Solid Waste Management in Big Cities of Tanzania

Solid Waste Management
A PERFORMANCE AUDIT ON THE MANAGEMENT OF SOLID WASTE

IN BIG CITIES AND REGION(S) IN TANZANIA
MBEYA, DAR ES SALAAM, MWANZA AND ARUSHA
A REPORT OF THE CONTROLLER AND AUDITOR GENERAL OF THE UNITED REPUBLIC OF TANZANIA
NATIONAL AUDIT OFFICE - TANZANIA

Office of the Controller and Auditor General,

National Audit Office,
The United Republic of Tanzania.
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The statutory duties and responsibilities of the Controller and Auditor General are given under Article 143
of the Constitution of the URT of 1977 (revised 2002) and in the Public Audit Act No. 11 of 2008.
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(i) This audit report is intended to be used by Government Authorities. However, upon receipt of the
CAG report by the Speaker and once tabled in Parliament, the report becomes a matter of public
record and its distribution may not be limited.
(ii) A photo on the cover page shows a pile of solid waste (SW) remained uncollected at Buguruni
near Rozana bus stand. This pile is just next to residential houses and shops.
II NATIONAL AUDIT OFFICE - TANZANIA

TABLE OF CONTENTS
PREFACE V
ACRONYM/ABBREVIATIONS VI
EXECUTIVE SUMMARY VII
CHAPTER 1 1
INTRODUCTION 1
CHAPTER 2 7
2.1 WHO IS RESPONSIBLE FOR WHAT? 7
2.2 System set up of SWM at national level 9
2.3 System Organisation in LGAs 9
CHAPTER 3 13
INTRODUCTION TO FINDINGS 13
CHAPTER 4 16
KINONDONI MUNICIPAL COUNCIL 16
4.1 Overview 16
4.2 Generated and collected solid waste 17
4.2.1 The assumptions and amount of generated solid waste over time 17
4.2.2 The estimated amount of collected solid waste 18
4.2.3 Generated and collected solid waste in various wards 20
4.3 Goals and objectives for the solid waste collection 21
4.4 Procurement of private service providers 22
4.5 Effectiveness and cost efficiency among service providers 25
4.6 Monitoring, inspection and quality assurance 27
4.7 Sanctions and enforcement of contracts 30
4.8 The system of SW fees and how it operates 32
4.9 Conclusions on solid waste management at KMC 33
CHAPTER 5 35
TEMEKE MUNICIPAL COUNCIL 35
5.1 Overview 35
5.2 Generation and collection of solid waste 35
5.4 Procurement of franchise contractors 39
5.9 Conclusions on solid waste management at TMC 46
CHAPTER 6 47
ILALA MUNICIPAL COUNCIL 47
6.1 Overview 47
6.9 Conclusions on solid waste management at IMC 60

III
CHAPTER 7 62
ILALA MUNICIPAL COUNCIL 62
7.1 Overview 62
7.2.1 The estimated amount of generated solid waste over time 62
7.2.2 The estimated amount of collected solid waste 63
7.2.3 Generated and collected solid waste in various wards 64
7.4 Effectiveness and cost efficiency of MCC 66
7.6 Sanctions and enforcement of by-laws 70
7.8 Conclusions on solid waste management at MCC 73
CHAPTER 8 74
ARUSHA MUNICIPAL COUNCIL 74
8.1 Overview 74
8.4 Procurement of franchise contractors 78
8.5 Effectiveness and cost efficiency 78
8.9 Conclusions on solid waste management at AMC 87
CHAPTER 9 89
MWANZA CITY COUNCIL 89
9.1 Overview 89
9.9 Conclusions on solid waste management at the MwCC 102
CHAPTER 10 104
SUM UP FOR ALL COUNCILS 104
CHAPTER 11 111
CENTRAL GOVERNMENT 111
11.1 No national standards set for operation of SW activities 111
11.2 Central government does not have a good general overview regarding SWM in Tanzania 111
11.3 The monitoring system at central government level 112
11.4 Central authorities and appropriate actions to assist the Local Councils 112
CHAPTER 12 154
CONCLUSIONS 154
12.1 GENERAL CONCLUSIONS 154
CHAPTER 13 118
RECOMENDATION 118
13.1 CENTRAL GOVERNMENT 118
13.2 LOCAL GOVERNMENT AUTHORITIES 120
REFERENCES 124
APPENDIX 1 126
APPENDIX 2 128
APPENDIX 3 133
APPENDIX 4 134
APPENDIX 5 137
APPENDIX 6 138
IV NATIONAL AUDIT OFFICE - TANZANIA

PREFACE
The Public Audit Act No. 11 of 2008, Section 28 authorizes the Controller and Auditor General to carry
out Performance Audit (Value-for-Money Audit) for the purposes of establishing the economy, efficiency and
effectiveness of any expenditure or use of resources in the MDAs, LGAs and Public Bodies and other Bodies
which involves enquiring, examining, investigating and reporting, in so far as I consider necessary.
I have the honour to submit to the President of the United Republic of Tanzania, Dr. Jakaya Mrisho Kikwete
and through him to Parliament my Performance Audit Report on the Management of Solid Waste in big Cities
and Municipalities in Tanzania.
The report contains conclusions and recommendations that directly concern the Central Government through
the Prime Ministers Office Regional Administration and Local Government Authorities (PMO-RALG), the
Ministry of Health and Social Welfare, the Directorate of Environment, National Environmental Management
Council and Tanzania Bureau of Standards; and Local Government Authorities namely Arusha Municipal, Mbeya
City, Mwanza City, Ilala Municipal, Temeke Municipal and Kinondoni Municipal Councils.
The said Central and Local Government Authorities have been given the opportunity to scrutinise the factual
content of and comment on the draft report. I wish to acknowledge that the discussions with the auditees
have been very constructive.
My office intends to carry out a follow-up at an appropriate time regarding actions taken by the auditees in
relation to the recommendations of this report.
In completion of the assignment, the office subjected the report to the critical reviews of the following technical
advisors, namely Dr. Esnath O. Chaggu, Dr. Shaaban Mgana, Dr. Kumbwaeli Salewi and Mr. Elias Chinamo who
came up with useful input in improving the output of this report.
This report has been prepared by Eng. George C. Haule, Michael Malabeja and Elizabeth Augustino under the
guidance of Gregory G.Teu. I would like to thank my staff for their assistance in the preparation of this report.
My thanks also should go to the auditees for their fruitful interaction with my office.
Ludovick S. L. Utouh
Controller and Auditor General
Dar es Salaam, July 2009

ACRONYM/ABBREVIATIONS
ALAT Association of Local Government Authorities of Tanzania

AMC Arusha Municipal Council
ARU - Ardhi University
CBO Community Based Organization
CHO City Health Officer
CMOH City Medical Officer of Health
DOE Department of Environment
ILO International Labour Organizations
IMC Ilala Municipal Council
JET Journalists Environmental Association of Tanzania
JICA Japan International Cooperation Agency
KENS Kinondoni Environmentalists
KIWODET Kisutu Women Trust Fund
KMC Kinondoni Municipal Council
LEAT Lawyers Environmental Action Team
LGAs Local Government Authorities
MCC Mbeya City Council
MDAs Ministries, Departments and Agencies
MoHSW Ministry of Health and Social Welfare
MwCC Mwanza City Council
NAOT National Audit Office of Tanzania
NBS National Bureau of Statistics
NEHHSAS National Environmental Health, Hygiene and Sanitation
Strategy
NEMC National Environmental Management Council
PMO-RALG Prime Ministers Office - Regional Administration and
Local Government Authorities
SW Solid Waste
SWM Solid Waste Management
TBS Tanzania Bureau of Standards
TMC Temeke Municipal Council
TShs. Tanzanian shillings
VPO Vice Presidents Office
YEP Young Environmental People
VI NATIONAL AUDIT OFFICE - TANZANIA

MAP OF TANZANIA SHOWING LOCATIONS OF SIX AUDITED COUNCILS
Bukoba
Musoma
Bunda
MWANZA
Pamba
Misungwi Igoma
Usariver
Mianzini
ARUSHA
Moshi
Shinyanga
Kahama
Babati
Kigoma Urambo
Tabora Singida Pemba
Tanga
Zanzibar
Dodoma
Morogoro
DAR ES SALAAM
Kibaha
Iringa MAFIA
Sumbawanga Makambako
MBEYA
Tukuyu
Kyela
Lindi
Mtwara
AUDITED COUNCILS Songea
DAR ES SALAAM HAS THREE COUNCILS
Ilala Municipal Council

Kinondoni Municipal Council
Temeke Municipal Council

VII
EXECUTIVE SUMMARY
THE CHALLENGE
One result of the significant population growth in the big cities and regions of Tanzania has been an increase in
the amount of solid waste generated.The cities and Municipal Councils are responsible for managing this solid
waste, however, large amounts of uncollected solid waste in the streets of commercial and residential areas
has been the subject of increasing public concern.
Solid waste management (SWM) is important to safeguard human health and to protect the environment. Most
countries, both developing and developed, recognize the importance of waste management. Improper solid
waste management can lead to illegal dumping and to the contamination of soil, surface water, groundwater
and air.
Furthermore, insufficient waste handling and emissions can have negative impacts on public health.
This problem of inadequate management of solid waste in Tanzania has been debated and discussed by most
of the stakeholders including, citizens who asked for the SWM service delivery to be improved.
RESPONSIBILITY FOR SOLID WASTE MANAGEMENT IN TANZANIA
Central Government
Central Government through the Prime Ministers Office Regional Administration and Local Government
Authorities is responsible for instituting a system of SWM which can be used by the LGAs to deal with SW
in their local authorities.
Also, the Central government through the Ministry of Health and Social Welfare, Directorate of Environment,
National Environmental Management Council and Tanzania Bureau of Standards are responsible for setting
standards, Environmental policies and regulations related to SW management in Tanzania. Likewise the same
organs are also responsible for monitoring those standards, policies and regulations which are supposed to
be adhered to by the Local Authorities. The powers and responsibilities of the above mentioned central level
organs are vested in the Environmental Management Act No. 20 of 2004.
Local Government Authorities

Local Government Authorities (LGAs) are required by the Local Government Act (Urban Authorities) No. 8
of 1982 to conduct SWM services in their local authorities and allowed to charge SW fees. These Councils
are responsible for both collection of SW and SW fees. The same act has given these Councils the mandate
to outsource these services of collection of SW and SW fees.
OBJECTIVE OF THE AUDIT
The objective of our audit was to determine whether the solid waste management functions of selected
local government authorities in Tanzania was undertaken in the most efficient and effective manner giving
consideration to services rendered by service providers, monitoring of solid waste activities, Solid waste (SW)
fees administration, contracts management between franchisee contractors and Municipality/City Council and
appropriateness of the central governments monitoring system.
VIII NATIONAL AUDIT OFFICE - TANZANIA

AUDIT FINDINGS
The major findings of the audit were as follows:
There is increasing problem of SWM in Tanzania

The amounts of SW not taken away from LGAs are increasing very rapidly. In all six LGAs audited, the amount
of solid waste not collected by LGAs is more than 50% of the total SW generated in those six (6) LGAs.
This is an indication of an increasing problem, since population continues to grow while SWM services are
dwindling.The uncollected wastes pose a potential health hazard to the people. In many occasions they handle
the waste inappropriately.
There is poor and varying performance among service providers

The audit has found that, service providers (franchisee contractors and CBOs) in different Councils are:-
Very weak, which means that the capability of franchisee contractors is very small in terms of collection
of SW fees and SW
Neither profitable nor efficient
Very fragile due to the fact that SWM system is not working properly at all, franchisee contractors
are left to work alone as much as they can, and it seems that LGAs are worried to take action against
underperforming contractors simply because these contractors are weak and there are no better alternatives
contractors to do the job.
The present system of SWM is irrational

The audit has found that, there is no division between service provision and monitoring within the Municipal/
City Council. In that regard, staff in SWM section are responsible for service provision and at the same time
monitoring the SWM activities discharged by the same officials within the section or franchisee contractors.
However, the audit has noted that service providers (franchisee contractors or CBOs) are not acting as
service providers and Councils are not really acting as the procurers of the SWM services. This is due to:
i.) Service providers are collecting both SW and SW fees

ii.) There is no critical evaluation of the SW fees to review its system and to see why Councils are not
collecting the fees properly.
iii.) There are no critical studies carried out to establish the actual cost of managing SW per ton and make
it a basis for contracting with franchisee contractors.
iv.) It seems that Councils are not choosing service providers who provide the best offer
v.) In the present contracts between Councils and franchisee contractors, there is no clear and open
target set between them.
vi.) Councils lack proper inventory per ward or street to capture the most important information i.e.
number of households, businesses, industries served, those who paid or not paid etc.
vii.) There is no franchisee contractor or CBO who revealed its financial gains and it is very difficult for
the Councils to know exactly whether these franchisees are really making profit or not. Also, Councils
are supposed to monitor their books of account but they were not doing so.
viii.) It is almost impossible to have a potential monitoring system unless Councils (LGAs) get all necessary
SW fees and put the fees under their control and then institute standardized monitoring criteria.

IX
A peculiar and ill functioning financial system in SWM

The audit has noted that in five out of the six LGAs audited they have privatised the SWM services to
franchisee contractors or CBOs for them to collect SW and SW fees in the ward(s) they are servicing.
Most of the franchisee contractors do not have enough capability to collect SW fees and do not have teeth to
bite the residents and to force them to pay. This has occurred because:
Most of the residents are not paying their fees.

There is a serious problem of data management at LGA level.
Consequently, the above reasons have resulted into the following effects:
More than half of the generated solid waste is left uncollected.

Most of the contractors are not able to meet their contractual obligations due to financial
difficulties and several of them have been forced to abandon their work.
Inefficient procurement of SWM Contractors/CBOs

During the audit it was noted that, most of the franchisee contractors or CBOs who had been procured
abandoned their work after a short time and for those who kept on working underperformed.This is manifested
by the fact that:
Franchisee contractors who had been procured were not able to make profit. Most of them, small or
newly established companies have limited financial resources, or they consist of small groups of people
with no or little experience in the field and with poor capacity for the work.This might be an indication
of poor procurement and poor supply of service providers.
The criteria used for evaluation of potential contractors are not suitable for SWM services. The LGAs
have not sufficiently examined whether the potential contractors or CBOs have appropriate experience
and capacity to fulfil their tasks or not.
Private operators in SWM lack the required expertise in management and business administration in
the LGAs for them to fulfil their professional obligations as competent procurer (contracting partner)
and monitoring of works.
Targets for collection of solid waste are poorly developed

The audited LGAs have not set targets for solid waste to be collected in each ward. The only target set is
for the entire council, but at the same time the service providers (councils and franchisee contractors) are
providing SWM services in individual wards.
This has resulted in the fact that the service providers are operating without having a strong benchmark
which can be used to measure their performance and so becomes very difficult to assess whether the service
provider is doing well based on the target set.
Also the audit noted that the solid waste generation rate (factor) used for estimation of produced waste
ranges between 0.5 1.2kg per person and day.The audit has not been able to assess whether this is a realistic
factor. The factor is however built on studies conducted several years ago (1998 and 2004) and has not been
updated since then.

Inspection and monitoring activities are poorly planned, documented and evaluated
The audit found that, all Councils audited were conducting sporadic inspections but there was none with
inspection plans, set priorities and clear objectives. Some of the Councils said that they conduct daily inspections,
but there was no information or data to support that. Also the audit noted that:
The SWM inspectors were supposed to prepare inspection reports and take necessary corrective
measures with all the deficiencies or weaknesses noted during the inspection. But there was no
evidence showing that such actions have took place.
These officials normally conduct inspections without having clearly stated items to inspect and report
verbally to Council SWM officials. Neither in these cases were any kind of reports provided.
Monitoring of SWM activities is regulated by law and also stated in the contracts between the LGAs
and the contractors. Some LGAs have also set some monitoring criteria. The audit has however not
been able to find documentation from any LGA showing that any monitoring activities took place.
The audit has not been able to come across any evaluation of the efficiency and effectiveness of the
inspection and monitoring systems of SWM activities in any of the LGA audited.
Sanctions are rarely applied

Sanctions are seldom applied although they are set into contracts entered between LGAs and the franchisee
contractors (for those Councils which have outsourced part of SWM activities to private service providers)
and in the Municipal or City by-laws. This is despite the fact that:
LGAs have a lot of defaulters who failed to pay SW fees on time.

The franchisee contractors are not performing their duties as expected but measures have not been
taken to rectify the situation despite the poor performance.
Lack of National standards and policies on SWM

National standards and policies have not been developed. The SWM activities in Tanzania have a number of
regulators who are responsible for providing standards to be followed, policies to be used while working on
this field and also governing regulations.
Currently, LGAs are operating without having these SWM standards. TBS has not yet developed
them, inspite the fact that the Environmental Management Act stipulates that these standards need to
be developed.
The lack of standards implies that, it is to a large extent up to each LGA to decide how to operate.
Department of Environment (DoE VPO) and National Environmental Management Council (NEMC)
are responsible for ensuring that all environmental laws, regulations and policies are followed. They
have not yet done much on the area of SWM.
There is currently no national SWM strategic plan
Consequently, the operational system for SWM is working without having clear policies and
regulations.
Inadequate monitoring and evaluation of SW activities by Central government

Central government is not adequately engaged in monitoring and evaluation of SW activities in the
country.
PMO-RALG is not aware at the moment how much SW are generated and collected daily in each
Council in Tanzania. Also, PMO RALG does not know how these councils are measuring or estimating
the amount of SW generated and collected since there is no uniform way of estimating and recording
SWM data.
PMO-RALG officials have not done monitoring focusing on the SWM activities in Tanzania and take
necessary action to improve some of the areas which need attention of the central government.

XI
MAIN CONCLUSIONS
The audit concluded that PMO-RALG, MoHSW and VPO as leading central government ministries regarding
SWM in Tanzania have inadequately addressed the problem of SW. This is due to the fact that:
This is not an isolated problem; as observed all over the country. This means that, SW is not an issue
concerning only the six LGAs audited, it is an issue which is related to inadequate systems for the
management of SW in the whole country. The central government has a responsibility but has not
intervened adequately and has left this work to the LGAs, knowing the fact that there is no proper
guidance provided to them.
Proper guidance and setting of standards for SWM are issues which can only be dealt with by the
Central Government
The central governments monitoring system is inappropriate.
Central government through PMO-RALG has not taken adequate actions to address this problem of ever
increasing SW and those not collected. Also, there is inadequate guidance or monitoring action done by PMO-
RALG to deal with this increasing problem.
Moreover, the audit concluded that generally, the selected LGAs have not efficiently and effectively carried out
their SWM function through the services rendered by service providers, monitoring of solid waste activities,
Solid waste fees administration, contracts management between franchisee contractors and councils.This was
due to failure of the service providers to render their services as expected, inadequate monitoring of the
performance of service providers in the collection, cleaning and disposal of SW, inappropriate management
of contracts between franchisee contractors and Councils and failure to collect SW fees as stipulated in the
LGAs by-laws.
RECOMMENDATIONS
RECOMMENDATIONS TO CENTRAL GOVERNMENT
i) to PMO-RALG
a) Development of the adequate SW fees

The Prime Ministers Office - Regional Administration and Local Government Authorities should guide the
LGAs to develop systems for SWM, where the collection of realistic SW fees is a key issue. It should direct
these LGAs on the best practices on how to collect SW fees, keep the data for those who are supposed to
pay. The SW fees developed should meet the following criteria:
Reasonable amount to pay
Based on reasonable SWM expenditures
b) Separation of role of collecting SW fees and service delivery performed by SW contractors

The Prime Ministers Office - Regional Administration and Local Government Authorities should ensure that
there is a distinct separation of the role of collecting SW fees and service delivery (solid waste collection) of
contractors. The LGAs should be responsible for collection of SW fees and pay the contractors and let the
contractors collect SW only.
c) Separation of functions which involve procurement, service delivery and monitoring

The Prime Ministers Office - Regional Administration and Local Government Authorities should ensure that
there is a distinct separation of the role of the procurement of contractors; service delivery and monitoring
functions within the LGA.These functions should be carried out by different staff in order to promote efficiency
XII NATIONAL AUDIT OFFICE - TANZANIA

and accountability in SWM activities.
d) Procurement should be based on cost estimates and select one who is reliable
The Prime Ministers Office - Regional Administration and Local Government Authorities should ensure that,
LGAs procure SW contractors based on the cost estimates of managing solid waste on a particular ward(s)
and select the one who is reliable based on the criteria which fit the actual situation on the ground. Lowest
cost bidder is not always the best but lowest should be in the sense of lowest evaluated cost.
e) Prepare a checklist for self assessment

To PMO-RALG
The Prime Ministers Office - Regional Administration and Local Government Authorities should use this
report to prepare a checklist or questionnaire which can go out to each of the Councils, so that they can do
self assessment in order for the Ministry to get a big picture of what is going on around the country.
f) Devise mechanism for people to pay SW fees

To PMO-RALG
The Prime Ministers Office - Regional Administration and Local Government Authorities should devise a
mechanism, for paying SW fees. The ten cell leaders can be given the mandate to remind people about their
obligation and responsibilities of paying.
g) Each Council should know or estimate how much revenue can be collected in wards
The Prime Ministers Office - Regional Administration and Local Government Authorities should ensure that,
each Council knows or estimates how much SW revenue the council will be able to collect; and come up with
a realistic picture of how much solid waste are generated and supposed to be collected.
h) Seek a legal advice on the enforcement of sanctions

The Prime Ministers Office - Regional Administration and Local Government Authorities should seek legal
advice from Attorney-General on whether the SW contractors are supposed to enforce the sanctions defined
in City or Municipal by-laws.
i) Monitoring and evaluation of SWM activities

The Prime Ministers Office - Regional Administration and Local Government Authorities should engage itself
in monitoring and evaluation of SWM activities throughout a country. Nonetheless, a workable monitoring and
evaluation plan should be upfront in place.
ii) To TBS
Standards for SWM
The Tanzania Bureau of Standards should set standards for solid waste management which have to be adhered
to by all LGAs when they discharge their duties to ensure consistency of the services rendered.
iii) To MoHSW, DoE VPO and NEMC

Policy and regulations on SW
The Ministry of Health and Social Welfare (MoHSW), Department of Environment (VPO DoE) and the
National Environmental Management Council (NEMC) should develop clear policies and regulations to be
used for the operational system for SW in Tanzania.

XIII
RECOMMENDATIONS TO LOCAL GOVERNMENT AUTHORITIES (LGAS)
i) To SWM SECTION
a) Estimating the Amount of Solid Waste generated
The Solid Waste Management section in the LGAs, should establish a system of solid waste data management
that could be reliable when estimating the amount of solid waste generated and collected each year.
b) Set performance requirements and targets for SW collection

The SWM Department of Local Government Authorities should set performance requirements to its SW
contractors and also for the municipal SW collections. Also the SWM Section should ensure that the target
for SW to be collected in each ward is set and service providers comply with it.
c) Differences in the performance among service providers

The Solid Waste Management section should collect enough information from SW contractors to be able to
determine the causes of differences in performance among service providers in terms of quantity, quality and
profitability.
d) Periodic Evaluation of service providers performance

The Local Government Authorities should form a team to carry out an assessment of the capabilities of its
SW service providers and the obstacles they face in achieving an acceptable level of performance. The team
should collect the views of stakeholders about the suitability of the SWM services offered by the service
providers.
e) Improve the System for Monitoring Performance

The Solid Waste Management section in the LGAs, should review the type, amount and frequency of information
it needs to monitor in the performance of its service providers. In doing this, the SWM section should balance
its information needs against the burden placed on the service providers to prepare the information.
f) Performance requirements for the service providers

The solid waste management section in the LGAs, should set indicators to be used to assess the contractual
compliance of the SW contractors. These indicators should be clearly stated in the contract and closely
monitored to ensure delivery of satisfactory services.The monitoring will allow the SWM section to properly
effect accountability measures in cases of unsatisfactory performance.
g) Inspections of service providers

The SWM section in the LGAs, should conduct an appropriate level of inspections and follow up on those
inspections. The findings and actions recommended as a result of the inspections should be documented.
Recommendations resulting from the inspections should be used to improve the service providers
performance. The inspection program should focus on risk areas. The frequency of inspections conducted
should be determined by the improvements resulting from the inspections.
h) Establish a feedback mechanism

SWM teams in the LGAs, should establish feedback mechanism between themselves and the service providers
so as to provide the Council with the timely, relevant, reliable and valid information.
i) Quantity and quality assurance system

The Solid Waste Management section in the LGAs, should ensure that each SWM service provider has an
adequate system of quantity and quality assurance monitoring. The system should include the identification
of the major activities to be monitored, establishing strategies to monitor each activity and establishing a
representative percentage for each activity to be monitored.
XIV NATIONAL AUDIT OFFICE - TANZANIA

j) System for SW fees

The Local Government Authorities should establish the system of SW fees which will cover all operational
costs of solid waste activities. This will be facilitated by doing analysis of their budgets and costs of SWM,
thereafter identifying all sources of solid waste revenues so that they can estimate the SW fee revenue they
can earn. Moreover, the Council should conduct a study on the citizens attitudes towards participatory fees
system.
k) Establish an inventory system or database

The Local Government Authorities should have a proper inventory system which can capture all the details
regarding the number of household, business, industries in a particular ward so as to establish a list of potential
revenues and to avoid unnecessary loss incurred by the service providers.
l) Collection of SW fees
The Local Government Authorities and SWM Section should establish new methodology/techniques of
collecting SW fees. The LGAs should conduct analysis of all sources of revenue and identify the appropriate
sources to incorporate the percentage of running solid waste activities.
m) Analysis of non collection of SW fees

The Local Government Authorities and SWM Sections should establish reasons for not collecting SW fees
as stated in the LGAs by-laws so as not to repeat the same mistakes during the implementation of the new
methodology of collecting the SW fees.
n) Responsibility of collecting the SW fees

The Local Government Authorities should be responsible for collecting the SW fees and pay back to the SW
contractors while the responsibility of SW contractors should be the collection of the solid waste only.
ii) To legal and SWM sections

a) Set properly regulated sanctions
The sanctions should be properly regulated as stated in the contracts. The legal office in collaboration with
SWM Section should set the sanctions which are implementable for the sake of improving the efficiency of the
SWM activities. They should however be enforced.
b) Enforcement of contract
SWM section should develop the system for monitoring deviations from the contracts with service providers.
The SWM section should have a copy of each contract; the section should clearly understand the terms and
conditions of the contract.The legal office should enforce the contracts. If the contracts contain requirements
that SWM believes should not be enforced, the contracts should be change.
iii) To PMU
Improve Procedures for Procurement of Private Service Providers
The Procurement Management Unit should improve the evaluation criteria and procedures for procuring SW
contractors to ensure that only qualified contractors are awarded contracts. An in-depth evaluation of the
financial capability, bidders equipment, staffing and other resources should be well evaluated before awarding
any contract.
iv) Department of health

Separation of operating and monitoring functions
The health department should make sure there is separation of duties between monitoring functions and
service delivery activities within a SWM Section.

XV
The supervisory, monitoring and service delivery role should be separated clearly in order to enhance
accountability and also to improve the services rendered. However, this should be well outlined in the
organization structure and job descriptions.
v) To SWM section and accounting department

a) Planning SW fee
The Solid Waste Management section along with the accounting department should undertake a zero-based
budget exercise to determine the cost of collecting solid waste in the municipality. This should include cost
estimates for various percentages of solid waste collected.
b) Separation of SW fees collection and service delivery function

SW fee collection should be the responsibility of the LGAs, not of the SW contractors. The accounting
department should be responsible for collecting all SW fees. The contractors should be paid a fee by LGAs
for providing solid waste management services. That fee could be based on various factors such as collection
area and amount of solid waste collected. The contractors should only be responsible for collecting SW, not
SW fees.
SCRUTINY OF FACTS IN THIS REPORT

The results of the audit were discussed with the concerned Central Government Authorities (PMO - RALG)
and Local Government Authorities audited in separate exit conference(s) conducted between 13th May to
22nd May 2009. Their comments have been incorporated in the report where appropriate.
XVI NATIONAL AUDIT OFFICE - TANZANIA

CHAPTER 1
INTRODUCTION
1.1 OVERVIEW
S olid waste is the waste that is produced in many walks of life but is not free flowing in pipes.The production
categories can be domestic, industrial or institutional.The categories can further be classified into hazardous,
radioactive, medical waste and non-hazardous solid waste. For the purpose of this audit the scope was limited
to non-hazardous solid waste. Quite often the term solid waste produced from domestic settings can be used
interchangeably with the word SW. Their production level depends on population and economic growth, and
consumption patterns of the community at hand.
One result of the significant population growth in the big cities and regions of Tanzania has been a notable
increase in the amount of solid waste generated.The cities and Municipal councils are responsible for managing
this solid waste. It has however been noted that large amounts of uncollected solid waste in the streets
of commercial and residential areas has been the subject of increasing public concern. This is true since
uncollected waste acts as habitats of disease vectors and reduces the aesthetic value of the environment.
Solid waste management (SWM) which covers production of waste and its handling modalities is important
to safeguard human health and to protect the environment. Most countries, both developing and developed,
recognize the importance of waste management. Improper solid waste management can lead to illegal dumping
and to the contamination of soil, surface water, groundwater and air. Some examples are:
Soil can be contaminated with toxic components;

Waste can pollute surface water and groundwater through produced leachate;
Uncontrolled burning of waste produces toxic and carcinogenic gases; and
Leaks of radioactive substances can contaminate the air and soil.
Furthermore, insufficient waste handling and emissions can have negative impacts on public health such as:
The transmission of diseases and infections by rodents and insects;

Birth defects caused by exposure to polluted drinking water;
Cancer caused by radiation exposure;
Respiratory problems which might emanate from waste sorting;
There are six elements to solid waste management; waste generation, collection, transfer, storage, recovery/
processing, and disposal. The main focus of this audit is solid waste collection. Experienced scholars in solid
waste management cited out 80% of the budget set for solid waste management is consumed by the collection
stage.
The collection of solid waste involves different activities; service provision, monitoring, solid waste fees
administration and the management of contracts with franchisees.These activities need to be planned strategically
for solid waste to be effectively and efficiently managed by Local Government Authorities (LGAs).
Under section 55-1(g) (Local Government Act of 1982), Cities/municipalities and district councils have the
primary responsibility for the collection and removal of all solid wastes from any public or private place in
order to prevent injury to health. It is therefore important that SW collection is carefully articulated in order
to reach the intended health targets.

Under section 55-1(g) (Local Government Act of 1982), Cities/municipalities and district councils have the
primary responsibility for the collection and removal of all solid wastes from any public or private place in
order to prevent injury to health. It is therefore important that SW collection is carefully articulated in order
to reach the intended health targets.
There are a number of forums which have discussed the SW issues however, two pertinent reports on solid
waste management in East Africa are:
1. Proceedings of the Training Workshop on Solid Waste Management Officers Responsible for Municipal
Solid Waste Management held in Dodoma, 25-30 November 1996 by The National Environmental
Management Council (NEMC).This paper addresses the issues of the environmental effects of improper
management of solid waste, estimating solid waste generation rates, analyzing solid waste composition,
understanding and selection of appropriate solid waste storage, collection and transportation methods
and plan; and monitoring the performance of SWM programmes.
2. Employment creation in municipal service delivery - improving the living conditions for the poor, by the
International Labour Organization which was conducted in August 2005. The main objectives of this
study was to increase the involvement of micro and community enterprises in the delivery of
environmental services in 15 municipalities in East Africa
Indication of the problem

This problem of inadequate management of solid waste in Tanzania has been debated and discussed by most
of the stakeholders including, the inhabitants who asks for the SWM service delivery to be improved, Local
Government Authorities which need high involvement of private sector in managing SW, private service
delivery (contractors) who want LGAs to be involved more clearly on SWM and ensure that SW fees are
properly collected, and SWM experts who indeed see that the SW management is not done in an appropriate
manner.
1.2 OBJECTIVE AND SCOPE
1.2.1 Audit Objective
The objective of this audit was:
To determine whether the solid waste management function of selected Local Government Authorities in
Tanzania was undertaken in the most efficient and effective manner giving consideration to:
Services rendered by service providers

Monitoring of solid waste activities
Solid waste fees administration
Contracts management between franchisee contractors and Municipality/city council
Appropriateness of the Central Governments monitoring system

1.2.2 Audit Scope
This audit covered the following six councils within Tanzania for the years 2005/2006 and 2006/2007; all of the
areas selected are highly urbanized places with diverse economies and people from all walks of life:
Arusha Municipal Council

Mbeya City Council
Mwanza City Council
Ilala Municipal Council
Temeke Municipal Council
Kinondoni Municipal Council
The Local Government Act No. 8 of 1982 and the Environmental Management Act No.20 of 2004 make these
Councils responsible for solid waste management. The Central Government was also included through Prime
Ministers Office Regional Administration and Local Government (PMO-RALG) as an auditee.
The six councils selected do not all use the same approach to solid waste management. Mbeya City council
has not outsourced its solid waste management services, while the municipal councils of Arusha, Ilala, Temeke,
Kinondoni and Mwanza City have outsourced solid waste management to private contractors.
Dar es Salaam city (has three municipalities: Kinondoni, Ilala and Temeke) Council is responsible for the
management of disposal sites within the City which are used by all three municipalities within Dar es Salaam.
The Health department is responsible for solid waste management in the Councils.
Some of the Councils have industries that use waste products of others as raw materials in manufacturing
their products. For example, some small workshops buy paper, plastic, metal, bottles, cartons, cans and other
recyclable material. Some biodegradable waste finds its ways to composting centres where it is processed into
fertilizer.
1.3 AUDIT DESIGN

The audit work was designed by using questions and the methodology presented in sub-section 1.3.2. The
questions were based on performance of service providers, monitoring systems, sanctions and SW fees. Used
questions were as shown in section 1.3.1.
1.3.1 Audit Questions
Question 1: Are the service providers performing well?

This audit question determined whether there is a reliable system for predicting the amount of solid waste
that needs to be taken away each year, whether performance requirements for the service providers were
well founded and clearly stated, procurement of service providers is according to law and are the best offer
chosen, collection of SW as per agreement, and presence of functioning system for evaluating and comparing
service providers performance.
Question 2: Are the monitoring systems at the local government level appropriate and working well?
This audit question checked whether there is appropriate systems for monitoring service providers performance,
adequate inspections on how the service providers run and manage their services are conducted, there is
sound separation of work between monitoring functions and service delivery activities within a council, and
information on performance from the service providers to the councils are timely, relevant, reliable and valid.

Question 3: Are the sanctions appropriately regulated and enforced if needed?

The audit question evaluated whether sanctions are properly regulated, conditions are sufficient to detect the
need for sanctions, appropriate actions are taken (to avoid repeated mistakes); and system and practices are
evaluated.
Question 4: Are the SW fees set-up correctly and are all fees collected?
This audit question evaluated whether SW fees cover the costs, and are the fees considered to be fair by
households with low ability to pay, fees are properly and fully collected, differences among service providers
capacity to collect fees and if authorities have analyzed the differences and took appropriate actions taken
according to these analysis
Question 5: Is central governments monitoring system appropriate?

This audit question determined whether National standards are set for operation of SW, If central government
have good general overview and insights on how things are run and developed regarding SWM in Tanzania,
appropriateness of the monitoring system at central government level; and check whether the central
authorities have taken appropriate actions to assist the local councils in the major cities on improving SWM
efficiency activities.
1.3.2 Methods and Implementation

After preparation of the Audit questions mentioned above, the administration of audit questions were done
as follows:
The Senior Staff were Interviewed in the following areas:
Central Government - Senior officials in PMO-RALG, NEMC, Tanzania Bureau of Standards

(TBS) and the Department for Environment (DoE) in the Vice Presidents Office.
Local Government - City/Municipal Directors, Heads of Health or SWM Departments, Heads

of procurement unit, Legal Officers and City/municipal Treasurers in the six local government
authorities.
A number of documents were reviewed including:

Local Government Act No. 8 of 1982
Environmental Management Act No. 20 of 2004
Environmental Regulations of 2005
National Environmental Policy of 1997
By-laws from all seven Local Government Authorities
Environmental Health and Sanitation standards by MoHSW
Other documents (see Appendix 1)
Third parties were consulted on their views of the performance of LGAs. They included:
Journalists Environmental Association of Tanzania (JET)
Lawyers Environmental Action Team (LEAT)
Ardhi University (ARU) Lecturers
In the company of solid waste management officials of the LGAs, the team visited a number of collection
points and disposal sites at Mbeya Municipal Council, Mwanza City Council, Temeke Municipal Council,
Ilala Municipal Council, Kinondoni Municipal Council and Dar es Salaam City Council.

The audit team interviewed senior representatives of major solid waste contractors in all 6 LGAs.
A stakeholders workshop was conducted in December 2007.This workshop was attended by auditees,
franchisee contractors, academic institutions and central government representatives to discuss the
preliminary findings of this audit. (See Appendix 3 - Name of participants)
Additional focus group discussion was undertaken. A group of people were asked about their attitude
towards Solid Waste Management, service delivery, monitoring system by the LGAs and Central
government, regulation and implementation of sanctions, SW fees set up and their collection and ways
of improving the situation. Questions were asked in an interactive group setting where participants
were free to talk with other group members.
1.4 LIMITATION OF THE AUDIT
There are some limitations that need to be acknowledged and addressed regarding this audit. They were as
presented hereunder, limitation:
i) Concerning the availability and adequacy of SWM data from the LGAs. It has not been easy for the audit
team to get readily available data, but the office kept on collecting information/data throughout the audit and
carry out computation to establish the data/information sought by the audit team.
ii) About availability of reliable data: the team got conflicting information from different LGAs illustrating that
the information infrastructure is not working/functioning properly but we tried to handle them and present
in the best way.
iii) Reliance on verbal information: It seems there is an inadequate writing culture pertaining to SWM records
keeping.
iv) Authenticity of gathered information: The audit team consulted/contacted practicing scientists and other
experts on the field of SWM in Tanzania in order to make sure that the information collected are checked
and validated.
The audit team thought that it would be rather beneficial to have scientists and other experts on the field
reviewing the information collected and compiled.
v) Six (6) Councils examined as samples: Although the audit team has examined only 6 Councils, the obtained
teams picture indicates that the conclusion in this report can be representative and applicable to many other
Councils in the country as well.

The audit team had a problem of getting some statistical data on the amount of SW generated and collected per day or year in each ward, potential SW fees
to be collected and actual SW fees collected. The Audit team computed the SW generated by multiplying the present population and generation factor. Similarly,
the SW collected was estimated based on the number of trips done per year and the capacity of the trucks. This was also complimented by the information
from the dumpsites.
Potential fees to be collected were computed by multiplying number of households, businesses and industries by the rate each one supposed to collect. The
estimated SW fee collected obtained by visiting each franchisee contractor and review their financial records and it was also complimented by the interview with
franchisee contractors and records/information from the LGAs.

The Audit team came across a number of conflicting information from LGAs. Some of them submitted information which were contradicting and vague. The
audit team had to consult them several times during the audit to make sure that they clarify all those information. The information from LGAs have therefore
been inconsistent and difficult to evaluate.

1.5 DATA VALIDATION PROCESS
The LGAs (Municipalities and Cities) were given an opportunity by the Audit Team to go through the figures
presented in this report. They confirmed the accuracy (situation they reflect) of the figures used. It was
important for the LGAs to go through the presented numbers because most of the figures used are based on
estimations.
1.6 STRUCTURE OF THE AUDIT REPORT
This report has been structured in such a way that, Chapter one covers an introduction to the audit area,
including the objective, scope and limitations of the audit; it also, discusses the audit methodology and its
implementation. Chapter two presents the key national laws, policies and standards related to solid waste
management in Tanzania. The introduction to findings of the report are presented in Chapter three, while
Chapter four presents the audit findings and conclusions about the Kinondoni Municipal Council.
Chapter five discusses the audit findings and conclusions of Temeke Municipal Council, whilst, Chapter six
presents the audit findings and conclusions of Ilala Municipal Council and Chapter seven shows the audit
findings and conclusions of Mbeya City Council. Chapter eight indicates the audit findings and conclusions
of Arusha Municipal Council and Chapter nine discusses the audit findings and conclusions of Mwanza City
Council.
Chapter ten presents the summary or the consolidated findings from all Councils. Chapter eleven highlights the
audit findings of the Central Government on SW Management and Chapter twelve presents the conclusions
reached. Finally, Chapter thirteen presents the audit recommendations issued to the Councils and to Central
Government respectively.
References used and appendices are also presented, whereas, Appendix 1 shows a list of Audit Questions
and sub questions, Appendix 2 is highlighting the main laws and regulations regarding SWM in Tanzania,
Appendix 3 is a list of participants attended NAOT workshop on SW, Appendix 4 shows the description of
the SWM system on how it should rationally be and Appendix 5 is indicates computational formulae used in
this report.

CHAPTER 2
SOLID WASTE MANAGEMENT SYSTEM DESCRIPTION
This chapter deals with the actors (see the following sub-sections) systems set-up at national and the LGA
levels. The System of SWM in Tanzania are indicated in Figure 1.
2.1 WHO IS RESPONSIBLE FOR WHAT?
a) Central Government
Central Government through Prime Ministers Office Regional and Local Government Authorities is responsible
for instituting a system of SWM which can be used by the LGAs to deal with SW in their local authorities.
Preventive Department of the Ministry of Health and Social Welfare is responsible for the formulation of
environmental health control, hygiene and sanitation policy. The same Department is mandated by the Public
Health Act to monitor and evaluate effectiveness of different environmental health and sanitation interventions
instituted in Tanzania.
Also Central government through Directorate of Environment, National Environmental Council and Tanzania
Bureau of Standards are responsible for setting standards, Environmental policies and regulations related to
SW management in Tanzania. Likewise the same organs are also responsible for monitoring those standards,
policies and regulations which are supposed to be adhered to by the Local Authorities. The powers and
responsibilities of the above mentioned central level organs are vested by the Environmental Management Act
No. 20 of 2004.
According to the same act, Environmental Management Act No. 20 of 2004, the central government has a
responsibility of intervening to safeguard the SWM system and ensure that the services rendered are of good
quality and standards. Particularly when the same kinds of problems occur in many LGAs, they need a better
defined management system.
b) Local Government Authorities

LGAs are given powers by Local Government Act (Urban Authorities) No. 8 of 1982 to conduct SWM
services in their local authorities and are allowed to charge SW fees. These councils are responsible for both
collection of SW and SW fee.The same act has given these councils a mandate to outsource these services of
collection of SW and SW fees.
To manage SW in their areas some of the LGAs have outsourced SWM services to franchisee contractors. In
that regard, the LGAs are responsible for procuring these contractors according to Public Procurement Act
No. 25 of 2004, set SW fees for different beneficiaries of SWM services provided, Inspect and monitor the
work and performance of procured franchisee contractors and also enforce the sanctions set in the by-laws
and contracts entered between LGAs and franchisee contractors.
c) Private Sector
The private sector (private collectors) is also involved in the collection and transportation of the Solid Waste
to the dumping sites.
The contractors are solely required to abide to the schedule of solid waste collection and transportation.

The private contractors are obtained through the tendering procedures (procured in the competitive basis as
the service providers) as stated in the Public Procurement Act No. 25 of 2004.
d) Community (public)
The community or people are the ones who generate solid waste daily due to various activities which are
taking place daily. Similarly, people are supposed to pay SW fee in order to cover for the cost of SWM.
According to different Local Government Authorities by-laws, different SW fees have been set to be paid by
community as households, businesses or industries in order to cover for the actual cost of managing SW in
their respective councils. Communities are responsible for implementation of the set by-laws at their area of
jurisdiction.
PARLIAMENT OF UNITED REPUBLIC OF TANZANIA

Pass legislations and Acts to manage the waste and
environment
VPO DEPARTMENT OF ENVIRONMENT MINISTRY OF HEALTH AND SOCIAL

Department that oversees implementation WELFARE
of the National legislation regarding DEPARTMENT OF PREVENTIVE SERVICES
Formulates and Oversees implementation of
Environmental health, Hygiene and sanitation
NEMC Policy guidelines
Carry out environmental audits
PMO RALG
Enforce & ensure compliance - monitor all the activities of LGAs & Regions
to national environmental - Issue directives to LGAs and Regions
quality standards
REGIONAL SECRETARIAT
Co-ordination of all advice on environmental management
LOCAL GOVERNMENT AUTHORITIES (CITIES/MUNICIPALITIES)

- Provide SWM services and operate disposal sites
- Contracts out services to the private sector
PRIVATE SECTOR
- Does the collection and transportation of the solid
waste
Operate recycling
Figure 1: System Graph Solid Waste Management in Tanzania

2.2 SYSTEM SET UP OF SWM AT NATIONAL LEVEL
a) National standards for operation of SW

The SWM activities in Tanzania have a number of regulators who are responsible for providing a number of
standards to be followed, policies to be used while working in this field and also governing regulations.
According to Environmental Management Act No. 20 of 2004, TBS is responsible for setting standards for
SWM which need to be adhered to by the LGAs when they discharge their duties.
The Act requires the LGAs to operate in accordance to these SWM standards set by TBS. Furthermore,
The Act stipulates that these standards need to be developed and used for ensuring that SWM is done in a
systematic manner throughout the country and without compromising the health of Tanzanians.
The Environmental Management Act No. 20 of 2004, Department of Environment (DoE VPO) and NEMC
which are responsible for ensuring that all environmental laws, regulations and policies are followed.
b) Monitoring system at central government level

PMO-RALG is responsible for monitoring all the activities and services discharged by the LGAs throughout
the country as forementioned. One of the main functions of LGAs in Tanzania is to manage SW in their areas
of jurisdiction as stipulated in Local Government Act (Urban Authorities) No. 8 of 1982.
Furthermore, these LGAs are also supposed to report back to PMO-RALG on quarterly and annually basis
for the achievement made during the management of SW in their councils. This reporting need to be done
through progress reports which has all the relevant statistical data and other qualitative information which can
provide a good picture of the situation in those LGAs.
Likewise, according to The Environmental Management Act No. 20 of 2004, PMO-RALG officials responsible
for environmental issues are supposed to visit these LGAs to authenticate the validity of the information
submitted or carry out regular inspections and monitoring of their SWM activities.
2.3 SYSTEM ORGANISATION IN LGAS
This subsection looks at how the system of swm is organized in LGAs.

Estimate the amount of SW
generated
Set targets for collection of Setting of the SW

LGAs SW fees
Procure contractors for provision

of
Provide SWM services to

Contractors SW fee
and
households, businesses,
LGAs industries and collection
Inspection and monitoring

of SWM activities
LGA s
Regulation of
sanctions
Figure 2: Flow of SWM activities as organized in LGAs

i) Setting Targets for collection of solid waste

The LGAs in Tanzania have different set up. Some of them are highly urbanized while others are partly urban
and rural areas.
Each council has to set a target for SW to be collected each day depending on its set up. While some collects
in peripheral areas (i.e. rural areas) others leave those dwellers to manage those SW by their own means.
These targets are required to be set to provide benchmark for comparing performance of the SW collectors
within the council or franchisee contractors in those wards served by franchisee contractors.
The estimation of the amount of SW generated in each ward is normally done by using a generation factor3
(rate) which ranges between 0.5 1.2kg/person/day and multiplying by the population in order to get the
estimated figure.
ii) Procurement of the franchisee contractors

According authority given by Local Government Act (Urban Authorities) No. 8 of 1982, LGAs are responsible
for management of Solid waste on their respective councils.
To facilitate this role some of the councils are providing SWM services to their entire councils on their own
while others have outsourced part of the areas to franchisee contractors.
The procurement of these franchisee contractors normally need to be done according to Public Procurement
Act of 2004. Also the criteria to be used during the selection of these service providers need to be suitable
for the kind and nature of the work/service to be provided by the service providers. These criteria are also
supposed to be known before hand by the franchisee contractors who are going to bid for that work.
iii) Service delivery

According to Local Government Act (Urban Authorities) No. 8 of 1982 and LGAs organization structures,
each LGA has a section which is responsible for the SWM in its council. This section is composed of SW
inspectors and SW collectors including drivers of SW trucks. Officials in this section are performing the
functions of monitoring and service delivery of SW.
The Management of SW is done in different stages, but mainly the primary collection of solid waste (i.e.
collection of SW from household to the storage/collection point) and secondary collection (i.e. from the
collection point to the disposal site) are done by a number of municipalities.
For the councils which are entirely carrying out service delivery on their own, are responsible for all two
stages, while for those which have privatised are only responsible either for secondary collection only or
both primary and secondary collections in the areas served by them. Other remaining parts are served by
franchisee contractors.
These franchisee contractors are required to collect SW in those areas served by them and councils conduct
inspection and monitoring of those services rendered.
iv) SW fees set up

According to Local Government Act (Urban Authorities) No. 8 of 1982 and LGAs by-laws, LGAs should
finance the SWM activities by SW fees. To facilitate this, councils have set different rates of SW fees to be
paid by different beneficiaries of this service. These beneficiaries are households, businesses, industries, public
institutions and others.
3
The generation factors used by LGAs have taken into account factors such as industrial, commercial, market places, agricultural, sweepings and
office wastes.
10 NATIONAL AUDIT OFFICE - TANZANIA
Each of the above beneficiary has to pay a certain amount of fee per month and in fact it ranges between TShs.
500/= 1,000/= for households, TShs. 10,000/= 100,000/= businesses, and others tend to pay up to TShs.
200,000/= per month depending on the nature of the business or operation conducted and amount of waste
produced.
The rates of SW fee are set by the LGAs themselves, through their councillors. These rates of SW fee after
being set and passed by the full council are then sent to the Minister in the Prime Ministers Office responsible
for Regions and Local Government Authorities for endorsement/assent.The rates normally appear in the
council by-laws. However, setting fees to so some extent should look into the haul distance as well.
v) SW Fees collection
The SWM services are supposed to be financed by the SW fees which have to be paid by the beneficiaries of
the SWM service rendered.
According to Local Government Authorities Act of 1982, LGAs have the responsibility of collecting both SW
and SW fees on their areas.
The collection of SW fee is done monthly. The SW fees collectors are either council officials or franchisee
contractors (in case council has outsourced part of the SWM services to franchisee contractors). These
collectors normally are required to issue receipt (the one prepared by council) to those who have paid their
SW charges.
At the end of each month, franchisee contractors or LGA is supposed to issue a demand note to households,
businesses or industries on the amount of SW fees supposed to be paid.Then after seven days, those who have
been issued with demand note are supposed to pay the said fees.
The collected SW fees are put into Health Account for most of the councils. The Audit Team observed that,
thereafter the authorities start to allocate and spend the money for all issues related to Health activities in
the council concerned and not only SW.
For those fees collected by franchisee contractors, they are required to be spent by themselves to finance the
SWM activities in the areas they serve. However, those contractors are required to remit five percentages
(5%) of their collection to LGA to facilitate or finance the inspection and monitoring of the SWM activities.
The LGAs do not only monitor but as well inspect the SWM activities.
vi) Inspection and Monitoring of SWM activities

As forementioned, according to LGAs by-laws, LGAs are responsible for carrying out inspection and monitoring
of the SWM activities as carried out by either franchisee contractors (if it has outsourced) or the council itself.
These both activities are to be carried out according to the inspection and monitoring plan/ schedule prepared
by the councils. Some of councils conduct either daily inspections or twice a week inspections depending on
the situations in their respective areas. However, monitoring is conducted once a week or monthly by using a
set of criteria. The criteria to be used to assess the adequacy of the services provided by service provider are
agreed upfront, and thereafter a monitoring report is produced.
According to Environmental Management Act No. 20 of 2004, Ward Health Officers are supposed to inspect
and monitor all environmental related issues in their wards. Similarly, LGAs by-laws require the wards health
officials to report any weaknesses regarding waste management on their wards to the concerned council
authorities.

11
From the by-laws and contracts entered between LGAs and service providers, some of the parameters to be
monitored include:-
Coverage area
Equipment availability
Safety of SWM staff
Compliance to environmental laws and regulations
Customer satisfaction and
Revenue collection.
vii) Regulation of sanctions

The regulation of sanctions for SWM in different councils in Tanzania have been set through contracts entered
between LGA and the franchisee contractors (for those councils which have outsourced part of SWM activities
to private service providers) coupled with the municipal or city by-laws.
In those two documents, all the sanctions to be followed for defaulters (either individuals, industries, LGAs,
businesses and others) have been highlighted. Some of the sanctions to be applied are like Verbal and written
warnings, imposing fine or to be imprisoned depending on the nature of the offence. Moreover for franchisee
contractors, in case they default it is possible for their contracts to be terminated or asked to pay a liquidated
damage (fines), Appealed to court to get rid of the service provider, and Termination of the service provider
These sanctions need to be enforced by both parties concerned, that is LGA and franchisee contractors.
Franchisee contractors have been given room to file a civil case against defaulters and LGAs run municipal or
city court.

CHAPTER 3
INTRODUCTION TO FINDINGS
T he audit office has audited six different Local Government authorities on the way they manage solid waste
in their respective councils. The findings of the audit have been presented in the next chapters of this
report. Each LGA has been presented in their own chapter as indicated in section 1.6 of this report.
Based on the scope of the audit, the following issues have been addressed on the finding chapters: generated and
collected solid waste on a particular council, goals and objectives for the solid waste collection, procurement
of private service providers, effectiveness and cost efficiency among service providers, monitoring, inspection
and quality assurance, sanctions and enforcement of contracts, the system of SW fee and how it operates,
performance comparison of different service providers and finally conclusions on solid waste management at
a particular council.
3.1 GENERATED AND COLLECTED SOLID WASTE
The estimated amount of solid waste generated and collected over a period of 5 -7 years has been presented.
In this part also, the difference between solid waste generated and collected is also shown.
Similarly, the adequacy of the estimated SW generated has been examined and presented in this part. The
estimated SW generated has been presented based on the two main factors, namely generation factor and
present population of a particular council or ward(s). The population figures used was the one provided by
the National Bureau of Statistics and LGAs. Also, different generation factors ranging from 0.5 - 1.2 kg /person
/day has been used as provided by LGAs too.
To get the estimated amount of SW generated per day, present population has been multiplied by the daily
generation factor.
Likewise, the estimated amount of officially and unofficially collected SW by various stakeholders, namely
LGA own staff, service providers, private organizations and SW unofficially managed by citizens are also
presented.
Finally, the variations in the amount of generated and collected SW in various wards have been examined and
presented in this part.
3.2 GOALS AND OBJECTIVES FOR THE SOLID WASTE COLLECTION
The presence of goals and set targets for the SW collection have been examined and presented. In each LGA,
the audit tried to see if the council has set general, specific and measurable targets for the collection of SW.
Likewise, the audit evaluated whether there are set requirements or targets for the service providers.

13
3.3 PROCUREMENT OF PRIVATE SERVICE PROVIDERS
Among the 6 LGAs audited, 5 of them have outsourced part of the SWM services to private service providers.
Those private service providers had to be procured according to Public procurement Act.
The findings presented, are also discussing this issue of procurement of private service providers by the LGAs
based on the laid down criteria.
Discussion of this part is also supplemented by the fact that, the procured service providers are supposed to
be fit to fulfill their offer and be able to keep a sustainable position on the market.
3.4 EFFECTIVENESS AND COST EFFICIENCY AMONG SERVICE PROVIDERS
To fully compare performance among service providers a lot of factors need to be taken into account. One
might for instance need to consider factors like:
External conditions (the characteristics of the wards),

Quality aspects (ability to please clients and to comply with requirements)
Service production (ability to deliver as expected).
The Audit team has tried to assess these factors but the LGAs have not been able to provide sufficient data
fully. According to LGAs there are differences in conditions, especially between wards of various kinds4 .
Differences in quality exist, according to the LGAs, but they are not always linked to certain service providers,
even if the established companies often have fewer problems. There are also differences when it comes to
service delivery, which has been indicated in the coming chapters.
In short, there are differences in quality and service delivery, but it is difficult to say that certain service
providers are systematically doing significantly worse than others, according to the LGAs. (One must have in
mind however that the turn over in the branch is quite high and this means that most of the service providers
in different councils can not be defined as particularly established).
With a more limited approach, one may compare aspects like:
Input efficiency (collected amount per input; per vehicle and per staff),
Cost efficiency per output (cost per collected ton),
Profitability (revenues in relation to costs)
Input efficiency provides information of the service delivery efficiency.The more vehicles or staff are collecting
on average, the more service efficient they are. Cost efficiency provides information on cost per delivered unit,
and this is an indication of the economic competitiveness. Lowest costs mean that the service provider is able
to deliver any amount of SW cheaper than others. Profitability is a relation between costs and revenues. In a
sense it also describes how well a company is to market its services or to get paid by its clients. In this case
its to a large extent a measure of the ability to get the fees collected (given the costs).
4
Planned, Unplanned and Mixed (partly planned and unplanned) wards

High input efficiency and low cost per collected tons is in general favourable (as long as other requirements in
terms of targets and quality are met). Given the fact that the service providers are responsible to collect the
SW fees, it is also important that they are able to at least collect enough fees to cover the costs and future
investments. Ideally they should also be allowed to make some profit. It is however not wishful that service
providers are unprofitable or over-profitable (making much more money than the actual costs).
3.5 MONITORING, INSPECTION AND QUALITY ASSURANCE
Some of the important tasks to be discharged by LGAs is to carry out monitoring inspection and to ensure
the presence of adequate quality assurance system of the SWM activities within the council.
The findings presented, highlighted issues regarding monitoring and evaluation. The audit examined the
implementation of different monitoring and evaluation parameters and report on them.
The findings regarding SW inspections and reporting done by SW inspectors in collaboration with Ward
Health Officials have been reported in respective sections.
3.6 SANCTIONS AND ENFORCEMENT OF CONTRACTS
The LGAs have set-up sanctions for defaulters while managing SW. These sanctions have been stated in by-
laws and/or in the contracts entered between LGA and private service providers.
This part of the report highlighted the findings regarding the implementation of various types of sanctions.
Examples of the sanctions instituted in by-laws and contracts are verbal and written warnings, request for
damage, appeals to court and termination of contract.
3.7 THE SYSTEM OF SW FEE AND HOW IT OPERATES
The LGAs are responsible for collection of both SW and SW fees.This part of the report examines the system
of SW fees and how it operates in different councils.
In LGAs which have privatized part of the SW collection to private service providers, are using franchisee
system (a service provider has to collect both SW and SW fee).
This section reports on the adequacy of the system and also the amount of SW fee collected per year by the
said LGA. Based on the SW fee rates and number of households, businesses and institutions, the potential fee
to be collected was established on each council.The potential fee to be collected was also compared with the
collected amount to get to know the percentage of fees collected out of what could be collected.
3.8 CONCLUSIONS ON SOLID WASTE MANAGEMENT AT A PARTICULAR

COUNCIL
Finally, the finding chapter ends up with the conclusions on solid waste management at a particular council.
In this section the report stresses on the most important findings which need to be addressed by the concerned
parties.

15
CHAPTER 4
KINONDONI MUNICIPAL COUNCIL
4.1 OVERVIEW5
K inondoni Municipal Council (KMC) is one of the 6 LGAs, chosen by Tanzanias National Audit Office
(NAOT) for a performance audit of efficiency and effectiveness in their responsibilities for the Solid
Waste Management (SWM). All six Municipalities represent bigger cities in Tanzania mainland. Furthermore,
KMC is one of the three Municipalities in Dar es Salaam City. The Council was established as an autonomous
body in year 2000.The Municipality covers 531 sq km, including offshore islands, and is characterized by urban
as well as rural areas.
The Municipality is facing rapid population increase. As per 2002 National census the population was just over
one million (1,088,867) and it was projected to reach two million citizens in year 2007, which today is viewed
to be an overestimation according to National Bureau of Statistics (NBS) which puts the population of KMC
to be 1.2 million (1,200,000). Hardly half of the housing stocks (48 %) are in planned settlements.The Impact of
this rapid development is a number of problems. One problem is an excessive pressure to existing resources.
Other problems concern inadequate infrastructure and basic social services. But an increasing amount of solid
waste (SW) is assumed to be the most leading problem. KMC is divided into 27 wards, whereof 7 wards are
in planned, 13 wards are in partly planned and the rest are unplanned areas.
The operating activities with SWM are mainly tasks for the local government authorities, the cities or the
municipalities.The activities cover prevention, generation, collection, transportation and treatment or disposal
of SW. The conditions for SWM vary quite a lot in different kinds of areas, like planned or unplanned and
respectively rich or poor settlements. KMC is responsible for SWM in all 27 wards. KMC is also responsible
for the collection of SW in central open areas (parks, squares etc).
KMC plays varying and different roles for the SWM issues. In general KMC is responsible for open community
(parks and squares) and ceremonial areas, while procured contractors are responsible for 27 wards (households,
businesses, markets, offices etc.) within KMC. For the private contractors KMC is responsible for planning,
supporting, overseeing and inspection, in order to enforce the laws and the contracts. KMC is also responsible
for supervising the quality of the provided service with SW.
The main focus of this chapter is on the efficiency and effectiveness of KMC pertaining to collection and
transport of SW. As mentioned in chapter one, the overall purpose of the audit is focused on answers for the
following questions:
Are the service providers performing well?

Are the systems for monitoring and inspection working well?
Do the SW fees cover the costs, and are they paid?
Are the sanctions appropriately regulated and enforced if needed?
Is central governments monitoring system appropriate?
For each one of the above questions there a number of sub-questions were developed as indicated in
Appendix 1.
5
This section is based on general information from KMC.

The Municipalities are, as said above, responsible for the SWM and the overall planning and monitoring.
Reliable systems on how to estimate and predict the generated amount of SW are consequently important.
4.2.1 The assumptions and amount of generated solid waste over time
There is no certain information on the amount of SW generated and collected. According to official calculation
the amount of SW increases in proportion to the growth of the population. The strength of this correlation
is however not known by KMC. KMC states that it applies a ratio of 0.8 kg per person per day. This factor6 is
based on a study conducted five years ago and is probably not reflecting the reality of today. The generation
factor covers the total amount of SW; from areas such as Household, Industrial and in parks and public places.
The Audit team hasnt found any more detailed information. Available information varies significantly. The
following sentences may illustrate the dilemma:-
KMC uses a factor of 0.8 kg generation of SW per person per day. Based on that factor and the above
mentioned estimated population of 2 million citizens as per year 2007, the overall amount of generated
SW ought to be 1,600 tons in per day or 580,000 tons that year.
KMC has however a higher figure of the generated amount of SW. According to KMC it is estimated
to be 740,000 to 865.000 tons in 2007.
The National Bureau of Statistics (NBS) has estimated the population in KMC to be 1.2 million year
2007. Given the generation factor of 0.8 kg per person and per day, the generated amount of SW ought
to be 350 thousand tons in year 2007.7
As seen above there are conflicting information on the size of the SW generated, which reflects various
assumptions made regarding the generation factor and the population size. This is further illustrated in the
Table 4.1 below.
Table 4.1: Assumptions and generated solid waste in 2007 in KMC
Authority Assumed Assumed generation Generated SW

population (million) factor (kg/person/day) (thousand tons)
9
NBS 1.2
8
0.8 350
10
KMC 2 0.8 580
11
KMC 2.5 0.8 740
12
NBS 1.2 1.7 740
Source: National Bureau of Statistics and KMC annual data (2008).
As seen different assumptions have various impacts for the predictions of the generated amount of SW.
Anyway, the generated SW has significantly increased over the years. This is shown in Table 4.2 which is based
on minimum and maximum estimations done by KMC.
6
According to KMC this factor is excluding street waste and industrial wastes
7
Given a generation factor of 0, 8 kg per person per day, KMC must have estimated the population in year 2007 to be about 2, 5 mill citizens.
KMC has alternatively used a higher generation factor.

17
Table 4.2: Estimation on the growth of all solid waste in 2000-2007
Year SW generated (Thousand tons)
2000 222 312

2001 266 336
2002 319 361
2003 383 388
2004 460 595
2005 552 640
2006 662 688
2007 740 865
Source: KMC annual data of SW generated and collected (2008)
During 2002 to 2007 the population in Kinondoni increased by 10 %, according to NBS. At the same time
the growth of the generated SW increased by more than 100 % (as seen in Table 4.2). This means that the
generation factor must have increased during that period. It might be worth mentioning that the common
trend in the world is that the generation factor for SW changes over time. It has been observed elsewhere
in the world, as the economic status of the people changes, more voluminous waste is produced that is, the
consumption pattern changes as well.
It is unlikely that the generation factor of 0.8 kg per person per day reflects the reality of today. In fact, given
the demographic statistics from the NBS, KMC must have calculated with another ratio than 0.8 kg per person
per day, in order to get the above presented figures of the growth of generated SW.
KMCs predictions are taken as guiding figures and in future, proper record keeping should be encouraged in
order to get adequate data.
4.2.2 The estimated amount of collected solid waste

The amount of SW collected by KMC and its private service providers has been varying over time, as seen
in Table 4.3 hereunder. In column two and four, figures are presented in an interval which means that KMC
has presented various figures within the available collected data range. The table contains both minimum and
maximum figures provided by KMC.
8
The estimated population for the year 2007, according to NBS
9
The applied generation factor of generated SW per person and per day according to KMC
10
The assumed population for the year 2007, according to KMC
11
The required number of inhabitants to get to the figure of 740 tons of SW generated with the generation factor of 0.8 kg per person and per
day
12
The assumed generation factor to get to the figure of 740 tons of SW, given the population of 1.2 million

Table 4.3: Generated and collected SW 2000-2007 (KMC and private service providers
but not private organizations and unofficially collected SW)
Year SW generated SW collected SW collected

(Thousand tons) (Thousand tons) ( %)
2000 222 312 42 14 19
2001 266 336 56 17 21
2002 319 361 88 25 28
2003 383 388 98 25 26
2004 460 595 96 -105 16 23
2005 552 640 88 - 117 14 -22
2006 662 688 81 12
2007 740 865 105 12 14
From Table 4.3 it is clear that, in the past 5 years the collected amount of SW has been decreasing.This means
despite the population increase, the relative collection of SW decreases. This might be attributed to problems
of management and availabvility of adequate resources.
Table 4.4 shows the estimated collected SW by various stakeholders in 2007 in relation to the estimated
generated amount. 13
Table 4.4: The estimated amount of officially and unofficially collected solid waste in
2007 by various stakeholders (Thousand tons)
Service Provider Collected % of collected SW % of collected SW

SW relative to the total relative to the total
amount collected amount of generated
(389,000. tons) SW (740,000. Tons)
Kinondoni own staff 16 4 2
(from dump site
reports)
Service providers 89 23 12
(from dump site
reports)
Private organisations 97 25 13
approved by KMC
(from dump site
reports)
SW unofficially 187 48 25
managed by
community
(estimations)
Total 389 100 52

13
KMC has provided various figures on the amount of SW generated. For 2007 the interval varies between 740 and 865 thousand tons.

19
As mentioned earlier the total amount of the generated SW is by KMC estimated to be around 800 thousand
tons in 2007. As shown in the table above less than half of the generated amount was not collected in 2007,
neither officially nor unofficially. If the figures from KMC are representative, about half of the generated SW is
accumulated each year. Since the figures for the unofficial managed SW as well as the amount of generated SW
is uncertain, it is evident that the proportion of the uncollected amount of SW is increasing. What is certain,
however, is that only a minor part of the generated SW is officially collected and disposed.
4.2.3 Generated and collected solid waste in various wards

There are variations in the amount of generated and collected SW in various wards (see Table 4.5 below). In
some wards almost all SW (90%) was collected in 2007, but there are also areas where only a minor proportion
was collected.The figures below cover all estimated collected SW, including unofficially and privately collected
SW.
Table 4.5: Generated and total collected solid waste in the 27 wards of KMC in 2007
Generated SW Collected SW Percentage
Ward (thousand tons) (thousand tons) (%) collected
Mwananyamala 42 7 16
Kawe 59 14 24
Makumbusho 40 9 24
Kunduchi 32 11 34
Kibamba 9 4 40
Mbezi 11 4 40
Goba 14 5 40
Kijitonyama 37 15 40
Mburahati 26 10 40
Kimara 37 17 40
Tandale 35 14 40
Kigogo 19 8 40
Manzese 48 19 40
Bunju 12 5 41
Magomeni 13 6 44
Ubungo 45
31 14
Sinza 38 18 47
Makurumla 42 20 48
Mbweni 4 2 55
Hannanasifu 27 16 61
Mikocheni 31 19 62
Mabibo 31 19 62
Makuburi 15 10 64
Msasani 35 27 78
Kinondoni 20 17 84
Ndugumbi 14 12 84
Mzimuni 19 17 90
Total (excl KMC:s 740 339 45
central/public area)
Source: KMC annul statistics of SW generated and collected and appendix B of the contract between
KMC and Franchisee. Data on collected SW were confirmed with dump site reports.

The table above covers areas where private service providers are operating. As mentioned in Table 4.4 the
franchisee contractors collected 89 thousand tons in 2007 or about a fourth (23 %) of the collected SW
in these areas. This corresponds to 12% of the total generated SW, according to KMC. Roughly the same
amount (97 thousand tons or 13 % of the total generated SW) was collected by the private organizations.
Consequently, most of the generated SW (75%) is either unofficially managed or not collected at all in these
specific areas.
The table 4.6 presents similar information in areas where KMC (no private service provider) is operating.The
amount of SW collected relative to generated was 40% in that area.
Table 4.6: Generated and collected SW where only KMC is responsible, 2007
Central and Public Generated SW Collected SW Percentage
Areas (thousand tons) (thousand tons) Collected
KMC, private 125 50 40

organizations and
unofficially collected
Source: KMC annul statistics of SW generated and collected (2008)
In the areas where KMC operates less than half (40 %) of the generated SW is collected by KMC, private
service providers, companies or unofficially. KMCs part of this was as mentioned earlier (Table 4.4) 16,000
tons in 2007, or close to one third (32 % or 16 out of 50 thousand tons). The rest of the collected SW in this
area (68 % or 34 thousand tons) is collected by private organizations or is unofficially managed. In other words,
13 % of the SW generated (125 thousand tons in this area) is collected by KMC.
According to government policy the municipalities are responsible for collecting all generated SW. This is also
the general target of KMC. But it has historically mainly set rather general targets, not specific or measurable
ones, neither for the municipality as a whole nor for the individual wards. Likewise no clear requirements
have been set for the service providers. This has obviously made it difficult to evaluate, analyze and improve
performance. In short, there have not been clear benchmarks for learning and improvements. Consequently
few actions have been taken that significantly have improved the efficiency of the system for collection of SW
in the municipality.14
From year 2008 the situation has changed. Targets have been set, activities have been decided upon and
indicators and ways to verify the undertakings are formulated.The target for KMC and its franchise contractors
is now to collect 233,000 tons of SW per year. According to KMC this means an increased target by more
than 100 per cent compared to last years.15 For that reason KMC has committed itself to procure a large
number of new vehicles and equipment. KMC has also set targets to improve the capacity and performance
among service providers. Whether this is a realistic goal it will be proved over time.
14
The audit team has gone through documents from the last years. None specific targets has been found.
15
The Audit team has not been able to track earlier targets of that nature. However, year 2007 KMC and contractors together collected 105
thousand tons of SW

21
The Municipalities responsibility for procurement of services for SW is of importance, since a large part of
the services is assumed to be conducted by franchise contractors. An obvious question is whether the SWM
services were procured according to law and whether the selected contractors had sufficient condition to
fulfill for their offers.
According to KMC, the formal regulations are followed in the procedures when they procure the private
service providers.16 This is stated in the tender evaluation report, which is written every third year in
connection with the hiring procedures, latest 2004. The council advertises the tender for providing SWM
services. Representatives from the wards are also involved. The proposals are evaluated by an evaluation team
at KMC. They check among other things, documents to confirm the eligibility, financial capability, required
equipment and identification of collection system in unplanned areas. The evaluation report is then sent to a
tender board for final approval. The lowest evaluated bidders are awarded the contract to provide services
to the selected wards. PPA does not talk only of the lowest but lowest evaluated costs since there might be
some hidden costs which could jeopardize the quality of the work.
There are evidences saying that a lot of the procured service providers were not fit to fulfil their offer.
According to KMC officials, it is for instance common that contractors lack technical and financial capability.
However, KMC continues to procure these underperforming contractors as no other service providers exist.
Moreover, KMC is doing its best to help them to enhance their technical capability insisting them to have a
close look on financial management, contract management, information and data management and recruiting
well trained supervisors on the field of SW management.
A lot of the private service providers are not able to keep a sustainable position in the market. It is common
that the contractors after a relatively short period of time in the market get into economic problems. This
is partly due to the fact that they are unable to collect fees as planned. It is also caused by insufficient SW
collection equipment and poor management. The high turnover is illustrated by the development during the
last years.The turnover of the procured service providers has been high. More than half of them have failed to
stay in the market for more than a few years.17
16
The procurement is prescribed in the Public Procurement Act of 2004
17
Based on data from KMC. For more information see another section in this chapter.

4.5.1 Goal-fulfilment and compliance

Among the questions handled by the Audit Team was whether and for what reason the private contractors
differ in money spent for the service provision of SW collection.
The exchange of the service providers activities in terms of efficiency could be measured in different ways.
One possibility is to examine whether they perform as agreed in the contract. Another option is to assess
whether they use their resources in the best way or not. A third possibility is to compare performance
indicators. It is however not so easy to apply these approaches. There are no clearly stated targets set, and
there is a significant lack of appropriate and reliable information.
Measured in terms of compliance, earlier evaluation has shown that no private service providers were able to
meet the requirements set in the contracts. There are still differences among them and to what extent they
fail to meet the requirements. (For more information, see sections 4.6.1 in this chapter.)
Even if there are no targets set by KMC, the general goal is that all SW should be taken away. Measured in
those terms, it is obvious that no service providers have been able to collect all generated SW. In fact, over the
years it has continued to be more and more difficult to balance the generated growth of SW and collection.
It must be repeated however that KMC is taking steps such as creating awareness to people and taking legal
actions to defaulters in order to arrive at its goals.
4.5.2 Cost per collected ton

KMC does not measure and compare the service providers performance. Based on information from KMC
and private contractors, the Audit team has computed figures to get a picture of the service providers
performance. In Table 4.7 hereunder the estimated cost per collected ton of SW is presented.18
Table 4.7: Estimated cost (in Thousand Shillings) per collected ton in 2007
Service provider Nature of Cost per 19

the Ward collected ton
CLN Electrical & General Construct. Ltd Mixed2 20 2.9
Sweet corner Envirocare Mixed 2.7
Lyoto and Company Ltd Mixed 2.7
Kinondoni Enviro. (KENS) Mixed 2.1
Kisutu Women Trust Fund (KIWODET) Mixed 1.8
Umoja wa wazee wa Kinondoni Unplanned 3.1
SIMAYE Group Unplanned 2.6
Tropical Engineering Service. &Co Ltd Unplanned 2.6
NIMA Enterprises Unplanned 2.5
Kurasini Construction Co. Ltd Unplanned 2.2
TTM Group Unplanned 2.1
1994 Environment. Protect. (Mazingira) Planned 3.6
KMCs staff (central and public areas) Planned 4.3
Source: KMC and service providers (2008)
18
The total calculated cost per year is divided with 365 to get the cost per day. This is divided with the amount of collected tons per day
according to dump reports
19
Ratio of the estimated cost and the collected solid waste collected 2007. The cost has been calculated based on information from the service
providers and KMC. To some extent estimations has been applied.
20
Mixed ward means that a ward has areas which are partly planned and partly unplanned

23
There seems to be significant differences in cost efficiency among the service providers, even among those
ones who are serving in the same kind of ward (unplanned and mixed areas).The cost per collected ton differs
in the ratios of 60 % in the mixed areas and more than 20 % in the unplanned areas.
There are many causes to these differences besides the fact that wards or areas are more or less demanding,
depending on whether they are in planned, partly planned or unplanned areas. One explanation is that
contractors may use more or less modern and cost-effective vehicles or equipment. The service providers
vary in size, and are also equipped with everything from big trucks to small push carts and wheel barrows.
There are also differences in management skill and in the motivation and efficiency among staff. Even among
service providers with the same kind of vehicles there are significant differences in the amount of collected
SW per staff. Also, equipment, vehicles and staff may be more or less costly.
4.5.3 Performance per vehicle and per staff in various kinds of areas
As seen in Table 4.8 there is significant differences among the service providers in how they utilize their
vehicles and staff. The table provides the audit teams estimation of the average amount per day of SW
collected per vehicle and per staff for each of the service providers including KMC. In order to be able to
compare service providers with similar conditions the service providers are arranged according to increasing
capacity of collection per vehicle.
Table 4.8: SW collected per vehicle and Staff in various kinds of wards in 2007
Nature of SW collected SW collected
Service provider the Ward per vehicle
21
per staff
22
(Ton/vehicle) (Ton/staff)
Kisutu Women Trust Fund Mixed 2920 292
Kinondoni Enviro. Mixed 3710 530
Lyoto & Company Ltd Mixed 4015 172
CLN Electrical & Gen Constr Ltd Mixed 4380 767
Sweet corner Envirocare Mixed 5475 730
Umoja wa wazee wa Kinondoni Unplanned 2555 292
Kurasini Construction Co. Ltd Unplanned 2737 782
TTM Group Unplanned 3102 282
SIMAYE Group Unplanned 986 164
NIMA Enterprises Unplanned 1460 256
Tropical eng.serv. & co ltd Unplanned 1825 146
1994 Environmental Protection Planned 2555 438
KMC (central and public areas) Planned 2774 548
Source: KMC and Service providers (2008)
The average SW collected per vehicle and per staff varies a lot. The difference in SW collected per vehicle,
varied from 986 to 5475 tons per vehicle in year 2007.The average SW collected per staff varied proportionally
just as much from 146 to 782 tons. In other words, Sweet corners vehicles are close to six times more
efficient than SIMAYE Groups vehicles, and Kurasinis staff are over five times more efficient than Tropicals
staff on average.
There is also a big difference in performance within the same kind of ward. Sweet corners and CLNs vehicles
and staff are for instance much more efficient than Lyotos in the mixed areas, and Kurasinis vehicles and staff
are much more efficient than SIMAYEs or Tropicals in the unplanned areas. The differences in performance
might partly be explained by external factors (more or less demanding wards in terms of size and character).
21
The figures were obtained by dividing the amount of SW collected per year as obtained from KMC and number of trucks respectively.
22
The figures were obtained by dividing the amount of SW collected per year as obtained from KMC and number of staff who worked
respectively.

The information in Table 4.8 above does not indicate advantages with just more resources or bigger companies
for a proper SWM. Two examples:
Sweet corner Envirocare has less vehicles compared to KMC almost double vehicle capacity but just 30
% more capacity of collection per staff.
Lyoto & Company has significantly bigger vehicles than Kisutu Women Trust Fund but the collection
per staff is 40 % lower.
The information also indicates clear differences in performance between the private service providers with
similar equipment for SW collection.Though on a low level, the service providers with on average roughly the
same vehicle capacity differ over 200 % in terms of SW collection/staff/day. Two examples:
CLN Electrical and General Construction Co. Ltd and Kinondoni Enviro are much more efficient than
Lyoto Company Ltd.
Kurasini Constuction Co. Ltd is much more efficient than Umoja wa wazee wa Kinondoni and Kisutu
Women Trust Fund.
Finally, it is worth noticing that KMC has a mixed picture on production efficiency. The cost per collected ton
is high relative to franchisee contractors, as well as the input efficiency per staff.
4.5.4 Performance in mixed planed and unplanned wards

As seen above the cost per collected ton in the mixed planned areas differs a lot. The same goes for the
amount collected in tons per vehicle or staff.The best performing franchisee contractor collects several times
more than the less well performing contactor. Even between franchisee contractors with similar sizes of the
vehicles there are huge differences in how much SW they collect per staff.
The difference in performance is also significant between the service providers in the unplanned areas. The
cost per collected ton is more than 30 % lower for the cheapest contractor compared to the most expensive
service provider, and there are also substantial differences in performance per vehicles and per staff.
4.5.5 Profitability
As mentioned before, historically no targets have been set for how much SW each service provider should
collect. The level of the SW fees is set by the government, but it is up to the service provider to collect the
fees.Therefore, it is up to the franchisee contractor to manage the production volumes as well as the cost and
the revenues. Should there be any profit; the contractor is expected to share it with KMC. (In other words,
KMC expects to gain money by outsourcing this service to private contractors the idea is not only to reduce
the cost or to improve the performance for the service.)
This means that the contractors profitability is to a large extent dependent on how well they manage to
collect fees and keep the costs low. As will be seen later they are less dependent on how much and how
well they produce, since there are no effective inspections and sanctions in place. The contractors estimated
revenues and costs in year 2007 were as shown in Table 4.9.

25
Table 4.9: Economic results among service providers in 2007 (Million TShs.)
Service provider Revenues 23 Costs24 Financial Profitability

results (%)
CLN El & Gen Constr Ltd 53 36 17 47
NIMA Enterprises 57 44 13 30
Tropical eng.serv. & co ltd 51 54 -3 -6
Kinondoni Enviro. 59 65 -6 -9
Kurasini Constr. Co. Ltd 20 23 -3 - 13
Kisutu Women Trust Fund 57 65 -8 - 12
SIMAYE Group 41 48 -7 - 15
Umoja wa wazee wa Kin, 33 44 - 11 - 25
Sweet corner Envirocare 82 115 - 33 - 29
1994 Environment Protect 192 274 - 82 - 30
TTM Group 19 37 - 16 - 43
Lyoto and Company Ltd 17 73 - 56 - 77
Source: KMC and Service Provider
According to the figures above there are huge differences in profitability. One service provider is extremely
profitable, and several service providers are making huge losses. Most service providers are unprofitable and
only one sixth of them have a profitability that will allow them to stay long in the market.
4.5.6 Financing of KMCs own collection activities

KMC is as mentioned responsible for collection of SW in public and central areas and is only financed through
the government budget; since they have never got any money from the profitable private contractors (One
reason for this is that KMC is not fully aware of their economic records and results). Seen over time the
budgets for KMC have varied a lot, but in real terms and in relation to needs the resources have actually been
reduced over time, according to KMCs statistics.
4.5.7 Internal efficiency among the service providers

In Table 4.10 a relatively high input efficiency and low cost per collected ton are given a good score. Low input
efficiency and high cost per delivered ton SW are given a low score. All other results are given a medium
score. In order to consider the external conditions, mixed and unplanned wards are presented separately.
These two dimensions capture vital aspects of the internal efficiency among the private service providers. In
addition, the profitability or the ability to collect fees is presented. All information reflects the situation of
year 2007.
23
Figures are based on the calculations of revenue obtained through fees paid by households. The Audit team has calculated this. Full precision
cannot be guaranteed, since the book keeping was seldom in order.
24
Calculated and estimated based on the annual cost incurred on fuel, labor and equipment maintenance

Table 4.10: Internal efficiency among private service providers in mixed wards in 2007
(for definition of the categories, see appendix 6)
Franchisee Relative input Relative cost Ability to make profit/

Contractors in efficiency efficiency collect fees
mixed area
CLN Good Medium Extremely good
Sweet Corner Good Medium Poor
Kinondoni Env. Medium High Poor
Kisutu W. Tr. F Low High Poor
Lyoto & Co. Ltd Low Medium Extremely poor
CLN, Sweet Corner and Kinondoni are most efficient in terms of production, but they differ a lot in profitability
or in ability to collect fees, due to among other things varying external conditions like peoples willingness to
pay. This means that even contractors with an efficient production run the risk of going bankrupt.
Table 4.11: Internal efficiency among contractors in unplanned wards in 2007

Contractors in Relative input Relative cost Ability to make profit/
mixed area efficiency efficiency collect fees
Umoja www K Medium Low Poor

NIMA Ent. Low Medium Good
Kurasini Good Medium Poor
TTM Gr. Medium Medium Extremely poor
SIMAYE Gr. Low High Poor
Tropic.ES. Ltd Low High Good
As seen above the links between production efficiency and profitability are also weak in the unplanned areas.
There are even several cases of rather weak links between input efficiency and cost efficiency. In short, the
linkages between production efficiency and profitability are very weak.
A system for control of the SWM services is set up for the local governments authorities. This system is
regulated and guided in Local Government Act and Waste Management Guidelines issued by MoHSW and also
in the contracts between the local government authorities and the service providers. KMC has the overall
responsibility for safeguarding SWM services. This responsibility covers functions such as monitoring and
evaluation of the service providers performance, inspecting and quality assurance of the SWM services.
These functions cover both the private service providers and KMC as service provider. For KMC it is thus
important to execute the controlling functions concerning monitoring, evaluating and quality assurance with
professional integrity, even in relation to its own function as service provider. Organizational separation of
operating and monitoring activities is important to safe guard reliability. This is however not the case at KMC.
The staff at the SWM section carry out their duties as both operators and inspectors. According to KMC this
is mainly a result of limited resources.
The following sub-sections deals with monitoring, evaluation, inspections and quality assurance.

27
4.6.1 Monitoring and evaluation

The monitoring covers six parameters: the service to the customers, the service frequency, the waste qualities,
the equipment availability and performance, the amount of contractors staff and the revenue collection. Only
service frequency is subject to continuous and documented monitoring.25 According to KMC the reason for
this inadequate monitoring is for instance lack of capacity (IT-systems, staffs competence etc.). The frequency
of the monitoring activities is shown below.
Table 4.12: Frequency of conducted monitoring of service providers
parameters to be Several times Every Every Very Never

monitored per month month year seldom
Customers served V
Service frequency V
Waste qualities from V
landfill Records
Equipment availability V
and performance
Contractors staff V
Revenue collection V
Source: KMC based on studies of documents and assessments by Audit team in collaboration with by
KMC officials (2008).
As seen above most of the parameters are seldom or never monitored. The service frequency is monitored,
and regular reports are sent from the dump sites. Otherwise there are no systematic forms of monitoring, not
even on clients satisfaction or contractors profitability.
KMC is expected by the Government to evaluate the service providers performance in order to examine
whether the contractual requirements are met.With one exception such evaluations have not been conducted
by KMC. Instead KMC has chosen a more limited approach by getting feedback from the daily inspections.
This approach does not allow for much of insight or transparency, since nothing of what has been observed,
discussed and done is documented.
The exception is an evaluation that was carried out in 2005. Some of the findings in that evaluation are
presented in Table 4.13.
26
Table 4.13: Service providers ability to meet contractual requirements
To what degree the details and items in the contractor Number %
agreement was followed
To a very limited degree (less than 20% of items) 28 78
Partially (2060% of the items) 7 19
To a relatively high degree (6080% of the items) 1 4
To a high or full degree (more than 80%) 0 0
Source: KMC (2005)
25
The parameter regarding service frequency covers the number of trips/tones taken to dumpsite, percentage of waste collected and legally
dumped at dumpsite as well as percentage of area covered, i.e. number of wards covered in relation to the wards present.
26
Based on investigation conducted by KMC between January and March 2005

As seen above no franchise contractors did fulfil their contractual requirements. A large majority did not even
meet a minor part of the requirements. These rather alarming findings did however not lead to any actions.
KMC did not conduct any analysis or follow up study. Based on interviews with KMC officials, there are no
reasons to believe that the situation is much different today.
4.6.2 The inspection system

KMC uses ward health officers to conduct inspections of the service providers. The inspection should follow
certain procedures.The ward health officers are expected to walk around in the wards.They are also expected
to provide KMC with daily reports on whether SW has been collected and if actions are taken that will solve
the problems observed.
This is ideal, but according to interviews with KMC officials these procedures are far from often followed.
KMC has no documentation of these inspections. All inspections rely on verbal reporting. The reason for this
is, according to KMC officials, that a formal system is likely to require a lot of human resource and time. No
attempts have been done to test a more simplified documentation system.
4.6.3 Quantity- and quality assurance

KMC is responsible for the quantity and quality assurance of SWM services rendered within the municipal
councils area. This assurance system concerns the private service providers as well as KMCs own service
providers.
The quantity and quality assurance system includes two main issues. One issue deals with storage of generated
SW, collection of SW in different kinds of areas, transfer stations, transportation and disposal of SW.The other
issue deals with whether the service providers and KMCs own staff are abiding to the adequate ways of SW
storage, collection, transfer, transportation and disposal of SW.
Photo 1: Transportation of SW is done by a tractor and trailer which are old and worn out as depicted in this photo in Kinondoni Municipality.

29
According to the interviews with SWM officials, KMC has not issued or required service providers to prepare
and observe the above elements of quantity and quality assurance. Also, during the site visits, the audit team
observed a number of weaknesses in the way SW were handled. Some of the factors which are contrary to
the best quality and quantity assurance are:
Transportation of the SW on open and not covered properly dump trucks. This endangers the health
of the dwellers along the roads;
Service providers staff that do not use protective gears which jeopardizes their health;
Storage of SW is done in inappropriate containers and places which do not meet the required
standards.
The golden rule is often been forfeited i.e. once the SW is kept in a container, it should never be emptied
down but always be emptied into a bigger container for haulage to a dump site. This is mainly because from
experienced countries, about 80% of the SWM budget is consumed up by the collection stage.
The reasons given by KMC is that service providers have no set strategies for ensuring that quality and quantity
assurance are in place. Moreover KMC officials said that most of the service providers are not well equipped
with modern vehicles, and their staff are not always aware of the hygienic aspects. Also the service providers
supervision might be a little bit slack. The result is that KMC has failed to ensure that service providers follow
the best practices of SWM.
KMC has set up and stated a system with sanctions for enforcement of the contracts. The system is regulated
and stated in municipal by-laws and in the contracts.
The sanction system covers various steps when the service providers violate the contracts. The initial steps
are verbal and written warnings. Other steps are termination of the contract and request for damage and
possibility of an appeal to court to get rid of a violating service provider. According to KMC, violations of law
and contracts are common. The following are examples of the many different reasons put forward:
Failure to repeatedly collect SW as required.

Presence of SW in areas where collection should be provided.
Litter or refuse in an area that should have been cleaned.
SW on the ground near a transfer station.
Solid materials in a drain that should have been cleaned.
Scattering or leakage of wastes from any waste collection vehicle.
Incorrect or inadequate record-keeping by the contractor.
Use of unqualified operational personnel
Inadequately maintained equipment.
Inadequate or inappropriate response to viable complaints.
Unsafe work practices and traffic violation.

Photo 2: SW are scattered and have remained uncollected near the residential houses and very close to the water storage tank as shown in this
photo taken near the junction of Morogoro and Shekilango roads.
The degree in which the sanctions are applied is however limited. This is shown in Table 4.14.
Table 4.14: Applied sanctions according to KMC

Type of action Frequent Every Every Very Never
month year seldom
Verbal criticism V
Written warnings V
Request for damage V
Appealed to court to get V
rid of the service provider
Termination of contract V
Source: KMC studies of documents and assessments by Audit team in collaboration with by KMC
officials (2008)
Table 4.14 shows that KMC frequently has applied verbal warnings against many service providers who failed
to meet contractual obligations. At the same time, KMC has not applied other sanctions like request for the
damage (fines), sent those defaulters to court and/or termination of contracts. This should be viewed in the
context of what is earlier mentioned regarding the franchisee contractors ability to meet set requirements.

31
4.8 THE SYSTEM OF SW FEES AND HOW IT OPERATES
The SWM is supposed to be financed by SW fees and KMC has set up SW fees in the municipal by laws and
in accordance with the level of income and kind of business conducted.The system, including the fee levels, has
been the same since 2002. The system is handled by the service providers.
For residential areas there are three fee levels. Community with low income pay TShs. 500/= per month
while citizens with middle income pay TShs. 1000/= and people with high income pay TShs. 2000/= per month.
There are also fees for small businesses (street markets), that varies from TShs 2000/= to 10,000/=. (The most
common fee is 10,000 TShs.) The amount of fee also differs depending on kind of business conducted, as hotels,
shops bus stand and others.
According to the contracts the private service providers shall
collect SW fee from a household or occupier of premises in accordance with by-laws,

issue a receipt for every fee collected which has to be approved by KMC and keep records on the
number of households and premises attended,
make available to KMC for inspection of all records, accounts and invoices related to the SWM. 27
Table 4.15 shows the value of SW fees that are supposed to be collected and the estimated value actually
collected by the service providers.
As seen in the table, there are significant differences among the service providers regarding the collection of
SW fees. Three service providers collected more than two thirds of the potential SW fees, and some of them
collected less than one third. The figures reflect two things: the ability to collect SW in relation to what is
needed, and the ability to collect fees among clients being served.
According to KMC officials and private contractors there are different reasons for not collecting all SW fees
as expected. Some reasons are related to the peoples willingness or unwillingness to pay and the lack of
consequences if they do not pay. Other reasons are more related to weaknesses in the system, like inadequate
database concerning those who are supposed to pay, lack of control of payment and inadequate service to
warrant payers to pay.
27
KMC contracts for SWM appendix B of the contract between KMC and service providers

Table 4.15: The private service providers collection of SW fees 2006/07

(From households and business in Million TSh)28
Potential fee to be Collected Percentage
Service provider collected amount
Tropical Eng.serv. & co ltd129 67 51 76
NIMA Enterprises 81 57 70
CLN Electrical & General
Constructions Ltd 76 53 70
Lyoto and Company Ltd 28 17 61
Sweet corner Envirocare 137 82 60
KinondoniEnviro. KENS) 98 59 60
1994 Environm. Prot. 320 192 60
(Maz.)
Umoja wa wazee wa Kin. 66 33 50
TTM Group 38 19 50
Kurasini Construction Co. 50 20 40
Ltd
Kisutu Women Trust Fund
(KIWODET) 187 57 30
SIMAYE Group 164 41 25
Source: KMC and computations done by the audit team based on the information gathered in 2008
4.9 CONCLUSIONS ON SOLID WASTE MANAGEMENT AT KMC
4.9.1 Difficulties in managing SW

KMC has great difficulties in managing an increasing amount of collected SW. The growing accumulation of
SW causes damage to the environment and threatens peoples health. This in turn will have severe negative
impacts for the economy.
4.9.2 Some findings that need to be addressed
The following issues need to be addressed as follows:
a) Procurement of service providers and the financing system

The operations of the services for SWM are divided between KMC and private companies. But the roles are
not clear and neither suitable:
KMC procures service providers that lack technical and economical capability to perform the required
service.
The system for the collection of fees has severe negative consequences; for instance it does not
promote efficiency among the service providers and hampers the quality of the inspection and
control.
Efficient service providers who fail with fee collection risk bankruptcy, while inefficient providers who
manage with fee collection may survive.
The reasons for the unwillingness to pay the fees have not been analyzed.
28
Through the interviews and financial records with some franchisee contractors
29
This franchisee contractor is serving Makuburi ward, after being awarded to serve the ward. He went around and informed the dwellers that
he will be serving only those who are willing to pay and will not serve others who are not paying.

33
b) Control and follow up of the solid waste services by KMC

As the local authority in charge KMC has the overall responsibility for the SWM in its area. But KMCs
system for control of SWM has weaknesses. So far the experiences are neither used for learning nor for
improvements of the services. During this audit KMC has however showed aims of improvements in dealing
with the severe problems:
KMC do not keep records of the service providers and their performance.
Operating and monitoring activities are not separately organized.
The findings in the inspections are not documented.
The monitoring and evaluation functions are less reliable and effective; only one evaluation has been
conducted of SWM.
The sanction system is not used for defaulters of the contracts despite the fact that many service
providers fail to meet the contractual requirements.
c) The service providers

Most of the service providers lack sufficient capability and hence underperform.
No service provider manages to collect all generated SW in their areas.

There are great differences in performance among the service providers.
The service providers have great difficulties in collecting fees.
A vast majority of the procured service providers are unprofitable; this may threaten the future ability
to procure SW services.
As a general conclusion, basically all service providers under perform and fail to deliver as expected, even
if there are significant differences in their performance. KMCs system for monitoring and inspection does
not work properly and is ineffective. The financing system does not promote efficiency, and all service
providers have problems with the collection of fees. The sanctions are properly regulated, but sanctions
have not been applied, in spite of frequent contract violations. KMC has recently decided to improve its
effort to address mentioned shortcomings.

CHAPTER 5
TEMEKE MUNICIPAL COUNCIL
5.1 OVERVIEW
T emeke Municipal Council (TMC) is one of the six local government authorities chosen by Tanzanias National
Audit Office (NAOT) for a performance audit of efficiency and effectiveness in their responsibilities for
Solid Waste Management (SWM).TMC is the largest in size compared to Ilala municipal council and Kinondoni
Municipal council in Dar es Salaam City. The Municipality covers 656 square kilometres with a coastal line of
70km length and is characterized by urban as well as rural areas.
The Municipality is facing an increase in population. As per 2002 census the population was 770,000, and five
years later the population reached 840,000, according to the NBS. The impact of this development is pressure
on the existing resources and an increasing amount of generated solid waste (SW).
TMC is divided into 24 wards. Six (6) are in planned, 14 are in partly planned and 4 wards are unplanned
settlements. The demographic situation is about the same as in the other councils, and the same goes for the
economic conditions.
The operating activities with SWM are mainly tasks for Temeke Municipal Council. The activities cover
prevention, generation, collection, transport and treatment or disposal of Solid Waste (SW).The conditions for
SWM vary quite a lot in different areas, like planned or unplanned and respectively rich or poor settlements.
TMC has the overall responsibility for the SWM in all 24 wards. In year 2007 TMC was responsible for collecting
SW within half (1/2) of the wards, and two wards were served by the procured franchisee contractors. The
other eight (8) wards were left without official service. For the franchise contractors TMC is responsible for
planning, supporting, overseeing and inspection, in order to enforce the laws and the contracts. TMC is also
responsible for the approval of private organizations requests for collecting their own SW (hotels, restaurants
and other businesses).
The main focus of this audit is efficiency and effectiveness of the LGAs in dealing with generation, collection
and transport of SW. But the audit also covers the central governments monitoring system concerning SWM.
The audit focused on answers for the questions indicated in chapter 1.
5.2 GENERATION AND COLLECTION OF SOLID WASTE
The municipality is the one responsible for planning the SWM. Reliable data collection, storage and retrievable
upon need is important for determining the amount of waste to be collected and disposed and estimation of
disposal site size. In the absence of reliable system for estimating and predicting the generated amount of SW
relevant planning becomes difficult.

35
5.2.1 The generated amount is not exactly known but increases

There is inadequate documented information on the amount of generated SW.According to official calculation
by the Audit Team the amount of SW increases proportionally with the growth of population and economy.
The strength of this correlation is however not known. Available information allow for different estimations of
the generated amount of SW, as seen below.
TMC uses a factor of 0.5 kg generation of SW per person and day. Based on a population of 840,000
people in 2007 the amount of generated SW is just over 400 tons per day or 153,000 tons in that
year.
TMC has a higher figure of the generated amount of SW relative to the actual population. TMC
estimated the amount to be 176,000 tons in 2007. This figure was based on a higher estimation of the
number of inhabitants.
The amount of the generated SW increases over time. This is illustrated in Table 5.2 below. It must be stated
that these figures are only estimations.
Table 5.1: Estimation on the growth of all solid waste during 2002-2007
Year SW generated
(Thousand tons)
2002 140
2003 147
2004 153
2005 160
2006 168
2007 176
Source: TMC (2008)
5.2.2 Increased officially collected amount

The officially collected amount of SW is to a large extent carried out by TMC and its franchise contractors
(see Table 5.2). The private organizations (managing their own SW) do also collect SW, but only to a minor
part (as seen in table 5.3 below). The amount of SW collected by TMC and its contractors is shown in the
table below.
Table 5.2: SW collected by TMC and franchise contractors for years 2003-2007

2002 140 51 36
2003 147 58 39
2004 153 60 39
2005 160 61 38
2006 168 67 40
2007 176 76 43
Source: Dump site daily reports and TMC solid waste data (2008)
The amount of officially collected SW by TMC and its franchise contractors has in both absolute and relative
terms increased during the last years. Still only a minor part of the generated SW is collected.

Photo 3: The picture above shows part of the generated SW which has remained uncollected along the
road in Shimo la Udongo area, Temeke Municipality.
The collection conducted by different categories of service providers is shown in Table 5.3.
Table 5.3: The estimated amount of officially and unofficially collected solid waste 2007 by various
stakeholders (Thousand tons)
Service Provider Collected Percentage of collected SW
SW related to total amount of
collected SW (176,000 tons)
TMC 46 26
Franchise contractors 26 15
Private organisations 4 2
SW unofficially 100 57
managed by citizens
(estimations)
Total 176 100
Source: Dump site daily reports (2008)
5.2.3 The wards are differently served

As seen in Table 5.4 there is great difference of generated and collected SW between wards in the municipality.
In some wards all or almost all generated SW are collected; in others only a minor part is collected. Some
wards are much better served by TMC and its contractors; others are to a high degree left to take care of the
SW themselves. However, accessibility and nature of settlement adds to the complications of managing SW.

37
Table 5.4: Generated and collected solid waste in the 24 wards in 2007
Generated SW Officially Percentage

Ward (thousand Collected SW Collected
tons) (thousand (%)
tons)
Chang'ombe 4.9 4.7 96
Temeke 7 5 71
Keko 8 7.9 99
Miburani 10 6.3 63
Azimio 15 8.9 59
Tandika 11 7.6 69
Mtoni 12 5.8 48
Kurasini 9 6 67
Sandali 10 5.9 59
Charambe 20 5.2 26
Toangoma 3 1.5 50
Mbagala 18 8.9 49
Kigamboni 9 2.3 26
Mbagala Kuu 12 0 0
Yombo Vituka 10 0 0
Makangarawe 11 0 0
Somangira 3 0 0
Chamazi 2 0 0
Vijibweni 1 0 0
Kisarawe II 1 0 0
Kimbiji 1 0 0
Kibada 0.8 0 0
Pemba Mnazi 0.7 0 0
Mji Mwema 0.7 0 0
Total 176 76 43
Source: TMC (2008)
According to government policy, the LGAs are responsible for collecting all generated SW. This is also the
general goal of TMC. Historically it has set rather general targets, not specific or measurable ones, either for
the municipality as a whole or for the individual wards. Likewise no clear requirements have been set for the
service providers.
This has made it difficult to evaluate, analyze and improve performance. In short, there have not been clear
benchmarks for learning and improvements. Consequently few actions have been taken that significantly have
improved the efficiency of the system for collection of SW in the municipality.

5.4 PROCUREMENT OF FRANCHISE CONTRACTORS
the services is assumed to be conducted by TMC after the failure of franchisee contractors in the previous
years. (Refer to section 5.6.1) A question is whether the SWM services were procured according to law and
whether the contractors to be selected had sufficient conditions or qualifications to fulfill their offers.
According to TMC, the formal regulations are followed in the procedures when they procure the franchise
contractors. This is stated in the tender evaluation report, which is written every third year in connection
with the hiring procedures.The latest one was written in 2005.The council advertises the tender for providing
SWM services. Representatives from the wards are also involved.The proposals are evaluated by an evaluation
team at TMC.They check among other things, documents to confirm the eligibility, financial capability, required
equipment and identification of collection system in unplanned areas. The evaluation report is then sent to a
tender board for final approval. The lowest evaluated bidders are awarded the contract to provide services
to the selected wards, and this is where the municipality might go wrong. PPA does talk of the lowest realistic
offer.
There are evidences saying that several procured franchise contractors were not fit to fulfil their offer.According
to TMC officials, its for instance common that contractors lack technical and financial capability. However,TMC
continues to procure these underperforming contractors as no other franchise contractors exist. Moreover,
TMC is trying to help them to enhance their technical capability by focusing on financial management, contract
management, information and data management and recruiting well trained supervisors on the field of SW
management. This is according to TMC a way of trying to make the best of difficult situation.
A lot of the franchise contractors are not able to keep a sustainable position on the market. It is common that
the contractors after a relatively short period of time they stay in the market get into economic problems.
This is partly due to the fact that they are unable to collect fees as planned. It is also caused by insufficient
equipment and poor management. The high turnover is illustrated by the development during the last years.
The turnover of the procured franchise contractors has been high. More than half of them have failed to stay
in the market for more than a few years according to statistics from TMC.

One question is whether and for what reason the private contractors differ in money spent for the service
providers collection of SW.
One possibility is to examine whether they provide as agreed. Another option is to assess whether they use
their resources in the best way. A third possibility is to compare performance indicators. It is however not
so easy to apply these approaches. There are no clearly stated targets set, and there is a significant lack of
appropriate and reliable information. Measured in terms of compliance, earlier evaluation has shown that no
franchise contractors were able to meet the requirements set in the contracts. There are still differences
among them to what extent they fail to meet the requirements. (For more information, see sections 5.6 and
5.7.)
The audit team has gone through documents from the last years. None specific target has been found.
30

31

39
Even if there are no targets set by TMC, the general ambition is that all SW should be taken away. Measured in
years it has got more and more difficult to balance the generated growth of SW. It must be repeated however
that TMC is taking steps such as creating awareness to people and taking legal actions to defaulters to reach
its targets.

TMC does not measure and compare the service providers performance. Based on information from TMC
performance. In Table 5.5 the estimated cost per collected ton of SW is presented.32
Table 5.5: Estimated cost (Thousand TShs.) per collected ton in 2007
Franchise Nature of the Ward Cost per collected ton133
contractor
Harmah traders Mixed 5.0
TMC Mixed 2.3
MP Environment Planned 3.0
Source: TMC (2008)
As shown above Harmah traders is less cost efficient than MP Environment and TMC. In fact, Harmah traders
is more than half as cost efficient as TMC, even though they are both operating in similar kind of wards.
As seen in Table 5.6 there is significant differences among the service providers in how they utilise their
collected per vehicle and per staff for each of the service providers including TMC. In order to be able to
compare service providers with similar conditions the service providers are arranged according to increasing
capacity of collection per vehicle.
Table 5.6: SW collected per vehicle and Staff in various wards in 2007
Service provider the Ward 34
per vehicle1 per staff
35
(Tons/vehicle) (Ton/staff)2
TMC Mixed 1,825 183
MP Environment Planned 1,351 146
Harmah traders Mixed 986 110
Source: TMC and franchisee contractors (2008)
5.5.4 Profitability
As mentioned before, historically no targets have been set for how much SW each franchise contractor should
collect. The level of the SW fees is set by the government, but it is up to the contractor to collect the fees.
Therefore, it is up to the contractor to manage the production volumes as well as the cost and the revenues.
Should there be any profit; the contractor is expected to share it with TMC. (In other words, TMC expects to
gain money by outsourcing this service to private contractors meaning the idea is not only to reduce the
cost or to improve the performance for the service.)
The provided total calculated cost for one year is divided with 365 in order to get the cost of SW collection per day. This is divided with the
32
amount of collected tons per day according to dump reports.

collect fees and keep the costs low. As will be seen in section 5.6.1 they are less dependent on how much
and how well they produce, since there are no effective inspections and sanctions in place. The contractors
estimated revenues and costs in 2007 were as presented in Table 5.7.
Table 5.7: Economic results among franchise contractors in 2007

Franchise Revenues136 Costs237 Financial Profitability
contractor (Million TShs.) (Million results (million (%)
TShs.) TShs.)
MP Environment 66 88 - 22 -25
Harmah traders 34 62 - 28 -45
Source: Franchisee contractors (2008)
According to the figures above both franchise contractors were unprofitable and they were both making huge
losses, even if there were differences in the size of the losses. The economic results will make it difficult for
the franchise contractors to stay in the market.
5.5.5 Financing of TMCs own collection activities

TMC is as mentioned responsible for collection of SW in residential and markets areas. TMC is only financed
through the government budget and thus never involved in the collection of SW fees from markets or
households. As seen over time, the budgets for TMC have varied a lot, but in real terms and in relation to
needs, the resources have actually been allocated according to available funds in that financial year.
regulated and guided in Local Government Act and Waste Management Guidelines issued by MoHSW and also
in the contracts between the local government authorities and the franchise contractors.TMC has the overall
evaluation of the franchise contractors performance, inspecting and quality assurance of the SWM services.
These functions cover both the private contractors and TMC as service provider. For TMC it is thus important
to execute the controlling functions concerning monitoring, evaluating and quality assurance with professional
integrity, even in relation to its own function as service provider. Organizational separation of operating and
monitoring activities is important to safe guard reliability.This is however not the case at TMC.The staff at the
SWM section carry out their duties as both operators and inspectors. According to TMC this is mainly due
to limited resources.

The monitoring system is supposed to cover five parameters: the service frequency, the equipment availability,
to what extent customers are served, the safety of the staff and the revenue collection. The frequency of
monitoring by various times is presented in Table 5.8.
33
Ratio of the estimated cost and the amount of the solid waste collected 2007. The cost has been calculated based on information from the
service providers and TMC on costs of various kinds. To some extent estimations has been applied. For more information see appendixes.
34
The figures were obtained by dividing the amount of SW collected per year as obtained from TMC and number of used trucks respectively.
35
The figures were obtained by dividing the amount of SW collected per year as obtained from TMC and number of staff who worked
respectively.
36
37

41

Service frequency V
Equipment V
Customers served V
Safety of staff V
Source: TMC based on studies of documents and assessments by Audit team in collaboration with by
TMC officials (2008).
As seen above three of five parameters are seldom or never monitored. The service frequency is monitored
through regular reports sent from the dump sites.38 There are also monthly check ups of the contractors
equipment. There is however no systematic monitoring of contractors profitability and of safety issues.
Moreover, the extent in which the customers are served and satisfied is very seldom monitored. According to
TMC the reason for this less developed monitoring is due to lack of capacity, office equipment, IT-systems and
staffs competence. The level of education of SW collection staff was not evaluated.
TMC is expected to evaluate the service providers performance in order to examine whether the contractual
requirements are met.With one exception such evaluations have not been conducted by TMC. In general TMC
has chosen a more limited approach by collecting feedback from the verbal daily inspections. This approach
does not allow for much overseeing or transparency, since nothing of what has been observed, discussed and
done is documented.
The exception is an evaluation that was carried out in 2006. Some of the finding in that evaluation is presented
in Table 5.9.
Table 5.9: Franchise contractors ability to meet contractual requirements39

Score Number of Recommendations given
contractors
Excellent 0
Good 1 continue with services
Average 1 continue with services
Below average/poor 12 terminate contract
Source: Interview with SWM official (2008)
As seen above no franchisee contractor was excellent and able to fully or almost fully comply with the
contractual requirements. Only for two contractors the recommendation was given by the evaluation that
they could continue with their services. The rest 12 out of the 14 contractors did not even meet the
requirements. The recommendation given by the evaluation was that all these 12 contractors ought to lose
their contracts. The recommendations from the evaluation did however not lead to any actions. TMC did not
conduct any analysis or follow up study.
38
39
The evaluation that was conducted by TMC between January and March 2005. Excellent means that all or most of the requirements set
were met.

Most of the contractors are however not serving TMC anymore. According to TMC officials this is mainly due
to economic reason, not to the fact that they had difficulties complying with the contractual requirements.

TMC uses ward health officers to conduct inspections of the service providers. The inspection should follow
to provide TMC with daily reports on whether SW has been collected and if actions are taken that will solve
This is ideal, but according to interviews with TMC officials these procedures are far from often followed.
TMC has no documentation of these inspections. All inspections rely on verbal reporting. The reason for this
is, according to TMC officials, that a formal system is likely to require a lot of human resource and time. No

TMC is responsible for the quantity and quality assurance of SWM services rendered within the municipal
councils area. This assurance system concerns the private franchise contractors as well as TMCs own service
providers.
SW, collection of SW in different areas, transfer stations, transportation and disposal of SW. The other issue
deals with whether the franchise contractors and TMCs own staff are abiding to the adequate ways of SW
According to the interviews,TMC has not asked the franchise contractors to develop their systems for quality
assurance in accordance with standards. In addition, the audit team has observed weaknesses in the way SW
were handled, such as:
The transportation of the SW is not covered properly.

The franchise contractors staff do not use protective gears;
The storage of SW is done in inappropriate containers.
The reason given by a service provider even if the company is profitable is that the company is not
sufficiently solid to buy modern equipment and facilities. According to the same source, TMC has not given
these issues much attention.

43
Photo 4: The SW collectors dumping SW to the collection point from the households as depicted in this photo taken at Temeke Mwisho in
Temeke Municipality.The SW collectors are using push carts in transporting SW from Households to the collection point.
TMC has set up and stated a system of sanctions for enforcement of the contracts. The system is regulated
and stated in municipal by-laws and in the contracts. This section concerns the use of sanctions in cases when
the franchise contractors violate the contracts.
According to TMC, violations of law and contracts are common and they are similar to what is observed in
other councils like for instance Kinondoni.
The degree in which the sanctions are applied is however limited. This is shown below.
Table 5.10: Applied sanctions according to TMC

month year seldom
Verbal warnings V
Written warnings V
Appealed to court to V
get rid of the franchise
contractor
Termination of V
contract
Source: TMC studies of documents and assessments by Audit team in collaboration with TMC officials
(2008)

TMC has set up and stated a system of sanctions for enforcement of the contracts. The system is regulated
and stated in municipal by-laws and in the contracts. This section concerns the use of sanctions in cases when
the franchise contractors violate the contracts.
As seen above TMC has frequently given verbal warnings, but they have never taken any other actions in spite
of the fact that no contractor was able to meet contractual requirements.
5.8 The system of SW fees and how it operates

The SWM is assumed to be financed by SW fees and TMC has set up SW fees in by-laws and in accordance
with the level of income and kind of business conducted.The system, including the fee levels, has been the same
since 2002. The system is handled by the franchise contractors.
The fee levels differ depending on category of service receiver and level of income. For residential areas there
are different kinds of fees. People with low income pay TShs. 500/= per month, while inhabitants with middle
income pay TShs. 1000/=. People with higher income pay TShs 2000/=. There are also fees for small businesses
(street markets). The amount of fee also differs depending on kind of business conducted.
According to the contracts the franchise contractors shall

Collect SW fee from a household or occupier of premises
Issue a receipt for every fee collected which has to be approved by TMC and keep records on the
number of households and premises attended
Make available to TMC for inspection of all records, accounts and invoices related to the SWM.40
Table 5.11: The service providers collection of SW fees for 2006/07

(From households and business in Million TShs)41

Service provider collected 2007 amount 2007
MP Environment 132 66 50
Harmah Traders 112 34 30
TMC 915 0 0
Source: TMC and computations done by the audit team based on the information gathered (2008)
As seen above all service providers have difficulties in collecting fees. There are also significant differences
among them regarding the amount they collect.
According to TMC officials and private contractors there are different reasons for not collecting all SW
fees as targeted. Some reasons are related to the peoples willingness or unwillingness to pay and the lack of
consequences if they dont pay. Other reasons are more related to weaknesses in the system, like inadequate
database concerning those who are supposed to pay and lack of control of payment.
40
TMC contracts for SWM appendix B of the contract between TMC and service providers
41

45
5.9 CONCLUSIONS ON SOLID WASTE MANAGEMENT AT TMC
5.9.1 Difficulties in managing increasing SW

TMC has great difficulties in managing an increasing amount of SW. The growing accumulation of SW causes
damage to the environment and threatens peoples health. This in turn will have severe negative impacts for
the economy.

Some of the important findings that need to be addressed include:
a) Procurement of franchise contractors and the financing system

The operations of the services for SWM are allocated between TMC and the franchise contractor. But the
roles are not clearly performed:
TMC procures franchise contractors that lack the technical and economical capability to perform the
required service.
The reasons for the unwillingness to pay the fees have not been collected and analyzed.
b) Control and follow up of the solid waste services by TMC

The local authority in charge (TMC) has the overall responsibility for the SWM in its area. However, TMCs
improvements of the services.
TMC do not keep records of the service providers and their performance.
The findings of the inspections are not documented.

conducted for SWM in year 2006.
The sanction system is not used for enforcement of the contracts in spite of the fact that many
franchise contractors fail to meet the contractual requirements.

Most of the service providers lack sufficient capability and hence under perform.
The franchise contractors are not getting profit; this may threaten the future ability to procure SW
services.
As a general conclusion, basically all service providers including TMC under perform and
fail to deliver as expected, even if there are significant differences in their performance.
TMCs system for monitoring and inspection does not work properly and is ineffective.
The financing system does not promote efficiency, and all service providers have problems
with the collection of fees. Sanctions have not been applied, in spite of frequent contract
violations.

CHAPTER 6
ILALA MUNICIPAL COUNCIL
6.1 OVERVIEW42
I lala Municipal Council (IMC) is one of the six local government authorities, chosen by Tanzanias National
Audit Office (NAO) for a performance audit of efficiency and effectiveness in their responsibilities for the
Solid Waste Management (SWM).
IMC is one of the three Municipalities in Dar es Salaam City. The Council was established as an autonomous
body in the year 2000. It covers an area of 210 sq km with a population of 638,000 people according 2002
National population and housing provisional census results.
The Municipality is facing a rapid population increase. As per 2002 National census the population was just
634 thousands and it was projected to reach around 640,000 people in year 2007. The estimation from NBS
for year 2007 for this municipality was 693,000 people. The Impact of this rapid development is an excessive
pressure to existing resources, inadequate infrastructure and basic social services. It is worthy to note that,
one among the leading problems is an increasing amount of solid waste (SW). The Municipality area is divided
into 22 wards; out of which 17 are located in urban settings and 5 in semi urban settings.
SWM activities are mainly the duty of the local government authorities, the cities or the municipalities. The
activities cover prevention, generation, collection, transport and sometimes treatment and disposal of SW.The
conditions for SWM varies quite a lot in different areas, like planned or unplanned coupled with the socio-
economic (rich or poor) and culture of the people in respective settlements.
IMC plays varying roles regarding SWM. It has an overall responsibility of overseeing the SWM in all the 22
wards. Moreover, it is independently responsible for the operational activities in 3 wards,, markets, Government
institutions and recreational grounds together with open areas. Nonetheless, the SW operational activities in
the other areas have been contracted to private contractors by IMC. However, despite engagement of private
contractors, IMC is responsible for planning, supporting, overseeing and inspecting the work, for enforcement
of the laws and the contracts. Overseeing the activities includes supervising the quality of the provided service
with SW.
The main focus of this chapter is look into the efficiency and effectiveness of IMC as regards collection and
transport of SW.The overall purpose of the audit is focused on answers for the questions indicated in chapter
one.

The Municipalities are, responsible for the SWM that is the overall planning up to monitoring. Reliable systems
on how to estimate and predict the generated amount of SW are consequently important.
6.2.1 The estimated amount of generated solid waste over time

There is no information on the amount of generated and collected SW in the municipality.According to official
calculations (by auditing team) the amount of SW increases proportionally to the growth of the population.
The strength of this correlation can be emphasized by including the consumption pattern of the people which
often is a result of their socio-ecomical status. IMC said that they use a ratio of 0.68 kg per person per day
to do their rough calculations if need be. This factor (rate) is based on a study conducted five years ago and
42
This section is based on general information from IMC.

47
is probably not reflecting the reality of today. The generation factor covers the total fractions of SW, such as
Household SW, Industrial SW and SW in parks and public places. The Audit team has not found any more
detailed information. It is worthy to note that the available information varied significantly. The following
sentences may illustrate the dilemma:
IMC uses a factor of 0.68 kg generation of SW per person per day. Based on that factor and the above
mentioned estimated population close to 640,000 people as per year 2007, the overall amount of
generated SW ought to be about 434 tons per day or 158,000 tons that year.
The National Bureau of Statistics (NBS) has however estimated the population in IMC to be close to
640,000 year 2007. Given the generation factor of 0.8 kg per person and per day, the generated amount
of SW ought to be 202,000 tons in year 2007.
IMC however uses another and even higher figure for the generated SW. According to the annual
statistics of IMC the generated SW was around 286,000 tons for 2007. According to IMC they still
use the generation factor 0.8. But the higher figure of generated SW is the result of additional SW
generated by daily visitors, like businessmen, tourists etc. It has not been possible for the audit team to
gather more concrete explanation on how IMC had calculated the figures for generated SW in their
official statistics.
As seen different assumptions have various impacts for the predictions of the generated amount of SW. For
the planning IMC uses the figures from their official data. According to this information, the generated SW has
been significantly increased over the years. This is shown in the Table 6.1 which is based on estimations done
by IMC;
Table 6.1: Estimation of the growth of all solid waste in 2000-2007

Year Estimations SW generated (Thousand tons)
Given factor 0.8 and Given factor 0.8 and
NBSs population figure, NBSs added with visitors
daily
2000 151 226
2001 154 337
2002 185 237
2003 189 274
2004 192 274
2005 196 274
2006 199 274
2007 202 286
Source: IMC annual data of SW generated and collected (2008).
According to IMCs annual statistics the population increased by 4.2%, while the growth of the generated SW
increased by more than 27% during 2002-2007. This means that the generation factor of 0.68 kg per person
per day need to be reworked in order to reflect the reality of today. It might be worth mentioning that the
common trend in the world is that the generation factor for SW might increase or decrease over time
depending on the prevailing conditions and the consumption pattern of the people.
In the following sub-sections IMCs predictions are taken into account, even if there are reasons to believe that
they may not fully reflect the generated amount.


The amount of SW collected by IMC and its private service providers has varied over time, as shown in Table
6.2. Some figures are presented in an interval in order to capture the various IMC presented figures.
Table 2: Generated and officially collected SW 2000-2007

2000 226 104 46
2001 237 136 57
2002 237 147 62
2003 274 148 54
2004 274 151 55
2005 274 156 57
2006 274 174 64
2007 286 188 66
Source: IMC annual data of SW generated and collected (2008)
It is evident from the Table 6.2 that, generated SW has been increasing from 2002-2003, stagnant between
2003-2006 and increased by 2007. The figures might not be correct since there is population increase and
changing consumption patterns.
Table 6.3 below presents the estimated collected SW by various stakeholders in 2007 relation to the estimated
generated amount.
2007 by various stakeholders (tons)
Service Provider Collected SW Percentage (%) of the total
(Thousand amount of Collected SW
tons) (286,000. tons)
Ilala own staff (from 47 16
dump site reports)
Service providers 81 28
(from dump site reports)
Private organisations 60 21
approved by IMC (from
dump site reports)
SW unofficially 98 35
managed by community
(estimations)
Total 286 100
Source: IMC annual data of SW generated and collected (2008)

49
The table above shows IMCs staff are only collecting a small portion (16%) of the generated and collected SW.
The private service providers collect more (21%), and the private organisations that are trusted to manage
the SW themselves collect even slightly more (28%) than the private service providers. According to IMC
1/3 of the collected SW is managed by other means (this is a rough estimation and may in practice include
everything from being removed or buried down by the community to not being collected at all). It ought to be
mentioned in this context that, most of the unofficially managed SW is not dealt with in an environmentally
safe way.
As mentioned earlier the total amount of the generated SW estimated by IMC was around 286,000 tons
in 2007. As observed in Table 6.2 less than half of the generated amount was not collected in 2007, neither
officially nor unofficially. If the figures from IMC are representative, about one third (1/3) of the generated SW
accumulates each year. Since the figures for the unofficial managed SW as well as the amount of generated SW
is uncertain, it is hard to say if the proportion of the uncollected amount of SW is increasing. What is certain,
however, is that only a minor part of the generated SW is officially and correctly removed. The remaining
uncollected wastes are habitats for disease vectors.

The figures for the amount of SW generated and unofficially or privately collected indicated a big variation
(Table 6.4). In some wards more than three quarters (3/4) of SW (77%) was collected in 2007, but there are
also areas where only a minor proportion was collected.
Photo 5: A pile of SW remained uncollected at Buguruni near Rozana bus stand. This pile is just next to residential houses and shops.

Table 6.4: Generated and total collected solid waste in the 22 wards in 2007
Generated SW Collected SW (%) of

Ward (thousand tons) (thousand tons) Collected
Ukonga 11 9 83
Pugu 9 4 44
Msongola 14 5 36
Tabata 19 12 63
Kinyerezi 10 0 0
Ilala 24 22 92
Mchikichini 17 13 76
Vingunguti 14 10 71
Kipawa 15 14 93
Buguruni 13 10 77
Kariakoo 14 12 85
Jangwani 16 12 75
Gerezani 9 6 67
Kisutu 8 7 88
Mchafukoge 12 9 75
Upanga Mashariki 9 6 67
Upanga Magharibi 11 7 64
Kivukoni 6 4 67
Kiwalani 15 12 80
Segerea 18 10 56
Kitunda 6 4 67
Chanika 16 0 0
Total 286 188 66
Source: IMC annual data of SW generated and collected and appendix B of the contract between IMC and
Franchisee. Data on collected SW are confirmed with dump site reports (2008).
As shown in Table 6.3 the franchisee contractors collected 81,000 (28%) tons in 2007 of the total collected,
according to IMC. Consequently, most of the generated SW (34%) is either unofficially managed or not
collected at all in these specific areas.
According to government policy the municipalities are responsible for collecting all generated SW. This is also
the general target by IMC. But it has historically mainly set general targets, rather than specific or measurable
ones, neither for the municipality as a whole nor individual wards. Likewise no clear requirements have been
set for the service providers.This has obviously made it difficult to evaluate, analyse and improve performance.
In short, there have not been clear benchmarks for learning and improvements. Consequently few actions
have been taken that significantly have improved the efficiency of the system for collection of SW in the
municipality.43
43
The audit team has gone through documents from the last years. No specific target has been found.

51
the services are assumed to be conducted by franchise contractors. An obvious question is whether the SWM
services were procured according to law and whether the contractors who were selected had sufficient
conditions to fulfill their offers or not.
According to IMC, the formal regulations are followed in the procedures when they procured the private
service providers.44 This is stated in the tender evaluation report, which is written every third year with the
hiring procedures. However, the latest report was in 2006.The council with the involvement of representatives
from the wards advertises the tender for providing SWM services.. The tender proposals are evaluated by
an evaluation team at IMC. They check among other things, documents to confirm the eligibility, financial
capability, required equipment and identification of collection system in unplanned areas.The evaluation report
is then sent to the tender board for final approval. The lowest evaluated bidders are awarded the contract to
provide services to the selected wards.
There are evidences saying that a lot of the procured service providers were not fit to fulfill their offer.
According to IMC officials, it is for instance common that contractors lack technical and financial capability.
However, IMC continues to procure these underperforming contractors as no other service providers have
shown interest in the work. Moreover, IMC is trying to help them to enhance their technical capability by
training them on financial management, contract management, information and data management and recruiting
well trained supervisors on the field of SW management.
A lot of the private service providers are not able to keep a sustainable position in the market. It is common
that the contractors after staying a relatively short period of time in the market get into economic problems.
This is partly due to the fact that they are unable to collect fees as planned, insufficient equipment and poor
management. The high turnover is illustrated by the development during the last years. The turnover of the
procured service providers has been high. More than 3 of them have failed to stay in the market for more than
a few years.45 There is a need for SWM staff to have qualification of a certain level.

One question which needs answers is whether and for what reason the private contractors differ in money
spent for the service providers collection of SW.
One possibility is to examine whether they provide services as agreed. Another option is to assess whether
they use their resources in the best way. A third possibility is to compare performance indicators. It is however
not so easy to apply these approaches as there are no clearly stated targets set, and there is significantly lack
of appropriate and reliable information.
meet the requirements set in the contracts.There are still differences among them on to what extent they fail
to meet the requirements. (For more information, refer to sections 6.5.4, 6.5.6 and 6.7 of this report.)
44
45
Based on data from IMC. For more information see section 6.5.4 in this chapter.

Even if there are no targets set by IMC, the general goal/wish is that all SW should be taken away from
generation points. However, measured in those terms, it is obvious that no service providers have been able to
collect all the generated SW. In fact, over the years it has got more and more difficult to balance the generated
growth of SW and collection. It must be repeated however that IMC is taking steps such as creating awareness
to people and taking legal actions to defaulters in order to reach its goals/wishes.

IMC does not measure and compare the service providers performance. Based on information from IMC
performance. In Table 6.5 the estimated cost per collected ton of SW is presented.46
Table 6.5: Estimated cost per collected ton in 2007 (Thousand Shillings)
Service provider Nature of Cost per
the Ward collected ton
47
Multinet Planned 32
A.J.M Planned 6.9
Teca Planned 9.4
Sincon Environment Planned 40
Alliance Clean Mixed 37
Mwembemadafu Development Unplanned 7
Organization (MMDO)
Masokoa Cleansing Services Unplanned 9
Ango Business agency Unplanned 11
Source: IMC and service providers (2008)
The table above indicates that there are significant differences in cost efficiency among the service providers,
even among those ones who are serving in the same kind of ward (planned, unplanned and mixed areas). The
cost per collected ton differs for about 83% (i.e. 32,000 and 6900 TShs. per ton) in the planned areas and about
34% (i.e. 9,000 and 7,000 TShs. per ton) in the unplanned areas.
There are many causes to these differences besides the fact that wards or areas are more or less demanding
services, depending on whether they are in planned, partly planned or unplanned areas. One explanation is
that contractors may use more or less modern and cost-effective vehicles or equipment.The service providers
vary in size, and are also equipped with everything from big trucks to small push carts and wheel barrows.
There are also differences in management skills and motivation and efficiency among staff. Even among service
providers with the same kind of vehicles there are significant differences in the amount of collected SW per
staff.
Similarly, we have noted that there are significant differences among the service providers on how they utilise
their vehicles and staff as seen in Table 6.6. The table provides the audit teams estimation of the average
amount per day of SW collected per vehicle and per staff for each of the service providers including IMC.
In order to be able to compare service providers with similar conditions the service providers are arranged
according to increasing capacity of collection per vehicle in the table.
46
The total calculated cost per year is divided with 365 to get the cost per day.This is divided with the amount of collected tons per day according
to dump reports.
47
providers and IMC. To some extent estimations has been applied.

53
Table 6.6: SW collected per vehicle and Staff in various wards in 2007
Service provider the Ward per vehicle48 per staff
49
Multinet Planned 788 97
A.J.M Planned 1,095 195
Teca Planned 1,606 268
Sincon Environment Planned 1,825 73
Alliance Clean Mixed 650 76
IMC Mixed 1,460 241
Mwembemadafu Development Unplanned
3 (MMDO)
Organization50 - 155
Masokoa Cleansing Services Unplanned 1,095 82
Ango Business agency Unplanned 2464 224
Source: IMC and Service providers (2008)
varied from 650 to 2464 tons per vehicle in year 2007. The average SW collected per staff ranged from 73 to
268 tons.
In other words, Ango Business Agencys vehicles are close to four times more efficient than Alliance Cleans
vehicles, and Tecas staff are over four times more efficient than Sincon Environments staff on average.
There is also a big difference in performance within the same ward. Tecas and A.J.Ms vehicles and staff are
for instance much more efficient than Multinets in the planned areas, and Ango Business agency is vehicles
and staff are much more efficient than Masokoa Cleansing Servicess or MMDOs in the unplanned areas. The
differences in performance might partly be explained by external factors (more or less demanding wards in
terms of size and character).
6.5.4 Profitability
As mentioned before, historically no targets have been set on how much SW each service provider should
fees.Therefore, it is up to the franchisee contractor to manage the production volumes as well as the cost and
the revenues. Should there be any profit; the contractor is expected to share it with IMC. (In other words, IMC
expects to gain money by outsourcing this service to private contractors meaning that the idea is not only to
reduce the cost or to improve the performance for the service.)
collect fees and keep the costs low. As referred to section 6.5.4, they are less dependent on how much and
how well they produce, since there are no effective inspections and sanctions in place. The contractors
estimated revenues and costs year in 2007 were as shown in Table 6.7.
48
The figures were obtained by dividing the amount of SW collected per year as obtained from IMC and number of trucks respectively.
49
The figures were obtained by dividing the amount of SW collected per year as obtained from IMC and number of staff respectively.
50
It has got 2 trailers, 1 tractor and 15 push carts

Service provider Revenues 51 Costs 52 Financi Profitability

al (%)
results
Multinet 360 373 -13 -3
A.J.M 65 72 -7 -10
Alliance Clean 91 96 -5 -5
Teca 76 112 -36 -32
Sincon Environment 288 290 -2 -1
Mwembemadafu 43 54 -11 -20
Development Organization
(MMDO)
Masokoa Cleansing 20 30 -10 -33
Services
Ango Business Agency 44 55 -11 -20
Source: IMC (2008)
It is clear from the presented figures in Table 6.7 that all service providers are making losses. However, there
are huge differences in losses made which ranged between 1 33%.
6.5.5 Financing of IMCs own collection activities

IMC is as mentioned responsible for collection of SW in three wards and in public and central areas and is
only financed through the government budget; since they have never got any money from the profitable private
contractors (One reason for this is that IMC is not fully aware of their economic records and results).As seen
over time, the budgets for IMC have varied a lot, but in real terms and in relation to needs, the resources have
actually been reduced over time, according to IMCs available information.
6.5.6 Internal efficiency among contractors

In Table 6.8 below a relatively high input efficiency and low cost per collected ton are given a good score.
Low input efficiency and high cost per delivered ton of SW are given a low score. All other results are given
a medium score. In order to consider the external conditions, mixed and unplanned wards are presented
separately. These two dimensions capture vital aspects of the internal efficiency among the private service
providers. Moreover, the profitability or the ability to collect fees is presented. All information reflects the
situation in year 2007.
It is clear from Table 6.8 that the links between production efficiency and profitability are also weak in the
unplanned areas.
51
52

55
Table 6.8: Internal efficiency among contractors in unplanned wards 2007

Contractors in Relative Relative cost Ability to make profit/

unplanned areas input efficiency collect fees
efficiency
Mwembemadafu High High Good

Development
Organization (MMDO)
Masokoa Cleansing Medium High Low
Services
Ango Business agency High Medium Low
Table 6.9: Internal efficiency among contractors in planned wards 2007
Contractors in planned Relative input Relative cost Ability to make profit/

areas efficiency efficiency collect fees
Multinet Low Low Good

A.J.M Medium High Good
Teca High High Good
Sincon Environment Medium Low Medium
The links between production efficiency and profitability are also weak as indicated on Table 6.9 above. It
clearly shows that they are weak in the planned areas as well. There are also, other cases weak links between
input efficiency and cost efficiency. In summary, the links between production efficiency and profitability is very
weak

regulated and guided in Local Government Act and Waste Management Guidelines issued by MoHSW and
also, in the contracts between the local government authorities and the service providers. IMC has the overall
evaluation of the service providers performance, inspecting and quality assurance of the SWM services.
These functions cover both the private service providers and IMC as a service provider. For the sake of IMC it
is thus important to execute the controlling functions concerning monitoring, evaluating and quality assurance
with professional integrity, even in relation to its own function as a service provider. Organizational separation
of operating and monitoring activities is important to safe guard accountability. This is not the case with IMC
since staff of the SWM section carry out their duties as both operators and inspectors. However, according
to IMC this is mainly due to limited resources.

service frequency is subject to continuous and documented monitoring.53 According to IMC the reason for
this monitoring is for instance lack of capacity (IT-systems, staffs competence etc.). The frequency of the
monitoring activities is presented in Table 6.10.
53
The parameter regarding service frequency covers the number of trips/tons taken to dumpsite, percentage of waste collected and legally

Customers served V
Service frequency V
landfill Records
and performance
Contractors staff V
Source: IMC based on studies of documents and assessments by IMC officials (2008).
As shown on the table above most of the parameters are either seldom or never monitored. The service
frequency is monitored, and regular reports are sent from the dump sites. There are no systematic forms of
monitoring, not even on clients satisfaction or contractors profitability.
IMC is expected by the Government to evaluate the service providers performance in order to examine
whether the contractual requirements are met or not. Such evaluations have not been conducted by IMC.
Instead IMC has chosen a more limited approach by getting feedback from the daily inspections.This approach
does not allow for much of overseeing or transparency, since nothing of what has been observed, discussed
and done is documented.

IMC uses ward health officers to conduct inspections of the service providers. The inspection should follow
to provide IMC with daily reports on whether SW has been collected and if actions are taken that will solve
This is the ideal, but according to interviews with IMC officials these procedures are far from often being
followed. IMC has no documentation of these inspections. All inspections rely on verbal reporting. The reason
for this is, according to IMC officials, that a formal system is likely to require a lot of human resource and time.
No attempts have since been done to test a more simplified documentation system.

IMC is responsible for the quantity and quality assurance of SWM services rendered within the Municipal
Councils area. This assurance system concerns the private service providers as well as IMCs own service
providers.
deals with whether the service providers and IMCs own staff are abiding to the adequate ways of SW storage,
collection, transfer, transportation and disposal of SW.

57
According to the interviews with SWM officials, IMC has not issued or required service providers to prepare
and observe the above elements of quantity and quality assurance. Also, during the site visits, the audit team
observed a number of weaknesses in the way SW were handled. Some of the factors which are contrary to
the best quality and quantity are:
Transportation of the SW on open not covered properly dump trucks. This endangered the health of
the dwellers along the roads;
Service providers staff that do not use protective gears which put themselves in harm way;
Storage of SW is done in inappropriate containers places without required standard.
The reasons given by IMC is that service providers have no set strategies for ensuring that quality and quantity
assurance are in place. According to IMC most of the service providers are not well equipped with modern
vehicles used to collect solid waste, and their staff are not always aware of the hygienic issues. Furthermore,
the service providers supervision may be a little bit slack and therefore, IMC has failed to ensure that service
providers follow the best practices of SWM.
IMC has set up and stated a system of sanctions for enforcement of the contracts.The system is regulated and
stated in municipal by-laws and in the contracts. This section concerns the use of sanctions in cases when the
service providers violate the contracts.
The sanction system covers various activities. The initial steps are verbal and written warnings. Other steps
are termination of the contract and request for damage and possibility of an appeal to court to get rid of a
violating service provider. According to IMC, violations of law and contracts are common. The following are
examples of the many different reasons put forward:

Incorrect or inadequate record-keeping by the contractor.
The degree in which the sanctions are applied is however limited as shown in Table 6.11 below.
Table 6.11: Applied sanctions according to IMC

month year seldom
Verbal criticism V
Written warnings V
Source: IMC studies of documents and assessments by Audit team in collaboration with IMC officials
(2008)
The table above shows that IMC frequently has applied verbal criticism against many service providers who
failed to meet contractual obligations. At the same time, IMC has not applied other sanctions like request for
the damage (fines), sent those defaulters to court and/or termination of contracts.This should be viewed in the
context of what is earlier mentioned regarding the franchisee contractors ability to meet set requirements.
The SWM is assumed to be financed by SW fees and IMC has set up SW fees in the municipal by-laws and in
accordance with the level of income and kind of business conducted. The system, including the fee levels, has
been the same since 2002. The system is handled by the service providers.
The fee levels differ depending on category of service receiver and level of income. For residential areas
there are three fee levels. Inhabitants with low income pay TShs. 500 per month while citizens with middle
income pay TShs. 1000 and citizens with high income pay TShs. 2000 per month. There are also fees for small
businesses (street markets), that varies from 2000 to 10 000 TShs. (The most common fee is 10 000 TShs.) The
amount of fee also differs depending on the kind of business conducted, as hotels, shops bus stand etc.
According to the contracts the private service providers shall

issue a receipt for every fee collected which has to be approved by IMC and keep records on the
make available to IMC for inspection of all records, accounts and invoices related to the SWM. 54
Table 6.12 below shows the value of SW fees that are supposed to be collected and the estimated value
actually collected by the service providers.
Table 6.12: The private service providers collection of SW fees in 2006/07

Service provider collected amount (%) of potential
fee to be
collected
Multinet 600 360 60
A.J.M 65 46 72
Alliance Clean 121 91 76
Teca 103 76 73
Sincon Environment 720 288 40
Mwembemadafu 71 43 60
Development
Organization (MMDO)
Masokoa Cleansing 71 20 28
Services
Ango Business Agency 831 44 5
Source: IMC and computations done by the audit team based on the information gathered (2008)
54
IMC contracts for SWM appendix B of the contract between IMC and service providers.
55

59
Five service providers collected more than half of the potential SW fees, and one of them collected less than
half. The figures reflect two things: the ability to collect SW in relation to what is needed, and the ability to
collect fees among clients being served and possibly the willingness to pay or economic status of inhabitants
According to IMC officials and private contractors there are different reasons for not collecting all SW fees
as targeted. Some reasons are related to the peoples willingness or unwillingness to pay and the lack of
consequences if they do not pay. Other reasons are more related to weaknesses in the system, like inadequate
database concerning those who are supposed to pay and lack of control of payment.
6.9 CONCLUSIONS ON SOLID WASTE MANAGEMENT AT IMC

IMC has great difficulties in managing an increasing amount of SW. The growing accumulation of SW causes
the economy.
Some findings that need to be addressed are as follows:

The operations of the services for SWM are allocated between IMC and private companies. But the roles are
not clearly stated:
IMC procures service providers that lack the technical and economical capability to perform the
required service.
control.
Efficient service providers who fail with fee collection risk bankruptcy, while inefficient service providers
who manage with fee collection may survive.
b) Control and follow up of the solid waste services by IMC

As the local authority in charge, IMC has the overall responsibility for the SWM in its area. However, IMCs
improvements of the services. During this audit IMC has however showed aims of improvements in dealing
IMC do not keep records of the service providers and their performance.
The findings of the inspections are not documented.
The monitoring and evaluation functions are less reliable and effective; there is no evaluation that has
been conducted for SWM.
The sanction system is not used for enforcement of the contracts despite the fact that many service
providers fail to meet the contract requirements.


Most of the service providers lack sufficient capability and under perform.

A vast majority of the procured service providers are not getting profit; this may threaten the future
ability to procure SW services.
In conclusion, basically all service providers under perform and fail to deliver as expected,
even if there are significant differences in their performance. IMCs system for monitoring and
inspection does not work properly and is ineffective. The financing system does not promote
efficiency, and all service providers have problems with the collection of fees.The sanctions are
properly regulated, but sanctions have not been applied, in spite of frequent contract violations.
IMC has recently decided to improve its effort to address mentioned shortcomings.

61
CHAPTER 7
MBEYA CITY COUNCIL
7.1 OVERVIEW
M beya City Council (MCC) is one of six local government authorities, Municipalities, chosen by Tanzanias
National Audit Office (NAO) for a performance audit of efficiency and effectiveness in their responsibilities
for the Solid Waste Management (SWM). The Mbeya was established to become city council in the late 2005.
MCC covers 214sq km and is characterized by urban as well as rural areas. MCC is divided into 36 wards.
Mbeya City is facing rapid population increase.As per 2002 national census the population was around 270,000
people and it was projected to reach around 330,000 people in year 2007.The Impact of this rapid development
is a number of problems. One problem is an excessive pressure on the existing resources. Other problems
include inadequate infrastructure and basic social services. Nonetheless, an increasing amount of solid waste
(SW) is assumed to be one among the most leading problems.
The operating activities with SWM are mainly tasks for the LGAs, the cities or the municipalities.The activities
cover prevention, generation, collection, transport and treatment or disposal of SW. The conditions for SWM
vary quite a lot in different areas, like planned or unplanned and respectively rich or poor settlements.
MCC is responsible for SWM in all 36 wards but meanwhile it is serving only 24 wards. It plays varying roles
in handling SW both in open community (parks, bus stand, markets and squares) and in residential areas.
MCC is responsible for planning, supporting, overseeing and inspection of work in order to enforce the laws.
The main focus of this chapter is on the efficiency and effectiveness of MCC in collection and transportation
of SW to the disposal site. As mentioned in chapter one, the overall purpose of the audit is focused on finding
answers to the raised questions by the audit team.
The city of Mbeya, as mentioned above, is responsible for the SWM and the overall planning and monitoring.
Reliable systems on how to estimate and predict the generated amount of SW are consequently important.

There is no documented information on the amount of generated and collected SW. Available information
varies significantly. According to Audit Teams calculation the amount of SW increases in proportion to the
growth of the population. The strength of this correlation is however not known.
The generated SW has increased significantly over the last yearsI as shown in the Table 7.1 below based.

Table 7.1: Estimation on the growth of all solid waste from 2003-2007
Year SW generated
(Thousand tons)
2003 52
2004 54
2005 56
2006 57
2007 59
Source: MCC (2008)
According to NBS, during the period of 2003 to 2007 the population increased by 17 percent and hence slight
increase in the amount of produced SW. However, the results are statistically not different posing a doubt
about reliability of obtained information from MCC.

The amount of SW collected by MCC has slightly varied over time, as indicated on Table 7.2 below. Some
figures shows slight increase of the SW collection from 2004 to 2007.
The development over the last five years has been fairly stable but has gradually increased.
Table 7.2: Generated and collected SW 2003-2007 (MCC and private organizations)
2003 52 28 53
2004 54 31 56
2005 56 36 64
2006 57 38 68
2007 59 41 70
Source: MCC (2008)

63
Table 7.3 below indicates the estimated collected SW by various stakeholders in 2007 in relation to the
estimated generated amount.56
Service Provider Collected % of collected % of collected
SW SW relative to the SW relative to
total amount the total
collected (33,300 amount
tons) generated
(59,000 Tons)
MCC 38.7 94 65.6
Private 0.4 1.0 0.7
organizations
SW unofficially 2.2 5.3 3.7
managed by citizens
(estimations)
Total 41.30 100 70
Source: MCC annual data of SW generated and collected (2008)
As seen above MCC is only collecting a large part of the generated and collected SW.The private organisations
that are trusted to manage the SW themselves collect small amount of the SW generated. According to
MCC 2,200 tons of the collected SW is managed by other means (this is a rough estimation and may in
practice include everything from being removed or buried down by the residents or not being collected at
all). It ought to be mentioned in this context, that most of the unofficially managed SW is not dealt with in
an environmentally safe way.
As mentioned earlier the total amount of the generated SW by MCC estimated to be around 59,000 tons
in 2007 (This means that more than half i.e. 70%). As shown in the table above about 30% of the generated
amount was not collected in 2007, neither officially nor unofficially.
If the figures from MCC are representative, this means that close to one-third (30%) of the generated SW
is accumulated each year. Since the figure for unofficial managed SW is uncertain as well as the estimation
of the amount of generated SW, it is hard to say whether the proportion of the uncollected amount of SW
is increasing or not. We have noted that only a minor part of the generated SW is officially and correctly
removed.

There are variations in the amount of generated and collected SW. In eighteen wards more than 80% was
collected in 2007, but there are also areas where only a minor proportion was collected. Figures in Table 7.4
cover all estimated collected SW, including unofficially and privately collected SW.
56
MCC has provided various figures on the amount of SW generated. For 2007 the interval varies between 740 and 865 thousand tones.

Table 7.4: Generated and total collected solid waste in the 36 in wards 2007
Sisimba 1.0 1.00 100
Isanga 1.9 1.50 78
Iganzo 1.8 0.00 0
Mwansekwa 0.3 0.00 0
Itagano 0.3 0.00 0
Itezi 1.8 1.44 80
Nsalaga 2.0 1.60 80
Igawilo 2.3 1.84 80
Iganjo 1.1 0.55 50
Uyole 1.4 1.12 80
Iduda 0.8 0.00 0
Mwasanga 0.1 0.00 0
Tembela 0.2 0.00 0
Ilomba 4.7 4.30 91
Mwakibete 3.0 2.53 83
Ilemi 3.7 3.20 86
Isyesye 0.6 0.00 0
Ruanda 4.4 3.90 88
Iyela 5.0 4.60 92
Sinde 1.2 1.00 83
Maanga 1.6 1.50 93
Mbalizi Road 1.6 1.40 87
Forest 1.6 1.40 87
Mabatini 1.5 1.30 86
Nzovwe 3.2 2.00 62
Kalobe 2.1 0.00 0
Iyunga 2.2 1.10 50
Iwambi 2.0 1.00 50
Itende 0.6 0.00 0
Iziwa 0.7 0.00 0
Nsoho 0.3 0.00 0
Majengo 0.8 0.75 93
Ghana 0.9 0.80 88
Nonde 0.5 0.00 0
Itiji 0.9 0.70 77
Maendeleo 0.8 0.80 100
Total 59 41.30
Source: MCC (2008)
The table above covers 24 wards where MCC is operating and 12 wards where MCC is not providing the
service of the SW collection. Most of those wards are in peri-urban and SW is managed by other methods
such as burying or dispose in the farms. Very little amount of SW (0.4 tons or 0.7 % of the total generated
SW) was collected by the two private organizations which dispose their waste in two or four times a year.
Consequently, most of the generated SW is not collected at all in these specific areas.

65
Table 7.5 presents similar information in areas where MCC and private organization are operating. In total,
70% of the generated SW is collected in this area.
Table 7.5: Generated and collected SW where only MCC is responsible in 2007
Central and Public Generated SW Collected SW Percentage
Areas (thousand tons) (thousand tons) Collected
MCC, private 59 41.30 70

organizations and
unofficially collected
Source: MCC annual data of SW generated and collected (2008)
In the areas where MCC operates more than one-third (70%) of the generated SW is collected by MCC,
private organization or unofficially. MCCs part of this was as mentioned earlier (Table 7.4) is 41,300 tons in
2007. The rest of the collected SW in this area (4.4% or 2,600 tons) is collected by both private organizations
and is unofficially managed. In other words, 65.6 % of the SW generated (38,700 tons in this area) is collected
by MCC.
According to the government policy, LGAs are responsible for collecting all generated SW. This is also the
general goal/wish by MCC. But it has historically mainly set rather general targets, not specific or measurable
ones, neither for the city as a whole or for the individual wards. Likewise no clear requirements have been set
for the service providers. This has obviously made it difficult to evaluate, analyse and improve performance.
In short, there have not been clear benchmarks for learning and improvements. Consequently few actions
have been taken that significantly could have improved the efficiency of the system for collection of SW in the
city. 57
7.4 EFFECTIVENESS AND COST EFFICIENCY OF MCC

One question is how MCC use its resources for the collection of SW.
The exchange of the service provider (MCCs) activities in terms of efficiency could be measured in different
ways. One possibility is to examine whether they provide as per contract agreement. Another option is to
assess whether they use their resources in the best way. MCC has set a target of 51 tons/day and there is a
significant lack of appropriate and reliable information.
The target set is small compared to the capability of collecting 88 tons/day which assured them to have fulfilled
their goal. In reality it is not possible to get a realistic goal since there is no evaluation made to assess their
performance.
57

Even if there is a target set by MCC, it is assumed by MCC that all SW that are not taken away by the council
are managed informally. This means that (30%) of the generated SW is assumed to be managed this way.
According to the Audit team, this might mean that a lot of the generated SW is not properly collected or not
taken away at all.
7.4.2 Cost per collected ton, SW collected per vehicle and Staff in various wards
MCC does not measure its performance. Based on information from MCC, the Audit team has computed
figures to get a picture of the service providers (MCC) performance. In Table 7.6 the estimated cost per
collected ton of SW is presented.58
Table 7.6: Estimated cost per collected ton, SW collected per vehicle and Staff in
various wards in 2007
Nature of the Cost per SW collected SW collected
Service Ward collected per vehicle
60
per staff
provider ton
59
61
(TShs/ton)
MCC Mixed 3115 9855 329
Source: MCC (2008)
There are many causes to this present cost per collected ton of SW. These are inadequate management skills
in lower local authorities, motivation and efficiency among MCC staff. Also, equipment, vehicles and labour
may be more or less costly.
7.4.3 Performance per vehicle and per staff in various areas

The table above provides the audit teams estimation of the average amount per day of SW collected per
vehicle and per staff of MCC. It is clear that a large amount of the SW is not collected and hence, a clear
indication of low performance of the working vehicles.
7.4.4 Profitability
As mentioned before, historically no targets have been set for how much SW should be collected. The level
of the SW fees is set by the government, but it is up to the service provider (MCC) to collect the fees. This
means, it is up to MCC to manage the production volumes as well as the cost and the revenues. MCCs
estimated revenues and costs in 2007 are shown Table 7.7.
Table 7.7: MCCs Economic Results in 2007 (Million TShs.)

Service provider Revenues62 Costs 63 Financial Profitability (%)
results
MCC 6 104 -96 -93
Source: MCC (2008)
58
The provided total calculated cost for one year is divided with 365 in order to get the cost of SW collection per day. This is divided with the
amount of collected tons per day according to dump reports.
59
Ratio of the estimated cost and the amount of the solid waste collected in 2007. The cost has been calculated based on information from the
service providers and MCC on costs of various kinds. To some extent estimations has been applied. For more information see appendixes.
60
The figures were obtained by dividing the amount of SW collected per year as obtained from MCC and number of trucks respectively.
61
The figures were obtained by dividing the amount of SW collected per year as obtained from MCC and number of staff respectively.
62
Figures are based on the calculations of revenue obtained through fees paid by businesses since the book keeping was seldom in order. Also
the figure has not taken into account the budget set aside by the central government for the SWM related activities.
63

67
According to the figures above there is a huge gap in profitability. MCC is making huge losses. Such a situation
needs measures to be redressed.
7.4.5 Financing of MCCs own collection activities

MCC is as mentioned responsible for collection of SW in all areas within the city and is only financed through
the government budget. Observed over time the budgets for MCC have varied a lot, but in real terms and in
relation to needs, the resources have actually been reduced over time, according to MCCs data. One reason
for this is that MCC is not fully aware of their economic records and results.
regulated and guided in Local Government Act, Waste Management Guidelines issued by MoHSW and also in
the contracts between the LGAs and the service providers. MCC has the overall responsibility for safeguarding
SWM services.This responsibility covers functions such as monitoring and evaluation of the service providers
performance, inspecting and quality assurance of the SWM services.
These functions cover both the organizations (collecting their own SW) and MCC as service provider. For
MCC it is thus important to execute the controlling functions concerning monitoring, evaluating and quality
assurance with professional integrity, even in relation to its own function as service provider. Organizational
separation of operating and monitoring activities is important to safe guard reliability. This is however not the
case at MCC.The staff at the SWM section carry out their duties as both operators and inspectors. According
to MCC this is mainly a result of limited resources.
The following sub-sections deals with MCCs control of the SWM and the result of the collection of SW. The
first part deals with monitoring and evaluation, the second part deals with inspections and the third part with
quality assurance.

The monitoring covers 6 parameters: to what extent customers are served, the service frequency, the
equipment availability and performance, the amount of MCCs staff and the revenue collection. Only service
frequency is subject to continuous and documented monitoring.64 According to MCC the reason for this less
developed monitoring is for instance lack of capacity (IT-systems, staffs competence etc.). The frequency of
the monitoring activities is shown in Table 7.8 hereunder.
Table 7.8: Frequency of conducted monitoring of MCCs staff

Parameters to be Several times Every Every Very Never
Customers served V
Service frequency V
landfill Records
and performance
Source: MCC based on studies of documents and assessments by Audit team in collaboration with MCC officials (2008).
64

and regular reports are sent from the dump sites. Apart from this there are no systematic forms of monitoring,
not even for the clients satisfaction
MCC is expected by the Government to evaluate MCCs staff performance in order to examine whether the
SWM requirements are met. With one exception such evaluations have not been conducted by MCC. Instead
MCC has chosen a more limited approach by getting feedback from the daily inspections. This approach does
not allow for much overseeing or transparency, since nothing of what has been observed, discussed and done
is documented.

MCC uses ward health officers to conduct inspections of the service providers. The inspection should follow
to provide MCC with daily reports on whether SW has been collected and if actions are taken that will solve
This is the ideal, but according to interviews with MCC officials these procedures are far from often being
followed. MCC has no documentation of these inspections. All inspections rely on verbal reporting.The reason
for this is, according to MCC officials, that a formal system is likely to require a lot of human resource and
time. No attempts have been done to test a more simplified documentation system.
7.5.3 Quantity - and quality assurance

MCC is responsible for the quantity and quality assurance of SWM services rendered within the councils area.
This assurance system concerns the individuals, institutions and companies as well as MCCs own staff.
SW, collection of SW in different kinds of areas, transfer stations, transportation and disposal of SW.The other
issue deals with whether MCCs own staff are abiding to the adequate ways of SW storage, collection, transfer,
transportation and disposal of SW.
According to the interviews with SWM officials, MCC has not issued or required its staff to prepare and
observe the above elements of quantity and quality assurance.Also, during the site visit, the audit team observed
a number of weaknesses in the way SWs were handled. Some of the factors which are contrary to the best
quantity and quality assurance are:
MCCs staff have been given protective gears but they dont want to use them which put themselves
in harms way
Storage of SW is done in inappropriate containers and places not according to standards.
The reasons given by MCC are that, it has no set strategies for ensuring that quantity and quality assurance are
in place. According to MCC , it is not well equipped with the modern vehicles and its staff are not well aware
of the hygienic issues and also supervision is a little bit slack.The result of this is that MCC has failed to ensure
that, its staff follows the best principles of SWM.

69
Photo 6: This picture shows SW are scattered all over the place after overflowing the storage container. The
scattered SW resulted into double handling since they need to be shoveled and put into a container before
being transported to the disposal site. This picture was taken in Mbeya municipality.
7.6 SANCTIONS AND ENFORCEMENT OF BY-LAWS
MCC has set up and stated a system of sanctions for enforcement of the city by-laws. The system is regulated
and stated in city by-laws.This section concerns the use of sanctions in cases when the individuals, organizations
or institutions and businesses violate the by-laws.
The sanction system covers various activities.The initial steps are verbal and written warnings. Other steps are
request for damage and possibility of an appeal to court. According to MCC, violations of by-laws are common
and well known among the individuals, organizations or institutions and businesses and even its own staff who
are charged to provide SWM services. The following reasons are mentioned:

SW in areas where collection should be provided by MCC.
Incorrect or inadequate record-keeping by MCC staff.
Failure to collect and pay SW fee on time.

Photo 7: This picture shows SW on the ground near a transfer station/collection point. SW are in an area that
should have been cleaned as depicted in this photo taken in Mwanjelwa, Mbeya along Tunduma road.
The degree in which the sanctions are applied is however limited as shown in Table 7.9 below.
Table 7.9: Applied sanctions to defaulters65 according to MCC

month year seldom
Verbal warnings V
Written warnings V
Request for V
damage(fines)
Appealed to court for V
the reluctant clients
Source: MCC studies of documents and assessments by Audit team in collaboration with MCC officials
(2008)
The table above shows that MCC frequently has applied verbal warnings against many defaulters who failed
to meet their obligations. At the same time, MCC has not applied other sanctions like request for the damage
(fines), sent those defaulters to court and others.This is mainly due to a reality that there are few contractors
who want to engage themselves in SWM.
65
Individuals, companies, or organizations which failed to abide with MCC by laws.

71
The SWM is assumed to be financed by SW fees and MCC has set up SW fees by law and in accordance with
the level of income and kind of business conducted. The system, including the fee levels, has been the same
since 2002. The system is handled by MCC. This section is dealing with whether these fees are correctly set
up and collected.
The fee levels differ depending on category of service receiver and level of income. For residential areas
there are two fee levels. Inhabitants with low income pay TShs. 500/= per month while citizens with middle
and higher income pay TShs. 1000/= per month. There are also fees for small businesses (street markets), that
varies from 2,000/= to 10,000/= TShs. (The most common fee is 5,000/= TShs.) The amount of fee also differs
depending on the kind of business conducted, as hotels, shops bus stand etc.
According to the city by-laws MCC shall
Collect SW fee from a household or occupier of premises in accordance with by-laws

Issue a receipt for every fee collected which has to be approved by MCC and keep records on the
number of households and premises attended
Table 7.10 indicates the value of SW fees that are supposed to be collected and the estimated value actually
collected by MCC.
Table 7.10: MCCs collection of SW fees in 2006/07

Service provider collected in 2007 amount in 2007 %
MCC 98 8 8
Source: MCC and computations done by the audit team based on the information gathered (2008)
As seen above there is a significant difference between the potential fee to be collected and the collected
amount regarding the collection of fees. MCC has only been able to collect 8% of the potential fee. The figure
reflects two things: the ability to collect SW in relation to what is needed, and the ability to collect fees among
those clients being served.
According to MCC officials there are different reasons for not collecting all SW fees as targeted. Some reasons
are related to the residents willingness or unwillingness to pay and the lack of consequences if they do not
pay. Other reasons are more related to weaknesses in the system, like inadequate database concerning those
who are supposed to pay and lack of control of payment.
According to MCC officials there are different reasons for not collecting all SW fees as targeted. Some reasons
are related to the residents willingness or unwillingness to pay and the lack of consequences if they do not
pay. Other reasons are more related to weaknesses in the system, like inadequate database concerning those
who are supposed to pay and lack of control of payment.
66
Through the interviews and financial records with Mbeya City Council

7.8 CONCLUSIONS ON SOLID WASTE MANAGEMENT AT MCC

MCC has great difficulties in managing an increasing amount of SW. The growing accumulation of SW causes
the economy.

Some of the findings that need to be addressed include the following:
Control and follow up of the solid waste services by MCC
As the local authority in charge MCC has the overall responsibility for the SWM in its area. However, MCCs
improvements of the services. During this audit MCC has however showed aims of improvements in dealing
MCC do not keep records of its performance.

conducted for SWM.
The sanction system is not used for enforcement of the by-laws in spite the fact that many individuals,
institutions and companies fail to meet the obligations.
In conclusion, basically MCC under performs and fail to deliver as expected, even if
there are significant differences in their performance. MCCs system for monitoring and
inspection does not work properly and is ineffective. The system for financing does not
promote efficiency, and problems with the collection of fees.The sanctions are properly
regulated, but sanctions have not been applied, in spite frequent violations. MCC has
recently decided to improve its effort to address mentioned shortcomings.

73
CHAPTER 8
ARUSHA MUNICIPAL COUNCIL
8.1 OVERVIEW
A rusha is one of the Tanzanias 26 administrative regions. The regional capital is Arusha Municipal. The
Arusha Municipality is at the southern foot of Mt. Meru. Areas to the south and southeast of the mountain
tend to be sufficiently watered and are the most densely populated areas of the region.
The region is a popular tourist destination and is the centre of the Northern Tanzania Safari Circuit. On
average about 90,000 people visit Arusha daily for tourism and for business purposes. Demographically this
region does not differ that much from many other areas in Tanzania.
The 2002 census reported that Arusha Municipal Councils (AMCs) population was about 280,000
inhabitants.67 It was projected to reach half a million in 2007, but according to The National Bureau of Statistics
(NBS) the population growth has been lower than earlier expected and reached only 335, 000 in 2007.
The operating activities with SWM are mainly tasks for the Local Government Authorities. The activities
cover prevention, generation, collection, transport and treatment or disposal of SW. AMC has 17 wards and
41 streets in an area of close to 1,300,000 hectares.The conditions for SWM might vary quite a lot in different
areas within the municipality, like planned or unplanned and respectively rich or poor settlements.
AMC is responsible for the SWM in all 17 wards. AMC conduct most of the SW services itself, but also
franchise contractors are engaged. Towards the franchise contractors, AMC is responsible for planning,
supporting, overseeing and inspection, in order to enforce the laws and the contracts. AMC is also responsible
for the approval of private organizations requests for collecting their own SW (hotels, restaurants and other
businesses).
The main focus of this chapter is on the efficiency and effectiveness of AMC and its dealing with collection
and transportation of SW. As mentioned in chapter one, the overall purpose of the audit is focused on getting
answers to questions presented in Chapter One.

Municipality of Arusha as mentioned above is responsible for the SWM and the overall planning. Reliable
systems on how to estimate and predict the generated amount of SW are consequently important. This
requires appropriate monitoring systems.
8.2.1 The generated amount is not exactly known but increases

There is no certain information on the amount of generated and collected SW.According to official calculations
the amount increases in proportion to the growth of the population. The strength of this correlation is
however not known.
67
2002 national census report

AMC applies a ratio of 0.8 kg per person per day during February, March, April, May and October, and a factor
of 1.2 kg per person per day for the rest of the year. On average this means that AMC applies a factor of 1.0 kg
per person per day.The factor covers the total amount of SW generated in areas, such as household, industries,
in parks and public places.Available information allow for slightly different estimations of the generated amount
of SW, as seen below:
AMC uses a generation factor of 1.0 kg per person per day. Based on that factor and the above
estimated population by NBS of 335,000 people as per year 2007, the overall amount of generated SW
ought to be 126,000 tons that year. 68
However, according to AMC, the amount of SW generated is estimated to be 137 thousand tons in
2007 meaning that, generation factor is a bit higher. However, population increase is not the only factor
to be considered for establishing the SW generation rates.
The assumptions regarding the generation factors are based on studies conducted several years ago and
may not reflect the actual situation of today. Regardless of this the generated amount of SW has significantly
increased over time, according to AMC as presented in Table 8.1.
Table 8.1: The total amount of generated solid waste during the last years
Year Total amount of SW generated
(Thousand tons)
2003 88
2004 88
2005 88
2006 137
2007 137
Source: AMC annual data of SW generated and collected (2008).
At the same time the growth of the generated SW increased by 56% according to AMC (as referred to Table
8.2). During the period of 2003 to 2007 the population in Arusha increased by roughly 20%, according to the
NBS. This means that the average generated SW per person must have increased during that period. It might
be worth mentioning that this is in line with the general trend in the world.
Here after AMCs estimations for the generated amount of SW are taken as guiding figures, even if there are
reasons to believe that they may not fully reflect reality.
8.2.2 Decreasing officially collected amount of SW

The officially collected amount of SW is to a large extent carried out by AMC and its franchise contractors.
The private organizations (managing their own SW) do also collect SW, but only to a minor part (as seen in
Table 8.4). The amount of SW collected by AMC and its contractors is shown in Table 8.2.
68
A factor of 1.0 multiplied with 335,000 citizens; and multiplied with 365 (days per year).

75
Table 8.2: SW collected by AMC, franchise contractors and private organization,

2003-2007 (SW unofficially collected are excluded)
2003 88 47 54
2004 88 41 47
2005 88 35 40
2006 137 38 28
2007 137 38 28
Source: AMC annual data of SW generated and collected (2008)
The officially collected SW by AMC, its franchise contractors and by approved private organizations has in
relative terms decreased during the last years.
Table 8.3 beneath shows the estimated collected SW by various stakeholders in 2007 in relation to the
estimated generation amount.
Table 8.3: The estimated amount of officially69 and unofficially70 collected solid waste
Service Provider Collected % of collected % of collected
SW SW relative to SW relative to
(Thousand the total the total
tons) amount of amount of
collected SW generated SW
(129,000 tons) (137,000
Tons)
AMC itself (from dump
site reports) 22 17 16
Franchise contractors
(from dump site 7 5 5
reports)
Private organisations
approved by AMC
(from dump site 9 7 7
reports)
SW unofficially
managed by peoples 91 71 66
(estimation)
Total 129 100 94
Source: AMC annual data of SW generated and collected, based on dump side reports and rough
estimations (there is no solid evidence for the unofficially managed SW) (2008).
69
Officially collected that is measured by dumpsite report. This report shows the amount of SW dumped by AMC, franchisee contractors and
private organizations.
70
Unofficially collected that is the one estimated by AMC and managed by other means i.e. burying and burning them.The category unofficially
managed may in practice include everything from being removed or buried down by the citizens to not being collected at all.

The table above shows AMCs estimates that almost all generated SW is collected. A great majority (71 %) of
the collected SW is unofficially managed, according to AMC; and less than one third (29 %) is officially collected
(by AMC, franchise contractors and approved private organizations). In other words besides, more than half of
the generated SW in Arusha municipal is not collected at all; not even unofficially according to AMC.
8.2.3 The wards are differently served

As shown in Table 8.4, there are great differences between wards in both generated and collected SW. In some
wards all or almost all generated SW are collected; in others only a minor part is collected. Some wards are
much better served by AMC and its contractors; others are to a high degree left to take care of the SW as
best as they can.
Table 8.4: Officially and unofficially collected SW in the 17 wards in 2007

(Thousand tons)
Generated SW in Collected SW Percentage
Ward each ward (Ton) collected
Kati 35 12 34
Kaloleni 4.5 0.9 20
Sekei 3.8 2.9 76
Kimandolu 8.6 4 47
Baraa 2.3 0.7 30
Oloirien 5.1 0.7 14
Themi 3.3 0.9 27
Lemara 4.5 0 0
Terrat 3.1 0 0
Sokon I 1.6 2 125
Daraja Mbili 8.5 1.4 16
Unga L.T.D 7.2 0 0
Sombetini 1.3 0.9 69
Ngarenaro 6 0 0
Levolosi 4.3 3 70
Engutoto 1.9 0 0
Elerai 1.5 0.7 47
Other areas AMC 34 0 0
TOTAL 137 38 28
Source: AMC annual statistics of SW generated and collected (2008).
According to the government policy, LGAs are responsible for collecting all generated SW.This is also the general
goal/wish by AMC. However, it has historically mainly set general targets, rather than specific or measurable
ones, either for the municipality as a whole or for the individual wards. Likewise no clear requirements have
been set for the franchise contractors. This has obviously made it difficult to evaluate, analyze and improve
performance. In short, there have not been clear benchmarks for learning and improvements. Consequently
few actions have been taken that could significantly have improved the efficiency of the system for collection
of SW in the municipality. 71
71
The audit team has gone through documents from the last years. No specific target have been found.

77
8.4 PROCUREMENT OF FRANCHISE CONTRACTORS
The Municipalities responsibility for procurement of services for SW is important, since the services at
least partly are conducted by franchise contractors. A question is whether the SWM services were procured
according to law and whether the contractors selected had sufficient conditions to fulfill their offers.
According to AMC, the formal regulations are followed in the procedures when they procure the franchise
contractors.72 This is stated in the tender evaluation report, which is written every third year in connection
with the hiring procedures. The latest one was written in year 2004. The council advertises the tender for
providing SWM services. Representatives from the wards are also involved. The proposals are evaluated by
an evaluation team at AMC. They check among other things, documents to confirm the eligibility financial
capability, required equipment and identification of collection system in unplanned areas.The evaluation report
is then sent to a tender board for final approval. The lowest evaluated bidders are awarded the contract to
There are evidences saying that a lot of the procured franchise contractors were not fit to fulfill their offer (see
section 8.5). According to AMC officials, it is common that contractors lack technical and financial capability.
However, AMC continues to procure these underperforming contractors as they do not see any alternative.
8.5 EFFECTIVENESS AND COST EFFICIENCY
8.5.1 Contractors and goal-fulfilment and compliance

One question is whether and for what reason the franchise contractors differ in money spent for the franchise
contractors collection of SW.
The exchange of the franchise contractors activities in terms of efficiency could be measured in different
ways. One possibility is to examine whether they provide as agreed. Another option is to assess whether they
use their resources in the best way. A third possibility is to compare performance indicators. It is however
not so easy to apply these approaches. There are no clearly stated targets set, and there is a significant lack of
appropriate and reliable information.
Measured in terms of compliance, earlier evaluation (see section 8.6) has shown that no franchise contractors
were able to meet the requirements set in the contracts. There are still differences to what extent they meet
the requirements.
Even if there are no targets set by AMC, the general ambition is that all SW should be taken away. Measured
in those terms, it is obvious that no franchise contractors have been able to collect all generated SW. In fact,
over the years it has got more and more difficult to balance the generated growth of SW. It must be repeated
however that AMC is taking steps such as creating awareness to people and taking legal actions to defaulters
in order to assist in attaining the goals.
8.5.2 High and varying costs per collected ton

AMC does not measure and compare the franchise contractors performance. Based on information from
AMC and contractors, the Audit team has computed figures to get a picture of their performance. In Table 8.5
the estimated cost per collected ton of SW is presented.73
72
73
to dumpsite reports.

Table 8.5: Estimated cost per collected ton in 2007 (Thousand Shillings.)
the Ward collected ton1
74
Kivesi Investment Planned 11

Lemaly Investment Planned 10
Kisomboko Investments Ltd Mixed 13
AMC Mixed 5
Faraja Women Group Unplanned 5
YEP Unplanned 5
Source: AMC and franchise contractors (2008)
As seen above there are different costs per collected ton among the franchise contractors. The highest cost
per collected ton of SW is in the planned areas, while the lowest costs are in the unplanned areas. The biggest
difference in costs between the two service providers is in the mixed area.There are no significant differences
in cost efficiency between the two operators in the planned areas.The same goes for the franchise contractors
serving the unplanned area.
depending on whether they are in planned, partly planned or unplanned areas. One explanation is that
contractors may use more or less modern and cost-effective vehicles or equipment. The contractors vary in
size, and are also equipped with everything from big trucks to small push carts and wheel barrows. There are
also differences in management skill and in the motivation and efficiency among staff. Even among franchise
contractors with the same kind of vehicles there are significant differences in the amount of collected SW per
staff. Also, equipment, vehicles and labour may be more or less costly.
The big difference on cost per collected ton between Kisomboko Investments Ltd and AMC which is TShs.
13,000/= and 5,000/= respectively is due to the fact that, AMC is having big trucks and also relatively more
skilled staff.
8.5.3 Performance per vehicle and per staff vary

As seen in Table 8.6 there is significant differences among the franchise contractors in how they utilize their
collected per vehicle and per staff for each contractor, including AMC.
Table 8.6: SW collected per vehicle and Staff in various kinds of wards 2007
AMC and Franchise the Ward per vehicle1
75
per staff 762
contractor (Ton/vehicle) (Ton/staff)
Kivesi Investment Planned 2398 165
Lemaly Investment Planned 883 68
YEP Unplanned 1212 71
Faraja Women Group Unplanned - 41
AMC Mixed 3909 193
Kisomboko Investments Ltd Mixed 767 128
Source: AMC and Service providers (2008)
74
Ratio of the estimated cost and the collected solid waste collected in 2007. The cost has been calculated based on information from the
franchise contractors and AMC.
75
The figures were obtained by dividing the amount of SW collected per year as obtained from AMC and number of trucks respectively.
76
The figures were obtained by dividing the amount of SW collected per year as obtained from AMC and number of staff respectively.

79
varied from 767 to 3909 tons per vehicle in year 2007. The average SW collected per staff varied from 41 to
193 tons.
There are also differences in performance within the same kind of ward. Kivesi Investments vehicles and
staff are for instance more efficient than Lemaly Investment vehicles. As seen earlier, the cost per collected
ton is almost the same among these two franchise contractors (referred to table 8.7 below, Lemaly is more
profitable than Kivesi). Moreover, AMC vehicles and staff are more efficient than its competing franchise
contractor Kisomboko. (As seen earlier AMC is close to three times more cost effective than Kisomboko.)
The information indicates clear differences in performance between the franchise contractors. Kivesi Investment
is for instance much more efficient than Lemaly Investment, and AMC is much more efficient than Kisomboko
Investments Ltd.
8.5.4 Profitability of contractors

All contractors are more or less getting profit. As mentioned before, historically no targets have been set on
how much SW each service provider should collect. The level of the SW fees is set by the government, but
it is up to the service provider to collect the fees. Therefore, it is up to the franchisee contractor to manage
the production volumes as well as the cost and the revenues. Should there be any profit; the contractor is
expected to share it with AMC. (In other words, AMC expects to gain money by outsourcing this service
to contractors implying that the idea is not only to reduce the cost or to improve the performance for the
service.)
collect fees and keep the costs low. As will be seen later they are less dependent on how much and how well
they produce. The contractors estimated revenues and costs for 2007 are shown in Table 8.7.
Table 8.7: Economic results for franchise contractors in 2007 (Million TShs.)
Service provider Revenues Costs 78 Financial Profitability (%)
from fees77 results
Lemaly Investment 17 13 4 31
YEP 20 16 4 25
Kisomboko Investments Ltd 26 23 3 13
Faraja Women Group 11 10 0.5 5
Kivesi Investment 54 53 1 2
AMC 42 103 -603 79 -58
Source: AMC (2008)
According to the figures above there are huge differences in profitability.All franchise contractors are however
getting profit.
77
78
79
AMC is only partly financed by fees. Its mainly funded by the local budget to run its activities. Whether this hampers the incentives to collect
fees efficiently is hard to say, but it may be a factor (see section 8.8).

8.5.5 AMCs difficulties in financing their own operations

AMC is as mentioned responsible for collection of SW in public, central and in rural areas and is financed
through own municipal budget and collected SW fees; since they have never got any money from the profitable
franchise contractors (One reason for this is that AMC is not fully aware of their economic records and
results). As observed over time, the budgets for AMC have varied a lot, but in real terms and in relation to
needs the resources have actually been reduced over time, according to AMCs data. At the same time AMC
is relatively efficient in its production, but faces substantial problems in collecting fees (see above and section
8.8).
8.5.6 Internal efficiency of contractors

In Tables 8.8 to 8.10 the franchise contractors performance is presented. The performance is described in
three categories: input-efficiency, relative cost efficiency and profitability. The performance is assessed in the
following way:
High input efficiency and low cost per collected ton are given a good score
Low input efficiency/high cost per delivered ton SW are given low score
All other results are given a medium score
In order to consider the external conditions, mixed and unplanned wards are presented separately.These two
dimensions capture vital aspects of the internal efficiency among the franchise contractors. In addition, the
profitability or the ability to collect fees is presented. All information reflects the situation in year 2007.
Table 8.8: Internal efficiency of contractors in mixed wards in 2007

Franchisee Relative input Relative cost Ability to make profit/
Contractors in efficiency efficiency collect fees
mixed area
Kisomboko Low Low Good
Investments Ltd
AMC Good High Poor
Kisomboko Investments Ltd is profitable but inefficient in terms of production. AMC is efficient in terms of
production, but is less able to collect fees. In other words, it is possible to be profitable but inefficient and vice
versa.
Table 8.9: Internal efficiency of contractors in unplanned wards in 2007

Faraja Women Low High Medium/low

Group
YEP Medium High Good
As seen above links between input efficiency and cost efficiency are weak in the unplanned wards.This deviates
from what is normally the case; where high cost efficiency tends to correspond with good input efficiency. One
can also see that there are significant differences in performance among the two contractors, even though they
operate in wards with similar conditions.

81
Table 8.10: Internal efficiency of contractors in planned wards 2007

Kivesi
Investment Good High Poor
Lemaly
Investments Low High Good
As seen above the link between production efficiency and profitability is weak in the planned areas. Kivesi
Investment has a good production performance, but is not profitable enough in a long term perspective.
8.6.1 The integrity of the control functions

The integrity of the control functions run the risk of being questioned.A system for control of the SWM services
is set up for the Local Government Authorities. This system is regulated and guided in Local Government
Act and Waste Management Guidelines issued by MoHSW and also in the contracts between the LGAs and
franchise contractors.
AMC has the overall responsibility for safeguarding SWM services. This responsibility covers functions such
as monitoring and evaluation of the service providers performance, inspecting and quality assurance of the
SWM services.
These functions cover both the franchise contractors and AMC as a service provider. For AMC, it is thus
important to execute the controlling functions concerning monitoring, evaluating and quality assurance with
professional integrity, even in relation to its own function as a service provider. Organizational separation of
operating and monitoring activities is important to safe guard reliability. This is however not the case with
AMC. The staff at the SWM section carry out their duties as both operators and inspectors. According to
AMC this is mainly a result of limited resources.This may hamper the integrity, the credibility and the reliability
of the monitoring and evaluation activities.
8.6.2 Vital aspects and systematic monitoring

Vital aspects are not monitored systematically.The monitoring covers six parameters: coverage area, equipment
availability, occupational health and safety control measures, compliance and legal aspects, customer satisfaction,
and financial aspects and revenue collection. 80 According to AMC the reason for this inadequate monitoring
is for instance lack of capacity (IT-systems, staffs competence etc.).
The frequency of the monitoring activities is shown in Table 8.11.
80

Table 8.11: Frequency of conducted monitoring of franchise contractors

Parameters to be Several times Every Every Very Never
Coverage area V
Safety of staff V
Compliance V
Customer satisfaction V
Source: AMC based on studies of documents and assessments by Audit team in collaboration with AMC
officials (2008).
As seen above several parameters are said to be monitored every year. It has not been possible for the Audit
team to get full documentation on this. However, the service frequency is the only parameter monitored, and
regular reports are sent from the dump sites. Otherwise there are no systematic forms of monitoring, not
even on clients satisfaction or contractors profitability.
Through its system for complaints AMC has knowledge of the clients satisfaction. Complaints are common,
according to AMC, but there are no data regarding frequency and trends.
Photo 8: This picture shows the residents of Arusha Municipality just sitting and others working near the collection point which has overflow. This
is contrary to occupational health and safety control measures.

83
8.6.3 Evaluations and severe problems

Evaluations reveal severe problems but no actions are taken. AMC is expected by the Government to evaluate
the franchise contractors performance in order to examine whether the contractual requirements are met.
With one exception such evaluations have not been conducted by AMC. Instead AMC has chosen a more
limited approach by getting feedback from the daily inspections. This approach does not allow for much of
overseeing or transparency, since nothing of what has been observed, discussed and done is documented.
The exception is an evaluation that was carried out in 2007. Some of the findings in that evaluation are
presented in Table 8.12.
Table 8.12: Service providers ability to meet contractual requirements 2005.81

To what extent contractual requirements were Contractor
met by the contractors
No %
Meet all the requirements 0 0
Meet more than 80 % of the requirements 1 20
Meet between 50 to 80 % of the requirements 2 40
Meet 20 to 49 % of the requirements 2 40
Meet less than 20 % of the requirements 0 0
Source: AMC (2008)
According toAMC officials no one of the contractors was able to completely fulfill their contractual requirements,
but as seen above one franchise contractor was able to meet most their contractual requirements. Moreover,
two contractors were not even able to meet half of the requirements set.
These findings did however not lead to any actions in improving the situation. Based on the interviews with
AMC officials, there are no reasons to believe that the situation is much different today.
8.6.4 The merits of the inspection system

The merits of the inspection system could be questioned.AMC uses ward health officers to conduct inspections
of the franchise contractors. The inspection should follow certain procedures. The ward health officers are
expected to walk around in the wards.They are also expected to provide AMC with daily reports on whether
SW has been collected and if actions are taken that will solve the problems observed.
This is ideal, but according to interviews with AMC officials these procedures are far from often being followed.
AMC has no documentation of these inspections.All inspections rely on verbal reporting.The reason for this is,
according to AMC officials, a formal system is likely to require a lot of human resources and time. No attempts
have been done to test a more simplified documentation system.The lack of information and evaluation raises
questions on the merits of the system and its performance.
8.6.5 Problems of quantity and quality assurance

There are problems concerning both quantity and quality assurance. AMC is responsible for the quantity
and quality assurance of SWM services rendered within the municipal councils area. This assurance system
concerns the franchise contractors as well as AMCs own operators.
81
Based on investigation conducted by AMC between 2006 and December 2007

deals with whether the service providers and AMCs own staff are abiding to the adequate ways of SW
According to the interviews, AMC has not asked the franchise contractors to develop their systems for quality
assurance in accordance with standards. In addition, the audit team has observed weaknesses in the way SW
were handled, such as:
The transportation of the SW is not covered properly.

The franchise contractors staff do not use protective gears;
The storage of SW is done in inappropriate containers.
Photo 9: Showing a staff of one of the franchisee contractors collecting SW dumped on the ground and he is not using any protective gear as
depicted in this photo in Arusha Municipality.
The reason given by a service provider even if the company is profitable is that the company is not
sufficiently solid to buy modern equipment and facilities. According to the same source, AMC has not given
these issues much attention.

AMC has a system for enforcement of the contracts. The system is regulated and stated in municipal by-laws
and in the contracts. The sanction system covers various activities. The initial steps are verbal and written
warnings. Other steps are termination of the contract and request for damage and possibility of an appeal to
court to get rid of a violating service provider.

85
deals with whether the service providers and AMCs own staff are abiding to the adequate ways of SW
According to AMC, violations of law and contracts are common and they are similar to what is observed in
other councils like for instance Kinondoni. However, the degree in which the sanctions are applied is limited
as indicated in Table 8.13
Table 8.13: Applied sanctions according to AMC

month year seldom
Verbal criticism V
Written warnings V
rid of the service
provider
Termination of contract1
82 V
Source: AMC studies of documents and assessments by Audit team in collaboration with AMC officials
(2008)
As seen above verbal criticism is common and written warnings are also given now and then, according to
AMC officials. The Audit team has found evidence of written warnings. The documentation does, however, not
confirm the stated frequency.
In spite of these stated frequent criticism; AMC has not applied any additional sanctions. This should be
viewed in the context of what is earlier mentioned regarding the franchisee contractors ability to meet set
requirements.
The SWM is assumed to be financed by SW fees and AMC has set up SW fees in the municipal by laws and in
accordance with the level of income and kind of businesses conducted.The system, including the fee levels, has
been the same since 2002. The system is handled by the franchise contractors. The systems and the levels of
the fees is the same as in other councils (for more information, see for instance the chapter on Kinondoni).
Table 8.14 below presents the value of SW fees that are supposed to be collected and the estimated value
actually collected by the franchise contractors. The figures reflect two things: the ability to collect SW in
relation to what is needed, and the ability to collect fees among clients being served.
One franchisee contractor was terminated to provide SW services in Elerai Ward for the failure to abide to the contract between him and
82
AMC. Franchisee contractor was terminated vide letter no. MD/H.6/VOL.1/123 of 8th June 2006.

Table 8.14: The franchise contractors collection of SW fees in 2006/07

(From households and business in Million TShs.)83
Service provider collected amount collected
Kisomboko Investments Ltd 30 26 87
Lemaly Investment 24 17 71
Kivesi Investment 102 54 53
YEP 50 20 40
Faraja Women Group 28 11 39
AMC 200 42 21
Source: AMC and computations done by the audit team based on the information gathered (2008)
There are significant differences among the franchise contractors in their ability to collect SW fees. Two
franchise contractors collected more than two thirds (2/3) of the potential SW fees; and others half (1/2)
or less. With low risks of being subjected to sanctions (see table 8.14 above), the contractors have limited
incentives to improve production efficiency. They have however, according to the system, high incentives for
collecting the fees efficiently. Still most of them seem to have more or less problems with that role as collector
of fees. 84
According to AMC officials and franchise contractors, there are different reasons for not collecting all SW fees
as targeted. Some are related to the peoples willingness or unwillingness to pay and the lack of consequences
if they do not pay. Other reasons are weaknesses like inadequate database concerning those who are supposed
to pay and lack of control of payment.
8.9 CONCLUSIONS ON SOLID WASTE MANAGEMENT AT AMC

AMC has great difficulties in managing an increasing amount of SW. The growing accumulation of SW causes
the economy.
8.9.2 Some findings to be addressed
Some of the findings that need to be addressed are the following:
a) Procurement of franchise contractors and the financing system

The operations of the services for SWM are allocated between AMC and franchise contractors. But the roles
are not clearly stated:
AMC procures franchise contractors that lack technical and economical capability to perform the
required service.
promote efficiency among the franchise contractors and hampers the quality of the inspection and
control.
Efficient franchise contractors who fail with fee collection risk bankruptcy, while inefficient service
providers who manage with fee collection may survive.
The reasons for the unwillingness to pay the fees have not been adequately collected and analyzed.
83
84
For YEP the situation is special; the company is profitable in spite of severe problems in collecting fees.

87
b) Control and follow up of the solid waste services by AMC

As the local authority in charge (AMC) has the overall responsibility for the SWM in its area,AMCs system for
control of SWM has weaknesses. So far the experiences are neither used for learning nor for improvements
of the services. During this audit AMC has however showed aims of improvements in dealing with the severe
problems:
AMC do not keep records of the franchise contractors and their performance.
conducted for SWM.
The sanction system is not used for enforcement of the contracts despite the fact that many franchise
contractors fail to meet the contract requirements.
c) The franchise contractors

Most of the franchise contractors lack sufficient capability and hence, underperform.
There are great differences in performance among the franchise contractors.
Several franchise contractors have great difficulties in collecting fees.
In conclusion, basically all franchise contractors underperforms and fail to deliver as

expected, even if there are significant differences in their performance. The system for
monitoring and inspection does not work properly and is ineffective. The financing system
does not promote efficiency, and all contractors have problems with the collection of fees.
Still they are all profitable. Sanctions have not been applied, in spite of frequent contract
violations.

CHAPTER 9
MWANZA CITY COUNCIL
9.1 OVERVIEW86
M wanza City Council (MwCC) is one of six local government authorities, chosen by Tanzanias National
Audit Office (NAOT) for a performance audit of efficiency and effectiveness in their responsibilities for
the Solid Waste Management (SWM). In 1978 Mwanza obtained the status of municipality in line with the local
government structure established in 1972. In 2000, Mwanza was further promoted to a city status.
Mwanza city is located on the southern shores of the Lake Victoria in Northwest Tanzania. It covers an area of
1325 sq km of which 425 sq km is dry land and 900 sq km is covered by water. Of the 425 sq km dry land area,
approximately 86.8 sq km is urbanized while the remaining areas consist of forested land, valleys, cultivated
plains, grassy and undulating rocky hill areas.
The council is facing rapid population increase. According to the 2002 National Census, Mwanza City had a
population of close to 480,000. The population was projected to reach 760,000 inhabitants in year 2007. The
Impact of this rapid development is a number of problems. One problem is an excessive pressure to existing
resources while, the other ones pertain to inadequate infrastructure and basic social services. However, an
increasing amount of solid waste (SW) is assumed to be one of the most leading problems.
MwCC is divided into 21 wards, out of which 4 wards are in planned, 10 wards are in partly planned and the
rest are unplanned areas.
The operating activities with SWM are mainly tasks for the LGAs, the cities or the municipalities.The activities
cover prevention, generation, collection, transport and treatment or disposal of SW. The conditions for SWM
might vary quite a lot in different kinds of areas, like planned or unplanned respectively rich or poor settlements.
MwCC is responsible for SWM in all 21 wards.
Concerning SWM, MwCC plays varying and different roles. In general MwCC is responsible for collection/
transportation of SW from different collection points to the dumpsite which is situated at Buhongwa, while
some of the procured service providers are responsible for collection of SW from households, businesses
or industries and dump them into specified collection points before they are picked by tMwCC. Only one
procured contractor is responsible for collection and transportation of SW to the dumpsite. Towards the
private contractors MwCC is responsible for planning, supporting, overseeing and inspection, in order to
enforce the laws and the contracts. MwCC is also responsible for supervision of the quality of the provided
service with SW.
The main focus of this chapter is to assess the efficiency and effectiveness of MwCC and its dealing with
collection and transport of SW. As mentioned in chapter one. The overall purpose of the audit is focused on
getting answers to questions presented in Chapter One and sub-questions in Appendix 1.

The Local Government Authorities are, as said above, responsible for the SWM and the overall planning and
monitoring. Reliable systems on how to estimate and predict the generated amount of SW are consequently
important.
86
This section is based on general information from MwCC.

89

There is no information about the amount of generated and collected SW. According to official calculations
the amount of SW increases in proportion to the growth of the population. The strength of this correlation is
however not known. MwCC states that it applies a ratio of 0.5 kg per person per day.This factor is based on a
study conducted 10 years ago and is probably not reflecting the reality of today. The generation factor covers
the total amount of SW, such as Household SW, Industrial SW and SW in parks and public places. The Audit
team has not found any more detailed information.
The information provided is not fully consistent, which as illustrated below:
The National Bureau of Statistics (NBS) has estimated the population in MwCC to be about 540,000 as
per year 2007. Given the generation factor of 0.5 kg per person per day, the generated amount of SW
ought to be about 98,000 tons in year 2007.87
MwCC uses however a higher figure for the generated amount of SW than what would be expected
if the official population figures above and a generation factor of 0.5 kg per person day would have
been applied.
Table 9.1 below shows that in year 2003 the estimated amount by MwCC is lower than expected, but in year
2007 it is the other way around. Or in other words: during the period 2003-2007 the population increased
by 12 % according to NBS and consequently also the generated amount of SW (using the factor of 0.5 kg
per person day). However, as seen below the generated amount of SW increased much more, according to
MwCC. Differences on how the population is estimated are the main explanation to these conflicting figures,
according to MwCC.
Regardless of this, the general trend is that the generated amount of SW has increased over time.
Table 9.1: Estimation on the growth of all solid waste for 2003-2007
Year SW generated (Thousand tons)
Expected Estimated by MwCC
Given factor 0.5 and NBSs Given factor 0.5 and MwCCs
population figure population figure
2003 88 77
2004 88 82
2005 91 88
2006 95 108
2007 98 110
Source: MwCC annual data of SW generated and collected (2008)
There are good reasons to believe that there are strong connections between the population growth and
the generated amount of solid waste, but it is unlikely that the generation factor of 0.5 kg per person per day
reflects the reality of today. This measurement is based on a study done several years ago. The common trend
in the world is that the generation factor for SW changes over time.
In the following text MwCCs predictions are taken for as guiding figures

The amount of SW collected by MwCC and the franchise contractors has varied over time, as seen below.
87
Population (NBS) in year 2007 (537 000) x kg per day/person (0. 5) x days per year (365) = 98 000 ton

Table 9.2: Generated and officially collected SW for 2003-2007 (by MwCC or CBOs and
franchise contractor as well as private organisations)
2003 77 47 61
2004 82 64 78
2005 88 77 87
2006 108 95 88
2007 110 97 88
Source: MwCC annul data of SW generated and collected (2008)
The development over the last five years is according to MwCC that the officially collected amount of SW
in relative terms has increased. Based on these figures almost all generated SW (88%) has been officially
collected88 in the last years.
Table 9.3 below shows the estimated collected SW by various stakeholders in 2007 in relation to the estimated
generated amount.89
Service Provider Collected SW % of the total amount
(Thousand of
tons) Collected SW
(110,000 tons)
Mwanza own staff (from 87 79
dump site reports)
Service provider 6 5
Private organizations 4 4
approved by MwCC
SW unofficially managed 13 12
by citizens (estimations)
Total 110 100
Source: MwCC annual data of SW generated and collected (2008)
According to MwCC, 10% of the generated SW is managed by other means (this is a rough estimation and
may in practice include everything from being removed or buried down by the people or not being collected
at all). It ought to be mentioned in this context, that most of the unofficially managed SW is not dealt with
in an environmentally safe way.
88
The audit team has visited a number of collection points in different wards within the city council and it has observed a number of SW piles
remained uncollected or taken away as stated by the figures presented.
89
MwCC has provided various figures on the amount of SW generated. Also, these figures have been collaborated by the interview with specific
service providers.

91
As mentioned earlier the total amount of the generated SW by MwCC estimated to be around 110,000 tons
in 2007. As shown in Table 9.3 above, less than 15% of the generated amount was not collected in 2007, neither
officially nor unofficially. If the figures from MwCC are representative, about 12% of the generated SW is
accumulated each year. Since the figures for the unofficial managed SW as well as the amount of generated SW
is uncertain, it is hard to say if the proportion of the uncollected amount of SW is increasing. What is certain,
however, is that only a minor part of the generated SW is officially and correctly removed.

There are variations in the amount of generated and collected SW. In some wards almost all SW (93%) was
collected in 2007, but there are also areas where only a minor proportion was collected. The figures below
(Table 9.4) cover all estimated collected SW, including unofficially and privately collected SW.
Table 9.4: Generated and total collected solid waste in the 21 wards in 2007
Pamba 6 5.6 93
Nyamagana 2 1.8 90
Pasiansi 6 5.5 91
Nyamanoro 9 7 77
Kitangili 3 2.5 83
Kirumba 5 3.7 74
Isamilo 4 3 75
Milongo 2 1.8 90
Mbugani 8 7 88
Nyakato 18 14 78
Igoma 7 5.4 77
Mkuyuni 3 2.1 70
Igogo 6 4.6 77
Butimba 7 5 71
Sangabuye 2 0 0
Bugogwa 6 1 17
Ilemela 6 1 17
Mkolani 4 1 25
Buhongwa 3 1 33
Buswelu 3 1 33
Companies, other
private
organizations and
central/public areas - 23
Total 110 97 88
Source: MwCC annul statistics of SW generated and collected and appendix B of the contract between
MwCC and Franchisee Contractors. Data on collected SW are confirmed with dump site reports (2008).
The table above covers areas where private service providers are operating. As mentioned in Table 9.4 the
franchisee contractors collected 97,000 tons in 2007 of the collected SW in these areas. This corresponds
to 88% of the total generated SW, according to MwCC. Consequently, most of the generated SWs (13%) are
either unofficially managed or not collected at all in these specific areas.

Photo 10: This picture taken in Nyakato, Mwanza is showing a large pile of SW which has remained uncollected along the road.
According to the government policy, LGAs are responsible for collecting all generated SW. This is also the
general goal/wish by MwCC. However, it has historically mainly set rather general targets, not specific or
measurable ones, neither for city as a whole or for the individual wards. Likewise no clear requirements
have been set for the service providers. This has obviously made it difficult to evaluate, analyse and improve
performance. In short, there have not been clear benchmarks for learning and improvements.90
The Local Government Authorities responsibility for procurement of services for SW is of importance, since
a large part of the services is assumed to be conducted by franchise contractors. An obvious question is
whether the SWM services were procured according to law and whether the service providers to be selected
had sufficient condition to fulfill their offers.
According to MwCC, the formal regulations are followed in the procedures when they procure the private
service providers.91 This is stated in the tender evaluation report, which is written every third year in connection
with the hiring procedures. The council advertises the tender for providing SWM services. The proposals are
evaluated by an evaluation team at MwCC.They check among other things, documents to confirm the eligibility,
financial capability, required equipment and identification of collection system in wards. The evaluation report
is then sent to a tender board for final approval. The lowest evaluated bidders are awarded the contract to
There are evidences saying that a lot of the procured service providers were not fit to fulfill their offer.
According to MwCC officials, it is for instance common that service providers lack technical and financial
capability. However, MwCC continues to procure these underperforming service providers as no other service
providers exist. Moreover, MwCC is trying to help them through training offered by ILO to enhance their
technical capability. This is according to MwCC a way of trying to make the best of difficult situation.
90
91

93
A lot of the private service providers are not able to keep a sustainable position on the market. It is common
that the service providers after a relatively short period of time in the market get into economic problems.
This is partly due to the fact that they are unable to collect fees as planned. It is also caused by insufficient
equipment and poor management.

One question is whether and for what reason the private contractors differ in money spent for the service
providers collection of SW.
One possibility is to examine whether they provide the services as agreed.Another option is to assess whether
they use their resources in the best way. A third possibility is to compare performance indicators. It is however
not so easy to apply these approaches. There are no clearly stated targets set, and there is a significant lack of
appropriate and reliable information.
meet the requirements set in the contracts. There are still differences among them to what extent they fail to
meet the requirements. (For more information, see other sections 9.5.4, 9.5.6 and 9.7 in this chapter.
Even if there are no targets set by MwCC, the general goal/wish is that all SW should be collected. Measured in
years it has got more and more difficult to balance the generated growth of SW. It must be repeated however
that, MwCC is taking steps in order to increase realize its goals.

MwCC does not measure and compare the service providers performance. Based on information from
MwCC and private contractors, the Audit team has computed figures to get a picture of the service providers
performance. In Table 9.5 below the estimated cost per collected ton of SW is presented. 92
Table 9.5: Estimated cost per collected ton in 2007 (Thousand Shillings)
the Ward collected ton1
93
Prima bins Planned 4.4

Maendeleo Mkudi Planned 9.8
ETIA Planned 8.0
Uzota Planned 15
Tufuma Planned 5.4
Wajane Nyamanoro Planned 4.7
Chasama Mixed 6.0
Maendeleo Mbugani Mixed 5.2
Boresha Mazingira Mixed 10.0
QED Mixed 20.2
Mkuwa Unplanned 10.4
Charity Organization Unplanned 8.0
Source: The MwCC and service providers (2008)
92
to dump reports.
93
providers and MwCC. To some extent estimations has been applied.
There seems to be significant differences in cost efficiency among the service providers, even among those
ones who are serving in the same ward (planned, unplanned and mixed areas). The cost per collected ton
differs for about 68% in the planned areas, 74% in mixed areas and about 24% in the unplanned areas.
depending on whether they are in planned, partly planned or unplanned areas. One explanation is that service
providers may use more or less modern and cost-effective equipment. The service providers vary in size, and
are also equipped with everything from small push carts and wheel barrows and one of them with big trucks.
There are also differences in management skills and in the motivation and efficiency among staff. Even among
service providers with the same kind of equipment there are significant differences in the amount of collected
SW per staff.
9.5.3 Performance per staff in various kinds of areas

As seen in Table 9.6 there are significant differences among the service providers in how they utilise their staff.
The table provides the audit teams estimation of the average amount per day of SW collected per vehicle
(for one franchisee contractor) and per staff for each of the service provider. In order to be able to compare
service providers with similar conditions the service providers are arranged according to increasing capacity
of collection per staff.
Table 9.6: SW collected per vehicle and Staff in various kinds of wards 2007
Service provider the Ward per vehicle94 per staff 95
Uzota Planned - 78
Wajane Nyamanoro Planned - 88
Maendeleo Mkudi Planned - 91
Prima bins Planned 3,650 129
ETIA Planned - 170
Tufuma Planned - 201
QED Mixed - 52
Boresha Mazingira Mixed - 90
Chasama Mixed - 146
Maendeleo Mbugani Mixed - 148
Mkuwa Unplanned - 58
Charity Organization Unplanned - 91
Source: MwCC and Service providers (2008)
The average SW collected per staff varies a lot.The difference in SW collected per staff varied from 52 to 201
tons in year 2007. In other words, Tufumas staff are close to four times more efficient than QEDs staff. There
is also a big difference in performance within the same ward. Maendeleo Mbuganis and Chasamas staff are
for instance much more efficient than QEDs in the mixed areas, and Tufumas staff are much more efficient
than Wajane Nyamanoros or Uzotas in the planned areas. The differences in performance might partly be
explained by external factors (more or less demanding wards in terms of size and character).
Finally, it is worthy noticing that MwCC has a mixed picture on production efficiency. The cost per collected
ton is high, as well as the input efficiency per staff.
94
The figures were obtained by dividing the amount of SW collected per year as obtained from MwCC and number of trucks respectively.
95
The figures were obtained by dividing the amount of SW collected per year as obtained from MwCC and number of staff respectively.

95
9.5.4 Profitability
As mentioned before, historically no targets have been set for how much SW each service provider should
fees. Therefore, it is up to the franchisee contractor to manage the production volumes as well as the cost
and the revenues. Should there be any profit; the service providers are expected to share it with MwCC. (In
other words, MwCC expects to gain money by outsourcing this service to private service providers meaning
that the idea is not only to reduce the cost or to improve the performance for the service but also to get an
income.)
This means that the service providers profitability is to a large extent dependent on how well they manage
to collect fees and keep the costs low. As will be seen later (section 9.8) they are less dependent on how
much and how well they produce, since there are no effective inspections and sanctions in place. The service
providers estimated revenues and costs year in 2007 were as shown Table 9.7.
Service provider Revenues196 Costs297 Financial Profitability
results (%)
Prima bins 60 48 12 20
Maendeleo Mkudi 15 16 -1 -7
ETIA 19 20 -1 5
Chasama 24 17 7 29
Maendeleo Mbugani 22 19 3 14
Uzota 19 23 -4 -17
Tufuma 21 16 5 30
Mkuwa 19 12 7 37
Wajane Nyamanoro 11 7 4 66
Boresha Mazingira 29 14 14 48
QED 24 26 -2 -8
Charity Organization 13 12 1 8
Source: MwCC (2008)
According to the figures above there are huge differences in profitability. Two service providers are profitable
(over 40%), and several service providers are making small profits that ranges between 5 37% of the revenue.
Only one quarter (1/4) of the service providers are not getting profit.
9.5.5 Financing of MwCCs own collection activities

MwCC is as mentioned responsible for transportation of SW from collection points to Buhongwa dumpsite
and is only financed through the government budget; since they have never got any money from the profitable
private contractors (One reason for this is that MwCC is not fully aware of their economic records and
results). As seen over time the budgets for MwCC have varied a lot, but in real terms and in relation to needs
the resources have actually been reduced over time, according to MwCCs data.
96
97

9.5.6 Internal Efficiency among service providers

In Table 9.8 a relatively high input efficiency and low cost per collected ton are given a good score. Low input
efficiency and high cost per delivered ton SW are given a low score.All other results are given a medium score.
In order to consider the external conditions, mixed and unplanned wards are presented separately.These two
dimensions capture vital aspects of the internal efficiency among the private service providers. In addition, the
profitability or the ability to collect fees is presented. All information reflects the situation of year 2007.
Table 9.8: Internal efficiency among private service providers in mixed wards in 2007
Franchisee Relative Relative cost Ability to make
Contractors in input efficiency profit/ collect fees
mixed areas efficiency
Chasama Good Good Good
Maendeleo Mbugani Good Good Medium
Boresha Mazingira Medium Medium High
QED Low Extreme poor Poor
Chasama and Maendeleo Mbugani are most efficient in terms of production, but they differ a lot in profitability
or in ability to collect fees, due to among other things varying external conditions (peoples willingness to pay).
This means that even contractors with an efficient production run the risk of going bankrupt.
As seen in Table 9.9, the links between production efficiency and profitability are also weak in the unplanned
areas. Mkuwa seems to be less efficient in terms of production, but it is very efficient in terms of ability to
collect fees.
Table 9.9: Internal efficiency among contractors in unplanned wards 2007

unplanned efficiency efficiency collect fees
areas
Mkuwa Low Medium Good
Charity Medium Medium Medium
Organization
Table 9.10 shows that the links between production efficiency and profitability are weak in the planned areas.
There are even several cases of rather weak links between input efficiency and cost efficiency. In short, the
links between production efficiency and profitability is very weak.
Table 9.10: Internal efficiency among contractors in planned wards in 2007

planned areas efficiency efficiency collect fees
Prima bins Good Good Good
Maendeleo Medium Medium Poor
Mkudi
ETIA High Medium Medium
Uzota Medium Extreme poor Poor
Tufuma High Good Good
Wajane Medium Good High
Nyamanoro

97
regulated and guided in Local Government Act and Waste Management Guidelines issued by MoHSW and
also in the contracts between the local government authorities and the service providers. The MwCC has the
overall responsibility for safeguarding SWM services. This responsibility covers functions such as monitoring
and evaluation of the service providers performance, inspecting and quality assurance of the SWM services.
These functions cover both the private service providers and MwCC as service provider. For MwCC it is
thus important to execute the controlling functions concerning monitoring, evaluating and quality assurance
with professional integrity, even in relation to its own function as service provider. Organizational separation
of operating and monitoring activities is important to safe guard reliability. This is however not the case at
MwCC. The staff at the SWM section carry out their duties as both operators and inspectors. According to
MwCC this is mainly a due to limited resources.
This section concerns MwCCs control of the SWM and the result of the collection of SW. The first part
deals with monitoring and evaluation, the second part deals with inspections and the third part with quality
assurance.

service frequency is subject to continuous and documented monitoring.98 According to MwCC the reason
for this less developed monitoring is for instance lack of capacity (IT-systems, staffs competence etc.). The
frequency of the monitoring activities is shown in Table 9.11.

Customers served V
Service frequency V
landfill Records
and performance
Contractors staff V
Source: MWCC based on studies of documents and assessments by Audit Team in collaboration with
MwCC officials (2008).
and regular reports are sent from the dump sites. Otherwise there are no systematic forms of monitoring, not
even on clients satisfaction or service providers profitability.
98

MwCC is expected by the Government to evaluate the service providers performance in order to examine
whether the contractual requirements are met.With one exception such evaluations have not been conducted
by MwCC. Instead MwCC has chosen a more limited approach of getting feedback from the daily inspections.
This approach does not allow for much of overseeing or transparency, since nothing of what has been observed,
discussed and done is documented.

MwCC uses ward health officers to conduct inspections of the service providers.The inspection should follow
to provide MwCC with daily reports on whether SW has been collected and if actions are taken that will solve
This is ideal, but according to interviews with MwCC officials these procedures are far from often followed.
MwCC has no documentation of these inspections. All inspections rely on verbal reporting.The reason for this
is, according to MwCC officials, that a formal system is likely to require a lot of human resource and time. No

MwCC is responsible for the quantity and quality assurance of SWM services rendered within the city
councils area. This assurance system concerns the private service providers as well as MwCCs own service
providers.
deals with whether the service providers and MwCCs own staff are abiding to the adequate ways of SW
According to the interviews with SWM officials, MwCC has not issued or required service providers to
prepare and observe the above elements of quantity and quality assurance. Also, during the site visits, the audit
team observed a number of weaknesses in the way SW were handled. Some of the factors which are contrary
to the best quality and quantity are:
Service providers staff that do not use protective gears which put themselves in harm way;
Storage of SW is done in inappropriate containers or places without required standard.
The reasons given by MwCC is that service providers have no set strategies for ensuring that quality and
quantity assurance are in place. According to MwCC most of the service providers are not well equipped
with modern equipment, and their staff are not always aware of the hygienic issues. Also the service providers
supervision may be a little bit slack.The result is that MwCC has failed to ensure that service providers follow
the best practices of SWM.
MwCC has set up and stated a system of sanctions for enforcement of the contracts. The system is regulated
and stated in city by-laws and in the contracts. This section deals with the use of sanctions in cases where the
service providers violate the contracts.

99
The sanction system covers various activities. The initial steps are verbal and written warnings. Other steps
are termination of the contract and request for damage and possibility of an appeal to court to get rid of a
violating service provider. According to MwCC, violations of law and contracts are common.The following are
examples of the many different reasons put forward:

Incorrect or inadequate record-keeping by the service providers.
Photo 11: Presence of SW on the ground and in muddy area. This is one of the collection points which is very close to residential area and is not
maintained properly, as depicted in this photo taken at Mwanza Municipality.

The degree in which the sanctions are applied is however limited as indicated in Table 9.12.
Table 9.12: Applied sanctions according to MwCC

month year seldom
Verbal warnings V
Written warnings V
Source: MwCC studies of documents and assessments by Audit team in collaboration with MwCC
officials
The table above shows that MwCC frequently has applied verbal criticism against many service providers
who failed to meet contractual obligations. At the same time, MwCC has not applied other sanctions like
request for the damage (fines), sent those defaulters to court and/or termination of contracts. This should be
viewed in the context of what is earlier mentioned regarding the franchisee contractors ability to meet set
requirements.
The SWM is assumed to be financed by SW fees and MwCC has set up SW fees in the city by-laws and in
accordance with the level of income and kind of business conducted. The system, including the fee levels, has
been the same since 2002. The system is handled by the service providers. This section deals with whether
these fees are correctly set up and collected.
The fee levels differ depending on category of service receiver and level of income. For residential areas there
are two fee levels. Residents with low income pay TShs. 400/= per month while citizens with middle and high
incomes pay TShs. 1,000/= per month.There are also fees for small businesses (street markets), that vary from
2,000/= to 5,000/= TShs. (The most common fee is 3,000/= TShs.) The amount of fee also differs depending on
kind of business conducted, as hotels, shops bus stand etc.
According to the contracts, the private service providers shall

issue a receipt for every fee collected which has to be approved by MwCC and keep records on the
make available to MwCC for inspection of all records, accounts and invoices related to the SWM.99
99
MwCC contracts for SWM appendix B of the contract between MwCC and service providers

101
Table 9.13: The private service providers collection of SW fees in 2006/07

(From households, businesses and city council in Million TShs)100
Potential fee to Collected Percentage
Service provider be collected amount (%)
Prima bins 591 60 10
Maendeleo Mkudi 71 15 22
ETIA 33 19 59
Chasama 26 24 93
Maendeleo Mbugani 491 22 4
Uzota 24 19 79
Tufuma 80 21 27
Mkuwa 42 19 46
Wajane Nyamanoro 17 11 63
Boresha Mazingira 49 14 30
QED 46 24 53
Charity Organization 20 13 67
Source: MwCC and computations done by the audit team based on the information gathered (2008)
As seen above there are significant differences among the service providers regarding the collection of SW
fees. Four service providers collected more than two thirds (2/3)of the potential SW fees, and five of them
collected less than one third (1/3). The figures reflect two things: the ability to collect SW in relation to what
is needed, and the ability to collect fees among clients being served.
According to MwCC officials and private service providers, there are different reasons for not collecting all
SW fees as targeted. Some reasons are related to the peoples willingness or unwillingness to pay and the
lack of consequences if they do not pay. Other reasons are more related to weaknesses in the system, like
inadequate database concerning those who are supposed to pay and lack of control of payment.
9.9 CONCLUSIONS ON SOLID WASTE MANAGEMENT AT MWCC

MwCC has great difficulties in managing an increasing amount of SW. The growing accumulation of SW causes
the economy.
Some findings that need to be addressed are as follows:

The operations of the services for SWM are allocated between MwCC and private companies. But the roles
are not clearly stated.
MwCC procures service providers lack technical and economical capability to perform the required
service.
control.
100

Efficient service providers who fail with fee collection risk bankruptcy, while inefficient service providers
who manage with fee collection may survive.
b) Control and follow up of the solid waste services by MwCC

As the local authority in charge (MwCC) has the overall responsibility for the SWM in its area. However,
MwCCs system for control of SWM has weaknesses. So far the experiences are neither used for learning nor
for improvements of the services. During this audit MwCC has however showed aims of improvements in
dealing with the severe problems:
MwCC do not keep records of the service providers and their performance.
The monitoring and evaluation functions are less reliable and effective; no single evaluation has been
conducted of SWM.
The sanction system is not used for enforcement of the contracts despite the fact that many service
providers fail to meet the contract requirements.

Most of the service providers lack sufficient capability and under perform.

A vast majority of the procured service providers are not getting profit; this may threaten the future
ability to procure SW services.
In conclusion, basically all service providers under perform and fail to deliver as expected,
even if there are significant differences in their performance. MwCCs system for monitoring
and inspection does not work properly and is ineffective. The financing system does not
promote efficiency, and all service providers have problems with the collection of fees.
The sanctions are properly regulated, but sanctions have not been applied, in spite of
frequent contract violations. MwCC has recently decided to improve its effort to address
the mentioned shortcomings.

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CHAPTER 10
SUM UP FOR ALL COUNCILS
10.1 SERVICE PROVISION
All LGAs are required to set targets of SW to be collected in their councils. Similarly, each of these councils is
supposed to maintain on their records the statistics of the amount of SW generated and SW colleted.
All the councils have some statistics of SW generated in their respective councils.
All LGAs with exception of one LGA, have not set targets nor do goal fulfillment for SW collection and it
makes it difficult for them to measure their success or failure of SWM in their councils. However, KMC has set
target for SW collection and it is working towards fulfilling that target according to their capacities.
Table 10.1 below scrutinizes the variation of the efficiency and effectiveness of the LGAs in fulfilling their
target in SW collection
Table 10.1: Performance of service providers on the collection of SW

Parameter AMC MwCC MCC KMC TMC IMC
SW Generated 137 110 59 740 - 865 176 286
(tonnes/year)
SW collection target - - - 50 - -
(%)
Goal fulfilment (%) - - - - - -
Actual collection of 28 88 70 45 43 66
SW generated (%)
Source: Local Government Authorities (2008)
From the table above it can be seen that, AMC is the least performer with an absolute figure of 30% in terms
of the amount of SW collected out of the total SW generated in the municipality.
Similarly, MwCC is the best performer among 6 councils with an absolute value of 88%.
But you can also see that, one council does not have target for SW collection and indeed, it is operating
without any set target.
10.2 SW FEE
Each LGA is supposed to collect SW fee from all people who receive solid waste management services
provided by the LGAs or private service providers on behalf of LGAs.
To be able to collect SW fees in a systematic manner, LGAs have set up rates for the collection of these fees.
Each council has its own by-laws which has stated the amount or rate of SW fee to be paid by households,
institutions, industries and businesses.

Table 10.2 presents the rate of SW fees from different councils:
Table 10.2: Rates of SW fees from different councils

LGA Households/month (TShs.) Business/institution/per
month (TShs.)
AMC 500 -1000 100 - 85,000
MwCC 800 1,000 - 30,000
MCC 500 500 - 30,000
KMC 500 -2,000 500 - 200,000
TMC 500 -1,000 200 - 60,000
IMC 700 -2,000 2,500 -100,000
Source Local Government Authorities by-laws (2008)
The rates of SW fees differ from one council to another. The SW fee set up is divided into two parts,
households SW fees and business, industrial or institution SW fees. In all councils the rate of SW fee in the
households, business places and other institutions is charged per month.
The SW fee collection in the markets is charged per trip considering volume of solid waste collected to dump
site.
10.3 SW FEES COLLECTION
The system of SW fees collection is different from council to council. The five councils have outsourced the
activities of SW collection together with the SW fees collection to the franchisee contractor.
AMC, MwCC, KMC, IMC and TMC have outsourced SW fees collection partly and in some parts they collect
themselves. AMC has fulfilled its SW fees collection goal by 72% which is yet very small to cover the actual
cost of SWM.
The SWM activities are supposed to be financed entirely by the SW fee. Also, according to LGAs and service
providers, if all amount of SW fee collected properly would cover the all costs of SW activities. Table 10.3
highlights the observed situation in the visited places.
Table 10.3: Performance of LGAs on the collection of SW fees

Fees supposed to 350 1,490 98 1312 916 2,582
be collected (Million
TShs.)
Fees collection - - 14% - - -
target (%)
Fees collected 128 276 8 681 100 987
(TShs.)
Goal fulfilment (%) - - 47 - - -
Target costs (Million - - - - -
TShs.)
Actual costs (Million 115 230 104 878 603 1,082
TShs.)
Source: Local Government Authorities - Financial Records and reports (2008)

105
According to the table above, all LGAs have failed to meet their targets for those who have set targets. Also,
some of the councils have neither set target nor collected any fees.
Ilala, Kinondoni and Temeke councils neither set a collection target nor measure their goal fulfilment on SW
fees collection.
MCC fees collection is very minimal, its goal fulfilment is below 50% which is not satisfactory and they set a
very low target which is very easy to achieve.
10.4 MONITORING AND SUPERVISION OF SW ACTIVITIES
One main task of the LGAs is to ensure that they carry out adequate monitoring and supervision of SWM
activities in their councils.
Under the franchisee system of collection of SW, the responsibility of SW collection and disposal is transferred
from the LGAs to the franchisee contractors. In 5 councils out of 6 audited, the franchisee contractors are
responsible to some extent, in collecting SW fees and SW. under this set up, the LGAs should be monitoring
the performance of the franchisee contractors.
On 5 LGAs which have outsourced part of the SWM activities there is a need for them to monitor and
supervise the work and performance of franchisee contractors, and similarly for one LGA which has not
outsourced, there is a need to ensure that the SWM section is monitored and supervised to ensure that the
work performed meets the set objective or demand.
To ensure adequate monitoring and supervision, the following need to be in place
i.) Performance indicators

ii.) Documentation of performance (information system)
iii.) Quantity and quality assurance system
iv.) Separation of monitoring and service provision
v.) Targets (desired level of performance franchisee contractors)
vi.) Defined reporting mechanisms (format / frequency etc)
vii.) The performance of franchisee contractors is measured on following the principles of Quality
and Timeliness

Table 10.4 shows the performance of LGAs pertaining to monitoring and supervision of SW activities.
Table 10 4: Performance of LGAs on the monitoring and supervision of SW activities

Performance Yes No N/A Yes Yes Yes
indicators
Documentation of No No N/A Partial No Partial
performance
(information system)
Quantity and quality Partial No N/A No No No
assurance system
Separation of No No N/A No No No
monitoring and service
provision
Targets (desired level Partial No N/A Partial No Partial
of performance
franchisee
contractors)
Defined reporting Partial No N/A Yes No Partial
mechanisms (format /
frequency etc)
The performance of No No N/A No No No
franchisee contractors
is measured on
following the principles
of Quality and
Timeliness
Four LGAs have established indicators aimed to measure franchisee contractors performance, but they have
not been using such indicators to measure franchisee contractors performance since its establishment. And
the remaining two LGAs have neither established indicators to measure the performance of the contractors
as a result, the councils were not able to institute measures to correct the systems leading to its failure to
attain their objective of a clean and wastes-free environment.
All LGAs do not prepare monitoring reports and do not document the findings.
The quality assurance system is established by AMC but partially practiced in order to ensure a quality of the
SWM service. This system comprises the issues of adequacy of service provided and storage, collection and
transportation of the SW are done in such a way that does not harm the health of the citizens. However, there
is no documentation confirming that this is done by AMC to substantiate the existence of quality assurance
system within AMC. In the remained 5 councils there is no established quality assurance system. It has been
observed in all LGAs that there is no separation of monitoring and service provision.
Evaluation of these LGAs however showed that the same were not adequate to properly assess the performance
of the franchisee contractors.There are number of activities contracted out which were not monitored.All these
five LGAs did not know what is going on with regard to refuse fees collected by franchisee contractors.

107
10.5 PERFORMANCE OF LOCAL GOVERNMENT AUTHORITIES
There are different ways of assessing the performance of local government authorities. The performances of
6 audited LGAs have been evaluated based on the following criteria:
i.) Solid waste collected per truck (tonnes/truck/year)
ii.) Solid waste collected per staff (tonnes/staff/year)
The SW collected according to LGAs information are indicated in Table 10.5.
TABLE 10.5: Performance of LGAs in terms of SW collected per truck and SW collected
per staff
Solid waste collected 3,909 - 9,855 2,774 1,825 1460
per truck
(tonnes/truck/year)
Solid waste collected 193 - 329 548 183 241
per staff
(tonnes/staff/year)
There is small variation among the Local governments authorities regarding efficiency in the provision of
SWM service. Most of them have the same kind of trucks.101 And they have similar administration set-up both
under the department of health, except in KMC where SWM is a section by itself. The Table 10.6 shows the
efficiency in the performance of the equipment in used in SW collection versus the staff in different LGAs
Some LGAs has large number of trucks apart from the gift by Danida they bought other trucks, in other LGAs
the dumping site is very far from the vicinity of the city hence, results in reducing the number of trips which
the truck with solid waste can make, this also reduced the efficiency of trucks in collecting more solid waste.
On the other hand the number of staff employed in each council also differ hence brought implication in
difference among LGAs in SWM collection.
Most of the LGAs which have contracted out SWM involved both the small community based organizations
(CBOs) and the big companies ,their performance in SWM collection differs, because big contractors are well
equipped with a number of trucks while others CBOs are using small tools like push carts, wheel barrow102
etc. Table 10.6 below show variation in average on the performance of various franchisee contractors in
LGAs
10.6 PERFORMANCE OF FRANCHISEE CONTRACTORS
Five (5) out of 6 LGAs which have been audited, contracted out part of the SWM activities to franchisee
contractors.
The performance of these franchisee contractors in terms of SW collected per vehicle and SW collected per
staff vary.
Franchisee contractors in some LGAs found to have higher performance in terms of SW collected per vehicle
while others do well in terms of SW collected per staff. As it shown on the Table 10.6:
101
Most of the service providers visited in all 6 LGAs are having 5 to 10 tons trucks
102
CBOs are the community bases organizations which are involved in SWM

TABLE 10.6: Performance of Franchisee Contractors in terms of average SW collected

per truck and SW collected per staff
Solid waste collected 1,315 3,650 N/A 2,961 1,169 1,360
per truck
(tonnes/truck/year)
Solid waste collected 95 112 N/A 415 128 146
per staff
(tonnes/staff/year)
According to the table above, franchisee contractors from Mwanza city council are performing well in terms
of SW collected per vehicle while Temeke municipal council franchisee contractors are the least performers.
Similarly, franchisee contractors from Kinondoni municipal council are performing well in terms of SW collected
per staff while Arusha municipal council franchisee contractors are the least performers.
The Table 10.7 below shows the comparison between service providers who are performing better and the
worst in each LGA.
There is a big difference even among the best performers (service providers) in terms of SW collected per
vehicle and per staff which ranges between 1351 5475 tonnes/truck/year and 146 782 tonnes/staff/year
respectively.
Service providers who are operating at Kinondoni Municipal Council found to be more efficient than others.
TABLE 10.7: Performance of Franchisee Contractors in terms of SW collected per

truck and SW collected per staff (Worst and Best Performers)
Solid waste collected 1,315 3,650 N/A 2,961 1,169 1,360
per truck
(tonnes/truck/year)
Solid waste collected 95 112 N/A 415 128 146
per staff
(tonnes/staff/year)
10.7 Contract Management/Administration
Five (5) out of 6 LGAs have outsourced part of the SWM services to franchisee contractors. In the procurement
of these franchisee contractors, LGAs were supposed to follow all the procurement procedures laid down by
the Public Procurement Act of 2004, even though all LGAs claimed to have followed the laid down procedures
but they have procured franchisee contractors who have failed to deliver as expected.
Also, there is no system which these councils are using to monitor the deviations from contracts entered
between councils and franchisee contractors. User departments (SWM department/section) in some LGAs
do not have even a copy of contract so it becomes very difficult for the LGAs to monitor the deviations and
apply sanctions as stated in the contracts.

109
This condition provide a loop hole for franchisee contractors to perform the work below standard and
some to abandon their contracted wards as they wish and consequently resulted into increment of SW
remaining uncollected in different areas within the wards. Nonetheless, the performance of LGAs on Contract
Management is presented in Table 10.8.
TABLE 10.8: Performance of LGAs on Contract Management

Procurement of Yes Yes N/A Yes Yes Yes
franchisee contractors
Regulation of Yes Yes N/A Yes Yes Yes
sanctions as stated in
the contract
Monitoring of No No N/A No No No
deviations from
contract
Implementations of No No N/A No No No
sanctions
10.8 Measures to improve the SWM services
Most of the LGAs do not conduct evaluation of performance of the service providers. KMC and TMC have
once conducted evaluation of performance of the service providers to know the status of the service providers
but there is no implementation of those recommendations.
All LGAs except KMC have not set any target of the amount of SW to be collected in each ward. And this is
because they have not done any study to establish this information.
All LGAs included performance measures in SWM franchisee contracts but do not conduct monitoring of
those measures.
Table 10.9 presents the measures which could be taken in order to improve the situation.
TABLE 10.9: Measures to improve the SWM services

Evaluation of No No N/A Yes Yes No
performance of
service providers
Clearly stated target No No N/A Yes No No
SWM franchisee No No N/A Yes Yes Yes
contracts include
performance
measures and targets

CHAPTER 11
CENTRAL GOVERNMENT
11.1 NO NATIONAL STANDARDS SET FOR OPERATIONS OF SW ACTIVITIES
A ccording to interviews with the Tanzania Bureau of Standards (TBS) officer, there are no national standards
set for Solid Waste Management activities. Such standards are expected to be developed to guide the
actual operations of solid waste activities all over the country.
The Environmental Management Act, 2004 (Part X Environmental Quality Standards, section 140 and 141
of EMA) stipulates that, TBS is responsible for development of these standards in collaboration with other
stakeholders. But that has not yet been done. According to the same interview with TBS official, TBS is in the
initial stage of developing SWM standards. In the future programme of work of TBS, there is a plan to develop
solid waste standards.
Audit has learnt through the interview with the Vice Presidents Office Directorate of Environment officials
that, the Department has not yet developed or formulated solid waste management strategy. Section 13 of
the Environmental Management Act, empowers the minister responsible for Environment to develop National
Waste Management strategy and action plan, something which is yet to be done.
There are no standards, guidelines or specifications set so far according to interviews with PMO-RALG and
MoHSW officials. Only piecemeal excerpts of standards adopted from different works and experiences from
outside exists. It is mixed grill of specifications and guidelines applied or practiced by experts in various
LGAs.
11.2 CENTRAL GOVERNMENT DOES NOT HAVE A GOOD GENERAL OVERVIEW

REGARDING SWM IN TANZANIA
The Vice Presidents Office Directorate of Environment has got no official statistical information about
amount of Solid waste collected in each council within the country, according to the interviews with the
DoE officials. These informations are normally supposed to be compiled and put in a good order by the
Environmental officers within the districts and regions all over the country.
Additionally according to the interview with PMO-RALG, there is no feedback mechanism in place to monitor
the work of councils and franchisee contractors hired by concerned councils.There is no systematic reporting
of the SWM data which are supposed to be furnished to PMO-RALG by these councils through Annual
Performance report. Also the data submitted to them are crude and not reliable; there is no proper way of
measuring tonnage or volume of SW collected.
The generation factors established in 1999 by JICA are no longer realistic since most of the time the factors
are valid for only 5 years. However, according to the interview with PMO-RALG officials they are not aware of
which factor(s) is(are) realistic at the moment and to be used to estimate SW generated in different areas.
But also according to the same officials, PMO-RALG has not yet instituted a proper way of reporting the
performance of SWM activities and helps these LGAs to have an appropriate way of tracking down SW data.

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11.3 THE MONITORING SYSTEM AT CENTRAL GOVERNMENT LEVEL
The monitoring system of SWM at central government level is not adequate. It is supposed to be done by
MoHSW, NEMC, PMO-RALG and VPO. According to interviews with VPO officials, it is done once per year
but it is taken in the context of environmental issues and not as a priority at national level. It is difficult to do
monitoring because there is no management strategy of SW at National level.
According to interviews with PMO-RALG officials, at Central Government level, monitoring of SWM issues
is not co-ordinated by Sector MDAs and hence, data and information are inconsistent.Vertical and horizontal
links of central government agencies that deal with SWM activities at national level are not working in good
co-ordination. For example of these central government agencies are Ministry of Health and Social Welfare,
PMO RALG,VPO and NEMC are all working in waste related activities. Low budget priority that is, emphasis
is given more to curative initiatives rather than preventive. Nonetheless, PMO RALG is underway to redress
this anomaly.
Performance measured selectively on basis issues e.g. project studies, out breaks of diseases like cholera and
related ones According to the same interview there is no critical study on the performance measurements
which can be used to assess the adequacy of the SWM activities as provided by the LGAs.
11.4 CENTRAL AUTHORITIES AND APPROPRIATE ACTIONS TO ASSIST THE LOCAL

COUNCILS
Central authorities have not taken adequate actions to assist the Local Councils. According to the interviews
with PMO-RALG officials, PMO-RALG has not assisted much these LGAs in their duty to manage SW in their
areas particularly when they want to deal with problems regarding equipment, disposal sites, enforcement of
by-laws and management of contracts between individual councils and the franchisee contractors.
It was learnt that, Central Government agencies have just started to build up comprehensive steps on the need
for realistic SWM undertakings. Vice Presidents Office; Ministries of Health and Social Welfare; Finance and
Economic Affairs; Land, Housing and Human Settlements Development and; Natural Resources and Tourism
altogether with other related Institutions are advocating for improved SWM in the country. For instance, PMO
RALG is working on tax waiver for SWM facilities. VPO DoE is preparing a National Waste Management
Strategy and Action plan on Waste Management in general.

CHAPTER 12
CONCLUSIONS
12.1 GENERAL CONCLUSIONS
Our audit findings presented in previous chapters have answered all the audit questions which we had and in
that sense they gave us reasons to draw the following conclusions:
a) There is increasing problem of SWM in Tanzania

The amounts of SW not taken away from LGAs are increasing very rapidly. In all six LGAs audited, the amount
of solid waste not collected by LGAs is more that 50% of the total SW generated in those six (6) LGAs.
This is an indication of an increasing problem, since with increase in population the problem of SW equally
increases while SW services are dwindling. The uncollected wastes pose a potential health hazard to the
people. In many occasions they handle the waste inappropriately.
Some of the health effects which are accompanied by uncollected SW or delays in collection of SW include
pollution of groundwater through leachate, odour smell, poor visibility when people are burning SW which
lead to eye soar, breeding habitats of rats and other harmful rodents and termites.
Central government through PMO-RALG has not taken adequate actions to address this problem of ever
increasing SW and those not collected. Also there is inadequate guidance or monitoring action done by PMO-
RALG to deal with this increasing problem. Availability of resources might be the major set-back.
b) There is poor and varying performance among service providers

Service providers in different councils are
Very weak (capability of franchisee contractors is very small in terms of collection of SW fees
and SW)
Not profitable
Not efficient
Very fragile (SWM system is not working properly at all, franchisee contractors are left to
work alone as much as they can, and it seems that LGAs are worried to take action against
underperforming contractors simply because these contractors are weak and there are no others
available for the job)
c) The present system of SWM is irrational

1. There is no division between service provision and monitoring within the municipal/city council
2. Service providers (franchisee contractors) are not acting as service providers and councils are not
really acting as the procurer of the SWM services
Service providers are collecting both SW fees
It seems that Councils are not choosing service providers who provide the best offer
There is no critical evaluation of the SW fees to review its system and to see why Councils are not
collecting fees properly.
There are no critical studies carried out to establish the actual cost of managing SW per ton and make
it a basis for contracting with franchisee contractors.
In the present contracts between Councils and franchisee contractors, there is no clear and open
target set between them.

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Councils lack proper inventory per ward or street to capture the most important information
i.e. number of households, businesses, industries served, those who paid or not paid etc.
There is no franchisee contractor who revealed his/financial gains and it is very difficult for
the Councils to know exactly whether these franchisees are really making profit or not.Also,Councils
are supposed to monitor their books of account but they were not doing so.
It is almost impossible to have a potential monitoring system unless Councils (LGAs) get all
necessary SW fees and put the fees under their control and then institute standardized
monitoring criteria.
d) Inadequate government interventions

PMO-RALG, MoHSW and VPO are leading central government ministries regarding SWM in Tanzania. They
have inadequately addressed the problem of SW. This is due to the fact that:
This is not an isolated problem; as observed all over the country. This means that, SW is not an issue
concerning six LGAs audited alone, it is an issue which is related to inadequate system for management
of SW in the whole country. The central government has a responsibility on SW management but has
not intervened adequately and left this work to the LGAs
themselves, knowing the fact that the LGAs have no capacity to handle the very delicate issue and
neither there is no proper guidance provided to them.
The proper guidance and setting of standards are issues which can only be dealt with by the Central
Government
There are serious consequences of inadequate handling of SW, that is, economical, environmental,
pollution diseases and others.
Presence of inadequate system for collecting SW fees leads to inefficiencies of the Councils.
e) A peculiar and ill functioning financial system

Some of the LGAs have privatised the SWM services to franchisee contractors for them to collect SW
and SW fees in the ward(s) they are servicing.
SW collectors are getting their working wages from the fees they collect instead of being paid by LGA.
Part of the collected SW fees (5%) is remitted to the Council for facilitating the monitoring purposes
of SWM activities.
Most of the franchisee contractors do not have enough capability to collect SW fees and do not have
teeth to bite the residents enjoying the SW collection services and to force them to pay.
Most of the residents are not paying their SW collection fees.
There is a serious problem of data management at LGA level.

Privatization of SW activities was expected to lead to more efficient services then the LGAs
would manage the whole operation themselves but it did not.
More than half of the generated solid waste is left uncollected.

Most of the SW contractors are not able to meet their contract obligations due to financial difficulties
and several of them have been forced to abandon their work.
f ) Inefficient procurement practices

The criteria for bidding are supposed to be known before hand by the franchisee contractors who are
going to do the work.
In some of the LGAs have decided to involve Ward Development Committees (WDC) during the
preliminary evaluation of tenders, before they are subjected to technical evaluation.
During the audit it has been noted that, most of the franchisee contractors who are procured abandon
their work after a short time or for those who keep on working are underperforming.
Franchisee contractors who have been procured have not been able to make profit. Most of them,
small or newly established companies have limited financial resources, or they consist of small groups
of people with no or little experience in the field and with poor capacity for the work. This might be
an indication of poor procurement and poor supply of service providers.
During the audit it has been noted that the criteria used for evaluation of potential contractors are not
suitable for SWM services.The LGAs have not sufficiently examined whether the potential contractors
have appropriate experience and capacity to fulfil their tasks or not.
Private operators in SWM lack required expertise in management and business administration in
the LGAs for them to fulfil their professional obligations as competent procurer (contracting partner)
and monitoring of works.
g) Targets for collection of solid waste are poorly developed

Most LGAs have not set targets for the solid waste to be collected in each ward. The only target set
is for the entire council, but at the same time the service providers (Council and franchisee contractors)
are providing SWM services in individual wards.
The service providers are operating without having a strong benchmark which can be used to measure
their performance and so, becomes very difficult to assess in quantitative terms whether the service
provider is doing well based on the target set.
The solid waste generation rate (factor) used for estimation of produced waste ranges between 0.5
1.2kg per person and day.The Audit team has not been able to assess whether this is a realistic factor.
The factor is however built on studies several years ago and has not been updated since then.
h) Inspection and monitoring activities are poorly planned, documented and evaluated
Some of councils conduct daily inspections or once or twice a week or monthly inspections depending
on the situations on those areas.
Most of the councils are conducting sporadic inspections but there is none with inspection plans with
set priorities and clear objectives. Some of the councils say that they conduct daily inspection, but
there is no information to support that.
The inspectors are supposed to prepare inspection reports and take necessary corrective measures
with all the deficiencies or weaknesses noted during the inspection. But there are no evidence showing
that such actions have been taken.

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Other LGAs are involving Ward Health Officers during the inspection of the work performed by
franchisee contractors. These officials normally conduct inspection without having clearly stated items
to inspect and report verbally to council SWM officials. Neither in these cases were there any kinds of
reports provided.
Monitoring of SWM activities is regulated by law and also stated in the contracts between the LGAs
and the contractors. Some LGAs have also set monitoring criteria. The Audit team has however not
been able to find documentation from any LGA showing that monitoring activities have taken place.
The Audit team has not been able to come across any evaluation of the efficiency and effectiveness of
the inspection and monitoring systems.
i) Service provision and monitoring is not separated

The organizational structure of LGAs in Tanzania has placed a SWM section under the Department of
Health, with exception of few types of councils like Ilala municipal which has a full department responsible
for waste management.
SWM sections in those councils are responsible for service provision and at the same time monitoring
the SWM activities discharged by the same officials within the section or franchisee contractors.
There is a weak link between private operators, contractors and municipal council in SWM.
k) Sanctions applications
Sanctions are seldom applied although they are set into contracts entered between LGA and the
franchisee contractors (for those councils which have outsourced part of SWM activities to private
service providers) and in the municipal or city by-laws
However, the enforcement of sanctions has been facing a number of problems. The LGAs have only
taken lean actions against defaulters. It was learnt that, the cost of running a case for one defaulter is
very high compared to what he would pay at the end of that case.
Most of the franchisee contractors decided to provide services to those who pay and leave aside those
who do not pay because it is very costly to impose a fine on them since the legal channel is long and
very costly.
Most of the defaulters are supposed to pay TShs. 1000/= per month as a SW fee and a fine of TShs.
20,000/= if convicted, but at the same time, a franchisee contractor has to incur more than that to
finance that case which can take up to six months before it is concluded.
LGAs have a lot of defaulters who have failed to pay SW fees on time.
The franchisee contractors are not performing their duties as expected but measures have not been
taken despite the poor performance.
l) National standards and policies

National standards and policies on SWM have not been developed. The SWM activities in Tanzania have a
number of regulators who are responsible for providing standards to be followed, policies to be used while
working on this field and also governing regulations as explained below:-
Tanzania Bureau of Standards (TBS) is responsible for setting standards for SWM, which need to be
adhered to by the LGAs when they discharge their duties.

Currently, LGAs are operating without having these SWM standards. TBS has not yet developed
them, in spite of the fact that the Environmental Management Act stipulates that these standards need
to be developed.
The lack of standards implies that, it is to a large extent up to each LGA to decide how to operate
.
Department of Environment (DoE VPO) and National Environmental Management Council (NEMC)
are responsible for ensuring that all environmental laws, regulations and policies are followed. They
have not yet done much on the area of SWM.
Consequently, the operational system for SW is working without having clear policies and
regulations.
m) Central government and monitoring and evaluation of SW activities

Central government is not adequately engaged in monitoring and evaluation of SW activities.
LGAs are supposed to report to PMO-RALG quarterly and annually on the achievement made during
the management of SW in their Councils. This reporting need to be done through progress reports
which has all the relevant statistical data and other qualitative information which can provide a good
picture of the situation in those LGAs. However, little has been happening on this aspect.
PMO-RALG officials responsible for environmental issues are supposed to visit LGAs to authenticate
the validity of the information submitted or carry out regular inspections and monitoring of their
SWM activities. During the audit it was learnt that, PMO-RALG does not have reports from LGAs
giving a feedback on what have been done on the area of SWM.
PMO-RALG is not aware at the moment on how much SW are daily generated and collected in each
Council in Tanzania.Also, PMO RALG does not know how these Councils are measuring or estimating
the amount of SW generated and collected since there is no uniform way of estimating and recording
SWM data.
PMO-RALG officials have not done monitoring focusing on the SWM activities in Tanzania and take
necessary action to improve some of the areas which need the attention of the central government.

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CHAPTER 13
RECOMMENDATIONS
13.1 CENTRAL GOVERNMENT

The problem of Solid Waste mismanagement in many local government authorities we have visited in Tanzania
during the audit is evident.
This is a problem where the Central Government has to intervene in order to solve it adequately. The audit
team therefore recommends that, the Central Government organs should do the following:-
a) Development of adequate SW fees

To PMO-RALG
The Prime Ministers Office - Regional Administration and Local Governments should guide the LGAs to
develop systems for SWM, where the collection of realistic SW fees is a key issue. It should direct these LGAs
on the best practices on how to collect SW fees, keep the data for those who are supposed to pay. The SW
fees developed should meet the following criteria:
Reasonable amount to pay
Based on reasonable SWM expenditures
Estimation of SW to be collected
b) Separation of role of collecting SW fees and service delivery performed by SW

contractors
To PMO-RALG
The Prime Ministers Office - Regional Administration and Local Governments should ensure that there is
a distinct separation of the role of collecting SW fees and service delivery (solid waste collection) of SW
contractors. The LGAs should be responsible for collection of SW fees and pay the SW contractors and let
the SW contractors collect SW only.
c) Separation of functions which involve procurement, service delivery and monitoring

To PMO-RALG
The Prime Ministers Office - Regional Administration and Local Governments should ensure that there is a
distinct separation of the role of procurement of SW contractors; service delivery and monitoring functions
within the LGA. These functions should be carried out by different staff in order to promote efficiency and
accountability in SWM activities.
d) Procurement should be based on cost estimates and select one who is reliable
To PMO-RALG
The Prime Ministers Office Regional Administration and Local Governments should ensure that, LGAs procure
SW contractors based on the cost estimates of managing solid waste on a particular ward(s) and select the
one who is reliable based on the criteria which fit for the actual situation on the ground. Lowest cost bidder
is not always the best but lowest should be in the sense of lowest evaluated cost.
e) Prepare a checklist for self assessment

To PMO-RALG
The Prime Ministers Office - Regional Administration and Local Governments should use this report to
prepare a checklist or questionnaire which should be circulated to each Council, so that they can do self
assessment in order for the Ministry to get a bigger picture of what is going on around the country.

f ) Devise mechanism for people to pay SW fees

To PMO-RALG
The Prime Ministers Office - Regional Administration and Local Governments should devise a mechanism of
involving the local inhabitants to pay the SW fees. The ten cell leaders can be given the mandate to remind
people about their responsibilities of paying. However the service should be good and forthcoming.
g) Use of SW plastic bags

To PMO-RALG
Possibilities for the use of durable and good quality SW plastic bags should be explored. There is however
need to have the bags being produced locally in order to make them affordable to the users.
h) Each council should know or be able to estimate how much revenue can be collected
in wards
To PMO-RALG
The Prime Ministers Office - Regional Administration and Local Governments should ensure that, each council
knows or estimates how much SW revenue the SW contractor or Council will be able to collect; and come
up with a realistic picture of how much solid waste are generated and supposed to be collected.
i) Seek a legal advice on the enforcement of sanctions

To PMO-RALG
The Prime Ministers Office - Regional Authorities and Local Governments should seek legal advice from
Attorney-General on whether the SW contractors are supposed to enforce the sanctions defined in City or
Municipal by-laws.
j) Monitoring and evaluation of SWM activities

To PMO-RALG
The Prime Ministers Office - Regional Authorities and Local Governments should engage itself in monitoring
and evaluation of SWM activities throughout the country. Nonetheless, a workable monitoring and evaluation
plan should be upfront in place.
k) Standards for SWM

To TBS
The Tanzania Bureau of Standards should set standards for solid waste management which have to be adhered
to by all LGAs when they discharge their duties to ensure consistence of the services rendered.
h) Policy and regulations on SW

To MoHSW, DoE VPO and NEMC
The Ministry of Health and Social Welfare (MoHSW), Department of Environment (VPO DoE) and the
National Environmental Management Council (NEMC) should develop clear policies and regulations to be
used for the operational system for SW in Tanzania.
i) Capacity building and use of qualified staff as managers

To PMO-RALG
Capacity building should be part and parcel of SW handling. Qualified staff should be deployed for the work.
Community awareness should not be taken for granted. LGAs should continue to have awareness modalities
as community sometimes takes longer to comply with the required standards and regulations.

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13.2 LOCAL GOVERNMENT AUTHORITIES

Problems in the Solid Waste Management in all Councils visited in the country were pertinent.
This performance audit has been able to identify problems which can be addressed by individual Councils
themselves and problems which will have to be addressed through joint efforts of the Central Government
and the Local Government Authorities.
The following are recommendations of the problems that Councils are able to address:-
1) Planning and Monitoring
a) Estimating the Amount of Solid Waste generated

To SWM SECTION
The Solid Waste Management section of a LGA, should establish a system of solid waste data management that
could be reliable when estimating the amount of solid waste generated and collected each year.
The estimate of solid waste generated should be updated each year to include the most up-to-date estimates
of the population of the municipality.
The daily per-person generation factor should be updated periodically and it should take into account each of
the elements that determine the amount of solid waste generated each day. The updating should be frequent
enough to ensure the generation factor accurately reflects the best information available for proper decision-
making.
b) Set clearly stated performance requirements and targets for SW collection

To SWM Section
The SWM Department of Local Government Authorities should set performance requirements to its SW
contractors. Also SWM Sections in LGAs should ensure that the target for SW to be collected in each ward
is set and service providers comply with it.
c) Differences in the performance among service providers

To SWM SECTION
The SWM Sections in the LGAs should collect enough information from SW contractors to be able to
determine the causes of differences in performance among service providers in terms of quantity, quality and
profitability.
d) Periodic Evaluation of service providers performance

To SWM SECTION
The Local Government Authorities should form a team to carry out an assessment of the capabilities of its
service providers and the obstacles they face in achieving an acceptable level of performance.The team should
collect the views of stakeholders about the suitability of the SWM services offered by the service providers.
This process should be used to determine the exact reasons for differences in performance between service
providers, and should produce a realistic plan to enhance the performance of the service providers, while
allowing the service providers to operate profitably.

e) Improve the System for Monitoring Performance

To SWM section
The Solid Waste Management section should review the type, amount and frequency of information it needs
to monitor the performance of its service providers. In doing this, the SWM section should balance its
information needs against the burden placed on the service providers to prepare the information. Once the
sections information needs have been established, the section should ensure that the service providers submit
the information according to schedule.
f ) Appropriate actions to safe guard or to improve service delivery efficiency

To SWM Section
The SWM Section of Local Government Authorities should continue to develop and establish the Management
capacity among itself. It should take appropriate actions and document decisions in order to safe guard and
improve service delivery efficiency.
g) Set properly regulated sanctions

To Legal Section and SWM Section
The sanctions against violators of SWM activities should be properly regulated as stated in the contracts. The
legal office in collaboration with SWM Section should set the sanctions which are implementable for the sake
of improving the efficiency of the SWM activities. They should however be enforced.
2) PROCUREMENT
a) Improve Procedures for Procurement of Private Service Providers

To PMU
The procurement management unit should improve the evaluation criteria and procedures for procuring SW
contractors to ensure that only qualified contractors are awarded contracts. An in-depth evaluation of the
financial capability, bidders equipment, staffing and other resources should be well evaluated before awarding
any contract.
b) Performance requirements for the service providers

To SWM SECTION
The solid waste management section should set indicators to be used to assess the contractual compliance of
the SW contractors.These indicators should be clearly stated in the contract and closely monitored to ensure
delivery of satisfactory services. The monitoring will allow the SWM section to properly effect accountability
measures in cases of unsatisfactory performance.
The solid waste management section can engage a researcher in order to study the solid waste generation
patterns in each ward and prepare realistic estimates to be used as part of its assessment of service provider
performance.
3) ORGANIZATIONAL MATTERS
a) Separation of operating and monitoring functions

Department of health
The health department in each LGA should make sure there is separation of duties between monitoring
functions and service delivery activities within the SWM Section.

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The supervisory, monitoring and service delivery role should be separated clearly in order to enhance
accountability and also to improve the services rendered. However, this should be well outlined in the
organization structure and job descriptions
3) QUALITY ASSURANCE AND INSPECTION
a) Quantity and quality assurance system

To SWM SECTION
The Solid Waste Management section should ensure that each SWM service provider has an adequate system
of quantity and quality assurance monitoring. The system should include the identification of the major
activities to be monitored, establishing strategies to monitor each activity and establishing a representative
percentage for each activity to be monitored.
b) Inspections of service providers

To SWM section
The SWM section should conduct an appropriate level of inspections and follow up on those inspections. The
findings and actions recommended as a result of the inspections should be documented. Recommendations
resulting from the inspections should be used to improve the service providers performance. The inspection
program should focus on risk areas. The frequency of inspections conducted should be determined by the
improvements resulting from the inspections.
c) Establish a feedback mechanism

To SWM section
SWM team should establish a feedback mechanism between itself and the service providers so as to provide
the Council with timely, relevant, reliable and valid information.
d) Enforcement of contract
To legal office and SWM section
SWM section should develop a system for monitoring deviations from the contracts with service providers.
The SWM section should have a copy of each contract; the section should clearly understand the terms and
conditions of the contract.The legal office should enforce the contracts. If the contracts contain requirements
that SWM believes should not be enforced, the contracts should be changed.
4) FEES
a) Planning SW fee
To SWM section and accounting department
The Solid Waste Management section along with the accounting department should undertake a zero-based
budget exercise to determine the cost of collecting solid waste in the Council. This should include cost
estimates for various percentages of solid waste collected.
Based on these cost estimates, the Council should re-examine the SW fee schedule to determine a set of
realistic and affordable fees that would result in the full cost of solid waste management being funded by the
SW fees. The Council should also determine if more efficient methods of levying and collecting the fees could
be implemented.
.
The Council should prepare a comprehensive work plan for SWM operations indicating all activities needed to
implement the new fee schedule, ensure fee collection and improve the percentage of solid waste collected.

b) Separation of SW fees collection and service delivery function

To Accounting department and SWM section
SW fee collection should be the responsibility of the LGAs, not of the SW contractors. The accounting
department should be responsible to collect all SW fees. The contractors should be paid a fee by LGAs for
providing solid waste management services.That fee could be based on various factors such as collection area
and amount of solid waste collected. The contractors should only be responsible for collecting SW, not SW
fees.
In order to improve SW fee collections, the accounting department should make sure that they have a proper
inventory of households, businesses and industries in each ward, along with information about how much each
household or organization owes in fees and how much they have paid.
c) System for SW fees

To LGAs and To SWM Sections
The Local Government Authorities should establish the system of SW fees which will cover all operational
costs of solid waste activities. This will be facilitated by doing analysis of their budget and costs of SWM,
thereafter identifying all sources of solid waste revenues so that they can estimate the actual SW fee revenue
they can earn. Moreover, the Council should conduct a study on the citizens attitudes towards participatory
fees system.
d) Establish an inventory system or database

To LGAs
The Local Government Authorities should have a proper inventory system which can capture all the details
regarding number of households, businesses and industries in a particular ward so as to establish a list of
revenue potential in the form of SW fees and to avoid unnecessary loss in revenues incurred by the service
providers.
e) Collection of SW fees
The Local Government Authorities and SWM Section should establish new methodology/techniques of
collecting SW fees. The LGAs should conduct analysis of all sources of revenue and identify the appropriate
source to incorporate the percentage of running solid waste activities.
f ) Analysis of non collection of SW fees

The Local Government Authorities and SWM Section should establish reasons for not collecting SW fees
as stated in the LGAs by-laws so as not to repeat the same mistakes during the implementation of the new
methodology of collecting the SW fees.
g) Responsibility of collecting the SW fees

To LGAs
The Local Government Authorities should be responsible for collecting the SW fee and pay back to the SW
contractors while the responsibility of SW contractors will be the collection of the solid waste only.

123
REFERENCES
1. Proceedings of the Training Workshop on Solid Waste Management for officers responsible for
municipal solid waste management held in Dodoma by NEMC, UCLAS, Dar-es-Salaam,Tanzania, 25-30
Nov. 1996.
2. Employment creation in municipal service delivery-improving the living conditions for the poor by
ILO, Dar-es-Salaam, Tanzania, August 2005.
3. The Public Procurement Act, 2004 and the Public Procurement Regulations, 2005, Dar-es-Salaam,
Tanzania,
4. Local Government Urban Authorities Act No. 6 of 1999, Dar-es-Salaam, Tanzania.
5. Local Authority Financial Memorandum
6. The Environmental Management Act No. 20, 2004, Dar-es-Salaam, Tanzania.
7. The National Environmental Policy, 1997, Dar-es-Salaam, Tanzania.
8. The Kinondoni Municipal Commission (Waste Management and Refuse Collection Fees) by-laws, 2000.
Dar-es-Salaam, Tanzania.
9. The Temeke Municipal Commission (Solid Waste Management) (Collection and Disposal of Refuse)
by-laws, 2002. Dar-es-Salaam, Tanzania.
10. The Arusha Municipal council (Solid waste management collection and Disposal of refuse) by-laws,
2001. Arusha, Tanzania.
11. The Mwanza City Council (Solid waste managemet collection and Disposal of refuse) by-laws, 2000.
Mwanza, Tanzania.
12. Sheria ndogo ya Halmashauri ya Manispaa ya Mbeya (Usafi wa Mazingira na Ukaguzi wa Kiafya) ya 2000.
Mbeya, Tanzania.
13. Medium Term Plan and Budget for 2007/08-2009/10 by Mwanza City Council, April 2007. Mwanza,
Tanzania.
14. Towards Auditing Waste Management by INTOSAI Working Group on Environmental Auditing,
Viennq Austria.
15. Audit on the Management of Waste by AFROSAI-E
Africa Waste Audit Project to Final Procedures
Transversal Waste Report Final
16. Auditing on the management of waste by AFROSAI-E, Pretoria, South Africa
17. Report on the feasibility study on SWM in Dar es Salam by JICA 1996-8 in Dar-es-Salaam, Tanzania.
18. Mbeya Environmental Profile by Mbeya City Council, August, 2007. Mbeya, Tanzania.
19. Comprehensive Health Plan for July 2007-June 2008 by Mbeya City Council
20. Medium Term Plan and Budget for Mbeya city council 2007/08-2009/10 by Mbeya city council, Mbeya,
Tanzania.
21. Tender document No. 1/2005/06 by Arusha Municipal Council. Arusha, Tanzania.
22. Taarifa ya utekelezaji wa maagizo ya Kamati ya Bunge ya Hesabu za serikali za mitaa, Maagizo ya serikali
na majibu ya Taarifa ya Mdhibiti na Mkaguzi Mkuu wa Hesabu za serikali kwa kipindi kilichoishia tarehe
30 Juni, 2004 by Temeke Municipal council. Dar-es-Salaam, Tanzania.
23. Taarifa ya utekelezaji wa Maagizo ya Kamati ya Bunge ya Hesabu za serikali pamoja na majibu ya taariifa
ya Mdhibiti na Mkaguzi Mkuu wa Hesabu za serikali kwa kipindi kilichoishia tarehe 30 Juni, 2006,
Volume 1 by Temeke Municipal council. Dar-es-Salaam, Tanzania.
24. Towards National Integrated Solid Waste Management, Proceedings of the 1st Urban Forum held in
Dar es Salaam - Tanzania, 19 20 June 2006 jointly organized by International Labour Organizations
(ILO) and Association of Local Government Authorities of Tanzania (ALAT).
25. The National Environmental Health, Hygiene and Sanitation Strategy (NEHHSAS) 2008 2017 by
Environmental Health and Sanitation Unit of the Ministry of Health and Social Welfare, October, 2008.
Dar es salaam, Tanzania.

26. Environmental Impact Assessment for Proposed Sanitary Landfill at Pugu-Kinyamwezi, October 2004
Prepared by Environmental Resources Consultancy on Behalf of Dar es Salaam City Council, Dar Es
Salaam, Tanzania.
27. Waste Management Guidelines Ministry of Health and Social Welfare, 2003. Dar es salaam, Tanzania.

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APPENDIX 1
AUDIT QUESTIONS
This report provides the result from applying the following five audit questions:
Question 1: Are the service providers performing well?
Sub Questions
1.1 Are the systems in the councils reliable for predicting the amount of solid
waste that needs to be taken away each year?
1.2 Are the performance requirements for the service providers well founded
and clearly stated?
1.3 If private companies are engaged, are all services procured according to
law and are the best offer chosen?
1.4 Are the service providers collecting solid waste as per agreement?
1.5 Are there significant differences in their performances (in terms of
quantity and quality and profitability)?
1.6 Do the private companies have satisfactory quantity and quality
assurance systems; monitored by the city/municipal council?
1.7 Do the local authorities have a functioning system for evaluating and
comparing service providers performance?
1.8 Why are some service providers performing well and others less well?
1.9 Have the local authorities taken appropriate actions to safe guard or to
improve service delivery efficiency?
Question 2: Are the monitoring systems at the local government level appropriate
and working well?
Sub Question
2.1 Do the councils have appropriate systems for monitoring service
providers performance (in terms of quality and quantity)?
2.2 Are the councils conducting adequate inspections on how the service
providers run and manage their services?
2.3 Is there a sound separation of work between monitoring functions and
service delivery activities within a council?
2.4 Is the information on performance from the service providers to the
councils timely, relevant, reliable and valid?
Question 3: Are the sanctions appropriately regulated and enforced if needed?
Sub Question
3.1 Are the sanctions properly regulated (in contracts, if needed)?
3.2 Are the conditions sufficient to detect the need for sanctions?
3.3 Are appropriate actions taken (to avoid repeated mistakes)?
3.4 Are system and practices (and its consequences) evaluated?

Question 4: Are the SW fees set-up correctly and are all fees collected?
Sub Question
4.1 Do the SW fees cover the costs, and are the fees considered to be fair by
households with low ability to pay?
4.2 Are the fees properly and fully collected?
4.3 Are there differences among service providers capacity of required fee
collecting, and if so, what are the explanations?
4.4 Have the authorities analysed the differences; are appropriate actions
taken according to these analysis?
Question 5: Is central governments monitoring system appropriate?
Sub Question
5.1 Are any national standards set for operation of SW activities, and have
they been evaluated or altered lately?
5.2 Does central government have good general overview and insights on
how things are run and developed regarding SWM in Tanzania for
instance, as a basis for prioritizing efforts on improvements between
major cities?
5.3 Is the monitoring system at central government level appropriate;
does it allow for assessing SWM performance in the major cities in
Tanzania?
5.4 Have central authorities taken appropriate actions to assist the
local councils in the major cities on improving SWM efficiency?

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APPENDIX 2
MAIN LAWS AND REGULATIONS GOVERNING SOLID WASTE MANAGEMENT
IN TANZANIA
2.1 LAWS AND REGULATIONS PERTAINING SOLID WASTE IN TANZANIA
2.1.1 Laws
i) THE ENVIRONMENTAL MANAGEMENT ACT NO. 20 OF 2004

Part IX of this act is talking about Waste management; under (a) Management of solid waste the following are
highlighted:
Duty of local government to manage and minimize solid waste;
Disposal of solid waste from markets, business areas and institutions;
Storage of solid waste from industries;
Solid waste collection in urban and rural areas;
Waste transfer stations; and
Final disposal of solid waste.
ii) LOCAL GOVERNMENT ACT (URBAN AUTHORITIES) NO. 8 OF 1982
Functions of Local Authorities Section 53 to 55 of the Local Government Act (Urban Authorities) No. 8 Of
1982
The duty of every urban authority within its area of jurisdiction: - authorities
a) to provide, maintain, supervise and control public markets and pounds, and cold-storage depots, mineral
water factories and public or private slaughterhouses, and all such matters and things as may be
necessary for the convenient use of such markets, pounds, cold storage depots, mineral water factories
and public or private slaughterhouses, and to impose fees, rents, and tolls in respect of the use of public
markets, pounds or slaughterhouses by any person;
b) to keep and maintain in good order and repair all public latrines, urinals, cesspits, dustbins and other
receptacles for the temporary deposit and collection of rubbish, and public bathing and washing places,
and to provide for the removal of all refuse and filth from any public or private place, and provide for
the removal of night soil and the disposal of sewage from all premises and houses in its area, so as to
prevent injury to health;
c) to make, keep and maintain clean and in-good order and repair all streets and sewers together with all
buildings, machinery, works and things belonging thereto which have or shall become vested in the
authority, and to provide for the drainage of surface water. The authority shall have power to divert or
alter the course of any of the said streets or sewers and to keep the same clear of obstructions so as
not to be a nuisance or injurious to health;
d) to keep clean all trunk roads within the area of the authority

e) to regulate any trade or business which may be noxious, injurious to the public health or a source of
public danger, or which otherwise is in the public interest expedient to regulate, and to provide for the
issue of licenses or permits to facilitate the regulation of any such trade or business, and for the
imposition of fees in respect of such licenses or
f) to undertake all other works, matters and services necessary for or conducive to the public safety,
health or convenience, as it shall think fit, or which the Minister may from time to time declare to the
functions of the urban authority.
iii) BY LAWS
For the Local Government Authorities to discharge their mandate of dealing with Solid Waste in their areas
(councils) as conferred by Local Government Act No: 8 of 1982 have enacted their own by - laws to deal with
the issues of SWM.
These by laws covers the following issues:

Refuse deposit
Authority to collect and dispose
Refuse collection fee
Dumping fees
Offence and punishment for defaulters
Civil liabilities.
2.1.2 National Environmental Policy of 1997

The overall objectives of the National Environmental Policy are the following:
a) to ensure sustainability, security and equitable use of resources for meeting the basic needs of the
present and future generations without degrading the environment or risking health or safety;
b) to prevent and control degradation of land, water, vegetation, and air which constitute our life support
systems;
c) to improve the condition and productivity of degraded areas including rural and urban settlements in
order that all Tanzanians may live in safe, healthful, productive and aesthetically pleasing surroundings;
d) to raise public awareness and understanding of the essential linkages between environment and
development, and to promote individual and community participation in environmental action;
2.1.3 Goals and Objectives Given by Government

The main goal and objective as given in the National Environmental Policy of 1997 is to protect public health,
not in the narrow though indispensable sense of curing diseases, but in the broad sense of promoting human
well-being and informed participation in primary environmental care. The policy objectives to be pursued are:
-
a) provision of community needs for environmental infrastructure, such as safe and efficient water supplies,
sewage treatment and waste disposal services; and
b) promotion of other health-related programmes such as food hygiene, separation of toxic/hazardous
wastes and pollution control at the household level.
c) disaster/spill prevention and response plans and standards shall be formulated for transportation of
hazardous/dangerous materials.
d) development of environmentally sound waste management systems especially for urban areas.
e) review of laws, rules, and regulations governing importation, manufacture, transportation, handling, use,
storage and disposal of toxic chemicals, and dangerous products, hazardous wastes and hazardous
substances, as appropriate;

129
2.2 FUNDING
Funding of SWM activities is done through three main sources. These are:
Own sources which are mainly generated by SW fees and other taxes within the council
Central government grants
Donor support
2.3 KEY PLAYERS AND THEIR ACTIVITIES

To ensure that SWM is done appropriately in Tanzania, various institutions in Central and Local Government
level are involved in this work.
In the national level these players are dealing with the issues of passing relevant legislations regarding waste
management, monitoring and coordinating the activities relating to SW and environment in general, while in
local government level, councils and private sector (Franchisee Contractors) are responsible for the actual
implementation/management of the SW generated in their localities.
Central/national level organs are PMO-RALG, MoHSW,VPO,TBS and NEMC and in local government level are
town and District/Municipal/City council and franchisee contractors.
2.3.1 National Environmental Advisory Committee

The role of the national environmental advisory committee
Includes the following
To examine any matter which may be referred to it by the minister or any other sector ministry relating
to the protection and management of the environment and shall recommend to the minister or the
sector ministry, as the case may be, such action as is necessary for achieving the objectives of the
Environmental Management Act No. 20 of 2004.
Advise the minister on any matter in connection with restocking and limitation of stock
Make recommendation to minister where there is degradation of the environment
To review and advise on any environmental standards , guidelines and other regulations which are to
be made pursuant to the provisions of the Environmental Management Act No. 20 of 2004
To receive and deliberate reports from sector ministries in the protection and management of the
environment under the Environmental Management Act No. 20 of 2004,and other written laws
To perform such other environmental advisory services to the minister are necessary
2.3.2 Prime Ministers Office Regional Administration and Local Government

Authorities
The Prime Ministers Office Regional Administration and Local Government Authorities are responsible for:
(a) Monitor all the activities of the local government and regional authorities;
(b) Issue directives to local government and regional authorities and assist them technically and financially
in the implementation of their activities;
(c) Deal with all cross-cutting issues in local authorities
2.3.3 Vice Presidents Office Department of Environment
The role of Vice Presidents Office Department of Environment includes the following:
(a) Coordinate various environment management activities being undertaken by other agencies and
promote the integration of environment consideration into development policies, plans, programmes,
strategies, projects and undertake strategic environmental assessment with a view to ensuring
the proper management and rational utilization of environmental resources on a sustainable basis for
the improvement of the quality of human life in Tanzania.

(b) Monitor and assess activities, being carried out by relevant agencies in order to ensure that the
environment is not degraded by such activities, environmental management objectives are adhered to
and adequate early warning on impending environmental emergency is given.
2.3.4 National Environment Management Council (NEMC)
NEMC is responsible to:

(a) Carry on environmental audit
(b) Review and recommend for approval of environmental impact statements
(c) Enforce and ensure compliance of the national environmental quality standards
(d) Undertake in co-operation with relevant sector ministries programmes intended to enhance
environmental education and public awareness about the need for sound environmental management as well
as for enlisting public support and encouraging the effort made by other entities in that regard.
2.3.5 Tanzania Bureau of Standards

The National Environmental Standards Committee of the Tanzania Bureau of Standards established under
Tanzania Bureau of Standards Act, 1975, shall develop, review and submit to the minister proposal for
environmental standards and criteria in relation to various environmental quality standards.
The National Environmental Standards Committee shall cause the standard to be published in the gazette and
in at least two daily news papers one which shall be in Kiswahili and one in English language. With a view to
invite comments to be made in writing on the proposed standards within such period as may be prescribed
Every person undertaking any activity shall be required to comply with environmental quality standards
and criteria
The procedures followed by TBS when developing environmental standards, is that, it starts by forming the
working group which comprises about four technical personnel, in order to do the ground work. Thereafter,
the technical committee which comprises up to 9 people is formed. It draws experts from different academic
institutions, government, private and other stakeholders..This committee does all technical work like specifying
the standards according to our local environment and a draft report is produced.
Finally the draft report is then sent to the divisional committee within TBS for review and then it is subjected
to the public in order to get their comments.
After incorporating public comments then it goes to the executive council of TBS, and sent to the minister of
industry and trade where it is gazetted and become into use.
2.3.6 Ministry of Health and Social Welfare

PREVENTIVE HEALTH SERVICES DIVISION
Environmental Health and Sanitation Section
Activities are to:
Formulate environmental health control and sanitation policy
guidelines.
Liaise with regions and districts on control of pollution in the environment for appropriate measures
to be taken in collaboration with other agencies.
Review international sanitary regulations in force, for the purpose of preventing inter-country
transmission of diseases or disease agents in collaboration with World Health Organization
and other international organizations.

131
Review and up-date public health laws in the country for improving and sustaining sound public health
interventions.
Monitor and evaluate effectiveness of different environmental health and sanitation interventions
instituted in the country.
Disseminate to regions information on new developments pertaining to environmental health and
sanitation obtained from national and international organizations.
Review and monitor occupational health measures taken by workers in preventing and controlling
occupational diseases.
Monitor and provide health assessment of the workers most at risk.
2.3.7 Regional Administrative Secretariat

The Regional Secretariat perform development and administrative functions which include building capacity
within and supporting Local Government Authorities (LGAs) for them to be able to deliver the following:-
Social development services which focus on support services and regulation of services development
activities related to health, education, water services and local welfare activities (both public and
private) in the region.
To facilitate and assist LGAs in the region to undertake and deliver their responsibilities by providing
enabling environment for the successful performance of their duties and functions.
2.3.8 LOCAL GOVERNMENT AUTHORITIES (LGAs)

(City Council and Municipal Council)
Duty of local government to manage and minimize solid waste
For the purpose of ensuring minimization of the solid waste in their respective geographical areas of jurisdiction,
local government authorities shall prescribe:
(a) For different types or kinds of waste or refuse or SW to be separated at the source
(b) For standards to guide the type, size, shape, colour and other specifications for refuse containers
used
(c) For mechanisms to be put in place to involve the private sector and non-governmental organizations
on planning, raising awareness among producers, vendors, transporters, manufacturers and others on
the need to have appropriate containers and enhance separation of waste at source.
The local government authorities shall, with their respective geographical areas of jurisdiction:-
(i) Cause to be conducted appropriate environmental impact assessment for all new major activities
leading to proper management of solid waste;
(ii) Manage solid waste generated in accordance with sustainable plans produced by respective local
government authority; and
(iii) Ensure the appropriate sorting of waste right at the source and in accordance with standards or
specifications prescribed by the local government authority concerned.

APPENDIX 3
List of participants who attended a workshop prepared by NAOT in December 2007 to discuss preliminary
findings of the Solid waste management audit in big cities and municipalities
Name Organization
1. Eng. Melania S. Sangeu NEMC
2. Eng. Peter K. Nyangombe DoE (VPO)
3. Mr. Kaswula Mvano Head, SWM Kinondoni Municipal
4. Mr. Musa Kimaro Ag. Head, SWM Ilala Municipal
5. Mr. Thomas A. Lymo Head, SWM Temeke Municipal
6. Mr. Nicholus A. Ntobi Head, SWM Arusha Municipal
7. Mr. Odas N. Aron Head, SWM Mbeya City
8. Mr. Michael Mwalukasa PMO - RALG
9. Mr. Elias Chinamo Head, SWM Dar es salaam City
10. Mr. Nahum E. Lema Private contractor
11. Dr. Esnath .O. Chaggu Senior Lecturer, Ardhi University
12. Dr. Shaaban Mgana Senior Lecturer, Ardhi University

133
APPENDIX 4
DESCRIPTION OF THE SYSTEM ON HOW IT SHOULD BE RATIONALLY
Contractors need not go bankrupt

There is a need for SWM system which allows for the service providers (contractors) to discharge their
services without getting loss. The contractors survive in the business through the fees paid by those who are
getting their SWM services.
The SW fee rates are as stipulated in the LGAs by-laws. They need to go with time to reflect the actual or
prevailing conditions/prices in the market.These SW fees need also to take into account the fact that whatever
fee paid can be able to cover all costs of managing solid waste generated.
Also, these fees need to be paid on time and properly (as agreed). If the fees are not really paid properly
and contractors are relying on them in order to run this business then, there is a high risk of them running
bankrupt.
It costs a lot for the people and the government at large, if a SW contractor goes bankrupt.
The consequences of not having contractors who can not survive on the market long are quite many and
detrimental. Some of the consequences are the ones related to health issues, most of the time it will result
into delays and failures to collect and manage SW on time and sometimes not having anyone to collect SW.
This may result into eruptions of diseases such as Cholera, Dysentery and other related diseases which in
consequences resulted into reduced workforce and high cost of buying drugs.
The second effect is that it may result into having a place which is aesthetically poor, not having attractive
environment which can attract different economic activities.
Responsibilities of the LGAs

Local Government Authority is responsible for the management of the SW in its area/council. Among many
tasks, LGA must ensure that the following roles are discharged in the best way possible:
i.) Set adequate fees which are affordable and able to finance the SWM activities
ii.) Collect SW fees and pay contractors
iii.) Set targets for the collection of the SW and SW fee
iv.) Procure contractors who meet all necessary requirements and those with best offer
v.) Conduct adequate and well planned inspections
vi.) Monitoring of the Solid waste activities
vii.) Put sanctions in place in order to be able to manage all defaulters
Collection of the SW fees

The Solid Waste management activities should be financed by the SW fees paid by those who benefit from the
services offered. The beneficiaries of the SWM are households, industries, institutions and businesses. So they
are supposed to finance the operations of SWM.
Local Government Authorities are responsible for the collection of SW fee. Contractors are not supposed to
collect fees, but they have to provide the services of collecting SW and transport them to the disposal sites.
If LGAs collect fees and pay contractors then it will be much easier for them to manage the quality of the
services and impose the sanctions as stipulated in by-laws and contracts.

Sanction system
The system for Solid Waste Management needs to have a well placed sanction system for those who dont pay
SW fees on time.
All SWM activities are supposed to be financed by SW fees which is payable to the LGAs. If the SW fees not
payable it then means that there will be a problem of managing SW in that vicinity.
To ensure that this is not happening, there is a need to have a rational sanctions system which can ensure that
SW fees are payable on time and spent on the intended activity.
There is no sanction system at all for those who dont pay SW fees at the moment. Most of the people can
do away with this issue of not paying their SW fees as stipulated in the LGAs by-laws. The sanctions system
does not provide an incentive for a defaulter to account for his/her action of not paying the fee. Sometimes
it takes quite long before a defaulter is taken to LGAs court and if sent there the fine imposed found to be
very minimal.
Monitoring
First, there is need for information. There has to be a system that provides the government with relevant,
reliable, valid information about the different activities related to solid waste management. This may imply
the existence of a system that ensures a satisfactory flow of information, such as reporting procedures.
Furthermore, the information needs to be of sufficient quality with reference to the purpose. The quality of
the procedures for collecting the basic material and punching and processing the data must be satisfactory.
Secondly, monitoring implies a system of control. Inspections or the physical presence of people controlling
solid waste activities and sites such as collection points, dumpsites, SW service delivery, SW fee collection,
procurement of contractors, sanctions and enforcement of contracts are core activities in this respect.
Monitoring may involve checking systems of internal control. These systems require good procedures and
must be put to use in a proper manner. They can be subject to supervision by relevant government bodies.
If the monitoring agency does not have the capacity to inspect all contractors and activities, the decisions
on what to inspect must be based on a calculation of the risks entailed for the populations health and the
environment.
The third element of monitoring is the use of policy instruments when noncompliant practices regarding
legislation and good management are discovered.
These can be information or recommendations, but can also be coercive measures such as fining, withdrawal
of a license or permit or instructions for further practices. Agencies may have the authority to enforce license
terms and to prosecute those who are handling waste illegally.
Furthermore, it is important to evaluate how effectively the obligations are fulfilled and whether required
measurement and reporting systems are in place and providing correct and timely information.
The audit also indicated the need for strict enforcement of regulations related to solid waste management
by Local Government Authorities as well as central government and other institutions. It is necessary to
strengthen the supervision by the Local government Authorities with regard to Solid Waste Management and
likewise the supervision by the Central Government.
Transparency to citizens
Transparency to citizens on issues regarding Solid waste management is vital. To ensure that transparency
is achieved; Central Government and Local Government Authorities information regarding SW have to be
available to citizens and other interested parts.

135
Evaluation of the SWM services

It is important for the system to be improved as time goes on.That can be achieved by ensuring that evaluation
of the SWM system is done regularly.
Through the evaluation existing weaknesses can be identified and means to deal with them can be designed
to improve and safeguard that our environment becomes cleaner and safer.
It is important to evaluate on how the whole infrastructure of SWM in Tanzania is operating.This can be done
in Ministerial level in order to be able to cover the entire structure from the National level, regional level up
to the Local government level.
To do this Central level (Central Government) must have an evaluation capacity.

APPENDIX 5
FORMULAS USED FOR COMPUTATIONS
1. Target = Goal/wish: Amount of SW (ton)

Generated SW (ton)
2. Goal fulfillment = Actual SW collected (ton)

Goal or generated SW (ton)
3. Result = Collected SW (ton)

Generated SW (ton)
4 Generated SW (per year = Population x Generation factor x 365days

(kg/person/day)
5. Cost per collected ton = Cost incurred to manage SW (TShs.)

Generated waste (Tons)
6. SW collected per vehicle = SW Collected per year (Tons)

(Ton/Vehicle) Number of vehicles used

7. SW collected per Staff = SW collected per year (Tons)
(Ton/Staff) Number of staff who worked
8. Financial results (TShs.) = Revenue (SW fee collected) - Cost incurred
9. Potential fee to be collected = Number of Household x rate +

Number of Businesses x rate
+ Number of Industries x rate +
Others x rate

137
APPENDIX 6
DEFINITION OF THE CATEGORIES
Internal efficiency among private service providers in planned, unplanned and mixed wards were measured
based on the following parameters:
1. Relative input efficiency
2. Relative cost efficiency
3. Ability to make profit/ collect fees
To be able to measure the above mentioned efficiency parameters, criteria were defined as follows:
i.) Extremely poor extremely inefficient on the said parameter

ii.) Low performance is not satisfactory
iii.) Medium performance is average and satisfactory
iv.) High performance is above average
v.) Good performance is good and very satisfactory
vi.) Extremely good performance is extremely high


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Solid Waste Management in Big Cities of Tanzania

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Solid Waste Management in Big Cities of Tanzania

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Solid Waste Management

A PERFORMANCE AUDIT ON THE MANAGEMENT OF SOLID WASTE

MBEYA, DAR ES SALAAM, MWANZA AND ARUSHA

NATIONAL AUDIT OFFICE - TANZANIA

Office of the Controller and Auditor General,

ESTABLISHED UNDER ARTICLE 143 OF THE CONSTITUTION OF THE URT

In providing quality services, NAO is guided by the following Core Values:

II NATIONAL AUDIT OFFICE - TANZANIA

NATIONAL AUDIT OFFICE - TANZANIA

IV NATIONAL AUDIT OFFICE - TANZANIA

NATIONAL AUDIT OFFICE - TANZANIA

ALAT Association of Local Government Authorities of Tanzania

VI NATIONAL AUDIT OFFICE - TANZANIA

MAP OF TANZANIA SHOWING LOCATIONS OF SIX AUDITED COUNCILS

AUDITED COUNCILS Songea

DAR ES SALAAM HAS THREE COUNCILS

Ilala Municipal Council

NATIONAL AUDIT OFFICE - TANZANIA

RESPONSIBILITY FOR SOLID WASTE MANAGEMENT IN TANZANIA

Local Government Authorities

OBJECTIVE OF THE AUDIT

VIII NATIONAL AUDIT OFFICE - TANZANIA

The major findings of the audit were as follows:

There is increasing problem of SWM in Tanzania

There is poor and varying performance among service providers

The present system of SWM is irrational

i.) Service providers are collecting both SW and SW fees

NATIONAL AUDIT OFFICE - TANZANIA

A peculiar and ill functioning financial system in SWM

Most of the residents are not paying their fees.

More than half of the generated solid waste is left uncollected.

Inefficient procurement of SWM Contractors/CBOs

Targets for collection of solid waste are poorly developed

 NATIONAL AUDIT OFFICE - TANZANIA

Sanctions are rarely applied

LGAs have a lot of defaulters who failed to pay SW fees on time.

Lack of National standards and policies on SWM

Inadequate monitoring and evaluation of SW activities by Central government

NATIONAL AUDIT OFFICE - TANZANIA

a) Development of the adequate SW fees

b) Separation of role of collecting SW fees and service delivery performed by SW contractors

c) Separation of functions which involve procurement, service delivery and monitoring

XII NATIONAL AUDIT OFFICE - TANZANIA

and accountability in SWM activities.

e) Prepare a checklist for self assessment

f) Devise mechanism for people to pay SW fees

h) Seek a legal advice on the enforcement of sanctions

i) Monitoring and evaluation of SWM activities

iii) To MoHSW, DoE VPO and NEMC

NATIONAL AUDIT OFFICE - TANZANIA

RECOMMENDATIONS TO LOCAL GOVERNMENT AUTHORITIES (LGAS)

b) Set performance requirements and targets for SW collection

c) Differences in the performance among service providers

d) Periodic Evaluation of service providers performance

e) Improve the System for Monitoring Performance

f) Performance requirements for the service providers

g) Inspections of service providers

h) Establish a feedback mechanism

i) Quantity and quality assurance system

XIV NATIONAL AUDIT OFFICE - TANZANIA

j) System for SW fees

k) Establish an inventory system or database

m) Analysis of non collection of SW fees

NATIONAL AUDIT OFFICE - TANZANIA

NATIONAL AUDIT OFFICE - TANZANIA

NATIONAL AUDIT OFFICE - TANZANIA

NATIONAL AUDIT OFFICE - TANZANIA

NATIONAL AUDIT OFFICE - TANZANIA