Who bears the burden of the plastic waste crisis?

Plastic waste has long been an issue in Nepal, with plastic litter found everywhere—from the world’s highest peak, Sagarmatha, to the rivers of the Tarai plains. But who is responsible for managing this waste?

The Local Government Operation Act of 2015 mandates local governments to manage waste effectively. However, the lack of adequate budget, resources, and awareness at the local level hampers these efforts.

While the distribution of royalties from natural resources is clearly outlined, with 50 percent allocated to the federal government and 25 percent each to the provincial and local governments (as per Section 7 of the Intergovernmental Fiscal Management Act, 2017), local governments in domestic tourist destinations often miss out. They struggle to benefit from the center or the National Natural Resources and Fiscal Commission (NNRFC).

The Constitution of Nepal (2015) grants the NNRFC the authority to recommend how investments and returns from natural resources should be shared among the three tiers of government. However, local governments in tourist hotspots do not receive sufficient budget or attention from the authorities.

Many local bodies lack essential infrastructure, such as landfills and garbage trucks. A 2019/20 survey by the Central Bureau of Statistics (CBS) of 271 municipalities found that while 85.6 percent of municipalities reported having waste transportation services, rural municipalities have made minimal efforts to manage plastic waste, often citing budget constraints.

Ramhari Gyawali, spokesperson for the NNRFC, explained that all 753 local levels in Nepal receive a share of royalties based on their contribution to royalty collection. This means that localities with thriving local tourism—especially those benefiting from rivers and forests—often receive a smaller share due to their lower contribution to royalties.

Local levels lack updated data on plastic waste, hindering systematic solutions

Take Sailung, located 3,146 meters above sea level in Dolakha district, as an example. It has recently become a popular hiking destination for domestic tourists, but the sight of scattered plastic waste detracts from its natural beauty. This issue is not confined to Sailung; it is prevalent across many tourist destinations and hiking trails in the country, including popular spots like Shivapuri, Jamacho, and Phulchowki, as well as along rivers in tourist areas.

What happens to the plastic waste? Often, it is either left behind or burned—both of which contribute to environmental degradation and climate change. Burning plastic releases harmful toxins, severely affecting air quality. Environmental expert Ujjwal Upadhyay, project team leader for the Collaborative Approach for Preventing Plastic Leakages in Rivers of Nepal (CAP), warns that burning plastic is a dangerous practice, as it directly harms the air and public health, even increasing the risk of cancer.

Nepal, famous for its majestic mountains and cultural heritage, now faces a hidden menace: plastic pollution. Despite existing laws aimed at reducing plastic use, single-use plastics continue to accumulate along the nation’s rivers and trails, burdening local communities and tourism. The question remains: what is the true cost of plastic pollution?

Kalapani, located in Sailung Rural Municipality-8, serves as the gateway for visitors heading to Sailung. The area is home to several hotels catering to tourists, but it is also burdened with significant plastic waste.

The ‘Tourism Master Plan of Kalapani and Sailung Area (2022-2032)’, prepared by Sailung Rural Municipality, highlights the importance of agriculture as the primary occupation of local villagers. The report notes that 38 percent of the total land area in Sailung is arable, though it is increasingly affected by changing climate patterns.

As noted by Bishnu Maya Shrestha, a local resident of Kalapani, snowfall—once reliable from mid-October—is now sparse, occurring only around February. This shift has a detrimental impact on local agriculture, with crops like cauliflower, corn, wheat, and potatoes showing decreasing yields.

Yet, the same report does not address one of the most immediate challenges: plastic waste generated by tourism. The lack of waste management initiatives exacerbates the problem.

Rimal Babu Shrestha, chair of Sailung Rural Municipality, acknowledges the issue but says they have not yet considered waste management for Sailung. “We sometimes collect plastic waste from the area and burn it,” he told ApEx. “Banning plastic is not an option, as implementation would be difficult,” he added. 

According to Shrestha, the rural municipality has no data on waste production, nor are there dustbins for tourists along the hiking trail. This lack of infrastructure highlights the broader challenge faced by local governments: a lack of resources, awareness, and effective policies to address plastic pollution.

Similarly, Khadichaur, located in Balephi Rural Municipality-7 of Sindhupalchowk district, is another popular spot for local tourists, where visitors enjoy the Sunkoshi River and local fish. However, like many other areas, the riverbanks are littered with plastic waste. Hotels along the riverbank dispose of their plastic waste directly into the river. When this journalist asked one hotel owner why they were discarding waste into the river, he simply replied, “Everyone does it.”

A similar situation exists in Balephi Rural Municipality. The local body does not collect waste. Ganga Bahadur Tamang, chairperson of Balephi Rural Municipality, explains that they lack a landfill site, which is why waste collection is not feasible. “We’ve asked hotel owners not to dump waste in the river, as the area is a tourist site, but they don’t listen,” he says. “We also don’t have a policy to impose fines.”

While tourism has undoubtedly contributed to Nepal’s economy, it has also exacerbated plastic consumption and waste. This growing problem not only threatens the environment but also tarnishes Nepal’s reputation as a pristine tourist destination. In fact, reports and social media posts from tourists reflect concerns over the visible plastic waste, a negative image that could impact Nepal's tourism industry.

Beyond tourism, plastic pollution imposes hidden costs on local communities. Local governments near popular tourist trails and urban areas face the burden of waste management, yet they lack the resources and infrastructure to cope with the volume of waste. Consequently, waste is often dumped in rivers or open spaces, exacerbating the problem.

Madhav Karki, an environmentalist and chief advisor to the Minister for Forests and Environment, highlights the additional dangers of plastic waste, such as its ability to block river flows and drainage systems, which can lead to floods. “Plastic waste also infiltrates agricultural fields, harming soil quality and crop yields,” he adds. “Communities that rely on local rivers for irrigation and drinking water face the risk of contamination as plastic waste degrades and releases toxins.”

In addition, inadequate waste disposal methods mean that plastic litter is often burned in open pits, releasing harmful toxins that pollute the air and threaten public health. Local residents near trekking routes are particularly vulnerable to the health and economic impacts of plastic pollution.

In many municipalities across Nepal, waste is disposed of improperly, with some even using forest land for disposal. Even cities like Bhaktapur and Kirtipur dump waste on riverbanks and in public areas. A 2020 study by the UNDP Accelerator Lab Nepal revealed that urban areas generate over 350 tons of plastic waste daily, with nearly a third of this waste ending up in rivers.

Upadhyay explains that the presence of plastics in rivers ultimately impacts human health. Microplastics from contaminated river water enter the food chain, affecting crops and aquatic animals, which humans then consume. A study reported by ‘The Guardian’ in Aug 2024 found that brain samples collected earlier that year contained, on average, approximately 0.5 percent plastic by weight. This discovery raises concerns about the potential health implications of microplastics accumulating in human tissues. Previous research has shown that microplastics can enter the human body through ingestion, inhalation, and dermal contact, potentially leading to inflammation, oxidative stress, and other adverse health effects.

This issue extends to wildlife as well. A recent study found that rhinos in Chitwan National Park ingest plastic items of various sizes and shapes, posing serious risks to their health and survival. Published in the journal ‘Global Ecology and Conservation’, the study analyzed 258 dung samples from the park, revealing that 10.1 percent contained visible plastic.

In response to the crisis, the government has implemented the Solid Waste Management Act (2011) and Solid Waste Management Rules (2013), though enforcement remains weak. One major challenge is the lack of waste segregation at the source, which complicates recycling efforts.

The Intergovernmental Fiscal Management Act (2017) unevenly allocates royalties, leaving domestic tourist hubs like Sailung underfunded for waste management. Despite the Local Government Operation Act (2015) mandate, local governments face critical shortages in budgets, resources, and essential infrastructure like landfills and garbage trucks

Nepal has a long history of attempts to ban plastic bags. The first initiative came in 1998 when Hetauda Municipality introduced a ban, though its effectiveness gradually faded over time. By 2010, other municipalities began implementing similar restrictions. In 2013, Kathmandu Metropolitan City took a significant step by enforcing its own ban on plastic bags. On 1 April 2015, the Nepal government introduced the ban on plastic bags, for the first time, following a directive from the Parliament Environment Committee. However, due to the massive earthquake, the ban could not be enforced properly.

In May 2022, the government introduced the ‘Action Plan for the Ban on Plastic Bags’, which included four key strategies: preventing the import of plastic bags thinner than 40 microns, banning single-use plastic bags thinner than 40 microns, providing grants to businesses for eco-friendly bag production, and encouraging individuals to use reusable bags while shopping.

In July 2023, the government introduced the ban on plastic bags and products that are less than 40 microns thick. This includes the production, import, sale, distribution, and use of these products.

In Oct 2024, the Department of Tourism announced a ban on the use of plastic bottles in four-star, five-star, and luxury hotels as part of a broader push toward environmental sustainability. This directive requires these establishments to use glass bottles or metal vessels for serving drinking water in hotel rooms and restaurants.

However, despite these legal reforms, enforcement remains weak.

“Political will is necessary for the strict implementation of these rules,” says Karki. “All three tiers of government, along with other agencies like the security forces, should unite and coordinate to enforce these rules.” He also adds that having similar rules nationwide would make implementation easier.

According to Upadhyay, reducing plastic use requires not only legal reforms but also a shift in people’s behavior. He also points out that Nepal lacks adequate research and data on this issue. 

Nepal’s iconic trekking trails and rivers, such as the Annapurna Circuit and Everest Base Camp, are increasingly burdened by plastic waste left behind by trekkers. Meanwhile, popular rivers like the Bagmati, Koshi, and Gandaki are heavily polluted by discarded plastic.

In response, the government launched the Sagarmatha Clean-Up Campaign in 2019 to raise awareness about plastic pollution in the mountains. Through the campaign, the Nepali Army has since collected around 119 tons of waste, with most of it being plastic.

Ang Babu Sherpa, leader of the Sherpa team for the ‘Mountain Clean-Up Campaign’, stated that up to 40-50 tons of garbage may still remain at South Col, the final camp before climbers attempts the summit, according to the Associated Press. “The waste there consists mainly of old tents, food packaging, gas canisters, oxygen bottles, tent packs, and climbing ropes,” he explained, noting that the garbage is layered and frozen at the 8,000-meter altitude of the South Col camp.

In recent years, a government mandate requiring climbers to return their trash or forfeit their deposits, combined with increased environmental awareness among climbers, has greatly reduced the amount of waste left behind. However, this was not the case in past decades.

According to Nepali Army spokesperson Brigadier General Gaurav Kumar KC, the Army’s role in national parks is limited to providing security, not collecting waste from hiking and trekking trails. He stresses the need for collaboration among the national park office, the Army, and other relevant departments and government agencies for effective waste control and management. “There should be strict rules and awareness initiatives for visitors at checkpoints. However, these rules won’t be practical if we don’t have sufficient dustbins in the area,” he explains. “Frequent signage indicating dustbin locations is also necessary to encourage proper waste disposal.”

Since waste collection falls outside the Nepali Army’s responsibilities, they do not have data on it. ApEx reached out to the information officer of Chitwan National Park for data on waste collection in the area, but they also lack any related records.

A survey conducted in 58 municipalities of Nepal in 2012 found that the average municipal solid waste generation was 317 grams per capita per day, amounting to 1,435 tons daily or 524,000 tons annually. 

A 2019/20 baseline survey by the CBS of 271 municipalities revealed that only 12 (4.4 percent) used transfer stations for waste processing.

Additionally, 99 municipalities (36.5 percent) had waste management plans, while 57.2 percent did not. Among the surveyed municipalities, 114 (42.1 percent) used landfill sites, 117 (43.2 percent) did not, and 14.8 percent did not report about their landfill site status.

And this is the latest data CBS has.

“Plastic waste management is not only Nepal’s problem, but a global crisis. However, many other nations and cities have banned it and enforced rules to properly address this issue,” Karki says, emphasizing that it is not an impossible task. “We should learn from international practices and implement them here as well.”

While international examples like Bhutan’s ban on plastic and Kenya’s policy against plastic bags offer hope, Nepal’s success in tackling plastic waste will depend on effective local solutions, such as waste segregation at source, recycling programs, and raising awareness about plastic’s environmental impact.

“Many countries have started producing electricity, bricks, cement, bitumen, and other products from plastic waste,” says Karki. “We should follow the 3Rs—reduce, reuse, and recycle,” he suggests.

This story has been produced with the support of the Internews Earth Journalism Network through the Media for Inclusive Green Growth project