Draft Road Map

Transcription

Draft Road Map

ASEAN – German Technical Cooperation
Clean Air for Smaller Cities in
the ASEAN Region
Road Map Towards a Clean Air Plan
for Palembang City, Indonesia
30 June 2010
www.CitiesForCleanAir.org
Clean Air for Smaller Cities in the ASEAN Region
Table of Contents
TABLE OF CONTENTS .....................................................................................................................................
ABBREVIATIONS AND ACRONYMS ................................................................................................................
SUMMARY ....................................................................................................................................................
1.0 INTRODUCTION ..................................................................................................................................... 1
1.1 BACKGROUND ..............................................................................................................................................1
1.2 CONTEXT .....................................................................................................................................................1
1.3 PURPOSE OF THIS REPORT ..............................................................................................................................2
1.4 ACKNOWLEDGEMENTS ...................................................................................................................................2
2.0 OVERVIEW OF PALEMBANG AND ENVIRONMENT ................................................................................. 3
2.1 URBAN STRUCTURE AND TRENDS .....................................................................................................................3
2.2 TRANSPORTATION SYSTEM..............................................................................................................................5
2.3 AIR QUALITY STANDARDS ...............................................................................................................................7
2.4 EXISTING AIR QUALITY ...................................................................................................................................7
2.5 SOURCES .....................................................................................................................................................8
3.0 REGULATORY AND ADMINISTRATIVE FRAMEWORK ............................................................................. 9
3.1 REGULATORY FRAMEWORK .............................................................................................................................9
3.2 ADMINISTRATIVE FRAMEWORK ......................................................................................................................11
3.3 PREVIOUS ATTEMPTS TO IMPROVE AIR QUALITY ...............................................................................................12
4.0 ORGANIZATIONAL, STAKEHOLDER AND PUBLIC PARTICIPATION APPROACH ...................................... 13
4.1 STAKEHOLDER GROUPS ................................................................................................................................13
4.2 INVOLVEMENT PROCESS ...............................................................................................................................16
4.3 OVERSIGHT PROCESS ...................................................................................................................................18
5.0 FRAMEWORK FOR A CLEAN AIR PLAN ................................................................................................. 20
5.1 PROPOSED CONTENTS OF A CAP....................................................................................................................20
5.2 ADMINISTRATIVE ARRANGEMENTS .................................................................................................................20
5.3 ISSUES TO ADDRESS .....................................................................................................................................20
6.0 ROADMAP........................................................................................................................................... 27
6.1 KEY ACTIVITIES ...........................................................................................................................................27
6.2 SCHEDULE .................................................................................................................................................28
6.3 HUMAN AND FINANCIAL RESOURCES ..............................................................................................................28
REFERENCES ....................................................................................................................................... 31
ANNEX A: DRAFT CONTENTS FOR A CLEAN AIR PLAN FOR PALEMBANG ...................................... 32
ANNEX B: INITIAL LIST OF RELEVANT CIVIL SOCIETY ORGANIZATIONS .............................. 35
Abbreviations and Acronyms
ASEAN
BMZ
BRT
CAI-Asia
CAP
CDIA
CNG
CO
ECE
GTZ
JBIC
INDII
NGO
NAAQS
NMT
NO2
O3
PM10
ppm
SO2
SPM
µg
UNFCCC
VOC
WHO
Association of South East Asian Nations
Federal Ministry for Economic Cooperation and Development, Germany
Bus Rapid Transit
Clean Air Initiative - Asia
Clean Air Plan
Clean Development Initiative for Asia
compressed natural gas
carbon monoxide
United Nations Economic Commission for Europe
German Technical Cooperation Enterprise
Japan Bank for International Cooperation
Indonesia Infrastructure Initiative – Australian Aid Agency
non-governmental organization
National Ambient Air Quality Standards
non-motorized transport
nitrogen dioxide
ozone
particulate matter less than or equal to 10 microns in diameter
parts per million
sulfur dioxide
suspended particulate matter
micrograms
United Nations Framework Convention on Climate Change
volatile organic chemicals
World Health Organization
Summary
This report describes how the Municipality of Palembang, the capital city of the province of
South Sumatra, Indonesia, can commence to prepare a Clean Air Plan (CAP) for the city
under the Project entitled “Clean Air for Smaller Cities in the ASEAN Region". This project
is funded by the German Federal Ministry for Economic Cooperation and Development
(BMZ) and implemented by GTZ in cooperation with the ASEAN Secretariat.
This report describes a “roadmap” which documents some key issues and challenges facing
Palembang’s air quality now and in the future. It also describes the data and analytical
requirements, time frame and resources needed to establish a technically sound but practical
CAP for the city.
An important feature of the project design is that the CAP will be prepared by the city with
full involvement of the public and civil society. This approach will assist in facilitating
implementation of the CAP. Previous efforts for public involvement failed to attain the
consistency and follow-through needed to gain full public support.
To utilize this road map, the City of Palembang would first establish a Technical Team. This
Team would guide the initial steps of establishing a stakeholder process. One of the first
results of the stakeholder process would be a vision and goals statement. The stakeholder
process would then inform establishment of a Guidance Board. The important first step is to
quickly establish effective administrative arrangements to enable preparation of the CAP to
commence as soon as possible.
GTZ will support project preparation by providing specialized technical resources and by
assisting to mobilize additional funding from other donors to enable implementation. It also is
expected that the city and relevant agencies would use some of their own funds for
implementation.
As identified by the February 2010 GTZ mission to Palembang, several key activities are then
proposed to address data gaps and incorporate important methodological approaches. These
key activities to be undertaken as part of the preparation of the Clean Air Plan are:
Management
• Establish Technical Team and GTZ counterpart team.
• Conduct series of stakeholder scoping meetings; develop agreement on mechanisms and
procedure for stakeholder involvement.
• Establish Guiding Board and commence regular meetings
• Preparation of Clean Air Plan, including implementation program.
I
Public Involvement
• Conduct Vision and Goals workshop as first public input workshop
• Conduct Public Communication Strategy workshop: defining outreach and awareness
program;
• Conduct Findings and Options workshop: consolidated reporting of all findings and
possible options for consideration by public and decision makers;
• Conduct Proposals workshop: evaluation of costs, benefits and dis-benefits and
implementation strategy; and
• Conduct CAP Presentation and Implementation workshop: presentation of completed
plan, review of remaining issues, initial implementation steps
Technical
• Conduct rapid review of CNG conversion program.
• Review air quality data based on World Health Organization (WHO) criteria; establish
procedures for implementing use of mobile monitoring station including intensive
training of the operational team.
• Establish an emission inventory for stationary, area and mobile sources, including ships.
• Evaluate related programs and optimize synergy.
• Review demand estimates for TransMusi and prepare / revise financial model for
operation of the system.
• Prepare options for enhancement of TransMusi service and financial performance.
• Review and expand the existing vehicle inspection system, define vehicle emission
standards, and prepare for the implementation of a low-emission zone;
• Prepare and execute public involvement process for low-emission zone creation.
• Analyze options for control of stationary sources.
A proposed schedule for implementation of this roadmap is presented which shows that a
CAP could be established within eleven months. A draft contents of what the CAP may
contain is shown in Annex A.
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1.0 Introduction
1.1 Background
The Project "Clean Air for Smaller Cities in the ASEAN Region" is funded by the German
Federal Ministry for Economic Cooperation and Development (BMZ) and implemented by
GTZ in cooperation with the ASEAN Secretariat. It aims to empower local governments of
smaller cities (non-metropolitan/secondary cities) to develop and implement “Clean Air
Action Plans” in order to improve living conditions.
The local Governments of up to two cities each out of seven of the ten ASEAN member
countries (Cambodia, Indonesia, Laos, Malaysia, The Philippines, Thailand and Vietnam) will
receive advisory services in the development and implementation of clean air plans with the
participation of the private sector, academia, and civil society. ASEAN will coordinate and
support the project implementation through the ASEAN Working Group for
Environmentally Sustainable Cities.
The implementation responsibility, however, rests with the cities. The cities are supported by
the respective national authorities, in particular when it comes to legal framework and
emission standards development. National workshops will be held in at least five ASEAN
countries. Civil society, private sectors and other stakeholders will be involved in the
development and execution of clean air measures. The aim of these workshops is to create
awareness and trigger the motivation of the public to support the measures. The process will
include training for public, private, and non-government sectors at regional, national and local
levels. The national level will be involved to support cities with the relevant legal and
institutional framework. International conferences at ASEAN level will take place once a year
with the purpose of disseminating experience gained from the selected cities to others.
1.2 Context
The Palembang Environmental Agency is the implementing agency for the Clean Air Project
in the Municipality of Palembang, South Sumatra, Indonesia. A GTZ identification mission
visited Palembang during February 1-3, 2010 to prepare a road map for a clean air plan (CAP)
for the municipality. The mission team consisted of:
Roland Haas, Project Director of GTZ
Axel Friederich, Consultant
John Ernst. Consultant
Dollaris R. Suhadi, Consultant
Ahmad Safrudin, GTZ
Mahalana Aditya Mahalana, Consultant
Linda Krisnawati, Indonesian Ministry of Environment.
Mr. Roland Haas presented the Road Map to the Mayor and senior staff of his administration
on 24 June 2010. Findings and recommendations were agreed.
1
Palembang has made major strides in recent years to improve its environmental performance.
Five years ago, the Indonesian Ministry of Environment rated it as the worst city in Indonesia.
In 2007 and 2008, as a result of strong initiatives of the Mayor of Palembang, the city received
the Adipura award for being the cleanest city in Indonesia.
This ‘road map’ identifies the key issues and challenges facing Palembang’s air quality now and
in the future, so as to establish a technically sound but practical CAP for Palembang.
1.3 Purpose of this Report
This report is not the clean air plan for Palembang. It presents the ‘road map’ toward that
plan, based on the findings of the GTZ mission to Palembang during 1-3 February 2010. It
presents the initial findings on: 1) the air quality in Palembang, 2) the status of air quality
monitoring, 3) what is known about emissions sources, 4) promising areas for improving air
quality in Palembang, and 5) an assessment of the potential for public participation along with
a strategy for maximizing its effectiveness. This road map provides a suggested approach, as
well as a table of contents, for a CAP for Palembang. Finally, this ‘road map’ report includes
suggested steps to establish the CAP.
This ‘road map’ should be viewed as a living document, to be modified and improved so as to
be most effective for the City of Palembang in achieving its clean air goals. The mission and
subsequent analysis used to prepare this report were brief, so all findings in this report should
be regarded as preliminary, to be modified as needed during preparation of the CAP.
1.4 Acknowledgements
This report is prepared by John Ernst, with input from Axel Friederich and the GTZ
Indonesian team: Ms. Dollaris R. Suhadi, Mr. Ahmad Safrudin, and Mr. Mahalana Aditya
Mahalana
To avoid duplication of effort this report utilizes the outline and applicable content from the
report for GTZ on the Draft Road Map Towards a Clean Air Plan for Vientiane, Laos prepared for
GTZ by Phil Sayeg, November 2009.
The authors wish to express their appreciation to the Mayor of Palembang and the City
government for their extensive cooperation and warm hospitality during the initial mission.
We also wish to thank those participants from various sectors of Palembang society for their
cooperation and helpful input.
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2.0 Overview of Palembang and Environment
2.1 Urban Structure and Trends
Palembang is located along the Musi River in the south of the island of Sumatra, Indonesia. It
is the capital city of the Province of South Sumatra, and the second largest city in Sumatra
after Medan. Palembang has a population of 1.5 million in an area of 400 square km. The city
has dedicated 8.76 square km to open/green area 1. The population is growing at a rate of
approximately 2% per annum. The population of South Sumatra is currently about 40%
urban, but projected to be over 50% urban within 10-years. Recent population estimates for
each of Palembang’s 14 sub-districts are shown in Table 2.1.
Table 2.1 Population Estimates for the 14 Sub-Districts of Palembang
Population
Sub-District
(Kecamatan)
2003
2004
2005
2006
2007
1. Ilir Barat II
60,761
62,032
63,264
64,708
65,923
2. Gandus
48,502
49,015
50,078
51,182
52,125
3. Seberang Ulu I
142,587
146,403
149,135
152,607
155,521
4. Kertapati
74,738
76,417
77,978
79,736
81,225
5. Seberang Ulu II
82,902
85,109
86,889
88,833
90,482
6. Plaju
76,996
79,155
80,749
82,581
84,129
7. Ilir Barat I
106,727
109,952
112,099
114,668
116,833
8. Bukit Kecil
45,408
45,865
46,789
47,850
48,748
9. Ilir Timur I
75,448
77,450
78,674
80,599
82,191
10. Kemuning
80,246
81,865
83,423
85,351
86,973
11. Ilir Timur II
154,864
157,602
160,818
164,449
167,522
12. Kalidoni
86,418
87,718
89,617
91,596
93,281
13. Sako
90,229
90,263
92,214
94,251
95,986
14. Sukarami
161,609
163,705
167,066
170,828
174,015
Total
1,287,435
1,312,551
1,338,797
1,369,239
1,394,954
[source: Palembang City
Government, http://www.palembang.go.id/?nmodul=halaman&judul=sosial-budaya&bhsnyo=id ]
Population is distributed in Palembang with the highest densities generally along the river, as
shown in Figure 2.1.
1
Palembang city profile for city selection
3
Figure 2.1. Map with projected population densities for Palembang. [source: __]
According to a plan developed in 2004, Palembang is envisioned to develop as two primary
centers, one north and one south of the Musi River. It is envisioned the city will have 3
secondary centers and 5 tertiary centers (see Figure 2.2). These centers are primarily designed
as focal points for accessing public services.
4
Figure 2.2. Structural concept for development of Palembang City. Source: __]
2.2 Transportation System
Palembang’s intercity public transport includes an airport, rail, river boat and bus. The airport
has over 500,000 yearly arrivals with approximately 2% annual growth. Three river jetties
provide for approximately 50,000 arrivals per year. While the rail network is limited, the
Palembang station records roughly 1.2 million arrivals per year. There are 8 bus terminals in
the city.
Transportation within the city is dominated by small motor cycles, though both motorcycles
and cars have been growing rapidly (see Table 2.1).
Table 2.1. Motor vehicle registrations in Palembang, and recent growth rates.
Growth
VEHICLES
2006
2007
2008
2007-2008
Motorcycles
Passenger cars
Freight vehicles
Medium Buses
Other
225,206
59,519
32,358
3,189
296
248,904
66,642
34,568
3,140
326
283,361
74,057
37,649
3,002
805
TOTAL
322,574
355,587
400,882
Source: Ditlantas Polda SUMSEL [Palembang Transportation Grand Design Oct2009]
5
13.8%
11.1%
8.9%
-4.4%
--
Motorcycles comprise over 2/3 of all vehicles on Palembang’s roads (see Figure 2.2). The
growth in private motor vehicles and decrease in public transport vehicles indicates an
underlying problem with the preferred mode of citizens. The city has begun to counteract this
by creating the TransMusi bus system, and implementing significant pedestrian improvements
along the Musi River waterfront and other selected areas.
No data is currently available on the modal split of trips in Palembang. (Note that Figure 2.2
shows the percentages of vehicle registrations, not the modal split of trips.) Further, there is
no data yet obtained on the modal split of all trips, including non-motorized trips.
The TransMusi system was scheduled to begin operation in early 2010. It utilizes curb-side,
high-level (approximately 1 meter above street level) boarding platforms. New buses have
been purchased to operate on the system, also with high-level doors. Potential problems exist
with operating this system, especially in terms of financial performance. This is further
described in Section 5.3, ‘Issues to Address’.
Figure 2.2. Motorized vehicle registration proportions in Palembang in 2008.
Source: Ditlantas Polda SUMSEL [Palembang Transportation Grand Design Oct2009]
Prior to the construction of TransMusi, all public transport services were provided by the
private sector through a variety of mid-size buses and paratransit vehicles. Private taxis,
informal motorcycle taxis (ojek), and non-motorized 3-wheeled rickshaws (becak) also provide
service in Palembang.
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2.3 Air Quality Standards
The National Ambient Air Quality Standards (NAAQS) cover suspended particulate matter
(SPM), particulate matter less than or equal to 10 microns in diameter (PM10). sulfur dioxide
(SO2), nitrogen dioxide (NO2), ozone (O3), lead and carbon monoxide (CO). The standards
are less stringent than World Health Organization (WHO) guidelines, see table 2.2. The
Province of South Sumatra has its own regional ambient air quality standards. The provincial
standards are equivalent to the NAAQS.
Table 2.2. Indonesian National Ambient Air Quality Standards and WHO Guidelines
a
WHO Global update 2005; b WHO 2000
2.4 Existing Air Quality
Complete information on the air quality in Palembang does not exist. The limited data
available show very high levels of PM10 and nitrogen oxides. Although, it is not clear how the
measurements were performed or evaluated, the levels indicate a severe existing air pollution
problem.
As one indicator, upper respiratory infections were the highest number of reported health
cases of those monitored during a period from 2003 to 2007. Upper respiratory health
symptoms are frequently related to, or aggravated by, air pollution. 2
2
From 2009 Clean Air Plan for Palembang [full reference pending]
7
Measurement of air quality in several locations over the period of 2007-2009 indicates that
nitrogen dioxide (NO2) and PM10 are critical parameters. The levels of these two parameters
have exceeded the standard by a factor of 1.005-1.64 for NO2 and 1.03-2.5 for PM10 in some
locations. Interestingly, in some other locations, the levels of PM10 have shown improvement.
The levels of hydrocarbons also show an increasing trend in 11 of 14 locations measured
during 2007-2008. Sulfur dioxide levels also tended to increase in the majority of monitoring
locations (78%), although the levels of SO2 are within the Indonesian standards.
2.5 Sources
An emissions inventory has not been conducted in Palembang. Air pollution is known to
occur from an oil refinery, fertilizer plant, and rubber glove industry. Additional emissions
come from many smaller enterprises, workshops and households. Relevant emissions also
come from the burning of agricultural waste and local garbage. Further, the use of paints,
degreasing and other diffuse sources cause significant air pollution.
Some measurements of motor vehicle emissions have been conducted in Palembang. A test
of 148 gasoline vehicles in March 2009 showed that 90% met Indonesia’s current emission
standards. However, the very high levels of NO2 measured along major roads in 2008
indicates that motor vehicles are a significant source of pollution in Palembang, as motor
vehicles are the main source of this pollutant in many cities around the world. Motor vehicles
also emit carbon monoxide (CO), hydrocarbons including benzene, and particulates. Off-road
vehicles, such as construction machinery can also produce significant emissions.
8
3.0 Regulatory and Administrative Framework
3.1 Regulatory Framework
While Indonesia has no specific legislation for regulating and managing air quality, the
constitution and other environmental legislation provides a legal basis for government action.
The constitution of Indonesia protects the rights of every person to enjoy a good and healthy
environment. A 2009 Act on Environmental Protection and Management (Act No 32/2009)
reaffirms that right, updating the previous Act (No 23/1997) toward Environmental
Management. These laws provide for public information on the environment, and provide for
restrictions on activities that exceed environmental quality standards.
Regulations 3 issued under the 1997 Environmental Management Act set ambient air quality
standards, as well as emission standards for industrial activities and motor vehicles. The
regulations also allow provincial governments to issue their own standards that are equivalent
to, or more stringent than, the national government standards. This authority does not extend
to cities. (The national air quality standards are shown in Section 2.3.)
For transportation, Act No. 22/2009, which replaces the Act No. 14/1992 on Traffic and Road
Transportation, is the legal basis for the management of land transportation, including the
control of vehicle emissions. As a result of the new Act, the implementing regulations to the
previous Act No. 14/1992 must be revised. Currently the revision process is underway and
is expected to be completed by June 2010. The new Act stipulates that the vehicle emission
test is an integral part of the roadworthiness test, and that the responsibility for vehicle
emission testing lies with the transportation office. Periodic roadworthiness and emission tests
are mandatory for public vehicles, but are not mandated for private vehicles.
Depending on how the implementing regulations are revised, the lack of a mandate for private
vehicle testing could be interpreted as allowing local governments to regulate emission tests
for passenger cars and/or motorcycles through legislation for their geographic area. Several
environmental agencies in Indonesia (Jakarta, Surabaya, Yogyakarta, and Bandung),
considering it a priority to control air pollution from mobile sources, took the initiative by
issuing a regional bylaw on inspection and maintenance for passenger cars and motorcycles. In
those decentralized systems, emission tests will be carried out by the private sector in
automotive workshops.
The 2009 Traffic and Road Transport Act also provides for segregated lanes for mass public
transport, and the rights of pedestrians to pedestrian facilities. Important new provisions in
this Act relate to the road fund to be collected from road users and managed by a unit in the
Ministry of Public Works. The law provides for funded construction to include bicycle lanes,
pedestrian pathways and crossings in road facilities.
Some local governments in Indonesia have issued laws and regulations which regulate
traffic management and road transportation, and transport policy. The Jakarta government has
3
Government Regulation No 41/1999 toward Air Pollution Control
9
issued a macro transportation plan including improvements to public transportation such as
BRT and river transportation, as well as transport demand management such as traffic and
parking restrictions. The City of Surabaya has issued Bylaw No. 7/2006 on Provision of Road
Public Transport, which includes regulation of public transport services based on road
hierarchy, and sets a maximum age for public transport vehicles.
For new vehicles, government regulations 4 mandate that new vehicles sold in Indonesia must
comply with Euro 2 standard starting January 2005. However, this regulation did not become
effective until January 2007 when the use of leaded gasoline was completely phased-out.
According to the Chairman of the Association of Indonesian Automotive Industries
(Gaikindo), all new gasoline vehicles and new motorcycles sold in Indonesia complied with the
Euro 2 standard in 2007 5. The poor quality of diesel fuel sold in the country hinders
compliance by new diesel vehicles with the Euro 2 standard, which requires a maximum of
500 part per million (ppm) sulfur in diesel, while much of Indonesia’s diesel fuel contains
5000 ppm of sulfur.
The legal basis for the provision of cleaner fuel, Act No. 22/2001 concerning Oil and Gas,
provides for the implementation of fuel specifications set by the Directorate General of Oil
and Gas. This Act allows companies other than the state-owned oil company Pertamina to
produce and distribute fuel. The opening of the downstream market, if followed with
tightened fuel specifications, can push the production and distribution of cleaner fuel and
enable the application of vehicle technology to further reduce vehicle emissions. The Ministry
of Environment conducts a fuel inspection program yearly to ensure that vehicle fuel
specifications are complied with.
3.1.1 Management of Stationary Sources
Although it does not specifically regulate air quality management, Act No. 5/1984 on
Industrial Activities prohibits activities that damage the quality of the environment and
ecosystem. One of the implementing regulations of this Act 6 binds industry to comply with
environmental regulations as one of the requirements to obtain a business license. In
addition, a regulation on Environmental Impact Analysis and its implementing guidelines 7
requires the proponents of activities to prepare and implement an environmental management
and monitoring plan.
Industrial permits are granted by regency/city government for activities located in the
respective regency/city. The environmental agency at the respective level assesses the
feasibility of planned activities and requires proponents to prepare an environmental
4 Ministry of Environment Decree No. 141/2003 concerning Emission Standard Limits for New Types of Motor Vehicles
and Motor Vehicles in Current Production
5
Association of Indonesia Motorcycle Industries (AISI) 2008
6
Government Regulation No. 13/1995 on Industrial Business Licenses
7
Government Regulation No. 27/1999
10
management plan and environmental monitoring plan including emission standard
compliance plan. Enforcement of industrial emission regulations is conducted by the
Environmental Agency in the region (province/regency/city)
3.1.2 Existing Regulations in Palembang
Palembang has a bylaw on air quality (Perda No. 5 and No. 17 Year 2005 concerning
Emissions Standards and Ambient Air Quality Standards). Palembang also has a Mayoral
Decree on the implementation of ambient air quality measurement and analysis in major
arterial road intersections. Additional research is needed to determine how these regulations
affect and contribute to the development of the CAP.
3.1.3 Climate Change Mitigation
Indonesia accessed the United Nations Framework Convention on Climate Change
(UNFCCC) in 1994 and is a signatory to the Kyoto Protocol which it ratified in 2004. The
2007 National Action Plan (NAP) on Climate Change is Indonesia’s guiding document on
climate change efforts. It guides various agencies in carrying out efforts to tackle climate change
and sets the requirements for institutional coordination.
The National Council for Climate Change was established to coordinate the implementation
of climate change mitigation efforts. Headed by the President, the Council functions as
Indonesia’s Designated National Agency for the clean development mechanism (CDM), and is
responsible for assessing, evaluating, and monitoring CDM activities in Indonesia. The
National Development Planning Agency (Bappenas) has also issued a National Development
Planning Response to Climate Change. This document aims to mainstream environmental
and natural resource considerations into the development planning process. It also discusses
funding mechanism for climate change mitigation and adaptation programs. The Ministry of
Environment is the lead agency for identifying ‘Measurable, Reportable and Verifiable’
mechanisms for National Appropriate Mitigation Actions in Indonesia.
3.2 Administrative Framework
The current distribution of responsibilities of relevance to the CAP is shown in Table 3.1.
Table 3.1: Broad Responsibilities for Functions Affecting Air Quality
Function
Responsibility
Regional coordination
Mayor of Palembang
Palembang City Planning Agency
Urban and regional planning/
management
Palembang City Development Planning Board
Palembang City Planning Agency
11
Function
Responsibility
Strategic infrastructure planning, provision
and maintenance
Palembang Public Works Agency
Palembang City Parks Agency
Energy and environmental policy &
standards
South Sumatra Environment Agency
Monitoring and awareness raising
Palembang Environment Agency
Regulation of private and public vehicles &
drivers safety and emissions
Indonesian Police Department
Palembang Transportation Agency
Palembang Environment Agency (?)
Provision of bus & taxi services
Private Sector
Traffic and street management
Palembang City Traffic Police Department
Industrial compliance
City Agency of Industry
Solid waste management
Palembang Sanitation Agency
Agricultural waste burning
Palembang Sanitation Agency
Palembang Environment Agency
Source: CAP Roadmap team; verification from City of Palembang is needed.
3.3 Previous Attempts to Improve Air Quality
In 2009, the City of Palembang contracted a consultant to prepare a Clean Air Plan. The
process utilized citizen input and resulted in a report produced in November 2009. The plan
does not appear to have attained significant public support for its implementation, with some
participants complaining of a lack of clarity on the process and follow-through from the
government. Additional discussion is needed to determine the shortcomings of that plan and
how to address them.
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4.0 Organizational, Stakeholder and Public Participation Approach
This section presents an initial description of the relevant stakeholders whose views need to
be incorporated during the preparation of a Clean Air Plan. It also describes the team’s initial
perception of the critical issues to each stakeholder group, and a suggested process for
improving public participation.
4.1 Stakeholder Groups
The following is an initial list of stakeholder groups. The team recognizes that a
comprehensive listing is generally not possible at the outset, as important individuals and
groups will emerge as part of the roadmap process.
4.1.1 National Government
Primary responsibility for air quality concerns lies with the Indonesian Ministry of
Environment, which is coordinating GTZ’s implementation of this project in Indonesia. In
addition, the Ministry of Transport & Communication’s Department of Transportation
implements programs which affect transport and air quality. Two of these programs, bus
rapid transit and CNG conversion, are now in active implementation in Palembang.
Additional agencies that may be relevant at the national level are: Directorate General of Oil
and Gas (Ministry of Energy and Natural Resources), for CNG policy; Police Department, for
vehicle inspection & maintenance enforcement; Fiscal Policy Agency, regarding tax incentives
for low emission vehicles, CNG conversion kit, AAQMS, etc.; National Planning Agency
(BAPPENAS), to integrate the CAP in long-term / mid-term national development planning
and the national blue print); Department of Public Works, transport infrastructure; and Land
Use Planning Directorate General, for spatial planning. Programs supported by foreign funds
have to be reported to BAPPENAS for coordination purposes.
4.1.2 Provincial Government
The South Sumatra Provincial Government is based in Palembang City and in some areas has
overlapping roles with the City Government. In particular, transport and land use projects
that span a wider geographic area than the city itself are implemented through the Provincial
government. At the present time, the team is aware of one JICA project in the transport
sector being implemented through the provincial transportation agency. The provincial
government is also involved in land use decisions, including the citing of industry and other
point source emissions, which may impact air quality in Palembang.
13
4.1.3 Palembang City Government
The Palembang City government is the primary public agency for implementation of actions
to improve air quality in the city. Actions are implemented on behalf of the Mayor by the City
Secretary. The city planning agency (BAPPEDA) provides coordination among the agencies
involved and integrates their actions into the planning process.
The team anticipates further discussions with the Palembang City government to clarify how
the CAP can best be managed and implemented, with full consideration to the aspects
identified in Sections 5 & 6 of this document.
4.1.4 Civil Society
During the initial team visit to Palembang, issues emerged regarding the involvement of civil
society in governmental processes and actions. For purposes of discussion, civil society is
broadly divided into 3 segments: NGO, academia and community.
Non-Government Organizations
The NGOs interviewed during initial meetings indicated they were strongly active in broader
environmental issues including land use, wetland protection, conversion of land to palm oil
plantations, forest destruction, and burning of natural areas. They expressed a frustration with
previous initiatives to address environmental issues and the involvement processes utilized.
Experience with previous international programs also left participants with questions about
the purpose and follow-up from their involvement. This frustration has also been expressed
by other NGOs in Palembang and appears to be a result of decentralization leaving local
governments inadequately prepared to handle public involvement process (Sarosa et al. 2008).
During this process, the following NGO’s were interviewed:
Name
Organization
Hadi Jatmiko & Anwar Sadat
Walhi (Friends of the Earth - Indonesia)
Ruspanda Karibullah
Network of Architecture Professionals - Indonesia
Ali Goik
Kuala Merdeka Foundation
Tubagus Rachmat
Uplink
Russyanto
Cakra Foundation
Ahmad Muhaimin
Impalm Foundation
Ade Indriani Zuchri
OWA
Sudanto Manulo
Indonesian Rotan
M Syarifudin
KPMB
H Awi Amir
GAPKI
Ismail Hamid
DPC Organda Palembang
During the first stages of the process identified in this document, additional meetings should
be held with NGOs and individual persons of influence to identify additional persons and
groups with interests in clean air. For example, the local chapter of the Indonesian NGO
14
‘Bike-2-Work’ may wish to be involved because of the connection between transport and
clean air. An initial list of potential NGO and community based organizations is shown in
Annex B.
Academia
Palembang benefits from several academic institutions which may be well-positioned to
support and inform the public during the preparation of the CAP. Universities can provide
data and inputs to public discussion separate from the government’s information. This can
broaden the discussion and help to build trust. The mission met with some faculty of
Sriwijaya University and learned about their ongoing research and transportation modeling.
These efforts are separate from government research, giving the potential to both verify
government conclusions and identify areas requiring further research. There is potential for
local universities to function as centers of excellence, which could help to lead initiatives for
change regarding improving air quality as a part of the development agenda.
The following members of academic institutions were interviewed:
Name
Organization
Mustopa M Batubara
PPSL University of Muhammadiyah Palembang
M Subardin
Economic Faculty, University of Sriwijaya
Indra Yustiana, Zaidun
PPLH, University of Sriwijaya
Ahmad Syafawi
Politeknik Sriwijaya (POLSRI)
Bakri
PPMAL, University of Sriwijaya
Bakri Oeman
Pasca Sarjana, University of Sriwijaya
Joni Arliansyah
Erika Buchari
Melaway A
Media
While technically in the private sector, the media frequently represents the broader public
interest. Clear communication with the media, and explanation of the issues involved, assists
in the spread of useful information to the public. Current media work shows a strong interest
in reporting on environmental issues of interest to the public, including air pollution. An
informed public is better able to follow and support efforts to improve the air quality of
Palembang. Some of the media met during the mission included:
Name
Organization
Ibrahim
LKBN Antara
Hakim K
Intel TBS
15
Health Sector
Doctors are very often aware of the health problems connected with air pollution. It is
recommended to include the association of doctors in the process of developing a CAP.
Community
In addition to NGOs, academic institutions and media, there are broader components of
community with strong interests in clean air for Palembang. Initial discussions did not
indicate a broad general awareness of air quality issues. However, developing initial
information on the clean air issue and its implications for human health, transportation,
business development and other aspects of society will help to identify individuals and
community organizations concerned about clean air. Many community base organization have
arisen to respond to public interest issues (see Annex B).
4.1.6 Private Sector
The private sector, referring primarily to business interests, has a significant role in several
aspects of Palembang’s air quality. Several large industries, including petrochemical, metal and
heavy equipment, food and beverage, leather processing, rubber processing and rubber goods
manufacturing, support Palembang’s economy, and are also point-sources of air pollutants.
The private sector also operates Palembang’s public transit vehicles under regulation of the
Palembang Transportation Agency. Palembang’s newly constructed CNG station is owned
and operated by a publicly-owned private company.
Industry can be expected to be concerned about the financial impact of any requirements to
reduce emissions from factories. Public transport operators are represented by an
organization, which is thus far supportive of the city’s plans for implementation of bus transit
improvements.
4.1.7 Visitors
Tourists and business interests from outside of Palembang are affected by the city’s air quality.
Their impressions of Palembang as a healthy, environmentally-friendly place will affect their
spending and future investment in the city.
4.2 Involvement Process
An appropriate process needs to be established for identifying stakeholders and incorporating
their concerns and suggestions into the Palembang CAP. The process itself should be
developed with key stakeholders, but the following guidelines are suggestions for initiating this
process:
16
4.2.1 Stakeholder Scoping
A broader set of stakeholders can be identified through a stakeholder scoping process. In this
process, a series of meetings is conducted with individuals and organizations potentially
interested in one or more aspects of the clean air issue in Palembang. At each meeting, the
participants are briefed on the CAP process, asked about their concerns and interests, and
asked for suggestions for other individuals or organizations who may be interested. This
process continues until no new names or organizations are identified.
4.2.2 Public Input Workshops
A series of workshops can be used to help bring in concerns, comments and suggestions from
a broad spectrum of stakeholders in Palembang. The workshops will be open to the public,
but specifically invite those stakeholders identified in the stakeholder scoping process. The
initial workshop will establish a vision statement for clean air in Palembang. Subsequent
workshops will be used to improve communication strategy, solicit additional input from
stakeholders and the broader public on the potential measures identified for the CAP, and
identify how they should be implemented. The central role of the workshops will be to
increase public awareness of the need to improve air quality, and to develop political support
from key stake holders.
4.2.3 Guidance Board Formation
A Guidance Board can be utilized to guide the process of CAP formulation. A suggested
composition and duties of the Guidance Board is described in the next section. The Board
could be formulated as an outcome of the initial public input workshop to establish a vision
for the Palembang’s clean air. The multi-sectoral group convened for the initial visioning
workshop should be utilized to establish the scope for a comprehensive CAP.
Representatives from key sectors would be chosen to be a member of the Guidance Board.
The Board will then be responsible for reporting to, and receiving additional guidance from,
the full multi-stakeholder group at subsequent workshops. This partnership between the
Guidance Board and the full stakeholder group will need to be supported by clearly defined
processes and transparency mechanisms. A successful partnership will facilitate the
implementation of each step of the CAP.
4.2.4 Transparency Mechanisms
In tandem with the above processes, mechanisms for transparency of the process would be
established. If Palembang has sufficient internet-connected computers available to all
stakeholder groups, a web-site may be the best mechanisms for keeping all stakeholders
informed of the process. This web-site could be established as part of the Clean Air Initiative
17
for Asia web site, which already has existing mechanisms for public viewing and a substantial
body of related documents of interest.
If the internet is not judged to be sufficiently available to all stakeholders, an alternative or
additional mechanism will need to be identified. This could be discussed at the first public
involvement workshop, and may include a public area in a government office, school or
library where all information relevant to the CAP’s development could be posted. Such an
area would be a useful supplement even if a web-site were used.
Appropriate press-releases, publicity campaigns, and public service advertising in the
community could be used to inform the public of the web-site and/or CAP information area.
These would form part of the overall communication strategy developed during the second
workshop.
All parties involved should seek to make their process as transparent as possible, by posting
relevant information, notes, and notices for public view. The Guidance Board should set
standards for minimum transparency of all processes. As an initial list, these standards may
include:
• List of attendees at public input workshops (with an option for attendees to choose
anonymity)
• A summary of the date, participants and key results of each meeting and workshop held
during development of the CAP, including those of the Guidance Board, Public Input
Workshops, and the Technical Team.
• Technical reports on Palembang’s air quality and mechanisms to improve it.
4.3 Oversight Process
Two primary bodies will be responsible for oversight of the process to develop a CAP for
Palembang. The Technical Team and Guidance Board will review technical data, identify
areas of concern as well as mechanisms for addressing them.
4.3.1 Technical Team
A Technical Team allows for the processing of complex information to support the actions of
the Guidance Board. The team would be a small working group of select government staff
with the possible addition of consultants or university experts. The technical team would
interact directly with counterparts on a GTZ team in the identification of data needs,
evaluation of appropriate mechanisms, and formulation of recommendations for review by the
Guidance Board.
The GTZ Team counterparts would be responsible for identifying the information and
analysis needs of the technical team and requesting the necessary expertise, resources and
18
training. The GTZ Team would be put in place with job descriptions, budget and with
individual objectives reviewed and updated every 6-months.
4.3.2 Guidance Board
The Guidance Board should be a manageable size of no more than 10-persons. In general,
the board needs to include the key government agencies that will be responsible for
implementing the plan. This can be complemented by key stakeholders from outside the
government to improve the ability of the board to reflect the needs of all stakeholders. A
possible composition for this board could be as follows:
Mayor of Palembang (Chair)
City Secretary of Palembang (Vice Chair)
Second Assistant to Mayor
Head of Palembang Planning Agency
Head of Palembang Environment Agency
Head of Palembang Transportation Agency
Representative of Provincial Government
Representative of NGOs
Representative of Private Sector
The Guidance Board would have the following responsibilities:
• Review recommendations from the technical team, and identify areas where further
information or additional solutions are needed;
• Approve location, time and agenda for public involvement workshops;
• Utilizing the results from the Public Input Workshops to include a broader range of
viewpoints in the CAP;
• Assure transparency mechanisms and the communications strategy are implemented
and up-to-date;
• Report, as individuals, to their stakeholder group and to the broader public on the
progress of the CAP.
19
5.0 Framework for a Clean Air Plan
The creation of a CAP for Palembang may follow these steps:
Step 1: Development of the Road Map to a CAP [current step]
Step 2: Establishing stakeholder involvement: How work together
Step 3: Establishing a common vision: Where want to go
Step 4: CAP development: How get there
Step 5: Implementation: Keeping the promise
5.1 Proposed Contents of a CAP
The proposed draft contents for a Clean Air Plan for Palembang is presented in Annex A.
The purpose of the draft contents list is to illustrate the range of topics that can be considered
and some of the broad inter-relationships. The final contents of the Palembang CAP will be
determined through the stakeholder process to be developed as part of the process of
implementing this roadmap.
5.2 Administrative Arrangements
The procedure for establishing the CAP needs to be further investigated so as to have a firm
legal basis and administrative framework for implementation. The development of the CAP
can be supported by establishing a Technical Team and Guidance Board as described in
Section 4. The Technical Team should be appointed by the Government so as to best provide
reliable, actionable input to the Board. The first public input workshop on establishing a
vision for clean air in Palembang can be utilized to establish the Guidance Board.
5.3 Issues to Address
During the initial identification mission, the following key issues were identified. These issues
may require further study or research, which can be supported by GTZ at the request of the
city government.
20
5.3.1 Design for Involvement of Stakeholders and Public Participation
Stakeholders interviewed, particularly those from NGOs and academia, indicated frustration
with participating in government-led efforts where the process and follow-up were unclear.
Problems experienced ranged from lack of follow-up to the protocol followed for workshop
invitations resulting in a different participant being selected each time, leading to a lack of
continuity. A key issue to resolve is how to develop a CAP in such a way that it has broad
public and government support for implementation. Section 4 suggests some initial
mechanisms to follow for improving stakeholder and public participation, but these
mechanisms will require review and modification by the stakeholders themselves.
5.3.2 Vision and Goals Workshop
A specific vision is needed to guide development of the CAP. The vision for a Clean Air Plan
needs to reflect the vision for city development, which is all embracing. Since air quality is a
regional issue, a common vision for all relevant communities in the air shed of Palembang
needs to be developed. To implement this vision, specific goals need to be identified that will
establish the role of the Clean Air Plan in contributing to the common vision.
A Vision and Goals workshop or workshops would aim to:
• Articulate the vision in simple terms and in a form on which all stakeholders can agree,
including defining more tangible objectives towards which substantial progress can
reasonably be expected. The objectives might cover such topics as (a) quality of life,
(b) economic prosperity, and (c) equitable opportunity.
• Measurable objectives contributing to each goal could also be defined, such as improved
ambient air quality measurements, improved health indicators, improved effectiveness
of the transport system for all members of society, or new investment in clean industry,
as examples of measures for economic prosperity.
The GTZ team would assist with the workshop, but the format and organization of the
workshop is an important local task. The output of the workshop would enable further
technical design of the Clean Air Plan by clearly outlining the scope, design of technical
inputs, and selection of technical performance indicators for measuring intermediate outputs
which contribute to the achievement of objectives.
5.3.3 Air Quality Monitoring Procedure
Air quality monitoring is a tool to evaluate the health risk of the population in an area. To
collect reliable data, it is necessary to measure where the people live. It is also necessary to
operate the monitoring devices following a defined procedure in order to make it possible to
compare data between different cities and areas, but also to be able to evaluate the impact of
21
abatement measures. Valid measurements of pollutants, either at emission sources or in the
ambient air, provide the public and decision-makers with information to guide their actions.
Only with a clear monitoring strategy can the goals be reached.
As described in Section 2, only limited air quality monitoring has been undertaken in the past.
The City of Palembang has recently received a state of the art mobile monitoring laboratory
that is equipped to provide reliable measurements. A strategy for the use of the new mobile
monitoring stations should be developed in line with international guidelines for air quality
monitoring. Technical assistance is needed to verify the correct operation of all equipment,
establish monitoring locations and a regular monitoring schedule, and verify reliable data
recording procedures are in place. The locations for the mobile monitoring station should be
selected carefully, so as to best estimate the pollution level in relation to the population.
Ideally, the monitoring sites would include locations near highly polluted streets and other
background locations to reflect the average conditions for the population and to serve as a
basis for model calculations. An intensive training of the operation team is very important.
Learning to correctly interpret the data will require additional technical guidance.
5.3.4 Preparing an Emissions Inventory
An emission inventory plays a vital role for planning and policy, as this provides the basis for
identification of priorities and control options in the CAP. Currently, there is no
comprehensive inventory which lists all air pollutants from all sources in a geographical area
during a stipulated period of time.
An emission inventory should be separated into three main parts:
•
Mobile sources: emission from the transportation sector by type of vehicle, including
off-road vehicles and ships;
•
Stationary sources: industry and power plants, as well as small businesses like hotel,
restaurants, bakeries and workshops;
•
Areas sources: households, painting, open waste burning, etc.
The emission inventory should include all relevant pollutants: black carbon, carbon
monoxide, volatile hydrocarbons including benzene and polycyclic aromatic hydrocarbons,
NOx, PM10, SOx, and dust re-suspension. Agricultural sources should be handled outside of
this project because the emission reduction is not the responsibility of the Palembang City
government.
5.3.5 CNG Conversion Program
Palembang has initiated a program to convert all public transport vehicles, and the city's fleet
vehicles, to allow them to use CNG fuel. This program is made possible by the Indonesian
Department of Transportation, which has provided add-on conversion kits to the Palembang
22
Transportation Agency as part of a pilot project. These kits allow vehicles with carburetorequipped gasoline (benzene) engines to also run on CNG. The purpose of the program is to
reduce exhaust emissions, while allowing use of CNG fuel resources available in Palembang.
CNG has the advantage of containing virtually no sulfur, in sharp contrast to the high sulfur
diesel fuel in Indonesia. CNG also has virtually no aromatic hydrocarbons. So, CNG is often
called clean fuel. This leads to the belief that the use of CNG automatically leads to lower
emissions of pollutants. Experience from different countries shows that by improper design,
or incorrect retrofit, the emissions (especially NOx) after a retrofit can be much higher than
these of the original gasoline vehicle. Therefore, the United Nations Economic Commission
for Europe (ECE) adopted a regulation, R 115, in order to control the emissions of
retrofitting vehicles with CNG or propane.
Preliminary investigation by the team indicated that the conversion kits being installed are not
of correct design for reducing emissions. Based on observation of the parts being installed,
and a description of the installation process by the workshop doing the installation, the kits do
not include the following essential components:
1) a monitoring device to calibrate the air:fuel ratio of the engine after the
installation of the retrofit kit at the exhaust pipe to analyze hydrocarbons in the
exhaust gas; and
2) a microprocessor controlled air:fuel ratio richness adjustment device with a
lambda probe to receive data from the exhaust gas monitoring device and adjust
the air:fuel ratio.
Without these components, running on CNG fuel with the existing add-on conversions can
result in increased fuel consumption usage and increased criteria emissions when the vehicle
operates with CNG and also when the converted vehicle operates with gasoline.
In addition, the use of CNG raises some safety concerns that are different than for gasoline or
diesel engines. Therefore the ECE also adopted a regulation, ECE R110, which covers design
criteria to minimize the safety risks. It is recommended to follow the ECE regulation.
The team strongly recommends an immediate review of the CNG add-on converter kits, and
corrective action to improve the kits. As this conversion process has already started and is
ongoing, the sooner this review can occur, the sooner Palembang can avoid the possibility of
wasted time and effort through this program.
The review program will require further design, but will approximately consist of:
• Evaluation of the design of the existing add-on kits considering safety, fuel
consumption and emissions.
• Testing of exhaust gas emissions from converted vehicles while using CNG fuel and
while using normal gasoline (benzene).
• Evaluate the equipment of the retrofit workshop.
• Evaluate the training of the mechanics in the workshop which perform the retrofit.
23
Since the converter program is being implemented by the Indonesian Department of
Transportation, this department should be fully informed of the evaluation in Palembang.
The data can inform the Department's program in other Indonesian cities.
5.3.6 Bus Transit Improvements
Palembang is in the process of implementing improvements to its public transportation based
loosely on the model of Bus Rapid Transit (BRT), which was implemented in Jakarta in 2004.
The aspects of BRT implemented in Palembang vary considerably from the norm for BRT
systems. Stations are located at curbside and are not built for high-passenger flows. No
priority measures have been utilized to prevent buses from being stuck in congestion. The
system has a strong institutional structure, however, and promises to substantially raise the
quality of public transport service available in Palembang.
The team did not find substantial analysis of expected passenger demand or a financial model
for the business operation. Such documentation is likely to exist, but could not be found in
the limited time available. In light of the importance of the TransMusi system to the future of
public transport in Palembang, the following technical assistance is suggested:
• Further review of data and research on demand, supplemented by actual ridership
numbers (the system is expected to start operation shortly).
• Evaluation of the financial model for TransMusi, and/or development of a new
financial model with various ridership projection scenarios. Preparation of an
accompanying report to explain the financial implications of TransMusi operation to the
city budget.
• Identification of complementary actions which the city could take to improve the
service and financial performance of TransMusi, such as bus priority measures,
improved pedestrian access to and around stations, integration with low-emission zones,
etc. Preparation of an accompanying report to explain the financial and service
implications of the complementary measures.
5.3.7 Building on Pedestrian and Bicycle Friendly Initiatives
The City of Palembang has recently implemented bold moves to improve the city for
pedestrian and bicycle travel, which have brought international attention. After restoring a
large section of riverfront for pedestrian access, the city plans to extend pedestrian and bicycle
use along a substantial section of the urban riverfront. Additional pedestrian improvements
are planned along major streets. On 13 June 2009, the city initiated weekend morning car-free
streets (known as ‘Car Free Day’ in Indonesia), in selected areas. The city would like to
expand this program.
There may be potential to utilize the car-free and pedestrian initiatives to implement lowemission zones in selected areas of Palembang. A low-emission zone is an area of the city
24
restricted to only those motor vehicles that meet stricter emission standards than otherwise
enforced. Qualified vehicles would be identified by a sticker. The sticker would be given only
if the vehicle meets stricter emission norms (e.g. Euro 2) and after the vehicle passed an
emission test. Motor vehicles without a sticker would not be allowed in the area. The testing
and sticker system would be implemented through standard operating procedures coupled
with a management and training program with the agencies involved. (The process followed
to develop the procedures could then serve as a basis for establishing an inspection and
maintenance system throughout Palembang.)
Different emission requirements could be established for motorcycles, cars, buses and trucks.
Depending on the desires of the stakeholders involved, these requirements could be as strict,
or more strict, that current government standards. The low-emission zone provides incentives
for motor vehicle owners to upgrade to a lower emission vehicle, so as to allow them access to
that zone. The low-emission zone might also be prioritized for developing an effective bike
lane system that integrates with the bikeway planned for the Musi River waterfront.
The development of a zone requires intensive input from the public, especially those whose
residence or business is located in the zone. The discussion necessary to implement a lowemission zone helps to raise awareness of the air pollution problem, the role of motor vehicle
emissions, and what can be done to reduce it. Technical assistance would be required to
develop the technical and public involvement processes for implementing a low-emission
zone(s) as part of the CAP.
5.3.8 Stationary Sources Control
Under current regulations, industries are mandated to conduct self-monitoring to report their
emissions to the Environmental Agency. This data has not yet been verified. The emissions
inventory will identify the main stationary or point sources creating excessive pollution.
Emission distribution modeling will be used to highlight where existing regulations on
emission standards and their enforcement, for different type of point sources, need to be
strengthened.
The current status of major stationary sources, the options available to reduce emissions from
those sources, and the implications for all stakeholders will be reviewed during the preparation
of the CAP.
5.3.9 Integrating with Related Programs
During the mission, some potentially related programs were identified which could affect, and
in some cases synergize with, efforts to implement a CAP for Palembang. A preliminary list
of these programs, and potential programs, includes:
JICA – Assistance to the provincial government regarding road transport
infrastructure and river transport. Study on mobile source emissions in Palembang.
25
CDIA (Clean Development Initiative for Asia) – Enhancing public transport and nonmotorized transport components of Palembang’s Green Transportation Program.
Includes feasibility studies for mid-term infrastructure investments, plus a marketing
plan and capacity development. 8 Details may include a study of mass transport;
‘Palembang city walking’ including accessibility study for walking on central part of
bus transit corridor; and bus transit ticketing management.
GTZ SUTIP (via Indonesian Department of Transportation) – TransMusi technical
assistance, such as operational plan.
INDII (Indonesia Infrastructure Initiative - AusAid) – physical infrastructure related
to TransMusi (bus stop, pedestrian sidewalk), and potential for connection of
TransMusi to river transport.
Seoul City government – City-to-City Memorandum of Understanding for providing
transportation expertise
Citynet – training on transportation management
Indonesian National Planning Department (Bappenas) – Public-Private Partnerships
for multimodal terminals.
World Bank – interest in developing sustainable transport projects in smaller
Indonesian cities
This list of potential projects needs to be validated and the potential for cooperation and
coordination discussed with parties that intend to go forward.
8
CDIA Newsletter. Volume II, Issue 1. December 2009 – January 2010.
26
6.0 Roadmap
This draft of the roadmap broadly outlines the schedule of key activities required to complete
the preparation of a Clear Air Plan for Palembang over the coming year. The activities and
timeline will be reviewed and improved as the process toward a CAP for Palembang
continues.
6.1 Key Activities
6.1.1 Management Process
• Establish Technical Team and GTZ counterpart team.
• Conduct series of stakeholder scoping meetings; develop agreement on mechanisms and
procedure for stakeholder involvement.
• Establish Guiding Board and commence regular meetings
• Preparation of Clean Air Plan, including implementation program.
6.1.2 Public Involvement Process
• Conduct Vision and Goals workshop as first public input workshop. A multi-sectoral
stakeholder partnership would be formed in this workshop to escort all of the CAP’s
development and implementation.
• Conduct Findings and Options workshop: consolidated reporting of all findings and
possible options for consideration by public and decision makers;
• Conduct Communication Strategy workshop to formulate an effective process to raise
public support for improving air quality, and to strengthen political support;
• Conduct Proposals workshop: evaluation of costs, benefits and dis-benefits and
implementation strategy; and
• Conduct CAP Presentation and Implementation workshop: presentation of completed
plan, review of remaining issues, initial implementation steps
6.1.2 Technical Process
• Conduct rapid review of CNG conversion program.
• Review air quality data; establish procedures for implementing use of mobile monitoring
station.
• Inventory emissions for all relevant sources, including stationary and mobile sources.
27
• Evaluate related programs and optimize synergy
• Review demand estimates for TransMusi and prepare / revise financial model for
operation of the system.
• Prepare options for enhancement of TransMusi service and financial performance.
• Review vehicle inspection system and vehicle emission norms in preparation for lowemission zone implementation;
• Prepare and execute public involvement process for low-emission zone creation.
• Analyze options for control of stationary sources
6.2 Schedule
The overall schedule for the roadmap for preparation of a Clean Air Plan for Palembang is
shown in Figure 6.1. It is envisaged that a sound Clean Air Plan can be prepared within eleven
months.
6.3 Human and Financial Resources
Human and financial resources required to implement the roadmap process will need to be
further defined as a clearer picture of the issues to be addressed emerges. An initial structure
for estimating of likely resources required and the expected source is shown in Table 6.1. This
needs to be further populated with various activities and resources as they are agreed upon.
Table 6.1. Initial list of human and financial resource requirements.
Item
Purpose
Source
Technical Team Staff
Drive initial project preparation; coordinate
technical input
Palembang
government
Technical Team
Counterparts
Coordinate needed expertise and inputs from
GTZ
GTZ
Stakeholder and
Transparency Processes
Develop public involvement in creating and
implementing the CAP
Visioning Workshop
Establish common vision; formalize Guidance
Board
Guidance Board Staff
Coordinate guidance board meetings, provide
meeting location and snacks
Findings and Options
Workshop
Present findings to stakeholders and develop
options to pursue
Communication Strategy
Workshop
Identify and establish a strategy for
communication about the CAP with the public
and key stakeholders
28
Palembang
government
Proposals Workshop
Review and identify promising options for
improving Palembang’s air quality
CAP Presentation
Workshop
Review the CAP
CNG converter program
rapid review
Establish procedures for
mobile monitoring
Emissions inventory
TransMusi demand and
finance analysis
TransMusi enhancement
options
Review vehicle inspection
system
Low-emission zone
communication process
Stationary Source Control
Options
Budget amounts for the above items will be estimated after the Terms of Reference are
prepared for each activity. Subject to confirmation between GTZ and the Guidance Board it
is envisaged that GTZ will mobilize experts from time to time to assist the Technical Team to
undertake work on key topics.
29
Figure 6.1: Schedule
for Implementation
of Palembang Clean
Air Plan Roadmap
30
References
Abubakar, H. Report of Motor Vehicle Emission Check 2009. Palembang Environment
Agency, 27 March 2009.
Sarosa, Wicaksono; Ari Nurman and Misbahul Hasan. Mission Report: Palembang, South
Sumatera. Decentralization Support Facility, Jakarta, Indonesia.
http://www.dsfindonesia.org/userfiles/Palembang%20Mission%20Report.pdf 26
March 2010.
[Note: Additional citations for references used are being prepared]
31
Annex A: Draft Contents for a Clean Air Plan for Palembang
The proposed draft contents for a Clean Air Plan set out below can be adjusted as needed
pending the outcome of the roadmap process for Palembang. The purpose of the draft
contents list set out below is to illustrate the range of topics that will be considered and some
of the broad inter-relationships.
S1. Summary
1. Why a Clean Air Plan is needed
a. Background
b. Objective and Scope
c. Approach
d. CAP team
2. Vision for Clean Air and Good Health in Palembang City
a. Vision
b. Goals
c. Objectives
3. Current Situation and Future Baseline Trends
a. Context within the Province and Indonesia
b. Population and Economy
c. Urban Development Pattern
d. Meteorological Conditions
e. Transport Conditions
f.
Industry
g. Agriculture
4. Current Legal Framework for Air Quality Management and Source Control
a. Environment including Air Quality Laws, Standards, Regulations and
Policies
b. Transport infrastructure and supply and demand
32
c. Urban Development and Building Approval
d. Current Decision Making Framework and Interagency Coordination
5. Sources of Air Pollution and Health and Other Impacts
a. Current Standards and Monitoring
b. Ambient Air Quality Standards
c. Daily and Seasonal Trends
d. Indoor Air Pollution
e. Exposure Issues
f.
Pollutants and Sources
i.
External Sources – agricultural burning
ii.
Industry and other stationery sources
iii. Other open sources
iv. Transport
g. Key Pollutants and Health Impacts
h. Climate Change and Other Environmental Impacts
i.
Baseline Forecasts
6. Proposed Interventions including Costs and Benefits
a. External Sources – agricultural burning
i. High Priority
ii. Longer term
b. Industry and other stationary sources
i. High Priority
ii. Longer term
c. Other open sources
i. High Priority
ii. Longer term
33
d. Transport
i. High Priority
ii. Longer term
e. Related initiatives including Spatial and Urban Form Management
i. High Priority
ii. Longer term
7. Potential Impact of Interventions
a. High Priority Only
b. All Interventions
c. Other Combinations
d. Conclusion on Potential Contribution to Achievement of Vision
8. Recommended Action Plan (including Costs and Benefits)
a. External Sources
b. Industry and Stationary Sources
c. Other Open Sources
d. Transport
e. Spatial and Urban Form Management
f.
Monitoring and Analytical Support
g. Recommended Demonstration Projects
h. Clean Air Information Dissemination
9. Regulatory and Governance Requirements
10. Developing a Longer Term Program
Supporting Annexes
34
Annex B: Initial List of Relevant Civil Society Organizations
Table B.1: Initial List of Civil Society Organizations
Name of Organization
Area of Concern
WALHI – South Sumatra
Environment
IMPALM
Green map
UPLINK
Urban poor
Yayasan Rattan
Urban poor
Bike-2-Work
Bicycle transport
LBH Palembang
Legal aid
Yayasan Puspa
Flora
Yayasan Spora
Biodiversity
Perserikatan OWA
Urban poor
Kobar 9
Human right
Wahana Bumi Hijau
Green zone and spatial planning
WCC
Biodiversity
Yayasan Kuala Merdeka
Civic education
Forum Wong Kito Palembang
City forum
Yayasan Surya Tamira
Urban development
WALHI Institute Sumatra Selatan
Environmental research and study
Sahabat WALHI Sumatra Selatan Komunitas
Masyarakat 5 Ulu
Environmental education for youth people
Komunitas Masyarakat Karya Jaya
CBO
Komunitas Masyarakat Ibul Besar
CBO
Komunitas Masyarakat Al-Munawar
CBO
Komunitas Masyarakat Kuto Batu
CBO
Komunitas Masyarakat Sabo Kingking
CBO
Sriwijaya University:
Academia
•
Civil Engineering
Academia
•
Architecture
Academia
•
Mechanical Engineering
Academia
•
Environmental Science
Academia
Muhammadiya University:
Academia
•
Civil Engineering
Academia
•
Architecture
Academia
35

Draft Road Map

Transcription

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