Indonesia
Ex-post Monitoring for ODA Loan Project
Jakarta Solid Waste Management System Improvement ProjectEvaluator: Ryujiro Sasao (IC Net Limited)
Field Survey: May 2008
1. Outline of the project and Japan’s ODA loan

Location of the project

Sunter relay station

1.1 Purpose of the project
The purpose was to improve the waste management system of Jakarta Pusat throughintroducing vehicles, constructing a relay station and developing a final disposal site, thereby
addressing the issue of an ever-increasing volume of waste and eventually contributing toenvironmental improvements.
1.2 Outline of the loan agreement
Loan Amount /Disbursed Amount

3,836 million yen / 2,757 million yen
November 1993

Date of Loan Agreement/
Final Disbursement Date

August 2000

Ex-post Evaluation

Fiscal 2002

Executing Agency

Directorate General of Human Settlements, Ministry of
Public Works

Main Contractors (only a contract for Pt. Bangun Cipta Kontractor (Indonesia)
one billion yen or more)
Consulting Services (only a contract Pt. Indah Karya (Indonesia), Pt. Arkonin Engineering
for 100 million yen or more)

Manggala Pratama (Indonesia), Pt. Bumi Pradisi
Bi-Epsi (Indonesia), Yachiyo Engineering Co., Ltd.

1

(Japan) (JV)
1.3 Background and reasons for conducting ex-post monitoring study
According to the findings of ex-post evaluation of the project, its relevance was high.
efficiency, effectiveness and sustainability were moderate.
satisfactory.

Its

Its overall evaluation was fairly

Nonetheless, at the time of ex-post evaluation, issues about effectiveness werepointed out as follows; the volume of waste processed at the Sunter relay station was about
one-third of the initial estimate and that the Bekasi final disposal site accepts waste more thanits capacity.

On the other hand, although the project’s impact was confirmed, the findings ofthe environmental impact assessment/monitoring of the Bekasi final disposal site were unknown
due to lack of information from the city of Jakarta.

Furthermore, the report pointed out aproblem concerning the project’s sustainability, that is, insufficient budgets to maintain thefacilities and equipment developed under this project.

In light of these problems, it wasconsidered that it would be necessary to reexamine the problems and reconfirm the informationthat was not available.

Thus, this project was chosen as a project that requires ex-postmonitoring and we carried out our field survey.

In this report, we outline the survey, review its

results per items, and draw conclusions.
2. Findings of monitoring
2.1 EffectivenessAt the time of ex-post evaluation, the waste management system was considerably strengthenedby the construction of a relay station and the development of a final disposal site.

In addition,subsequent increases in the number of garbage collection vehicles and expansion of thetreatment capacity of waste processing facilities have contributed to the volume of waste
collected and garbage collection rates in the city of Jakarta.
has further increased.

Thus, the project’s effectiveness

Its impact on the living environment can be seen in the fact that the

problems of illegal dumping into rivers and an offensive odor have been solved since the timeof ex-post evaluation.
(1) Improvement in the waste collection system
As indicated in Figure 1, the total volume of waste generated in the city of Jakarta was25,600m3 per day at the time of ex-post evaluation (in 2001), out of which 22,196m3 per day,that is, 86.7%, was collected by the City Cleaning Department.

In 2007, a volume of 27,654m3

was generated per day, out of which the Cleaning Department collected 26,962m3 per day,which accounted for 97.5%.

The factors for contributing to such continuous improvements

presumably include the increased number of garbage collection vehicles and the expansion of2

processing capacities of the Sunter relay station and Bekasi final disposal site.
Figure 1: Volume generated and collected per day and collection rateex-anteex-postWaste generated,
Waste collected,
Collection rate

Source: Jakarta City Cleaning Department(2) Improvement in the road cleaning system
Prior to the implementation of this project, most roads had been manually cleaned.

Inorder to streamline road cleaning, seven mechanical road-cleaning vehicles were procured under
this project.

Subsequently, the City Cleaning Department purchased 20 more vehicles.

result, 27 mechanical road-cleaning vehicles are in service.

As aEvery day early in the morning, ataround time when the collection of waste has been finished, roads are being cleaned.

Duringour field survey, we actually inspected trunk roads to find that they were in clean condition withlittle garbage.
(3) Construction of the Sunter relay station 1
At the relay station, the garbage brought in from various points of the city is compressed
approximately to half and reloaded on containers.

The mean number of trips per garbage truck

once increased from 1~2 trips a day to 2.98 trips a day.
declined to average of 2.0 trips a day.
congestions in the city.

However, the updated figure of 2008

This decline is due likely to aggravating traffic

Nonetheless, a comparison between the present situation and a case inwhich the Sunter relay station had not been built indicated that transportation expenses (gasoline

1

The Cakung relay station which was in operation at the time of ex-post evaluation had finished its role as a relay
station at the time of this field survey. Currently it carries out the functions of separation, reuse and composting (theprocess of decomposing kitchen refuse, tree leaves and wastewater sludge with heat of fermentation into fertilizing
material).

3

costs) could be saved extensively because of the relay station.
At the stage of the ex-post evaluation survey in 2001, an average volume of garbage
processed at the relay station was 1,660m3 per day. The updated figure indicates an increase to3,447m3 per day (in 2008).

That is, only around volume of 60% out of maximum processing

capacity has been processed, however the situation is a great improvement since the time of
ex-post evaluation.

It is getting close to the upper limit of the actual processing capacity

3

According to the Jakarta City Cleaning Department, one reason is a larger(4,000m per day).

volume of garbage brought to the relay station by an increased number of garbage trucks andanother is the growth of the volume processed per day. 2(4) Bekasi final disposal site
At the Bekasi final disposal site, garbage brought into the site is deposited in the earth withsanitary landfill technology.

The volume of waste treated (buried) at the site has been

continuously growing.

The Bekasi site accepted a volume of 20,154m3 per day on the averagein 2001 from Jakarta.

In 2007 it reached 26,962m3 per day. 3

This is because the volumes ofgarbage brought from the relay station and waste directly transported from places in Jakarta
have been on the increase.

Figure 2 (in the following page) shows the volume flow of theprocess from the generation of waste to their final disposal.
Waste is transported to the disposal site without being separated, thereby drawing
scavengers 4 to settle near the site in order to separate and collect waste.
it difficult to do the land-filling operation and earth-covering work.
take a longer period.
once a week.

That is, such operations

As a result, the earth-covering work cannot be done on the same day

when waste is transported, as had been initially planned.
5

The scavengers makeIn fact, it is carried out at a pace of

The trucks that transport garbage have to wait for unloading their garbage forseveral hours, in the worst case.

The volume processed per day is coming close to the limit.

2

The staff had been working under one-shift system at the time of ex-post evaluation, but a two-shift system wasadopted at the time of this survey.
3
It exceeds far beyond the designed processing capacity (14,000m3/day) of the site that was mentioned in the ex-post
evaluation report. “Processing” here means the landfill work at the disposal site. Hence, the level of theprocessing capacity depends upon how the site’s service years have been set and changes in the working hours.
4
People live near the waste disposal site and support their livelihoods by collecting and selling waste products.
5
The work done by scavengers is dangerous. There was an accident costing the life of a person in 2006. This
problem has not been solved.

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Breakdown

First collection points →The firstrelay station of garbage collection
No. oftrips

No. oftrucksAveragevolume ofgarbage3per
truck (m )Volumetransported to
the Sunter relay3
station (m )No. oftrips

2007
At the time of
ex-postevaluation

Relay station → Final disposal

Breakdown

Average
Multi
No. ofplier
container volume per3
carrier(m)
carriers

Volumetransported fromtwo3 relay stations
(m )

2007

Garbage has been compressed tohalf at the relay station. Thus, thevolume of waste is in fact double thenominal volume.
Relay station(Sunter)

Gross volume ofwaste (per day);Volume treated at the
Bekasi final disposal
site(Cakung)
Direct transport

Breakdown

Garbage collection point→ Final disposal site
No. oftrips

No. oftrucksVolume per truck Transport(m3)
volume2007(Source) The above flow chart was prepared based on discussions with the Jakarta Cleaning Department.
Some parameters are endorsed by the statistics of the Department, whereas others are based on theestimates given by the Staff of the Department.

Figure 2: Volume analysis of flow of waste treatment(5) Evaluation by beneficiaries
In order to grasp the change in the garbage collection system after the ex-post evaluation,
we followed the survey method taken at the time of ex-post evaluation.

That is, we carried out

a face-to-face questionnaire survey to 200 persons (including public officials, company workers,
self-employed and general residents, etc.) who had been randomly selected from the residents
living in the four counties (kecamatan) (Tanah Abang, Cempaka Putih, Johar Baru in Jakarta
Pusat and Pandemangan in Jakarta Utara) in cooperation with the City Cleaning Department.
Its findings are as follows.
・Approximately 50% ~ 80% of residents (62% on the average) consider that the garbage
collection system has “improved” since the time of ex-post evaluation, to a varying degree
depending on where they live. 6

The residents who respond that it has “improved” give thereasons of “increased frequency of garbage collection” and “improved accuracy of thedate/time of garbage collection.”
6

Such responses endorse higher garbage collection rates

The respondents were asked to choose one out of “improved,” “no change,” or “worsened.”5indicated in the above Figure 1.
・As to a level of satisfaction with the present garbage collection, 88% of respondents reply“very satisfied,” “satisfied” and “rather satisfied.”

The rate is almost the same as the rate at

the time of ex-post evaluation.
2.2 Impact
To find out the change in impact on environment since the time of ex-post evaluation, we
carried out a beneficiary awareness survey (as a part of the above questionnaire survey). Itsfindings are outlined in the following table.

In general, the living environment has been on an

improving trend, excluding “the river water quality in the vicinity.”
Table 1: Impact given by the project per item (since ex-post evaluation)
In percent
Item
Improved
No change
Worsened
Illegal dumping
56
33
11
Quality of river water28
42
31
in the neighborhood
Harmful insects
42
39
20
Offensive odor
62
26
13
Source: Questionnaire survey
With respect to impact on the environment adjacent to the facilities constructed or developed
under this project, we asked directly some of the residents who had been living in the areas very
close to the Sunter relay station since the days before its construction.

From the result, we had

an impression that there were no problems with noise and vibration and that an offensive odor
was within their tolerable range.

The findings of the environmental monitoring by the

executing agency demonstrate that air and noise are within the tolerable range.
As for the Bekasi final disposal site, there was no problem with smoke that had beenreported at the time of ex-post evaluation.

However, we talked with the leaders of the threecommunities adjoining the disposal site.

The leader of one community pointed out thefollowing problem and fears and asked for their solutions.

That is, they are an offensive odor

from the disposal site, the possibility of groundwater contamination caused by waste disposal,
and the possibility of rice field contamination caused by water from flooded drains (connectedfrom the site to the fields in the neighborhood) in a heavy rain.

We assume that these problems

primarily derive from the fact that they are unable to carry out the earth-covering work on thesame day when garbage is brought in.

At the same time, the neighboring communities got

benefits from the construction of the disposal site such as road development, school
construction and compensation money.
We passed what we had been told by the communities on to the staff in the City Cleaning

6Department.

The staff member claimed that the Department had earnestly dealt with eachgrievance and request so far and that a discussion had been held among the Jakarta City
Cleaning Department, the city of Bekasi and residents once a month.
The monitoring report by the executing agency pointed out that a certain level of E. coli has
been detected in the groundwater used by residents in the neighborhoods.
argue that there are not problems at all.

Thus, we cannot

Also, we should report that some indicators of treatedleachate within the site are beyond the standards set by the national government.
From the standpoint that it is important to heighten awareness of waste problems amongresidents, the Jakarta City Department has been carrying out a campaign to raise the residents’awareness about waste problems since the time of ex-post evaluation.

For instance, theawaking campaign on 3R (Reduce-Reuse-Recycling) was started in many areas of Jakarta
including 24 key locations of activities, a list of which was presented. We were given a list
showing 24 key points of the activities.

The list includes Cempaka Putih, where we carried out

the above-stated questionnaire survey, as one of the 24 key points.

In our survey, the rate of

the respondents who answered that they were “involved in” cleaning activities and recycling
activities was particularly high in Cempaka Putih.

Thus, we assess that the awakening

campaign has been yielding an effect to a certain degree.
In the responses to our beneficiary survey held in the above four counties (kecamatan), theratio of respondents who answered “participated” in cleaning activities rose to 98% from 46% at
the time of ex-post evaluation.
increased to 37% from 8%.

The ratio of “participation” in recycling activities also

To the question whether he/she pays the waste collection charge,

90% of the respondents replied yes.

Thus, the collection of waste charges has beensatisfactory since the time of ex-post evaluation.
We should add the fact that the awakening campaign among residents which is now being
held in many areas has not yet grown as a campaign that covers the entire area of Jakarta.
Furthermore, the method of garbage separation-collection has not been adopted and garbage isdeposited in the earth without being separated.

That is, it contains a lot of garbage that can bereused or composted, which places greater burdens on the relay station and the final disposal
site.

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2.2 Sustainability
There are no problems in particular as to techniques and systems.

The financial sustainability,

which was pointed out as concern at the time of ex-post evaluation, has been improved because
the financial status of the executing agency has been strengthened.

The executing agency

recognizes the limit of processing capacities of the existing facilities and already has a plan toexpand the relay station and enlarge the functions of the final disposal site.

The preparation

towards its implementation is under way.
2.3.1 Executing agency
2.3.1.1 Operation and maintenance system
The name of the executing agency was changed back to the old name “Directorate
General of Human Settlements, Ministry of Public Works” from the “Directorate General of
Urban Development, Ministry of Human Settlement and Regional Infrastructure.”

However,the organizational structure has not changed since the time of ex-post evaluation.

As foradministration, each district is responsible for garbage trucks and cleaning vehicles, whereas theTechnical Maintenance Department of the Jakarta City Cleaning Department is responsible for
the Sunter relay station. On the other hand, the operation and maintenance of Bekasi final
disposal site was under the responsibility of the Hazardous Waste Treatment Bureau of the
Cleaning Department (at the time of ex-post evaluation).
Technical Maintenance Department.

The responsibility now rests with the

The Jakarta Cleaning Department had a staff of 3,988

persons at the time of ex-post evaluation, but now decreased to 2,728 employees.

Thisdecrease is due to the fact that the Department has neither hired new employees nor filled thevacancies created by retirement under the age limit.
outsourced to private establishments.

At the same time, some general works are

The Cleaning Department insists that the current

manpower is sufficient to perform its duties, especially when some of its works are outsourced.
2.3.1.2 Techniques in operation and maintenanceAt the Sunter relay station the technical staff members who have been working since thetime of ex-post evaluation transfer their skills to younger technical staff through OJT.
manual is also kept on hand.

Thus, the Department claims that there is no necessity forproviding its staff external training.

In fact, we observed that the facility/equipment wasmaintained in good condition without special problems.
great segment of land-filling has been outsourced.
technical management.

A

At the Bekasi final disposal state, aThat is, the private sector supports its

It is reported that the disposal site has 28 operators, out of which 20

experienced operators are dispatched by external sources.

82.3.1.3 Finance of operation and maintenanceDue to a better financial status of the city of Jakarta (increased tax revenues because of
economic growth) and its greater emphasis on the waste problem, the total budget for the
Cleaning Department has been on an upward trend for the past three years.
2007 was more than twice that of 2001.
the same period as well.

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The budget of

The maintenance and repair cost also doubled during

Under such circumstances, the Cleaning Department has no concern

over the shortage of funds which was pointed out at the time of ex-post evaluation.

It isexpected that the current size of its budget will be maintained in the future.
2.3.2 Operation and maintenanceMore than five years have passed since the implementation of this project.

Hence, we wereunable to check in detail the maintenance condition of all the equipment procured under thisproject.

However, the machinery/equipment owned by the Cleaning Department is in good

maintenance condition.

We surmise that there are no special problems as to themachinery/equipment procured under this project as well.
At the Sunter relay station, minor maintenance work is regularly carried out every threemonths for equipment, and major overhaul is done once a year.

The staff of the operation andmaintenance division of the relay station performs maintenance work according to the maker’s
manual.
At the Bekasi final disposal site, all of its machinery/equipment is rented.
does not carry out its maintenance work.

Thus, the staff

Machinery/equipment is kept at a satisfactory levelby a private establishment, according to a staff member in the management of the disposal site.
As stated above, there are no problems with the operation and maintenance of facilities.
However, the Jakarta City Cleaning Department claims that the processing capacity left for the
Bekasi final disposal site is for about 840 days (as of January 2008) if this pace is kept and that
it is urgently needed to expand its capacity. 8
To address this issue, the Jakarta City Cleaning Department has a plan to construct four relay
stations in the city in addition to the Sunter relay station which is the only one station in
operation now.

It is also exploring the possibility of implementing a project to strengthen thewaste processing capacity of Bekasi final disposal site, which is the only disposal site forJakarta.

To put it in the concrete, it plans to prolong the operation time of the final disposal

7

According to the ordinary budget (per use) of the Jakarta Cleaning Department, the budget for maintenance andrepair expenses was approximately 156.4 billion rupiahs in 2001. It increased to about 279.0 billion rupiahs in
2007.
8
The ex-post evaluation report pointed out that the issue of whether or not the city of Bekasi accepted garbage poseda political problem between Jakarta and Bekasi. However, as of now, the agreement between Jakarta and Bekasi has
been renewed every year. That is, the city of Bekasi keeps its policy to accept garbage.

9

site by introducing a system in which waste is separated for reuse and composting and by
furthering the expansion of the area of the site.
3. Conclusions, lessons learned and recommendations
3.1 Conclusions
Through the efforts of the executing agency such as increasing the number of garbage
trucks and improving the maintenance system with a sufficient budgetary measure, theeffectiveness of the project has been raised since the time of ex-post evaluation.
been also expanded.

Its impact has

On the other hand, as for the environment of the areas adjoining thefacilities, there were no special problems at the Sunter relay station.

However, as regards theBekasi final disposal site, some residents have raised their concern over groundwatercontamination and the possibility that wastewater may flow into the rice fields at the time of aheavy rain, which, in all likelihood, are chiefly caused by the fact that the earth covering work
cannot be done on the same day when garbage has been transported to the site.
With respect to sustainability, we have detected no problems in terms of the operation andmaintenance of facilities, and also the financial weakness has been improved.

One criticalissue is that the processing capacity of the existing disposal site is coming close to its limit.

Asa remedial measure to address an increasing volume of waste, the City is planning to expand thefacilities of the relay station and the final disposal site and strengthen their capacities.
3.2 Recommendations“For the Jakarta City Cleaning Department, the executing agency”
1) As a measure to deal with an ever-increasing volume of waste, it is important to implement
steadily the projects to expand the facilities of relay stations and strengthen the functions of
the Bekasi final disposal site (including composting some garbage by separation system) inorder to increase the overall capacity of waste management, as has been already planned by
the Jakarta City Cleaning Department.
2) As for the Bekasi final disposal site, some measures have been taken to alleviate an adverse
effect.

And yet, there is a sense of dissatisfaction among residents concerning offensive

odors and groundwater contamination.

The Jakarta City Cleaning Department is requested

to continue discussions with the residents, take appropriate measures, and offer full
explanations.
3) It is recommended that the Cleaning Department will carry out an awakening campaign on
the waste separation system, which has already shown an effect in some areas, in a broader
area in Jakarta to prevent scavengers from settling near the Bekasi final disposal site and to
reduce the waste transport costs.

104) It is recommended that various facilities constructed under this project be managed incompliance with the General Waste Management Law enacted in May 2008.
3.3 Lessons learned“For the Solid Waste Management Department in each city in Indonesia”
As recommended in 3) of 3.2 Recommendations, to prevent scavengers from settlingnear the final disposal site and reduce waste transport costs, it is desirable to carry out anawakening campaign to citizens about the waste separation system and to build a system tomanage waste by adopting the separation system for the entire area, when a waste management
project such as this project is implemented.

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Comparison between major plans and performance
Item

Plan

Performance① Project plan
1 Improvement of waste collection system
1.1 Procurement of garbage trucks

161 vehicles

193 vehicles

1.2 Procurement of containers

140 vehicles

Same as the left

1.3 Procurement of related equipment

6 vehicles

7 vehicles

7 vehicles

Same as the left

Processing capacity/day: 1,500 tons

Same as the left

4.1 Construction of sub-workshop

One placeSame as the left

4.2 Procurement of related equipment

One setSame as the left

One zone

3 zones

2 Improvement of road cleaning system
2.1

Procurement

of

road

cleaning

vehicles3 Construction of Sunter relay station
4 Construction of sub-workshops

5 Construction of Bekasi final disposalsite
5.1 Improvement of Zone 1 at the site

12.5 ha7 ha

5.2 Construction of Zone 2 at the site

13 vehicles

11 vehicles

5.3 Procurement of operation vehicles

Non-Japanese: 96M/M

Non-Japanese: 123 M/M

6 Consulting service

Local people: 243M/M

Local people: 440 M/M

November 1993

Same as the left

② Project period
1

L/A signed

2

Consultant Selection

June 1993 ~ May 1994

April 1994 ~ Feb. 1995

3

Consulting services

June 1994 ~ May 1997

March 1995 ~ July 2000

4

Procurement

Jan. 1995 ~ March 1997

July 1996 ~ July 2000

5

Bidding & construction work

Sept. 1993 ~ May 1997

Dec. 1995 ~ July 2000

(April 1995 ~ May 1997)(July 1996 ~ July 2000)

Foreign currency

890 million yen

1,076 million yen

Local currency

3,655 million yen

1,904 million yen(Local currency 61,946 million Rp.)

(Local currency 89,576 million Rp.)

4,545 million yen

2,980 million yen

3,863 million yen

2,757 million yen

1Rp.= 0.059 yen

1Rp. = 0.021 yen(April 1993)(Weighted average during the(out of which, Construction work)③ Project cost

Total
ODA Loan portion
Exchange Rate

project duration)

12