Neighbourhood-Based Waste Management: A Solution For Solid Waste Problems in Jakarta, Indonesia

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Neighbourhood-based waste management: A

solution for solid waste problems in Jakarta,
Indonesia
Article in Waste Management · February 2007

DOI: 10.1016/j.wasman.2006.09.010 · Source: PubMed
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Waste Management xxx (2006) xxx–xxx

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2 Neighbourhood-based waste management: A solution for solid

3 waste problems in Jakarta, Indonesia
F
a,*
4 Haskarlianus Pasang , Graham A. Moore b, Guntur Sitorus c
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5 a
International Development Centre (IDTC), Department of Civil and Environmental Engineering, University of Melbourne, Vic. 3010, Australia
6 b
Department of Civil and Environmental Engineering, The University of Melbourne, Vic. 3010, Australia
7 c
PT. Arkonin Engineering Manggala Pratama and Pil-KAB Gedung Arkonin, Jl. Bintaro Taman Timur, Bintaro Jaya, Jakarta Selatan 12330, Indonesia
8 Accepted 14 September 2006
9
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10 Abstract
11 Municipal solid waste management in the capital city of Indonesia, Jakarta, is examined from a point of view of researchers and waste
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12 management practitioners. Major impediments to waste management in Jakarta include non-involvement of stakeholders in planning
13 and decision-making, unskilled staff undertaking the duty, the absence of long-term waste management strategies, and weak coordina-
14 tion between authorities and neighbourhood association workers who undertake primary collection. It was revealed that lack of
15 resources is seen as the least important of all impediments. The success of managing solid waste in Jakarta cannot be separated from
16 the presence and the role of a neighbourhood association, which performs waste collection on a daily basis as well as keeping their respec-
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17 tive areas clean by employing their own waste service workers. A neighbourhood-based waste management strategy is a promising solu-
18 tion for Jakarta, because it is more applicable and suitable for Jakarta’s context compared to community-based waste management. The
19 performance of this approach is examined and the improvement for wider adoption is discussed for a long-term solution.
20 ! 2006 Published by Elsevier Ltd.
21
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22 1. Introduction waste generated in developing countries. Medina (1997) 38

explains that some technologies that may fail are as fol- 39
23 In the last 20 years, a number of solid waste manage- lows: using compactor trucks, incineration, in-vessel com- 40
24 ment projects have been carried out in Jakarta, Indonesia, posting and mechanical equipment to sort waste in 41
25 in collaboration with external support agencies. Some pro- material recovery facilities. Therefore, Cointreau (1982) 42
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26 jects were successful, but most could not support them- and Arlosoroff (1985) suggest that developing countries 43
27 selves or expand further when the external agencies should consider appropriate technology suited to the spe- 44
28 discontinued their input (Ogawa, 1996). A number of tech- cific characteristic of its waste. Waste characteristics typical 45
29 nical, financial, institutional, economic, and social factors for developing countries are as follows: 46
30 contribute to the failure to sustain such programs, includ-
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31 ing over-reliance on costly Western high-tech waste man- (i) high waste densities (considered to be generally 47
32 agement methods. The application of this technology fails higher than those in industrialized countries); 48
33 because it is centrally organized, heavily subsidized, lacking (ii) high moisture contents (possibly higher than in the 49
34 in community cooperation, and is reliant on disposal west); 50
35 (Supriyadi et al., 2000). (iii) the composition is largely organic with the portion of 51
36 Another reason that such technologies have not oper- vegetables/putrescible materials considered to be 52
37 ated as expected is due to the different characteristics of higher than in industrialized countries; 53
(iv) there may be a substantial amount of dust and dirt in 54
*
Corresponding author. Tel.: +61 3 8344 0193; fax: +61 3 8344 6868. cities where sweeping and open ground storage is part 55
E-mail address: h.pasang@civenv.unimelb.edu.au (H. Pasang). of the collection system, and 56
0956-053X/$ - see front matter ! 2006 Published by Elsevier Ltd.

doi:10.1016/j.wasman.2006.09.010
Please cite this article in press as: Pasang, H. et al., Neighbourhood-based waste management: A solution for solid ..., Waste Man-
agement (2006), doi:10.1016/j.wasman.2006.09.010
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2 H. Pasang et al. / Waste Management xxx (2006) xxx–xxx
57 (v) particle size which may be smaller than would be seen According to the Statistics of Jakarta (2005), among the 111
58 in waste from industrialized countries, often having five municipalities, there are 44 councils, 267 villages; 2,728 112
59 less than half of the particles in the over 50 mm range. RW; and 29,766 RT. Having around 1,941,398 households 113
60 across the entire city means each neighbourhood associa- 114
61 To date, the Government of Jakarta, through its Cleans- tion consists of an average of 65 households or between 115
62 ing Department, as the authority responsible for managing 260 and 325 persons, depending on the size and the density 116
63 the waste, has considered that neighbourhood associations of the area. 117
64 (NAs) play an important role in handling solid waste and In the case of MSW management, the government is 118
65 cleanliness within their respective areas, especially where involved down to the level of kelurahan (village), and all 119
66 official waste service are non-existent. However, this role of the officers involved are paid by the government. Below 120
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67 has not been developed to its full potential due to several this level, communities through neighbourhood organiza- 121
68 factors, including: (i) at the neighbourhood level, handling tions manage their waste along with security and other 122
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69 waste is perceived as a voluntary activity with almost no community activities. Money used to pay salaries comes 123
70 support from the government; (ii) the function of the from fees charged by the organization for the services it 124
71 NAs in municipal solid waste (MSW) management has provides. 125
72 not been studied and developed seriously; (iii) low appreci-
73 ation from the authority of the waste service provided by 2.1.1. Status of municipal solid waste management in 126
74 the community; and (iv) source reduction through source 127
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Jakarta
75 separation or other means was not considered as an alter- Like most other capital cities in developing countries, 128
76 native to ease the city’s burden in handling waste. MSW management in Jakarta relies on a conventional col- 129
77 There has been no research undertaken on the function lect-haul-dispose system. In order to carry this out, the 130
78 of neighbourhood associations as an agent for handling Cleansing Department of Jakarta has divisions in each 131
79 primary collection and source reduction in Jakarta Prov- municipality. It mainly relies on manual labour and non- 132
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80 ince. Therefore, the main aim of this paper is to investigate specialised trucks to collect and transport the waste to 133
81 potential improvement of the function of neighbourhood transfer stations and/or the final disposal site. In an 134
82 associations as neighbourhood-based waste management attempt to increase productivity, a variety of collection, 135
83 agents. The first part of the paper presents the status of transfer, and haulage and disposal methods have been tried 136
84 waste management in Jakarta including its problems and with limited success. The lack of success may be attributed 137
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85 constraints. A typical case reflecting the nature of MSW to poorly define long-term goals; lack of information for 138
86 management in one of Jakarta’s councils, Menteng Council planning, monitoring and evaluation; and the fact that 139
87 which is part of Central Jakarta Municipality, will be dis- public consultation and participation is not an integral part 140
88 cussed, based on an ongoing pilot project in the council of the system. 141
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89 entitled ‘Pilah-Kumpul-Angkut dan Bayar’ or Pil-KAB Pro- The other impediment is that no single ministry and 142
90 ject (Separate-Collect-Transport and Pay). The paper agency is charged with the development and implementa- 143
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91 focuses on the potential improvement resulting from an tion of solid waste management goals and policies. Instead, 144
92 adoption of a neighbourhood-based waste management policy development is divided among several ministries, 145
93 approach over a wider area. The paper then draws conclu- and implementation is the responsibility of each municipal- 146
94 sions and makes recommendations that could be applied ity or regency (Supriyadi et al., 2000). Furthermore, within 147
95 by Jakarta in order to move towards more sustainable each municipality there is no separation between regulatory 148
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96 MSW management system. and operational roles and the same department performs 149
these two tasks, leading to potential conflicts of interest. 150
97 2. Municipal solid waste management in Jakarta For more detailed information on the nature of MSW 151
management in Jakarta, the overall system can be consid- 152
98 2.1. Administrative structure of the Government of Jakarta ered under four main component headings: waste genera- 153
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tion and collection, transportation, resource recovery and 154

99 Administrative services in Jakarta are divided between treatment, and final disposal. 155
100 the province and the municipality. Under the provincial
101 government there are five municipalities: North Jakarta 2.1.1.1. Waste generation and collection system. The aver- 156
102 Municipality, Central, East, West and South Jakarta age generation of household waste amounts to 2.5 l/per- 157
103 Municipality (Fig. 1). Under the municipal government, son/day (!0.65 kg/day) (JETRO, 2002; JICA, 1987). A 158
104 there are four sub-levels, which are the kecamatan (coun- typical family of five members would produce over 3 kg/ 159
105 cil), kelurahan (village), rukun warga (RW), and rukun tet- day. Around 58% of the waste generated daily in Jakarta 160
106 angga (RT). The last two levels are known as is household waste. Most of the waste comes from the 161
107 ‘neighbourhood associations’, which are managed by the kitchen in the form of food waste and packaging; therefore 162
108 community representatives on a voluntary basis. Public the organic fraction of the waste is as much as 65% of waste 163
109 officials manage the provincial level down to the kelurahan. collected (Cleansing Department of Jakarta, 2004). A new 164
110 The administrative structure can be seen in Fig. 2. survey report as part of a master plan review project 165
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Fig. 1. Source: Central Intelligence Agency (2006) and AsiaMaya.Com (2006). A map of Jakarta showing its position in Indonesia and its five
municipalities.
166 (Cleansing Department of Jakarta, 2005) reveals that the The Cleansing Department of Jakarta has divisions in 171
167 average food and non-food content of waste generated in five municipalities that operate direct and indirect collec- 172
168 Jakarta is about 55% and 45%, respectively. The non-food tion systems. The direct collection system serves commer- 173
169 fraction has the composition shown in Table 1, where plas- cial, high-income residential and densely populated areas. 174
170 tic and papers are still dominant among others. It is carried out by three methods: (i) door-to-door collec- 175
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Generally, there are insufficient numbers of trucks and 198

skilled staff (e.g., planners and experts in MSW manage- 199
ment), and limited funds to provide a complete service. 200
The collection rate in Jakarta is averaging approximately 201
80% of 25,687 m3 of waste generated per day, whereas 202
official reports claim about 96% is collected (Central 203
Bureau Statistics, 2004; Cleansing Department of 204
Jakarta, 2004). The remaining uncollected waste normally 205
ends up in rivers and drains or in empty lots, or is sim- 206
ply burnt by households in their permanent bin in front 207
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of the house. 208
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2.1.1.2. Transportation system. Waste transportation from 209
sources or temporary transfer points to the final disposal 210
takes two different paths. Direct transportation, account- 211
ing for 70% of all waste collected, occurs where trucks 212
take the waste directly from the collection sites to the 213
landfill. Around 30% of the waste is transported via 214
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Fig. 2. Administrative structure of Jakarta Province.
transfer stations (Cleansing Department of Jakarta, 215
2005). 216
Table 1 Currently, the Cleansing Department of Jakarta 217
Components of ‘‘non-food’’ waste in Jakarta based on waste mass employs two transfer stations located at the north-eastern 218
Component % of all MSW area and receives solid waste mainly from the northern 219
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Plastic 12.99 part of Jakarta. The main function of the transfer sta- 220
Paper 21.00 tions is to take solid waste collected by regular trucks 221
Wood, bamboo 0.07 and to transfer it to larger compactor trucks. There is 222
Cloth, textile 0.61
Metal 1.09
no intermediate treatment at these transfer stations; how- 223
ever transport efficiency to the disposal site, which is 224
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Glass 1.97
Rubber, leather 0.19 around 40 km away, is increased. According to the 225
Batteries 1.33 JETRO report (2002), operation of the transfer station 226
Others (C&D, dirt, sand, etc.) 5.49 increases the productivity of collection vehicles from 1.7 227
Total 44.63 to 3 trips per day. If this investigation is correct, the pro- 228
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Source: Cleansing Department of Jakarta, 2005. posal to construct another seven transfer stations by 229
JWMC (2004) across the city could alleviate transporta- 230
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tion problems. 231

176 tion from each household by truck; (ii) jali-jali collection
177 where the truck announces the collection time by music, 2.1.1.3. Incineration. Currently, around 75% of waste gen- 232
178 usually the traditional ‘jali-jali song’, and residents bring erated is disposed of at the Bantar Gebang Landfill 233
179 waste to the truck by themselves; and (iii) private collection (Cleansing Department, 2005). The remainder is either 234
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180 where contracted private company trucks directly collect treated at source by small incinerators or by manual com- 235
181 waste from residential and commercial areas. Currently, posting. There are in total 21 small-scale incinerators with 236
182 there are about 20 private companies contracted by the a total capacity of about 22 tons/day, but only six are 237
183 Cleansing Department to undertake the collection in vari- currently operating. Most of the facilities are operated 238
184 ous kelurahan (villages) and central areas. Around 30% of improperly or at sub-optimum conditions because they 239
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185 city’s total waste generation is collected by this method have not been designed for high moisture content waste, 240
186 (Cleansing Department of Jakarta, 2005). have poor manual handling setups, poor operator skills, 241
187 The indirect collection system depends on either com- contaminated waste and high maintenance or fuel costs 242
188 munal bins or community collection. Communal bins in (JETRO, 2002). In general, smoke is the main impact 243
189 the form of either a container (!10 m3) or an open concrete caused by such incinerators, while others are still 244
190 bin (!6 m3) is placed close to communities so households unknown since no comprehensive study has been 245
191 can put their rubbish there prior to collection. In commu- undertaken. 246
192 nity collection, the neighbourhood association’s cleansing
193 workers collect wastes from households and haul them to 2.1.1.4. Final disposal system. The majority of the collected 247
194 the nearest temporary transfer point normally using hand- solid waste is transported to a single landfill site, called 248
195 cart. The Cleansing Department truck then collects the Bantar Gebang Final Disposal. This landfill is located 249
196 waste and transport it to a transfer station or directly to 40 km from central Jakarta, which is within Bekasi 250
197 a final disposal site. Municipality, West Java Province. Whilst it has been 251
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252 designed as a ‘sanitary landfill’, it is mainly being oper- A number of reduce–reuse–recycle (3R) initiatives have 301
253 ated on ‘controlled dump’1 principles. Consequently self- been introduced, mainly under project-based schemes, by 302
254 combustion occurred in 1999 and inhabitants near the community-based organization (CBOs) and non-govern- 303
255 landfill suffered from the impacts of haze and odour. That mental organization (NGOs). Generally, these have ceased 304
256 incident evoked the disquiet of the community around the to operate. Reasons for this include lack of community 305
257 landfill. Other problems are surface and groundwater con- awareness, poor ongoing commitment of the executing 306
258 tamination, odour problems, and other environmental agency to overcome problems that arise from the project, 307
259 impacts. Impacts on human welfare and health are among such as lack of appropriate trucks allocated to collect waste 308
260 the main concerns; however, the severity of the environ- already separated by households, and poor co-ordination 309
261 mental, social and financial impacts have not been with other urban systems. No economic incentives and 310
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262 determined. the absence of a regulatory system and its enforcement 311
263 Unfortunately, some waste is burnt at temporary trans- are other obstacles. 312
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264 fer points, on spare blocks of land, or even in front of According to van Beukering and Gupta (2000) only a 313
265 household premises in a permanent bin, creating smoke small portion of solid waste is recycled, in spite of the exis- 314
266 and odour impacts on surrounding areas. Some of the tence of a relatively large market for used products made 315
267 waste is dumped in unauthorized areas and some ends up from recycled materials, such as plastics, glass bottles, 316
268 in waterways, causing local flooding during the rainy sea- scrap paper and scrap metal. This view is difficult to sub- 317
269 son, as well as pollution of rivers and coastal waters. This stantiate since recycling is done mainly by the informal pri- 318
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270 may be partly due to low paid workers using the trucks for vate sector, especially scavengers, itinerant buyers, and 319
271 purposes other than waste transport. garbage truck helpers (Pasang, 2002; Sicular, 1992; World 320
272 According to JICA (1987), another landfill at Tangerang Bank, 2003). It occurs at four points: the household level, 321
273 District (Ciangir Landfill) was scheduled to operate from during collection, at temporary transfer points and at the 322
274 1995 to serve the western region of Jakarta. However, final disposal site (Sicular, 1992; World Bank, 2003). In 323
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275 due to strong opposition from surrounding residents, all councils and municipalities, the scavengers play an 324
276 partly a result of the poor management of the Bantar important role within the system, where they reduce as 325
277 Gebang Landfill, this plan has still not been implemented. much as 15% of the total waste generated daily (Pasang, 326
278 This is causing the Bantar Gebang Landfill to operate at 2002; Sicular, 1992; Trisyanti, 2004), even though their 327
279 600 tons/day over its design capacity of 4500 ton/day activities generally interfere with the safe and efficient oper- 328
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280 (Trisyanti, 2004). Operating beyond the design capacity ation of the sites. 329
281 and the economic crisis in 1997 have led to improper dis- Given the high content of compostable materials, solid 330
282 posal operations such as insufficient soil covering and waste composting was started in 1991 and it reached the 331
283 leachate treatment, creating pollution problems for the sur- maximum capacity of 24.2 tons/day in 2000 at 14 compo- 332
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284 rounding areas. sting facilities using windrow systems (JETRO, 2002). At 333
285 Under the JWMC project (2004), there are proposals for the time of writing, there are only around four compo- 334
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286 several new landfills to be built and operated by 2008 to sting facilities in operation, including a new one at the 335
287 provide additional capacity. The Cleansing Department is landfill site with a design capacity of about 50 tons/day 336
288 also looking for a new approach to solving the problems (Cleansing Department, 2005). As is common with other 337
289 (Cleansing Department of Jakarta, 2004). parts of the overall MSW system, a lack of strategic 338
development for composting has led to poor perfor- 339
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290 2.1.2. Recycling and composting system mance. Problems that have been encountered but not 340
291 To date, the Government of Jakarta has not systemati- solved include: lack of market development; lack of envi- 341
292 cally considered and applied recycling as an alternative ronmental guidelines to deal with odours, rodents and 342
293 when dealing with complex waste problems. The main other environmental impacts; contaminated feedstock; 343
294 existing focus is on landfilling or aspirations for high-tech- insufficient provision of space to operate and expand; 344
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295 nology solutions. This condition to some extent is similar and lack of quality control by untrained staff. More 345
296 to the case in Semarang, where Supriyadi et al. (2000) dis- important are the lack of community participation in 346
297 covered several factors supporting such attitudes: (i) the any initiative and poor local government management, 347
298 perceived low potential of recycling for waste reduction; especially in providing tool kits and guidance on how 348
299 (ii) problems in separate collection; and (iii) relatively inex- to make a better compost product at household and 349
300 pensive landfills. community level. 350
It is clear that an insignificant reduction in the quantity 351
of waste going to final disposal through recycling and com- 352
1
posting or other means is not only due to collection prob- 353
A controlled dump is an improved open dump with planned capacity,
lems, but also lack of commitment to introduce an 354
grading, and drainage in site preparation, partial leachate management,
and partial or no gas management. A permit system and technical control
appropriate system that fits with the characteristics of the 355
procedures in compliance with the national legislation in force (UNEP, waste and the community. To change this, a completely dif- 356
1996). ferent approach is advocated. 357
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358 2.2. Problems and constraints surrounding Jakarta’s waste culture where waste is seen first as a resource and secondly 387
359 management as something to be disposed of. The strong community 388
focus of neighbourhood associations provides an opportu- 389
360 The existing solid waste management system causes nity for people to take control of aspects of waste manage- 390
361 many problems. According to the work of various scholars ment where they can observe tangible improvements to 391
362 and the author (JICA, 1987; JWMC, 2004; Ogawa, 1996; their lives in economic, environmental and social ways. 392
363 Pasang, 2002; Sicular, 1992; Surjadi and Handajani,
364 1999), the problems of MSW management in Jakarta can 2.3. Towards sustainable municipal solid waste management 393
365 be divided into different aspects according to the strategic in Jakarta 394
366 aspect that can affect waste management, including techni-
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367 cal, institutional, financial, political, socio-economic, and Focusing on sustainable development in waste manage- 395
368 environmental constraints. Table 2 provides a complete list ment, as should be the case with other cities of developing 396
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369 of problems and constraints of Jakarta’s MSW manage- countries, the immediate issues are not greenhouse gases or 397
370 ment system. the ozone layer but rather lack of proper amenities for 398
371 Clearly, it is difficult to solve such complex problems, water, sanitation, and safe haven (Kironde and Yhdego, 399
372 which are characterized by the combination of a lack of 1997). Developing countries can only strive for sustainable 400
373 strategic planning, existing waste management infrastruc- development within their typical environmental problems, 401
374 ture and severely limited resources, which only focus on a such as climate circumstances and geographic locations, 402
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375 single approach, particularly landfill as mentioned above. social welfare and economic development consequences 403
376 A different approach in handling the waste appropriately (McDougall et al., 2001). Therefore, McDougall et al. 404
377 needs to be considered. (2001) suggest the implementation of sustainable waste 405
378 To move from the existing condition to a more sustain- management – the management of waste in an environmen- 406
379 able MSW management, there is a need to develop a gen- tally effective, economically affordable and socially accept- 407
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380 uine and realistic solution including initiating action that able way – could mean that trade-offs should occur and 408
381 fits with the actual waste generation, composition, and different approaches must be taken in order to reduce the 409
382 characteristics of the waste, as well as within the socio-eco- overall environmental burdens within an acceptable level 410
383 nomic context. To develop such a solution there is a need of cost. 411
384 to take a holistic view of the problem and incorporation However, since the main aim of MSW management sys- 412
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385 of those parts of the existing system that are appropriate. tem is to ensure human health and safety, as well as to be 413
386 At the same time it is important to engender a change of environmentally effective, economically affordable and 414
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Table 2
Problems and constraints of MSW Management in Jakarta
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Waste Problem Constraint

management
aspect
1. Technical " Existing landfill congested and new sites not yet prepared " Lack of trained staff at all levels
" Inoperative monitoring facilities (e.g., landfill weighbridge " Poorly maintained and designed infrastructure, trans-
inoperative) port and collection system
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" Uncontrolled scavenging at both within the city and landfill site " Limited research and development causes limited infor-
mation and technology option for Jakarta
2. Institutional " Some agencies have both operational and regulatory role " Lack of strong legal system to prosecute laws
" Lack of coordination among relevant agencies
3. Financial " Revenue from waste fees is too low to cover the costs of a com- " No mechanism of revenue collection
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plete waste management service " No concept of producers responsibility or polluters pay
" Potentially valuable resources going to landfill " Cost of environmental and health damage not
accounted in monetary value
4. Political " Arbitrary decisions made by a few staff based on expertise and " Public participation in decision-making does not exist
experience without sufficient data and information " No transparency in political processes
" Waste is not a fashionable political problem
" Corruption
5. Socio-economic " Health and safety of scavengers " Low awareness of health and safety issues
" Salary supplementation by workers through scavenging
" Health impact
6. Environmental " Illegal dumping causes health impact " No proper control of hazardous wastes
" Open incineration causes smoke pollution " Valuable resources (renewable and non-renewable)
" Non-renewable resources going to landfill going to landfill
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415 socially acceptable, the sustainability of MSW manage- environment. Most diplomatic and government offices are 468
416 ment could mean that it can maintain itself over time with- situated in Kelurahan Menteng, which is characterized by 469
417 out exhausting the resources upon which it depends. Such a large streets and high-class residential property. The others 470
418 system should be appropriate to the local conditions and are a mix of low, middle, and high-income households. In 471
419 feasible from a technical, environmental, social and eco- some areas the streets are too narrow for waste trucks, 472
420 nomic, financial, institutional and political perspective sometimes with only pathways. 473
421 (van de Klundert and Anshutz, 2001).
422 The greatest step taken by the Government of Jakarta 3.2. Waste generation and composition survey 474
423 was the completion of the Master Plan for Solid Waste
424 Management, widely known as the JICA, 1987JICA Mas- For the purpose of the project, over 1300 samples were 475
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425 ter Plan 1987 (1987). Through this plan, the very first data gathered by the Cleansing Department’s consultant from 476
426 on waste generation, composition and characteristics were 249 randomly chosen households during eight consecutive 477
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427 established as well as the introduction of a collection sys- days of survey in 2003 to determine the waste generation 478
428 tem, transfer station and sanitary landfill to be used widely and composition, as well as the size of container to be used 479
429 as a standard operation. However, due to the problems and to collect the waste (Cleansing Department of Jakarta, 480
430 constraints previously mentioned, the authority failed to 2003a). The survey method employed was targeted random 481
431 fulfil its ultimate target for Jakarta’s residents. Hence, there sampling, where households chosen were numbered and 482
432 is an urgent need to investigate the cause of poor waste asked to place their waste in sampling bags. The 20-L sam- 483
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433 management service and to recommend alternative pling bags were then collected by the surveyor the follow- 484
434 solutions. ing day to be weighed and sorted according to its type 485
435 Currently, there are two significant projects addressing and composition. Different colour bags for different types 486
436 waste management problems in Jakarta. These are the of household waste were used: green for organic waste 487
437 Western Java Environmental Management Program (food waste, leaf, wood, etc.), orange for non-organic 488
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438 (WJEMP) that is reviewing the 1987 JICA Master Plan, and paper (paper, metal, glass, etc.), white for plastic 489
439 and the PILKAB project investigating the role of micro waste, and yellow for hazardous waste (batteries, cosmetic 490
440 businesses and neighbourhood organizations in waste man- waste). 491
441 agement. The remainder of this paper is based on a case The average generation rate was 2.67 L/person/day or 492
442 study on this project. !0.67 kg/person/day. Compared to the only other sub- 493
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stantial waste survey conducted by JICA in 1986 (1987), 494

443 3. Waste management practices in Menteng Council there is no significant change from 2.5 L/person/day 495
reported. 496
444 A detailed investigation of the Menteng Council was The composition of the waste had also not changed sig- 497
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445 conducted, as described below. nificantly. Table 3 shows the volumetric percentage compo- 498
sition in three main classes for the 2003 and 1986 surveys. 499
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446 3.1. Study area characteristics The organic fraction of the waste had increased slightly. 500
Neither study determined the proportion of household 501
447 The assessment of MSW management practices at the waste sold to itinerant buyers or removed by scavengers. 502
448 community level was undertaken in Menteng Council situ- It was expected that, with the change in availability of 503
449 ated in the Municipality of Central Jakarta. This council packaged and consumer goods over the last 20 years, the 504
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450 was chosen because its characteristics are representative fractions would have altered; however it might be that most 505
451 of the Jakarta Province, where it has most types of urban of the increased packing or obsolete goods are considered 506
452 land-use, including main business offices, diplomatic and
453 government offices, high class residential zones and slum
454 areas (Cleansing Department of Jakarta, 2003a). Table 3
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Waste composition in Menteng Council

455 The population of the area of 652.46 ha is 81,822 per-
456 sons living in 20,124 households with an average occu- Component Volume (%)
457 pancy of four persons. There are five villages (keluruhan) CD, 2003 JICA, 1987
458 within the Council, each governed by a formal government Organic 70.80 60.00
459 officer. Each village then is divided into neighbourhood Paper 9.90 17.00
460 associations called rukun warga (RWs). There are around Wood 1.30 NA
Textile 2.90 5.00
461 38 RWs and 429 RTs – a smaller committee called rukun
Leather 0.20 NA
462 tetangga (RTs) (Cleansing Department of Jakarta, Metal 0.90 4.00
463 2003a). The governmental structure in Jakarta is depicted Glass 1.60 4.00
464 in Fig. 2. Plastic 12.20 10.00
465 Each RT typically consists of 40–60 households depend- Hazardous waste 0.30 NA
466 ing on the density of the area. Interestingly, the more den- Source: JICA (1987, pp. S2–23) and Cleansing Department of Jakarta
467 sely populated the area, the less clean the surrounding (2003a, p. V-4).
ARTICLE IN PRESS
507 valuable by the informal recycling sector and are not find- workers, such as security guards and cleansing workers, 556
508 ing their way into the household waste stream. are paid. 557
509 According to the information in the table, plastic Menteng Council is exceptional in that almost all of the 558
510 accounts for 12.20% of the waste, while among the inor- area (95%) receives waste collection services. The high level 559
511 ganic and paper fraction, waste paper accounts for 9.9%, of service compared to other councils in Jakarta is thought 560
512 metal 0.90% and glass 1.60%. Such materials provide recy- to be due to a government commitment to a clean city cen- 561
513 cling opportunities, while at the same time, a high fraction tre and the generally higher level of education of residents 562
514 of organic materials must be considered both in terms of of the area. Interestingly, almost 80% of household waste is 563
515 the additional problems it presents as well as potential collected by NA cleansing workers using handcarts, while 564
516 opportunities for income generation and material and the remaining wastes are collected through communal 565
F
517 energy recovery for households and for the community as bin, jali-jali and door-to-door collection using trucks, by 566
518 a whole. the Cleansing Department and its contractors, and similar 567
OO
agencies (Cleansing Department of Jakarta, 2003a). 568
519 3.3. Household waste storage A consultant report for the Cleansing Department of 569
Jakarta (2003b) identified five areas they believed were hin- 570
520 Temporary storage of waste at the household level is not dering improvement of waste management performance. 571
521 standardized. Observations found 10 types of temporary These were as follows: 572
522 storage containers including new plastic bags, used plastic
PR
523 and metal containers, dedicated portable rubbish bins, # low awareness of some community members of the envi- 573
524 and permanent concrete bunkers. Observations and discus- ronmental problems (e.g., flooding and health risks) 574
525 sions with RT officials and cleansing workers revealed a caused by illegal dumping; 575
526 number of problems with the various types of containers. # insufficient handcarts and other facilities to complete the 576
527 Foraging of waste by insects, rodents and domestic animals rubbish collection on any given day; 577
ED
528 creating litter and disease vectors were common. Open con- # limited space availability for temporary/secondary stor- 578
529 tainers encourage scavengers to pick through waste, which age points; 579
530 may reduce the total amount of waste disposed, but com- # fees charged to households for waste disposal were too 580
531 monly results in littering. Bunkers substantially reduced low at about IDR 1500/month (AUD 0.20/month or 581
532 the productivity of collection services and permit rainfall USD 0.15/month)3; and 582
CT
533 to increase the total weight of waste while permitting con- # household assistants, who usually have poor environ- 583
534 taminated leachate to enter the environment. mental awareness and education, establish the house- 584
535 It was found that most households surveyed required hold policy on waste management and recycling. 585
536 training to separate their waste into the required four 586
E
537 streams. Having received training and continuous guidance A significant omission in the study’s findings is the role 587
538 from environmental cadres,2 householders did reliably sort the reduction of waste generation rates might play in reduc- 588
RR
539 their waste for the period of the trial. However, since coor- ing the stress on existing facilities and genuine efforts to 589
540 dination between the NA’s cleansing workers and the facilitate the diversion of recyclable materials from the 590
541 Cleansing Department’s truck drivers was still weak, and waste stream. 591
542 separate collection was unavailable, there was no reason
543 for households to continue to separate waste after the 3.5. Existing financial arrangements 592
CO
544 end of the trial.

All households are required to pay double fees for local 593
545 3.4. Neighbourhood associations and waste management waste management services: the first fee (levied by the NA) 594
is to cover the NA’s expenses for collecting and transporta- 595
546 It is generally known that community collection by NA tion the waste from household to a temporary transfer 596
UN
547 workers plays an important role in MSW management in point. The second fee (levied by the Jakarta Treasury) 597
548 Jakarta, where they carry out primary collection and trans- was designed to cover the Cleansing Department’s 598
549 port the waste to temporary transfer points prior to collec- expenses for transporting the waste from the area. 599
550 tion by the Cleansing Department workers. Along with There appears to be no complaint so far about the NA’s 600
551 waste collection, the NA committees develop their own fee, because as community representatives most NA com- 601
552 programs, including collecting money from residents to mittees manage the money appropriately, providing 602
553 finance the activities such as security provision, street monthly reports to each household. Moreover, the fees 603
554 cleaning and other community activities. As volunteers, not only cover waste collection, but also cleanliness, secu- 604
555 all members of the committee are unpaid, but all of the rity guards and other activities of the the respective NAs. 605
Most households are usually happy to pay for the package 606
2
People who care for the environment and voluntarily take part in
establishing and campaign the cleanliness of their respective areas. In
3
Menteng Council they are mainly housewives. Exchange rate: AUD 1 = IDR 7200; USD = AUD 0.7547.
ARTICLE IN PRESS
607 of IDR 15,000/month (AUD 2/month). The actual fee is els of contamination of potentially recyclable materials by 649
608 varying from RT to RT depending on the agreement food and other waste. Despite this, there are still many 650
609 among communities. scavengers prepared to work in bins and at landfills to 651
610 In Menteng Council, the total revenue to the Treasury retrieve recyclable materials. The relatively low wage costs 652
611 was only around IDR 163,348,000 (AUD 22,687/year or would seem to favour a system of source separation and 653
612 USD 17,015/year) or AUD1.15/tonne (USD 0.86/tonne) separate collection. 654
613 of waste during the 2003 financial year, while operation Based on a micro-business survey for the project 655
614 and maintenance costs were around IDR 2,364,933,000 (Cleansing Department of Jakarta, 2003b), recyclable 656
615 (AUD 328,462/year or USD 247,890/year) or AUD16/ materials that have high value were paper, plastic, alumin- 657
616 tonne (USD 12/tonne) (Cleansing Department, 2003). This ium cans, and metal. The average price of each material is 658
F
617 means that only 7% of the expenditure was covered by shown in Table 4, based on the prices paid by scavengers 659
618 direct charges to the community and the government sub- and itinerant buyers prices to households. The price of bulk 660
OO
619 sidized around IDR 27,000/person/year (AUD 4/person/ compost product according to the survey and proposal 661
620 year or USD 3/person/year) or around AUD 1.7/house- submitted to the Cleansing Department is about IDR 662
621 hold/month (USD 1.28/household/month) for transporta- 200/kg (AUD 0.03/kg or USD 0.02/kg) and the value of 663
622 tion of waste from the area to the final disposal. The organic matter at source was assumed to be AUD 0.01/ 664
623 magnitude of the Treasury levy is regulated by the Govern- kg (USD 0.007/kg). 665
624 ment of Jakarta Decree No. 3/1999. However, most house- Using the waste composition and values in Menteng, the 666
PR
625 holds pay a fee lower than laid out in the Decree, usually as projection of daily value of recyclable and compostable 667
626 a result of public disobedience. This stems from distrust of materials is shown in Table 4. It is clear that the potential 668
627 the use of the money by the Government and a perception value of recyclable and compostable materials per year in 669
628 that the payment system is not practical. There are cur- Menteng Council is tremendously high: over AUD 670
629 rently no provisions in the Decree to penalize non-pay- 800,000 (USD 603,760), compared to total cost of opera- 671
ED
630 ment, illegal dumping or misuse of the waste disposal tion and maintenance of 2003: AUD 328,462 (USD 672
631 system. 247,890). Therefore, searching for a practical means of 673
realizing this value is of paramount importance in the con- 674
632 3.6. Market value of recyclable and compostable materials text of solving Jakarta’s waste problems. 675
CT
633 The mixture of waste reduces the possibility of recover- 4. A neighbourhood-based waste management model 676
634 ing material, as well as lowering significantly the commer-
635 cial value or price received due to high contamination of The remainder of this paper explores a neighbourhood 677
636 material intended for recycling (Berthier, 2003). The based waste management model. 678
E
637 method of collection and transport to achieve the best eco-

638 nomic outcome is highly dependent on the relative costs of 4.1. The difference between a neighbourhood and community- 679
RR
639 technology and labour, the value of recyclables and com- based organization 680
640 mitment of people involved in the system. In Australia,
641 with relatively high wage costs, many waste systems are In Jakarta neighbourhood-based organizations (NBOs) 681
642 moving to commingled collection of recyclable material are different than community-based organization (CBOs). 682
643 to reduce transport costs and utilize mechanized sorting CBOs are already widely recognized within the waste man- 683
CO
644 technology to provide low contamination levels of an albeit agement system. The main difference between the two lies 684
645 lower yield of recyclable material. in their status and function. In Jakarta, NBOs are formal 685
646 In Jakarta, except where high value recyclables are organizations within local government, while CBO’s are 686
647 sometimes removed at source, a mixed waste stream enters not part of the local government structure. Regarding their 687
648 the collection and transport system. This leads to high lev- function, NBOs with their formal status can be seen as an 688
UN
Table 4
The estimated value of recyclable materials in Menteng Council
Material Value/kg (IDR/AUD/USD) Tonnes/day from waste survey Value per day (AUD/USD)
Mixed paper 1,000/0.13/0.09 – –
Cardboard 600/0.08/0.06 4.86 388/292.82
Plastic (mixed) 1,800/0.25/0.19 6.48 1620/1222,61
Aluminium can, metal, etc. 500/0.07/0.05 0.49 34/25.66
Organic waste 72/0.01/0.007 38 380/286.78
Total 49.8 2,422/1,827.88
Source: Cleansing Department of Jakarta (2003c).
Note: Calculated on an exchange rate of AUD 1 = IDR 7200; IDR, Indonesia Rupiah; USD = AUD 0.7547.
ARTICLE IN PRESS
689 extension of local government to organize and perform Kironde and Yhdego (1997) suggested the introduction 744
690 community activities, while CBOs sometimes appear in of a neighbourhood model in Tanzania with four steps 745
691 the low-income areas that generally receive marginal or including: (i) definition of a neighbourhood model system; 746
692 no services in term of public transport, electricity, drinking (ii) trial of the system; (iii) evaluation of the system; and 747
693 water, sanitation, drainage and waste removal. These com- (iv) extension of the modified neighbourhood model 748
694 munities will sometimes take the initiative to organize system. 749
695 themselves with a direct goal of self-help and improving The first three steps have already been implemented 750
696 their living conditions (Surjadi and Handajani, 1999). within Menteng Council in the form of the NA’s activities. 751
697 To some extent, communities give more respect to the The following sections are the development of neighbour- 752
698 committee members of NBOs than CBOs. In most cases, hood-based waste management (NBWM), based on the 753
F
699 the NBO members are informal leaders and respected peo- existing NAs and their activity in waste management. 754
700 ple within the community, while the leader of the CBO is
OO
701 sometimes just a founder of the organization. Also, NBO 4.2.1. Institution and regulation 755
702 leaders do their tasks on a voluntary basis without any pay- Based on the results of Pil-KAB (Cleansing Department 756
703 ment, while in the Jakarta context most of CBO’s staff of Jakarta, 2003b) and discussion with some key persons in 757
704 receive some payment from the organization they work Menteng area, there are three key aspects of waste manage- 758
705 for, even sometime higher than the salary of local government that do not exist within the current system: (i) strate- 759
706 ment officers. Moreover, communities seem reluctant to gic and long-term planning; (ii) the involvement of the 760
PR
707 take part in informal organizations other than the NAs; community, which is low due to a weak relationship 761
708 especially if they have to pay additional fees over the for- between local government and the community, and (iii) 762
709 mal fees charged by the NAs. adequate data on waste generation, composition and char- 763
710 The success of one community-based waste management acteristics and their analysis. This makes it difficult to deli- 764
711 operation in Banjarsari, Jakarta, is an exception in organiz- ver an adequate and appropriate waste management 765
ED
712 ing composting of organic waste and paper recycling as system for the community. Such weaknesses can only be 766
713 presented by UNESCO (2000). The success is mainly due righted by a capable and solid organization, with strong 767
714 to the existence of a dedicated person, Mrs. Bambang, ownership by the community; however, the Pil-KAB pro- 768
715 who has been living, educating, working, and sharing her ject did not recommend any model for the NBWM except 769
716 expertise among the community on a regular basis. Since a mechanism of plastic-bag distribution and the establish- 770
CT
717 the project inception in 1996, there have been attempts to ment of a monitoring and environmental-watch team. 771
718 replicate such an approach in other parts of Jakarta; how- Within each neighbourhood association (RT/RW), 772
719 ever, most of them have failed. there is already a Cleansing Section (as an extension of 773
720 Therefore, it is argued that the best way to improve the Cleansing Section from council and village levels), so 774
E
721 waste services is to enhance and empower the organization there is no need to establish a new structure. More impor- 775
722 that already exists and is accepted by the community. The tantly, this organization has existed within the community 776
RR
723 probability of propagating an improved waste service for a long time, which results in a strong feeling of owner- 777
724 across the thousands of communities that make up Jakarta ship by community. This section does need to be upgraded 778
725 will be much higher if the community governance infra- and empowered through capacity building, especially in the 779
726 structure that already exists can be utilized effectively. area of waste management planning and the operation of 780
primary collection, resource recovery and financial 781
CO
727 4.2. Neighbourhood-based waste management model arrangements including fee collection. Moreover, as the 782
main aim of such an institution is to improve MSW man- 783
728 Initiatives to include CBOs in waste management along- agement, it should be based on the Jakarta context, includ- 784
729 side formal services are not new, especially for developing ing what already exists and what is suitable for the climate, 785
730 countries (Cleansing Department of Jakarta, 2004; JICA, geographic and socio-economic conditions. The proposed 786
UN
731 1987; Medina, 1997; Supriyadi et al., 2000). There are good structure for the upgraded institution can be seen in Fig. 3. 787
732 examples in India, Bangladesh, Ghana and Burkina Faso The figure presents a simple and workable structure, 788
733 (World Bank, 2005). Despite their differences, there are which is focused primarily on the collection of waste from 789
734 similarities between countries in Asia, Africa and Latin households and other premises within the respective area, 790
735 America. Often communities lack motivation because they as well as the education of people on cleanliness matters. 791
736 believe waste collection is a legal and obligatory responsi- This is done by the environmental section. A new section 792
737 bility of the municipality. Waste collectors gain insufficient – Micro-business – has been proposed and it has been sug- 793
738 extrinsic (financial) and intrinsic (social) rewards and gested that this section should undertake the daily business 794
739 incentives to collect the waste with high productivity and of financing the system for recycling and composting and 795
740 quality. Finally, municipal governments usually fail to see arrange for transport of residual untreated waste to final 796
741 the potential benefits that locally organized collection disposal and for payment of transportation fees. 797
742 schemes can bring to their own operations (van Beukering In order to make the system work, it is important to reg- 798
743 and Gupta, 2000). ulate the new arrangement including the fee structure at 799
ARTICLE IN PRESS
Kecamatan to provide clear information on the type, size and colour 839
(Council)
Coordination of the bins to be used and where each bin should be placed 840
prior to collection. It is also important to supply informa- 841
Rukun Warga
(RW ) tion on where and how to obtain containers or bins. 842
In terms of temporary transfer points, it seems more effi- 843
RT Rukun Tetangga RT cient and appropriate to convert the existing facility into a 844
(Chief)
small transfer station with resource recovery, especially the 845
recovery of recyclable and compostable materials. This 846
Secretary Treasurer Security Environmental Micro- kind of station could also minimize loading and unloading 847
Section Section business
time. Protection of the cleansing worker safety and health 848
F
is another issue that needs to be addressed by providing 849
Community Waste Recycling & safety boots, gloves, uniforms, safety helmets, etc. (see 850
OO
Education Collection Composting
Fig. 4). 851
Fig. 3. A proposed organizational structure of neighbourhood-based
waste management. 4.2.3. Incentives for household and government 852
Based on discussions with environmental cadre and a 853
number of households, incentives could be introduced in 854
800 both the local and central government levels. National and two ways. Direct incentives could take the form of free con- 855
PR
801 local regulation of solid waste; the structure and function tainers for temporary storage of wastes, and reduced or 856
802 of a neighbourhood association; and national and local zero NA fees. Indirect incentives could include better ser- 857
803 government regulation of recycling and composting for vices, such as additional security guards, or controls on 858
804 industry, institution, market, households, and other pre- unauthorized scavengers operating within the area. Financ- 859
805 mises needs to be in place if better and more sustainable ing for the incentives comes from selling recyclable materi- 860
806 waste management is to be achieved. The community edu-
ED
als and compost product under NBWM’s micro-business. 861
807 cation role is important as it will enable the residents to To encourage positive behaviour towards waste reduc- 862
808 maximize the financial return to the micro-business and tion and source separation, fees would be reduced from a 863
809 hence the RT, as well as create more environmental aware- standard level depending on the total amount of waste pro- 864
810 ness among the residents. duced, with no charge being made for uncontaminated 865
CT
recyclable and compost waste streams. The monitoring of 866

811 4.2.2. Technical aspect waste quantities and quality, and collection of fees would 867
812 The primary aim is to improve the performance of the be the responsibility of the environmental section of the 868
813 overall waste management service, especially primary col- NA. 869
814 lection at all levels of community. This could be done by
E
Introducing such incentives requires a transparent 870

815 the use of a variety of approaches and technologies in order approach from both sides as already exist under the NA 871
816 to deliver a more integrated and sustainable system. This
RR
system, where on the one hand households should not sell 872
817 condition seems in-line with some of the Pil-KAB recom- unwanted materials to scavengers or itinerant buyers, and 873
818 mendations (Cleansing Department of Jakarta, 2003b). on the other hand the NBWM should always get the best 874
819 These include upgrading and increasing the facilities to
820 support the primary collection adequately (e.g., hand carts,
821 shovels, containers, protective clothing, and other health
CO
822 and safety equipment for NBWM workers). The system

823 would also benefit from the use of a compartmentalized
824 bins, carts, containers, and trucks for different materials
825 to allow source separation and transport. An increase in
826 the number and training of NBWM workers to separate
UN
827 waste at transfer points should improve recycling and com-

828 posting, and the integration of waste pickers or scavengers
829 into the system need to be considered at both community
830 and official levels to perform appropriate services and to
831 cover all of the service areas.
832 Based on trial separation, it was perceived that stan-
833 dardizing containers is an excellent approach at the com-
834 munity level to increase the efficiency of collection,
835 recycling and composting. The following actions could be
836 taken: (i) to continue the public campaign on how separate
837 waste correctly; (ii) to schedule collection days and times
Fig. 4. Typical handcart and cleansing worker of neighbourhood asso-
838 and provision of appropriate collection facilities; and (iii) ciation in Menteng Council – Jakarta.
ARTICLE IN PRESS
875 price for the materials and provide the best service for the the waste was mixed again during collection. A special 912
876 community it represents. room or storage container was needed at the NA transfer 913
877 For government, whether provincial, municipal or local, station to store all of the recycling materials including plas- 914
878 the success of NBWM could extend to the wider economy tic and other inorganic materials such as paper, glass, alu- 915
879 and lead to wider community benefits. Reducing the bur- minium cans and metal. Without the storage container, 916
880 den on the government for primary collection and trans- scavengers could steal valuable materials. 917
881 portation could allow the Cleansing Department to focus By applying separate collection for each type of waste, 918
882 on improved services for transportation from temporary including the use of collection schedules and different hand- 919
883 transfer stations at the RT/RW level because the waste vol- carts or compartmentalized carts, most of the problems 920
884 umes to transport will be reduced and the efficiency of encountered could be solved. Such tasks could be easily 921
F
885 loading can be improved. Secondly, reducing the amount performed by the NBWM staff with support from cleansing 922
886 of waste, especially by removing all recyclable (see Section workers. However, since the main task of managing resid- 923
OO
887 4.2.4) and compostable materials (see Section 4.2.5) for col- ual waste still remains the responsibility of the Cleansing 924
888 lection will extend the life and reduce environmental Department, some support including public campaigns, 925
889 impact of the landfill and curtail scavenger activity at the target setting, training, monitoring and evaluation, coordi- 926
890 landfill. Finally, increasing revenues from selling recyclable nation meetings with related agencies and other strategic 927
891 materials and compost (raw materials and products) Jakarta-wide tasks would be required. 928
892 through the work of the NBWM will allow an overall
PR
893 greater flow of money in the waste economy with conse- 4.2.5. Neighbourhood-based composting 929
894 quent improvements in the environment across Jakarta. Since the percentage of organic material is high (about 930
70%) in Menteng Council and more than half of the waste 931
895 4.2.4. Neighbourhood-based recycling generated daily in Jakarta (58%), managing organic 932
896 Based on the findings during the project and field study, wastes is a challenging task. There are three possible ways 933
ED
897 introducing recycling through source separation at the in dealing with this material. Home-composting is an 934
898 household level was not a difficult task. Households were option for householders with sufficient space to conduct 935
899 eager to support any system that could provide benefits composting and apply the compost to their private gar- 936
900 and incentives for them. For example, they were more than dens. Community composting at the RT/RW or even vil- 937
901 happy to separate waste into four different plastic bags as lage and council level is more attractive and efficient due 938
CT
902 long as the bag was provided and the waste collected on to its economy of scale when space for household compo- 939
903 the scheduled day (see Fig. 5). Three problems arose during sting is not available (see Fig. 6). High quality compost 940
904 the project that need to be addressed appropriately. The product for parks and other green areas in the local area 941
905 amount of specially designed 20-L plastic-bags provided could be considered as a potential market or use for the 942
E
906 was less than the actual need of the households. Therefore, compost. Finally, the demand of pure organic materials, 943
907 they simply mixed the waste when the plastic bag was full. such as peelings, other by-products of food preparation, 944
RR
908 It is known that in Australia supplying small bins for resid- fresh produce and raw ingredients, leaves, and branches 945
909 ual waste and bigger bins for recycling encourages waste as a feedstock for a commercial composting plant could 946
910 reduction and recycling. A handcart used to collect the also be considered as a potential market for micro-busi- 947
911 waste had not been compartmentalized; therefore, all of nesses under NBWMs. 948
CO
UN
Fig. 5. Typical 20 l plastic-bag for source separation during the project. Fig. 6. Typical neighbourhood-based composting.
ARTICLE IN PRESS
949 It could be more attractive to the community if a com- 4.3. Neighbourhood-based waste management for Jakarta 987
950 mercial composting plant provided a special container to
951 store all of the compostable materials within the area for The study showed that around 80% of primary collec- 988
952 subsequent transport to the plant. tion within Jakarta is undertaken by the NAs through their 989
cleansing sections. People seem to trust the committee 990
953 4.2.6. Neighbourhood-based micro-business members of the NAs, and the fact that government at both 991
954 Micro-business is a new approach for the purpose of the local and central level does not have sufficient funding 992
955 increasing revenue from waste at the community level. As to improve the service, adopting and implementing the 993
956 well as enhancing the capacity of the NBWM to manage NBWM approach in Jakarta is a promising solution for 994
957 their business and contributing to fee collection, recycling the massive problems faced by the government. Careful 995
F
958 and composting business and financial arrangements, such evaluation, monitoring and adjustment might be needed, 996
959 a business could be one of the critical points for waste man- due to the different level of community involvement, 997
OO
960 agement in developing countries, since most of the vital socio-relationship and leadership in each RT/RW across 998
961 waste management activities are closely related to the Jakarta. 999
962 household and community. Since there are around 2663 RWs and 29,551 RTs, there 1000
963 The essence of the business would be to drive waste is unlikely to be a single NBWM approach to fit all neigh- 1001
964 management at the community level to deliver better ser- bourhoods. This diversity makes the task of the Cleansing 1002
965 vices, available to all levels of households, so all waste is Department to deliver high quality service using the cur- 1003
PR
966 collected and treated on a given day and as much finan- rent model very difficult. Changing to a distributed model 1004
967 cial value as possible is recovered from the waste. The where the responsibility for coping with local diversity is 1005
968 above expectation could be achieved if the business devolved to local communities that understand that diver- 1006
969 focused on five points, as follows: (i) all stakeholders at sity has the potential to be successful. The work of the 1007
970 the community level are consulted at the planning and Cleansing Department and other relevant agencies would 1008
ED
971 implementation stage; (ii) all households and other pre- be transferred from direct local service delivery to fostering 1009
972 mises pay for the service, either the formal or RT/RW tar- a local waste management system based on the characteris- 1010
973 iff, and share in the benefits of the business; (iii) all tics and needs of community. Considering the expected 1011
974 recyclable and compostable materials are recovered at outcome of this approach, as well as the changing process 1012
975 maximum levels as a means of minimizing the amount within the existing system, local policies and regulations, 1013
CT
976 of waste collected and transported to the final disposal and their enforcement, are extremely important and would 1014
977 site; (iv) all recovered materials are sold at a reasonable need to be modified or developed to enable the new 1015
978 price; and (v) the remaining wastes are collected regularly structure. 1016
979 by the authority or its contractors.
E
980 As the micro-business would belong to the community 5. Conclusion 1017

981 and would be managed by its representatives on behalf of
RR
982 the community, it is important for the committee to apply An extensive study and field survey identified numerous 1018
983 ‘transparent management’ under the NAs. This must problems and constraints that hinder the application of 1019
984 include the community program, fee administration, the more sustainable MSW management in Jakarta. Interest- 1020
985 collection system and all financial aspects. A typical ingly, based on direct investigation, they are not so much 1021
986 micro-business activity is illustrated in Fig. 7. related to financial and technical aspects, but rather to 1022
CO
vision, commitment and policy initiatives such as long-term 1023

planning, revenue collection, sharing disposal facilities, 1024
level of stockholder participation, and transparency in 1025
decision-making. 1026
To foster more sustainable MSW management, there is a 1027
UN
need to find and develop a genuine and realistic solution, 1028

including initiating action that fits with the actual waste 1029
generation, composition, and characteristics, as well as 1030
the socio-economic context. Because of the extensive nature 1031
of the problems, a new approach would best be designed to 1032
build upon the existing system. It is vital that there is strong 1033
community involvement, particularly in source reduction, 1034
and that the system is cost neutral or provides financial 1035
benefit to the community. As neighbourhood associations 1036
already exist within Jakarta’s formal government structure 1037
and have been an important part of the community for long 1038
time, they may provide a promising management unit for 1039
Fig. 7. Typical micro-business of recycling materials in Jakarta. implementing alternative solutions. 1040
ARTICLE IN PRESS
1041 An experimental study through the Pil-KAB project in Cleansing Department, 2003. Micro-business Report of Pilot Project of 1097
1042 Menteng Council, Jakarta, and field study by the author Waste Management with Separation System. Cleansing Department of 1098
Jakarta, PT. Arkonin Engineering Manggala Pratama, Jakarta, 1099
1043 have demonstrated a range of lessons to be learned and Indonesia. 1100
1044 could be used as the basis of the development of a new Cleansing Department, 2005. Draft Final Report Solid Waste Manage- 1101
1045 approach in MSW management at the community level. ment for Jakarta: Master Plan Review and Program Development. 1102
1046 Introducing this approach would not change the nature Cleansing Department of Jakarta, PT Unisystem Utama, IRMA ASIA 1103
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Neighbourhood-based waste management: A

Article in Waste Management · February 2007

Graham Andrew Moore

Copper deficiency and lignification View project

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Waste Management xxx (2006) xxx–xxx

2 Neighbourhood-based waste management: A solution for solid

22 1. Introduction waste generated in developing countries. Medina (1997) 38

0956-053X/$ - see front matter ! 2006 Published by Elsevier Ltd.

2 H. Pasang et al. / Waste Management xxx (2006) xxx–xxx

tion and collection, transportation, resource recovery and 154

H. Pasang et al. / Waste Management xxx (2006) xxx–xxx 3

4 H. Pasang et al. / Waste Management xxx (2006) xxx–xxx

Generally, there are insuﬃcient numbers of trucks and 198

tion problems. 231

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6 H. Pasang et al. / Waste Management xxx (2006) xxx–xxx

Waste Problem Constraint

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stantial waste survey conducted by JICA in 1986 (1987), 494

Waste composition in Menteng Council

8 H. Pasang et al. / Waste Management xxx (2006) xxx–xxx

544 end of the trial.

H. Pasang et al. / Waste Management xxx (2006) xxx–xxx 9

637 method of collection and transport to achieve the best eco-

10 H. Pasang et al. / Waste Management xxx (2006) xxx–xxx

H. Pasang et al. / Waste Management xxx (2006) xxx–xxx 11

recyclable and compost waste streams. The monitoring of 866

Introducing such incentives requires a transparent 870

822 and safety equipment for NBWM workers). The system

827 waste at transfer points should improve recycling and com-

12 H. Pasang et al. / Waste Management xxx (2006) xxx–xxx

H. Pasang et al. / Waste Management xxx (2006) xxx–xxx 13

980 As the micro-business would belong to the community 5. Conclusion 1017

vision, commitment and policy initiatives such as long-term 1023

need to find and develop a genuine and realistic solution, 1028

14 H. Pasang et al. / Waste Management xxx (2006) xxx–xxx

ment in urban Tanzania: towards a community based approach. 1130

H. Pasang et al. / Waste Management xxx (2006) xxx–xxx 15

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