OFFICE OF THE DEPUTY PRIME MINISTER

MINISTRY OF LOCAL GOVERNMENT

REPUBLIC OF KENYA

CITY COUNCIL OF NAIROBI

PREPARATORY SURVEY FOR INTEGRATED SOLID WASTE

MANAGEMENT IN NAIROBI CITY IN THE REPUBLIC OF
KENYA

FINAL REPORT
VOLUME 2 MAIN REPORT

OCTOBER 2010

JAPAN INTERNATIONAL COOPERATION AGENCY (JICA)

CTI ENGINEERING INTERNATIONAL CO., LTD.

NJS CONSULTANTS CO., LTD.
All Kenyan Shilling amounts including project costs shown in this report are stated in 2010 prices
unless otherwise indicated. The amounts were estimated based on foreign prices by applying
currency exchange rates for interbank rates as of 1st of June 2010, namely; USD1.00 = KSh 75.8 =
JPY 91.35.
 PREFACE

In response to a request from the Government of Republic of Kenya, the

Government of Japan decided to conduct “The Preparatory Survey for Integrated
Solid Waste Management in Nairobi City” and entrusted the study to the Japan
International Cooperation Agency (JICA).

JICA selected and dispatched a study team headed by Mr. Masakazu Maeda
of CTI Engineering International Co., Ltd. and consisted of experts from CTI
Engineering International Co., Ltd. and NJS Consultants Co., Ltd. from October
2009 to October 2010.

The study team held discussions with the Kenyan counterparts and conducted
field surveys at the study area. Upon returning to Japan, the study team conducted
further studies and prepared this final report.

I hope that this report will contribute to the promotion of the study and to the
enhancement of friendly relationship between our two countries.

Finally, I wish to express my sincere appreciation to the Kenyan counterparts

for their close cooperation extended to the study.

October 2010

Izumi Takashima
Vice-President
Japan International Cooperation Agency
 October 2010

Mr. Izumi Takashima

Vice-President
Japan International Cooperation Agency
Tokyo, Japan

LETTER OF TRANSMITTAL

Dear Sir:

We are pleased to submit herewith the Final Report on the Preparatory Survey for
Integrated Solid Waste Management in Nairobi City in the Republic of Kenya.

The survey was conducted by CTI Engineering International Co., Ltd. and NJS
Consultants Co., Ltd., under a contract with the Japan International Cooperation
Agency (JICA) during the period from October 2009 to October 2010. In conducting the
survey, particular attention was paid to the review of the previous master plan formulated
by JICA in 1998 and to its update to formulate a new master plan of solid waste
management (SWM) for Nairobi City. In view of the urgency and necessity to improve
public cleanliness and public health and protect the environment, action plans are
proposed in the new master plan and technical viability and financial affordability are
identified. We recommend that the Government of the Republic of Kenya and the City
Council of Nairobi, the executing agency, should promote all of the action plans to the
next stage of project implementation at the earliest possible opportunity.

We wish to take this occasion to express our sincere gratitude to the Government of Japan,
particularly, JICA, the Ministry of Foreign Affairs, and other offices concerned. We also
wish to express our deep appreciation to the Office of the Deputy Prime Minister and the
Ministry of Local Government, the City Council of Nairobi and other authorities
concerned in the Government of the Republic of Kenya for the close cooperation and
assistance extended to the JICA Survey Team during the preparatory survey.

Finally, we sincerely hope that the results of the survey will contribute to the solution
and/or mitigation of solid waste management problems in Nairobi City and that the
amicable relationship between both our countries will further continue in the future.

Very truly yours,

Masakazu Maeda
Team Leader
Preparatory Survey for Integrated
Solid Waste Management in Nairobi City
LOCATION MAP

i
 COMPOSITION OF FINAL REPORT

Volume 1 EXECUTIVE SUMMARY

Volume 2 MAIN REPORT

Volume 3 SUPPORTING REPORT

Section A Waste Amount and Composition Analysis

Section B Organisational, Institutional and Human Resources Development

Study

Section C Collection and Transportation Study

Section D 3R and Intermediate Treatment

Section E Final Disposal

Section F Public and Establishment Awareness for SWM

Section G Environmental and Social Considerations

Section H Financial and Economic Aspect

Section I Hazardous Waste Management

Volume 4 DATA BOOK

iii
iv
 PREPARATORY SURVEY
FOR
INTEGRATED SOLID WASTE MANAGEMENT
IN NAIROBI CITY
IN
THE REPUBLIC OF KENYA

FINAL REPORT

VOLUME 2

MAIN REPORT

TABLE OF CONTENTS

Location Map .............................................................................................................................. i

Composition of Final Report .................................................................................................... iii
Table of Contents .........................................................................................................................v
List of Tables ............................................................................................................................. vii
List of Figures............................................................................................................................. ix
List of Photos .............................................................................................................................. xi
Abbreviations and Acronyms................................................................................................... xii

CHAPTER 1. INTRODUCTION ..........................................................................................1-1

1.1 Background of the Survey .........................................................................................1-1
1.2 Necessity of the Survey .............................................................................................1-1
1.3 Objectives of the Survey ............................................................................................1-2
1.4 Scope of the Survey ...................................................................................................1-3
1.5 Survey Schedule.........................................................................................................1-4
1.6 Staffing Schedule .......................................................................................................1-5

CHAPTER 2. DESCRIPTION AND EVALUATION OF CURRENT CONDITION ......2-1

2.1 Introduction................................................................................................................2-1
2.2 Waste Generation and Composition Analysis ............................................................2-1
2.3 Institutional, Organisational and Human Resources Development Study ...............2-14
2.4 Collection and Transportation Study........................................................................2-29
2.5 3R and Intermediate Treatment................................................................................2-36
2.6 Final Disposal ..........................................................................................................2-44
2.7 Public and Establishments’ Awareness on SWM .....................................................2-51
2.8 Environmental and Social Considerations ...............................................................2-61
2.9 Financial and Economic Aspect...............................................................................2-73
2.10 Hazardous Waste Management ................................................................................2-78

v
CHAPTER 3. PLANNING POLICIES OF SOLID WASTE MANAGEMENT IN
NAIROBI AND FRAMEWORK OF THE MASTER PLAN .................... 3-1
3.1 Introduction ............................................................................................................... 3-1
3.2 Principles and Guidelines for Establishment of SWM Framework .......................... 3-1
3.3 Planning Strategy ...................................................................................................... 3-4
3.4 Planning Directions of the Master Plan..................................................................... 3-5
3.5 Goals of the Master Plan ......................................................................................... 3-13

CHAPTER 4. FORMULATION OF THE MASTER PLAN ............................................. 4-1

4.1 Introduction ............................................................................................................... 4-1
4.2 Socioeconomic Aspect .............................................................................................. 4-1
4.3 Future Waste Generation and Composition Analysis .............................................. 4-13
4.4 Development and Evaluation of Technical Options ................................................ 4-24
4.5 Action Plan of Technical Approach......................................................................... 4-66
4.6 Organisational Restructuring and Human Resources Development Plan ............... 4-74
4.7 Legal and Institutional Reform Plan ....................................................................... 4-91
4.8 Financial Management Plan .................................................................................. 4-106
4.9 Private Sector Involvement Promotion Plan ......................................................... 4-127
4.10 Community Participation Promotion Plan ............................................................ 4-146
4.11 Urgent Projects and Preparatory Actions .............................................................. 4-149
4.12 Implementation Schedule and Cost, and Plan of Operations ................................ 4-151
4.13 Evaluation of the Master Plan ............................................................................... 4-163

CHAPTER 5. CONCLUSION .............................................................................................. 5-1

CHAPTER 6. RECOMMENDATIONS............................................................................... 6-1

REFERENCES

ANNEXES

vi
 LIST OF TABLES

Table 1.6.1 Members of the Steering Committee and the Survey Team .............................. 1-5
Table 2.2.1 Number of Samples for the Waste Amount and Composition Survey .............. 2-2
Table 2.2.2 Waste Generation Rate of Each Generation Source.......................................... 2-3
Table 2.2.3 Waste Composition of Each Generation Source................................................ 2-5
Table 2.2.4 Weight and Weighted Ratio of Total Waste Generation .................................... 2-6
Table 2.2.5 Domestic Waste Composition in Nairobi and Dhaka ........................................ 2-7
Table 2.2.6 Three-Content Analysis of Each Generation Source......................................... 2-9
Table 2.2.7 Total Amount of Waste Generation ................................................................. 2-11
Table 2.2.8 Summary of Waste Reduction, Recovery and Diversion ................................ 2-12
Table 2.3.1 CCN Revenues for Financial Year 2009/2010 ................................................ 2-20
Table 2.3.2 CCN Expenditures for Financial Year 2009/2010........................................... 2-20
Table 2.3.3 Summary of Capacity Assessment .................................................................. 2-24
Table 2.3.4 Gaps and Interventions Suggested by UNEP/ISWM Programme................... 2-26
Table 2.4.1 Collected Waste Amount at Dandora Dumpsite .............................................. 2-31
Table 2.4.2 Summary of Causes of Illegal Dumping ......................................................... 2-33
Table 2.5.1 Recyclable Materials Recovered by Junk Dealers .......................................... 2-37
Table 2.5.2 Amounts of Recyclable Material used by Recyclers/Factories ....................... 2-38
Table 2.5.3 Estimated Production Amount of Compost and Raw Material Input.............. 2-38
Table 2.5.4 Results of Waste Composition Survey (Weighted Average of Domestic
Waste).............................................................................................................. 2-40
Table 2.5.5 Comparison of Percentages of Potential Recyclable Materials in Domestic
Waste ............................................................................................................... 2-41
Table 2.6.1 Total Waste Amount at Dandora Dumpsite ..................................................... 2-46
Table 2.6.2 Staff Allocation of Dandora Dumpsite ............................................................ 2-47
Table 2.6.3 Annual Expenditures for Dandora Dumpsite Operation (2006)...................... 2-48
Table 2.6.4 Annual Expenditures for Dandora Dumpsite Operation ................................. 2-48
Table 2.7.1 General Findings of the Public Awareness Survey.......................................... 2-51
Table 2.7.2 General Findings of the Commercial Establishment and Institution Survey .. 2-53
Table 2.7.3 General Findings of the Hospital Survey ........................................................ 2-54
Table 2.7.4 Monthly Income Range of Five Income Groups in Nairobi City.................... 2-56
Table 2.7.5 Affordability to Pay of Households................................................................. 2-56
Table 2.9.1 Rate of Charges of Zoa Taka Ltd..................................................................... 2-77
Table 2.10.1 Health Care Facilities in Nairobi City ............................................................. 2-79
Table 2.10.2 Ownership of Healthcare Facilities ................................................................. 2-79
Table 2.10.3 Industrial Plants in Nairobi City...................................................................... 2-80
Table 2.10.4 List of Contractors with Incinerator in Nairobi City ....................................... 2-81
Table 3.2.1 Waste Category and Management Responsibility ............................................. 3-2
Table 3.2.2 Parties Involved in Solid Waste Management and Their Responsibilities ........ 3-3
Table 4.2.1 Past Populations of Nairobi............................................................................... 4-1
Table 4.2.2 Projection of Future Population and Reference Future Population................... 4-2
Table 4.2.3 Future Population of CCN Divisions ................................................................ 4-3
Table 4.2.4 Future Population of Proposed Waste Collection Zones ................................... 4-4
Table 4.2.5 Projection of Population, GDP and Per Capita of Kenya.................................. 4-5
Table 4.2.6 Projection of GDP and Per capita GDP of Kenya (Scenario 1)......................... 4-8
Table 4.2.7 Projection of GRDP and Per capita GRDP of Nairobi City (Scenario 2).......... 4-9
Table 4.3.1 Forecast of Future Population of Nairobi City (Unit: 103 person) .................. 4-13
Table 4.3.2 Projection of Household Waste in Nairobi City (ton/day)............................... 4-16
Table 4.3.3 Projection of Commercial Waste in Nairobi City (ton/day) ............................ 4-16
Table 4.3.4 Projection of Road Sweeping Waste in Nairobi City (ton/day)....................... 4-16
Table 4.3.5 Projection of Market Waste in Nairobi City (ton/day) .................................... 4-17
Table 4.3.6 Projection of Total Waste Amount Generation in Nairobi City (ton/day) ....... 4-17

vii
Table 4.4.1 List of Future Road Networks in Nairobi Metropolitan Area.......................... 4-25
Table 4.4.2 Technical Options by Type of Collection Vehicle ........................................... 4-26
Table 4.4.3 Details of Technical Options of Transport System .......................................... 4-30
Table 4.4.4 Proposed Collection System ............................................................................ 4-31
Table 4.4.5 Target Collection Ratio and Waste Amount of Nairobi City ........................... 4-32
Table 4.4.6 Required Number of Collection Vehicles in Each Target Year........................ 4-32
Table 4.4.7 Results of Cost Estimation for Technical Options........................................... 4-33
Table 4.4.8 Procurement Number of Collection Vehicles (Case-A)................................... 4-35
Table 4.4.9 Procurement Cost of Collection Vehicles (Case-A) ........................................ 4-35
Table 4.4.10 Project Cost (Case-A) ...................................................................................... 4-35
Table 4.4.11 Procurement Number of Collection Vehicles (Case-B) ................................... 4-36
Table 4.4.12 Procurement Number of Collection Vehicles (Case-B) ................................... 4-36
Table 4.4.13 Project Cost (Case-B) ...................................................................................... 4-36
Table 4.4.14 Technical Option for Recovery of Recyclable Waste ...................................... 4-40
Table 4.4.15 Proposed Target Level of 3R Activities ........................................................... 4-45
Table 4.4.16 Programmes under 3R Plan (1)........................................................................ 4-45
Table 4.4.17 Programmes under 3R Plan (2)........................................................................ 4-46
Table 4.4.18 Programmes under 3R Plan (3)........................................................................ 4-46
Table 4.4.19 Programmes under 3R Plan (4)........................................................................ 4-47
Table 4.4.20 Intermediate Treatment and Disposal Practiced in Japan in Fiscal Year 2007
......................................................................................................................... 4-49
Table 4.4.21 Calorific Value of Combustible Waste of 1,066 Incineration Plants in Japan
in Fiscal Year 2007 .......................................................................................... 4-50
Table 4.4.22 Result of Laboratory Test of Three Contents (Domestic Waste), Jan-Mar
2010 ................................................................................................................. 4-50
Table 4.4.23 Qualitative Evaluation of Intermediate Treatment Options............................. 4-52
Table 4.4.24 Classification of Sanitary Level of Landfill System........................................ 4-54
Table 4.4.25 Major Constraints to the Selection of Candidate Final Landfill Sites ............. 4-56
Table 4.4.26 Landfill Site Capacity Requirements............................................................... 4-57
Table 4.4.27 Major Components of Landfill Site................................................................. 4-58
Table 4.4.28 Monitoring Items in Final Sanitary Landfill Sites ........................................... 4-61
Table 4.4.29 Annual Landfill Expenditure for New Final Sanitary Landfill Site at Ruai .... 4-62
Table 4.4.30 Annual Dandora Dumpsite Expenditure (2011-2017)..................................... 4-64
Table 4.6.1 Outline of the Proposed Organisational Structure of Preparatory Unit for
SWMPC........................................................................................................... 4-75
Table 4.6.2 Outline of the Proposed Organisational Structure of SWMPC........................ 4-78
Table 4.6.3 Incomplete Action Plans of Previous 1998 Master Plan to be Partially
Reflected.......................................................................................................... 4-79
Table 4.6.4 Outline of Comprehensive Capacity Development Programme...................... 4-86
Table 4.6.5 Incomplete Action Plans of Previous 1998 Master Plan to be included in the
CCDP............................................................................................................... 4-87
Table 4.6.6 Outline of Working Procedure Manuals to be Formulated .............................. 4-89
Table 4.7.1 Outline of Minor Modifications of Other Related Legal Framework.............. 4-93
Table 4.7.2 Outline of Required Minor Modifications of CCN Solid Waste Management
By-Laws .......................................................................................................... 4-95
Table 4.8.1 Relationship among O&M Cost, Total Cost of the Project, and the WTP and
ATP ................................................................................................................ 4-107
Table 4.8.2 Scenarios of Waste Charge for Households by Income Level....................... 4-107
Table 4.8.3 Cases of Financial Simulation for SWMPC .................................................. 4-109
Table 4.8.4 Summary of Cash Flow Simulation for CCN/SWMPC ................................ 4-111
Table 4.8.5 Projection of Cash Flow of CCN/SWMPC: Medium Scenario for Case-A
(Case-A.2)...................................................................................................... 4-111
Table 4.8.6 Projection of Cash Flow of CCN/SWMPC: Medium Scenario for Case-B
(Case-B.2)...................................................................................................... 4-112
Table 4.8.7 Summary of Simulation for Private Companies (Nine Zones)...................... 4-114

viii
Table 4.8.8 Unit Cost of O&M by Form of SWM ........................................................... 4-115
Table 4.8.9 Waste Charge Level and Collection Rate of Waste Charge........................... 4-115
Table 4.8.10 Projection of Cash Flow of CCN (Direct) as PSC ........................................ 4-116
Table 4.8.11 Projection of Cash Flow of Existing SWM: CCN (Direct & Contractout) ... 4-117
Table 4.8.12 Projection of Cash Flow of SWMPC ............................................................ 4-117
Table 4.8.13 Comparison of O&M Cost by Form of SWM............................................... 4-118
Table 4.9.1 Comparison of Possible PPP Options............................................................ 4-129
Table 4.9.2 Comparison of Three-grade Evaluation of PPP Option (Collection and
Transport) ...................................................................................................... 4-132
Table 4.9.3 Comparison of Three-grade Evaluation on PPP Options (Sanitary Landfill
Site and Intermediate Treatment Facilities)................................................... 4-134
Table 4.9.4 Outline of New Zones for Collection Services.............................................. 4-136
Table 4.9.5 Overall Road Map of Step-wise Introduction of Franchise System .............. 4-138
Table 4.9.6 Proposed Contents of Manifestos.................................................................. 4-145
Table 4.13.1 Project Cost of the Master Plan (Financial Price) ......................................... 4-164
Table 4.13.2 Summary of Project Cost of the Master Plan (Market Price): Case-A (1) .... 4-165
Table 4.13.3 Summary of Project Cost of the Master Plan (Market Price): Case-A (2) .... 4-166
Table 4.13.4 Summary of Project Cost of the Master Plan (Market Price): Case-B (1) .... 4-167
Table 4.13.5 Summary of Project Cost of the Master Plan (Market Price): Case-B (2) .... 4-168
Table 4.13.6 Implementation Schedule and Cost of Projects of the Master Plan (1)......... 4-169
Table 4.13.7 Implementation Schedule and Cost of Projects of the Master Plan (2)......... 4-170
Table 4.13.8 Profit and Loss Statement of the Master Plan (Case-A.2)............................. 4-172
Table 4.13.9 Cash Flow Statement of the Master Plan ...................................................... 4-172
Table 4.13.10 Cash Flow of Financial Cost and Revenue of the Master Plan (Case-A.3)... 4-173
Table 4.13.11 Indicators for Financial Evaluation of the Master Plan................................. 4-173
Table 4.13.12 Scenario for WTP by Income Level and by Zone ......................................... 4-174
Table 4.13.13 Estimates of Saved Waste Disposal in Final Landfill Site ............................ 4-176
Table 4.13.14 Estimates of Saved Cost on Waste Disposal Treatment at Final Landfill Site
(Ruai)............................................................................................................. 4-176
Table 4.13.15 Cases of Economic Evaluation for the Master Plan ...................................... 4-177
Table 4.13.16 Summary of Project Cost of the Master Plan (Economic Price):
Case-A (1) ..................................................................................................... 4-178
Table 4.13.17 Summary of Project Cost of the Master Plan (Economic Price):
Case-A (2) ..................................................................................................... 4-179
Table 4.13.18 Summary of Project Cost of the Master Plan (Economic Price):
Case-B (1) ..................................................................................................... 4-180
Table 4.13.19 Summary of Project Cost of the Master Plan (Economic Price):
Case-B (2) ..................................................................................................... 4-181
Table 4.13.20 Project Cost of the Master Plan (Economic Price) ........................................ 4-182
Table 4.13.21 Cash Flow of Economic Cost and Benefit for the Master Plan
(Case-A.3) ..................................................................................................... 4-183
Table 4.13.22 Summary of Economic Evaluation for the Master Plan ................................ 4-183

LIST OF FIGURES

Figure 1.5.1 Overall Survey Schedule.................................................................................... 1-4

Figure 2.2.1 Waste Generation per Capita in Residential Area .............................................. 2-4
Figure 2.2.2 Physical Composition of Each Generation Source ............................................ 2-6
Figure 2.2.3 Domestic Waste Composition in Nairobi and Dhaka......................................... 2-8
Figure 2.2.4 Apparent Specific Gravity.................................................................................. 2-9
Figure 2.2.5 Three-Content Analysis Results ....................................................................... 2-10
Figure 2.2.6 Current Waste Flow in Nairobi City (Year 2009)............................................. 2-13
Figure 2.3.1 Organisational Chart of the Department of Environment (1)........................... 2-14
Figure 2.3.2 Outline of the Organisational Chart of the Department of Environment (2) ... 2-15

ix
Figure 2.3.3 Image of Variable Cost, Fixed Cost, Total Cost and Break-Even Point ........... 2-18
Figure 2.5.1 Recovery Flow of Recyclable Materials at Present.......................................... 2-36
Figure 2.6.2 Location of Kayole Temporary Dumpsite ........................................................ 2-49
Figure 4.2.1 Projection of Future Population and Reference Future Population .................... 4-3
Figure 4.2.2 Location Map of CCN Divisions and Proposed Waste Collection Zones .......... 4-4
Figure 4.2.3 Projection of Population and GRDP of Nairobi City ....................................... 4-10
Figure 4.2.4 Projection of Population and Per Capita GRDP of Nairobi City...................... 4-10
Figure 4.3.1 Amount of Waste Projected for Each Zone as of 2010..................................... 4-15
Figure 4.3.2 Projection of Total Waste Amount in Nairobi City........................................... 4-17
Figure 4.3.3 Estimated Per Capita Waste Generation Amount (kg/day)............................... 4-18
Figure 4.3.4 Comparison of Projected Waste Amount (ton/day) .......................................... 4-18
Figure 4.3.5 Future Waste Flow in Nairobi City (Year 2010)............................................... 4-19
Figure 4.3.6 Future Waste Flow in Nairobi City (Year 2015)............................................... 4-20
Figure 4.3.7 Future Waste Flow in Nairobi City (Year 2020)............................................... 4-21
Figure 4.3.8 Future Waste Flow in Nairobi City (Year 2025)............................................... 4-22
Figure 4.3.9 Future Waste Flow in Nairobi City (Year 2030)............................................... 4-23
Figure 4.4.1 Map of Future Plans of Road Network Development for Nairobi
Metropolitan Area............................................................................................. 4-25
Figure 4.4.2 Location Map of Technical Options for Transport System .............................. 4-27
Figure 4.4.3 Implementation Schedule of Case-A: Direct Haul to Ruai Final Landfill Site
.......................................................................................................................... 4-34
Figure 4.4.4 Implementation Schedule of Case-B: Construction of Transfer Station at
Dandora Dumpsite............................................................................................ 4-34
Figure 4.4.5 Conceptual Flow of Implementation of 3R Programmes ................................. 4-40
Figure 4.4.6 Technical Options of Intermediate Treatment .................................................. 4-48
Figure 4.4.7 Intermediate Treatment and Disposal Practiced in Japan in Fiscal Year 2007
.......................................................................................................................... 4-49
Figure 4.4.8 Location Map of Candidate Final Sanitary Landfill Sites ................................ 4-55
Figure 4.4.9 Typical Structure of Sanitary Landfill .............................................................. 4-58
Figure 4.4.10 Layout Plan of Ruai Final Sanitary Landfill Site ............................................. 4-59
Figure 4.4.11 Vertical Section View of Ruai Final Sanitary Landfill Site.............................. 4-60
Figure 4.4.12 Sandwich Cell Method ..................................................................................... 4-61
Figure 4.4.13 Layout of Closure Plan of Dandora Dumpsite ................................................. 4-63
Figure 4.4.14 Location Map of Illegal Dump Sites in Nairobi ............................................... 4-65
Figure 4.6.1 Snapshot of the Proposed Organisational Structure for SWM Sector .............. 4-78
Figure 4.6.2 Organisational Chart of Current DoE, Transitional SWMPC Preparatory
Unit and Proposed SWMPC............................................................................. 4-82
Figure 4.7.1 Proposed Workflow of the SWM Capital Revolving Fund (Option 1) .......... 4-102
Figure 4.8.1 Projection of Cash Flow of CCN/SWMPC: Medium Scenario for Case-A
(Case-A.2) ...................................................................................................... 4-112
Figure 4.8.2 Projection of Cash Flow of CCN/SWMPC: Medium Scenario for Case-B
(Case-B.2)....................................................................................................... 4-113
Figure 4.9.1 City-wide Map by Category of Socio-Economic Area................................... 4-136
Figure 4.9.2 Step-wise Introduction of Franchise Zone (Phase 1)...................................... 4-138
Figure 4.9.3 Image of Concept of PPPP (Public-Private-People Partnership).................... 4-144
Figure 4.10.1 Mid-Term Action Plan of the Community Participation Promotion Plan ...... 4-148
Figure 4.10.2 Long-Term Action Plan of the Community Participation Promotion Plan..... 4-148
Figure 4.12.1 Required Actions and Cost for Implementation of Components of the
Master Plan (Programme 1 to 4) .................................................................... 4-153
Figure 4.12.2 Required Actions and Cost for Implementation of Each Component of the
Master Plan (Programme 5 to 8) .................................................................... 4-154
Figure 4.12.3 Plan of Operation (Programme 1: Collection and Transportation Plan)......... 4-155
Figure 4.12.4 Plan of Operation (Programme 2: 3R and Intermediate Treatment Plan) ...... 4-156
Figure 4.12.5 Plan of Operation (Programme 3: Final Disposal Plan) ................................. 4-157
Figure 4.12.6 Plan of Operation (Programme 4: Organisational Restructuring and Human

x
 Resources Development Plan) ....................................................................... 4-158
Figure 4.12.7 Plan of Operation (Programme 5: Legal and Institutional Reform Plan)....... 4-159
Figure 4.12.8 Plan of Operation (Programme 6: Financial Management Plan) ................... 4-160
Figure 4.12.9 Plan of Operation (Programme 7: Private Sector Involvement Promotion
Plan) ............................................................................................................... 4-161
Figure 4.12.10 Plan of Operation (Programme 8: Community Participation Promotion Plan)
........................................................................................................................ 4-162

LIST OF PHOTOS

Photo 2.6.1 Situations at the Dandora Dumpsite ................................................................ 2-46

Photo 2.6.2 The Kayole Temporary Dumpsite (1).............................................................. 2-49
Photo 2.6.3 The Kayole Temporary Dumpsite (2).............................................................. 2-50

xi
 ABBREVIATIONS AND ACRONYMS

Organisations, Programmes and Projects

AfDB : African Development Bank

AFD : Agence Française de Développement (French Development Agency)
CBO : Community-Based Organisation
CBSK : Central Bureau of Statistics Kenya
CCDP : Comprehensive Capacity Development Programme
CCN : City Council of Nairobi
DoE : Department of Environment
EMCA : Environmental Management and Coordination Act
EPZA : Export Processing Zone Authority
GEF : Global Environment Facility
GOJ : Government of Japan
GOK : Government of Kenya
JICA : Japan International Cooperation Agency
JKIA : Jomo Kenyatta International Airport
KARA : Kenya Alliance of Residents Association
KENAO : Kenya National Audit Office
KIE : Kenya Institute of Education
KMP : Kenya Municipal Programme
KNBS : Kenya National Bureau of Statistics
KENSUP : Kenya Slum Upgrading Programme
KTB : Kenya Tourist Board
LATF : Local Authority Transfer Fund
MEMR : Ministry of Environment and Mineral Resources
MOF : Ministry of Finance
MoLG : Ministry of Local Government
MoNMD : Ministry of Nairobi Metropolitan Development
MoPH : Ministry of Public Health
MCN : Municipal Council of Nakuru
MWI : Ministry of Water and Irrigation
NCWSC : Nairobi City Water and Sewerage Company
NEMA : National Environment Management Authority
NGO : Non-Governmental Organisation
NMSP : Nairobi Metropolitan Services Project
NPO : Non-Profit Organisation
NWSC : Nairobi Water and Sewerage Company
ODPM : Office of the Deputy Prime Minister
PEC : Public Awareness, Environmental Education and Community
Participation
PMU : Project Management Unit
SIDA : Swedish International Development Cooperation Agency
SWMCRF : Solid Waste Management Capital Revolving Fund
SWMORF : Solid Waste Management Operating Revolving Fund
SWMPC : Solid Waste Management Public Corporation
UNEP : United Nations Environment Programme
WATSAN : Kibera Integrated Water, Sanitation and Waste Management Project
WB : The World Bank
WRMA : Water Resources Management Authority
WSRB : Water Services Regulatory Board
WSRS : Water Sector Reform Secretariat
WSRSC : Water Sector Reform Steering Committee

xii
Technical Terms

ASG : Apparent Specific Gravity

ATP : Affordability to Pay
BBS : Budget Breakdown Structure
BOD : Biochemical Oxygen Demand
BOT : Build, Operate and Transfer
BPO : Business Process Outsourcing
CBD : Central Business District
CBS : Cost Breakdown Structure
CILOR : Contribution in Lieu of Rates
COD : Chemical Oxygen Demand
CTF : Constituency Development Fund
DBFO : Design-Build-Finance-Operate
DO : Dissolved Oxygen
EIA : Environmental Impact Assessment
EIRR : Economic Internal Rate of Return
EPZ : Export Processing Zone
FCP : Foreign Currency Portion
FIRR : Financial Internal Rate of Return
GDP : Gross Domestic Product
GRDP : Gross Regional Domestic Product
HRD : Human Resources Development
IEE : Initial Environmental Examination
ISWMP : Integrated Solid Waste Management Plan
JPY : Japanese Yen
KSh : Kenyan Shilling
LCP : Local Currency Portion
MDG : Millennium Development Goal
MP : Master Plan
MRF : Material Recovery Facility
OIM : Operating Income Margin
PA : Preparatory Action
PAYT : Pay-As-You-Throw
PCD : Per Capita GDP (Gross Domestic Product)
PDM : Project Design Matrix
PCM : Project Cycle Management
PO : Plan of Operation
PPP : Public-Private Partnership
PPPP : Public-Private-People Partnership
PSC : Public Sector Comparator
PSP : Private Service Provider
PU : Preparatory Unit
QCBS : Quality and Cost Based Selection
3R : Reduce, Reuse, Recycle
RBM : Results-Based Management
RMLF : Road Maintenance Levy Fund
SCF : Standard Conversion Factor
USD : United States Dollar
VAT : Value-Added Tax
VfM : Value for Money
WACS : Waste Amount and Composition Survey
WBS : Work Breakdown Structure
WTP : Willingness to Pay

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CHAPTER 1. INTRODUCTION

1.1 Background of the Survey

The City of Nairobi is the capital of the Republic of Kenya and the largest administrative, commercial
and industrial centre of the country. Nairobi City has been experiencing rapid population growth largely
due to rural-urban migration and natural rate of increase, and the population of the city is presently
estimated at 3 million. As a result of this rapid increase in population, the generation rate of solid waste
as of 2009 is estimated at approximately 1,850 tons/day.
A half of the present solid waste generation is left uncollected or illegally dumped inside the city and the
remaining is carried to a final disposal site. The final disposal site, however, is an open dumping type
landfill and this, therefore, has a detrimental effect on the surrounding environment. Since this situation
is creating problems in hygienic, environmental as well as aesthetic conditions for the people of Nairobi
City, solid waste management is an urgent issue requiring prompt resolution.
From 1996 to 1998, the Government of Japan (hereinafter referred to as "GOJ") carried out the Study on
Solid Waste Management in Nairobi City in the Republic of Kenya through its technical assistance
programme. This study included the formulation of a master plan composed of a collection and
transportation plan, a waste reduction and recycling plan, and a final disposal plan. A feasibility study
was also implemented, and an institutional and legal restructuring plan, a private sector involvement and
financial improvement plan, a waste collection system improvement plan, and a construction plan for a
new final disposal site were proposed in the study. Based on the master plan and feasibility study
results, the City Council of Nairobi (hereinafter referred to as "CCN") had established environmental
regulations, promoted private sector involvement and conducted institutional restructuring, including
reduction of personnel expenses.
On the other hand, the construction of a new landfill site and improvement of waste collection system
could not be carried out due to insufficient funds from the Government of Kenya (hereinafter referred to
as "GOK"). Under the circumstances, the Ministry of Environment and Mineral Resources, GOK and
the United Nations Environment Programme (hereinafter referred to as "UNEP") formulated the
“Nairobi Rivers Rehabilitation and Restoration Programme” in July 2008 to improve the
environmental conditions in the Nairobi River Basin. Illegal dumping and wastes discharged from
many slums along the rivers have resulted in the pollution of rivers in Nairobi, so that an integrated solid
waste management system in Nairobi City is essential as one of the components of the Programme.
The GOK had requested technical assistance from the GOJ to formulate the integrated solid waste
management plan for Nairobi City and conduct a feasibility study on the construction of a new final
disposal site and a transfer station for solid wastes. In response to the request, the Japan International
Cooperation Agency (hereinafter referred to as “JICA”), the official agency responsible for the
implementation of technical cooperation programmes of the GOJ, had decided to undertake the
Preparatory Survey on Integrated Solid Waste Management in Nairobi City in the Republic of Kenya
(hereinafter referred to as “the Survey”) from August 2009 to September 2010.

1.2 Necessity of the Survey

The Kenya National Economic Plan, i.e., Kenya Vision 2030, states in its social strategy that Kenya is to
become a clean, secure, and sustainable environment by the year 2030. To realise this strategy, the plan
also explains the importance of improvement of pollution and waste management. Additionally, the
National Solid Waste Management Strategy drafted by the Office of the Deputy Prime Minister and the

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Ministry of Local Government in 2008 provides a framework to help meet the Kenya Vision 2030 and
the Millennium Development Goals (MDGs) in terms of health, poverty reduction and protection of the
environment [Detailed argument on policy level is described later in Subsection 2.3.1(8), page 2-21].
In general, the main driving forces for development and modernisation of solid waste
management (SWM) are portrayed as follows1: (Note: Figures affixed to a word or at the end of a
sentence refer to the source listed at the end of this main report.):

• Public Health
• Environment
• Resource Value of the Waste
• Climate Change

Public Health: Uncollected and accumulated waste in streets increase contact possibilities and offer
very good conditions for the propagation of germs, insects, rats and other disease vectors. Also, those
wastes often clog drains and result in the stagnation of water, the breeding of mosquitoes or the
contamination of water bodies from which the population normally takes water for consumption,
cooking and cleaning.
Environment: Uncollected waste brings contamination of water, air and land, and the same
phenomenon might occur even if the waste is collected but uncontrolled. Especially, the contaminated
water, leachate, should be minimised and not released into the groundwater and the surface water.
Moreover, a pile of waste is often burned spontaneously and causes the emission of toxic substances to
the air like dioxins.
Resource Value of Waste: Many waste pickers work on the streets and at the disposal sites. They
collect and use or sell materials recovered from waste. This kind of activity can be seen anywhere in the
world and from old times up to now, and it secures the livelihood of millions of people in informal
settlements.
Climate Change: Proper waste management and promotion of 3R (reduce, reuse, recycle) will
contribute to the reduction of greenhouse gas emissions, such as methane and carbon dioxide. Methane
forms when organic materials decompose in the absence of air, a process called anaerobic
decomposition. Application of a sanitary landfill method will bring e semi-aerobic conditions of the site
and reduce the methane emissions.
As explained in detail in Chapter 2, the above four (4) issues coincide with the present situation in
Nairobi; in other words, low level of waste collection rate, and illegal and uncontrolled disposal sites are
the two major problems in the SWM of Nairobi. Development and modernisation of SWM is therefore
definitely required for implementation of proper SWM that will result from reviewing and updating the
existing master plan through the Survey.

1.3 Objectives of the Survey

The objectives of the Survey are as follows:

(1) To review the current situation of waste management in Nairobi City and revise the existing
Master Plan; and

(2) To develop human resources for solid waste management (hereinafter referred to as “SWM”) in
the course of the Survey with full commitment of the concerned authorities of the Government
of Kenya.

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1.4 Scope of the Survey

1.4.1 Survey Area

The Survey covers the whole area of Nairobi City as shown in the Location Map, which includes six (6)
landfill candidate sites outside of Nairobi City.

1.4.2 Types of Solid Waste

The types of solid waste surveyed are limited to household waste, market waste, commercial waste,
street sweeping waste and office waste. The survey on hazardous waste is limited to only the policy
suggestions and recommendations in the Master Plan.

1.4.3 Survey Scope

The Survey covers the following items:
1. Collection, review and analysis of related data and information
a. Natural, economic, social and environmental conditions
b. Laws, regulations, policies, land use plans and development plans relating to the Survey
c. Conditions regarding Solid Waste Management in Nairobi City (physical, operational,
institutional, financial and other aspects)
d. Related projects (on-going and planned)
e. Other relevant data and information

2. Field survey
a. Amount of solid waste and its composition
b. Current solid waste collection and transportation arrangements (time and motion study)
c. Existing dumping site and facilities including groundwater and leachate quality analysis
d. Recycling market, possibility of material recycling and thermal recycling
e. Present situation of waste pickers
f. Public awareness on solid waste management
g. Initial Environmental Examination (IEE)
h. Others

3. Evaluation of the present conditions and identification of the problems

a. Social and economic/financial analysis
b. Legal system and organisational structure concerning solid waste management
c. Management conditions

4. Establishment of planning framework and forecasting through projection on:

a. Population growth, city plan, urban development plan and land use plan

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b. Economic growth and changes in living condition

c. Trends in quality and quantity of solid waste
d. Others

5. Establishment of basic strategies

a. Technical aspects
b. Financial aspects
c. Institutional and managerial aspects
d. Social aspects
e. Environmental and hygienic aspects

6. Updating of the existing Master Plan including institutional and financial aspects
7. Preparation of the implementation plan of priority programme(s) and project(s)

1.5 Survey Schedule

The Survey, in principle, is to be carried out through the field works in Kenya and the home office works
in Japan in accordance with the tentative schedule shown in Figure 1.5.1. The total duration of the
Survey is approximately 11 months. The Survey is divided into three phases, namely; Phase I which
focuses on the dissemination of survey contents and the establishment of the implementation system of
the Survey; Phase II which conducts a basic survey; and Phase III which includes updating of the
existing master plan of SWM. Reports are to be presented at times shown in the same figure. A
workshop, seminar and other meetings are to be held in each survey phase.

FY 2009 FY 2010
Fiscal Year
10 11 12 1 2 3 4 5 6 7 8 9 10
First Second
Field Work

Home Office
Work First Second Third

Reports F/R
IC/R IT/R DF/R
Seminar,
Workshop,
etc.

Phase
Phase I Phase II Phase III
Legend: IC/R: Inception Report, IT/R: Interim Report, DF/R: Draft Final Report, F/R: Final Report

Figure 1.5.1 Overall Survey Schedule

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1.6 Staffing Schedule

The Survey is to be carried out by the Kenyan counterparts and the JICA Survey Team as listed in the
following table.

Table 1.6.1 Members of the Steering Committee and the Survey Team
Name Affiliation or Designation/Field of Expertise
Steering Committee
Victor Ogutu (Chair) Office of the Deputy Prime Minister and the Ministry of Local Government
Silas Nyambok Office of the Deputy Prime Minister and the Ministry of Local Government
Leah Oyake City Council of Nairobi
Eng. Christine Ogut City Council of Nairobi
Eng. Gordon Okello City Council of Nairobi
Isaac Muraya City Council of Nairobi
J.K. Barreh City Council of Nairobi
Alfred Ndwara City Council of Nairobi
Peter Miriti Ministry of Nairobi Metropolitan Development
Caroline Wamai Ministry of Environment and Mineral Resources
Ibrahim Longolomoi Ministry of Public Health and Sanitation
Benjamin Langwen Malwa National Environmental Management Agency
Eng. Peter Mangiti Ministry of Water and Irrigation
Eng. S.K. Kamau Ministry of Finance
Justus Githinji Ministry of Energy
Yoichi Inoue JICA Kenya Office
John Ngugi JICA Kenya Office
Technical Working Group
Leah Oyake (Chair: Nov. 2009 – Apr. 2010) City Council of Nairobi
Eng. Christine Ogut (Chair: May – July 2010) City Council of Nairobi
Silas Nyambok Office of the Deputy Prime Minister and the Ministry of Local Government
Peter Miriti Ministry of Nairobi Metropolitan Development
Eng. B. K. Njenga (– Mar. 2010) City Council of Nairobi
Eng. Gordon Okello City Council of Nairobi
Wilson Maritim City Council of Nairobi
Jennifer K. Nyagah City Council of Nairobi
Isaac Muraya City Council of Nairobi
Mario K. Kainga City Council of Nairobi
Marrian Kioko City Council of Nairobi
Dr. Barasa City Council of Nairobi
G.N. Kihoro City Council of Nairobi
Tsala Halima a City Council of Nairobi
C.O. Caleb City Council of Nairobi
J.K. Barreh City Council of Nairobi
Justus Githinji City Council of Nairobi

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Name Affiliation or Designation/Field of Expertise

JICA Survey Team
Masakazu MAEDA Team Leader / Solid Waste Management Expert
Takehiko OGAWA Organisation & Institution / Human Resources Development Expert
Sampei NAKANISHI Collection & Transportation Expert
Satoshi YAMAMOTO (Nov. 2009 – Jan. 2010) Waste Analyst / Hazardous Waste Management Expert
Edna Cruz BAYAN (Apr. – May 2010) Waste Analyst / Hazardous Waste Management Expert
Takaaki FUKUSHIMA Final Disposal & Facility Planner
Sebastian Guillermo JARA RESQUIN Public Awareness / Environment and Social Consideration Expert
Masaharu TAKASUGI 3R & Intermediate Treatment Expert
Kiminari TACHIYAMA Financial Analyst / Economist
Daniel NEAGARI Administrative Coordinator

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CHAPTER 2. DESCRIPTION AND EVALUATION OF CURRENT CONDITION

2.1 Introduction
The JICA Survey Team started the first field work in Nairobi on 8 November 2009 and completed it on
26 January 2010, to collect relevant data and information, to investigate candidate disposal sites, and to
conduct waste generation and composition analysis, public awareness survey, etc. The results were used
as basic data for reviewing the Master Plan formulated in 1998. This chapter presents the current
condition of solid waste management (SWM) in Nairobi, mainly, in terms of institutional, financial and
technical aspect.
Firstly, the generated waste amount and composition in the city at present were compiled based on the
results of the field survey described in Section 2.2 when all of the data were not sorted out yet. From the
institutional point of view, the analysis and evaluation of the present arrangements, not only for
institutional but also organisational and human resource management aspects, were carried out as
described in Section 2.3.
In view of the technical approaches, collection and transportation, 3R and intermediate treatment and
disposal studies were conducted as described in Sections 2.4, 2.5 and 2.6, respectively. Public
awareness on SWM is considered in Section 2.7 as well, based on the result of the public awareness
survey and field investigation. Section 2.8 covers environmental and social considerations on the
current situation of SWM, as well as water, sewage, and air quality in the city.
Finally, as other important components for implementation of the SWM programme, the city’s
economic and financial condition are as analised in Section 2.9, and the current condition of hazardous
waste such as hospital and industrial waste are as additionally described in Section 2.10.

2.2 Waste Generation and Composition Analysis

2.2.1 Waste Amount and Composition Survey (WACS)

(1) Objective of the Survey

The Solid Waste Amount and Composition Survey (hereinafter referred to as “WACS”) is to be
conducted as a part of the study for updating the SWM Master Plan to identify the amount and
composition of the different types of waste generated in Nairobi City. The characteristics of
representative municipal solid waste are to be obtained through the WACS for domestic waste,
commercial waste, institutional waste, market waste, street waste, etc., at the waste generation
sources and the waste disposed at the disposal site. The result/analysis of WACS are to be used as
the basic data to formulate the waste collection, 3R, intermediate treatment and waste disposal
plans for the review, updating and formulation of the SWM Master Plan.
The WACS is to started in December 2009 and continue up to March 2010 to cover the wet and dry
seasons. The results of field survey are as discussed below.

(2) Waste Amount Survey

(a) Waste Samples for Survey
The survey was conducted for wastes at the following generation sources:

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• Residential area
• Commercial establishments
• Public facilities
• Markets
• Road cleansing activity
(b) Survey Method
Waste sampling at the target areas mentioned above was conducted continuously for eight (8)
days. The first day of the survey period was the test day of surveying waste amount, and the
sampled data of the remaining seven (7) days were the valid data for the analysis of waste
amount. (The sampling on the first day was excluded from the actual analysis because the
wastes on the first day may contain wastes generated before the sampling date and the sampled
waste may contain more quantity of waste compared to the actual condition.)
The survey included the sampling of amounts of recycling materials of self-treated waste at
each generation source. The unit generation amount at each generation source was verified
through the examination with existing data.

(c) Classification of Waste Generation Source

The generation sources were classified into nine (9) areas, as follows:

(i) Residential area (5 areas: High Income, Middle Income, Low-Middle Income, Low
Income, and Slum). [Refer to Item (3) of Subsection 2.7.1 for the concept of classification
and income level of each group.]
(ii) Commercial area (shops, restaurants, hotels and others);
(iii) Public facility;
(iv) Market; and
(v) Public road.

The total number of samples taken for the waste amount and composition survey is as shown in
Table 2.2.1. The composition survey includes physical and the three components for chemical
analysis: moisture content, ash content and combustible content. Wastes generated from
factories and medical facilities such as hospitals and clinics were excluded from the survey.

Table 2.2.1 Number of Samples for the Waste Amount and Composition Survey
Waste Amount Waste Composition Samples
Sampling Area
Samples Physical Chemical
1. Residential area
a. High Income 30 3 1
b. Middle Income 30 3 1
c. Low-Middle Income 30 3 1
d. Low Income 30 3 1
e. Slum 30 3 1
2. Commercial establishment
a. Restaurant 15 3 1
b. Shops, hotel/guest houses, etc 45 6 2
3. Public facilities (schools, institutional buildings, 30 3 1
public and private offices in city center, etc)
4. Market 30 3 1

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Waste Amount Waste Composition Samples

Sampling Area
Samples Physical Chemical
5. Road waste 30 3 -
6. Sample from waste collection vehicles at 0 30 10
landfill site
Total 300 63 20

(d) Waste Amount Survey Results

The waste generation amount per capita per day of each generation source is as shown in
Table 2.2.2. The average waste generation amount per capita per day of the five income
groups in residential areas ranges from 0.302 kilogrammes per capita per day (kg/c/d) to
0.674 kg/c/d, as shown in Figure 2.2.1.

Table 2.2.2 Waste Generation Rate of Each Generation Source

Generation Source Unit Weight Generation (kg/day)
1. Residential area
a. High Income person 0.567
b. Middle Income person 0.674
c. Low-Middle Income person 0.474
d. Low Income person 0.302
e. Slum person 0.417
2. Commercial establishment
a. Restaurant establishment 38
b. Shops establishment 0.5
c. Hotel/Guest Houses
Standard Hotels establishment 350
Lodging/Guest House establishment 100*
d. Industrial Plant establishment 150*
e. Other Establishments establishment 0.5*
3. Public facilities
a. Offices establishment 137
b. Schools establishment 76
4. Market market 2,045
5. Roads km 106
Note: * Not included in the waste amount survey but waste generation based on direct interview with the
person-in-charge of waste management of the specific establishment.

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0.8
0.7 0.674
0.567
0.6
0.5 0.474
0.417
0.4
0.302
0.3
0.2
0.1
0
High Income Middle Income Low Middle Low Income Slum
Income

Figure 2.2.1 Waste Generation per Capita in Residential Area

The per capita waste generation from the high income group is lower than the middle income
group because the high income group has a larger family size of about 5.1 compared to the
middle income which has only 3.6 as average household members. The waste generation per
capita from the low income group is also lower compared to the slum area. This is because
most of the types of waste being generated from the slums are dirt or sand, based on the waste
composition survey, considering that the slums are located in unpaved areas and most of the
houses have earthen floors or not cemented.
The waste generation per capita obtained in the current study dropped in comparison with the
1998 JICA Master Plan Study2 except for the middle income group. This may be due to the
living condition of the residents and the difference of economic status in Nairobi City from
1998 to 2009. Waste generation amounts per capita as obtained from the WACS have
reasonable values compared to the result of the 1998 JICA Master Plan Study and also with
other countries.

The worldwide economic stagnation in the last 10 to 13 years have also influenced the
economy of Kenya and the economic situation of the people in Nairobi City also affected the
way of saving finite resources. In view of this situation, the waste amount in Nairobi City did
not increase as estimated before and the per capita waste generation amount also did not
increase except for the middle income group.

2.2.2 Physical Composition of Solid Waste

Information and data on the physical composition of solid wastes are important in the selection and
operation of equipment and facilities, disposal strategy and disposal process. The components
considered in updating the previous master plan are food waste; paper; plastic; rubber and leather;
textiles; yard waste; lumber and logs; glass; metals; dirt, ash, stone and sand; unclassified residual
waste; batteries/dry cells; and other domestic hazardous waste.
The average waste composition from the wet and dry season surveys was adopted to calculate the
physical composition of waste. The results are summarised in Table 2.2.3 and presented in
Figure 2.2.2.

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Table 2.2.3 Waste Composition of Each Generation Source

(Unit: %)

High/ Low- Low

Restau- Public
Waste Composition Middle Middle Income Shops Hotel Market Road
rant Facilities
Income Income / Slum

Food Waste 66.38 65.95 58.94 46.15 88.88 85.17 71.48 89.10 16.61
Recyclable Paper 3.67 3.74 4.55 14.02 0.94 0.65 1.66 0.81 13.14
Recyclable
0.94 0.36 0.11 2.91 0.58 0.50 0.34 3.72 1.97
Cardboard
Paper Mixed Paper 2.51 0.00 3.01 1.39 0.00 0.00 0.95 0.00 0.17
Diapers 4.83 12.89 4.75 0.45 0.15 0.00 0.07 0.00 0.00
Subtotal-Paper 11.96 16.99 12.41 18.77 1.66 1.15 3.02 4.53 15.28
Plastic Sheet 6.38 4.45 9.13 1.84 0.95 0.40 1.63 0.00 3.04
Recyclable
1.66 5.32 2.03 6.72 2.85 2.69 2.00 1.08 3.51
Plastics
Plastics PET Bottles 1.10 0.09 0.54 2.87 1.65 1.88 4.89 0.27 4.28
Other Plastics 0.32 0.48 0.00 3.72 0.33 0.04 0.00 0.12 0.09
Subtotal-Plastics 9.46 10.34 11.70 15.14 5.77 5.01 8.52 1.48 10.91
Rubber & Leather 0.20 0.58 1.11 0.00 0.00 0.00 0.00 0.23 0.00
Textiles 1.27 0.65 2.29 0.81 0.00 0.00 0.00 2.96 0.34
Yard Waste 2.68 0.00 0.00 0.67 0.22 1.13 0.20 0.00 17.20
Lumber & Logs 1.50 0.00 1.03 0.00 0.00 0.00 0.00 0.00 0.30
Other Org. Waste 1.42 0.71 0.00 2.69 0.70 2.57 4.08 0.67 6.68
Organic Waste - Subtotal 94.86 95.22 87.49 84.23 97.24 95.03 87.30 98.97 67.33
Returnable
0.45 0.62 0.06 3.67 0.98 2.76 0.00 0.00 0.17
Bottles
Other Live
0.84 0.39 1.40 0.90 0.19 0.00 0.00 0.07 0.00
Glass Bottles
Glass bins 0.00 0.00 0.00 0.00 0.00 0.00 0.00 0.00 0.30
Broken Glass 0.19 0.56 0.00 3.72 0.31 0.00 5.04 0.43 0.47
Glass-Subtotal 1.48 1.57 1.46 8.29 1.48 2.76 5.04 0.50 0.94
Tin Cans (steel
0.32 0.16 0.00 1.48 0.39 0.48 4.63 0.04 0.00
cans)
Aluminum cans 0.23 0.04 0.00 1.88 0.82 1.50 1.52 0.00 0.09
Metals Copper 0.00 0.00 0.00 0.00 0.00 0.00 0.00 0.00 0.00
Other Metals 0.75 0.65 0.52 0.09 0.00 0.00 0.49 0.14 0.87
Metals-Subtotal 1.30 0.85 0.52 3.45 1.20 1.97 6.64 0.18 0.96
Dirt, Ash, Stone, Sand 2.12 1.77 10.12 2.51 0.00 0.06 1.02 0.21 29.62
Inorganic Waste - Subtotal 4.90 4.18 12.11 14.25 2.69 4.79 12.70 0.90 31.52
Unclassified Residual Waste 0.10 0.18 0.40 1.43 0.07 0.18 0.00 0.14 0.90
Domestic Hazardous Waste 0.00 0.00 0.00 0.09 0.00 0.00 0.00 0.00 0.26
Batteries - Dry Cells 0.05 0.09 0.00 0.09 0.00 0.00 0.00 0.00 0.26
Other Domestic Hazardous
0.10 0.32 0.00 0.00 0.00 0.00 0.00 0.00 0.00
Waste
Total 100.00 100.00 100.00 100.00 100.00 100.00 100.00 100.00 100.00

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100% Domestic Hazardous Waste

90% Unclassified Residual Waste
Dirt, Ash, Stone, Sand
80%
Metals
70% Glass
60% Other Organic Waste
Lumber & Logs
50%
Yard Waste
40% Textiles
30% Rubber & Leather
Plastic
20%
Paper
10% Food Waste
0%
High/ Low- Low Shops Restaurant Hotel Public Facilities Market Road
Middle Middle Income/
Income Income Slum

Figure 2.2.2 Physical Composition of Each Generation Source

From the above table and figure, the highest percentage of waste composition is food waste from market
waste, followed by paper then plastics, both of which came from shop waste. Fourth is the mixture of
dirt, ash, sand and stone as expected from road waste, and fifth is glass which came from shops.
In comparison with the 1998 JICA Master Plan Study3, food waste, paper and plastics are the topmost
compositions of waste, respectively.
The weight and weighted ratio of each composition from the total waste generation in Nairobi City have
been calculated as shown in Table 2.2.4. The characteristics are as follows:

• The rate of food waste is 69%, paper is 9.43% and almost the same with plastics, about 9.42%.
• The rate of recyclable material such as paper, plastic, metal and glass is 15.61%.
• The ratio of organic material is 91.62%. Non-organic material has an extremely low ratio of
7.94%, unclassified residual has the ratio of 0.34% and domestic hazardous waste such as
battery-dry cell has the ratio of 0.1%.

Table 2.2.4 Weight and Weighted Ratio of Total Waste Generation

Waste Composition Total Weight (t/day) Weighted Ratio (%)
Food Waste 1,154 68.99
Recyclable Paper 70 4.18
Recyclable Cardboard 14 0.82
Paper Mixed Paper 19 1.12
Diapers 55 3.31
Subtotal-Paper 158 9.43
Plastic Sheet 59 3.54
Recyclable Plastics 56 3.32
Plastics PET Bottles 31 1.86
Other Plastics 12 0.70
Subtotal-Plastics 158 9.42
Rubber & Leather 5 0.27
Textiles 12 0.72
Yard Waste 12 0.70
Lumber & Logs 6 0.36

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Waste Composition Total Weight (t/day) Weighted Ratio (%)

Other Org. Waste 29 1.74
Organic Waste - Subtotal 1,533 91.62
Returnable Bottles 20 1.22
Other Live Bottles 9 0.53
Glass Glass bins 0 0.00
Broken Glass 23 1.40
Glass-Subtotal 53 3.15
Tin Cans (steel cans) 18 1.06
Aluminum cans 14 0.85
Metals Copper 0 0.00
Other Metals 6 0.36
Metal-subtotal 38 2.28
Dirt, Ash, Stone, Sand 42 2.51
Inorganic Waste - Subtotal 133 7.94
Unclassified residual waste 6 0.34
Domestic Hazardous Waste 2 0.09
Batteries - Dry Cells 1 0.03
Other Domestic Hazardous Waste 1 0.06
Total 1,673 100.00
Note: Total weight is calculated by subtracting self-disposal waste amount from the total waste
generation amount i.e., 1,884 – 175 (self-disposal amount) = 1,673 t/day.

2.2.3 Comparison of Waste Composition of Domestic Waste

The domestic waste composition of Nairobi City compared to those of developed countries is different.
This has been discussed further in the Supporting Report for WACS. However, waste composition in
under-developed countries like Dhaka, Bangladesh, is almost the same as in Nairobi City4.
Comparisons of waste composition in Nairobi City in 1998 and 2009 and also in Dhaka in 2004 are
shown in Table 2.2.5 and Figure 2.2.3.

Table 2.2.5 Domestic Waste Composition in Nairobi and Dhaka

(Unit: %)
Domestic Waste Composition Nairobi-1998*1 Nairobi-2009*2 Dhaka-2004*3
Organic Waste
1 Food Waste 54.6 63.8 68.3
2 Paper Recyclable Paper 14.6 4.0 2.7
3 Recyclable Cardboard - 0.5 0.0
4 Mixed Paper 1.8 1.8 3.8
5 Diapers - 7.5 -
Paper-Total 16.5 13.8 6.5
6 Plastics Plastic Sheet - 6.7 0.7
7 Recyclable Plastics 5.0 3.0 0.4
8 PET Bottles - 0.6 0.6
9 Other Plastics 7.0 0.3 2.3
Plastics-Total 12.0 10.5 4.1
10 Rubber and Leather 1.9 0.6 0.5
11 Textiles 2.4 1.4 1.9
12 Yard Waste 5.5 0.9 5.2
13 Lumber and Logs - 0.8 0.8
14 Other Organic Wastes - 0.7 0.0
Organic Waste-Total 92.9 92.5 87.2

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Domestic Waste Composition Nairobi-1998*1 Nairobi-2009*2 Dhaka-2004*3

Inorganic Waste
15 Glass Returnable Bottles - 0.4 0.0
16 Other Live Bottles - 0.9 0.8
17 Glass bins 1.4 0.0 -
18 Broken Glass 0.6 0.2 1.1
Glass-Total 2.0 1.5 1.9
19 Metals Tin Cans (steel cans) 1.7 0.2 0.3
20 Aluminum cans - 0.1 0.1
21 Copper - 0.0 0.0
22 Other Metals 1.0 0.6 0.6
Metals-Total 2.7 0.9 1.0
23 Dirt, Ash, Stone, Sand - 4.7 8.5
24 Unclassified Residual Waste 2.4 0.2 1.4
25 Batteries - Dry Cells - 0.0 -
26 Other Domestic Hazardous Wastes - 0.1 -
Inorganic Waste Total 7.1 7.5 12.8
Total 100.0 100.0 100.0
Source: *1 Waste Amount and Composition Survey by JICA Survey Team, 1998
*2
Waste Amount and Composition Survey by JICA Survey Team, 2009
*3
The Study on Solid Waste Management in Dhaka City in the People’s Republic of Bangladesh-2004, JICA

On the whole view of the comparison table and graph, organic waste accounts for about 90% while
inorganic waste accounts for 10% in waste composition for both Nairobi City and Dhaka City. In
addition, the similarity is observed for food waste taking the highest ratio among other wastes and
accounting for more or less 60% in each city. However, observing in detail for the recyclable waste
especially for paper and plastics, the ratio in Nairobi City (paper 13.8% and plastics 10.5% in 2009) is
higher than that of Dhaka City (paper 6.5% and plastics 4.1 % in 2004)5.
The waste composition survey in each city was conducted for the waste samples generated at sources
and the waste generators were instructed to discharge all wastes including recyclable wastes for the
survey. However, practically, waste generators in Dhaka City tend not to discharge recyclable waste
since the recycling industry in Dhaka City is active and recyclables are easily sold to the junkshops.
Considering the situation of recycling activities, it can be concluded that the waste composition in
Nairobi City and Dhaka City are similar. In other words, the higher ratio of recyclables in Nairobi City
means that more activities are expected for resource recovery at waste generation sources.

100%
Other Domest ic Hazardous Waste
90% Bat teries - Dry Cells
80% Unclassif ied Residual Wast e
Dirt, Ash, St one, Sand
70%
M et al
60% Glass
50% Other Organic Waste
Lumber and Logs
40%
Yard Waste
30% Textiles
20% Rubber and Leat her
10% Plast ic
Paper
0%
Food Waste
Nairobi-1998 Nairobi-2009 Dhaka-2004

Figure 2.2.3 Domestic Waste Composition in Nairobi and Dhaka

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2.2.4 Apparent Specific Gravity

The Apparent Specific Gravity (hereinafter referred to as “ASG”) of solid waste in kg/litre is an
important tool required to assess the total mass and volume of waste. The average ASG calculation
results for each generation source survey in the wet and dry seasons are shown in Figure 2.2.4.
Appaarent Specific Gravity (ton/m3)

0.60
0.50
0.50
0.39
0.37 0.37
0.40 0.36
0.30
0.30 0.27
0.23 0.21 0.20
0.22
0.20
0.14
0.10

0.00
Low Middle

Low Income

Market
Income

Income

Road
Slum

Shops

Hotels

Restaurants

Facilities
Middle

Average
High

Public
Income

Figure 2.2.4 Apparent Specific Gravity

As shown in the above figure, road wastes have the highest apparent specific gravity while shop wastes
have the lowest. The average ASG of the waste in Nairobi City is 0.30.

2.2.5 Three-Content Analysis

For this study, the chemical analysis considered was the chemical property analysis of the three
contents, namely; moisture, ash and combustible. The average results of the three-content analysis for
each generation source during the wet and dry seasons are shown in Table 2.2.6 and Figure 2.2.5. Since
road waste was not chemically analysed, the average is considered to be the weighted value of total
waste generated in Nairobi City. The highest value of moisture content was the waste from the high
income groups in residential areas, while the highest percentages of ash content and combustible content
were from the shop waste.
Table 2.2.6 Three-Content Analysis of Each Generation Source
(Unit: %)

Waste Source Generators Moisture Ash Combustible

High Income 79.27 7.80 12.94

Middle Income 73.41 4.63 21.97
Low-Middle Income 73.37 2.47 24.17
Low Income 67.80 4.15 28.05
Slum 59.36 2.23 38.42
Shop 7.61 33.18 59.22
Restaurant 72.63 13.64 13.74
Hotel 77.63 19.13 3.25
Public Facilities 25.57 20.30 54.44
Market 83.75 6.97 9.28

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100%
90%
80%
70%
60%
50%
40%
30%
20%
10%
0% Combustible
High Middle Low Middle Low Slum Shop Restaurant Hotel Public Market
Ash
Income Income Income Income Facilities
Moisture

Figure 2.2.5 Three-Content Analysis Results

2.2.6 Estimation of Total Amount of Solid Waste

The assumptions used for the estimation of total amount of solid waste being generated in Nairobi City
are based on the actual waste amount survey and the data gathered from different government agencies.

(1) Residential
Nairobi’s population by area based on the 1999 Census stands at 2,143,254 people. It is projected
that in 2009 the population of Nairobi stands at 3,040,000 (JICA Survey Team, 2010). The
population ratios of high income (high and middle income groups), middle income (low-middle
income group) and low income (including slum) are 13.07%, 35.08% and 51.85%, respectively.

(2) Commercial
The different establishments included in the estimation of commercial wastes are shops;
restaurants; hotels and guest houses; public facilities and schools; industrial plant and other
establishments. Industrial plants, guest houses and other establishments are not included in the
waste amount survey but have to be considered in the estimation to have a more accurate
computation of commercial waste. The estimate was done by direct interview with the person
in-charge of management in the establishment. The number of establishments for year 2009 was
obtained from the Department of Computer of the City Council of Nairobi.
The number of shops, restaurants, hotels and guest houses, public facilities and schools, industrial
plants, and other establishments are 47,941, 1,582, 726, 3,347, 501 and 27,077 respectively.

(3) Market
Currently, there are 44 markets in Nairobi City. The actual number and distribution of markets in
each zone were gathered from the Department of Social Services of the City Council of Nairobi,
namely; 4 in Zone 1, 3 in Zone 2, 5 in Zone 4, 2 in Zone 6, 1 in Zone 7, 8 in Zone 8, 10 in Zone 9,
and 11 in the CCN/SWMPC Zone. (Location of Zones 1 to 9 and CCN/SWMPC are shown in
Figure 4.2.2, Page 4-4.)

(4) Road
The length of roads currently being swept is 563.3 km. However, the amount of waste generation in
roads is not added to the estimation of total waste generation considering that the waste generators

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are also from the residential and commercial areas. The figure only shows the estimated amount
being swept from the roads everyday.
Based on the above assumptions, the total waste amount generated in Nairobi City at present is
estimated at 1,848 tons per day (t/day), as shown in Table 2.2.7.
Table 2.2.7 Total Amount of Waste Generation
Unit
Total
Generation Sources Quantity Unit Generation
(kg/day)
(kg/day)
1. Residential Waste
a. High Income 397,362 person 0.621 246,635.00
b. Middle Income 1,066,393 person 0.474 505,076.00
c. Low Income 1,576,245 person 0.360 566,670.00
2. Commercial Waste
a. Shops 47,941 establishment 0.5 23,970.50
b. Restaurants 1,582 establishment 38 60,116.00
c. Hotels & Guest Houses
Standard Hotels (D Class) 140 establishment 350 49,000.00
Lodging House (B & C Class) 586 establishment 100 58,600.00
d. Public Facilities/Schools
Public Facilities 500 establishment 137 68,500.00
School 2,847 establishment 32 91,104.00
e. Industrial Plant 501 establishment 150 75,150.00
f. Other Establishments 27,077 establishment 0.5 13,538.50
Sub-Total of Commercial Waste 439,979.00
3. Market Waste 44 market 2045 90,000.00
4. Street Waste 563.3 km 106 (60,000.00)
Total 1,848 t/day
Note: Street Waste is already included in residential and commercial wastes.

2.2.7 Diverted Waste

The total amount of diverted waste includes the amount of waste reduced at the source; the recyclable
materials recovered from junkshops; the materials recovered through composting of biodegradable
wastes by residents, CBOs and pilot plants; the amount recovered by the collection crew at the Material
Recovery Facility (hereinafter referred to as “MRF”); and the wastes recovered at the waste disposal
site. Table 2.2.8 shows the amount of diverted waste estimated based on the survey results on junk
dealers, recyclers (factories), etc., and the waste amount prediction conducted in accordance with the
waste flow shown in Figure 2.2.6. As a result, the total recovery amount of recyclable materials is
estimated at 86 tons per day which is equivalent to 5.3% of the potential waste collection amount.
Information on the activities of junkshops, dealers and the recyclers are lacking and all the resource
recovery amounts were not always recorded. However, the resource recovery amount obtained from the
major junk dealers as stated above can portray the current status of recycling activities in Nairobi City in
comparison with the survey results of material utilisation amount of the recycling industries obtained
from the major factories.

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Table 2.2.8 Summary of Waste Reduction, Recovery and Diversion

Item Amount (t/day)
Waste Reduction Amount at Sources 0
Recovery Amount of Recyclable
63
Materials by Junkshops
Recovery through Composting of
Biodegradables by Residents, CBOs 10
and Pilot Plants
Recovery Amount by Collection Crew
6
and at MRF(s)
Recovery Amount at Waste Disposal
6
Site(s)
Total Diversion Amount 86

2.2.8 Current Waste Flow

The current waste flow in Nairobi City is as shown in Figure 2.2.6.

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Population in Nairobi 3,040,000

Population in Self-disposal Area 297,000 Population in Collection Area 2,743,000

1,758 Domestic & Establishment wastes 1,848 Waste Generation Amount in Nairobi
1,318 Residentail Waste
439 Commercial Waste
(60) Road Waste
90 Market Waste
Note: Road sweeping waste amount is include in Domestic & Establishment
175 wastes
175 Waste Generation Amount in Self-disposal Area
10% Avg. Self-disposal Ratio(Ratio to Domestic & Establishments)

1,583 Potential Waste Discharge Amount (Domestic & Establishment wastes)

0 Waste Reduction at Sources

0.0% Target Waste Reduction Ratio (%)

63 Recovery of Recyclable Materials by Junk Shops in town

Recovery through Composting of Biodegradable by Resident, CBOs & Pilot Plant

10 Composting by House, Community and CBOs
0 Pilot Compost Plant (t/d)
10 Total Recovery of Biodegradable Waste

90 Market Waste

1,600 Potential Waste Collection Amount

38% Target Waste Collection Ratio in Collection Service Area(%)
62% Uncollected Waste Amount Ratio(%)
609 Target Waste Collection Amount
991 Uncollected Waste Amount in Collection Service Area

609 Actual Waste Collection Amount

6 Recovery Amount by Collection Crew and at MRF(s)

1% Assumed Waste Recovery Ratio by Collection Crew and at MRF(s))

603 Waste Amount Transported to Waste Disposal Site(s))

6 Recovery at Waste Disposal Site(s))

1% Assumed Waste Recovery Ratio at Disposal Sites

597 Waste Disposal Amount

Summary of Waste Reduction, Recovery and Diversion (t/day)

Material Recovery Amount 75 4.7%
Biodegradable Recovery Amount 10 0.6%
Total Waste Recovery Amount 86 5.3%
Waste Reduction Amount at Sources 0 0.0%
Waste Diversion Amount 86 5.3%

Figure 2.2.6 Current Waste Flow in Nairobi City (Year 2009)

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2.3 Institutional, Organisational and Human Resources Development Study

2.3.1 Current Status and Problems of Institutional, Organisational and Human

Resources Development for SMW in Nairobi

(1) Inefficient Structure and Improper Management of Organisation

After the formulation of the previous Master Plan, the National Environment Management
Authority (hereinafter referred to as “NEMA”) was established under the Environmental
Management and Coordination Act (hereinafter referred to as “EMCA”) No. 8 of 1999 as the
principal instrument in the implementation of all policies relating to the environment. The
enactment of EMCA 1999 was a milestone in promoting the sustainable environmental
management. The EMCA 1999 provides the institutional framework and procedures for the
management of environment. In accordance with EMCA 1999, the Environmental Management
and Coordination (Waste Management) Regulations of 2006, as well as the CCN (Solid Waste
Management) By-laws of 2007, detailedly stipulates the mandates of the Department of
Environment (hereinafter referred to as “DoE”) in the legal provisions to regulate the waste
management activities.
Under the basic policy directions and the supervision by the Ministry of Local Government, CCN is
primarily responsible for providing and regulating solid waste management services in the City of
Nairobi, and CCN delivers the said services through the DoE. The DoE is divided into the
Administration Section and three operational sections (SWM Section, Parks/Open Spaces Section
and Environmental Management Planning Section). The Department of Environment is headed by
the Director of Environment, assisted by two Deputy Directors. Figures 2.3.1 and 2.3.2 show the
outline of the organisational structure of the DoE and the SWM Section.

Director of
Environment

Chief
Administrative Officer Deputy Director Deputy Director

Assist. Director Assist. Director (Environment

Assist. Director (SWM)
(Parks and Open Spaces) Management and Planning)

Headquarter ＊Chief Environmental Chief Environmental

Officer : 2 Officer : 3

★Principal Env. Principal Env.

Officer : 2 Officer : 3

Division ☆
Senior Env. Officer Chief Env. Officer

Figure 2.3.1 Organisational Chart of the Department of Environment (1)

Source: Human Resources Department, City Council of Nairobi

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＊Chief Environmental Officer

★Principal Environmental Officer

☆Senior Env. Officer (CBD)

Env. Officer

Senior Env. Assistant, Env. Assistant

Artisan, Laborer

☆Senior Env. Officer (Dagoretti)

Same as above structure→

☆Embakasi

Same as above structure→

☆Kasarani

Same as above structure→

☆Kamukunji

Same as above structure→

☆Langata

Same as above structure→

☆Makadara

Same as above structure→

☆Starehe

Same as above structure→

☆Westlands

Same as above structure→

Figure 2.3.2 Outline of the Organisational Chart of the Department of Environment (2)
Source: Human Resources Department, City Council of Nairobi

The main responsibilities of the Department of Environment (DoE) on solid waste management are
summarised below:
• To implement CCN’s SWM policies formulated by the Council’s Environmental Committee.
• To maintain public cleanliness, protect public health and the environment, and keep public
places aesthetically acceptable by providing services for the collection, transportation,
treatment and disposal of solid wastes.
• To regulate and monitor the activities of all generators of solid wastes.

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• To regulate and monitor private companies engaged in solid waste activities.

• To enforce all laws and regulations relating to SWM.
The SWM Section is divided into nine (9) operation districts. Each district is headed by a Senior
Environmental Officer and provides both collection/transportation and street cleansing services to a
designated area of the city.
The major functions of the SWM Section are:
• Waste collection and transportation
• Medical wastes collection from hospitals, maternity homes, medical and veterinary clinics
• Street cleansing
• Cleaning and recovery of solid wastes from road gullies
• Road side and estates drain cleaning
• Night soil collection
• Dead animal collection
• Refuse disposal
• Supply of refuse bins to households
In the previous Master Plan, the following organisational restructuring was proposed. However,
although some organisational restructuring had been carried out in line with the proposal, the
number of scales of personnel remains unchanged.
• The Department of Environment should be reorganised to constitute the Division of Solid
Waste Management, the Division of Environmental Planning and Management, the Division
of Financial Affairs, and the Division of Parks.
• The Cleaning Section of the newly proposed Division of Solid Waste Management should be
reorganised. More concretely, sections for community development and contracting affairs
should be formed. At the same time, daily collection and road cleaning should be divided
clearly, and the number of vertical organisations should be reduced.
• The new Division of Financial Affairs should be in charge of administering human resources
development, financial affairs, general affairs and information management in the Department
of Environment.
• The new Division of Environmental Planning and Management should be in charge of
environmental planning, environmental management, and environmental impact assessment.

Currently, the City of Nairobi is divided into nine (9) operation zones based on constitutional
boundaries including the Central Business District (hereinafter referred to as “CBD”). The zones
are CBD, Dagoretti, Embakasi, Kasarani, Kamukunji, Langata, Makadara, Starehe and Westlands.
The following table shows the number of staff and workers of the Department of Environment. The
total number of staff and workers of the Department of Environment is 860, while that of the SWM
Section is 495 as of the end of April 2010.
The Department of Environment has difficulties in efficiently providing SWM services because of
chronic constraints on organisational and human resources development matters. This inefficient
operation in the solid waste management services is attributed to the following management-related
constraints:

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(a) Over-staffing and Overlapping under Vertical Structure associated with Duplicated
Responsibilities of Staff
Among the officials, there is a considerable overlapping of responsibilities making daily
operations and performances extremely slow and inefficient. This is due to a series of
reporting and approval chains with little value added in the organisation. For example, there
are three different positions for environmental supervisors with similar tasks in each division.
In addition to the overlapping of responsibilities, the over-staffing in the same scales and
positions, especially in the lower positions, is another constraint. Furthermore, there are
18 levels in the vertical structure from the director down to manual workers, making the
personnel management ineffective and the decision-making extremely slow.

(b) Poor Intra-departmental and Inter-departmental Coordination and Communication

Both intra-departmental and inter-departmental coordination and communication are rather
poor. Lack of coordination and communication makes the organisation inefficient. Especially,
there is little sharing of information and knowledge among the related officials. Currently
information is not systematically shared but day-by-day, on-demand, or spot basis.

(c) Unclear Individual Mandates and Job Descriptions

Although there are departmental performance contracts, there are no clear-cut individual
mandates or job descriptions. Tasks are set but there is no formal procedure to monitor
individual performance. Mandates and responsibilities are not clearly assigned, thereby
making the organisation more inefficient.

(d) Unaccountable and Slow Decision-making of Managers

The decision making capacity of managers and supervisors lacks effectiveness. This is not due
to individual deficiencies but is a direct result of the weak management culture. Managers and
supervisors need more training to develop their management skills.

(e) Insufficient Monitoring of Individual Work Performance

Although there are annual reviews on work performance as an organisation, there is almost no
periodical performance monitoring on the individual work results. Therefore, there is no
substantial feedback to the continuous improvement of individual work performances.

(f) No Standardised and Planned Working Procedures

The working procedures in solid waste management are not on a planned basis but on ad-hoc
or day-by-day basis. For example, the collection and transport of wastes are on the weekly
basis and not sufficiently planned.

(2) Improper Zoning for SWM Services

The current zoning for waste collection and transportation services is basically constituency
boundaries, and there is currently no concept on the internal cross-subsidising system where the
revenues from better-off zones are transferred to a fund to provide solid waste management
services in poorer zones. One of the possible ways for the internal cross-subsidy is to differentiate
the tariff-setting between better-off zones and poorer zones, thereby making it possible to internally
cross-subsidise poorer zones in Nairobi City. At present, licensed private waste collectors are
charging various levels of collection fees in different zones, and, furthermore, there is no proper
zoning system for the cross-subsidisation.

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(3) Lack of Information on Costing for SWM Services by Private Operators

The proper tariff setting for private contractors is also essential for the sustainable provision of solid
waste management services by private contractors. It is generally recognised that in order to
accurately calculate the actual cost of collecting, transporting and disposing wastes, financial
information such as variable cost, fixed cost, total cost and break-even point for providing services
should be clearly identified. Another institutional barrier against the sustainable provision of solid
waste management services is the lack of information on costing for solid waste management
services by private contractors, such as breakdown of unit costs for fuel, vehicle insurance and
other expenses as well as the required cost for tendering and contracting. The chart below illustrates
the image of variable cost, fixed cost, total cost and break-even point per unit waste, and the
following table shows the breakdown of unit cost by private contractors. It is obvious that the
costing for private contractors does not sufficiently consider the overhead cost and the depreciation
of capital investment cost.
Figure 2.3.3 illustrates the image of variable cost, fixed cost, total cost and break-even point for the
solid waste management. It was revealed that the majority of the staff of the SWM Section has
difficulty in explaining this cost structure based on the existing data. The lack of these information
leads to the improper contracting-out unit prices for waste collection by contractors, thereby
hampering the sustainable provision of waste collection services.

Figure 2.3.3 Image of Variable Cost, Fixed Cost, Total Cost and Break-Even Point
Source: JICA Survey Team

(4) Vulnerable Private Sector

Under the status quo, there are a significant number of private contractors and licensed private
waste collectors that provide waste collection services in Nairobi City. CCN has contracted-out part
of waste collection and street cleansing services, and, at the same time, waste collection services are
also delivered by approximately 50 private licensed waste collectors under open and completely
unregulated competition. Private companies are free to provide services to whom and to where they
like and collect tariff directly from their customers. There are also around 140 community-based
organisations (hereinafter referred to as “CBOs”) that handle wastes especially in informal
settlements, but many are badly equipped. The contracted private waste collectors operate in
designated zones as stipulated in their contracts with CCN. These private stakeholders have
vulnerabilities in the sustainable provision of waste collection services as outlined below. The
current status of waste collection and transport in Nairobi City is described in detail in Section 2.4.

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• Many of the private contractors and licensed private companies do not have offices and they
keep their vehicles in gas stations due to financial difficulty.
• They also have difficulty in renewing and increasing the number of vehicles due to lack of
financial sources to improve their collection services.
• The overhead costs and depreciation costs for the investment on vehicles are not completely
included in the contracts.
• The payment to private contractors is frequently delayed due to the slow accounting process of
CCN.

(5) Complicated Procedures for Procurement of Spare Parts and Maintenance

Due to the complicated procurement procedure of CCN, it takes a long time to execute the repair
the grounded vehicles. Therefore, the insufficient and complicated procedure for procuring spare
parts is a critical institutional barrier for the sustainable provision of solid waste management
services. The main reason for a lot of vehicles not in operation is that the Treasurers Department
takes a long time to provide the necessary budget for the procurement of spare parts.
More specifically, the reason for the complicated procurement procedure is that CCN must comply
with the tendering procedure stipulated by the complicated contracting threshold under the current
Procurement and Disposal Act, as below.
• International Open Tender under Section 71 of the Procurement and Disposal Act, 2005
• National Open Tender under Section 54(2) of the Act
• Restricted Tender under Section 73(2)-a of the Act
• Restricted Tender under Section 73(2)-b of the Act
• Restricted Tender under Section 73(2)-c of the Act
• Request for Proposal under Section 76(1) of the Act
• Request for Proposal under Section 74(2) and 74(3) of the Act

(6) Insufficient Budget for SWM Services

There are chronic financial constraints of CCN in terms of scale of budget. The revenue of CCN is
basically supported by several transfer funds from the central government such as the Contribution
in Lieu of Rates (CILOR), the Road Maintenance Levy Fund (RMLF) and the Local Authority
Transfer Fund (LATF), and the financial base of CCN is rather fragile. Table 2.3.1 indicates the
CCN Revenue for Financial Year 2009/2010, and Table 2.3.2 indicates the CCN Expenditure for
Financial Year 2009/2010.
The major findings are as below.
• The total receipt from the Central Government occupies 34.2% of the total revenue, which
implies that there is a chronic shortage of revenue for the budget of CCN.
• The budget for capital investment on SWM is only 13.2% of the total expenditure of the
Department of Environment, which is not enough to improve the level of SWM services.
• The budget for outsourcing to private contractors is limited.
• The budget for maintenance such as the procurement of spare parts and repair of vehicles is
only 6.9% of the total expenditure of the Department of Environment.

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Table 2.3.1 CCN Revenues for Financial Year 2009/2010

No. Total 2009/2010 Budget
(1000 KSh)
1 Contribution in Lieu of Rates (CILOR) 103,318
2 Road Maintenance Levy Fund (RMLF) 883,800
3 Local Authorities Transfer Fund (LATF): Service Component 1,174.044
4 Local Authorities Transfer Fund (LATF): Performance Component 782,696
5 Other Government Funds 0
6=1+2+3+4+5 Total Receipt from Central Government 2,943,858
7 Land Rates 1,849,950
8 Plot Rates 55,900
9 Single Business Permits 860,000
10 Total Cess Receipts 208,640
11 Game Parks 7,329
12 Market and Slaughterhouse Fees 97,310
13 Vehicle Parking Receipts 714,428
14 House and Stall Rents 250,260
15 Water Supply and Sewerage Charges or Royalties 0
16 Conservancy Fees and Charges 5,031
17 Other Receipts 1,620,222
18=7~17 Total Receipt from Local Sources 5,669,070
19=6+18 Total Revenue 8,612,928
Source: Department of Treasurers, City Council of Nairobi

Table 2.3.2 CCN Expenditures for Financial Year 2009/2010

No. Budget Item CCN Total Department of Solid Waste
Environment Management
(1000 KSh) % (1000 KSh) % (1000 KSh) %
1 Personnel 4,051,948 40.7 175,167 32.2 59,881 16.8
2 Operation 1,892,924 19.0 249,800 45.9 204,010 57.3
3 Maintenance 996,778 10.0 37,350 6.9 22,200 6.2
4 Debt Repayment 1,700,000 17.1 0 0.0 0 0.0
5 Capital Expenditure 1,309,352 13.2 81,900 15.0 70,000 19.7
6 Total Expenditure 9,951,002 100.0 544,217 100.0 356,091 100.0
Source: Department of Treasurers, City Council of Nairobi

(7) Insufficient On-the-Job Training for SWM-Related Personnel

In the previous Master Plan, it is pointed out that there is no ample policy for human resources
development. However, the Human Resource Department recently tried to improve this situation
through a number of trials as below.
• The performance contract between the town clerk and each department of CCN is entered
annually to clarify the target. The contract includes, vision, mission, objective of each
department, commitments and responsibilities of each department and CCN, and frequency of
monitoring and information flow together with quantitative indicators.
• Based on the staff performance appraisal report, it is intended to manage and improve the
performance of the staff in providing public services by enabling a higher level of staff
participation and involvement in planning.
• The Results-Based Management (RBM) is being prepared by each department of CCN to
assess the performance results of the annual operations together with performance indicators
for the purpose of improving the performance of the public services.

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• Currently, the Human Resource Department is trying to obtain a certificate from the
International Standard Organisation to improve the working procedures as well as the quality
of works.
• The Human Resources Department recently embarked on the implementation of a baseline
survey for skills, and competency needs assessment to establish critical skills and
competencies for performance of the staff.
• Consultancy works for the rationalisation of the organisational structure are being outsourced
to external consultants for the establishment of efficient utilisation of human resources.
Nevertheless, due to the insufficient budget the human resources development and training
programme is not sufficient. Regarding the budget for human resources development in the
Department of Environment, it is almost used for sending DoE’s staff to overseas academic
institutions as well as to attend international conferences, and is not allocated to on-the-job training
programmes for the solid waste management sector.

(8) Insufficient Enforcement of Legal Framework

(a) Policy Levels
There are several policy documents which include the basic nationwide policy framework of
solid waste management. Although priorities are being put on the improvement of solid waste
management in these policy documents, these policies are general conceptual frameworks for
the solid waste management. Therefore, the contents of these policy documents should be
transformed into more detailed, tailor-made actions for the solid waste management in each
local government.

(i) National Solid Waste Management Strategy

The National Solid Waste Management Strategy was prepared by the Office of Deputy
Prime Minister and the Ministry of Local Government in 2008. The strategies provide a
framework for the transformation of the waste management sector from being
disposal-oriented to recovery-oriented. Further, these strategies are to guide all local
authorities in setting a proper solid waste management.
• Strategy: To help meet Kenya Vision 2030 and the Millennium Development Goals
in health poverty reduction and protection of the environment.
• Guiding principles: Zero Waste Principle (Waste is a resource that can be harnessed
to create wealth, employment and reduce pollution of the environment.)
• Long-term goals: Achieve 50% waste recovery
• Short- and mid-term goals: Achieve 30% waste recovery
• Priorities: Capacity building at local authority level
• Performance indicators: Amount of waste recovered through recycling and
composting programmes
• Instrument: Specific action programmes

(ii) Kenya Vision 2030

Kenya Vision 2030 is the country’s new development blueprint covering the period 2008
to 2030. It aims to transform Kenya into a newly industrialised, “middle-income country
providing a high quality life to all its citizens by the year 2030.” The Vision was
developed through an all-inclusive and participatory stakeholder consultative process,
involving Kenyans from all parts of the country. It also benefited from suggestions by

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some of the leading local and international experts on how the newly industrialising
countries around the world have made the leap from poverty to widely-shared prosperity
and equity. Kenya Vision 2030 is divided into three fundamental pillars: the Economic,
Social and Political pillars. The social pillar aims at realising a just and cohesive society
enjoying equitable social development in a clean and secure environment.
Under the Social Strategy, paragraph 5.4 envisions Kenya becoming a nation that has a
clean, secure and sustainable environment by 2030. So as to realise this strategy, the
document explains that one of the specific strategies is to improve pollution and waste
management through the design and application of economic incentives, and the
commissioning of public-private partnerships (PPPs) for improved efficiency in water
and sanitation delivery. Some of the flagship projects earmarked for this strategy are the
development of tight regulations on plastic bags to limit production and usage of
environmentally-detrimental plastic bags, and the solid waste management initiative that
is to be characterised by the relocation of the Dandora dumpsite, and the development of a
solid waste management in five leading municipalities as well as in the economic zones
planned under Vision 2030.

(iii) Nairobi Metro 2030

Nairobi Metro 2030 is part and parcel of the overall national development agenda. This
agenda is encapsulated in Vision 2030 and, these two documents are the country’s
response to dealing with five key development issues, namely; rapid economic growth,
employment and balanced wealth creation, poverty alleviation, meaningful youth
engagement and a vigorous pursuit of regional equity in all its manifestations. In this
connection, the Nairobi Metro 2030 aims at optimising the role of the Nairobi
Metropolitan Region in the national development effort. It will be targeted at ensuring
that it facilitates the effective and efficient utilisation of the Nairobi Metropolitan
Region’s resource endowments as well as effectively integrating the region into the
national fabric. Most importantly it will be applied as an instrument for developing the
other regions of the country through effective economic and other structural linkages to
the rest of the country.

(b) Act and Regulation Levels

The enforcement of the provisions governing the management of solid waste is done mainly by
NEMA and the CCN. However, it is found that the enforcement and monitoring is weak to
implement the Acts and Regulations. It is absolutely necessary to establish and implement a
system of monitoring, inspections and enforcement of the Acts and Regulations although there
are many Acts and Regulations related to solid waste management, as listed below.
• Environmental Management and Co-ordination Act (EMCA) No. 8 of 1999
• City Council of Nairobi (Solid Waste Management) By-laws of 2007
• The Factories Act (Caption 514 of the Laws of Kenya): Section 13
• The Occupational Safety and Health Act of 2007: Section 55
• The Building Code of 1987: Section 239(1)
• The Traffic Act (Caption 403 Laws of Kenya): Section 55(1) and Section 56(1)
• The Transport Licensing Act (Caption 404 Laws of Kenya)
• The Scrap Metal Act (Caption 503 Laws of Kenya): Section 22(2)
• The Environmental Management and Co-ordination (Waste Management)
Regulations of 2006
• The Registered Land Act of 1963

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(c) Guidelines
(i) Guidelines on Private Sector Involvement in Solid Waste Management
The Guidelines on Private Sector Involvement in Solid Waste Management was prepared
by CCN in 2001 to define a systematic approach and framework within which the private
sector provides solid waste management services. It formalises and regulates solid waste
management services so as to provide an enabling environment to waste operators, and, at
the same time, the operators are expected to comply with the Environmental Management
and Co-ordination Act, and other laws and regulations.
The Guidelines include:
• The policy on private sector involvement in solid waste management;
• The licensing policy and regulations; and
• The guidelines on vehicles/equipment, clothing, collection frequency, charges,
cleansing and financial qualifications.

(ii) Guidelines on Public-Private Partnerships

The Guidelines on Public-Private Partnership issued by the Public-Private Partnership
Steering Committee under the Ministry of Finance in 2006 is the basic policy framework
for PPP projects. The Guidelines specify 13 general steps to be required for the promotion
of PPP projects.
Based on the understanding of the PPP Guidelines, the Department of Environment of
CCN recently prepared the document named “Towards an Integrated Solid Waste
Management System for Nairobi through Private Public Partnership (PPP)
Framework.” However, both the PPP guidelines and this policy document do not specify
the detailed requirements and procedures for the long-term PPP schemes such as
concession and BOT projects. Hence, the Guidelines are not being used for the formation
of the specific PPP projects, especially long-term concessions, BOT projects and its
variations. Although the Ministry of Finance and CCN are willing to formally legalise the
Guidelines, it is required to overcome the following constraints for the implementation of
successful PPP projects in order to legalise the Guidelines.
• Lack of clause on risk allocations
• Lack of clause on termination of projects
• Lack of clause on reasonable concession terms
• Lack of clause on detailed methodologies of value for money analysis

(iii) NEMA General Guidelines for License Application to Own/Operate a Waste

Treatment or Disposal Site
As a regulatory agency, under the Waste Management Regulations of 2006, NEMA
classifies various types of waste and recommends appropriate disposal methods for each
waste type. Under the Waste Management Regulations, NEMA licenses transporters,
incinerators, landfills, composers, recyclers and transfer stations. Facilities to be licensed
include local authorities, transporters and handlers of various types of waste. The
licensing employs a risk-based approach by concentrating on facilities considered to pose
a high risk to the environment. On the other hand, NEMA has the “General Guidelines
for License Application to Own/Operate a Waste Treatment or Disposal Site.”
Section A of the Guidelines requires the obligatory documents that the waste transporters
must submit, as below.

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• Serial Number: Each tracking document to have a serial number starting with 001
• Registered Name of Transporter: As per license
• Usual Municipality/District of Operation: As per license
• License number: As per waste transportation license issued by NEMA
• Issuing Authority: NEMA
The procedures under the Guidelines are duplicated for CCN’s licensing procedures
required of transporters. This is due to the fact that NEMA requires the license in terms of
overall environmental regulations while CCN requires the license in terms of individual
solid waste management practices.

2.3.2 Results of Detailed Capacity Assessment

Capacity assessment is defined as the process through which the gaps between available capacities and
those needed to meet their goals are identified. The qualitative degree of the gap between the required
capacity and the present capacity at individual and organisational levels is comprehensively assessed by
using 5-grade score sheets. Table 2.3.3 tabulates the results of the outline of the capacity assessment.

Table 2.3.3 Summary of Capacity Assessment

Area Detailed Evaluation Items 5-Grade Score
Low High
1 2 3 4 5
z Level of Knowledge and Technologies on Solid Waste
●
Individual Capacity of Management (Operation and Maintenance, etc.)
Staff of the Department z Level of Awareness and Responsibilities of Staff ●
of Environment (DoE) z Communication Skills ●
z Overall Management and Governance Level ●
z Organisational Structure (Organisation Chart,
Decision-making Mechanism, Coordination Capacity,
●
Number and Category of Staff, Personnel
Management)
z Financial Affairs (Level of Financial Management,
Cost Structure, Revenue Structure, etc.) ●
z Financing Capacity for Facilities and Equipment ●
Organisational z Appropriateness on Current Tariff System and Fee
Capacity of the DoE* Collection System ●
z Physical Assets (Landfill Sites, Equipment, Materials,
*Items of “Financial
etc.) ●
Affairs” and “Financing
Capacity for Facilities and z Intellectual Assets (Maintenance and Management
Equipment” are related to
Manuals, Database, etc.) ●
the Department of
Treasurers in addition to z Level of Computerised Management ●
the DoE. z Level of Information Sharing and Cooperation among
Organisations ●
z Level of Labour Management for Workers ●
z Level of Management, Disposal Capacities and
Methods etc. of Transported Solid Wastes ●
z Current Status on Improvement of Collection
Efficiency of Solid Wastes ●
Other Organisational z Level of Know-how of Solid Waste Management
●
Issues of the DoE System
z Arrangement of Statistics on Solid Waste Management ●
z Arrangement of Manuals for Operational Efficiency ●

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Area Detailed Evaluation Items 5-Grade Score

Low High
1 2 3 4 5
z Level of Document Filing System ●
z Current Function of PPP (Public-Private Partnership) ●
z Efficiency of Licensing Procedures for Private
●
Companies
z Efficiency of Contract Procedures for Private
●
Companies
Partnership with z Appropriateness of Methodologies for Estimating
Private Sector of the ●
Costs for Contracting-out
DoE
z Appropriateness of Management Indicators for
●
Contracting-out
z Supervising and Monitoring Measures on
●
Contracting-out
z Legal Regulatory Measures on Illegal and Open
●
Dumping
z Level of People’s Understanding and Awareness on
●
Solid Waste Management Issues

Partnership with z Level of Consideration on Gender Factors for Solid

●
People of the DoE Waste Management Issues

z Level of Partnership with Communities ●

z Operational Rule on Waste Pickers ●
z Level of Current Legal and Institutional Status (Law,
By-law, Regulation and Standard on Solid Waste ●
Management)
Legal and Other z Level of Legal Framework on PPP ●
Institutional Issues of z Appropriateness of Definition on Solid Wastes ●
z Degree of Clarification of Administrative
the DoE ●
Responsibilities
z Categorisation and Coding of Solid Wastes ●
z Formulation of Database on Solid Wastes ●
Source: JICA Survey Team Analysis

Based on the assessment, the major findings are as described below.

(1) Individual Capacity of Staff of CCN

• “Level of Knowledge and Technologies on Solid Waste Management” and “Communication

Skills” are estimated at medium level although the institutional incentive is not enough to keep
the staff and workers highly-motivated.
• Although the academic background for management skills of individual staff is relatively high,
practical experiences are lacking.

(2) Organisational Capacities of CCN

• “Organisational Structure” is set up while the vertical structure in association with staffing is
too much complicated and many duplicated responsibilities in DoE can be seen.
• The scale of the budget for procurement of the necessary spare parts for vehicles and
contracting out of waste collection is not enough.

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• “Level of Computerised Management” and “Level of Labour Management for Workers” are
relatively low because of no comprehensive computer network and insufficient enforcement of
labour safety regulations.

(3) Other Organisational Issues

• There is no systematic document filing system. Document filing is carried out individually by
each officer.

(4) Partnership with Private Sector

• There is no sufficient management indicator for private contractors, and the depreciation for
vehicle investment is not sufficiently included in the costing for private contractors.
• Although there is a legal system to regulate illegal and open dumping, the enforcement
capacity is still relatively weak.

(5) Partnership with People

• Although some CBOs and NGOs assist waste pickers in the dumping site, there is no
systematic rule on waste pickers.

(6) Legal and Other Institutional Issues

• Coding system of collected waste including hazardous waste is insufficient in actual operation,
and the database on solid wastes is not effectively utilised.
• Although there is a PPP guideline, its actual enforcement is rather weak.

2.3.3 Assistance by Other Donors and Situation in Other Cities

(1) UNEP (United Nations Environment Programme)

The current programme of Integrated Solid Waste Management was initiated as a result of the
Nairobi River Basin Programme when it was realised that the problem on waste dumping in river
courses has become more serious due to lack of organised and planned waste disposal arrangement
of solid waste management in Nairobi City. According to the draft final report, the following gaps
as well as proposed interventions have been identified and need to be complemented.

Table 2.3.4 Gaps and Interventions Suggested by UNEP/ISWM Programme

Issues Gaps Proposed Interventions
Prevention z NEMA is yet to develop a law governing z Develop policy/law on e-waste
e-waste management in Kenya z Develop technologies on e-waste
z Country lacks appropriate z Develop policies on handling toxic
technologies/know-how to handle e-waste and hazardous wastes
z Lack of policy for handling toxic and
hazardous wastes such as radioactive
materials and clinical wastes.
Minimisation z Excess packaging z Discourage through levies
(Reduce) z Weak enforcement of policy on minimum z Enforce minimum thickness of
thickness of plastic bags plastic bags
z No active policy on establishment of z Promote industrial production of
eco-industrial parks built around waste recyclable material, e.g., plastics
exchange and/or industrial symbiosis

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Issues Gaps Proposed Interventions

Reuse z Limited access to suitable technology, e.g., for z Promote safe re-use of construction
re-use of construction and demolition wastes and demolition wastes by small
z Limited access to finance to fund acquisition operators
of such technology z Change awareness and attitude on
z Unhelpful attitude that “poor people reuse” re-use
Recycling z Insufficient infrastructure, and no active z Provide infrastructure and space
land-use planning for such infrastructure for recycling
z Insufficient incentives z Provide incentives
z Too many grades/types of plastic on the z Enforce law and regulations on
market plastics
z No technology incubation (this is also relevant z Develop incubation centres for
to the next heading recycling
Recovery z A significant gap exists around recovery of z Introduce technology and
carbon-bound energy from the organic know-how on composting and
fraction (OF). It seems that composters biogas production
currently handle in a year the amount of z Promote the use of compost and
material that arises in 2-5 days. Can biogas
composters scale up significantly? Would z Enact by-laws to regulate
(decentralised) biogas generation be a key composting and biogas generation
technology to fill this gap? and use
z No policy in place to encourage/regulate
Disposal z New landfill project not proceeding with z Consultations to ensure speedy
required urgency due to conflicting interests. implementation
z Limited financial and technical capacity z PPP and requisite technology
transfer
Source: UNEP, Integrated Solid Waste Management Programme Draft Final Report, 2010

In addition, the “Project Formulation of Reduction of Greenhouse Gas applied by the Global
Environment Facility (GEF),” which is related to solid waste, is being carried out with UNEP funds
at the cost of around 1.5 to 5 million US dollars. The project was started in August and the
completion date is December 2010. UNEP had hired a consultant to prepare the project documents
for submission and presentation in a round table conference to be held in 2011; however there is no
detailed information except that this project is concerned with solid waste management in Nairobi
City and the reduction of greenhouse gas.

(2) UN-HABITAT
The Kibera Integrated Water, Sanitation and Waste Management Project (WATSAN) aims at
contributing towards improving the livelihood of the urban poor by supporting small-scale
community-based initiatives in water, sanitation and waste management. The project contributes to
the ongoing Kenya Slum Upgrading Programme (KENSUP) which is a collaborative initiative
between the Government of Kenya and the UN-HABITAT with the following objectives:
• To support improved accessibility to water, sanitation and credit facilities;
• To support improvements to the drainage system;
• To initiate small-scale door-to-door waste collection and recycling initiatives; and
• To establish and strengthen governance frameworks to regulate distribution and accessibility
to water and sanitation.

(3) The World Bank, AFD and SIDA

In May 2009, the World Bank (WB), in cooperation with AFD (Agence Française de
Développement: French Development Agency) and SIDA (Swedish International Development
Cooperation Agency), dispatched a joint mission to discuss the comprehensive strategy for

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engaging in a systematic transformation of the urban and local government sectors in the country.
In the aide memoire of the joint mission, the following three programmes were proposed to be
carried out:
• Kenya Municipal Programme (KMP): USD100 million was already pledged.
• Kenya Slum Upgrading Programme (KENSUP): A mission will be dispatched in October
2010.
• Nairobi Metropolitan Services Project (NMSP): The Project is now being formulated.
Out of these three programmes, the major objective of the NMSP is to improve two key public
services in the Nairobi Metropolitan Area, namely; Transport and Solid Waste Management, and
the strengthening of institutions responsible for these services. Integrated Solid Waste Management
is the Component 2 of NMSP. This component includes:
• Establishment of a new sanitary disposal site;
• Construction of recycling and composting facilities at Dandora;
• Construction of solid waste transfer stations; and
• Support of activities.
The mission proposed to create a financially independent solid waste company to be in charge of
solid waste collection, disposal of solid waste, and collection of solid waste fees. The WB is
currently considering the possibility of support for SWM in the Nairobi Metropolitan Areas except
Nairobi City. NMSP and KENSUP will include the same ideas, such as the establishment of a new
solid waste company and waste collection improvement in slum areas.

(4) Request for Proposal on Strategic Partner

CCN prepared the request for proposals to select a strategic partner for providing solid waste
management services in Nairobi City. The objective of this RFP is to procure a reliable strategic
partner that is capable of implementing an Integrated Solid Waste Management (ISWM) by
providing reliable and sustainable services in Solid Waste Management that includes street
sweeping, waste separation from the source, waste collection, transportation, intermediate
treatment, decommissioning Dandora Dumpsite and commissioning a new sanitary landfill. The
strategic partner will work closely with CCN to accommodate the existing staff, all other interested
groups including the private strategic partners, youth and women groups. This will be done in the
context of integrated solid waste management system which involves waste minimisation, reuse,
recycling, material recovery, composting and final disposal at the sanitary landfill.

(5) Case of Municipal Council of Nakuru (MCN)

The private sector involved in SWM in the Municipal Council of Nakuru (MCN) consists of five
small companies that charge KSh 100 per household per month in high density residential areas,
KSh 150 per household per month in medium density residential areas, and KSh 200 per household
per month in low density residential areas. These fees are controlled by MCN although the
payments are sent directly to the private sector company.
MCN registers the private companies after advertising for the services and consequently chooses
the most qualified bidder from each zone. Some of the prequalification factors looked at include
financial and equipment/transport access capability. MCN also partners with CBOs in
neighborhood clean-ups and general environment management. Specific areas have been zoned out
and assigned for specific CBOs and private companies to engage in SWM. The MCN levies a
franchise fee of 15% of gross income for the private sector companies while it is 7.5% of gross
income for CBOs involved in SWM.

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2.4 Collection and Transportation Study

2.4.1 Present Condition of the SWM Collection and Transportation System

(1) Actual Operation of Collectors and Transporters

The collection and transportation of municipal solid waste are carried out by four organisations, as
follows:
• CCN
• Contractors subcontracted by CCN
• Private Service Providers
• CBOs
The following subsections describe how each organisation conducts waste collection and
transportation. The detailed information is shown in Section C of Volume 3, Supporting Report.

(a) CCN
(i) Organisation
The Collection and Street Cleansing Section is in charge of the management of collection
and transportation of municipal solid waste in the whole city of Nairobi and is headed by
the Chief Environmental Officer. There are 9 division officers in each Division who head
their staff including loaders, road sweepers and drivers.
The functions of the Collection and Street Cleansing Section are as follows:
• Waste collection and transportation;
• Street cleansing;
• Roadside and estates drain cleaning (partially);
• Dead animal collection;
• Refuse disposal;
• Grass cutting along roadsides; and
• Destruction of condemned foods and other goods, with the issuance of destruction
certificates.

(ii) Operation Method

The station type of collection is common and door-to-door collection is very rare. One
operation team is composed of 1 supervisor, 3 loading crew and 1 driver. There are
5 collection points currently designated by CCN. However, according to the Time and
Motion Survey, 2 to 12 collection points for the areas of CBD, Langata, Makadara and
Kamkunji divisions were identified in CCN’s actual operation. Also in the Time and
Motion survey, a higher percentage of loading time to total operation time was identified
in CCN’s vehicles compared to contractors and private collectors. This seems to be
caused by the CCN’s inefficient collection methods or time-consuming manual loading.
There are no remarkable differences on trip number among the three types of collectors.
However, CCN vehicles show a comparatively higher trip number compared to the
contractors and transporters.

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(b) Contractors Subcontracted by CCN

(i) Number and List of Contractors
There are 21 contractors engaging in the collection and transportation of waste in the
areas designated by CCN under the station collection system. According to the
Environmental Management and Coordination (Waste Management) Act (EMCA) of
2006, no person shall be granted a license to transport garbage without any permission
from NEMA.

(ii) Operation Method

Most of the collection work is done by the station type of collection. An operation team is
composed of 1 CCN supervisor, 5 crew members and 1 driver in most cases. According to
the Time and Motion Survey, 2 to 22 collection points were identified in the collection
areas of Kasarani, Milimani and Makadara. Also in the survey the contractor’s vehicles
showed the highest efficiency of collected amount of waste compared to the other types of
CCN and private collectors, i.e., 120% to 225% of the average collected waste amount per
trip. This higher efficiency of contractor’s vehicles seems to be caused by several reasons
such as 1) their collection area is not time-consuming, or 2) the vehicles used are of large
capacity, or 3) their vehicles are equipped with a tipping function.

(c) Private Service Providers

(i) Number of Private Service Providers
There were 44 registered and 26 non-registered private service providers (hereinafter
referred to as “PSPs”) as of 2009. As for the subcontractors of CCN, the PSPs require a
business license from NEMA for the transportation of waste and they have to be
registered with CCN. The detailed information is given in Section C of Volume 3,
Supporting Report. The operation of non-registered private collectors is basically
illegal. However, they can do the business of collection and transportation of wastes due
to the lack of enforcement capacity of CCN.

(ii) Operation Method

The PSPs operate through the door-to-door collection system in areas they have
contracted for the collection and transportation of waste generated by customers in middle
to high income residential or commercial areas. According to the Time and Motion
Survey, the collection points of PSPs range from 1 to 36. In the survey, it was identified
that private collectors showed the most inefficient operation of collection and
transportation, especially in unloading work. This seems to be due to the fact that they are
still using very old vehicles without a tipping function such as the old Bedoford trucks.

(d) CBOs (Community-Based Organisations)

(i) Number of CBOs
CBOs conduct their collection activities with license to collect from CCN, mainly in slum
and low income areas. There are 140 CBOs in Nairobi City including the local youth
groups. They conduct their collection activities occasionally with the support of NGOs,
including the solicitation of funds for the purpose.

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(ii) Operation Method

CBOs sell plastic bags to the residents of low income and slum areas
(8 bags/household/month: 200 KSh/household/month), then collect the plastic bags
containing garbage and bring them to the collection points using handcarts. The wastes at
the collection points are then transported by the vehicles of CCN or the subcontractors to
the Dandora Dumpsite, as gathered from the interview with one CBO on the 4th of
December, 2009. The residents who can afford to buy plastic bags are actually below 20%
of the total number of residents, which is presumed to be one of the causes of illegal
dumping of waste everywhere in those areas.
Several unlicensed CBOs also operate in those areas and the collection frequency of CCN
or its subcontractors is very low (usually, once a month). These facts are also presumed to
have caused the illegal dumping activities. A workshop targeting CBOs was held on
March 24, 2010 and a questionnaire survey was conducted on the CBOs.
The analysed results of the survey are as follows:
• About 46% of all respondents are registered with CCN, while 44% are not registered.
• 68% of all respondents are operating in collection activity, while 28% are doing
recycling and composting activities.
• 80% of the respondents make contracts with households.
• The most significant problem is that collection vehicles do not go to the collection
points of their activities.

(2) Collected Waste

(a) Collected Waste Amount
Table 2.4.1 shows the daily collected waste amounts at the Dandora open dumping site by
type of collector and transporter. The total amount of collected waste at the Dandora Dumpsite
increased from 397.3 ton/day in 2006 to 608.4 ton/day in 2009. The solid waste is collected
mostly by the subcontractors (70-75%) followed by the private service providers (21 to 28%).
According to the “Integrated Solid Waste Management Plan”, UNEP 1st Draft, 19 February
2010 (UNEP Report), the average collection amount of 830 ton/day during the period
2006-2008 in the UNEP report is larger than the figure of 497.4 ton/day which is the average
figure of the collected waste amount during 2006 to 2008 in Table 2.4.1.

Table 2.4.1 Collected Waste Amount at Dandora Dumpsite

Unit: ton/day
Daily Average Collected Waste Amount
Year
CCN Contractor PSPs Total Max. Min.
2006 7.9 (2.0) 299.6 (75.4) 90.3 (22.6) 397.3 (100) 596.5 279.2
2007 13.5 (2.6) 352.2 (68.8) 145.9 (28.6) 511.6 (100) 619.2 351.7
2008 9.4 (1.8) 398.0 (75.2) 121.9 (23.0) 529.3 (100) 602.2 440.1
2009 29.6 (4.9) 446.5 (73.4) 132.2 (21.7) 608.4 (100) 906.1 472.5
Note: Figures in parentheses indicate percentage of the total.
Source: Department of Environment, CCN

(b) Collection Ratio

Waste generation is estimated at 1,848 ton/day in 2009 (See Table 2.2.7, page 2-11). Based on
this figure, the waste collection ratio to waste generation is roughly estimated at only 33% as
of 2009, and the remaining waste is presumed to be illegally dumped or self-treated at the

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generation source. This figure is almost 60% of the figure in the UNEP Report. How the
collection rate in the UNEP report was computed is not clear while the collection ratio of 33%
in this Master Plan was computed based on the waste amount measured by the weigh bridge at
the Dandora Dumpsite. The figure in the UNEP report seems to include the waste amount from
illegal dumping.

(3) Maintenance of Facilities and Equipment

(a) CCN
CCN has 13 working collection vehicles and 1 loader. The collection vehicles of CCN are
dump trucks and not compactor trucks, so that the operation crew load the garbage manually.
CCN purchased most of its collection vehicles recently in 2009 and has a maintenance shop at
the Lagos Road cleansing depot. All major repairs are carried out at the CCN transport depot
along the Garage Road, off Dar Salaam Road. Most of the collection vehicles of CCN have a
tipping function with the average capacity of 7 tons. The detailed information is given in
Section C of Volume 3, Supporting Report.

(b) Subcontractors of CCN

Most of the subcontractors of CCN have 3 to 5 collection vehicles, and only half of them have
a tipping function causing the inefficient collection by manual loading and unloading. The
detailed information is given in Section C of Volume 3, Supporting Report.

(c) Private Service Providers

There is a wide variety of operation scale in the private service providers from the smallest
company with only 1 collection vehicle to the large-scaled companies such as Bins Nairobi
Service Ltd. with 20 collection vehicles. Very few of the companies have vehicles with a
tipping function and the operation crew has to do the loading and unloading manually, which
currently causes the extremely inefficient operation.

(4) Legislation and Actual Practices on Waste Segregation, Discharge and Illegal
Dumping
(a) Legislation on Waste Generation and Discharge
The Environmental Management and Coordination Act (EMCA, 2006) and the City Council
of Nairobi (Solid Waste Management) By-laws (2007), contain provisions on waste
segregation, discharge, legislative enforcement and monitoring.

(i) Regulations on Waste Segregation, Discharge and Generation

Section 87(1) of EMCA provides that no person shall discharge or dispose any waste,
whether generated within or outside Kenya, in such manner as to cause pollution to the
environment or ill health to any person. Sections 1, 2 and 3 of the general provisions of
EMCA also stipulate the responsibilities of waste generators in the provisions prohibiting
any person from disposing any waste on public places.
On one hand, Section 8(9) of the By-law states that occupiers of domestic and trade
premises shall separate waste that can be recycled and place it in a different container
provided by the council or the waste operator.

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(ii) Enforcement, inspection and monitoring system

The enforcement of provisions on solid waste management is done mainly by NEMA and
the City Council of Nairobi. The monitoring of rivers including illegal dumping is the
mandate of NEMA. Section 11(1) of the By-law mandates the CCN to establish and
implement a system of monitoring, inspections and enforcement of waste management
activities and is to inform and keep the public informed of steps it is taking to implement
and improve waste management within the City Council of Nairobi.
The City Inspectorate Department of the CCN has the mandate on the inspection and
monitoring of actual practices of the waste generators.

(b) Definitions of Illegal Dumping

Based on Sections 1, 2 and 3 of the general provisions of EMCA, waste dumping on public
places such as rivers, roads and parks not designated by the authorities is prohibited. In most
cases, garbage dumping in rivers and roadsides can be understood clearly to be illegal. Also,
the dumping at places not designated by CCN can be defined as illegal dumping. However,
even in the designated collection points, when the collection activity is done in a very low
frequency such as once a month and CCN does not monitor or inspect these practices, these
places also can be a problem from the viewpoint of public health, visual landscape, and lack of
administrative monitoring and enforcement capability.

(c) Causes of Illegal Dumping

Various causes bring illegal dumping in a complicated relationship among the actual practice
of waste generators, waste collectors and administrative capabilities. Table 2.4.2 summarises
the estimated causes of illegal dumping. As shown in Table 2.4.2, the lack of waste
generators’ awareness toward appropriate waste segregation and discharge, low affordability
of waste charge and low frequency of waste collection and transportation, etc., are presumed
as the causes of illegal dumping.

Table 2.4.2 Summary of Causes of Illegal Dumping

No. Presumed Causes
1 Lack of waste generators’ awareness toward appropriate waste segregation and discharge
2 Low affordability of waste generators to pay garbage fee
3 Very low frequency of waste collection and transportation
4 Lack of capability of waste collectors (Lack of collection staff and collection vehicles)
5 Weak legal enforcement in terms of weak penalty clauses
6 Lack of administrator’s enforcement capability on inspection and monitoring
7 Lack of containers to accept discharged waste

(d) Actual Practice of Waste Segregation and Illegal Dumping

Currently there is no waste segregation at waste generation sources. However, waste pickers
segregate recyclable wastes such as metals, PET bottles and glasses at the time the collectors
collect the waste at the collection points and unload them at the Dandora Dumpsite.
Illegal dumping has been identified in various places in the city. Seventy-four (74) sites were
identified, and Kasarani Division has the largest number of illegal dumping site. The detailed
information is shown in Section C of Volume 3, Supporting Report.

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(5) Relevant Projects of Other Donors in relation to Collection and Transportation

(Actual Performance, Ongoing and Planning)
No support from any donor on the implementation of collection and transportation has been
identified through the discussion with CCN.

(6) Necessity of Transfer Station and Current State of Candidate Sites and their
Evaluation
(a) Necessity of Transfer Station
A new sanitary landfill will be an indispensible option for the appropriate solid waste
management by Nairobi City when the urgent closure of the existing Dandora Dumpsite is
taken into consideration. The final landfill site can be located in a long distance from the
collection area. In this case, the direct haul of garbage to the new landfill site will take higher
transportation cost. The transfer-transport can be a dominant alternative to the direct haul to
the final landfill site. Therefore, the development of a transfer station should be studied to
identify an integrated optimum system of waste collection and transportation in Nairobi City.

(b) Candidate Sites of Transfer Station

Three sites, namely, Kaliobangi South, Dandora Dumpsite and Langata were identified as
candidate sites for the development of a transfer station.
The Kariobangi South Site is currently an open space with an area of 41 ha. The site is located
in an area surrounded by two major roads, namely; the Outer Ring Road and the Kangundo
Road, and accessed from Kangundo Road. The area is close to the existing railway line at the
north edge. The land uses planned for the site are horticulture, storage facility and matatu
terminal.
Dandora, on one hand, is currently an open dumping site surrounded by the Outer Ring Road
and the Koma Rock Road. The site can be a facility site of a transfer station after the safe
closure of the existing open dumping area.
Langata is currently a forest land with an estimated land area of 8 ha adjacent to the existing
public cemetery and close to Langata Road. The site is covered with trees and located at 2 km
distance from the Kibera slum area and 7 km from CBD (Central Business District). The
detailed information is shown in Section C of Volume 3, Supporting Report.

2.4.2 Evaluation of Current Collection and Transportation System of SWM

The biggest problem in the present collection and transportation system in Nairobi City might be the low
collection ratio of only 33%. The fact seems to be caused by the complicated technical, financial,
legislative, institution and socio-economic factors. The issues described below are the possible factors
that cause the situation.

(1) Private Sectors engaged in Collection and Transportation are beyond the Control
of CCN
There are lots of actors on collection and transportation, especially, the 44 registered private
companies and 21 contractors which account for about 95% of the waste collected in Nairobi City
and brought to the Dandora Dumpsite. In addition, there are many other actors who illegally operate
and are not managed by the CCN. CCN’s lack of operation, resources and management capacity
seems to make the operation of these actors disorderly. Reorganisation and government control
should be mandatory for establishing an appropriate SWM.

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(2) Lack of Enforcement or Inspection Capacity in Administrative Bodies

The mandate to waste generators, collectors and transporters, including the mandate to
administrators regarding the inspection or monitoring of practices of waste generation and
discharge, is clearly stipulated in the law which created the CCN or its By-law. However, the
inspection and monitoring seems to be weak. The capacity development of administrators is
required to enhance their inspection and monitoring capability.

(3) Inefficient Operation of Collectors and Transporters

It is difficult to state that the collection and transportation practices of actors are efficient because of
the poor performance of their vehicles and the fact that they have no compaction tractors and very
few dump trucks with a tipping function. In addition, waste pickers tend to disturb the unloading
operation of transporters at the Dandora Dumpsite due to the vehicles without a tipping function.
This fact also causes the extremely inefficient operation of transporters. The improvement and
upgrading of collection and transportation vehicles are required.

(4) Illegal Dumping Sites scattered in a Wide Area

Several illegal dumping sites are scattered in a wide area of the city. Various reasons are presumed
such as the absence of garbage containers in those places, the very low collection frequency of
collection vehicles, or the residents’ weak affordability to pay service collection fee to the CBOs.
The installation of containers, improvement of CCN’s collection system or the increase of
collection frequency is required.

(5) CCN’s Delayed Payment to Contractors

It was identified in the Time and Motion Survey that CCN had fallen behind its payment schedule
to the subcontractors for nine (9) months with regard to the collection and transportation charges.
Accordingly, the surveyor had to rearrange his survey schedule to pursue the subcontractors’ claim
for payment of collection and transportation charges. This fact indicates that CCN lacks the
appropriate implementation capacity on SWM which may be due to the lack of appropriate
contractual relationship between CCN and the subcontractors or CCN’s weak financial capability
which may have affected CCN’s social credibility.

(6) Poor Data Management

CCN currently records the amounts of waste brought to Dandora by the incoming collection
vehicles by using the existing truck scale. However, the following problems were identified in the
survey:
• No data sorting of collected waste amounts by district or collection area
• Late management process in converting raw data into PC files in MS Excel format
• Lack of staff for the management and evaluation of waste collection amounts at Dandora
Therefore, the enhancement of CCN’s management capability on data management of collected
waste amounts will be necessary.

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2.5 3R and Intermediate Treatment

2.5.1 Present Condition of 3R and Intermediate Treatment of SWM

(1) Recovery Flow of Recyclable Material

Recyclable materials in municipal waste are recovered basically in accordance with the flow chart
shown in Figure 2.5.1. There are three major recovery flows identified in the course of the survey.
First, the recyclable wastes stored by the waste generators are recovered by the waste pickers going
around the town. Second, recyclable materials are recovered by the waste collection workers in the
course of waste collection work. Finally, the waste pickers in the Dandora Dumpsite pick up
recyclable materials. In addition to the aforementioned recovery processes, some of the large waste
generators of establishments sell wastepaper or plastics through auctions or contract, but the
recovered amount of recyclable materials through auction or contract are unknown. Recovery
amount will be described in the following sections.

Waste Generators

Collection of Recycrables by Waste Pickers and CBOs

Junk Shops in Town
in Town

Winner of auction or Contractor of Recyclable Waste discharged by

Brokers of Junk Dealers in Towns
Large Waste Generators or Workplaces in Town.

Waste Generators Recyclers (Manufacturer)

Waste Collection and Recovery of Recyclables by

Brokers of Junk Dealers in Dandora
Collection Workers

Collection of Recycrables by Waste Pickers in

Dandora

Dandora Waste Disposal Site

Figure 2.5.1 Recovery Flow of Recyclable Materials at Present

(2) Estimated Recovery Amount of Recyclable Materials

(a) Recovery Amount by Junkshops
The results of the junkshop survey conducted by the local consultant engaged by the JICA
Survey Team in January 2010 show that the recovery of recyclable materials by the ten (10)
junkshops surveyed reached 41.1 tons per month or 1.37 tons per day in 2009. The major

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recyclable materials handled were scrap iron by 9 junkshops and plastics by 7 junkshops.
Scrap iron recovered was 103 kg per junkshop followed by plastics at 37 kg per day per
junkshop. Aluminum is handled by 3 junkshops and 2 tons per month or 23 kg per day per
junkshop have been recovered. The total recovery amount increased from 19.2 tons per month
in 2007 to 37.7 tons per month in 2009 excluding the amount of car batteries. Car battery is not
recovered through the waste collection services. One of the major recyclable materials,
wastepaper, is not handled by the ten (10) junkshops surveyed. (See Section D of Volume 3,
Supporting Report, for the details) There are many junkshops in Nairobi and it is very
difficult to grasp their current recovery activities without any registration or licensing system.
Since most of the junkshops sell the recovered recyclable materials to dealers/middlemen
because they do not have a channel to sell them directly to the recyclers/factories, the recovery
amounts of recyclable materials by junkshops were obtained through the survey on
dealers/middlemen.

(b) Recovery Amount by Dealers of Recyclable Materials

The survey was carried out from April to May 2010 on the brokers of junk dealers in the town
area and the brokers handling recovered recyclable materials at the Dandora Dumpsite. The
survey was made in collaboration with the solid waste supervisors/inspectors of each Division
for the first survey and the manager and his staff at the Dandora Dumpsite for the second
survey. Table 2.5.1 shows the result of the survey on the brokers. The survey has not covered
all the dealers in Nairobi but it covered the large dealers and most of the recyclable materials
handled in Nairobi. Dealers in the town area recovered about 13 tons of recyclable materials
per day while the dealers in Dandora recovered 7 tons per day from the waste collection
workers and the waste pickers in the Dandora Dumpsite. The survey results show that the total
amount of recyclable materials handled by the 43 brokers is approximately 20 tons per day and
the actual amount of recyclable materials recovered is a little over the said amount.
Table 2.5.1 Recyclable Materials Recovered by Junk Dealers
19 Brokers Handling
24 Brokers Operating
Recyclable Materials Recyclables from
in Town (ton/day)
Dandora (ton/day)
Plastics 3.57 2.5
Paper 2.09 2.9
Glass 2.07 0.2
Scrap Metals 5.35 1.1
Others 0.11 0.3
Total 13.19 7.0

(c) Amount of Recyclable Materials used by Recyclers/Factories

According to the data from the Compliance & Enforcement Office, NEMA, there were
17 companies which obtained licenses for recyclers as of December 2009. Fifteen (14) out of
the 17 recyclers operate in Nairobi. One company, a glass factory, is not registered but uses
recovered glass for its production process. The total amount of recyclable materials reached
148 tons per day. These amounts of recyclable materials were collected from Nairobi and the
neighboring provinces. Among the recyclable materials for recycling, scrap metal ranks as the
first with 67 tons per day, followed by glass with 50 tons per day.

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Table 2.5.2 Amounts of Recyclable Material used by Recyclers/Factories

No. of Recyclers/ Amounts of Recyclable
Factories in Nairobi with No. of Recyclers/ Material used by the 9
Recyclable Materials
License from NEMA as Factories Collected Data Recyclers Surveyed
of December 2009 (ton/day)
Plastics 6 4 23
Paper 4 2 8
Glass 0 1 50
Scrap Metals 3 2 67
Others (Oil/Sludge) 1 0 -
Total 14 9 148

(3) Estimated Recovery Amounts of Biodegradable Waste

Some 30 to 50 groups including CBOs, companies and community groups are engaged in the
composting of biodegradable wastes from market waste and domestic waste. Table 2.5.3 shows
the compost production amounts ranging from 1.1 to 1.5 tons per day by 15 groups. Generally, the
weight of input raw materials becomes about 30% to 35% for final compost production through
reduction of water content and rejection of unsuitable materials. Accordingly, input raw materials
converted into compost by the 15 groups is estimated at 3.4 to 4.4 tons per day or 0.23 to 0.29 ton
per group per day. Assuming that the number of composting groups is 40, the total raw material
input is about 9 to 12 tons per day at present.

Table 2.5.3 Estimated Production Amount of Compost and Raw Material Input
Estimated Estimated Estimated
Source of Waste for Production Production Production
No. Group
Compost Production of Compost (kg/day: (kg/day:
(kg/month) minimum) maximum)

1 Afya Bora Group*1 Kawangware Market 600 20 20

City Park Hawkers’
2 City Park Environmental Group*1 2,500 83 83
Market
*1
3 Mathare Mbolea Households 1,000 33 33
*1
4 Huruma Cisa Households 1,000 33 33
5 Lunga Lunga*1 Households 500 17 17
6 Kayaba-Mwanganza*1 Households 600 20 20
7 Kibera Siranga*1 Households 300 10 10
8 Ushirika Womens’ Group*1 Households 200 7 7
9 Kuku Womens’ Group*1 Households 1,000 33 33
10 Nyayo Market Mbolea Group*1 Nyayo Market 600 20 20
*2 10- 15
11 Eco Holdings Ltd. Market & domestic 333 500
ton/month
60-120
12 Kenya Institute of Organic Farming*2 Farm waste & domestic 164 329
ton/year
Kayole Environmental Management
13 Market & domestic 84 ton/year 230 230
Association*2
Flower waste & coffee
14 PENTA Flowers Ltd.*2 24 ton/year 66 66
husks
Kibera Public Space Project: New Nairobi 20-24
15 Market & domestic 55 66
Dam Community Group*2 ton/year

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Estimated Estimated Estimated

Source of Waste for Production Production Production
No. Group
Compost Production of Compost (kg/day: (kg/day:
(kg/month) minimum) maximum)

Estimated total amount of compost

kg/day 1,125 1,467
produced
Conversion to Raw Material (Biodegradable
kg/day 3,375 4,401
Waste)
Raw material used per composting group
kg/day/group 225 293
per day
Estimated number of composting group in
group/company 40 40
Nairobi
Estimated amount of raw material used for
ton/day in Nairobi 9 12
composting in Nairobi
*1
Source: JICA, CTI Engineering Co., Ltd. and Environmental Technology Consultants Co., Ltd.: “The Study on Solid Waste
Management in Nairobi City in the Republic of Kenya, Final Report, Volume 4, Supporting Report,” August 1998,
Section G, p. G-50.
*2
Inventory and Analysis of Users, Producers and Markets for Compost, Biogas and Livestock Feeds, pp. 94-97.

(4) Number of Waste Pickers and CBOs in Waste Management Activities

(a) Number of Waste Pickers in Dandora Dumpsite
The waste pickers survey conducted by CCN through its staff at the Dandora Dumpsite
identified a total number of 611 persons (see Section F of Volume 4, Data Book) belonging to
five self-help groups, and some of the waste pickers work independently. The identified
number of waste pickers is about half of the total number of waste pickers. The total number of
waste pickers in Dandora is about 1,200 to 1,500 persons and a half of them pick up recyclable
materials frequently. However, the information on waste pickers is limited so that a detailed
interview survey and registration will be required.

(b) Number of CBOs for Waste Collection and Recovery of Recyclable Waste
The Community Development Section of the Social Services and Housing Department, CCN,
listed 64 self-help groups in Nairobi conducting social-related activities including waste
collection, environmental activities, cleanup, sports, etc. (See Section D of Volume 4, Data
Book). The Environmental Planning and Management Division, Department of Environment,
CCN, had listed 140 CBOs (See Section F of Volume 4, Data Book) conducting solid waste
management activities. Most of them do waste collection in the narrow streets and bring the
wastes to the collection points for CCN/contractors’ vehicles. They are also engaged in the
recovery of recyclables from discharged waste. Some of the CBOs in the two lists are
duplicated but approximately 200 CBOs are involved in waste management in Nairobi. The
effectiveness of the activities of these CBOs should be taken into consideration in the
systematic solid waste management in Nairobi.

(5) Number of Recyclers for the Composting Activity

The Compliance and Enforcement Office, NEMA, has an inventory of waste handlers licensed
under the Waste Management Regulations of 2006. As of April 2010, 26 companies were
registered as licensees (See Section D of Volume 3, Supporting Report). Among them only two
companies are registered in Nairobi and the rest are registered in the provincial areas. The
promotion of registration of more companies and/or groups in Nairobi may be required.

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(6) Potential Amount of Recyclable Materials and Biodegradable Waste

Table 2.5.4 shows the result of weighted average of domestic waste in the composition survey
conducted by the local consultant engaged by the JICA Survey Team. Domestic waste in Nairobi
consists of 91.2% organic waste, 8.4% of inorganic waste and 0.4% of domestic hazardous waste
and unclassified waste.
Table 2.5.4 Results of Waste Composition Survey
(Weighted Average of Domestic Waste)
Waste Composition Weighted Average (%)

1 Food Waste 62.37

2 Paper Recyclable Paper 4.15
3 Recyclable Cardboard 0.31
4 Mixed Paper 1.89
5 Diapers 7.61
Subtotal-Paper 13.96
6 Plastics Plastic Sheet 7.13
7 Recyclable Plastics 3.14
8 PET Bottles 0.46
9 Other Plastics 0.21
Subtotal-Plastics 10.93
10 Rubber and Leather 0.81
11 Textiles 1.58
12 Yard Waste 0.35
13 Lumber and Logs 0.73
14 Other Organic Waste 0.43
Total-Organic Waste 91.16
15 Glass Returnable Bottles 0.31
16 Other Live Bottles 0.97
17 Glass Bins 0.00
18 Broken Glass 0.22
Subtotal-Glass 1.50
19 Metals Scrap Iron, Tins & Cans 0.10
20 Aluminum Cans 0.04
21 Copper 0.00
22 Other Metals 0.60
Subtotal-Metal 0.74
23 Dirt, Ash, Stone, Sand 6.15
Total-Inorganic Waste 8.39
24 Unclassified Residual Waste 0.29
Domestic Hazardous Waste 0.00
25 Batteries - Dry Cells 0.04
26 Other Domestic Hazardous Waste 0.13
Grand Total 100.00

From the viewpoint of recovery of recyclables in waste, the major types of recyclable materials
were listed, as shown in Table 2.5.5, together with the data of the JICA SWM Master Plan 1998.
The commingled ratio of the major recyclable materials is almost the same as the result in 1998
except for glass and metals, which are currently recovered more actively. These comingled ratios

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shall be considered as the potentially available target ratio of resource recovery from the municipal
waste in Nairobi.

Table 2.5.5 Comparison of Percentages of Potential Recyclable Materials

in Domestic Waste
(Unit: %)
Waste Type JICA SWM Master Plan 2010* JICA SWM Master Plan 1998
Paper 14.0 10.5 – 19.1
Plastics 10.9 4.1 – 16.1
Glass 1.5 1.5 – 3.8
Metals 0.7 1.3 – 4.2
Food Waste 62.4 48.6 – 67.0
Note: *Percentage showing in this row is indicated as weighted average.

2.5.2 Evaluation of Current 3R and Intermediate Treatment of SWM

(1) Evaluation of Current 3R Activities

The term 3R as defined herein stands for Reduce, Reuse and Recycling. The current state of 3R in
Nairobi is to be evaluated in the following subsections.

(a) Circumstance of Waste Reduction

It seems that the term “waste reduction” is misinterpreted in Nairobi as “recovery, reuse,
recycling and reduction of waste amount for final disposal,” which can be interpreted as waste
diversion. Waste generation amount per capita is not so high in Nairobi and it may be a
challenging scheme to conduct the waste reduction plan. However, there are still some spaces
to reduce waste generation amount through avoiding excessive use or saving consumable
goods, repairing and reuse of commodities.

(b) Circumstance of Waste Recovery

Resource recovery from the municipal solid waste is practiced by the waste pickers going
around town and in the Dandora Dumpsite, the waste collection vehicle workers and the
junkshops, dealers/middlemen, and finally recycled by the recyclers/factories. The current
recovery ratio of recyclable materials is estimated at approximately 5% through the survey on
junkshops, dealers/middlemen and recyclers/factories. However, the sorting of recyclable
materials at waste generation sources, residential houses and workplaces is not taking place
with the social movement. The major items of resource recovery are paper, plastics, glass and
metals. In addition, other materials such as bones, shoes, onion net, etc., are recovered though
the recovery amount is little. The waste composition survey shows 27% as the ratio of
recyclable materials in municipal waste in the total amount of paper, plastics, glass and metals.
Considering the present ratio of resource recovery and the potential amount of recyclable
materials in the discharged waste, attaining the total recovery ratio of 15% will be possible
through sorting of recyclable materials at generation sources and the resource recovery
programmes involving all the stakeholders concerned.

(c) Circumstance of Reuse

Based on the results of the waste composition survey, the commingled ratio of reusable
commodities is almost zero. People in Nairobi, especially the low income group families, are
practicing reuse as a natural daily activity. Secondhand clothes and shoes are usually sold at
the hawkers’ markets. However, there still exist waste generation groups such as the high

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income group and workplaces targeted to promote reuse or use of items over and over again,
even the repaired ones, for the reduction of waste discharge amount.

(d) Circumstance of Recycling

The recycling of paper, plastics, glass and metals is being practiced in Nairobi. Some nine (9)
recyclers surveyed are using four major recyclable materials of 148 tons per day for their
manufacturing process. The plant capacity of these recyclers has some more room to use more
recyclable materials through manufacturing depending on the demand. The Ministry of
Industrialisation is promoting the plan to formulate a policy on waste utilisation in industry,
which is in line with the Kenya Vision 2030. The Draft Policy on Waste Utilisation in Industry
issued in February 2010 by the National Steering Committee describes mainly the introduction
and situation analysis, but no policy statement is included in the report. Resource recovery and
recycling plans shall be formulated as among the main programmes of 3R to save finite
resources, reducing the amount of waste collection and disposal thereby reducing the cost of
solid waste management. Accordingly, the resource recovery and recycling plan shall be
formulated in line with the policy on waste utilisation in industry.

(2) Evaluation of Current Intermediate Treatment Activities

(a) Circumstance of Composting Activities
As mentioned in the preceding section, there are 30 to 50 groups engaged in composting.
Many groups use biodegradable waste derived from market and domestic wastes and the raw
material input reaches about 10 tons per day. More amounts of compost by the composting
groups will reduce waste amount discharge and save on waste collection cost of CCN in the
long run. In view of the higher ratio of food waste mixed in municipal waste, on-site
composting by composting groups shall be promoted for the integrated solid waste
management in Nairobi. However, the activities of these composting groups are not always
grasped by CCN and the group companies/CBOs are not registered with NEMA for licensing
as recyclers. Identification and linkage of the composting groups will be the key to involve
them in the treatment of more biodegradable waste.
According to the Report “Horticulture Industry in Kenya 2005” by the Export Processing Zone
Authority (EPZA) of Kenya6, horticulture has grown in the last decade to become a major
foreign exchange earner, employer and contributor to food needs in the country. Horticulture
including the production of fruits, vegetables and cut flowers are the main aspects of
horticulture in Kenya. The horticulture industry is the fastest growing agriculture subsector in
Kenya recently ranked third in terms of foreign exchange earnings from exports or over
USD300 million a year.
The horticulture farming area in the vicinity of Nairobi reported in the JICA Master Plan in
1998 indicated a little over 100,000 hectares7. Potential demand of compost was estimated at 1
million tons per year or 2,700 tons per day. The JICA Survey Team estimated that the
maximum production amount of compost is 1.5 tons per day only from the identified 15
composting groups. In addition, no enterprise was identified to run a compost production
business. Organic fertiliser derived from chicken manure and cow manure is also used
together with chemical fertilisers by the farmers in Kenya. However, organic fertiliser cannot
be a substitute to compost for maintaining the healthy condition of soil. In conclusion, the
potential demand for compost is enormous in the vicinity of Nairobi and supply of compost
will contribute to the further growth of horticulture in Kenya.

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(b) Circumstance of Incineration of Hazardous Waste

Incineration facilities in Nairobi are listed up in Subsection 2.10.2. Five incinerators have
been identified doing combustion of hazardous waste from hospital waste, pharmacy
companies, and factories generating hazardous waste. The total incineration capacity of the
five companies is about 4.5 tons per hour and about 90-150 tons are treated per month.
Currently, hazardous waste treatment relies on the services provided by the private companies.
After the combustion of hazardous waste, residuals or ashes are disposed at the Dandora
Dumpsite. CCN is responsible for the treatment and disposal of hazardous waste generated by
the medical facilities and the factories. However, considering the present situation, the new
sanitary landfill site shall have a separate cell to accept residuals from the hazardous waste
incinerators and a special tipping fee shall be charged until the time the central hazardous
waste disposal facility is constructed by the agency concerned.

(3) Issues on the Implementation of 3R and Intermediate Treatment Plan

The issues under this item are the matters for CCN to conquer for taking initiatives to implement
the 3R and intermediate plan through obtaining support/cooperation of the stakeholders. The
relevant issues are as summarised below.

(a) Issues on the Initiation of 3R Activities by CCN

The issues under this item are related to the institutional setup of CCN and the raising of
awareness or cooperation of waste generators towards enhancement of the 3R activities.
• Clear policies, purpose and strategies of 3R by CCN and the government agencies
• Outlook on the future potential/activities of recycling by the government agencies
• Determination of target resources and target level of recovery and recycling
• Involvement of waste generators, junkshops, dealers and recyclers to increase recovery of
recyclable materials in waste
• Raising awareness of waste generators to reduce waste generation amount against the
tendency of consumption in daily life.
(b) Issues on Recovery of Recyclable Materials and Biodegradable Waste

• Activation of current inactive status of source segregation by the waste generators

including residents, commercial shops, institutional buildings, etc.
• Promotion of separate collection of segregated recyclable waste by CBOs, junkshops
and/or junk dealers, and/or the support of CCN to transportation on demand and minimum
charges.
• Promotion of segregation of food waste and garden waste for on-site composting.
(c) Issues on the Setup of Waste Bank/Buy-Back Centre for Waste Recovery
The current situation of recovery of recyclable materials by waste generators is not always
active due to the lack of recovery system attracting or giving benefits to the people. The waste
bank system which is considered as one of the solutions to activate the waste recovery
implicates the following issues to initiate the programme:
• Possibilities for CCN or CBOs/NGOs/NPOs or other organisations to be the owner and/or
operator of the waste banks or buy-back centres or a similar system where junkshop
activities are relatively low.

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• Support of CCN or the government agency(s) concerned to stabilise the buying/selling

price of recyclable materials.
(d) Issues on the Development of Intermediate Facilities
Development of intermediate facilities will bring about the stabilisation of disposed waste and
the reduction of health risks and/or environmental deterioration caused by solid waste.
However, the financial burden will become a bottleneck on construction, operation and
management. To establish the intermediate treatment system, the following issues shall be
resolved by CCN:
• Alternative methods of intermediate treatment including waste to energy concept and
composting.
• Technical and financial capability of CCN to implement the project for development of
intermediate treatment facilities.
• Possibilities of private sector, CBOs, NGOs or other organisations to be by-players and/or
the primary players in the development project of intermediate treatment facilities.
• Financing agency to offer loan for the project and the borrowing capacity of CCN.
(e) Issues on the Implementation of Composting
Composting of biodegradable waste is considered as the most practical way for intermediate
treatment in view of the characteristics of municipal waste in Nairobi. However,
implementing the project for composting requires the following actions:
• Formulation of practical implementation plan of CCN to promote home composting,
community level composting and central composting.
• Provision of sufficient information on home composting, community level composting,
and central composting activities by the residents, CBOs/NGOs/NPOs, CCN, etc.
• Promotion of home composting in residential houses.
• Involvement of CBOs, NGOs or other groups in the implementation of community
composting.
• Implementation of a pilot project for central composting.
• Possibilities of segregation of biodegradable wastes by tenants of city markets.
• Possibilities of full-scale central composting using market waste and biodegradable
wastes from the entire city.
• Preparation of database on cultivation area by type of crop, cropping pattern, vegetable
farm, orchard, coffee farm, tea farm, pastures, horticulture farms, city park, reserved
forests, national park in Nairobi and neighboring areas.
• Estimation of demand/consumption/supply of organic fertiliser, compost, chemical
fertiliser in Nairobi and neighboring areas.
• Benefits for using compost for farming.

2.6 Final Disposal

2.6.1 Present Condition of Final Disposal in SWM

The Dandora Dumpsite is the only official dumpsite currently operating in Nairobi and waste collected
in the city is dumped there. However, there are also approximately 70 illegal dumpsites scattered
throughout the city and wastes collected by private collectors are dumped at those sites. Also, in slum

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areas and low income residential districts, waste is dumped by the roadsides and in vacant spaces. The
Kayole temporary dumpsite serves as a temporary site for disposing waste picked up from Nairobi
River, etc. The Kayole temporary dumpsite is managed by NEMA and city waste from Nairobi is not
supposed to be dumped there. In reality, however, waste is dumped there by private collectors.
In this subsection, the current condition of the Dandora Dumpsite and the Kayole temporary dumpsite is
gauged with a view to identifying the problems and issues that confront final disposal in Nairobi. Details
regarding the condition of illegal dumpsites are given in the section on collection and transportation.

(1) Present Condition of Dandora

Dumpsite
(a) Outline of the Situation
The Dandora Dumpsite is located in
the northeast side at about 7.5 km away
from the central part of Nairobi. The
geographical feature before the use of
Dandora Dumpsite Area presents a
quarry (Area: Approximately 2 ha) in
the north-western part. The depth of
the quarry was about 20~30m. Other
ranges consist of grounds inclining
gently toward the Nairobi River.
The landfill at the Dandora Dumpsite
began in 1981, and is still currently
being used. The total area covered by
waste in Dandora is about 46 ha.
Approximately 2 ha of the quarry in
the western part of the total area is part Figure 2.6.1 Location of Dandora Dumpsite
of the City Council’s disposal site, while the rest of the land is private land. The overall area of
Dandora is as shown in Figure 2.6.1.

(b) Description of Current Condition

(i) Waste Amount
Since 2006 the amount of waste brought into Dandora has been weighed by the weighing
bridge, as shown in Figure 2.6.1. The total amount of waste brought in 2009 was about
220,000 tons/year. (For details, refer to Section A of Volume 3, Supporting Report)
From the analysis on the actual measurement of weight from 2006 to 2009, the total
amount of reclaimed waste was estimated with respect to the population transition from
1981 to 2009. Approximately 3,550,000 tons of waste were reclaimed from 1981 to 2009,
a total of 29 years. Estimated results are shown in Table 2.6.1.
The total area of the Dandora Dumpsite is 46 ha. Additionally, according to the
measurements undertaken during the present study, the average height of waste landfill is
around 3 m. Also, part of the Dandora Dumpsite was an old quarry and the average height
of landfill in that area is estimated to be around 20 to 30 m.
Making an estimation based on the characteristics of the Dandora Dumpsite (total area
and average height of the landfill) the total waste amount in the dumpsite is assumed
around 1,800,000 m3 (20,000m2 × 25m + 440,000m2 × 3m = 1,820,000m3).

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Table 2.6.1 Total Waste Amount at Dandora Dumpsite

Year Waste Amount (ton) Remarks
1981 to 2005 2,800,000 Estimated*
2006 145,000 Actual
2007 187,000 Actual
2008 193,000 Actual
2009 222,000 Actual
TOTAL 3,547,000
Note: * The waste amount at Dandora Dumpsite between 1981 and
2005 is estimated based on the population data of Nairobi
(Table 4.2.1) and measurement records of waste carried in
the Dumpsite after 2006 to 2009.

(ii) Waste Composition

Different types of waste have been transported to the Dandora Dumpsite. Almost half of
the waste generated in Nairobi City is food waste according to the WACS; hence, it is safe
to say that around half of the waste transported to the Dandora Dumpsite will be
composed of Food Waste. The other half of the waste will be composed of paper, plastics
etc., and a small amount of medical waste with some degree of Intermediate Treatment.
For details of waste composition, refer to Section A of Volume 3, Supporting Report
(Waste Generation and Composition Analysis).

(iii) Landfill Method

At the Dandora Dumpsite, after weighing by the weighing bridge which is located at the
entrance to the landfill, dumping is done at any possible location. After dumping, no
action to flatten the waste by bulldozer is carried out and no covering of soil is done.
Moreover, no gas exhaust equipment and leachate drain is installed in the landfill area.
From the above description, the landfill method at the Dandora Dumpsite is said to be the
open dumping system.
The present situations of landfill at the Dandora Dumpsite are as shown in Photo 2.6.1.

West Side East Side

Landfill Waste Pickers

Gas Emission

Photo 2.6.1
Situations at the
Dandora Dumpsite

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(iv) Management Organisation and Administrative Staff

The management of Dandora Dumpsite is done under the Solid Waste Management
Section of the Department of Environment (DoE). The list of management staff is given
in Table 2.6.2. As the table shows, there are 12 management staffs including the
Dumpsite Manager of the Dandora Dumpsite. According to the field survey findings, the
weighing of waste is carried out and the records are consolidated in the Dumpsite
Manager’s Office. Moreover, waste dumping positions are instructed at the entrance gate.
However, no evidence of waste compacting and so on could be confirmed.

Table 2.6.2 Staff Allocation of Dandora Dumpsite

Scales Position Work Description Number
8 Env. Officer I Dumpsite Manager 1
9 Env. Officer II Deputy Dumpsite Manager 1
13 Env. Assistant III Clerk (Computer Operation) 2
16 Artisan III Supervisior of machine operating at the site 4
- Washing weighbridge, cleaning of the office that control trucks 1
17 Ungraded Artisan
- Control of illegal dumping along access roads 2
18 Labourer II Messenger Dandora-Kaloleni-City Hall 1

(v) Machinery for Landfill Operation

The city council owns 4 units of bulldozer. However, since 2007, these have been
grounded and only 1 unit was repaired in 2010. The present landfill activity is being
managed by two subcontracted corporations. Operation is carried out using 2 bulldozers
and 1 excavator.

(vi) Annual Administrative and Maintenance Expenditures

For the maintenance and management of the Dandora Dumpsite, the expenses shown
below are necessary:
• Salary of administrative staff
• Heavy machine fuel and maintenance
• Machine hiring fee
• Weighing bridge maintenance fee
• Road maintenance fee
Annual maintenance expenses were incurred for the city’s machinery used in the landfill
operations up to the year 2006. Since landfill operations were subcontracted to private
enterprises starting in 2007, two sorts of annual maintenance expenses were prepared, as
shown in Tables 2.6.3 and 2.6.4. In the first case, two units of the city’s heavy machinery
were operational while in the other case, two heavy machinery of the private
subcontractor were operational.
On comparing the costs of heavy equipment between 2006, when CCN equipment was
used, and 2009, when equipment was leased from the private sector, the latter cases were
around three times more expensive at KSh 35 million. Furthermore, looking at monthly
payments to the private sector in 2009, the ability to pay is thought to be inadequate
because there were months when zero payments were made (See Section E of Volume 3,
Supporting Report for details on private sector consignment costs in 2009). Concerning
the reason for this, since the cost of maintaining heavy machinery accounts for roughly
one-tenth of the DoE SWM budget, it is impossible to pay any more. Accordingly, in

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order to properly operate heavy machinery without causing budget pressure, it will be
necessary to repair the four heavy machines owned by the CCN and to stop leasing
machinery from the private sector as quickly as possible.

Table 2.6.3 Annual Expenditures for Dandora Dumpsite Operation (2006)

No. Expenditure Amount (KSh)
1 Total Salary 3,100,000
2 Heavy Machine Fuel And Maintenance 8,600,000
3 Weighing Bridge Maintenance Fee 3,000,000
4 Road Maintenance Fee 10,000,000
5 Heavy Machine Repair Fee 1,600,000
Total Expenditures 26,300,000
Source: Department of Environment and City Council of Nairobi

Table 2.6.4 Annual Expenditures for Dandora Dumpsite Operation

(2009 Machine Hiring)
No. Expenditure Amount (KSh)
1 Total Salary 3,100,000
2 Machine Hiring Fee 35,000,000
3 Weighing Bridge Maintenance Fee 3,000,000
4 Road Maintenance Fee 10,000,000
Total Expenditures 51,100,000
Source: Department of Environment and City Council of Nairobi

(vii) Environmental Situation of Dumpsite and Surrounding Area

The landfill gases produced by waste decomposition cause an ill effect on the workers as
well as the residents nearby the dumpsite. The leachate water from the dumpsite is
estimated to be one of the causes of water pollution of the Nairobi River. With regard to
the environmental condition of the final disposal site and the surrounding area, reference
should be made to Section G of Volume 3, Supporting Report.

(viii) Current Situation of Waste Pickers

As shown in Photo 2.6.1, approximately 1,500 waste pickers active in Dandora Dumpsite
extract “valuables” from the waste. As for the current situation of waste pickers, reference
should be made to Section G of Volume 3, Supporting Report.

(2) Present Condition of Kayole Temporary Dumpsite

(a) Outline of the Situation
The Kayole temporary dumpsite is located in the east side at about 13 km from the central area
of Nairobi and south of the Dandora Dumpsite. On the southern reaches of the Ngong River
there are 9 quarries located along the river and one of these quarries is currently being used as
a dumpsite. The landfill at the dumpsite began in 2009. For this project it was planned to use
the 3 pre-established quarries located in that area as temporary dumpsites. However, during
the site inspection, it was noted that 2 of those quarries had accumulated a great amount of
water, rendering the area not suitable for waste disposal. There are some residential areas
located in the northern side of the Ngong River, and to the south of the Quarry Area the
Embakasi Garrison is located. Figure 2.6.2 and Photos 2.6.2 and 2.6.3 show the current
situation of the temporary dumpsite at Kayole.

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(b) Description of Current Condition

The quarry being used as landfill covers an area of 4 hectares. With a depth of 23m, the volume
of the pocket is estimated to be around 92 million cubic m3. The on-site investigation revealed
that the bedrock is exposed and there was no water filtration on the walls. The bedrock has a
low permeability, based on the site observation. The presence of water filtration through some
fissures in the bedrock was not confirmed because only a partial part of the water pond could
be inspected.
At the Kayole temporary dumpsite, after measurement by the temporary weighbridge, the
waste is carried and dumped into the bottom of the quarry. The total amount of waste carried
into the dumpsite in a day is approximately 400 tons, and waste is composed of river cleansing
waste and municipal solid waste. In the landfill area, no gas exhaust equipment and leachate
drain facilities have been installed. There are 10 to 20 waste pickers at the site and some people
do stonecutting work.
In addition, although the information gathered point to the existence of three quarries at the
temporary dumpsite, landfill operation is actually performed in only one place. The other two
quarries are in a state where water has accumulated at the bottom, and in one of them is being
used for dumping surplus soil from construction works.

Dumpsite under Operation

Dump Site Area：approx.4ha
(Surround Red Line)
Dump Site Depht:approx.23m

The Other 2 Quarry

Figure 2.6.2 Location of Kayole Temporary Dumpsite

Temporary Dumpsite at Quarry

Photo 2.6.2 The Kayole Temporary Dumpsite (1)

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The other 2 quarry sites

Photo 2.6.3 The Kayole Temporary Dumpsite (2)

2.6.2 Evaluation of Final Disposal Sites

(1) Evaluation of Dandora Dumpsite

The following problems were identified in the survey at the Dandora Dumpsite:
• Covering of soil to maintain the dumpsite in a sanitary condition was not made.
• Large amounts of landfill gas are generated in some parts of the dumpsite because no gas
exhaust equipment or leachate drain was installed.
In addition, the following maintenance issues were also identified:
• The contractors hired for landfilling work because of the breakdown of CCN’s heavy
rquipment were not paid adequately.
• Accordingly, sufficient landfill work was not made.
Therefore, measures such as soil covering, provision of heavy equipment for landfilling work and
protection from gas emission will be required, urgently.

(2) Evaluation of Kayole Temporary Dumpsite

No adverse impact on the surrounding environment such as the generation of landfill gas was
identified in the Kayole temporary dumpsite. However, its landfill is in the same situation as that of
the Dandora Dumpsite and it cannot be said that enough maintenance has been carried out.
Therefore, the same measures such as soil covering and installation of gas exhaust equipment will
be required as in Dandora. Also there is the possibility that there are fissures in the bottom of the
quarry, allowing the flow of contaminants that might affect underground water deposits.

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2.7 Public and Establishments’ Awareness on SWM

2.7.1 Present Condition of Public and Establishments’ Awareness on SWM

(1) Public and Establishments’ Awareness Survey

The Public and Establishments’ Awareness Survey was conducted by a local consultant, the
Environmental Cost Management (EMC) Centre Limited. The purpose of the survey was to obtain
the following features in relation to the awareness of the public and establishments on solid waste
management in Nairobi City:
• General and detailed information on solid waste management and cleansing practices and
services in Nairobi City
• Actual practices on solid waste management at the households and establishment level
• Behaviour of households and establishments toward solid waste management
• Affordability and willingness to pay for solid waste management services
• Current perception of the public and establishments toward solid waste
(a) Household Survey
To grasp the level of awareness among the households, a sample size of 250 respondents from
the five (5) income group areas of Nairobi City, namely; (i) High income group area;
(ii) Middle income group area; (iii) Low-Middle income group area; (iv) Low income group
area; and (v) Slum area, were used. The main results are shown in the table below.

Table 2.7.1 General Findings of the Public Awareness Survey

Low-middle
Questions High Income Middle Income Low Income Slum
Income
Existence of waste collection Yes: 88% Yes: 78% Yes: 62% Yes: 34% Yes: 24%
service No: 12% No: 12% No: 30% No: 54% No: 64%
Not known: Not known: 8% Not known: Not known:
10% 12% 12%
Methods of collecting
discharged waste
(a) Door-to-door :by vehicles (a) 67 % (a) 63 % (a) 13% (a) 0% (a) 0%
(b) Door-to-door by workers (b) 23 % (b) 29 % (b) 39 % (b) 11% (b) 0%
(c) Residents carry to (c) 8% (c) 6% (c) 48% (c) 78% (c) 100%
collection point
(d) Collection from building (d) 0% (d) 3% (d) 0% (d) 0% (d) 0%
dust chute
(e) I do not know (e) 3% (e) 0% (e) 0% (e) 11% (e) 0%
Point of waste discharge
from the house:
(a) Into containers to be (a) 54% (a) 76% (a) 52% (a) 52% (a) 6%
collected by workers
(b) Around the premises (b) 12% (b) 2% (b) 16% (b) 4% (b) 12%
without container
(c) Communal container (c) 4% (c) 4% (c) 8% (c) 4% (c) 22%
(d) Discharge point (d) 4% (d) 12% (d) 2% (d) 2% (d) 2%
(e) Compartment fixed in the (e) 20% (e) 0% (e) 10% (e) 30% (e) 54%
house
(f) Others (f) 6% (f) 6% (f) 12% (f) 8% (f) 4%
Person responsible for waste
discharge from the house:
(a) Housewife (a) 54% (a) 42% (a) 46% (a) 38% (a) 40%
(b) The master (b) 4% (b) 10% (b) 10% (b) 34% (b) 32%
(c) Children (c) 2% (c) 8% (c) 16% (c) 12% (c) 4%

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Low-middle
Questions High Income Middle Income Low Income Slum
Income
(d) Other house member (d) 0% (d) 4% (d) 0% (d) 0% (d) 0%
(e) Housekeeper (e) 36% (e) 30% (e) 24% (e) 10% (e) 8%
(f) Others (f) 4% (f) 6% (f) 4% (f) 6% (f) 16%
Satisfaction with the waste Yes: 80% Yes: 56% Yes: 35% Yes: 18% Yes: 8%
collection service No: % No: 18% No: 35% No: 24% No: 75%
Average: 11% Average: 26% Average: 29% Average: 59% Average: 17%
Not known: 2% Not known: 0% Not known: 0% Not known: 0% Not known: 0%
Reasons why not satisfied
with the collection service:
(a) Frequency of collection is (a) 0% (a) 0% (a) 9% (a) 20% (a) 22%
low
(b) Collection time is (b) 67% (b) 67% (b) 36% (b) 10% (b) 11%
irregular (c) 33% (c) 33% (c) 18% (c) 20% (c) 0%
(c) Collection time early or (d) 0% (d) 0% (d) 27% (d) 40% (d) 1%
late
(d) Behavior of worker is (e) 0% (e) 0% (e) 9% (e) 0% (e) 22%
very bad
(e) Collection work is very (f) 0% (f) 0% (f) 0% (f) 10% (f) 33%
crude
(f) Collection fee is very
expensive
Guidance received on proper Yes: 56% Yes: 36% Yes: 16% Yes: 10% Yes: 16%
waste discharge No: 44% No: 64% No: 84% No: 90% No: 84%
Willingness to participate in Yes: 82% Yes: 54% Yes:42% Yes: 48 % Yes:18%
cleaning campaign No: 14% No: 44% No: 54% No: 52% No: 80%
Not known: 4% Not known: 2% Not known: 4% Not known: 0% Not known 2%
Participation in public Yes: 34% Yes: 20% Yes: 36% Yes: 28% Yes: 38%
education programme on No: 66% No: 80% No: 64% No: 72% No: 62%
SWM
Awareness on whether Yes: 56% Yes: 36% Yes: 42% Yes: 52% Yes: 72%
insects breed in the solid No: 44% No: 64% No: 58% No: 48% No: 28%
waste
Awareness on recyclable Yes: 86% Yes: 90% Yes: 84% Yes: 78% Yes: 64%
materials No: 14% No: 10% No: 16% No: 22% No: 36%

The main findings of the household survey are as follows:

(i) Eighty-eight percent (88%) of the respondents from the high income area manifested that
they have collection services followed by 78% from the middle and 62% from the
low-middle income area. As for the respondents from the low income and slum areas, the
figures are 34% and 24% respectively.
(ii) Sixty-seven percent (67%) of the respondents from the high income and 63% from the
middle income area manifested that they receive door-to-door collection by vehicles. As
for the respondents from the low-middle income, low income and slum areas, 48%, 78%
and 100%, respectively, manifested that they carry these waste to the collection point by
themselves.
(iii) When questioned on the point of waste discharge from their houses, most respondents from
the high income area (54%), middle income area (76%), low-middle and low income
areas (52%) manifested that they deposit their waste into containers that are later collected
by workers. As for the respondents from the slum area, most of them answered that they put
their garbage into a compartment fixed in their houses.
(iv) The housewives are the main persons responsible for waste discharge from houses, with
54% from the high income, 42% from the middle income, 46% from the low-middle, 38%
from the low income and 40% from the slum area, respectively.

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(v) Eighty percent (80%) of the respondents from the high income and 56% from the middle
income areas are satisfied with the collection service. However, only 18% and 8% of
respondents from the low income and slum areas are satisfied with the service,
respectively. Most of the unsatisfied respondents from the low income area mentioned as
the main reasons of dissatisfaction are the bad behaviour of workers (44%), followed by
the low frequency of collection (20%). Thirty-three percent (33%) of the dissatisfied
respondents from the slum area indicated that the collection fee is expensive followed by
22% who said that the collection frequency is low.
(vi) Most of the respondents who receive guidance on proper discharge are from the high
income area (56%), however, this figure is as low as 16% from the slum area.
(vii) Eighty-two percent (82%) of the respondents from the high income, 54% from the middle
income area and 48% from the low income area are willing to participate in cleaning
campaigns but only 18% from the slum area want to participate.
(viii) A high number of the respondents in all areas had not participated in any public education
programme, where the highest figure occurs in the middle income with 80% of the
respondents and 72% in the low income.
(ix) The highest number of respondents who said that there are insects breeding in their
domestic waste areas come from the slum area with 72% and the lowest is from the middle
income area with 36%.

(b) Establishment Awareness Survey

A total of 67 samples were selected, from which 57 are commercial establishments and
institutions and 10 are hospitals. The results are summarised in the tables below.

Table 2.7.2 General Findings of the Commercial Establishment and

Institution Survey
Questions Answers
Point of waste discharge from the establishments:
(a) Into containers to be collected by worker (a) 26%
(b) Around the premises without container (b) 4%
(c) Communal container (c) 16%
(d) Discharge point (d) 21%
(e) Compartment fixed in the company (e) 23%
(f) Others (chute system, etc.) (f) 11%
Contract with entity for waste collection
(a) CCN (a) 49%
(b) Private company (b) 51%
Guidance received on proper waste discharge Yes: 14%; No: 86%
Degree of satisfaction with the waste collection Yes: 58%; No: 18%; Average: 25%
service Do not know: 0%
Reasons why not satisfied with the collection
service:
(a) Frequency of collection is low (a) 30%
(b) Collection time is irregular (b) 10%
(c) Collection time is very early or late (c) 10%
(d) Behavior of worker is very bad (d) 20%
(e) Collection work is very crude (e) 10%
(f) Collection fee is very expensive (f) 20%
Willingness to participate in cleaning campaign Yes: 22.8%; No: 73.7%; Do not know:
3.5%

The main findings of the commercial establishment and institution survey are as follows:

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(i) Majority of the respondents place their waste into containers that are later collected by
workers (26%) followed by those who deposit waste in the compartment fixed in the
company building (23%).
(ii) Fifty-one percent (51%) of the respondents have a contract for waste collection with a
private company while 49% is with CCN.
(iii) A high rate (86%) of the respondents had never received instruction on proper waste
discharge.
(iv) Fifty-eight percent (58%) of the respondents are satisfied with the collection service. Most
of the respondents indicated that the main reason of their dissatisfaction is related to the
low frequency of collection (30%).
(v) A high number of the respondents (74%) are not willing to participate in a cleaning
campaign.

Table 2.7.3 General Findings of the Hospital Survey

Questions Answers
Category of Facility
(a) Primary (a) 50%
(b) Secondary (b) 30%
(c) Health Centre (c) 20%
Ownership of Facility
(a) Government (a) 20%
(b) CCN (b) 10%
(c) Private company (c) 70%
Services contracted out on SWM
(a) Collection of general waste (a) 20%
(b) Collection of general & medical wastes (b) 70%
(c) not contracting any services (c) 10%
Existence of Hospital Waste Classification Yes: 100%, No: 0%
How pathological waste are treated
(a) Incineration & chemical treatment (a) 30%
(b) Incineration (b) 50%
(c) Burning in premises (c) 20%
Frequency of collection
(a) everyday; (b) every two days (a) 70%; (b) 30%
Existence of in-house education programme on Yes: 100%; No: 0%
SWM
Main diseases in facilities
(a) Malaria, waterborne diseases, heart diseases, (a) Primary & secondary (80% of respondents)
diabetes and cancer
(b) Malaria and waterborne diseases (b) Health Centres (20% of respondents)

The main findings of the hospital survey are as follows:

(i) Fifty percent (50%) of the surveyed facilities are categorised as primary facility; 30% as
secondary and 20% as health centre. Primary hospitals provide services of consultancy,
diagnostics, pharmacy and theatre; the secondary ones provide services of in-patient,
diagnostics, out-patient, and pharmacy; and the health centres provide only diagnostics and
pharmacy.
(ii) Seventy percent (70%) of the facilities surveyed are private companies.
(iii) Seventy percent (70%) of the respondents contract-out the collection of general and
medical wastes.
(iv) All hospitals surveyed classify their wastes.

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(v) Fifty percent (50%) of the hospitals treat their pathological waste through incineration.
Others combine incineration with chemical treatment (30%) and the remaining (20%) burn
waste in their premises.
(vi) Seventy percent (70%) of the hospitals receive daily collection services.
(vii) All hospitals surveyed have in-house education programmes on SWM. The programmes
are developed by them or they follow the guidelines of the Ministry of Public Health.
(viii) Eighty percent (80%) of the respondents (primary and secondary hospitals) manifested that
the main diseases they treat are malaria, waterborne diseases, heart diseases, diabetes and
cancer, while within the health centres that occupy 20% of the surveyed facilities, malaria
and waterborne diseases are the more widely treated disease.

(2) Waste Pickers Awareness Survey

The survey was carried out on ten (10) waste pickers to broadly analyse the current situation of their
work at the Dandora Dumpsite. The main findings are as summarised below:
• The CCN has no record on the number of waste pickers working at the site; however, some
CCN personnel estimated that the number is around 600 persons. These workers include men
and women who collect valuable things from incoming wastes such as paper, glass, metal,
plastics, etc. The recovered valuable things are sold at the site to brokers or directly to
recyclers who finally bring them to recycling plants.
• The number of brokers at the site is more than 5. Waste pickers sell valuables mainly on the
monthly basis. Waste pickers prefer the brokers or the recyclers because they have vehicles for
the transportation of recovered materials to recycling plants.
• Waste pickers work 7 days a week, 12 hours a day, mostly from 6 am to 6 pm.
• Half of those interviewed mentioned that they would like to continue waste picking at the site
and would protest if the site is closed.
• All of those interviewed are willing to have a job if a recycling plant is built.
• Monthly income of the respondents ranges between KSh 5,000 and KSh 10,000.
• The major problem facing the waste pickers is the marketing of recovered materials.

(3) Classification of Income Group

The Public Awareness Survey for households was conducted for the five income groups. This five
income groups were firstly divided into three income levels, high, middle and low, then added two
more income levels, low-middle and slum income groups, in consideration of the specific features
of the large number of lower income population in Nairobi City. The income range of each income
group was estimated based on the average monthly income of each income group of respondents.
Table 2.7.4 shows the results of computation to determine the monthly income range of each
income group. As shown in this Table, the monthly income of the five income groups is divided in
the range of less than KSh 8,000 in the slum area and more than KSh 84,000 in the high income
group area.
Based on the results of the survey on affordability to pay by income level (see Table H.2.2,
Estimation of Affordability to Pay, in Section H of Volume 3, Supporting Report), in order to
prepare the zoning plan for privatisation of waste collection, the five income group areas were
categorised into 3 classes of zones, Class A, Class B and Class C, based on the Poverty Rate Data
surveyed by the World Bank. The classification of income group areas by zone is as follows:
• High Income Group and Middle Income Group Areas: Class A
• Low-Middle Income Group Area: Class B

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• Low Income Group and Slum Areas: Class C

For reference, the monthly income range of each class quoted from the results of the Public
Awareness Survey shown in Table 2.7.4 are as indicated below.
• Class A : More than KSh 41,000 per month
• Class B : From KSh 23,001 to 41,000 per month
• Class C : Less than KSh 23,000 per month

Table 2.7.4 Monthly Income Range of Five Income Groups in Nairobi City
(Unit: KSh/month)
Income Groups
Item
High Middle Low-Middle Low Slum
Estimated Minimum Income 45,000 28,000 14,000 8,000 4,000
Average Income Level obtained from PAS 90,000 56,000 27,000 15,000 8,000
Estimated Maximum Income 135,000 84,000 41,000 23,000 12,000
Determined Income Range
Income less than - - - - 8,000
Income from - 41,001 23,001 8,001 -
Income to - 84,000 41,000 23,000 -
Income more than 84,000 - -- - -
Source: JICA Survey Team

(4) Affordability to Pay for SWM Services

For households, in case that waste charges are included not in the group of obligatory expenditure
but in the group of disposable income, the disposable income is used to estimate the affordability to
pay for waste charges, because the estimates of affordability to pay for waste charges seem to be
double-counted if the expenditure forwaste charges is included not in the disposable income but in
the obligatory expenditure. In this survey, the affordability to pay for waste charges is applied to the
disposable income with waste charges as shown in Table 2.7.4.
For business establishments, the highest amount of waste charges paid is more than KSh 51,000
which is assumed to be paid by establishments such as hotels, big markets and so on for the
discharge of large amounts of wastes. Around 60% of the establishments have paid from
KSh 18,000 to KSh 50,000.
Table 2.7.5 Affordability to Pay of Households
(Unit: KSh/month)
ATP
Income Group Without Waste Charges With Waste Charges
in Disposable Income in Disposable Income
High Income 994.5 1,017.4
Middle income 758.6 768.8
Low-Middle Income 326.7 328.6
Low Income 152.2 152.9
Slum Area 89.4 89.7
Source: JICA Survey Team

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(5) Willingness to Pay for SWM Services

The average willingness to pay of households is estimated by area classification. The average
willingness to pay of all households per month is KSh 72.8. The average willingness to pay by area
classification is totally reasonable because the willingness to pay is completely proportional to the
area classification. The willingness to pay in high income areas is KSh 193.0, which is more than
twenty-five times that of slum areas which is KSh 7.7.
For business establishments, only 1 out of 57 establishments responded that it is not willing to pay
more for the improvement of waste services. Sixty percent (60%) said they are willing to pay
between KSh 100 and KSh 500 per month.

(6) Current Situation of Public Awareness Raising and Environmental Education

The promotion and implementation of environmental education programmes are essential to raise
the public awareness of residents and get them involved in solid waste management. In this sense,
the JICA Survey Team carried out the field investigation through analysing relevant documents and
direct interviews with the officials of organisations related to SWM to assess the current situation
on this sector. The results are as described below.

(a) Environmental Education

(i) Formal Education
In this survey, analysed was the present situation of environmental education in the
primary education only recognising that it is the starting point where the students may
learn and develop awareness of the environment. The Kenya Institute of Education is
responsible for the development of the curricula to be used by the students of primary
schools. At present, the curricula focuses on the general environment under the subject of
Geography and no specific theme is developed in the sector of SWM. Besides, the
teachers do not have instruction materials such as textbooks, videos, etc., to help the
students understand and be aware of the issues involving SWM. As of 2008, 1,409
primary schools were operating in Nairobi City. The Ministry of Education had
established non-formal education institutions for children of school age that could not
attend formal education.

(ii) Informal Education

Some activities were promoted especially by CCN, NEMA and NGOs through organising
clean-up campaigns.

(b) Organisations dealing with Public Awareness and Environmental Education on

SWM in Nairobi City
(i) Department of Environment of CCN (DoE)
This Department has no specific unit that deals with public awareness and environmental
education on SWM. However, some activities of awareness creation had been conducted
by the Section of Environmental Planning and Management aiming to sensitise the people
through the provision of information materials on SW issues. DoE had been involved with
other institutions such as the Ministry of Environment and Mineral Resources and NEMA
in many activities to create public awareness through environmental education
programmes or cleaning campaigns.

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(ii) NEMA (National Environment Management Authority)

This institution through its Department of Environmental Education, Information and
Public Participation develops and implements programmes intended to enhance
environmental education and public awareness of the people on environmental issues.
Among the activities conducted by this Department is the development of environmental
education and awareness materials to sensitise various stakeholders including learning
institutions, policy makers, media, civil society organisations and the general public.

(iii) NGOs
The role of NGOs is very important in the creation of awareness through the
implementation of environmental education programmes and small projects targeted to
improve the social and environmental condition of the communities. The NGOs
frequently work with one another and with CBOs.

(iv) Community-Based Organisations (CBOs)

The CBOs provide waste collection service to the communities that they represent. The
CBOs assist their members through the implementation of capacity building activities to
get them ready to provide the services. They work closely with the NGOs and CCN
during both the initial establishment and the implementation phases of self-help
initiatives. They are well aware of the issues of concern of the communities they
represent and the approaches to mobilising community resources. In Section F of
Volume 4, Data Book can be found the list of registered CBOs dealing with SWM in
Nairobi City.

2.7.2 Evaluation of Current Public and Establishment Awareness for SWM

(1) Public Awareness for SWM

From the survey on households, the evaluations and conclusions on the main findings are as
follows:

(a) The high and middle income areas are well serviced with waste collection. However, the
lowest rate of collection is given in the slum areas where solid wastes are disposed by the
residents along roads, river banks, open spaces, etc.
(b) Most of the households of high and middle income areas receive collection services by
door-to-door vehicles. As for the low income and slum areas, most of the respondents
manifested that they carry their solid waste to the collection point.
(c) A significant percentage of respondents discharge their waste in premises without
containers.
(d) According to the survey, most of the respondents are housewives. This is expected because
most of the interviews were conducted during daytime when most men as the main income
earners are in their respective workplaces. In cases where both the wife and husband are
working, the households are in most cases left under the care of a female housekeeper. In
most surveyed households, it is the housewife or the house helper (maid) who disposes
waste from the house.
(e) The highest level of satisfaction with the collection service was given from the high income
area. However, it is very low in the low income and slum areas. Among the main reasons of
respondents’ dissatisfaction with the service are (a) the collection frequency is low; and

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(b) the collection time is very irregular or it is very early or late. Dissatisfied respondents
from the slum areas (33%) indicated that the collection fee is expensive.
(f) More than 70% of all respondents have not received any guidance or instruction on
methods of proper waste discharge.
(g) The willingness of respondents to participate in cleaning campaigns was found to be
highest in the high income areas and the lowest in the slum areas. This can be attributable
to the low level of awareness of the people on SWM issues.
(h) Almost 70% of the respondents have not participated in any public education programme
on SWM.
(i) More than half of the respondents said that there are insects breeding in their domestic
waste areas. The highest number of respondents was from the slum areas.
(j) From the survey result, it can be concluded that there is a necessity of implementation of
educational programmes for citizens in order to raise or create awareness on proper waste
management in Nairobi City.

(2) Establishment, Institution and Hospital Awareness on SWM

From the survey, the main findings are as follows:

(a) Commercial Establishment and Institutions

(i) Most of the respondents indicated that they place their waste in a container to be collected
later by workers or in the compartment fixed at the company premises, or bring them to the
communal container.
(ii) All of the establishments surveyed confirmed that they have a contract with either CCN or
a private collector.
(iii) Eight percent (8%) out of 14% have received specific guidance on proper waste
segregation, storage and discharge. However, a high rate (86%) had never received
instruction on proper waste discharge.
(iv) The level of satisfaction with the current collection service was found to be 57.8% of the
establishments sampled. However, respondents that are not satisfied indicated that the
main reasons are: (a) the low frequency of collection; and (b) the very bad behaviour of
workers.
(v) Most of the respondents are not willing to participate in cleaning campaigns.
(vi) From the survey, it can be concluded that all of the establishments sampled are covered
with collection services and more than half of them are satisfied with the service. However,
a high rate had never received guidance on SWM, resulting in a low awareness on proper
waste management.
(b) Hospitals
(i) Nine of the ten hospitals interviewed contract-out SWM services for the collection of
general and medical waste.
(ii) All hospitals have a waste classification set by the hospital management or by using the
waste classification given by the Ministry of Public Health.
(iii) All hospitals give special treatment to their pathological waste including sterilisation of
potential infectious waste before discharging them to designated areas.

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(iv) Seven (7) hospitals have contracts with service providers to transport medical waste off
their premises.
(v) All hospitals stated that they have in-house education programmes on SWM.
(vi) As for health centres, it was found that malaria and waterborne diseases are the more
widely treated diseases.

(3) Waste Pickers Awareness on SWM

From the survey on waste pickers, the following evaluation and conclusions are made:

(a) No official registry on the number of waste pickers at the Dandora Dumpsite exists
although the number of waste pickers at the Dumpsite is estimated from 1,200 to 1,500. On
the other hand, some CCN officials estimated that about 600 waste pickers work at the site,
collecting valuable things from incoming wastes such as paper, glass, metal, plastics, etc.
(b) Half of those interviewed mentioned that they would like to continue waste picking at the
site and would protest if the site is closed.
(c) All of those interviewed are willing to have a job if a recovery plant is built.
(d) It is necessary to conduct a survey on waste pickers in order to know their current number,
housing, working habit, etc. in order to prepare a realistic and applicable plan for them.

(4) Affordability to Pay for SWM Services

For households, the contents of household income by category are very useful data to estimate the
affordability to pay. The disposable income is closely related to the income level. This result
suggests that the waste charge level should take account of the income level, especially, for lower
income level areas including slum areas.
For business establishments, the affordability to pay is considered to be more than that of
households because the income level of business establishments is more than that of households.
However, there are small-scale business establishments such as kiosks, so that the waste charge
level for business establishments should also take account of the income level.

(5) Willingness to Pay for SWM Service

It has become clear that the willingness to pay (WTP) is also closely related to the income level.
The WTP is not only a kind of criteria for the level of waste charge but also provides the amount of
benefit to be generated from the SWM service. It is already pointed out that the benefits from SWM
projects have some difficulty to be quantified because SWM services do not completely belong to
the market economy and the price of the service as waste charges is not always decided by the
market in which the price is decided by the relationship between demand and supply for the SWM
service. In this context, the WTP is a very useful indicator to quantify the benefits of the SWM
service for the economic evaluation of the Master Plan.

(6) Public Awareness Raising and Environmental Education

From the survey on households, the following evaluation is made:

(a) The current curricula of primary education focus on the general environment and no
specific theme is developed in the sector of SWM.
(b) The teachers assigned to primary schools do not have instructive materials such as
textbooks, videos, etc., to help them understand and be aware of the issues involving SWM

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and teach these properly to their students. The development of these educational materials
is considered of great importance to create proper awareness inside the educational
community starting with primary education.
(c) The DoE of CCN does not have at present a unit to implement a regular programme
oriented to educate the people on solid waste aspects. The establishment of a section inside
the DoE is considered indispensable to deal with Public Awareness, Environmental
Education and Community Participation and to obtain more involvement of the
communities in the SWM.
(d) The DoE of CCN is conducting an awareness campaign addressed to CBOs that operate
along the Nairobi river banks in the frame of the Rehabilitation and Restoration
Programme for Nairobi Rivers. Through this campaign, the CBOs are requested to bring
the wastes to a designated point from where the CCN could transport them to the disposal
site. This good experience could be replicated in other areas of Nairobi.
(e) NEMA conjointly with the DoE has developed good initiatives for raising awareness of the
general public. The implementation of these types of initiative should be sustainable to
keep the level of environmental awareness of the people.
(f) The NGOs are well recognised for their assistance to the communities in the
implementation of small projects aside from giving training on environmental education
for awareness creation. NGOs frequently work with one another and with CBOs. The
joint-venture initiative between an NGO and a private organisation to produce plastic poles
from recycled plastic employing for the process of collection of recovered plastics
thousands of youths is a good example on how these organisations are working in favour of
the environment and at the same time creating job opportunities for many people.
(g) CBOs are playing an important role in providing collection services and the recycling of
garbage especially in the low and slum areas. These organisations should be assisted by
CCN to develop practical strategies for the improvement of their activities.

2.8 Environmental and Social Considerations

2.8.1 Present Environmental and Social Conditions

Analysed in the following subsections are the current situations of environment and the social aspects
related to solid waste management in Nairobi City. The current condition of four components of the
environment, namely; water, sewage, air quality and solid waste that are considered relevant to SWM,
were studied utilising available information in the institutions of the sector and through field
observations.

(1) Water
(a) Surface Water
The City of Nairobi is traversed by three main rivers that compose the Nairobi River Basin,
namely; Nairobi River, Ngong River and Mathare River. These rivers join east of Nairobi to
discharge finally into the Athi River.
These rivers are highly polluted by domestic and industrial wastewater and solid waste. In
2008, it was detected that about 56 % of the city residents live in 46 slums8 along the banks of
rivers in Nairobi without having proper sanitary facilities, occasioning great pollution to these
rivers. Slums are informal settlements, with Kibera, Mathare and Kawangware as the biggest
ones. The estimated density in the slums of 300,000 people per square kilometre and the lack

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of proper sanitation facilities put the slums in an uncompromising situation as the major
sources of water pollution9.
In this JICA survey, the water quality of Nairobi River in four (4) points of its course was
analysed. The highest concentration of BOD was found to be 150 mg/l in spite of the fact that
the samplings were made after a rainy day. Therefore, higher levels of pollution could be
expected when the survey is conducted in the dry season.

(b) Groundwater
Groundwater in Nairobi is used mainly by industries and hotels to supplement the water
supplied by the Nairobi Water and Sewerage Company (NWSC). Besides, some parts of the
city such as Langata and Karen also use the water from wells. Groundwater quality is generally
satisfactory for all domestic purposes from the chemical point of view, except the fluoride
content which exceeds the Kenyan Standard of 1.5 mg/litre for drinking water.
In the period 1997-2002, a total of 290 wells were drilled within Nairobi City, with
concentrations of fluoride increasing with depth. Thirty percent (30%) of the drilled wells
presented fluoride of about 2 ppm10.

(c) Water Supply

The provision of water services to Nairobi City has been privatised to the Nairobi Water and
Sewerage Company (NWSC). This company is fully owned by the City Council of Nairobi
and is licensed to operate by the Athi Water Services Board (AWSB). The privatisation was
made to improve the quality of the service.
The current coverage of water services is over 80% and the consumption per capita in the
informal settlements is 40 ltrs/day while it is 300 ltrs/day for the more affluent consumers. The
company adopts the WHO standard for drinking water11. Only 42% t of the households in
Nairobi City have proper water connection and water losses exceed 50% due to leakage and
illegal connections12. The residents of slums suffer most due to the lack of piped-water supply
in these areas. According to the Study on Ngong River, 85% of the households in the Kibera
slum get water from kiosks located at approximately 40 meters on average at an average price
of KSh 2 per 20 litres13. The water source for water supply is, mainly, the surface water.

(d) Waterborne Diseases

At the national level, in 1999, 4.7% of all outpatients reported cases of diarrheal diseases
which were more prevalent in Nairobi, Rift Valley, Nyanza and the western provinces14. The
diarrheal diseases may be attributable to poor or inadequate sanitary facilities and hygienic
practices. In Nairobi City, the population living in informal settlements is the most vulnerable
group to waterborne diseases due to the inadequate sanitary condition of these places.
The Study on Ngong River revealed through interview with some residents of informal
settlements the high prevalence of environmental-related diseases such as malaria, diarrhea,
eye diseases and typhoid. According to this Study, in 2000, between 85% and 95% of all
patients that visited the Langata Clinic (mainly serving Kibera residents) suffered from
environmentally related diseases like malaria, diarrhea, intestinal worms, diseases of the
respiratory system, diseases of the skin and eye infections15.
Water pollution due to municipal, industrial, mining and agricultural sources continues
deteriorating the water supply, causing waterborne diseases16.

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(e) Water Pollution Control

The rivers in Nairobi City are polluted mainly by domestic wastewater, industrial wastewater
and solid waste. The Department of Water Resource Management of the Ministry of Water
and Irrigation is in charge of the protection, conservation and management of water resources,
control and apportionment, as well as water quality and pollution control; whereas, the
National Environment Management Authority (NEMA) is in charge of implementing
programmes for controlling pollution of the environment. NEMA is the institution in charge of
EIA studies. On the other hand, the Nairobi Water and Sewerage Company Limited also have
the responsibility of monitoring industrial effluents before discharge into the sewers.
Standards for drinking water and for effluent discharge into the environment and public sewers
are presented in Section G of Volume 3, Supporting Report.

(2) Sewage
The sewerage system of Nairobi City is of combined type where sewers receive both storm water
and sewage. The sewerage service is provided by the Nairobi Water and Sewerage Company
Limited.
Sewer sizes range between 225mm in diameter to 2m in diameter with manholes provided at
intervals for inspection purposes. The sewerage network in the city is not sufficient, resulting in the
illegal discharge of sewage into the rivers17.
According to the officials of Nairobi Water and Sewerage Company Limited, many people block or
puncture the sewers to get sewage for urban agriculture18. The current coverage of sewerage in
Nairobi City is approximately 40%.

(3) Air Quality

The previous study carried out for Nairobi City shows that the level of particulates in most parts of
the city is above the level recommended by WHO (mean value: 90 µg/m3). Most of the affected
parts of the city with the highest concentration of particulates are the residential areas located in the
eastern zone and the city centre19.
During the present JICA survey, it was observed that burning of waste is very common at the
collection points and disposal sites. According to CBOs or waste pickers, they burn the waste at the
collection points to reduce the amount of waste at the site, because the collection service is very
irregular. At the disposal site, the burning of waste could happen intentionally by waste pickers, or
naturally due to the decomposition of waste and not the existence of gas treatment system.
On the other hand, it was noted during the survey that many mal-maintained vehicles in the daily
traffic pollute the air of Nairobi City. In addition, NEMA also reported that industries are also
responsible for air pollution20.

(4) Solid Waste

The JICA Survey Team carried out a field observation conjointly with the Kenyan counterparts on
the following sites: (a) Dandora designated disposal site and Kayole Orbit temporary disposal site;
(b) major illegal disposal sites (large and medium/small scales); (c) some collection points operated
by CBOs/CCN; and (d) some collection points operated by CCN.

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(a) Overview of Major Findings during the Field Observation

(i) Disposal Sites

Designated and Temporary Disposal Sites

Currently, the Dandora Dumpsite is the only designated disposal site in Nairobi City.
CCN waited for the resultd of the present JICA Survey before taking a decision on the
closure of Dandora open dumping site and the construction of a new landfill in the Ruai
site. However, until the construction is implemented, a temporary disposal site is needed,
and this could be at Dandora or the Kayole Orbit Quarry.

Illegal Disposal Sites

It was estimated roughly that in Nairobi City there are three (3) sizes of illegal disposal
sites, namely; the large-scale (used mainly by private contractors); and the medium and
small scale ones located along the roads or river banks where residents mainly dispose
their solid wastes.
Identified in the present survey were four (4) large-scale illegal disposal sites:
(a) Gathundeki; (b) Zimerman; (c) Eastleigh Air Force; and (d) Mathare North.
As for the medium/small scale illegal disposal sites, they consist of several sites located
along the roads and river banks where people discharge their wastes contributing to the
degradation of the environment. These sites can be seen in the low income and slum areas.

(ii) Designated Collection Points

There are many collection points designated by CCN where the residents are allowed to
bring their waste by themselves. On the other hand, the CBOs provide garbage collection
services to households especially those located in the low income and slum areas. The
CBOs also are allowed to bring their collected waste to the designated collection points
where they usually separate valuables, and the remaining waste is left for CCN to collect
and transport to the Dandora Dumpsite.

2.8.2 Evaluation of Current Environmental and Social Conditions

(1) General Condition

(a) Water
It is concluded that the quality of rivers in Nairobi is being deteriorated by pollutants from the
domestic sector (sewage and solid waste), agricultural sector (agrochemicals) and industrial
sector (wastewater). Using sewage for irrigation of agriculture is the most serious and
unhealthy practice that needs attention because it might involve hazard to human health. This
practice was observed in the vicinity of Kariobangi South where the sewage running through
open channels is diverted by individuals to irrigate maize and other crops.

(b) Sewage
The main problem affecting public health is the lack of proper sewage disposal, because the
area of Nairobi is partially served by sewer lines leading to increased river pollution due to the
domestic water channeled nearby. It was noted that sewage in the slum areas is diverted to
open channels, finally reaching the watercourses and deteriorating river water quality.

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(c) Air Quality

Main sources of air pollution that affect the City of Nairobi are the vehicles, industries,
emissions from the use of charcoal or firewood, open burning of waste, and the unsanitary
waste disposal sites.
Previous studies indicate that the level of particulates in the air of Nairobi City exceeds the
WHO standard of 90 µg/m3. The areas most affected by this pollutant are the eastern
residential areas and the city centre.

(2) Environmental Problems due to Solid Waste

(a) Water Pollution
It was observed by the JICA Survey Team that wastes are not collected regularly at many
collection points. Delays in waste collection for a long time generate the smell of a black liquid
called leachate which is considered as a high polluter when it reaches watercourses due to its
high concentration in BOD, COD and chemicals. It was noted that the leachates generated in
these collection points and in the illegal disposal sites pollute the rivers of Nairobi.
It was observed also that solid wastes are dumped intentionally along the roads or river banks
by the residents. This fact brings as a consequence the transfer of uncollected wastes to rivers,
drains, streams and lowland areas when Nairobi experiences intensive rains. It was observed
also that the rivers are polluted by the existing disposal sites.

(b) Air Pollution

From the results of the survey, it is concluded that the air quality of Nairobi City is also being
deteriorated from the current practice of burning waste. Besides, the existing unsanitary
disposal sites (legal or illegal) cause the emission of offensive gases hazardous to the health of
people living in the vicinity.
Actually the sources of air pollution in Nairobi City are vehicular emission, factory emission
and the haphazard generalised burning of wastes.

(c) Landscape
In the City of Nairobi could be observed the proliferation of illegal disposal sites along the
roads, beside the rivers and in open spaces. This fact brings about the degradation of city
environment, presenting an unhealthy landscape to residents and visitors alike.

(d) Soil Contamination

The designated disposal site at Dandora had received in the past not only domestic waste but
also dangerous waste due to the lack of control on the public sector. By 1998, the JICA Study
Team already had detected the presence of some elements that lead to soil contamination,
especially heavy metals. Since up to the present there are no remedial actions to restore the
place, it is assumed that the soil is still contaminated with some heavy metals.

(3) Social Problems due to Solid Waste

(a) Situation of Waste Pickers
Waste pickers interviewed by the JICA Survey Team pointed out that their daily income
depends on what they obtain from waste, because they have no other option or opportunity to
earn money for subsistence.

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Generally, waste pickers work at the disposal sites without using any kind of equipment and
materials to protect them from the unsanitary condition of the site. In addition, these people
live next to the disposal site, so that they are vulnerable to diseases due to the unhealthy
environmental conditions.

(b) Public Health

Many of the observed solid waste collection points in the city became open temporary disposal
sites, because CCN could not provide regular collection services. Besides, Nairobi City does
not have a sanitary disposal site for solid waste.
Noted during the survey in most of the solid waste collection points and disposal sites is the
presence of offensive odour, smoke and disease vectors such as cockroaches, rats, flies and
mosquitoes that have negative impacts on public health. In the MP Study in 1998, the people
interviewed mentioned cases of respiratory and stomach problems among children and adults
due to the smoke and smell coming from the Dandora Dumpsite. At present, the Dandora
Dumpsite still presents the same unsanitary condition and it is assumed that the health of
operators, waste pickers and people living in the vicinity are still affected by the wastes
dumped at the site. According to the officials of CCN, residents living in and around the
dumpsite would like to receive relief from air pollution due to the burning of wastes.

2.8.3 Initial Environmental Examination (IEE)

(1) Ruai Candidate Site for Final Landfill

(a) Natural Environmental Condition
(i) General Information
The site is located in Embakasi Division at about 30 km east of Nairobi City on flat land
adjacent to the Nairobi River. The place available for disposal site is grassland of about
80 hectares owned by CCN and currently used for the pasture of livestock. There are no
trees in the site except the riverine vegetation (forests) on the left bank of the Nairobi
River. At the entrance to the site, there is the Dandora Estate Sewage Treatment Works
operated by the Nairobi Water and Sewerage Company. The presence of many varieties
of birds which feed on the insects and fishes from the ponds of the sewage works has been
observed.

(ii) Water
The only existing river in the area is the Nairobi River which is located adjacent to the
site. During this JICA Survey, water sampling was conducted after a rainy day on the
Nairobi River upstream of the candidate site and noted the presence of solid waste in both
river banks brought by the river during the rain. The results indicate that the river is
loaded with organic substances from sewage and solid waste. According to some people
living in the surrounding areas, the water of Nairobi River is used for animal consumption
and even for domestic use.

(iii) Flora and Fauna

The site is open grassland with some shrubs especially in the riverine zone. The grassland
is used for the pasture of animals like cattle, goats and sheep. Livestock was the main
animal activity observed. A few birds were observed especially in the riverine
community. According to the local people, crocodiles and hippopotamus can be found in
the Nairobi River at the site.

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(iv) Landscape
The place is located on a huge flat land adjacent to the right bank of Nairobi River. The
cover soil of the site comprises surface black cotton soil developed over the poorly
drained flat surface of the land.

(v) Air and Noise

During the survey at the site, no air pollution or generation of noise was noted.

(b) Socio-Environmental Condition

(i) Socio-economy
There is no population living near the site although it is important to mention that the Ruai
area corresponds mainly to the low income area of subsistence cultivators, pasture
keepers and small-scale traders. Far away from the site were observed some houses where
displaced people lived after the Kenya election in 2007 and the Maasai population mostly
living in temporary houses and dedicated to goat and cattle breeding. Most of the
problems they mentioned is the lack of water as well as educational and health facilities
near their places of abode.

(ii) Sanitation
No water supply facility exists at the site; and the people who live nearest to the site buy
water at 1 KSh/litre for their consumption. Pit latrine is used for excreta disposal and
garbage is disposed by burying or burning.

(iii) Health Condition

Malaria is the most common disease in the area.

(c) Conclusion
The site could be used for developing the new sanitary landfill site with the necessary
mitigation measures. The site is one of the most suitable due to the limited settlements in the
vicinity and the large extent of the area. In addition, there is no significant socioeconomic
activity at the site

(2) Juja Candidate Site for Final Landfill

(a) Natural Environmental Condition
(i) General Information
The site is located within the jurisdiction of Thika County Council, in the north-eastern
side of Nairobi City, at 39 km from the Nairobi Central Business District. The site is
composed of many quarries, some of them still active, located at the right side of Ndarugu
River. The area available for the landfill site is about 40 hectares. Next to the site is found
the railway that could be used for solid waste transportation from Nairobi City. The vast
land belongs to one owner who is willing to participate as a partner in the project.

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(ii) Water
The site is located at the right bank of Ndarugu River which is the water source for water
supply to Juja town, for irrigation of coffee plantations and for the coffee industry located
near the site. The water intake for water supply is located upstream of the candidate site.

(iii) Flora and Fauna

Only a few shrubs were noted especially in the riverside area. A few cattle grazing around
the site were observed. A vast plantation of coffee located between the quarries and the
railway track was also observed.

(iv) Landscape
The site is a vast, disturbed land composed by quarries of different depths ranging from
5m to 30m, some of them abandoned and some still active.

(v) Air and Noise

Noise and dust are produced from the operation of the active quarries.

(b) Socio-Environmental Condition

(i) Socio-economy
About 100 people work at the active quarries which provide much of machine-cut stones
for Nairobi’s building industry. Plantations of coffee and horticulture in minor scale exist
around the quarries. A flower plant garden could be observed also in the vicinity.

(ii) Sanitation
At the upstream of the site, the river water is treated and pumped to Juja Town located at
about 5 km from the site. The Ruiru-Juja Water and Sewerage Company Ltd. is in-charge
of the water supply service, but it does not provide sewerage services so that septic tanks
are used commonly for sewage disposal. The company also operates two bore holes of
150 feet in depth, but the production of water is very low and the fluoride content is high.
In Juja area some houses own wells 20-30 m in depth to supplement the water supply
from the treatment plant; however, these shallow wells already present signs of pollution
especially by sewage according to the local consultants. Around the site were observed
very few houses occupied mainly by workers at the quarries. Opposite to the site was
observed the Thika Road Girls High School with 93 students. As for garbage, people
dispose them by burying or burning.

(iii) Health Condition

The main diseases in the area are malaria, diarrheal diseases, typhoid, and intestinal
worms/amoebiasis, some of them attributable to the consumption of polluted water.

(c) Conclusion
The site could be used for waste disposal taking into account mitigation measures. The
proximity of the site to Nairobi City and Thika County Council means that the site could be
used by both urban centres with a view to sharing the costs.

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(3) Mavoko Candidate Site for Final Landfill

(a) Natural Environmental Condition
(i) General Information
The site is located within the jurisdiction of the Municipality of Mavoko, in the
south-eastern direction from the city centre toward Mombasa. The total area of about
4000 ha which include the proposed site, belong to the East African Portland Cement Co.,
Ltd. which is a parastatal organisation (major shareholder is the Government of Kenya).
The proposed site is a vast, open grassland area and near to it could be observed the
railway, which could be used for the transportation of solid waste from Nairobi City.

(ii) Water
Two seasonal water courses exist at the site, the River Stonyathi and its tributary which
join downstream.

(iii) Fauna and Flora

The site is typical savannah vegetation mainly inhabited by wild animals. Currently the
plains have huge savannah grass due to the rains. At the site could be observed wild
animals such as giraffe, ostrich, zebra, and antelope, living in the natural habitation.
However, these animals keep moving all the time.

(iv) Landscape
The site has a gentle slope towards a seasonal stream. The cover soil is black cotton to
depths of 0.5m to 2 m; further depths may present gypsum or laterite soils. The railway
track that connects Nairobi to Mombasa runs next to the site.

(v) Air and Noise

No noise or air pollution was noted at the site.

(b) Socio-Environmental Condition

(i) Socio-economy
The site has little economic activity. Some parts are leased by the Kenya Meat
Commission for cattle grazing. Before entrance to the site is an industrial zone where
some firms are located, such as the Kenya Meat Association, the Steel Mills Ltd., etc. In
the vicinity is the Athi River EPZ (Export Processing Zone).

(ii) Sanitation
The nearest community named Kitengela is located behind the railway track. This place is
being developed and the houses are of permanent and temporary types. Some houses are
supplied with water from the Athi River Company and others buy it from tankers. It was
observed during the survey that a borehole is being constructed to serve a new
condominium site composed by many high class houses. Available information shows
that some boreholes constructed in the Kitengela area present a high degree of alkaline
and fluoride. Excreta are disposed in septic tanks. Garbage is disposed by burning or
burying; other residents contract private collectors.

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(iii) Health Condition

Main diseases in Kitengela area are malaria, influenza, and chest problems.

(c) Conclusion
The site could be used for developing the sanitary landfill site with necessary mitigation
measures. The site is one of the most suitable due to its huge extent and far location from
human settlements. The site could be shared by CCN and Mavoko Municipality.

(4) Dandora Candidate Site for Transfer Station

(a) Natural Environmental Condition
(i) General Information
The site with an area of about twenty-six (26) ha is located in the Embakasi Division. It
was a quarry along the Nairobi River, used for stone extraction for the building industry in
Nairobi City. The site is used currently for garbage disposal, operated by CCN and owned
by CCN and private individuals.

(ii) Water
The only existing river in the area is the Nairobi River which is located adjacent to the
site. During this JICA Survey, water sampling was conducted in the Nairobi River
upstream and downstream of the candidate site. The results indicate that the river is
loaded with organic substances and not suitable as the source of domestic water. It was
confirmed that Nairobi River receives leachate without any treatment from the Dandora
Dumpsite, leading to water pollution.

(iii) Fauna and Flora

At the site could be observed the presence of animal scavengers such as pigs, birds, goats,
sheep and cattle that feed on the waste. Few shrubs could be observed especially in the
riverine vegetation.

(iv) Landscape
The site is an ex-quarry filled with waste. It slopes steeply before reaching the Nairobi
River.

(v) Air and Noise

Smoke, dust and exhaust gases pollute the air at the place. Offensive odour also could be
noted due to the unsanitary condition of the place. Offensive odour and smoke are the
major complaints of people living around the site. Noise production also could be noted
due to the machines and vehicles operating at the site.

(b) Socio-Environmental Condition

(i) Socio-economy
Dandora dump is surrounded by populated villages such as Kogorocho Slum, Lucky
Summer, the Kariobangi and Dandora estates, and by a number of educational and
religious facilities such as the Dandora Secondary School, the Jiran Education Center, the
Tortola Rescue and Educational Centre, and the Monica Church.

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Many waste pickers from the surrounding villages work at the place for material recovery
or recycling. No official record exists on the number of waste pickers at the site although
the number of waste pickers at the Dumpsite is estimated from 1,200 to 1,500. On the
other hand, it was estimated to be about six hundred (600) by the CCN officials.
During the survey, the presence of one group identified as the Mukuru Recycling Centre
was noted, performing paper recycling with its own equipment. Other people of the
surrounding villages are the stone miners working near the site.

(ii) Sanitation
The surrounding population is provided with piped water and excreta disposal is made
through sewers in some cases or pit latrines. As for garbage disposal, some are carried by
collectors and some are burned.

(iii) Health Condition

The place is an open dumping site where solid waste poses a risk from the sanitary point
of view, which could affect the operators of the landfill site, the waste pickers and the
residents living around the site directly. The site constitutes a breeding ground for
different organisms which are carriers of diseases such as malaria, typhoid, dysentery, etc.
Interviewed persons expressed that the main diseases in the area are upper respiratory
tract infections, gastro-intestinal diseases, allergies, tetanus, chest infections, etc.

(c) Conclusion
The site could be used with mitigation measures for developing the transfer station and
recovery facilities after the sanitary closure of the existing disposal site. The public health of a
vast population living around the site will be improved through closing the existing disposal
site.

(5) Langata Candidate Site for Transfer Station

(a) Natural Environmental Condition
(i) General Information
The site is located next to the Langata Cemetery limiting with the Langata Road with an
area of approximately eight (8) hectares that form part of the Ngong Road Forest. The site
is located in-front of the National Nairobi Park at approximately ten (10) km south-west
from the city centre. The land is owned by the private sector.

(ii) Water
The Mokoyeti stream is in the lowest part of the land. It goes through the Nairobi National
Park and is currently polluted by leakage of sewers that pass through the site. A newly
constructed borehole was identified at the Wildlife Clubs of Kenya; however, it is not
operated yet and no data was available about the water quality and other features.

(iii) Fauna and Flora

Presence of some birds was noted. Shrubs are dominant while few species of trees were
observed at the site.

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(iv) Landscape
The site has a gentle slope towards the stream. The cover soil is red soil that goes down
until approximately 50 cm. Under this soil, a rocky layer is found.

(v) Air and Noise

No significant noise or air pollution was noted at the site. The existing ones come from the
traffic on Langata Road.

(b) Socio-Environmental Condition

(i) Socio-economy
No residential area was found in the vicinity, but next to the site is the Wildlife Clubs of
Kenya which promotes environmental education and tourism courses. Next to this facility
exists the Bomas of Kenya Limited, a government corporation with many facilities for
tourists, entertainment, and social activity.

(ii) Sanitation
Water supply in the area of Langata is provided by CCN in some parts and the other parts
use bore holes. Sewage is disposed by sewerage or septic tanks. In front of the candidate
site is a sewerage pipeline. The garbage is usually collected by private collectors.

(iii) Health Condition

Main diseases in the area are respiratory diseases and malaria.

(c) Conclusion
The site could be used with mitigation measures for developing the transfer station. The site is
a sensitive area due to its proximity to tourist areas and recreational facilities; therefore, strict
monitoring of the operation should be implemented to avoid any negative impact.

(6) Kibera Candidate Site for Transfer Station

(a) Natural Environmental Condition
(i) General Information
The site is about six (6) km south-west from the Nairobi centre, next to the railway track
and in-front of the Kibera Station. The site is owned by the Kenya Railways Corporation
(a parastatal institution).

(ii) Water
There is a stream in the vicinity originating in springs. The stream feeds 3 dams which
supply water for the population of Kibera and for livestock consumption.

(iii) Fauna and Flora

Grass, shrubs, maize and vegetable plantation could be observed at the site. The presence
of animals could be noted.

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(iv) Landscape
The site has a steep slope towards the access road to the site. The cover soil is red soil and
rock.

(v) Air and Noise

No noise or air pollution could be noted at the site.

(b) Socio-Environmental Condition

(i) Socio-economy
In front of the site could be observed the Unga Farm Care (EA) Limited, a parastatal
institution with an area of 109 hectares where the exhibition of Kenyan products
(including livestock, agricultural and commercial) is organised every year. Also noted
were the three (3) schools located very near to the site and in the land belonging to the
Kenya Railways Corporation.

(ii) Sanitation
Some houses have piped water from CCN. Others buy it at KSh 4 for each container of
20 litres. Sewage is disposed using pit latrines or septic tanks. As for garbage, the
common system used is burning, composting or dumping anywhere.

(iii) Health Condition

Interviewed persons informed that the main diseases in the area are influenza, coughs and
malaria.

(c) Conclusion
The site could be used with mitigation measures for developing the transfer station. The health
of the vast population living in Kibera could be improved through the improvement of
collection and transportation of garbage from the area using the transfer station. An additional
area of land needs to be acquired to meet the requirement of the proposed transfer station.

2.9 Financial and Economic Aspect

2.9.1 Financial Conditions

(1) City Council of Nairobi (CCN)

(a) Revenues and Expenditures
The total revenue of CCN increased by 17.6%, i.e., from KSh 6,781 million to 7,944 million
for the period 2007-2008. Revenues come from CCN’s own sources, the central government
and other sources. The former decreased by 8.6% and the latter increased by 16.1%. This
indicates that CCN had slightly strengthened its financial independence against the other
sources of revenue. On the other hand, the operating expenses increased by 31.7% from
KSh 5,374 million to 7,079 million. Then net surplus from operating activities decreased by
38.5% from KSh 1,407 million to 865 million. By taking account of non-operating revenues
(Expenses), the net surplus from ordinary activities indicates the increase by 9.0% from
KSh 490 million to 534 million. Ultimately the net surplus for the year carried to the

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consolidated general rate reserve fund is recorded as a decrease of 47.2% from

KSh 390 million to 184 million.

(b) Cash Flow Statement

The cash flows from operating activities are composed of the cash receipts and the cash
payments. The total cash receipts show increase by 20.9% from KSh 6,677 million to
8,068 million from 2007 to 2008 and the total cash payments increased by 16.1% from
KSh 5,787 million to 6,721 million. The net cash flows from operating activities indicate
increase by 51.5% from KSh 890 million to 1,348 million. On the other hand, the cash flows
from investing activities are the purchase of plant and equipment which increased by 36.4%
from KSh 859 million to 1,173 million. The cash flows from financing activities composed the
proceeds from loans and repayment of loans. The net cash flows of them indicate the decrease
by 89.0% from KSh 218 million to 24 million. The net cash in cash and cash equivalents
shows decease by 19.4% from KSh 249 million to 200 million. The cash and cash equivalents
as of 30 June 2008 recorded an increase of 37.1% from KSh 541 million to 741 million.

(2) Department of Environment (DoE)

The Department of Environment (DoE) is composed of six sections and each section has its own
accounts for revenue and expenditure. In 2008/2009, the total revenue and expenditure of DoE
recorded KSh 18.4 million and 486.1 million, respectively, and the balance show the deficits of
KSh 467.8 million in 2008/2009. In 2010/2011, the total revenue and expenditure of DoE recorded
KSh 29 million and 612 million, respectively, and the balance as the deficits would increase to
KSh 583 million. The total revenue and expenditure of the CCN is estimated at KSh 9,976 million
and 12,047 million respectively in 2010/2011. Then the share of the total revenue and expenditure
of DoE in the CCN is 0.29% and 5.1% respectively, which are low allocations in the CCN in
comparison with the other fifteen departments. The share of revenue is the eighth and that of
expenditure is sixth. More allocations should be considered.
Table 2.9.1 shows the financial situation of the Solid Waste Management Section of the DoE,
which consists of three sections, namely; the Public Cleansing, Refuse Removal and General
Cleansing sections. The total revenue is expected to increase from KSh 9.9 million to 10.3 million,
and the total expenditure would also increase from KSh 385.2 million to 407.7 million. In
2009/2010, the share of revenue and expenditure in the CCN would be only 0.12% and 4.1%. It was
pointed out by the CCN that the budget for the general cleansing section and public cleansing
section of DoE has been on a downward trend over the financial years with the exception of
financial year 2006/2007 where it increased by 41%. However, the trend has been different for the
Refuse Removal Section of DoE. This particular section has incurred major fluctuations in its
budget with estimates rising and falling over the five financial years. It was also pointed out by the
CCN that the budget allocation for solid waste management vis-a-vis the total city council budget
has been decreasing over the years. This is an indication that solid waste management in the CCN is
not being given priority as compared to other cities in the world where the total allocation for solid
waste compared to the total budget ranges from 10% to 50%.
These pointed out facts are the core problems of the existing budgeting system of the CCN. The
way of thinking for prioritising the activities of the CCN is necessary to be reviewed and improved
by taking account of the substantial welfare and benefits of the people of Nairobi City.
The DoE is not financed directly from the GoK, but there is the possibility to be directly financed
through the LATF which is annually budgeted although it is not much expected by taking account
of the present budgetary condition that the allocation of budget from the DoE is relatively a small
share to the total budget of the CCN.

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Table 2.9.1 Current Financial Situation of Solid Waste Management by CCN

(Unit : KSh 1,000)
2008/2009 Change
Items 2009/2010 Estimates
Approved (%)
1. Public Cleansing
(1) Expenditure
1) Personnel 0 0 0.0
2) Operations 90 0 -100.0
3) Capital Expenditure & Investment 0 0 0.0
Subtotal 90 0 -100.0
2. Refuse Removal
(1) Revenue
1) Local Levies
a. TIP Charges 6,300 10,320 63.8
2) Public Health & Sanitation Service Fees
a. Refuse Collection Fee 2,903 0 -100.0
b. Waste Disposal Services (Water Co.) 740 0 -100.0
Subtotal 9,943 10,320 3.8
(2) Expenditure
1) Personnel 0 59,880 -
2) Operations 214,043 204,010 -4.7
3) Maintenance 22,500 22,200 -1.3
4) Capital Expenditure & Investment 0 70,000 -
Subtotal 236,543 356,090 50.5
3. General Cleansing
(1) Revenue
1) Miscellaneous Fees & Charges
a. Garbage Dumping Fee 0 0 0.0
Subtotal 0 0 0.0
(2) Expenditure
1) Personnel 136,480 44,702 -67.2
2) Operations 8,550 3,800 -55.6
3) Maintenance 3,500 3,200 -8.6
Subtotal 148,530 51,702 -65.2
Total Revenue 9,943 (54.1) 10,320 (54.4) 3.8
Total Expenditure 385,163 (79.2) 407,792 (74.9) 5.9
Balance -375,220 (80.2) -397,472 (75.7) 5.9
DOE
Total Revenue 18,392 (100) 18,982 (100) 3
Total Expenditure 486,167 (100) 544,216 (100) 12
Balance -467,775 (100) -525,234 (100) 12
Note: Figures in parenthesis indicate the share of the total DoE budget.
Source: Department of Treasurers, CCN

2.9.2 Waste Charging System

(1) Nairobi City

(a) Business Establishment
After 2008, the new waste charging system was implemented. The business establishments are
categorised into around 80 groups and the rates of charges per ton are classified into 5 classes,
namely; KSh 100, 200, 320, 420 and 500. In 2009, new charges were added for supermarkets
(KSh 1,000); post offices, courts (institutions), banks (institutions) as KSh 1,500; other
institutions (KSh 3,000) and hotels (KSh 5,000). The waste charges are collected mostly
monthly on the basis of the amounts of collected wastes which are counted by the driver by
observing the loaded truck depending on the loading capacity of the truck. The charge is paid
based on invoice issued by the CCN. The collection rate of charges is less than 35%. The

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amounts of waste charges depend on the amounts of wastes to be collected by category of

wastes and of business. Collection and transportation are suspended for defaulters.

(b) Households
When the water supply service was being implemented by the CCN, waste charges of
KSh 10 per household were paid at the time the water charges were collected. After the water
supply service was privatised to the Nairobi City Water and Sewerage Company
Limited (NCWSC) in 2003, the collection of waste charges was suspended. Therefore, a new
waste charging system is necessary to be created. Main reasons of the no-charge until now are
considered to be (i) the costing for collecting charges for each household because the
collection with water charge is assumed to be less cost without the need of personnel to collect;
(ii) the difficulty to set up the charge level by income level; (iii) the political reason that the
congressman wishes to keep the support from people by not imposing the waste charge;
(iv) the increase of waste collection by private companies; (v) the difficulty of asking the slum
and low income areas to pay the charges, and so on.

(2) Contractors (Outsourced Company)

The area for the collection and transportation of wastes is divided into nine (9) zones including
CBD (central business district) and contracts with private companies were agreed based on the
zone. The total number of contractors is around 21 according to the documents obtained from the
Solid Waste Management Section of the DoE in April 2009. The procurement of contractors is
done by the CCN through the open bidding system.
The contract amounts are agreed between CCN and contractors on the basis of KSh rate per ton of
collected wastes. This rate is based on the transportation distance from the collection sources to the
dumpsite. The number of companies is assumed to be different each month. The rate ranges from
KSh 748 to 1,210 and the average is KSh 960.
Comparing the waste management cost per day between the CNN and the contractors (outsourced
companies), the contractors would save the costs for solid waste management by KSh 2,080 for
direct cost, KSh 1,416 for indirect cost and KSh 3,496 for total cost. The private companies are
supposed to pursue effective management to make profit from their business as much as possible.
These figures from the private contractors reflect their business conditions. On the contrary, the
cost of CCN is not based on effective management because it is not business minded. In this
context, this comparison suggests that outsourcing is one of the alternatives for the effective solid
waste management by the CCN.

(3) Licensed Company

(a) Number of Licensed Companies
The licensed companies are registered with the Business Permit Office of the CCN by the time
they are issued a business permit for their trucking or transportation business. The number of
registered companies was 15 in 2009. The licensed companies must also pay a license fee as
waste transporter to NEMA (National Environment Management Authority).

(b) Waste Charge

The following table shows an example of waste charge for the Zoa Taka Ltd. Charges are
classified into corporate and household. The waste charges for corporations are categorised
into six (6) on the basis of package material and truck load, while those of households are
categorised into two (2) on the basis of income level. The bases of charges to decide the level
of charges are mainly five factors, namely; (i) quantity of collected wastes; (ii) type of waste

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such as food, industrial, construction, garden, etc.; (iii) location/distance of the client's
premises; (iv) frequency of collection; and (v) income level. Waste charges for a few
residential clients are paid on mostly monthly and quarterly bases. The payment method is by
cash and check collected by debt collectors. Clients must deposit in advance payment for the
cost of dump and skip as the containers. The amount of payment for containers is settled by
taking account of the condition of the containers during the termination of contract. If the
containers are damaged, the settled amount of damage will be deducted from the amount of
deposit to be repaid.
In cases where the beneficiary of waste collection/transportation services fails to pay the waste
charges, the contractor could suspend the waste collection/transportation.

Table 2.9.1 Rate of Charges of Zoa Taka Ltd.

1. Corporate
Actual
Type Charge in Kenya Shilling Capacity
Weight
1 Plastic Bag 100 - 200/- per Bag 10kg
2 Drum 250 - 400/- per Drum 210kg
Depending on
3 Std Skip 2000 - 2500/- per Skip 1,000kg
the type of
4 Mega Skip 3000 - 3500/- per Skip 2,000kg
waste
5 4.0t Truckload 4000 - 5000/- per Load 4,000kg
6 8.0t Truckload 8000 - 9500/- per Load 8,000kg
2. Households
Low & Middle
1 Income 200-250/month/household
2 High Income 400-550/month/household
Source: Zoa Taka Ltd.

2.9.3 Management Situation of Private Companies

(1) Licensed Company

The City Council of Nairobi allows privately-owned companies to collect, transport and dispose
solid waste. CCN licenses these private garbage collectors to operate and it also runs the Dandora
Dumpsite where the private garbage collectors are expected to finally dispose the collected
non-hazardous solid waste. The private garbage collectors collect solid waste from residential
areas, commercial entities, industries and even health care providers. The private garbage collectors
handling hazardous waste are, however, expected to dispose these wastes through their own means
as approved by the National Environment Management Authority (NEMA). Thus some private
garbage collectors own and operate incinerators. To apply, the private garbage collectors pay the
City Council of Nairobi an application fee of KSh 10,200. Once licensed, they pay KSh 8,800 per
annum as license fee to operate. Furthermore, private garbage collectors need to have a license for
each truck they operate for solid waste transportation. For this they pay license fees of KSh 5,000 to
KSh 8,000 to NEMA and KSh 5,000 to the City Council of Nairobi. To dispose non-hazardous
waste at Dandora, private garbage collectors pay a tipping charge of KSh 280 per trip.
According to the income statement of one of the licensed companies, the gross profit increased by
1.64 times from KSh 2,592 thousand to 4,244 thousand in 2007 to 2008. As for expenditure, the
total expenditure increased by 1.64 times from KSh 2,540 thousand to 4,165 thousand. Therefore,
the growth rate of gross profit was the same as that of total expenditure. The net profit increased by
1.52 times from KSh 51.5 thousand to 78.3 thousand. The highest growth rate recorded for bank
charges was 4.37 times, followed by insurances at 3.65 times and marketing commissions at 3.18

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times. It must be noted that the growth rate of salaries and wages was relatively lower than other
items of expenses indicating savings on personnel costs.
The Operating Income Margin (OIM) is derived from operating income by sales and indicates the
strength of profitability of the company regarding the revenues to be earned by the main business
for waste collection and transportation. The operating income is the difference between the gross
income and the total of sales cost and general administration cost. The OIM of this company has
increased from 10.4% to 12.4% from 2007 to 2008 and shows the increase of profitability year by
year.

(2) Community-Based Organisation (CBO)

The City Council of Nairobi (CCN) licenses community-based organisations (CBOs) to collect
waste from generators and deposit them in a designated collection point where the CCN collects it
for final disposal. However, there are some CBOs that have trucks and thus are able to transport
their collected waste to the Dandora Dumpsite.
The CBOs charge the households a weekly and, in some instances, a monthly rate for the collection
of waste. According to the field survey by CCN, it is considered that the CBOs are actually
charging 7KSh/month~100KSh/month from the slum area and 100KSh/month~200KSh/month
from the middle income area. They use these charges to finance their operations. Most CBOs also
recover some reusable and recyclable materials from the waste they collect. They sell these
materials to supplement their income.
The CBOs pay varying rates to the CCN as they are charged per amount of waste they have
collected which the CCN transports and finally disposes. However, some of the CBOs hire private
trucks to collect their waste for final disposal. There are currently 140 registered CBOs in Nairobi
that are involved in solid waste management.

2.10 Hazardous Waste Management

2.10.1 Present Condition of Hazardous Waste Management

At present, there is no national legislation to guide the City Council of Nairobi (CCN) in the
management of hazardous waste. CCN recognises that effective management of medical and industrial
wastes is difficult under the present situation. The Environmental Management and Coordination
(Waste Management) Regulations of 2006 conferred by Section 92 and 147 of the Environmental
Management and Coordination Act (No. 8 of 1999) implemented by the National Environment
Management Authority (NEMA) deals with almost all types of waste including biomedical, industrial
wastes, etc., by setting out provisions on the responsibility of waste generators, licensing of
transportation of waste, waste treatment disposal facilities and control of hazardous waste. Licenses
have been issued to waste handlers and controlled under the conditions for licensing under the
Environmental Management and Coordination (Waste Management) Regulations of 2006. However, no
concrete policy and/or guidelines on hazardous waste management have been implemented.
The different types of hazardous wastes being considered in Nairobi City are the following:
Medical Waste such as sharp objects (needles and blades), syringes, vials, tubes, infectious wastes
(cotton, diapers, gloves and clothes), chemical waste (solid, liquid and gaseous chemicals as disinfectant
or solvent for cleaning process), pathological wastes (human tissues and organs), and other
microbiological waste, including:

• Pharmaceutical Waste such as drugs, vaccines, sera, etc.;

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• Farm Waste such as empty chemical containers;

• Packaging from agrochemical industries (pesticides);
• Seeds which are stocked with chemicals;
• Solvents dealing with metal packaging;
• Oil Sludge from motor vehicle industries;
• Feril Goods; and
• Substandard Raw Materials.

(1) Medical Waste

There are 409 health care facilities in Nairobi City. Table 2.10.1 shows the type of health facilities
and the frequency of disposing medical waste.

Table 2.10.1 Health Care Facilities in Nairobi City

Health Care Facilities Number Ratio (%)
Clinic 141 34.5
Dispensary 100 24.4
Health Center 76 18.6
Hospital 23 5.6
Nursing Home 27 6.6
Research Centre 1 0.2
VCT Centre 41 10.0
Total 409 100.0
Source: Ministry of Public Health and Sanitation, 2009

Healthcare facilities are being operated by government and private sectors. The distribution of
ownership is shown in Table 2.10.2. More than half of the total number of facilities is
privately-owned.

Table 2.10.2 Ownership of Healthcare Facilities

Health Care Facilities Number Ratio (%)
Company Clinic 6 1.5
Government of Kenya 65 15.9
Mission 55 13.4
Nairobi City Council 63 15.4
Non-Government Organisation 11 2.7
(NGO)
Private 209 51.5
Total 409 100.0
Source: Ministry of Public Health and Sanitation, 2009

There are five (5) incinerators being used by the government or the city council. These are located
in the following facilities:
(a) Mathare Mental Hospital;
(b) Kangemi Health Centre;
(c) Kayole II Sub-District Hospital;
(d) City Mortuary; and

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(e) Westlands Health Centre.

Private healthcare facilities have arrangements with private refuse collectors licensed and
accredited by NEMA, who collect periodically and take medical wastes for incineration.

(2) Industrial Waste

There are about 501 industries in Nairobi City. Table 2.10.3 shows the location division and
frequency of industrial plants that dispose hazardous waste.
Table 2.10.3 Industrial Plants in Nairobi City
Location of
Number Ratio (%)
Industrial Plant
Starehe 38 7.6
Westlands 10 2.0
Dagoretti 6 1.2
Embakasi 72 14.4
Kamkunji 6 1.2
Kasarani 25 5.0
Langata 20 4.0
Makadara 293 58.5
Non-Allocated 31 6.2
Total 501 100.0
Source: Department of Computer, City Council of Nairobi, 2009

The disposal system of the different industries to their hazardous waste is the same system as that
being done by private hospitals. They contract private collectors licensed and accredited by
NEMA. All of the industries have a storage area or holding area where they store their hazardous
waste. Most of the hazardous wastes are collected on monthly basis. The storage area is strictly
secured, and no one can enter without the permission of the manager and the visitor should be
accompanied by the person-in-charge only.

2.10.2 Evaluation of Current Condition of Hazardous Waste Management

The incineration process in Nairobi City started only in year 2002, being initiated by Dr. Mwabe from
the Environmental & Combustion Consultants, Ltd. The first incinerator has the capacity of about
1,000 kg/hr. Operations started with oil sludge and then pesticides to industrial waste and now even
pharmaceutical and medical wastes are being incinerated.
Based on the gathered information, the disposal of hazardous wastes from private medical and industrial
facilities is relying on the services provided by private contractors. There are only five (5) contractors
providing incineration in Nairobi City. The lists of contractors and details of hazardous wastes being
collected and incinerated are as shown in Table 2.10.4.

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Table 2.10.4 List of Contractors with Incinerator in Nairobi City

Estimated Amount
Capacity of Incinerators
Name of Contractors Hazardous Waste
(kg/hr)
(ton/month)
Environmental & Combustion
2,000 30 – 60
Consultants, Ltd.
Envirosafe Ltd. 1,000 18 – 40
Nairobi Incinerators 500 10 – 25
Kenya Medical Institute
400 2–8
(KEMRI)
Ecowaste 600 20
Total 4,500
Source: JICA Survey Team, 2010

2.10.3 General Recommendations on Hazardous Waste Management

Some of the recommendations to be considered in the improvement and development of the hazardous
waste management system in Nairobi City are the following:

• Provide a separate cell at the proposed sanitary landfill for the ashes of incinerated hazardous
wastes;
• The Environmental Management and Coordination Act of 1999, Section 91, should be properly
implemented and enhanced with common standards to be followed;
• The Government or the City Council of Nairobi should implement policies or guidelines that will
centralise the hazardous waste management system;
• Specific policies and regulations on e-waste should be developed. These should govern the
handling process from collection to final disposal, and licensing of the key actors. A collection
system needs to be developed, and a consumer awareness campaign launched. Waste should be
sorted at source, and this should be enforced by the local authorities. Capacity development
programmes should be launched in the sector, possibly funded by fees levied on importers of
second-hand equipment; and
• Developing an e-waste management system should be a multi-stakeholder process, which includes
the participation of civil society.

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CHAPTER 3. PLANNING POLICIES OF SOLID WASTE MANAGEMENT IN

NAIROBI AND FRAMEWORK OF THE MASTER PLAN

3.1 Introduction
Caption 265 of the Local Government Act and Caption 242 of the Public Health Act legally mandate the
local authorities of Kenya to take reasonable and practical measures to maintain their areas of
jurisdiction at all times in a clean and sanitary condition. For example, as stated in Article 11, Clause
242 of the Public Health Act, Rev. 1962, every local authority shall take all lawful, necessary and
reasonably practicable measures to maintain its district in clean and sanitary condition, preventing the
occurrence therein or remedying or causing to be remedied or condition liable to be injurious or
dangerous to health and to take proceedings at law against any person causing or responsible for the
continuance of any such nuisance or condition.
After the JICA Study in 1998, the Environmental Management and Co-ordination Act, No. 8 of 1999
was enacted to provide for the development of standards for waste and formulations of regulations for
the management of solid waste. Further, the City Council of Nairobi (CCN) promulgated the Solid
Waste Management By-law in 2007, stipulating that CCN has the primary duty to regulate waste and its
management within the area of jurisdiction of the City of Nairobi and for this purpose all wastes
generated or otherwise arising within the area of the City of Nairobi shall be subjected to these By-law
and shall be regulated by the Council accordingly.
The responsibility, duty, authority, regulations, etc., of the local government mandated by legislation
will be the key elements to formulate the solid waste management (SWM) plan. This chapter thus
proposes the principles and guidelines for establishing the framework of SWM for Nairobi City. In
particular, to establish the planning policies and general directions for the formulation of the Master Plan,
the Integrated Solid Waste Management Plan (ISWMP) for the City of Nairobi developed under the
United Nations Environment Programme (UNEP) was referred to in principle since this UNEP Project
was started in March 2009 and ahead of the present survey, and it already drafted planning strategies
including vision, mission, goals and targets of ISWMP covering mostly the same as the present survey
scope of work.

3.2 Principles and Guidelines for Establishment of SWM Framework

Although more discussions and consensus between the JICA Survey Team and the Kenyan counterparts
are required, principles and guidelines for solid waste management (SWM) for the City Council of
Nairobi (CCN) are as prepared and presented in the following sections. These principles and guidelines
are the basis on which the planning policy of SWM for CCN and framework of the Master Plan shall be
formulated hereinafter.

3.2.1 Categories of Waste

(1) Municipal Waste

CCN is responsible for the management of municipal waste. Municipal waste is defined in the
Solid Waste Management By-law of 2007 as “waste which is the responsibility of the Council
whether under these By-laws or under any other law to collect, treat and otherwise dispose of, and
includes refuse.” It is suggested that, for practical purposes, types of municipal wastes should be
much clearly defined as the same types in the JICA Master Plan Study in 1998, as follows:

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(a) Household waste

(b) Business waste of small amount (less than 50 kg)
(c) Waste generated from public institutions such as schools
(d) Market waste
(e) Hospital waste that does not require any treatment
(f) Dead animals excluding domesticated animals (cows and pigs)
(g) Street waste excluding demolition waste dumped on streets
(h) Other wastes accepted by CCN as municipal waste

(2) Non-Municipal Waste

Non-municipal waste is waste that is not under CCN’s responsibility but the responsibility of waste
generators. Waste categories are as summarised in the table below:

Table 3.2.1 Waste Category and Management Responsibility

Kinds of Waste Management Responsibility Remarks
1. Municipal waste CCN CCN collects bulky waste upon
receipt of a request from citizens
by charging a special tariff.
2. Non-municipal waste Generators of waste CCN may accept waste 2-1 and
2-1 Non-hazardous industrial 2-2 at its disposal site on full cost
waste and commercial recovery basis.
(CCN should monitor
waste of large amount generators’ management of
2-2 Demolition waste non-municipal waste until they The central government should
2-3 Discarded vehicles establish a proper management establish hazardous waste
system for these waste.) management (treatment)
2-4 Hazardous waste including facilities.
infectious hospital waste

3.2.2 Responsibility of Central Government, CCN, Business Waste Generators and

Residents
CCN must have the power and responsibility for organising solid waste management. As shown below,
there are other organisations involved in solid waste management.

• Central Government
• CCN
• Contractors
• Business (Industrial and Commercial) Waste Generators
• Citizens
The proposed principal responsibilities of respective organisations are given in the table below.

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Table 3.2.2 Parties Involved in Solid Waste Management and Their Responsibilities
Involved Parties Responsibilities
1. Central Government 1) To formulate a national policy with respect to waste reduction, recycling and
solid waste management.
2) To formulate and pass a national SWM law.
3) To set technical standards.
4) To research on solid waste management.
5) To ensure that the laws and regulations are applied.
6) To provide guidance to local governments.
2. City Council of Nairobi 1) To formulate a local policy and prepare local strategies and plans (short and
long term).
2) To finance SWM.
3) To levy a waste tax.
4) To formulate regulations.
5) To formulate guidelines with respect to:
a) methods of discharging waste (types of containers to be used);
b) the waste reporting requirements of business waste generators; and,
c) recycling (types of waste to be recycled).
3. Contractors 1) To provide waste collection, haulage and street sweeping services under
contractual arrangements.
4. Business (Industrial and 1) To manage (collection, treatment and disposal) their waste except those
Commercial) Waste Generators accepted by the local government as municipal waste
2) To submit reports on their waste (types, quantity, pretreatment and other
information) as required by the municipal regulations.
5. Residents 1) To reduce generation of waste.
2) To recycle.
3) To comply with the local government’s waste collection procedure.
4) Not to litter waste.
5) To dispose of discarded vehicles by using commercial enterprises.

3.2.3 Vision, Mission and Goals of Solid Waste Management in Nairobi City

(1) Vision of Solid Waste Management in Nairobi City

The vision of solid waste management in Nairobi City is proposed in the UNEP Integrated Solid
Waste Management Plan (ISWMP), as follows:
“A healthy, safe, secure and sustainable solid waste management system fit for a world-class city”

(2) Mission of Solid Waste Management in Nairobi City

The mission of solid waste management in Nairobi City is proposed in the UNEP ISWMP, as
follows:

(a) To improve and protect the public health of Nairobi residents and visitors;
(b) To protect ecological health, diversity and productivity; and
(c) To maximise resource recovery through the participatory approach.

(3) Goals of Solid Waste Management in Nairobi City

The goals of solid waste management in Nairobi City are proposed in the UNEP ISWMP, as
follows:

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(a) To significantly extend resource recovery, including but going beyond the creation of enabling
environments and the development of markets for recyclables;
(b) To build (awareness and capacity for) source separation as essential components of sustainable
waste management;
(c) To restructure and extend efficient and equitable collection of source-separated waste streams
with the view of protection of public health and the environment; and
(d) To build environmentally sound infrastructure and systems for safe disposal of residual waste,
replacing current disposal sites which must be rehabilitated.

3.3 Planning Strategy

3.3.1 Problem Identification on SWM in Nairobi

As stated in Chapter 2, due to poor waste collection services of the city authority, residents of Nairobi
have been suffering environmental deterioration around their living quarters and, consequently, lodge
complaints with CCN for fear of degradation of public health. In addition to the evaluation based on the
result of site reconnaissance and field surveys, two stakeholders’ workshops were held at the end of
March 2010 to identify the current problems and establish the planning directions to solve these
problems.
Based on the results of these surveys, analyses and workshops, there are many causes preventing CCN
from conducting better services of waste collection and disposal. Although the major problems
enumerated below, which are considered to be the key issues on master plan formulation, are still the
same as those of the previous master plan in 1998 and not yet solved, low level of waste collection rate
especially in low income and slum areas and lack of financial sources are identified as the two core
problems that shall be solved.

• Low level of waste collection rate

• Lack of spare parts and long procedure for procurement of parts
• Few involvement of CCN on waste reduction and resource recovery
• Illegal and uncontrolled disposal
• Open dumping and no ample space available at Dandora Dumpsite
• Inefficient institutional and organisational arrangements of CCN
• Uncontrolled private sector involvement on waste collection services
• Lack of financial sources for investment and operation
• Improper budgetary system failing to secure financially sound operation
• Lack of public awareness about SWM problems facing the city

3.3.2 Planning Strategy

To solve the problems and achieve the goals, the strategic approach to formulate the SWM Master Plan
for CCN are proposed with the following six items in consideration of solving the implicated constraints
of the city towards improvement of technical and institutional deficiencies:

• Financial strengthening of SWM

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• Institutional capacity development

• Improvement of SWM operational capacity
• Enhancement of PPPP (Public-Private-People Partnership) in SWM
• Public awareness and participation of CBOs and NGOs
• Promotion of 3R (reduce, reuse, recycle)

3.4 Planning Directions of the Master Plan

3.4.1 PCM Workshop

In order to further analyse the existing situation, the full-scale “problem analysis” as well as “objective
analysis” using the PCM (Project Cycle Management) method was conducted in the occasion of the
second workshop on the 24th of March 2010. “Problem Analysis” is a method for graphically displaying
the problematic environment related to the matter of issues. The analysis lays problems out in a cause
and effect tree with roots and branches showing relationships between problems. Roots represent
causative factors and branches represent consequent effects. One problem in a tree is one of the causes
of the problem located above as well as the effect of the problem located beneath. Participants of the
workshop were from various stakeholders including CCN and central government, CBOs and NGOs.
Apart from this workshop, a workshop for CBOs was also held on the 26th of March 2010 for about
150 CBOs in Nairobi. Participants in this workshop came exclusively from the CBOs in Nairobi and
they carried out “Problem Analysis” to identify problems encountered in their own communities.
As a result of these workshops, major constraints on SWM in Nairobi were identified and confirmed, as
presented in the preceding Subsection 3.3.1 and required actions in the master plan were developed, as
presented in Subsection 3.4.3. More detailed information on the workshops is given in Section B of
Volume 3, Supporting Report.

3.4.2 Formulation of Project Design Matrix (PDM) and Plan of Operations (PO)
Based on the PCM workshop, the outline of the identified project are expressed in the form of PDM
(Project Design Matrix), which is a four-by-four matrix to lay out a project design, in Section B of
Volume 4, Data Book, and each box in the PDM contains the following specific information.

• Narrative Summary refers to the hierarchy of objectives and makes the distinction between
programme strategy (Overall Goal), project impacts (Project Purpose), project deliverables
(Outputs) and the key activities (Activities).
• Objectively Verifiable Indicators identifies the performance indicators which define quantity,
quality and time for each objective.
• Means of Verification refers to the data sources for objectively verifiable indicators.
• Important Assumptions describes the other conditions on which each project depends for its
success.
• Pre-conditions indicate prerequisites for starting a project or implementing the activities.
• Inputs required for implementation of the activities are listed in the bottom box in the second
column.

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Activities specified in each PDM are broken down into more manageable packages of work, which is
called Work Breakdown Structure (WBS). The WBS is a deliverable-oriented hierarchical
decomposition which defines all the works to be accomplished during the project. Being a critical
document of the project scope, the WBS serves as the basis for planning of the project. More concretely,
the WBS is a very common and critical project management tool, and the full-scale WBS will be
formulated and incorporated into the new Master Plan. The plan of operation (PO) of each action plan is
presented in Section 4.12.
A full-scale PO is a detailed project implementation plan containing various project management factors
including scope, time, human resource, quality, procurement and cost. The full-scale PO including the
following contents will be also incorporated into the new Master Plan.

• Activities are the list of detailed activities which are equivalent to the WBS.
• Expected results are performance indicators of the activities.
• Time schedule is a calendar bar chart which provides time estimates, sequence of activities over
time and the precedence relationships.
• Person in charge is a responsible person with supervisory authority over a set of activities.
• Implementers are human resources or team assignments for implementing the activities.
• Materials and equipment are resources input to implement activities and their procurement
schedule.
• Budget and expenditure defines the allocation and disbursement of budget for a set of activities.

Out of these factors, “time schedule”, “implementers” and “budget/expenditure” are integral parts of
the PO.
Project time management, which is a subset of project management including the processes required to
ensure timely completion of the project, is related to “time schedule”.
Project cost management, which refers to process ensuring that a project is completed on time and
within budget, is related to “budget and expenditure”. In the preliminary POs, WBS-wise Cost
Breakdown Structure (CBS) as well as Budget Breakdown Structure (BBS) for each project is
specified.

3.4.3 Components of the Master Plan

The Master Plan of SWM Improvement in Nairobi is formulated in three stages of action plans, namely;
the first implementation stage (short-term plan covered from 2011 to 2015); the second implementation
stage (mid-term plan covered from 2016 to 2020); and the third implementation stage (long-term plan
covered from 2021 to 2030). The action plans are formulated through two approaches: (1) technical
approach, and (2) institutional and financial approach. The major planning items of the Master Plan as
the result of the PCM Workshop are summarised as the following eight programmes.
Technical Approach of the Master Plan
Programme 1: Collection and Transportation Plan
Programme 2: 3R and Intermediate Treatment Plan
Programme 3: Final Disposal Plan

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Institutional and Financial Approach of the Master Plan

Programme 4: Organisational Restructuring and Human Resources Development Plan
Programme 5: Legal and Institutional Reform Plan
Programme 6: Financial Management Plan
Programme 7: Private Sector Involvement Promotion Plan
Programme 8: Community Participation Promotion Plan

3.4.4 Objectives, Planning Policies and Strategies of Each Component of the Master
Plan
The objectives, planning policies and strategies of each component of the Master Plan are clarified, as
follows:

(1) Collection and Transportation Plan

(a) Objective
The overall objective of the Collection and Transportation Plan is to improve or expand the
collection service coverage in the whole area of Nairobi City in order to maintain public health
and cleanliness, and to protect the City's environment.

(b) Planning Policy

The basic policy of the Collection and Transportation Plan is to prioritise an optimum system
through taking into consideration a time frame development and proper allotment of collection
and transportation system synchronising with other sectors (especially transportation sector).
For the issue in low income and slum areas, on the other hand, the existing problems in these
areas shall be identified and reflected on the planning to eliminate the obstacles for providing
appropriate collection and transportation services.

(c) Strategy

(i) Technical alternatives on collection and transportation system shall undergo evaluation by
studying if they can bring the most efficient effect in terms of collection and transportation
of solid waste from generation source to final disposal, as well as evaluation from the
viewpoint of less impact to society and the environment.
(ii) The development plan for collection vehicles or equipment for collection and
transportation shall be studied on whether or not it corresponds to the most optimum
system of collection and transportation including the transfer system.
(iii) The rearrangement of private sectors shall be required to enhance the administrative
leadership of CCN in controlling the current disorder of their collection and transportation
services. Administrative control of their services by zone or district will be one of the
solutions. More detailed approach toward better management of private sectors shall be
discussed in the planning in parallel with the establishment of organisation and institutional
framework.
(iv) As for the solid waste management in lower income and slum areas, the key issues shall be
identified in terms of waste generation, collection and transportation through a problem
analysis approach such as group discussion for CBOs who are main actors in these areas.

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As a result, an optimum system of discharge and collection shall be studied in combination

with the improvement of transportation system to be provided by CCN or its
subcontractors to eliminate the factors causing illegal dumping at these areas.
(v) Action plans shall be prepared in a time frame of short, middle and long term to implement
the most suitable development option of collection and transportation.
(vi) The capital, operation and maintenance cost for collection and transportation in the above
time frame shall be studied to examine the economical and financial viability of solid waste
management.

(2) 3R and Intermediate Treatment Plan

(a) Objective
The 3R and Intermediate Treatment Plan is composed of the plans for waste reduction,
recovery of resources, reuse, recycling and intermediate treatment, whose objectives are as
follows:
(i) The objective of the Waste Reduction Plan is to lighten the cost burden of CCN through the
reduction of solid waste amount for collection and disposal.
(ii) The objective of the 3R Plan is to save finite resources and minimise landfill space as a
result.
(iii) The objective of the Intermediate Treatment Plan is the stabilisation and reduction of
residuals in addition to resource recovery through waste conversion.

(b) Planning Policy

(i) The Waste Reduction Plan shall be formulated under the condition to perform a role of
each party, i.e., the role of the Government, local authority and the beneficiaries.
(ii) Solid waste recycling shall make use of the existing functions of the residents, junkshops,
community-based organisations, NGOs and the recycling industries (recyclers) to the
maximum extent.
(iii) The Intermediate Treatment Plan shall be formulated in consideration of the applicable
technology in Kenya so as not to cause a financial burden on SWM.

(c) Strategy
(i) Waste reduction shall be carried out to reduce discharge of domestic, commercial and other
business wastes through participation of the consumers, shops, workplaces, CCN, and the
government agencies concerned.
(ii) CCN shall have the primary responsibility for promotion, guidance and assistance to the
residents, community groups, enterprises, and all other stakeholders for establishing the
recovery, reuse and recycling systems.
(iii) Practical and initial solid waste recycling activities shall be carried out mainly through
materials recovery by the waste generators at sources and the activities of waste pickers,
waste collection workers and junkshops in town.
(iv) Small-scale intermediate treatment shall be promoted through home composting and
community level composting for recycling biodegradable waste.
(v) Large-scale intermediate waste treatment or waste conversion shall be introduced in the
future.

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(3) Final Disposal Plan

(a) Objective
In the concept of final process of solid waste management (SWM) system, the objective of
Final Disposal Plan is to have the solid waste stabilised and be hygienic to prevent secondary
pollution.

(b) Planning Policy

The sanitary landfill is evaluated to be the most appropriate disposal method from both
economic and environmental viewpoints. Therefore, the final disposal plan shall be
formulated for the construction and operation of a sanitary landfill. Altogether, the plan of
closure of Dandora and the existing illegal dumpsites shall be considered as sanitarily as
possible where the present reclamation is performed.

(c) Strategy
(i) The scale of sanitary landfill facilities and their operation shall take financial availability
into consideration. Due to financial constraints concerning SWM financing, a phased
construction of the disposal site shall be also considered.
(ii) The Closure Plan for the Dandora and the existing illegal dumpsites shall take economical
efficiency into consideration as if the influence on surrounding environment is made to
reduce.

(4) Organisational Restructuring and Human Resources Development Plan

(a) Objective
The Organisational Restructuring and Human Resources Development Plan have two
objectives as follows:

(i) To comprehensively reorganise the functions of the Department of Environment to the

ring-fenced new public organisation so that the responsibilities and services on solid waste
management could be effectively and efficiently managed.
(ii) To comprehensively strengthen human resources capacities of the candidate staff and
workers of the new organisation to support its functions.

(b) Planning Policy

(i) For the establishment of the new organisation in charge of solid waste management
services, the function of the Department of Environment should be comprehensively
reviewed in terms of organisational and individual capacity assessment;
(ii) Responsibilities and obligations of the new organisation should not be fragmented or
overlapping among the staff and workers;
(iii) Linkages and coordination arrangements between different departments in the new
organisation should be efficient and effective;
(iv) The organisational structure should be optimised in line with the selected structure for
Public-Private Partnership;
(v) The functions of the Department of Environment should be transferred smoothly to the
new organisation; and

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(vi) Human resources development for providing solid waste management services shall be
comprehensively designed and implemented based on the results of the capacity
assessment.

(c) Strategy
(i) The organisation of the Department of Environment shall be restructured comprehensively
for establishing the new organisation based on the following concepts:
• An efficient and rationalised organisational structure with clear reporting lines,
reasonable spans of control and number of levels of staff and workers, and the
appropriate vertical structure to attain the operational efficiency of the solid waste
management;
• A clear assignment and delegation of responsibilities and adequate authority to
managers and supervisors with accountability for individual performance as well as a
simple workflow for a quick decision process;
• A streamlined workflow based on the practical basis to avoid the overlapping of the
organisational structure;
• Clear-cut directing functions from the strategic level down to middle management
and supervisors;
• Effective and appropriate management information systems and other procedures;
• Periodic assessment and feedback of managers’ performance and private operators
based on agreed performance targets and criteria; and
• Streamlined zoning of the service areas for the cross-subsidisation which makes the
enlarged services to poorer area possible.

(ii) The following functions should be added to the new organisation:

• The new organisation should have the function of managing and regulating the
proper Public-Private Partnership scheme; and
• The new organisation should have the function of raising public awareness on best
practices in solid waste management such as recycling, segregation, re-use, and
recovery as well as inculcating the culture of waste reduction and proper storage
among producers and consumers.

(iii) More practical human resources development including on-the-job training programme
based on the capacity assessment and feedback system to share job skills among staff and
workers should be implemented.

(5) Legal and Institutional Reform Plan

(a) Objective
The objective of the Legal and Institutional Reform Plan is to propose the most suitable legal
arrangement which will enable the new organisation to effectively and efficiently regulate
solid waste management activities in Nairobi City.

(b) Planning Policy

(i) SWM-related Acts, Regulations and By-laws should be improved in terms of better
enforcement.
(ii) Monitoring system should be strengthened for the better enforcement of Acts, Regulations
and By-laws.

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(iii) Policy documents and guidelines should be transformed into the actual enforcement.

(c) Strategy
(i) Enactment of Basic By-laws for the establishment of the new organisation in charge of the
solid waste management services;
(ii) Establishment and implementation of a system of inspection, enforcement and monitoring
of solid waste management activities;
(iii) Preparation of operation manuals with respect to the solid waste management services
which must comply with the relevant Acts, Regulations and By-laws; and
(iv) Introduction of the regulations to set up the basic PPP structure, the proper zoning, tariff
setting, and cross-subsidisation for the proposed PPP scheme.

(6) Financial Management Plan

(a) Objective
The objective of Financial Management Plan is to improve and strengthen the financial
conditions of SWM services and to support sound or sustainable operations.

(b) Planning Policy

(i) Suitable revenue should be secured for the effective operation and maintenance of SWM
services.
(ii) Cost effectiveness should be improved for the operation of SWM services.
(iii) Financial planning for SWM services should be improved.

(c) Strategy
(i) Establishing Financial Autonomy of SWM
Since the generation of general tax revenue by CCN is severely constrained and is likely
to remain for a considerable time, the Department of Environment must secure its own
revenue for the operation of SWM services by establishing a special account whose
revenue is restricted to expenditures for SWM activities only. Especially, cost accounting
system should be established for the effective solid waste management.

(ii) Increasing Revenue through Charges

The expansion of collection area is the first priority to increase revenue from waste
charges. The existing waste charging system for business establishments is necessary to
be improved, especially, the charge collection method, by raising the accuracy to measure
the volume of collected wastes. The new waste charging system for households should
take into account the willingness to pay, the affordability to pay and the operating and
management cost of solid waste management.

(iii) Increase of Budgetary Allocation for SWM

The allocation for SWM in the DoE is given low priority and budget is not secured by
direct allocation through the LATF. A thorough review of the priority of allocating the
budget is indispensable to increase the allocations for SWM and the DoE.

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(iv) Private Sector Involvement

Contracting a part of the SWM services to private companies is expected to improve cost
performance of the services as a whole and to contribute to the decrease of shortages of
funds to operate.

(7) Private Sector Involvement Promotion Plan

(a) Objective
The objective of the Private Sector Involvement Promotion Plan is to establish the optimum
PPP (Public-Private Partnership) Model for the purpose of providing the best solid waste
management services based on the optimum partnership between the public sector and the
private sector.

(b) Planning Policy

(i) Utilisation of the past experiences of success and failure of Public-Private Partnership.
(ii) Selection of the optimum Public-Private Partnership option based on comparative analysis
of the alternative options.
(iii) Further extension of concept of Public-Private Partnership (PPP) to Public-Private-People
Partnership (PPPP) with involvement of the communities.

(c) Strategy
(i) Maximisation of Benefits by PPP
The extent to which the private sector can bring benefits is reflected by the level of
competition in the sector. Usually private sector management brings a number of benefits
including:
• a more committed and innovative management;
• better management skills and more effective decision-making;
• improved resource management of assets and human resources;
• more efficient financing and management of capital investment;
• motivated workforce;
• quick management decision;
• higher labour productivity; and
• more efficient operational procedures.

(ii) Formulation of New Public-Private Partnership based on Long-Term, Stable and Win-Win
Basis
The key objective of involving the private sector is to explore a new source of capital
financing. Private sector companies should be provided an incentive to make investments
to improve the level of their services for the long-term, stable and win-win based PPP
scheme.

(8) Community Participation Promotion Plan

(a) Objective
The objective of the Community Participation Promotion Plan is to raise awareness of
residents on their cooperation in the solid waste management.

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(b) Planning Policy

(i) The Plan shall be formulated to promote a better understanding of residents through public
and school environmental education by establishing a workable implementation system
within CCN.
(ii) The Plan shall be formulated to promote more involvement of CBOs in the provision of
collection services especially in the informal settlements.

(c) Strategy
(i) New Section within the CCN
To achieve the objective, the Section of Public Awareness, Environmental Education and
Community Participation should be established to raise the awareness of the people on
SWM and to facilitate the involvement of more CBOs in the provision of collection of
solid waste.

(ii) Communications Strategy

The CCN has to inform the public of the measures to be taken to improve SWM services
in the city. A properly structured communications strategy should be proposed.

(iii) Public Environmental Education

A public environmental education and awareness programme should be carried out to
raise public awareness and involve the public in the initiatives for a better SWM in the
city.

(iv) Primary Environmental Education

The introduction of SWM in the current primary education curricula should be
implemented to make school children more aware on solid waste issues. In addition, the
development of educational material for teachers and students of primary education is
considered essential as a tool to promote environmental education and create awareness
among the educational community.

3.5 Goals of the Master Plan

The goals of the action plan of each sector of the master plan are as outlined below with prospective
target levels to be achieved by the year 2015 for the Short-Term Plan, year 2020 for the Mid-Term Plan
and year 2030 for the Long-Term Plan.

3.5.1 Collection and Transportation Plan

(1) Short-Term Plan (2011-2015)

• Increase of collection rate from the current 33% up to 50% in 2015.

• Improvement of city’s sanitary environment through the cleanup of littered wastes along the
roadsides and on vacant lots.
• Formation of three (3) private franchisees for implementation of the PPPP scheme.
• Improvement of collection and transport system through procurement of collection vehicles
and introduction of the container system.

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(2) Mid-Term Plan (2016-2020)

• Increase of collection rate up to 65% in 2020.

• Formation of six (6) franchisees for implementation of the PPPP scheme.
• Improvement of collection and transport system through procurement of collection vehicles
and introduction of the container system.

(3) Long-Term Plan (2021-2030)

• Increase of collection rate up to 100% in 2030.

• Formation of nine (9) franchisees for implementation of the PPPP scheme.
• Improvement of collection and transport system through procurement of collection vehicles
and introduction of the container system.

3.5.2 3R and Intermediate Treatment Plan

(1) Short-Term Plan (2011-2015)

• Waste reduction ratio of 5% (0% in 2009) to the potential waste discharge amount in 2015.
• Total resource recovery amount of about 180 tons per day or the equivalent ratio of about 10%
to the potential waste collection amount in 2015.

(2) Mid-Term Plan (2016-2020)

• Waste reduction ratio of 10% (5.3% in 2009) to the potential waste discharge amount in 2020.
• Total resource recovery amount of about 270 tons per day or the equivalent ratio of about
12.5% to the potential waste collection amount in 2020.

(3) Long-Term Plan (2021-2030)

• Waste reduction ratio of 10% to the potential waste discharge amount in 2030.
• Total resource recovery amount of bout 450 tons per day or the equivalent ratio of about 16%
to the potential waste collection amount in 2030.

3.5.3 Final Disposal Plan

(1) Short-Term Plan (2011-2015)

• Reduction of secondary pollution from Dandora Dumpsite by urgent improvement works on

the site.
• Preparation and commencement of construction of new sanitary landfill site at Ruai.
• Reduction of number of illegal dumpsites in the city.

(2) Mid-Term Plan (2016-2020)

• Minimisation of secondary pollution from Dandora Dumpsite by closure works on the site.
• Preparation of a post-closure land use plan for Dandora.
• Operation of an effective sanitary landfill at Ruai.
• Elimination of major illegal dumpsites in the city.

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(3) Long-Term Plan (2021-2030)

• Minimisation of adverse effects from the new landfill site by proper operation and
management.

3.5.4 Organisational Restructuring and Human Resources Development Plan

(1) Short-Term Plan (2011-2015)

• Establishment of the new public-owned and ring-fenced corporation in charge of the overall
solid waste management services by the end of 2014.
• Establishment of the preparatory organisation for the new public-owned corporation inside the
Department of Environment by the middle of 2011.
• Establishment of transparent financial management for the solid waste management services
by the new public-owned corporation by the end of 2011.
• Strengthening of the technical and managerial capacities of the candidate staff of the new
public-owned corporation with the support of external technical cooperation through
implementation of a comprehensive capacity development programme during the 5-year
period from 2011 to 2015.

(2) Mid-Term Plan (2016-2020)

• Improvement of the organisational structure of the new public-owned corporation based on

feedback of results of the mid-term performance monitoring and assessment.
• Improvement of staff capacities of the new public-owned corporation based on feedback of
results of the mid-term performance monitoring and assessment of the capacity development
programme.

(3) Long-Term Plan (2021-2030)

• Improvement of the organisational structure of the public-owned corporation based on

feedback of results of the long-term performance monitoring and assessment.
• Improvement of staff capacities of the new public-owned corporation based on feedback of
results of the long-term performance monitoring and assessment on the capacity development
programme.

3.5.5 Legal and Institutional Reform Plan

(1) Short-Term Plan (2011-2015)

• Legalisation of establishment of the new public-owned and ring-fenced corporation as well as

transparent financial management of the solid waste management services.
• Strengthening and modification of monitoring and enforcement functions of the legal
framework related to the solid waste management.
• Legalisation of simplification of the procurement and contractual process of the new
public-owned corporation.
• Legalisation of financial assistance system for the enlargement of investment on the
improvement of collection and transportation services by the private sector.

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(2) Mid-Term Plan (2016-2020)

• Selection and implemention of the optimum public-private partnership scheme through the
arrangement of a comprehensive legal framework and procedures.
• Improvement of the SWM-related Acts, Regulation and By-laws based on the feedback of the
results of the mid-term performance monitoring and assessment of the status of legal
enforcement.

(3) Long-Term Plan (2021-2030)

• Achievement of efficient legal enforcement by consolidating the SWM-related Acts,

Regulations and By-laws into the comprehensive SWM legal framework.
• Improvement of the SWM-related Acts, Regulation and By-laws based on feedback of results
of the long-term performance monitoring and assessment on the status of legal enforcement.

3.5.6 Financial Management Plan

(1) Short-Term Plan (2011-2015)

• More detailed analysis of cost of waste treatment for a more cost-oriented waste charging
system through the establishment of the cost accounting system.
• Increase of revenue of CCN/SWMPC with the establishment of the new waste charging
system for households.
• Increase of revenue with the revision of the waste charging system for business establishments
for sustainable and stable financial conditions.

(2) Mid-Term Plan (2016-2020)

• More efficient SWM service provision through the newly established independent accounting
system for SWMPC.
• Improvement of rationale and suitable relationship between waste charge and cost of waste
management with the review of the cost accounting system for SWMPC.
• Further increase of revenue with the review of the waste charging system in relation to the
level and the collection system for waste charges.

(3) Long-Term Plan (2021-2030)

• Sustainable and stable increase of revenue with the revision of the waste charging system in
relation to the level and the collection system for waste charges.
• Assurance of fair competition and suitable waste charge level for all SWM service providers
with the application of the new waste charging system.
• Improvement of collection rate of waste charge and increase of revenue with the monitoring
and supervision of the collection system of waste charges by all SWM service providers.

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3.5.7 Private Sector Involvement Promotion Plan

(1) Short-Term Plan (2011-2015)

• Establishment of efficient and reliable private sector involvement scheme for the collection
and transportation services, and the construction and management of sanitary landfill sites and
intermediate treatment facilities through the new public corporation for SWM.
• Establishment of financial assistance system for the enlargement of investment for the
improvement of the collection and transportation services by the private sector.

(2) Mid-Term Plan (2016-2020)

• Delivering services in lower income areas by the concept of cross-subsidy and introduction of
new collection service boundaries for the first three zones.
• Securing transparency and accountability of contracts and tendering process with private
service providers based on the feedback of the results of the mid-term performance monitoring
and assessment of private service providers after their 5-year operations.
• Achievement of transparency and accountability of the financial assistance to the private
sector based on the feedback of results of the mid-term performance monitoring and
assessment.

(3) Long-Term Plan (2021-2030)

• Securing transparency and accountability of contracts and tendering process with private
service providers based on feedback of results of the long-term performance monitoring and
assessment of private service providers after their 10-year operations.
• Improvement of collection and transportation services in low income areas by expansion of the
new collection service boundaries for the additional six zones.
• Achievement of transparency and accountability of the financial assistance to the private
sector based on feedback of results of the long-term performance monitoring and assessment.
• Achievement of the long-term agreement on the solid waste management among the public
sector, the private sector and communities based on the concept of public-private-people
partnership.

3.5.8 Community Participation Promotion Plan

(1) Short-Term Plan (2011-2015)

• Strengthening of coordination among CBOs, CCN and residents on SWM.

• Enhancement of knowledge of CBOs to improve their collection services.
• Enhancement of residents’ awareness to get their participation in SWM and to promote 3R.
• Commencement of collection services by CBOs with full participation of communities.
• Enhancement of knowledge of teachers and students in primary education on SWM.
• Commencement of recycling in primary schools.
• Commencement of composting activities by CBOs.

(2) Mid-Term Plan (2016-2020)

• Proper maintenance of coordination among CBOs, CCN and residents on SWM.

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• Continuation of knowledge enhancement of CBOs to improve their collection services.

• Continuation of residents’ awareness enhancement to get their participation in SWM and to
promote 3R.
• Continuation of collection services by CBOs with full participation of the communities.
• Continuation of knowledge enhancement of teachers and students in primary education on
SWM.
• Continuation of recycling in primary schools.
• Continuation of composting activities by CBOs.

(3) Long-Term Plan (2021-2030)

• Attainment of sustainable proper coordination through the establishment of a committee

composed of CBOs, CCN and residents.
• Attainment of a Proper CBO training system operated by CCN with the collaboration of
trained CBOs and NGOs.
• Attainment of a proper awareness creation system operated by CCN with the collaboration of
NGOs and resident associations.
• Attainment of a proper training system on SWM for schools teachers and students by CCN in
collaboration with KIE.
• Promotion of obligatory recycling system in all Nairobi primary schools by CCN.
• Establishment of the Compost Producers CBO Association which conjointly with CCN will
continue promoting the insertion of more CBOs in composting activities.

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CHAPTER 4. FORMULATION OF THE MASTER PLAN

4.1 Introduction
This Chapter presents the formulation of the SWM Master Plan together with the technical options and
institutional and financial arrangements. The first two sections, Section 4.2 and Section 4.3, present the
socioeconomic aspects such as population and economic projection including social conditions, and the
conditions of waste generation and composition from the present situation to the target year 2030. Based
on these basic conditions, technical approaches are analysed and evaluated to establish the three (3)
strategic components of the SWM Master Plan, namely; (1) the collection and transportation plan;
(2) the 3R and intermediate treatment plans; and (3) the final disposal plan, as discussed in Section 4.4.
The action plans for the technical options are then defined in Section 4.5, and the soft components, such
as institutional, financial and legal restructuring plans including private sector involvement promotion
and community participation promotion plans, are explained in Section 4.6 to Section 4.10.
Section 4.11 presents the urgent projects and preparatory actions that should be carried out basically by
the City Council’s own effort to improve the sanitary condition in the city to some extent. The timing
and scale of the action plans proposed in the Master Plan are shown in the plans of operation given in
Section 4.12. Finally, Section 4.13 describes the evaluation of the Master Plan in terms of technical,
environmental, social, institutional, oraganisational, economic and financial points of view. All detailed
data and analysis relevant to each Section are given in Volume 3, Supporting Report, and in
Volume 4, Data Book.

4.2 Socioeconomic Aspect

4.2.1 Population Projection

(1) Population Census Data

The latest population census was carried out by the Kenya National Census of Statistics in 2009.
However, no consolidated report on population data was published at the time of updating of the
solid waste master plan. Instead, the past population census data of Nairobi for the years 1969,
1979, 1989, 1999 and 2008 were obtained, as shown in the following Table 4.2.1. The total
population of Nairobi increased from 509,286 in 1969 to 3,038,600 in 2008. The growth rate
during the period from 1969 to 1999 is estimated to be 4.8% per annum while the growth rate from
1999 to 2008 dropped at approximately 3.5% per annum.

Table 4.2.1 Past Populations of Nairobi

Year 1969 1979 1989 1999 2008
Population 509,286 827,775 1,324,570 2,143,254 3,038,600
Source: http://www.citypopulation.de/Kenya.html: Population from 1969 to 1999
http://www.knbs.or.ke/: Population 2008; Population Projection

(2) Projection of Future Population

Analyses were made to develop the numerical analysis models from the trend line of the past
population data and the obtained analysis models, the Exponential Model and the Polynomial
Model, of which results of computation reflected or coincided closely with the past trend of

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population increase. The following Table 4.2.2 and Figure 4.2.1 show the results of population
projection together with the population projection of other representative studies. Population
projection by the Exponential Model resulted in a little over 8.2 million in 2030 and the
Polynominal Model projected the population of 5.9 million in 2030. On the other hand, the
projection of Nairobi Metro 2030 shows the population of 7.6 million in 2030 and the Master Plan
for Urban Transport in the Nairobi Metropolitan Area projected 4.2 million in 2025 which is a little
lower than that of the result of the Polynomial Model which projected 5.2 million. As a result of
comparison with the future population projections of the other studies, it was decided to adopt the
rounded figures of the Polynomial Model which show a moderate value of about 3% population
growth per annum in the future.

Table 4.2.2 Projection of Future Population and Reference Future Population

Master Plan of
Population
Urban Transport Exponential Polynomial Model:
Projected by Adopted Future
Year in Nairobi Model: y=1,216.9X2
Nairobi Metro Population*3
Metropolitan y=495,285e0.0462x +14,902X+498,390
2030*1
Area*2
2008 3,038,600 3,001,698 2,930,473 2,930,000
2009 3,143,630 3,041,510 3,040,000
2010 3,078,500 3,292,273 3,154,981 3,150,000
2011 3,447,944 3,270,886 3,270,000
2012 3,620,000 3,610,976 3,389,224 3,390,000
2013 3,781,717 3,509,996 3,510,000
2014 3,960,531 3,633,203 3,630,000
2015 3,389,900 4,147,800 3,758,842 3,760,000
2016 4,343,924 3,886,916 3,890,000
2017 4,400,000 4,549,321 4,017,424 4,020,000
2018 4,764,431 4,150,365 4,150,000
2019 4,989,711 4,285,740 4,290,000
2020 5,225,644 4,423,549 4,420,000
2021 5,472,733 4,563,792 4,560,000
2022 5,360,000 5,731,505 4,706,468 4,710,000
2023 6,002,512 4,851,578 4,850,000
2024 6,286,334 4,999,123 5,000,000
2025 4,176,400 6,583,576 5,149,100 5,150,000
2026 6,894,873 5,301,512 5,300,000
2027 6,360,000 7,220,889 5,456,358 5,460,000
2028 7,562,320 5,613,637 5,610,000
2029 7,919,896 5,773,350 5,770,000
2030 7,560,000 8,294,379 5,935,497 5,940,000
*1
Source: Population in 2008 was obtained from the population projection of Kenya National Census of Statistics.
Population from 2012 to 2030 was obtained from the population projection of Nairobi Metro 2030 by the
Ministry of Nairobi Metropolitan Development.
*2
JICA: The Study of Master Plan for Urban Transport in the Nairobi Metropolitan Area, Final Report,
March 2006, pp. 11-15.
*3
Rounded result of Polynomial Model by ten thousand.

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Predicted Population by Nairobi Metro 2030*1

Exponential Model: y=495,285e0.0462x
Population Polynomial Model: y=1,216.9X2+14,902X+498,390
Master Plan for Urban Transport in the Nairobi Metropolitan Area*2

9,000,000

8,000,000

7,000,000

6,000,000

5,000,000

4,000,000

3,000,000

2,000,000

1,000,000

-
2008

2009

2010

2011

2012

2013

2014

2015

2016

2017

2018

2019

2020

2021

2022

2023

2024

2025

2026

2027

2028

2029

2030
Year

Figure 4.2.1 Projection of Future Population and Reference Future Population

(3) Future Population in Divisions and in Proposed Waste Collection Zones

The total population of CCN has been computed by the Polynominal Model as aforementioned.
The future population of each Division of CCN and the proposed waste collection zones were
estimated in proportion to the ratio to total CCN population of each sub-location obtained from the
population census in 1999. Table 4.2.3 shows the population of the nine divisions of CCN
including Starehe/CBD, and Table 4.2.4 shows the population of each waste collection zone
proposed under the SWM Master Plan. Additionally, the location of each CCN division in
Table 4.2.3 and the waste collection zones in Table 4.2.4 are shown in Figure 4.2.2.

Table 4.2.3 Future Population of CCN Divisions

Year
CCN 2009 2010 2015 2020 2025 2030
Divisions
Starehe/CBD 333,243 345,301 412,169 484,517 564,539 651,139
Makadara 280,041 290,174 346,367 407,165 474,412 547,186
Kamkunji 286,817 297,195 354,747 417,017 485,890 560,425
Kasarani 480,733 498,127 594,590 698,960 814,399 939,326
Embakasi 616,841 639,161 762,935 896,855 1,044,978 1,205,275
Westlands 294,475 305,130 364,219 428,151 498,864 575,388
Dagoretti 341,139 353,483 421,935 495,998 577,916 666,567
Langata 406,712 421,428 503,038 591,337 689,002 794,693
Total 3,040,000 3,150,000 3,760,000 4,420,000 5,150,000 5,940,000

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Table 4.2.4 Future Population of Proposed Waste Collection Zones

Year
2009 2010 2015 2020 2025 2030
Proposed
Waste
Collection Zone
Zone 1 205,461 212,896 254,123 298,730 348,068 401,461
Zone 2 205,225 212,651 253,830 298,386 347,667 400,998
Zone 3 304,005 315,005 376,006 442,007 515,009 594,010
Zone 4 164,606 170,562 203,591 239,328 278,855 321,631
Zone 5 183,844 190,496 227,385 267,299 311,446 359,221
Zone 6 205,823 213,271 254,571 299,256 348,681 402,168
Zone 7 173,120 179,385 214,123 251,708 293,280 338,268
Zone 8 156,051 161,698 193,011 226,891 264,363 304,916
Zone 9 208,151 215,683 257,450 302,640 352,624 406,716
CCN/SWMPC
1,233,714 1,278,355 1,525,909 1,793,755 2,090,008 2,410,611
Zone
Total 3,040,000 3,150,000 3,760,000 4,420,000 5,150,000 5,940,000

Figure 4.2.2 Location Map of CCN Divisions and Proposed Waste Collection Zones

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4.2.2 Economic Projection

(1) Population of Kenya

Sine there is no available projection of population in Kenya, the future population was based on the
data provided from the Kenya National Bureau of Statistics (KNBS) for the period from 2000 to
2008 and the “World Economic Data Base, 2010” prepared by the International Monetary
Fund (IMF) for the period from 2010 to 2015. The projection for 2016 to 2030 was made by setting
up the average annual growth rates during the period from 2015 to 2020 and from 2020 to 2030
respectively.
The results of projection are shown in the table below. The population of Kenya would increase
from 39,710 thousand to 45,408 thousand during the period from 2015 to 2025 with the average
annual growth rate of 1.4% and to 48,438 from 42,569 thousand to 48,438 thousand during the
period from 2020 to 2030 with the average annual growth rate of 1.3% respectively.

Table 4.2.5 Projection of Population, GDP and Per Capita of Kenya

Population GDP at Constant Prices Per Capita GDP
Year
(1,000 Persons) of 2000 (Billion KSh) (KSh)
2000 30,100 967.8 3,215.4
2001 30,865 1,013.6 3,283.9
2002 31,517 1,016.6 3,225.6
2003 32,165 1,044.9 3,248.6
2004 32,808 1,093.2 3,332.0
2005 33,445 1,157.5 3,460.8
2006 34,046 1,231.0 3,615.8
2007 34,653 1,316.8 3,800.1
2008 35,265 1,336.7 3,790.4
2009 35,884 1,364.8 3,803.4
2010 36,508 1,420.9 3,891.9
2011 37,134 1,503.0 4,047.4
2012 37,770 1,597.8 4,230.2
2013 38,410 1,701.5 4,429.9
2014 39,060 1,812.8 4,641.0
2015 39,710 1,931.3 4,863.4
2016 40,266 2,056.8 5,108.1
2017 40,830 2,190.5 5,365.0
2018 41,401 2,332.9 5,634.8
2019 41,981 2,484.5 5,918.2
2020 42,569 2,646.0 6,215.9
2021 43,122 2,812.7 6,522.7
2022 43,683 2,989.9 6,844.6
2023 44,250 3,178.3 7,182.5
2024 44,826 3,378.5 7,537.0
2025 45,408 3,591.4 7,909.0
2026 45,999 3,817.6 8,299.4
2027 46,597 4,058.1 8,709.0
2028 47,203 4,313.8 9,138.9
2029 47,816 4,585.6 9,590.0
2030 48,438 4,874.4 10,063.3
Average Annual Growth Rate (%)
2000-2009 1.97 3.89 1.88
2009-2015 1.70 5.96 4.18
2015-2020 1.40 6.50 5.03
2020-2030 1.30 6.30 4.94
Source: Figures during 2000-2015 are based on the Statistical Year Book of Kenya, 2009, Central
Bureau of Statistics Kenya (CBSK) and the "World Economic Outlook", 2010, IMF

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(2) GDP of Kenya

Since there is no available and official projection of gross domestic product (GDP) in Kenya, the
target annual growth rate of GDP was set as 10% in Kenya Vision 2030, which is rather ambitious
and depends on the condition of future activities of each industrial sector. Inasmuch as the
methodology of GDP projection is basically the same as that of the GDP of Kenya, the projection of
future GDP was based on the Kenya National Bureau of Statistics (KNBS) for the period from 2000
to 2008 and the “World Economic Data Base, 2010” prepared by IMF for the period from 2010 to
2015. The projection from 2016 to 2030 was made by setting up the average annual growth rates
during the period from 2015 to 2020 and from 2020 to 2030 respectively.
The results of projection are also shown in the preceding Table 4.2.5. The GDP of Kenya would
increase from KSh 1,931.3 billion to KSh 2,646.0 billion during 2015 to 2025 at the constant price
of year 2000 at the average annual growth rate of 6.5% and to KSh 3,591.4 billion at the average
annual growth rate of 6.3% respectively. From the results of projection of population and GDP, the
Per Capita GDP (PCD) was figured out. The PCD would increase from KSh 4,863.4 to
KSh 7,909.0 from 2015 to 2020 at the average annual growth rate of 5.03% and would increase
from KSh 6,215.9 in 2020 to KSh 10,063.3 in 2030 at the average annual growth rate of 4.94%
respectively.

(3) GRDP of Nairobi City

(a) Population of Nairobi
The population projection for Nairobi City was conducted through building up by the
regression model based on the discrete historical date during the 1960’s to 2000’s. The
detailed methodology is described in Section 4.2.1.

(b) GRDP of Nairobi City

The projection of gross regional domestic product (GRDP) of Nairobi City was conducted on
the following assumptions:
Scenario 1
There have been some discussions among various sources regarding the contribution ratio of
the GRDP of Nairobi City to the GDP of Kenya such as 45%, 60% and so on. However, these
figures seem to be unofficial. Therefore, in this study, the share of GRDP of Nairobi City is set
tentatively at 45% in the year 2010. Besides, it is assumed that the growth rate of Per Capita
GRDP of Nairobi City is the same as that of the Per Capita GDP of Kenya.
Scenario 2
The share of GRDP of Nairobi City is set tentatively at 20% in the year of 2010. It is also
assumed that the growth rate of the Per Capita GRDP Nairobi City is the same as that of the Per
Capita GDP of Kenya.

(c) Results of Projection

The results of projection are shown in Tables 4.2.6 and 4.2.7 and in Figures 4.2.2 and 4.2.3.
The population projection is common to each scenario. The population is expected to increase
at the growth rate of 3.31% from 3,759 thousand to 4,424 thousand for the period from 2015 to
2020 and increase at the growth rate of 2.88% to 5,940 thousand in 2030.
The results of Scenario 1 show that the GRDP would increase from KSh 952.4 billion to
KSh 1,432.4 billion during 2015 to 2020 and increase to KSh 3,112.0 billion in 2030. The Per

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Capita GRDP was figured out to increase from KSh 25,338.6 to KSh 32,384.7 at the growth
rate of 5.03% and increase to KSh 52,429.8 in 2030 at the growth rate of 4.94%. The growth
rates are the same as of those of the GDP of Kenya. The share of GRDP to GDP is expected to
increase from 45% in the year 2010 to 63.8% in the year 2030. However, there is apprehension
that the ratio of GRDP to GDP will be constant as 5.2 times, which is automatically calculated,
and this is an extremely high rate to be assumed as the possible rate. Therefore, Scenario 1 is
considered to be not practicable as the projection.
The GRDP is expected to increase from KSh 424.1 billion to KSh 637.9 billion during 2015 to
2020 and increase to KSh 5,935 billion in 2030. The Per Capita GRDP is figured out to
increase from KSh 11,283.2 to KSh 14,420.8 at the growth rate of 5.03% and increase to
Khs 23,346.9 in 2030 at the growth rate of 4.94%. The share of GRDP to GDP is expected to
increase from 20% in the year 2010 to 28.4% in the year 2030. The rate of GRDP to GDP is
figured out to be constant as 2.3 times, which is automatically calculated as in Scenario 1. This
rate is lower than that of Scenario 1 and it is considered to be more practicable than that of
Scenario 1.

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Table 4.2.6 Projection of GDP and Per capita GDP of Kenya (Scenario 1)
Share of Ratio of Per
GRDP at
Per Capita GRDP to Capita GRDP
Population Constant Prices
Year GRDP GDP of to Per Capita
(1,000 Person) of 2000
(KSh) Kenya GDP
(Billion KSh)
(%) (Times)
2000 2,130 356.8 16,752.3 36.9 5.2
2001 2,221 380.1 17,109.2 37.5 5.2
2002 2,315 389.1 16,805.4 38.3 5.2
2003 2,412 408.2 16,925.4 39.1 5.2
2004 2,511 435.8 17,359.7 39.9 5.2
2005 2,612 471.0 18,030.8 40.7 5.2
2006 2,716 511.6 18,838.2 41.6 5.2
2007 2,822 558.7 19,798.5 42.4 5.2
2008 2,930 578.7 19,748.0 43.3 5.2
2009 3,040 602.7 19,815.6 44.2 5.2
2010 3,150 639.7 20,276.8 45.0 5.2
2011 3,270 689.7 21,087.0 45.9 5.2
2012 3,390 747.0 22,039.5 46.8 5.2
2013 3,510 810.1 23,079.5 47.6 5.2
2014 3,630 878.5 24,179.8 48.5 5.2
2015 3,760 952.4 25,338.6 49.3 5.2
2016 3,890 1,034.4 26,613.0 50.3 5.2
2017 4,020 1,122.9 27,951.5 51.3 5.2
2018 4,150 1,218.4 29,357.4 52.2 5.2
2019 4,290 1,321.5 30,833.9 53.2 5.2
2020 4,420 1,432.6 32,384.7 54.1 5.2
2021 4,560 1,550.9 33,983.2 55.1 5.2
2022 4,710 1,678.4 35,660.5 56.1 5.2
2023 4,850 1,815.5 37,420.7 57.1 5.2
2024 5,000 1,963.0 39,267.7 58.1 5.2
2025 5,150 2,121.7 41,205.9 59.1 5.2
2026 5,300 2,292.4 43,239.7 60.0 5.2
2027 5,460 2,475.8 45,374.0 61.0 5.2
2028 5,610 2,672.9 47,613.6 62.0 5.2
2029 5,770 2,884.6 49,963.7 62.9 5.2
2030 5,940 3,112.0 52,429.8 63.8 5.2
Average Annual
Growth Rate (%)
2000-2009 4.04 6.00 1.88 - -
2009-2015 3.59 7.93 4.18 - -
2015-2020 3.31 8.51 5.03 - -
2020-2030 2.98 7.76 4.64 - -
Source: JICA Survey Team

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Table 4.2.7 Projection of GRDP and Per capita GRDP of Nairobi City (Scenario 2)
Share of Ratio of Per
GRDP at
Per Capita GRDP to Capita GRDP
Population Constant Prices
Year GRDP GDP of to Per Capita
(1,000 Person) of 2000
(KSh) Kenya GDP
(Billion KSh)
(%) (Times)
2000 2,130 158.9 7,459.7 16.4 2.3
2001 2,221 169.2 7,618.7 16.7 2.3
2002 2,315 173.3 7,483.4 17.0 2.3
2003 2,412 181.8 7,536.9 17.4 2.3
2004 2,511 194.1 7,730.2 17.8 2.3
2005 2,612 209.7 8,029.1 18.1 2.3
2006 2,716 227.8 8,388.6 18.5 2.3
2007 2,822 248.8 8,816.2 18.9 2.3
2008 2,930 257.7 8,793.7 19.3 2.3
2009 3,040 268.4 8,823.8 19.7 2.3
2010 3,150 284.9 9,029.2 20.0 2.3
2011 3,270 307.1 9,390.0 20.4 2.3
2012 3,390 332.6 9,814.1 20.8 2.3
2013 3,510 360.7 10,277.3 21.2 2.3
2014 3,630 391.2 10,767.2 21.6 2.3
2015 3,760 424.1 11,283.2 22.0 2.3
2016 3,890 460.6 11,850.7 22.4 2.3
2017 4,020 500.0 12,446.7 22.8 2.3
2018 4,150 542.6 13,072.8 23.3 2.3
2019 4,290 588.4 13,730.3 23.7 2.3
2020 4,420 637.9 14,420.8 24.1 2.3
2021 4,560 690.6 15,132.6 24.6 2.3
2022 4,710 747.4 15,879.5 25.0 2.3
2023 4,850 808.4 16,663.3 25.4 2.3
2024 5,000 874.1 17,485.8 25.9 2.3
2025 5,150 944.8 18,348.9 26.3 2.3
2026 5,300 1,020.8 19,254.6 26.7 2.3
2027 5,460 1,102.5 20,204.9 27.2 2.3
2028 5,610 1,190.2 21,202.2 27.6 2.3
2029 5,770 1,284.5 22,248.7 28.0 2.3
2030 5,940 1,385.8 23,346.9 28.4 2.3
Average Annual
Growth Rate
(%)
2000-2009 4.04 6.00 1.88 - -
2009-2015 3.59 7.93 4.18 - -
2015-2020 3.31 8.51 5.03 - -
2020-2030 2.98 7.76 4.64 - -
Source: JICA Survey Team

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3,500.0 7,000

Population (1,000 Person)

3,000.0 GRDP (Scenario1) 6,000

GRDP (Scenario2)

ks Population (1,000 Persons)s

2,500.0 5,000
GRDP (Billion Ksh)

2,000.0 4,000

1,500.0 3,000

1,000.0 2,000

500.0 1,000

0.0 -
2000
2001
2002
2003
2004
2005
2006
2007
2008
2009
2010
2011
2012
2013
2014
2015
2016
2017
2018
2019
2020
2021
2022
2023
2024
2025
2026
2027
2028
2029
2030
Figure 4.2.3 Projection of Population and GRDP of Nairobi City

60,000.0 7,000

Population (1,000 Person)

Per Capita GRDP (Scenario 1) 6,000
50,000.0 Per Capita GRDP (Scenario 2)
Per Capita GRDP (Ksh)

ks Population (1,000 Persons)s

5,000
40,000.0

4,000

30,000.0

3,000

20,000.0
2,000

10,000.0
1,000

0.0 -
2000
2001
2002
2003
2004
2005
2006
2007
2008
2009
2010
2011
2012
2013
2014
2015
2016
2017
2018
2019
2020
2021
2022
2023
2024
2025
2026
2027
2028
2029
2030

Figure 4.2.4 Projection of Population and Per Capita GRDP of Nairobi City

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4.2.3 Social Consideration

The collection of waste is quite satisfactory in high and middle income areas where the private sector
provides the services. However, in the low and slum areas the rate of collection is low due to the lack or
poor collection service provided by CCN or the private collectors, which is the reason why the residents
opt to discharge their waste anywhere resulting in a high negative impact to the environment and the
health of the population living in these areas.
It was noted that CBOs play an important role on providing primary collection of garbage in the low and
slum areas. It is opportune to point out that in many places of the low and slum areas the road condition
is bad or there is no access into the area. Under these circumstances, only the CBOs can provide the
collection services and for this reason the JICA Survey Team focused its attention to the development of
these groups to increase the collection ratio which is still low in these areas.

(1) CBOs’ Activities

The major findings of the survey on these groups are as follows:
(a) CBOs provide mainly primary collection services of garbage door-to-door to households
located in the low and slum areas.
(b) Once collected the garbage is taken to the collection point where some CBOs recover
valuable materials and the residual is transported by CCN to the disposal site.
(c) The CBOs are requesting CCN to allocate more accessible collection points and to
construct facilities for recycling and storage of the valuables.
(d) To improve the current working condition of CBOs, increase the rate of collection in the
low and slum areas, and improve their recycling activities, these groups need assistance
from CCN in the provision of basic material and equipment and the related training on
SWM which must include training on environment, recycling, safe disposal, financial
management, laws, institutions, etc.
(e) CCN charges a fee from the CBOs for the transportation of waste to the disposal site. The
criteria for establishing the fee need to be regulated.
(f) Residents are sometimes reluctant to pay the charges causing financial difficulty to the
CBOs.
(g) The development of environmental education programmes for the residents is considered
fundamental for awareness-raising in order to get their collaboration on SWM. In this
regard, CCN must organise CBO workshops at the grassroots level for awareness creation
in the communities. The education programme should include, but not limited to, aspects
of environmental pollution by solid waste and its relation to public health, the importance
of cost-sharing in SWM, the management of waste at source, and the legal and institutional
issues.
(h) CCN needs to improve its relationship with CBOs; likewise, CCN should control the
operation of CBOs to promote good service and overcome the negative perception given
by costumers. In this sense, it is indispensable to create the Unit for Public Awareness,
Environmental Education and Community Participation to deal with the CBOs (main
tasks: licensing, training, supervision) and the communities to get their involvement in
SWM.

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(2) Waste Pickers

Waste picking is a response to poverty, a fundamental component of the Kenyan recycling industry,
a major generator of income for poorer households, and a key factor in reducing the amount of
waste to be disposed by society. CCN had listed the names of about 600 waste pickers at Dandora
Dumpsite as of April 2010 although the number of waste pickers at the Dumpsite is estimated from
1,200 to 1,500. (see the list of waste pickers in Section G of Volume 4, Data Book). The waste
pickers are divided into five youth groups at present. However, details of their activities are not
well grasped by CCN. Accordingly, it will be necessary to conduct a detailed study on waste
pickers in the feasibility stage in order to incorporate them in any re-structuring plan.

(3) Strategic Implications

The strategic implications of these points are summarised below.

(a) Waste Management by CBOs in the Low Income and Slums Areas
Significant points are:
(i) Single-issue objectives (such as improved waste management) combined with centralised
solutions are often inappropriate; integrated approaches involving the communities
themselves are more appropriate.
(ii) The starting point for strategy planning is the understanding of existing programmes and
activities of NGOs and CBOs, and of strategies to be developed in collaboration with these
groups.
(iii) Since waste is a principal source of income for people living in the informal areas, the role
of government should be to facilitate the creation of community-based schemes rather than
support centralised projects in direct competition with them.
(iv) Micro-enterprises offer an important opportunity for improving the effectiveness of
community-based initiatives.
(b) Management and Control of Waste Pickers
Policy responses to waste picking can be addressed specifically towards door-to-door
collectors, city site waste pickers and Dandora Dumpsite waste pickers.
(i) Door-to-door collectors are not perceived to be a problem, and no policy actions are
proposed.
(ii) City site waste pickers are perceived to be a nuisance, but effective collection services
should reduce the problem considerably. Their forcible removal is not recommended as
this will merely cause social tensions elsewhere.
(iii) Closure of the Dandora site will remove the sole source of income from site-based waste
pickers, most of whom will want to shift to the new landfill site. Denying waste pickers’
access to the new site is likely to be expensive and socially undesirable. Policy should be
directed towards managing the activities of waste pickers on the site.
(iv) It is recommended that waste pickers should not be permitted to reside at the new site.
(v) The Recovery Material Facility (RMF) that is intended to be constructed after closure of
Dandora Dumpsite should be encouraged to employ some of the waste pickers currently
working at the site. Other waste pickers who live in the slum areas could be incorporated to
work with the CBOs operating at those places. In this sense, it is proposed to carry out a
detailed study on waste pickers in the city in order to formulate a mitigation plan for them.

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(4) Recommendations
The Unit for Public Awareness, Environmental Education and Community Participation (PEC)
within the Environmental Planning and Management Section of CCN headed by an Environmental
Manager should be created.
Essential areas of work are:

(a) The formation of new CBOs in low income and slum areas and establishment of links with
relevant existing NGOs and CBOs;
(b) The control of CBO activities;
(c) The development of training programmes for CBOs;
(d) The development of educational programmes addressed to the people in order to create
awareness on their involvement in SWM; and
(e) The control of waste pickers’ activities.

4.3 Future Waste Generation and Composition Analysis

4.3.1 General
Future solid waste generation amount by the year 2030 is projected based on the results obtained in the
field survey. The projection for years 2009, 2015, 2020, 2025 and 2030 are presented in this section.
The following considerations were taken in the updating of future waste amounts:

• Population;
• Area;
• Income Group; and
• Gross Domestic Product.

4.3.2 Population Projection in Nairobi City

The most direct influence on waste generation is the change in population. As described in
Subsection 4.2.1, the annual population of Nairobi City for the planning period was estimated, as shown
in Table 4.3.1

Table 4.3.1 Forecast of Future Population of Nairobi City (Unit: 103 person)
Year 2009 2015 2020 2025 2030
High Income 397 491 578 673 776
Middle Income 1,066 1,319 1,550 1,807 2,084
Low Income 1,576 1,950 2,292 2,670 3,080
Total 3,040 3,760 4,420 5,150 5,940
Source: JICA Survey Team, 2010

4.3.3 Relationship between Gross Domestic Product (GDP) and Waste Discharge
GDP is one of the important indicators which may represent levels of social welfare, industrial
technology and import of goods. The growth rate in GDP is thus expected to have a larger impact on the

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waste amount per capita of developing countries than the developed countries and it will also
remarkably result in changes in the composition of waste at a certain welfare level.
Based on the JICA Study on Integrated Solid Waste Management in 1998, there is a correlation between
the waste increase rate per capita and the growth rate in GDP per capita. Therefore, for updating the
study, 0.5% is also assumed as the increase rate per capita of waste generation.

4.3.4 Assumptions in the Projection of Future Waste Generation Amount

For the projection in the different generation sources of wastes, the conditions for estimation are as set
out below.

(1) Residential Waste (Domestic Waste)

The data on waste generation amount per capita was obtained in the field survey. Waste discharge
amount is calculated by subtracting self-disposal amount from generation amount. The
self-disposal amount is estimated based on the interview conducted with the Inspectors of the
respective divisions who manage the waste collection system within the city. Then the percentage
of self-disposal amount in each area is verified from the Head of the Solid Waste Collection under
the Department of Environment. The waste discharge amount per capita is assumed to increase
according to the 0.5% growth rate in GDP per capita, the same as the assumption used in the 1998
JICA Integrated SWM Master Plan for Nairobi City.

(2) Commercial Waste (Restaurant, Hotel, Shop, etc.)

Commercial waste generation is projected based on the number of establishments located in each of
the eight (8) divisions of the city: Starehe, Makadara, Kamkunji, Kasarani, Embakasi, Westlands,
Dagoretti and Langata. The increase of waste generation is in proportion to the increase in
population. The projected waste generation amount of commercial establishments is about 25% of
household waste. The projected waste generation amount of commercial and other establishments
is also distributed among the nine (9) operational zones and the CCN/SWMPC-Zone [see
Section 4.9.1(3), pages 4-134 to 4-136] in proportion to the coefficient derived from the relation
between the division-based population and the zone-based population. The amount of waste
projected for each zone as of 2010 was estimated, as shown in Figure 4.3.1.

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Figure 4.3.1 Amount of Waste Projected for Each Zone as of 2010

(3) Market Waste

Market waste generation is also forecast based on the field survey. The waste generation in each
market will increase based on the increase of population ratio. At present, there are forty-four (44)
markets within Nairobi City.

(4) Road Waste

The generation amount of road waste is projected based on the field survey. The generation amount
will not increase and it is computed based on the length of road for sweeping service. The waste
generators of road waste come from the residences and establishments. For estimation purposes,
road waste generation in each zone is computed but in the total computation of waste generation in
the whole city, the amount is not added considering that the amount is already included in the
domestic and commercial wastes.

4.3.5 Projection of Waste Amount Generation

Based on the assumptions above, the projection of waste amount in each waste generator is as discussed
below.

(1) For domestic waste, the projected waste generation in each zone is shown in Table 4.3.2.

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Table 4.3.2 Projection of Household Waste in Nairobi City (ton/day)

Zone 2009 2015 2020 2025 2030
Zone 1 100 127 153 183 217
Zone 2 97 124 149 178 211
Zone 3 81 104 125 149 176
Zone 4 141 179 216 258 305
Zone 5 95 121 146 174 206
Zone 6 106 135 163 194 230
Zone 7 85 109 131 157 185
Zone 8 74 94 114 136 160
Zone 9 96 122 147 176 208
CCN/SWMPC Zone 444 588 681 814 962
Total 1,318 1,747 2,025 2,419 2,860
Source: JICA Survey Team, 2010

(2) For commercial waste, the projection of waste generation in each zone is shown in Table 4.3.3.
Table 4.3.3 Projection of Commercial Waste in Nairobi City (ton/day)
Zone 2009 2015 2020 2025 2030
Zone 1 26 33 39 47 56
Zone 2 16 21 25 30 35
Zone 3 20 26 31 37 43
Zone 4 33 42 51 61 72
Zone 5 11 14 16 20 23
Zone 6 12 15 18 22 26
Zone 7 21 26 33 39 46
Zone 8 26 32 40 48 57
Zone 9 66 81 102 122 144
CCN/SWMPC Zone 208 255 319 382 451
Total 439 538 675 806 953
Source: JICA Survey Team, 2010

(3) For road sweeping waste, the result of the projection of waste generation is shown in Table 4.3.4.
As mentioned above, the amount of waste generation is projected not to increase every year and is
not added to the total amount of waste generation in Nairobi City.
Table 4.3.4 Projection of Road Sweeping Waste in Nairobi City (ton/day)
Zone 2009 2015 2020 2025 2030
Zone 1 10 10 10 10 10
Zone 2 1 1 1 1 1
Zone 3 3 3 3 3 3
Zone 4 2 2 2 2 2
Zone 5 2 2 2 2 2
Zone 6 2 2 2 2 2
Zone 7 9 9 9 9 9
Zone 8 4 4 4 4 4
Zone 9 8 8 8 8 8
CCN/SWMPC Zone 18 18 18 18 18
Total 60 60 60 60 60
Source: JICA Survey Team, 2010

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(4) For market waste, the projected waste amount generation is shown in Table 4.3.5.
Table 4.3.5 Projection of Market Waste in Nairobi City (ton/day)
Zone 2009 2015 2020 2025 2030
Zone 1 8 10 12 14 16
Zone 2 6 7 9 10 12
Zone 3 0 0 0 0 0
Zone 4 11 13 15 18 21
Zone 5 0 0 0 0 0
Zone 6 4 5 6 7 8
Zone 7 2 2 3 3 4
Zone 8 17 20 24 28 32
Zone 9 21 25 30 35 40
CCN/SWMPC Zone 23 28 33 38 44
Total 90 111 131 152 176
Source: JICA Survey Team, 2010

To summarise the above projected results, the projection of total waste amount in Nairobi City is as
shown in Table 4.3.6 and Figure 4.3.2.
Table 4.3.6 Projection of Total Waste Amount Generation in Nairobi City (ton/day)
Zone 2009 2015 2020 2025 2030
Residential 1,318 1,747 2,025 2,419 2,860
Commercial 439 538 675 806 953
Road (60) 60 60 60 60
Market 90 111 131 152 176
Total 1,848 2,352 2,831 3,378 3,990
Note: Road sweeping waste amount is included in household and commercial wastes.

4,500
4,000
3,500
3,000 Market
2,500 Road
2,000 Commercial
Residential
1,500
1,000
500
0
Y2009 Y2015 Y2020 Y2025 Y2030

Figure 4.3.2 Projection of Total Waste Amount in Nairobi City

In comparison with the projection in the JICA Integrated Solid Waste Master Plan of 1998 for Nairobi
City, the projected waste amount generation in 2009 is lower than the projected waste generation in this
previous study. This is because of the growth rate considered and used in the prediction of both the 1998
and the current study. The rate in the previous study was set up higher in consideration of the high
economic growth of Kenya and the world during that time. However, both studies have the same trend
of result, that the highest amount of wastes generated come from the residential areas followed by those
coming from the commercial establishments. The amount of commercial wastes has greater value in the
current study because a more accurate number of establishments was gathered and used in the
computation. (See Figure 4.3.3 and Figure 4.3.4 for the comparison of the previous and current study
about the estimated per capita waste generation amount and projected waste amount, respectively.)

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Estimated Per Capita Waste Generation Amount (kg/day)

0.8

0.75

Per Capita Waste Generation Amount (kg/day

0.7

0.65

0.6

0.55

0.5

0.45

0.4

0.35

0.3
M/P-98- M/P-98-
2009 2010 2015 2020 2025 2030
1997 2008
Hiigh Income Group 0.621 0.624 0.640 0.656 0.672 0.689
Middle Income Group 0.474 0.476 0.488 0.500 0.513 0.526
Low Income Group 0.360 0.361 0.370 0.380 0.389 0.399
Hiigh Income Group 0.654 0.763
Middle Income Group 0.595 0.694
Low Income Group 0.565 0.659
Weighted Average (Domestic) 0.434 0.436 0.447 0.458 0.470 0.482
Weighted Average (Domestivc+Commercial) 0.542 0.545 0.559 0.573 0.587 0.602

Figure 4.3.3 Estimated Per Capita Waste Generation Amount (kg/day)

Projected Waste Amount (ton/day)

6000

5000
Waste Amount (ton/day)

4000

3000

2000

1000

0
M/P-98- M/P-98-
2009 2010 2015 2020 2025 2030
1997 2008
Domestic & Commercial Waste Generation 1,758 1,831 2,240 2,700 3,225 3,814
Amount (ton/day)
Market Waste Generation Amount (ton/day) 90 93 111 131 152 176
Total Waste Generation Amount (ton/day) 1,848 1,924 2,352 2,831 3,378 3,990
Potential Waste Dischage Amont (Before 1,673 1,742 2,129 2,563 3,058 3,611
Recovery) (ton/day)
Potential Waste Collection Amount (ton/day) 1,600 1,666 1,867 2,138 2,484 2,872
Target Waste Collection Amount (ton/day) 609 634 911 1,381 2,076 2,872
Target Waste Disposal Amount (ton/day) 597 621 893 1,353 2,035 2,815
Population (x 1000) 3,040 3,150 3,760 4,420 5,150 5,940
Total Waste Generation Amount (ton/day)- 1,426 2,730
M/P-98

Figure 4.3.4 Comparison of Projected Waste Amount (ton/day)

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4.3.6 Projection of Future Waste Flow

Based on the assumptions and projections above, the projections of waste flow up to year 2030 are as
shown in Figure 4.3.5 to Figure 4.3.9.

Population in Nairobi 3,150,000

Population in Self-disposal Area 307,000 Population in Collection Area 2,843,000

1,831 Domestic & Establishment wastes 1,924 Waste Generation Amount in Nairobi
1,373 Residentail Waste
458 Commercial Waste
(60) Road Waste
93 Market Waste
Note: Road sweeping waste amount is include in Domestic & Establishment
182 wastes
182 Waste Generation Amount in Self-disposal Area
10% Avg. Self-disposal Ratio(Ratio to Domestic & Establishments)

1,649 Potential Waste Discharge Amount (Domestic & Establishment wastes)

0 Waste Reduction at Sources

0.0% Target Waste Reduction Ratio (%)

66 Recovery of Recyclable Materials by Junk Shops in town

Recovery through Composting of Biodegradable by Resident, CBOs & Pilot Plant

11 Composting by House, Community and CBOs
0 Pilot Compost Plant (t/d)
11 Total Recovery of Biodegradable Waste

93 Market Waste

1,666 Potential Waste Collection Amount

38% Target Waste Collection Ratio in Collection Service Area(%)
62% Uncollected Waste Amount Ratio(%)
634 Target Waste Collection Amount
1,032 Uncollected Waste Amount in Collection Service Area

634 Target Waste Collection Amount

6 Recovery Amount by Collection Crew and at MRF(s)

1% Assumed Waste Recovery Ratio by Collection Crew and at MRF(s))

628 Waste Amount Transported to Waste Disposal Site(s))

6 Recovery at Waste Disposal Site(s))

1% Assumed Waste Recovery Ratio at Disposal Sites

621 Waste Disposal Amount

Summary of Waste Reduction, Recovery and Diversion (t/day)

Material Recovery Amount 79 4.7%
Biodegradable Recovery Amount 11 0.6%
Total Waste Recovery Amount 89 5.3%
Waste Reduction Amount at Sources 0 0.0%
Waste Diversion Amount 89 5.3%

Figure 4.3.5 Future Waste Flow in Nairobi City (Year 2010)

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Population in Nairobi 3,760,000

Population in Self-disposal Area 367,000 Population in Collection Area 3,393,000

2,240 Domestic & Establishment wastes 2,351 Waste Generation Amount in Nairobi
1,680 Residentail Waste
560 Commercial Waste
(60) Road Waste
111 Market Waste
Note: Road sweeping waste amount is include in Domestic & Establishment
222 wastes
222 Waste Generation Amount in Self-disposal Area
10% Avg. Self-disposal Ratio(Ratio to Domestic & Establishments)

2,018 Potential Waste Discharge Amount (Domestic & Establishment wastes)

101 Waste Reduction at Sources

5.0% Target Waste Reduction Ratio (%)

100 Recovery of Recyclable Materials by Junk Shops in town

Recovery through Composting of Biodegradable by Resident, CBOs & Pilot Plant

21 Composting by House, Community and CBOs
40 Pilot Compost Plant (t/d)
61 Total Recovery of Biodegradable Waste

111 Market Waste

1,867 Potential Waste Discharge Amount

49% Target Waste Collection Ratio in Collection Service Area(%)
51% Uncollected Waste Amount Ratio(%)
911 Target Waste Collection Amount
956 Uncollected Waste Amount in Collection Service Area

911 Target Waste Collection Amount

9 Recovery Amount by Collection Crew and at MRF(s)

1% Assumed Waste Recovery Ratio by Collection Crew and at MRF(s))

902 Waste Amount Transported to Waste Disposal Site(s))

9 Recovery at Waste Disposal Site(s))

1% Assumed Waste Recovery Ratio at Disposal Sites

893 Waste Disposal Amount

Summary of Waste Reduction, Recovery and Diversion (t/day)

Material Recovery Amount 118 6.3%
Biodegradable Recovery Amount 61 3.3%
Total Waste Recovery Amount 180 9.6%
Waste Reduction Amount at Sources 101 5.0%
Waste Diversion Amount 280 14.6%

Figure 4.3.6 Future Waste Flow in Nairobi City (Year 2015)

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Population in Nairobi 4,420,000

Population in Self-disposal Area 431,000 Population in Collection Area 3,989,000

2,700 Domestic & Establishment wastes 2,831 Waste Generation Amount in Nairobi
2,025 Residentail Waste
675 Commercial Waste
(60) Road Waste
131 Market Waste
Note: Road sweeping waste amount is include in Domestic & Establishment
268 wastes
268 Waste Generation Amount in Self-disposal Area
10% Avg. Self-disposal Ratio(Ratio to Domestic & Establishments)

2,432 Potential Waste Discharge Amount (Domestic & Establishment wastes)

182 Waste Reduction at Sources

7.5% Target Waste Reduction Ratio (%)

171 Recovery of Recyclable Materials by Junk Shops in town

Recovery through Composting of Biodegradable by Resident, CBOs & Pilot Plant

32 Composting by House, Community and CBOs
40 Pilot Compost Plant (t/d)
72 Total Recovery of Biodegradable Waste

131 Market Waste

2,138 Potential Waste Collection Amount

65% Target Waste Collection Ratio in Collection Service Area(%)
35% Uncollected Waste Amount Ratio(%)
1,381 Target Waste Collection Amount
757 Uncollected Waste Amount in Collection Service Area

1,381 Target Waste Collection Amount

14 Recovery Amount by Collection Crew and at MRF(s)

1% Assumed Waste Recovery Ratio by Collection Crew and at MRF(s))

1,368 Waste Amount Transported to Waste Disposal Site(s))

14 Recovery at Waste Disposal Site(s))

1% Assumed Waste Recovery Ratio at Disposal Sites

1,353 Waste Disposal Amount

Summary of Waste Reduction, Recovery and Diversion (t/day)

Material Recovery Amount 198 9.3%
Biodegradable Recovery Amount 72 3.4%
Total Waste Recovery Amount 270 12.6%
Waste Reduction Amount at Sources 182 7.5%
Waste Diversion Amount 453 20.1%

Figure 4.3.7 Future Waste Flow in Nairobi City (Year 2020)

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Population in Nairobi 5,150,000

Population in Self-disposal Area 502,000 Population in Collection Area 4,648,000

3,225 Domestic & Establishment wastes 3,377 Waste Generation Amount in Nairobi
2,419 Residentail Waste
806 Commercial Waste
(60) Road Waste
152 Market Waste
Note: Road sweeping waste amount is include in Domestic & Establishment
320 wastes
320 Waste Generation Amount in Self-disposal Area
10% Avg. Self-disposal Ratio(Ratio to Domestic & Establishments)

2,905 Potential Waste Discharge Amount (Domestic & Establishment wastes)

261 Waste Reduction at Sources

9.0% Target Waste Reduction Ratio (%)

227 Recovery of Recyclable Materials by Junk Shops in town

Recovery through Composting of Biodegradable by Resident, CBOs & Pilot Plant

45 Composting by House, Community and CBOs
40 Pilot Compost Plant (t/d)
85 Total Recovery of Biodegradable Waste

152 Market Waste

2,484 Potential Waste Collection Amount

84% Target Waste Collection Ratio in Collection Service Area(%)
16% Uncollected Waste Amount Ratio(%)
2,076 Target Waste Collection Amount
408 Uncollected Waste Amount in Collection Service Area

2,076 Target Waste Collection Amount

21 Recovery Amount by Collection Crew and at MRF(s)

1% Assumed Waste Recovery Ratio by Collection Crew and at MRF(s))

2,055 Waste Amount Transported to Waste Disposal Site(s))

21 Recovery at Waste Disposal Site(s))

1% Assumed Waste Recovery Ratio at Disposal Sites

2,035 Waste Disposal Amount

Summary of Waste Reduction, Recovery and Diversion (t/day)

Material Recovery Amount 269 10.8%
Biodegradable Recovery Amount 85 3.4%
Total Waste Recovery Amount 353 14.2%
Waste Reduction Amount at Sources 261 9.0%
Waste Diversion Amount 615 23.2%

Figure 4.3.8 Future Waste Flow in Nairobi City (Year 2025)

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Population in Nairobi 5,940,000

Population in Self-disposal Area 580,000 Population in Collection Area 5,360,000

3,814 Domestic & Establishment wastes 3,990 Waste Generation Amount in Nairobi
2,860 Residentail Waste
953 Commercial Waste
(60) Road Waste
176 Market Waste
Note: Road sweeping waste amount is include in Domestic & Establishment
wastes
379 Waste Generation Amount in Self-disposal Area
10% Avg. Self-disposal Ratio(Ratio to Domestic & Establishments)

3,435 Potential Waste Discharge Amount (Domestic & Establishment wastes)

344 Waste Reduction at Sources

10.0% Target Waste Reduction Ratio (%)

297 Recovery of Recyclable Materials by Junk Shops in town

Recovery through Composting of Biodegradable by Resident, CBOs & Pilot Plant

59 Composting by House, Community and CBOs
40 Pilot Compost Plant (t/d)
99 Total Recovery of Biodegradable Waste

176 Market Waste

Input the figure
2,872 Potential Waste Collection Amount
100% Target Waste Collection Ratio in Collection Service Area(%)
0% Uncollected Waste Amount Ratio(%)
2,872 Target Waste Collection Amount
0 Uncollected Waste Amount in Collection Service Area

2,872 Target Waste Collection Amount

28 Recovery Amount by Collection Crew and at MRF(s)

1% Assumed Waste Recovery Ratio by Collection Crew and at MRF(s))

2,844 Waste Amount Transported to Waste Disposal Site(s))

28 Recovery at Waste Disposal Site(s))

1% Assumed Waste Recovery Ratio at Disposal Sites

2,815 Waste Disposal Amount

Summary of Waste Reduction, Recovery and Diversion (t/day)

Material Recovery Amount 353 12.3%
Biodegradable Recovery Amount 99 3.4%
Total Waste Recovery Amount 452 15.7%
Waste Reduction Amount at Sources 344 10.0%
Waste Diversion Amount 795 25.7%

Figure 4.3.9 Future Waste Flow in Nairobi City (Year 2030)

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4.4 Development and Evaluation of Technical Options

4.4.1 Collection and Transportation Plan

(1) Planning Concept

(a) Shift from Division-Based Operation to Proposed Zone-Based Operation
According to the proposed PPPP scheme, the collection operation will shift from the existing
division based operation to the zone-based operation corresponding to the residents’ income
level. “Division-based operation” is the current operation practice of the private collectors in
the smallest administrative unit of a Division based on their own “door-to-door” contract with
their customers in which their operation cannot be controlled by CCN. “Zone-based
operation”, on the other hand, is the proposed collection system in which the same franchisee
will operate in a zone and the same amount of waste charge is uniformly applied on the income
level of the zone.
Based on this proposed PPPP scheme for the future collection system, the collection area in
Nairobi City will be divided into nine (9) franchise zones and another one (1) zone such as the
slum area where it will be difficult for private collectors to collect the waste charge. Private
collectors (franchisees) will collect the residential and commercial wastes from the above
nine (9) zones for the future expected increase of income level. CCN and its contractors will
then concentrate their collection on the residential or commercial areas outside of the above
9 franchise zones, or concentrate operation on the collection of market waste and road
sweepings, since CCN will still operate in these areas. Since the inspection or monitoring of
private collection activities in the above 9 zones also will be CCN’s crucial role in the future
SWM system, the development of the collection and transportation plan should be conducted
based on the proposed future zone-based operation system.

(b) Future Development of Transportation Network

The JICA Survey Team conducted an interview with the officials of the Urban Road Authority
on March 8, 2010 to get a clearer understanding of the future road development plan and also
the current ongoing projects in Nairobi City. Table 4.4.1 and Figure 4.4.1 show the future
road development plan. According to the said authority, it develops its projects based on “The
Study on Master Plan for Urban Transport in the Nairobi Metropolitan Area in the Republic of
Kenya” which was conducted by JICA in March 2006. Table 4.4.1 shows the main bypass
roads to be constructed in 2015 and operated in 2016. For the development of the technical
options especially for the transportation system, these future road network development plans
or their implementation should be taken fully into consideration.

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Table 4.4.1 List of Future Road Networks in Nairobi Metropolitan Area

Type of
Name of Road Actual Progress Estimated Completion Year No. in Map
Development
(Figure 4.4.1
Preparation for design review and
Southern Bypass New 2015 ①
construction
Design and preparation of tender
Link Road New for its construction using 2015 ②
Japanese fund is ongoing.
Under construction by a Chinese
Northern Bypass New 2012 ③
contractor using Chinese Fund
Greater Southern Bypass New Proposed for design and tender To be determined ④
Widening of Design and preparation for tender
Ngong Road 2015 ⑤
existing road is ongoing.
Widening of
Outer Ring Road Proposed for widening 2015 ⑥
existing road
Eastern Bypass New Under construction 2012 ⑦
Greater Eastern Bypass New Proposed for design and tender To be determined ⑧
Source: Urban Road Authority

③ Northern Bypass

② Link Road

⑥ Outer Ring Road

⑤ Ngong Road
⑦ Eastern Bypass

① Southern Bypass

⑧ Greater Eastern Bypass

④ Greater Southern Bypass

Figure 4.4.1 Map of Future Plans of Road Network Development for Nairobi Metropolitan Area

(2) Possible Technical Options

Nairobi City has a wide variety of land use or residential pattern from high income detached houses
to the dense shanty houses of low income or slum areas. The collection system and the role of

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collectors should be determined by taking this situation into consideration. The transportation
system, on one hand, should be examined by taking all possible modes of transportation into
account. For example, the transfer-transport using the road networks or the existing railway system
will be possible options and they are worthy of studying if they have any advantage on the transport
of wastes in a long distance to the proposed final disposal site.

(a) Collection System

Two types of collection method, namely; the station method and the door-to-door collection
system are currently being done. CCN operates its collection work through the station method,
while private collectors operate by the door-to-door method through a contract with customers
who can afford to pay the waste charges. The collection system should be selected by taking
into consideration the local condition such as type of generation source, land use, residential
pattern or current state of operation of waste collectors to the fullest extent.

(i) Station Type of Collection

This system is suitable for areas such as markets, housing complex (apartments) or slums
where much amount of wastes are generated and waste generators could not be identified.
The container plus detachable container carrier is recommended for these areas to raise
the collection frequency. Dump trucks (tippers) adopt the container collection system.

(ii) Door-to-Door Type of Collection

This method is already applied by private collectors who are able to identify the waste
generators easily for collecting the waste charges. This method can be applied
continuously in the future. In this case, the compactor or dump truck (tipper) is
recommendable.
On the other hand, the type of vehicle has merits and demerits as shown in Table 4.4.2.
Dump trucks have merit of lower cost compared to the compactor and the container plus
detachable container carrier in spite of the demerit of being unsanitary, adverse impact on
the urban aesthetic environment or heavy burden on loading work. The compactor has the
merit of being sanitary and the demerit of higher cost compared to the dump truck. The
container system has the merit of high efficiency of collection and the demerit of regular
replacement of containers.

Table 4.4.2 Technical Options by Type of Collection Vehicle

Type of Collection
Merit Demerit
Vehicle
• Unsanitary
• Robust
• Adverse impact on aesthetic
Dump Truck • Lower cost compared to compactor
environment of urban areas
and detachable container carrier
• Heavy burden on crew-loading work
• Sanitary
• Higher cost compared to dump truck
Compactor • Low impact on loaders work
• Sufficient maintenance is required
environment
Container plus
Detachable • High frequency of collection is • Regular replacement of container is
Container Carrier expected necessary

(b) Transportation System

There are three technical methods of transporting waste in Nairobi City: the direct haul and
transfer-transport system using the road networks, and the transport using existing railway

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transportation system. The technical options of transport system concern the combination of
transfer systems (including options without transfer system) and the three (3) candidate
landfill sites: Ruai (which is located in the eastern part of Nairobi City and inside of the
jurisdiction of Nairobi City); Mavoko (which is located south of Nairobi City and outside of
the jurisdiction of Nairobi City); and Juja (which is located south of Nairobi City and also
outside of the jurisdiction of Nairobi City). Two sites of transfer station, the Langata and the
Dandora (the existing dumping site) are considered as the candidate sites for transfer station.
In terms of collection area, solid wastes generated in the city will be collected and transported
based on the 9 zones that will be divided into the west, central and east areas if the transfer
station is built in the future. The solid waste in each area will then be delivered to the nearest
transfer station, and then transferred to the final landfill site. Figure 4.4.2 shows the location
map of candidate sites of each option and the collection areas. The candidate site of Kariobangi
South for the development of a transfer station, which was identified as a candidate site in the
initial stage of the survey, is not selected because the current residences are close to the site and
the future priority of land use will be horticulture, storage facilities and matatu (local
transportation using one-box type car) terminal.

Figure 4.4.2 Location Map of Technical Options for Transport System

The existing railway station at Kibera is considered as the loading facility for wastes using the
railway transportation system, and the existing Mavoko and Juja stations are considered as the
unloading facilities using the railway transportation system. All of the alternatives shall
include Ruai as the final disposal site since Ruai is the only site for final landfill already
secured by the City Council of Nairobi. The candidate sites in Juja and Mavoko are owned by
private entities and hence the land acquisition process is necessary which may take a long time
to complete. Since the final landfill site is indispensable for any solid waste management, any
risk such as delay of services should be eliminated as much as possible in order to start
operating this key element of the management system. The nine (9) options illustrated below
are thus considered for comparison purposes.

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No Transfer Station Option

Vehicle Transportation
Collection of Final Landfill Site
Solid Waste Ruai

Case 1: Direct Haul by Vehicle to Ruai

Vehicle Transportation Final Landfill Site
Ruai
Collection of
Solid Waste Railway Transportation
Final Landfill Site
Juja

Case 2: Direct Haul by Vehicle to Ruai and by Railway to Juja

Vehicle Transportation Final Landfill Site

Ruai
Collection of
Solid Waste Railway Transportation
Final Landfill Site
Mavoko

Case 3: Direct Haul by Vehicle to Ruai and by Railway to Mavoko

(The railway passes very close to both the candidate landfill sites of Juja and Mavoko.
Therefore, the railway transportation option may be selected if either Juja or Mavoko is chosen
as the candidate site for final landfill.)
Transfer Station only at Dandora Dumpsite
Vehicle Vehicle
Collection of
Transportation Transfer Station Transportation
Solid Waste
(West & Dandora Dumping Site
Central)
Final Landfill Site
Ruai
Vehicle
Collection of Transportation
Solid Waste
(East)

Case 4: Wastes from West and Central Areas are first hauled by Vehicle to the Transfer Station at
Dandora and then to Ruai; Waste from the East Area is hauled directly by Vehicle to Ruai

Collection of
Transfer Station
Solid Waste
Dandora Dumping Site
(West)
Final Landfill Site
Ruai
Collection of
Solid Waste Vehicle
(Central & Transportation
East)

Case 5: Waste from the West Area is first hauled by Vehicle to the Transfer Station at Dandora
and then to Ruai; Waste from the Central and East Areas are hauled directly by Vehicle to Ruai

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Vehicle
Vehicle Transportation
Transportation Final Landfill Sites
Transfer Station
Ruai
Dandora Dumping Site
Collection of
Solid Waste Railway Transportation
Final Landfill Sites
Juja

Case 6: Waste is first hauled by Vehicle to the Transfer Station at Dandora and then to Ruai, and
hauled directly by Railway to Juja
Vehicle Vehicle
Transportation Transportation
Final Landfill Sites
Transfer Station
Ruai
Dandora Dumping Site
Collection of
Solid Waste Railway Transportation
Final Landfill Sites
Mavoko

Case 7: Waste is first hauled by Vehicle to the Transfer Station at Dandora and then to Ruai, and
hauled directly by Railway to Mavoko
(If a transfer station is to be built at Dandora, the railway system should be adopted for the
waste transportation to either the Juja or the Mavoko final landfill because these sites are
located near the railway track.)
Transfer Station only at Langata

Vehicle Vehicle
Transportation Transportation
Collection of Transfer Station Final Landfill Site
Solid Waste Langata Ruai

Case 8: Waste is first hauled by Vehicle to the Transfer Station at Langata and then to Ruai
(If the transfer station is to be built only at Langata which is located in the west side of Nairobi,
the railway system should not be considered since the railway only has the advantage of
avoiding the traffic congestion in the city centre assuming that another landfill site is provided
in Juja or Mavoko. To transfer the waste at Langata to the Ruai final landfill, the transport
vehicle can pass through the Southern Bypass and the International Trunk Road to Ruai.)
Transfer Station at Dandora Dumpsite and Langata

Transfer Station
Dandora Dumping Site Final Landfill Sites
Collection of
Solid Waste Ruai
Transfer Station
Langata

Case 9: Waste is first hauled by Vehicle to either the Transfer Station at Dandora or Langata and
then to Ruai
(If a transfer station is to be built both at Dandora and Langata, the railway system will not be
considered for the same reason as Case 7 above. All wastes will be hauled by vehicle to Ruai.)

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The details of each alternative are given in Table 4.4.3. In case of direct haul to the Ruai final
landfill site as shown in Case 1, the collected waste in the west area is to be transported to the
Ruai final landfill site for a distance of 32 km, while in the railway transportation as shown in
Cases 2, 3, 6 and 7, the collected waste in the west area is to be transported to Juja and Mavoko
stations for 52 and 47 km, respectively.
Table 4.4.3 Details of Technical Options of Transport System
Case Collection Area & Transfer Final
Details of Technical Option
No. System Landfill Site
Direct Haul to Ruai (No Transfer Ruai Generated waste is hauled directly to Ruai final landfill site.
1 System) • Distance: West to Ruai: 32 km; Central to Ruai: 16 km; East
to Ruai: 7 km
West: Railway Transport to Juja Juja / Ruai Generated waste in the west area of Nairobi City is transported
(940 t/d) by railway to Juja. Wastes generated in central and east are
2 Central, East: Direct Haul to Ruai transported directly to Ruai final landfill site.
• Distance: West to Juja: 52 km; Central to Ruai: Same as
Case 1; East to Ruai: Same as Case 1
West: Railway Transport to Mavoko / Generated waste in the west area of Nairobi City is transported
Mavoko (940 t/d) Ruai by railway to Mavoko. Wastes generated in central and east are
3 Central, East: Direct Haul to Ruai transported directly to Ruai final landfill site.
• Distance: West to Mavoko: 47 km; Central to Ruai: Same as
Case 1; East to Ruai: Same as Case 1
West & Central: Road Transport Ruai Wastes in west and central areas are transported to Ruai final
through Transfer Station at landfill site through the transfer station in Dandora Dumpsite.
4 Dandora Dumpsite (2,600 t/d) Wastes in east areas are hauled directly to Ruai final landfill site.
East: Direct Haul to Ruai • Distance: West to Dandora: 16 km; Central to Dandora: 5 km;
East to Ruai: Same as Case 1
West: Road Transport through Ruai Generated waste in the west ares of Nairobi City is transported to
Transfer Station at Dandora Ruai through the transfer station in Dandora Dumpsite. Wastes
Dumpsite (940 t/d) generated in central and east are hauled directly to Ruai final
5 landfill site.
Central, East: Direct Haul to Ruai
• Distance: West to Dandora: Same as Case 4; Central to
Dandora: Same as Case 4; East to Ruai: Same as Case 1
West: Railway Transport to Juja Juja / Ruai Generated waste in the west area of Nairobi City is transported
Central: Road Transport through by railway to Juja. Waste in the central part is transported to Ruai
6 Transfer Station at Dandora to Ruai through the transfer station in Dandora Dumpsite.
(1,590 t/d) • Distance: West to Juja: Same as Case 2; Central to Dandora:
East: Direct Haul to Ruai Same as Case 4; East to Ruai: Same as Case 1
West: Railway Transport to Mavoko / Generated waste in the west area of Nairobi City is transported
Mavoko Ruai by railway to Mavoko. Waste in the central part is transported to
Central: Road Transport through Ruai through the transfer station in Dandora Dumpsite.
7
Transfer Station at Dandora to Ruai • Distance: West to Mavoko: Same as Case 3; Central to
(1,590 t/d) Dandora: Same as Case 4; East to Ruai: Same as Case 1
East: Direct Haul to Ruai
West: Road Transport through Ruai Generated waste in the west area of Nairobi City is transported to
Langata Transfer Station (940 t/d) Ruai through the transfer station in Langata. Wastes generated in
8 Central, East : Direct Haul to Ruai central and east are hauled directly to Ruai final landfill site.
• Distance: West to Langata: 7 km; Central to Ruai: Same as
Case 1; East to Ruai: Same as Case 1
West: Road Transport through Ruai Generated waste in the west area of Nairobi City is transported to
Transfer Station (940 t/d) at Ruai through the transfer station in Langata. Waste generated in
Langata to Ruai the central area is transported to Ruai through the transfer station
9 Central: Road Transport through at Dandora. Waste in the east area is hauled directly to Ruai.
Transfer Station (1,590 t/d) at • Distance: West to Langata: Same as Case 8; Central to
Dandora St. to Ruai Dandora: Same as Case 4; East to Ruai: Same as Case 1
East: Direct Haul to Ruai

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(3) Selection Procedure

The optimum collection system should be proposed through the qualitative evaluation of the
current operation of each collector, the local situation of housing, the combination type of
collection vehicles, and the collection frequency. After the optimum collection system has been
proposed, the required number of collection vehicles should be estimated from the target collection
waste amount (the detailed information is shown in Section C of Volume 3, Supporting Report).
Then, the required number of collection system (vehicle) as of 2030, the final target year, should be
input into each technical option in Table 4.4.3 and the integrated system of collection and transport
should be developed for each option.
The technical options were selected based on the principle of minimum costs of capital, operation
and maintenance since all of the options have minimal adverse impacts on the surrounding
socio-environmental condition based on the first screening in the IEE (Initial Environmental
Examination). The detailed information is given in Section G of Volume 3, Supporting Report.

(4) Evaluation of Collection System

The collection system shown in Table 4.4.4 is proposed as the future collection system. In Zones 1
to 9, the private franchisees should take the initiative in the collection of residential and commercial
wastes using compactors (50%) and dump trucks (50%) based on the door-to-door collection
system, except the station collection method in housing complexes and apartments. CCN and the
contractors, on the other hand, will operate in the CCN/SWMPC zone (outside the 9 franchised
zones) using the combination of container plus detachable container carrier and dump trucks
through the station collection method, and they should concentrate on the collection of market
waste and road sweepings using detachable container carriers and dump trucks. In the low income
or slum areas in Zones 1 to 9, the CBOs and residents shall conduct primary collection using push
carts or containers as the community-based activities. However, private franchisees will be able to
collect domestic wastes from the areas they could access. Large capacity collection vehicles such as
the 8-ton or 10-ton class are not recommended since it was gathered from the survey that most of
the large-capacity dump trucks got stuck or slipped during the rainy days at the existing Dandora
Dumpsite.

Table 4.4.4 Proposed Collection System

Frequency of Type of Vehicle to be Responsible
Zone Collection Area Collection Method
Collection Applied Collector
High Income / • Detached house:
Middle Income / Door-to-door 50%: Compactor
Business collection (4 ton) Private
Twice a week
Establishment / • Housing complex/ 50%: Dump Truck franchisee
Commercial Apartment: Station (4 ton)
Area collection
Push cart/ Residents/
Primary collection Twice a week
Low Income / Container CBOs
Slum Area Private
Zone 1 to 9 Station collection Twice a week Dump truck (4 ton)
franchisee
Container (8m3:
Station collection
Markets & 4 ton) + Detachable CCN*1 +
(Collection at collection Daily
Parks Container Carrier Contractors
points)
(4 ton)
CCN +
Roads Street sweeping Daily Dump truck (4 ton)
Contractors
Vehicle for supervision/
Whole Areas - Pick-up truck CCN
inspection

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Frequency of Type of Vehicle to be Responsible

Zone Collection Area Collection Method
Collection Applied Collector
Primary collection by Residents,
Twice a week Container + Push cart
residents and CBOs CBOs
Container (8m3: 4
Container collection
Slum Area ton) + Detachable CCN +
method (Collection at Twice a week
CCN/SWMPC Container Truck (4 Contractors
collection points)
Zone ton)
CCN +
Station Collection Twice a week Dump truck (4 ton)
Contractors
CCN +
Street Sweeping Cleansing Daily Dump truck (4 ton)
Contractors
Vehicle for supervision/
Whole Areas - Pick-up truck CCN
inspection
Note: *1 CCN will be transferred to SWM Public Corporation from 2016.

(5) Cost Comparison of Integrated Collection and Transportation System Options

(a) Target Collection Ratio, Waste Amount and Required Number of Collection Vehicles
The target collection ratio and waste amount in the whole Nairobi City are as estimated in
Table 4.4.5 for each target year. The detailed information is shown in Section C of Volume 3,
Supporting Report. The target collection rate in the whole Nairobi City in Table 4.4.5 was
obtained the identification of the current collection rate at each location, weighing the
collection rate by the waste generation amount at each location to that of the whole Nairobi
City, and finally summating each collection rate at all locations.

Table 4.4.5 Target Collection Ratio and Waste Amount of Nairobi City
Target Year 2010 2015 2020 2025 2030
Collection Ratio (%) 38.0 48.8 64.6 83.6 100.0
Waste Amount (t/d) 634 911 1,381 2,076 2,872

The required number of collection vehicles is shown in Table 4.4.6. The detailed information
is given in Section C of Volume 3, Supporting Report.

Table 4.4.6 Required Number of Collection Vehicles in Each Target Year

Target Year 2010 2015 2020 2025 2030
Case 1* 108 154 230 336 450
Case 2, Case 3, Case 8 108 154 205 292 395
Case 4 108 154 175 252 330
Case 6, Case 7, Case 9 108 154 174 250 327
Case 5 108 154 206 294 398
Note *: Case number indicates numbers in Table 4.4.3.

(b) Cost Estimation for the Integrated Collection and Transportation System Options
The technical options in Table 4.4.3 were evaluated in terms of cost of capital, operation and
maintenance for collecting and transporting waste from the three areas, west, central and east.
The required number of collection vehicles shown in Table 4.4.6 was used for the evaluation.
Table 4.4.7 shows the estimation results of each technical option. As shown in this table, the
technical option in Case 1 (Direct Haul to Ruai Final Landfill Site) is ranked as the least cost
followed by Case 5 (Construction of Transfer Station at Dandora Dumpsite to Transport the
Waste in West Part). For the cost comparison of technical options in Table 4.4.7, depreciation
cost is not taken into consideration in order to figure out the actual cost and compare those of

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each option based on the same approach in other JICA study cases since depreciation cost is a
cost transaction in accounting which does not accompany actual expenditure. The depreciation
cost will become higher in proportion to the capital cost, and the results in Table 4.4.7 will be
the same even if depreciation cost is considered since Case 1 has the lowest operation and
maintenance cost which will not depend on the depreciation cost.

Table 4.4.7 Results of Cost Estimation for Technical Options

Capital Cost Operation and Maintenance Cost Total
Collection Transport Total Cost per Collection Transport Total Cost per Cost per
Case
(Million (Million (Million ton (Million (Million (Million ton ton
KSh) KSh) KSh) (KSh/ton) KSh/year) KSh/year) KSh/year) (KSh/ton) (KSh/ton)
1 2,819 0 2,819 263 395 503 898 857 1,120
2 2,515 3,717 6,232 604 432 726 1,158 1,105 1,709
3 2,515 3,376 5,891 571 432 726 1,159 1,105 1,676
4 2,162 10,467 12,629 1,242 327 738 1,065 1,016 2,259
5 2,515 3,731 6,246 606 432 480 912 870 1,476
6 2,144 9,055 11,199 1,100 394 866 1,261 1,203 2,303
7 2,144 8,714 10,858 1,067 394 867 1,261 1,203 2,270
8 2,515 3,454 5,969 578 432 525 958 913 1,492
9 2,144 8,792 10,936 1,074 394 661 1,056 1,007 2,081

From the cost estimation for the integrated collection and transportation system, the following two
options were selected as the economical options:
(a) Case-A: Direct haul to Ruai final landfill site
Case-A is the project that will transport all wastes in Nairobi City to the Ruai final landfill site
without passing through a transfer station. The project will consist of the procurement and
replacement of collection vehicles by CCN to attain the target collection ratio at each target
year.
(b) Case-B: Construction of a transfer station at Dandora Dumpsite
A transfer station will be built at the existing Dandora Dumpsite to initially transport the
waste in the west area which is set at 940 t/d at the target year of 2030 before finally
transporting it to the Ruai final landfill site. In this case, the waste in central and east areas will
be hauled directly to the Ruai final landfill site. In parallel with the the development of the
transfer station, collection vehicles will be procured by CCN. A material recovery
facility (MRF) will be also installed inside the transfer building, which will provide job
opportunities for some of the existing waste pickers at the Dandora Dumpsite.

(6) Evaluation of Integrated Collection and Transportation System Options

(a) Implementation Schedule

Case-A: Direct haul to Ruai final landfill site

The implementation schedule of the proposed project is shown in Figure 4.4.3. The
procurement of collection vehicles will be implemented in 2013, 2015, 2020, and 2025.
Containers should be replaced every 5 years.

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2010

2011

2012

2013

2014

2015

2016

2017

2018

2019

2020

2021

2022

2023

2024

2025

2026

2027

2028

2029

2030
1. Procurement
- Vehicles ○ 〇 〇 〇
- Container 〇 〇 〇 〇
2. Replacement
- Vehicles
- Container 〇 〇 〇 〇 〇 〇
3. Operation &
Maintenance

Figure 4.4.3 Implementation Schedule of Case-A: Direct Haul to Ruai Final Landfill Site

Case-B: Construction of transfer station at Dandora Dumpsite

The implementation schedule of the proposed project is shown in Figure 4.4.4. The
procurement of collection vehicles will be implemented in 2013, 2015, 2020, and 2025, same
as Case-A. During 2015 and 2016, the construction of the transfer station will be carried out.
The procurement of transport vehicles should be implemented in 2016.
2010

2011

2012

2013

2014

2015

2016

2017

2018

2019

2020

2021

2022

2023

2024

2025

2026

2027

2028

2029

2030
1. Collection
Vehicles
1.1 Procurement
- Vehicles 〇 〇 〇 〇
- Container 〇 〇 〇 〇
1.2 Replacement
- Vehicles
- Container 〇 〇 〇 〇 〇 〇
2. Transfer Station
2.1 Construction
- Design, Tender
- Construction
- Procurement of
〇
Transport Vehicles
- Replacement of
Transport Vehicles
- Replacement of
〇 〇 〇
Transport Containers
3. Operation &
Maintenance

Figure 4.4.4 Implementation Schedule of Case-B: Construction of Transfer Station at Dandora Dumpsite

(b) Project Cost

Case-A: Direct haul to Ruai final landfill site

The procurement of collection vehicles is shown in Table 4.4.8. The detailed information of
estimating procurement number is shown in Section C of Volume 3, Supporting Report. The
procurement and project cost with 10% physical contingency for the engineering and
procurement cost is shown in Table 4.4.9 and Table 4.4.10, respectively. The number of
collection vehicles to be procured was computed with consideration on contingency by setting
the load efficiency of vehicles at 80% and procurement number against the increasing number
of collection vehicles to be required at the year after 5 years of actual procurement. The
detailed information is shown in Section C Volume 3, Supporting Report.

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Table 4.4.8 Procurement Number of Collection Vehicles (Case-A)

Type of Vehicle 2013 2015 2018 2020 2023 2025 2028 2030 Total
Compactor 0 0 0 0 0 0 0 0 0
Dump Truck 1 42 0 1 0 55 0 0 99
Container Carrier 22 20 0 22 0 43 0 0 107
Pick-up Truck 10 0 0 10 0 10 0 0 30
Total - Vehicles 33 62 0 33 0 108 0 0 236
Container 47 40 50 79 50 144 50 148 608

Table 4.4.9 Procurement Cost of Collection Vehicles (Case-A)

Unit: in KSh Thousand
Type of Vehicles 2013 2015 2018 2020 2023 2025 2028 2030 Total
Compactor 0 0 0 0 0 0 0 0 0
Dump Truck 4,502 189,076 0 4,502 0 247,600 0 0 445,680
Container Carrier 118,848 108,044 0 118,848 0 230,133 0 0 575,873
Pick-up Truck 9,566 0 0 9,566 0 9,566 0 0 28,699
Container 44,962 38,265 47,832 75,574 47,832 137,756 47,832 141,582 581,635
Total 177,878 335,385 47,832 208,491 47,832 625,054 47,832 141,582 1,631,887

Table 4.4.10 Project Cost (Case-A)

Unit: in KSh Thousand
Physical
Engineering Procurement O & M Cost
Contingency Total
Year Cost Cost
(4) = 10% of (1)+(2)+(3)+(4)
(1) (2) (3)
[(1)+(2)]
2011 8,894 889 9,783
2012 8,894 889 9,783
2013 16,769 177,878 0 19,465 214,112
2014 16,769 98,851 1,677 117,297
2015 335,385 105,969 33,539 474,893
2016 114,954 0 114,954
2017 4,783 124,262 478 129,523
2018 10,425 47,832 133,885 5,826 197,968
2019 10,425 144,111 1,043 155,579
2020 208,491 154,356 20,849 383,696
2021 167,330 0 167,330
2022 4,783 181,171 478 186,432
2023 31,253 47,832 195,202 7,909 282,196
2024 31,253 210,135 3,125 244,513
2025 625,055 225,621 62,506 913,182
2026 241,485 0 241,485
2027 4,783 258,354 478 263,615
2028 47,832 275,364 4,783 327,979
2029 14,158 293,416 1,416 308,990
2030 141,582 312,567 14,158 468,307
Grand Total 163,189 1,631,887 3,237,033 179,508 5,211,617

Case-B: Construction of transfer station at Dandora Dumpsite

The procurement of collection vehicles is shown in Table 4.4.11. The detailed information on
the estimation of procurement number is shown in Section C of Volume 3, Supporting
Report. The procurement and project cost with 10% physical contingency for the engineering
and procurement cost is shown in Table 4.4.12 and Table 4.4.13, respectively. The number of
collection vehicles was computed based on the same approach as in Case-A.

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Table 4.4.11 Procurement Number of Collection Vehicles (Case-B)

Type of Vehicle 2013 2015 2018 2020 2023 2025 2028 2030 Total
Compactor 0 0 0 0 0 0 0 0 0
Dump Truck 1 40 0 1 0 54 0 0 96
Container Carrier 22 18 0 22 0 40 0 0 102
Pick-up Truck 10 0 0 10 0 10 0 0 30
Total of Vehicles 33 58 0 33 0 104 0 0 228
Container 47 36 50 73 50 132 50 136 574

Table 4.4.12 Procurement Number of Collection Vehicles (Case-B)

Unit: in KSh Thousand
Type of Vehicles 2013 2015 2018 2020 2023 2025 2028 2030 Total
Compactor 0 0 0 0 0 0 0 0 0
Dump Truck 4,502 180,073 0 4,502 0 243,098 0 0 432,175
Container Carrier 118,848 97,239 0 118,848 0 213,926 0 0 548,862
Pick-up Truck 9,566 0 0 9,566 0 9,566 0 0 28,699
Container 44,962 34,439 47,832 69,834 47,832 126,276 47,832 130,103 549,109
Total 177,878 311,751 47,832 202,751 47,832 592,867 47,832 130,103 1,558,845

Table 4.4.13 Project Cost (Case-B)

Unit: in KSh Thousand
Cost of Collection Vehicles Cost of Transfer Station
O&M of O&M of Physical
Procurement Construction Procurement
Year Engineering Engineering Collection Transfer Contin- Total
of Collection of Transfer of Transport
Cost Cost Vehicles Station gency*
Vehicles Station Vehicles
2011 8,894 889 9,783
2012 8,894 889 9,783
2013 15,588 177,878 106,627 30,009 330,102
2014 15,588 0 106,627 95,566 12,222 230,003
2015 311,751 62,954 1,259,081 102,314 163,379 1,899,479
2016 0 62,954 1,259,081 873,455 110,817 219,549 2,525,856
2017 4,783 0 119,623 65,179 478 190,063
2018 10,138 47,832 128,726 70,610 5,797 263,103
2019 10,138 0 138,400 76,042 1,014 225,594
2020 202,751 60,073 148,087 83,284 26,282 520,477
2021 0 600,727 160,344 90,526 60,073 911,670
2022 4,783 0 173,421 97,768 478 276,450
2023 29,643 47,832 186,671 106,820 7,748 378,714
2024 29,643 0 200,774 115,873 2,964 349,254
2025 592,867 62,800 215,396 124,926 65,567 1,061,556
2026 0 2,727 628,000 230,374 132,168 63,073 1,056,342
2027 4,783 0 2,727 27,273 246,301 141,220 3,478 425,782
2028 47,832 2,727 27,273 262,356 150,273 7,783 498,244
2029 13,010 0 62,800 27,273 279,395 161,136 10,308 553,922
2030 130,103 628,000 297,471 170,189 75,810 1,301,573
Total 155,885 1,558,845 533,016 2,518,163 2,812,000 3,096,036 1,586,012 757,791 13,017,748
Note: *The physical contingency is calculated as 10% of the total cost of civil works, equipment and engineering services.

(c) Evaluation of Both Cases

Both Case-A and Case-B have been evaluated and Case-A (Direct Haul to Ruai Final Landfill
Site) was selected from the financial and economical viewpoint as well as technical viability,
as explained in Section 4.13.

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(7) Collection and Transportation in Low Income and Slum Areas

(a) Current Issues Identified
Currently, CBOs conduct waste collection in low income or slum areas. However, the
following problems were identified in relation to their activities:

• CBOs do not collect residential wastes from all households (Low collection ratio by
CBOs’ primary collection on households).
• Extremely low frequency of collection by CCN and contractors’ collection vehicles.
• CBO lack collection tools, causing obstacles to their collection activities.
• Collection vehicles could not access the collection points inside the slum areas because of
bad road condition or steep topography. Accordingly, CBOs are obliged to carry out their
collection activity manually.
• Very few collection points designated; accordingly, CBOs are obliged to discharge their
collected waste into undesignated collection points resulting in illegal dumping.
(b) Actions Required
Taking the above situations into consideration, the following actions are proposed:

(i) Enhancement of partnerships among CCN, CBOs and residents

Stakeholder meetings should be held to build the relationship of mutual understanding
toward the solution of problems. They shall be implemented through pilot projects in
future technical cooperation schemes. The detailed information is shown in Section F of
Volume 3, Supporting Report.

(ii) Education to residents toward appropriate discharge of household waste including source
segregation
The education of residents toward the appropriate discharge of household waste or the
raising of sanitation awareness should be carried out. For the actual action, education
materials shall be prepared and distributed to the residents. These shall be implemented
through pilot projects in future technical cooperation schemes. The detailed information
is shown in Section F of Volume 3, Supporting Report.

(iii) Enhancement or expansion of CBO activities toward the increase of primary collection rate
from residents
The enhancement or expansion of CBOs who are currently the main actors in the primary
collection in low income and slum areas is necessary in order to raise the primary
collection rate. Support to the CBOs or the creation of new CBOs in areas where
collection activities are not carried out will be necessary. This shall be implemented
through pilot projects in the future technical cooperation schemes. The detailed
information is shown in Section F of Volume 3, Supporting Report.

(iv) Formulation and implementation of deployment plan of designated collection points

One of the causes of illegal dumping or piling of wastes in low income or slum areas is the
failure of CBOs to deliver collected waste to the designated collection points due to their
insufficient number. The container collection system in these target areas is proposed and
the place of installation of containers should be decided in advance of the actual
installation work.

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The formulation of a deployment plan for designated collection points and its actual
implementation is proposed through consultation among CCN, CBOs and residents to
obtain agreement.

(v) Construction or improvement of access roads to the collection points to raise collection
frequency
The lack of access to collection points or the bad condition of existing roads is one of the
big problems to be solved for the SWM in the target areas. The access in slum areas is
extremely poor, causing bottlenecks for the collection vehicles to reach the collection
points. The construction of new roads or improvement of existing roads will be necessary
to remove these bottlenecks. In the master plan, the construction of 100-m roads and
returning places (15m x 15m) for container carriers is proposed in 75 slums for the target
short-term and mid-term implementation scheme.

(8) Regular Cleanup Plan

Scattered wastes have been identified along the road sides, causing the unsanitary condition and
disfigurement of the urban environment of Nairobi City. A regular cleanup shall then be necessary
to improve the situation. In the master plan, the regular cleanup of roadsides in the 8 divisions
excluding the CBD Zone twice a year is proposed. The cleanup shall be carried out through
contract-out to subcontractors and with the use of wheel loaders and dump trucks.

(9) Operation and Maintenance Plan

According to the procurement plan, collection vehicles mainly composed of container carriers will
be procured, and the procured vehicles can be deployed at the existing division offices. The plan of
CCN to relocate the existing workshop at Ragos Road to the Kaloleni Depot is welcome for the
future increase of vehicles. The training of technicians is also important and the contract-out of
maintenance work will be one option to cope with the future maintenance.

4.4.2 3R and Intermediate Treatment Plan

As stated earlier in Section 3.4, the 3R and Intermediate Treatment Plan shalll be formulated with the
involvement of stakeholders through the utilisation of existing functions to the maximum extent
including improvement. In addition, the intermediate treatment plan shall be formulated in
consideration of the applicable technology in Kenya and the least cost alternatives to avoid excessive
financial burden to CCN. With the aforementioned as a basic rule, the 3R and Intermediate Treatment
Plan are as discussed below.

(1) 3R Plan
(a) Outline for Development of 3R Plan
The programmes under the 3R plan were formulated basically with soft component
programmes defining the roles, responsibilities and activities of each party including CCN,
waste generators and the central government. The implementation of rogrammes should be
carried out through the primary initiative and effort of CCN. There are many programmes
commonly practiced in the world for 3R activities which can be categorised with waste
generation source control, waste discharge control, waste recovery and reuse, and recycling of
materials. These programmes are also applicable for the 3R activities in Nairobi City. The
programmes and activities will be performed mostly with the raising of awareness of waste
generators and stakeholders through public campaigns, formal and school education, pilot
projects and capacity development of the CCN staff concerned. In addition, the hard

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component programme will be considered for activating the recovery of recyclable materials
by the development of material recovery facilities. Each programme under the 3R plan is as
elaborated below.

(b) Technical Options of 3R

Basically, the 3R scheme is composed of many kinds of soft component programmes for waste
reduction, recovery, reuse and recycling to promote 3R activities among the parties concerned.
The plan should be implemented comprehensively with all the possibly effective programmes
which are divided into the four categories summarised below. The 3R programmes in the four
categories are inter-related, and should be implemented to achieve the goals of 3R.
• Waste Generation Source Control for Waste Reduction
• Waste Discharge Control for Recovery and Waste Diversion
• Recovery of Recyclables at Sources and Reuse
• Recycling of Recyclable Materials

(i) Waste Generation Source Control for Waste Reduction

The programmes under the waste generation source control target the activities to
minimise the generation of waste through the production of durable goods and the
avoidance of over-packaging in distribution and sale, and by motivating and changing the
awareness of waste generators toward a lifestyle of resource and environmental
conservation. These activities should be implemented in five sub-programmes, namely;
production control, distribution and sale control, consumer control, waste charge control,
and commercial and institutional waste control.

(ii) Waste Discharge Control for Recovery and Waste Diversion

Waste discharge control aims at reducing the amount of waste discharged by individual
waste generation sources through self-disposal at the backyard, converting organic waste
into compost, repair and reuse of broken instruments and appliances, and exchange or sale
of reusable goods within the community. These activities should be carried out at the
waste generation sources.

(iii) Recovery of Recyclables at Sources and Reuse

Activities under this programme intend to enhance the recovery of recyclable materials
through segregation at waste generation sources, recovery of recyclable materials before
the waste is discharged to the waste collection service, securing the routes for recovery
and trading of recyclable materials, etc. These activities require extensive participation of
the stakeholders and the communities.

(iv) Recycling of Recyclable Materials

Recycling industries or the recyclers should take the primary role in the activities of this
programme by performing regular and constant recovery of recyclable materials and
utilising the recovered materials for the production of goods. Support of CCN and the
relevant government agencies is also important for the implementation of these activities
by recycling industries or recyclers.

Figure 4.4.5 shows the conceptual flow of the four programmes and sub-programmes for
easier understanding of the 3R activities.

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There are several key elements involved in the implementation of 3R programmes. For
example, the strong initiative of CCN is inevitable for promoting the 3R activities. The
increase of efficiency in recovering recyclable materials and securing a storage area, a
distribution centre, networking, etc., are also indispensable for the sustainability of 3R
activities. The following subsections explain these key elements and the proposed target level
associated with the 3R Plan for Nairobi City.

３R
３RProgrammes
Programs

Waste Generation Source Control for Waste Discharge Control for

Waste Reduction Recovery and Waste Diversion

Promotion of Self-disposal
Production Control
& Recovery

Recovery of Recyclable Materials at

Distribution & Sale Control
Generation Sources and Reuse

Recovery and Reuse by

Consumer Control
Residents & Communities

Waste Charge Control Recycling of Recyclable Materials

Commercial & Institutional Utilisation of Recyclables

Waste Control by the Recyclers/Factories

Figure 4.4.5 Conceptual Flow of Implementation of 3R Programmes

(c) Technical Options of Resource Recovery

In the process of recovery of recyclable materials from municipal waste in Nairobi, the
following four technical options are considered depending on the waste segregation condition
summarised in Table 4.4.14. Those technical options are explained in the following
paragraphs.

Table 4.4.14 Technical Option for Recovery of Recyclable Waste

Technical
Segregation Condition Function of MRF, Buy-Back Centre or Waste Bank
Option
Segregation at Waste Generation Secondary segregation of recyclable materials, storage and
Option 1
Source distribution centre
Primary and secondary segregation of mixed waste and recovery
Option 2 Mixed Waste
of recyclable materials, storage and distribution centre
Mixed Waste and Recovery by Secondary segregation of recyclable materials, storage and
Option 3
Collection Workers distribution centre
Mixed Waste and Recovery by
Option 4 MRF may not be required
Waste Pickers at Disposal Site

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Option 1:
This option is set in the highest hierarchy of resource recovery since the most challenging
segregation activities at generation sources require the involvement or active participation of
waste generators in the solid waste management system of the local government unit. Source
separation is practiced partly in Nairobi and waste pickers working in town collect the
recyclable materials directly from the waste generators. Segregation at source shall be set up
for a base as the local government unit implements resource recovery from waste. Option 1
stands on the fact that waste as mixed is only waste but wastes as segregated become resources
and are expectable for the recovery of more amounts of recyclable materials. With this
Option 1, the MRF will function as the place for secondary segregation, storage and
distribution, similar to the function of the Buy-Back Centre or the Waste Bank.
Option 2:
Mixed waste collection is a system practiced in Nairobi today and potentially recyclable
materials get dirty due to mixing, especially with food waste. As mixed waste is discharged,
recovery of recyclable materials becomes hard work for the necessity of primary and
secondary segregation or sorting. In case the MRF is used as the recovery place, the recovery
process should be designed with manual and/or mechanical segregation systems for received
mixed waste and need considerations to the neighboring environment and to the health risk on
workmen.
Option 3:
Recyclable materials are picked out from mixed waste as in Option 2. However, the key player
for recovery is not the MRF but the waste collection workers, which is commonly practiced
today in the course of waste collection service. Recovered recyclable waste is then brought to
the dealers handling waste at the Dandora Dumpsite. Due to the picking-out action for
recyclable materials in the course of loading waste to the vehicles, the efficiency of waste
collection as a whole becomes low. In this option, the function of MRF is the same as that of
Option 1 because the recyclable materials are segregated by the waste collection workers.
Option 4:
Recyclable materials in mixed waste are finally recovered by the waste pickers at the Dandora
Dumpsite. The current system of resource recovery is carried out in combination with
Option 3 in addition to the recovery by waste pickers in town of waste segregated by the waste
generators in Option 1. Since the recovery work at the disposal site influences the landfill
work, waste-picking will be banned at the new landfill site. Accordingly, the MRF will no
longer be required because the waste will be hauled to the disposal site.
Among the above four (4) options, Option 1 is recommended as the most effective method of
recovery of recyclable materials from municipal waste, because the segregation at source
before mixing with other wastes is easier and more amounts of recyclable materials would be
recovered. Option 3, recovery of recyclables by waste collection workers, may be acceptable
as long as the waste-picking would not disturb their waste collection work and risks to
collection workers are avoided as well.

(d) Initiatives of CCN for 3R Activities

In order to implement the 3R activities effectively and efficiently, CCN shall take the primary
role to set up the implementing policies, purposes, strategies, and the phased target levels in
addition to the coordination role for the parties concerned. The establishment of a Special
Task Force in the DoE will thus be required to formulate the implementation plans and

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programmes of 3R including public campaign, school and formal education, the

encouragement of people, support/assistance, and the coordination to form a linkage among
the residents, CBOs, NGOs, other community groups, waste pickers and junkshops in town.
The Special Task Force shall be composed of experts in the field of solid waste management
and social services and the office staff to support the expert staff.
The role of CBOs is increasing especially in solid waste collection, so that the Special Task
Force will be required to monitor, instruct and control their activities. The CBOs and the other
groups involved in the solid waste management services shall be registered with CCN and
their number updated annually to assure the provision of regular services to the communities.

(e) Enhancement of 3R Activities

More recyclable materials will be recovered as segregation is carried out at residential houses
and workplaces of the establishments. However, the waste generators in Nairobi still lack the
awareness to the limited natural resources or the worldwide “save the earth” movement. For
the purpose of recycling, the recovery of recyclable materials shall be enforced as social
activities. The segregation and recovery of recyclables at the waste generation sources will
need the active participation of waste generators so that the following activities shall be
included in the implementation of 3R including the enhancement of resource recovery:
• Demonstration of 3R at pilot areas in communities which shall involve the waste
generators, waste pickers, junkshops and CBOs;
• Demonstration of 3R at pilot workplaces with the participation of all staff of
establishments;
• Raising awareness through education and public campaign to encourage the participation
of waste generators in the 3R activities;
• Support of CCN on the recovery activities by providing transportation for recyclable
materials to the junkshops or to the recycling factories; and
• Promotion of recovery of food waste and biodegradable waste for home composting and
community level composting.

(f) Collection, Storage and Transport of Recyclable Materials

After the segregation of recyclable materials at the generation sources, the waste generators
store them until they are sold. The buyers, junkshops in town or CBOs go around town to
collect recyclables in exchange for money. Most of the junkshops and the CBOs do not have
collection vehicles and use hand carts or tricycles for the collection and storage of recyclable
materials for a month or so until the volume is enough for one truck load to be transported to
the dealers or to the recyclers. To facilitate the material recovery activities, the following
measures would be effective:
• The support of CCN to the groups through the provision of a site for secondary
segregation and temporary storage of recyclable materials;
• The provision of regular collection services for residual wastes after recovery of
recyclable materials at site; and
• The provision of vehicles by CCN/Contractors to the groups with minimal fee or free of
charge for the transportation and sale of recyclable materials.

(g) Setup of MRF, Waste Bank or Buy-Back Centre for Waste Recovery
The current situation of recovery of recyclable materials by waste generators is not always
active due to the lack of a recovery system to attract or give benefits to the people. The trading

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of recyclable materials through the MRF, the Waste Bank or the Buy-Back Centre is
considered as one of the solutions to activate waste recovery through initiation of the following
programmes:
• The opening and management of the MRF, the Waste Bank or the Buy-Back Centre by
CCN or CBOs or NGOs or junkshops or dealers of junked materials where the junkshop
activities are relatively low; and
• The stabilisation of buying/selling prices of recyclable materials by CCN or by the
Ministry of Industrialisation.

(h) MRF Centre Option at Dandora as Relief Measure for Waste Pickers
One of the alternative plans of waste collection and transport include the plan to construct a
transfer station at Dandora, functioning partly as a material recovery facility. This alternative
is proposed aiming at giving relief to about 60 waste pickers who will lose their source of
income after the closure of the Dandora Dumpsite. The scale of the MRF Centre shall be
determined to avoid financial overburden to CCN, but it should be able to accommodate 60
waste pickers, which is about 10% of the waste pickers presently working at the dump site. In
case the waste collection and transport alternative will not be implemented, one of the relief
measures will not materialise. In line with the social considerations for implementing the solid
waste management projects, the construction of a material recovery facility centre at the closed
area of Dandora Dumpsite is one of the options for the relief of waste pickers. The Dandora
MRF centre option is outlined as follows:
• The Dandora MRF centre is proposed as the distribution centre with recycling facilities to
be operated and maintained by the organised groups of waste pickers linking with the
junk dealers and recyclers and assisted by CCN.
• The Dandora MRF centre shall have the main function of receiving only recyclable
materials from collection vehicles, secondary sorting, shipping to recyclers/factories, and
as information centre of stocked recyclable materials through a web page.
• For the purpose of providing relief to more waste pickers, the Dandora MRF centre may
be provided with the additional function as pilot compost plant to convert biodegradable
waste collected from the neighbouring houses and hawkers’ markets.
The conceptual plan of the Dandora MRF centre is as follows;
Required Site Area : Approximately 5,000 m2
Total Floor Area : Approximately 1,900 m2
Receiving Amount of Recyclable Materials : Maximum 20 tons per day
Receiving Amount of Biodegradable Waste : Maximum 4 tons per day
Storage of Recyclable Materials : 2 weeks
Number of Operation Staff : Approximately 60 persons
Component Facilities : Receiving Area, Secondary Sorting Area,
Processing Area, Storage Area, Shipping
Area, Composting Area, Management
Office, Appurtenant Facilities
The project cost of the Dandora MRF Centre described above is estimated to be approximately
KSh 116 million for investment cost and KSh 119 million for operation and maintenance cost
from 2017 to 2030, excluding land acquisition cost. For details, refer to the cost estimate given
in Section D of Volume 4, Data Book.

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(i) Legislative Measures for Promotion of 3R Activities

In Japan, the Ministry of Environment enforces several laws and regulations for establishing a
recycling-based society. These laws are as follows:
• The Basic Environment Law;
• The Basic Law for Establishing the Recycling–based Society;
• Waste Management and Cleansing Law;
• Law for Promotion of Effective Utilisation of Resources;
• Container and Packaging Recycling Law;
• Electric Household Appliance Recycling Law;
• Construction Material Recycling Act;
• Food Recycling Law; and
• Law on Promoting Green Purchasing.
In Kenya, the Environmental Management and Coordination (Waste Management)
Regulations of 2006, in relation to Sections 92 and 147 of the Environmental Management and
Coordination Act, (No. 8 of 1999), is implemented by the National Environment Management
Authority (NEMA). The said Waste Management Regulation of 2006 stipulates the
responsibilities of waste generators concerning segregation, but it does not have a clear
definition of the means of compliance by the waste generators. In order to establish a
recycling-based society, the enactment of a comprehensive legislative arrangement is
required, together with the enforcement of relevant laws and regulations like the case in Japan.
In order to promote the 3R activities proposed in the SWM Master Plan, initially, the following
legislative measures are required together with the enforcement of national level regulations
and/or the By-law of CCN for performing the required activities and achieving the target level:
• Enactment of a law which will clearly define the roles and responsibilities of CCN, waste
generators including residents and owners of establishments, CBOs, junkshops, waste
collectors and transporters, recycling industries, Ministry of Local Government (MoLG),
NEMA and other relevant central government agencies, regarding the 3R activities
including waste segregation at source;
• Enactment of a law stipulating the provision of technical and financial assistance as well
as support by CCN and/or the relevant government agencies to CBOs, junkshops, waste
collectors and transporters, and recycling industries, for sustainable 3R activities;
• Formulation and implementation of guidelines stating the target recyclable materials,
target level of waste reduction and resource recovery, and the linkage and roles of
stakeholders in the activities;
• Establishment of regular financial sources of CCN’s annual budget for the
implementation of 3R activities; and
• Establishment of systems for monitoring, inspection and improvement of the 3R
activities.

(j) Overall Target Level of 3R

The target level of each 3R activity is proposed by phase as listed in Table 4.4.15. The target
levels were determined based on the characteristic of municipal waste in Nairobi City and the
practices in many other countries. Reference shall be made to Section D of Volume 3,
Supporting Report.

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Table 4.4.15 Proposed Target Level of 3R Activities

3R Activities 2009 2015 2020 2025 2030
Waste Reduction 0% 5.0% 7.5% 10.0% 10.0%
Material Recovery 4.7% 6.3% 9.3% 10.8% 12.3%
Biodegradable Waste Recovery 0.6% 3.3% 3.4% 3.4% 3.4%
Waste Diversion for Final Disposal 5.3% 14.6% 20.1% 23.2% 25.7%

The draft of the National and Municipal Solid Waste Management Strategies prepared by the
Office of the Deputy Prime Minister and the Ministry of Local Government states that the
local authorities must meet the statutory 30% recovery ratio of waste by 2018 for the
short-term and middle-term targets and progressively increase to over 50% by 2030 for the
long-term target. It seems, however, that the draft target level is too high for the large cities to
realise and it is also a challenging level even for the small cities. Moreover, the equation for
determining the recovery ratio or the draft target level is not clear, especially, for the waste
amount used as the denominator. Although the proposed target level of waste diversion ratio
of about 26% in 2030 for 3R activities was determined based on the denominator taken from
the potential waste collection amount and proposed at a practical level for large cities like
Nairobi City, the target level and the 3R programmes should still be reviewed and the National
and Municipal Solid Waste Management Strategies should be updated.

(k) Outline of Proposed 3R Plan

Based on the above considerations, the programmes under the 3R Plan should be implemented
through the initiative of the Special Task Force proposed to be organised in the DoE of CCN
through the actions taken on waste generators including residents, establishments, and all other
stakeholders for participation to the programmes. The programmes to be implemented under
the 3R Plan consist of the items shown in Table 4.4.16 to Table 4.4.19.

Table 4.4.16 Programmes under 3R Plan (1)

Waste Generation Source Control for Waste Reduction
Planning Purposes Actions by CCN & Government Actions by Consumers, Communities &
Agencies Establishment
Production Control
Use of more returnable bottle goods Encouragement & assistance of makers Use of returnable bottle goods by the
consumers and production of returnable
bottle goods by the manufacturers
Use of eco-friendly goods and Encouragement & assistance of the Use of eco-friendly goods by the
over-packaging makers consumers and development/ production
of eco-friendly goods by the
manufacturers.
Distribution & Sale Control
Marketing of more returnable bottle Control of non-returnable bottle goods Ensure recovery & deposit systems
goods
Reduction of over packaging Control of over-packaging goods Sale/Purchase of simple packaging
goods
Consumer Control
Reduction of domestic waste generation Save the Earth campaign & education Participation & change of previous habit
rate
Reduction of plastic shopping bags Campaign & education on use of own Participation & use of own shopping bag
shopping bag

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Waste Generation Source Control for Waste Reduction

Planning Purposes Actions by CCN & Government Actions by Consumers, Communities &
Agencies Establishment
Waste Charge Control
Application of progressive rate waste Establishment of fair waste charge Payment of waste bill
tariff system
Penalty to unpaid bills Monitoring & collection of unpaid bills Acceptance for payment of waste charge
Commercial & Institutional Waste Control
Reduction of business waste generation Public campaign, monitoring & control Participation & change of previous habit
rate of staff
Application of progressive rate waste Establishment of fair commercial waste Payment of commercial waste bill
tariff charge system

Table 4.4.17 Programmes under 3R Plan (2)

Waste Discharge Control for Recovery and Waste Diversion
Planning Purposes Actions by CCN & Government Actions by Consumers, Communities &
Agencies Establishment
Promotion of Self-disposal & Recovery
Reduction of discharge amount at Campaign for safe Participation in safe
generation sources self-treatment/disposal self-treatment/disposal
Composting by individual house Campaign, assistance & instruction of Participation in home composting
home composting
Composting by community groups Campaign, assistance & instruction of Participation in community composting
community composting
Reduction of broken instrument & elect. Campaign, assistance, instruction of Repair, sale and use second-hand goods
appliances repair shops
Reduction of reusable waste Campaign & assistance for Participation in garage/garden sale &
garage/garden sale & exchange exchange

Table 4.4.18 Programmes under 3R Plan (3)

Recovery of Recyclable Materials at Generation Source and Reuse
Planning Purposes Actions by CCN & Government Actions by Consumers, Communities &
Agencies Establishment
Recovery and Reuse by Residents & Communities
Establishment of resource saving society Save the Earth campaign & education Participation in the activities
Increase of efficiency of resource Determine the phased target level for Segregation of recyclable materials
recovery operations recovery of recyclable materials
Securing of routes for recovery & trading Encouragement, assistance to junkshops/ Utilisation of the recovery routes
of recyclable materials dealers and recovery centre(s)
Recovery of recyclable materials from Campaign, education, encouragement & Recovery of more recyclable materials
domestic waste assistance for establishment of the by residents & CBOs
system
Recovery of recyclable materials from Campaign, education, encouragement & Recovery of more recyclable materials
commercial & institutional wastes assistance to the establishments by the establishments

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Table 4.4.19 Programmes under 3R Plan (4)

Recycling of Recyclable Materials
Planning Purposes Actions by CCN & Government Actions by Consumers, Communities &
Agencies Establishment
Utilisation of Recyclables by the Recyclers/Factories
Enhancement of involvement of Encouragement & assistance to Participation in the waste recycling
recycling industries recyclers/factories programme
Regular recovery & shipping of Assistance for linkage among the Participation in regular trading of
recyclable materials operators of recyclable materials recyclable materials
Development of technologies for Encouragement & assistance to Production of new goods & use of
utilisation of recyclable materials recyclers/factories recycling products

(2) Intermediate Treatment Plan

(a) Outline for Development of Intermediate Treatment Plan
Considering the overall financial constraint against the solid waste management by CCN, the
SWM Master Plan is to be formulated with the required minimum system to be developed,
especially, for waste collection services and waste disposal. Accordingly, the development of
intermediate treatment shall be limited to the least cost options at this stage. However, the
intermediate treatment facilities are indispensable for the establishment of an integrated solid
waste management system for Nairobi City. Therefore, studies should be carried out for
several intermediate treatment options towards future development in consideration of the
result of waste composition analysis, as described in the following subsections.
In view of the technical options commonly discussed nowadays among the people concerned,
the four (4) technical options including incineration, incineration with power generation,
methanisation with power generation and composting were selected for evaluating the most
appropriate intermediate treatment facilities for Nairobi City. These technical options were
evaluated according to factors such as waste characteristics, progress of “waste to energy”
projects in Nairobi City, practices in other countries, cost factor, etc. For the study on
incineration facilities, no information on incineration facilities in developing countries was
available during the survey and there is almost no incineration facility constructed to meet the
scale for Nairobi City. Since there is a long history of development of intermediate treatment
facilities by almost all the cities and municipalities in Japan, the information and data on
practices in Japan were collected for evaluation, especially, of incineration facilities. The
following items present the development of the plan and the evaluation for selecting the best
option of intermediate facility.

(b) Proposed Technical Options of Intermediate Treatment for Nairobi City

There are many technical methods of intermediate treatment of municipal waste although
some of them are effective only for small systems and some other options are technically
sophisticated. Considering the waste characteristics, the waste amount for treatment and the
technologies discussed with the people concerned, the following four technical options
including incineration, incineration with power generation, methanisation with power
generation and composting as shown in Figure 4.4.6 were studied as possible intermediate
treatment facilities for Nairobi City.

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Option 1
Incineration

Combustible Ash
Waste

Option 2
Incineration with Ash
Power Generation

Option 3
Power Generation
Methanization

Biodegradable
Waste Residues: Composting or Disposal

Option 4
Rejects
Composting

Other inorganic
Final Disposal
waste

Figure 4.4.6 Technical Options of Intermediate Treatment

(c) Waste to Energy Project by KenGen

The Kenya Electricity Generating Company (KenGen) concluded a contract for consulting
services in May 2010 to carry out a feasibility study for the Nairobi Urban Waste to Electricity
Plant. The study is expected to be accomplished in six (6) months. The project focuses on the
utilisation of waste at the landfill site(s) as the renewable energy site for generating electricity.
Since the study report will not be completed by the time of submission of the updated SWM
Master Plan in September 2010, the study on Waste to Energy was carried out independently
taking into consideration the points mentioned below. It is hoped that the Waste to Energy
Project of KenGen will refer to the updated SWM Master Plan in the feasibility study that will
be conducted.
• Careful study on the characteristics of combustible waste in terms of low calorific value.
• Waste collection ratio/amount for determining the plant scale and available power
generation capacity.
• Involvement or roles of CCN in project implementation.
• Availability of co-partner for implementation and financing agency(s).

(d) Intermediate Treatment Practiced in Japan

Table 4.4.20 and Figure 4.4.7 provide data and information on the intermediate treatment
practiced by 6,639 facilities in 1,817 local government units in Japan in fiscal year 2007. In
Japan, the municipal solid waste amount for treatment and disposal reaches approximately
150,000 tons per day. The incineration method is the most popular treatment method with 68%
followed by the recycling facilities, direct recycling, and the bulky waste treatment facilities
with 6%, 5% and 5% respectively. Waste incinerators are, therefore, the major intermediate
treatment facilities in Japan. This is due to the government policy requiring the local

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government units to consider the limited land area within their jurisdiction and the necessity to
reduce the volume of waste for final disposal. In addition, the calorific value of waste in Japan
is high enough and advantageous for the introduction of incineration plants in the local
government units except for the municipalities in rural areas where agriculture is the major
industry.
Table 4.4.20 Intermediate Treatment and Disposal Practiced in Japan
in Fiscal Year 2007
Treatment Method Waste Amount (ton/day) Ratio (%) No. of
Facilities
Self-disposal 153 0.10 227
Incineration 101,401 67.75 1,066
Direct-Disposal 3,225 2.16 808
Bulky Waste Treatment 6,744 4.51 1,195
Recycling Facilities 9,363 6.26 1,550
Composting Facilities 353 0.24 178
Production of Feed 1 0.00 2
Methane Generation 68 0.05 27
Refuse-Derived Fuels 1,952 1.30 144
Other Facilities 428 0.29 202
Direct-Recycling 7,220 4.82 1,240
Total 149,662 100.00 6,639

Ratio by Method of Treatmet (%)

Direct-Recycling, 4.82%
Recycling Facilities,
6.26%

Bulky Waste Treatment,

4.51%
Self-disposal
Incineration
Direct-Disposal, 2.16%
Direct-Disposal
Bulky Waste T reatment
Recycling Facilities
Composting Facilities
Production of Feed
Methan Generation Incineration, 67.75%
Refuse Deribed Fuels
Other Facilities
Direct-Recycling

Figure 4.4.7 Intermediate Treatment and Disposal Practiced in Japan in Fiscal Year 2007

(e) Incineration Plants in Japan

The total number of incineration plants operated in Japan was 1,066 in fiscal year 2007. Some
of the plants are installed with a power generator and some have no power generator, as
summarised below.
• 224 plants with power generator have the maximum capacity of 1,800 ton/day (average
plant size: 420 ton/day)
• 842 plants without power generator have the maximum capacity of 900 ton/day (average
plant size: 80 ton/day)

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Table 4.4.21 shows that the three contents of combustible wastes for incinerators with a power
generator, i.e., water content, combustibles and Ash, are 44.1%, 48.6% and 7.3 % respectively.
For the incinerators without a power generator, they are 47.9%, 45.2% and 6.9 % respectively.
With regard to calorific value, the average computed from the three contents is more than
8,000 kJ/kg-waste for incinerators with a power generator and even the incinerators without a
power generator it is more than 7,500 kJ/kg-waste.

Table 4.4.21 Calorific Value of Combustible Waste of 1,066 Incineration Plants

in Japan in Fiscal Year 2007
Items Incineration with Power Generator Incineration without Power Generator
Three Contents Water Content Combustibles Ash Water Content Combustibles Ash
(%) (%) (%) (%) (%) (%)
Mean Value 44.1 48.6 7.3 47.9 45.2 6.9
Low Calorific Computed Measured Computed Measured
Value (kJ/kg) Value Value Value Value
Mean Value 8,153 9,384 7,540 8,398

The planning of incineration by major intermediate treatment facilities largely depends on the
characteristics of municipal wastes, specially, the calorific value. Table 4.4.12 gives the
summary of laboratory analysis of 30 samples of domestic waste in Nairobi City conducted
from January to March 2010 by the local consultant engaged by the JICA Survey Team. The
average water content reached almost 69.7%, Combustibles, 26.8%, and Ash, 3.5%. The
water content of wastes in Nairobi City is very high due to the higher commingled ratio of food
waste in municipal waste. Accordingly, the ratio of combustible waste becomes low and the
condition is disadvantageous for the combustion of municipal waste. Low calorific value is
computed from the three contents of waste by the following equation and the results:
Equation of Low Calorific Value (kcal/kg-waste): 45 × V - 6W
Where, V: Ratio of Combustibles in %
W: Water Content in %,
By inputting the laboratory test results in Table 4.4.22 to the equation, the obtained low
calorific value is 788 kcal/kg-waste, which is equivalent to 3,302kJ/kg-waste. This value is
lower than the self-combustion limits so that the incineration of waste needs feeding of
auxiliary fuel.

Table 4.4.22 Result of Laboratory Test of Three Contents

(Domestic Waste), Jan-Mar 2010
Water Content Combustibles Ash
69.7% 26.8% 3.5%

(f) Methanisation and Composting in Japan

As shown in Table 4.4.20, the waste amount treated by methanisation in 27 facilities in Japan
is only 0.05% and the largest plant treats about 12 tons per day21. On the other hand, waste
amount treated by composting in 178 facilities reaches 0.24% and the largest plant treats about
30 tons per day.
Methanisation started only recently in Japan, especially, in the food industry for recycling of
leftover food to comply with the Foodstuff Recycling Law of 2000. Methanisation is practiced
more popularly in the farms where the breeding of hogs or cowshed use farm waste together
with the excrement of pigs and/or cows. The generation of methane gas is carried out under

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the constant temperature of biodegradable liquid in the methanisation tank through bacterial
reaction and it becomes difficult to enlarge the plant scale. The information on technological
reliability and the installed number of plants are still not enough to evaluate the introduction of
large-scale methanisation plants for the treatment of biodegradables in municipal waste. In
Japan, the composting of municipal waste is not a popular method for the treatment of
municipal waste. However, the number of composting facilities has been increasing in the last
10 years and the attention of farmers in Japan is directed to compost for organic farming.

(g) Composting of Biodegradable Waste

With the higher ratio of food waste to biodegradable waste of more than 62% of municipal
waste in Nairobi, composting will be the most practical means for intermediate treatment. The
least cost composting method shouldl be developed taking into consideration the premises
summarised below.
• The proposed Task Force in DoE shall prepare the implementation plan to promote home
composting and community composting and explore the possibility of central
composting.
• Implementation of home composting in pilot residential areas to provide training,
instructions, information on home composting and its expansion to neighbouring areas.
• Involvement of CBOs or other community groups in providing, supporting, assisting and
giving instructions on the operation of a community pilot plant and in expanding the
system to the neighboring areas,
• Development of pilot central composting and management by CCN through the
involvement of tenants of target public markets in the segregation of biodegradable waste
for the supply of raw materials for composting.
• Evaluation of effectiveness of home composting, community composting and central
composting for the continuation of programmes.
• Analysis of data on demand and supply of compost in Nairobi and the surrounding areas
for the purpose of ensuring that compost derived from waste is supplied for farming and
gardening.

The JICA SWM MP-98 report estimated the compost demand at 2,700 tons per day based on
the horticulture area of 100,000 hectares in the vicinity of Nairobi City22 and as mentioned in
Subsection 2.5.2(2), horticulture has grown in the last decade to become a major foreign
exchange earner, employer and contributor to foods needs in the country. In addition, the
report “Horticulture Industry in Kenya 2005” by the Export Processing Zone
Authority (EPZA) of Kenya23 also shows that quantities of principal horticulture exports
increased from 200,000 in 1999 to 350,000 ton in 2003. Accordingly, it is understandable that
the current compost demand in the vicinity of Nairobi City exceeds more than 2,700 tons per
day.

(h) Qualitative Evaluation of Intermediate Treatment Options

Table 4.4.23 summarises the evaluation of options for intermediate treatment which could be
applicable for the intermediate treatment facilities of Nairobi City. As a whole, waste
characteristics are the key to choose the best alternative. Higher water content due to high
ratio of food waste commingled in municipal waste in Nairobi City is disadvantageous to
waste incineration. On the contrary, this high commingled ratio of food waste, biodegradable
waste, gives an advantage to methanisation and composting. Considering the impacts to the
environment, Option 4, composting, is a more environment-friendly system. As stated earlier,
the development of intermediate treatment is obliged to take consideration of the financial

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situation of CCN. The costs for investment, operation and maintenance in Option 1, Option 2
and Option 3 are not affordable to CCN and only Option 4, composting of biodegradable
waste, is recommendable for the intermediate treatment in Nairobi City. The options of waste
to energy may be reviewed again as the waste calorific value increases and the financial
situation improves.

Table 4.4.23 Qualitative Evaluation of Intermediate Treatment Options

Evaluation Items Option 1: Option 2: Option 3: Option 4:
Incineration Incineration with Power Methanisation with Composting
Generation Power Generation
Objective Waste Combustible Waste Combustible Waste Biodegradable Waste Biodegradable Waste
Technical Reliable Reliable but complex in Biological reaction is not Biological reaction is not
Reliability operation stable stable
Cost Expensive Very Expensive Expensive Cheaper
Environmental Need removal of Need removal of Odour and risk of Odour in miss operation
Aspect pollutants from pollutants from flammable gas
combustion gas emission combustion gas emission
Applicability Small towns to large cities Middle to large cities Small towns, Small town to middle
communities, farms or cities
food waste treatment
Recommendations Future, wait for increase of Future, wait for increase of Future, wait for the O&M Implement home and
for application to calorific value of waste calorific value of waste information of large scale community scale
Nairobi solid and plants. composting. Implement
waste intermediate development/investment the pilot central compost
treatment facilities partner plant for studying future
development of practical
scale central compost plant

(i) Outline of Proposed Intermediate Treatment Plan

The programmes to be implemented under the Intermediate Treatment Plan consist of the
following components:
• Home Composting
• Community Composting
• Central Composting

Home Composting
Home composting is to be carried out in eight (8) Divisions of Nairobi City excluding the
Central Business District (CBD). Fifty (50) households will form a home composting group in
each Division, which is deemed sufficient in number to obtain samples for effectiveness
analysis and for implementing the guidance on home composting through seminars and
workshops in the Survey. The representative households will be selected from the high and
middle income groups with wide lots or gardens.
Home composting is to be carried out in two (2) Divisions or 100 households per year, i.e., 400
households in total for four (4) years in consideration of the implementing capacity of
CCN. All pilot home composting projects shall be carried out extensively during the first four
(4) years in the short-term period through the provision of home composting units and regular
visits to provide instructions regarding the production of quality home compost. During the
first four (4) years, a facilitator shall promote home composting in the neighboring
areas. From the fifth year onwards, a facilitator shall also maintain, promote and expand the

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home composting to the other areas of Nairobi. The cost of supply for the first four (4) years
shall be shouldered by CCN or by the technical assistance programme.
Community Composting
Community composting is to be carried out in collaboration with the Community Participation
Promotion Plan in eight (8) Divisions in Nairobi City excluding the CBD. One (1) CBO will be
assigned to each Division to manage the activities of pilot community composting in addition
to the activities of segregation of recyclable materials at sources and primary waste collection
in designated areas. The first two (2) community compost plants having the capacity of 200 kg
per day are to be constructed in 2012. The capacity of the plant has been decided in
consideration of the present practice in Nairobi City, in order to setup a compost plant with an
appropriate scale and to secure permanent staff as well as the required area for the activity of
one (1) CBO. The plants shall be operated immediately as pilot plants by the CBOs or other
community groups to accumulate data for analysis and for searching the possibility for
expansion of the community composting activities. After the two-year pilot period, six (6)
plants, i.e., two (2) plants per year, shall be constructed and operated. Investment costs of
these eight (8) community compost plants shall be shouldered by CCN or by the technical
assistance programme.
Central Composting
Central composting is to be carried out with four (4) central compost plants basically targeted
to input biodegradable waste discharged from city public markets. At present, 90 tons of
market waste composed of 80 tons of biodegradable waste is discharged from 44 city markets
per day. The central composting will target half of the biodegradable waste discharged from
the city markets, which is equivalent to 40 tons per day. The cost-benefit conventional
windrow-type composting process shall be applied for the central compost plant to be sited
adjacent or nearby the city markets. Considering cost, availability of construction site and the
scale of a pilot plant to analyse the effectiveness of large-scale composting in future, the
central composting shall be carried out with four (4) plants of 10 tons each per day. The first
plant with 10 tons per day is scheduled to be constructed and start operations in 2016. This
first plant, a pilot plant, shall be tested for one (1) year in the following year to study the
appropriateness of the design from the technical and economic points of view. After the one
year evaluation period, another three (3) central plants shall be constructed at one (1) plant per
year for further piloting for the development of large-scale central compost plants in Nairobi
City. The investment cost and operation and maintenance cost shall be borne by CCN through
project loan.

(j) Project Cost of 3R and Intermediate Treatment Plan

The programmes under the 3R plan shall be implemented in collaboration with the
Community Participation Promotion Plan and the project cost of Community Composting
shall refer to the Section of the Community Participation Promotion Plan. The project cost is
estimated to be KSh 964.1 million. The project cost of each phase is summarised as follows:

Project cost of short-term period (2011-2015) : KSh 127.6 million

Project cost of mid-term period (2016-2020) : KSh 522.7 million
Project cost of long-term period (2021-2030) : KSh 313.8 million
Total : KSh 964.1 million

The overall project cost of 3R and Intermediate Treatment Plan including 10% of physical
contingency to the construction works will be KSh 1,018.1 million.

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4.4.3 Final Disposal Plan

Since the Dandora Dumpsite is currently causing major impacts on the local environment, the major
objective of the final disposal plan is to immediately construct a new landfill site and to close the
Dandora Dumpsite as soon as possible. Moreover, it will be necessary to introduce a sanitary landfill
system on the new landfill site to ensure that it does not cause similar environmental impacts as those
experienced in Dandora. Also, it will be necessary to address the numerous illegal dumpsites that are
scattered everywhere in Nairobi City.

(1) Future Plans for Final Landfill Site

The survey, design and construction of the new landfill site will need to be implemented with a
view to starting operation from 2017. The sanitary landfill system shall be introduced in the new
landfill site to minimise the impacts to the local environment.

(a) Suitable Sanitary Level of Landfill System

The sanitary level of landfill system can be classified into four (4) types as shown in
Table 4.4.24. The Dandora Dumpsite falls under Level 1. As for the new landfill site,
considering the impacts on the local environment, it should correspond to Level 3, which
includes basic leachate treatment facilities.

Table 4.4.24 Classification of Sanitary Level of

Landfill System
Required Level
Level 1 Controlled tipping
Level 2 With a bund and daily cover soil
Level 3 Effluent control of leachate
Level 4 Leachate treatment system

(b) Selection and Evaluation of Candidate Final Sanitary Landfill Sites

In order to introduce a sanitary landfill, it is necessary to select a site that is suitable for final
landfill construction. A total of 17 sites located in and around Nairobi have been selected as
candidates for the new landfill based on topographical conditions. These were evaluated
according to the criteria shown below and the most suitable landfill site was selected.
Figure 4.4.8 shows the Location Map of Candidate Final Sanitary Landfill Sites.

(i) Authenticity regarding Reserved Areas or National Parks

Since the Government of Kenya had declared some areas as National Reserve Areas
and/or National Parks, the Project should confirm that the sites selected for waste disposal
are not assigned as such.
(ii) Jurisdiction of Military Authorities
The Project should confirm that the sites are not within or around a military facility.
(iii) Land Acquisition and Relocation
The Project should confirm the owner of the sites and the necessity of relocation if
residents exist in the sites.

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(iv) Volume of Candidate Site as Final Landfill

It is necessary to ensure that the area proposed for the landfill could be utilised for a
number of years.
(v) Geological and Hydrological Situation
It is preferable to choose a site with good geological conditions to reduce construction and
maintenance costs. Proposed sites located upstream of headwaters such as dams and/or
lakes are not suitable for a landfill.
(vi) Historical Land Use and Future Land Use Plan
The Project should confirm the current usage given to the proposed sites as well as the
future plans for such areas.
(vii) Accessibility to Existing Transportation and Future Transportation Plan
The Project should confirm the accessibility of the proposed sites as well as future road
development for the surrounding areas.

The major constraints to the selection of candidate final landfill sites are given in Table 4.4.25.

Figure 4.4.8 Location Map of Candidate Final Sanitary Landfill Sites

Note: Number indicated for each candidate sites refers to the same number in Table 4.4.25.

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Table 4.4.25 Major Constraints to the Selection of Candidate Final Landfill Sites
No. Site Name Evaluation (Disadvantages)
1 Ngong Road Forest Unsuitable (Include a forest; Capacity is not enough; Include a part of bypass plan area)
2 Arboretum Unsuitable (Include a forest; Capacity is not enough; Close to State house)
3 Karura Forest Unsuitable (Include a forest; Capacity is not enough)
4 Kamukunji Eastleigh Unsuitable (Military reservation area; Capacity is not enough; Close to Embakasi Airport)
5 Mirema Farm Unsuitable (Include a part of bypass plan area)
6 Kasarani Area Unsuitable (Close to sports facilities; Electric power line is located in the site centre)
7 Embakasi Garrison Unsuitable (Military reservation area; Access road is not paved)
8 J.K.I.A. Unsuitable (Capacity is not enough; Close to Airport; Access road is not paved)
9 Industrial Area Unsuitable (Capacity is not enough; Electric power line is located in the site)
10 Njiru Area Unsuitable (Capacity is not enough; Access road is not paved)
11 Ruai Area Suitable (Access road is not paved, Distance from the city centre: 28km)
12 Dagorretti Forest Unsuitable (Out of Nairobi City; Include a forest)
13 Ongata Rongai Unsuitable (Out of Nairobi City; Close to school and residential area)
14 Ruiru Area Unsuitable (Out of Nairobi City; Residential area, Access road is not paved)
15 Athi River Area Unsuitable (Out of Nairobi City; Plantation area; Distance from the city centre: 27km)
16 Juja Area Suitable (Out of Nairobi City; Distance from the city centre: 32km)
17 Mavoko Area Suitable (Out of Nairobi City; Distance from the city centre: 30km)
Note: Number indicated for each candidate sites refers to the same number in Figure 4.4.8.

As a result of the evaluation, three (3) sites, namely; the Ruai Area, the Juja Area and the
Mavoko Area, are deemed to be suitable as final landfill sites. However, since the Juja and
Mavoko areas are situated on private land outside of the city limits, it will be necessary to hold
negotiations with the Thika County Council and the Mavoko Municipal Council which have
jurisdiction over these areas, and this procedure could take time. Therefore, the basic plan shall
be to utilise Ruai, which is CCN-owned land and located inside the city limits, while Juja Area
and Mavoko Area will be examined as options for use in combination with Ruai. The options
for the final landfill site as follows:
• Option 1 : Ruai Area
• Option 2 : Ruai Area + Juja Area
• Option 3 : Ruai Area + Mavoko Area

(c) Aviation Act (Ruai Area)

Since the Ruai Area is about 39,000 feet away from the runway of the Jomo Kenyatta
International Airport (JKIA), it is presumed that this area is not under the purview of the civil
aeronautics law in relation to landfill construction. Detailed information on the civil
aeronautics law is given in Section E of Volume 3, Supporting Report.

(d) Final Disposal and Facility Plan

(i) Landfill Site Capacity Requirement
Land-filling on the new landfill site will be conducted for 14 years from 2017 to 2030.
The landfill capacity of the site will be the total of waste carried onto the site and the cover
earth placed in order to prevent waste from flying off. Based on the previous master plan
and other relevant studies, the bulk density of waste will be 1.0 cubic metre per ton
(m3/ton). Detailed information on the bulk density of waste is given in Section E of
Volume 3, Supporting Report.

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There are three types of cover soil, namely; daily cover soil, intermediate cover soil and
final cover soil. In order to carry out a sanitary landfill, it is necessary to have cover soil
equivalent to one-third the volume of waste (m3). Table 4.4.26 shows the landfill capacity
of Option 1. In Option 1, i.e., the case where the new landfill site would be constructed in
only Ruai, a capacity of 12,670,000 m3 will be required. As for Option 2 or 3, the cases
where the new landfill sites are going to be constructed at two places, i.e., one in Ruai and
the other in Juja or Mavoko, the required capacity in these options will have to be
8,490,000 m3 at Ruai and 4,180,000 m3 at Juja or Mavoko.

Table 4.4.26 Landfill Site Capacity Requirements

Waste Waste Waste Amount Cover Soil Total Waste Total
Amount Amount (m3/year) (m3/year) Amount AccumulatedWaste
Year
(t/d) (m3/d) (m3/year) Amount (m3)
(1) (2) = (1)*1.0 (3) = (2)*365 (4) = (3) / 3 (5) = (3) + (4) (6)
2017 1,067 1,067.0 389,455 129,818 519,273 519,273
2018 1,159 1,159.0 423,035 141,012 564,047 1,083,320
2019 1,256 1,256.0 458,440 152,813 611,253 1,694,573
2020 1,353 1,353.0 493,845 164,615 658,460 2,353,033
2021 1,477 1,477.0 539,105 179,702 718,807 3,071,840
2022 1,610 1,610.0 587,650 195,883 783,533 3,855,373
2023 1,744 1,744.0 636,560 212,187 848,747 4,704,120
2024 1,887 1,887.0 688,755 229,585 918,340 5,622,460
2025 2,035 2,035.0 742,775 247,592 990,367 6,612,827
2026 2,177 2,177.0 794,605 264,868 1,059,473 7,672,300
2027 2,329 2,329.0 850,085 283,362 1,133,447 8,805,747
2028 2,481 2,481.0 905,565 301,855 1,207,420 10,013,167
2029 2,643 2,643.0 964,695 321,565 1,286,260 11,299,427
2030 2,815 2,815.0 1,027,475 342,492 1,369,967 12,669,394
Total 9,502,045 3,167,349 12,669,394

(ii) Landfill Method

On the new landfill site, the semi-aerobic landfill method, which is expected to aid in the
early stabilisation of leachate, should be introduced. Figure 4.4.9 shows the typical
structure of a sanitary landfill.

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Figure 4.4.9 Typical Structure of Sanitary Landfill

(iii) Facility Plan and Design

The facilities shown in Table 4.4.27 should be installed in order to realise the
semi-aerobic landfill method on the new landfill site. A leachate treatment system that is
easy and cheap to maintain should be adopted to realise the sustainable functions in the
system. In addition, it should be necessary to secure the capacity of 5,100,000 m3 or
7,600,000 m3 at the Ruai site. In case the entire capacity is installed over one section,
since the waste will be dumped indiscriminately over an extended area, the site
management will become complicated. Moreover, since the leachate treatment facility
becomes larger as the site area increases, the construction cost would also become more
expensive. Accordingly, the site should be constructed as two distinct zones.

Table 4.4.27 Major Components of Landfill Site

1. Structure for Solid Waste Retention
1-1.Enclosure dike
1-2.Divider dike
2. Leachate Collection Facilities
2-1.Leachate collection pipe (main & branch)
2-2.Leachate reservoir pit
3. Leachate Treatment Pond
4. Landfill Gas Exhaust Equipment (pipe)
5. Rainwater Drainage
6. Access Road and Onsite Road
7. Groundwater Monitoring
8. Administrative Facility

Figure 4.4.10 shows the layout plan of Ruai, while Figure 4.4.11 shows the vertical section view
and structural drawing of leachate collection and drainage pipes and gas exhaust pipes, which are
important facilities for the semi-aerobic landfill method.

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Figure 4.4.10 Layout Plan of Ruai Final Sanitary Landfill Site

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Figure 4.4.11 Vertical Section View of Ruai Final Sanitary Landfill Site

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(d) Maintenance and Operation

It is important to implement appropriate maintenance in order to maintain landfill site
functions and limit impacts on the local environment.
The daily flow of landfill work should be as follows: (i) weigh the waste as it is carried in;
(ii) dump the waste in the designated positions; (iii) level the dumped waste; and (iv) apply
covering soil at the end of the day.
Since the sandwich cell method shown in Figure 4.4.12 will be introduced on the new landfill
site, it will be necessary to conduct intermediate soil covering as the landfilling progresses.

Figure 4.4.12 Sandwich Cell Method

In order to ascertain the impacts on the local environment and the state of waste, it will be
necessary to implement the environmental monitoring shown in Table 4.4.28. Records of
monitoring results should be stored until the landfilling has finished.

Table 4.4.28 Monitoring Items in Final Sanitary Landfill Sites

Monitoring Items Monitoring Facilities Frequency Inspection Items

pH, BOD, COD, SS, NH4+, TDS, E.coli,

Treated Leachate Sand Sedimentation Pond 1/month
Total coliforms
pH, BOD, COD, SS, NH4+, TDS, E.coli,
Groundwater Monitoring well (x 2) 2/year
Total coliforms
pH, BOD, COD, SS, NH4+, TDS, E.coli,
Leachate Leachate Reservoir Pit 4/year
Total coliforms
Landfill Gas Exhaust Pipe
Landfill Gas 4/year CH4, CO2, O2, CO, H2S,Temperature
(Vertical Type)

(e) Cost Estimate

Table 4.4.29 shows the new landfill site construction cost and maintenance cost for each year
in Option 1. The total cost up to 2030 will be approximately KSh 12.2 billion. When converted
into the cost per unit weight of waste (tons) carried onto the site, this works out as KSh 1,279
per ton. As for Option 2, in which the new landfill site is combined with Juja or Mavoko, the
unit cost will be KSh 1,331 per ton in the case of Ruai + Juja and KSh 1,401 per ton in the case
of Ruai + Mavoko. The cheapest option is therefore to conduct landfilling on Ruai site only,
i.e., Option 1.

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Table 4.4.29 Annual Landfill Expenditure for New Final Sanitary Landfill Site at Ruai
(Unit: in Thousand KSh)
Construction Engineering Fee Procurement
Waste
of Heavy
Year Amount Enclosure Construction O&M Total
Main Design Machine
(m3/year) Dike Supervision Equipment
2013 180,800 180,800
2014
2015 1,265,600 63,280 1,328,880
2016 2,350,400 117,520 140,300 2,608,220
2017 519,273 66,850 66,850
2018 564,047 69,830 69,830
2019 611,253 477,690 73,560 551,250
2020 658,460 77,280 77,280
2021 718,807 456,650 83,580 57,500 597,730
2022 783,533 67,250 88,030 155,280
2023 848,747 439,810 92,480 532,290
2024 918,340 470,750 404,040 23,538 96,920 995,248
2025 990,367 874,250 43,712 101,370 1,019,332
2026 1,059,473 109,810 70,500 180,310
2027 1,133,447 296,720 414,820 711,540
2028 1,207,420 292,510 439,810 732,320
2029 1,286,260 288,300 466,090 754,390
2030 1,369,967 260,940 493,650 754,590
Sub-Total 12,669,394 4,961,000 2,916,660 248,050 248,050 2,674,080 268,300 11,316,140
P/C - 496,100 291,666 24,805 24,805 - - 837,376
Total - 5,457,100 3,208,326 272,855 272,855 2,674,080 268,300 12,153,516
Note: P/C stands for “Physical Contingency” which is calculated as 10% of construction cost and engineering services cost.

(f) Temporary Dumpsite

Since the new landfill site will start operating in 2017, it will be necessary to use a temporary
disposal site until 2016. The temporary site will require the capacity of 2,251,000 m3. Either
the Dandora Dumpsite or the Kayole Dumpsite can be used as the temporary landfill site;
however, considering the possible landfill capacity and the waste pickers on site, landfilling
shall be continued on the Dandora Dumpsite. However, since almost all of the Dandora
Dumpsite is privately-owned land, it will be necessary to secure consent from the landowners
in order to continue landfilling.

(2) Closure Plan of Dandora Dumpsite

Since the Dandora Dumpsite imparts massive impacts on the local environment due to waste fly-off
and landfill gas emissions, it will be necessary to close it down as early as possible. However, since
the site will need to be used until 2016, the following issues should be examined:
• Implementation of Dandora Dumpsite Urgent Improvement Plan (2011-2016)
• Formulation of Dandora Dumpsite Closure Plan

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(a) Implementation of Dandora Dumpsite Urgent Improvement Plan (2011-2016)

Apart from the weighing of waste, hardly any control is carried out on the Dandora Dumpsite.
Therefore, considering the impacts on the local environment, it will be necessary to implement
the following work in line with the continuation of landfilling:
• Levelling of incoming waste (whole dumpsite area: 46 ha)
• Implementation of soil covering (Required soil for covering shall be purchased. The
volume of the soil is estimated at approximately 182,000 m3 between 2011 and
2016.)
• Onsite road construction
The levelling and compacting of waste and covering of soil can be performed through
efficiently operating the heavy equipment currently in use on Dandora Dumpsite, namely; two
bulldozers and one excavator. However, one more bulldozer shall be necessary in site from
2012. Earth covering needs to be implemented with emphasis on the areas prone to waste
fly-off and landfill gas. Construction residual earth shall be used as the covering soil; however,
if this is not available, it will be necessary to purchase soil under the CCN budget. In the case
where all soil is purchased, the budget of approximately KSh 40 million per year will be
needed. The budget for making on-site roads has already been arranged within CCN; that is,
KSh 200 million has been allocated for the period 2011 to 2014.

(b) Formulation of Dandora Dumpsite Closure Plan

The basic policy regarding the Dandora Dumpsite closure plan is to improve the current
conditions and reduce the impacts on the local environment. Specifically, the following items
should be implemented.
• Cover soil (460,000 m3)
• Brick retaining walls (33,000 m2)
• Rainwater drainage (3,800 m)
• Gas exhaust pipe (25
locations)
Figure 4.4.13 shows the top
view of the closure plan.

Figure 4.4.13 Layout of Closure

Plan of Dandora Dumpsite

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The closure works for the Dandora Dumpsite will cost approximately KSh 1.6 billion. The
annual expenditure for 2011-2017 is shown in Table 4.4.30.

Table 4.4.30 Annual Dandora Dumpsite Expenditure (2011-2017)

(Unit: in Thousand KSh)
Urgent Improvement Plan Closure Plan
Year Urgent Total
Survey &
Improvement O&M Closure Work
Design
Work
2011 76,712 33,100 - - 109,812
2012 78,726 43,100 - - 121,826
2013 80,846 43,100 41,970 - 165,916
2014 82,966 43,100 - - 126,066
2015 35,298 43,100 - - 78,398
2016 37,842 43,100 - - 80,942
2017 - - - 1,399,000 1,399,000
Sub-Total 392,390 248,600 41,970 1,399,000 2,081,960
P/C 39,239 0 4,197 139,900 183,336
Total 431,629 248,600 46,167 1,538,900 2,255,296
Note: P/C stands for “Physical Contingency” which is calculated as 10% of construction cost and
engineering services cost.

(c) Post-Closure Land Use Plan

Since it will take at least 10 years for waste to become stabilised, the most feasible use for the
Dandora Dumpsite will be as a park, etc. If houses and other structures are constructed, the
construction should wait until the waste stabilises and subsidence ceases.
The Dandora Dumpsite is a landfill site mainly for dumping organic waste such as unburnable
food waste. Since in general landfill gases composed mainly of methane gas are generated at
final landfill sites for organic waste, much amount of landfill gas are also generated at the
Dandora Dumpsite and fires occur.
Recently, power generation projects using landfill gas generated from landfill are being
implemented in many countries. Therefore, as one of landuse options after landfill closure
until the waste is stabilised, the landfill gas power generation seems to be a considerable idea
for the Dandora Dumpsite.
While there is no detailed information for implementing the landfill gas power generation, it is
needed to carry out a proper preliminary study including test-well drilling and gas collection
tests, etc., in order to evaluate the amount of gas generated in the site before implementing the
project.
At any rate, the site plan for post closure should be compiled upon incorporating the wishes
and opinions of the local residents.

(3) Cleanup and Closure of Illegal Dumpsite

Figure 4.4.14 shows the location map of the illegal dumpsites in the city.

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Figure 4.4.14 Location Map of Illegal Dump Sites in Nairobi

Since illegal dumpsites impart negative impacts on the local environment, it is necessary to take
environmental protection measures. Illegal dumpsite countermeasures comprise two types, namely;
(a) total removal; and (b) closure by earth covering, etc. The first option (a) is desirable in order to
totally eliminate the negative local environmental impacts of illegally disposed waste. However,
according to the field surveys, there are thought to be large quantities of waste disposed over a wide
area and to a considerable depth at three sites, i.e., No. 14 Mathare North, No. 73 Zimerman, and
No. 74 Gathundeki. Accordingly, the total removal option is not feasible from the viewpoint of
cost, etc. Therefore, the second option (b) shall be adopted at these three sites in order to minimise
impacts to the local environment.
It is desirable to implement total removal starting from the site that holds the largest amount of
waste. As for timing, it should be implemented at the same time as container installation, which will
be implemented as part of the effort to strengthen the collection and transportation setup. In the
cleanup, it shall be planned to remove wastes with wheel loaders and to transport them to the
Dandora Dumpsite in trucks. Cleanup should be implemented under the responsibility of the DoE.
The main components of closure works are soil covering and installation of gas exhaust pipes and
fences. It is desirable to implement the works at the start of operation on the new landfill site.
Accordingly, closure will be implemented through conducting the following works to mitigate the
impacts on the local environment:

(a) Cover Soil (Thickness = 0.5 m)

In addition to preventing waste scattering and odour generation, this will prevent filtration of
rainwater and reduce the generated amount of leachate.

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(b) Gas Exhaust Pipes

Gas exhaust pipes as indicated below will be installed in areas of landfill gas occurrence in
order to promote aeration and mitigate landfill gas generation.

(c) Net Fence (Height = 2.5 m)

Following closure, fences will be built to prevent trespassing and to prevent the flooding of
waste at the site again.

Concerning costs, approximately KSh 23 million is needed to clean the illegal dumpsites in 2014,
and KSh 45 million to close them in 2017. The detailed cost estimate is shown in Tables E.6.5 and
E.6.6 of Section E of Volume 3, Supporting Report.

4.5 Action Plan of Technical Approach

4.5.1 Collection and Transportation Plan

(1) Short-Term Action Plan

(a) Formulation of Waste Collection Implementation Plan
CCN should be responsible for the task of preparing the integrated waste collection
implementation plan for the approval of relevant authorities. The plan shall at least include the
overall waste collection plan, the approach to monitoring of waste collection ratio, the
procurement plan of collection vehicles including budgetary arrangement, the selection of type
and number of collection vehicles, and the appropriate collection management in informal
settlements such as low income and slum areas.

(b) Monitoring of Implementation of Collection and Transportation Plan (Phase I)

CCN has to conduct regular monitoring of the waste collection ratio and the actual operation
practice of CCN, contractors and private collectors continuously up to 2015.

(c) Implementation of Urgent Waste Collection Plan

CCN should carry out the cleanup of the scattered wastes along the road sides. The monitoring
of scattered wastes will be also CCN’s mandate.

(d) Procurement of Waste Collection Vehicles

CCN should prepare for the procurement of waste collection vehicles through budgetary
arrangements, designing and tendering. The application of a loan from foreign donors will be
one of the options of financial support for the procurement. After that, CCN should carry out
the actual procurement of collection vehicles.

(e) Implementation of Regular Station Collection in CCN/SWMPC Zone (Phase I)

The implementation of regular station collection consists of deployment of new collection
vehicles, operation and maintenance of CCN’s new collection vehicles and the
monitoring/inspection of collection operation in the CCN/SWMPC zone. CCN should be
responsible for this task.

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(f) Construction of Access Road to Slum Areas in the CCN/SWMPC Zone (Phase I)
About 75 of the 150 slums in the city are estimated to require the construction of access roads.
However, the slum areas actually requiring the construction of access roads should be selected
in advance before the actual construction commences. Stakeholder meetings among residents,
CBOs and CCN should be held to select the sites for access road. Detailed information is given
in Section F of Volume 3, Supporting Report. Financial support from foreign donors will be
one of the options to successfully implement this component.

(g) Implementation of Waste Collection PPP Scheme (Phase I)

Detailed information is given in Section B, Organisational, Institutional and Human
Resources Development Study, of Volume 3, Supporting Report.

(2) Mid-Term Action Plan

(a) Monitoring of Implementation of Collection and Transportation Plan (Phase II)
CCN has to continuously conduct regular monitoring of the waste collection ratio and the
actual operation practices of CCN, contractors and private collectors up to 2020. If the actual
collection ratio does not reach the target collection ratio, CCN should take measures to meet
the situation.

(b) Procurement of Waste Collection Vehicles for the CCN/SWMPC Zone (Phase II)
CCN should procure waste collection vehicles through budgetary arrangements. The
application for a loan from foreign donors or utilisation of the SWM Capital Revolving Fund
which will be created as a new funding system in the proposed zone-based operation system
will be one of options of financial support for the procurement of vehicles.

(c) Implementation of Regular Station Collection in the CCN/SWMPC Zone (Phase II)
The implementation of regular station collection involves the deployment of new collection
vehicles, operation and maintenance of CCN’s new collection vehicles and the
monitoring/inspection of collection operation in the CCN/SWMPC zone. CCN should be
responsible for this task.

(d) Construction of Access Road to Slum Areas in the CCN/SWMPC Zone (Phase II)
This action should be continuously carried out, the same as the short-term plan. The target
slum areas in which the access roads are required should be selected through stakeholder
meetings among the residents, CBOs and CCN.

(e) Implementation of Waste Collection PPP Scheme (Phase II)

Detailed information is given in Section B, Organisational, Institutional and Human
Resources Development Study, of Volume 3, Supporting Report.

(3) Long-Term Action Plan

(a) Monitoring of Implementation of Collection and Transportation Plan (Phase III)
CCN has to continuously conduct regular monitoring of the waste collection ratio and the
actual operation practices of CCN, contractors and private collectors up to 2030. If the actual
collection ratio does not reach the target collection ratio, CCN should take measures to meet
the situation.

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(b) Procurement of Waste Collection Vehicles for the CCN/SWMPC Zone (Phase III)
CCN should procure waste collection vehicles in 2025. The application of a loan from foreign
donors or the utilisation of the SWM Capital Revolving Fund which will be created as a new
funding system in the proposed zone-based operation system will be one of options of
financial support for the procurement of vehicles.

(c) Implementation of Regular Station Collection in the CCN/SWMPC Zone (Phase III)
CCN has to deploy new collection vehicles through analysing local conditions of collection
and transportation. CCN should also conduct operation and maintenance of CCN’s new
collection vehicles.

(d) Construction of Access Road to Slum Areas in the CCN/SWMPC Zone (Phase III)
In the same manner as above, the construction of access roads should be carried out.

(e) Implementation of Waste Collection PPP Scheme (Phase III)

Detailed information is given in Section B, Organisational, Institutional and Human
Resources Development Study, of Volume 3, Supporting Report.

4.5.2 3R and Intermediate Treatment Plan

(1) Short-Term Action Plan

(a) Establishment of Task Force for 3R and Intermediate Treatment
A task force should be established in 2011 to play the primary role for implementing the 3R
and Intermediate Plan.

(b) Formulation of 3R Implementation Plan

The Task Force should formulate the 3R implementation plan in 2011 and prepare the budget
and the staff for implementation in the following year.

(c) Monitoring of Implementation of 3R Plan (Phase I)

The Task Force should setup a monitoring system for evaluating the target level of waste
reduction ratio of 5% to the potential waste discharge amount in 2015. The Task Force should
setup a monitoring system for evaluating the total resource recovery amount of about 180 tons
per day or the equivalent ratio of about 10% to the potential waste collection amount in 2015.
The Task Force should review overall activities of waste reduction programmes and evaluate
them in connection with the target waste reduction ratio. Outputs of the review should be
stated in the Annual Activity Report.
The Task Force should review overall activities of waste recovery, reuse and recycling
programmes and evaluate them in connection with the target recovery amount or the ratio.
Outputs of the review should be stated in the Annual Activity Report.

(d) Monitoring of Implementation of Intermediate Treatment Plan (Phase I)

The Task Force should evaluate the progress of activities for the implementation of house
composting (400 houses), community composting (4 communities), and pilot central compost

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plant (1 plant) by 2015 and review the overall programmes of composting activities. Outputs
of the review should be stated in the Annual Activity Report.

(e) Implementation of Waste Reduction Plan (Phase I)

The Task Force should collaborate with the Community Participation Promotion Plan to
implement and promote the programmes under waste generation control and waste discharge
control.

(f) Implementation of Waste Recovery, Reuse and Recycling Plan (Phase I)

The Task Force should collaborate with the Community Participation Promotion Plan to
implement and promote the programmes for recovery of recyclable materials at the waste
generation sources and for reuse and recycling of recyclable materials.
The Task Force should procure the engineering consultant to start the topographic survey,
boring survey and design of the MRF Centre at the designated corner of the Dandora Dumpsite
and prepare for the construction work in 2016 and the start of operation in 2017.

(g) Implementation of Intermediate Treatment Plan (Phase I)

(i) Home Composting
The Task Force and the facilitator should implement the programme of home composting
for 100 houses per year, i.e., 400 houses in 4 years by 2015 and expand the activities to the
neighbouring areas.

(ii) Community Composting in Collaboration with Environmental Education

Activities
The Task Force should collaborate with the Community Participation Promotion Plan to
implement and promote the construction and operation of the two 200kg per day
pilot/model community compost plants in the period 2013-2015 and evaluate their
effectiveness.

(iii) Central Composting

The Task Force should procure the engineering consultant and the contractor to start the
design and construction of one 10-ton per day pilot compost plant in 2013 and prepare for
the operation that should start in 2014.

(2) Middle-Term Action Plan

(a) Monitoring of Implementation of 3R Plan (Phase II)
The Task Force should monitor and evaluate the target level of waste reduction ratio of 10% to
the potential waste discharge amount in 2020. The Task Force should monitor and evaluate
the total resource recovery amount of about 270 tons per day or the equivalent ratio of about
12.5 % to the potential waste collection amount in 2020.
The Task Force should review the overall activities of waste reduction programmes and
evaluate them in connection with the target waste reduction ratio. Outputs of the review
should be stated in the Annual Activity Report.
The Task Force should review the verall activities of waste recovery, reuse and recycling
programmes and evaluate them in connection with the target recovery amount or ratio.
Outputs of the review should be stated in the Annual Activity Report.

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(b) Monitoring of Implementation of Intermediate Treatment Plan (Phase II)

The Task Force should evaluate the progress of activities on the implementation of house
composting (400 houses), community composting (8 communities), and pilot compost
plants (4 plants) by 2020, and review the progress and overall programmes of composting
activities. Outputs of the review should be stated in the Annual Activity Report.

(c) Implementation of Waste Reduction Plan (Phase II)

The Task Force should collaborate with the Community Participation Promotion Plan to
implement and promote the programmes under waste generation control and waste discharge
control.

(d) Implementation of Waste Recovery, Reuse and Recycling Plan (Phase II)
The Task Force should collaborate with the Community Participation Promotion Plan to
implement and promote the programmes for recovery of recyclable materials at the waste
generation sources and for reuse and recycling of recyclable materials.
The Task Force should procure the contractor for the construction of the MRF Centre at
Dandora in 2016 and prepare for the start of operation in 2017. About 60 waste pickers may be
employed for the operation staff of the MRF Centre.

(e) Implementation of Intermediate Treatment Plan (Phase II)

(i) Home Composting
The Task Force and the facilitator should continue the programme of home composting in
400 houses and expand the home composting to the neighbouring areas.

(ii) Community Composting in Collaboration with Environmental Education

The Task Force should collaborate with the Community Participation Promotion Plan to
implement and promote the construction and operation of the other six (6) 200kg per day
pilot/model community compost plants in the period 2016-2018 and operate the total
eight (8) plants from 2019.

(iii) Central Composting

The Task Force should procure the engineering consultant and the contractor to start
design and construction of another three (3) 10-ton per day pilot compost plants in the
period 2016-2018 and operate four (4) plants from 2019. The pilot/model central
compost plant should be evaluated for effectiveness and the possibility of expansion in
the future.

(3) Long-Term Action Plan

(a) Monitoring of Implementation of 3R Plan (Phase III)
The Task Force should monitor and evaluate the target level of waste reduction ratio of 10% to
the potential waste discharge amount in 2030. The Task Force should monitor and evaluate
the total resource recovery amount of about 450 tons per day or the equivalent ratio of about
16% to the potential waste collection amount in 2030.

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The Task Force should review overall activities of the waste reduction programmes and
evaluate them in connection with the target waste reduction ratio. Outputs of the review
should be stated in the Annual Activity Report.
The Task Force should review the progress and overall activities of waste recovery, reuse and
recycling programmes and evaluate them in connection with the target recovery amount or
ratio. Outputs of the review should be stated in the Annual Activity Report.

(b) Monitoring of Implementation Plan of Intermediate Treatment (Phase III)

The Task Force shouldreview the progress and overall programmes of composting activities
for the implementation of house composting (400 houses), community
composting (8 communities), and pilot compost plants (4 plants) by 2030 and review the
progress and overall programmes of composting activities. Outputs of the review should be
stated in the Annual Activity Report.

(c) Implementation of Waste Reduction Plan (Phase III)

The Task Force should collaborate with the Community Participation Promotion Plan to
implement and promote the programmes under waste generation control and waste discharge
control.

(d) Implementation of Waste Recovery, Reuse and Recycling Plan (Phase III)
The Task Force should collaborate with the Community Participation Promotion Plan to
implement and promote the programmes for the recovery of recyclable materials at the waste
generation sources and for reuse and recycling of recyclable materials.
The MRF Centre at Dandora should be operated and maintained continuously as the
distribution centre of recyclable materials in the town area. The operation should be carried out
in collaboration with CBOs, Junk Dealers and CCN. About 60 persons may be recruited by
operator from the waste pickers currently working at the Dandora Dumpsite.

(e) Implementation of Intermediate Treatment Plan (Phase III)

(i) Home Composting
The Task Force and the facilitator should continue the programme of home composting in
the 400 houses and expand the home composting to the neighbouring areas.

(ii) Community Composting in Collaboration with Environmental Education

The Task Force should collaborate with the Community Participation Promotion Plan to
operate and maintain the eight (8) 200kg per day pilot/model community compost plants.
Annual activity report on the composting operation should be prepared.

(iii) Central Composting

Four (4) 10-ton per day pilot/model central compost plants should be continuously
operated and evaluate regarding the possibility for expansion of central composting in
Nairobi. Annual activity report on the composting operation should be prepared. The 3R
and intermediate treatment plans should be implemented with comprehensive interrelated
programmes consisting of both of the software components and the hardware components
to be identified in the Public Particiaption Promotion Plan in Section 4.10.

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4.5.3 Final Disposal Plan

(1) Short-Term Action Plan

(a) Formulation of Dandora Dumpsite Closure Plan
EIA and surveys/designs geared toward the closure of Dandora Dumpsite will be carried out
by 2011 and 2013. The surveys will entail surveying to confirm the landfill terrain, and simple
boring survey to confirm the distribution of waste depth. Based on the survey findings,
detailed design on the amount of covering soil and height of retaining walls needed for the
closure will be conducted, and the cost for ordering the works will be estimated.

(b) Implementation of Dandora Dumpsite Urgent Improvement Plan (Phase I)

As urgent measures for the Dandora Dumpsite, covering soil will be purchased and onsite road
construction will be carried out. The onsite road construction will be carried out over four
years between 2011 and 2014. Covering soil will be purchased every year until 2016 when
landfill works will be completed on the dumpsite.
As for Dandora Dumpsite itself, regular operation and maintenance will need to be carried out
separately in addition to the urgent countermeasures. In conducting the operation and
maintenance, it will be particularly important to efficiently use the three existing heavy
equipment for levelling the waste and applying the covering soil.

(c) Formulation of New Landfill Site Construction Plan at Ruai (First Portion covered
by 2025)
EIA and surveys/designs aimed to establish the new landfill site will be implemented by 2011
and 2013. The surveys will entail topographical surveying over the entire area and geological
surveys for confirming the geological conditions and groundwater level existing in the site.
In the design, based on the survey findings, the facilities required for the first phase will be
designed and the necessary costs for ordering the works will be estimated.

(d) Construction of New Landfill Site at Ruai (First Portion covered by 2025) (Phase I)
Construction works in the first phase of the new landfill site will commence in 2015 and will
last for two (2) years.
During the works, construction supervision will be carried out to confirm the progress of the
works and check on the building of important structures.

(e) Cleanup of Illegal Dumpsites

The cleanup of 71 small illegal dumpsites will be carried out in 2014. Cleanup should be
carried out in tandem with the installation of containers.

(2) Mid-Term Action Plan

(a) Implementation of Dandora Dumpsite Urgent Improvement Plan (Phase II)
Operation and maintenance will be carried out on the Dandora Dumpsite. The closure works of
the Dandora Dumpsite will begin from the year of its planned closure, and it will be desirable
to conduct maintenance with a view to these works.

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(b) Implementation of Closure Works of Dandora Dumpsite

Closure works on the Dandora Dumpsite will be implemented in 2017 following the start of
operations on the new landfill site.

(c) Construction of New Landfill Site at Ruai (First Portion covered by 2025) (Phase II)
The second year of construction works in the first phase of the new landfill site, which will
start in 2015, will be conducted. The new landfill site will be completed within that year.

(d) Operation and Maintenance of New Landfill Site at Ruai (Phase I)

Operation and maintenance on the new landfill site will begin in 2017. Routine operation and
maintenance will entail weighing of waste, soil covering works and control of treated leachate
quality.
Prior to the start of operation, the heavy machinery needed to conduct landfill works will have
to be purchased in 2016.
According to the progress of the landfill, construction of the enclosure dike will be executed in
2019. Incidentally, the timing of enclosure dike construction may change according to the
level of progress of the landfill works.

(e) Closure of Illegal Dumpsites

Closure works of the three large illegal dumpsites will be carried out in 2017, when the new
landfill site operations begin.

(3) Long-Term Action Plan

(a) Formulation of New Landfill Site Construction Plan at Ruai (Second Portion for
utilisation after 2026)
Design for the second phase of the new landfill site will be carried out in 2022. It is desirable
that the design is based on considerations given to problems that may have occurred during the
construction and landfill works in the first phase.

(b) Construction of New Landfill Site at Ruai (Second Portion for utilisation after 2026)
The second phase of construction works for the new landfill will be carried out during 2024
and 2025.
At this time, construction supervision will be carried out to confirm the needs and work
progress, and also check the state of buildings and any other structures of importance. It is
necessary to keep in mind that these works will be conducted in parallel with the landfill
operations.

(c) Operation and Maintenance of New Landfill Site at Ruai (Phase II)
Operation and maintenance of the new landfill site will be conducted after the conclusion of
construction works.
Additional heavy equipment required for landfill will be purchased in 2021 and 2026. Also
from 2027 onwards, it will be necessary to construct enclosure dikes every year.

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4.6 Organisational Restructuring and Human Resources Development Plan

4.6.1 Organisational Restructuring Plan

Due to the low priority and lack of funds for the solid waste management sector, the organisational
capacity for providing the solid waste management services in Nairobi City is rather weak. The
Department of Environment (DoE) of CCN is not provided with sufficient resources to fulfill its
mandates, while the private sector is not successfully filling the gap between the current insufficient
coverage by the DoE and the required level of services. To achieve cost-effective and sustainable solid
waste management services in accordance with the PPP framework proposed in the Private Sector
Involvement Plan, it is essential to build a sustainable organisational structure together with the
establishment of related organisational reform.

(1) Short-Term Action Plan

(a) Establishment of the Preparatory Unit for SWMPC
In order to smoothly transfer the responsible organisation for solid waste management services
from the current DoE to the ring-fenced Solid Waste Management Public
Corporation (hereinafter referred to as “SWMPC”), a preparatory unit for the establishment of
the SWMPC will be set up in the DoE with operations starting from 2011. The staff of the
preparatory unit will be the main target of the Comprehensive Capacity Development
Programme proposed in the Human Resources Development Plan. Three (3) project
management units (PMUs) for a wide range of preparatory operation for the transfer to the
SWMPC will be established in the Preparatory Unit. Table 4.6.2 shows the outline of the
functions of the PMUs in the preparatory unit for the SWMPC and their organisational features
are as itemised below. Figure 4.6.2 also shows the organisational structure of the preparatory
unit.
• The matrix-type of organisational structure will be employed for the operation of the
preparatory unit for the SWMPC. The matrix-type organisation is suitable for operating the
preparatory unit in parallel with the current responsibilities of the DoE.
• The unit managers and staff in charge of the PMUs will be selected from the DoE and other
related departments of CCN.
• The designated staff will be given some incentives for the additional tasks.
• The staff of the preparatory unit for the SWMPC will be the main counterpart in the external
technical assistance during the implementation period of the comprehensive capacity
development programme.
• The SWM Special Accounts and Revolving Fund Management Subunit will be supported by
the Treasurers Department of CCN.
• The Administrative PMU will be in charge of the smooth transfer of staff, budget and assets to
the SWMPC.
• The Franchise PMU will be in charge of the preparation for tendering and procurement for the
zone-based franchise system.
• The Construction PMU will be in charge of the management of the construction projects of the
sanitary landfill site and the intermediate treatment facilities, as well as the preparation for the
tendering and procurement of private service providers.
• The NEMA staff will be seconded at the affiliate office inside the preparatory unit for the
strengthening of monitoring and enforcement activities.

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Table 4.6.1 Outline of the Proposed Organisational Structure of Preparatory Unit for SWMPC
PMU Sub-Unit Function
Administrative PMU Budget Transfer Subunit • To make preparations for the transfer of the SWM
operating budget from the DoE/CCN to the
SWMPC.
Staff Transfer Subunit • To make preparations for the transfer of the SWM
staff from the DoE/CCN to the SWMPC
Asset Transfer Subunit • To make preparations for the transfer of
SWM-related assets from the DoE/CCN to the
SWMPC.
Legal Reform Subunit • To prepare the draft of the SWMPC Act and other
related legal actions to be required in the Master
Plan.
Monitoring Subunit • To strengthen the monitoring of the solid waste
management activities.
NEMA Affiliate Office • To assist in the inspection and enforcement
activities as an affiliate office of NEMA inside the
SWMPC.
SWM Special Account and • To manage the Special Account for the solid waste
Revolving Fund Management management services and make preparations for the
Sub-Unit establishment of the SWM Revolving Fund.
Franchise PMU Tender Preparation Subunit • To make preparations for the tendering and
zone-based franchise contracting for 3 franchise
zones in the First Phase of the franchise system.
Contract Subunit • To manage the contractual process of zone-based
franchise contracts in the 3 franchise zones.
Zonal Management Subunit • To plan the detailed guidelines for managing the
franchised collection zones before starting the new
franchise system.
Construction PMU Tender Preparation Subunit • To make preparations for the tendering related to
the service contract for the management of the
sanitary landfill site and the intermediate treatment
facilities.
Contract Subunit • To manage the contracting process of the service
contract for the management of the sanitary landfill
site and the intermediate treatment facilities.
Sanitary Landfill Site • To manage the construction of the sanitary landfill
Construction Subunit site.
Intermediate Treatment Facilities • To manage the construction of the intermediate
Construction Subunit treatment facilities.
Source: JICA Survey Team

Among the functions of the Preparatory Unit for the SWMPC, the Franchise PMU as well as
the Construction PMU will play important roles for the success of the new PPP scheme. It is
important to have a capable PMU with ample expertise on financial, legal and technical fields.

(b) Establishment of the SWMPC

To significantly improve the efficiency and sustainability of the solid waste management
services, the public-owned and ring-fenced Solid Waste Management Public
Corporation (SWMPC) will be established as the fundamental organisational reformation of
the solid waste management sector. The SWMPC will be established by the end of 2014, and
its operations will start at the beginning of 2016. A one year preparation period is required for
the tendering process for the zone-based franchise system by the SWMPC.
When the basic structure of the SWMPC was studied, the case of the water sector of the
Nairobi City Water and Sewerage Company (NCWSC) was carefully referred to as a similar
publicly-owned corporation.
The Nairobi City Water and Sewerage Company (NCWSC) that was created in accordance
with the Water Act of 2002 sought to delineate water infrastructure management and the

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provision of services in Kenya. The structure established seven (7) water service boards with
separate jurisdictions.
The NCWSC was incorporated in December 2003 under the Companies Act and is
wholly-owned by CCN. The NCWSC took over the provision of water and sewerage services
in Nairobi and surrounding districts from the CCN’s Water and Sewerage Department. The
regulatory structure comprises the Water Services Regulatory Board (WSRB), whose
responsibility is to enforce the Water Act. Under this Act, the Ministry of Water and
Irrigation (MWI) is responsible for policy formulation through the Water Sector Reform
Steering Committee (WSRSC) and the Water Sector Reform Secretariat (WSRS).
With the above organisational features of the water sector taken into consideration, the basic
organisational structure of the solid waste management sector in the SWMPC was formulated,
as shown in Figure 4.6.1. The detailed organisational structure of the SWMPC, which is
composed of nine (9) departments and three (3) units, is shown in Table 4.6.2 and given in
Figure 4.6.2. The description of each department is as given below.
• Auditing Unit: This Unit will be in charge of overall auditing of performance of
SWMPC, private franchisees and service providers.
• Capital Revolving Fund Management Unit: This Unit will be in charge of management
of the SWM Capital Revolving Fund whose financial sources will be the franchise fees.
The Fund will be used to subsidise the private franchisees.
• Operating Revolving Fund Management Unit: This Unit will be in charge of
management of the SWM Operating Revolving Fund whose financial sources will be the
tipping fees. The Fund will be used for the monitoring and capacity development
activities of the SWMPC.
• Administrative Department: This Department will be in charge of administrative works
and will consist of (i) the budgeting and accounting section; (ii) the human resources
development section; and (iii) the legal section.
• Strategy and Planning Department: This Department will be in charge of strategic and
financial planning and environmental appraisal works and will consist of (i) the tariff
planning section; (ii) the subsidy planning and management section; and (iii) the
environmental impact assessment section.
• Zonal Management Department: This Department will be in charge of the collection
and monitoring services in the franchised zones and will consist of (i) the zonal franchise
management section; (ii) the zonal monitoring section; and (iii) the zone operation offices
[9 offices].
• Disposal and Intermediate Treatment Department: This Department will be in charge
of the overall disposal and intermediate treatment services and will consist of (i) the
disposal site management section; (ii) the intermediate treatment section; and (iii) the
environmental monitoring section.
• Direct Service Department: This Department will be in charge of contracting collection
services, market waste collection services and road sweeping services and will consist of
(i) the contracting-out zone service section; (ii) the market waste service section; and
(iii) the road sweeping service section.
• Procurement and Contract Department: This Department will be in charge of overall
procurement, contracting and tendering procedures and will consist of (i) the franchise
contract section; (ii) the contract-out section; and (iii) the licensing section.
• Technical Department: This Department will be in charge of overall technical,
engineering and mechanical matters including repair shops, and will consist of (i) the
technical support section; (ii) the mechanical section for collection vehicles; and (iii) the
mechanical section for heavy-duty vehicles.

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• Monitoring and Enforcement Department: This Department will be in charge of

overall monitoring and enforcement operations and will consist of (i) the monitoring
section (inspectors’ office); (ii) the enforcement section; and (iii) the NEMA affiliate
office.
• Community Support Department: This Department will be in charge of community
support activities and will consist of (i) the public awareness section; (ii) the primary
collection support section; and (iii) the coordination and facilitation section.
In order to effect the transfer from the preparatory unit of the SWMPC to the full-scale
SWMPC smoothly, the following matters related to the operation of the organisation should be
carefully taken into account:
• Transfer of Staff: A majority of the staff and workers of the current DoE directly in
charge of the SWM services except for the policy and regulatory staff and some staff of
other related administrative departments will be transferred to the SWMPC. The policy
and regulating functions and other environmental services will still remain in the DoE
even after the establishment of the SWMPC. All the staff and workers in the current
operational zones in the DoE including the road sweepers will be transferred to the newly
established Direct Service Department of the SWMPC. There will be no lay-off due to
this organisational reform.
• Transfer of Budget: The SWM–related regular budget of the DoE will be transferred to
the general budget of the SWMPC as the initial working capital required for the operation
of the SWMPC. Since half of the franchise fees will be transferred to the general budget
of the SWMPC after starting the zone-based franchise system, the financial burden of
CCN will be decreasing in proportion to the increase in the collected franchise fees.
• Transfer of Assets: The vehicles and equipment required for the contracting of solid
waste management services by the SWMPC will be transferred from CCN. The CCN
workshop for repairing vehicles and equipment will not be transferred to the SWMPC;
however, it will be leased for the use of SWMPC.
• Ownership of New Assets: Regarding the ownership of infrastructures such as the
sanitary landfill site and intermediate treatment facilities to be newly constructed, one of
the possible options is for those facilities to be owned by CCN and leased to the SWMPC.
The ownership should be decided during the preparation period to establish the SWMPC.
• Board Members: The number of board members will be seven (7), consisting of a
political representative and a member each from the CCN, the Ministry of Local
Government (MoLG), the Ministry of Nairobi Metropolitan Development (MoNMD), the
Ministry of Environment and Mineral Resources (MENR), the Ministry of Public Health
(MoPH), and the Office of the Deputy Prime Minister and Ministry of
Finance (ODPM/MOF).
• Simplification of Vertical Levels: The 18-level (18-scale) vertical organisational
structure of the DoE will be significantly reduced to 12 levels in the SWMPC.
• One-Stop and Single Window Service: The one-stop and single window service is a
customer-oriented service. Under the SWMPC, this system will be applied to the
grievance and licensing service for the private service providers.
• Establishment of NEMA Affiliate Office: To strengthen the monitoring and inspection
services under the Environmental Management and Coordination By-laws, a couple of
inspectors from NEMA will be stationed regularly at the Monitoring and Enforcement
Department of the SWMPC.
• Remaining Functions of the Department of Environment: The major remaining
functions of the Department of Environment after the establishment of the SWMPC
include the regulatory and licensing related to the solid waste management activities.

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National Level

Formation
MoLG, MoNMD, MEMR, MoPH,

Policy
ODPM/MOF

Monitoring
Regulation
Solid Waste Management Regulatory Board (SWMRB)
Member: MoLG, CCN, NEMA

Solid Waste Management

Provision
Services
SWM Capital
Local Level

Revolving
Public Corporation (SWMPC)
Fund

Local

Generation
Level Waste Generators

Waste
Source: JICA Survey Team
Figure 4.6.1 Snapshot of the Proposed Organisational Structure for SWM Sector

Table 4.6.2 Outline of the Proposed Organisational Structure of SWMPC

Estimated
Original Department of
No. Division/Section No. of
Transferred Staff
Staff
z Political Representative, MoLG,
1 Executive Board CCN, MoNMD, MEMR, MoPH, 7
ODPM/MOF
z DoE/Administrative Section
2 Auditing Unit 5
z Audit Department
z DoE/Administrative Section
3 Capital Revolving Fund Management Unit 5
z Treasurers Department
z DoE/Administrative Section
4 Operating Revolving Fund Management Unit 5
z Treasurers Department
z DoE/Administrative Section
Budget and Accounting Section z Treasurers Department 10
Administrative z Planning Department
5
Department Human Resources Development z DoE/Administrative Section
5
Section z Human Resource Department
Legal Section z Legal Affairs Department 5
z DoE/Administrative Section
Tariff Planning Section 5
z Treasurers Department
Strategy and Investment and Subsidy Planning z DoE/Administrative Section
5
6 Planning Section z Treasurers Department
Department z DoE/EMP Section
EIA Section z NEMA/EIA Unit (Seconded from 5
NEMA)
Zonal Franchise Management z DoE/SWM Section
20
Section z DoE/Divisional Office
Zonal Management Zonal Performance Monitoring z DoE/EPM Section
7 10
Department Section z DoE/Divisional Office
z DoE/SWM Section
Zonal Operational Offices 45
z DoE/Divisional Office
Disposal and Disposal Site Management Section z DoE/SWM Section 5
Intermediate Intermediate Treatment Section z DoE/SWM Section 5
8
Treatment
Environmental Monitoring Section z DoE/SWM Section 5
Department

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Estimated
Original Department of
No. Division/Section No. of
Transferred Staff
Staff
Contracting-out Zone Service z DoE/SWM Section
80
Direct Service Department z Procurement Department
9
Department Market Waste Service Section z DoE/SWM Section 40
Road Sweeping Service Section z DoE/SWM Section 120
z DoE/SWM Section
Franchise Contract Section 10
z Procurement Department
Procurement and z DoE/Administrative Section
Contracting-out Section 10
10 Contract z DoE/SWM Section
Department z DoE/EPM Section
Licensing Section z NEMA/Licensing Unit (Seconded 10
from NEMA)
Technical Support Section z DoE/SWM Section 10
Mechanical Section (Collection z DoE/SWM Section
Technical 20
11 Vehicle) z Department of Engineering
Department
Mechanical Section (Heavy Duty z DoE/SWM Section
20
Vehicle) z Department of Engineering
z DoE/Administrative Section
Monitoring and Inspection Office 5
Monitoring and z Department of Inspectorate
12 Enforcement Enforcement Section z DoE/SWM Section 10
Department z NEMA/Inspector (Seconded from
NEMA Affiliate Office 2
NEMA)
Public Awareness Section z DoE/SWM Section 10
Community Support Primary Collection Support Section z DoE/SWM Section 10
13
Department Coordination and Facilitation
z DoE/SWM Section 5
Section
Total Number of Staff 509
Source: JICA Survey Team

(c) Consideration of Incomplete Action Plans of the Previous Master Plan

There are some incomplete action plans in the previous 1998 Master Plan which should be
partially reflected even in the new Master Plan. Table 4.6.3 gives the outline of incomplete
action plans to be partially reflected in the new Master Plan.

Table 4.6.3 Incomplete Action Plans of Previous 1998 Master Plan to be Partially Reflected
upon the Creation of SWMPC
Area Contents of Incomplete Action Plans Issues to be considered Issues for the Creation of SWMPC
of the 1998 Previous Master Plan
Organisational 1. Reorganisation of DoE into four z The function on solid waste management of the DoE will be
Restructuring divisions (SWM, Environmental, transferred comprehensively to the SWMPC. Only policy
of DoE
Administrative and Parks) and regulatory functions will be retained in the DoE of CCN
after the establishment of the SWMPC.
2. Reduction of number of vertical z The number of vertical level of the organisational structure
levels in the SWM Division and of the SWMPC will be reduced from 18 in DoE to 12.
creation of new managerial positions
3. Separation of disposal from z The function on the operation of the sanitary landfill site
collection and street cleansing will be separated clearly from those of collection and street
cleansing services in the SWMPC.
z The function on the operation of the sanitary landfill site
will belong to the disposal and intermediate treatment
department of the SWMPC, those on collection and street
cleansing services will belong to the direct service
department of the SWMPC.
4. Separation of daily management of z The function on the daily management of collection

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Area Contents of Incomplete Action Plans Issues to be considered Issues for the Creation of SWMPC
of the 1998 Previous Master Plan
waste collection from that of street services will be separated clearly from that of street
cleansing cleansing services in SWMPC.
z In SWMPC, while the function on the daily management of
collection services will belong to the zonal management
department in the case of franchised areas, that on street
cleansing services will belong to the direct service
department.
5. Assignment responsibilities in all z Assignment responsibilities in all the departments of
DoE divisions SWMPC will be described clearly in the job descriptions.
Establishment 6. Establishment of Community z The new function of community support will belong to the
of New Development Section in the SWM Community Support Department of the SWMPC.
Function
Division
7. Establishment of Contract z The new function of contracts management will belong to
Management Section in SWM the Procurement and Contract Department of the SWMPC.
Division
8. Establishment of Environmental z The functions of the Environmental Planning and
Planning and Management Division Management Section of the DoE will remain the same, but
they will be strengthened.
9. Establishment of the Finance z The new function on financial management will belong to
Section in the Administrative Division the Administrative Department of the SWMPC.
10. Establishment of the Human z The new function on human resources development will
Resources Section in the belong to the Administrative Department of the SWMPC.
Administrative Division
11. Establishment of MIS Section z The new function on the management information system
under the Office of the Director of will belong to the Strategy and Planning Department of the
Environment SWMPC.
12. Establishment of Logistics Section z The new function on logistics support will belong to the
in the Administrative Division Technical Department of the SWMPC.
Source: JICA Survey Team

(d) Rectification of Remaining Functions of DoE

In parallel with the establishment of the preparatory unit for the Solid Waste Management
Public Corporation (SWMPC) until the formal creation of the SWMPC, the remaining
functions on licensing and contracting activities for the current private sector involvement will
be rectified also in the following ways during the transition period to the new zone-based
franchise system:
(i) Improvement of licensing to the private sector

• Strengthening of performance monitoring of licensed private waste collectors

• Strict zone management for licensed private waste collectors
• Single and one-stop services for obtaining licenses
• Extension of license period from 1 year to 2 years
(ii) Improvement of contracting to the private sector

• Strengthening of performance monitoring of licensed private waste collectors

together with the obligations of submitting annual and monthly activity and financial
reports
• Strict zone management for private contractors
• Single and one-stop services for obtaining licenses

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• Extension of contract period from 1 year to 2 years

• Introduction of monthly work plans for private contractors
(e) Creation of SWM Special Account
The general accounts budget, commonly referred to as "the budget,” is the basic account of the
CCN. The expenditures in the general account of CCN are classified according to
departmental programmes such as the provision of a wide range of local public services and
public investments required for Nairobi City. As the preparatory and autonomous budgetary
structure for SWMPC, a special account will be created apart from the general account of
CCN. The special account under the preparatory unit of the DoE will be transferred to the
special account of SWMPC at the beginning of 2014, when the SWMPC is formally
established.

Figure 4.6.2 illustrates the transition of the organisational structure of the current Department of
Environment, the transitional SWMPC Preparatory Unit and the SWMPC, which are explained
above.

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Executive Board
General Account Special Account for SWM

Auditing Unit
CD Consultant Team

Capital Revolving Fund Management Unit

Department of
Environment Administrative PMU Operating Revolving Fund Management Unit

Budget Transfer Sub-Unit

Administrative Section Administrative Department

Staff Transfer Sub-Unit z Budgeting and Accounting Section

SWM Section
z Human Resources Development Sec.
z Legal Section
EPM Section Asset Transfer Sub-Unit

Strategy and Planning Department

Parks and Open Spaces Legal Reform Sub-Unit
z Tariff Planning Section
Section
z Subsidy Planning and Management Section
Monitoring Sub Unit z EIA Section

NEMA Affiliate Sub-Unit Zonal Management Department

Other Related
Department of CCN z Zonal Franchise Management
SWM Special Account and
Section
Revolving Fund Management
z Zonal Monitoring Section
Sub-Unit
Treasurer Dept.

Disposal and Intermediate Treatment Dept.

HRD Dept. Franchise PMU
z Disposal Site Management Section
z Intermediate Treatment Section
z Environmental Monitoring Section
Planning Dept. Tender Preparation Sub-Unit

Direct Service Department

Contract Sub-Unit
Procurement Dept.
z Contracting-out Zone Service Section
z Market Waste Service Section
Zonal Management Sub-Unit
z Road Sweeping Service Section
Engineering Dept.

Procurement and Contract Department

Inspectorate Dept. Construction PMU z Franchise Contract Section
z Contracting-out Section
z Licensing Section
Tender Preparation Sub-Unit

Some staff of these Technical Department

Contract Sub-Unit
departments will join the z Technical Support Section
preparatory unit for SWMPC z Mechanical Section (Collection Vehicle)
Sanitary Landfill Site z Mechanical Section (Heavy Duty Vehicle)
Construction Sub-Unit

Monitoring and Enforcement Department

Intermediate Treatment
Facilities Construction z Monitoring Section
Sub-Unit z Enforcement Section
z NEMA Affiliate Office

Community Support Department

Department of Environment
z Public Awareness Section
z Primary Collection Support Section
Administrative Section
z Coordination/Facilitation Section

SWM Section
Department of Environment

EPM Section Administrative Section

EPM Section Parks and Open Spaces Section

Parks and Open Spaces Section

Figure 4.6.2 Organisational Chart of Current DoE, Transitional SWMPC Preparatory Unit and Proposed SWMPC
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(2) Mid-Term Action Plan

(a) Start of Operations of Revolving Funds and Provision of Subsidies
(i) Start of Operations of SWM Capital Revolving Fund and Provision of Subsidies
In line with the guidelines of the SWM Capital Revolving Fund (SWMCRF) proposed in
the private sector involvement plan, the operations of the SWMCRF will be started by the
capital revolving fund management unit of the SWMPC. At the same time, the subsidy
provision under the SWMCRF for the private franchisees will be started by the subsidy
planning and management section of the strategy and planning department of the
SWMPC.

(ii) Start of Operations of SWM Operating Revolving Fund

In line with the guidelines of the SWM Operating Revolving Fund (SWMORF) proposed
in the private sector involvement plan, the operations of the SWMORF will be started by
the operating revolving fund management unit of the special account of the SWMPC.

(b) Mid-Term Organisational Assessment and Feedback to SWMPC

The mid-term organisational assessment of the SWMPC on the achieved level is essential for
accurately assessing the impacts on the improvement of the capacities at the timing of the
mid-term stage after the implantation of the first 5-year franchise contract with the private
sector. The ex-post monitoring system will significantly contribute to the feedback
mechanisms for rectifying the performances of the awarded franchisees in 3 zones for the First
Phase.

(c) Mid-Term Organisational Restructuring of SWMPC

After the First Phase of the franchise system, the mid-term organisational restructuring of the
SWMPC is also required for the improvement of the SWMPC to meet the increasing demand
for solid waste management services for the Second Phase. The continuously tuned
organisation based on the periodical organisational assessment of the SWMPC will be
required, thereby leading to exploring organisational restructuring options in the following
areas:
• Basic organisational structures (hierarchy-type, project-type and matrix-type) required
for the mid-term time frame
• Functions and responsibilities of departments and units
• Number of staff for mid-term prospect
• Number of vertical levels and span of control
• Directing functions and controlling responsibilities
• Organisational responsiveness to the introduction of the franchise system

(3) Long-Term Action Plan

(a) Continuous Management of Revolving Funds and Provision of Subsidies
(i) Continuous Management of SWM Capital Revolving Fund and Subsidies
The SWM Capital Revolving Fund (SWMCRF) will be managed continuously by the
capital revolving fund management unit of the Solid Waste Management Public
Corporation (SWMPC). At the same time, the subsidy provision under the SWMCDR for

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the private franchisees will be managed continuously by the subsidy planning and
management section of the strategy and planning department of the SWMPC.

(ii) Continuous Management of SWM Operating Revolving Fund

The SWM Operating Revolving Fund (SWMORF) will be managed continuously by the
operating revolving fund management unit of the SWMPC.

(b) Long-Term and Continuous Organisational Assessment and Feedback to SWMPC

The long-term organisational assessment of the achieved level of the SWMPC is essential for
accurately assessing the impacts on the improvement of the organisational capacities at the
timing of the long-term stage after the implementation of the second 5-year franchise contract
with the private franshisees. The long-term ex-post monitoring system will significantly
contribute to the feedback mechanisms for rectifying the performances of the awarded
franchisees in the six (6) zones for the Third Phase.

(c) Long-Term and Continuous Organisational Restructuring of SWMPC

After the Second Phase of the franchise system, the long-term organisational restructuring of
the SWMPC is also required for the improvement of the SWMPC to meet the growing demand
for solid waste management services for the Third Phase. The continuously tuned organisation
based on the periodical organisational assessment of the SWMPC will be required, thereby
leading to exploring organisational restructuring options in the following areas:
• Basic organisational structures (hierarchy-type, project-type and matrix-type)
• Functions and responsibilities of departments and units
• Number of staff required for long-term prospect
• Number of vertical levels and span of control
• Directing functions and controlling responsibilities

4.6.2 Human Resources Development Plan

The human resources development is an integral part of the supporting factors for a sustainable solid
waste management services. For the development of human resources with ample and broad range of
technical expertise in the field of solid waste management services, there are 3 strategically important
groups: (i) key personnel in SWMPC in charge of providing the solid waste management services;
(ii) operational managers of private franchisees and service providers; and (iii) staff of
community-based organisations. Among these target groups, the strengthening of human resources for
the SWMPC will be the first priority.

(1) Short-Term Action Plan

(a) Implementation of Comprehensive Capacity Development Programme (CCDP)
The major challenge of the human resources development plan in the new Master Plan is how
to incorporate the improvement of individual capacities into the organisational capacities of
the SWMPC which will be established at the beginning of 2014 as a new organisational
framework required for providing the zone-based franchise system. Another challenge is how
to upgrade the capacities and to motivate the candidate staff of SWMPC in response to the
massive human resources development demand of the said new organisation. Based on a wide
range of the capacity gap assessment on human resources for the improvement of the current
solid waste management system, the human resources development plan has been identified as

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a comprehensive capacity development programme required for the establishment of the

SWMPC, thereby identifying the eight (8) modular human resources development projects
shown in the table below.
However, it is acknowledged that the “human resources development project approach”
based on a single human resource development project alone does not comprehensively solve
the constraints of the solid waste management services. Since “human resources development
programme approach” is the process of managing a portfolio of multiple inter-dependent
projects, the programme approach can be used for the management of the identified multiple
modular projects. The programme approach provides the human resources development plan
with a common platform to implement these modular projects under the Comprehensive
Capacity Development Programme (CCDP). The CCDP acts as the key pre-condition to
maximise the sustainability of the city-wide solid waste management services.
Regarding the time frame required for the CCDP, it might be noted that the implementation of
the multi-modular CCDP will take a long-term period. In parallel with the preparation for
establishing the SWMPC, the long-term CCDP will be required. It might take approximately
five (5) years to complete the CCDP, when the establishment of the SWMPC is synchronically
prepared under the new PPP scheme. At the same time, the long-term CCDP will also require
the full-scale technical assistance from an external donor organisation. Based on this
recognition, the implementation period for the CCDP will substantially start from 2011 and
complete in 2015, while the financial year 2010 is regarded as the preparation period for the
CCDP.
The proposed CCDP should be implemented under the full-scale technical assistance by an
external donor organisation. To smoothly transfer the responsible organisation for the solid
waste management services from the current Department of Environment (DoE) to the
proposed SWMPC, the creation of the preparatory unit of the SWMPC inside the DoE, which
will start operations from the middle of 2011, is separately proposed. The staff of the said
preparatory unit will be engaged in a wide range of preparatory operations for the
establishment of the SWMPC, and the overall goals of the proposed CCDP is to create the
organisational structure of the SWMPC as well as to upgrade the technical and managerial
capacities for the candidate staff of the SWMPC, thereby upgrading the comprehensive
capacity to implement the updated Master Plan. To start the preparation for the establishment
of SWMPC, some urgent actions, such as the setup of the preparatory unit in DoE, will be
required to be carried out by DoE/CCN by the middle of 2011. The detailed actions required
are shown in Section 4.11.2.
The major outputs of the proposed CCDP include the following:

(i) Establishment of SWMPC

The organisation for the proposed SWMPC with 9 departments and 3 units should be
established by the end of 2014.

(ii) Capacity Development of Candidate Staff of SWMPC

A wide range of capacities required for the candidate staff of SWMPC should be
upgraded in parallel with the establishment of the SWMPC.
• Capacity for Public-Private Partnership and institutional reform
• Capacity for Establishment of SWMPC and Financial Management
• Capacity for operating 3R, intermediate treatment and collection/transportation
• Capacity for operating the new sanitary landfill site
• Capacity for planning and operating community participation and public awareness

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The outline of the proposed 5-year Comprehensive Capacity Development

Programme (CCDP) is shown Table 4.6.4. The detailed modular training projects under the
CCDP are given in Section B of Volume 3, Supporting Report, and the urgent actions for
establishment of the SWMPC are described in Section 4.11 of this report.

Table 4.6.4 Outline of Comprehensive Capacity Development Programme

Train Target Old
Modular Specific Subjects for Human Pilot Follow-
No. -ing SWMPC Private CBOs Master
HRD Project Resources Development (HRD) Project up
No. Staff Sector Plan
Overall 1-a Overall capacity for SWM ● ●
1
Management 1-b Capacity for SWM information system ● ●
Capacity to efficiently operate collection
Collection and
2-a
and transport services ● ●
2
Transport Capacity to maintain collection vehicles
2-b
and equipment ● ●
3-a Capacity to implement 3Rs ● ● ●
Capacity to operate intermediate
3
Intermediate 3-b
treatment facilities ●
Treatment
Capacity to maintain intermediate
3-c
treatment facilities ●
Capacity to select candidate sanitary
4-a
landfill sites ● ●
Sanitary 4-b Capacity to operate sanitary landfill sites ● ●
4
Landfill Site Capacity to implement EIA and monitor
4-c
environment for sanitary landfill sites ● ●
4-d Capacity to design sanitary landfill sites ● ●
Capacity to manage PPP tender and
5-a
procurement procedures ● ● ● ●
PPP
Capacity to provide franchised
5 Contractual 5-b
collection services ● ●
Management
Capacity to provide service contracts for
5-c
sanitary landfill management ●
Capacity to implement proper financial
6-a
management ● ●

Financial
6-b Capacity to finance SWM projects ●
6 Capacity to collect and manage service
Management 6-c
fees ●
Capacity to manage SWM special
6-d
account and revolving funds ●
Capacity to improve organisation for
7-a
SWM ● ●
Organisational
Capacity to improve legal system for
7 and Legal 7-b
SWM ● ●
Improvement
Capacity to monitor and enforce SWM
7-c
regulations ●
Community Capacity to primary collection at
8 Participation 8-a
community ● ● ● ● ●
Source: JICA Survey Team

(b) Consideration of Incomplete Action Plans of the Previous Master Plan

There are some incomplete action plans in the previous 1998 Master Plan which should be
reflected even in the new Master Plan. Table 4.6.5 summarises the outline of the incomplete
action plans to be considered in the CCDP.

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Table 4.6.5 Incomplete Action Plans of Previous 1998 Master Plan to be included in the CCDP
No. Provision Detailed Actions Recommended in New Master Plan
1 Development of Key Management z The development of key management capacities will be merged into
Capabilities the comprehensive capacity development programme of the new
Assistance in establishing the
Master Plan.
Management Team, planning capability,
procedures for objective setting and z The contents of the training programme are included in Module
performance measurement, MIS setup and Number 1-a and 1-b of the comprehensive capacity development
improving managers’ effectiveness programme, and the target is the candidate staff of the
administrative department of the SWMPC as well as the managers of
all PMUs of the preparatory unit for the SWMPC.
z The monitoring for the performance assessment on the capacity
improvement will be regularly conducted.
2 Financial Management Capacities z The development of financial management capacities will be merged
Assistance in establishing financial into the comprehensive capacity development programme of the
systems in the Finance Section including
new Master Plan.
implementation of computerised financial
system z The contents of financial management capacities are included in
Module Number 6-a, 6-b, 6-c and 6-d of the comprehensive
capacity development programme, and the target is the candidate
staff of the budgeting and accounting section of the administrative
department of the SWMPC as well as the staff of the administrative
PMU of the preparatory unit for the SWMPC.
z The monitoring for the performance assessment on the capacity
improvement will be regularly conducted.
3 Environmental Regulation z The development of environmental regulation capacities will be
Assistance in establishing the merged into the comprehensive capacity development programme of
Environmental Division’s monitoring
the new Master Plan.
methodologies and systems and
procedures for handling non-municipal z The contents of the training programme are included in Module
wastes Number 4-c of the comprehensive capacity development
programme, and the target is the candidate staff of the EIA section
of the strategy and planning department as well as the environmental
monitoring section of the disposal and intermediate treatment
department of the SWMPC.
z The monitoring for the performance assessment on the capacity
improvement will be regularly conducted.
4 Formatting and Drafting SWM By-laws z The development of legal capacities will be merged into the
Assistance in the formatting, drafting and comprehensive capacity development programme of the new Master
enactment of SWM By-laws
Plan.
z The contents of the training programme are included in Module
Number 7-b and 7-c of the comprehensive capacity development
programme, and the target is the candidate staff of the
administrative department as well as the monitoring and
enforcement department of the SWMPC.
z The monitoring for the performance assessment on the capacity
improvement will be regularly conducted.
5 Contract Management z The development of contract management capacities will be merged
Assistance in establishing the Contract into the comprehensive capacity development programme of the
Management Section’s functions and
new Master Plan.
procedures for both pre-contract award
and post-contract award z The contents of the training programme are included in Module
Number 5-a, 5-b and 5-c of the comprehensive capacity
development programme, and the target is the staff of the franchise
PMU of the preparatory unit for SWMPC as well as the candidate
staff of the EIA section of the strategy and planning department as
well as the procurement and contract department of the SWMPC.
z The monitoring for the performance assessment on the capacity
improvement will be regularly conducted.

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No. Provision Detailed Actions Recommended in New Master Plan

6 Human Resource Management and z The development of human resources management capacities will be
Development merged into the comprehensive capacity development programme of
Assistance in establishing the Human
the new Master Plan.
Resource Section’s functions covering
personnel functions, HR planning, z The contents of the training programme are included in Module
improving employee performance and Number 7-a of the comprehensive capacity development
occupational health programme, and the target is the candidate staff of the human
resources development section of the administrative department of
SWMPC.
z The monitoring for the performance assessment on the capacity
improvement will be conducted regularly.
7 Community Development z The development of community supporting capacities will be
Assistance in establishing the Community merged into the comprehensive capacity development programme of
Development Section
the new Master Plan.
z The contents of the training programme are included in Module
Number 8-a and 8-b of the comprehensive capacity development
programme, and the target is the candidate staff of the community
support department of the SWMPC.
z The monitoring for the performance assessment on the capacity
improvement will be conducted regularly.
8 Development of Technical Capability z The development of technical capacities for collection and
(Collection and Transportation) transportation will be merged into the comprehensive capacity
-Planning, Scheduling, Staffing & Vehicle
development programme of the new Master Plan.
Management
Assistance in establishing operations z The contents of the training programme are included in Module
management staff’s planning Number 2-a and 2-b of the comprehensive capacity development
methodologies and functions covering programme, and the target is the candidate staff of the direct service
arrangement, routing for collection, department and the zonal management department of the SWMPC.
scheduling, staffing and reviewing z The monitoring for the performance assessment on the capacity
systems. Also, assistance in establishing improvement will be conducted regularly.
Vehicle Management subunit’s functions
covering procurement of spare parts and
tools, store methods and inventory
management.
-Maintenance
Assistance in establishing Maintenance
subunit’s functions focusing on
improvement of craftsman’s skills based
on the job training.
9 Development of Technical Capability z The development of technical capacities for sanitary landfill
(Final Disposal) management will be merged into the comprehensive capacity
-Planning, Scheduling, Staffing &
development programme of the new Master Plan.
Maintenance
Assistance in developing operations z The contents of the training programme are included in Module
management staff’s planning, operating Number 4-a, 4-b, 4-c and 4-d of the comprehensive capacity
and reviewing systems. development programme, and the target is the candidate staff of
the disposal site management section of the disposal and
intermediate treatment department of the SWMPC.
z The monitoring for the performance assessment on the capacity
improvement will be conducted regularly.
Source: JICA Survey Team

(c) Formulation of Standard Working Procedures and Manuals

In order to standardise the working procedures for SWMPC, the following manuals in the field
of the SWM operations, PPP, financial management and community support manuals will be
formulated and continuously updated. Table 4.6.6 gives an outline of working procedure
manuals to be formulated.

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Table 4.6.6 Outline of Working Procedure Manuals to be Formulated

No. Area Manual
1 SWM Operations Manual Collection and Transport Manual for Franchise Zone
Collection and Transport Manual for Contracting-out Zone
Intermediate Treatment Manual
Sanitary Landfill Operation Manual
Monitoring and Enforcement Manual
2 PPP Manual Tender and Contract Manual
Tender and Contract Manual
3 Financial Management Manual SWM Special Account Management Manual
SWM Capital Revolving Fund Management Manual
SWM Operating Revolving Fund Management Manual
Capital Subsidy Management Manual
4 Community Support Manual Community Support Manual
Public Awareness Raising Manual
Source: JICA Survey Team

(2) Mid-Term Action Plan

(a) Implementation of Ex-post Mid-Term Performance Monitoring and Assessment
Ex-post performance monitoring of the achieved level of capacity development is essential for
accurately assessing the impacts on the improvement of the capacities at the timing of the
mid-term stage after the implantation of the 5-year CCDP. The ex-post monitoring system will
significantly contribute to the feedback mechanisms for rectifying poor performance of the
targeted staff of the CCDP, thereby sustainably upgrading the level of staff to meet the
requirements of SWMPC.
Performance monitoring is a complicated assessment of capacities involving qualitative rather
than quantitative performance indicators. Benchmarks as performance indicators for
monitoring and assessment should be developed for the continuous feedbacks to the capacity
development activities. Since the capacity development is a continuous process from learning
by doing in parallel with the starting of operations of SWMPC, feedback mechanisms to the
human resources development are absolutely required. The results of the ex-post mid-term
monitoring should be utilised for designing the follow-up skill-targeted training programme
which should be implemented after the 5-year CCDP.
There are different methods of monitoring as shown below. The method applied for the
ex-post mid-term performance monitoring should be outcome-based monitoring. The
monitoring subunit of the administrative PMU should be in charge of the outcome-based
monitoring.
• Continuous Monitoring
• Random (Sample) Monitoring
• Planned and Scheduled Monitoring
• Outcome-based Monitoring
• Complaints-based Monitoring
• Self-Monitoring

(b) Implementation of Skill-Targeted Follow-up Training Programme

Since the capacity development is a transformational change through an accumulated
incremental process, the performance assessment on the implementation of the first 5-year

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CCDP based on the mid-term performance monitoring should be utilised for studying the
further necessities for the follow-up skill training programme for the staff of SWMPC. The
follow-up programme would be supplementary to the CCDP and the specific skill-targeted
training for the selected expertise specially required for the further trainings. The duration of
the programme would be another 2 or 3 years in addition to the 5-year CCDP. The candidate
targeted expertise for the training would be as below.

(i) Skill Training for PPP Management Capacity

Since the new PPP scheme such as the introduction of the zone-based franchise system is
under the control of the SWMPC, the following skills should be further trained in addition
to the capacity development under the CCDP. The targeted staff of the training would be
the manager and deputy managers and section chiefs of the Procurement and Contract
Department of the SWMPC.
• Basic tendering process for the franchise contract and the collection services
(i) Preparation for Expression of Interests and Pre-qualification of Bidders
(ii) Preparation of Tender Documents
(iii) Preparation of the Bid
(iv) Clarifications and Feedbacks to Tender Documents
(v) Bid Bond
(vi) Submission of Bids
• Evaluation of franchisees and management service providers
• Types of public-private partnership and long-term risks
• Contractual provisions for franchise contract
• Contractual provisions for management service contract
• Calculation and estimate for value for money of public-private partnership projects
(ii) Skill Training for Monitoring and Enforcement Capacity
The training for monitoring inspectors who are in charge of monitoring and inspection of
the solid waste management services is critical for the successful enforcement of the
By-laws. The shortage of such inspectors is one of the major constraints for the proper
solid waste management.
• Clear-cut understanding of legal framework and legal steps required for monitoring
and enforcement
• Understanding on detailed monitoring and enforcement measures
• Well-managed consultation and communications with the private sector and
communities

(3) Long-Term Action Plan

(a) Implementation of Long-Term Performance Monitoring and Establishment of
Feedback System
In addition to the ad-hoc mid-term performance monitoring and assessment, the long-term and
periodical performance monitoring and assessment on the capacity development is required
for the sustainable human resources development. While the mid-term review after the 5-year
CCDP is absolutely necessary for the rapid feedback to the short-term rectification of the
human resources development, the long-term and periodical performance monitoring and

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assessment should highlight a wide range of feedback mechanisms such as an incentive

system.
Incentive systems are closely related with the acquired skills and job performances.
Furthermore, incentives and motivation also are linked as key inter-related ingredients of
successful capacity development activities in addition to tangible aspects such as skills and
organisational structures. Monetary and non-monetary forms of incentives contribute to
enhancing the staff’s willingness to further improve the capacities by ensuring that effective
capacities are transformed into good performance of individuals. The feedback system links
those incentives with the actual performance of the staff, and the feedback system of the
SWMPC should be established through utilising the improvement of the following current
feedback mechanisms of CCN.
• Performance Contract: The performance contract is annually being entered into between
the town clerk and each department of CCN. The contract includes, vision, mission,
objective of each department, commitment and responsibilities of each department and
CCN, and frequency of monitoring and information flow together with the quantitative
indicators.
• Staff Performance Appraisal Report: The staff performance appraisal report intends to
manage and improve the performance of the staff in providing the public services by
enabling a higher level of staff participation and involvement in planning.
• Results-Based Management (RBM): The results-based management (RBM) is being
prepared by each department of CCN to assess the performance results of the annual
operations together with performance indicators for the purpose improving the
performances of the public services.
In addition to the improvement of the current feedback mechanisms, meritocracy in the
SWMPC should be established as one of the feedback mechanisms. Meritocracy should be the
guiding principle for the staff recruitment and promotion inside SWMPC, ensuring that the
staff recruitment as well as the promotion takes the following conditions:
• The candidates for promotion should be selected on the basis of meritocracy;
• Fulfillment of the required level of knowledge, skills, experiences and attitude for the
positions should be taken into account; and
• Transparency should be applied in the selection process during the entry and promotion.

(b) Long-Term and Continuous Staff Deployment and Redeployment

For the sustainable provision of the solid waste management services, the long-term and
continuous staff deployment and redeployment based on the continuous performance
assessment of the staff of the SWMPC will be required. To streamline staff deployment and
redeployment guidelines in the SWMPC, the SWMPC is required:
• To formulate comprehensive guidelines for staff deployment and promotion;
• To establish appropriate staff assessment system; and
• To establish appropriate procedures and mechanisms on the selection of staff to be
promoted.

4.7 Legal and Institutional Reform Plan

The lack of effective legal framework as well as the institutional capacity to enforce the acts, regulations
and by-laws in the field of solid waste management is also one of the major constraints. At the same
time, the institutional issues such as the zoning system of the service areas for collection services are

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also critical. Without the proper legal and institutional reform, the SWMPC will not be provided with
clear mandates and legal framework to fulfill its responsibilities. The proper enforcement of the
regulatory and statutory provisions of the SWM-related regulations can lead to necessary actions to
correct violations such as illegal dumping and so forth. Hence, the effective legal and institutional
reform is a key to the sustainable provision of the solid waste management services.

4.7.1 Short-Term Action Plan

(1) Improvement of Monitoring and Enforcement in the CCN Solid Waste

Management By-law 2007
One of the major legal constraints to be removed is the lack of monitoring and enforcement of the
By-law. The current statements on the monitoring and enforcement described in the following
sections of the By-law alone are not adequate for the proper enforcement of the solid waste
management. A clear-cut process of monitoring and enforcement of the By-law is required to be
added to the By-law.
• Section 11 (1): CCN shall establish and implement a system of monitoring, inspections and
enforcement of waste management activities and shall regularly inform waste generators of the
procedures to implement and improve waste management within the City.
• Section 11 (2): Any officer or agent of CCN duly authorised in that behalf, may at all
reasonable times, enter any residential dwelling or trade premises within the area of
jurisdiction of CCN for the purpose of conducting any inspection, inquiry or the execution of
works under the provisions of these By-laws.
• Section 11 (3): In addition to such penalties for non-payment as may be stipulated in the
directions issued by CCN for non-payment of charges for waste management services, any
waste management charge payable under the By-laws shall be a debt due and owing to
collector and may be recovered as a civil debt at the instance of the collector or any person
authorised by the collector to collect on its behalf.
• Section 11 (4): Any power or function conferred on CCN under these By-laws may be
exercised or performed by a third party and shall be deemed to have been exercised or
performed under the authority of these By-laws.
• Section 12: Any person who refuses or fails to comply with any provision of these By-laws or
gives false information in relation to any requirements of these By-laws shall be guilty of an
offence, and , in addition to any other penalty which may lawfully be available, shall be liable
on conviction to a fine not exceeding three thousand shillings or to imprisonment for a term not
exceeding six months or to both such fine and imprisonment.
More specifically, the following two contents for the improvement of monitoring and enforcement
should be included in the By-law in more concrete terms.
Step 1: Strengthening functions of monitoring and inspection
An important component of the enforcement process is the authority to monitor and inspect related
facilities regularly or on random basis in accordance with the By-law. Especially, an inspection is a
formal visit by an inspector to a facility to review records, take samples, and observe facility
operation. More detailed roles, responsibilities and empowerment regarding the inspection should
be specified.
Step 2: Strengthening administrative actions
An administrative action is a non judicial enforcement action taken by the authority. These actions
can be broken down into 3 categories: informal, formal and penalty actions.

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(i) Informal Actions

Offenders will be informally given notice of its noncompliance and the steps to take to correct
the violations. Informal actions are most appropriate where the violations are minor threats to
human health and the environment. A warning letter, sometimes referred to as a notice of
violation, may be sent, which lays out the specific actions that need to be taken by the
offenders to correct the violations.
(ii) Formal Actions
In cases of a serious offender who has failed to respond to an informal action, the SWMPC
together with the assistance of the proposed NEMA affiliate office in the SWMPC can issue an
administrative order with the following varieties:
• Orders to mandatory inspection and warning letter
• Corrective action order
• Compliance order and warning of penalties

(iii) Penalty Actions

Possible penalty actions include permit revocations, facility closure, and criminal
prosecutions. If a private operator is engaged by means of a contract that specifies financial
penalties for failures to achieve good operating standards, persistent failures could result in the
cancellation of the contract by the SWMPC.

(2) Improvement of Monitoring and Enforcement in Other Related Legal Framework

In the same manner as the improvement of enforcement and monitoring in CCN Solid Waste
Management By-laws of 2007, the following other related legal framework will be modified.
Table 4.7.1 shows the improvement of enforcement and monitoring in other related legal
framework.
Table 4.7.1 Outline of Minor Modifications of Other Related Legal Framework
No. Related Section Actions Recommended in New Master
Plan
1 Occupation Safety and Health Act, 2007: In relation to Section 55 of Occupation
Section 108 (1): In the event of any contravention in connection Safety and Health Act which regulates the
with or in relation to a workplace of the Sections of this Act, the
operation of incinerators, more concrete
occupier, or if the contravention is one in respect of which the owner
is by or under this Act made responsible, the owner of the workplace steps for monitoring, inspection and
shall, subject to this Act be guilty of an offence. administrative actions should be included in
Section 109 (1): Any person who commits an offence under this Act the Act.
for which no express penalty is provided shall on conviction be
liable to a fine not exceeding three hundred thousand shillings or to
imprisonment for a term not exceeding three months or to both.
2 Public Health Act, 1986: In relation to the sections which regulate the
Section 121 (1): Any person who fails to obey an order to comply treatment of wastes, more concrete steps for
with the requirements of the medical officer of health or otherwise to
monitoring, inspection and administrative
remove the nuisance shall, unless he satisfies the court that he has
used all diligence to carry out such order, be guilty of an offence and actions should be included in the Act.
liable to a fine not exceeding eighty shillings for every day during
which the default continues; and any person willfully acting in
contravention of a closing order issued under Section 120 shall be
guilty of an offence and liable to a fine not exceeding eighty shillings
for every day during with the contravention continues.
Section 121(2): The medical officer of health may in such case enter
the premises to which any such case enter the premises to which any
such order relates, and remove the nuisance and do whatever may be

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No. Related Section Actions Recommended in New Master

Plan
necessary in the execution of such order, and recover in any
competent court the expenses incurred from the person on whom the
order is made.
3 Scrap Metal Act, 1993: In relation to Section 22 (2) of Scrap Metal
Section 17 (1): Any police officer not below the rank of Act which regulates the export of scrap
Sub-Inspector or the appropriate licensing officer may at any time
metal, more concrete steps for monitoring,
enter upon any premises in respect of which a license has been issued
under this Act, or in respect of which he has reasonable cause to inspection and administrative actions should
believe an offence under this Act or under any rules made thereunder be included in the Act.
has been or is about to be committed, and may inspect such premises
and any scrap metal, book, account, register, record, document or
thing found therein and may require any person appearing to be in
control thereof or employed therein or who has been employed
therein within the last preceding three months to give such
information as will enable the police officer or licensing officer to
determine whether or not the Sections of this Act are being or have
been complied with.
Section 18 (2): Any scrap metal found without an apparent owner
may be seized by a police officer or a licensing officer and shall as
soon as possible be taken before a magistrate, who, if satisfied that
the owner cannot be found, shall declare it to be forfeited.
Section 19 (1): When any licensed dealer is convicted of an offence
under this Act or of an offence involving fraud or dishonesty or
stolen property, his license shall, unless the court for special reasons
thinks fit to order otherwise, be cancelled forthwith, and the court
may order that no license shall be granted to him for such period as it
shall think fit.
4 Traffic Act, 1993: In relation to Section 55 (1) and 56 (1) of
Section 67 (1): Any person who contravenes or fails to comply with Traffic Act which regulates the overloading
any of the Sections of this Part shall be guilty of an offence and
on trucks, more concrete steps for
liable, where no penalty is specifically provided, on first conviction
to a fine not exceeding two thousand shillings or to imprisonment for monitoring, inspection and administrative
a term not exceeding three months, and on each subsequent actions should be included in the Act.
conviction to a fine not exceeding five thousand shillings or to
imprisonment for a term not exceeding six months or to both.
Section 99 (1): Any license issued under this Part may be cancelled
at any time by the Registrar if he is satisfied that, by reason of the
conduct of the holder of such license or the condition of any vehicle
in respect of which the license is issued, such cancellation would be
in the public interest; and upon receipt of a notice of such
cancellation, the license holder shall forthwith deliver up such
license to the Registrar.
5 Transport Licensing Act, 1993: In relation to Section Section 26 of Transport
Section 13 (1): A license of any class may be revoked or suspended Licensing Act which regulates the conditions
by the Licensing Authority on the ground that any of the conditions
of vehicles on roads, more concrete steps for
of the license have not been complied with or that the authorised
vehicle has not been used for a period of three months. monitoring, inspection and administrative
actions shpuld be included in the Act.
Source: JICA Survey Team

(3) Minor Modifications of the CCN Solid Waste Management By-Law 2007
Although some legal reforms on the solid waste management were proposed in the previous Master
Plan, a majority of them have not been well reflected even in the current CCN Solid Waste
Management By-laws, 2007. These incomplete legal reforms should be completed by the minor
modifications of the By-laws. Table 4.7.2 shows the outline of the required minor modifications of
the CCN Solid Waste Management By-laws.

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Table 4.7.2 Outline of Required Minor Modifications of CCN Solid Waste Management By-Laws
No. Related Section Actions Recommended in New Master Plan
1. The By-law should clearly stipulate the policies z CCN Solid Waste Management By-laws 2007,
and objectives to be achieved by SWM and state Section 4(1) stipulates that CCN has the primary duty to
that NCC has the primary Duty of Care for SWM
regulate waste and its management within the area of
in Nairobi City.
jurisdiction of the City, and for this purpose all wastes
generated or otherwise arising within the area of the City
shall be managed and regulated in accordance with these
By-laws.
z Modification: This section should be changed to mean
that CCN and SWMPC have the primary duties to
regulate waste and its management within the area of
jurisdiction of the City.
2. The By-law should categorise solid wastes z CCN Solid Waste Management By-laws of 2007,
according to the characteristics presented by each Section 3 defines “domestic waste”, “hazardous waste”,
category of waste. “municipal waste” and “solid waste”. It also defines
municipal waste as waste, which is the responsibility of the
Council whether under the By-laws or under any other law,
to be collected, treated or otherwise disposed and includes
refuse.
z Modification: This section should be more concretely
expressed by adding a table on the clear-cut categories of
wastes in the ANNEX to the By-law.
3 The By-law should impose a statutory requirement z CCN Solid Waste Management By-laws 2007,
for solid waste management planning on CCN. Section 4(2) stipulates that CCN shall prepare a waste
management plan of its arrangements for managing waste
arising within its area of jurisdiction and Section 4(3)
defines the contents of a waste management plan.
z Modification: The outline of the Integrated Solid Waste
Management Master Plan, which is currently being
formulated, should be attached as ANNEX to the
By-law.
4 The By-law should impose a Duty of Care on the z CCN Solid Waste Management By-laws 2007,
generators of waste to handle all wastes in their Section 8(3), (4), (5), (6), (7), (8), (9) and (10) stipulate a
charge in an environmentally sound manner and,
duty of care on the generators on proper handling of wastes.
in any case, to dispose them only by giving them
to an authorised collector of waste. z Modification: Detailed guidelines on 3R should be
attached as ANNEX to the By-law.
5 The By-law should impose a Duty of Care on all z CCN Solid Waste Management By-laws 2007,
waste operators to handle all wastes in their charge Section 9(1) stipulates that no person shall dispose waste
in an environmentally sound manner and to
other than in permitted disposal areas or at an approved
dispose of them only at a licensed landfill facility.
disposal facility, and Section 9(2) also stipulates that it shall
be the duty of CCN to provide places at which to deposit
waste before its transfer to any other place for its final
disposal and places at which to dispose waste and plant and
equipment for processing or other disposal thereof.
z Modification: Detailed guidelines on the final disposal at
sanitary landfill sites should be attached as ANNEX to
the By-law.

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6 The By-law should set standards for collecting, z ANNEX 1 of Policy on Private Sector Involvement in
treating and transporting solid waste and for the Solid Waste Management issued by CCN in 2001
proper management of sanitary landfills. stipulates CCN’s guidelines to the private sector
involvement on solid waste management in the field of
collection and transport.
z CCN Solid Waste Management By-law of 2007,
Section 9(1) stipulates that no person shall dispose of waste
other than in permitted disposal areas or at an approved
disposal facility, and Section 9(2) also stipulates that it shall
be the duty of CCN to provide places at which to deposit
waste before its transfer to any other place for its final
disposal and places at which to dispose of waste and plant
and equipment for processing or other disposal thereof.
However, there are no clear-cut standards for the proper
management of sanitary landfills.
z Although Environmental Management and
Co-ordination (Waste Management) Regulations of
2006, which are applied to the CCN Solid Waste
Management By-laws of 2007, Third Schedule stipulates
the detailed technical standards for treatment and disposal of
wastes, the CCN Solid Waste Management By-laws of 2007
does not have an ANNEX which shows the technical
standards for collecting, treating and transporting solid
wastes and for the proper management of sanitary landfills.
z Modification: With reference to Environmental
Management and Co-ordination (Waste Management)
Regulations of 2006, detailed technical standards for
collecting, treating and transporting solid wastes and for
the proper management of sanitary landfills should be
attached as ANNEX to the By-law.
7 The By-law should impose a requirement for z ANNEX 1 of Policy on Private Sector Involvement in
private sector SWM operators and landfill Solid Waste Management issued by CCN in 2001
operators to be licensed by the CCN. stipulates CCN’s guidelines for private sector involvement
on solid waste management in the field of collection and
transport.
z CCN Solid Waste Management By-laws 2007,
Section 9(1) stipulates that no person shall dispose waste
other than in permitted disposal areas or at an approved
disposal facility, and Section 9(2) also stipulates that it shall
be the duty of CCN to provide places at which to deposit
waste before its transfer to any other places for its final
disposal and places at which to dispose waste and plant and
equipment for processing or other disposal thereof.
However, there are no clear-cut standards for the proper
management of sanitary landfills.
z Although the Environmental Management and
Co-ordination (Waste Management) Regulations of
2006, which are applied to CCN Solid Waste
Management By-laws 2007, Third Schedule stipulates the
detailed technical standards for treatment and disposal of
wastes, the CCN Solid Waste Management By-laws of 2007
does not have an ANNEX which shows the technical
standards for collecting, treating and transporting solid

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wastes and for the proper management of sanitary landfills.
z Modification: With reference to the Environmental
Management and Co-ordination (Waste Management)
Regulations of 2006, detailed technical standards for
collecting, treating and transporting solid wastes and for
the proper management of sanitary landfills should be
attached as ANNEX to the By-law.
8 The By-law should specify the technical and z Section 3 of Policy on Private Sector Involvement in
financial qualifications to be met by waste Solid Waste Management issued by CCN in 2001
operators including landfill operators.
stipulates CCN’s regulations and general qualifications of
private operators.
z CCN Solid Waste Management By-law of 2007,
Section 5(1) stipulates that CCN shall issue a permit to
waste operators who satisfy such requirements as to
technical and financial capability as it shall stipulate, and
Section 9(1) also stipulates that no person shall dispose of
waste other than in permitted disposal areas or at an
approved disposal facility.
z Environmental Management and Co-ordination (Waste
Management) Regulations of 2006, which are applied to
the CCN Solid Waste Management By-law of 2007,
Section 7 and Section 10 stipulate the general
qualifications required for the waste transportation license
and for the disposal facility license, respectively, CCN Solid
Waste Management By-laws of 2007 does not have an
ANNEX which shows the detailed technical and financial
qualifications to be met by waste operators including landfill
operators.
z Modification: With reference to Environmental
Management and Co-ordination (Waste Management)
Regulations of 2006, detailed technical and financial
qualifications required for the waste transportation
license and for the disposal facility license should be
attached as ANNEX to the By-laws.
9 The By-law should impose a requirement for z Although CCN Solid Waste Management By-law of
Environmental Impact Assessment to be carried 2007, Section 9(1) stipulates that no person shall dispose
out and approved by the CCN before the licensing
waste other than in permitted disposal areas or at an
of any landfill site.
approved disposal facility, there is no clear statement on the
requirement for EIA before licensing of any sanitary landfill
site.
z Modification: This section should be more concretely
expressed by adding the requirements for EIA before
licensing of any sanitary landfill site.
10 The By-law should provide for “restraint notices” z CCN Solid Waste Management By-law of 2007,
to be served by NCC to empower CCN to prevent Section 11(2) stipulates that any officer or agent of CCN
situations of waste mismanagement which
duly authorised in that behalf, may at all reasonable times,
threaten the environment or public health.
enter any residential dwelling or trade premises within the
area of jurisdiction of the Council for the purpose of
conducting any inspection, inquiry or the execution of
works under the provisions of these By-laws. However, this
section does not have a statement on “restraint notices” to be
served by CCN.

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z Modification: This section should be more concretely
expressed by adding the requirements of “restraint
notices” to be served by CCN to prevent waste
mis-management.
Source: JICA Survey Team

(4) Legalisation of the Act for the Establishment of the SWMPC

(a) Outline
In order to establish the ring-fenced SWMPC by the end of 2014, legal arrangements for its
establishment are required. Since the establishment of SWMPC will not be applied to the solid
waste management services in municipalities nationwide, the legal action to establish
SWMPC in Nairobi City should not be carried out only by a National Act but also by the
CCN’s By-law. The Act for the Establishment of Solid Waste Management Public
Corporation (SWMPC) as well as the related By-law shall stipulate the missions and
institutional framework of the SWMPC which will be in charge of the solid waste management
services in Nairobi City.

(b) References to Water Act

In order to provide the basic legal framework for the establishment of the SWMPC, the case of
the establishment of the Nairobi City Water and Sewerage Company (NSWSC) which was
created in the Water Act of 2002 under the water sector reform is referred to as a similar case
of the public utilities sector. The water sector reform under the Water Act 2002 includes the
following five agenda: (i) the establishment of ring-fenced companies in charge of providing
water services; (ii) the separation of management of water resources from the provision of
water services; (iii) the separation of policy-making from day-to-day administration and
regulation; (iv) the decentralisation of functions to lower-level state organs; and (v) the
involvement of non-governmental entities in both the management of water resources and the
provision of water services. As the basic regulatory framework for the water sector, the Water
Act of 2002 established the Water Services Regulatory Board (WSRB) whose core
responsibilities include licensing of providers of water services and determining the standards
for the provision of water services to water consumers.

(c) Major Contents of the Act for the Establishment of SWMPC

The Act for the Establishment of SWMPC as well as the relevant By-laws should be enacted
not later than 2014, since the SWMPC must be established by the end of 2014 to secure a
one-year preparation period for the tendering process to start the zone-wise franchise system
by the beginning of 2016. The Act is designed to provide SWMPC with authorities and powers
to enforce and monitor the solid waste management services in the whole city. In accordance
with the organisational structure proposed in the Organisational and Human Resources
development plan, the Act for the Establishment of SWMPC should be created with reference
to the Water Act which stipulates the organisational structure of the Nairobi City Water and
Sewerage Company (NCWSC). The major contents of the Act would be as follows:
• Organisational Structure of SWM Public Corporation (SWMPC)
• Board Members of SWMPC
• Functions of SWMPC
• Transfer of Budgets, Assets and Employees from the DoE
• Provisions related to Officers and Employees

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• Finance
• Outsourcing and Procurement

(5) Amendment of the Procurement and Disposal Act 2005

Since Section 3 of the Procurement and Disposal Act of 2005 demands that public organisations
must comply with the complicated tendering procedures stipulated by the Act, Section 3 is also
applicable to the SWMPC. In order to simplify the procurement procedure and achieve the
procurement efficiency of the SWMPC, a special arrangement to exempt public utility corporations
such as the SWMPC from the said Section 3 of the Procurement and Disposal Act is proposed.
Section 3 of the Act defines a public organisation as below.
• Provision 3(a): Any body that uses public assets in any form of contractual undertaking
including public private partnership
• Provision 3(b): A company owned by a public entity to carry out functions that would have
otherwise been performed by the public entity
• Provision 3(c): Any body in which the Government has a controlling interest
After exempting the procurement procedures of the SWMPC from the Procurement and Disposal
Act, the procurement procedures by the SWMPC should be legalised in the contractual provisions
in the Act for the Establishment of SWMPC. In this case, the following two provisions should be
modified to improve the efficiency of the tendering and procurement procedures.

(a) Unification of Committees in Tendering and Procurement Process

The complicated functions of the tendering committee, procurement committee, evaluation
committee and inspection and acceptance committee should be simplified and unified to the
new tendering committee which will function as the unified procurement and tendering
committee for public organisations. The following sections include the complicated
procedures for the procurement committee under the current Procurement and Disposal Act.
• Section 12(1): The accounting officer or the head of the procuring entity shall appoint an
alternative member for each member of the tender committee and only the alternative
shall attend meetings of the tender committee whenever the member is unable to attend.
• Section 12(2): The quorum of the tender committee shall be five members including the
chairman.
• Section 12(3): Decisions of the tender committee shall be by consensus and where there is
no consensus, the decision shall be through voting by simple majority and where there is a
tie, the chairman shall have a second or casting vote.
• Section 12(4): Where any member of the tender committee has a direct or indirect interest
in any matter, he or she shall declare his or her interest in the matter and shall not
participate in the deliberations or decision-making process of the committee in relation to
that particular matter.
• Section 12(5): Members of the tender committee may be paid such honoraria as the
procuring entity may determine.
• Section 12(6): The tender committee shall cause to be prepared minutes of all its meetings
and such records shall include:
(i) a register of attendance
(ii) date of meeting
(iii) list of all matters considered

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(iv) the decision made for each matter, including all major issues discussed, the reasons
for rejection and clarification or minor amendments to which the approval is
subject
(v) a note on the basis of interest declared by members
(vi) all conflicts of interest declared by members
(vii) all dissenting opinions among tender committee members
(viii) such other records as many be necessary

• Section 12(7): The tender committee may invite independent advisers or members of the
procurement unit to explain submission or provide technical advice, where required.
• Section 12(8): To enhance transparency of the procurement process, the procuring entity
shall invite in addition to the representative of various departments, at least two observers
to attend its meetings in cases where the value of the contract is estimated to be above fifty
million shillings.
• Section 12(9): At least one of the observers invited under Provision 12 (8) shall come
from a duly recognised private sector organisation or discipline relevant to the
procurement under consideration.
• Section 12(10): The failure of an invited observer to attend a meeting shall not nullify the
procurement proceedings.
(b) Simplification of Thresholds for Categories of Procurement
The complicated threshold for the categories of procurement under the current Procurement
and Disposal Act in which the SWMPC must comply should be more simplified.

(6) Legalisation of Establishment of SWM Special Account

Currently, the solid waste management services are provided under the general-account budget of
CCN. The waste collection fees go to the general budget of CCN. Section 220 (1) of the Local
Government Fund Act stipulates that a municipal council, county council or town council may, in
accordance with rules made by it with the approval of the Minister, establish a capital fund for the
purpose of defraying capital expenditure and reducing outstanding debts.
This section in the Local Government Fund Act only stipulates the setting up of the special account
for capital investment. Therefore, this section is required to be modified so that CCN will be able to
establish the special account for the operational budget for solid waste management.

(7) Legalisation of Establishment of the SWM Capital Revolving Fund (SWMCRF)

and SWM Operating Revolving Fund (SWMORF)
The establishment of the SWM Capital Revolving Fund (SWMCRF) and the SWM Operating
Fund (SWMORF) should be legally documented in the provisions of the Act for the establishment
of SWMPC. The SWMORF will be set up to fund the monitoring system as well as the capacity
development for the ultimate purpose of improving the enforcement of the solid waste management
services (Detailed explanation of the SWMORF is made in page 4-140 of this report). These funds
should be positioned legally as a sort of public trust fund.

(8) Legalisation of Franchise Fee

The collection of a franchise fee from the franchisee in each zone should be legalised in the relevant
section of the Act for the establishment of SWMPC. In case of developed countries, the franchise

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fee ranges from 18% to 25% of the collected charges of wastes. However, taking into account the
tariff level and the beneficiaries’ willingness to pay in Nairobi City, the level of franchise fee is
tentatively set at 15% of the collected charges of wastes. In the section of the Act, the initial level of
franchise fee of 15% as well as the mechanism of updating the level of franchise fee should be
stipulated.

(9) Legalisation of Operational Regulations on Subsidy Provision to Franchisees

The operational regulations on the subsidy provision to the franchisees also should be legalised in
the relevant section of the Act for the establishment of SWMPC. The contents of the regulations
include the target, the operational guidelines and the eligibility of the subsidy.

(a) Target of Subsidy

The SWM Capital Revolving Fund shall be designed to assist private franchisees by
subsidising their investment on collection vehicles to replace the unserviceable ones and those
to be additionally procured. The fund is to be allotted for investments on collection vehicles for
the purpose of improving the collection and transport services in the franchised zones. Fifty
percent (50%) of the franchise fees (7.5 percent of the collected charges) to be paid by the
franchisees will go to the SWM Capital Revolving Fund.

(b) Operational Guidelines of Subsidy

There are several options for the operation of the SWM Capital Revolving Fund as mentioned
below. Option 1 is recommendable as the optimum operational option on the use of subsidy.
Option 1: In proportion to the accumulated amount of franchise fees paid by the awarded
franchisees, the cost for additional procurement and replacement of collection vehicles will be
directly subsidised by SWMPC based on the application of the franchisee. (In this case, the
ownership of collection vehicles belongs to the private operator.)
Option 2: To promote investment on vehicles by the private franchisee, public assistance to
guarantee fees as well as interests of commercial loans for the procurement of collection
vehicles will be provided to private franchisee. (In this case, the ownership of collection
vehicles belongs to the private operator.)
Option 3: By utilising the SWM Capital Revolving Fund, collection vehicles will be leased
out by SWMPC to private franchisees at a lower lease fee during the contract term. The lease
fees paid by franchisees will be deposited in the revolving fund for future reinvestments. (In
this case, the ownership of collection vehicles belongs to SWMPC.)
Figure 4.7.1 illustrates the operational flow of the SWM Capital Revolving Fund (Option 1).
In addition to the operational guidelines on the subsidy provision to the private sector, the
requirements to be met by a private franchisee should be stated clearly in the subsidy clauses of
the SWMPC Act. These requirements should include:
• To have experience in providing collection services on any of the service zones;
• To properly pay the franchise fees in accordance with the relevant regulations;
• To submit regular performance and financial reports;
• To meet the performance requirements set by SWMPC during the contract term;
• To receive proper auditing; and
• To submit its vehicle procurement plan.

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SWM Public Corporation Account Franchised Private

Application of Subsidy Waste Collectors

Capital Revolving Fund

Subsidy on Vehicle Procurement
15% of Collected
Charges
Operating Revolving Fund Franchising Fee

Subsidy
Procurement
Calculation based Franchising
General Account on Franchising Fee Fee Record

Initial Investment on Collection

Initial Fund Raising and Vehicles
Annual Cash Injection
Investment on Replacement of
Collection Vehicles
Collection Charges
Special Allocation
from LATF Additional Investment on
Collection Vehicles
Increase in Property
Enlargement of Investment on Vehicles
Tax on Fixed Assets

Increase in Other Increased Users’

Improvement of Willingness to Pay
Local Taxes Charges
Services

Figure 4.7.1 Proposed Workflow of the SWM Capital Revolving Fund (Option 1)

4.7.2 Mid-Term Action Plan

(1) Legalisation of the PPP Act

(a) Requirements for the Legal Framework of PPP
The Guidelines on Public-Private Partnership issued by the Public-Private Partnership
Steering Committee under the Ministry of Finance in 2006 is the basic policy framework for
PPP projects. Based on the understanding of the PPP Guidelines, the Department of
Environment of CCN prepared the document named “Towards an Integrated Solid Waste
Management System for Nairobi through Private-Public Partnership (PPP) Framework.”
However, the PPP guidelines as well as this document does not stipulate any specific
requirement and procedure for detailed long-term PPP schemes such as concession, BOT and
its related variations. In order to provide the regulatory framework for PPP projects, the
Guidelines should be upgraded to the comprehensive PPP Act.

(b) Inclusion of Franchise Contract Guidelines on Collection and Transport in the

Current PPP Guidelines
After selecting the franchisees for the collection services in the tendering process, the SWMPC
should prepare a clear-cut contract document which would define the terms and conditions for
the services. The franchise contract should basically explain the rights and obligations of the
authority and the private franchisees. The franchise guidelines should include the following
items.
• Contents of Services to be Rendered
• Zones and Service Coverage

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• Tariff and Payment to Franchisees

• Franchise Fee
• Subsidies to Franchisees
• Performance Security
• Regulatory Framework
• Identification, Uniform and Corporate Logo
• Liability and Indemnity
• Performance Monitoring
• Auditing
• Vehicles and Equipment
• Arbitration
• Termination of Contract
(c) Inclusion of Service Contract Guidelines in the Current PPP Guidelines
After selecting the private service provider to manage of sanitary landfill site and intermediate
treatment facilities in the tendering process, the SWMPC should prepare a clear-cut service
contract document which should define the terms and conditions on the operational services of
the facilities. The service contract should basically explain the rights and obligations of the
authority and the private service providers. The guidelines for the service contract should
include the following items:
• Contents of Services to be Rendered
• Payment to Service Provider
• Tipping Fee
• Performance Security
• Regulatory Framework
• Liability and Indemnity
• Performance Monitoring
• Auditing
• Vehicles and Equipment
• Arbitration
• Termination of Contract
(d) Legalisation of the Comprehensive PPP Act
The PPP guidelines as well as the document named “Towards an Integrated Solid Waste
Management System for Nairobi through Private-Public Partnership (PPP) Framework”
prepared by the DoE does not stipulate any specific requirement and procedure for the detailed
long-term PPP schemes such as concession, BOT and its related variations.
The current PPP guidelines contain the following:
• Definitions
• Basic Procedures for Entering into Public-Private Partnership
• PPP Steering Committee
• Price of Services
• Security of Supplies
• Minimum Revenue Guarantee

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• Government Guarantee
• Duration of the Public-Private Partnership
• Steps in PPP Approval
• Planning for PPP
• Transparency
• Procurement Procedures
• Contractual Provisions
• Contract Administration
• Unsolicited Bids
The above contents should be upgraded to the new PPP Act by adding the following missing
provisions required for the successful implementation of PPP projects.

(i) Identification and Allocation of Risks

It is commonly said that, in a PPP contract, risks should be allocated to the party most
capable of managing those risks. However, risks to the public and private sectors,
including the payment mechanism based on satisfactory performance levels, should be
properly defined and allocated between the contracting parties. PPP contracts related to
concessions, BOT and its related variations should have a mechanism to allocate the wide
range of risks among both the public sector and the private sector.
Provisions on the identification and allocation of risks should be clearly stipulated in the
new PPP Act or the upgraded PPP guidelines. More specifically, the new PPP Act should
include provisions in relation to the identification and allocation of risks, as follows:
• The new PPP Act should define the different risks existing in the contract and to
establish the extent to which the public sector and the private sector will be held
responsible for the risk;
• The Act should clearly specify which risks may cause modification of the economic
terms of the contract in order to rebalance the financial terms of the contract so as to
make the bidders know, at the time of preparing their offers, which specific cases
may lead to changes in the contract conditions initially stated;
• The Act should conatin a provision to help avoid future renegotiations between the
private contractors and the public sector arising from offers that were initially too
optimistic and is an incentive to the bidders to prepare offers as realistically as
possible;
• The Act should contain a provision on the reduction of demand risk by estimating,
depending on the accumulated present value of the revenues finally obtained by the
private contractors, the future changes in the economic conditions of the contract;
and
• The Act should contain a provision regarding permission to use variables, such as the
contract term, which are easy to modify in an automatic way to reestablish the
economics of the contract once the bonds have been surpassed.

(ii) Reasonable Concession Term

The methodologies to determine the concession term should be clarified in the contractual
provision of the new PPP Act. In case of concession, the key determinant of the
concession term is the minimisation of lifecycle cost of facilities being delivered in the
PPP contract. The ideal methodology is that the term should be long enough so that the
concessionaire is incentivised to make efforts to keep the total costs down in designing,

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operating and maintaining those facilities. Therefore, a concession term matching the
useful economic life of the facilities is recommended in the new PPP Act. On the other
hand, the concession term should not be so long that it adversely impacts the flexibility of
the public sector in managing the facilities such as sanitary landfill sites and intermediate
treatment facilities.

(iii) Clear-cut Termination Clause

A clear-cut contract termination clause is an essential prerequisite for avoiding an early
termination risk of long-term PPP projects such as concessions, BOT and its variations.
Therefore, the methodologies to determine the conditions of the contract termination
clause should be clarified in the contract provision of the new PPP Act.

(iv) Detailed Methodology of Value for Money Analysis

The Value for Money (VfM) test or assessment is an integral part of the measurement of
the cost performance of long-term PPP projects such as concessions, BOT and its
variations in comparison with the implementation by the conventional public sector.
Without the clear-cut methodologies of the VfM test or assessment, there would be no
criteria to choose the optimum PPP option from a wide range of PPP options. The clause
to stipulate the clear-cut methodologies for the VfM test or assessment should be also
included in the contractual provision of the new PPP Act.

(2) Legal Arrangement of Auditing for the SWMPC and Revolving Funds
The accountability and transparency of the SWMPC as well as the revolving funds kept in the
special account of SWMPC is a key to the sustainable provision of the solid waste management
services. In this connection, the auditing and monitoring by the relevant authorities should be
clearly stated in the provision of the SWMPC Act, and should be continuously carried out for the
long period.
The Kenya National Audit Office (KENAO) is a constitutional body mandated to audit the central
government, local authorities and state corporations. The KENAO is a statutory agency to provide
audit services for keeping the accountability and transparency in using the public resources.
The Department of State Corporations normally carries out financial audits for state corporations.
Sections 12 to 20 of the Public Audit Act stipulate the auditing of state corporations by KENAO.
Since the newly established SWMPC is a sort of public corporation, KENAO is basically in a
position to periodically audit the SWMPC itself. In the SWMPC Act, the acceptance of the auditing
by KENAO should be indicatively stipulated. Under the same legal framework, the auditing should
be also conducted for the management of the SWM Capital and Operating Revolving funds in the
special account of SWMPC.
On the other hand, the Specialised Audit Department of KENAO is in charge of the auditing of
other organisations in which public sources are injected. Since the private franchisees will be
subsidised by the public sources, the franchisees should be also audited by the Specialised Audit
Department of KENAO in terms of the subsidy utilisation and fee collections.

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4.7.3 Long-Term Action Plan

(1) Legalisation of Consolidated SWM Act

The currently fragmented SWM-related acts, regulations and by-laws of the relevant authorities
should be consolidated. The following organisations are to be required to form a joint committee
for the formulation of the consolidated SWM Act:

• MoLG
• CCN
• MENR/NEMA
• ODPM/MOF
• MoPH
• Other Relevant Line Ministries

(2) Long-Term Monitoring and Enforcement of SWM-related Acts, Regulations and

By-Laws
A long-term and periodical performance monitoring and assessment on the enforcement status of
the SWM-related acts, regulations and by-laws is required for the sustainable legal and institutional
reform. The long-term review of these monitoring processes on the enforcement status of the
SWM-related legal framework should have a feedback mechanism to modify the SWM-related
Acts, Regulations and By-laws.

4.8 Financial Management Plan

4.8.1 Financial Analysis on the Solid Waste Management Public Corporation

(1) Setup of Alternatives

As mentioned in Subsection 4.5.2, two alternatives are set up for the financial simulation regarding
the final landfill site and waste collection system, as follows:
Case-A: The final landfill site (Ruai) and the direct haul system for waste collection/transportation
Case-B: The final landfill site (Ruai) and the transfer transport system for waste
collection/transportation.

(2) Basic Assumptions

The basic conditions are set up for the cases, as follows:
(a) Waste Charge Level of Households
The proposed waste charging system for households will be established in 2016. Table 4.8.1
shows the relationship among the O&M cost and the total cost of the project, willingness to
pay (WTP) and the affordability to pay (ATP). The O&M cost and total cost of the
collection/transportation system of the project are converted to cost per month and per
household. WTP and ATP are based on the Public Awareness Survey by the JICA Survey
Team and the existing conditions of private companies are based on the interview survey by
the JICA Survey Team. Three scenarios of waste charge level by income level are set up by
taking account of the willingness to Pay (WTP), the affordability to pay (ATP), the existing
conditions of private companies. WTP and ATP are based on the Public Awareness Survey by

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JICA Survey Team and the existing conditions of private companies are based on the interview
survey by the JICA Survey Team.

Table 4.8.1 Relationship among O&M Cost, Total Cost of the Project, and the WTP and ATP
O&M Cost of the Total Cost of the
Transportation WTP ATP
Income Level Project Project
System (KSh/HH/month) (KSh/HH/month)
(KSh/HH/month) (KSh/HH/month)
Low 31 56 20 293
Direct Haul Middle 41 75 35 329
High 83 151 145 906
Low 33 81 20 293
Transfer Station Middle 44 108 35 329
High 89 217 145 906
Low 32 68 20 293
Average Middle 43 91 35 329
High 86 184 145 906
Source: 1 WTP and ATP are based on the Public Awareness Survey by the JICA Survey Team.
2. O&M cost and total cost of the project are based on the project cost by the collection/transportation system and total
collected waste amounts during 2010~2030 and amounts waste generation per capita per day.

Table 4.8.2 Scenarios of Waste Charge for Households by Income Level

Waste Charge Level Collection Rate
Scenario Income Level
(KSh/Household) (%)
Low 60 30
Low Middle 150 40
High 300 50
Low 120 40
Medium Middle 250 50
High 500 60
Low 170 50
High Middle 300 60
High 650 70
Existing Slum 7 to 100
Charge Level Low 100 to 200
30 to 90
of Private Middle 200 to 300
Companies High 300 to 700
Note: 1. Existing charge level of private companies is based on the survey conducted by
the CCN.
2. Collection rate of existing charge is assumed by the JICA Survey Team.
Source: JICA Survey Team

(b) Waste Charge Level of Business Establishments

No data on willingness to pay and affordability to pay was available for the business
establishment awareness survey conducted by the JICA Survey Team. Therefore, the
willingness to pay and the affordability to pay are not considered for business establishments.
The waste charge level of business establishments is set up on the basis of the operation and
maintenance per ton. This waste charge level is assumed to increase at the same rate of 5% per
annum per capita GRDP of Nairobi City.

(c) Tipping Fees

It is assumed that the average unit rate of existing tipping fees is assumed to be KSh 35 per ton
of disposed waste during 2011 to 2016. After the Ruai landfill site is completed in the year
2017, tipping fees are estimated to be 164 KSh/ton on the basis of total amount of disposed

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waste (9.5 million tons) and the O&M cost of the Ruai landfill site during the period from 2017
to 2030.

(d) Financial Sources

The financial sources of investment on the final disposal site, transfer station and trucks, the
replacement and purchase of new trucks for the CCN/SWMPC, and the intermediate treatment
facilities and the closure of Dandora Dumpsite including illegal dumping sites during 2015 to
2019 are assumed to be a loan from an international financial institution with the following
conditions:
• Repayment Period : 40 years
• Grace Period : 10 years
• Interest Rate : 0.55% per year

(e) Depreciation
The depreciation of assets to be invested is calculated by the straight line method based on the
economic life of the asset.
• Intermediate Treatment Facilities : 26 years (3.8%)
• Transfer Station : 26 years (3.8%)
• Final Disposal Site : 15 years (6.7%)
• Heavy Machine : 5 years (10%)
• Truck : 10 years (10%)
• Container : 5 years (20%)
The residual values of fixed assets mentioned above are considered to be zero in accordance
with the accounting system of CCN. In the accounting system in Japan, 10% of fixed assets are
considered to be the residual values, but the residual values acquired after 2007 were abolished
by amendment of the Tax Law in 2007. In the project evaluation, residual values which are not
yet depreciated in the last year of project evaluation period (2011 to 2030) for calculation of
EIRR and FIRR are considered to be negligible and is not included in the project cost, because
these residual values are discounted for the present value.

(f) Capital Revolving Fund

The Capital Revolving Fund is to be established to finance the investments on trucks by the
private companies, to replace the trucks after 2016, and to purchase new trucks to cope with
the increase of collected wastes by 2030. The source of funds may be the following three:

(i) The Franchise Fees (15% of revenues from waste charges to be collected by the
private companies)
Fifty percent (50%) of Franchise Fees will finance the cash shortages of private
companies and other 50% will finance the cash shortages of the CCN/SWMPC.

(ii) Subsidies from the Central Government such as the Local Authority Transfer
Funds (LATF) and the Constituency Development Fund (CDF)
(iii) Taxes or Funds from the CCN such as the land and building taxes

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(3) Simulation of Financial Viability of the SWMPC

(a) Case of Simulation
The simulation was conducted for six cases as shown in the following table.

Table 4.8.3 Cases of Financial Simulation for SWMPC

Final Landfill Site and
Waste Collection Financial
Waste Charge Level
&Transportation Sources for
Case System Initial
No. Investment
Business
Household
Case-A Case-B Establishment
Low Medium High O&M Cost Loan
A.1 ● ● ● ●
A.2 ● ● ● ●
A.3 ● ● ● ●
B.1 ● ● ● ●
B.2 ● ● ● ●
B.3 ● ● ● ●
Source: JICA Survey Team

(b) Result of Simulation

(i) CCN/SWMPC
The summary of simulation for CCN/SWMPC is shown in Table 4.8.3. From the
comparison mentioned above, Case-A, or the direct haul to the final landfill site at Ruai,
shows a slightly less deficit than Case-B, or the construction of a transfer station, in the
profit and loss, and has definitely less shortage of cash than Case-B.
Tables 4.8.4 and 4.8.5, and Figures 4.8.1 and 4.8.2 show the results of simulation of
cash flow for both Case-A.2 and Case-B.2. As shown in Table 4.8.5, the surplus is
figured out mainly before the commencement of the SWMPC from 2011 to 2015. During
this period, the cash shortages will increase from KSh 299 million to KSh 602 million,
which is after 50% subsidisation from the franchise fees paid by the private companies.
Most expenses are occupied by the investments, which is around KSh 115 million to
KSh 2,089 million, followed by the contractout payables to private companies of
KSh 179 million to KSh 237 million. However, the contractout payables to private
companies are budgeted every year by the CCN and the amounts of this item would not
increase to more than KSh 200 million because the waste collection area of the SWMPC
or the CCN/SWMPC Zone and the waste collection area of the private companies as the
franchisees are projected not to increase in the preceding five years even if the collection
rate would increase to 100% at the target year 2030. On the other hand, the most of the
investments from 2011 to 2015 would be offsetted by the loan and the net cash shortages,
therefore, woud be reduced accordingly.
Besides, amounts from the Local Authority Transfer Fund (LATF) are subsidised
regularly every year to the CCN. The amounts from the LATF to the CCN are from
KSh 1.4 billion in 2007-2008 to KSh 1.5 billion in 2008-2009, a slight increase, and the
amount would not drastically decrease in the future. Based on the budget for 2010/2011,
the capital expenditure must be at least 65% of the LATF service delivery amount, i.e., at
least Ksh 870 million. Since sixty-five percent (65%) of KSh 870 million would be

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KSh 565 million, the amounts of cash shortages except the contractout payables to private
companies would range from KSh 119 million to KSh 365 million.
If the cash shortages are to be subsidised from the LATF, around 21% to 65% of the
LATF could cover the cash shortages. If the total cash shortages could not be subsidised
from the LATF, the other sources that could be considered are the revenues from property
rates or the land rates (taxes) that occupy around 20% to 35% of the revenue of CCN and
estimated to be KSh 1.9 billion in 2007-2008 and KSh 2.4 billion in 2011-2012. If 50% of
the annual cash shortages of KSh 60 million to KSh 180 million could be subsidised from
the the above revenue from the property rates or land rates, the amounts that could be
subsidised are from around 3.2% (KSh 0.06 billion/KSh 1.9 billion) to 7.5%
(KSh 0.18 billion/ KSh 2.4 billion).
On the other hand, if the LATF would not have enough allowance to subsidise the cash
shortages of the CCN/SWMPC because of other departments having higher subsidisation
priority, the CTF (Constituency Development Fund) could be another option as the source
of subsidisation for the cash shortages of the CCN/SWMPC.
Based on the above explanations, it is concluded that it is definitely possible to subsidise
the cash shortages of the CCN/SWMPC during the period from 2011 to 2015 from the
central and local sources.
After 2015, the cash shortages are figured out as less than KSh 200 million except 2025 as
Ksh 727 million. These cash shortages except 2025 could be also reduced by offsetting
from the SWMPC budget for contractout payables. Then, the net cash shortages would be
KSh 508 million in 2025 which could be subsidised from the central source such as the
LATF and the local source of the CCN such as the property rates or land rates.
It is projected that there will still be a deficit in 2030, the last year of the new Master Plan.
However, after 2030, the deficit would decrease mainly because the revenue from waste
charges, tipping fees and franchise fees would continue to increase and would be more
than the increase of the investment and O&M cost. Besides, the contractout payables to
private companies would not much increase due to the decrease of waste collection area to
only the CCN/SWMPC zone, and the loan repayment would not also increase to more
than KSh 229 million.
Table 4.8.6 shows the result of projection of cash flow for Case-B.2, the
transfer-transport system. In this case the cash flow would be negative showing cash
shortages in almost every year mainly because of increase of cost such as investment,
O&M and loan repayment. The subsidies after offsetting of the contractout payables to
private companies by the budget of the CCN/SWMPC would be financed from the LATF
and the revenue from property rates or land rates of the CCN. The net cash shortages after
offsetting of the contractout payables would range from KSh 40 million to
KSh 890 million during the period from 2011 to 2030. The maximum cash shortage of
KSh 890 million is around two times of that of Case-A.2 and would be over the total
amount of the LATF of KSh 565 million which is 65% of the LATF service delivery
amount, i.e., KSh 870 million, at least. Therefore, other sources of subsidy will be
indispensable, such as the revenue from property rates (land rates) of the CCN. It is
possible to subsidise the cash shortages from the CCN budget but the financial burden of
CCN would be more than in Case-A.2. Therefore, from the viewpoint of less financial
burden to the LATF or the CCN, Case-A.2 could be more effective and financially viable
than Case-B.2.
The results of projection of profit and loss statements for Case-A.1~3, and Case-B.1~3
are shown in Table 1.1.1~1.1.3 and Table 1.2.1~1.2.3 and the cash flow for Case-A.1 and

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A.3 and Case-B.1~3 are shown in Table 1.3.1~1.3.2 and Table 1.4.1~.1.4.3 in Section H
of Volume 4, Data Book, respectively.

Table 4.8.4 Summary of Cash Flow Simulation for CCN/SWMPC

(Unit: in Million KSh)
P&L (Profit & Loss) Cash Flow
Case No. Net Profit/Loss after Accumulated Net Profit/ Accumulated
Surplus/Deficit
Depreciation Loss after Depreciation Surplus/Deficit
A.1 Deficit: 2011-2030 2030: -8,844 2023: Deficit 2030: -10,832
Deficit: 2011-2015, 2030: 762 2017-2018, 2020, 2030: -1,226
A.2 2026-2028 2022-2023,
2026, 2029-2030: Surplus
A.3 Deficit: 2011-2015 2030: 11,301 2011-2015: Shortage 2030: 9,314
B.1 Deficit: 2011-2030 2030: -19,535 2011-2030: Shortage 2030: -16,264
Deficit: 2011-2030 2030: -9,930 2017-2018, 2020, 2030: -6,659
B.2
2022-2023: Surplus
Deficit: 2011-2015, 2030: 609 2011-2015, 2021, 2025: 2030: 3,880
B.3 2017-2018, 2021, Shortage
2026-2027
Source: JICA Survey Team

Table 4.8.5 Projection of Cash Flow of CCN/SWMPC: Medium Scenario for Case-A (Case-A.2)
(Unit : in Million KSh)
Cash Inflow Cash Outflow
Waste Charges Contract-Out
Franchi Loan Accumulated
Year Tipping Invest- O&M Loan Payables to Surplus
Loan House- Business -se Total Repay Total Surplus
Establish Fees Fees
ment Cost
-ment
Interests Private
hold Company
-ment
2011 0 0 21 8 0 29 115 33 0 0 179 328 -299 -299
2012 3 0 22 9 0 34 159 43 0 0 193 396 -361 -660
2013 247 0 24 9 0 280 594 44 0 0 207 845 -565 -1,225
2014 31 0 25 10 0 66 186 143 0 1 221 552 -486 -1,710
2015 1,839 0 27 11 0 1,877 2,089 151 0 2 237 2,479 -602 -2,312
2016 2,794 549 15 50 23 3,431 2,986 307 0 12 142 3,447 -16 -2,328
2017 1,631 657 16 54 27 2,385 1,813 208 0 27 156 2,205 180 -2,148
2018 234 768 17 59 30 1,108 271 231 0 36 171 709 399 -1,749
2019 99 895 18 63 34 1,110 648 251 0 37 186 1,122 -12 -1,761
2020 0 1,037 20 68 39 1,164 232 270 0 38 202 742 422 -1,339
2021 0 745 17 79 91 932 510 347 0 38 153 1,048 -116 -1,455
2022 0 876 18 86 104 1,084 81 308 0 38 169 596 488 -967
2023 0 1,022 19 93 119 1,254 573 326 8 38 185 1,130 124 -843
2024 0 1,190 21 101 136 1,448 1,025 346 9 38 201 1,619 -171 -1,014
2025 0 1,379 22 109 155 1,665 1,700 366 71 38 219 2,392 -727 -1,742
2026 0 775 19 122 253 1,169 7 460 164 37 158 827 342 -1,399
2027 0 902 20 131 286 1,339 334 712 218 36 171 1,471 -132 -1,531
2028 0 1,044 22 139 321 1,526 377 754 226 35 185 1,576 -50 -1,581
2029 0 1,206 23 148 361 1,738 335 798 229 34 199 1,595 143 -1,439
2030 0 1,390 24 158 406 1,978 445 845 229 33 214 1,766 212 -1,226
Source: JICA Survey Team

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Table 4.8.6 Projection of Cash Flow of CCN/SWMPC: Medium Scenario for Case-B (Case-B.2)
(Unit : in Million KSh)
Cash Inflow Cash Outflow
Waste Charges Contract-Out
Franchi Loan Accumulated
Year Tipping Invest- O&M Loan Payables to Surplus
Loan House- Business -se Total Repay Total Surplus
Establish Fees Fees
ment Cost
-ment
Interests Private
hold Company
-ment
2011 0 0 22 8 0 31 115 33 0 0 179 328 -297 -297
2012 3 0 24 9 0 36 159 43 0 0 193 396 -360 -657
2013 353 0 25 9 0 388 710 44 0 2 207 963 -576 -1,232
2014 137 0 27 10 0 174 302 140 0 3 221 666 -492 -1,725
2015 3,138 0 28 11 0 3,177 3,518 148 0 20 237 3,922 -744 -2,469
2016 4,990 549 16 50 23 5,627 5,401 303 0 47 142 5,893 -266 -2,735
2017 1,631 657 17 54 27 2,386 1,813 269 0 56 156 2,295 91 -2,644
2018 234 768 18 59 30 1,110 271 297 0 58 171 796 313 -2,330
2019 99 895 20 63 34 1,112 647 321 0 58 186 1,213 -101 -2,432
2020 0 1,037 21 68 39 1,165 292 347 0 58 202 899 267 -2,165
2021 0 745 18 79 91 933 1,170 431 0 58 153 1,813 -880 -3,045
2022 0 876 19 86 105 1,086 81 398 12 58 169 718 368 -2,677
2023 0 1,022 21 93 119 1,256 571 425 16 58 185 1,255 1 -2,676
2024 0 1,190 22 101 136 1,449 1,023 452 121 58 201 1,856 -406 -3,082
2025 0 1,379 24 109 155 1,667 1,733 480 287 57 219 2,777 -1,110 -4,192
2026 0 775 20 122 254 1,171 701 581 342 56 158 1,838 -667 -4,859
2027 0 902 22 131 286 1,341 367 841 350 54 171 1,782 -441 -5,300
2028 0 1,044 23 139 322 1,528 410 891 353 52 185 1,890 -362 -5,662
2029 0 1,206 24 148 362 1,740 433 945 353 50 199 1,980 -239 -5,901
2030 0 1,390 26 158 406 1,981 1,123 1,000 353 48 214 2,738 -758 -6,659
Source : JICA Survey Team

4000
Cash Inflow
Cash Outflow
3000
Franchize Fee
Surplus
Accumulated Surplus
Million KSh

2000

1000

0
2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024 2025 2026 2027 2028 2029 2030

-1000

-2000

-3000

-4000

Figure 4.8.1 Projection of Cash Flow of CCN/SWMPC: Medium Scenario for Case-A (Case-A.2)

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8000
Cash Inflow
Cash Outflow
Franchize Fee
6000
Surplus
Accumulated Surplus
Million KSh

4000

2000

0
2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024 2025 2026 2027 2028 2029 2030

-2000

-4000

-6000

Figure 4.8.2 Projection of Cash Flow of CCN/SWMPC: Medium Scenario for Case-B (Case-B.2)

(ii) Private Company

The summary of the simulation for private companies is shown in Table 4.8.7. For private
companies, the projection of profit and loss shows that the net profit after depreciation for
all cases would be generated during the whole period from 2016 to 2030 and the
accumulated net profit after depreciation are generated as big amounts from around
KSh 7 billion to KSh 34 billion. All cases of Case-B have relatively higher accumulated
net profits after depreciation than all cases of Case-A. With regard to cash flow, the
amounts of cash shortages of Case-B are relatively less than those of Case-A. The
accumulated surplus of all cases of Case-B is also more than those of Case-A.
Regarding cross-subsidisation between income level for intrazone, Zones 1, 5, 7 and 9 of
Case-A.1, Case-A-2, Case-B.1 and Case-B.2 show many years for subsidisation,
especially, if Zones 1 and 9 will be integrated into the franchise system in the first year of
establishment of the SWMPC in 2016 and hence the collection rate of wastes will be
lower than the years after 2016. Therefore, the revenue from waste charges is not enough
to recover the O&M cost. However, as long as the collection rate of waste would increase,
cross-subsidisation is expected to be minimised. Case-A.3 shows that there is no need for
subsidisation, but Case-B.3 shows that cross-subsidisation is needed in 2017 for Zone 1.
From the comparison mentioned above, Case-B shows a relatively better financial
performance than Case-A both for profit and loss and cash flow. However, this difference
is neither significant nor decisive to select one of the two alternatives. The main reason of
the relatively better performance of Case-B could be the less O&M and investment costs
than in Case-A.
The results of projection of the profit and loss statement for Case-A.1~3 and Case-B.1~3
are shown in Table 1.1.4~1.1.6 and Table 1.2.4~1.2.6 and the cash flow for Case-A.1~3
and Case-B.1~3 are shown in Table 1.3.3~1.3.5, and Table 1.4.4~1.4.6. The results of
projection for the cross-subsidy intrazone are shown in Table 1.5.1~1.5.3 for Case-A.2

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and in Table 1.6.1~1.6.3 for Case-B.2 in Section H of Volume 4, Data Book,

respectively.

Table 4.8.7 Summary of Simulation for Private Companies (9 Zones)

(Unit: in Million KSh)
P&L (Profit & Loss) Cash Flow
Case Accumulated Net Years of
No. Net Profit after Accumulated Cross Subsidy
Profit after Surplus/Deficit
Depreciation Surplus
Depreciation
2016-2030: Net 2016-2030: 7,579 2015: -207 2030: 7,394 Zone 1: 2016-2017，
Profit 2020: -148 019-2023
A.1 2025: -234 Zone 5 : 2021-2022
Zone 7: 2021-2022
Zone 9: 2016-2022
2016-2030: Net 2016-2030: 20,750 2015: -207 2030: 16,436 Zone 1: 2016-2017
A.2 Profit Zone 5: 2021
Zone 7: 2021-2023
Zone 9: 2018-2019
A.3 2016-2030: Net 2016-2030: 33,566 2015: -207 2030: 20,565 No Need to Subsidies
Profit
2016-2030: Net 2016-2030: 8,497 2015: -187 2030: 8,188 Zone 1: 2016-2023
B.1 Profit 2020: -87 Zone 5: 2021-2022
2025: -115 Zone 7: 2021-2023
Zone 9: 2016-2023
B.2 2016-2030: Net 2016-2030: 21,668 2015: -187 2030: 21,398 Zone 1: 2016-2017
Profit Zone 9: 2018-2022
B.3 2016-2030: Net 2016-2030: 34,484 2015: -187 2030: 34,247 Zone 1: 2017
Profit
Source : JICA Survey Team

4.8.2 Value for Money (VfM) Analysis

(1) Basic Conditions

(a) Alternative Forms of SWM
The following three alternative forms of solid waste management have been studied based on
the Value for Money (VfM) method:
(i) Direct SWM by the CCN (the Public Sector Comparator: PSC)
(ii) Existing Solid Waste Management (Direct SWM by the CCN and Contractout)
(iii) Solid Waste Management Public Corporation (SWMPC)

(b) Unit Rate of O&M Cost

In this survey, the operation and maintenance (O&M) cost is compared among the three forms
of SWM as presented in Table 4.8.8. The unit cost of O&M is estimated at KSh 1,303 per ton
for contractout, KSh 1,384 for SWMPC and KSh 2,064 for CCN. The O&M unit cost for CCN
is about 1.6 times that of the contractout option.

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Table 4.8.8 Unit Cost of O&M by Form of SWM

(Unit: KSh)
CCN
Items Contract-out SWMPC
Direct
1) Direct Costs
Driver’s salary per day 1,300 1,000 1,100
Labourer’s salary per day 4
3,780 2,000 2,200
Labourer
Fuel per day 700 700 700
Average service & maintenance
1,000 1,000 1,000
costs (per day)
Insurance per day 100 100 100
Total direct costs 6,880 4,800 5,100
Average tonnage per trip 5 7 7
Average No. of trips per day 2 2 2
Average tonnage per day 10 14 14
Total direct costs per ton 688 343 364
2) Indirect Costs
Administrative costs: 20% of
1376 960 1020
direct costs
Total indirect costs per ton 2,064 1,303 1,384
Source: Solid Waste Management Section of Department of Environment and Private
Companies

(c) Waste Charge Level and Collection Rate of Waste Charge

The waste charge level is set by income level in the Medium Scenario for the new zones in the
franchise system in the simulation analysis for the CCN/SWMPC, as shown in Table 4.8.9.

Table 4.8.9 Waste Charge Level and Collection Rate of Waste Charge

Collection Rate of
Income Waste Charge
Waste Charge
Level (KSh/month/HH)
(%)

Low 100 30
Middle 300 40
High 500 50
Source : JICA Survey Team

(d) Tipping Fees

Tipping fees is assumed as KSh 35 per ton of carried waste in 2016 and KSh 164 per ton from
2017 to 2030, the same as in the simulation analysis for the CCN/SWMPC.

(2) Result of Analysis

(a) Comparison of Operating Ratio
The projections of cash flow of each alternative form are given in Tables 4.8.10, 4.8.11 and
4.8.12. The operating ratio (OR) indicates the O&M cost of KSh 100 to get revenue.

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Therefore, the lesser is the ratio, the lesser is the cost to get the revenue of KSh 100. In other
words, the less operating ratio is more profitable.
As for the OR of the CCN (Direct) as the public sector comparator, the OR would decrease
from 92 in 2016 to 43 in 2030, as shown in Table 4.8.10. On the other hand, as presented in
Table 4.8.11, the OR of the existing SWM would decrease from 57 in 2016 to 28 in 2030 and
then indicates the less O&M cost than that of the CCN (Direct) as the PSC.
However, the OR of SWMPC is more than the other two forms of SWM. One of the main
reasons is that the private companies would be integrated into new zones (three zones in 2016)
and into nine zones in 2030, and then the waste collection area of the CCN would be limited to
the CCN Zone which is mostly occupied by the low income area where revenue from waste is
relatively less.

(b) Comparison of O&M Cost

Table 4.8.13 shows the comparison of indices of O&M cost among the three forms of SWM to
set up the indices of the CCN (Direct) as 100.0 of PSC. Indices of the existing SWM would be
constant at 51.0 during the whole period because its collection area would not change and the
increase rate of waste would be the same. However, the indices of SWMPC would gradually
fall because the collection area would be limited to the CCN Zone, so that the O&M cost for
waste collection is projected to decrease.
It could be concluded that the cost efficiency of SWMPC is less than the other forms of SWM
but its O&M costs are less. Therefore, the form of public corporation would mitigate the
financial burden of SWMPC and the Central Government as the agency to subsidise the cash
shortage of SWMPC.

Table 4.8.10 Projection of Cash Flow of CCN (Direct) as PSC

(Unit: in Million KSh)
Revenue Operating
Waste Charges O&M Accumulated Ratio(%)
Year Surplus
Business Total Cost Surplus O&M
Household Cost/Revenue)
Establishment
2016 728.0 88.6 816.6 752.3 64.3 64.3 92
2017 844.6 95.3 939.9 820.4 119.6 183.9 87
2018 973.8 102.2 1,076.0 890.7 185.3 369.2 83
2019 1,121.6 109.6 1,231.2 965.4 265.8 635.0 78
2020 1,285.0 116.9 1,401.9 1,040.1 361.8 996.8 74
2021 1,487.8 126.1 1,613.8 1,135.5 478.3 1,475.1 70
2022 1,719.8 135.8 1,855.7 1,237.4 618.3 2,093.4 67
2023 1,977.1 145.7 2,122.8 1,340.5 782.3 2,875.7 63
2024 2,270.6 156.2 2,426.7 1,450.3 976.5 3,852.2 60
2025 2,599.9 167.0 2,766.9 1,564.0 1,202.9 5,055.1 57
2026 2,944.0 177.5 3,121.5 1,673.7 1,447.8 6,502.9 54
2027 3,333.4 188.6 3,522.0 1,790.3 1,731.7 8,234.6 51
2028 3,760.4 199.7 3,960.2 1,907.4 2,052.8 10,287.3 48
2029 4,242.4 211.6 4,454.0 2,031.8 2,422.2 12,709.6 46
2030 4,786.2 224.1 5,010.3 2,163.7 2,846.7 15,556.2 43
Source : JICA Survey Team

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Table 4.8.11 Projection of Cash Flow of Existing SWM: CCN (Direct & Contractout)
(Unit: in Million KSh)
Revenue Operating Ratio
Waste Charges O&M Accumulated (O&M
Year Tipping Surplus
Business Total Cost Surplus Cost/Revenue)
Household Fees
Establishment x 100
2016 570.0 88.6 11.9 670.5 385.4 285.1 285.1 57
2017 661.3 95.3 13.0 769.6 420.3 349.3 634.4 55
2018 762.4 102.2 14.1 878.8 456.3 422.4 1,056.9 52
2019 878.2 109.6 15.3 1,003.1 494.6 508.5 1,565.4 49
2020 1,006.2 116.9 16.4 1,139.5 532.9 606.7 2,172.0 47
2021 1,164.9 126.1 17.9 1,308.9 581.8 727.1 2,899.2 44
2022 1,346.6 135.8 19.6 1,502.0 633.9 868.1 3,767.2 42
2023 1,548.1 145.7 21.2 1,715.0 686.8 1,028.2 4,795.4 40
2024 1,777.9 156.2 22.9 1,956.9 743.0 1,213.9 6,009.4 38
2025 2,035.7 167.0 24.7 2,227.5 801.3 1,426.2 7,435.6 36
2026 2,305.1 177.5 26.5 2,509.1 857.5 1,651.6 9,087.2 34
2027 2,610.0 188.6 28.3 2,826.9 917.2 1,909.7 10,996.9 32
2028 2,944.4 199.7 30.1 3,174.3 977.2 2,197.1 13,194.0 31
2029 3,321.8 211.6 32.1 3,565.5 1,040.9 2,524.6 15,718.6 29
2030 3,747.6 224.1 34.2 4,005.9 1,108.5 2,897.4 18,616.0 28
Source : JICA Survey Team

Table 4.8.12 Projection of Cash Flow of SWMPC

(Unit: in Million KSh)
Revenue Operating Ratio
Waste Charges O&M Accumulated (O&M
Year Tipping Surplus
Business Total Cost Surplus Cost/Revenue)
Household Fees
Establishment x 100
2016 401.8 33.4 49.6 484.8 270.2 214.6 214.6 56
2017 469.1 35.9 54.1 559.1 296.9 262.2 476.8 53
2018 542.8 38.5 58.6 639.9 324.5 315.4 792.2 51
2019 627.3 41.3 63.5 732.0 353.9 378.1 1,170.3 48
2020 720.8 44.0 68.3 833.1 383.3 449.8 1,620.0 46
2021 445.9 47.5 79.4 572.7 291.5 281.3 1,901.3 51
2022 518.6 51.2 86.4 656.1 320.8 335.3 2,236.6 49
2023 599.4 54.9 93.5 747.8 350.7 397.1 2,633.7 47
2024 691.8 58.8 101.0 851.6 382.5 469.1 3,102.8 45
2025 795.7 62.9 108.8 967.4 415.5 551.9 3,654.7 43
2026 143.8 66.8 122.0 332.6 299.4 33.2 3,687.9 90
2027 167.5 71.0 131.0 369.6 324.8 44.7 3,732.6 88
2028 193.8 75.2 139.5 408.5 350.6 58.0 3,790.6 86
2029 223.9 79.7 148.5 452.0 377.9 74.1 3,864.7 84
2030 258.1 84.4 158.0 500.4 406.8 93.6 3,958.3 81
Source : JICA Survey Team

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Table 4.8.13 Comparison of O&M Cost by Form of SWM

Year PSC (CCN: Direct) Existing SWM SWMPC
2016 100.0 51.2 35.9
2017 100.0 51.2 36.2
2018 100.0 51.2 36.4
2019 100.0 51.2 36.7
2020 100.0 51.2 36.9
2021 100.0 51.2 25.7
2022 100.0 51.2 25.9
2023 100.0 51.2 26.2
2024 100.0 51.2 26.4
2025 100.0 51.2 26.6
2026 100.0 51.2 17.9
2027 100.0 51.2 18.1
2028 100.0 51.2 18.4
2029 100.0 51.2 18.6
2030 100.0 51.2 18.8
Source : JICA Survey Team

4.8.3 Improvement of Waste Charge System

(1) Alternatives of Waste Charge System

The waste charge level is closely related to the waste charge system. The representative alternatives
of waste charging system are as described below.
(a) Fixed Pricing
Fixed pricing system is simple and easy for the collection of waste charges. It is also better for
the slum and low income areas in order to eradicate illegal dumping as long as the charge level
is appropriate by taking higher priority on the willingness to pay and the affordability to pay.

(b) Unit Pricing

Unit pricing is called the marginal pricing or variable-rate pricing and is applied by many
countries including Japan and the USA. According to the survey in the year 2009, 384 out of
the 418 cities of Japan (91.8%) are adopting the unit pricing system. In the USA, many cities
have been adopting this system. This system is well known as “Pay-As-You-Throw” (PAYT).

(c) Fixed and Unit Pricing

This system has both the characteristics of fixed pricing and unit pricing. It has both the merits
of stability of revenue by the fixed system and of the increase of revenue by the variable rate
system.

(d) Free and Unit Pricing

This system also has both characteristics of the fixed pricing and the unit pricing, but this
system has an advantage in that the charge is free for some amounts of waste. This system is
effective for the lower income inhabitants including the slum inhabitants.

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(e) Two-Step Unit Pricing

This system is the advanced system of unit pricing because the unit rate is set higher for some
amounts of waste. As long as the waste will increase by approximately proportional to the
income level, the low income inhabitants will pay the lower unit rate of waste charge and the
fairness of charge by income level is likewise secured.

(2) Waste Charge Level

(a) Household
(i) Slum Area
The level of waste charge in the slum area would be set up basically on the basis of the
fixed pricing system which is referred to the willingness to pay because the affordability
to pay is very low and it is possible to stop illegal dumping by setting the waste charge
based on the willingness to pay (WTP). According to the public awareness survey
conducted by the JICA Survey Team, the average WTP of slum areas is KSh 8 per month
and the average affordability to pay (ATP) is KSh 90 per month, i.e., the ATP is much
higher than the WTP. The actual waste charge should be based on the results of a detailed
survey for each zone. The shortage of revenue for the O&M cost would be subsidised by
revenue from the higher income area.

(ii) Low Income Area

The level of waste charge in the low income area would be set up on the basis the fixed
pricing system which is referred to the WTP and the ATP. According to the public
awareness survey, the average WTP and the average ATP of the low income area are
KSh 32 per month and KSh 153 per month respectively. The actual waste charge would
be set up between the WTP and the ATP based on the detailed survey for each zone. The
shortage of revenue for the O&M cost would be subsidised by the revenue from the higher
income area.

(iii) Middle Income Area

The level of waste charge in the middle income area would be set up basically on the basis
of the unit pricing system which is referred to the O&M cost but is necessary to compare
or refer to the WTP and the ATP. The public awareness survey shows the average WTP is
KSh 96 per month and KSh 769 per month respectively. If the WTP or the ATP is higher
than the O&M cost, the waste charge should be set up on the basis of the WTP or the ATP.
The actual waste charge would be set up on the basis of the detailed survey for each zone.
The surplus of revenue to the O&M cost would be subsidised to the lower income area in
each zone.

(iv) High Income Area

The level of waste charge in the high income area would be set up on the basis of the unit
pricing system which is referred to the O&M cost and if the WTP or the ATP is higher
than the O&M cost, the WTP or the ATP must be set up as the waste charge. The result of
the public awareness survey shows that the average WTP and the average ATP are
KSh 193 per month and KSh 1,017 per month respectively. The surplus of revenue to the
O&M cost would be subsidised to the lower income area in each zone.
It may be possible to identify the income level of an area by referring to the survey result
of the World Bank and the opinions of staffs of CCN. The appropriate charging system

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would then be selected on the basis of observation of the actual condition of residential
areas to be charged.

(b) Business Establishment

The waste charge for establishments including markets and institutions would be set up on the
basis of the O&M cost. The willingness to pay (WTP) is unusual for the waste charge because
the WTP is estimated on the basis of the individual will and it is also difficult to estimate the
establishments’ willingness to pay of because a business entity is composed of a group of
workers. On the other hand, their ATP is tangible by the estimate of their disposable income.
Therefore, the ATP would be estimated on the basis of survey on the structure of monthly
expenditure by main item including obligatory expenditures such as tax, social insurance and
so on. ATP would be estimated by comparison with other public charges for water, sewerage,
gas and electricity. It is assumed that business establishments might have the ATP to cover the
O&M cost. The surplus of revenue to the O&M cost would be subsidised to the lower income
area in each zone.

(3) Collection Method of Waste Charge

(a) Alternatives of Collection Method of Waste Charge
(i) Slum and Low Income Areas
The collection method of waste is closely related to the waste charging system. The
collection method of waste charge for households varies with the income level. The
detailed comparison of each collection method alternative is described in Section E of
Volume 3, Supporting Report. For the slum areas, especially, the collection method
must be established carefully because the population and households are mostly
concentrated in the slum areas and they have a lower level of willingness to pay and
affordability to pay. Therefore, to maximise revenue and to set the waste charge that
would stop illegal dumping, the most effective collection method should be selected by
setting a fixed and lower level of waste charge in order to collect from more inhabitants in
the slum areas. In this context, the collection method is mostly oriented towards the fixed
pricing system and the more adoptable method might be the fixed and unit pricing
method. The collection method for low income areas is mostly the same as of that of the
slum areas.

(ii) Middle and High Income Areas

It would be better to adopt mostly the unit pricing system for the collection method in
middle and high income areas because these areas have a higher WTP and ATP than the
slum and low income areas. Generally, the amounts of waste generated are proportional to
the income level and the waste charge might increase proportionately to the amounts of
waste discharged under the unit pricing system.
The three methods of collecting waste charges are compared as follows:
Tagging System
Tags containing the unit price are set for each kind of waste collection device (bags, cans,
bins, etc.) and per category of waste, if possible. The waste charge is collected based on
the issued and distributed tag containing the unit price and only wastes placed in
collection devices with tags will be collected. Therefore, packed or non-packed wastes
without tags will not be collected, in principle. This system has the following advantages:
(i) there is no need to contract with households in advance to collect wastes and charges;
(ii) there is no need to estimate the amount of waste to be collected for the next month as

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the basis of the contract; and (iii) there is no need for persons to visit households and to
collect charges thereby saving personnel and transportation expenses for these works. Its
disadvantages are: (i) there is a need to spend for the material of tags such as paper or
plastics, and for printing the price on each tag; (ii) there is a need to establish the
distribution system of tags to the households; (iii) there is a need to spend for personnel
and transportation expenses or for the distribution of tags to households; (iv) the material
of packaging bag is not designated, so that it is impossible to identify the contents of the
wastes in a bag such as toxic or flammable ones from the outside if the bag is made of
non-transparent material and it is also more expensive to treat such harmful and
dangerous wastes; (v) it is more expensive than the designated plastic bag system if the
cost of bag is added to the cost of the tag; and (vi) there is a need for careful treatment of
plastic bags if the plastic bags are not biodegradable such as polyethylene. For wrapping
wastes, it is better to use materials such as paper bags or boxes, banana leaves, hemp
sacks, etc., which are considered to be environmentally friendly.

Designated Plastic Bag System

The waste charge is collected based on the unit price indicated according to the capacity
of the plastic bag and only the wastes packed in such plastic bags will be collected. This
system has almost the same advantages as those of the tagging system. The difference is
the packaging material which is limited to plastic bags in the designated plastic bag
system while the material is not limited to plastic bags in the tagging system. Its
disadvantages are also mostly the same as those of the tagging system except the
packaging material. However, the designated plastic bag system has more advantages
than the tagging system as long as the plastic material is polyethylene. The main
characteristics of polyethylene are: (i) lighter than water (its specific gravity is less than
0.94); (ii) excellent electrical insulation and water and chemical repellence;
(ii) especially, low density polyethylene is biodegradable and there is no serious impact
on the environment even if it is not incinerated; (iii) the weight is one-fourth of that of
paper bags and cost for waste collection and transportation could be saved when treated as
waste; (iv) not bulky like bottles or cans when buried on the ground; (v) no generation of
ash which is troublesome for land-filling; (vi) no generation of fluorocarbon as the cause
of destruction of the ozone layer; and (vii) no generation of dioxin and environmental
hormone (official definition: Endocrine Disrupting Chemicals, or Endocrine Disruptors).

Periodical Payment System by Setting the Unit Price per Kilogramme

This system is already being executed by the private companies based on their contract
with the households. The specified data or period is essential to the collection of waste
charge for setting the unit price per kilogramme of disposed wastes by estimating the
weight of wastes as accurately as possible based on past experiences. This system has the
following advantages: (i) secured collection of wastes and charges; (ii) no need to issue
and distribute tags and no need to designate the plastic bags; and (iii) no need to spend for
materials of tags/plastic bags and for printing the price on tags. It has the following
disadvantages: (i) need personnel and transportation costs to visit and execute contracts
with households; (ii) need personnel and transportation costs to visit the households to
collect the waste charges; and (iii) need to specify the bank account of the households and
the private companies for paying the charges.
The free and unit pricing system and the two-step unit pricing system are more
sophisticated than the single unit pricing system. These two systems are also adoptable
but the unit rate or price and the amounts of waste for some amounts of waste must be set
suitably by taking high priority on the O&M cost and the ATP because the level of unit
rate or price would change for some amounts of waste.

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(iii) Business Establishment

The CCN had introduced a new waste charging system since 2008. This system is based
on the unit pricing per ton by category of business establishment and by the
characteristics of waste. This method is basically suitable because the amount of waste
charge might increase proportionately to the amount of waste and can generate stable
revenue for the CCN. However, the problem is that the accuracy of weight of the collected
waste is not always assured because the weight is approximated by the driver through
visual observation of the waste loaded on his truck. The charge is mostly collected
monthly by issuing an invoice stating the amount of charges and is paid in cash to the
CCN.
The other collection method recommended for business establishments is to utilise
effectively the conventional payment system of the CCN. Especially, the business permit
fee system may be used to collect waste charges by the fixed pricing system. The problem
is the date of collection and the amount of charge. The business permit fees are paid
annually and the amount of waste charges for the whole year would be a large amount
which is assumed to be a big financial burden to small-sized establishments. Therefore,
the payment is necessary to be divided into two times a year or quarterly or monthly and
may be conducted by depositing it to the bank account of the CCN.

(4) Recommendations
(a) Slum and Low Income Areas
The level of charge should be based on the fixed pricing system based on the willingness to
pay (WTP), because the affordability to pay (ATP) is extremely lower than in the other
income levels. However, the tagging system is considered to be difficult to implement in these
areas judging from the discussions within the JICA Survey Team and the opinions of the
attendees at the workshop.
Therefore, the JICA Survey Team proposes that the most appropriate system of waste charge
collection should be carried out in a pilot project on the precondition that the collection will be
carried out by the CBOs. In this connection, the JICA Survey Team proposes the necessity of
taking into consideration the policy that a certain amount from the revenue on waste charges
shall be distributed to the CBOs to give them some incentive to improve the collection of waste
charges.

(b) Middle and High Income Areas

The level of charges and the method of charge collection should be based on the unit pricing
system. The more practical and realisable collection system must be selected from among the
three alternatives mentioned above which have their own advantages and disadvantages. The
former two systems are more suitable for the SWMPC than the periodical payment system
because of: (i) the process or procedure for collecting charges in the two systems is more
effective and cost-saving because there is no need to visit the households to execute a contract
and collect charges considering that the SWMPC does not have enough personnel for these
works; (ii) the SWMPC might only collect the tagged waste bags or designated plastic bags;
and (iii) there will be no need to determine the amounts of wastes in advance of the collection
of wastes for the executing a contract.
However, from the viewpoint of environment impact, it is obvious that the designated plastic
bag system is more advantageous than the tagging system. Therefore, the designated plastic
bag system is recommended to be more suitable than the tagging system for the collection of
waste charge from the CCN/SWMPC Zone. Besides, the environmental considerations must

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have a higher priority than the expenditure for personnel and transportation costs to the issue
tags and to distribute tags or the designated plastic bags.
The practical level of waste charge for households could be set based on the WTP, the ATP by
another public awareness survey, and the O&M cost, including the administration cost for the
SWM service by the newly established cost accounting system during the Short-Term
Operation Program. Therefore, in this survey, the range of waste charge level by the income
level is recommended, taking into account the results of the simulation for the CCN/SWMPC
in Subsection 4.8.1, the WTP, ATP, O&M and total cost of the Master Plan in this survey,
and the existing charge level of private companies, as follows:
• Slum Area: 80 to 100 KSh/month/HH
• Low Income Area: 100 to 170 KSh/month/HH
• Middle Income Area: 170 to 300 KSh/month/HH
• High Income Area: 300 to 650 KSh/month/HH

(c) Business Establishments

As mentioned before, the existing waste charging system for businees establishments is based
on the unit pricing system. There are some problems in the current system, but if it is
improved, there is no need to change to the tagging system. However, the existing system must
be checked on whether or not the O&M cost is recovered by the rate of charge per ton per
category of business establishment.

(d) Incentives for Payment

The CCN has been collecting wastes from the low income and slum areas but it has not
collected waste charges because it is very difficult to collect charges from these areas. The
incentives for these areas to pay the charges may be as follows:
• Strengthening of public awareness on the negative impact of waste to their daily
environment;
• Award to habitants who positively cooperate in paying the charges; and
• Strengthening of the understanding that the CCN has expended much amounts for the low
income and slum areas from the budget for SWM which come from the taxes paid by the
residents who have not directly benefitted from the SWM service.

4.8.4 Short-Term Action Plan

(1) Establishment of SWM Cost Accounting System

A cost accounting system has yet to be established. Therefore, a task force for its establishment in
the SWM is indispensable and an urgent matter for the Accounting Office of DoE. The members of
the Task Force shall be composed of the Director of DoE, the Chief of the Department of
Treasurers (DoT), the Chief of the Accounting Office of DoE, other related staffs of DoE, and some
experts on cost accounting from outside of the CCN.
A review on the existing cost structure of SWM should be conducted through the initiative of the
Task Force. The cost structure must be reviewed in relation to the procedures of waste treatment
such as collection, transportation, intermediate treatment, and treatment at final disposal in the final
landfill site where the trucks loaded with collected wastes are weighed at the entrance and pay the
tipping fees except the trucks to be directly operated by CCN. Since a common cost or the

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administrative cost must be allocated to each component of waste treatment, the cost accounting
system should be established and should actually function for the SWM.

(2) Establishment of Waste Charging System for Households

The waste charging system for households should be established and the waste charge should be
collected. The level of waste charge is most closely related to the financial improvement of DoE.

There are many considerations for setting the level of charge such as the ATP, the WTP, the waste
treatment cost and the O&M cost. Therefore, a more detailed study on the relationship of these
considerations with the level of waste charge is indispensable. Since the CCN has not collected any
waste charge from households after 2002 when the water supply and sewerage services were
privatised, it is urgent to study a more suitable and fair waste charging system for households.

(3) Revision of Waste Charging System for Business Establishments

The CCN has been collecting waste charges from the business establishments. However, the level
of charge is not related to the cost of waste treatment. Therefore, a detailed analysis of the
relationship between the waste level and the waste treatment cost is indispensable in order to revise
the existing waste charging system for business establishments.

4.8.5 Mid-Term Action Plan

(1) Financial Review of Revolving Funds (Phase I)

The franchise system would start from 2016 and then the SWM Capital Revolving
Fund (SWMCRF) and the SWM Operating Fund (SWMORF) would be established. The source of
funds for the SWMCRF would be the franchise fees that have to be paid by the private companies
as the franchisees. Fifty percent (50%) of the franchise fees (7.5% of 15%) would be financed to the
private companies and another 50% would be financed to the SWMPC. The source of the
SWMORF is the tipping fee to be paid by the waste collectors in order to dispose waste to the
Ruai.sanitary landfill site. The first three private companies would be the franchisees in Zone
Nos. 1, 8 and 9. The investment and replacement costs for trucks by these companies would be
financed from their own reserved funds which are considered to be accumulated revenue from the
waste charges. It is therefore necessary for SWMPC to review the amounts of these revolving funds
and supervise the financially appropriate management through the auditing report of the Kenyan
National Audit Office (KENAO) on the companies’ financial statements.

(2) Financial Review on Level of Franchise Fees (Phase I)

The financial situation in the profit and loss statement and cash flow of the private companies as the
franchisees and of the SWMPC would change year by year resulting in a shorter cash flow in some
years because of business fluctuation or the necessity of procurement of new trucks to meet the
increased waste amount to be collected. In such a situation, when they need funds from the
SWMCRF but the amount is not sufficient, they give up on procuring new trucks. To avoid this
situation, the level of franchise fee must be increased from 15% to 20% or 25% of the revenue from
the private companies.

(3) Execution of New Waste Charging System (SWMPC)

Through the initiative of the Task Force, a detailed analysis should be conducted on the relationship
among the cost of SWM and the WTP and ATP for the new household waste charging system and
on the relationship between the waste charge level and the cost for business establishments, in order

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to establish a new waste charging system and to revise the existing waste charging system for
business establishments in the Short-Term Action Plan. Then the new waste charging system and
the revised charge system should be implemented in the Mid-Term Action Plan.

(4) Review of the SWMPC Cost Accounting System (Phase I)

The cost for SWM may change due to technical advancement. The inflation of materials,
characteristics of wastes, and change of waste collection area of the existing CCN and the private
companies may also change so that the relationship between the cost for SWM and the amounts of
waste would also change. Therefore, a review on the cost accounting system of the SWMPC would
be indispensable for the review on the waste charging system. The review should be conducted on
the composite costs of SWM such as costs for collection & transportation, 3R and Intermediate
treatment, and the final disposal waste treatment.

(5) Review of the SWMPC Waste Charging System (Phase I)

The review of the cost accounting system of SWMPC is closely related to that of the waste charging
system. Therefore, the review on waste charging system should be conducted for households and
business establishments. The relationship among the waste charge level, ATP, WTP and the cost
for SWM by income level of households, as well as the relationship between the waste charging
system and cost for SWM by business category should be also reviewed.

(6) Revision of the SWMPC Waste Charging System (Phase I)

Based of the results of the review on waste charging system for households and business
establishments, the waste charging system should be revised to form a more suitable system.
(7) Monitoring and Supervision of the SWMPC Waste Charging System for All
SWM Service Providers (Phase I)
For the provision of more effective and harmonious SWM services and for fair competition among
the SWM service providers, monitoring and supervision of the level and collection method of waste
charge by all SWM service providers are indispensable. Monitoring and supervision should be
conducted on the relationship among the waste charge level and the collection method, ATP, WTP
and the cost for SWM by household income level, as well as the relationship between the waste
charge level and collection method by business category respectively.

4.8.6 Long-Term Action Plan

(1) Financial Review of Revolving Funds (Phase II)

In the year 2021, three other private companies will be the franchisees in Zone Nos. 4, 5 and 7, and
in the year 2026, three other private companies will be the franchisees in Zone Nos. 2, 3 and 6.
From the year 2021, the SWM in all the 9 zones will be executed by the private companies and the
SWMPC will provide SWM services for only the CCN/SWMPC zone.
More funds for investment and replacement of trucks (SWMCRF) and for the operation and
maintenance fund (SWMORF) will be required by the private companies. To secure a sustainable
and stable subsidy for the investment on new trucks or the replacement of trucks, and for the O&M
cost of private companies and the SWMPC for these two years, the SWMPC must continuously
review the amounts of these funds and supervise the appropriate financial management of these
funds based on the auditing report on the financial statements to be prepared by the Kenyan
National Audit Office (KENAO).

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(2) Financial Review of Level of Franchise Fees (Phase II)

During the ten years from 2021 to 2030, the financial situations, especially under the profit and loss
and cash flow, are projected to change more than those of the five years of the mid-term and
because of business fluctuation or the necessity of procurement of new trucks to meet the increased
waste amounts to be collected. In such a situation, when there is a need for funds from the
SWMCRF but the amount is insufficient, the procurement of new trucks is cancelled. To avoid
these situations, the level of franchise fee may be increased from the level of the mid-term period.

(3) Execution of Revised SWMPC Waste Charging System

Through the initiative of the Task Force, a detailed analysis on the relationship among the cost for
SWM and the WTP and ATP for the revised household waste charging system and on the
relationship between the waste charge level and the cost for business establishments should be
continuously executed, and then the revised waste charge system for both households and business
establishments are to be revised again in the Mid-Term Action Plan. Then the revised waste
charging system will be executed in the Long-Term Action Plan.

(4) Review of the SWMPC Cost Accounting System (Phase II)

For the same reason as the Review of Cost Accounting System of SWMPC (I) for the Mid-Term
Plan, a continuous review of the cost accounting system of SWMPC is indispensable for the review
on the waste charging system. A continuous review should be conducted for the composite costs of
SWM such as the costs for collection and transportation, 3R and Intermediate treatment and final
disposal waste treatment.

(5) Review of the SWMPC Waste Charging System (Phase II)

The review of the cost accounting system of SWMPC is closely related to the waste charging
system. Therefore, a continuous review of the waste charging system should be conducted for
households and business establishments. The relationship among the waste charge level, ATP,
WTP and the cost of SWM by income level for households should be reviewed. The relationship
between the waste charging system and the cost of SWM by business category should be also
reviewed.

(6) Revision of the SWMPC Waste Charging System (Phase II)

Based on the results of the review on waste charging system for households and business
establishments, the waste charging system should be revised to form a more suitable system.

(7) Monitoring and Supervision of the SWMPC Waste Charging System for All
SWM Service Providers (Phase II)
For the provision of more effective and harmonious SWM services and for fair competition among
the SWM service providers, continuous monitoring and supervision of the level and the collection
method of waste charge for all SWM service providers are indispensable. Then continuous
monitoring and supervision should be conducted on the relationship among the waste charge level
and collection method, ATP, WTP and the cost of SWM by income level for households and on the
relationship between the waste charge level and collection method by business category
respectively.

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(8) Application of the SWMPC Waste Charging System to All SWM Service
Providers
The waste charging system in the Action Plan is basically applied to the SWMPC. The waste
charging system for private companies as the franchisees is based on the contracts between the
private companies and the households/business establishments. However, in the long term, the
waste charging systems of the SWMPC and the private companies should be based on the same
concept, in principle, for more fair competition and the provision of harmonious and sustainable
SWM services through stable financial condition in view of the suitable waste charging system. In
this context, the basic concept of the waste charging system of the SWMPC is better to be applied to
the private companies because the waste charging system including the level and collection method
of the SWMPC would have been continuously reviewed and revised by careful and detailed study
through the initiative of the Task Force in this action plan. However, the fairness and suitability of
the waste charging system including the level and collection method of the private companies is not
always assured because their waste charging systems are based on their contracts and not on the
detailed reviews and revision.

4.9 Private Sector Involvement Promotion Plan

4.9.1 Short-Term Action Plan

(1) Establishment of Optimum PPP Scheme

(a) Possible PPP Options
There is a wide variety of Public-Private-Partnership (PPP) option which can be implemented
to make maximum use of the private sector involvement scheme. Out of the following various
options, the optimum private sector involvement plan shall be selected.

Licensing (Private Subscription): Licensing or private subscription allows qualified private

service providers licensed by an authority to compete for the delivery of solid waste
management collection services in a specific zone. Under this arrangement, waste generators
make contracts with individual private service providers. The authority licenses private firms
to compete with each other in providing solid waste collection services. No firm has the
monopoly in a specific zone, and each firm collects service charges from its customers or
subscribers. CCN currently adopts this system in the entire city. The license is utilised to
guarantee that a licensed service provider operates in accordance with the operational
standards, and might be withdrawn if the service provider’s performance is poor.
Service Contract: Service contract is also a finite-term contract for a private firm to provide
solid waste services, and an authority pays the firm for charges in response to the services to be
delivered. Part of solid waste management services such as collection and transportation of
wastes and management of a sanitary landfill site can be contracted out to a private operator for
a certain period. In case of a service contract, collection vehicles are basically owned by an
outsourced private firm, and a guaranteed payment from the authority to the service provider is
clearly defined in the contract document. While the authority is responsible for charge
collections, the service provider has to bear the operational risks.
Franchise: Franchise is a contract through competition in a finite-term to grant a private firm
an exclusive monopoly to deliver a specific type of solid waste services within a specific zone.
The awarded private franchisee directly collects its own revenue from waste generators within
the designated zone. The franchisee pays a franchise fee to cover the authorities' costs of
managing and monitoring the performance of the solid waste management services.

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Management Contract: Management contract is a contract entrusting a specific solid waste

management service under private management for a certain period of time, for which a
management fee is paid to the management contractor. The management fee could be paid in
accordance with the performance of the management contractor. Although a management
contract could be an attractive first step to the full-scale private sector involvement, it does not
directly lead to the investment on the improvement of solid waste management services due to
the relatively shorter contract term. A management contractor is required to mainly focus on
improving its services to existing customers rather than on enlarging the service coverage such
as delivering the services to the lower-income area.
Lease Contract: Lease contract grants a private operator full control over delivering specific
solid waste management services in exchange for use of the fixed assets whose ownership and
responsibilities belong to the authority. Under an enhanced lease, while partial improvements
of the leased facilities are the responsibility of the private operator, major investments remain
the responsibility of the authority.
Concession: Concession is a long-term contractual arrangement in which a private operator is
awarded an official license to provide specific solid waste management services over a longer
period of time in exchange for a negotiated fee. A concession agreement stipulates the rights
and obligations of the awarded concessionaire who retains ownership of the principal assets.
Normally, during an average period of 25 years, the concession contract transfers all
responsibilities for capital investment and operation and maintenance to a private
concessionaire. While the fixed assets legally remain the property of the authority, the
concessionaire might pay a fee to use them.
In the case of solid waste management services, concession contracts typically involve
constructions of large-scale facilities such as a sanitary landfill site and intermediate treatment
facilities. The authority may pay a tipping fee or service charge to use those facilities. The
concession for a sanitary landfill site is subject to be operated on a “take or pay” basis, where
tipping fees are paid even if the guaranteed minimum daily amount of wastes to be dumped of
waste is not provided.
Build-Operate-Transfer (BOT) Contract and Its Variations: Build-Operate-Transfer
(BOT) contract and its variations are options which are similar to concession and are primarily
suitable for large-scale investments on facilities such as sanitary landfill sites. During a
relatively longer period of up to 30 years, depending upon the size of the investment which has
to be amortised, a BOT operator provides a wide range of solid waste management services in
exchange for guaranteed service fees in the contract, although the operator accepts the risk to
design, build and operate the facilities at the agreed standards of services in exchange for a
guaranteed cash flow.
Full Privatisation: Full privatisation is the most radical form of private sector involvement in
which existing operations and assets for the solid waste management services are sold to the
private sector, in some cases, with a limited term license.

Table 4.9.1 shows varieties of possible PPP options with the comparison of asset ownership,
operations and maintenance, capital investment, commercial risks and duration of contract.

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Table 4.9.1 Comparison of Possible PPP Options

Asset Operations and Capital Commercial Duration of
Option
Ownership Maintenance Investment Risks Contract
Public and
Service Contract Public Public Public 1-2 years
Private
Public and
Franchise Public Public Public 1-5 years
Private
Management
Public Private Public Public 3-5 years
Contract
Public and
Lease Contract Public Private Public 8-15 years
Private
Concession Public Private Private Private 25-30 years
BOT and Its Public and
Private Private Private 20-30 years
Variations Private
Private or
Full Privatisation Private and Private Private Private Indefinite
Public
Source: Ministry of Finance, Singapore: Public-Private Partnership Handbook, 2004

(b) Criteria for Selecting Optimum PPP Scheme

The following criteria are employed in an attempt to select the best and optimum option of
private sector involvement scheme in providing the solid waste management services.
However, when applying these criteria, the current site-specific conditions of Nairobi City
should be carefully taken into account. Choosing the optimum private sector involvement
option is one of the most crucial decisions before formulating the organisational and legal
contents of the Master Plan as it indicatively defines the major conditions between the public
sector and private sector. However, as the decision-making process depends on various
factors, no almighty solution can be applied. A broad range of past experiences indicate that a
mere copying of approaches that have been successful in other countries will tend to fail when
they are not properly adapted to the local and site-specific situation.

Effectiveness: Effectiveness is the quantitative degree of increasing the service coverage and
qualitative significance of improving the quality of services through involving the private
sector.
Competition and Efficiency: Compared with an inefficient public waste management
services, the private sector involvement through a competitive bidding can improve the
efficiency of solid waste management services. By using the private sector’s cost-saving
expertise, the private sector involvement will significantly reduce the financial burden on the
authority. The efficiency will be normally measured by the value for money analysis. If the
efficiency of the solid waste management services through competition is significantly
improved, the tariff level will eventually be reduced due to the further rationalised private
sector, thereby benefitting the whole society.
Accessibility to Capital Investment: The involvement of the private sector can enlarge the
access to capital or financial resources for procurement of collection vehicles as well as the
access to human capital for expertise and skills. The degree of the accessibility to those
financial and human capitals by the public sector is one of the important motivations for the
private sector involvement.
Accountability and Transparency: Accountability and transparency under the private sector
involvement depends on the degree to which the procurement process is open to competitive
market forces and the extent to which corruption distorts the process. On the other hand,
accountability and transparency in the implementation phase depends on the performance
monitoring.

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Risks and Sustainability: The risks in the private sector involvement are important factors for
sustainably providing the solid waste management services. By sharing the risk factors
between the public sector and the private sector, the regulatory framework which removes the
risk factors will protect the private sector, thereby making the private sector involvement for
the solid waste management services functions sustainable.
Equity: The private sector involvement will not necessarily benefit the whole population. The
level of equity in universally providing fair solid waste management services to all
beneficiaries under the private sector involvement is also one of the important evaluation
criteria.

(c) International Experiences

While there have been a number of successful experiences on private sector involvement in the
major cities of developed countries, there have been also a considerable number of failure
cases especially in terms of long-term sustainability. The private sector participation in the
field of solid waste management services has been involving a broad spectrum of options.
“Private Sector Participation in Municipal Solid Waste Management, Part I: Executive
Overview” by the World Bank listed a variety of major international experiences on private
sector participation as below. However, it is not advisable to directly apply these international
experiences to other countries, and country-specific or site-specific conditions should be
carefully taken into account.
• Provision of vehicles or heavy equipment: by lease or rental agreement with
equipment owners
• Pre-collection of residential solid waste: by private subscription
• Pre-collection of residential solid waste: by franchise
• Pre-collection of residential solid waste: by service contract
• Collection of construction and demolition debris: by private subscription
• Collection of industrial wastes from large factories: by private subscription
• Collection of commercial wastes from hotels, offices, markets or stores: by private
subscription
• Collection and final disposal of infectious healthcare wastes from hospitals and clinics:
by private subscription
• Collection of general municipal wastes from entire neighborhoods: by service contract
or franchise, or by management contract
• Sweeping or cleaning of streets and open areas: by service contract
• Repair of municipal solid waste equipment: by service contract on an as-needed basis
• Repair of municipal solid waste equipment: by service contract on a long-term basis
• Conversion of waste to compost: by service contract or concession
• Operation of a transfer station and long distance hauling system: by service contract or
concession
• Operation of a disposal site: by service contract or concession
• Collection of user charges or waste taxes: by franchise with bill collection agents,
water authority, or electricity utility

(d) Factors to Consider for Designing Optimum PPP Scheme

The following factors should be carefully taken into account in case of designing a full-scale
private sector involvement plan.

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Duration of Contract: The duration of a contract is a cardinal issue to be taken into account
for the access to capital investment by the private sector. If the duration of a contract is
relatively short, a private service provider would not have sufficient time to repay a loan for
the procured collection vehicles as well as the acquisition and construction of facilities. As a
result, the private service provider will not be able to properly replace its collection vehicle
fleets and equipment. On the other hand, it is widely recognised that the economic life of a
typical collection vehicle is approximately 5 to 10 years. Therefore, the minimum contractual
interval for the solid waste collection services which require the purchase of the vehicle fleet
should be at least 5 years to allow the service provider to repay the loan for those vehicles. In
other words, the contract period should be in such a term which allows the depreciation of
vehicles and equipment used to achieve the service level in the contract. A limited contract
period would be a disincentive for the service provider to make investment on new and
replaced vehicles as it feels the risk of termination of the contract before depreciating vehicles
and repayment of its loans.
Mitigation of Long-Term Risk: Although the duration of a contract should be reasonably
long, another risk on the contract term to be considered would be the long-term contract risk. If
a private service provider is awarded a long-term contract, it might put the private company
into a monopoly position so that there will be no alternative service providers where it is rather
difficult for the authority to keep the service level satisfactory.
Step-wise Approach: It is not advisable to entrust the entire service area to the private sector
from the initial phase of private sector involvement. In other words, it is better to start the
private sector involvement with a step-wise approach, and expand the degree of the
involvement of private companies in a gradual manner, so that the financial and
service-quality risks by the private sector involvement can be minimised and subsequent
contractual arrangements can be modified to improve the performance of the private operator.
More specifically, in case the of waste collection services, it may be possible to start with a
small number of service zones and to extend service zones city-wide based on the experiences.
In such a situation, a step-wise involvement of the private sector can significantly mitigate the
risks of the private sector involvement. On the other hand, in thcase of e operation services for
a sanitary landfill site and intermediate treatment facilities, a step-wise approach can be also
applied and it may still be possible to start with the construction of the downsized scale of
facilities rather than the large-sized facilities.
Continuous Competition: Competition is widely regarded as a key to successful private
sector involvement. Continuous competition in the tendering process ensures
competitively-priced services by the private service provider. It is beneficial to divide a
large-scale city-wide service into several zone-based contracts so that there will be
competition among the private service providers. If private service providers compete with
each other in different zones, the performance and level of services can be compared, and if
one service provider fails, others can take over the service.
Size of Zone: It is also important to take into account the size of the service zone to be
outsourced to a private service operator.

(2) Selection of General Framework of PPP

(a) Franchise System for Collection and Transport
The continuation of private subscription which is currently adopted in Nairobi City is not
recommended for the waste collection services, because it does not utilise the economies of
contiguity. The efficiency can be achieved only when one collection vehicle delivers
collection services through a continuous collection route. Furthermore, since private
subscription is the most common method of collecting wastes from large generators such as

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large hotels, restaurants, large apartments and commercial complexes, it could not be a
solution for increasing the service coverage by extending the services in low-income areas.
On the other hand, the franchise system is one of the preferred methods to privatise solid waste
collection services in lower-income cities with limited financial sources. In such low-income
cities, beneficiaries may prefer the franchise method for solid waste collection services, since
the beneficiaries expect that the private franchisees will be motivated to deliver the services in
return for fees.
Table 4.9.2 shows the three-grade evaluation results of PPP options for collection and
transport services, taking into account the special conditions in Kenya in which there is no
clear-cut regulatory framework for the long-term PPP schemes.

Table 4.9.2 Comparison of Three-grade Evaluation of PPP Option (Collection and Transport)
PPP Option
Evaluation
Criteria Service Management BOT and Full
Licensing Franchise Lease Concession
Contract Contract Variations Privatisation
Effectiveness B A B A B B B B
Efficiency and
B B B B B B B A
Competition
Access to
B B C B C A A A
Capital
Accountability B A B B B B B C
Risks and
A A A B B C C C
Sustainability
Equity B B B B C C C C
Note: A; Good, B; Moderate, C: Not Good
Source: JICA Survey Team

There are some experiences in the introduction of the franchise system to other developing
countries. The typical experiences include the cases of Ghana and Tanzania. The main type of
collection service in the three major cities (Accra, Kumasi and Tema) of Ghana are communal
collection and house-to-house. Communal collection is a system of solid waste collection
where individuals bring their solid waste directly to communal skip containers at secondary
collection points from where the waste is collected and transported to the disposal site by
private companies. Communal solid waste collection services are provided under service
contract arrangements between the Municipal Authority and the private companies. The
Municipal Authority pays the companies for the services delivered24.
The house-to-house service is provided to residents in the high and middle income areas.
Another form of house-to-house solid waste collection called ‘block collection’ is a
predominant mode of solid waste collection. The house-to-house solid waste collection
services are provided under franchise contract arrangements between the Municipal Authority
and the private companies. Under the franchise contract, the companies collect revenue from
the users and subsidy from the Municipal Authority for some areas. For the purpose of waste
collection, the city is divided into waste collection districts where a company is contracted by
the public sector to collect waste in one or two districts. Fifteen (15) waste collection
companies have been contracted. On the franchise basis, a house-to-house collection is done in
high income areas and the contractors charge the households some fees with weekly collection
frequency. The main constraints include inadequate logistics, inadequate funding, and a low
charge collection rate in low-income areas. There is no mechanism of the cross-subsidy system
under this franchise to provide the services in low-income areas.
On the other hand, the waste collection services of Dar es Salaam which is the capital of
Tanzania is covered by the combination of direct services by the Dar es Salaam City Council
and the contractout to private contractors in major residential areas, market places, open

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spaces, roads and streets. In addition, community-based waste collection services involving
CBOs are rendered in the lower-income areas. However, in the same situation as Ghana, there
is also no mechanism of the cross-subsidy system to utilise the revenue from the collection
charges generated in the higher-income areas in the current combined services in Dar es
Salaam25.

(b) Disposal Site and Intermediate Treatment Facilities

There are sizable risks on the long-term PPP options such as concession, BOT and its
variations. Private sector involvement requires a clear regulatory framework to mitigate and
control the long-term contractual risks. It also requires that careful studies on the risk
allocations should be conducted in advance, so that the best technical systems are selected and
specified. The major risks are as described below.

Economies of Scale
Bidders for concession, BOT and other long-term PPP variations are required to bear higher
bidding costs due to the complicated tendering process. Hence, only large-scale PPP projects
can generate sufficient cost performance to offset the higher bidding costs from the PPP
procurement. It is generally argued that a large-scale PPP project such as concession, BOT and
other variations should be used on projects which involve the construction of assets with a
capital value above USD50 million. Since the amount of the sanitary landfill site or the
intermediate treatment facilities in the Master Plan is slightly less than this threshold, the
economies of scale will not function in case of concession, BOT and other long-term PPP
variations.
Service Discontinuity
If the awarded private service provider encounters financial difficulties during the contract
period, there would be a risk that SWMPC will not be able to immediately take over the
operation, which will eventually result in the termination of the services. This long-term risk of
failure by the private sector involvement exists if the service is outsourced for a relatively
longer period under PPP arrangements such as concession, BOT and other long-term
variations. To remove the risks of suspending the services, the long-term PPP options should
include provisions for SWMPC to intervene into and takeover the operation to continue
delivering the services. Nevertheless, in some cases, service contracts for the management of
sanitary landfill sites have no penalty clauses. Even if a penalty clause is included in the
contract, the SWMPC has little capacities to immediately take over the operation of the
facilities.
Downsized Demand Risk
Before a concessionaire agrees to a concession for the construction and operation of a sanitary
landfill site and intermediate treatment facilities, a concession contract will guarantee
minimum revenue, which is provided by means of a minimum tonnage agreement. This type of
long-term agreement in the concession contract is frequently cited as “put or pay agreement”
or “off-take purchase agreement”, which defines a minimum tonnage of wastes regardless of
the actual amount of wastes to be disposed or treated in those facilities. Without proper risk
management, the authority cannot respond to these demand risks. This kind of downsised
demand risk belongs to the SWMPC.
Since investment on the new sanitary landfill site as well as the intermediate treatment
facilities requires large-scale financial resources with long-term risks, the most realistic
financial option is to seek funding from a concessional loan provided by an international
lending institution together with a service contract for the efficient use of the private sector. A

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concessional loan from an international lending institution is designed to financially support

developing countries by providing long-term and low-interest loans for development projects
of large-scale facilities. This type of concessional loan has a longer repayment period together
with a low and preferential interest rate as well as a longer grace period.

Table 4.9.3 shows the three-grade evaluation results of PPP options for sanitary landfill site
and intermediate treatment facilities, taking into account the special conditions in Kenya in
which there is no clear-cut regulatory framework for long-term PPP schemes.

Table 4.9.3 Comparison of Three-grade Evaluation on PPP Options

(Sanitary Landfill Site and Intermediate Treatment Facilities)
PPP Option
Evaluation
Criteria Service Management BOT and Full
Licensing Franchise Lease Concession
Contract Contract Variations Privatisation
Not
Effectiveness relevant n.r. A A B B B B
(n.r.)
Efficiency and
n.r. n.r. B B B B B A
Competition
Access to
n.r. n.r. C B C A A A
Capital
Accountability n.r. n.r. B B B B B C
Risks and
n.r. n.r. A B B C C C
Sustainability
Equity n.r. n.r. B B C C C C
Note: A; Good, B; Moderate, C: Not Good
Source: JICA Survey Team

(3) Formation of Detailed PPP Structure for PPP

(a) Establishment of PPP Structure for Collection and Transport
(i) Streamlining of Zoning System by Socio-Economic Type
It is widely recognised that a large collection zone enables a private service provider to
increase efficiency through economies of scale. The economies of scale include an
integrated large-scale workshop for the operation and maintenance of collection vehicles,
and the reduction of indirect overhead cost. On the other hand, the award of a large-scale
contract to one bidder might create a monopoly with negative long-term effects such as
increasing prices and decreasing performance quality.
The zone-based division of a large-sized service area and the award of contract to the
separated service zones can guarantee long-term competition within the city-wide service
area and also provide opportunities to replace a service provider which does not fulfill its
contractual requirements. However, even in the case of separated service areas, the
smallest unit to be operated by a private service provider should ideally involve at least
100,000 beneficiaries in order to achieve economies of scale and flexibility.
It is generally argued that the zones should at least have approximately 400,000
beneficiaries to attract international investors. In order to attract experienced international
service providers, even much larger collection zones or the procurement packages which
combine the services of waste collection, transfer and disposal should be considered.
Therefore, the feasible size of collection service zones for local private franchisees ranges
from 100,000 to 400,000 beneficiaries.

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Apart from the size of zone, the zoning system for the solid waste collection services is
streamlined in accordance with the following basic principles:

• The internal cross-subsidy system where revenue from high-income areas is

transferred to the fund for the provision of solid waste management services in
low-income areas is introduced.
• In order to establish the cross-subsidy system between the high-income areas and the
low-income areas in the city, the current zoning system based on the administrative
borders will be reviewed comprehensively and the new zoning system based on the
economic level will be explored.
• The new zoning system is carefully decided by adopting the following
socio-economic categories of areas in accordance with the results of the poverty map
prepared by the World Bank. Figure 4.9.1 illustrates the city-wide map showing
3 categories of socio-economic areas. These 3 categories of socio-economic areas
are based on the poverty rate of each area which is the rate of households under the
poverty line defined by the World Bank as below. Out of these 3 categories, a
majority of the slums which belong to the lowest income group category is included
in the red-coloured area.

Blue-colored Area:
High-income areas with relatively higher willingness to pay for charges which can
independently cover their SWM services and generate the fund for low-income zones
(Poverty Rate: less than 25%)
Yellow-colored Area:
Middle-income areas with average-level willingness to pay for charges which can
independently cover their SWM services (Poverty Rate: 25% to 50%); and
Red-colored Area:
Low-income areas with relatively lower willingness to pay which require the subsidies
from high-income zones (Poverty Rate: more than 50%).
• The new zoning system is designed to assure reasonable profit of private service
providers in the long-term even under the cross-subsidy system so that “Win-Win”
situation between the SWMPC and the private service providers will function well.

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Source: JICA Study Team

Figure 4.9.1 City-wide Map by Category of Socio-Economic Area

(ii) Establishment of Sustainable Operational Zones based on Cross-Subsidy

By combination the above socio-economic zones, new operational zones with
sustainability of delivering collection services based on cross-subsidisation are
established. Table 4.9.4 shows the outline of the new zones for collection services based
on the cross-subsidy concept.

Table 4.9.4 Outline of New Zones for Collection Services

Zone High-income Area Middle-income Area Low-income Area Total
Zone 1 80,421 38,020 82,081 200,512
Zone 2 0 200,280 0 200,280
Zone 3 0 167,597 0 167,597
Zone 4 0 289,725 0 289,725
Zone 5 107,408 0 72,006 179,414
Zone 6 55,393 145,472 0 200,865
Zone 7 86,881 0 82,068 168,949
Zone 8 0 152,292 0 152,292
Zone 9 57,685 47,327 98,125 203,137
Zone Total 387,788 1,040,703 334,280 1,762,771
Direct Contracting-
0 0 1,203,993 1,203,993
Out by SWMPC
Total 387,788 1,040,703 1,538,273 2,966,764
Note: The number of population in each zone is estimated for 2010 by the JICA Survey Team based on the population
forecast calculated from the Census in 1999.
Source: JICA Survey Team’s Estimate

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The major concepts of the new zoning system are as stated below:
• High-income areas are combined with low-income areas to make the private sector
keep providing the services.
• Middle-income areas are clustered as financially independent zones.
• The number of zones is 9, which is the same as the current number of administrative
operational zones.
• The approximate number of beneficiaries in each zone is 200,000.
• The major slums such as Kibera and Mathare belong to the low-income areas, since
those slums cannot afford to pay the charges and the private sector alone cannot
deliver the collection services.
• The direct contractout zone in low-income areas including major slums will be
established by the SWMPC except for the designed 9 zones, since those areas could
not be covered by the private sector due to the low-level affordability to pay for
collection charges.
• The contractout area will be reduced and transformed into the new zones when those
areas are economically affordable to pay for collection charges.
• The SWMPC will act as the agency for supervising the private sector in all zones and
the contractout in low-income areas.

(iii) Step-wise Introduction of Franchise System

It is advisable that the franchise system should be introduced through a step-wise and
gradual manner to avoid the long-term contract risks. This system has the following
features:
• One franchisee for each zone will be selected through the tendering process.
• The formation of consortium of companies will be allowed.
• Each franchisee will be allowed to exclusively collect wastes and charges in one
zone.
• The following step-wise enlargement of the franchise zones in 3 phases is proposed.
Figure 4.9.2 illustrates the step-wise introduction of the franchise system (Phase 1).
Phase 1: Three (3) zones starting from 2016
Phase 2: Six (6) zones starting from 2021
Phase 3: Nine (9) zones starting from 2026
• The contract period is 5 years for the awarded franchisees to redeem capital
investment on collection vehicles.
• Before stepping into the new system, stakeholder meetings will be held to make the
private sector and communities fully understand the new system.

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Figure 4.9.2 Step-wise Introduction of Franchise Zone (Phase 1)

Table 4.9.5 shows the overall road map for the l step-wise introduction of the franchise
system in accordance with the proposed organisational restructuring plan.

Table 4.9.5 Overall Road Map of Step-wise Introduction of Franchise System

Organisations Responsible
Year PPP Option Zoning System
for SWM
Improvement of Current Licensing /
2010-2011 DoE Current Zoning System
Contracting Out System
Improvement of Current Licensing /
Contracting Out System and Preparation DoE, Setup of Special
2012-2015 Current Zoning System
of New 5-Year Zone-based Franchise Account for SWM in CCN
System
New 5-Year Zone-based Franchise System SWM Public Corporation
2016-2020 New (1st Phase)
(Phase 1: 3 zones) separated from CCN
New 5-Year Zone-based Franchise System SWM Public Corporation
2021-2025 New (2nd Phase)
(Phase 2: 6 zones) separated from CCN
New 5-Year Zone-based Franchise System SWM Public Corporation
2026-2030 New (3rd Phase)
(Phase 3: 9 zones) separated from CCN
Source: JICA Survey Team

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(iv) Creation of Franchise Fee and SWM Capital Revolving Fund

The SWM Capital Revolving Fund (SWMCRF) will be set up in the SWM Special
Account of SWMPC as a sort of trust fund which can be used to provide long-term
subsidisation assistance to the cost for replacement and new investment on collection
vehicles by the private franchisees. SWMCRF will be separately managed from the
general account of SWMPC. Legally, it is a sort of trust fund in which one party donates
money to another party which manages the money on behalf of a third party. The
beneficiary is allowed to be subsidised to use part of the fund exclusively for a specified
purpose agreed beforehand.
The main financial sources of the fund are the franchise fees collected from private
franchisees, which is 15 percent of the collected SWM fees. The level of subsidy will be
decided separately by the SWMPC.

(b) Establishment of PPP Structure for Sanitary Landfill and Intermediate Treatment
Facilities
(i) Concessional Loan for Capital Investment
The major features of a concessional loan option are as follows.
• The cash flow for the repayment will be generated through part of tipping fees as
well as franchise fees.
• The concessional loan has normally a long-term grace period as well as a long-term
repayment period with low interest rate.
• The Project Management Unit inside the SWMPC should be established for the
management of construction with external technical assistance.

(ii) Service Contract for Operation of Sanitary Landfill Site and Intermediate
Treatment Facilities
Service contracts include the provision of services for operating a sanitary landfill site or
intermediate treatment facilities and the payment of service fees. The responsibility for
operating the facilities will be transferred to the private service provider which will
receive payment from the SWMPC for operating the facilities. Service contracts leave all
responsibilities on investment with the public sector; however, service contracts can be a
first step toward a more comprehensive private sector involvement.

(iii) Alternative Option for Capital Investment

If a concessional loan is not available, the DBFO (Design-Build-Finance-Operate)
scheme could be the 2nd option. DBFO is the most common mode of the PPP scheme
among the BOT and its variations, integrating the functions of Design, Build, Finance and
Operate within a single private service provider. The service provider will raise funds
from private financial institutions to construct the facilities required for delivering the
services to the public sector. The private service providers will then build, maintain and
operate the constructed facilities to meet the requirement of the public sector. The private
service provides will be paid based on the services delivered in accordance with specified
performance standards throughout the entire contract period.
Another possible variation of the DBFO is the DBO model, in which the public sector
provides the fund for the design and building of facilities by the private sector, and then
continues to entrust to the same private service provider the operation of the facilities with

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the payment of a management fee. These models are suitable if there is lack of financial
sources.
The following risks should be carefully taken into account when the DBFO option is
selected:
• Long-Term Contract: DBFO contracts are usually long-term, depending on the type
of facility.
• Formation of special purpose vehicle: In the DBFO scheme, the private service
provider is usually a consortium formed by multiple companies.
• Sharing of responsibilities: Responsibilities and risks for activities which can be
better controlled and managed by the private partner are transferred to the SPV.
• Performance based payment mechanism: The public sector pays only when services
are delivered, depending on whether the services provided meet specified
performance standards.

(iv) Creation of SWM Operating Revolving Fund

The SWM Operating Revolving Fund (SWMORF) will be set up to fund the monitoring
system as well as the capacity development for the ultimate purpose of improving the
enforcement of the solid waste management services. Part of the collected tipping fees
will be used for the revolving financial sources of SWMORF, and tipping fees will be
applied at the point of entry at the sanitary landfill site. The basic principles of SWMORF
are as stated below:
• The tipping fee is based on the amount of wastes to be disposed at the sanitary
landfill site, which can be measured on a weight or volume basis. Using a
weight-based charge requires a weigh-bridge at the sanitary landfill site.
• In case of funding by the loan option from an international lending institution for the
construction of the sanitary landfill site and intermediate treatment facilities, part of
the tipping fees will be used for the fund for the repayment of the loan, while the
balance will be utilised for the monitoring and capacity development for improving
the enforcement of the solid waste management services. The allocation between the
repayment of the loan and the improvement of the enforcement of the solid waste
management services will depend on the negotiations between the borrower and the
SWMPC.

(4) Implementation of Contract Procedures for Franchise Contracts and Service

Contracts
The pre-contract requirements for a zone-based franchise contract for a waste collection service as
well as a service contract for a sanitary landfill operation are the management of the complicated
tendering procedures for the private sector involvement. Especially, it is crucial to secure the
following 7-step clear-cut process of preparing for private sector involvement:
Step 1: Preparation for Expression of Interests and Pre-qualification of Bidders
The preparation for the expression of interests as well as the pre-qualification of bidders is the first
step of the tendering process. The pre-qualification of bidders will screen out those interested
companies which do not satisfy certain criteria, thereby selecting eligible bidders to compete in the
full-tendering stage. A pre-procurement briefing is open to any interested private company.

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Step 2: Preparation of Tender Documents

Tender documents will be issued to bidders who are interested in providing the required services,
and are judged to be competent to provide the solid waste management services. These tender
documents are expected to be the model for the contract which would be finally agreed between
SWMPC and the awarded bidder. As well as providing the pattern and basis for the contract, tender
documents should also provide technical information which bidders will need in preparing their
offers, and instructions regarding the preparation and submission of bids and the tendering process.
Before finalising tender documents it is advisable to invite comments on draft tender documents
from potential bidders, especially when the authority has little experience in the preparation of the
tendering process for the franchise contract as well as the service contract, which is applicable to
the case of SWMPC. The experiences of preparing tender documents provide useful training
opportunities for the technical, legal and financial staff of SWMPC who will be involved in
assessing the bids and working with the private sector.

Step 3: Preparation of the Bid

Bidders are required to provide considerable efforts and expenses in the preparation of bids to offer
the technical and financial proposals in accordance with the final tender documents.
Step 4: Clarifications and Feedbacks to Tender Documents
An ad-hoc meeting should be arranged to allow bidders to request the authority to clarify any
unclear aspect of the tender documents. The meeting should be held in a transparent way, and
clarifications and feedbacks to tender documents should be properly carried out.
Step 5: Bid Bond
The purpose of a bid bond is to encourage all bidders to be serious and ready to commit themselves
in providing the required services in the tender documents. All bid bonds should be returned when
the contract is signed. If a candidate franchisee or a management service provider does not enter
into the contract, the bid bond is forfeit. Apart from the bid bond, at the signing of the contract, the
awarded bidder is required to submit a performance bond.
Step 6: Submission of Bids
The preparation of a bid for a complicated contract such as a franchise or a service contract involves
a considerable amount of works. Private companies which organise their resources in an effective
way are able to produce their technical and financial proposals in time for the announced deadline
for submission.
Step 7: Selection of Franchisee and Management Service Provider
The selection of a franchisee or a management service provider is the most critical decision in the
entire process, since the cost performance of the awarded private companies will affect the success
or failure of the private sector involvement in the long run. While the bidders’ proposals can be
evaluated only by experts, the process should be monitored by independent officials, so that there is
general perception that the decision is purely based on technical and cost evaluations. Evaluation
criteria must be prepared and each bid must be assessed in a transparent way.
The tender evaluation committee inside the procurement and contract department of the SWMPC
shall evaluate the proposals on the basis of their responsiveness to the terms of reference and the
point system specified in the evaluation score card. A proposal shall be rejected at this stage if it
does not respond to important aspects of the terms of reference, or if it fails to achieve the minimum
technical score indicated in the evaluation score card. Quality and Cost Based Selection (QCBS)
method will be employed to select the highest-ranked bidder to negotiate its proposal and the
contract on the basis of the technical and financial proposals submitted in accordance with the
instructions. The criteria to select a franchisee in each collection zone would be based on the price

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factors such as the level of collection charges and franchise fees, and the technical factors such as
the number of collection vehicles, frequency of collection services and the collection routes. On the
other hand, the criteria to select a service provider for the management of the sanitary landfill site
and intermediate treatment facilities would be based on the price factors such as the unit operational
cost to dispose the waste per ton and the technical factors such as the quality of equipment and staff.
The level of the tariff for the franchised collection and transport services or the service fee for the
service provider for the management of the sanitary landfill site and intermediate treatment
facilities will be decided based on the negotiations with reference to the results of the tender in
which the bid price is submitted. The SPWMC will finally decide the level of the tariff and the
service fee with its own cost calculation of the service delivery in each collection zone and the
management of the sanitary landfill and intermediate treatment facilities. In the case of a franchise,
the bidders who are competing for a franchise may be asked to compete on the basis of the fee that
they will charge for the services, and the bidder who offers a satisfactory service at the lowest user
fee is awarded the franchise. Alternatively, the user fee may be set by the SWMPC and the
franchise awarded to the bidder that offers the largest franchise fee to the SWMPC. In this case, the
SWMPC shall carefully take into account the service charges in other zones than the awarded
zones.

4.9.2 Mid-Term Action Plan

(1) Mid-Term Monitoring of Franchised Zone Management

It is critical to monitor the franchised zones in which a monopoly is granted a franchisee to provide
collection services and collect fees for the services in a defined area for a specific period. The major
concern in the franchise system is that unauthorised private companies might collect wastes from
waste generators in exchange for fees, and illegally dump wastes. These activities might deteriorate
the sustainability and basis for the franchise system itself by reducing its customers and fees.
Therefore, the proper mid-term monitoring of the franchised zones and boundaries is a key to the
sustainable operation of the franchise system.

(2) Mid-Term Performance Monitoring of Franchisees and Service Providers

The mid-term monitoring system will significantly contribute to the feedback mechanisms for
rectifying poor performance of franchisees and service providers at the timing of the renewal of the
first contracts. After the first 5-year contracts with franchisees and service providers, the mid-term
performance monitoring by using benchmarks will be carried out.
For example, the benchmarks for the franchisees include:
• Degree of meeting contractual level of quality of services;
• Degree of meeting contractual frequency of services;
• Waste collection rate;
• Charge collection rate;
• Degree of cooperation for 3R activities;
• Contents of financial and activity reports;
• Number of grievances; and
• Degree of meeting other contractual requirements
Effective performance monitoring requires that the SWMPC monitors whether or not the service is
actually and properly being delivered by private franchisees or service providers in accordance with
the contracted standards. The staff of the monitoring and enforcement department together with the
zonal management department of SWMPC should monitor the performance of private franchisees

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and service providers on regular and random-spot basis. The performance should be measured and
reported reliably and accurately.

4.9.3 Long-Term Action Plan

(1) Auditing of Franchisees, Service Providers and Revolving Funds

The accountability and transparency of the operation of franchisees, service providers and
revolving funds is a key to the sustainable private sector involvement for a long period. Therefore,
the auditing by the relevant audit authority should be periodically carried out over a long period.
The Specialised Audit Department of Kenya National Audit Office (KENAO) is in charge of the
auditing of the organisations in which public financial sources are injected. Since the franchisees,
service providers and revolving funds are receiving public financial sources, they should be audited
by the Specialised Audit Department of KENAO in terms of fee collections by franchisees, service
fee payments for service providers and subsidy utilisation by revolving funds.

(2) Continuous and Long-Term Performance Monitoring of Franchisees and Service

Providers, and Enlargement of Franchise Zones
After the second 5-year franchise contract period, the overall private sector involvement system
will be comprehensively reviewed to achieve a longer-term sustainability based on the continuous
and long-term performance monitoring of franchisees and service providers.
At the same time, in the longer period, there is a possibility that the franchise zones will be enlarged
by transferring some CCN/SWMPC contracting-out zones to franchise zones, if the willingness to
pay for the charges of the contractout zones increases and become affordable to pay for collection
charges.

(3) Long-Term Management of Revolving Funds and Provision of Subsidies

The long-term and continuous management of revolving funds is essential for the sustainable
private sector involvement, since one of the revolving funds contribute to the investment of
collection vehicles through the provision of subsidies. The continuous management of revolving
funds should be carried out in a transparent way. The management tools for the long-term
management of funds are:
• Record of payment of franchise fees and auditing;
• Record of receipt of subsidies; and
• Financial and activity reports on franchisees.

(4) Extension of PPP Model to PPPP Model

(a) Concept of PPPP Model
Under a franchise contract between the SWMPC and a private franchisee for the collection and
transport services as well as a service contract between the SWMPC and a private service
provider for the sanitary landfill management and intermediate treatment facilities, the rights
and obligations of both parties can be stipulated clearly in the contract, and if problems arise,
they can be resolved within the terms and conditions of the contract. Therefore, the
Public-Private Partnership (PPP) can be indicatively defined in the franchise and service
contract documents under the selected private sector involvement scheme. Although this sort
of a contractual relationship under the private sector involvement is frequently referred to as
Public-Private Partnership (PPP), the partnership must involve another important stakeholder,

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that is, “People.” In other words, the partnership should be extended to three-way
“Public-Private-People Partnership (PPPP).
The concept of three-party PPPP is crucial to the success of the private sector involvement. All
parties should equally have rights and obligations in accordance with the agreements among
them. Such an equal partnership will successfully result in effective and sustainable solid
waste management services which will continue for a long period.
The successful implementation of the new Master Plan can be achieved in the framework of a
win-win-win relationship among these three parties. In this win-win-win framework, the
public sector will benefit from the efficient outsourcing and utilisation of the private capital,
the private sector will benefit from a reasonable profit, valuable experiences and stable
working opportunities, and the people will benefit from sustainable, satisfactory and
affordable solid waste management services. This win-win-win relationship can be attained
only when these three parties respect the rights and obligations of each party in relation to the
sustainable solid waste management.
Figure 4.9.3 is the image of the concept of PPPP.

P = Public (CCN
/SWM Public Corporation)

Rights and Obligations

in Franchise Contract Rights and Obligations in
(Manifest 1) Manifest 2

PPPP
Partnership

P = Private P = People
(Franchisees) (Users, CBOs)
Rights and Obligations
in Manifesto 3

Figure 4.9.3 Image of Concept of PPPP (Public-Private-People Partnership)

(b) Proposed Contents of Manifestos

Clear description of the rights and obligations in the contract document is the first step to
establish the long-term and desirable relationship between the public sector and the private
sector. In the same manner, in the case of relationship between the public sector and people or
the private sector and communities, agreed manifestos should be documented to clarify the
obligations of these parties for the long-term partnership. Table 4.9.6 shows the proposed
contents of manifestos.

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Table 4.9.6 Proposed Contents of Manifestos

Updating
Stakeholders Obligations Documents Timing of
Documents
Manfesto 1: Between SWMPC and Private Franchisees/Private Service Providers
z Strict management of franchise zones
In 2016, 2021
z Monitoring of illegal dumping
Franchising and and 2026 at
SWMPC z Enforcement of penalties for non-payment
Service Contract the time of
of collection fees
contract
z Payment of service fees to service providers
z Fulfillment of delivering collection services
z Fulfillment of delivering operation services In 2016, 2021
Franchisees and for management of sanitary landfill site and Franchising and and 2026 at
Service Providers intermediate treatment facilities Service Contract the time of
z Cooperation for 3R activities contract
z Cooperation for monitoring activities
Manifesto 2: Between SWMPC and CBOs/Communities
z Provision of contracting-out collection
services in low-income areas
z Provision of assistance in the field of public
awareness
z Provision of information on basic
Annual
knowledge of solid waste management
MOU (Minutes of stakeholder
SWMPC z Provision of information on the zoning and
Understanding) meeting from
franchise contract
2016
z Provision of information on financial and
activity reports on SWMPC
z Provision of assistance in the field of
primary collection practices and
technologies
z Commitment to payment of waste collection
charges stipulated in the franchise contract
in each zone Annual
CBO and z Cooperation for primary collection and pilot MOU (Minutes of stakeholder
Communities projects Understanding) meeting from
z Cooperation for 3R and pilot projects 2016
z Cooperation for public awareness and pilot
projects
Manifesto 3: Between Franchisees and CBOs/Communities
z Delivery of waste collection services
z Provision of information on level and
Annual
frequency of collection services
MOU (Minutes of stakeholder
Franchisees z Provision of franchisee’s management
Understanding) meeting from
information
2016
z Provision of information on grievance
solution procedures
z Payment of fees to franchisees
Annual
z Cooperation for minimisation of wastes at
CBO and MOU (Minutes of stakeholder
source
Communities Understanding) meeting from
z Cooperation for primary collection
2016
z Cooperation for raising public awareness
Source: JICA Survey Team

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