Integration of the informal sector into municipal solid waste management in the Philippines – What does it need?

Waste Management 32 (2012) 2018–2028

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Integration of the informal sector into municipal solid waste management in the Philippines – What does it need? Johannes G. Paul a,⇑, Joan Arce-Jaque a, Neil Ravena b, Salome P. Villamor b a b

GIZ-AHT Project Office SWM4LGUs, c/o DENR, Iloilo City, Philippines General Service Office, City Government, Iloilo City, Philippines

a r t i c l e

i n f o

Article history: Received 28 November 2011 Accepted 15 May 2012 Available online 5 July 2012 Keywords: Material recovery Waste pickers Informal sector integration Capacity development

a b s t r a c t The integration of the informal sector into municipal solid waste management is a challenge many developing countries face. In Iloilo City, Philippines around 220 tons of municipal solid waste are collected every day and disposed at a 10 ha large dumpsite. In order to improve the local waste management system the Local Government decided to develop a new Waste Management Center with integrated landfill. However, the proposed area is adjacent to the presently used dumpsite where more than 300 waste pickers dwell and depend on waste picking as their source of livelihood. The Local Government recognized the hidden threat imposed by the waste picker’s presence for this development project and proposed various measures to integrate the informal sector into the municipal solid waste management (MSWM) program. As a key intervention a Waste Workers Association, called USWAG Calahunan Livelihood Association Inc. (UCLA) was initiated and registered as a formal business enterprise in May 2009. Up to date, UCLA counts 240 members who commit to follow certain rules and to work within a team that jointly recovers wasted materials. As a cooperative they are empowered to explore new livelihood options such as the recovery of Alternative Fuels for commercial (cement industry) and household use, production of compost and making of handicrafts out of used packages. These activities do not only provide alternative livelihood for them but also lessen the generation of leachate and Greenhouse Gases (GHG) emissions from waste disposal, whereby the life time of the proposed new sanitary landfill can be extended likewise. Ó 2012 Elsevier Ltd. All rights reserved.

1. Introduction 1.1. Informal sector situation in developing countries Although the ultimate responsibility to manage solid waste is a legally prescribed municipal task in most countries, solid waste management (SWM) services are inadequately provided in many municipalities in the developing world. A large portion of residents does not receive waste collection services and most of the disposal sites are poorly operated (Diaz et al., 2007; Ball, 2007; Gonzenbach and Coad, 2007). Formal private sector involvement remains low in general due to various reasons such as insufficient legal guidance, low sector development, restricted funds and lack of know how to sustain waste management services. Hence, in many developing countries waste collection and material recovery activities are taken over by the Informal Waste Sector (IWS) to a large degree. Various studies revealed that the contribution of the informal sector to recover materials from municipal waste is much higher than from

⇑ Corresponding author. Tel./fax: +63 33 5099788. E-mail address: [email protected] (J.G. Paul). 0956-053X/$ - see front matter Ó 2012 Elsevier Ltd. All rights reserved. http://dx.doi.org/10.1016/j.wasman.2012.05.026

formal waste management services in developing countries (Wehenpohl and Kolb, 2007; Medina, 2008; Scheinberg et al., 2010; Gerdes and Gunsilius, 2010; Hetz et al., 2011). The IWS is considered as the most directly vulnerable group in municipal SWM. Informal sector in SWM may refer to individuals, families, and private sector (micro-) enterprises working in SWM services, whose activities are neither organized, sponsored, financed, contracted, recognized, managed, taxed, nor reported upon by governmental authorities (Wiersma et al., 2008; Gerdes and Gunsilius, 2010). Involved stakeholders are waste pickers in dumpsites and at communal waste collection points, informal waste collectors, itinerant waste buyers, small junkshop dealers, and collection crews of garbage trucks. Many studies worldwide have shown that informal sector recycling activities largely contribute to reduce cost for SWM, provide livelihood for the urban poor, but can also result in positive or negative effects for the environment (SWAPP, 2006; Diaz et al., 2007; Wehenpohl and Kolb, 2007; CWG and GIZ, 2011; Gunsilius, 2011). As SWM systems evolve, privatization and implementation of new SWM technologies can enhance operational and environmental performance of SWM systems, but may restrict the access for the IWS to recover materials out of the waste stream likewise. This

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can threaten their livelihood or displace them into an unknown future. If not addressed properly such changes may create resistance of the IWS and even trigger actions to sabotage new SWM activities that would exclude them (Ball, 2007). Hence, many studies recommended to integrate rather exclude representatives of the IWS into SWM modification programs or envisioned privatization processes at the earliest possible stage (Diaz et al., 2007; CWG and GIZ, 2011; Hetz et al., 2011). 1.2. Local situation in Iloilo City Iloilo City is the regional capital of the Western Visayas Region. It is the second largest urban growth center in the Visayas with more than half a million inhabitants. The City provides various central services for the region such as banking, schools, university education and hospitals. Iloilo City is one of the most accessible cities of the Philippines, having an airport that connects the city with Manila and Cebu, and having ports that offer boat and fast ferry connections to various larger cities in the Philippines. Fig. 1 shows the location of the study area at the eastern side of Panay Island in the Western Visayas region. As stated in the municipal SWM plan, around 300 tons of municipal solid wastes are generated every day (Iloilo City, 2006). However, in average only 220 tons/day, respectively 73% of the generated waste is collected by the involved private contractor at present. According to the local waste ordinance, wastes have to be segregated at source into biodegradable and residual wastes. There is no house-to-house collection system, unless private complaints occur and an exceptional collection has to be made. Householders or domestic helpers have to bring the waste to the local Material Recovery Facilities (MRF) or the collection points of the community on specific days for each kind of waste. A private service provider is contracted by the municipal government to collect the waste daily either from the local MRFs or from the designated collection points and transport the wastes to the only existing dumpsite of the city, which is located around 5 km from the city center at Barangay Calahunan. In past, the municipal waste collection was done by night. Due to low efficiency of the waste collection and to better control the dumpsite operation, the collection time was switched to now 5 am to 8 pm. The dumpsite is owned by the Iloilo City Government and is operated by the General Service Office. This site has been operated

Fig. 1. Location of study area.

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as an open dumpsite and has no collection or treatment system neither for leachate nor for landfill gases. In 2007 the Department of Environment and Natural Resources (DENR) has issued an authority to close the open dumpsite. Subsequently the City Government has started the rehabilitation and development of the dump into a transitional disposal site and is now preparing the construction of the future sanitary landfill. Although waste segregation at source is mandated, a considerable amount of valuable and sellable materials is still contained in the collected wastes and delivered to the dumpsite where around 300 waste pickers dwell who recover certain materials as base for their livelihood. As much as the waste picking activities and selling of reusable materials enables them and their families to survive, their presence at the disposal site complicates the efforts of the municipality in rehabilitating the same and in implementing new waste management projects. Hence the City government proposed to enhance the management of material sorting and recovery, composting and waste disposal. To integrate local waste pickers into the municipal SWM program, the municipality initiated the formation of a new Livelihood Association, the USWAG Calahunan Livelihood Association Inc. (UCLA) in 2009. Main objective of this measure was to formalize their status as waste workers and to enroll them into skills development programs in order to strengthen them as partner of the municipality.

2. Legal framework The Republic Act 9003, also known as the ‘‘Ecological Solid Waste Management Act of the Philippines’’ that came into effect in the year 2001, promotes the paradigm that waste is a resource that can be recovered. It determines that the local government units (municipalities and barangays1) are the primary institutions to implement this act, and promotes active collaboration with the private sector and associations working on SWM. It encourages reduction of waste at source, recovery, recycling and reuse of wastes, creating mandatory targets. It called for at least 25% waste diversion by 2006 and increasing values every 3 years thereafter, whereas waste diversion is defined as the portion of materials to be recovered from the public waste collection. To achieve this goal, every barangay has to establish a Material Recovery Facility (MRF), implement segregation at the source as well as collect and process recyclables and biodegradables (Republic of the Philippines, 2001). While Republic Act 9003 emphasizes the importance of reduction, reuse and recovery, it also prohibits waste picking in segregation areas or disposal facilities, unless the owner or operator allows it. The only way in which the informal sector is directly taken into account is allowing the participation of a representative from a junkshop owners’ association in the SWM committees of the barangays. However, the waste legislation also encourages cooperatives and associations that promote or help execute the act, giving the opportunity to integrate the informal sector into SWM. Other important laws also consider the informal waste sector. The Local Government Code of the Philippines (Republic Act 7160, Republic of the Philippines, 1991) states that municipal governments have to provide basic services and facilities, as well as social welfare to different groups of the population, including waste pickers. Furthermore, the Republic Act 8425 for ‘‘Social Reform and Poverty Alleviation’’ created a National Anti-Poverty Commission in order to alleviate poverty and provide micro-finance services, from which waste pickers can benefit. Although Republic Act 9003 had set targets for waste diversion, composting, material recovery and closure of dumpsites, regulations regarding waste-to-energy options or modern waste 1

A barangay is the smallest administrative division in the Philippines.

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treatment technologies are lacking. Hence, the Department of Environment and Natural Resources (DENR) formulated and released a Department Administrative Order (DAO), which regulates the recovery and utilization of Alternative Fuels and Raw materials (AFR) for co-processing in cement kilns (DENR, 2010). A further relevant legislation released in October 2009 is the Climate Change Act of the Philippines (Republic Act 9729, Republic of the Philippines, 2009), which requires that all municipalities formulate a Climate Action Plan. The relevance of the SWM sector was emphasized in the National Climate Change Framework, which states that SWM ranks number 3 among the main contributing emitters of GHG in the Philippines with a portion of 11.6 Mio tons CO2eq/year caused by the SWM sector. This would theoretically offer a 11% mitigation potential for GHG emissions (Climate Change Commission of the Philippines, 2010). 3. SWM contributions to achieve the Millennium Development Goals (MDG) In September 2000, the Millennium Declaration was ratified at the United Nations (UN) Millennium Summit. This declaration proclaims eight (8) Millennium Development Goals (MDG), that also address the IWS and waste pickers. According to the UN more than 20 Million people worldwide depend with their livelihood on waste picking (UN, 2010). Hence, the enhancement of working and living conditions for informal waste workers could contribute significantly to achieve the international MDGs, as set for the year 2015. 3.1. MDG 1: Eradicate extreme poverty Segregation at source and recycling activities can create a variety of job opportunities for hundreds of thousands of poor people worldwide. Many poor people could earn incomes 2–3 times higher than minimum salary. By strengthening the role of the informal sector within SWM systems, the income generating effects can strongly contribute to reduce poverty and hunger. 3.2. MDG 2: Achieve universal primary education Target 3 of MDG 2 formulates that, ‘‘by 2015 children everywhere, boys and girls alike, will be able to complete a full course of primary schooling’’. In many countries, children of waste pickers are part of the daily material recovery process. They are tasked to support their parents by waste picking, to sort, clean, pack and transport recovered materials, to watch vehicles or storage sites or to care for younger siblings. Consequently, they cannot attend school. Besides, many waste pickers cannot provide the needed fees and transportation costs to let their children attend school classes. 3.3. MDG 3: Promote gender equality and empower women More than half of the informal actors in SWM are women. While men are involved in waste collection and selling of recyclables, women are mostly picking under unhealthy conditions at dumpsites or sort and wash collected materials. Hence, woman are more exposed and especially vulnerable to health hazards. By strengthening women entrepreneurs and women organizations, they are empowered to act more independently and to establish enhanced livelihoods. 3.4. MDG 4 Reduce child mortality.

3.5. MDG 5 Improve maternal health. 3.6. MDG 6: Combat HIV/AIDS, malaria and other diseases Where water drains are blocked by spread waste and cans are filled with rain, mosquitoes find ideal breeding conditions. In urban areas this considerably raises the risk of spreading diseases like malaria and dengue. In rainy seasons blocked drainage systems are a major reason for local floods and contamination of community areas with germs from faeces. Waste collecting and recycling activities of the informal sector reduce environmental contamination caused by uncollected waste and the propagation of disease carriers like rats and flies. As a result, water-induced diseases and illnesses caused by vectors, that particularly threaten infants, can be reduced.

3.7. MDG 7: Ensure environmental sustainability Higher collection rates and controlled disposal of waste prevents pollution and degradation of natural water resources, air and soil. Through its recycling activities, the IWS provides a significant contribution to environmental sustainability by making secondary raw materials available for the production of new products. The informal actors also supply basic services for unserved urban slums and therewith contribute to healthier living conditions for the inhabitants. While in the Philippines, informal waste workers have significantly contributed to the recovery and trading of recyclables, they remain a neglected sector since there are no policies/standards on when and how they could operate and being part of the MSWM system within the current legal framework. For this reason, the UNEP Regional Resource Center for Asia and the Pacific recently provided support in the development of a national framework on the management of the IWS under the Advanced Waste Management Project funded by the Japanese Government and the Institute for Global Environmental Strategies, Japan (NSWMC, 2009).

4. Methods and delineation Due to the legal prescriptions many municipalities in the Philippines are now pressured by environmental authorities to close their open and uncontrolled dumpsites since by law the closure of all dumpsites was mandated already in February 2006. However, this law forbids waste picking at landfills and hence it appears difficult to formulate entrance points to integrate or to care for the IWS by the municipalities. In order to strengthen the IWS and its role in SWM the following constraints must be overcome to develop the IWS as a reliable partner for municipal SWM from the author’s perspective:  Lack of recognition by society, lack of official support mechanism through laws or national programs, restricted access to claim civil rights and to take part in formal business activities, restricted access to health services.  Low awareness and education, no access to formal employment and hence low income, low recognition by local community, stressed food and health situation.  Unsecure workplace without supporting infrastructures, tools and equipment and poor living conditions.  Lack of weather protection and access to safe drinking water and sanitation.

J.G. Paul et al. / Waste Management 32 (2012) 2018–2028

 Unreliable income, dependency on middlemen, lack of funds to enhance work or living conditions and to provide school education for their children, lack of access to obtain funds or microfinance from donor organizations. To guide the municipality and the IWS, the involved development advisers applied already during the planning stage the Sustainable Livelihood Approach (DFID, 2005) that provides a comprehensive framework to analyze and understand the various livelihood assets and their interdependence related to vulnerability context, influencing processes, structures and intended livelihood outcomes. Fig. 2 displays main elements of the Sustainable Livelihoods Approach (SLA) as proposed by the UK Department for International Development (DFID, 2005). The SLA focuses on the people involved in a livelihood context. It does not present a stringent model of reality but is rather based on the perceived context of livelihoods by the involved stakeholders. It aims to assist stakeholders with different perspectives to engage in a structured and coherent debate about the many factors that affect their livelihood, their relative importance and the way they interact. By applying SLA, the process itself provides a method to capacitate the involved players and offers them a platform to better express their main concerns respectively formulate their objectives. With the formation of the USWAG Calahunan Livelihood Association in May 2009 (UCLA), a major milestone was reached to officially recognize the IWS in Iloilo City and to jointly work with them to enhance SWM at the Calahunan waste disposal site. Basically all of the key aspects, also called ‘‘assets or capitals’’ in the SLA were considered as comparable weak for the most UCLA members at the beginning of the development intervention in 2007. Hence, the various steps to elaborate suited strategies for IWS integration especially addressed the improvement of working conditions and livelihood outcomes of waste workers. Foremost to reduce their vulnerability context, but also to enable them to better access livelihoods with increased income. The main aspects of livelihood assets considered during the UCLA development process are summarized in Table 1. During the UCLA development process, the various meetings, trainings and workshops applied participatory methods such as group discussions, hands-on trainings, stage plays, even dances and games that featured their work environment, to create awareness and to support team building, information exchange and networking. This process was supported by providing a strategic development plan and a policy manual that proposes rules and guidelines for UCLA members (UCLA, 2010a,b). The realization of set objectives and project targets was monitored based on the official minutes from the bi-monthly conducted UCLA board meetings (Villamor, 2008).

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To assist the local government in the assessment of environmental benefits, the various development scenarios for SWM enhancement including the proposed UCLA recycling projects were evaluated using a climate calculator that estimates Greenhouse Gas (GHG) generation and climate impacts. The GHG Calculator applied in this study was developed by the German International Cooperation agency (GIZ) and the German Bank for Reconstruction (KfW). The tool contains basic routines for the calculation of GHG emissions that are generated through typical applied waste management technologies (Giegrich and Vogt, 2009). 5. Testing new options for material recovery and recycling In general, the development and intensity of ‘‘waste picking’’ and its related activities correlates with the waste composition within a specific community respectively the composition of waste delivered at dumpsites and the market demand for recyclable materials, foremost of the local market. As this may change over time, waste pickers have to adjust as well. In the case of the Calahunan dumpsite it was found that in average only 3–4% of the incoming waste at the dumpsite could theoretically be recovered and sold without further treatment (Paul et al., 2007). Presently, the municipality collects and delivers an average of 220 tons/day solid waste to the local disposal site. Hence, only around 8 tons/day of sellable materials are available to be shared by the 300 waste pickers for their livelihood. To elaborate on additional options for recycling and livelihood the assessment of the average composition of delivered waste (expected materials) provides various entrance points for strategy and project development. Fig. 3 summarizes the average waste composition in Iloilo City and indicates material fractions that could be utilized to enhance material recovery respectively to develop new recycling projects for UCLA (Iloilo City, 2006). As shown in Fig. 3, more than 60% of the MSW delivered at the Calahunan dumpsite are organic in nature, mainly kitchen, yard and market waste but also wasted paper, carton and paper packages. Light density plastics and packages represent around 15% of the delivered MSW at Calahunan. Whereas some of the organic waste was utilized as animal feeds respectively consumed by straying animals at the dumpsite, light density plastics and packages were hardly recovered and usually disposed as residual waste at the dumpsite prior to 2006. In order to establish new waste treatment/recycling facilities sufficient area needs to be provided. The following Fig. 4 shows the Calahunan location in Iloilo City and the available 21 ha site as well as the proposed sub-units for future SWM development. Around 11 ha could still be used to establish a new landfill and waste treatment projects whereas 9 ha of the former dumpsite are under rehabilitation. 1 ha of the former dumpsite was reclaimed as

Fig. 2. Main elements of the sustainable livelihoods framework approach (DFID, 2005).

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Table 1 Main ‘‘assets’’ considered during UCLA development process based on SLA (modified from Quiroga et al., 2011). Human

Social

Physical

Financial

Natural

Awareness Health Access to education Skills

Relationships Access to social support Local recognition Networks

Housing Access to infrastructure Access to public services

Main source of income Other sources of income Access to loans/ micro-finance

Living conditions Working conditions Access to resources

Waste generation Iloilo City (2006) Results (detailed data in tons/day) Metals (6.2) Glass (8.2)

Rubber Leather (1.2)

Textiles (5.1)

Fines (22.3) Plastic packages (45.1)

Special (7.5)

Residual Kitchen waste (98.0)

Paper, carton (64.1)

Results (combined data in %)

Yard waste (40.3)

Total SW generation: 298 kgs/day

14.1% SRM

SRM

Organic

9.6% 1)

46.4%

AFR (Plastic) 15.1%

AFR (Paper) 14.8%

1) – around 5 % of paper/carton contained in SRM SRM – Secondary (sellable) Raw Materials AFR – Alternative Fuels and Raw Materials

Fig. 3. Average waste composition in Iloilo City for the year 2006.

Fig. 4. Proposed site development of the Calahunan waste disposal site in Iloilo City.

a Material Recovery Facility (MRF). The ‘‘small black dots’’ that surround the waste disposal site in Fig. 4, indicate the location of numerous slum-like houses of the local waste pickers. Initially the enhancement of waste segregation at the dumpsite was tested with an in-house, mechanical segregation unit consisting of input conveyor belt, trammel screen and further conveyor units for final segregation of recoverable materials (Paul et al., 2007). Based on the experiences made the routine recovery of sellable materials (hard plastics, metals, carton, paper packages), light

density packages that could be used as Alternative Fuels and Raw materials (AFR) and organic materials for composting was started in September 2008 (Paul et al., 2009a). The produced and bailed AFR – mainly composed off light density plastic foils/bags – are utilized by an international cement manufacturer who accepts the materials at their Iloilo harbor facility for later utilization at their cement plant in Luga-it, Mindanao. Furthermore, the production of briquettes for household use (cooking) was tested with used paper and carton packages combined with sawdust and various

J.G. Paul et al. / Waste Management 32 (2012) 2018–2028

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takes into account that the built up of needed capabilities such as language, communication, behavioral, managerial and marketing skills to serve more demanding customers requires a longer time span, e.g. to serve high-end customers or foreign markets. Key measures for capacity building of UCLA members are especially summarized within the proposed strategies 4, 6, 7, 9 and 10 of Fig. 2. 7. Status of project development 7.1. Organizational development of UCLA

Fig. 5. Identified options to provide alternative livelihood for UCLA members.

agri-wastes (Paul et al., 2009b; Romallosa et al., 2011). The waste workers of UCLA were provided with simple manufacturing tools such as mixer, handpress and a solar drier station, all of them to be operated manually. The production of briquettes can be performed in individual households with the main target that waste pickers could produce their own household fuels and save cost for the buying of charcoal, the mainly used household fuel at the Calahunan site. In addition, a group of recyclers was trained to manufacture useful items for daily use out of packages (doi packs, a local name for certain soft drink packages) such as shopping bags, wallets, book covers, backpacks and others. Ongoing is the formation of an UCLA team that produces compost to provide for the needs of the local government (e.g. city green works) but also for the local market. The various envisioned livelihood opportunities for UCLA as well as the already established workplaces and proposed new recycling projects are summarized in Fig. 5. 6. Objectives of a specific strategy for UCLA development To jointly enhance the SWM system at the Calahunan dumpsite, the following key objectives were formulated during project development by the municipality, UCLA board members and involved development advisers:  Formulate and enforce local policies that allow the integration of the informal waste sector in the local SWM system.  Assist the informal sector to have access to employment and alternative livelihood opportunities by providing knowledge and skills development and protection from occupational hazards and risks.  Provide access to basic social services including water supply, sanitation, health and child care, education and enhanced living conditions.  Facilitate and strengthen partnerships by and between the informal sector with the private sector, the local government and civil society groups.  Enforce laws on child labor and provide alternatives to enhance SWM activities. Consequently, the following main development objectives as summarized in Table 2 were agreed upon and integrated into the legalization process of UCLA. As a general principle for the development of new UCLA projects, it was proposed to focus with capacity building measures on the conduct of those local services and products that correspond to an identified demand of the local market first. This principle

At the start of the development intervention knowledge regarding income, gender, family and age situation as well as education level of the waste pickers was not available. Hence the municipality assigned two social workers to gradually gather and document regarding data. Most of the needed information was obtained from workshops and meetings conducted with waste pickers. During this stage an expert on social aspects was tapped to clarify approaches, methods and to build trust among the waste pickers and involved stakeholders. As a result, the waste pickers themselves proposed to form a waste workers association in order to be more recognized, to take part in new development projects and to enhance their working and living conditions. The following table summarizes educational status, age and gender situation of the UCLA members sorted for 6 age brackets. As Table 3 shows, the majority of the UCLA members rank in the age bracket 30–49 years with 46.5%. In total 55% of all UCLA members are female with majority of female in the age bracket 30– 39 years (21% of all UCLA members). The educational level is in general low whereas most members only attended elementary school. 7.2. Capacity building of UCLA members Knowledge, skills and proper attitude of UCLA members are considered as primary resources that will determine the success and sustainability of the organization. It is in this context that in the past years, efforts have been devoted in providing skills training and value formation. Organizing the waste pickers started by inculcating values that aimed at changing the mind set and attitude of wastepickers, e.g. to address prevalent ‘‘battle of fittest and poverty mentality’’. UCLA members were then trained in various alternative livelihood projects. During the development process, a sense of ownership was instilled whenever possible. Participatory approaches were used to involve the IWS in the process of organizing themselves. The legalization of UCLA was not done out rightly, it was done after 2 years of organizing them until they themselves understood and expressed the need to be legally registered. The capacity building of UCLA members is a continuing process. UCLA members need further training not only in acquiring new knowledge or enhancing their skills but in shaping their minds and attitude as well. 7.3. Summary of implemented or ongoing recycling projects Recycling projects that could offer new livelihood for UCLA members were tested by the municipality, the Central Philippine University (CPU) Iloilo City and the German International Cooperation Agency (GIZ) starting in July 2007 (Paul et al., 2007; Paul et al., 2009a,b; Romallosa et al., 2011). The following table summarizes the status of established recycling projects and related job and income data that are jointly conducted by the local government and UCLA including proposed new recycling projects and potential workplaces.

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Table 2 Key objectives and proposed development strategies for UCLA (status June 2011). A. Key-objective

B. Proposed strategy

1a. The integration of the IWS into the municipal SWM is agreed by the main involved stakeholders

1b. Lobbying for informal waste sector integration into the MSWM program, clarification of issue with local SWM Board and formal agreement by municipality through local policy 2b. Clarification of framework and procedures of the involved governmental agencies and application for official registration (legal formalization) of the waste workers association UCLA 3b. Needs assessment and proposal for organizational development including leadership, rules, roles, functions and responsibilities of UCLA board, substructures and members 4b. Capacity building of UCLA board members and lead personnel for the various recycling groups and clarification of organizational and development needs. Conduct survey to identify potential partners/supporters 5b. Clarify available (recoverable) materials from local SWM stream and identify potential new projects and partners. Conduct market needs assessment 6b. Propose new recycling approaches, raise funds and test related new livelihood projects. Identify available skills of UCLA members and match them with needs/ recycling projects. Support product and skills development for involved UCLA team 7b. Processes to conduct, enhance, support and finance the started recycling projects are clarified. Conduct of regular monitoring and evaluation of operations. Establishment of a capital-built-up through UCLA savings program 8b. Cooperation with partners, supporters and clients is cared for. Market development is studied and new opportunities identified 9b. Conduct of Work Safety and Occupational Health inspections; results are made available to UCLA board. Personal Protective Equipment (PPE) is available and used by UCLA members. Training on proper health and sanitation practises. Establishment of proper washing and toilet facilities at working places. Conduct of annual medical consultation of UCLA workers supported by the LGU 10b. Enforcement of the ‘‘no kids at the dumpsite’’ policy. Establishment of a child care facility. Training on child care and responsible parenting. Establishing linkages to institutions to tap educational assistance programs

2a. Informal waste workers at the Calahunan site form a waste workers association and enjoy the rights and privileges of a legal enterprise 3a. UCLA undergoes a process of organizational development and knows mechanism, rules and tools needed for professional business operation 4a. UCLA board members and lead personnel of recycling groups are capacitated to organize, conduct and supervise the operations 5a. Potential new projects, partners, supporters and clients (markets) are identified and integrated into the UCLA development program 6a. New recycling projects are proposed and tested/evaluated

7a. UCLA is enabled to sustain and enhance on-going recycling projects

8a. UCLA is enabled to defend its local market position and is able to access the needed knowledge by own strength 9a. Work safety and occupational health issues related to the newly established recycling projects are addressed and needed correction measures clarified

10a. Children of UCLA members are given opportunities to prepare a better future through child care and appropriate education. Child labor is faced out

Table 3 Age/gender distribution of UCLA members (based on Villamor, 2008). Age bracket 18–29 years 30–39 years 40–49 years 50–59 years 60–69 years Total

Number of members

Number male

Number female

80 63 30 21 6

56 21 6 7 –

24 42 24 14 6

200

90

110

Educationa Elementary High school Elem/HS Elementary Elementary

a

Educational accomplishment level for the majority of the listed age braket with >80% of members; Elem. = Elementary school level; HS – High School level.

So far, alternative livelihood could be provided for 95 of the 240 UCLA members. However, Table 4 shows that the started and further envisioned recycling projects could not only offer workplaces for the enrolled UCLA members but could integrate all of the 300 local waste workers from the Calahunan site. 8. Discussion Although the IWS mostly operates apart from formal economic activities (unlicensed, untaxed), waste recovery performed by the IWS significantly contributes to the enhancement of local SWM systems and material recovery. The official SWM system in many cities would perform much poorer if not supported by waste pickers, scrap collectors, junk dealers, recyclers and traders (Wehenpohl and Kolb, 2007; Medina, 2008; Scheinberg et al., 2010). However, the formal organization of waste workers can propel their efficiency and support their role and sustainability as partner for SWM (SWAPP, 2006; Diaz et al., 2007; Gerdes and Gunsilius, 2010; CWG & GIZ, 2001). Various forms of formalization are possible such as a cooperative, waste workers association or as business enterprise. Worldwide, a huge variety of recyclable

materials is segregated by the IWS and forwarded to the recycling industries, e.g. to substitute raw materials or fossil fuels. However, prices of recyclable materials fluctuate with market development and global economic trends (e.g. oil and metal prices) causing traders to postpone buying certain waste materials. Informal waste workers lack capital and thus are vulnerable to exploitative arrangements established by those who provide them capital by dictating the prices. They have poor bargaining power because they are mostly unorganized. Informal recycling often results in work safety and occupational health issues as well as environmental problems, e.g. through contamination of land and water by leachate discharge. Moreover, it causes prolonged exposure of women and children to potential health impacts, e.g. through contact with toxic, hazardous and infectious materials from the SWM stream thereby creating considerable secondary social and health costs.

8.1. Benefits for the IWS based on the Sustainable Livelihood Approach In terms of socio-economic development, the most important impact of the ongoing recycling projects for UCLA is the additional income from AFR, compost, briquettes and handicraft sales coupled with enhanced working conditions and skills development. Related to the AFR recovery, the new mechanical segregation system and team work enables the waste workers to more efficiently segregate sellable materials under much better working conditions in comparison with scavenging at the open dumpsite. From the data gathered so far, the most of the actively enrolled UCLA workers earn now daily incomes >3 US-$, some already manage to earn 5–6 US-$ daily. Hence, the statistical poverty line as proposed by the MDG with 2 US-dollars/day can be surpassed for most actively involved UCLA workers so far. Assessing the project progress based on the SLA, substantial improvements related to their social and financial assets, with enhanced main source of income, access to networks and social support mechanism could be established.

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J.G. Paul et al. / Waste Management 32 (2012) 2018–2028 Table 4 Recycling projects and average income per UCLA member (status June 2011). Subproject

Number of involved members (2011)

Participation of female (%)

1. Material recovery in mechanized in-house stations (sellable materials and AFR) 60 55 2. Handicraft manufacturing 15 >75 3. Compostingb 10 – 4. Briquette production for household usec 5 80 5. Local services and job replacementd 5 40 6. Proposed future projects (based on planning framework of UCLA (2010a,b)) 6.1. Waste trading – 50 6.2. Support personnel for future landfill operation <30 6.3. Recovery of E-waste

Potential for new members

Average income /member/day in US-$a

60

3–4

20

4–5

20

2–3

15

3–4

45

5–6

(5)

4–5

(10)

5

(20)

4–5

(10)

4–5

6.4. Green city services for LGU and private customerse >80 Totalf

95

160 (+45)

a

Based on exchange rate 1 US-$ equivalent to 42.5 Philippine Peso (February 2012). The proposed composting project needs to be subsidized by the municipality. Data based on 2 weeks test production from November 2010. d e.g. Security guard at waste management center, social workers at child center, workers recruited for local construction works or by service companies or by other businesses. e This project depends largely on development of the local market. f Total number of involved UCLA members. b

c

Furthermore the recyclers benefit from team work, regular work hours, weather protected work places, work protection gear and access to fresh water and basic sanitation, measures that significantly improve their working conditions and reduce their vulnerability. Although team work was not forced upon the workers for the various recycling projects, the joint interest gradually pushed them to work as a team and to perform more efficiently. Since legalization of UCLA as business enterprise in May 2009 their members can access certain services and benefits more easily, such as opening a bank account, conduct of business transactions, access to social and health insurances, recognition by the municipality or other organizations. Based on the SLA these measures considerably increase their social and human assets, especially through enhanced skills development, recognition and access to public services and resources. Although women and men were equally addressed with the various new recycling projects, it turned out that 53% of the participating workers are women in the age bracket 30–49 years, mainly married with children. It is assumed that married women with children feel more restricted to perform waste picking at the open dumpsite and hence it is more convenient for them to engage in UCLA livelihood activities. The work at the mechanized sorting station was clearly perceived as the better work choice by most of the involved recyclers, if compared with waste picking at the open dump as expressed by many workers during meetings and seminars (Paul et al., 2009a). Aside from improved working conditions, those workers who engaged in UCLA’s organized livelihood activities have improved their earning capacity. For example: Betty, 48 years old with 10 children is no longer waste picking. She specializes in making paper beads with her out of school daughter. They now earn an average of 4 US$/day each. Betty has recently joined a trade fair in another city. Soon she will be teaching others how to make paper beads for a fee, an additional challenge and income for her. The enterprising ability of UCLA leaders is slowly surfacing. After 3 years of teaching and motivating them to engage in trading recyclables, the leaders finally decided to start UCLA’s trading business in April 2011. This endeavor shows first positive

results and the involved UCLA members start to believe in their capacity to handle and manage the trading of recyclables as a business and to trust each other. Within the first 2 months of operation, the trading business more than doubled their revolving capital. As of February 2012, all of the started new livelihood activities of UCLA are ongoing. 60 waste workers run the mechanized MRF in two shifts per day and earn their livelihood from direct sales of recovered materials while additional earnings result from the production of AFR for cement manufacturing. Those making novelty items from wasted doi packs (soft drink packages) are also earning consistently, but are sometimes even affected by an overload of orders. Besides, their production capacity is occasionally affected by the diminishing supply of doi packs. Hence, there is a need for exploring other materials for handicraft recycling. Based on customers response it appears that the recently started paper beads making may offer a promising market. The task to sustain the newly started livelihood activities is of paramount importance for the future UCLA development. The UCLA board members are challenged to be more entrepreneurial in their approach and leadership. However, UCLA as organization needs further technical assistance and support. Various training needs were identified that will be addressed by the municipality and involved development supporters. As part of this, UCLA members will be trained to assist their own organization and pass on their knowledge to new recruited members. It is expected that this approach will contribute to enhance sustainability of operation and the livelihood association. The described positive UCLA development largely contributed to gradually attract other waste pickers to join UCLA. In August 2008 UCLA started with around 40 members. In August 2011, UCLA recorded already a membership of 240 waste workers. Though UCLA operates since May 2009 as formal enterprise, the status of organization and skills of its members, management of finances and human resources as well as marketing performance is still in its beginning. Nevertheless, the formation of UCLA enabled the municipality to contribute largely towards poverty alleviation and to fulfill the Millenium

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Development Goals (MDG) in the local context, especially for the involved waste pickers, who were prior to the development intervention considered as the poorest among the poor. 8.2. Environmental benefits Although waste segregation and the conduct of composting is legally mandated, the municipal waste collection in Iloilo City and elsewhere in the Philippines still receives a large fraction of organic residues as well as light density plastic packages (compare Fig. 3). Hence, the municipality explored options to especially exclude organic waste components and light density packages from waste disposal in order to further reduce waste disposal and related harmful impacts such as leachate or Greenhouse Gases emissions (GHG). To assess the GHG generation potential, a GHG Calculator for SWM that was developed by the German International Cooperation agency (GIZ) and the German Bank for Reconstruction (KfW) was applied as a new tool to assess and compare GHG emission projections for various scenarios projected for the Calahunan waste disposal site. The tool contains basic routines for calculation of GHG emissions by typical waste management technologies such as controlled dump, landfill with and without gas collection, mechanical–biological treatment of waste prior to deposition, mechanical-physical stabilization and co-processing in cement kilns, recycling of waste components, composting and digestion of organic components. The user can choose which options to be compared. The user may use own data, however, a set of default values is provided which can be used if data base is inadequate. Detailed information on how to apply as well as to chose applicable values for the calculation are given in a manual (Giegrich and Vogt, 2009). With respect to the aspects discussed above the following four options were considered:  Base line scenario which refers to the situation in 2006 when first waste management activities started. At that time all incoming wastes were disposed at the uncontrolled dumpsite, whereas it was further assumed that around 80% of metals and textiles, 40% of cardboards and some 10% of hard-plastics and organic materials were recovered by waste pickers.  Material recovery enhanced by about 10% for all recovered material and 1% for use in cement kilns. This situation reflects 2010 state of art.  Scenario 1 with establishment of an anaerobic reactor which would process a part of the total delivered waste (up to 50% organics recycled).  Scenario 2 with establishment of an aerobic reactor which would process a part of the total delivered waste/year (up to 25%). The main input data for the GHG calculation are summarized in Table 5. The results of the climate calculator application for Iloilo City are summarized and displayed in Fig. 6. Debits of the scenarios shown in Fig. 6 refer to GHG emissions by deposition of waste in a landfill but also emissions caused by processing such as energy needs of machinery etc. Credits are a result of recycling of components when recycled materials substitute new materials or when the treatment process itself avoids or lessens GHG emissions if compared with waste disposal. Net GHG effects are the sum of both debits and credits and are decisive for decision makers. Numbers are given as emissions per year. All in all, four scenarios were elaborated applying this GHG Calculator for an annual waste collection rate of 62,000 tons. Based on this study a baseline GHG emission (net emission) with around

Table 5 Main input data for the GIZ Climate Calculator application at the Calahunan site. Parameter

Dimension

Number of inhabitants Waste mass collected Specific waste mass Calorific value of total waste Total carbon content Regenerative carbon Specific GHG production

406,000 62,000 t/year 0.42 kg/cap/day 9.0 MJ/kg 29.1% wet waste 67% of total 557 gCO2/kW h

46,000 tons CO2-eq/year was established for the year 2006 (Paul and Soyez, 2011). Due to the started recycling projects (compare Table 4), the GHG emissions could already be reduced to net emissions of 33,000 tons CO2-eq/year in 2010. A further scenario assessed the potential GHG emission reductions for a ‘‘businessas-usual’’ approach based on the assumption that the municipality could manage to divert 25% of the collected waste through conventional composting (windrow and drum composting, compare Scenario 2, Fig. 6). With this approach the net GHG emissions from SWM at the Calahunan site could theoretically be reduced to 28,000 tons CO2-eq/year. Nevertheless, a much higher emission reduction could be achieved if an anaerobic biodigester would be established (compare Scenario 1, Fig. 6). With this technology the remaining GHG emissions could be reduced to 20,000 tons CO2eq/year net emission. However, this approach would request an international technology transfer through a CDM project based on the Kyoto Protocol (Paul and Soyez, 2011). The proposed increase of material recovery at Calahunan could most likely double the lifespan of the new sanitary landfill, whereas the potential for methane and leachate generation would be by far reduced, likewise the landfill stability increased. In addition, increased material recovery at source and during waste collection would reduce waste losses and related clogging of the cities drainage system, a relevant aspect of climate adaptation. This could assist to reduce flooding risks/effects, especially during typhoons and heavy rainfall events which are common weather phenomena in the Philippines, especially during the rainy season which annually occurs in the time period June to November. 9. Conclusions and recommendations As in other developing countries, the SWM system in the Philippines includes thousands of informal waste workers, among them women, children and elderly, who depend on informal waste collection and recovery as a means of livelihood. Although the waste legislation prohibits waste-picking, the lack of other livelihood opportunities or access to formal employment forces them to go on with waste picking. Since their informal work is not regulated under the law, they do not have any legal right or protection to conduct waste picking. Furthermore, they do not have sufficient space or facilities where they can work under safe and sanitary conditions. They are vulnerable to health risks and hazards due to their prolonged exposure at open dumpsites and by working with toxic, hazardous and infectious materials from the waste stream. Because they voluntarily recover wasted materials, the municipalities save efforts and money on waste collection and disposal. However, waste pickers face a variety of work related risks. They are vulnerable to the uncertainty of their livelihood. Many waste pickers are being displaced as a result of dumpsite closures. Furthermore, barangay-managed materials recovery facilities and government paid eco-aides compete indirectly with them and may reduce their source of income. Iloilo City accepted the challenge to integrate the IWS into their MSWM program. With the formation of the USWAG Calahunan

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Fig. 6. GHG emission scenarios for the various projected SWM interventions in Iloilo City.

Livelihood Association (UCLA) a milestone was made to forge a partnership between the municipality and the IWS. This development was welcomed by all involved stakeholders. With that, the former unorganized waste pickers are now united and can act as formal business partner. Though UCLA operates already since May 2009 as formal enterprise, the status of organization and skills of its members, management of finances and human resources as well as marketing performance is still in its beginning. Nevertheless, the formation of UCLA enabled the Local Government of Iloilo City to contribute largely towards poverty alleviation and to fulfill the MDG in the local context, especially for the involved 240 waste pickers. For the latter, working conditions, regular income, access to resources and community and health services as well as local recognition could be significantly increased. Based on the experiences from the Iloilo City case it appears that the integration of the IWS is feasible but requires additional investments and efforts by the involved municipality. However, the extra efforts pay off with various benefits for involved stakeholders, the community and the environment. During project development various lessons were learned that may assist other municipalities in the region to better identify and implement effective and sustainable measures for IWS integration. The following key actions and milestones may be useful for other municipalities to enhance their IWS integration program:  Conduct of a comprehensive waste characterization study to assess material potentials and to develop new recycling projects that could provide additional livelihoods for the IWS. As part of this the existing material recovery system and potential new markets should be clarified.  Conduct of stakeholder analysis to identify potential supporters but also hindering forces to enhance the IWS integration process already during the planning stage.  Appointment and capacity building of a special project management team by the concerned local government that later on coordinates and supervises the IWS integration process.  Preparation and conduct of pilot projects for additional material recovery that include waste pickers. Such projects should integrate a series of meetings or workshops were participating waste pickers learn and understand, but also appreciate the efforts and transparency of the municipal SWM enhancement program.

 Offer to waste pickers to enroll as member in a waste workers association. The membership should include certain benefits, such as a membership (identification) card, participation in capacity building measures, health services, micro-insurance/ finance programs.  Support of the registration process to legalize the waste workers association.  Support the establishment and capacity building of a managing board, best by integrating acknowledged local leaders of the waste workers.  Drafting of strategies and working policies and conduct of workshops to inform and guide the members of the waste workers association.  Identification of potential supporters, e.g. private sector, governmental agencies and academe and support in creating linkages for joint projects, research projects but also to establish networks and access to know how.  Support the new association, best by assisting the marketing of new recycling products and offering additional livelihood opportunities, if possible amplified through contracts or written agreements with involved third parties.  Documentation of best practices and success stories to make the benefits of the SWM enhancement program and IWS visible, to inform and involve local media and to reach out for further development support from governmental and non-governmental agencies.  Educational programs for children of the waste workers families to gradually enhance their educational accomplishments and future perspectives for formal employment. 10. Outlook From the author’s perspective it appears that the integration and uplifting of the IWS remains a severe issue respectively gap in the waste management legislation of most developing countries. It is suggested that professional associations such as the International Waste Working Group (IWWG) or the Collaborative Working Group for Low- and Middle Income Countries (CWG) propose a regarding standard procedure or guideline that could be utilized by national governments to better guide local governments in order to avoid to ‘‘re-invent the wheel’’ many more times. It is also worthwhile to mention that related to the ongoing international

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debate on climate change, the so-called National Appropriate Mitigation Actions (NAMA) may emerge as a new tool to better address and implement adaptation and mitigation measures by the member countries of the Kyoto Protocol. Hence, future NAMAs that address the waste sector could also serve to support new approaches and targets for enhanced IWS integration.

Acknowledgements The author’s like to express their sincere gratitude to Mayor Jed Mabilog and Ms. Marissa Segovia from the local government Iloilo City as well as all involved waste workers from UCLA, for their willingness to participate in new and challenging projects and for their support in the conduct of various test works. The German International Cooperation agency (GIZ) is thanked for providing various tools, equipment and for co-financing the conduct of many project activities.

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