the national solid waste management programme · implementing regulations for priority waste...

MSEA

THE NATIONAL SOLID WASTE MANAGEMENT PROGRAMME

EXECUTIVE SUMMARY

Disclaimer: This executive summary is prepared based on the Main Report of the National Solid Waste Management Programme (December 2011) taking into consideration recent developments during the initial phase of programme implementation.

THE NATIONAL SOLID WASTE MANAGEMENT PROGRAMME

EXECUTIVE SUMMARY

Contents 1. Background of the NSWMP ................................................................................... 022. The NWSMP ............................................................................................................. 043. Component A: Institutions, Policy and Legislation .............................................. 074. Component B: Investment Programming & Implementation ............................ 135. Component C: Professional Capacity Develpment .............................................. 166. Component D: Planning, Services & Infrastructure Improved Services & Facilities ....................................................................................................................... 177. Component E: Civil Society Participation .............................................................. 198. Component F: Implementation and monitoring................................................... 21

In 2009, the Egyptian Government identified the need for a National Solid Waste Management Programme (NSWMP) in response to the growing solid waste management crisis being faced in Egypt. The political intention to address the situation was signalled by the establishment of an Inter-Ministerial Committee (IMC) tasked with guiding the process of formulating the NSWMP. The IMC comprises representatives from key Ministries playing a role in the waste management sector. Following the revolution, work on the NSWMP intensified, as it became clear that there was real potential for change in policy, and increased demand from citizens to improve solid waste management practices at the local level.The IMC and sector stakeholders recognized that inadequate

standards of SWM impact health of citizens and the quality of the environment. It is the most visible of all public services, is one of the most practical of governance challenges, and is an essential component of the sustainable development of Egypt’s economy. Above all, SWM was viewed as a sector of the economy with a strong growth potential (Figure 1), and an industry which has the potential to employ hundreds of thousands of people, including skilled, semi-skilled and unskilled workers, including youth of working age and poor and disadvantaged people.

1. BAckGROuND Of THE NSWMP

2 NSWMP Egypt - Executive Summary November 2013

Euro 1.2 – 3 billion of capital investment demand for the municipal solid waste management Sector in Egypt over the next 10 years

48%

9%

24%

13%6%

Collection & TransferDump Upgrade & ClosureLandfill & CompostingMechanical & Biological TreatmentWaste to Energy

Figure1 Investment demand in the Egyptian Solid Waste Management Sector

In 2010, following an intensive process of consultation between Ministries, international and local experts as well as other stakeholders, broad based agreement was reached on the need to establish a national solid waste management entity. The IMC felt that developing a national centre for excellence in policy, legislation, strategy, technology, contracting and financing of SWM

was necessary given the scale of the SWM problems being faced in Egypt, and the complex demands which need to be met in order to develop the sector. The entity was not aimed at centralising waste management operations, rather as supporting the decentralised implementation of improved solid waste management (SWM) practices at the local level.

The key challenges facing the SWM sector are:

• Lack of formal policies, strategic objectives and work plans. • Lack of institutional set-up and insufficient capacity. • Lack of clear identification and division of roles and

responsibilities. • Limited availability of financial resources. • Weaknesses in the legislation and enforcement.• Shortfalls in SWM equipment. • Lack of appropriate landfill sites that comply with the

environmental standards. • Lack of efficient and compatible recycling facilities and equipment. • Low performance of the existing composting plants.• Lack of capacities for management and operation.• Lack of allocations for maintenance and poor condition of

maintenance workshops. • Limited capacity and knowledge of the private companies in the

issue. • No system for the construction & demolition, markets and

slaughterhouse/abattoir wastes. • Absence of an appropriate national database. • Low level of public awareness. • Contractual problems between the government and the private

operators.• Lack of strong supervisory entity for SWM.

November 2013 NSWMP Egypt - Executive Summary 3

Responding to these challenges requires implementation of a coordinated programme. A combination of actions is required for sustainable development of the sector, including new approaches, professional capacity, investments and policies.

The objecTive of The NSWMP iS: Protection of public health, environment and quality of the living environment for Egyptian citizens through sustainable development of waste management practices. The purpose programme is:

To support the establishment of new and effective policy, legislation and institutional arrangements for waste management at the national and governorate level in Egypt, coupled with enhanced professional capacity, and an investment pipeline for implementation of sectoral projects at the regional and local level.

The exPecTeD reSulTS are:1. An established waste

management policy supported by framework legislation and implementing regulations for priority waste streams, and a developed institutional structure governing the waste management sector at the national and local level.

2. An established investment pipeline, with implementation of waste management concepts in 4 governorates designed and implemented with multi-stakeholder participation.

3. Enhanced professional capacity to direct, manage and implement policy, legislation, strategy, programs, projects and services.

4. Solid waste management plans at the national and local levels, with measures designed and implemented to increase service coverage and performance.

5. Broad involvement of civil society in the elaboration of policies and plans coupled with recognition of waste management & recycling as a profession.

2 THE NWSMP


The Programme is structured into six (6) components (Figure 2), and further divided into workstreams and measures. The six (6) components represent the building blocks of the NSWMP, and contain distinct workstreams and measures; however, they combine to form an integrated vision.

The programme components shall serve to accomplish key

milestones in the path of achieving a sustainable SWM sector. The NSWMP has developed a preliminary vision for the sector including required instruments and mechanisms on the national and governorate levels, roles of sector stakeholders, and financing framework. Figure 3 provides a visual outline of the overall sector framework envisaged.


B. Investment Programming & Implementation

D. Planning, Services &

InfrastructureE. Civil Society Participation

C. Professional Development

A. Institutions, Policy &

Legislation

F. Implementation

Figure2 NSWMP Components


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Figure3 Preliminary vision of the solid waste management sector framework


Figure 4 Workstreams of Component A - Institutions, Policy and Legislation

Component A is divided into four work streams covering institutional and organisational development, policy development, legislation and regulations, and economic and financial instruments (Figure 4).

3 cOMPONENT A: INSTITuTIONS, POLIcy AND LEGISLATION

institutional and organisational Development

Egyption solid waste managment authority (ESWA)

Improving existing instruments structures

Instruments development at the local level

Business & financial instruments

Enforcement & economic structures

Subsidiary regulation / decrees

Waste Framework Law

Strategy finalisation through stakeholder consultaion

Establishing policy

Producer responsibility

Carbon financing

Policy development

legislation and regulations

economic & financial

instruments


3.1 InSTITuTIonSAn Egyptian Solid Waste Affairs Agency (ESWA) will be established to take charge developing the SWM sector. ESWA shall be established under the charge of Ministry of State for Environmental Affairs (MSEA) (Figure 5). Establishing ESWA is a necessary precondition to manage the SWM sector in an effective, efficient and sustainable manner. This reform is essential to protecting public health, the quality of the environment, as well as developing a new sector of the economy and creating new jobs.

Developing ESWA is only one part of the needed institutional reforms. Institutional structures at the Governorate level also need to be significantly improved so that projects and programs can be managed, implemented and sustained by Governorates and Municipalities in a decentralised way.

establishing eSWa and adopting this NSWMP is a strong signal to egyptian companies and international partners to invest in egypt.

Figure 5 Implementation Structure of ESWA

Government of egypt

MSea

eeaa eSWa SWM units

Governorates

SWM StrategyPolicy & legislation

InvestmentProgramming Implementation

Planning services &Infrastructure

Service Provision

EnvironmentalRegulation

Environmental Strategy,Policy & Legislation

Support to Governoratesand new housing communities


ESWA will take and progressively develop competence in each of the following functions:1. Policy: Setting national waste management policy including

objectives and targets.2. Strategy: Developing, implementing and updating a national waste

management strategy and action plan.3. Legislation: Drafting waste management legislation, and

supporting the passage of legislation through parliament. 4. Economic & financial instruments: Research and establishment of

appropriate economic and financial measures.5. Parliamentary briefings: Support to the Minister in Parliamentary

briefings and sub-committees.6. Stakeholder dialogue: Coordination of inter-sectoral dialogue on

SWM issues.7. Investment planning/promotion: Investment planning/pipelining,

identification and promotion of investment opportunities in the waste management sector.

8. Program management/coordination: Management of programs financed by government and international development partners.

9. Project identification and design: Technical assistance to support Governorates and Municipalities in preparing waste management plans and integrated, bankable SWM concepts.

10. Guidelines and standards: Preparation and dissemination of best practices guidelines; development of technical and environmental standards.

11. Information and data: Collection and reporting of information and data (eg from Governorates and Municipalities).

12. Knowledge management: Collection and sharing of best practices amongst national and regional networks.

13. National focal point: Information and advisory service. 14. Monitoring & evaluation: Collection and publishing of key

performance indicators and data.15. Research & Development: Management of R&D programs.16. Awareness raising: Behaviour change, communications and

environmental education.17. Tariff Policy: Financial regulation, including establishing

affordability benchmarks.


3.2 PoLICyNational waste management policy will be developed through the NSWMP. In 2013, H.E. the Minister of State for Environmental Affairs developed a Think Tank of prominent experts in the field tasked with developing a vision for the national solid waste management policy. The policy think tank developed the foundation of the national policy by identifying the main principles and objectives of the policy and shall continue to guide the process of preparing the national policy and strategic plan.

Municipal waste, industrial & hazardous waste, healthcare waste, agricultural waste, waste electronics and electronic equipment, tyres etc, require different policy approaches. During the first two years of the NSWMP, ESWA will undertake a review of which waste streams should be addressed as a priority, and establish waste-specific policies accordingly.


The national Policy will be based around the following principles:1. SWM is a public good: SWM is an essential public service, which

benefits all members of the society. Managing solid waste requires public institutions to follow the principles of good governance. They shall ensure service delivery to all citizens as well as shared responsibilities and contributions.

2. SWM is a cross-cutting issue: Solid waste is generated by all sectors of society. Hence, solid waste management policies and principles shall not be confined to the SWM sector.

3. Principle of recognition: Waste management and recycling are important professional sectors of the economy, and major employers of skilled, semi-skilled and unskilled workers.

4. Polluter pays principle: Those who manufacture products which lead to waste, and those who generate waste shall be responsible for paying the costs for its appropriate management including its collection, transfer, treatment, and safe disposal.

5. SWM is a net cost activity: Government intervention will be needed to financially sustain the service provision.

6. Decoupling of economic development from solid waste generation: The Egyptian economy should grow without a corresponding increase in waste generation and burden on the waste management system.

7. Waste management hierarchy: The waste management hierarchy prioritizes solid waste management practices in accordance with Egyptian circumstances as follows: avoid, reduce, reuse, recycle, recover and dispose.

8. Integrated and sustainable approach to solid waste management: A strategic and comprehensive approach to sustainable solid waste management covers all sources and all activities of a professionally planned and managed system. Waste management plans shall strive to maximize resource and cost efficiency through using economically viable approaches.

9. Proximity principle: Waste should be managed or disposed of as close as possible to the point of generation.

10. Appropriate technology: Planning and designing waste management systems shall consider only appropriate technologies based on the local needs and conditions.

3.3 LEGISLATIonA Waste Framework Law will be prepared to establish a comprehensive framework for the handling of waste across Egypt, promoting reuse, recycling, and recovery within a waste management hierarchy. It will provide a framework for the waste management sector development, aimed at the whole waste cycle from generation to disposal.

The new law will regulate all waste streams and take into account the general environmental protection principles of precaution and sustainability, technical feasibility and economic viability, protection of resources as well as the overall environmental, human health, economic and social impacts.

A number of subsidiary regulations relating to the management, transport, treatment and disposal of waste will be developed and implemented.


Figure 6 Workstreams of Component B: Investment Programming & Implementation


Investment is required to tackle acute negative impact on health and environment. The investment component of the NSWMP considers the experiences from the previous SWM strategy, which failed to reach any of the envisaged

targets. Component B includes three work streams covering development of project pipelines, initiating priority investments, and financial management of investments in the sector (Figure 6).

4 cOMPONENT B: INvESTMENT PROGRAMMING & IMPLEMENTATION

Project Pipeline Development

financialmanagment

Priorityinvestment

Project development procedures

Project pipeline

Promotion investment

Project selection procedures

First-phase investments

Monitoring & evaluation

Financial managment guidelines

Capacity building Financial managment

Financial decentralisation

A key lesson learnt was that on a short to medium term the available financial means from the public, private and international sources all need to be captured and utilised to the best possible effect. The investment programming and implementation shall be facilitated by ESWA, while investments shall be implemented at the regional and local levels under the leadership of Governorates.

With financial and technical assistance from the German Government and the European Union, new investments in the waste management sector will be implemented. The major objective of the first phase of investments under this NSWMP will be to achieve a demonstration effect which may act as a “blueprint” or “seed” for future waste management projects.

Even with these important seed funds, a very large quantity of investment finance will be needed for Egypt to approach the

demand for the municipal waste management sector. Support of other development partners will be helpful in meeting some of


In the framework of the German/Eu investment and technical assistance programme, the following works, supplies and services can be financed:

1. Construction or extension of municipal sanitary waste landfills. 2. Construction or extension of transfer stations.3. Supply of mobile equipment for primary and secondary waste

collection and transportation as well as supply of equipment to related maintenance facilities.

4. Closure and rehabilitation of existing unsecured landfills or dumpsites.

5. Construction or extension of waste treatment, recycling or composting facilities.

6. Required equipment and materials for project implementation such as vehicles, IT equipment at national and governorate level.

7. Consulting services related to the preparation and implementation of the programme.

this residual demand. However, it is clear that given the scale of the needs, a large amount of investment will be need from state budget and from the private sector.

Close attention will be paid to sustainability aspects in order to avoid that facilities are not only established, but also can be operated and maintained effectively. This issue applies to all aspects of integrated waste management systems. Those waste management projects and concepts which demonstrate significant improvements to the integrated waste management system within a Governorate will

be supported as a priority. Priority ideas and project concepts shall flow through the investment pipeline for implementation (Figure 7),

Figure 7: Investment pipeline for project implementation ESWA will provide Guidelines for sound financial management practices for SWM at the local level. This will include the developments of templates and models – covering all data input needs to assist financial planning, as well as capacity building for decentralized financial management.


Figure 7 Investment pipeline for project implementation

Pipeline of investment Project SWM

loan

signing

feasibility

Study

Pre-feasibility

Study

Project

concepts

ideas for investment

Project

Behind every developing waste management system is a well-qualified workforce of policy makers, regulators, planners, entrepreneurs, engineers, lawyers, supervisors, and operators of all different facilities and services. Central to the ambition of this NSWMP is to create a new cadre of waste management professionals who have the mandate and abilities to make a step change happen in practice. Component C covers development of professional capacity on the national and governorate levels (Figure 8).

Waste management requires professionals with knowledge in different fields, such as engineering, technology, natural sciences, economics, finances, law, management, public relations, social marketing and even psychology and sociology. Most importantly though, the sector has a great demand for disciplined and hard working people, who are willing to work in difficult conditions for the good of society and the environment and who have to be paid accordingly.

5 cOMPONENT c: PROfESSIONAL cAPAcITy DEvELPMENT


Figure 8 Workstreams of Component B – Professional Capacity Development

Training new sector leaders

National advisory service and training centre

Support to governorates and municiplities

Support to eSWaProject

Programming& implementation

capacity

Policy & Strategy implementation

capacity


The main goal and basic intention of the NSWMP is to catalyse progress in implementing new and improved waste management services and facilities to serve the Egyptian people. To facilitate this, the NSWMP has identified a range of measures which need to be taken to develop the ‘framework’ conditions for the waste management sector to thrive. Improved services requires suitable codes, planning of services, and participation of capable operators within the frame of adequate service contracts. (Figure 9).

Guidelines, codes and technical standards will be developed in order to support the practical

application of the Waste Framework Law and subsidiary regulations. These will provide a detailed framework for waste management sector to operate. Guidance documents covering the implementation of waste management legislation will be prepared for governorates and municipalities on areas of critical importance to the future sustainability of waste management services. Examples include standards for landfill sites, planning procedures, technical and financial planning, litter prevention and the cleanliness of public land and best practice options for collection, treatment and disposal of solid wastes.

6 cOMPONENT D: PLANNING, SERvIcES & INfRASTRucTuRE IMPROvED SERvIcES & fAcILITIES

Regional planning is necessary for MSWM services to keep up with the increasing demand. Strategic plans establish clear objectives, intentions, actions, and timelines for improving services and facilities. Inclusivity is a key factor in successful planning (Figure 10). Plans need to be continuously evaluated in meeting objectives and adjusted accordingly in future planning cycles. ESWA shall prepare guidelines and models for preparation and evaluation of regional waste management plans in support for the governorates to prepare their regional plans.

The private sector involved in SWM in Egypts includes a mixture of

international, national, as well as small and medium enterprises with mixed success. The private sector in Egypt requires further regulatory support, coordination, and access to finance in order to develop a thriving home-grown industry capable of expand across the nation and implement the desired levels of service.

The challenges on the ground remain practical and solvable. Whilst waste management services are quite complex, improving systemic performance of day-to-day services relies on the people involved in supervising, planning and operating the services.


Figure 9 Workstreams of Component D – Planning, Services & Infrastructure

Codees & technical standards

Guidelines

Planning targets

Developing the national waste management industry

Preparation of regional plans

operator and contract models

Strategicplanning

Privet sector participation

Guidelines,codees &technicalstandards


Figure 10 Strategic Planning methodology

A comprehensive programme will to be designed and adopted with the main objective of enhancing the participation of civil society (Figure 11). In coordinating the different actions, ESWA will play a leading role to mobilize different actors.

Solid waste management has strong association to the social aspects and the local communities. SWM is one of the important and basic services that is not only linked to clean environment but also to enhancing the sense of well being and the quality of life of local residents.

7 cOMPONENT E: cIvIL SOcIETy PARTIcIPATION

Mobilise the Planning Process

impement the Strategic Plan

Define baseline

establish StrategicPlannning framework

identity and evaluateoptions

Develop Strategy

Prepare action Plan

inception Workshop

Strategy Workshop

action Planning Workshop

Specialist Workgroups

institutional Waste Wasteframework collection Treatment & recycling & Disposal

financial PublicSustainability awareness & Participation

Certain communities are particularly involved in recycling and waste management. These communities are amongst the poorest and most vulnerable of society, but have been providing door-to-door waste and recyclables collections for generations. They have the know-how of the sector and incorporating them into new systems is essential. The important

role that communities play in recycling is recognised, and shall be strengthened.

Establishment of ESWA aims to be an important turning point in raising the profile of SWM in Egypt. Awareness raising will be key, but needs to be done in tandem with the introduction of new and improved services.

Figure 11 Workstreams of Component E – Civil Society Participation


Stimulating the role of media and nGos

Promoting benefites to the workers in the SWM sector

Establishing ESWA social forum

Behaviour change

Assisting the informal sector

Participatory monitoring and evaluation

civil society engagement

behaviour change

raising the profile of waste

management


In order to ensure operability of the National Solid Waste Management (NSWMP) implementation plans are prepared for all components of

the NSWMP. The plans are based on identified workstreams and measures, and form the basis of an integrated programme.

The following key milestones are envisaged:

• firST - SecoND quarTer 2013: Launch of a technical assistance (TA) project financed by the German Government (through GIZ) to support the establishment of ESWA, to continue development of policy, strategy & legislation, and to strengthen the professional competence of staff related to their specific roles.

• ThirD – forTh quarTer 2013: Establishment of an institutional setup that paves the way to the development of the final structure of ESWA and carries the core responsibilities required in the interim period of forming the ESWA structure.

• firST –SecoND quarTer 2014: Launch of the investment and accompanying measures/TA component of the NSWMP, co-financed by the GoE, the German Government (through KfW) and the European Union.

• firST – SecoND quarTer 2015: Enactment of waste management policy and framework legislation. This focus will be on identifying and addressing priorities, through appropriate and achievable targets, instruments, measures and financing for the sustainable development of the waste management sector.

• ThirD - forTh quarTer 2015: Establishment and full functionality of ESWA. ESWA would be the national centre of excellence in waste management policy, legislation, strategy, technology, contracting and financing; working to support decentralised implementation of

8 cOMPONENT f: IMPLEMENTATION AND MONITORING

improved waste management practices in governorates and new housing communities.

• firST – SecoND quarTer 2016: Enactment of regulations/decrees for specific priority waste streams. The focus for this quarter will be on municipal waste and other identified priority waste streams. Adapting EU regulatory practices (including producer responsibility for specific waste streams) into the Egyptian regulatory framework will be explored.

• fourTh quarTer 2017: The German/EU financing programme ends leaving a framework in place for sustainable development of the waste management sector. Projects are implemented exhausting the first phase of NSWMP financing, and a project pipeline is in place attracting finance from a range of sources.

The NSWMP represents the initial stage in what is ultimately a long term process. The needs and circumstances in Egypt related to waste management issues will change. It is therefore vital that the NSWMP is regularly monitored and reviewed to ensure that the measures identified under each component remain valid and relevant. The implementation of the NSWMP shall be monitored and reviewed in the following main categories:

1. Policy implementation2. Improved services and facilities3. Financial sustainability4. Civil society engagement

In order to measure the progress, a set of indicators have been identified to gauge implementation achievements against program objectives within the four defined categories.



The following key programme indicators shall be monitored:1. Institutional frame, strategies and legislation are developed on the

national level:a) An independent regulator with independent budget and

technical mandate in the Governorates is established.b) National strategy for SWM is elaborated.c) Legal framework for SWM is elaborated.

2. Relevant actors of civil society participate actively in the sector reform process with contribution to elaboration of at least two national strategic documents (e.g. national strategy, legislation, financing instruments), including female participants.

3. Relevant actors on national and Governorate level have developed a number of innovative instruments for sustainable financing of Municipal Waste management systems

4. SWM units for planning, managing and supervision of sustainable SWM systems are established in four Governorates with clear mandate and qualified personnel.

5. Labour-intensive, resource-efficient and cost-effective models for collection and recycling of Municipal waste are applied in four Governorates.

6. All orderly collected municipal solid waste in connected project regions in the four governorates is delivered to regular solid waste facilities (recycling and treatment plants, and controlled landfills) which are properly designed and operated according to national standards.

7. Closure of existing uncontrolled dumpsites in connected project regions within three years of commissioning new landfills.

8. SWM facilities in connected project regions do not cause any significant environmental hazards.

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