proceedingsof2011worldcongressofinternationalsolidwaste ... stage, 2) collection and transportation...

Proceedings of 2011 World Congress of International Solid Waste

Association (ISWA), October 17-20, 2011, EXCO Daegu, Korea

828

Internalization of Informal Sector into Formal Urban Waste Management in

Low-income Countries

Akiko Sanada and Mitsuo Yoshida, Japan International Cooperation Agency (JICA), Japan

CONTACT

Akiko Sanada Environmental Management Division I, Environmental management Group, Global Environment Department, Japan International Cooperation Agency (JICA), 5-25 Niban-cho, Chiyoda-ku, Tokyo, Japan Tel: 81-3-5226-9546 Fax: 91-3-5226-6343 E-mail: [email protected], [email protected]

EXECTIVE SUMMARY

In order to establish effective and efficient urban solid waste management in developing countries, implementation agency such as local government which is in charge of waste management in the city and private sector play crucial roles, which are collectively called as ‘formal sector’ in solid waste management. On the other hand, in many cases, reducing and recycling waste depends on ‘informal sector’ in low-income countries. It tends to be little recognized socially as a real actor for waste management. Informal sector mostly consists of poorest people as well as squatters, who are under the stresses of severe working conditions, and unequal and unstable economic opportunities within the market-driven mechanism. Most of people in informal sector are in fact socially vulnerable. Thus international cooperation in the field of waste management in urban area is inseparably linked to the support to the urban poor. Recycling activities of informal sector in urban area of low-income countries can be observed mainly in four channels such as the waste management flow from 1) generation & discharge stage, 2) collection and transportation stage, 3) intermediate treatment stage, and 4) final disposal stage. These activities supplement the waste management flow of formal sector and contribute to reduce the amount of final disposal waste and turn it into recycle materials. Because of their activities are not formally recognized, however, the actual conditions of their recycling activities are not clear and can be source of environmental contamination which is not under the control and monitoring. In the international cooperation for capacity development on urban solid waste management in developing countries, it is important to include a view point of internalization of informal sector into the program. INTRODUCTION

In recent years the world has been dramatically urbanizing. In 2008, for the first time in history, half of the world population was found to live in urban areas. Particularly in many low-income countries, average annual population growth rates remain very high (UNFPA, 2007), and this rapid urbanization has also resulted in poor delivery of basic services, a degradation of urban environment, and an increase in urban poverty (Hardoy et al., 2001). In some cities it is observed that private firms in waste industry also contribute to recycling the waste materials segregated from the waste local government collected in formal SWM. Those are regarded as the formal sector in SWM and play crucial role in order to establish and

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implement effective and efficient urban SWM. In fact, however, significant factor in the waste management practices in low-income countries is the presence of extensive informal activities. Waste pickers, waste dealers, and junk buyers, are spontaneously emerged as a kind of SWM actor under a given market conditions of recyclables, who are collectively named as informal sector and not regulated and controlled by government agencies (Ali, 1999).The informal sector has been playing an important role for recycling waste materials as well as reducing final disposal waste, which contribute to protect the urban environment, make the life time of landfill site longer, as well as reduce the Green House Gas (GHG) emissions from the waste left untreated (National Solid Waste Management Commission,2009) .The informal sector has been little recognized as a stakeholder of the system of urban SWM. Meanwhile, the informal sector, in particular waste pickers, mostly consists of poorest people in the city as well as squatters, who are under the stresses of sever working conditions and unequal and unstable economic opportunities within the market-driven mechanism. The people of the informal sector are in fact socially vulnerable. Despite the social problems associated with informal recycling, it provides significant economic benefits that need to be retained. It can be highly counterproductive to establish waste management systems without taking into account informal recycling systems that already exist. It is probably necessary to integrate the informal sector into urban SWM planning, building on the practices and experience (Wilson et al., 2006; UN-HABITAT,2010). It is really desirable, therefore, to recognize them properly as important actors, to solicitude their working and living conditions, and to internalize them in the urban SWM system in order to establish effective and efficient urban SWM as well as to promote human security for the socially vulnerable people (Rouse and Ali, 2001). In the field of international cooperation and capacity development program in low-income countries, it is also required to give socially vulnerable people careful consideration and to support their internalization into formal SWM (IFIC-JICA, 2005). Japan International Cooperation Agency (JICA), an bilateral aid agency of the Japanese government, has implemented many capacity development projects on SWM in different low-income countries, including the view point of internalization of informal sector, in Dhaka, Phnom Penh, Buenos Aires, Ulaanbaatar, and El Salvador, under the cooperation with local NGOs. This paper reviews the role of the informal sector in SWM, report the selected experiences of involvement of the informal sector in SWM in JICA’s technical cooperation projects in Ulaanbaatar, Phnom Penh, Dhaka, and Buenos Aires, and discuss about the challenges for internalization of informal sector into urban SWM. INFORMAL SECTOR IN URBAN SOLID WASTE MANAGEMENT

Most low-income countries have a significant informal sector as a result of large number of poorer and un-employed population especially in urban area. Informal sector absorbs this surplus labor force quite efficiently and has gained an important position in urban economy. According to a research, the share of informal workers ranges from 40 to 60% of urban employment in Asia (Becker, 2004). In fact a large number of workers in informal sector in urban area are involved with SWM activities (Ali, 1999). For instance, in Dhaka, Bangladesh, waste picking on the street and/or at landfill site is one of the easiest ways to earn money for surviving day by day when people come from rural area to the city to hunt for a job. It is said that about 120 thousand people out of its population of 12 million are involved in the informal recycling trade chain in Dhaka (UN-Habitat, 2010). Informal sector recycling of domestic waste is characterized as individual, family enterprises, small-scale and low-capital inputs, local materials, and labor intensive techniques (Snel, 1999). A number of activities and actors of informal sector are involved in SWM. There is an established network of different actors such as waste pickers, buyers, dealers, and recycle industries. Target recyclables are typically metals, glass, card board, used paper and plastics, depending on the recycling industry which create the demand of recycling materials in the city (Yoshita, 2010). Figure 1 shows a brief explanation of the actors of informal sector recycling involved in SWM stream.

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Figure 1: Generalized urban SWM components (generation-collection/transport-transfer points / intermediate treatment-disposal) and the positions of street waste pickers, dump waste pickers, and dealers/buyers as the informal sector (Modified from the Figure 1 of Yoshida, 2010)

At source, households separate recyclables from the domestic waste and sell them to itinerant waste buyers on the basis of the weight of each individual material. In high-income areas, domestic servants do it because they have first access to the waste. At primary collection stage, sweepers, generally employed by local government as a cleaning staff, collect waste from different sources. Typically they separate and sell recyclables during primary collection of solid waste and/or at collection points and remaining waste is disposed of at collection points. The waste picking activity is normally found in two places; along streets or collection/transfer points where solid waste are discharged and in and around the waste dumping site, namely street waste pickers and dump waste pickers (Baud et al., 2004). Street waste pickers separate the waste in small open sites in city, mainly on the streets, collection points (public dustbins) and transfer points, and then sell it to their group leader or buyers. Dump waste pickers, on the other hand, operate in large dumping sites where final disposal of solid waste takes place. Itinerant waste buyers move around streets with a basket or a push cart, on foot or on bicycle and buy recyclables collected at source and/or from street waste pickers. Middle dealers, who usually have a shop or plot for their business, buy the collected recyclables from itinerant waste buyers or directly from households. Main dealers purchase and accumulate the recyclables from middle-dealers. The recyclables is often transported to the recycle industry which has facility to recycle the waste materials and convert them into the other salable products. As an example, Figure 2 shows typical waste stream observed in Dhaka City, Bangladesh in 2004 (Dhaka City Corporation and JICA, 2005). In this case, approximately 13% of generated solid wastes is collected near the source (household or community) by itinerant buyers through street waste pickers, and approximately 44% of the

Separation / Waste picking

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Illegal dumping

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solid wastes transported into the final disposal site are retrieved on site by the dump waste pickers of which amount is about 0.5% of the generated waste. The reason of difference between the amount of discharge (=3,200t/day) and transportation (=1,380t/day) is unknown but probably those are illegally dumped and/or reclaimed near the city where waste picking of recyclables is more or less anticipated.

Figure 2: Averaged waste stream and waste quantity generated in Dhaka City, Bangladesh, observed in 2004. Waste stream data are adopted from the results of JICA Development Study (Dhaka City Corporation and JICA, 2005).

From the next section, this paper looks at the selected experiences of the internalization of the informal sector in formal SWM in JICA’s technical cooperation projects and other examples in some low-income countries. GENERATION/DISCHARGE STAGE

Waste Concern, a local NGO specialized in waste management in Bangladesh, initiated community-based decentralized composting project in Mirpur area, Dhaka City in 1996, to deal with the growing waste problems in the city. The project aimed at reduction of the waste amount by composting at community level, improvement of public health in the target communities, and creation of job opportunities for the poor by providing door-to-door collections and composting activities (Miyake, 2008). In the project, many workers who were potentially street waste pickers were employed in the composting plant. In order to conduct the door-to-door collection of biodegradable waste generated from households, bicycle-cart (Rickshaw) collection was provided, which creates a job for more workers. The project also distributed perforated-drums to slum dwellers and motivated them for accumulating their biodegradable kitchen wastes. In the drums, the disposed kitchen wastes were gradually fermented, and the project monitored the quality of the fermented waste and collected it with pay for the compost when the drum was filled. The quality of material was free of non-biodegradable substances, and the slum became much cleaner and illnesses were significantly reduced (Zurbrugga et al., 2005). In this case, the waste pickers and slum dwellers, who are essentially outsiders of the formal SWM system, were internalized in waste management by contributing the reduction of the waste amount under the facilitation of NGO (Figure 3).

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Figure 3: Internalization of informal sector into urban SWM at generation/discharge stage, which was organized by NGO in Dhaka City, Bangladesh. This project, however, shows some limitations of community-based waste management. Composting in the community was finally stopped in 2005 due to a lack of land for composting facility under the pressure of a new residential development. As there was no coordination and support from local government, the initiative of community-based waste management has not been expanded to other communities (Miyake, 2008). The experience of this project shows that community-based waste management by the internalization of poor especially potential waste pickers in SWM system contributes to reduction of the waste and can be a good solution to urban waste problems; however it is important to be developed within the supportive institutional framework, enabling working relationships between communities, NGOs and local government to secure the sustainability. COLLECTION AND TRANSPORTATION STAGE (PRIMARY COLLECTION / SECONDARY COLLECTION)

Dhaka City Corporation (DCC), local government of Dhaka which is in charge of SWM in the city and JICA has been jointly tackling the waste problem in Dhaka since 2000. A technical cooperation project namely “The Project of Strengthening of Solid Waste Management in Dhaka City” started in 2007 to improve SWM service in the city with strengthening the capacity of the organization and staff of DCC. In this project, the involvement of street waste pickers in primary collection of formal SWM was carefully considered. There were basically two phases of waste collection stage in Dhaka City, the primary collection and secondary collection (Figure 4). The project facilitated a community-based (Ward-based) approach of SWM, where small fee-based primary collection service was provided by NGOs or Ward CBOs (community-based organization), and the waste collected by door-to-door was transported to DCC waste containers or dust by rickshaw-cart. Then the solid waste accumulated in the containers/dust bins is collected and transported by DCC vehicle to the landfill sites as the secondary collection service (Sato and Okamoto, 2007; Figure 4). DCC ward inspectors monitor and supervise all the primary collection activities at community and ward level. In the project, Ward SWM Committee was organized in each ward and it coordinated between communities and NGOs or Ward CBOs (primary collection service providers) which creates job opportunities for urban poor who was potentially street waste

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and motivation

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pickers. In addition, close collaborative relationship has been created between DCC ward inspectors, DCC workers for the secondary collection, and the street waste pickers working in the community. In this case, street waste pickers are internalized in urban SWM system as workers of primary collection under the efforts of NGOs or Ward CBOs (Figure 4).

Figure 4: Internalization of informal sector (street waste pickers and/or slum squatters) into urban SWM at collection/transportation stage, which was experienced in Dhaka City, Bangladesh. The street waste pickers could be integrated in the urban SWM as a part of the organization of primary collection service providers.

In the project of Dhaka City, careful consideration was made for the existing street waste pickers. For the smooth coordination between primary collection and secondary collection at the collection points, the design of DCC container was improved in order to NGOs and CBOs’ workers could easily dispose the collected waste into the container without scattering the waste around the container. However it made existing street waste pickers difficult to pick the valuables at the collection points. Through trial and error, the container was redesigned and several new ways of waste picking were attempted by DCC, such as waste picking on the plastic sheet. it is needed to continue the examination and communication among local government, community and waste pickers how to cope with protecting of neighborhood environment and securing waste pickers’ role. This example shows that the involvement of waste pickers in primary collection is possible with close collaboration of local government, NGOs/CBOs and communities. They can contribute to keep the neighborhood environment better and efficient recycling of the waste as a worker of NGOs/CBOs. TRANSFER POINTS / INTERMEDIATE TREATMENT STAGE

In the technical cooperation project for enhancing the capacity on SWM in Phnom Penh City, Cambodia (JICA and Phnom Penh City, 2005, 2008), internalization of street waste pickers was attempted at the intermediate treatment stage in SWM by the support of the local government and JICA. The project organized street waste pickers as a waste picker self help group (SHG). The members of SHG, including 8 women, participated in the composting training course and joined composting activities at the new composting plant established by

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the project. The SHG also undertook one training course on biodegradable solid waste composting over 60 days, with over 480 hours of practical training under the support of the project. After the training workshop, all participants understood how to produce compost in their community, and the Community Waste Management Committee (CWMC), a community-based organization for SWM, decided to implement community composting in cooperation with the members of the SHG who had trained their techniques to sort out recyclable and biodegradable organic waste. The waste pickers of the SHG manually segregated a total of 5,718 kg of biodegradable waste for composting during the project period, and the biodegradable waste was fermented in the composting boxes. They eventually reached to produce a total of 498 kg of compost within 6 months as a final product (JICA and Phnom Penh City, 2005, 2008).

Figure 5: Internalization of informal sector (street and dump waste pickers) into urban SWM at intermediate treatment stage, which was experienced in Phnom Penh City, Cambodia. The waste pickers organized a self help group (SHG) and supported by NGO for acquiring knowledge and skill for manufacturing various recycling crafts by used papers and plastics.

A local NGO in Phnom Penh, Community Sanitation and Recycling Organization (CSARO) established the Waste Picker Development Center (WPDC). The WPDC provides services such as access to clean drinking water, personal hygiene facilities, platform for waste segregation, collection of recyclables with market price, library access, skill training and education for waste pickers. CSARO conducted training workshops for waste pickers under the cooperation of the JICA project, where manufacturing skill of used-paper crafts and recycling plastics bag (JICA and Phnom Penh City, 2008; Figure 5). This example shows that internalization of waste pickers in SWM at intermediate treatment stage can be realized by organizing and empowering the waste pickers in good cooperation with NGOs and local government, and they can greatly contribute to reduce and reuse the waste. FINAL DISPOSAL STAGE

The other way of internalization of waste pickers in urban SWM is at final disposal stage. In general, dump waste pickers are most common informal actor in SWM, where they can retrieve recyclables from final disposal site. In Buenos Aires, Argentine, JICA technical cooperation project organized workshop with the dump waste pickers for strengthening the cooperation between dump waste pickers and the local government responsible for SWM (Yoshida et al., 2008). According to the results of workshop, there are many issues needed

Provision of facility

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to be considered; working condition of dump waste pickers is usually sever because of less accessibility to water and sanitation facilities although they are working in waste, and they are always exposed to danger of accident with heavy machineries. In order to improve such working conditions, the management of landfill site needs to communicate and coordinate the dump waste pickers, but eject them from the site. In the case of Buenos Aires, NGO facilitated organizing a union (or a cooperative) of dump waste pickers. Meanwhile the local government constructed manual sorting facility equipped with a belt conveyor with the support of provincial government at the landfill site. The waste picker union operates the sorting facility in cooperation with a private firm. The institutional arrangement for manual sorting at the landfill site has excluded exploitative dealers operating around the landfill site, which resulted in securing relatively higher prices of picked waste and incomes for the dump waste pickers (Figure 6).

Figure 6: Introduction of manual separation, sorting of recyclables from disposed waste by hand sorting, in Buenos Aires. The manual sorting can be successfully done through well-organized dump waste pickers group.

Under similar situation in a landfill site of Ulaanbaatar City, Mongolia, the JICA technical cooperation project facilitated to organize a network of dump waste pickers through regular communications between the dump waste pickers and the management staff of the landfill site (JICA and Ulaanbaatar City, 2007).

In Phnom Penh City, Cambodia, more than 500 dump waste pickers were regularly working without any rules and control before starting JICA technical cooperation project (JICA and Phnom Penh City, 2005). Although the dump waste pickers played an important role in SWM by recovering recyclable materials from the waste, their picking activities interfered with landfill operations by heavy machineries and exposed their lives at risk. It was required to separate the working area of waste pickers and heavy machineries so as to manage both efficient landfill operation and safe waste picking. Considering the situation, working platforms was prepared separately for waste picking and waste dumping by heavy machineries, and a union of dump waste pickers was organized and it became a liaison between dump waste pickers and landfill management for daily information exchange about landfill operation. The project also supported the registration of dump waste pickers for their security and health check was provided with vaccination to avoid infectious disease. In El Salvador, waste picker supporting program was organized with the participation of local government and NGOs in JICA technical cooperation project. Under the program, a series of

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Cooperation

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workshops was held aiming at organizing waste pickers, promoting understanding of the danger of waste picking without any protection, and maintaining self dignity including children’s rights. In the workshop, protection goods, health check and ID for taking medical advice were provided by the local government. Moreover, a microcredit company was established to strengthen the financial sustainability of dump waste pickers. As a result, some people started new business and local government started to consider employing them as cleaner or guard of the landfill site (JICA, 2009). In these cases, dump waste pickers were internalized as a co-existing worker in landfill site or as a worker for the manual sorting plant. These example shows that the dump waste pickers plays important role to reduce the waste in the landfill site. And the securer and healthier working environment for the dump waste pickers can be created under good relationship among the management of landfill site (local government) and waste pickers. Collective actions of waste pickers as a union and/or cooperatives also create better environment for them, for instance usual information sharing and creating jobs in landfill. Moreover, NGO’s cooperation for training of waste pickers and education of children working at the landfill site is effective to change their attitude to the work. CONCLUSIONS AND RECOMMENDATIONS

Informal sector of waste management can be internalized into SWM system at the each stage of SWM. It is also recognized that street waste pickers and dump waste pickers desire to be recognized themselves as an actor of urban SWM and fully participate the SWM

（Yoshida, et al, 2008）According to these experiences of the internalization of informal

sector into SWM, it can be concluded that the activities of informal sector in SWM greatly contributes to the reduction of the waste for final disposal and recycling of materials. For the internalization of informal sector in formal SWM with securing their safety and good health, cooperation among local government, NGO and people in informal sector is indispensable. Donors can play a role of a facilitator to create an enabling environment all the stakeholders work together, especially through capacity development of SWM implementation agency and by utilizing the experience of NGOs. The experiences show that both the SWM implementation agency and NGOs required cooperating in the following points for the internalization of informal sector in SWM: - Understanding the actual waste amount and waste flow; it provides the accurate information on the extent of contribution of informal sector to SWM in a city, which is basic information to plan which measures and in which stage of SWM is needed to be taken to involve informal sector into formal SWM. - Analyzing the actors of informal waste recycling and their working condition; actors in informal sector and their situation differ according to cities and societies. It is important to create enabling environment for informal sector to contribute to protecting environment and securing their livelihood. - Technical training and education; training and education is also important to make them work safely along with the rules. - Unionization and registration of informal actors; making a group of informal workers, they can collectively work and negotiate with local government, citizens, dealers and other actors in SWM. - Improvement of working conditions; especially securing their safety is quite important. - Setting up facilities for their recycling activities to support economic self-dependence; preparing proper working environment for people in informal sector can make them work regularly in SWM. - Formulation of system, policy and plan of waste management including informal sector; it is indispensable to consider informal sector as an important actor in SWM and to promote the internalization by the institutional and political point of view.

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ACKNOWLEDGEMENTS

We thank JICA Expert Teams and their counterparts of the SWM projects in Dhaka, Phnom Penh, Ulaanbaatar, Buenos Aires, and El Salvador. We also thank to Kazuya Suzuki (JICA), Akio Ishii (Yachiyo Engineering, Co., Ltd.), Hisashi Yamauchi (Yachiyo Engineering, Co., Ltd.), Junji Anai (Kokusai Kogyo, Co., Ltd.) for their valuable discussion and information exchange during the preparation of present paper. The views expressed in the paper are those of the authors and do not necessarily reflect the official views of JICA. REFERENCES

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