Recycling in Belo Horizonte, Brazil – an Overview of Inclusive Programming

Women in Informal Employment: Globalizing and Organizing

WIEGO Policy Brief (Urban Policies) No 3 May 2011

Sonia M. Dias1 Recycling in Belo Horizonte, Brazil – An Overview of Inclusive Programming

Brazil is one of the world’s most progressive countries in integrating waste pickers in solid waste management systems, and Belo Horizonte has led the way. The capital city of Minas Gerais State in southeastern Brazil, Belo Horizonte has a long tradition of strong municipal planning that dates back to its development in the nineteenth century as Brazil’s first “planned” city. Waste management has been a municipal priority and concern in the city since 1900.

Belo Horizonte has been a pioneer in managing solid waste in Brazil. Socio-environmental concerns, such as improving the existing systems and generating income for the poor, encouraged improvements in solid waste management (SWM) systems in the city. This led to the adoption of an integrated solid waste management model in 1993, with a focus on promoting segregation at the sources, in order to minimize the harmful environmental impact caused by the waste itself and maximize the social and economic benefits for the city. The new integrated system brought wide-reaching improvements. These included enhancements to the operations at the existing landfill; selective collection and a recycling programme for civil construction waste; composting of organics; A panoramic view of Belo Horizonte where waste management has been environmental education; improving a municipal priority and concern in the city since 1900. working conditions for formal workers Source: WIEGO photo library (sweepers and collectors); and

1 Sonia Dias is WIEGO’s waste sector specialist working on the Urban Policies Programme. She can be contacted at [email protected]. integrating informal workers into the formal SWM system. At the Belo Horizonte at a Glance municipal, state and national levels in Brazil, there has been a commitment ➔ Population: 2,452,617 (IBGE 2009) to social inclusion of residents. The ➔ Human Development Index (2000): 0,839 integration of the informal recycling Total tonnes municipal waste per year: 1,296,566 tonnes (SLU 2008) sector in SWM systems is a good ➔ example of this. Since 2001, for ➔ Percentage coverage of household waste collection: 95% (SLU 2008) example, Brazil has included catador ➔ Number of informal workers (catadores) in recycling: 2685 (Dias et al. 2010) de material reciclável (collector of ➔ Number of cooperatives/number of affiliates: 8/401 recyclables) as a profession in the ➔ Percentage of catadores organized into associations and cooperatives: 15% Brazilian Occupation Classification (CBO). Years earlier, Belo Horizonte had introduced legislation that made recycling, social inclusion, job the series, Policy Brief 4, provides and policy makers in other locations creation and income generation the a detailed account of the genesis, ideas that could be adapted to their four main pillars of SWM. characteristics, achievements and local realities. challenges of the policy of selected The Public Cleansing Authority (SLU) waste collection which integrates has the mandate for providing all the catadores. A critical source of Recycling of solid waste management services success of these programmes is the (sweeping, collection, disposal, high level of organization and social treatment and transformation of mobilization of the waste pickers and Materials from garbage) for the entire City of Belo their supporting non-governmental Horizonte, including the sale of its organizations. Policy Brief 5 outlines Domestic Waste services, products and by-products. the background to this and traces The SLU defines domestic waste as the genesis and current operation of The municipality recovers non- waste generated by households, as well the Municipal Waste and Citizenship organic recyclable materials from the as waste with similar characteristics Forum in Belo Horizonte. The final domestic solid waste stream through generated by commercial piece – Policy Brief No 6 – provides three main channels: a) drop-off establishments, institutions, and an overview of the legal framework in system; b) curb-side separated industry. Recycling activities focus on Brazil that has enabled this innovative collection of recyclables in residential domestic solid waste and construction model of inclusion of informal areas; c) door-to door collection from waste. Municipal collection covers 95 waste collectors in municipal waste non-residential facilities. per cent of domestic waste in Belo management. Horizonte. The main feature of these All collected materials (mainly plastic, recycling programmes is the integration This series aims to share information paper and metals) are brought of two categories of informal workers: about people-centred approaches to to warehouses of waste pickers’ the waste pickers2 (catadores) of solid waste management systems; cooperatives. Here, the materials recyclables, and the informal collectors in particular, it describes policies are processed before moving up of debris (carroceiros). Organizations and practices that have resulted the recycling chain. All cooperatives of these informal workers (catadores in securing and improving the have scales, personal protection and carroceiros), together with livelihoods of informal workers. equipment, and big bags. Some representatives of the municipality and These briefs are intended to be have shredders and fork lift trucks. other organizations of the civil society, demonstrations of new ideas, Materials are sold to industry in Belo have joined one stakeholder forum: and not to serve as a model to be Horizonte or within the state of Minas the Municipal Waste and Citizenship applied in its entirety elsewhere Gerais. The cooperatives receive all Forum. since the physical elements of the money from sales, which is then solid waste systems as well as the shared between the associates. This is the first in a series of Policy policy, institutional, and governance Briefs on this case. This first brief frameworks differ from one place to This official integrated recycling gives an overview of two recycling the next. The level of organization system combines the work of the programmes in Belo Horizonte of informal workers also varies. formal sector and the semi-formal that engage informal workers – the However, it is hoped that the example sector (cooperatives) through the carroceiros and the catadores – in of Belo Horizonte will give waste three main channels described in their operations. The next brief in pickers, their organizational leaders further detail on the following page.

2 In Brazil, waste pickers are called catadores de material reciclável (collectors of recyclables) and the CBO describes an individual with this job as “someone who might collect recyclables in streets or at disposal sites, work as a sorter and/or other recycling related activities either in cooperatives or junk shops.”

2 WIEGO Policy Brief No 3 1. Door-to-door Collection of Recyclables by Cooperatives from Non-residential Generators

Two of the eight cooperatives of waste pickers involved with the municipal recycling scheme collect recyclable materials from commercial establishments and offices, especially in downtown Belo Horizonte, using push-carts. One of these – ASMARE – has its own carpentry workshop where carts are made and repaired.

In addition, recyclables are collected from larger generators such as industries and public offices using vehicles owned by the cooperatives. The collected material is taken to warehouses for further Door-to-door collection of recyclables from commercial establish- handling. In 2008, 5,100 tons were ments by waste picker cooperatives, some using push-carts. 5,100 collected through the cooperatives, tons were collected through these cooperatives in 2008, making up which made up 52 per cent of all 52% of all collected recyclables in the city. Source: Sonia Dias collected recyclables.

2. The Drop-off System

There are 150 delivery sites scattered throughout the city – locally known as Local de Entrega Voluntaria (LEV) – where people can bring recyclables and place them in different containers for plastic, paper, metals and glass. The SLU staff empty about 450 containers each week and the materials are transported to warehouses for further handling. Introduced in 1993, this system collects between 60 and 140 tons of recyclables each month. For example, in 2008, 1,300 tons were collected through this system; this represents 13 per cent of all collected recyclables in the city. However, one challenge has been Drop-off receptacles. The SLU empty about 450 containers each that many of the recycling containers week and 1,300 tons were collected through these delivery sites are damaged, usually by non- in 2008, making up 13% of all collected recyclables in the city. organized waste pickers searching Source: SLU for recyclables.

3 WIEGO Policy Brief No 3 3. Curbside Collection of Recyclables by SLU

The SLU started this system in 2003. Initially, it served 80,000 people; it now collects from over 148,000 people and in 2008, 3,900 tons of recyclables were collected either directly by SLU or by third parties contracted by SLU. The collected materials are taken to warehouses, run by the cooperatives of semi- formal waste pickers, where they are processed and sold to industry.

Curbside collection by the muni cipality. 3,900 tons of recyclables were collected in this manner during 2008. Source SLU

Sorting of Recyclable and stored. Most recycling warehouses waste pickers’ needs and improve the were adapted, not purpose-built for efficiency of the system. Waste these activities. As a result, there have been challenges with handling and flow Collected recyclable waste materials are of materials. However, new warehouses Coopersoli Barreiro recycling brought to the recycling warehouses are being built that are specially warehouse – sorting device of one of the eight waste pickers’ designed for recycling activities and where materials are sorted, cooperatives, where the materials are have mechanical discharge and sorting baled, shredded, packaged, sorted, baled, shredded, packaged, systems. These will be better suited for and stored. Source: SLU

4 WIEGO Policy Brief No 3 Illegal dumping is minimized Wastes Programme with the intention and income generation in the Recycling of of combining income generation and preservation of the urban informal sector stimulated Construction environment. A special feature of through paying carroceiros to the Programme is the inclusion of transport waste to designated and Demolition carroceiros, informal collectors of units. Source: Leslie Tuttle construction and demolition waste.

Waste the municipality provided awareness- Carroceiros use horse-drawn carts to raising training to 400 carroceiros The by-laws of the City of Belo transport collected construction debris. on the negative impact of illegal Horizonte state that business owners Previously, much of the construction dumping. The programme also are responsible for disposing of waste collected would be disposed organized and registered these construction and demolition waste. of in illegal dump sites. This, in turn, workers. Now citizens have access to This waste was often dumped attracted additional illegal dumping of this municipal registry, and can call illegally by business owners, causing ordinary domestic waste, exacerbating upon carroceiros’ services for the many environmental problems. the negative environmental impacts. removal of construction waste, tree Therefore, in 1993 the municipality In 1994, a municipal survey identified pruning remains or even old furniture. of Belo Horizonte through its Public 134 illegal dump sites. From Households pay a fee per trip (US$8- Cleansing Agency (SLU) implemented the outset of the Environmental 12) directly to the carroceiros to the Environmental Recovery and Recovery and Recycling of Civil transport this special waste to the Recycling of Civil Construction Construction Wastes Programme, designated reception units.

5 WIEGO Policy Brief No 3 The Programme has a number of components.

A key component involves the support and/or organization of cooperatives of informal debris collectors, and the legal allocation and authorized provision of 29 decentralized depots for receiving small volumes of debris called URPVs (Unidades de Recepção de Pequenos Volumes). These units can take up to two cubic metres daily of bulky waste (including tree pruning waste). Domestic waste is not accepted by the carroceiros or at the URPVs. Debris from URPVs is then There are 29 decentralized units (URPVs) for receiving small taken to the recycling units by the city volumes of debris. They are each able to take up to two cubic trucks. metres of bulky waste daily. Source: Leslie Tuttle A support provided to carroceiros is the licensing of horse carts. Municipal Decree 10.293 (12/08/2000) states that horse carts should be registered and licensed each year free of costs to the informal workers. The informal collector of debris is given an identity card and the Municipal Secretariat for Health provides a vaccination card for the horse. The SLU, meanwhile, is responsible for checking that all the material collected and transported by the carroceiros meets the regulations.

Further there is veterinary support for carroceiros’ horses. This stems from a partnership with the Veterinary School of the Federal University of Minas Gerais, where the carroceiros receive animal health care assistance for their horses (vaccination and medical care). The horses are also registered and branded. The University also does research to improve the strength and ability of the horse breeds.

Finally, there are three civil construction recycling units that process construction waste taken from the decentralized reception units, from the public sector construction activities, and also from large private construction companies All informal workers must be liscensed and register their horse that have “separation at the source” carts every year free of charge to receive an identity card and programmes at their construction and vaccination card for their horse. Further veterinary support demolition sites. In 2008, the three is also provided from the Veterinary School of the Federal processing units together received and University of Minas Gerais. Source: Leslie Tuttle processed 132,934 tons of construction waste, which accounted for 15 per cent

6 WIEGO Policy Brief No 3 of this waste stream and 6.5 per cent of Why has Belo Horizonte been so all processed waste in Belo Horizonte. Conclusion successful in including informal These recycling units process bricks workers in the waste management and other construction materials out of Like many other cities, Belo processes of the city? One reason is the debris. Horizonte’s methods of dealing with that institutionally, SWM has a well- solid waste are designed mainly to established and all-inclusive position The remaining construction waste ensure public health and focus on within the municipal hierarchy. The goes to the sanitary landfill operated waste collection and safe disposal. In SLU has been operating for more by the Municipality of Belo Horizonte. 1993 – long before the 2010 approval than three decades at a high level of Tree pruning waste is transported to a of Brazil’s National Solid Waste Policy independence. It previously reported small composting facility (capacity of which ensures the rights of informal directly to the Mayor and, more 20 tons/day) at the municipal waste recyclers (see Policy Brief 8 for more recently, reports to the Municipal treatment centre, where it is co- details on this) – Belo Horizonte Secretariat of Urban Policies. The processed using a windrow composting was already using a progressive SLU’s long-term relationships have technology that also uses organic approach to solid waste management. provided a means to combine waste collected from supermarkets Its Organic Law and other related human capital and institutional and open vegetable markets. A strong legislation included recycling, social memory around SWM issues and monitoring and quality control process inclusion, job creation and income have contributed to the innovative is in place to assure a good product generation as the four main pillars approach in SWM undertaken since suitable for agricultural use. In 2008, of SWM. The municipality supports the early 1990s. 2,300 tons were processed – 1,400 organizations of catadores in different tons from markets and 900 tons from ways through the Municipal Budget, Another reason is the high level of tree trimmings. The nearly 900 tons using the budgets of the Cleansing organization and social mobilization of compost produced last year were Agency and the Municipal Secretariat of the waste pickers and their used in the landscaping project of the for Social Assistance. supporting NGOs. The example landfill, as well as by the municipal nursery and public gardens.

Other Programmes

Belo Horizonte’s approach to Solid Waste Management includes two additional elements:

• Community Cleaner Programme: This includes the residents of low- income settlements as the main service providers for municipal cleaning jobs, which are mainly sweeping and weeding of streets.

• Food Programme: This is the collection and distribution of safe but non-sellable foodstuffs from supermarkets, greengrocers, and street vegetable sellers to crèches, hostels, homes for the elderly and other institutions.

These programmes are not specifically Cleaning and packing of vegetables for the Food Programme, targeted at waste pickers but show which collects safe but non-sellable foodstuffs and distributes that the solid waste model of Belo them to créches, hostels, homes for the elderly and other Horizonte goes beyond informal institutions. Source: SLU workers to include other urban poor.

7 WIEGO Policy Brief No 3 set by ASMARE, the first association Other sources: formed in Belo Horizonte in 1990, References Dias, S. M. and F.C.G. Alves. 2008. inspired other groups of catadores and “Integration of the Informal Recycling the carroceiros to be formed in the This article is drawn primarily from Sector in Solid Waste Management city. The catadores are able to voice two sources: in Brazil.” Study prepared for GTZ’s their demands and to form strategic sector project “Promotion of Concepts Dias, S. M. 2009. Trajetórias e for Pro-Poor and Environmentally alliances and this has pushed an Memórias dos Fóruns Lixo e Cidadania Friendly Closed-Loop Approaches in inclusive agenda for SWM. In addition, no Brasil: Experimentos Singulares Solid Waste Management.” (Available the two existing Waste and Citizenship de Justiça Social e Governança at www.gtz.org.) Forums (the Minas Gerais State Forum Participativa. 2009. (Tese de and the Municipal Forum of Belo Doutorado), Faculdade de Filosofia Dias, S. M. 2002. Construindo Horizonte) provide a platform where e Ciências Humanas, Universidade a cidadania: Avanços e Limites interests and concerns from civil Federal de Minas Gerais. (Trajectories do Projeto de Coleta Seletiva de society actors and public officials can and Memories of the Waste and Belo Horizonte em parceria com a be brought for public debate. Citizenship Forums – Unique ASMARE. (Dissertação de Mestrado). Experiments of Social Justice and Instituto de Geociências, Universidade This Policy Brief has given an Participatory Governance, PhD Thesis, Federal de Minas Gerais. State University of Minas Gerais). overview of the solid waste policy of Dias, S. M. 2000. “Integrating Waste Belo Horizonte, explaining its broad Dias, S. M., J. Ijgosse and R.T.V. Pickers - Catadores for Sustainable features. The policy includes two Barros. 2010. Belo Horizonte City Recycling.” Paper presented at the categories of informal workers – the Profile. In UN Habitat,Solid Waste workshop “Planning for Sustainable and collectors of recyclables (catadores) Management in the World’s Cities. Integrated Solid Waste Management,” and collectors of civil construction Water and Sanitation in the World’s SKAT, Manila, Philippines (September). waste (carroceiros). Challenges faced Cities 2010. London: Earthscan. (Available at www.cwgnet.) by the recycling programmes are explained in Policy Brief 6, 7 and 8. Acknowledgements: The contribution of informal workers to building strong and sustainable I am grateful to the following people for their collaboration: to Caroline solid waste systems, the reduction of Skinner and Leslie Vryenhoek for their fabulous team work in editing; carbon emissions, and a cleaner and to Demetria Tsoutouras, Lucia Fernandez, Melanie Samson, Laxmi healthier environment for everyone has Narayan and Chris Bonner for their valuable comments in the first draft; guaranteed a strong and continuing and to Anna Gaylard and Jess Nicholson for the design and layout. I am commitment to social inclusion in Belo deeply grateful to all waste pickers, NGOs and public officers who gave me Horizonte. their time and knowledge.

WIEGO Policy Briefs offer information on policies and organizational practices that affect the informal economy. This series supports advocacy processes and disseminates better practices and ideas, contributing to a worker- and livelihood-centered approach to development.

ABOUT WIEGO: Women in Informal Employment: Globalizing and Organizing is a global research-policy- action network that seeks to improve the status of the working poor, especially women, in the informal economy. WIEGO draws its membership from membership-based organisations of informal workers, researchers and statisticians working on the informal economy. For more information see www.wiego.org.

ABOUT INCLUSIVE CITIES: Launched in 2008, the Inclusive Cities project aims to strengthen membership-based organisations (MBOs) of the working poor in the areas of organising, policy analysis and advocacy, in order to ensure that urban informal workers have the tools necessary to make themselves heard within urban planning processes. Inclusive Cities is a collaboration between MBOs of the working poor, international alliances of MBOs and those supporting the work of MBOs. For more information see www.inclusive.cities.org.

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