000 m
m Meter 1 m = 1000 cm
cm Centimetre 1 cm = 1000 mm
mm Millimetre 1 mm = 1000 µm
µm Micrometre

VOLUME
l Litre 1 l = 0.001 m m3
m3 or cu.m Cubic metre 1 m3 or cu.m = 10,00,000 cm3
cm3 Cubic centimetre 1 cm3 = 1e+21 Nm3
Nm3 Normal cubic metres

TEQ / Nm3 Dioxin toxic equivalent per

normal cubic metres
KLD Kilolitre per day

MASS
MT or T Metric tonne or tonne 1 MT or T = 1000 kg
kg Kilogram 1 kg = 1000 g
g Gram 1 g = 10,00,000 μg
μg Microgram

gsm Grams per square metre

ENERGY
MW Megawatt 1 MW = 1000 KW
kW Kilowatt 1 KW = 1000 W
kcal Kilocalories 1 kcal = 1000 cal
TEMPERATURE
°C Celsius 1°C = 33.800 Fahrenheit (°F)
CURRENCY CONVERSION CHART
INDIAN NUMBERING SYSTEM INTERNATIONAL NUMBERING SYSTEM
One lakh 1,00,000 One hundred thousand 100,000

Ten lakhs 10,00,000 One million 1,000,000

One crore 1,00,00,000 Ten millions 10,000,000

Ten crores 10,00,00,000 Hundred millions 100,000,000

xxvii
 Hundred crores 100,00,00,000 One billion
1,000,000,000

xxviii Manual on Municipal Solid WaSte ManageMent

 Part 1

Salient Features of the

Municipal Solid Waste
Management Manual:
An Overview

Part 1 - Salient FeatureS oF the mSwm manual: an overview 1

 IN THIS SECTION

1. Introduction: How to use this Manual 3

2. Management Aspects: Planning, Institutional and Financial Aspects 6
3. Technical Aspects: Segregation, Collection and Transportation 27
4. Technical Aspects: Processing and Treatment of Municipal Solid Waste 34
5. Technical Aspects: Solid Waste Disposal in Municipal Sanitary Landfills 48
6. Municipal Solid Waste Management Plan Implementation 49
7. Management Aspects: Monitoring Municipal Solid Waste Service Provision 54
8. What to do with ‘Special Wastes Including Domestic Hazardous Waste’? 57
9. Adequate Training and Capacity Building for Municipal Solid Waste
Management Staff 58
10. Effective Community Participation through Information, Education and
Communication 59
11. Research and Development and demonstration project needs for the
Municipal Solid Waste Sector 59
12. Roadmap 61

2 Manual on Municipal Solid WaSte ManageMent

 1. INTRODUCTION: HOW TO USE THIS MANUAL
1.1 BACkGROUND
Urban India is facing an ever increasing challenge of providing for the incremental
infrastructural needs of a growing urban population. According to the 2011 census, the
population of India was 1.21 billion, of this 31% live in cities. It is projected that by 2050,
half of India’s population will live in cities.

With this increasing population, municipal solid waste management (MSWM) in the country
has emerged as a challenge not only because of the environmental and aesthetic concerns,
but also because of the huge quantities of municipal solid waste (MSW) generated every
day. According to Central Pollution Control Board (CPCB), 1,43,449 tonnes per day (TPD)
of MSW was generated in India during 2014–2015, with an average waste of 0.11 kilogram
(kg)/capita/day. Of the total MSW, approximately 1,17,644 TPD (80%) was collected, while
only 32,871 TPD (22%) was processed or treated. Segregation at source, collection,
transportation, treatment, and scientific disposal of waste was largely insufficient leading to
degradation of the environment and poor quality of life.

In the 1990s, it became first evident that MSWM was getting critical when largescale
concerns regarding unsuitable MSWM practices resulted in numerous public interest
litigations (PILs), prompting the Supreme Court of India to constitute a committee to look
into the status of MSWM in the country. The said committee submitted the report on Solid
Waste Management in Class I Cities in India to the Supreme Court in 1999. Subsequently,
the Supreme Court directed the Ministry of Environment, Forests and Climate Change
(MoEFCC) to release the MSW (Management & Handling [M&H]) Rules, 2000 requiring
all urban local bodies (ULBs) to establish a proper waste management system, including a
timeline for installation of waste processing and disposal facilities by the end of 2003, not
only for metro cities and class I cities but also for all ULBs in the country. The Ministry of
Urban Development (MoUD) also developed an MSWM manual to provide technical
guidance to all ULBs and published it simultaneously with the MSW (M&H) Rules, 2000.

Funds were allocated under 12th and 13th Finance Commission Grants, for improvement of
MSWM under programmes like Jawaharlal Nehru National Urban Renewal Mission
(JnNURM), Urban Infrastructure Development Scheme for Small & Medium Towns
(UIDSSMT) in 2005. In 2008, National Urban Sanitation Policy was launched that covered
urban sanitation including solid waste management as an important component.

However, despite encouraging pilots and achievements, most ULBs continue to face
challenges not only in the areas of appropriate and advanced collection and transportation
systems, technology selection, and disposal methods, but also in sustainable financial
management of MSWM. The non-compliance issue is still true after 16 years of the
notification of the MSW (M&H) Rules, 2000.

In order to give a push to the municipal solid waste management in cities, the Ministry of
Urban Development launched the Swachh Bharat Mission in 2014. The Swachh Bharat
Mission (SBM) emanates from the vision of the Government articulated in the address
of the honourable President of India in his address to the Joint Session of Parliament on 9th
June 2014 wherein the indignity of homes without toilets and public spaces littered with

Part 1 - Salient FeatureS oF the mSwm manual: an overview 3

 garbage should not be tolerated. SBM seeks to promote cities as engines of economic growth
through improvement in the quality of urban infrastructure, with assured service levels and
efficient governance. SBM aims to address the challenges in management of municipal solid
waste and to support cities in developing modern and appropriate systems.

The Ministry of Environment Forests & Climate Change has also recently revised the MSW
(M&H) Rules, 2000 and renamed it ‘Solid Waste Management (SWM) Rules, 2016’. The
Ministry of Urban Development has also parallelly revised the MSWM Manual, 2000. The
revised manual is based on 16 years of learning experience gained in India post the
publication of its first edition in 2000.

1.1 SALIENT FEATURES

The revised manual includes: zz a wealth of practical experiences gained from many ULBs on
what works and what may not work under specific conditions, post 2000; zz the reflection of
new technologies and approaches available in the MSWM sector in India; zz improved
institutional approaches and planning tools such as a combined planning for MSWM and
urban sanitation; zz a better understanding of integrated solid waste management (ISWM) as a
holistic approach that not only focuses on technical aspects of MSWM but also addresses
issues of waste minimisation, reuse, and recycling, and of sociocultural (inclusivity),
institutional, financial, and legal aspects; zz newly emerging issues or themes such as climate
change, relevance of informal sector to MSWM, as well as its links to gender equity and
genderrelated issues; and zz the need for state and regional strategies and handholding support
for MSWM by cities.

The revised manual addresses all aspects (planning, technical, institutional, financial, and
legal) of MSWM.
1.2 STRUCTURE OF THE MANUAL
The manual has the following structure and addresses different target groups in its different
sections:
Part I: An overview,provides the salient features of the MSWM Manual especially for
decision makers, elected office bearers, and senior bureaucrats at different levels of
governance. It provides decision makers with an overview on key issues of MSWM and
promotes understanding of challenges and opportunities, thereby guiding them in initiating
necessary processes to achieve goals.
Part II: The Manual, this is the main body of the manual and is primarily for the financial
and technical heads of department at ULB level, health officers, technical staff, and private
operators. This section provides a detailed description of technologies for treatment and
processing of waste, applicability of evolving technologies, and planning frameworks to
undertake concrete measures toward institutional strengthening and financial management
leading to sustainable MSWM. Part II comprises of seven chapters:

CHAPTER 1 Municipal Solid Waste Management Plan: Stepwise

Guidance
CHAPTER 2 Technical Aspects: Segregation, Collection, and Transportation
CHAPTER 3 Technical Aspects: Processing and Treatment of Municipal Solid Waste

4 Manual on Municipal Solid WaSte ManageMent

 CHAPTER 4 Technical Aspects: Municipal Sanitary Landfills
CHAPTER 5 Municipal Solid Waste Management Plan
Implementation
CHAPTER 6 Management Aspects: Monitoring Municipal Solid Waste
Management Service Provisions
CHAPTER 7 Management of Special Waste Including Domestic Hazardous Waste

Part III: The Compendium, this comprises of national rules and guidelines, international
practices on waste minimisation, detailed description and designs of compost plants and
landfill. A sample state strategy on integrated municipal solid waste management from
former Andhra Pradesh is also included. Part III of the manual is primarily for the
operational staff, private operators, experts and training institutes, who need to understand in
detail the different rules and design specifications for taking the informed decisions or for
guidance.
1.3 LAYOUT OF THE MANUAL
The layout of the manual will help the target groups to navigate within its different parts and
contents. Key elements of this “navigation system” are the following:
ICON Description

key messages as
Segregation is the key to an effective waste management system
‘take away notes’
Additional information

Ideas

CASE
STUDY
Practical case examples

CH X References to connected information in other chapters (Ch =

SEC XX Chapter, Sec = Section):
Calculations

Citation on texts in rules

MANAGEMENT RULES, 2016 AND OTHER DIRECTIVES

Some rules and guidelines regulate MSWM (including this manual), as given below:

2. MANAGEMENT ASPECTS: PLANNING, MSW zz Municipal

INSTITUTIONAL AND FINANCIAL ASPECTS Solid Waste
(Management &
2.1 THE REGULATORY FRAMEWORk: kEY Handling ) Rules, 2000
by
CH 1 REQUIREMENTS BY THE SOLID WASTE

Part 1 - Salient FeatureS oF the mSwm manual: an overview 5

 (Management MoEFCC

and Handling)
zz Revised SWM Rules, 2016 circulated in the year 2016 by MoEFCC Rules 2000 and

revised SWM, zz Designates Urban Local Bodies responsible for MSWM and lays down
Rules 2016 the mandatory functions to be performed by various stakeholders

zz Separate rules for Construction and Demolition waste 2016

Revised Manual zz Municipal Solid Waste Management Manual 2000 by MoUD and CPHEEO on Municipal zz Guidelines
published by MoUD through CPHEEO in the year 2016
Solid Waste
Management, zz Provide implementation guidelines for all aspects of MSWM, including 2016 segregation, collection,

transportation, treatment and disposal

Swachh Bharat zz Swachh Bharat Mission guidelines published by the MoUD in 2014

Mission, (SBM), zz cover Household toilets, community and public toilets

2014
zz solid waste management
zz with special focus on reorienting institutions as well as sensitizing citizens for developing
citywide approach to sanitation including solid waste management through IEC and capacity
building of the citizens and workers zz
http://swachhbharaturban.gov.in/writereaddata/SBM_Guideline.pdf
National Urban zz Policy prepared by the Ministry of Urban Development in 2008

Sanitation Policy zz Broadly covers aspects of urban sanitation, with a specific focus to
(NUSP), 2008 eliminate open defecation in cities

zz Focus on re-orienting institutionsfor developing city-wide approach to sanitation, covering all its
aspects including Solid Waste Management

Rules for Special zz Plastic Waste Management Rules, 2011 and revised in 2016

Waste zz Bio-medical Waste (Management and Handling) Rules, 1998 and amended 2003, 2011 and Bio-

Medical Waste Management Rules, 2016 zz E-Waste Management Rules, 2011 and revised in 2016
zz Battery (Management and Handling Rules) 2001

Other Relevant zz Inter-ministerial Task Force on Integrated Plant and Nutrient Rules and Task Management
using City Compost, 2005

Force Reports zz Fertilizer Control Order (FCO), 2009; PROM, 2013 by Ministry of
Agriculture zz Report of the Task Force on Waste to Energy, Planning Commission, 2014

Management of Industrial Hazardous Wastes

Industrial hazardous waste is managed through the Hazardous Waste (Management, Handling
and Transboundary Movement) Rules, 2008 with subsequent amendments in 2009 and
follows a regime different from the MSWM. Hazardous waste is typically identified with
properties of ignitability, corrosivity, reactivity, and toxicity. ULBs need to ensure that
industrial hazardous wastes do not get mixed with the MSW stream. Wastes containing toxic
components which are usually included in MSW, such as batteries, compact fluorescent lamps

6 Manual on Municipal Solid WaSte ManageMent

 (CFLs), tube lights, household cleaning agents, etc. are referred to in this Manual as “special
wastes.”

Municipal Solid Waste (Management & Handling) Rules 2000 and revised SWM Rules,
2016.

The MoEFCC revised the MSW (M&H) Rules, 2000; and the revised and renamed
SWM Rules, 2016 reflect new systems, technology developments, and concepts for an
integrated MSWM. In particular, the Rules cover the following aspects:
zzlist of authorities involved in MSWM and their corresponding duties; zz mandatory
MSWM policy and strategy to be prepared by the state or the union territory; zz
mandatory MSWM plans to be prepared by the municipal authority; zz specific
requirements for the MSWM including segregation into wet, dry, and special waste, as
well as restriction on material to be disposed in landfills
(only non-reactive, inert, and pre-treated waste may be disposed); zz levy of service
fees by the municipal authority to make this service sustainable; zz provision of on-spot fine on those
littering waste at public places; zz requirements for landfill sites including site selection and
mandatory lining system; zz requirement of environmental clearances for setting up MSW processing
and disposal facilities including landfills; zz standards for composting; zz standards of treated
leachate; zz emission standards for incineration facilities; and zz mandatory annual reporting by the
municipal authority on MSW operations. CH 2
Municipal authorities and all stakeholders must carefully go through the above
provisions of the SWM Rules, 2016 and make concerted efforts to improve SWM
systems and services accordingly.

2.2 MODERN INTEGRATED MUNICIPAL SOLID WASTE MANAGEMENT:

CONCEPTS AND BENEFITS
The integrated solid waste management (ISWM) system is based on the waste
management hierarchy (Figure 1.1), with an aim to reduce the amount of waste being
disposed while maximising resource recovery and efficiency. Based on this waste
management hierarchy, an assessment of local needs and conditions should lead to the
selection of an appropriate mix of processes and technologies. The preferred waste
management strategies within the hierarchy include:
zz At source reduction and reuse: The most preferred option for waste management is
to prevent the generation of waste at various stages including the product design,
production, packaging, use, and reuse. Waste prevention helps reduce handling,
treatment, and disposal costs. It also reduces leachate, air emissions, and
greenhouse gases which have significant impacts on the environment.
zz Waste recycling: The next preferred alternative is the recovery of recyclable material
resources and strengthening a waste recycling chain through segregation, collection,
and reprocessing to create new products.
zz Waste to composting: The organic fraction of waste can be composted to improve soil
health and agricultural production adhering to FCO norms.

Part 1 - Salient FeatureS oF the mSwm manual: an overview 7

 zz Waste to Energy: Where material recovery from waste is not possible, energy recovery
from waste through production of heat, electricity, or fuel is preferred. Biomethanation,
pyrolysis, gasification, waste incineration, production of refuse derived fuel (RDF), and
co-processing of the sorted dry rejects from MSW in cement kilns are commonly adopted
waste to energy technologies.
zz Waste Disposal: Residual waste at the end of the hierarchy, which ideally comprises of
inert waste are to be disposed in sanitary, lined landfills, which are constructed in
accordance with stipulations of the SWM Rules, 2016.

The hierarchy implies that all options of waste minimisation should be exercised before
treatment and disposal technologies are selected and implemented.

Figure 1.1: Integrated Solid Waste Management Hierarchy 1

Most Preferred

At Source Reduction & ReuseWaste minimisation and sustainable use/multi use of products (e.g. reuse of
carry bags/packaging jars)

Processing non-biodegradable waste to recover

Recycling commercially valuable materials (e.g. plastic, paper, metal, glass, e-Waste
recycling)
Processing organic waste to recover compost (e.g.
Composting windrow composting, in-vessel composting, vermi composting)

Waste to Recovering energy before final disposal of waste (e.g.

Energy RDF, biomethanation, co-processing of combustible
non-biodegradable dry fraction of MSW, incineration)

Landfills Safe disposal of inert residual waste at sanitary landfills

Least Preferred

The ISWM concept, as described, is closely linked to the 3R approach (reduce, reuse, and
recycle), which is also aimed at optimising MSW management from all the waste-generating
sectors (households, commercial and institutional establishments, parks and gardens,
construction and demolition, urban agriculture, and safety and healthcare facilities) and
involving all the stakeholders (waste generators, service providers, informal sector,
regulators, government, and community or neighbourhoods). The adoption of the 3R concept
helps to minimize the amount of waste to be handled by the municipal authority, minimising
the public health and environmental risks associated with it.
ISWM also reflects the following aspects:

zz Municipal solid waste and climate change: MSW is related to climate change
in several ways: (i) ISWM reduces the emissions of greenhouse gases (mainly
methane) resulting from MSW and contributing to climate change. Waste
minimisation, waste recycling, waste to energy strategies, and landfill gas
capture and use are reduction strategies for greenhouse gases, either directly
(landfill gas capture) or by better use of energy and resources inherent in
1Developed by the Expert Committee for revision of MSWM manual (2013-15)

8 Manual on Municipal Solid WaSte ManageMent

 products and materials (climate footprint). (ii) MSWM should also reflect
needs for adaptation to future impacts of climate change. An example is site
selection and design of landfills, which might have to reflect changing
groundwater tables or rainfall patterns.
zz Gender equity aspects: Women are involved in and affected by MSWM in
multiple ways. They work in ULBs (e.g., many street sweepers and doorstep
collectors are also women) and also in the informal sector. This requires
interventions to protect women from the harmful effects of unhygienic
practices which also affect their social functions in childcare and family food
supply. Moreover, they are often the first customers of any MSW collection
service and engage in segregation of waste at source at the household level.
The MSWM system design should therefore consider the health and safety
concerns of women. The MSWM system should also engage in a social impact
assessment to bring gender gaps to the forefront for systematic analysis and
corrective and appropriate responses.
zz Informal sector integration in Municipal Solid Waste Management: An
implication of the comprehensive understanding of ISWM is that it will
involve various stakeholders, going far beyond a merely public task for the
ULB. Important groups include the private sector (Chapter 1 of Part II) and the
informal sector. The informal sector plays an important role in the MSWM
value chain by recovering valuable material from waste. It includes both the
“kabadi” system or scrap dealers and waste pickers that help reduce
environmental impacts by improving resource recovery and reducing waste
quantities for disposal. The integration of the informal sector into the formal
MSWM system through resident welfare associations (RWAs), community-
based organizations (CBOs), non-government organizations (NGOs), self-help
groups (SHGs), and private sector will contribute to the reduction of the
overall MSWM costs, provide support to the local recycling industry, and
create new job opportunities.

CH 1 Options for enabling conditions and supportive actions for this inclusive SEC 1.4.5.9 approach
involve:
zz involvement of informal sector workers into formal system with legal
recognition, reflection in relevant policy decisions and membership- based
associations (cooperatives, SHGs);
zz officially recognising these informal associations as viable partner organizations
for solid waste management (SWM) service delivery; zz motivating private sector,
NGOs, SHGs to involve these informal associations in SWM service delivery by
upgrading them from being waste pickers on streets to waste collectors from source;
zz promoting schemes to provide social security and health benefits to members of
these associations; zz providing low-interest loans to registered organizations of
waste pickers (e.g., SHGs) seeking to bid for tenders and contracts; zz providing
incentives to encourage participation of informal sector associations through excise
and tax exemptions and other fiscal concessions; zz giving priority to these
associations in taking up small contracts of waste collection and small-scale
processing as informal sector enterprises; zz reserving land in development plans for

Part 1 - Salient FeatureS oF the mSwm manual: an overview 9

 decentralised processing of biodegradable waste, and for setting up material
recovery facilities; and zz supporting capacity development programmes for informal
sector associations, especially catering to the special needs of women.

key messages for decision makers

The MSWM system is dependent, among other things , on a well-planned implementation of

the 3R concept and the involvement of the informal sector. ULBs may chart out welldefined
strategies for waste minimisation, recovery, and segregation involving the informal sector
directly (cooperatives, SHGs) or through RWAs, CBOs, NGOs, or the private sector.
CH 1
SEC 1.4

2.3
PREPARATION OF A MUNICIPAL SOLID WASTE MANAGEMENT PLAN – A
SEVEN STEP APPROACH
MSWM is essentially a municipal function, and it is mandatory for all municipal
authorities to provide this service efficiently to keep the cities and towns clean,
process the waste, and dispose of the residual MSW in an environmentally
acceptable manner. In line with that, ULBs should systematically develop their
MSWM systems including carefully accessing their requirements of tools,
equipment, vehicles, and processing and disposal facilities in a way and at a pace
that is locally doable, meets the long term needs of the ULB, and is also financially
sustainable. It is imperative to take stock of the situation and develop a Municipal
Solid Waste Management plan. This plan should be in consonance with the SWM
Rules, 2016; the state policy and strategy on MSWM; and the state sanitation
strategy (SSS) developed under the NUSP.
The development of a MSWM plan follows a seven-step process (Figure 1.2).

Figure 1.2: Seven-Step Approach for Developing a Municipal Solid Waste Management Plan 2

2 The site conditions and selection of technology are inter-dependent. Proximity to habitation, hydro-geology and even climate dictate the selection of technologies

10 Manual on Municipal Solid WaSte ManageMent

 2.3.2 STEP 2: ASSESSMENT OF CURRENT SITUATION AND GAP CH 1
ANALYSIS SEC 1.4.3

The municipal authority should carry out a critical assessment of the current status
of SWM in the city as per national, state, and local level rules, policies, and
strategies for MSWM governing the ULBs. The assessment should clearly bring
out the deficiencies or gaps that need to be bridged to meet the legal obligations.
The assessment should also focus on the waste quantification and characterization.
This is essential as quantities and composition of waste vary widely in
urbanisation and affluence.

2.3.3 STEP 3: STAkEHOLDER CONSULTATION FOR MUNICIPAL CH 1 SOLID WASTE

MANAGEMENT PLANNING SEC 1.4.4

Due to the number of institutions and stakeholders involved in MSWM, it is

important that the MSWM plan, which aims to bridge the gaps or improve the
level of service, is developed through a consultative process. Stakeholders’ views
and their willingness to participate and pay for the service are also to be
considered.

2.3.4 STEP 4: PREPARATION OF DRAFT MUNICIPAL SOLID WASTE CH 1

MANAGEMENT PLAN SEC 1.4.5
Considering the identified gaps, future population projections and waste
generation rates, current and future quality and quantity of waste (based on
2.3.1 changing lifestyles and economic status), inputs from stakeholders,
STEP 1: POLICIES, PROGRAMMES AND LEGAL FRAMEWORk CH 1
financial situation, and technical capabilities of the ULBs, the municipal SEC
authority
Step should aprepare
1 entails its draft
detailed shortand
review termanalysis
and longofterm MSWMstate,
national, plan.and 1.4.1
municipal laws, rules, policies, programmes, and guidance that are related
to MSWM. The ULB shall prepare a list of all mandatory and
2.3.5 recommendatory actionsFOR
STEP 5: SCHEDULE as IMPLEMENTATION
per the MSW (M&H) Rules, 2000; SWM CH 1
Rules, 2016; the NUSP; the service level benchmarks (SLB) for MSWM SEC 1.4.6
service provision; the FCO, 2009, 2013; and all other relevant policy
guidance to ensure that the MSWM action plan is developed within these
framework.

The municipal authority should specify needs for institutional strengthening and
financing. Subsequently, an operational plan should be prepared as an integral part
of the MSWM plan. An implementation plan, indicating allocation of resources
and specifying timelines, should be prepared. Public private partnership (PPP) for
infrastructure development and service delivery may also be fully explored during
this exercise.

Part 1 - Salient FeatureS oF the mSwm manual: an overview 11

 CH 12.3.6 STEP 6: STAkEHOLDER CONSULTATION FOR MUNICIPAL SOLID WASTE
MANAGEMENT PLAN VALIDATION
SEC 1.4.7
Provision of effective SWM services is substantially dependent on community
behavior and practices. Therefore, citizens and stakeholders should be made
aware of the plans and consulted before finalization of the MSWM plan.

CH 1 2.3.7 STEP 7: MUNICIPAL COUNCIL APPROVAL FOR MUNICIPAL SOLID WASTE

MANAGEMENT PLAN AND PLAN IMPLEMENTATION INCLUDING PUBLIC PRIVATE
PARTNERSHIP
SEC 1.4.8
The final MSWM plan is to be presented to the elected body of the local
authority to seek approval and to officially formalize the plan. Council should
be made aware of the short term and long term actions to be taken and should
also approve the financial plan and necessary institutional strengthening for
implementation of these actions. The services to be outsourced (PPP model) or
private operator should be made aware of the MSWM plan made by the ULB.
Contracting models should be transparent and performance based. Both the
ULB and PPP operator should be accountable for their roles to ensure
successful and sustainable project implementation.

SteP 1: POLICIES, PROGRAMMES & LEGAL FRAMEWORk

CH 1 2.4 ROLE
• Identify National and State Policies/
OF STATE AND REGIONAL LEVEL AUTHORITIES
• Identify Overall Goals for ULBs
SEC 1.4.1.4 Strategies and their Goals
• Role of Central/State and Local Government
• State Level/Regional/District SWM
Strategies/PoliciesBesides the ULBs,• states
Institutions and S takeholders Involved in
have specific responsibilities in MSW management.
MSWM Planning
These can be summarised as follows: zz The Secretary-in-charge of the Urban
Development Department (UDD) of the concerned state or union territory has
SteP 2: ASSESSMENT theOFoverall
CURRENTresponsibility
SITUATION AND GAP forANALYSIS
the implementation of MSWM systems in cities
and townsInstitutional
Legal & Policy Framework
in line with SWM Rules. zz UDD is required to prepare a state policy
& Financial Set Up Technical Aspects
and strategy for MSWM in the state. zz UDD has to report on SLBs for SWM
Community MSW Generation, Collection Availability & Suitability of Land
Participation service provision in ULBs to the
& Transportation Ministry
for Processing of Urban Development (MoUD). zz
& Disposal
UDD is also responsible for approval of land transfer from state to ULBs (for
& Disposal
all projects).
MSW Processing, Treatment
z States have the power to regulate the creation of staff positions
Current Status of
Dump zSites
Environmental
Concerns
(technical and nontechnical) in the ULBs.
zz The State Pollution Control Board (SPCB) is responsible for monitoring the
compliance
SteP 3: STAkEHOLDERwith the MSWM FOR
CONSULTATION planMSWM and the SWM Rules. And it is authorised to give
PLANNING

environmental clearance to facilities as listed in the Environmental Impact

Assessment
SteP 4: PREPARATION (EIA) Notification,
OF DRAFT MSWM PLAN2006. zz The power to authorize municipal
authorities or operators to set up treatment and disposal facilities also lies with the
Future Projections
SPCB.
• Population Forecast • Change in Socio-economic Status
• Anticipated Lifestyle Changes

2.4.1Rules, Regulations
CREATION OF
& Municipal REGIONAL FACILITIES
Bye-Laws

Community Participation/IEC
Finding suitable land in each city or town for a sanitary landfill is a matter of great
concern in the country, and it is technically and financially unviable to operate
Institutional & Financial Structuring

small sanitary
Storage, Collection landfill& Street
(Door-to-Door facilities (SLFs). Both arguments favour that state
Sweeping), Transportation

Identification of Land & Inclusion in City Master Plan

12 Manual on Municipal Solid WaSte ManageMent

Selection of Process & Best Available Technology for Processing & Disposal
 SteP 6: STAkEHOLDER CONSULTATION FOR MSWM PLAN VALIDATION

authorities may bring

SteP 7: MUNICIPAL cities
COUNCIL together
APPROVAL FORto set up
MSWM shared
PLAN & PLANlandfill facilities, which might
be organised at district or even regional level through inter-municipal agreements.
IMPLEMENTATION INCLUDING PPP

The cooperation among ULBs might also include common treatment facilities for
MSW besides common landfill, if financially viable.

key messages for decision makers

The municipal authority should carefully look at the State policy, its directives and regulatory framework. It
should also explore options for setting up regional or district level common processing or disposal facilities for
groups of towns or cities in consultation with all stakeholders including political leadership of all participating
towns. Stakeholders need to be convinced of the economic and environmental benefits of a common facility
and the win-win situation arising out of such a decision. The top management should launch negotiations
with potential cooperation partners in general and with the host city in particular, where the facility is
proposed to be created.

2.5 UNDERSTANDING LOCAL SOLID WASTE MANAGEMENT NEEDS

In order to develop a MSWM plan, the ULB should accurately assess
the baseline of SWM services and analyze system deficiencies in the CH 1
SEC 1.4.3
context of SWM Rules and utilize that information for further planning, implementation, and
monitoring. Local conditions shall be considered while assessing the inadequacy of existing
service and planning for the future with due consideration of local demography, physical
location, growth objectives of the ULB, as well as social and environmental conditions.
The assessment of the baseline in relation to the requirements of existing regulations,
policies, guidelines and identified SLBs will result in an identification of key shortfalls in
achieving the desired level of services and form the basis for preparing a plan to improve the
MSWM system. Figure 1.3 is a schematic diagram depicting the issues to be considered
while assessing gaps in MSW service provision.

Figure 1.3: Municipal Solid Waste Management Gap Analysis

Part 1 - Salient FeatureS oF the mSwm manual: an overview 13

 ROLE OF
TAkEHOLDERS IN MUNICIPAL SOLID
The main responsibility for preparing a MSWM plan lies with the ULB, specifically the
SWM division. A core team or advisory team, also called as internal stakeholders, may be
constituted for developing the MSWM plan. This team should be a multi-departmental team,
involving all the departments concerned with, influenced by or influencing SWM services
within a city. The commissioner or chief executive of the ULB should lead the internal
stakeholder team.

Municipal officials may also seek advisory support from experts in the field, academicians,
and environmental planners and engineers, if capacity is not sufficient within the ULB.

Informing and involving the community (external stakeholders), as well as creating channels
for all stakeholders to participate in decision making, are all very important steps for
successful implementation of MSWM strategies.
Typical stakeholders for a MSWM system include households, businesses,
industries, informal sector, local government, NGOs, CBOs, SHGs, women’s
groups, secondary school and college students, or members of other institutions
who may have a role in ensuring the involvement of the community.

Stakeholders are to be consulted at least twice during the MSWM plan

preparation, initially in defining the objectives and goals of the plan, and later in
discussing the proposed plan and seeking their inputs and approval (steps 3 and 6
of the Seven Step Approach). The ULB may constitute a stakeholder committee
for the purpose, with members representing all concerned groups. These groups
would need to represent the interest of men, women, youth, marginalised or

14 Manual on Municipal Solid WaSte ManageMent

 vulnerable groups of people who are all part of the MSWM process. Specifically,
the involvement of women’s groups during the planning phase is essential.

2.7 ESTABLISH APPROPRIATE INSTITUTIONAL CH 1

MECHANISMS SEC 1.4.5.4

Planning for an efficient and advanced MSWM system should not be limited to
the procurement of vehicles, equipment, or adequate infrastructure, but should
also include an effective institutional structure capable to steer and implement the
MSWM system. By and large, MSWM services are currently looked after by the
health department of the local authority, usually headed by a medical doctor, who
is generally not well versed with emerging technologies and technological
aspects of processing and disposal of waste. It is strongly recommended that large
ULBs have a SWM department headed by an environmental, civil, or public
health engineer while small ULBs have a specific SWM cell with technical and
managerial personnel as recommended in this manual.

There is also an urgent need to train and build the capacities of staff involved in
SWM activities. Professionalising the solid waste sector will not only build the
capacities of workers to perform more effectively and efficiently but will also
inculcate a sense of responsibility and pride towards their profession. This will
lead to an improvement in service delivery and better management of activities.

Professionalising SWM services also demands that workers should perform their
duties in a healthy environment under safe conditions. Adequate and appropriate
personal protective equipment (PPE) should be provided to the employees and
contractual workers. Adequate training should be given to them to ensure that
they wear the PPE provided
CH 1 2.8 ENSURE SUSTAINABLE FINANCING FOR MUNICIPAL SEC 1.4.5.6

SOLID WASTE MANAGEMENT

The planning for an advanced MSWM system should be based on accurate
financial calculations, taking into consideration all relevant costs and most
likely revenues to be realised. This important task within the planning process
(steps 2, 4, and 5 of the Seven-Step Approach) is to ensure financial viability
of the MSWM system and its sustainability in the long run. Full cost
accounting (FCA) provides a framework for evaluating all costs associated
with the integrated waste management operations. FCA for MSWM can be
defined as a systematic approach for determining the full costs of the MSWM
system at local level over a specified period. It tends to uncover hidden and
overlooked costs and allocates costs to all the specific activities and operations.
This helps the decision makers to compare present services with proposed
services accurately, predict future costs reliably, and evaluate privatization or
PPP options thoroughly.
The major types of costs considered for FCA of MSWM (Figure 1.4) are the
following:

Part 1 - Salient FeatureS oF the mSwm manual: an overview 15

 zz Front-end costs: Examples of these are pre-operative investments and
expenses necessary to implement MSW services.
zz Capital costs: They include one-time, fixed costs for land, plant, machinery,
etc.
zz Operating costs: They include daily expenses of managing MSW,
refurbishment costs, and operation and maintenance (O&M) costs.
zz Back-end costs: They comprise of the expenditure required to wrap up O&M
of MSW facilities at the end of their lifetime.
zz Contingent costs: They include costs that might or might not be incurred in
the future (e.g., remediating costs for disasters).
zz Environmental costs: They result from environment protection or mitigation
during MSW transportation, treatment, and disposal activities.
zz Social costs: They are incurred to mitigate adverse impacts on health and
well-being of local community on account of improper MSWM. An
assessment and consideration of these costs is required before selecting
waste management options.

These categories cover the life cycle of MSW activities from the “cradle”
(front-end costs) to “grave” (back-end costs).
Figure 1.4: Types of Costs to be Reflected in the Full Cost Accounting (FCA)

Fr Capit Operating Contingent Costs

o al Costs • Remediation costs
nt Costs • Debt • Liability costs (e.g., property
- • Fi service damage, personal injury)
e x cost
n e • Daily
d d O&M
C c costs
os o • Cost of
ts s refurbish
• La t ment
f • IEC
n
o activities
d
r
a p
c l
q a
u n
i t
s a
i n
t d
m
i
a
o
c
n h
• P i
er n
m e
its r

16 Manual on Municipal Solid WaSte ManageMent

 • B y
ui • C
ld o
in s
g t
co
o
ns
f
tr
uc capit
ti al
o
n
• IE
C
ac
ti
vi
ti
es

Back-end Costs Environmental

Social Costs
Costs
• Site closure • • Quality of life
• Building and • Aesthetic impacts
equipment • Community image
decommissioning • Effects on property
• Retirement and • values
health benefits for
current employees

Sources of Financing
While deciding to introduce a new MSWM system or to construct and operate processing
and disposal facilities, proper care should be taken to assess the capital sources and revenue
implications. ULBs have to ensure that the needed resources for O&M of the MSWM
system will be continuously available and that reserve funds will be kept aside to meet
replacement costs of vehicles, equipment, plants, and machinery at the end of their lifetime.
The following sources of financing should be considered:
i Municipal resources that include taxes and duties: Traditionally, property tax in India
has been the main source of revenue for ULBs to finance municipal services including
MSWM. Rationalization of the property tax is required to ensure financial sustainability
of these services.
ii Grants from central or state government: It has been widely recognised that ULBs are
unable to meet the expenditure for their activities solely by internal resources. Hence,
ULBs require substantial financial support from the central and state government in the
form of grants and funds. Some of the grants and funds available to ULBs presently are:
zz financecommission grants;
zz central government grants (e.g., Swachh Bharat Mission); and zz state finance commission
grants allocated by the state to local authorities once every 5 years to support administrative,
governance, and municipal service delivery.

Part 1 - Salient FeatureS oF the mSwm manual: an overview 17

 iii Public private partnership as a source of funding: PPP are innovative approaches used by
the public sector to attract private sector to make investments and take up certain
responsibilities of service delivery, while the public sector retains the principal responsibility
for these services. PPP mechanisms aim, as the case may be, at financing, designing,
implementing, and operating public sector facilities and services through service provisions
(short and long term, in some cases up to 30 years). A predefined contract agreement regulates
how rewards and risks will be shared with the private contractor.
iv Loans from bilateral and multilateral agencies: Bilateral and multilateral bodies, also known
as development agencies, like Asian Development Bank (ADB), German Development Bank
(KfW), and the World Bank provide soft loans on long term basis and grants for infrastructure
projects. Usually, these funds (soft loans) are given with a grant component for project
preparation or capacity building. In certain cases, retroactive financing arrangements can also
be agreed to, wherein funds spent in project preparation are financed after the loan agreements
are finalised. For accessing funds from bilateral and multilateral agencies, it is a prerequisite
that there should be long term planning as well as state support.
v National or state level infrastructure funds: Infrastructure funds both at the national and state
level play an important role for financing infrastructure projects. Financial institutions at the
national and state level are set up that are supplemented by state-level infrastructure funds
(from supply side) and pooled finance funds (from demand side) e.g., Tamil Nadu has provided
funds for infrastructure projects. There is a dearth of these types of funds; however, the MoUD
has recently issued guidelines for the formation of state pooled finance entities (SPFEs). The
Finance Budget 2007 has also allowed SPFEs to issue tax-free municipal bonds. Union Budget
2013–2014 had proposed funding for waste to energy projects in MSW.
vi Municipal bonds and debentures: The ULBs issue bonds and debentures to the general public
or to specific institutional investors. Municipal bonds can either be taxable or tax-free. In India,
the municipal bond market is still in its nascent stages. Only ULBs, which are large and have a
buoyant revenue base, have been successful in the past in raising funds through municipal
bonds (e.g., Ahmedabad).
vii Loans from financial institutions: Specialised financial institutions–e.g., Infrastructure
Development Finance Company (IDFC) and Infrastructure Leasing & Financial Services
(IL&FS)–are agencies which provide loans and a variety of instruments for infrastructure
financing. Other Indian financial institutions–e.g., Housing and Urban Development
Corporation (HUDCO), Industrial Credit and Investment Corporation of India (ICICI),
Industrial Development Bank of India (IDBI), Life Insurance Corporation of India (LIC), etc.
also provide funds for infrastructure projects. These institutions have access to funds with long
repayment periods (e.g., loans from development agencies, bonds from the open market,
foreign institutional investors, etc.) and are thus able to lend for relatively longer durations than
banks. The credit rating of the ULB plays an important role here. The better the credit rating
with respect to repayment of principal and interest, the lower the rate of interest because risk is
lower, and vice versa. Certain financial institutions provide credit enhancement mechanisms,
which are essential to improve the inherent credit quality and credit rating, thereby resulting in
lower interest rates. This facility is now also being extended by the MoUD through its Pooled
Finance Development Fund (PFDF) Scheme. Institutions may also provide guarantees for funds
accessed from other sources.
viii Bank Loans: Banks have prescribed norms and well laid down procedures for grant of loans.
Since the deposit base of banks is for short duration (generally 1–3 years), loans are provided

18 Manual on Municipal Solid WaSte ManageMent

 also for a short to medium term. Banks generally do not cater to the long term needs of
infrastructure projects. Bank loans are especially relevant to finance the short term needs of
institutions e.g., as working capital loan, bridge loans, loans against property, etc.
ix Enhancing continuous revenues in solid waste management projects: It is of paramount
importance for sustainable financing to strengthen project revenues and that the projects are
planned in such a way that they are self-sustainable and can deliver desired outcomes for a
longer period. MSWM operations usually depend on SWM taxes or fees and charges. Other
sources of revenues might be relevant as illustrated in Figure 1.5.
Figure 1.5: Illustration of Solid Waste Management Revenue Streams 3

Revenue Generation from Solid Waste Management Projects

service fee and

Introduction of SWM Sale of products and by-products - like Sale of charge
compost, RDF, landfill gas, or waste to recyclables
Rationalization of energy (applicable if the projects have
Property Tax electricity generation unit)

x Introduction of solid waste management service charge and user charges: According to the
74th amendment to the Constitution, ULBs can impose taxes and raise funds for public health,
sanitation, conservancy, and SWM. It is desirable to levy a dedicated tariff for solid waste
services. Following basic principles may be considered by ULBs while prescribing norms for
levying user charge and service fee for SWM services.
zz Polluter pays principle: Those responsible for waste generation should pay
for its collection and safe disposal.
zzProportionality: The user fees should be in proportion to the quantity of
waste generated and level of service provided to waste generators. Variable
rates may be prescribed for different categories of waste generators, keeping in
view their waste generation pattern. A fair user fees will facilitate better
compliance. zz Capacity to pay: Affordability of tax payers should be
considered.

key messages for decision-makers

Sustainable financing of MSWM systems is crucial for effective service delivery. Make sure that the
ULB finds a sustainable solution to financing investments and O&M. Levy of user fees is needed to
sustain the service efficiently.

CH 1 2.9 MAkE-OR-BUY DECISIONS AND PUBLIC PRIVATE

3Toolkit for Solid Waste Management, Jawaharlal Nehru National Urban Renewal Mission, New Delhi, Ministry of Urban
Development, Government of India. http://jnnurm.nic.in/wp-content/uploads/2012/11/SWM-toolkit.pdf

Part 1 - Salient FeatureS oF the mSwm manual: an overview 19

 SEC 1.4.5.6
PARTNERSHIP (PPP)
CH 5
ULBs should first assess whether they are able to provide SWM services on
their own or will need to outsource due to considerations of limited capacity,
staffing, and other resources. The services to be outsourced should be
deliberated upon and defined sufficiently and should fit into the larger SWM
plan for the ULB. ULBs may contract private service providers for provision
of specified solid waste collection, transportation, treatment, processing, and
disposal services.

In principle, the following options exist for contracting out the services (Table
1.1).

Table 1.1: Options for Contracting Services

MSW CHARACTERISTICS RELEVANT ExAMPLES OF
MANAGEMENT CONTRACT IMPLEMENTING
& OPERATION MODELS ULBs
Collection and • Large number of work Service contracts Bangalore, Surat,
Transportation force, vehicles and Management Ahmedabad,
equipment contracts Chennai, etc.
• Logistics-intensive Concession for 7
• Citizen interface years or more
• Investment ranges widely
depending on scope of
work
Table 1.1: Options for Contracting Services [contd.]
MSW CHARACTERISTICS RELEVANT ExAMPLES OF
MANAGEMENT CONTRACT IMPLEMENTING
& OPERATION MODELS ULBs
Street sweeping* • Labor-intensive Service contracts Delhi, Hyderabad,
• Logistics-intensive subject to contract Chennai, Rajkot,
labour (Regulation Surat, etc.
• Minimal investment in & Abolition) Act,
tool and equipment 1970
• Limited technical skills
Transport • Capital-intensive Concession contracts Bangalore,
• Fleet management Delhi, Chennai,
skills Ahmedabad, Surat
Processing and • Capital-intensive Concession contracts Surat, Delhi,
disposal • Technically skilled staffing (DBO, BOO, DBOOT) Hyderabad,
required for Coimbatore Pune,
20 years or more etc.
• Experience of technology
deployed
Note: * Street Sweeping usually stays with the ULB to ensure employability of current workforce
Sourcing out MSWM services should be carefully considered taking into account all relevant
aspects such as: zz technology assessment and specification of the technology selected and
services to be outsourced; zz justification of the need for contracting and identification of
appropriate contract models and their pros and cons; zz commercial feasibility of services to
be outsourced; zz All PPP contracts shall be for a duration that may enable the concessionaire
to recover their capital investments made in easy installments while also financing the O&M

20 Manual on Municipal Solid WaSte ManageMent

 cost of service; zz specific outputs and performance standards for the contracted service; zz
adequate social and environmental safeguards for service provision; zz possible assessment of
technical, operational and financial risks. Is it realistic that liability for key risks can be
transferred to the operator?; and zz where acquisition of land and rehabilitation of the
community is involved, the ULB should follow applicable rules and guidelines at the national
and state level.

Contracting models should preferably be performance-based and the payment to private

partner be measured on outputs reflecting the service quality levels as defined in the
contract. Both the ULB and the PPP operator should be accountable for their respective roles
to ensure successful and sustainable project implementation. Private service providers should
be held accountable and monitored by the ULB to ensure effective and efficient provision of
required standards of services.
Certain precautions must be taken while selecting a specific contractor for MSW service
provision to ensure an efficient SWM system: zz Clearly address the specific requirements in the
tender specifications.
Prefer performance-based terms of reference; zz Select the bidder based on both technical
and financial bids and not solely on the criteria of selecting the lowest bidder; zz In ULBs with a
population of over 1,00,000, at least two contractors may be considered for outsourcing the
collection and transportation services; zz Ensure timely payments for contracted services,
thereby also ensuring the provision of the stipulated standard of service; zz Where contract
labour is hired, the ULB shall ensure compliance with the provisions of the Contract Labour
(Regulation & Abolition) Act,
1970; zz Monitoring mechanism and penal provisions shall be clearly spelled out in the
contract and strictly adhered to. Record shall be maintained of observations made by the
supervisory officers and of corrective measures taken. Penal provisions may be invoked if the
concessionaire fails to perform after due notice.

The procurement process for a PPP should follow a systematic process of (i) preparing
expression of interest (EOI), (ii) requesting for proposal (RFP), request for quotation (RFQ)
document and concession agreement (CA), and (iii) awarding work to the selected firm. In a
single step process, the EOI is not sought separately.

key messages for decision makers

Outsourcing MSWM services should be carefully considered taking into account all relevant aspects. There is no one-
size-fits-all solution for ULBs. Each PPP option should be assessed considering pros and cons of the respective
community. Contracting models should be performance-based, and the payment to private partner should be based
on measured outputs reflecting the service quality levels as defined in the contract.

For large projects and sophisticated technology applications, higher weightage of technical considerations (say,
70%–80%) is desirable plus strict performance monitoring.

Part 1 - Salient FeatureS oF the mSwm manual: an overview 21

 2.10 CENTRALISED VS. DECENTRALISED MUNICIPAL CH 1 SOLID WASTE
MANAGEMENT SYSTEMS SEC 1.4.5.8

Conventionally, SWM systems were planned for and implemented at the city level,
with centralised systems catering to the entire ULB.

Resource, technology, and capital-intensive SWM services are best planned and
executed at the city level; centralised systems are preferred for waste processing
and treatment plants like RDF plants, incineration plants and municipal sanitary
landfills, which can benefit from economies of scale.

Decentralised waste management systems or community-level waste

management systems reduce the burden of handling large volumes of MSW at a
centralised location, with a corresponding reduction in costs of transportation and
intermediate storage. Segregated doorstep collection is a pre-requisite for the
success of decentralised facilities. All decentralised schemes should be assessed
for long term sustainability, and their impact on the overall SWM system of a city
should be identified and considered while planning for citywide waste
management facilities.

Interactive planning with the community is required to decide the extent of

centralised and decentralised MSWM systems for continued efficiency.

Advantages of centralised systems include (i) economies of scale, (ii) single

monitoring point, and (iii) high-end technology and environmental controls.

Limitations of centralised systems include (i) larger tract of land, (ii) fund
limitations, (iii) limited experience of ULBs in managing large contracts, and (iv)
high potential for environmental failure of systems where environmental controls
are not in place or monitored.

Some of the advantages of decentralised waste management are the following: zz

Decentralised systems allow for lower level of mechanization than the centralised
solutions. They provide job opportunity for informal workers and small
entrepreneurs; zz Decentralised options can be tailored to the local waste stream
and the climatic, social, and economic conditions; zz Decentralised systems reduce
the cost of collection, transportation, and disposal of waste by the ULBs.
Decentralised SWM solutions are suitable in the following scenarios: zz Suitable land for
waste management facilities (composting organic waste, recyclable sorting facilities, etc.) is
available in the neighbourhood; zz There is no local resistance against the siting of the plant; zz
Local experts or non-government organizations (NGOs) handhold the process in an
environmentally acceptable manner; zz Municipality has in-house capacity of effectively
monitoring decentralised systems; zz Market for compost and recyclables are accessible.

However, some of the limitations to implementation of decentralised waste management

systems include:

22 Manual on Municipal Solid WaSte ManageMent

 zzAvailability of land in most urban neighbourhoods; zz Availability of technically qualified
staff to ensure scientific and hygienic operations; zz Ensuring periodic check on product
quality; and zz Ensuring financial viability of decentralised projects, specifically when
qualified staffing is required.

key messages for decision-makers

Decentralised SWM systems are preferred to reduce the environmental and monetary costs of transporting waste
over large distances. Collection of recyclables and composting of organics are some of the activities which can be
taken up at the local level, either at a colony level or ward level. Processing, treatment, and disposal facilities—
which are viable only at a certain scale, like recycling facilities, RDF plants, incineration plants and municipal
sanitary landfills—should be planned for at the centralised or regional level, depending on the size of the ULB.
Decentralised MSWM facilities may be funded through community-based cooperatives, local NGOs, PPP mode, or
municipal funds. Community ownership of decentralised systems is critical for their success and continued
operation.

2.11 ROLE OF THE INFORMAL SECTOR

The informal sector, constituting of the kabadi system and waste pickers, plays an important
role in the MSWM value chain by recovering valuable material from waste. They help
reduce environmental impacts by improving resource recovery and reducing disposal
requirements. The integration of the informal sector into the formal SWM system will
contribute to the reduction of the overall system costs, provide support to the local recycling
industry, and create new job opportunities.
The integration of the informal waste sector refers to several ways in which the
waste pickers could be involved in formal waste management systems. This is made
possible through a set of formal or informal arrangements among waste pickers
themselves, organizations of waste pickers, organizations working with waste
pickers, and local authorities. The integration process would typically result in the
accrual of social benefits to waste pickers.

key messages for decision-makers

Developing formalised material recovery systems are capital-intensive. Therefore, the informal sector should
be encouraged to work in material recovery facilities (MRFs), which may be either centralised or decentralised,
while ensuring environmental, health, and safety safeguards. Through the process of formalising the informal
sector, social identity, social security, health care benefits, and a stable livelihood should be given to informal
sector workers. Waste pickers and rag pickers could be employed in door-to-door collection activities, sorting
recyclable waste, collection and segregation of recyclable material, and set-up and management of recyclable
and reusable waste. They could also work in take-back or buy-back facilities and in processing facilities as
waste sorters (e.g., at the sorting conveyor). Mechanisms to identify and recognize the informal waste workers
should be constituted.

Part 1 - Salient FeatureS oF the mSwm manual: an overview 23

 3. TECHNICAL ASPECTS: SEGREGATION, COLLECTION AND
TRANSPORTATION
3.1 AT-SOURCE MINIMISATION: OPTIONS TO REDUCE CH 2SEC 2.1 THE
AMOUNT OF WASTE
The integrated solid waste management (ISWM) hierarchy (Figure 1) prioritizes
waste minimisation (at source reduction and reuse) because it is the most effective
way to reduce the quantity of waste, the cost associated with its handling, and its
environmental impacts.

Waste minimisation strategies require policy interventions at the national, state, and
local level, depending on the type of the intervention–e.g., minimising use of
packaging material, promoting use of refill containers, buyback of reusable or
recyclable packing material, introducing a national deposit system on beverage
packages, etc. and the scale at which the intervention needs to be initiated for
effective implementation. Initiatives which require a behavioural change in the
community need to be supported by consistent awareness programmes.

Waste minimisation strategies requiring national or state-level interventions or support are

the following:
zz Extended producer responsibility: Extended producer responsibility (EPR) can be established
for wastes like electronics, batteries, packaging, and consumer durables by state and national
governments. States can take initiatives in this matter; regulations are usually legislated at state
and national levels.
zz Promotion of voluntary action: Business groups should be encouraged to reduce volumes of
packaging while maintaining the requisite strength. For instance, Godrej has a “no packaging”
policy for refrigerators. The company ensures that the packaging, in which the appliance is
delivered, is taken back by the supplier and reused.
zz Frame rules and bye-laws: It is banned to use or sell certain types of products and packaging that
cannot be reused, repaired, recycled, or composted. With state support, local authorities are
enabled to issue and enforce such ordinances.
zz Eco-labeling standards: Eco-labeling standards for certain products should be developed, based
on their potential for waste reduction and recycling.

Waste minimisation initiatives usually requiring ULB support or action are the following:
zz Awareness and education programmes: Programmes that address different stakeholders should
be promoted and implemented— such as residential, commercial, school, and industrial
educational programs—to increase public awareness and participation in at-source waste
reduction programs. Campaigns might include promotion of material substitution where possible
(e.g., promoting the use of rechargeable batteries instead of single use batteries, buying refills,
etc.).
zz Developing and promoting at-source reduction programmes: These programmes in the
community, e.g., domestic composting programs, can reduce the volume of food waste, leaves,
and garden trimmings entering the city-level collection system.

24 Manual on Municipal Solid WaSte ManageMent

zzBans within local authorities’ jurisdiction: Banning the use of plastic bags is an example of a
strategy of replacing non-recyclable products with recyclable and reusable material and products.
Usually, national or state-level authorization is required. zz Product stewardship and green
procurement implementing programs: Here the suppliers of a product are responsible for a take-
back program to promote recycling. Take-back examples are computer monitors, auto oil, batteries,
paper, milk pouches, etc. Procurement programs in local governments and businesses should be
designed to give preference to recyclable products.
zz Consumer reward: Local businesses should be encouraged to reward consumers
for returning recyclable products or products which are toxic (e.g., batteries).
These initiatives require existing manufacturers’ EPR programs.
zz Business assistance programs: These programmes advise businesses how to use
material more efficiently and to reduce waste generation.
zz Supermarkets and retail stores: These are often some of the most effective
partners for a municipal waste minimisation program. These provide a central and
consistent point for consumer education, packaging reduction projects, and
collection of recyclable waste.
zz Promoting material exchange and reuse programs: These help divert material
from the waste stream going to landfill (e.g., programs which link sellers of used
furniture with potential secondhand furniture buyers).
zz “Pay as you throw”: Supported by bye-laws, incentives for atsource reduction
through the principle of “pay as you throw” can be established. ULBs can
stipulate variable SWM charges, based on the quantities being disposed per
household or establishment. Variable rates can be fixed for predefined ranges of
waste quantities, progressively increasing with waste generation rates. This would
also imply that the ULB has the resources to record waste generation quantities.
This system will function successfully only if the progressively increasing tariff is
restrictive enough to prevent waste generation.

key messages for decision-makers

Waste minimisation strategies at ULB level are quite new. ULBs can play a pioneering role by reducing the
amount of waste by propagating and promoting the 3R concept.

3.2 WASTE SEGREGATION, COLLECTION AND

TRANSPORTATION CH 2

MSW should be stored at the source of waste generation until it is collected for
disposal by ULB staff or appointed contractors. It is essential to segregate waste into
different fractions, commonly referred to as primary segregation. Segregation of
MSW needs to be linked to primary collection of waste from the doorstep and given
high priority by the ULBs. Unless primary collection of segregated waste is planned
by the ULBs, the source segregation by waste generators will be meaningless.

The fractions into which the waste has to be segregated in detail should be based on
waste characterisation, the ULB’s capacities and facilities, and other framework

Part 1 - Salient FeatureS oF the mSwm manual: an overview 25

 conditions (existing kabadi systems, traditions in the community, available space in
residential areas and in streets, etc.).
At a minimum level, indicated as the basic segregation, waste should be segregated by waste
generators into three fractions: wet (green container), dry (white container), and domestic
hazardous waste. This is referred to as the three-bin system. Apart from these wastes
horticulture waste, construction and demolition and sanitary waste should stored and
collected separately. The wet fraction should preferably be used for composting; and the dry
waste should be sent for recycling (Figure 1.6) also to be ensured that sanitary waste should
be wrapped securely, collected and handed over separately to the waste collectors. Also
domestic hazardous waste should be collected separately and deposited at the designated
collection centres.

Figure 1.6: Bins for Collection of Dry, Wet and Domestic Hazardous Waste at
Households4

3.2.1 SEGREGATED COLLECTION AND TRANSPORTATION

Collection of segregated municipal waste from source is an essential step in SWM.
Inefficient waste collection service has an impact on public health and aesthetics of towns
and cities. Segregated collection of wet and dry waste enhances the potential of cost-
effective treatment of such waste and of deriving optimum advantage from the recyclable
material fed into the system.

Waste collection service is divided into primary and secondary collection. The different
collection systems are illustrated in Figure 1.7.

Primary collection refers to the process of collecting waste from households, markets,
institutions, and other commercial establishments and taking the waste to a storage depot or
transfer station or directly to the disposal site, depending on the size of the city and the
prevalent waste management system.

Secondary collection includes picking up waste from community bins, waste storage depots,
or transfer stations and transporting it to waste processing sites or to the final disposal site.

4 “Panjim’s Initiatives in Solid Waste Management”, Rodrigues, S. (2013). Available at: http://iipnetwork.org/Rodriguez_ Towards-Green-Trash).

26 Manual on Municipal Solid WaSte ManageMent

 Primary collection must be introduced both in small and large towns and cities. Secondary
collection systems are necessary in all cities and towns for collection of waste in the
community bins or at the secondary waste storage depots or at decentralised sorting centres by
sanitation workers for onward transportation of waste to processing and disposal facilities.

A well synchronised primary and secondary collection and transportation system is essential to
avoid containers’ overflow and waste littering on streets. Further, the transport vehicles should
not only be able to transport segregated waste, but also be compatible with the equipment
design at the waste storage depot to avoid multiple handling of waste. They should also be
easy to maintain.

key messages for decision-makers

Develop an appropriate system to ensure segregation, collection, and transportation of waste from source by
deploying tools, equipment, and vehicles suitable under local conditions. A too complex system might not be
manageable; a too simple system without any segregation might miss existing opportunities for recycling and
composting. In a nutshell, segregated collection of solid waste and segregated transportation from source to
destination are essential.

Part 1 - Salient FeatureS oF the mSwm manual: an overview 27

28
Manual on Municipal Solid WaSte ManageMent
5 Developed by the Expert Committee for revision of MSWM Manual (2013-15).
3.2.2 STREET CLEANING AND DRAIN CLEANING
Street cleaning is an age-old fundamental service rendered by municipal authorities in India
to ensure clean and hygienic urban conditions. Until recently, all domestic and trade waste
was being discharged on the streets or in street bins, and street sweeping was the principal
method of waste collection. With the introduction of door-to-door collection systems in
many urban areas, there is a sizeable reduction in the quantity of waste and change in its
composition. The street waste should ideally comprise of dust, leaves, and some litter; but,
until door-to-door collection becomes effective, the street sweeping will also include
sizeable portions of food waste as well as recyclable waste. Manual sweeping is commonly
practiced in India, as many streets are congested and narrow road conditions are not
conducive for mechanical sweeping. Inefficient waste collection systems coupled with
public littering significantly contribute to waste piles in streets.

A wide variety of tools and equipment are available for manual and mechanical sweeping.
Municipal authorities must avoid multiple handling of waste by converting traditional
handcarts into containerised handcarts to facilitate direct transfer of waste from handcart to a
container of collection vehicle. Through the introduction of efficient methods, municipal
authorities can achieve significant improvement in quality of service and financial savings.
ULBs should determine the frequency of street cleaning based on local conditions for
efficiency of staff. Also, the time of street cleaning should be carefully defined to avoid
conflicts with traffic, parked vehicles, and pedestrians.

In many cities there are open surface drains along the roadside which need to be cleaned
regularly to permit free flow of storm or grey water. SWM authorities should ensure that
citizens and sweepers do not dispose waste into drains, through training, campaigning,
statutory regulations, and monetary fines. A further approach to prevent this is to make the
same staff responsible for cleaning streets and for cleaning adjacent surface drains of up to a
depth of 90 centimetres (cm).

It is very important to ensure that street sweeping and drain cleaning material are not allowed
to be mixed with the waste collected from households and commercial establishments, as it
can seriously hamper treatment and recycling options for the household and commercial
waste and add to the cost of processing of waste.
key messages for decision-makers

Ensure that street sweeping, drain cleaning, and waste collection form a consistent system. Prevent
street sweeping and drain cleaning material from being mixed with waste collected from
households and collected separately. Also, street sweepings should not be discharged into surface
drains.

4. TECHNICAL ASPECTS: PROCESSING AND TREATMENT

OF MUNICIPAL SOLID WASTE

Part 1 - Salient FeatureS oF the mSwm manual: an overview 29

 CH 14.1 WASTE TREATMENT: HOW TO SELECT APPROPRIATE CH 3
TECHNOLOGIES
SEC 1.4.5.12
The selection and adoption of MSW processing technologies should be based
on defined selection criteria and be subject to a detailed due diligence study,
which ascertains the appropriateness of the technology to the prevailing
conditions of the respective ULB. ULBs might even acquire external expertise
to find the most viable solution among complex technologies. Selection criteria
are listed in Table 1.2 and applied to a number of common strategies and
technology options.

The financial implication of segregation on processing and treatment costs is

substantial and should be considered before selecting any processing and
treatment technology. Treatment and processing of segregated waste streams
not only reduces operational costs but also increases the efficiency of the
process.

key messages for decision-makers

Ensure that selected MSWM technologies fit to the local conditions. Check for successful and
proven project references and experiences in other ULBs. Seek opinions of independent experts.
Consult the State Pollution Control Board (SPCB) for validation of the proposed technology.

30 Manual on Municipal Solid WaSte ManageMent

 6
Table 1.2: Indicative Criteria for Selection of Appropriate Technology or Combination of Technologies

WINDROW VERMICULTURE BIOMETHANATION RDF INCINERATION INTEGRATED SANITARY

COMPOSTING SYSTEM (COM
- LANDFILL
POSTING + RDF)

TECHNICAL CRITERIA
To be located To be located as per To be located as per the To be located To be located as To be located as Landfill
as per the buf
- the buffer zone crite
- buffer zone criteria men
- as per the buf
- per the buffer zone per the buffer must be-
sites
fer zone criteria ria mentioned below. tioned below. fer zone crite
- criteria mentioned zone criteria cated
lo at
m away
mentioned below. ria mentioned below. mentioned below. least
below. from -
500
tial areas
residen
should
and
by the
abide
mentioned
criteria
MSW
in
and
Rulesstate
guideline
level
s.
m for facilities dealing with 100 TPD or more of MSW
m for facilities dealing with 75–100 TPD of MSW
m for facilities dealing with 50–75 TPD of
m for facilities dealing with 10–50 TPD of
MSW
No buffer zone for facilities dealing upto 5 TPD of
MSW
No
MSWbuffer zone for decentralised plants handling less than 1 TPD of MSW (but adequate environmental controls are
required)
500
400
300
200

6 Adopted from various sources (JnNURM Toolkit, World Bank, CPCB, MoEFCC, GIZ, Manual on MSWM (First Edition), CPHEEO (2000), Expert Committee for the revision of MSWM Manual 2014, Task Force on Waste to Energy,
Planning Commission.

Part 1 - Salient FeatureS oF the mSwm manual: an overview

8 Site selection criteria specified by the EIA Notification 2006 and its amendments shall be considered.
9 CPCB Guidance on Criteria for Site Selection for Landfills shall also be considered

31
32
Table 1.2: Indicative Criteria for Selection of Appropriate Technology or Combination of Technologies [contd.]

VERMICULTURE BIOMETHANATION RDF INCINERATION INTEGRATED SANITARY

SYSTEM (COM
- LANDFILL CRITERIA
POSTING + RDF)

Composting in coast
- Should be
al/high rainfall areas avoided in
should have a shed to marshy land Facility
9
prevent waste from and in condi- Location8,
becoming excessively tions where the
wet and thereby to ground water
control leachate -gen table is 2 m
eration.

Manual on Municipal Solid WaSte ManageMent

from the base
of the liner. In
marshy land,
apart from
ground and
surface water
contamination
potential, there Buffer
could be huge Zone (No
risks due to Development
structural safe - Zone)
ty of the land-
fill (slippage
and complete
breakdown).
For 20 TPD of-seg For 300 TPD of segregat
- For 300 TPD For 1000 TPD of For 300 TPD of For 300 TPD of
regated/pre-sorted:
ha. ed/pre-sorted MSW: 2.5 of segregated/ mixed waste: 5 ha segregated/pre- MSW: 30 ha of
1.25 ha of land is required. pre-sorted of land including sorted MSW: 6 land is required
MSW: 2 ha buffer zone ha of land (Note: for 20 years.
of land is re
- Many of the -pro
quired. cessing units are
shared).
 Table 1.2: Indicative Criteria for Selection of Appropriate Technology or Combination of Technologies [contd.]

BIOMETHANATION RDF INCINERATION INTEGRATED SANITARY CRITERIA WINDROW

SYSTEM (COM
- LANDFILL COMPOSTING
POSTING + RDF)

TPD
TPDatatsmall
larger TPD of seg TPD and TPD and TPD inert Natural Composting in
- environment coastal/high rain
-
scale
scaleto regated above -
1500 above of and fall areas should
100and
waste 1000 500cally 100Smalle
waste
mixed (economi above. have a shed to
above above 500
sustainable landfills
r
plants are
(smaller prevent waste
plant
TPD not
are
techno--
not from becoming
nomically size) economic
techno-
eco excessively wet
given the cost viabl
ally
viable, and thereby to
required -
of e
control leachate
mental
environ
equipment generation.
control
boiler
and
technology
Very high High High – Feed stock Moderate -be Only inert
should be free cause both dry waste may
from inerts and and wet fractions be placed in
low on moisture are utilized landfills as per
content SWM Rules
About 30% from mixed Around 30% Around 15%** Approximately No rejects
waste* from mixed 15-20%***
waste**

Land For 300 TPD of

Requirement segregated/pre-
Yes No (feed stock Yes Yes Not as per sorted MSW: 5 ha
for energy -re SWM Rules
of land including
covery)
buffer zone is
required.

10 In cases of an integrated facility of composting and RDF, 15% rejects from mixed waste stream is expected

Part 1 - Salient FeatureS oF the mSwm manual: an overview

* Rejects from mixed waste fundamentally depends on the presence of non- biodegradable material which are taken out during pre-sorting stage
** For incoming mixed waste for RDF & Incineration Non combustible material is taken out during the sorting stage
*** Process rejects from segregated waste should be less than 10%

33
34
CRITERIA WINDROW VERMICULTURE
COMPOSTING

Waste TPD TPD to 20

500
Quantity TPD.
Higher
which can be can also be
capacities
managed by a 1 if adequate
planned
single facility. available
land is along
other
with -
rangemen
necessary ar

Manual on Municipal Solid WaSte ManageMent

ts.

Requirement High Very high

for Segrega
-
tion prior to
technology

Rejects About 30%- in About 30% including

cluding inerts if inerts*
only composting
10
is done. 15%*
rejects with RDF,
if located in the
same plant
Potential for No No
Direct Energy
Recovery
 Table 1.2: Indicative Criteria for Selection of Appropriate Technology or Combination of Technologies [contd.]

WINDROW VERMICULTURE BIOMETHANATION RDF INCINERATION INTEGRATED SANITARY

COMPOSTING SYSTEM (COM
- LANDFILL
POSTING + RDF)

Windrow Community scale Feasibility for Quality of Technology is Composting Sanitary landfill
composting projects are biodegradable waste is should
RDF available. However RDF
and is a proven
technique is well successful proven. In case of mixed based on
be constraints of low facility is
combined method for
established waste, appropriate pre- use, no
end calorific value, upcomin
an safe disposal
sorting has to be carried consensu
clear high moisture gphenomen of waste,
out. son content and high Utilization
on. practiced
requirements
quality proportion of inert rejects
of world over.
.Burning of waste should be compo
from However it has
below
RDF considered while plants as
st environmental
for less
850°C undertaking material for
input implications
thanseconds the project production
RDF and efforts
residenc commercially. sale.
and have to be
2 from
Rejects made to
etime
system are
integrated minimize
pose
can % as opposed
problems 15- waste going to
serious
to 30-40%
health
of landfills. MSW
individual
environment.
and 20 from Rules only
system.
Rules permit inert
regulatin wastes to be
gcharacteristic landfilled.
sof RDF
guidelines
and
appropriate
for
not
use
by
prescribed
authorit
concerned
y.

Part 1 - Salient FeatureS oF the mSwm manual: an overview

35
 36
Table 1.2: Indicative Criteria for Selection of Appropriate Technology or Combination of Technologies [contd.]

VERMICULTURE BIOMETHANATION RDF INCINERATION INTEGRATED SANITARY CRITERIA

SYSTEM (COM
- LANDFILL
POSTING + RDF)

FINANCIAL CRITERIA Technology

Maturity
Cr. per 20 Typically 75-80 Cr for 500 Typically 17-20 Very high capital, Typically 25- High
1 TPD TPD plant Cr for 500 TPD operating and Cr for 500
30
plant maintenance plant)
TPD
costs. 15 Cr. mechanical
without a
per MW power Air
Hot
production HAG) for-
Generator

Manual on Municipal Solid WaSte ManageMent

ing
dry.
moisture can
( However,
reduced by
be
drying with
bio-
less cost
much
slightly
but
efficienc
reduced
y.
Good market poten
- So far, there is no appro
- Good market Good potential of Quality compost
tial in urban and rural priate system for pricing potential for energy generation compliant with
areas. However it is biogas. The system of RDF. if power purchase FCO 2009 has a
not adequately- ex pricing according to -kero agreements are good market. No potential,
-
In small cit
plored for bulk mar
- sene equivalent puts- bio made reflecting since it is
ies, RDF plants Good market
keting. gas at a disadvantage. true cost of pro
- stipulated by
only become potential for
duction including the SWM Rules
At present, there is lot of feeders of RDF RDF.
O&M costs that only inert
interest in conversion of to large RDF
In small cities, wastes are to
biogas into automotive based power
RDF plants only be disposed in
In
fuel by stripping2.CO plants and -ce
become feeders landfills
this case, equivalent-pric ment plants.
of RDF to large
ing with power/CNG again
RDF based power
puts biogas at a disadvan
-
plants and -ce
tage because of scale of
ment plants.
economy.

ads/2012/11/SWM-toolkit.pdf
 CRITERIA WINDROW
COMPOSTING

Indicative Typically 15-20 Cr

Capital In- for 500 TPD plant
11
vestment

Market for Quality

product/ By- compliant
compost
Product FCO 2013
with
good
ahas
IPNM
market. Task
vetted
Force by -
Su
preme Court,
( 1Sep 2006)
recommend
has
co-
ed
of 3-4 bags
marketing
compost with
of
bags of
6-7
fertilize
inorganic
r.

Part 1 - Salient FeatureS oF the mSwm manual: an overview

11 Toolkit for Solid Waste Management, Jawaharlal Nehru National Urban Renewal Mission, New Delhi, Ministry of Urban Development, Government of India. http://jnnurm.nic.in/wp-conten

37
38
Table 1.2: Indicative Criteria for Selection of Appropriate Technology or Combination of Technologies [contd.]

WINDROW VERMICULTURE BIOMETHANATION RDF INCINERATION INTEGRATED SANITARY

COMPOSTING SYSTEM (COM
- LANDFILL
POSTING + RDF)

MANAGERIAL CRITERIA
Labour intensive Labour intensive Less labour intensive Labou Non labour Labour intensive Only inert
intensi
r intensive but requires wastes are to
based
ve but requires considerable be deposited in
on
curre considerable technical capacity sanitary land-
( practic technical capacity, .
nt fills. Labour
e). intensive but

Manual on Municipal Solid WaSte ManageMent

requires con-
siderable tech -
nical expertise
as well.
Technically Technically quali
- Technically qualified and Technically Technically Technically Technically
qualified and fied, experienced and experienced staff. qualified and qualified and qualified and qualified and
12
experienced, semi-skilled staff. experienced experienced staff. experienced staff experienced,
and semi-skilled staff. and semi-skilled. and semi-
staff. skilled staff.
ENVIRONMENTAL CRITERIA
The final product The product is The final product is - - The final product -
is generally ap
- generally safe as generally applied to soil is generally ap
-
plied to soil and worms cannot as a soil conditioner. Can plied to soil and
used as manure. endure significant contaminate the food used as manure.
Can contaminate contamination of chain if compost is not Can contaminate
the food chain if raw materials. FCO meeting FCO norms. the food chain if
compost is not Standards are to be compost is not
meeting FCO met with. meeting FCO
norms. norms.

12 On-site training is required for unskilled labour, as a minimum requirement for efficient operation
 Table 1.2: Indicative Criteria for Selection of Appropriate Technology or Combination of Technologies [contd.]

VERMICULTURE BIOMETHANATION RDF INCINERATION INTEGRATED SANITARY CRITERIA

SYSTEM (COM
- LANDFILL
POSTING + RDF)

Insignificant quanti
- High if not treated appro
- Low High potential of Potential exists Polluted
ties at low waste-vol priately leachate at the for compost surface runoff Labour
umes per vermi-pit. receiving pit. during wet Requirement
Varies with the weather,
climate of area groundwater
and seasonal contamination
variation. In due to leachate
relatively dry infiltration
seasons, leachate
Moderate to
can be recirculat
-
high depending
ed into the wind
-
upon the
row to contain
leachate Predominant
loss of nutrients skills for
recycling
and also pollution Operation and
and control
potential. Management
systems.
Leachate
In high rainfall
management
areas, the wind -
during
rows need to be Concerns
monsoons
covered either for toxicity of
requires product
temporarily or special
permanently to attention
control leach
-
ate generation.
However, the- de
sign of the shed
should be such
that good natu-
ral ventilation is
maintained.

Part 1 - Salient FeatureS oF the mSwm manual: an overview

39
40
Table 1.2: Indicative Criteria for Selection of Appropriate Technology or Combination of Technologies [contd.]

BIOMETHANATION RDF INCINERATION INTEGRATED SANITARY CRITERIA WINDROW

SYSTEM (COM
- LANDFILL COMPOSTING
POSTING + RDF)

Low. Low to Very high -if Moderate,-re Air pollution Leachate Pol
- Potential exists.
moderate (dust, sions
emis not- quire appropriate and problems lution
Leakage of biogas.
aerosols). aged
man emission control of odour and Varies with the
Odour issues Fly ash should
properly. systems (Air methane climate of area
Very high if RDF
disposed
be emission include emissions if and seasonal
is not burnt
in an
safely acid gases, diox
- not managed variation. In
at required
landfil
engineered ins and furans) properly. relatively dry
temperature.

Manual on Municipal Solid WaSte ManageMent

l.Emissions due seasons, leachate
Odour issues. can be recirculat
-
to
incomplete -
-
ed into the wind
bustion
com of -
row to contain
( pal refuse
munici
loss of nutrients
a number of
contain
and also pollution
compound
toxic -
oxins potential.
s, di and
requiring -
furans,
priate In high rainfall
appro
control areas, the wind -
emissions
systems) rows need to be
Fire and safety issues to Presence of Disposal of Presence of- Spontaneous covered either
be taken care of inappropriate bottom ash/slag. propriate-
inap ignition due temporarily or
material in the rial
mate in the to possible permanently to
Fire and safety
RDF (chlorinat- issues to be taken
chlorinated-
RDF methane control leach
-
ed plastics). plas
tics) concentration. ate generation.
care of.
. However, the- de
Fire and safety ( Fire and - Fire and safety
issues to be safety
sues toisbe issues to be sign of the shed
taken care of. care
taken taken care of. should be such
of. that good natu-
ral ventilation is
maintained.
 VERMICULTURE

Odour issues.

Fire and safety issues

to be taken care of
Low.
COMPOSTING

Low (dust, aero

Fire and safety-is

sues to be taken
-
WINDROW

Odour issues.
sol etc.).

care of
CRITERIA

Atmospheric
pollution

Other
4.2 RECYCLING AND RECOVERY
Recycling is a process by which material that are otherwise destined for disposal are
collected, processed, and remanufactured. Recycling diverts CH 3SEC 3.1 a significant fraction
of municipal, institutional, and business waste from disposal and, thereby, saves scarce
natural resources and reduces environmental impacts and the burden on public authorities to
manage waste. Recycling can generate revenues, which result in reducing overall costs for
MSWM. Benefits of recycling include the following:
For the urban local body (ULB):
zz Reduced volume of waste to be managed zz Cost savings, if noticeable revenues
(from sale of recyclables) can be generated zz Longer life span of landfills, since
recyclables are diverted away from landfills zz Reduced needs for environmental
management efforts by the ULB

For the economy:

zz Reduced use of raw materials, fertilizers, etc. zz Cheap products made from
recycled materials zz Livelihood opportunities for the informal sector, and for
recyclers and recycling industry

For the environment: zz Sustainable use of resources: less energy consumption and
less pollution zz Reduced land use for disposal sites zz Reduced environmental
impacts including climate change impacts

Figure 1.8: Typical Fractions of Municipal Solid Waste Generated in India 13

Part 1 - Salient FeatureS oF the mSwm manual: an overview 41

 Source: Study conducted by CPCB & NEERI (2005)

13 ‘Improving Solid Waste Management in India,’ D. Zhu, et al., (2008). Available at: http://www.tn.gov.in/cma/swm_in_india.pdf
The India wide characterization of wastes in Figure 1.8 underlines that there is
additional potential for recycling solid waste discarded by the citizens; it has to
be noted that considerable amounts of recyclables are already taken up-front by
the kabadi system or scrap dealers prior to waste disposal by the citizens. Efforts
should be made to further segregate the recyclables currently being disposed by
households, shops and establishments and to pass them on to the recycling
industry. Every strategy for recycling (as also for other steps of MSWM) should
be based on a thorough waste analysis or characterization in the respective city.
Based on such studies, a detailed estimation of the recycling potential of each
material needs to be done and strategies and technologies for recycling need to
be identified. Successful case studies in India are given in various sections in
Parts II and III of the manual.

The analysis should include identification of potential buyers for recyclables

and affordable market prices.

CH 3 4.3 PROCESSING TECHNOLOGIES

The integrated solid waste management (ISWM) framework should be used as a
guide for selecting most appropriate technologies for managing MSW. ISWM
plants typically have pre-processing facilities to separate organics from
recyclables and other high calorific waste. The organic waste is usually
composted aerobically to produce manure or processed anaerobically (in
absence of air) for production of energy. Recyclables are separated and sent to
wholesalers for further supply to recycling facilities. High calorific wastes are
then baled or processed and can be used as fuel or co-processed in cement
plants.

4.3.1 MATERIAL RECOVERY FACILITY

A material recovery facility (MRF) is a place where non-biodegradable or
recyclable solid waste collected from the doorstep is segregated, sorted and
various components of recyclable waste recovered from it for resale. The MRF

42 Manual on Municipal Solid WaSte ManageMent

 accepts mixtures of waste fractions (non-biodegradable or recyclable) and its
configuration depends on the several factors like the type, quantity and quality
of incoming waste materials. Here the material is basically segregated into
different streams of waste fractions (paper, plastic, packaging paper, bottles etc)
which is further sold to intermediaries who supply bulk material to the recycling
industries. MRFs also require large storage spaces to temporary store sorted
recyclables which can be made available to recyclers in bulk for improved
resale value. Depending on the scale of operations and the level of
mechanization in the facility, MRFs may be classified as manual or mechanized.
Small scale units employ manual MRFs wherein manual sorting process is
being carried and it’s typically owned, operated and managed by the informal
sector. Large scale units have mechanized MRFs with sophisticated systems and
equipment that enable efficient separation of large quantity of material into
different fractions.
4.3.2 COMPOSTING CH 3
SEC 3.2
After waste minimisation and recycling systems, the ISWM hierarchy indicates
adoption of resource recovery strategies and composting as the third preferred
waste management practise, ensuring that waste is processed appropriately to
facilitate further use of the material.

Composting is a controlled aerobic process of biologically “digesting” the

MSW, so it may be recycled for other purposes—plant nutrient, stabilization of
soil in remediation process, or soil amendment for recovery of poor soils.

Compost production can be carried out at the decentralised level (home

composting, bin composting, box composting, vermicomposting, invessel
composting) or at a centralised level (windrow composting, invessel
composting, aerated static pile), depending on the feasibility of
implementation. Both processes require significant pre-processing, and only
segregated organic matter can be composted.

Compost produced should meet with quality criteria specified by the Fertilizer
Control Order (FCO), 2009 and 2013. A market for the compost should be
ascertained before sizing the compost plants.

4.3.3 WASTE TO ENERGY

CH 3
SEC 3.3
Where material recovery and composting from MSW is not possible or desirable due
to local conditions or because of the nature of waste, recovery of energy from MSW is suggested as
a feasible alternative. When high calorific value fractions of MSW are either incinerated (thermal
process) or biodegradable fraction of MSW is processed anaerobically (biomethanation), the
resultant energy, either as heat (incineration) or biogas (methane) can be reused either directly or
converted to electricity using appropriate generators. Sale of this energy should result in the
financial viability of waste to energy systems. Where the tariff of power is not high enough to
ensure financial sustainability of the plant, a tipping fee may be considered by the ULB.

Part 1 - Salient FeatureS oF the mSwm manual: an overview 43

 Appropriate care should be taken to ensure continued and stable supply of the waste for achieving
requisite economies of scale. Proper environmental checks should also be in place to meet with
stringent norms for incineration. Several technological options are available, however a technology
should be selected depending on the quantity, quality of waste to be processed, land requirement,
financial implications etc. Table 1.2 gives a brief overview of different waste to energy technologies
for usage for different waste quantities that are generated across different sized urban local bodies.
Where national legislation does not prescribe norms for emissions from different waste to energy
technologies, the Central Pollution Control Board (CPCB) or State Pollution Control Board (SPCB)
may consider accepted international emission control norms.
CH 3 4.3.4 INCINERATION
SEC 3.3.3

Incineration is a waste treatment process that involves combustion of waste at

very high temperatures in the presence of oxygen, resulting in the production of
ash, flue gas, and heat. It is feasible for unprocessed or minimally processed
refuse besides the segregated fraction of the high calorific waste.

The potential for energy generation depends on the composition, density,

moisture content, and presence of inert in the waste. About 65%–80% of the
energy content of the organic matter can be recovered as heat energy, which
can be utilized for thermal applications. Incineration is an option to be
considered only after implementing suitable material recycling and recovery
systems, or where other better options for processing are not feasible and land
availability is a problem. Typically, only cities which are able to supply at least
1,000 tonnes per day (TPD) of waste should venture to install waste-to-energy
plants. However, incinerator plants have the potential to cause significant
environmental impacts through emissions and fly ash if plants are not operated
efficiently and if appropriate emission control measures are not adopted.
Therefore, due care should be taken to comply with operating and emission
standards as prescribed under revised SWM Rules, 2016 along with adoption
of emission abatement technologies

CH 3 4.3.5 BIOMETHANATION
SEC 3.4

Biomethanation is the anaerobic (in the absence of air or, more specifically,
free oxygen) digestion of biodegradable organic waste in an enclosed space
under controlled conditions of temperature, moisture, pH, etc. It is considered
one of the most technically viable option for the Indian MSW due to MSW’s
high organic and moisture content. Biomethanation plant requires a consistent
source of degradable organic matter free from inert material as well as a
sustainable demand for the generated biogas at appropriate economic
conditions. Biomethanation plant can be operated at decentralised level (up to 5
TPD) or centralised level depending on the feasibility of the implementation
and waste inflow. The overall performance of the biomethanation plant is
greatly influenced by the input feed specification, and the plant requires
segregated biodegradable MSW (e.g., hotel and restaurant waste, market waste)
for optimal plant performance. The homogeneity of the feed material is an
important parameter from the efficiency viewpoint.

44 Manual on Municipal Solid WaSte ManageMent

CH 3 4.3.6 REFUSE DERIVED FUEL
SEC 3.5

Refuse-derived fuel (RDF) refers to the high calorific non-recyclable

combustible fraction of processed MSW, which is used either as a fuel for
steam and electricity generation or as alternate fuel in industrial furnaces and
boilers. The composition of RDF is a mixture that has higher concentrations of
combustible materials than those present in the parent mixed MSW.
4.3.7 TECHNOLOGIES UNDER DEVELOPMENT CH 3
SEC 3.6
Prevalent MSW treatment and processing technologies are based on
longlasting experiences in many countries. With respect to the applicability of
upcoming technologies in India, some of these technologies are being tested
with support from the Government of India. The results of these tests should
be awaited.

Until these technologies are well established commercially, these should be

regarded as experimental technologies and should be handled either as a
research and development (R&D) project or through specially designed
concession agreements. Successful commercial operation of new technologies
for 5 years may be regarded as a safe bet. Pyrolysis, gasification, and bio-
reactor landfills are a few technologies which are being tried on an
experimental basis in India. Due to increased thrust on waste to energy, even
plants with 300 TPD are reported to be viable with certain viability gap
funding for pyrolysis and gasification based plants, however, none of these
technologies have a proven track record for commercial application.

4.3.8 CONSTRUCTION AND DEMOLITION WASTE MANAGEMENT

CH 3
RDF should preferably be co-processed in cement plants. Co-processing of RDF in steel
industry and for power generation is also indicated, but yet to be proven in India.
Internationally, the co-processing of RDF for power generation is technically proven and
widely practised as a part of their waste management strategy; however, not much
information is available for co-processing of RDF in steel sector.

Part 1 - Salient FeatureS oF the mSwm manual: an overview 45

 SEC 3.7

Construction and demolition (C&D) waste means any waste generated during construction,
demolition, or remodelling of any civil structure. Construction and demolition waste
management Rules, 2016 now established lays special thrust on C&D waste management
and its recycling.

C&D waste includes concrete, bricks, tiles, stone, soil, rubble, plaster, drywall or gypsum
board, wood, plumbing fixtures, non-hazardous insulating material, plastics, wall paper,
glass, metals (such as steel, aluminium), asphalt, etc.

ULBs should make arrangements for placement of appropriate containers (skips or other
containers) and their removal at regular intervals or when they are filled, either through
their own resources or by appointing private operators. The collected waste should be
transported to appropriate site(s) for further processing and disposal, again either through
their own resources or by appointing private operators. ULBs should monitor and record
generation of C&D waste within its jurisdiction.
key messages for decision makers

The choice of technologies for processing, treatment, and disposal of SWM in a ULB should be guided by
the ISWM hierarchy. Collection of segregated waste improves the performance of processing and
treatment facilities. The first preference should always be given to segregating recyclables for further
reuse or recycling. Access to appropriate recycling industries is essential for safeguarding public health and
environment. Organic waste may be composted aerobically or used for generating energy through
anaerobic decomposition processes. High calorific value material should be further segregated and may be
used for co-processing in cement plants or as fuel in appropriately designed and environmentally
controlled industrial boilers. Different waste to energy technologies are available for varying quantities of
waste generation. The technologies should be carefully assessed and chosen as per the characteristics and
quantities of waste generated specific to each ULB. Incinerator plants should be planned for only in those
ULBs where a minimum of 1,000 TPD of mixed waste can be supplied daily to the plant, after ensuring
implementation of higher order technologies in the ISWM hierarchy. Process and environmental controls
and monitoring of the entire system are critical for the environmentally sustainable functioning of these
plants. Technologies which are still under development, like pyrolysis, gasification, and bioreactor landfills,
should not be attempted, unless their commercial application is proven in India.

In consultation with expert institutions, the ULBs shall plan for appropriate
management of C&D waste including processing facility and further plan to
use the recycled products in the best possible manner. These institutions can
also suggest ways to introduce “deconstruction” activity from the construction
planning stage and provide assistance in this matter.

Municipal authorities should make bye-laws as well as special arrangements

for storage, transportation, processing, and disposal of C&D waste as per the
revised rules.

46 Manual on Municipal Solid WaSte ManageMent

CH 4 5. TECHNICAL ASPECTS: SOLID WASTE DISPOSAL IN
MUNICIPAL SANITARY LANDFILLS
5.1 WHERE IT ALL ENDS: ENSURE PLANNING AND OPERATION OF
STATE-OF-THE-ART LANDFILLS
Sanitary landfills are facilities for final disposal of MSW on land, designed
and constructed with the objective of minimising impacts to the environment.
The SWM Rules, 2016 provides comprehensive regulations on the siting,
design, and operation of sanitary landfills.

A modern landfill complying with these requirements is a complex facility

with various equipment to minimize environmental impacts.
Figure 1.9 provides an overview on its basic components.
Figure 1.9: Components of a Sanitary Landfill

1. Geological barrier 8. Landfill body

2. Impermeable base liner 9. Filling and compacting in layers
3. Drainage layer 10. Gas venting system
4. Leachate collection system 11. Protective cover system
5. Storm - water drain ditch 12. Gas collectors
6. Bordering dams 13. Grondwater control
7. Circulation roads 14. Re-planting

Waste suitable for landfilling

Condition and composition of waste suitable for disposal in a municipal sanitary landfill are
regulated by the SWM Rules, 2016. Sanitary landfilling is necessary for the following types
of waste:
(i) Non-biodegradable and inert waste (by its nature or through pretreatment);
(ii) commingled waste (mixed waste) not found suitable for waste processing;
(iii) pre-processing and post-processing rejects from waste processing plants; and
(iv) non-hazardous waste not being processed or recycled.

Sanitary landfilling is not allowed for the following waste streams in the
MSW:
(i) biodegradable waste or garden waste (composted preferably);
(ii) dry recyclables (recycled preferably); and

Part 1 - Salient FeatureS oF the mSwm manual: an overview 47

 (iii) hazardous waste (needs hazardous waste sites with special containment).

Site selection for a landfill

The selection of a suitable site for sanitary landfill is governed by the strategy identified in
the state SWM strategy or policy and the MSWM plan of the ULB. The SWM Rules, 2016
provides criteria for the location of the sanitary landfill. CPCB’s guidelines for the selection
of site for landfilling should be used as a guiding document.
CH 5 6. MUNICIPAL SOLID WASTE MANAGEMENT PLAN
IMPLEMENTATION
6.1 MUNICIPAL SOLID WASTE MANAGEMENT PLAN
IMPLEMENTATION AND REQUISITE CLEARANCES
While preparing a MSWM plan, the following design periods (time frame)
have to be decided depending on the necessity of the SWM plan:
1. Short term plan: 5 years
2. Long term plan: 20–25 years
3. Mid term review between 2nd and 3rd year of short term plan

The long term plan should be further drilled down to identify short term action
plans associated with time lines for implementation.

The five-year short term plan may be broken up into specific action plans
covering various aspects such as institutional strengthening, community
mobilization, waste minimisation initiatives, waste collection and
transportation, treatment and disposal, and other policy changes as may be
deemed necessary.

The chief executive of the ULBs a (municipal commissioner, secretary, or

executive officer) is responsible for implementing the MSWM plan, which is
to be developed in line with guidance given in Chapter 1 of Part II of this
manual. The chief executive should operationalize the plan through the SWM
department or cell of the ULB.

Key activities to be undertaken while implementing the short term MSWM

plan are shown in Figure 1.10.

Figure 1.10: Components of Short Term (5 years) Municipal Solid Waste Management Plan
Implementation

48 Manual on Municipal Solid WaSte ManageMent

 MSWM Plan (20-25 Years)

ULB implementation of
short term plan (5 Year)

MSWM service Institutional mechanisms

provision supporting ser vice provision

Action plans for DPRs for Building insti tutions &

each MSWM service specific projects improved capaciti es for MSWM
service pr ovision

MSWM plan Performance

implementation reporting
monitoring mechanisms

MSWM processing, treatment, and disposal facilities require legal or statutory clearances and
approvals for their establishment, depending on the type of facility. SWM Rules, 2016 and the
Environmental Impact Assessment (EIA) Notification, 2006 by the Ministry of Environment Forest
and Climate Change (MoEFCC) provide guidance on the statutory requirements for establishing
storage, processing, treatment, and disposal facilities. An indicative list of clearances and acts that
govern the establishment of MSW disposal facilities is given below.

Part 1 - Salient FeatureS oF the mSwm manual: an overview 49

 Indicative List of Statutory Clearances or Acts and Non-statutory
Approvals required by all Municipal Solid Waste Management
Processing, Treatment, and Disposal Facilities

Statutory Clearances

• Environmental Clearances: Water (Prevention and Control of Pollution) Act, 1974;

Water (Prevention and Control of Pollution) Cess Act,1977; Air (Prevention and
Control of Pollution) Act, 1981; Environment (Protection) Act, 1986, and Rules;
Environmental Impact Assessment Notification, 2006
• Clearance from the State Pollution Control Board
• Clearance from the Airport Authority
• Fertilizer Control Order Clearance for compost based plants
• Land use from the Revenue Authority
• State Electricity Authority Clearance for providing grid connectivity
• Public Liability Insurance Act, 1991 and Rules, 1991
• Industries (Development and Regulation) Act, 1951
• Factories Act, 1948
• Motor Vehicles Act, 1938, amended in 1988 and Rules, 1989
• Petroleum Act, 1934
• Energy Conservation Act, 2001

Non-statutory Approvals

• Proof of Possession of Site

• Bank Loan Sanction Letter and Agreement
• Bank Appraisal Note
• Water Supply Agreement
• Power Purchase Agreement
• Municipal Solid Waste Supply Agreement with Municipal Authority

CH 5 6.2 CONTRACTING ARRANGEMENTS FOR MUNICIPAL SEC 5.3

SOLID WASTE MANAGEMENT SERVICE PROVISION

The following essential aspects should be considered by the ULB while
deciding to contract out MSWM services: zz The ULB should identify services
that can be provided effectively by the existing staff and available financial
resources. zz Subsequently, services which would need to be outsourced due to
limited in-house technical know-how, capability, and financial resources should
be identified. zz Benefits and potential issues with outsourcing services should
be fully evaluated and understood. Justification for the need to contract out
identified services should be prepared. zz Commercial and economic feasibility
of outsourcing services should be ascertained, and appropriate contract models
and their benefits should be assessed for each of the outsourcing services. zz
Where contract labour is hired, the ULB should ensure compliance with the
provisions of the “Contract Labour Abolition & Regulation Act, 1970. zz
Sharing of all possible risks (technical, operational, and financial) between

50 Manual on Municipal Solid WaSte ManageMent

 ULB and the operator should be detailed. zz Where acquisition of land and
community rehabilitation are involved, the ULB should stand in for the
contractor in addressing such issues. zz Contracts should specify the range of
technology or technologies that can be adopted after the ULB undertakes a
thorough assessment of available technologies for specific services. zz On
ascertaining the benefit of outsourcing services, the ULB should prepare terms
of reference for the contracted service.

Not all contracting models are suitable for each of the SWM operations.
Municipal authorities may adopt one or more of the following contracting
models: zz Service contract—door-to-door collection and transportation of waste
zz Management contract—door-to-door collection, C&D collection, secondary
storage, and transportation of waste zz Build and transfer contract—transfer
station, sanitary landfill facility (SLF) zz Build–operate–transfer (BOT) contract
—biomethanation, composting, SLF zz Build–own–operate (BOO) contract—
composting, refuse-derived fuel (RDF), incineration
zz Design–build–own–operate–transfer (DBOOT) contract—large compost plants, RDF
plants, incineration, SLF zz Design–build–finance–operate–transfer (DBFOT) contract—
large compost plants, RDF plants, incineration, SLF

ULBs may decide to bundle certain services while contracting out SWM operations to build
system accountability and efficiency.

A transparent procurement process should be adopted for the selection of public private
partnership (PPP) partner preferably through a transaction advisor after preparing a detailed
project report. The municipal authority has an option of adopting a single stage selection
process or a two-stage selection process for awarding contracts to the private sector.

6.2.1 ENABLING CONDITIONS FOR SUCCESSFUL PRIVATE SECTOR PARTICIPATION AND

PUBLIC PRIVATE PARTNERSHIP CONTRACTS
The following conditions are essential for successful private sector participation (PSP) and
PPP contracts:

zz Availability of undisputed land for specific purpose zz A transparent bidding process zz

Timely handover of site and facilities free from physical and legal encumbrances zz
Clearances, approvals, and decision-making process need to be expeditious (delays in
approval and clearances have serious consequences) zz A sustainable project structure and
revenue model with appropriate risk allocation zz Contract should be based on price sensitivity
for utility (diesel, power, water) and labour zz Product-based support system, e.g., compost,
power, compressed biogas (CBG), etc. zz Political and stakeholder involvement and
acceptance that these are crucial pre-requisites for successful PSPs and PPPs zz Revenue
mechanism should be based on an assessment of full cost recovery for the project zz Carrying
out evaluation based on the long term (concession period of 20–25 years) should incorporate
capital, operation and maintenance
(O&M) costs, e.g., major repair and replacement costs zz Factoring in any probable change
in technology during the concession period

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 zz Transparent
subsidies and credit enhancement to expedite financial closure zz
Clear performance-based indicators zz Appropriate incentives like tax breaks
and duty exemptions

key messages for decision makers

The Chief Executive Officer of the ULB is responsible for the implementation of the short term
MSWM plan. Plan implementation includes planning for services which the ULB may undertake
with its own staff and identifying activities which would require private sector participation.
Institutional capacities and financial resources should be secured while beginning plan
implementation. Outsourced activities will need to be tendered out as per specific provisions with
adequate safeguards built into the bid documents. Depending on the nature of activities to be
tendered out, one of several models of contracting may be adopted. A transparent bidding process
and performance benchmarks combined with stringent monitoring ensures the success of PPP
projects.

CH 6 7. MANAGEMENT ASPECTS: MONITORING

SEC 6.1

MUNICIPAL SOLID WASTE SERVICE PROVISION

7.1 MONITORING MUNICIPAL SOLID WASTE MANAGEMENT PLAN
IMPLEMENTATION
A comprehensive monitoring and evaluation system should be adopted for
assessing progress towards meeting the targets in the MSWM plan and for
monitoring successful implementation of the plan. The monitoring system
adopted should (i) collect data regularly; and (ii) analyze collected
information, take or propose corrective measures, and support the planning and
implementation process.

Institutionalising appropriate quality assurance systems is essential to ensure a

continuous and efficient MSWM system. The performance of all components
of the SWM systems, from collection to processing and disposal, should be
assessed daily. Monitoring and evaluation of MSWM within a management
information system (MIS) has to follow a prescribed schedule, with regular
reporting to show progress or gaps in provision of services. ULBs may appoint
an independent body to evaluate service provision.

Provision of citizen-centric services shall also be monitored through a

feedback mechanism which should primarily focus on concerns of the
community regarding doorstep collection, primary storage, and transportation
of waste.

Collection and analysis of data related to SWM is required to assess the

existing situation and propose adequate measures to improve service delivery.
The MIS system can store and retrieve information for analysis, which can
then be used by decision makers. Communication technologies, such as
geographic information system (GIS), global positioning system (GPS),

52 Manual on Municipal Solid WaSte ManageMent

 general packet radio service (GPRS), and radio frequency identification
(RFID), are now integrated for monitoring the SWM system. These can be
suitably adopted by cities to improve service efficiency.

The head of the SWM department should be responsible for monitoring and evaluation. A
dedicated monitoring and evaluation team should be constituted with distinct roles and
responsibilities. Field level staff should be inducted, and reporting schedules should be fixed.

Reports should capture critical information about the SWM of planning area. Reports should
be effectively used for decision making, identifying gaps and corrective measures beneficial
for decision makers. Standard formats should be developed for producing reports on daily,
monthly, quarterly, or annual basis, as per requirement. Where possible, a MIS system
should be developed to facilitate the collection and reporting of this information. This
information should also be used for midterm review of the MSWM plan and for defining
goals of future planning.

This information can also be used for the assessment of service level benchmarks (SLBs).
State governments use SLBs to monitor long term progress of SWM service provision in
ULBs. Release of funds from the State Finance Commission is partially contingent on
achievement of predefined goals of SLBs.

The SLB indicators stipulated by the Ministry of Urban Development (MoUD) are shown in
Table 1.3.

Table 1.3: Service Level Benchmarks for Solid Waste Management 5

S.NO. INDICATOR UNIT VALUE
1. Household level As % of households and establishments 100%
coverage of MSWM covered by daily doorstep collection
services system
2. Efficiency of As % of total waste collected by ULB and 100%
collection authorised service providers against
of MSW waste generated within the project area
(excluding the waste recycled through
rag pickers)
3. Extent of segregation As % of households and establishments 100%
of MSW that segregate their waste
4. Extent of MSW As % of quantum of waste collected, 80%
recovered which is either recycled or processed
5. Extent of scientific As % of waste disposed in a sanitary 100%
disposal of MSW landfill against total quantum of waste
disposed in landfills and dump sites
S.NO. INDICATOR UNIT VALUE
6. Cost recovery in As % recovery of all operating expenses 100%
MSWM services related to MSWM services that the ULB
is able to meet from the operating
revenues of sources related exclusively
to MSWM
7. Efficiency in As % of total number of MSWM-related 80%
redressal of complaints resolved against total
customer number of MSWM complaints received

5“Handbook of Service Level Benchmarking”, MoUD, 2008.

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 complaints within 24 hours
8. Efficiency in As % of current year revenues collected 90%
collection of charges against total operating revenues for the
corresponding period

CH 67.2 IMPORTANCE OF OPERATION AND MAINTENANCE SEC 6.2 FOR

ENSURED SERVICE DELIVERY

Irrespective of whether the provision of services is by private contractor or

ULB, operation and maintenance (O&M) plan has to be adhered to. The O&M
plan should be drafted by the authority—either the ULB or the private operator
—responsible for procurement and management of equipment and facilities.
O&M plans developed by private operators should be ratified by the SWM
department.

The O&M plan should include preventive maintenance schedules and

responsibilities and also guidance for breakdown maintenance. It should be the
responsibility of the supervisor and operator to regularly maintain and update
the O&M plan. It should also indicate procedures for recording, reporting,
analysis, and further action.

Preventive O&M of equipment, vehicles, and facilities ensures the long term
sustainability of SWM service provision. All contracts to private sector
players, irrespective of the mode of contracting, should include a provision for
O&M of all vehicles, equipment, and installations during the contract period.
The term of the contract should be co-terminus with the expected life of the
vehicles and equipment particularly where the contractor is expected to invest
in the procurement of vehicles and equipment.

Citizens should be provided an opportunity to report issues related to MSWM

service provision. A citizen charter should be developed to inform citizens of
the type of services provided and the complaint redressal process implemented
in the ULB.
key messages for decision makers

MSW service provision should be monitored continuously to ensure desired service levels on a regular basis.
Management information systems (MIS) should be used to record periodic data, retrieve such information, and
analyse it for decision making. O&M plans should be prepared by each of the operators-in-charge of SWM
services or projects. The ULB should scrutinise and validate the O&M plans of private service providers.
Preventive maintenance is very essential for ensuring roadworthy vehicles and wellfunctioning equipment.
Budgeting for preventive maintenance and recording failures should be insisted upon by the ULB. Citizens
should be given an avenue to report on and seek redressal for service issues through an appropriate complaint
redressal system.

8. WHAT TO DO WITH ‘SPECIAL WASTE CH 7 INCLUDING

DOMESTIC HAzARDOUS WASTE’?

54 Manual on Municipal Solid WaSte ManageMent

Special waste including domestic hazardous waste comprises of any solid waste or a
combination of solid wastes that requires special handling and disposal because of
its quantity, concentration, physical and chemical characteristics, or biological
properties, in order to protect human health, as well as the environment and to
exploit its potential for recycling.
In line with this definition, the following wastes are defined as special waste:
1. Plastic waste
2. Bio-medical waste
3. Slaughterhouse waste
4. Electric and electronic waste (e-waste)
5. Waste Tyres
6. Battery waste

Ideally, special wastes including domestic hazardous waste should not enter the
MSW streams, but because many of the above wastes are also generated at household
level, quite frequently they end up in the mixed MSW stream due to improper
collection systems or lack of segregation at source. Some special rules besides the
and SWM Rules, 2016—are applicable to these special wastes including domestic
hazardous waste. In general, special wastes including domestic hazardous waste need
separate collection and treatment systems in order to: zz avoid contamination of other
waste streams (relevant for biomedical waste, slaughterhouse waste, e-waste, and
battery waste); zz apply specified recycling technologies (relevant for plastic waste, e-
waste, and waste tyres); and zz manage large quantities of waste.
Accordingly, the different types of special waste including domestic hazardous waste require
specific collection and treatment systems which are specified in Chapter 7 of Part II of the
manual.

How Far Are ULBs Responsible?

By far not all special waste including domestic hazardous waste require operational
involvement of the ULB. The following options are relevant:

zz Systems of extended producer responsibility: Batteries and certain types of e-waste can
be collected and treated through return systems operated by producers or retailers of these
products.
zz Full responsibility of the private sector: Some special wastes such as end-of-life vehicles
are usually recycled and treated in full responsibility of the private sector. The role of
public agencies is restricted to control functions, e.g., with respect to the compliance with
environmental requirements.
zz Public private partnership: Certain waste types can be handled within PPP schemes. This
might be especially relevant for biomedical and slaughterhouse waste.
zz Integrated urban local body operation: Plastic waste is also a nonhazardous component
of MSW. The ULB should establish special collection systems within their general
MSWM operations.

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 key messages for decision-makers

Take a critical look at which special wastes your ULB can and should reliably handle and at how this should be done.
If necessary, establish sustainable and well-controlled solutions with or without third parties, as mentioned above.

9. ADEQUATE TRAINING AND CAPACITY BUILDING

FOR MUNICIPAL SOLID WASTE MANAGEMENT STAFF
As per SWM Rules, 2016:

Clause15(zc) educate workers including contract workers and supervisors for door to door
collection of segregated waste and transporting the unmixed waste during primary and
secondary transportation to processing or disposal facility;

Any intervention can only be successful when the organization has the requisite technical
and managerial skills to establish, operate, and maintain the system. Without these skills,
new systems fail to deliver services. Therefore, capacity building, education, and training
plays the pivotal role in providing necessary impetus in creating the workforce and imparting
knowledge.

Capacity building and training involves various stakeholders from communities to decision
makers to ULB officials and waste handlers and operators. Each stakeholder has defined
roles, responsibilities, and contribution toward waste management. Therefore, the training
cannot be generalised; specific training should be designed to meet the need of different
stakeholders.

10. EFFECTIVE COMMUNITY PARTICIPATION

THROUGH INFORMATION, EDUCATION AND COMMUNICATION
Along with strategic planning, significant cooperation and support from various stakeholders
(communities, ULBs, waste operators) is important for a successful and efficient waste
management programme.

Information, education, and communication (IEC) is a multilevel tool for promoting and
sustaining change in individuals and communities. IEC is key to the success of the
modernization of MSWM. Awareness among community and different stakeholders to meet
the demands of the new system for a cleaner environment requires a detailed and thorough
understanding at every stage.

Development and implementation of an IEC campaign involves planning and implementing

a comprehensive strategic set of interventions and activities to change mindset and
behaviour of people at several levels to achieve the overall objectives of MSWM. The IEC
programme should not only target households, commercial establishments, institutes, but
also other stakeholders like municipal officials, elected representatives, schools, non-
government organizations (NGOs), resident welfare associations (RWAs), informal sector,
and media to ensure effective participation. However, involvement of community will
remain the main thrust of the programme.

56 Manual on Municipal Solid WaSte ManageMent

 Various mediums of communication are available for the IEC program like print (magazines,
posters, newspaper); audio–visual (radio jingles, TV ads, short films, CDs); internet, and
interpersonal medium. Among these interpersonal communications are some of the most
effective tools e.g., individual counselling, community-level interactions, RWA meetings,
and door-to-door visits.
11. RESEARCH & DEVELOPMENT AND
DEMONSTRATION PROjECT NEEDS FOR THE
MUNICIPAL SOLID WASTE SECTOR
11.1 QUANTITY AND CHARACTERISTICS OF MUNICIPAL SOLID WASTE
Dependable long term data on quantity and characteristics of MSW is essential for effective
planning. Most of the data available on quantity of waste are population based estimates
using unit waste generation derived from short term studies. The characterization exercises
are short term and depend on relatively small sample sizes.

Every ULB should chalk out a plan for quality and quantity check round the year, so that
seasonal variations are captured. This should be repeated once in 3 years. After the first year,
data collection would get streamlined and become easier for subsequent years.

11.2 SEGREGATED STORAGE AT SOURCE

This is easier said than done. However, this first step holds the key to sustainable waste
management solutions, which are simpler and save a lot of cost incurred for segregation of
mixed waste. Chances of contamination is negligible which means the products and by-
products would be clean and of better quality. The type and size of bins which can be
procured and used by the actual users plus the number of bins dependent upon the number of
segregated streams need to be researched in collaboration with target communities. The
same exercise has to be carried out in different parts of the country (for physio-geographic
and climatic variations) and for different income groups.

11.3 COLLECTION AND TRANSPORTATION OF SEGREGATED WASTE STREAMS

Source segregation described above will be successful only when the segregated streams are
not mixed at any stage and are taken to the respective processing or disposal facility directly
or through a transfer station. This exercise may appear to be very difficult in the beginning
but once started sincerely, should become easier in the times to come. Since this is so far
absent on city wide scale, it is necessary to research with concerned municipal staff and
experts and the ULB may start at ward level as pilot experiment.
11.4 PROCESSING OF MUNICIPAL WASTE MANAGEMENT
a. New technologies – pyrolysis, gasification etc.
b. Exploring possibility of improvement in existing technologies for increasing efficiency,
techno-economic viability and long term sustainability.
c. Processing of recyclable items in are environmental and health friendly manner.
d. Setting standards for use of recycled material, for example, recycled plastics, paper etc.

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 11.5 SANITARY LANDFILLING
a. Design of SLF in seismic zones 4 and 5, especially in the North east (high rainfall areas).
b. Disposal of fly ash from waste incinerator plants (should the ash be stabilised in concrete
matrix or disposed as dry loose powder).
c. Appropriate disposal of bottom ash from waste incinerators.
d. Design of landfill for different climatic and hydro-geological situations, detailed
specifications of materials and methods, .e.g., of geo-membrane, geo-textile, substitute
and supplement for good clay (which is not available at many places) etc.

11.6 REMEDIATION OF DUMPSITE

a. Conditions for closure (capping) and reuse.
b. Different hydrogeological situation, climate etc.
c. Hazard ranking of dumpsites for prioritising their remediation or capping etc.
d. Whether and under what conditions reclamation of dumpsites can be done in an
affordable and environmental friendly manner for reclaiming the land?

12. ROADMAP
To ensure full implementation of SWM Rules 2016 and guidance of the MSW Manual, the
following roadmap is suggested:

• Constitution of Centralmonitoring committee under the chairmanship of

secretary (MoEFCC) comprising of MoUD, CPCB, and at least three representatives from State
Pollution Control Boards, Urban Development Departments of State Governments or Union
Territories, ULBs and subject experts to monitor and review implementation of the rules, and the
committee constituted shall meet biannually.
• All States should plan their Solid Waste Management Strategy with a defined
action plan covering all ULBs in the State.
• Developing a Municipal Solid Waste Management Plan following a 7
step approach. The plan should be in consonance with SWM Rules, 2016, the State Policy or
Strategy on MSWM and the State Sanitation Strategy developed under the National Urban
Sanitation Policy.
• A National or State Cadre for Solid Waste Management for
technical professionals can be planned so that they get varied experience to enrich their
professional capability.
• Some States have planned or implemented regional facilities for
MSWM especially for regional landfill. However, actual experience of these facilities is still
not available. These regional facilities should be studied and the experience documented. There
maybe a need to set up more such facilities on pilot basis for thorough study and documentation
to bring out suitability of this system in the Indian context.
• Regular assessment of waste characterisation studies should be conducted
for all ULBs at regular intervals of 3-5 year in order to optimise processing and reduce material
disposed in the landfill.

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• Waste quantification assessment on a regular basis, which would be an
important indicator for monitoring the collection efficiency of the ULB is also one of the
indicators of SLB.
• R&D and demonstration plants need to be set up and
operated for experience and information that will help improve overall MSW in
the country.
• Adequate training and capacity building for MSWM staff in
order to keep them abreast with the regulatory and techno-economic developments.
• Formulation or strengthening of policies and bye laws at
State and ULB level for proper management of municipal solid waste.
• Effective community participation through IEC along with regular payment
of municipal taxes and duties. Development and enforcement of the extended producer
responsibility (EPR) schemes at the national level and state level.
• There is a need for formulation of conducive policy guidelines
at national level and regulatory authority at the state level with respect to waste to
energy plants, power purchase and tariff feeds.
• Government support should also be product-based.

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