Case Study: Dhenkamnal Odisha’s Decentralized Waste Management Success

India produces around 48 million tonnes of solid waste each year. A large portion of this ends up in open dumpsites due to poor segregation and lack of local treatment infrastructure. The state of Odisha was no exception – until it made a bold policy shift in 2019. The district of Dhenkanal, in particular, emerged as a standout example of how decentralized waste management, community-driven training, and women-led self-help groups (SHGs) can transform urban sanitation from the ground up.

Why Odisha needed a new approach to waste management 🔗

Odisha was generating roughly 1,935 tonnes of waste daily, with over 54% being organic and the rest inorganic. The core issues were familiar – poor source segregation, irregular collection, unscientific transportation, and a severe shortage of proper treatment facilities. Waste was either piling up inside city wards or being dumped unscientifically at overflowing landfill sites. A performance audit by the CAG of India covering the period 2015-2020 confirmed that the state did not have a single sanitary landfill, and waste dumping in open areas was rampant across sampled Urban Local Bodies (ULBs).

This unsustainable situation demanded a completely different strategy – one that moved waste processing closer to where waste was actually generated, rather than relying on distant, centralized dumping grounds.

Mandating decentralized waste management across 114 ULBs 🔗

In May 2019, the Government of Odisha made a firm policy decision to shift to decentralized waste management across the state. The legal basis came from Clause 15(Y) and 21(3) of the Solid Waste Management Rules, 2016, which exempted treatment facilities handling 5 tonnes or less of waste per day from needing prior authorization from the state pollution control board.

The Housing and Urban Development Department (H&UD) followed up with a historic directive on July 16, 2019, instructing all 114 urban local bodies to cancel existing tenders that were not aligned with decentralized micro-composting or material recovery. New tenders for centralized waste systems were also restricted.

The Standard Operating Procedure (SOP) 🔗

On July 30, 2019, the H&UD department officially released a detailed Standard Operating Procedure for decentralized solid waste management. This SOP served as the blueprint for every ULB in the state and covered several critical components: quantification of waste generation and human resource assessment, engagement of women SHGs as “Swachh Sathis” and supervisors, vehicle assessment and route planning, management protocols for Micro Composting Centres (MCCs) and Material Recovery Facilities (MRFs), procurement of machinery through the Government e-Marketplace (GeM) portal, and information and communication campaigns for public awareness.

The SOP specified that an MCC with a capacity of 1.5 tonnes per day should be established for every population cluster of around 10,000 people (approximately 2,200 households). The state promoted tub-composting technology – a low-cost, easy-to-operate method – as the primary technique for aerobic composting in MCCs.

The role of Swachh Sathis and community training 🔗

What made the Dhenkanal model – and the broader Odisha initiative – truly effective was its people-centred design. Rather than relying solely on municipal staff or private contractors, the state tapped into the power of local women’s self-help groups (WSHGs) through its Mission Shakti programme.

Who are the Swachh Sathis? 🔗

Members of WSHGs were trained by government officials and designated as “Swachh Sathis” (cleanliness companions). These women became the frontline workforce for waste management at the ward level. Their responsibilities included visiting households door-to-door to educate residents about source segregation – the practice of separating wet (biodegradable) and dry (recyclable) waste at home before collection.

Across Odisha, this model was deployed at a significant scale. According to a study on Bhubaneswar’s waste management, over 2,120 Swachh Sathis and 485 Swachh supervisors from Mission Shakti groups were engaged in waste management activities across the state. Around 1,785 Swachh Karmis from over 1,500 Mission Shakti groups operated the wealth centres (MCCs and MRFs).

Training on occupational health and safety 🔗

Training wasn’t limited to waste segregation awareness. Swachh Sathis were also educated on occupational health and safety practices. Special provisions were made for female workers, including safety gear (gloves, shoes, and protective equipment), regular health check-ups, and transportation support. Workers at MCCs and MRFs were provided with safety gloves, equipment, and vehicles for safe waste processing.

These measures addressed a long-standing gap in India’s waste management sector, where sanitation workers – especially women – often work without adequate protective gear or health safeguards.

Incentives and motivation 🔗

To sustain engagement, the programme incorporated incentive structures that rewarded efficient Swachh Sathis. Beyond financial rewards, the model gave women a sense of professional identity and economic independence. SHG members involved in sanitation services reported stable income even during the COVID-19 lockdown, demonstrating the resilience of this community-based approach. In Dhenkanal specifically, operations like cesspool vehicle management were entirely outsourced to a WSHG, which proved highly effective.

Dhenkanal’s infrastructure: MCCs, MRFs, and wealth centres 🔗

Dhenkanal became one of the model districts for decentralized waste management in Odisha. The district set up Micro Composting Centres to process organic waste through aerobic composting and Material Recovery Facilities to sort and channel dry waste to recyclers.

Across the state, these co-located MCCs and MRFs came to be known as “Wealth Centres” – a term that captured their economic potential. Organic waste processed at MCCs was turned into compost sold under the brand name “Mo Khata” (My Compost). The compost was priced at ₹20 per kilogram and marketed through more than 150 designated sale counters managed by WSHGs. Government departments were directed to purchase compost from nearby MCCs, ensuring a reliable revenue stream that flowed back to the community.

By 2021, Odisha had more than 200 MCCs and 150 MRFs fully functional across the state, processing over 600 tonnes of wet waste and 100 tonnes of dry waste daily. The MCCs operated at above 90% capacity in many locations.

Measurable outcomes and grievance reduction 🔗

The results of this community-centric, decentralized approach were tangible. The direct involvement of Swachh Sathis in door-to-door education and waste collection led to a reported 70% reduction in public grievances regarding solid waste management in areas where the model was actively implemented.

This dramatic drop in complaints reflected several improvements simultaneously: waste was being collected more regularly, segregation at source reduced the volume of mixed waste reaching dumpsites, and the visible presence of trained Swachh Sathis gave residents a direct point of contact for waste-related concerns.

Progress at the state level 🔗

By August 2020, Odisha’s Chief Minister dedicated 100 MCCs and 50 MRFs to ULBs in recognition of their achievement. The state reported that 96% of wet waste was being processed through the MCC network, and 100% of targeted MRFs had been established. The state also signed an MoU with the Urban Management Centre of Ahmedabad for capacity building, aiming to train 2,000 functionaries, 250 mentors, and 500 master trainers who would subsequently equip 5,000 SHG members for waste management roles.

Challenges and lessons from the Dhenkanal model 🔗

While the achievements are notable, the model was not without challenges. The CAG audit of 2022 pointed out several shortcomings at the state level – many ULBs had not conducted proper waste quantification surveys before setting up MCCs, and infrastructure rollout was behind schedule in some areas. The absence of a comprehensive state policy for integrated solid waste management was also flagged.

These findings suggest that while the Dhenkanal model and the broader Odisha initiative showed what is possible with decentralized waste management, sustained monitoring, proper planning, and robust data collection remain essential for long-term success.

Why decentralized waste management matters 🔗

The Dhenkanal case offers several broader takeaways for waste management across India. Decentralized systems reduce transportation costs and carbon footprints by processing waste close to its source. Engaging local women’s SHGs creates a skilled, motivated workforce with deep community ties. Converting waste into marketable compost and recyclables generates revenue that sustains the system financially. Structured training on health and safety protects workers who are most vulnerable in the waste management chain.

India’s 3,159 dumpsites across the country represent both an environmental crisis and a massive missed opportunity. Over half of the nation’s municipal waste is compostable, and nearly a fifth is recyclable – resources that are currently being buried under mountains of mixed garbage. Odisha’s experience, and Dhenkanal’s in particular, demonstrates that there is a practical, scalable alternative.

What do you think? Could the Dhenkanal model of engaging women’s self-help groups as the backbone of local waste management be replicated effectively in other Indian states? What additional support structures would be needed to ensure long-term sustainability of such community-driven initiatives?

References

1. https://www.downtoearth.org.in/waste/in-odisha-a-paradigm-shift-towards-decentralised-waste-management-78718
2. https://citizenmatters.in/cag-audit-of-solid-waste-management-performance-in-odisha-ulbs/
3. https://www.downtoearth.org.in/governance/women-s-day-2024-in-odisha-they-provide-subsidised-food-measure-water-restore-common-urban-spaces-94888
4. https://sd.scione.com/cms/fulltext.php?id=73
5. https://www.newsroomodisha.com/creating-wealth-through-transformed-waste-management-system-odisha-leads-the-way/
6. https://www.3ieimpact.org/sites/default/files/2023-01/Odisha-SLLP-Learning-brief.pdf