Waste Management 32 (2012) 2018–2028

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Waste Management
journal homepage: www.elsevier.com/locate/wasman

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

a r t i c l e i n f o a b s t r a c t

Article history: The integration of the informal sector into municipal solid waste management is a challenge many devel-
Received 28 November 2011 oping countries face. In Iloilo City, Philippines around 220 tons of municipal solid waste are collected
Accepted 15 May 2012 every day and disposed at a 10 ha large dumpsite. In order to improve the local waste management sys-
Available online 5 July 2012
tem 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 pick-
Keywords: ers dwell and depend on waste picking as their source of livelihood. The Local Government recognized
Material recovery
the hidden threat imposed by the waste picker’s presence for this development project and proposed var-
Waste pickers
Informal sector integration
ious measures to integrate the informal sector into the municipal solid waste management (MSWM) pro-
Capacity development gram. 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 pro-
vide 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 formal waste management services in developing countries

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 ta-
ken over by the Informal Waste Sector (IWS) to a large degree. Var-
ious 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: jp.aht.p3@gmail.com (J.G. Paul).
(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, con-
tracted, recognized, managed, taxed, nor reported upon by govern-
mental 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 recy-
cling activities largely contribute to reduce cost for SWM, provide
livelihood for the urban poor, but can also result in positive or neg-
ative 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

0956-053X/$ - see front matter Ó 2012 Elsevier Ltd. All rights reserved.
http://dx.doi.org/10.1016/j.wasman.2012.05.026
 J.G. Paul et al. / Waste Management 32 (2012) 2018–2028
can threaten their livelihood or displace them into an unknown fu-
ture. 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 recom-
mended 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 cit-
ies 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 muni-
cipal solid wastes are generated every day (Iloilo City, 2006). How-
ever, 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 seg-
regated at source into biodegradable and residual wastes. There is
no house-to-house collection system, unless private complaints oc-
cur 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 Cal-
ahunan. 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.
2019
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 Gov-
ernment 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 consider-
able 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 ef-
forts of the municipality in rehabilitating the same and in imple-
menting 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 munici-
pality 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 pro-
grams 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 (munici-
palities 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 manda-
tory 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 estab-
lish a Material Recovery Facility (MRF), implement segregation at
the source as well as collect and process recyclables and biodegrad-
ables (Republic of the Philippines, 2001).
While Republic Act 9003 emphasizes the importance of reduc-
tion, reuse and recovery, it also prohibits waste picking in segrega-
tion 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 cooper-
atives 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 gov-
ernments have to provide basic services and facilities, as well as so-
cial 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, regula-
tions regarding waste-to-energy options or modern waste
1
A barangay is the smallest administrative division in the Philippines.
2020 J.G. Paul et al. / Waste Management 32 (2012) 2018–2028
treatment technologies are lacking. Hence, the Department of Envi-
ronment 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 rel-
evant legislation released in October 2009 is the Climate Change
Act of the Philippines (Republic Act 9729, Republic of the Philip-
pines, 2009), which requires that all municipalities formulate a Cli-
mate 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 of-
fer 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 pro-
claims 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 vari-
ety of job opportunities for hundreds of thousands of poor people
worldwide. Many poor people could earn incomes 2–3 times high-
er 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 every-
where, boys and girls alike, will be able to complete a full course of pri-
mary schooling’’. In many countries, children of waste pickers are
part of the daily material recovery process. They are tasked to sup-
port their parents by waste picking, to sort, clean, pack and trans-
port 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, wo-
men are mostly picking under unhealthy conditions at dumpsites
or sort and wash collected materials. Hence, woman are more ex-
posed and especially vulnerable to health hazards. By strengthen-
ing 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 ur-
ban areas this considerably raises the risk of spreading diseases
like malaria and dengue. In rainy seasons blocked drainage sys-
tems are a major reason for local floods and contamination of com-
munity 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 dis-
eases and illnesses caused by vectors, that particularly threaten in-
fants, can be reduced.
3.7. MDG 7: Ensure environmental sustainability
Higher collection rates and controlled disposal of waste pre-
vents pollution and degradation of natural water resources, air
and soil. Through its recycling activities, the IWS provides a signif-
icant contribution to environmental sustainability by making sec-
ondary raw materials available for the production of new
products. The informal actors also supply basic services for un-
served urban slums and therewith contribute to healthier living
conditions for the inhabitants.
While in the Philippines, informal waste workers have signifi-
cantly 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 Man-
agement 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 Philip-
pines 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 dif-
ficult 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 devel-
op the IWS as a reliable partner for municipal SWM from the
author’s perspective:
 Lack of recognition by society, lack of official support mecha-
nism 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 2021

 Unreliable income, dependency on middlemen, lack of funds to To assist the local government in the assessment of environ-
enhance work or living conditions and to provide school educa- mental benefits, the various development scenarios for SWM
tion for their children, lack of access to obtain funds or microfi- enhancement including the proposed UCLA recycling projects were
nance from donor organizations. evaluated using a climate calculator that estimates Greenhouse
Gas (GHG) generation and climate impacts. The GHG Calculator ap-
To guide the municipality and the IWS, the involved develop- plied in this study was developed by the German International
ment advisers applied already during the planning stage the Sus- Cooperation agency (GIZ) and the German Bank for Reconstruction
tainable Livelihood Approach (DFID, 2005) that provides a (KfW). The tool contains basic routines for the calculation of GHG
comprehensive framework to analyze and understand the various emissions that are generated through typical applied waste man-
livelihood assets and their interdependence related to vulnerability agement technologies (Giegrich and Vogt, 2009).
context, influencing processes, structures and intended livelihood
outcomes. Fig. 2 displays main elements of the Sustainable Liveli-
5. Testing new options for material recovery and recycling
hoods Approach (SLA) as proposed by the UK Department for Inter-
national Development (DFID, 2005).
In general, the development and intensity of ‘‘waste picking’’ and
The SLA focuses on the people involved in a livelihood context.
its related activities correlates with the waste composition within
It does not present a stringent model of reality but is rather based
a specific community respectively the composition of waste deliv-
on the perceived context of livelihoods by the involved stakehold-
ered at dumpsites and the market demand for recyclable materials,
ers. It aims to assist stakeholders with different perspectives to en-
foremost of the local market. As this may change over time, waste
gage in a structured and coherent debate about the many factors
pickers have to adjust as well. In the case of the Calahunan dump-
that affect their livelihood, their relative importance and the way
site it was found that in average only 3–4% of the incoming waste
they interact. By applying SLA, the process itself provides a method
at the dumpsite could theoretically be recovered and sold without
to capacitate the involved players and offers them a platform to
further treatment (Paul et al., 2007). Presently, the municipality
better express their main concerns respectively formulate their
collects and delivers an average of 220 tons/day solid waste to
objectives.
the local disposal site. Hence, only around 8 tons/day of sellable
With the formation of the USWAG Calahunan Livelihood Asso-
materials are available to be shared by the 300 waste pickers for
ciation in May 2009 (UCLA), a major milestone was reached to offi-
their livelihood. To elaborate on additional options for recycling
cially recognize the IWS in Iloilo City and to jointly work with them
and livelihood the assessment of the average composition of deliv-
to enhance SWM at the Calahunan waste disposal site. Basically all
ered waste (expected materials) provides various entrance points
of the key aspects, also called ‘‘assets or capitals’’ in the SLA were
for strategy and project development. Fig. 3 summarizes the aver-
considered as comparable weak for the most UCLA members at
age waste composition in Iloilo City and indicates material frac-
the beginning of the development intervention in 2007. Hence,
tions that could be utilized to enhance material recovery
the various steps to elaborate suited strategies for IWS integration
respectively to develop new recycling projects for UCLA (Iloilo City,
especially addressed the improvement of working conditions and
2006).
livelihood outcomes of waste workers. Foremost to reduce their
As shown in Fig. 3, more than 60% of the MSW delivered at the
vulnerability context, but also to enable them to better access live-
Calahunan dumpsite are organic in nature, mainly kitchen, yard
lihoods with increased income. The main aspects of livelihood as-
and market waste but also wasted paper, carton and paper pack-
sets considered during the UCLA development process are
ages. Light density plastics and packages represent around 15% of
summarized in Table 1.
the delivered MSW at Calahunan. Whereas some of the organic
During the UCLA development process, the various meetings,
waste was utilized as animal feeds respectively consumed by
trainings and workshops applied participatory methods such as
straying animals at the dumpsite, light density plastics and pack-
group discussions, hands-on trainings, stage plays, even dances
ages were hardly recovered and usually disposed as residual waste
and games that featured their work environment, to create aware-
at the dumpsite prior to 2006. In order to establish new waste
ness and to support team building, information exchange and
treatment/recycling facilities sufficient area needs to be provided.
networking. This process was supported by providing a strategic
The following Fig. 4 shows the Calahunan location in Iloilo City
development plan and a policy manual that proposes rules and
and the available 21 ha site as well as the proposed sub-units for
guidelines for UCLA members (UCLA, 2010a,b). The realization of
future SWM development.
set objectives and project targets was monitored based on the offi-
Around 11 ha could still be used to establish a new landfill and
cial minutes from the bi-monthly conducted UCLA board meetings
waste treatment projects whereas 9 ha of the former dumpsite are
(Villamor, 2008).
under rehabilitation. 1 ha of the former dumpsite was reclaimed as

Fig. 2. Main elements of the sustainable livelihoods framework approach (DFID, 2005).
2022 J.G. Paul et al. / Waste Management 32 (2012) 2018–2028

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

Human Social Physical Financial Natural

Awareness Relationships Housing Main source of income Living conditions
Health Access to social support Access to infrastructure Other sources of income Working conditions
Access to education Local recognition Access to public services Access to loans/ micro-finance Access to resources
Skills Networks

Waste generation Iloilo City (2006)

Results (detailed data in tons/day) Results (combined data in %)
Rubber Textiles
Metals Leather (5.1) Special (7.5)
(6.2) (1.2)

Glass Fines Residual

(8.2) (22.3) 14.1%
SRM
Kitchen SRM
Plastic waste 9.6% 1) Organic
packages (98.0) 46.4%
AFR
(45.1)
(Plastic)
Paper, Yard 15.1% AFR
carton waste
(Paper)
(64.1) (40.3)
14.8%

Total SW generation: 298 kgs/day

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 sur-
round 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 consist-
ing 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 sell-
able 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 uti-
lized 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
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 per-
formed 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 forma-
tion 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 pro-
posed 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 devel-
opment 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 haz-
ards 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 pro-
jects, 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
2023
takes into account that the built up of needed capabilities such
as language, communication, behavioral, managerial and market-
ing 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 espe-
cially 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
At the start of the development intervention knowledge regard-
ing income, gender, family and age situation as well as education
level of the waste pickers was not available. Hence the municipal-
ity 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 ap-
proaches, methods and to build trust among the waste pickers
and involved stakeholders. As a result, the waste pickers them-
selves 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 mem-
bers 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 train-
ing and value formation. Organizing the waste pickers started by
inculcating values that aimed at changing the mind set and atti-
tude of wastepickers, e.g. to address prevalent ‘‘battle of fittest
and poverty mentality’’. UCLA members were then trained in vari-
ous alternative livelihood projects. During the development pro-
cess, a sense of ownership was instilled whenever possible.
Participatory approaches were used to involve the IWS in the pro-
cess 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 Cooper-
ation Agency (GIZ) starting in July 2007 (Paul et al., 2007; Paul
et al., 2009a,b; Romallosa et al., 2011). The following table summa-
rizes the status of established recycling projects and related job
and income data that are jointly conducted by the local govern-
ment and UCLA including proposed new recycling projects and po-
tential workplaces.
2024 J.G. Paul et al. / Waste Management 32 (2012) 2018–2028

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
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
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

Table 3 materials is segregated by the IWS and forwarded to the recycling

Age/gender distribution of UCLA members (based on Villamor, 2008).
industries, e.g. to substitute raw materials or fossil fuels. However,
Age bracket Number of Number Number Educationa prices of recyclable materials fluctuate with market development
members male female and global economic trends (e.g. oil and metal prices) causing trad-
18–29 years 80 56 24 Elementary ers to postpone buying certain waste materials. Informal waste
30–39 years 63 21 42 High school workers lack capital and thus are vulnerable to exploitative
40–49 years 30 6 24 Elem/HS arrangements established by those who provide them capital by
50–59 years 21 7 14 Elementary
60–69 years 6 – 6 Elementary
dictating the prices. They have poor bargaining power because
they are mostly unorganized.
Total 200 90 110
Informal recycling often results in work safety and occupational
a
Educational accomplishment level for the majority of the listed age braket with health issues as well as environmental problems, e.g. through con-
>80% of members; Elem. = Elementary school level; HS – High School level. tamination 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 con-
So far, alternative livelihood could be provided for 95 of the 240
siderable secondary social and health costs.
UCLA members. However, Table 4 shows that the started and fur-
ther envisioned recycling projects could not only offer workplaces
for the enrolled UCLA members but could integrate all of the 300 8.1. Benefits for the IWS based on the Sustainable Livelihood Approach
local waste workers from the Calahunan site.
In terms of socio-economic development, the most important
8. Discussion impact of the ongoing recycling projects for UCLA is the additional
income from AFR, compost, briquettes and handicraft sales coupled
Although the IWS mostly operates apart from formal economic with enhanced working conditions and skills development. Related
activities (unlicensed, untaxed), waste recovery performed by the to the AFR recovery, the new mechanical segregation system and
IWS significantly contributes to the enhancement of local SWM team work enables the waste workers to more efficiently segregate
systems and material recovery. The official SWM system in many sellable materials under much better working conditions in com-
cities would perform much poorer if not supported by waste pick- parison with scavenging at the open dumpsite. From the data gath-
ers, scrap collectors, junk dealers, recyclers and traders ered so far, the most of the actively enrolled UCLA workers earn
(Wehenpohl and Kolb, 2007; Medina, 2008; Scheinberg et al., now daily incomes >3 US-$, some already manage to earn 5–6
2010). However, the formal organization of waste workers can pro- US-$ daily. Hence, the statistical poverty line as proposed by the
pel their efficiency and support their role and sustainability as MDG with 2 US-dollars/day can be surpassed for most actively in-
partner for SWM (SWAPP, 2006; Diaz et al., 2007; Gerdes and volved UCLA workers so far. Assessing the project progress based
Gunsilius, 2010; CWG & GIZ, 2001). Various forms of formalization on the SLA, substantial improvements related to their social and
are possible such as a cooperative, waste workers association or as financial assets, with enhanced main source of income, access to
business enterprise. Worldwide, a huge variety of recyclable networks and social support mechanism could be established.
 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 – 20
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
6.4. Green city services for LGU and private customerse
>80
Totalf 95
a
Based on exchange rate 1 US-$ equivalent to 42.5 Philippine Peso (February 2012).
b
The proposed composting project needs to be subsidized by the municipality.
c
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.
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 signifi-
cantly improve their working conditions and reduce their vulnera-
bility. 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 en-
hanced skills development, recognition and access to public ser-
vices and resources.
Although women and men were equally addressed with the
various new recycling projects, it turned out that 53% of the partic-
ipating 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 sta-
tion 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 semi-
nars (Paul et al., 2009a). Aside from improved working conditions,
those workers who engaged in UCLA’s organized livelihood activi-
ties have improved their earning capacity. For example: Betty,
48 years old with 10 children is no longer waste picking. She spe-
cializes in making paper beads with her out of school daughter.
They now earn an average of 4 US$/day each. Betty has recently
joined a trade fair in another city. Soon she will be teaching others
how to make paper beads for a fee, an additional challenge and in-
come for her. The enterprising ability of UCLA leaders is slowly sur-
facing. After 3 years of teaching and motivating them to engage in
trading recyclables, the leaders finally decided to start UCLA’s trad-
ing business in April 2011. This endeavor shows first positive
2025
Potential for new members Average income /member/day in US-$a
60 3–4
20 4–5
2–3
15 3–4
45 5–6
(5) 4–5
(10) 5
(20) 4–5
(10) 4–5
160 (+45)
results and the involved UCLA members start to believe in their
capacity to handle and manage the trading of recyclables as a busi-
ness 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 ce-
ment 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 mem-
bers 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 devel-
opment largely contributed to gradually attract other waste pick-
ers 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 mem-
bers, 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
2026 J.G. Paul et al. / Waste Management 32 (2012) 2018–2028
Development Goals (MDG) in the local context, especially for the
involved waste pickers, who were prior to the development inter-
vention 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 or-
ganic residues as well as light density plastic packages (compare
Fig. 3). Hence, the municipality explored options to especially ex-
clude organic waste components and light density packages from
waste disposal in order to further reduce waste disposal and re-
lated harmful impacts such as leachate or Greenhouse Gases emis-
sions (GHG).
To assess the GHG generation potential, a GHG Calculator for
SWM that was developed by the German International Coopera-
tion 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 applica-
ble 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 re-
sult of recycling of components when recycled materials substitute
new materials or when the treatment process itself avoids or less-
ens GHG emissions if compared with waste disposal. Net GHG ef-
fects 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 Cal-
culator 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 406,000
Waste mass collected 62,000 t/year
Specific waste mass 0.42 kg/cap/day
Calorific value of total waste 9.0 MJ/kg
Total carbon content 29.1% wet waste
Regenerative carbon 67% of total
Specific GHG production 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 ‘‘business-
as-usual’’ approach based on the assumption that the municipality
could manage to divert 25% of the collected waste through conven-
tional composting (windrow and drum composting, compare Sce-
nario 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 CO2-
eq/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 in-
crease 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, like-
wise 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, espe-
cially 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 Philip-
pines includes thousands of informal waste workers, among them
women, children and elderly, who depend on informal waste col-
lection 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 dis-
posal. 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
 J.G. Paul et al. / Waste Management 32 (2012) 2018–2028
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 develop-
ment 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. Neverthe-
less, 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 stake-
holders, 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 effec-
tive 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 pro-
cess already during the planning stage.
 Appointment and capacity building of a special project manage-
ment 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 inte-
grate 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.
2027
 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 work-
ers 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, gov-
ernmental agencies and academe and support in creating link-
ages 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-governmen-
tal 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 Interna-
tional 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 or-
der to avoid to ‘‘re-invent the wheel’’ many more times. It is also
worthwhile to mention that related to the ongoing international
2028 J.G. Paul et al. / Waste Management 32 (2012) 2018–2028
debate on climate change, the so-called National Appropriate Mit-
igation Actions (NAMA) may emerge as a new tool to better ad-
dress 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 ap-
proaches 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 will-
ingness to participate in new and challenging projects and for their
support in the conduct of various test works. The German Interna-
tional Cooperation agency (GIZ) is thanked for providing various
tools, equipment and for co-financing the conduct of many project
activities.
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