Designing a Sanitary Solid Waste Landfill Site, a case study Partnership between

Indore Municipal Corporation, Madhya Pradesh, India With City of Garland, Texas, USA Sept 2002-Sept 2004

Resource Cities Cooperative Agreement LAG-A-00-99-00020-00 and

CityLinks Leader with Associates Cooperative Agreement GEW-A-00-03-0002

Prepared for

U.S. Agency for International Development (USAID) Bureau for Economic Growth, Agriculture, and Trade Office of Poverty Reduction, Urban Programs Team and USAID/New Delhi Prepared by

International City/County Management Association (ICMA)

RC Program Team ICMA US : 1. Mr. Jon Bormet, Director Resource Cities/City Links 2. Ms. Corinne Rothblum, Partnership Manager ICMA India 1. Ms. Manvita Baradi, Director ICMA India Programs 2. Ms. Meghna Malhotra, Program Manager USAID India 1. Mr. N. Bhattacharjee, Program Manager, EGAT/India 2. Ms. Renu Sehgal, Program Assistant, EGAT/India Partnership Teams First exchange: November 29-December 8, 2002, Indore, India 1. Mr. Jeff Muzzy, City Manager 2. Ms. Marsha Meeks, Assistant City Manager 3. Mr. Pat Fowler, Director of Community Services Second exchange: March 15-23 2003, Garland, Texas 1. Mr. Kailash Chandra Vijayavargiya, Mayor 2. Mr. Jagdish Dagaonkar, City Engineer 3. Mr. Nitesh Vyas, Municipal Commissioner 4. Mr. Madhu Verma, Mayor in Council Member* 5. Mr. Samir Chitnis, Mayor in Council Member* 6. Mr. Chetan Vaidya, INDO-US FIRE Project** *Funded by the Indore Municipal Corporation **Funded by the INDO-US FIRE project Third exchange: February 9-13, 2004, Indore, India Participants: 1. Mr. Jeff Muzzy, former City Manager of Garland 2. Mr. Lonnie Banks, Manager of the City of Garland Landfill 3. Mr. Skip Bambard, Director of Solid Waste and Recycling Service for the City of Garland Fourth Exchange: May 24-28, Garland, Texas (two visits from Indore to Garland were combined) 1. Mr. C.B. Singh, Municipal Commissioner 2. Mr. Lalit Porwal, Incharge Revenue Department, 3. Mr. Ramesh Mandola, Incharge Health Department, IMC 4. Dr. A.K. Puranik, Chief Public Health Officer 5. Mr. Anoop Goyal, Executive Engineer, IMC. Fifth Exchange: July 19-23, Indore, India 1. Mr. Skip Bambard, Solid Waste Expert 2. Mr. Adrian Lall, Electrical Engineer, City of Garland. Sixth Exchange: September 2004 1. Ms. Marsha Meeks, Assistant Engineer 2. Mr. Skip Bambard, Solid Waste Expert 3. Mr. Adrian Lall, Electrical Engineer

SPECIAL THANKS GO TO: 1. 2. 3. 4. 5. 6. 7. 8.

Mr. Akash Tripathi, Municipal Commissioner, IMC Mr. Narendra Surana Mr. Sunil Garg Mr. P.U. Asnani Mr. S.N. Tiwari Mr. Suneja, SE Public Health Engineering Deptt. Mr. Ashish Jain Dr. Verma

Resource Cities Program Indore Municipal Corporation, Madhya Pradesh with City of Garland, Texas, USA Designing a sanitary solid waste landfill site I.

Indore City Profile

Form of Government

The Indore Municipal Corporation is governed by the provisions of the Madhya Pradesh Nagar Palika Nigam Adhiniyam, 1956. The city is divided into 69 wards which have been grouped under 11 zones for decentralization of administration. The Mayor is appointed by direct election and he appoints a 10 member Mayor-in-Council, one member for each Department. This has replaced the earlier system of a Standing Committee where members of the Standing Committee were chosen by the councilors. The constitution of Ward Committees is required by law. However, this has not yet taken place. Each Ward Committee would consist of the Councilor elected from that ward and two other persons nominated by the Mayor.

Population Area (in square kilometers) No. of Households Density of population Budget (in local currency), year 2001-02 Budget (equivalent in US dollars) Major Types of Revenue Sources in FY2003 Other Distinguishing Characteristics

1.59 million 130.17 319488.2 12221 persons per sq. km. Insert Insert Property tax, water tax, grants from state government. Indore is the largest city in Madhya Pradesh and is its trade and commercial capital. Indore City is 14th among the 27 million-plus cities of India, enumerated in the 2001 census and close to 1.5 million people currently live in the city. In 1870, the first municipality was constituted in Indore. With the formation of the Municipality, the rulers of the Indore State, the Holkars, initiated some bold initiatives. Trade and Commerce were given leverage to strengthen the city economy to ensure a positive growth. Piped water supply system was established at the turn of the century to cope with the demand of the city. Realizing the potential of new industries, the Holkars invited Mr. Patrick Geddes, who prepared the first authentic `master-plan’ for the city. Soon the municipality became the first city to have an elected municipal government responsible for the welfare and growth of the city. A city improvement trust was created and sanitation and waste disposal was undertaken in a scientific and planned manner.

URL

IMC’s key municipal functions include construction and maintenance of road, water supply, drainage, sewage, street lighting and waste management facilities. In response to pressures on its finances it undertook several measures to strengthen its revenue base. Although these initiatives have helped IMC to increase revenues to a significant extent, additional changes are required to improve the revenue base and meet new challenges. In this context, this study carried out an indepth assessment of IMC’s revenue base and identified ways of strengthening it. www.indorenagarnigam.com

II. Introduction The USAID funded, ICMA Resource Cities Program, which partners U.S. cities and counties with counterparts in developing and transitional countries to help improve urban management and service delivery, is in full swing in India as the program prepares to wrap up its first three exchanges. One such exchange is that of the Indian city of Indore Municipal Corporation, Madhya Pradesh with City of Garland, Texas. The two cities have come together to create some dramatic and sustainable improvements in a number of areas. The primary focus of the partnership has been in improving solid waste management in the city, resource mobilization initiatives and citizens’ participation was an overarching objective. Indore has been receiving technical assistance through USAID’s Financial Institutional Reform and Expansion Project/Phase 2 (USAID/FIRE-2), which is dedicated to mobilizing resources at the local level to ensure that cities meet their infrastructure requirements. USAID and FIRE-2 believed that a Resource Cities partnership could be an excellent way to complement and leverage the technical assistance that FIRE-2 is providing. In light of the directive from the Ministry of Environment and Forest and Supreme Court to all cities in India to mange municipal solid wastes scientifically, Solid Waste Management emerged as a focus area for Indore to gain from the partnership. III. Problem Statement Solid Waste Management is one of the most essential services for maintaining the quality of life in the urban areas and for ensuring better standards of health and sanitation. In Indian cities, this service falls short of the desired level, as the systems adopted are outdated and inefficient. Institutional weakness, shortage of human and financial resources, improper choice of technology, inadequate coverage and lack of short and long term planning are responsible for this inadequacy of services. The city of Indore also faces these deficiencies in varying degrees and there was a need felt to make changes, As per the 2000 Supreme Court directive, all Indian cities have to comply with MOEF Solid Waste handling guidelines by Dec 2003. Cities have to improve their solid waste primary collection, transportation and disposal systems. Refer Annexure A for seven steps that urban local bodies have to comply with.

Indore City is 14th among the 27 million-plus cities of India enumerated in the 2001 census and close to 1.5 million people currently live in the city. Indore has seen a rapid population growth. The decadal population growth between the years xx and xx rate of 46.34 during the last decades. Insert population growth graph. The Department of Solid Waste Management is under the Chief Health Officer who is assisted by 4 health officers, 22 sanitary inspectors, 22 sanitary sub inspectors and 80 darogas for keeping the city clean. The city has 2800 street sweepers who work from 6:30 to 12:30 pm. The entire corporation is divided into four zones and accordingly the SWM department has four divisions each headed by one health officer. The city has no system of storage at source. Most of the population dispose off the waste on streets, open spaces, drains etc. Segregation of waste is also generally not practiced. The system of door-to-door collection although has been started as a pilot in a few areas of Indore, it hasn’t scaled up to cover major areas of Indore. It is estimated that the city generates about 600 MT of garbage per day, out of which only xx MT is collected by the Corporation. Sr.No 1 2 3

(in tons) SW generated SW collected SW composted

1999-2000

2000-01

2001-02

2002-03

There is also a problem with waste storage depots. At most places, the waste is stored in open spaces at the junctions of the roads, market places. Insert pics Disposal of Waste: IMC has a 125 acre land, which is 7 kms away from the IMC boundary. This site is being used for the last 25 years. The trenching ground is very poorly managed; the waste remains exposed and therefore, causes nuisance, foul smell, smoke and environmental pollution of ground-water, air and soil. Frequent fires at the ground also releases harmful dioxins in the air. Such crude dumping also endangers underground water resources as they cause subsoil water contamination IMC does not compost any waste as of now. It has given a contract to a private organization to initiate composting on a piece of land abutting the trenching ground, however this facility is yet to start. Insert pics Transportation The transportation of trash to the landfill takes a long time. The farthest point from IMC to the landfill site is about 20 kms. As a result, the limited trucks available to the

Municipality are kept transporting waste to the trenching ground. This cost of transportation also has gone up from xx Rs in 1995-96 to xx Rs. In 2002-03. Sr.No Item of Expenditure 1999-2000 Establishment Cost Transportation of Waste Tools for Sweepers Wheel Barrows/containerized handcarts Dumper Placer

2000-01

2001-02

2002-03

Procurement of small vehicles Garbage Bins procurement The partnership chose solid waste management issues to be a primary area of focus and worked to solve problems in waste collection and disposal so as to promote public health and environmental protection. The partnership aimed at assisting IMC in designing a sanitary landfill site and developing basic management principles to be implemented at the landfill. It also further aimed to conduct a feasibility of building a transfer station and its management guidelines. IV. Project Description The Resource Cities partnership between Indore Municipal Corporation and City of Garland began in December 2002 when a delegation from Garland visited Indore and signed a MOU. This first visit focused on diagnosing the specific problems which the two cities would attempt to fix together and create a work plan and timeline for these improvements. It was apparent that solid waste management was an important concern for IMC in the light of the Supreme Court deadline. The team during the first visit saw the IMC’s primary collection, transfer of waste and visited the landfill site. After the Supreme Court directive, Indian cities have started taking a number of measures towards improving solid waste collection, transfer and disposal. Whereas the maximum compliance can be seen in the area of improvement in solid waste collection (101 cities out of 128 class I cities have daily street sweeping, 42 cities have initiated door

Landfills are defined as areas of land built up with layers of solid waste and covered with soil or other types of covering. Landfill sites are made up of: • A liner system • Storage space for the waste, usually arranged in cells • A leachate collection system • A gas collection system • A cover or capping

to door collection1) the compliance in construction of landfill is almost nil (1 city out of 128 class I cities). As ongoing efforts under the Indo-US FIRE (D) Project, IMC had initiated improvements in collection and transportation of waste. Therefore, it got clear during the discussions and deliberations that landfill design and management should be an area where IMC could benefit from Garland’s expertise. The Municipal Solid Waste Management and Handling Rules, 2000 was shared with Garland officials to enable them to design with Indian criterion and specifications. Please see annexure B for Schedule III –Specifications for Landfill Sites

The teams decided a course of action and data required during Garland’s second visit to Indore. 1. Goals: i. ii. iii. iv. v.

To develop landfill master plan for minimum of 20 yr life. To Develop a lined cell layout To provide for construction and demolition Debris disposal in an unlined area To develop daily operations plan To develop equipment, purchase and maintenance cycle

It was decided that the Landfill master development plan and design would include: • • • • • • • • • • • •

cell design layout of cells layout of leachate collection system Leachate treatment options Layout of construction and demolition cells landfill roads landfill infrastructure daily operational plan daily cover excavation plan landfill gas control plan groundwater monitoring plan landfill equipment procurement plan

Garland experts explained the basic components of a landfill and the benefits and use of each component of the landfill. 2. The basic parts of a landfill are: 1

Source: Status of Implementation of Municipal Solid Waste (Management and Handling) Rules, 2000 in Class I cities of India- a presentation by Mr. P.U. Asnani.

a. Bottom liner system - separates trash and subsequent leachate from

b.

c.

d.

e.

f. g.

groundwater. A landfill's major purpose and one of its biggest challenges is to contain the trash so that the trash doesn't cause problems in the environment. The bottom liner prevents the trash from coming in contact with the outside soil, particularly the groundwater. For Municipal Solid Waste landfills, the liner is usually some type of durable, puncture-resistant synthetic plastic (polyethylene, high-density polyethylene, polyvinylchloride). Cells (old and new) - where the trash is stored within the landfill. Perhaps, the most precious commodity and overriding problem in a landfill is air space. The amount of space is directly related to the capacity and usable life of the landfill. If you can increase the air space, then you can extend the usable life of the landfill. To do this, trash is compacted into areas, called cells, that contain only one day's trash. This compression is done by heavy equipment (tractors, bulldozers, rollers and graders) that go over the mound of trash several times). Once the cell is made, it is covered with six inches of soil and compacted further. Cells are arranged in rows and layers of adjoining cells. Storm water drainage system - collects rain water that falls on the landfill. It is important to keep the landfill as dry as possible to reduce the amount of leachate. To exclude rainwater, the landfill has a storm drainage system. Plastic drainage pipes and storm liners collect water from areas of the landfill and channel it to drainage ditches surrounding the landfill's base. Leachate collection system - collects water that has percolated through the landfill itself and contains contaminating substances (leachate). Water percolates through the cells and soil in the landfill. As the water percolates through the trash, it picks up contaminants (organic and inorganic chemicals, metals, biological waste products of decomposition). This water with the dissolved contaminants is called leachate and is typically acidic. To collect leachate, perforated pipes run throughout the landfill. These pipes then drain into a leachate pipe, which carries leachate to a leachate collection pond. Leachate can be pumped to the collection pond or flow to it by gravity. The leachate in the pond is tested for acceptable levels of various chemicals (biological and chemical oxygen demands, organic chemicals, pH, calcium, magnesium, iron, sulfate and chloride) and allowed to settle. After testing, the leachate must be treated like any other sewage/wastewater; the treatment may occur on-site or off-site. Methane collection system - collects methane gas that is formed during the breakdown of trash Bacteria in the landfill break down the trash in the absence of oxygen (anaerobic) because the landfill is airtight. A byproduct of this anaerobic breakdown is landfill gas, which contains approximately 50 percent methane and 50 percent carbon dioxide with small amounts of nitrogen and oxygen. This presents a hazard because the methane can explode and/or burn. So, the landfill gas must be removed. To do this, a series of pipes are embedded within the landfill to collect the gas. In some landfills, this gas is vented or burned. More recently, it has been recognized that this landfill gas represents a usable energy source. Covering or cap - seals off the top of the landfill Groundwater Monitoring: At many points surrounding the landfill are groundwater monitoring stations. These are pipes that are sunk into the groundwater so water can be sampled and tested for the presence of leachate chemicals. The temperature of the groundwater is measured. Because the temperature rises when solid waste decomposes, an increase in groundwater

temperature could indicate that leachate is seeping into the groundwater. Also, if the pH of the groundwater becomes acidic, that could indicate seeping leachate. The Garland delegation explained the entire process and data requirements to design a landfill site. 3. Data Requirements a. site survey topo map (2 mt. Contour) of the identified trenching ground Insert autocad map b. Geological and geotechnical information- The purpose of the any geotechnical investigation is to determine the various type of soil and related soils strata located on the landfill site. Additionally, a hydrogeologic (groundwater) evaluation is conducted in conjunction with the geotechnical investigation to determine existing pre-landfill groundwater conditions. Geotechnical Investigations are conducted by using a machine capable of auguring (drilling) holes in the ground and then sampling soils at specific depths. The machine uses a solid flight hollow stem auger. As the machine drills the hole, a Geotech (geotechnical engineer or geologist) continuously logs (records) the depth and types of soils being brought out of the hole by the auger flight. Ever 1.5-meters, or when ever there is a change in soils type, the Geotech will have a sample taken using a split spoon sampler. Each sample needs to be properly preserved and sent to a soils laboratory for analysis. Types of soil tests required on each sample are listed below. Four of the nine holes shown need to be drilled to a minimum depth of 50-meters. The presence or absence of groundwater will be noted on the soils log. The Garland team then worked out a groundwater sampling plan on the Landfill site drawing. Indore hired consultants to get topographical drawings and geo-technical data for location of landfill. The following stratum was found at the Indore trenching ground site: Insert pic c. hydrological data Piezometer Installation: Five auger holes shown on the Indore Landfill Drawing are marked as Piezometers. These holes need to be drilled to a depth of 5meters into the water table. Development of Groundwater Sampling Plan: After the completion of their installation, each piezometer shall be developed by hand purging, with a baler, five well volumes of water. The groundwater recharge rate (time to return to static water level) of each piezometer shall be recorded for entry into the Groundwater sampling plan. After installation of the piezometers, and each month thereafter for a period of twelve months, the conductivity, pH, temperature, and depth to groundwater shall be determined. Additionally, immediately after each piezometer is developed, groundwater samples shall be collected for laboratory analysis as shown below.

For each piezometer, samples shall be collected for laboratory analysis every three months until the permanent groundwater monitoring wells are located, installed and developed. Location and Installation of Permanent Groundwater Monitoring Wells: The location depth and development of each groundwater monitoring well will be based upon the information collected from each piezometer. IMC conducted Groundwater quality analysis as per IS 10500 at seven points near to the proposed site on 6th July 2004. The following information was collected: Insert table info below Sr Test Name

1

Units

Standard Permissible Limit

Excessive Limit

Results

Physical Temperature Odour Taste Turbidity

4. Budget: Costing of a landfill construction for IMC

The following budget heads were given to IMC for developing a budget based on availability of resources (human, technical know-how etc.)

Sr.

INDORE LANDFILL DEVELOPMENT PRELIMINARY BUDGET DESCRIPTION QUANTITY UNIT COST

TOTAL COST

Site Topographic Survey/ With Monuments

1.

2.

Geologic & Geotechnical Investigation

3.

Hydrological Study

4.

Locate & Install Groundwater Monitoring Wells

5.

First Year Groundwater Analysis

6.

Site Fencing

7.

Site Roads Buildings • Administrative Buildings • Maintenance Building • Parts Storage

8.

9.

1st Cell Construction Costs

10.

Landfill Equipment • Steel Wheel SW compactor • Bull Dozer • Excavator

11.

1st Years Operations Budget

Lump Sum 12-100 foot deep borings with core and laboratory testing (1,200-LF) Lump Sum 4-wells 100 foot deep (400-LF) 4-Quarters 18,000 Linear Feet 1,500 Linear Feet Based on need See table No.xx

See Table No. xx

Table No.XX: CELL Budget items ITEM NO. 1. 2. 3. 4. 5. 6. 7. 9. 10. 11. 12. 13. 14.

DESCRIPTION Mobilization & Demobilization Excavation (subgrade) Groundwater Subdrain Groundwater Sump, Pump & Controls Compacted Clay Liner HDPE Liner (Smooth Bottom) HDPE Liner (Textured Sideslope) Leachate Chimney 18-inch Ø HDPE PIPE 18-inch Ø HDPE PIPE (Perforated) 6-inch Ø HDPE PIPE 6-inch Ø HDPE PIPE (Perforated) Leachate Collection Sump, Pump & Controls

QUANTITY

UNIT

UNIT PRICE

Lump Sum

N/A Cu ft. LF

N/A

Lump Sum

N/A

N/A

CY Sq. ft. Sq. ft. Feet Feet Feet Feet Feet Lump Sum

N/A

N/A

TOTAL

Leachate Collection Sump Concrete Vault Geocomposite Drainage Layer Exposure of Cell#1 Liner 12-ounce geotextile fabric Protective Cover Layer Flexible Base Concrete Encased 6-inch Ø PVC Schedule 80 (Double Walled) Pipe 3-inch Ø PVC Schedule 80 (Leachate Return Line)

15. 16. 17. 18. 19. 20. 21. 22. 23. 24. 25.

Lump Sum

N/A

N/A

Sq. ft. Feet Sq. ft. Cu ft. Ton Feet Feet

4-inch Ø PVC Electrical Conduit

Feet

30-inch Ø CMP (Corrugated Metal Pipe) Subgrade Borrow

Feet Cu ft.

Table No: xx, Indore Landfill Maintenance Budget Outline ITEM # 1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12. 13. 14. 15. 16. 17. 18. 19. 20.

DESCRIPTION Salaries Overtime Office Supplies Minor Tools Parts Fuel & Lubricants Safety Supplies Communications (Radios) Phone Copies Vehicle Replacement Reserves Equipment Replacement Reserves Vehicle Maintenance Equipment Maintenance Ground Water Monitoring & Laboratory Testing Equipment Rental Postage & Mail Service Dues & Memberships Professional Training Subscriptions

BUDGET

During the second Indore visit at Garland, the Indore delegation was shown Solid Waste & Recycling Hinton landfill site. They were also exposed to Garland city’s solid waste collection system and its financial management plan for its entire solid waste services. The team was inspired to convert its trenching ground into a sanitary landfill site and establish landfill management guidelines. Insert pics

The process of designing continued to the third Garland visit to IMC. Mr. P.U. Asnani, member of Supreme Court also participated in the discussions with the experts from Garland and IMC. Mr. Asnani had made a SW action plan for IMC in 1999 and his inputs along with Skip Bambard’s expertise gave comprehensive advice to IMC in improving their SW collections to designing of a landfill site and a transfer station. The delegation visited the trenching ground on the first day and saw the pilot project of landfill implemented by IMC in an area of 100 feet by 60 feet. Insert pics The team has made recommendations for improvements in the collection and transport of solid waste materials. They have also produced a detailed design for a sanitary landfill. vi.Solutions Indore has already begun to implement some of the collection system improvements agreed to by the team. They have also created a sample section of the sanitary landfill which is already up and running. Indore will study and modify the design if necessary and then spread the system to the entire landfill area. vii.Benefits Indirect benefits exist outside the realm of solid waste management as well. The city of Indore learned about public works projects and how they can be carried out in an efficient and effective manner. They were shown that they would be expected to demonstrate leadership, responsibility, and cooperation to accomplish their goals. These lessons can carry through to any type of task undertaken by Indore. Indore officials, by visiting Garland, were also able to see a successful functioning local government which deals with conditions similar to the ones they are facing. Exposure to a complete solid waste management system allowed them to better understand the processes involved to reach this end, to foresee the benefits of a community with such systems in place, and to better realize their role in creating these transitions and their role once these new systems are in place. Garland officials also benefit by forcing themselves to break down systems that have been in place, unquestioned for years. They were able to better understand and appreciate the benefits of their own processes and by examining them in a new light, potentially come across ways to improve them. They have been able to recognize the universal application of their skills and knowledge and use them in a very different setting. Indian cities have far fewer resources available to them for service delivery than American cities do and by seeing how much Indore has done with such limited resources, Garland representatives were able to gain a greater appreciation for the amount of resources and revenues that they do have at their disposal and be more creative in their usage. Most importantly, they are able to assist a partner city, struggling with problems that they once struggled with and helping that city to attain a successful solution in the best way they can. .

Way Forward Indore has stated an ambitious path for their solid waste management program. . For Indore to achieve it, they will require much initiative and cooperation by city officials to mobilize the design and implementation of these projects.

ANNEXURE A Seven steps for compliance to MSW Rules 2000 Prepared by Mr. P.U. Asnani, Member Supreme Court Committee on Solid Waste Management. 1. Storage of waste at source in two bins one for biodegradable waste and another for recyclable material. 2. Primary collection of biodegradable waste on a day to day basis from the doorstep using containerized tricycle/handcarts/pick up vans, and collection of recyclable material through NGOs. 3. Street sweeping covering all the residential and commercial areas on all the days of the year irrespective of Sundays and public holidays. 4. Abolition of open waste storage depots and provision of containers or closed body waste storage depots. 5. Transportation of waste on a day to day basis in covered vehicles. 6. Treatment of biodegradable waste using composting or waste to energy technology. 7. Minimize the waste gong to the land fill and dispose of only inert material at the landfills which should be constructed as per the specifications given in the rules.

ANNEXURE B

Schedule III –Specifications for Landfill Sites