Consultancy: Rapid Assessment of child labour in rag/garbage picking in Pakistan

1. Background and rationale

The International Labour Organization (ILO) through the Asia Regional Child Labour (ARC) Project[1] aims to reduce vulnerability to child labour and enhance protection of children from exploitation. The project is implemented in six countries, including Pakistan, and assists constituents and other stakeholders to eliminate child labour through the following three outcomes/objectives:

In Pakistan, on the basis of stakeholders’ consultations, specific sectors were identified as priorities for the elimination of child labour, namely garbage/rag picking, auto mechanic /repair industry, manufacturing of bricks, begging, domestic work, small hotels and shops, agriculture, and bangles making.

The current Terms of reference relates to child labour in rag-picking.

Pakistan generates about 20 million tonnes of solid waste annually, with a growth rate of 2.4 percent per year. Recycling is among the most effective means through which solid waste can be reduced: while Pakistan does not have formal recycling facilities, an informal recycling industry continues to thrive. In the absence of adequate garbage collection and waste management infrastructure, most of this garbage is incinerated or left to rot in dumps, often in the middle of cities.[2] Much of the generated waste is recovered, mostly by scavengers, before it reaches the final disposal sites.[3]

There are no recent estimates of children’s involvement in rag-picking and evidence is mainly qualitative or anecdotal. A rapid assessment by SDPI in 2003 and a research on occupational safety and health (OSH) of rag pickers contribute to a better understanding of working conditions and background characteristics of children involved in rag picking. Key findings emerging from these studies are as follows:[4] & [5]

• Scavenging is a complex informal sector and there are large variations in the work characteristics and living conditions depending on the site.
• An estimated 89,500 – 106,500 children were involved in rag picking in 5 sites (Karachi, Lahore, Peshawar, Quetta and Islamabad).
• There are different typologies of scavengers: i) migratory scavengers migrating within and between provinces: some live their families, others with the “Seth” (junk contractor) and others without any permanent shelter; ii) roaming scavengers who are not limited to specific work areas; iii) site-based scavengers who construct their shelter near the main dumpsites and work with their family or tribe; and, temporary scavengers who contribute to households’ needs, without any monetary transaction.
• Children working under a “Seth” receive payments below those of the market. If the Seth has given some advance to the family, the amount is deducted from the child income and even if when the advance has been paid, the Seth does not pay the scavenger but the parents.
• Many of the children involved in rag picking are also begging or working as domestic workers.
• Rag pickers work in harsh conditions: they work under the open sky and are exposed to extreme weather conditions, noise and sometime to polluted or contaminated water and food; they work long hours and, in some cases at night. Moreover, they are exposed to work related injuries, contagious diseases and physical and/or verbal abuse; except for site-base scavenging where the family members or tribe works at the same site, children are also at risk of sexual harassment. The psychological impact of scavenging is far from negligible, with scavengers reporting nightmares, restless sleeps and depression. Children working in dumping sites with hospital waste are particularly vulnerable to health risks: the COVID-19 pandemic is likely to increase the health risk, as COVID-19 medical kits are disposed poorly.[6]
• Rag pickers often live in precarious conditions: their dwellings are bulldozed as a result of clean-up operations by municipal authorities and their daily nourishment usually comes from low quality hotel food or waste dumps.
• Rag pickers do not have identity documents as they cannot provide a permanent home address; as such, they can end up into police custody and have limited access to public services.
• A vast majority of those interviewed has never attended school, mainly due to the need to provide financial support to the family and to the inability to pay for schooling.
• Rag pickers’ households are often characterized by low literacy rates and poverty. However, children from non-poor households are also likely to be involved in rag-picking.
• Rag-picking is associated marginalization: scavengers believe that people do not like them and live in extreme inferiority complex and they report negative attitudes towards them by the general public and municipality officials and police.

• The Constitution of Pakistan prohibits the employment of child below the age of fourteen years in any factory or mine or any other hazardous employment. Child labour in rag picking falling under the specific conditions described in ILO Convention No.182 is considered within the Worst Forms of Child Labour (WFCL) and Pakistan proscribed it under the Child Employment Act 1991 through a Gazette notification issued on July 30, 2020. This sector was notified as a hazardous occupation prohibited to children below 14 years in 2005 under the Employment of Children Act of 1991 after Pakistan ratified the ILO Convention No. 182. The Employment of Children Act 1991 provides a schedule of hazardous occupation and processes, prescribing 4 occupations and 34 processes (including scavenging and hospital waste) wherein employment of children (under the age of 14) is prohibited.

• The Government of Baluchsitan, Punjab, Sindh and KP have established 18 years as the minimum age for hazardous work, listed rag-picking/scavenging including hospital waste “worst form of child labour”, and prohibited for persons under 18 years of age.

2. OBJECTIVES

The proposed research aims at strengthening the knowledge base on child labour in rag picking to inform policy and intervention design.

In particular, the research will:

The research questions have been enlisted in Annex 1, which have been finalized in conjunction with relevant stakeholders through a national consultation workshop.

As a first step, a background review will take stock of available data and research on children involved in rag picking and will review interventions related to child labour in rag picking. This will allow informing the development of the research design. However, it is envisaged that the research will rely on quantitative and qualitative methods.

The research will be based on the Rapid Assessment methodology developed jointly by ILO-IPEC and UNICEF,[7] as well as in the guidelines developed by SIMPOC on data collection, processing and analysis of child labour data. Technical guidance on the Rapid Assessment shall be provided, as required, by ILO/FUNDAMENTALS Geneva.

The research will adhere, as much as possible, to the definition of child labour based on national and international standards (see Panel 1. below)

Panel 1. Child labour definition based on international labour standards

In accordance concerning child labour and international standards, as set by the 20th International Conference on Labour Statisticians (ICLS) in the Resolution to amend the 18th ICLS Resolution concerning statistics of child labour:[8]

• Working children are defined as children aged 5 to 17 years engaged in any activity to produce goods and to provide services for use by others or for own use.

• Child labour is work within the SNA production boundary performed by children below the minimum age and work, which, by its nature and circumstances in which is carried out, is likely to harm the health, safety or morals of children (hazardous work). The minimum age shall be designated on the basis of national laws or regulations.

• Hazardous work by children is statistically defined in terms of the engagement of children in activities of a hazardous nature (designated hazardous industries and occupations), or as work under hazardous conditions, for example, long hours of work in tasks and duties which by themselves may or may not be of a hazardous nature for children (hazardous work conditions) or work at night. Designated hazardous industries and occupations shall be designated on the basis of national laws or regulations, where they exists. Similarly, long hours and night work may be determined on the basis of the national law.

• Light work is work that is not likely to be harmful to child’s health or development and does not prejudice child’s school attendance, participation in vocational orientation or training programmes, or their capacity to benefit from the instruction received. Light work shall be designated on the basis of national laws or regulations, where they exists.

The definitions above shall, however, be adapted to the national legislation as countries enjoy some flexibility concerning i) the minimum age of admission to employment; ii) the exception of some categories of work or employment and provisions for light work; iii) the list of hazardous occupation and activities.

Background review

The background review will aim at providing an overview of children involvement in rag picking based on the knowledge already available; it will also identify key knowledge gaps related on child labour in rag picking.

The background review will involve an analysis of the waste management in Pakistan, a review of survey data and other data sources, a literature review and a review of interventions related to child labour in rag picking.

Characterizing the sector

The disposal of municipal solid waste is the second most major concern for public health in developing countries because of population explosion, rampant poverty and high urbanization rates combined with poor government funding to curb waste management [9]. Factors such as waste composition, technologies and lack of infrastructure have been found to set apart the good management of solid wastes in developing nations. Municipal waste is mainly comprised of paper, vegetable matter, plastics, metals, textiles, rubber and glass. In some countries (developing as well as developed), municipal solid waste is mixed with medical wastes and this may pose health risk to waste handlers and general public.

An analysis of the waste management (formal and informal) will allow understanding its structure and functioning, supply chain, the social context and the locations where child labour occurs, and of the stakeholders involved. The analysis of the sector will include mapping of disposal sites and areas where rag pickers work in the selected districts; labour force composition (migrant workers from other provinces and regions, temporary or casual workers, etc.) the sector practices (labour procurement practices, including the role of private/recruitment agencies and online recruitment platforms, and working conditions, compliance and due diligence practices) and regulatory and oversight mechanisms, aiming at identifying key factors and major players influencing child labour in the sector.

Review of survey data and other data sources relating to child labour in rag picking

Country-level data sources often contain information on children’s work that is not fully exploited. With this in mind, an assessment will be conducted on the availability of information on a range of variables relating to children’s work in the waste industry available from common household survey instruments, such as the Pakistan Labour Force Survey. Other sources of data will be looked at, such as administrative records.

Literature review

Research papers, studies and reports using quantitative, qualitative or mixed methods methodologies on child labour in rag picking will be considered, including those produced by research organizations, government authorities, social partners, civil society organizations and private sector institutions.

The review shall cover information regarding the presence and extent, characteristics and causes of child labour in the waste industry. Within this framework, efforts shall be directed towards identifying characteristics and factors specific to children’s engagement in the waste industry, including poverty and lack of economic stability and of employment and livelihood opportunities, lack of education, cultural and social construct. Areas of focus will be migration dynamics and the link between households’ indebtedness and child labour in rag picking.

All studies to be considered, whether qualitative, quantitative or mixed methods, must satisfy at least one of following criteria:

• Ensure the study design, methods, and procedures are sufficiently transparent and ensure an independent, balanced, and objective approach to the research;
• Provide the necessary information to reproduce or replicate the study;
• Provide sufficient description of the sample, the intervention, and any comparison groups;
• Use appropriate and reliable conceptualization and measurement of variables;
• Research submitted to a peer-review process;
• Adhere to quality standards for reporting (i.e., clear, cogent, complete, credible).

In line with the research questions in Annex A, the literature review will explore:

• Prevalence/presence of child labour in the solid waste sector
• Background characteristics, aiming at identifying characteristics specific to children’s involvement in rag picking
• Attitudes towards child labour in in rag picking (of children, parents, employers and communities, government, civil society actors)
• Recruitment patterns/ practices, including the role of private/recruitment agencies and online recruitment platforms
• Work modality and working arrangements
• Time-intensity
• Remuneration and payment patterns (modality and flow of payment)
• Exposure to hazard, violence and abuse
• Health impact
• Impacts on school attendance, education, learning skills and future prospects

Review of interventions

The review will also consider both policies, laws and programs directly tackling child labour in in rag picking, as well as those with a bearing on it, such as education, social protection and awareness raising. Provisions for migrant children and households will be also looked at. The institutional framework will also be looked at in order to identify the role of key institutional actors at all tiers of governance (national, provincial and district level), and their coordination.

Qualitative methods

Qualitative methods will provide in-depth information on the characteristics of the work performed by children involved in rag picking, the socio-economic and cultural factors behind child labour, the characteristics of the waste sector and their influence on child labour, and the characteristics and effectiveness of the institutional response in preventing and eliminating child labour.

Qualitative tools will include, but not limited to, in-depth interviews or focus group discussions with key informants.

In particular, qualitative methods will aim at:

• Gathering additional information on the availability of data and research on child labour in rag picking;
• Mapping /identifying disposal sites and where rag-pickers work
• Gathering a better understanding of the factors affecting child labour in rag picking both from the demand (employers/contractors) and the supply (parents and children) side:
  • Interviews with children in rag picking will aim at understanding the activities performed by children and the working conditions, the nature of the children’s relationship with their employers, the extent and nature of direct surveillance of children by employers/contractors, exposure to dangers and hazards, the interplay of child labour in the waste sector with school attendance, and the reasons for involvement in the waste sector.
  • Interviews with employers/contractors will aim at building a better understanding of the factors influencing the demand of child work: interviews will therefore target both employers/contractors resorting to children’s work/child labour and employers who do not resort to children’s work/child labour.
  • Interviews with parents will aim at understanding households’ dynamics regarding children’s involvement in rag picking.
• Gathering additional information on interventions addressed to eliminate child labour in waste management sector;
• Obtain inputs from the stakeholders on perceived critical knowledge gaps to tackle child labour involved in rag picking.

Qualitative methods will target key informants, which will be identified through the background research. Guiding questions for their identifications are:

• Who are the main actors involved in the waste industry (parents, recruitment agencies, dumpsite owner, waste buyer and seller, “Seth” etc.)?
• Which institutions (government institutions, employer’s and workers’ organizations, recruiting agencies, NGO, international organizations, etc.) are involved in the elimination of child labour in rag picking?
• Which institutions (government institutions, NGOs, international organizations, etc.) are involved in the management of solid waste?

A sub-set of stakeholders will be selected, in close consultation with the ILO Country Office and the Research and Evaluation Unit (Fundamentals, ILO HQ), as key informants.

3. REPORT: CHILD LABOUR IN RAG/GARBAGE PICKING

Building on the background review and on the interviews with key informants, a report will be developed on children’s involvement in rag-picking, addressing the research questions included in Annex A. The final report will not exceed 40 pages, excluding annexes.

It is suggested to structure the report around the following themes:

• Executive summary
• Introduction
• Solid waste management in Pakistan
• Child labour in rag picking in Pakistan: emphasis shall be on factors specific to children’s involvement in rag picking, including both demand and supply side
• Government’s law and interventions with implications for child labour in rag picking, including any good practices
• Conclusions, including key data gaps hampering interventions and recommendations for eliminating child labour in rag picking.

4. Ethical considerations

Conducting research on child labour calls for serious ethical considerations to protect interviewees and interviewers, as outlined in the ILO Ethical considerations when conducting research on children in the worst forms of child labour.[10] Given the current circumstances, measures relating to the COVID pandemic are particularly relevant.

Participants should not be harmed in any way as a result of their participation. To this end, ethical principles will be respected during the conduct of the study. Also, the participant’s consent will be obtained before the questionnaire is administered. Under no circumstances will the individual economic or financial data collected be used for tax, economic or social control purposes, nor for research purposes by administrative, political, police, military or judicial authorities. All members of the collection team will undertake measures to keep the information collected confidential.

The final data will also be anonymised to prevent individual information from being identifiable.

5. SCOPE OF THE ASSIGNMENT AND REPORTING LINES

The ILO is seeking the services of individual/expert to design and implement the proposed assessment study in four provinces of Pakistan and Islamabad/Rawalpindi (2-4 districts in each province, to be selected from amongst those, ranked high in producing solid/municipal waste). S/he will be fully responsible for adequate and timely implementation of the rapid assessment including drawing sample, coordinating and administering interviews, traveling, lodging/boarding, making necessary photographs, data processing, analysis and drafting the report. S/he should consider making the best use of existing knowledge, experiences and materials. The implementation strategy will be finalized in close consultation with the ARC-National Project Coordinator for Pakistan, with technical backstopping of Chief Technical Advisor and relevant ILO Specialists (as appropriate).

6. WORK DAYS

Kindly indicate the total workdays required to complete the assignment.

7. RESPONSIBILITIES AND MAJOR ACTIVITIES

The collaborating partner will undertake the following activities:

• Develop detailed work plan and share with ILO-ARC Pakistan
• Undertake desk research, analyse all the necessary documents to fully understand the ground situation and learn from good practices
• In consultation with ILO, refine research questions on the basis of the results of the desk review
• Develop research tools (see Annex-1 for guidance on research questions) and finalize them on the basis of ILO’s feedback
• Draft a list of key informants/stakeholders for interviews and finalize it in consultation with ILO
• Prepare a draft report and finalize it on the basis of comments and inputs from the ILO
• Undertake travel (as needed) in consultation with and prior approval of NPC-ARC Project
• Manage necessary logistical arrangements including communication, data processing, analysis, report writing, photocopying, traveling, scheduling meetings/interviews with key informants among others
• Participate and contribute to relevant meetings/workshops organized by the ARC Project to present the key findings and recommendations of the assessment for validation
• Any other activity suggested by the project as appropriate and within the scope of this assignment

8. RESPONSIBILITIES OF THE ILO

• Share/connect with the relevant available resources and stakeholders (as appropriate)
• Review the deliverables and extend technical support for their refinement and finalization
• Review, extend technical support and approve the draft and final

9. DELIVERABLES

• Work plan
• Research methodology
• Annotated outline
• List of key informants and research tools
• Draft report
• Final report

10. REQUIRED QUALIFICATIONS AND COMPETENCIES

The successful applicant should have the following minimum qualifications and skills:

• D. or Masters in Economics, Public Policy, Development Studies or related discipline
• Demonstrated understanding/familiarity with human rights. The knowledge and experience on child rights, child labour and among others will be added advantage
• Experience in conducting research (quantitative and/or qualitative) and report writing on human rights, child labour and child work/child protection/education
• Understanding of gender dimensions will be an added value
• Excellent command of English
• Proven experience and track record of timely and high quality completion of assignment
• Demonstrated capacity to mobilize and meaningfully engage/work with relevant target groups i.e., provincial and local government bodies
• A demonstrated good track record in serving international development organizations in Pakistan is an advantage
• Financially capable of rendering all requested services
• Ability to guarantee the timely submit the agreed deliverables
• Willingness to accommodate the ILO’s inputs to deliverables

11. SUBMISSION OF PROPOSALS

The interested candidates need to carefully read the TORs and submit the following:

• One page profile reflecting relevant qualification and experience
• Brief research proposal (not more than 3 pages, briefly describing the objectives, research design, and major activities)
• Financial Proposal (in Pak Rupees)- detailing professional/ fee per day and other variable expenses

Interested applicants are requested to send the quotation to islamabad@ilo.org cc: malik@ilo.org with RFQ/ILO-ARC/05/2021 “Rapid Assessment relating to child labour in rag/garbage picking in Pakistan” mentioned in the subject of email/submission.

Kindly dispatch the hard copy of financial proposal/budget (Annex II– Budget) in sealed envelope to:

ILO Registry

Ref: RFQ/ILO-ARC/05/2021

ILO Building, G-5/2, Near State Bank of Pakistan, Islamabad

Deadline for submission: on or before Monday, January 03, 2022 by 17:00 hours Pakistan times. Any proposal received without this number and after the deadline will not be considered.

Clarifications related to TORs/RFQ: Should the applicant need any clarification, please send email to msultana@ilo.org by Dec 24, 2021. No calls will be accepted.

12. APPRAISAL OF PROPOSALS, SELECTION AND AWARD OF CONTRACT

Technical Proposal will entail 80% weights and be appraised against the following criteria:

Technical capacity that includes: individual profile, relevant demonstrated experience, indicating sound capacity of working on similar assignment, previous work experience with international organizations/UN agencies. Clear articulation of research design and implementation methodology, including proposed set of activities

The Budget will carry 20% weights and will be evaluated using following criteria:

The budget is cost effective and represents value for money, justified and aligned with proposed set of activities.

The project will select an appropriate individual/expert best meeting the desired competencies and experience to carry out the assignment. The selection will also be based on a transparent process including assessment of technical and financial proposals (value for money).

Annex I. Child labour in rag picking: PRELIMINARY Research questions

Prevalence

What is the prevalence of child labour and hazardous work in rag picking in Pakistan (national or sub-national level)?

Characteristics of waste management and rag picking

Background characteristics of households with children involved in rag-picking

Characteristics of the work performed by children in rag picking

Interplay with education

• What is the school attendance and school performance (attendance, highest level of education attained, drop out, repetition) of children involved in rag picking?
• What are the barriers and challenges (from the demand and supply sides) that children face in accessing education?

Interplay with social development

Attitudes, social acceptance and awareness

B. Assessing the national response to child labour in rag picking

Government efforts

Are there mechanisms in place to ensure that accurate data on child labour (or lack thereof) are available?

[1] The ARC project is funded by Funded by Foreign Commonwealth and Development Office, (UK), the Asia Regional Child Labour (ARC) Project

[2] Shiza Malik (2019). Pakistan’s waste problem is a recycling industry waiting to be found.

[3] Pakistan Environmental Protection Agency (2005). Draft guidelines for solid waste management

[4] Sustainable Development Policy Institute (SDPI) and International Labour Organization (2003). Rapid assessment of Rag-pickers) in Lahore, Karachi, Quetta, Peshawar and Islamabad – Pakistan for preparatory phase of Time Bound Project for worst forms of child labour

[5] International Labour Organization (2013). The effect of work on children’s health. Report of research on ten occupational sectors in Pakistan as part of International Programme on the Elimination of Child Labour (IPEC).

[6] Naqvi Maryam (2020). Will the fate of child waste pickers ever change in Pakistan?

[7] http://www.ilo.org/ipecinfo/product/viewProduct.do;?productId=1819

[8] https://www.ilo.org/wcmsp5/groups/public/-dgreports/-stat/documents/meetingdocument/wcms_647347.pdf

[9] https://www.bioenergyconsult.com/solid-waste-management-history-and-future-outlook

[10] ILO (2003). Ethical considerations when conducting research on children in the worst forms of child labour.