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Ex-post Evaluation

Asia

1. Outline of the Project

Country:

Pakistan

Project title:

Project for Improvement of Environmental Conditions in Quetta City

Issue/Sector:

Urban Sanitation

Cooperation Scheme:

Grant Aid

Division in Charge:

Grant Aid Management Department

Total Cost:

660 million yen

Period of Cooperation

FY 1996

Partner Country’s Implementing Organization:

Quetta Municipal Corporation (QMC)

Supporting Organization in Japan:

Related Cooperation:

1-1 Background of the Project

Quetta City is the capital of Balochistan Province, with an annual population growth rate exceeding 7% and home to over 100,000 refugees from the neighboring country of Afghanistan. The Quetta Municipal Corporation (QMC) was not able to build up its city services and infrastructure enough to keep up with its population increase, and the inefficiency in cleaning operations became a serious social problem. Twenty garbage collection trucks were operable, and of these, eight were purchased over 10 years ago. Frequent breakdowns had lowered the operation rate. The garbage collection rate was only 35%, and the remainder was left scattered on the streets. Sanitary landfill methods such as leveling, compacting, or covering the garbage with soil were not adopted at the final disposal site. Under this background, QMC established a Solid Waste Management (SWM) plan and the government of Pakistan requested Grant Aid for procuring new equipment from the Japanese government.

1-2 Project Overview

Japan provided Grant Aid for procuring equipment to switch from garbage collection done manually to a container collection method and for transition from the open dump method to the sanitary landfill method, based on the Solid Waste Management Plan.

(1) Overall Goal
To improve sanitation in Quetta City.

(2) Project Purpose
To improve QMC’s systems for garbage collection, its capacity and system.

(3) Output
1) Equipment necessary for the container collection method is procured.
2) Equipment necessary for disposal of garbage using the sanitary landfill method. 3) equipment and materials needed to maintain and operate equipment is procured.

(4) Input

Japanese Side:

660 million yen

Pakistan Side:

Land and facilities

2. Evaluation Team

Members of Evaluation Team

Laiq Ali, Independent consultant
Tahira Shaikh, Semiotics Consultants (Pvt.) Limited

Period of Evaluation

January 3, 2003 – January 31, 2003

Type of Evaluation:

Ex-Post Evaluation by Overseas Office

3. Results of Evaluation

3-1 Summary of Evaluation Results

(1) Impact
The improvement of the sanitary conditions in Quetta City, the equipment necessary for the container collection method and the sanitary landfill method were implemented, based on the SWM plan which aimed to improve QMC’s ability to collect and dispose of garbage.

Due to decentralization policies of the government, QMC was divided into two town municipal administrations; (TMAs) of Zarghoon Town and Chilton Town on August in 2001. The administrative organization was divided into two accordingly. Garbage collection employees in Zarghoon Town stated that when the project was initially over, using containers for garbage collection led to improvement in sanitary conditions in the surrounding area and reduced odors and bugs like flies. While the container collection methods was introduced as planned in more than half of the targeted area, the method has not yet fully functioned in some parts due to the cost burden.

The sanitary landfill method has not been fully introduced due to financial restraints. As a result, the surrounding environment suffered from air pollution caused by methane gas in the final disposal site.

As described, while some planned activities were implemented as planned, others were not implemented. The expected impact was thus deemed to be less than expected as of the evaluation.

(2) Sustainability
The project provided the equipment necessary to switch from garbage collection done manually to a container collection method and from the open dump method to the sanitary landfill method. A new mechanical workshop cum parking lot is currently being constructed on about 16,000? of land in Chilton Town, and tools for the mechanical workshop were also procured in the project.

When the Project was implemented, the Sanitation Division of QMC as the implementing organization, had more than 1000 staff members. As a result QMC was divided into the two TMAs. The 58 jurisdictional districts were expanded into 66, adding the 9 surrounding districts, with Zarghoon supervising 37 districts and Chilton supervising 29 districts. Accordingly QMC staff and assets—including the equipment procured by the project— were divided in half.

Before the divide, the newly -built mechanical workshop repaired and maintained the equipment obtained in the project. After the divide, however, the provincial government and city council were not able to come to an agreement, and it is not clear how the buildings, tools, equipment and spare parts belonging to the new mechanical workshop should be distributed. These tools, equipment and spare parts have been stored in the Zarghoon warehouse.

Zarghoon is one of two TMAs is an urban section of Quetta, and although it is narrow in terms of acreage, it is home to about 700,000 people. The Sanitation Division’s 723 staff members cover the entire jurisdictional district, but fiscal restraints prevent them from hiring staff that can operate the procured equipment, and that some equipment is not being used. The old mechanical workshop maintains the vehicles, and five container drivers that were trained in Japan and one machinery technician are all assigned to Zarghoon. The container trucks are relatively new, so there are no major problems with their operation.

Chilton Town, which is another TMAs, is quite large, with 80% in rural areas and the other 20% in city areas. About 200,000 of the 302,600 population are assumed to be refugees from Afghanistan. The Sanitation Division’s staff members are not able to cover such a wide area, and garbage is only collected in 11 of the jurisdictional districts. As described earlier, at the time of this evaluation, adequate maintenance management is not necessarily done in Chilton because allocation for both TMAs for such things as equipment and buildings of the new mechanical workshop has not been determined yet.

Allocation for equipment and the organization(s) in charge are still uncertain for cleaning operations since it is not long after the division of ex-Quetta city,therefore the garbage collection rate in Zarghoon and Chilton have been on the decrease and they are approaching the levels seen before the project was implemented. (In 1998 the garbage collection rate was improved to 77%, but it decreased gradually. Garbage often ends up scattered on the ground and clogging the drains. Garbage is often left abandoned around the containers, and there are complaints of bad odors and scattered garbage. Whether or not garbage is properly thrown away in the containers seems dependent on the residents’ understanding.

In Balochistan Province, the TMA’s annual budget is 148 million rupees, but the financial conditions are strained and prevent cleaning work.

3-2 Factors that promoted realization of effects

(1) Factors Concerning the Planning
N/A

(2) Factors Concerning the Implementation Process
N/A

3-3 Factors that Impeded the Realization of Effects

(1) Factors Concerning the Planning
N/A

(2) Factors Concerning the Implementation Process
1) Due to the devolution plan, QMC was divided into the two TMAs, Zarghoon and Chilton in August 2001. With the introduction of a new administrative organization, the Balochistan province government and the city councils held a conference in February 2002 on the division of QMC’s assets, including the buildings and equipment of the mechanical workshop, but there was no resolution. It has come to influence the cleaning work.
2) Since the sanitary landfill method was not adopted, the environment has not improved.
3) Chilton’s jurisdictional districts increased from 23 to 29, and Chilton was not able to hire more staff to meet the needs of this expanded area due to an inadequate fiscal budget. As a result, garbage collection has been discontinued in some areas.

3-4 Conclusion

The planned activities have not been fully introduced, as evidenced by the fact that due to fiscal restraints the sanitary landfill method was not adopted and some of the container trucks are not in use. Accordingly they have not been able to hire enough container drivers. The realization of effects was thus smaller than expected. In addition, under the devolution plan each TMA was responsible for its own cleaning work, but allocation of equipment has yet to be determined, which also influences cleaning work. For that reason, when the project was completed, the garbage collection rate improved to 77% temporally, but gradually decreased and reached an average of 59% in 2002.

3-5 Recommendations

(1) The sanitary landfill method should be adopted sooner to improve sanitary conditions.

(2) Chilton should consider ways to ensure adequate maintenance management and also should train the workshop employees.

(3) It is necessary to devise ways of procuring funds for operation expenses and creating an environment in which the procured equipment can be used appropriately.

3-6 Lessons Learned

N/A

3-7 Follow-up Situation

N/A

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