Summary of Terminal Evaluation
I Outline of the ProjectCountry: Bangladesh
Issue/Sector: Environment Management(Solid Waste Management)
Division in charge: JICA Bangladesh Office
Period of
Cooperation

R/D: From February, 2007 to
February, 2011
Extension: From February,
2011 to February, 2013

Project title: The Project for Strengthening of Solid Waste
Management in Dhaka City (Extension)
Cooperation scheme: Technical Cooperation Project
Total cost (estimated at completion of the Project): 590
million JPY (Include main body)Partner Country’s Implementing Organization: Dhaka City
Corporation (DCC), Waste Management Department (WMD)
Supporting Organization in Japan: Yachiyo Engineering Co.,Ltd.
Related Cooperation Project: Development Study (Nov. 2003
to Mar. 2006), Environmental Grant Aid Project, Japan Debt
Cancellation Fund, Japan Overseas Cooperation Volunteers,
Grass-roots Grant Aid

1-1 Background of the ProjectJapan International Cooperation Agency (JICA) started technical cooperation on solid waste management(SWM) with Dhaka City Corporation (DCC) in 2000. During the period from November 2003 to March
2006, a development study was implemented. Clean Dhaka Master Plan, the main output of the study was
the first master plan on SWM in Bangladesh that covers all aspects of SWM, including public awarenessraising, primary collection, secondary collection, transportation and final disposal as well as administrationand financial management. For the implementation of Clean Dhaka Master Plan, a technical cooperation
project consisting of the dispatch of experts started in February 2007 and completed in February 2011
implemented by DCC and JICA Expert Team (JET). Six months prior to the termination of the project, aterminal evaluation was conducted and the 2-year extension of the project was recommended due to theinsufficient sustainability of the project. According to the recommendation, the extension phase of the
project has started in February 2011 to be terminated in February 2013. Hereinafter, the project term fromFebruary 2007 to February 2011 is named as “main phase” while that from February 2011 to February 2013 isnamed as “extension phase.”
In parallel with the technical cooperation activities, the Government of Japan supported other SWM
activities in DCC. Improvement and expansion of Matuail landfill site and the construction of Amin Bazar
landfill site were implemented using the Japan Debt Cancellation Fund (JDCF). JOCVs have been
dispatched for environmental education and waste management. For improving transportation of wastematerial, 100 collection vehicles and the construction of a workshop for them has been provided byEnvironmental Grant Aid Program (EGAP).
1-2 Project Overview(1) Overall Goal
The solid waste management services of Dhaka City Corporation are sustained and the sanitaryenvironment of the city is improved.
(2) Project Purpose
The solid waste management services of Dhaka City Corporation are improved.
(3) Outputs
1) Capacity for management and coordination of WMD is improved.
2) Capacity for promoting WBA of WMD is improved.
(4) Inputs
Japanese side: Dispatch of Experts: 6 persons (23.2 man/month), Training in Japan: 3 persons, Training in
the third countries: 3 persons, Provision of equipment: non, Local cost expenditure: 19,982 thousand yen
Bangladeshi side: Counterpart personnel: total about 12 persons, Provision of land and facilities: officespace, Local cost expenditure
II Evaluation Team
Members of1) Leader: Mr. Kei TOYAMA, Senior Representative, JICA Bangladesh Office, JICA
Evaluation
2) Solid Waste Management: Dr. Mitsuo YOSHIDA, Senior Advisor, JICA
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Team

3) Environment Cooperation: Mr. Takuya MANABE, Program Officer, Environmental
Management Division 2, Environmental Management Group, Global Environmental
Department, JICA
4) Cooperation Planning: Mr. Tsuyoshi KANO, Representative, JICA Bangladesh Office,JICA5) Evaluation Analysis: Mr. Masahiro OSEKO, Consultant, Nevka Co., Ltd.
From November 17, 2012 to December 1, 2012
Type of Evaluation: Terminal Evaluation

Period of
Evaluation
III Results of Evaluation
3-1 Achievement(1) Achievement of Outputs
1) Output 1: Capacity for management and coordination of WMD is improved.
Output 1 has been mostly achieved.
・ Both of north and south WMDs have respectively formulated “Annual Activity Plan on Solid Waste
Management 2012-2013” but with the assistance of JET who prepared the draft.
・ While the solid waste management budget was properly prepared by WMD, the bottom-up budgetingsystem introduced in 2011 was not applied in the budgeting for 2012. The bottom-up budgeting system
was introduced by the project for realizing a more transparent and accountable budgeting than a top-downline-item-based budgeting.
・ Matuail landfill is well managed and operated as a whole despite the fact that the most of LMU (landfill
management unit) staffs are deputed or temporary employed. In Amin Bazar landfill site, while LMU
has been organized, staffing is quite insufficient and landfill operation is carried out without a sitemanager and any specific operation plan. The landfill environmental monitoring which used to be
conducted in Matuail landfill has not been implemented since the division of DCC in both of Matuail andAmin Bazar landfill sites.
・ The project held a series of seminars to revise the WMD Directives, and in these seminars, monitoringand evaluation of waste management activities were carried out with outside specialists. But this is atime-bound seminar but not a permanent monitoring body.
・ A large proportion (about 80 to 90%) of waste collection vehicles keep bypassing weighbridges
intentionally due to undesirable relationships between WMD and the drivers. The volume of the waste
is estimated by the project by the alternative means conducting occasional surveys.
2) Output 2: Capacity for promoting WBA of WMD is improved.
Output 2 has been mostly achieved.
・ Newly constructed or renovated 15 ward offices are being used by COs (conservancy officers) and CIs(conservancy inspectors), cleaners and local residents for meetings, office works, equipment
maintenance, resting and etc.
・ COs and CIs involved in WBA activities have been significantly empowered and expanded their
vocational functions. As a result of this, they have gained acknowledgement from other staff of DCCs
and local residents in their wards.
・ WBA reporting system was introduced and the accidents and risk information were supposed to bereported through this system. However, the implementation of this system has stagnated due to the
opposition from cleaners’ union.
・ Community Activity Plans were formulated by Community Unit Working Groups (CUWGs) composed ofCIs, COs, PCSPs and local residents in 5 wards and waste management activities involving them havebeen implemented in these areas.
・ The improvement of conventional collection system were observed in 7 wards. Improvement of
conventional collection system includes narrow street primary collections harmonizing hand trolleys
works and container collection, collection of street-swept waste using newly introduced rickshaw vans,and others.
(2) Achievement of the Project Purpose
The Project Purpose is expected to be achieved.
・ The indicator of the Project Purpose (2,540 ton/day or 58 % of total amount of waste is disposed) is
expected to be achieved by the target year of 2013.
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・ The interviews with local residents and the observation of a kick-off meeting of community activities
have found that the satisfaction of local people at waste management has increased due to the realizationof clean towns and streets and decrease of odor.
・ The volume of waste collected has been increasing despite the number of vehicles has decreased due tothe scrapping of old and out-of-service vehicles. This indicates a development of WMD’s capacity in
waste collection.
・ WMD has made some steps forward for recruiting its staff. DCC has employed 50 drivers and 100
helpers for 100 collection vehicles provided by EGAP before the division of DCC. After the division of
DCC, 69 staffs have been recruited and will be assigned to their posts in November 2012.
・ DCCs have started some new projects for waste management with their own initiatives such as theextension of landfill sites, construction of secondary transfer stations, a plan of a regional landfill site anda concept plan of a waste-to-energy system. These movements could be seen as signs of the
improvement of capacity and initiative of WMDs for upgrading their solid waste management services
for citizens.
(3) Achievement of the Overall Goal
The indicator of the Overall Goal is expected to be achieved by the target year of 2015 as long as theother conditions such as primary collection of waste, maintenance of vehicles and operation of landfill sites
do not significantly change. The trend of regression analysis also supports this estimation.
3-2 Summary of Evaluation Results(1) Relevance: Very HighThe Bangladeshi national policies of the “Poverty Reduction Strategy Paper, Nov. 2005,” the “Sixth Five
Year Plan FY2011-2015” and the Japanese ODA policy of the “Country-Specific Plan for Bangladesh, June2012” all of these policies emphasize alike the importance of proper waste management as an issue relating toenvironment protection and sanitary for health. The consistency of the project with national policies is thus
high. Environmental and sanitary issues caused by the waste are still prevailing widely in Dhaka city andthreatening the health and sound living environment of residents. Therefore, there is still a high demand forthe improvement of the SWM services of DCCs. Regarding the approach and methodology of the project,
DCCs in collaboration with JICA has been implemented a variety of cooperation schemes such as thedevelopment study, JDCF, EGAP, JOCV and technical cooperation project. This combination of different
approaches realized the holistic and dynamic program approach and created a variety of positive effects on 1)
capacity development at individual level of DCC officers and staffs, 2) organizational development in DCC
such as the establishment of WMD, 3) SWM infrastructure development such as landfill sites and aworkshop, 4) institutional development such as the formulation of WMD Directives, and 5) community
empowerment through WBA activities.
(2) Effectiveness: HighThe target of indicator of the Project Purpose is expected to be achieved by the target year of 2013.
Besides, some new movements have been taken by the initiative of DCCs, which indicate the development ofcapacity of DCCs, such as the staffing of WMDs, the extension of landfill sites, the construction of transfer
stations and the consideration of “waste-to-energy” and regional SWM. On the other hand, there are stillsome issues such as staffing of managerial level officers, construction and operation of landfill sites, anduncooperative behavior of drivers of collection vehicles.
(3) Efficiency: Very High
Most of the inputs from Japanese side such as dispatch of experts, training of counterparts in Japan and in
the third countries, provision of equipment and local cost support were executed as planned. Bangladeshi
counterparts highly evaluated the assignment timing, expertise and guiding capacity of Japanese experts, andwere mostly satisfied with contents, timing and duration of training programs in Bangladesh. DCC has
provided an office space for JET and assigned counterpart personnel. The number of assigned counterparts
has been very limited due to the under-staffing issues of WMD. Because of this, some activities of the
project such as the drafting of Annual Activity Plans of SWM have been implemented not by WMD staff but
by the Japanese experts. However, overall, the project has made intensive efforts with the limited numberof assigned counterparts under the technical guidance of JET and has achieved the outputs almost
satisfactorily. Since the expected outputs have been realized with limited inputs, the efficiency of the
project is evaluated as very high. Negative effects caused by the limited number of counterparts such as an3

opportunity loss are taken into account in the evaluation of effectiveness and sustainability.
(4) Impact: A wide variety of impact of the project can be observed as follows;
1) Achievement of Overall Goal
As stated above in 3-1 (3), the target of indicator of the Overall Goal is expected to be achieved by thetarget year of 2015 as long as the other conditions (improvements of primary collection, operation of vehicles
and landfill sites) do not significantly change.
2) Other Impacts
・ While there are two outputs planned and indicated in the PDM, the project has extended its activities
much wider. The project has been covering almost all components of waste management from waste
collection at community level to landfill operation.
・ According to the interviews with local residents, the satisfaction of local people at waste management has
increased due to the realization of clean towns and streets and decrease of odor.
・ The model of waste management improvement developed by the project has been known to neighboring
cities. As a result, the necessity of regional sanitary landfill sites has been recognized among them andits conceptualization has just started.
・ Five City Corporations namely Chittagong, Khulna, Rajshahi, Sylhet and Barisal are constructing sanitary
landfill sites based on the design of Matuail landfill site.
・ Khulna and Chittagong City Corporations have been inspired to replicate similar type of SWM activities
as is done in DCCs.
・ The model of waste management improvement developed by the project is planned to be introduced toother countries such as Sudan and South Sudan who will visit the project in December 2012.
(5) Sustainability: Fair
1) Political aspect:
Although there is an Environment Act 1995, there are no guidelines or strategies of solid waste
management which would back up the sustainable operation of WMD. The project has developed “WMD
Directives” as a guiding principle of the work frame of WMD indicating the most urgent works of waste
management. WMD Directives is currently under revising process according to the division of DCC andexpected to be completed and distributed by the end of the project. DCCs have not yet issued any policy
papers about solid waste management and the revision of Clean Dhaka Master Plan.
2) Organizational aspect:
Staffing of WMD has seemingly made some progress but the overall situation has remained relatively
serious with a significant number of vacancies in headquarters such as Additional CWMOs, Deputy
CWMOs, Executive Engineers (DSCC) and zone level management officers of Assistant CWMOs, landfill
sites and the workshop. The existing staff of WMD are mostly deputed and not permanently assigned to thecurrent posts. Therefore, WMD is still vulnerable as a department. The field level officers and workers
such as CIs and cleaners have been highly empowered and developed confidences and self-respects in theirjobs through WBA activities. Nevertheless, rigid and stagnant personnel management does not reward tothem and discourage them in a way.
3) Financial aspect:
The budget for solid waste management of DCC has constantly been increasing. But still the total
amount of budget is not enough for DCCs to procure all the necessary goods and services. While one
budget officer in charge had been appointed before the division of DCC, no budget officer is deployed forboth DNCC and DSCC after the division. Revenue enhancement measures planned in the Clean Dhaka
Master Plan have not sufficiently been carried out by DCCs and GOB. Those measures included thereassessment of property value, taxation rate revision of conservancy rate and tax collection improvement.
The equipment and facilities including collection vehicles and the workshop provided by EGAP aredeteriorating in use. Therefore, the fund reserve by means of depreciation is required. But no fund has
been reserved for this purpose in DCCs.
4) Technical aspect:
Both DNCC and DSCC have prepared Annual Activity Plans for 2012-2013 but yet with the assistance of
JET who substantially prepared the draft. Planning is one of the most basic activities of management and,
therefore, it indicates a weakness in the technical sustainability of the project. Technical transfer to Matuail
LMU has steadily advanced and they are highly empowered and motivated. But since most of the LMU
staffs are deputed and temporally assigned and if those staffs do not stay in WMD, transferred technology
4would not stay in WMD leaving together with them. Due to the incomplete construction, operation andmaintenance of Amin Bazar landfill site would be a challenging issue in near future. Technical and humancapacities of the workshop are insufficient for the number of collection vehicles they have.
5) Other aspect:
The project has focused on three topics particularly for improving the sustainability of the project, i.e.
staffing of WMD, monitoring by outside specialists and compilation of a manual for clarifying the standards
and procedures of WBS’s daily operational works.
Target of indicator of the Overall Goal is expected to be achieved as stated above in 3.2.1. The targeted
percentage of 66% and the volume of 3,054 ton/day were calculated based on the population in 2015
assumed in 2005. But the increase of population in actual has been further rapid in time and large in scale.
Therefore, there must be more waste generated in reality. And not only 66% but 100% of waste is
eventually supposed to be collected. It is therefore required DCCs to improve their capacity of services all
the more.
3-3 Factors that promoted realization of effects(1) The assistance of the Government of Japan for DCC’s waste management has formulated a so-called
program approach over a decade composed of the development study, JDCF, EGAP, JOCV and the technicalcooperation project. This holistic and dynamic program approach realized a variety of positive effects on
the solid waste management of Dhaka City. JOCVs’ contribution to the improvement of community level
waste management is notable. JOCVs are taking parts in the improvement of abilities of COs, CIs,
cleaners, PCSPs and local residents.
(2) CIs and COs in WBA wards have been well trained to be planners, implementers, evaluators,
coordinators, facilitators, trainers and managers playing the leading roles in the promotion of WBA activities.
Without their positive commitment, the introduction of participatory approach of WBA activities had beenvery difficult. Capacity development of CIs and COs would be an indispensable component for
disseminating the SWM model developed by the project to other urban areas such as New City Corporations.
(3) Community participation is indispensable not only for the primary collection but also for the secondary
collection because without the understanding and cooperation of communities, it is very difficult to introduce
compactors which require waste collection at the fixed time at the fixed place.
(4) The project has been trying to change the self-consciousness and to raise the social status of officers andstaffs working on waste management through WBA activities. They are intangible but indispensable forrealizing the improvement of waste management of Dhaka city.
3-4 Factors that impeded realization of effects(1) Stagnant personnel management of WMD especially on the managers’ level has created stumbling blocks
here and there like in the management of landfill sites, the operation of the workshop and field level activities
of COs and CIs.
(2) There was no serious impedance at the time of the division of DCC at December 2011 because DCCs had
maintained their activities as one corporation despite its separation for the time being. But after the DCC
has practically divided, the work of the project has been almost doubled, which has spoiled the efficiency of
JET’s activities.
3-5 Conclusion
Indicators of Overall Goal and Project Purpose are expected to be achieved by the target years of 2015 and2013 respectively. While there are still a significant number of vacancies in DCCs, some positive signals canbe observed such as the partial recruitment of staffs, preparation for the extension of landfill sites andconceptual planning of new projects. These movements could be regarded as signs of the improvement ofcapacity of WMDs for upgrading their solid waste management services for citizens.
High Relevance indicates the high expectations of citizens of Dhaka City for better waste management
services. WBA activities were effectively conducted and realized a variety of positive effects. A number ofCOs, CIs and cleaners have significantly developed their capacities through participating WBA activities.
Through the improvement of waste management in the city, local residents’ satisfaction to waste collection
services has been improved and they have become further conscious about waste management.
53-6 Recommendations(1) Recommendations for WMD Staffing
1) All the vacant posts in WMDs are expected to be filled with permanent staffs. Especially, it is urgently
anticipated to assign the executive level officers such as Additional CWMOs, Deputy CWMOs, Executive
Engineers (DSCC) and zone level management officers of Assistant CWMOs. And transfer of drivers andequipment from Transport Depart to WMD is urgently required.
2) It is expected DCCs to enhance the human resources of their workshop especially mechanics who
maintain and repair collection vehicles.
3) It is expected to permanently employ the LMU staffs of Matuail landfill site and to make haste to recruit
the staff of LMU of Amin Bazar landfill site. Machine operators, helpers and heavy equipment to beengaged in the landfills should be transferred from Mechanical Division to WMD.
4) Budget officers are supposed to be assigned to both WMDs of north and south.
(2) Recommendations for WMD Management
1) Clean Dhaka Master Plan must be revised to be based on the actual population of service areas. BothDNCC and DSCC are supposed to make a middle to long term master plan (M/P II) in collaborative
manner. This could be a model of the SWM plan for other urban areas such as New City Corporations.
2) The construction of ward offices in remaining wards is awaited as bases of community-based SWM
such as WBA. There are 17 ward offices among 92 wards in total as of November 2012. Therefore,
more construction of ward offices is recommended.
3) It is expected DCCs to make necessary arrangements for WBA core members to spend more time andefforts for the expansion of WBA activities to non-WBA wards.
4) It is expected DCCs to make a regular open meeting for monitoring of WMD’s activities like theseminar for revising WMD Directives.
5) It is highly recommended to continue SWM accounting system for both DCCs. Based on the SWM
accounting, bottom-up budgeting is expected to be continued.
(3) Recommendations for WMD Activities
1) Since Amin Bazar landfill site does not fully operate, it is highly required to complete the constructionin order to realize the full-scale operation as soon as possible.
2) Planning and periodical implementation of environmental monitoring for both Matuail and Amin Bazar
landfills are highly recommended.
3) WMDs are to provide safety-gears to cleaners timely and continuously.
(4) Others
1) It is required DCCs to further improve their capacities of waste management services in order to collect
not only 66% but 100% of waste generated in the city.
2) It is anticipated to incorporate the experience and knowledge of the project (PDCA operation of SWM,
efficient waste collection by compactors, participatory WBA, sanitary landfill site, integrated management
by a single agent such as WMD, etc.) in national level laws and regulations relating to solid waste
management specifically in the strategy and guidelines currently in the process of preparation by DOE.
3) It is expected to incorporate the experience and knowledge of the project in the comprehensive city
planning such as a plan of New City Corporation in its early stages. It is recommended to establish a
network among city corporations and Pourshavas in Bangladesh in order to promote sound solid waste
management based on the DCCs’ experiences.
4) It is expected to make mass media involved for further publications of some central concept of thewaste management model developed by the project such as community awareness rising and participatory
approach.
3-7 Lessons Learned
1) WBA can be introduced to urban waste management projects as a unique model of a community
participatory waste management approach.
2) The modernization of secondary collection system such as the introduction of compactors could besignificantly effective especially in densely populated areas.
3) This project has integrated other cooperation schemes such as EGAP, JDCF and JOCV into its activities
and it has eventually made them to be a program. However, because it was not originally designed as aprogram, some components such as the construction of landfill sites could not make synergy effectively
6with other components. A program has to be planned and designed as a program from the beginning.
4) Since the executive level officers of WMDs could not be sufficiently assigned to the project ascounterparts, the development effects of the project could not be fully realized.
5) In this project, JCC has not been functioned well as a coordinating organization among relevantorganizations. For the effective project implementation, involvement of high level executive officers
through JCC would be highly required.
6) In order to succeed program approach, it is necessary to monitor activities regularly, modify activities andrevise action plan flexibly according to the result of the monitoring. One of the good example of Clean
Dhaka is introduction of WBA that is not included original M/P.

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