Waste Management through Community Partnerships. Through citizen empowerment and education, it is possible to implement

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1 60 M UNICIPAL A DMINISTRATION OF B ELO H ORIZONTE, BRAZIL ICLEI International Council for Local Environmental Initiatives MARCH 2001 Waste Management through Community Partnerships Through citizen empowerment and education, it is possible to implement an effective waste management program that creates employment for Case Study marginalized residents and addresses environmental and social concerns. PROGRAM NAME STREET SCAVENGERS PREFERENTIAL PARTNERS FOR SELECTIVE WASTE COLLECTION IN BELO HORIZONTE The Street Scavengers Program aims to better the working conditions of street scavengers and promote their status within the community, while creating a waste management system to improve the city s recycling initiatives. ABSTRACT In 1993, Belo Horizonte s municipal administration responded to the demands of street scavengers for the right to work and have facilities to sort their scavenged materials. The administration began to work with the Street Scavengers Association (ASMARE) to involve them in the planning and implementation of a recycling and waste management program for the town. Several warehouses were established eliminating the need for sorting on the streets. A public education program raised awareness about the environment and the value of recycling. The program created a more positive public attitude towards the scavengers and their work. Presently there are three sorting warehouses and more than 390 collection containers located throughout the city. Collection of recyclables has increased from 15 to 500 tonnes per month. From a membership of 31 scavengers in 1993, ASMARE has now grown to number 235. Literacy and skills training are offered to scavengers and their families. As a Belo Horizonte South America MUNICIPAL PROFILE Population 2.5 million Land Area 335 km 2 Municipal Budget US$696 million

2 result of this program, the scavengers have increased self-esteem, a sense of empowerment, and social solidarity. IMPORTANCE OF THE ISSUE Solid waste management poses problems for both developed and developing cities. Litter on streets can lead to environmental and health problems, and also decrease the attractiveness of a city. Collecting and processing materials for landfill or recycling can represent a significant portion of a municipality s budget. By diverting waste from landfill through recycling, municipalities can recognize cost savings and increase the life span of an existing landfill. When waste is reduced or recycled, fewer natural resources are needed to produce new materials. Implementing a recycling program can help alleviate social problems within a community by employing marginalized groups. At the same time, this gives them ownership, encouragement and involvement in educational and social activities, and a sense of respect and acceptance within the community. a manual cart. Some established agreements with shop owners, banks, and offices to collect paper and cardboard on a regular basis. Materials were sorted on the pavement at designated places. Scavengers often worked 12- hour days, and during the week most slept on the streets in improvised cardboard shacks as they could not leave collected materials unattended. Those without housing lived permanently on the streets. Unrecognized socially and professionally, the street scavengers were viewed by citizens as part of the rubbish, oftentimes expelled from the streets in order to make the city more attractive. A gradual change began in August 1988, when an organization of street scavengers formed with support from Pastoral de Rua (a group from the Catholic Church that works with street dwellers) and a branch of Caritas International. Their work led to the creation of the Street Scavengers Association (ASMARE) in May Through ASMARE the scavengers demanded the right to work in the city, a guarantee to collect recyclable materials, and a proper place to sort the materials. CASE Belo Horizonte, located in the southeast region of Brazil, is the country s third largest city with a population of approximately 2.5 million. Construction, high technology, and other industries make it one of the most economically dynamic urban areas in the country. However fast urban growth, particularly from migration from the countryside, is overwhelming the city s capacity to provide a decent standard of living and environment for all residents. Some of these marginalized residents earn their living through the informal economy, picking through the city s waste for recyclable materials to sell. In Belo Horizonte, these individuals are known as street scavengers. Street scavengers have collected recyclable material from the waste of the community for over 50 years. Scavengers had fixed collection routes along which they gathered materials with In 1993, the Superintendency of Public Cleansing (SLU) of the City of Belo Horizonte began a selective handling and treatment system for solid waste in the city that was to minimize environmental impact and maximize social and economic benefits. The SLU worked to encourage public interest by promoting a recycling program that linked social and environmental concerns existing within the municipality. The SLU s Selective Waste Collection Project worked with scavengers as preferential partners. A coordination board was created for ASMARE, with representatives from their different executive partners. The board helps define the specific roles and activities of the scavengers, the city and others, as well as provide a forum for strategic planning and evaluation. Members of the board were also involved in the follow-up activities of various scavenger work committees. The board is not 2

3 and also offering technical support for their entrance into the semi-industrial recyclable markets. There are several other cooperative programs occurring with other community sectors, including ongoing financial, technical, administrative, and political support from the Pastoral de Rua Church. International agencies such as the UN Development Programme s (UNDP) LIFE Programme, Caritas International, and the Inter-American Foundation also support the project. Materials are collected from the recycling containers, then transferred to ASMARE headquarters for sorting. responsible for the management of ASMARE, a role played by a steering committee made up of scavengers. Initially, the project set up several recycling containers in public areas so citizens could deposit their recyclable items. Plastics, tin cans, paper, and cardboard were among the materials collected. The program expanded rapidly, and between 1994 and 1996 several warehouses were established eliminating the need for scavengers to sort materials on the streets. Now, recyclable materials are collected manually by individual scavengers who visit commercial establishments and offices in the downtown district and its surroundings. As well, SLU staff collect materials from the public recycling containers by truck three times per week and bring them to ASMARE warehouses for processing. In 1999, there were 107 local delivery sites scattered throughout the city, and a total of 391 containers with regular collection. In sites with low productivity, collection is on a request basis. Materials collected are taken to warehouses where they are sorted, graded, and prepared for sale by ASMARE associates. All glass is collected by truck. A local private university is currently providing financial support to various ASMARE activities As well, the City of Belo Horizonte has assisted ASMARE in collection and processing by constructing a recycling warehouse and providing: financial resources to maintain the recycling headquarters; rental of two further recycling warehouses equipped with scales, individual boxes for sorting, toilets, and kitchens; design and construction of citywide recycling; uniforms and public transport passes for associates; trucks to collect recyclables from the recycling containers throughout the city. ASMARE is managed as a cooperative of autonomous workers. From a membership of 31 scavengers in 1993, the cooperative has now grown to 235. To become an associate, a street scavenger must participate in training courses and meetings, contributing to a deeper understanding about cooperatives and their advantages, as well as the business of recycling. ASMARE associates are involved in the collection, reception, sorting, and sale of recyclables, with profits going to the associates. Their payment is based on production, according to fair market prices. As of May 1998, all of the associates were earning at least twice the minimum wage, with 6 percent earning more than five times that wage. As well, each month, a 20 percent productivity incentive is paid to each associate based on monthly production. At the end of the financial year, surplus revenues are proportionately distributed. 3

4 ASMARE continues to be involved in the evolution of the selective waste project, with the project s development discussed at coordination board meetings, and the SLU holding regular planning and evaluation meetings with the ASMARE board. The city has also been investing in the managerial training of the associates so that they will become capable of running their own business in an increasingly autonomous way. Public Education and Awareness Belo Horizonte s objective was to tackle the problem at its root, asking citizens to reduce consumption, reuse materials, and then recycle those materials. Given that waste minimization strategies require significant citizen cooperation, in 1993 a multidisciplinary staff team was established by the SLU with responsibility for environmental education and mobilization of the local community. Comprising sociologists, psychologists, education specialists, geographers, artists, and architects, the team provides permanent support to strengthen the scavengers institutional and operational capabilities, and catalyzes new partnerships between the scavengers and civil society. The multidisciplinary team, together with ASMARE associates, conducts workshops at schools, churches, and public and private institutions, and also public street-theatre performances to raise people s environmental consciousness. These sessions also aim to alter prejudices and negative attitudes towards the street scavengers. Citizens are encouraged to donate their recyclable materials to the scavengers, and are invited to visit the recycling warehouses and the landfill as a way to bridge the gap between the population and the scavengers. Media ads on pollution and health, recycling, and the role of the scavengers in public sanitation have been used to strengthen the message. designs are made out of reused/recycled materials and are based on themes related to the scavengers way of life. The parade has attracted the media and local citizens. The event shows how attitudes towards the street scavengers have changed, and how they have become integrated into the community and are gaining respect for their work. Social Programs Social programs for the street scavengers and their families have been an important part of the project. Literacy and skills training are provided for the scavengers through ASMARE, and their children are given assistance with their homework on a daily basis. Qualification courses have also been established with themes such as traffic safety, recycling, and interpersonal relations. As well, the success of the Selective Waste Management Project has lead to the creation of additional jobs in the sorting and recycling facilities. Results Belo Horizonte has developed a comprehensive recycling program that has improved the working conditions and social status of street scavengers by involving them in the planning and implementation of the city s waste collection system. To appeal to the national passion for Mardi Gras, in 1994 the SLU initiated the annual street scavenger carnival parade. Costume and Participants make their own costumes out of reusable and recyclable materials at the annual Street Scavenger s carnival parade. 4

5 The project has created a selective waste collection system within the municipality, improving the city s cleanliness and environmental quality. The collection of recyclable materials has increased from 15 to 500 tonnes per month, reducing the amount of waste directed to, and extending the life of, municipal landfill sites. Between 1993 and 1997, the amount of material recycled increased from 180 to 3,100 tonnes annually. Financial resources that the city would normally spend on landfill and curbside collection of recyclables have been reduced the program has resulted in annual landfillassociated cost savings of US$28,855. Recognition of the importance of the scavengers work has contributed to their improved self-esteem, sense of empowerment, and social solidarity. As a result of training offered through ASMARE, working and living conditions and the level of education has improved. It is also believed that there is a correlation with literacy and skills training courses offered through ASMARE and reduced rates of crime, violence, and alcoholism. The program has also stimulated a more positive public attitude towards the scavengers and their work, and led to social and professional recognition by the general public. Overall, the project has helped raise citizens consciousness on both the environment and social equity. BREAKDOWN OF MATERIALS RECYCLED Lessons Learned The creation of the ASMARE coordination board helped each partner find their role in the project and avoid competition. However, it was challenging to find a balance between the pressure on local governments to produce results and the time needed for the scavengers to adapt to the necessary changes. At times, it proved to be difficult to encourage the scavengers to collect materials on a regular basis. As well, Belo Horizonte found that it was important to have recyclable materials brought closer to the scavengers. Because the public was learning about recycling for the first time, in the beginning it was difficult to set up recycling bins and have everyone drop off the proper items in the bins. It was also difficult to emphasize the importance of regular collection. Belo Horizonte found that more time should have been taken in the design of the containers prior to their implementation, as later, two containers were needed to provide for easier separation and collection. Unlike many places with recycling systems, the SLU has encouraged solidarity among residents by encouraging them to donate recyclable materials to the street scavengers. It is hoped that this more social, rather than economic, appeal will make recycling practices longer lasting. Belo Horizonte s experience has shown that an emotive approach (theatre, music, art) coupled with a more formal approach (training courses, seminars, lectures) has been an effective way of changing public attitudes towards waste and the street scavengers. Calculated from data for the period January to May KEY REPLICATION ASPECTS The partnership with the street scavengers has demonstrated the value of addressing social issues alongside environmental issues, and the value of empowering and involving citizens in environmental initiatives to create comprehensive programs. Partnerships with other organizations 5

6 offered much needed financial and technical support and were critical in providing the necessary political support. The project has proved to be so successful that it is currently being replicated in three other municipalities in Brazil. Staff The operational aspects of the project are staffed by social mobilization technicians, architects, and engineers from the SLU. Social workers and administrative staff from the Pastoral de Rua Church also contribute to the project. Literacy and skills training are provided through ASMARE. Financing and Budget The total budget for the SLU is US$40,214 part of which is used to finance the program s operations. The local government also offers social support. Resources for administrative support come partly from the Municipal Secretariat for Social Development and partly from ASMARE. Several local companies donated recyclable materials to the cooperative and assisted in planning for the annual street carnival. International partnerships exist with the UNDP LIFE Programme and the Inter- American Foundation. The Pastoral de Rua Church, Caritas International Aid Group, and the Unicentro Newton Paiva also provides financial and other support. Financial support also comes from the BioEnergy Group in Växjö and SSNC. The four main partner organizations also provide technical, in-kind, administrative, and political support. KEY CONTACT Sônia Maria Dias, Social Advisor Dept. Superintendency of Public Cleansing SLU Municipal Administration of Belo Horizonte Rua Tenente Garro, 118/9 andar Santa Efigênia, Belo Horizonte Brazil Tel: / Fax: / soniamdias@brfree.com.br References Dias, Sonia Maria Integrating Waste Pickers for Sustainable Recycling (presentation at Planning for Sustainable and Integrated Solid Waste Management. Manila, The Philippines, September, 18 21, 2000). International Council for Local Environmental Initiatives Local Initiatives Members in Action (available on-line at Toronto, Canada. Local Initiatives Awards Secretariat Local Initiatives Awards 2000 Winners and Finalists (Brochure). Toronto, Canada. Municipality of Belo Horizonte Application for the Local Initiatives Awards. Local Initiatives Awards Secretariat, Toronto, Canada. Acknowledgements Heather Kepran and Jennifer Lee, Writers; Kim Peters, Editor The Municipal Administration of Belo Horizonte s Street Scavengers Preferential Partners for Selective Waste Collection program received the Local Initiatives Award 2000 for Excellence in Waste Management. The awards were established by ICLEI and Saitama Prefecture, Japan, to recognize local governments and their community partners for outstanding achievement in sustainable development and environmental protection. The International Council for Local Environmental Initiatives is a membership organization of local governments and their associations. The Council is dedicated to building and supporting a worldwide movement of local governments to achieve tangible improvements in global environmental conditions through the cumulative impact of local actions. 16th Floor, West Tower, City Hall, Toronto, Ontario, Canada M5H 2N2 Tel: / Fax: / iclei@iclei.org ICLEI-Canada ICLEI U.S.A., Inc. Printed in Canada on recycled paper containing 50 percent post-consumer waste.