Republic of the Philippines
Department of Environment and Natural Resources
Asian Development Bank
! " #$" !$#%&"
" "'
( !)*
" +,+-( #
AEA Technology In Association With GlobalWorks • CalRecovery • ENR Consultants
METRO MANILA SOLID WASTE
MANAGEMENT PROJECT (TA 3848)
FINAL REPORT
REPORT NO. 1
SUMMARY REPORT
Project Team
Neil Varey, AEA Technology, Project Director
Luis F. Diaz, CalRecovery, Inc., Technical Team Leader
Nick Allen, GlobalWorks, Disposal & Sector Coordinator
Reynor Rollan, ENR Consultants, Disposal
Horace Crowe, AEA Technology, Institutional
Levi Buenafe, GlobalWorks, Institutional
Luis Diaz, CalRecovery, Inc., Medical Waste
Richard Pook, AEA Technology, Financial
Agnes Palacio, GlobalWorks, Financial
Linda Eggerth, CalRecovery, Inc., Community Awareness
Grace Favila, ENR Consultants, Community Awareness
Manjit Kahlon, AEA Technology, Solid Waste
Roger Lopez, ENR Consultants, Social
Joey Sta. Ana, GlobalWorks, Solid Waste
September 2003 (Revised)
Metro Manila Solid Waste Management Project
Final Report
Table of Contents
Introduction.........................................................................................................................................i
Executive Summary ......................................................................................................................... iii
1. Review of Current SWM Practices in Metro Manila......................................................................1
2.Waste Generation & Characteristics..............................................................................................2
2.1 LGU Capacity Building Activities ..............................................................................................2
2.2 Methodology for Waste Characterization Studies ....................................................................2
2.3 Results of Waste Characterization Studies ..............................................................................2
2.4 Recommendations....................................................................................................................3
3. Collection Storage and Transfer System ......................................................................................3
3.1 Introduction ...............................................................................................................................3
3.2 MSW Collection ........................................................................................................................3
3.3 Transfer Systems......................................................................................................................5
3.4 Waste Recycling .......................................................................................................................6
3.4.1 MSW Recycling in LGUs.....................................................................................................6
3.4.2 MSW Recycling in Barangays.............................................................................................6
4.DISPOSAL......................................................................................................................................9
4.1 Introduction .............................................................................................................................9
4.2 Current Status...........................................................................................................................9
4.3 Key Issues ...........................................................................................................................10
4.4 Improvement Strategy ............................................................................................................11
5. Markets for Recycled Solid Waste in Metro Manila ....................................................................14
5.1 Introduction .............................................................................................................................14
5.2 Methods of recycling...............................................................................................................14
5.3 Findings...................................................................................................................................15
5.4 Recommendations..................................................................................................................15
6. Laws and Regulations .................................................................................................................15
6.1 Introduction .............................................................................................................................15
6.2 Legislative Review ..................................................................................................................16
6.3 Technical Regulatory Requirements ......................................................................................18
7. Institutional Aspects ....................................................................................................................19
7.1 Introduction .............................................................................................................................19
7.2 LGU Institutional Structures, Roles and Responsibilities .......................................................20
7.2.1 National Solid Waste Management Commission..............................................................20
7.2.2 MMDA................................................................................................................................21
7.2.3 Association of Barangay Councils (ABC)..........................................................................21
7.3 LGU SWM Status and Institutional Structures .......................................................................21
7.3.1 Quezon City.......................................................................................................................21
7.3.2 Valenzuela.........................................................................................................................22
7.3.3 Taguig................................................................................................................................22
7.3.4 Manila ................................................................................................................................22
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
8. LGU 10-Year Solid Waste Management Plans ..........................................................................23
8.1 Introduction .............................................................................................................................23
8.2 Capacity Building for Local Government Units.......................................................................23
8.2.1 Preliminary Activities .........................................................................................................24
8.2.2 Resource Documents........................................................................................................24
8.3 Ten-Year Solid Waste Management Plans ............................................................................24
8.4 Community-Based Solid Waste Management Projects .........................................................25
9. Financial ......................................................................................................................................28
9.1 Introduction .............................................................................................................................28
9.2 Local Government Units .........................................................................................................28
9.3 National/Metro Manila Agencies.............................................................................................29
9.3.1 Department of Environment and Natural Resources ........................................................29
9.3.2 Metro Manila Development Authority................................................................................29
9.4 Health Care Waste..................................................................................................................30
9.5 Cost Recovery ........................................................................................................................30
9.6 Future Cost Recovery Mechanisms .......................................................................................31
9.7 Understanding Existing Costs, True Cost Accounting and Sustainable Financing ...............31
9.8 Long-Term Financial Planning................................................................................................32
9.9 Corporatization........................................................................................................................33
9.10 Economic Analysis and Economic Efficiency .......................................................................33
9.11 Waste Recycling ...................................................................................................................33
10. IEC, Community Awareness & Media.......................................................................................33
10.1 Community Awareness Strategy ..........................................................................................33
10.2 IEC Working Group...............................................................................................................34
10.3 Strategy for NSWMC ............................................................................................................35
10.4 Strategy Related to Disposal ................................................................................................36
10.5 Strategy Related to Medical Waste ......................................................................................37
11. Medical Waste Management....................................................................................................38
11.1 Introduction ...........................................................................................................................38
11.2 Laws Dealing with Medical Waste ........................................................................................38
11.3 Types and Number of Health Care Facilities........................................................................38
11.4 Quantity and Composition ....................................................................................................39
11.5 Current Practices ..................................................................................................................41
11.6 Capacity Building and Stakeholder Participation .................................................................42
11.7 Strategy for the Treatment of Medical Wastes Generated in Metro Manila.........................42
11.8 Public Education and Outreach ............................................................................................44
11.9 Consultation with Key Entities ..............................................................................................44
11.10 Conclusions ........................................................................................................................44
11.11 Recommendations..............................................................................................................46
12. Sector Coordination and Donor Agency ...................................................................................46
12.1 Introduction ...........................................................................................................................46
12.2 Coordination and Advisory Support......................................................................................47
12.3.1 Historical Perspective......................................................................................................49
12.3.2 Conclusions .....................................................................................................................50
12.3.3 Recent Initiatives .............................................................................................................52
12.3.4 Recommendations ..........................................................................................................52
13. Web Site Development .............................................................................................................54
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
Introduction
This Final Report for the “Metro Manila Solid Waste Management” (MMSWM) study (TA 3848-PHI) has been
prepared and issued in accordance with the requirements of the Contract between ADB and AEA Technology.
The Project commenced on July 8th 2002, and this Report reviews the current status of Solid Waste
Management (SWM) in Metro Manila; and sets out the Project activities, findings and recommendations for
improving solid waste management in Metro Manila.
This Project has provided direct support through technical assistance to the National Solid Waste Management
Commission (NSWMC) and to many other agencies at all levels of Solid Waste Management (SWM)
administration in Metro Manila. This has been directed towards the full implementation of The Ecological Solid
Waste Management Act of 2000” (Republic Act 9003)1, which illustrates the Government’s concerns, and the
priority it gives to resolution of the growing SWM crisis. In particular this report emphasizes the inadequate
provision of properly constructed and engineered waste disposal facilities, the direct consequences for public
health risks and environmental damage from current practices and therefore the need to take rapid action. The
Act provides for a substantive re-direction in the management of waste, optimizing waste recovery and
recycling initiatives as supported by waste segregation at source by all waste generators. RA 9003 identifies
responsibilities and defines organizations to ensure better practices and sets out mechanisms and minimum
standards all necessary to remediate the current situation.
Technical assistance included support for institutional development, capacity strengthening and covers
comprehensive advice and recommendations to support the development of long term SWM plans within
selected Local Government Units (LGUs). Components of these plans include financial, regulatory, technical,
environmental, social, education and training and public awareness issues. Sustainable SWM plans are
required at each administrative tier of government, with important emphasis placed on communication,
including web site(s) and the media; provision of accurate and detailed information; quality collated data;
reliable references to SWM issues and Community Based Solid Waste Management (CBSWM) Projects
designed to engage the waste generators to reduce residual materials for downstream treatment and/or
disposal.
The Consultant’s team comprises international and domestic specialists drawn from AEA Technology (the lead
firm), and its associates (GlobalWorks, CalRecovery and ENR).
Neil Varey, AEA Technology, Project Director
Luis F. Diaz, CalRecovery, Inc., Technical Team Leader and Medical Waste
Nick Allen, GlobalWorks, Waste Disposal and Donor
Reynor Rollan, ENR Consultants, Disposal
Horace Crowe, GlobalWorks, Institutional
Levi Buenafe, GlobalWorks, Institutional
Linda Eggerth, CalRecovery, Inc., Community Awareness
Grace Favila, ENR Consultants, Community Awareness
Manjit Kahlon, AEA Technology, Solid Waste
Joey Sta. Ana, GlobalWorks, Solid Waste
Richard Pook, AEA Technology, Financial Management
Agnes Palacio, GlobalWorks, Financial Management
Roger Lopez, ENR Consultants, Social
1
Republic Act 9003 : The Ecological Solid Waste Management Act of 2000 provides comprehensive legislation for the entire SWM sector,
including; (i) standards, guidelines and enforcement mechanisms for source reduction, segregation, recycling, collection, transfer and disposal of
solid waste; (ii) empowerment of LGUs to develop and manage their own SWM systems; and (iii) time-bound SWM plan formulation at the
national, provincial (metro-wide) and LGU level. The Implementing Rules and Regulations (IRR’s) were also recently approved.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
The Consultant’s administrative and technical arrangements in executing this Project have been established in
co-operation with members of the Executing Agency (EA) for the Project (i.e. the Department of Environment &
Natural Resources (DENR) – Environmental Management Bureau (EMB)), and with the Project’s additional
Implementing Agency (the Department of Health (DOH)). Close coordination has been maintained with the
many stakeholders currently associated with particular aspects of SWM in Metro Manila, and has established
links with potential donor agencies. This was exercised through regular meetings, workshops, and specialist
groups for the major elements (e.g. financial management, medical waste) that comprise an integrated SWM
system for Metro Manila. The study covers all Solid Waste (SW) including household, commercial, institutional,
industrial, agricultural and medical waste. Much emphasis in the study is placed on Municipal Solid Waste
(MSW), all currently managed collectively through services and systems provided by LGUs.
There are many aspects of RA 9003 and the associated IRR, which remain to be fully implemented. This
Report seeks to provide the basis for stimulating stakeholder engagement and further discussion on the issues
raised, make recommendations and offer future actions to be undertaken beyond the time of this project. Its
principal focus is to:
Set out a status report on all aspects of the current SWM in Metro Manila (MM), covering technical,
environmental, financial and institutional issues, and address current practices and facilities for
waste collection, treatment and final disposal. Aspects such as IEC activities, Community Based
SWM (CBSWM) Projects, and web site development are also reviewed.
Review current legislation, including laws, regulation and ordinances, and highlight critical clauses
that directly impact on and/or direct future SWM plans and actions.
Review current institutional/administrative arrangements, and provide recommendations for
institutional developments and related capacity building for each administrative and technical
department at all levels of government concerned with SWM.
Highlight the many challenges faced by Metro Manila to move from the current crisis situation of
uncontrolled waste dumps and set out the steps needed to be taken to rectify this.
The Final Report makes direct reference to other Project Reports and/or outputs previously prepared and
issued2, each forming an integral part of the output from this study. It has been structured as a combination of
stand-alone component reports each with its own brief summary. This Summary compiles all of the summaries
and main conclusions of the individual component parts and provides a Non-Technical Executive Summary that
encapsulates the issues, conclusions and steps to be taken to address the current Metro Manila waste crises.
Each of the component reports are both titled and numbered for easy reference.
Report Number
1
2
3
4
5
6
7
8
9
10
11
12
13
2
Report Title
Summary containing Non-Technical Executive Summary (Revised)
Public Awareness Survey
Waste Analyses & Characterization Study (Revised)
Waste Disposal (Revised)
Markets Report containing CBSWM projects, Junk Shop and Recycling Markets Review
Laws & Regulation
Institutional
Capacity Building for Local Government Units
Financial Management
Community Awareness Strategy
Medical Waste Management (Revised)
Sector Coordination and International Donor Intervention
Website Development
Inception Report, September 2002 (Report No 24351014/1); 1st Progress Report, September 2002 ((Report No 24351014/2), 2nd Progress
Report, November 2002 (Report No 24351014/3); Guidance on SWM Technologies (Report No 24351014/4); Interim Report, January
2003(Report No 2435101/5)
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
Executive Summary
Background
There is a critical waste management deficiency with inadequate provision of suitable waste treatment;
disposal facilities; mechanisms; practices; data collation and analyses; long term financial planning; and waste
collection, recycling and recovery initiatives needed to comply with RA 9003. Current practices are resulting in
major environmental pollution and little is being done to rectify poor practices or carry out remedial works on
existing environmental hazards. The Government has recognized this with “The Ecological Solid Waste
Management Act of 2000” (Republic Act 9003), but its implementation is slow and the lack of the Solid Waste
Management Fund is impacting on the NSWM Commission’s ability to function adequately and carry out its
roles and responsibilities.
Currently: 6,720 tonnes of waste are generated each day.
Only 1% is collected by MMDA, with 86% by private contracts and 13% by the LGUs themselves.
Over Php 3.54 billion is spent annually on waste collection and disposal, yet the system is very
poorly managed and in crisis.
Metro Manila’s LGUs spend between 5%-24% of their annual budgets on solid waste collection and
disposal. The largest percentage of this goes to private hauling companies.
Metro Manila is not recovering the full cost of solid waste collection service since only the business
sector is paying waste collection fees. Cost recovery from collection fees is very low, averaging
1.5% of total income for MM’s LGUs, and between 2%-24% as a percentage of their total SWM
expenses.
Per capita costs for solid waste management cover a wide range, from Php 64 per person in
Pateros to Php 1,164 in Makati.
Some health care wastes, collected and treated by the private sector on a daily or weekly basis,
cost between Php 35 to Php 40 per kg.
While not a clear barometer of efficiency and cost effectiveness of SWM operations, the cost per
ton of solid waste collected and disposed varies widely among MM’s LGUs, from Php 304/ton in
Pateros and Malabon to Php 5497/ton in Makati.
Little or no monitoring is done on industrial waste disposal.
Metro Manila is now probably the only mega city in Asia that uses uncontrolled open dumping and a
series of controlled dumpsites to dispose of its solid waste. The number of scavengers and waste
pickers who live and survive on this waste is estimated at over 4,000 individuals.
Community Awareness and Education
The proper management of solid wastes is essential to the protection of public health and the preservation of
the environment. Nevertheless, it is a topic that is rarely at the forefront of discussion, by the media or by the
general public. It is usually only during a crisis situation such as this that attention is given to waste
management, and then generally in a negative context. People prefer not to think about waste, about who
collects it, where the waste is taken, or how it is handled at the disposal site. Public education is an essential
part of an integrated solid waste management program and an effective outreach must be developed.
An extensive household survey comprising 2400 questionnaires in 5 MM LGUs found that: 70% of residents believed that MM has a serious waste problem
73% did not want to see a sanitary landfill in their community.
53% of surveyed households participate in some sort of recycling and segregation scheme, and
91% state their willingness to segregate if their LGU collected these for a composting program.
78% of surveyed households had no idea where their collected garbage was taken for final
disposal.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
There appears to be a correlation between waste problems and lower income households
There was a strong ownership perception with the barangays to be held responsible for keeping the
community clean of garbage
70% were not very satisfied with the collection services provided
50% were unwilling to pay for garbage collection and disposal.
A communications strategy that addresses the needs of the communities and the resources of the NSWMC
was developed with a framework for a 3-year communications plan for waste management generally, as well
as specific plans for two key areas, -the dump sites and medical waste.
Message Concepts were developed to cover: •
•
•
•
Improper management of waste costs – Lives, Health, Resources, Money, Quality of Life
The need to work together to implement RA 9003 - avoid creating waste, recycle (paper, glass,
plastic “bottles), and dispose of residual waste in a proper SLF disposal site
The current waste disposal situation is unacceptable but we have a plan to reverse it -- please help
us implement it
Dangers from disposal of untreated infectious wastes commingled with general waste.
And promoted through:
Preparation of a simplified version of RA 9003 and IRR;
Preparation of fact sheets on waste characterization, recycling, composting, and residual
wastes;
• Revisions to an existing TV plug on MRF’s; participation in the preparation of a new TV/ radio plug
Development of text messages to be designed by Wireless Services Asia (WSA) and broadcast
through the Globe Telecom.
• Sponsorship of refrigerator magnets promoting segregation.
• Preparation of press releases about project activities including: waste characterization studies,
MOA signing with local LGUs, workshop/seminar on the LGUs10-year SWM Plan, MRF tour.
•
•
Dumpsites
Of the 6,720 tonnes generated per day, only 5,600 tonnes enter the municipal, collection systems, which is
reportedly disposed at 9 dumpsites. The balance is either dumped illegally on private land, in rivers, esteros,
Manila Bay, or openly burned, adding to the city’s heavily polluted air shed. These dumpsites cause serious
public health, environmental and social impacts. They have inadequate fencing, signage and security
provisions and unrestricted access is prevalent. They are poorly protected and at severe public health risk.
•
•
•
•
•
•
Payatas, site of the garbage-slide disaster in July 2000, remains in operation, and receives about
1300 tonnes per day of the city’s garbage, while the Rodriguez site in Montalban; Rizal receives
approximately 1200 tonnes per day.
Many of the sites are dangerous, have exposed waste, have visible surface emissions of
potentially toxic liquids (leachate), and pose a risk to ground water. Waste fires are common at two
of the sites.
Many sites have overly steep slopes and several are critically unstable, presenting the possibility of
another deadly garbage-slide similar to the Payatas tragedy.
Catastrophic waste mass failure, leachate contamination and the presence of illegal homes on
waste piles (such as at Bagumbong, Lupang Arienda and Payatas) have severe, potentially lifethreatening consequences.
The worst illegal dumpsite at Lupang Arienda, on the north shore of Laguna de Bay, poses
tremendous risk to people’s health, as well as to the fish pens and environment of the bay.
Dumping should cease immediately.
Eight of the nine existing sites will reach capacity by 2004; so urgent progress is required to avert
another disposal crisis.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
This Report recommends a series of short-term and longer-term improvements that should be
implemented at every site on an urgent basis.
• Significant resources and Government leadership will be required to remediate the environmental
damage posed by open dumpsites and bring them to closure.
•
Recycling and Markets
Despite the promotion of waste segregation and collection at source, in particular by the zero-waste movement,
adoption has been at a very slow pace due to a lack of government support in the past. It is clear that there is
much to be gained by recycling more especially when it is estimated that households in Metro Manila generate
more than two million tones of potentially recyclable household materials annually.
•
•
•
•
•
•
•
•
Only 25% of this was reportedly recovered last year (2002) by the Linis-Ganda network at a cost of
Php230 million
Two types of locally manufactured mechanized composting units are used in Metro Manila, the
bioreactor that has a continuous daily feed and the rotary composter, a batch-type drum with a 5day gestation period.
Php 1.3 billion would be needed to establish composting facilities with composter units, some
2,144 units in total, in every Barangay or cluster in MM, with a potential return of P750 million
annually.
The major issue would be the development of the compost markets for some 320,000 tonnes of
compost as this far exceeds the current demand in MM and nearby provinces.
Active promotion of the use of compost to match the potential supply is a necessity and to do so an
organizational network to effectively market the compost will be required.
There are about one hundred identified recycling companies and organizations in Metro Manila, not
to mention the many junkshops that abound, with Valenzuela City having the largest number of
recycling companies.
Plastic is the most common material recycled, followed by metal, paper and glass.
Market demand for some recyclable materials is unmatched by locally available supply. One large
paper company, for instance, has the capacity to buy all of the recyclable paper materials currently
produced in Metro Manila, but only 10% of its requirements can currently be supplied.
Laws and Regulations
RA 9003, despite the simplicity of its prescription – reduce, re-use, recycle at the local level --, awaits serious
implementation.
•
•
•
•
•
While RA 9003 is a comprehensive and enlightened piece of legislation, few personnel in LGUs are
familiar with it, and insufficient resources are in place to ensure its full implementation.
The timetable is behind schedule, source reduction and segregation efforts at the Barangay level
are sporadic and uneven, there is little or no active public participation or understanding or interest,
and significantly, the required Solid Waste Management Fund has not been set aside as required
by law.
Regulations have been suspended but replacement legislation is still being considered or enacted,
leaving a legislative vacuum particularly in the regulation, monitoring and enforcement of medical
waste management.
There are many ways for LGUs to raise finances for waste collection, RA 7160, grants power to the
LGUs to levy fees and taxes, and public utility charges for basic services and facilities including
solid waste collection but existing fees for industrial and commercial premises have remained
unchanged over many years and domestic fees not raised at all.
There have been a number of technical regulations relating to waste disposal, primarily focusing on
sanitary landfill siting, design and operation but little has been done to utilize them in MM to
overcome the environmental problems now being faced.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
Medical Waste
There are 3,670 health care facilities in Metro Manila that generate medical waste; an estimated 47 tonnes of
medical waste generated per day, with 56% of this waste considered infectious or potentially infectious.
•
Two important pieces of legislation have been passed in the last few years (the Clean Air Act and the
Ecological Solid Waste Management Act) that impact the management of health care wastes. Two of
the most notable changes include: an increased reliance on the private sector for the collection and
treatment of health care wastes and the decision by the MMDA to stop its participation in the
management of health care wastes.
•
Those responsible for the management of health care wastes have a number of concerns including:
complying with the requirements of recent legislation (the Clean Air Act and the Ecological Solid Waste
Management Act), and the reassignment of responsibilities that were once under the purview of MMDA.
•
Until recently, incineration has played a major role in the treatment of health care wastes. Technically
viable and affordable alternatives are needed to treat wastes that have in the past been treated by
incineration. A secure and reliable final disposal site is not available for accepting health care wastes
treated by non-burn technologies.
•
The DOH acquired 25 incinerators and 36 disinfection units from the Austrian Government for
installation in some of its hospitals. Only four of the microwave units currently are in operation, the
others either are defective or not used.
•
Health care facilities in Metro Manila generate on the order of 47 tons of medical waste. Approximately
27 tons are considered infectious or potentially infectious. Based on the information collected during
this evaluation, it is estimated that about 5 tons per day of infectious waste (or about 18.5% by weight)
were disposed properly (i.e., through autoclave, microwave or incineration) and approximately 22 tons
per day (or about 81.5% by weight) were disposed on the land (either buried on-site or discarded along
with the rest of the waste collected by the municipal waste collection service).
•
According to the survey results, most health care facilities that generate cytotoxic wastes pay private
contractors to collect and dispose of the materials. Most of the other water-soluble pharmaceutical
wastes are discharged into the sewer system. Radioactive wastes are carefully collected from the point
of generation and appropriately stored until the radioactivity has decayed to safe levels and the
materials can be safely disposed along with the general waste.
•
Hospitals generate on the order of 0.73 kg/bed-day of solid wastes, with approximately 0.34 kg/bed-day
considered infectious or potentially infectious. Most hospitals practice some segregation. Most (about
78%) of the accredited hospitals dispose of their infectious waste properly (either through incineration
or microwave), 66% of which is conducted off-site. The remaining hospitals (22%) relied on land
disposal or open burning.
•
Many of the other health care facilities (dental clinics, veterinary clinics, diagnostic and laboratory
clinics, and mortuaries/funeral parlors) practice some segregation; in particular sharps are placed in
rigid containers.
•
The results of the waste characterization survey conducted in the course of this TA demonstrated that
improper segregation still takes place in some facilities. Little if any inspection of segregation of wastes
at health care facilities is conducted.
•
Estimates indicate that the total amount of health care waste will increase in Metro Manila to about 55
tons per day by 2010. At the same time, our estimates show that thorough training programs and other
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
activities will lead to proper segregation and therefore the amount of infectious waste will decrease to
18.5 tons by 2010.
•
Information obtained in course of this study shows that the health care sector is not prepared to comply
with the provisions set forth by the Clean Air Act.
•
The Consultants have developed a strategy aimed at managing the infectious wastes generated in
Metro Manila. The strategy has been presented to key representatives of the public and private sectors.
The strategy has been widely accepted and supported.
Key recommendations are: •
The Government and the public sectors must comply with the provisions set forth by the Clean Air Act.
•
The infectious wastes generated in Metro Manila can be managed through a combination of public and
private sector initiatives using microwave and autoclaves.
•
The DOH in cooperation with other agencies should print and distribute the revised version of its Health
Care Waste Management Manual. The manual should be used to conduct training programs on the
proper management of health care wastes.
•
Infectious wastes should be collected by means of special vehicles relying on a thorough system of
chain of custody.
•
The interagency MOU should include aspects for the enforcement of existing laws and regulations
including strong penalties for the improper treatment and disposal of medical wastes.
•
The DOH should carry out a technical and financial evaluation of the potential to repair and operate its
existing microwaves. Based on the results of the evaluation, the DOH can decide whether to operate
the units in Metro Manila or to transfer the microwave units to other DOH institutions in other regions.
•
The proposed strategy should be implemented along with a comprehensive maintenance program.
•
The DENR and the DOH must work jointly to identify and define a suitable final disposal site for the
treated medical wastes.
Financial Management
Financing of government activities and functions has become a key policy issue in the Philippines and there is
a major issue of ever-rising local expenditures creating intolerable fiscal pressures.
• The current scenario demands that the LGUs find innovative approaches and have access to
financial resources to meet the ever-increasing demand for services especially with regard to solid
waste management, such as: Locally-generated taxes, fees and charges
External sources such as the Countryside Development Fund (CDF); credit finance
instruments; local and foreign-funded loans and grants, and private sector participation;
Cost recovery of SWM related activities from waste collection fees and fines for
violations.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
• A National Solid Waste Management Fund (NSWMF) is mandated under RA 9003 to support SWM
activities: products, facilities, technologies, and processes to enhance proper SWM; awards and
incentives; research programs, information, education, communication and monitoring activities;
and technical assistance and capability building. No fund has been established and a start-up fund
needs to be sourced.
• Waste management is a key area for the ‘polluter pays’ principle through the introduction of service
charges (for collection, transportation, treatment and disposal of waste), currently only commercial
and industrial organizations are required to pay a waste collection charge with very few domestic
customers paying anything.
• Service charges and the eventual achievement of full cost recovery are essential for securing the
long-term sustainability of waste management services. Municipalities should ensure that
revenues from charges, recommended to be collected by either water or electricity utilities (a
preferred short-term agency for tariff collections), are directed entirely to the SWM Department and
used solely towards improving and sustaining services, through full and transparent accounting
procedures.
• Long-term aim should be to increase the rate of cost recovery to cover all capital investment and
the recurrent costs. All viable alternative cost recovery mechanisms should be explored, including
capital, operational and closure costs and external costs associated with ensuring that SWM
minimizes social and environmental impacts.
• SWM Departments should prepare long-term Financial Plans setting out all areas of required
capital and recurrent expenditure, covering the same time period as Waste Management Plans.
These Financial Plans should include projected annual costs of investment capital (including
repayment rates), operation and maintenance costs covering staffing, equipment, monitoring,
vehicles and infrastructure, economic analysis of alternative collection, treatment and disposal
options and analysis should include a balanced assessment of capital, operation and maintenance
costs of alternative scenarios, including costs of transportation/haulage and different
treatment/disposal options. This includes measures designed to minimize waste generation.
• The initial ‘funding’ for the future SWM function should be focused at mechanisms and facilities to
reduce the waste taken to dumpsites by increased recycling, and should be undertaken at the
same time as any tariff impositions are introduced.
Institutional Aspects, Capacity Building and Long term Plans
RA 9003 and its IRRs are the driving legislation for SWM giving responsibility to the LGUs for solid waste
management. Institutional strengthening, capacity building, and training all flow from the Ecological Solid
Waste Management Act and the precedent laws that regulate the sector including RA 7120, RA 7924, and PD
856. Institutional strengthening and capacity building are very much linked and interrelated, and training is an
important tool.
• The training plan for the SWM sector needs to include workshop based learning activities, with
heavy emphasis placed on on-the-job-training and local technology transfer, such as
operations/maintenance training from Muntinlupa, the DOST, and MMDA building on the UNDP
project to establish MRF’s in several Metro Manila barangays.
• Several LGUs have implemented programs for SWM that can serve as best practice models
(Marikina and Muntinlupa), and there are other LGUs outside of Metro Manila that also have model
best practice programs such as the controlled dumpsite in San Fernando, La Union. Elements of
these can be adopted and adapted to suit the unique requirements of other LGUs.
• One of the major emphases of this project involves capacity building of Local Government Units.
Eight LGUs were selected to receive direct technical assistance, and in particular capacity building,
from the project team. The following activities were conducted:
Guidance on solid waste management technologies;
Development of a solid waste management planning tool;
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
Preparation of an annotated outline for the 10-year plans;
Assistance in the preparation of 10-year plans;
Conduct of waste analysis and characterization studies; and
Development of community-based solid waste management projects.
• Due to the importance of community-based recycling in enabling communities to meet the
mandates of RA 9003, 5 projects benefited from financial assistance provided by ADB funds and
technical assistance in terms of project formulation, design and implementation from the
Consultants.
• The projects were identified based on technical viability, low-cost technology, support of community
and barangay leaders, and potential for serving as a model for other communities.
• An extensive web site on Metro Manila’s SWM (www.nswmc.ph.org), which includes the reports
and findings of the ADB TA, as been developed. It includes a series of connected reports, such as
the Guidance on SWM Technologies, Waste Analyses Characterization Guidance, 10-year Plan
SWM template and an example of a current LGU plan, plus many links to important SWM and Best
Practice sites from around the world.
Donors
International donors have provided considerable financial investments and technical assistance initiatives to
Metro Manila solid waste management.
• Conventional donor loan assistance focusing exclusively on solid waste management has not
worked;
• Loans for multi-sectoral projects, which include solid waste management as part of an overall
package, appear to have been more successful. An example of this is PRMDP;
• Donor technical assistance to Government to facilitate a private-sector procurement was not
ultimately successful;
• Bi-lateral donor intervention where solid waste is part of a development package has been and
continues to be successful. Examples include LGSP and ECOGOV;
• Recent initiatives show a collective emphasis on barangay-level CBSWM, and also a focus on solid
waste disposal.
• Medical waste management is being assisted through this TA and has been supported by the
WHO/WPRO.
• Existing donor outputs should be thoroughly collated, integrated and distributed nationwide to
national agencies, LGUs, barangays, civil society and other stakeholders. This entire information
collection should be collated with other donor-based information and uploaded directly onto the
NSWMC and other websites. It is suggested that this be a key function of the NSWMC Secretariat.
• The NSWMC Secretariat and DENR should continue with donor coordination meetings as initiated
by the Secretary of the DENR earlier this year, focusing on the development of integrated, targeted
donor assistance initiatives to ensure adequate coordination, prevent replication and optimize
valuable donor resources.
Conclusions
•
Metro Manila’s active and inactive dumpsites require immediate improvement.
•
Government must focus on longer-term disposal solutions if another major crisis, as early as 2004,
is to be avoided.
•
LGUs lack capacity and must focus on strengthened training of staff, a greater level of public
consultation, with clear leadership and direction by the national Government.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
•
LGUs, in partnership with NGOs and community groups, must focus on CBSWM projects, and
establish MRF’s at the barangay level that look to local-level solutions of recycling, reuse and
reduction.
•
LGUs that contract out services for waste collection and disposal must improve contracting
procedures and impose greater transparency in their operations, regulate the contractors’
performance, and provide greater public access to information.
•
Infectious wastes should be separated from the municipal waste stream, and collected by special
vehicles relying on a thorough system of chain of custody. The DENR and DOH must work jointly
to identify and define a suitable final disposal site for treated medical waste.
•
Independent audits are required in every LGU to determine the actual costs of all aspects of the
solid waste management system.
•
True cost accounting systems must be instituted in LGUs, with itemized accounts to identify cost
centers for each part of the SWM system.
•
Incrementally, cost recovery measures should be implemented.
garbage fee, linked to a monthly utility bill.
•
The principles of the market need to be introduced. The payback in terms of a cleaner
environment, better public health and improved quality of life for all, and especially the poor, is
clear.
Households should have a
• The National Solid Waste Management Fund (NSWMF) must be established to support SWM
activities: products, facilities, technologies, processes and to enhance proper SWM; awards and
incentives; research programs, information, education, communication and monitoring activities;
and technical assistance and capability building.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
1. Review of Current SWM Practices in Metro Manila
The Government of the Philippines (GOP) and the regional and local Government units has lacked the
integrated, long-term Solid Waste Management (SWM) strategies together with the related sustainable
technical and financial plans needed to address and provide for an effective SWM system for the longer-term.
It has recognized the need to take urgent action through the provision and planned implementation of RA 9003,
which this Project was designed to support, but progress in implementation has been slow.
Current SWM practices in Metro Manila have been extensively studied and the findings highlighted in both this
report and in previous Reports3. It is clear that there is a critical SWM environmental protection deficiency
concerning the inadequate provision for suitable waste treatment; disposal facilities; mechanisms and
practices; data analyses and collation; long term financial planning; and waste collection, recycling and
recovery initiatives needed to comply with RA 9003. Current practices are resulting in major environmental
pollution and little is being done to rectify poor practices or carry out remedial works on existing environmental
hazards.
The review of the current status of SWM in Metro Manila has formed the basis for the recommendations
proposed in this report based on: previous Metro Manila study reports; stakeholder discussions; review of data
provided by them; and from the Consultant’s own investigations. The review identifies where there are
substantial gaps and raises concerns related to the implementation of future strategies, particularly in meeting
RA 9003 targets.
The first phase of this review was the completion of an LGU survey where information was drawn from:
meetings with the 17 LGUs, survey questionnaires, and from the Working Groups that were established. The
results of these activities provided an understanding of current waste collection, storage,disposal practices and
arrangements; clarified roles and responsibilities; provided information on the status of LGU SWM plans and
capacity, their needs and shortfalls; and identified steps needed for them to meet the requirements of RA
9003. Detailed analyses of the survey and results can be found in the Interim Report, particularly Annex 2, with
the major findings as follows:
•
•
•
•
•
•
•
3
Waste collection and charges/fees for household wastes are very low and for non-household wastes
bear no relationship to waste generation or to waste characteristics.
Fees charged are unlikely to be sufficient to cover current costs.
Many residents will not have the means to pay realistic (full-cost) fees
Residential waste is collected by the LGUs, but only a few collect from businesses and commercial
establishments, and none appear to monitor or manage industrial waste collection or disposal.
Few personnel in LGUs were properly familiar with RA 9003. Most requested orientation and training
on its implementation and help with institutional issues and capacity building. Staffing for solid waste
management appears under resourced.
LGUs state they need the National Solid Waste Management Framework to help them set their
individual and coordinated direction and develop their 10-year Solid Waste Management Plans.
LGUs are often unclear about who is actually responsible for disposal. Some provide their own
disposal sites, others rely on the MMDA or leave it to the collection contractor to dispose of the waste,
and some are unable to identify where the waste is disposed.
(a) The Study on Solid Waste Management For Metro Manila in the Republic of the Philippines, JICA, March 1999.
(b) Previous mission reports of WHO on Hospital Waste Management, 2001
(c) Previous Metro Manila SWM mission data, including the original and drafts of the ADB Briefing Paper on Metro Manila SWM, Dec. 2001
(d) “Basura sa Lungsod ng Maynila” (Solid Waste of the City Of Manila)
(e) Position Paper on Solid Waste Management, Tin Can Manufacturers Associations of the Philippines, Inc., August 2002.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
2. Waste Generation & Characteristics
Approximately 6,720 tonnes/day of municipal solid waste (MSW) are generated in the 17 cities and
municipalities comprising Metro Manila. With RA 9003 requiring each city and municipality to develop a 10year plan to manage its waste an accurate assessment of the waste stream is necessary to facilitate the design
of a solid waste management system that will meet their environmental and economic needs. The Waste
Analysis and Characterization Report, Report No: 3 provides an overview of previous waste analysis and
characterization studies (WACS), a description of the waste characterization studies undertaken, a discussion
of the results, and recommendations of how to continue to update this work as a means for responding to
future changes and demands.
2.1 LGU Capacity Building Activities
A number of capacity building activities related to waste characterization were conducted as described in
Section 3 of the Waste Analysis and Characterization Report No: 3. These included:
Development of a written methodology for conducting WACS
Training at a technical working group meeting
Presentation of procedures at the LGU seminar/workshop
Meetings at the LGUs to conduct site-specific planning
Orientation and training during the field work
Public education activities
2.2 Methodology for Waste Characterization Studies
The studies analyzed the disposed waste stream by generator, i.e., residential; commercial; markets; industrial;
and institutional and included the following elements:
Planning and mobilization
Waste quantity analysis
Bulk density analysis
Waste composition study
Moisture content determination
Details can be found in Section 4, with procedures for carrying out WAC studies detailed in the Annex of the
Waste Analysis and Characterization Report No: 3.
2.3 Results of Waste Characterization Studies
Makati, Muntinlupa, Quezon City, Pasig, and Valenzuela have conducted WACS. A summary of the key
results is presented in Table W-1. As shown in the table, the estimated per capita waste generation rate
ranges from 0.32 kg/cap-day in Valenzuela to 0.63 kg/cap-day in Quezon City. There is a wide range in the
reported average bulk density of the waste, from 92 kg/cu m in Makati to 218 kg/cu m in Quezon City.
Similarly, there is a wide range in the reported moisture contents of the waste, from 29% in Muntinlupa to 67%
in Quezon City.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
Table W-1. Summary Results of Disposed Waste Characterization Studies Conducted by LGUs
(Spring 2003)
Component
Makati
Muntinlupa
Pasig
Quezon City
Valenzuela
Quantity
Tonnes/year*
87,200
80,400
102,067
532,100
60,200
Population
421,308
366,674
528,179
2,1301,261
519,227
Average kg/cap-day
0.57
0.60
0.53
0.63
0.32
Bulk Density (avg. kg/cu m)
92
172
139
218
159
Composition (% wet wt.)
Paper
14.7
10.2
12.4
14.1
11.3
Glass
2.4
3.1
5.0
3.4
1.4
Metals
2.7
3.9
11.6
3.6
3.1
Plastic
25.0
28.1
20.9
21.4
28.3
Kitchen/Food Waste
32.6
29.1
23.1
39.9
38.0
Other Organic
18.9
20.4
18.9
14.8
14.2
Other Inorganic
3.5
5.0
6.7
2.4
2.2
Hazardous/Special
0.2
0.2
1.4
0.4
0.6
Moisture Content (avg. % air dry)
41
29
33
67
38
*Quantity of waste disposed estimated for Pasig based on results of other cities.
2.4 Recommendations
Every LGU in Metro Manila should be encouraged to conduct a WACS as soon as possible. The LGUs
that did not participate in this program should make every effort to follow the procedures and
methodologies suggested in this report such that all of the data collected can be compared.
LGUs that participated in this program should conduct another waste characterization study in 6 to 9
months to refine the data and to collect additional information. Thereafter, the study should be repeated
every two years.
A standardized reporting format should be prepared for use by the LGUs.
Data to be complied on disposed waste and recycled materials to determine waste quantity generated.
Planning should be based on LGU-specific information, rather than generalized per capita rates.
Additional training should be provided to LGUs in the utilization of the results of waste characterization
studies in the planning process especially in the development of their 10-year solid waste management
plan.
3. Collection Storage and Transfer System
3.1 Introduction
In 1997, solid waste collection became the responsibility of the LGUs. At that time only one percent (1%) of
waste collected was handled by MMDA with the majority managed by the LGUs through private contracts
(86%), or by LGU administration (13%). No segregation of wastes was undertaken in any of the LGUs. With
the approval of RA 9003, in 2000 waste collection and disposal practices in Metro Manila changed. These
practices are described in detail in the Interim Report
3.2 MSW Collection
Under RA 9003 the LGUs are now responsible for the collection of non-recyclable or non-biodegradable
materials and special wastes, and the barangay has the responsibility for collecting segregated biodegradable
and reusable wastes. The prevailing practice for collection is through private contracts, and administration by
the LGUs. Out of the 17 LGUs, 11 have contracted collection. Table C-1 details this and also illustrates where
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
the LGUs dispose of their wastes. The collection service covers between 80% to 100% of the area, with some
barangays and subdivisions having their own collection.
Most LGUs hire private contractors through a tendering process with accredited contractors participating per
requirement of Philippine Laws. Quezon City is a good example where a private contractor provides collection,
cleaning and disposal from residential, commercial, institutional, markets,
streets and designated collection points, transporting it to the waste facility
of Quezon City in Payatas. The service also includes collection of
industrial and government hospital waste, bulky and yard wastes except
toxic, hazardous, hospital infectious wastes, construction wastes and
demolition debris. (See Section 2.4 – 2.5 Interim Report). The most
common MSW collection practice is house-to-house collection and/or
via curbside collection. Wastes are placed in plastic bags, rattan baskets,
or in various types of bins usually provided by the residents. LGUs have
detailed plans or route maps for collection vehicles, coupled to
Vehicle for collecting recyclables
frequencies of services required. This is exemplified by Marikina City,
in Marikina, Metro Manila
which has a separate waste collection service within the barangays;
it collects solid wastes from households, markets and commercial establishments, with two trucks traveling in
tandem collecting biodegradable and non-biodegradable wastes. The latter is then taken to a recycling station
for sorting, where manual labor extracts materials from a mechanized conveyor system and places it in large
bins for temporary storage before being transferred to private recyclers for further processing and re-use. The
biodegradable fraction is taken to the disposal site where it is spread, compacted and covered with soil. The
barangays are not allowed to collect recyclable materials, except tree cuttings, garden and yard wastes.
Table C-1: Current Collection and Disposal System
LGU
Collection
% Coverage Own Disposal Disposal Location
Makati
Manila
Muntinlupa
Malabon
Navotas
Pasig
Contract
Contract
Contract
Administration
Contract
Contract
80
100
85
No
No
No
Yes
Yes
No
Rodriguez
Rodriguez
Rodriguez, SanPedro, Laguna*
Catmon
95
Tanza, Navotas
100
Rodriguez*,Taytay*
Payatas*
Quezon City Contract
Yes
Payatas
Valenzuela
Administration
80
Yes
Lingunan
Taguig
Contract
No
Rodriguez
Pateros
Contract / MMDA
No
Rodriguez
Marikina
Administration
100
Yes
Dona Petra, Rodriguez**
Parañaque
Contract
No
San Pedro, Laguna*
Caloocan
Contract
No
Rodriguez, Sta.Maria, Bulacan*
San Juan
Contract
90
No
Rodriguez
Mandaluyong Contract
95
No
Rodriguez*
Pasay
Contract
Rodriguez*
San Pedro, Laguna*
Las Piñas
Administration
No
Pulang Lupa, Laguna*
Source: LGU Survey, TA-ADB 3848, 2002, *Data provided by MMDA. ** May 2003
Makati, Manila, Muntinlupa, Pasig and Quezon City and Navotas have private collection service contracts
awarded through bidding. See Table C-2.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
Table C- 2: Garbage Collection Contractors of Metro Manila Cities
ECS
REN Transport Corporation
ACY Transport Corporation
RT Machineries
2. Malabon
By Administration
3. Manila
Leonel Waste Management Corporation
4. Muntinlupa
REN Transport Corporation
5. Navotas
By Administration, 1 Barangay privately collected by Halrey Const. Inc
6. Quezon City
Dodge Service Corporation
Greenline Onyx Envirotech Philippines Inc.
Halrey Construction Inc.
Omni Hauling Corporation
IPM Construction and development Corporation
7. Valenzuela
By Administration
1. Makati
3.3 Transfer Systems
Among the cities in Metro Manila, only three LGUs have transfer stations.
Marikina Transfer Station
Waste collection services in Marikina are government financed and include a transfer station located at A.
Tuazon St., Sta. Elena, where waste is transferred from small compactor trucks to larger 10-wheel trucks. The
transfer station is simple but efficient, also providing a small area with open topped containers for green waste,
plastics, paper and other recyclable fractions.
Vitas Transfer Station
The Vitas Transfer Station is located on reclaimed land at the southwestern corner of the Pier 18 dumpsite.
The facility includes a site office and two 500-ton capacity barges each docked at the end of 2 separate ramps.
A 3rd ramp is planned at the southwestern most seaward corner of the site along with a sprayer motor house.
Operations started in October 2002 under the management of its builder, ‘Phil. Ecology Systems Corporation’.
It receives waste from Navotas and the City of Manila and operates in tandem with the Navotas Waste
Disposal Facility located in Tanza, Navotas. A site manager supported by 24 staff working 3x8 hour shifts runs
the facility. Incoming waste trucks are checked and recorded before being allowed to unload to the awaiting
barges which then make two to three daily trips to the Tanza facility. Waste is reportedly sprayed upon
unloading and before departure.
Summary Report No: 1
AEA Technology
rmal
Disposal
Metro Manila Solid Waste Management Project
Final Report
Las Piñas Transfer Station
Cleanway Technology Corporation was commissioned by MMDA to operate a MRF, at what was a former
transfer station operated by MMDA. This large facility, comprised 4 separate bays to receive and compact
waste into large containers, serviced the requirements of LGUs south of Metro Manila. MSW was transferred
from municipal trucks to 40-footer trucks that delivered the waste to the Carmona Sanitary Landfill. Cleanway
Technology Corporation converted the station into a MRF by installing conveyors and shredders within the
facility. MRF operations commenced in February 2001. The Company has a 25% waste reduction target but
according to the General Manager, they are achieving a 50% waste reduction rate. Around 20% is taken out
from the waste stream as recyclable materials.
3.4 Waste Recycling
The extent of formal recycling through LGU initiatives is limited when compared to the waste generated in
Metro Manila. Informal and private sector recycling schemes continues to be undertaken in large numbers
covering all points from waste generation through to final disposal, with
scavenging forming a significant component of this activity. While informal
activities are extensive, quantitative impacts cannot readily be determined
due to the lack of data. Estimates vary, between 4-6% of total MSW
generated. The sustainability and overall beneficial impacts associated with
these private sector initiatives, and with existing CBSWM Projects, can only
really be judged on the basis of reliable quantitative values for materials
recovered which find continuing markets, thus avoiding future disposal at
landfill sites.
3.4.1 MSW Recycling in LGUs
With the passage of RA 9003, more recycling activities have taken place. The data in Table C-3 summarize
current recycling activities whilst these activities in LGUs and communities are discussed in greater detail in the
Markets for Recycled Wastes Report Number 5c.
Table C-3 - Summary Status of Recycling Activities in Metro Manila
Cities
Makati
Manila
Muntinlupa
Malabon
Navotas
Pasig
Quezon
Valenzuela
Taguig
Pateros
Marikina
Paranaque
Caloocan
San Juan
Mandaluyong
Las Piñas
Cooperatives
No
No
No
Yes
Yes
Yes
Yes
Yes
Na
No
No
Na
No
Yes
Yes
Na
Buy-Back Centers
No
No
No
No
Yes
Yes
Yes
Na
Na
No
No
Na
No
Yes
Yes
Na
*
CBSWM Projects
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Na
No
No
Yes
Yes
Yes
Yes
Na
3.4.2 MSW Recycling in Barangays
A technical, social and financial assessment of Community-based Solid Waste Management (CBSWM)
initiatives has been undertaken based on interviews with LGUs, with NGOs, and by survey of 16 CBSWM sites.
Its objectives: Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
•
•
•
Final Report
Assess technical viability and sustainability and identify practices that could be replicated;
Assess financial viability;
Assess social impact of these initiatives and ascertain factors likely to underlie its long-term social
acceptability and sustainability.
The findings are detailed in the Community Based Recycling Report No.5a.
Although RA 9003, the “Ecological Solid Waste Management Act of 2000,” mandates that “segregation and
collection of solid waste at source shall be conducted at the barangay level specifically for
biodegradable, compostable and recyclable wastes, the practice of waste segregation and collection at
source had been introduced in Metro Manila over two decades ago, albeit at a very slow pace and with limited
coverage due to lack of government support. The lead was provided by civic-minded professionals, with a
strong sense of environmental conservation, who started the zero-waste recycling movement in the Philippines
in the 1970’s. CBSWM is initiated regardless of the prevailing socio-economic status of the community and
leadership appears to be the key factor. Its principal activities are: -Recycling of non-biodegradable materials;
Composting of biodegradable materials.
Livelihood projects, such as vegetable gardening where compost is produced.
Table C-4 - Surveyed CBSWM Initiatives
City/Municipality CBSWM Pilot Site (Barangay)
Caloocan
Makati
Manila
Mandaluyong
Muntinlupa
Navotas
Paranaque
Pasig
Quezon City
Barangay 52
Bel Air
Forbes Park
Barangay 833 (Pandacan-Shell)
Barangka Itaas
Tunasan: Sto. Nino/Park Homes
Tanza
Sun Valley
San Antonio
Ugong
Bagumbuhay
Blue Ridge
Escopa
Holy Spirit
Philam
Talayan
Involved Organization*
Barangay, MMDA,
Barangay, ZWRMPFI
Barangay, ZWRMPFI, ZKK
Barangay, PiliPiñas Shell, ZWRMPFI
Barangay
Homeowners, Barangay, City
Kaunlaran sa Kalikasan, Elem. School
Barangay
Barangay, City
Barangay, Kilus Kaunlaran
Barangay
Mother Earth, Barangay
Barangay, Mother Earth, ADB Staff
Barangay
PHAI, Barangay, Parish Church
Barangay, Mother Earth
*MMDA=Metro Manila Development Authority. ZWRMPFI=Zero Waste Recycling Movement of the Philippines Foundation, Inc. ZKK=Zero Kalat
sa Kapaligiran Foundation. INC=Iglesia ni Cristo. PHAI= Philam Homeowners Association, Inc.
Recycling takes place at all sites and involves the collection of segregated recyclable materials by eco-aides or
bio-men at the source (households), which are then sold to junkshops. This includes paper, plastics, metal,
and glass. The detail characteristics of this and more information concerning the operations and processes
involved can be found in the Junkshop Survey Report No: 5b and the Markets for Recycled Waste Report No:
5c.
Eleven of the 16 sites surveyed practice composting by either: mechanical, using either manual or electrically-operated rotating drum and inoculants to hasten
composting (7 sites);or
natural, which relies mainly on the natural process of decomposition with no mechanical interaction.
Even with mechanical composting equipment, the ability to process biodegradable wastes is limited. The
combined capability of the 7 mechanical sites is only about 7% of the total biodegradable waste generated daily
in these communities. It is obvious that design and process improvement is desperately needed. Although
every effort was made to determine capital costs, operating costs and revenues from recycled materials, little
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
information was forthcoming from the operators either because it was not known or the income from sales of
recyclables was being retained by the Eco-Aides as a supplement to their meager wages and are therefore not
willingly declared. Many of those responsible were not really aware of the economics or commercial viability of
their projects. Therefore it was very difficult to evaluate the financial performance of these MRF’s. One MRF
has tried to produce some form of accounts, but even here many of the important costs are missing, although
presumably included elsewhere in the Barangay General Fund. Hence, it is possible to talk only in general
terms regarding sources and applications of funds, or indeed as to the commercial viability of these schemes.
From the information obtained, indications are that the potential exists for CBSWM projects to be viable and
therefore could be more widely developed. The financial and commercial information that was obtained is
contained in the Markets Report No: 5a, Assessment of Community based Recycling Section 2.6.These
initiatives can have significant and varying impacts in a community as follows: Positive Social Impacts
changes attitudes and habits amongst residents
barangay revenue generation and income opportunities for the poor;
promotion of livelihood programs like handicraft-making, vegetable gardening, and vermiculture;
improves waste collection efficiency, servicing even the less accessible households
reduces the quantity of solid waste to be disposed to dumpsites; and
improves community awareness and social relationships.
Negative Social Impacts
environmental pollution -- odor and disease-carrying insects;
conflict in time management between job and domestic chores;
the MRF can be an “eyesore” in the community.
Their effectiveness depends on:cost of composting materials (usually expensive);
difficulties in marketing the compost;
ineffectiveness of the mechanical composting equipment;
lack of space for establishing adequate MRF facilities;
leadership in the barangay;
provision of technical assistance from experienced trainers and organizers;
incentives to adopters and punishment of violators;
support from influential institutions in the community; and
availability of land on which to establish the MRF;
political rivalry that may divide the support of residents;
opposition of influential community members to CBSWM initiatives; and
persistent garbage collection by city contractors regardless of whether it is segregated or not.
Recommendations
Promotional campaigns needed utilizing experienced community members and respected residents at the
purok (district) to persuade household members, including domestic helpers, to participate in CBSWM.
Utilization of the experience of existing composting facilities with the aim of improving processing
capabilities. The tested performance of the DOST-designed composting equipment [See Report No: 5c
Section 3.4 Feasibility of composting Markets for Recycled Waste] should be further evaluated.
Organization of a Community Management Group (CMG) to manage the MRF.
Financial support of the Barangay to CBSWM/MRF operation should be sustained,
Garbage collection by City-contracted services should strictly abide by the ordinances and the SWM
program implemented by the Barangay, and coordinate closely with the MRF operation in the barangay.
Full financial and commercial appraisal should be carried out on the five Pilot CBSWMs to be used as a
template.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
4.
DISPOSAL
4.1
Introduction
Final Report
The Waste Disposal Report No 4. presents the results of a solid waste disposal assessment performed for
Metro Manila. It summarizes the current status, highlights key issues and presents practical and measurable
improvement strategies. Its imperative recommendation is that action is taken immediately to avert another
waste disposal crisis, reduce the acute public health, environmental and social impacts caused by the existing
dumpsites, and accelerate the transition to properly designed regional sanitary landfill facilities.
4.2
Current Status
Metro Manila reportedly generates about 6,700 tonnes of
waste per day, approximately 5,600 tonnes of which enters
the municipal collection systems of the 17 cities and
municipalities. This waste is reportedly disposed at 9
4
dumpsites throughout Metro Manila. Figure 1 shows the
locations of many active and inactive dumpsites.
FIGURE 1: DUMPSITE LOCATIONS
Six of the cities and municipalities operate their own
exclusive dumpsites (Figure 2). These are Quezon City,
Malabon, Valenzuela, Marikina, Caloocan and Las Piñas.
The remaining eleven contract out waste disposal to the
private sector. Most of this waste is reportedly dumped at
Rodriguez, and also at Tanza in the case of Manila and
Navotas. A portion of Caloocan waste also goes to
Rodriguez. There are also illicit private sites, such as at
Lupang Arenda on the north shore of Laguna De Bay
WASTE DISPOSAL AT A GLANCE
Population:
Waste Generated:
Waste In Municipal System:
Waste Transport:
Number of Dumpsites:
12 million
6,720 tonnes per day
Over 2.5 million tonnes per year
5,600 tonnes per day
Primarily dump truck
Cities Operating Dumpsite:
Engineering Controls:
Environmental Impacts:
Compliance with RA 9003:
Nine active dumpsites
Many inactive (6 evaluated)
Payatas (1,300 tonnes per day)
Rodriguez (1,200 tonnes per day)
Six operate their own dumpsites
Rodriguez only site with controls
Dumpsites cause acute impacts
Widespread improvements needed
Remaining Dumpsite Life:
Remaining Capacity:
Number of Landfills:
Between 3 months and 4 years
Combined, likely less than 2 years
None developed
Most Waste Received:
4
FIGURE 8
IN DICATIVE METRO MANILA WASTE DISPOSAL FLOW
Quezon City
City of Manila
Navotas
Malabon
Valenzuela
Marikina
Caloocan
Las Pinas
Muntinlupa
Pasig City
Paranaque
Makati
Pasay
Mandaluyong
Taguig
Pateros
San Juan
1,300
TPD
Payatas
(Site 1)
704 TPD
Tanza
(Site 6)
9 6 TPD
210 TPD
180 TPD
160 TPD
Tanza
(Site 6)
Catmon
(Site 5)
Lingunan
(Site 4)
Dona Petra
(Site 7)
(Closure
35 TPD
200 TPD
1,200 TPD
Unknown
in Process)
Bagumbong
(Site 3)
Pulang Lupa
(Site 3)
Rodriguez
Lupang
Arenda
( Others
)
These are Payatas (Quezon City), Tanza (Navotas), Catmon (Malabon), Lingunan (Valenzuela), Dona Petra (Marikina),
Bagumbong Municipal (Caloocan), Pulang Lupa (Las Piñas), Rodriguez (Montalban), plus the Lupang
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
4.3
- 2006
- 2004
- 2003
Waste disposal regulations are in place5.
Open dumpsites are prohibited from
early 2004, after which controlled
Uncontrolled
Controlled
Sanitary
dumpsites are required.
Controlled
Dumpsites
Dumpsites
Landfills
dumpsites will be prohibited from early
2006, after which sanitary landfills
(SLF'
s)
are required. There are specific regulatory standards for controlled dumpsites and SLF’s. The
NSWMC Secretariat and Environmental Management Bureau of DENR enforce the regulations.
Key Issues
This assessment has identified the following four key issues;
Issue 1: Existing Disposal Facility Deficiencies
Appendix 1 of the Waste Disposal Report provides technical
data for the nine active Metro Manila dumpsites and six of
the inactive sites. The dumpsites cause serious public
health, environmental and social impacts. They have
inadequate fencing, signage and security provisions.
Unrestricted access is prevalent. The 4,000 waste picker
operations at the dumpsites are dangerous. They are poorly
protected and at severe public health risk.
Many sites have over-steepened slopes and several are
critically unstable. Waste is largely exposed, inadequately
covered and poorly drained. Many dumpsites have visible
surface emissions of potentially contaminated and toxic
liquids (leachate), and leachate may be present at the
others.
These emissions seriously impact nearby
developments and surface water resources. Leachate also
percolates through geologic materials beneath the sites and
into groundwater. Contaminant pathways from the sites to
nearby extraction wells may have already been created.
Potentially explosive landfill gas in the waste is suspected.
Waste fires burn at two sites.
Dangerous Disposal Operations
Exposed, Uncovered Waste
Inactive sites are abandoned without practically any closure
or post-closure maintenance. They also cause significant
pollution. Communities have been constructed over waste
at several sites, and development is planned at others.
Human receptors within these developments are exposed to
acute public health and environmental risk.
Catastrophic waste mass failure, leachate contamination
and developments on waste piles at selected sites have
severe, potentially life-threatening consequences.
5
Potentially Hazardous Liquid Emissions
Regulations include; (i) RA 9003, providing provisions for controlled dumpsites and SLF’s, including siting, design, construction,
operation, closure and post closure; (ii) DENR Administrative Order Number 49, Series 1998 (DAO 98-49), providing controlled
dumpsite and SLF technical guidelines; and (iii) DAO 98-50, focusing on SLF siting criteria.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Disposal
Capacity
FIGURE 3: REMAINING DUMPSITE LIFE
Disposal Facility
Consultant approximations of remaining life of
active dumpsites (Figure 3) infer that most will
reach capacity by 2004. Beyond this, only the
Rodriguez facility may be operational, based on
optimistic estimates of remaining capacity6. The
closure of other dumpsites may force Rodriguez to
take an increased waste load thereby reducing
remaining lifespan further. Rodriguez will also
require closure in early 2006, as mandated by RA
9003. Longer-term SLF initiatives are several
years away from being operational. They confront
severe developmental constraints.
Urgent
progress is required to develop these initiatives
and avert another disposal crisis.
1
2003
Payatas, Quezon City
2
Rodriguez, Montalban
3
Bagumbong Munic, Caloocan
4
Lingunan, Valenzuela
5
Catmon, Malabon
6
Tanza, Navotas
7
Dona Petra, Marikina
8
Lupang Arenda, Taytay
9
Pulang Lupa, Las Pinas
X CLOSE
2004
2005
2006
2007
JAN 2006 - DUMPSITE PROHIBITION
Issue
2:
Requirements
Final Report
Issue 3: Regulatory Enforcement
Regulatory enforcement agencies are seriously constrained by the
substantial lack of technical information relating to disposal facilities
and methodologies. They have technical and financial constraints, lack
qualified and trained personnel, and encounter difficulties in enforcing
the penal provisions of RA 9003. The transition from dumpsites to
SLF’s also requires a significant infusion of technical capacity.
Issue 4: Institutions and Management
7
NSWMC Secretariat Regulatory Inspection
The six cities and municipalities operating their own dumpsites need financial and technical support to meet
the controlled dumpsite requirements of RA 9003. The remaining eleven cities and municipalities contract
out waste disposal to the private sector. Issues relating to these include; (i) closer monitoring of private
sector operations, including dumpsites and dumping practices utilized; (ii) improved record-keeping
procedures; (iii) enhanced private-sector contracting procedures and performance reviews; and (iv) improved
data access to allow data to reach target groups.
4.4
Improvement Strategy
Action 1: Dumpsite Improvements
Active and inactive dumpsites require immediate improvement to begin to mitigate acute public health,
environmental and social impacts and also to meet RA 9003 and DAO 98-49 controlled dumpsite standards.
The scale of impacts and magnitude of improvements necessary indicates that a progressive, remedial
approach is necessary, dealing with urgent measures first. Emergency actions need to be implemented
immediately. These include;
Urgent stability assessments and mitigation for the Payatas and Rodriguez sites;
Leachate mitigation at the Payatas and Tanza sites;
Cessation of dumping-and-construction at Lupang Arenda and the provision of emergency
measures to protect the communities living on the waste; and
Cessation of housing construction over waste at the Bagumbong Private site.
6
7
Remaining Rodriguez lifespan is less than shown (Figure 3) if the recorded remaining capacity has been over-estimated.
Including Quezon City, Malabon, Caloocan, Valenzuela, Marikina and Las Piñas.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
The recommended Short-Term Improvement
Program should be implemented at every site in
accordance with Appendix 1 of the Waste Disposal
Report. Indicative initial capital costs for selected
sites are also provided in the appendix.
Figure 4 presents a simplified summary of the aims
of the short-term improvement program. It is
designed to provide basic engineering and
environmental upgrades at each facility, in
accordance with RA 9003 and DAO 98-49. The
improvements can be implemented individually,
collectively or as a regional program. Although this
program will not fully mitigate the impacts, it will
provide significant, low-cost improvements, which
are achievable given the current financial and
technical constraints. This program should be
implemented immediately.
In the longer-term, every dumpsite will require
closure followed by post-closure maintenance for at
least 10 years. At the latest, closure is scheduled
to happen by early 2006. Also, since the dumpsites
lack properly engineered control systems, they will
most likely require further remediation in the future
to mitigate impacts to public health and the
environment. Figure 5 provides a summary of
emergency, short-term, and longer-term action for
Metro Manila dumpsites.
FIGURE 4: SUMMARY OF SHORT-TERM IMPROVEMENTS
Site Security and Control: Site access restrictions, fencing, signage, access
gate and security.
Slope Stability: Stable facilities with safe slope angles.
Site Drainage: Prevention of ponding and flooding, promotion of stability,
reduction of surface erosion, prevention of waste contact with surface waters.
Waste Encapsulation: Waste fully encapsulated with adequate soil cover.
Waste Placement: Placement techniques properly organized, wastes covered
with soil every day.
Water Resource Protection: Surface water and groundwater regularly
monitored, prohibition of water use in areas of identified contamination and
provision of alternative water supply.
Landfill Gas Mitigation: Secured site with access and operational restrictions,
investigation and mitigation of fires, and site monitoring for unusual occurrences.
Waste Picking Operations: Expeditious phasing out of dumpsite waste picking
operations, and relocation to material recovery facilities. In the interim, improved
regulation of waste picker personnel, provision of protective clothing and washing
facilities, improved operational health and safety practices, formulation of
emergency response procedures, and mitigation of social impacts on adjacent
communities.
Odor and Litter: Odor and litter control programs in place, and mitigation of
impacts to adjacent communities.
Closure and Post-Closure: Adequate closure and post-closure maintenance in
accordance with RA 9003 standards.
Facility Records: Upgrading of facility record-keeping.
Facility After-Use: After-use restrictions, and development prohibited unless
impacts thoroughly mitigated.
FIGURE 5: SUMMARY OF REQUIRED ACTION
Active
Dumpsites
Disposal
Facilities
Payatas
Rodriguez
Bagumbong Municipal
Lingunan
Catmon
Tanza
Dona Petra
Pulang Lupa
Lupang Arenda
Emergency
Action
Short-Term
- Immediate
Improvements
Mid 2003
Stability Assessment
and Mitigation;
Rodriguez Facility
Payatas Dumpsite
Short-Term
Improvement Program
Leachate Mitigation;
Payatas Dumpsite
Tanza Dumpsite
Longer-Term
Remediation
2003 Onwards
Closure,
Post ClosureMaintenance,
Long-term
Monitoring and
Remediation
Cease Dumping
IEC Campaign
Site Investigation
Cease Construction
- Bagumbong Private
Inactive
Dumpsites
Bagumbong Private
Short-Term
Improvement Program
Closure,
Post Closure
Maintenance
Pier 18
Site C4
Palanyag
Carmona
San Mateo
Summary Report No: 1
AEA Technology
Post ClosureMaintenance,
Long-term
Monitoring and
Remediation
Metro Manila Solid Waste Management Project
Final Report
Action 2: Future Disposal Initiatives
Engineering assessments are needed immediately for
active dumpsites to estimate waste importation,
available disposal volume and remaining facility life.
Urgent development of long-term, regulatory-compliant
regional sanitary landfill facilities is a top priority.
Figure 6 outlines previous unsuccessful ventures, and
future initiatives such as those shown on Figure 7 must
adopt different developmental strategies to ensure
successful and sustainable development.
If in the avoidance of another disposal crisis, it is
necessary to expand existing dumpsites or develop
additional emergency-based, short-term controlled
dumpsites, these expansions and additions must be
properly designed with environmental protection
systems, and be fully integrated with the proposed
short-term improvements.
Action 3: Regulatory Strengthening
A web-based waste disposal facility database should
be developed, initiated immediately utilizing the 15
assessed dumpsites. It should include comprehensive
technical documentation and be updated with ongoing
inspection reports and actions. It should also be
progressively expanded as additional sites are
developed and identified, including SLF’s (Figure 8).
FIGURE 6: SELECTED PREVIOUS DISPOSAL INITIATIVES
Regional Disposal System, Pililla, Rizal (Pro-Environment, 2000-03)
Status: Legal restraining order issued. Government has declined to proceed.
Bataan Ecological Waste Management Complex (WAR Inc, 2000-01)
Status: Curtailed due to public opposition.
Semirara Island Regional Landfill Facility (RII Builders, 2001)
Status: Legal restraining order issued, plus widespread public opposition.
Combined Inland and Offshore Facilities (JICA, 1999)
Status: Recommendations not implemented.
Waste-To-Energy Initiative (Jancom, 1996-2002)
Status: Government has declined to proceed with the project.
Incinerator Complex (R II Builders, 1996-99)
Status: Curtailed due to public opposition and enactment of the Clean Air Act.
FIGURE 7: CURRENT SANITARY LANDFILL INITIATIVES
Rodriguez Sanitary Landfill Expansion, Montalban
Clark Development Corporation Sanitary Landfill, Tarlac
Quezon Province Sanitary Landfill, Quezon
FIGURE 8: WASTE DISPOSAL DATABASE DEVELOPMENT
Expand With
Additional Dumpsites
As Identified
Initiate Utilizing 15
Dumpsites From ADB
Assessment
A regulatory monitoring program should be established
with measurable objectives, strategies and schedules.
Personnel resources should be developed to build
capacity to adequately enforce SLF regulations, which
require a higher level of technical proficiency.
Action 4: Institutional Reform
Cities and Municipalities Operating Dumpsites: Build
operational capacity to implement short-term dumpsite
improvements and maintain sites in regulatory
compliance (Figure 9);
Cities and Municipalities Contracting Waste Disposal:
Build operational capacity to improve contracting
procedures, regulate private sector waste disposal
performance, and improve record-keeping and access
to information.
Summary Report No: 1
AEA Technology
WASTE DISPOSAL
FACILITY
DATABASE
Progressively
Incorporate Sanitary
Landfills As Developed
FIGURE 9: INSTITUTIONAL REFORM
ACTIONS
Build Operational
Capacity to;
Implement Short Term
Improvement Program
Maintain Sites in
Regulatory Compliance
CITIES, MUNICIPALITIES
Cities, Municipalities
Operating Dumpsites;
Quezon City
Malabon
Valenzuela
Marikina
Caloocan
Las Pinas
Build Operational
Capacity to;
Cities, Municipalities
Contracting Waste Disposal;
Regulate Private Sector
Performance
City of Manila
Navotas
Muntinlupa
Pasig City
Paranaque
Pasay City
Improve Contracting
Procedures
Improve Record-Keeping
and Access to Information
Makati
Mandaluyong
Taguig
San Juan
Pateros
Metro Manila Solid Waste Management Project
Final Report
5. Markets for Recycled Solid Waste in Metro Manila
5.1 Introduction
The objectives for investigating the current market for recycled solid waste materials were to determine the type
and quantity of waste materials currently being recovered and marketed, identify economic opportunities;
potential for recyclable materials and compost produced, the relevant problems, and make recommendations.
5.2 Methods of recycling
There are two general classifications of recyclable waste: factory returnable and compostable wastes with the
first distinguished as recyclable material comprising paper, plastics, glass and metal. These recyclable
materials are mostly recovered at households, by pushcart-driving eco-aides; at roadside litters by scavenging
waste pickers; on the garbage collection truck while the waste is transported to the dumpsite, by the paleros
and “jumpers;” and at the dumpsite, by resident waste pickers
It is estimated that households in Metro Manila generate more than two million tonnes of potentially recyclable
materials annually. Approximately 25% of this was reportedly recovered last year (2002) by the Linis-Ganda
network at a cost of Php230 million
For the compostable wastes there are two types of locally manufactured mechanized composting units in Metro
Manila
the bioreactor, a continuous daily feed of raw material and harvesting of compost
the composter, a batch-type where there is a gestation period of 5 days before harvesting the compost
By comparison, one unit of 1-ton bioreactor can handle one ton of biodegradable waste generated daily in
comparison , for the same volume, five units of 1-ton composter are required. Based on the 1-ton capacity
bioreactor a total of 2,144 1-ton capacity bioreactors would be required to compost all the biodegradable
wastes generated by households in Metro Manila.
The capital investment for a 1-ton bioreactor composting facility would be of the order of Php608, 000 and
given that it could be expected to produce a total of 150 tonnes/annum of compost the following table illustrates
the potential pay back against investment.
Item
Capital Investment
Product
Cost/kg
Selling Price for compost
Total Revenue from sale of compost
Net Income
ROI
Pay Back
Cost
Php 608000
150 tonnes/annum
Php 1.87
Php 3.00
Php 450,000
Php 169,000
27.8%
3+ years
Further details are found in Tables 8, 9 & 10 Report No.5c, Markets for Recycled Waste with data obtained
from DOST.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
5.3 Findings
There are about one hundred identified recycling companies and organizations in Metro Manila, not to mention
the many junkshops that were separately surveyed, these are referenced in Appendix 1 of the Junk Shop
Survey Report No:5b. Valenzuela City has the largest number of the identified recycling companies. Those
engaged in recycling plastics are of the largest number, followed by those in metal, paper, glass and other
recyclable materials. All of these companies have a respective association identified with the type or kind of
material they are recycling.
Market demand for recyclable materials appears to be unmatched by locally available supply. One large paper
company, for instance, has the capacity to buy all of the recyclable paper materials obtainable from Metro
Manila, but only 10% of its requirements can currently be supplied.
Marketing of compost is very problematic as the enormous potential supply cannot be matched by demand in
Metro Manila and in nearby provinces. Current levels of compost supply are limited and these are sourced
from scattered small-scale community-based composting facilities.
Applying the computation above to the entire Metro Manila, a total capital investment of around Php1.3 billion is
needed to establish the composting facilities required in every barangay or cluster of barangays. This will yield
a potential total return of about Php750 million within one year. But here again, the assumption is that the
compost produced in one year by the 2,144 bioreactors, equivalent to approximately 321,450 tonnes, is sold at
a selling price of Php3/kg.
5.4 Recommendations
Establish MRF’s in every barangay or cluster of barangays throughout Metro Manila by phases and
synchronized with intensive market promotion on the use of compost.
• Management of MRF operation by a Community Management Group (CMG), through a management
contract containing terms and conditions satisfactory to both parties.
• Sustained technical support required for CMGs by the concerned NSWMC-member agencies, namely,
DTI, DA, DOST as well as FPA.
• Promote the use of compost to match the potential supply and create an organizational network to
effectively market the compost.
•
Involvement and support of NGOs towards the CMGs should also be sought, through the NSWMC and
its counterpart SWM Boards in each City and Municipality of Metro Manila.
6. Laws and Regulations
6.1 Introduction
There are a plethora of laws and regulations in the Philippines about the environment, sanitation, health and
waste management, and clean air. In addition there are Executive Orders, Department Orders, Presidential
Decrees, Regulations and Ordinances with cities and municipalities also having their own ordinances on
environmental issues; littering, clean and green, street sweeping, health, though few specifically focus on solid
waste management. Annex 1 of the Laws and Regulations Report No: 6 reviews all of these relevant laws and
regulations.
As a result there is often confusion, perceived conflicts between laws and regulations and navigation through
them is difficult especially when attempting to link clauses and provisions in what is a beneficial regulatory
framework. For example the Sanitation Code, the Local Government Code and RA 9003 all contain
complementary clauses and provisions describing the waste management services that LGUs must offer and
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
perform, and provide the means to fund these services. Yet it is apparent that LGUs and other stakeholders
are now primarily focused on the implementation of RA 9003, which though it is the correct path, the other laws
and regulations can provide support and make the implementation process smoother and easier.
For illustration, RA 7160, Sections 153, 154, and 185 grant power to the LGUs to levy fees and taxes, and
public utility charges for basic services and facilities including solid waste collection (Sec. 17), and RA 9003
Sec. 17 (e) which provides that “The LGU source reduction component shall include the evaluation and
identification of rate structures and fees for the purpose of reducing the amount of waste generated” and Sec.
47, authority to Collect Solid Waste Management Fees. However, no LGUs in Metro Manila are considering or
exploring this option to gain fees for waste management.
As far back as 1991 with the Local Government Code of 1991, LGUs have had the responsibility for waste
management and the means to levy fees and collect taxes after holding public hearings. Prior to this was the
Code on Sanitation (1976). Against this background though, RA 9003 has introduced new stakeholders and
new players, some having limited experience, and has also allocated new resources to handle solid waste
management, for example at the barangay level. It has specific responsibilities for LGUs, barangays,
DENR/EMB, a new NSWMC, and the PSWMB chaired by MMDA.
The major issue has and continues to be implementation, which has only been exacerbated by the
comprehensiveness and complexity of RA 9003 and its IRRs. These are overwhelming some LGUs and most
barangays. The failure to fully implement appears to be further compounded by lack of public understanding
and knowledge, and most importantly the limited public awareness and participation has inhibited the process
and continues to contribute to the “waste crisis”.
6.2 Legislative Review
The prime aim was to review the existing and current situation of laws and regulations, from an institutional and
regulatory perspective, that cover waste management, including medical waste management, and disposal. It
was discovered that whilst some regulations have been suspended, replacement legislation is still being
considered or enacted, leaving a legislative vacuum particularly in the regulation, monitoring and enforcement
of medical waste management.
The primary focus however is RA 9003, which as stated is “an act providing for an ecological solid waste
management program, creating the necessary institutional mechanisms and incentives, declaring
certain acts prohibited and providing penalties, appropriating funds therefore, and . . .
RA 9003 and its IRR is a comprehensive yet very complex law, and specifies roles and responsibilities for new
stakeholders such as every barangay in the country. These barangays generally had not previously been
involved directly in solid waste management. They relied on the city/municipal government and MMDA to
manage the waste. . Now however, many of these stakeholders appear to have been taken by surprise with
their entirely new roles and responsibilities, and are still trying to cope. Even the national agencies are having
difficulties due to resource and budget constraints.
But what is the law? In the case of the Ecological Solid Waste Management Act, the spirit is very clear; to view
the things we do not use or need as solid waste. At its simplest – reduce, re-use, recycle at the local level -but the law is still wanting in serious implementation.8
The Ecological Solid Waste Management Act of 2000 and its IRR provide very comprehensive legislation,
building on previous laws and regulations, to regulate, monitor and enforce necessary and timely clauses and
provisions on solid waste management to address the garbage crises in Metro Manila and the country.
However, the timetable for implementation is behind schedule, source reduction and segregation are only
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
happening at an individual barangay level or not at all, there is little or no active public participation or
understanding or interest, and probably most significantly the Solid Waste Management Fund (Section 46, RA
9003) has not been set-aside. The major implementation challenges are discussed in Section 2.4 of the Laws
and Regulations Report No:6
The review of SWM legislation covers 10 legislative acts and six administrative/executive proclamations issued
between 1938 and 2002, and focuses on institutional and non-technical matters. The documents assessed
comprise five Republic Acts, one Commonwealth Act, three Presidential Decrees, three Administrative Orders
of the Department of Environment and Natural Resources (DENR), one DENR Memorandum Circular, one
Executive Order and two MMDA Regulations.
The overarching considerations in reviewing the documents are:
• that they contain provisions that impact on solid waste management practices in the Philippines;
• that they contain different requirements and/or different enforcement provisions from each other, and
• that they are all still in effect, except those few which were specifically superceded by the Ecological
Solid Waste Management Act of 2000 (RA 9003) and the Clean Air Act.
Based on the relevant provisions set out above, the following general observations on the state of legislation
concerning solid waste management can be made:
•
Earlier issuances, such as Presidential Decrees in the 1970s, encompassed most pollution and waste
management issues in a single issuance. This contrasts with more recent legislation (c. 1990s) that
tends to have a more comprehensive coverage on a specific environmental concern covering specific
issues, such as solid waste management
• The Code on Sanitation (1976) formerly addressed most environmental issues. Today, air and solid
wastes are covered by their respective comprehensive Republic Acts.
• While policies and procedures for air and solid waste are clear-cut and updated, only one old issuance,
and another one specific to Laguna Lake, appears to have had provisions for environmental concerns
involving bodies of water. Since the Philippines is an archipelago, there is a compelling reason for
comprehensive legislation on environmental issues concerning bodies of water, including addressing
prevention of adverse impacts such as the considerable evidence of water pollution arising from current
bad disposal practices into or adjacent to water.
• Most of the legislation and issuances engage in cooperative work with LGUs. However, related
regulations such as those issued by the MMDA do not refer to cooperation with DENR, the overall
coordinator of solid waste management initiatives in the country. This makes it appear that MMDA, is
not complementing the DENR and the LGUs who now have the mandate under RA 9003 for the overall
solid waste management effort. It remains essential for this resource to complement the activities of
DENR and the LGUs, and to clarify responsibility for identification and development of new landfill sites.
• Limited SWM legislation appeared during the 1980s, with the first half witnessing the end of martial law
and the second half focusing on rebuilding the economy. It was during the early 1990s that more
comprehensive issuances were made, probably to address the mounting waste generation and
associated problems (and to raise environmental awareness) generated by the economic boom of the
Ramos Administration.
• The Ecological Solid Waste Management Act of 2000 is, in summary, very comprehensive and delivers
a solid framework for SWM. However, some clauses may be difficult to implement and enforce, some
government entities and other bodies may be overburdened by responsibilities and it has a limited
focus on the collection and disposal of commercial and industrial wastes, which it will be necessary to
include to ensure an Integrated Solid Waste Management plan for Metro Manila.
These are further described in section 2.3 of the Laws and Regulations Report No:6 with a discussion
regarding major concerns and recommendations in Section 6
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
6.3 Technical Regulatory Requirements
There have been several recent initiatives to enhance technical regulations relating to waste disposal, primarily
focusing on dumpsite and sanitary landfill (SLF) siting, design and operation. These initiatives include the
following;
•
•
DENR Administrative Order Number 50, Series of 1998 (DAO 98-50) which relates to SLF siting criteria
and development;
DENR Administrative Order Number 49, Series of 1998 (DAO 98-49) which provides technical
guidelines for SLF design and development; and (iii) RA 9003 and the associated Implementing Rules
and Regulations , which provide necessary provisions and guidelines for controlled dumpsites and also
for SLF location and design criteria, and operating procedures.
Collectively, the regulations provide for relatively comprehensive technical regulation relating to waste disposal
and their key provisions are briefly summarized as follows;
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
9
10
Open dumpsites9 to be converted to controlled dumpsites by January 2004, and open dumpsites will be
prohibited after this date. Controlled dumps prohibited after January 2006, when SLF’s are required;
DENR10 to formulate a staged compliance program for the conversion of open dumps into controlled
dumps, and primarily responsible for publishing an inventory of nationwide disposal sites.
DENR required to issue guidelines which will classify controlled dumpsites in terms of; (a) volume of
waste received; (b) types and character of wastes received; and (c) cost requirements for facility
operations;
Strategies to be developed to improve existing sites to reduce adverse impacts on health and the
environment, and to extend facility capacity and lifespan, where appropriate;
Basic controlled dumpsite location requirements, such as prohibition on location within floodplains and
hydro-geologically unsuitable areas without adequate engineering mitigation;
Operations restricted to daylight hours. If night operations are necessary, working times should be
restricted, and noise, artificial light and other impacts should be mitigated;
A six-inch (0.15 m) thickness of soil or inert material cover to be placed over the entire area of exposed
waste at the completion of each day, and alternative covers utilized only when approved;
A 0.6 m thick cover be placed over the entire waste materials following abandonment, adequately
graded and planted to promote surface run-off while reducing erosion;
Surface water drainage features required to prevent surface water and waste contact and surface
erosion;
Odor and litter controls required;
Active waste filling areas to be minimized, waste layer thickness to be limited, and adequate
compaction provided;
Adequate site management provided, including the provision of operating procedures and adequately
trained personnel;
Site access restricted, and security fences provided;
Basic record-keeping required, including daily waste volumes, waste observation logs, accidents and
special occurrences, and unauthorized loads;
Access road construction, basic infrastructure, utilities and public protection measures required;
including maintenance of drainage features, access roads and site equipment.
Groundwater monitoring of nearby wells utilizing approved sampling and testing methods;
Protection of amenities, litter control, prohibition of burning, control of pests/vermin, odor reduction;
An “open dump” refers to a disposal area wherein solid waste is indiscriminately thrown or disposed of without due
planning and consideration for environmental and health standards (RA 9003, Section 3(t)). A “controlled dump” refers
to a disposal site at which solid waste is deposited in accordance with the minimum prescribed standards of site
operation (RA 9003, Section 3 (e)).
In collaboration with the Department of Interior and Local Government (DILG).
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
•
•
•
Final Report
Waste pickers and recyclable trading practices to be controlled;
Post-closure maintenance to be provided for a period of 10 years following abandonment, including
maintenance of cover materials, drainage features, vegetation, restriction of post closure uses;
Certain other actions are also prohibited, including; (a) the open burning of solid waste; (b) informal
settlements within dumpsites; (c) unauthorized dumping; (d) facility development without appropriate
regulatory approvals; (e) adjacent construction limitations; and (f) dumpsite development with respect to
groundwater resources.
Implementation of the dumpsite regulations is currently ongoing by the NSWMC Secretariat, including the
completion of site assessments and issuance of violation orders as appropriate. Technical and regulatory work
performed through the TA provided direct technical assistance to this ongoing regulatory enforcement program.
7. Institutional Aspects
7.1 Introduction
A review of the institutional structures, capabilities and responsibilities, of the national agencies and the LGUs
in the context of their roles and responsibilities in RA 9003 including the IRR, and other previous supporting
laws and regulations as well as local ordinances passed by LGUs has been concluded. The details are found
in the Institutional Report ( Report No 7), which also contains a review of the capabilities and responsibilities of
the varied and numerous stakeholders in the SWM sector. Focus is particularly upon the status of
implementation of RA 9003, and what capacity building activities and training is required to complete the
implementation of that law.
The Ecological Solid Waste Management Act of 2000 is a complex and comprehensive law regulating the
SWM waste management sector in the Philippines which implements many new and technologically advanced
methods and processes for waste management, all of which require extensive resources. The national
agencies, the LGUs, the barangays and the NGOs continue to make significant progress in implementing the
clauses and provisions of the law, and designing programs to ameliorate the garbage crisis in Metro Manila.
This is a time consuming and difficult process. Even before this project started, the stakeholders had
recognized the problem and had established the NSWMC which immediately began to exercise its roles and
responsibilities, creating coordinating committees and working groups, setting schedules, etc., to address the
requirements of the law, stop the proliferation of waste at source and deal with the issues surrounding
recycling, collection and disposal (both past, current, and future). The stakeholders have made a good start,
but there is still much to be done with serious issues and challenges to be addressed and overcome.
One major issue identified that has a serious adverse impact on the implementation of RA 9003 and its IRR, is
the inability of the national government, Congress, DBM and possibly DOF, to provide a budget for the Solid
Waste Management Fund described in Section 46 of the Act. The impact of this is also discussed in Financial
Management, Report No:9. The Commission’s ability to function adequately and carry out its roles and
responsibilities has and continues to be severely impacted by the unavailability of this fund. Therefore, a major
and most critical recommendation is that the Commission establishes and implements a critical path advocacy
program and secure adequate SWM funding to implement the Act. There are many competing priorities for
national government funds during these trying economic and global competitive times, but the full
implementation of RA 9003 is in serious jeopardy without this fund.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
For most of us, waste is the bags of rubbish that leave our households every
week. We know that it ‘goes somewhere’ – but few have actually seen a
dumpsite, a landfill site, a waste facility, or a recycling center, and most of us
do not give it much more thought. This is highlighted in Public Awareness
Report No:2
Household waste is in fact a small proportion of the mountain of two million
tonnes of waste generated every year. The impacts of industrial and
commercial waste, and nuisance/illegal dumping and littering that finds it’s way
into the nations rivers, waterways, canals and esteros must also be included in
the nations SWM planning and control. Volumes will increase over the next
decade and the challenge is to implement the right legislation, establish fair
and equitable mechanisms for Institutional aspects of SWM, the laws and
regulations, to reduce waste generation/source reduction, establish
sustainable recycling and composting programs and markets, improve collection efficiency and develop safe
and sanitary disposal facilities. RA 9003 and its IRR are the driving legislation for SWM giving powers to the
LGUs for solid waste management, and MMDA for solid waste disposal, so institutional strengthening, capacity
building, and training all flow from the Ecological Solid Waste Management Act and the precedent laws which
regulate the sector including RA 7120, RA 7924, and PD 856.
Institutional strengthening and capacity building are very much linked and interrelated, and training is an
important tool for institutional and capacity building. The training plan for the SWM sector needs to include
workshop based learning activities, but with heavy emphasis placed on on-the-job-training and local technology
transfer, such as operations/maintenance training from Muntinlupa, the DOST, and MMDA building on the
UNDP project to establish MRF’s in several Metro Manila barangays. These are further expanded upon in the
Institutional Report No: 7, Section 6 Training
Several LGUs have implemented programs for SWM that can serve as best practice models (Marikina and
Muntinlupa), and there are other LGUs outside of Metro Manila that also have model best practice programs
such as the controlled dumpsite in San Fernando, La Union. Elements of these can be adopted and adapted to
suit the unique requirements of other LGUs. The NEC should be the focal point for collecting information
about these best practice programs, but in the interim until the funding for the NEC is available, the
Commission must take on this role. The Commission must also be the focal point for designing a training plan
for instance with, for example, Muntinlupa to provide technology transfer and operation and maintenance
training of an MRF operator.
7.2 LGU Institutional Structures, Roles and Responsibilities
The principal organizations reviewed include the National Solid Waste Management Commission, the
Metropolitan Manila Development Authority, and the Association of Barangay Councils.
7.2.1 National Solid Waste Management Commission
The National Solid Waste Management Commission (NSWMC) is the major agency tasked to implement
Republic Act 9003, the Ecological Solid Waste Management Act of 2000. The law, signed in January 26, 2001,
calls for the institutionalization of a national program that will manage the control, transfer, transport,
processing and disposal of solid waste in the country. Chaired by the Department of Environment and Natural
Resources (DENR), the Commission will prescribe policies to effectively achieve the objectives of RA 9003. It
will oversee the implementation of appropriate solid waste management plans by end-users and local
governments as mandated by law and establish the National Ecology Center to serve as the center for
information, research, database, training, and networking services for the implementation of the provisions of
the Act. The NSWMC comprises fourteen (14) members from the government sector and three (3) members
from the private sector.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
7.2.2 MMDA
In March 1, 1995, Congress passed Republic Act No. 7924 creating the Metropolitan Manila Development
Authority (MMDA). The Metro Manila Council11 is the policy making body and the governing board of the
Authority composed of Mayors of all the cities and municipalities in Metro Manila, the President of the ViceMayors League (voting members), and as non-voting members the heads of the Department of Budget and
Management (DBM), Department of Transportation and Communications (DoTC), Department of Public Works
and Highways DPWH, Housing and Urban Development Coordinating Council (HUDCC) and the Philippine
National Police (PNP).
The Council is headed by a Chairman with a cabinet rank, appointed by the President and assisted by a
General Manager and Assistant General Managers for Planning, Operations and Finance and Administration,
all of whom are also appointed by the President.
The services under the jurisdiction of MMDA have metro-wide impact and transcend legal political boundaries
or entail huge expenditures. They include:
• Development planning
• Transport and traffic management
• Solid waste disposal and management
• Flood control and sewerage management
• Urban renewal, zoning, land use planning and shelter services
• Health and sanitation, urban protection and pollution control and public safety
7.2.3 Association of Barangay Councils (ABC)
At the national level, the ABC Office has 16 staff, with every Barangay Chairman considered a member of the
organization. In discussion with ABC officials, they indicate that the role of the Office within the Commission
has never been adequately defined.
7.3 LGU SWM Status and Institutional Structures
The following sub-sections are some examples of current institutional structures, staffing and related current
SWM status, and future plans and programs within each of the LGUs for Metro Manila that have been
reviewed. They along with other structure and organizations are reviewed in section 3 of the Institutional
Report No: 7.
7.3.1 Quezon City
SWM is one of the priority projects of the Mayor who created the Environmental Protection and Waste
Management (EPWM) Department in June 2001, with its own budget and plantilla and includes the ‘Clean and
Green’, a task force responsible for SWM.
The Department has four divisions: Pollution Control, Solid Waste Management, Plans and Programs, and
Administration with a staff complement of 408 personnel.
The City has already organized its SWM Board, with:
• The City Mayor, as Head,
• A representative from the City Council who chairs the environment or the health committee,
• The President of the Association of Barangay Councils, who is also a member of the City Council,
• The Chairperson of the Sangguniang Kabataan Federation, also a member of the City Council,
• Two representatives from the NGOs,
• One representative each from the recycling and packaging and manufacturing industries, and,
• The Head of the EPWMD.
11
Information partly extracted from www.mmda.gov.ph and as formulated on the MMDA web site in 2001.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
7.3.2 Valenzuela
Here there has been no order to establish a SWM Board nor has the City Council identified a budget for its
operation. Four barangays out of the City’s 32 barangays have organized their solid waste management
committees.
Waste collection is entirely undertaken by the City, with collected waste deposited at a private dumpsite. The
City has a Clean and Green Office (an NGO subsidized by the City), employing approximately 300 part-time
street sweepers and about 80 “camineros” and gardeners. It has 10 personnel conducting IEC campaigns on
waste management among the City’s 32 barangays.
It plans to construct an MRF close to the existing dumpsite, but there is no evident plan for a sanitary landfill for
the estimated 10% residuals of the approximately 300 tonnes/day generated. A study has been conducted on
the non-readily recyclable waste to see what other recyclable or reusable materials can be extracted from it.
Police are deputized by MMDA to enforce laws concerning SWM, but they are paid and supervised by the
LGU.
7.3.3 Taguig
The Solid Waste Management Office (7 staff), together with the Clean and Green Office (324 staff, including
262 street sweepers), the Agriculture Office (7 staff), and the General Services Office (50 staff), are all under
the Environment Maintenance Group headed by the Environment and Natural Resources Officer (ENRO).
The municipality uses the services of a private contractor (IPM Construction) for waste collection with the
contract renewed every six months dependant on the satisfactory performance of the contractor.
The ‘Clean and Green’ area checkers (lead persons of street sweepers) seek to enforce requirements that no
waste is left uncollected within their respective areas of jurisdiction. Uncollected waste is reported to the Office
who, in turn, notifies the contractor.
The Waste Management Division mainly performs monitoring functions with “one-stop outposts” manned by
personnel on a 24-hour basis, serving as multi-purpose monitors. Illegal disposal from other LGUs, by either
contractors or residents, is prevalent in Taguig due to the availability of vacant land.
The LGU collects non-medical waste from hospitals but does not monitor if hospitals comply with the proper
handling and disposal of medical waste. Regulation of handling, collection and disposal of medical waste from
other establishments such as funeral parlors and private clinics is the responsibility of the Municipal Health
Office through their sanitary inspectors.
7.3.4 Manila
The City SWM Board, though established not yet convened, is composed of the following members:
•
•
•
•
•
•
•
•
•
•
the City Mayor as Chairman,
Environmental Protection Chairperson,
Ecological Preservation Chairperson
Sanitation Committee Chairperson;
Association of Barangay Council Chairman,
Youth Sectoral Representative,
Department of Public Services (DPS),
City Planning and Development Office,
Manila Health Department, and;
the President of the Association of Junk Shop Owners.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
According to the Regional Office of the DILG, 41% or 371 of its 896 barangays in Manila have formed SWM
committees. However, officials in Manila LGU indicated that no barangay committees have been established.
The City employs a private contractor for waste collection and street sweeping, covering approximately 95% of
the City’s service area. The contract is renewed yearly but has been with the same contractor for the past 9
years. Procurement of services is through competitive bidding and authorized by the City Council before the
Mayor is allowed to enter into a service contract. The contract specifies the number of personnel and
equipment to be provided by the contractor, including a schedule and is monitored by the DPS.
The City uses a site, owned by the National Housing Authority, near Pier 18 as a transfer station. Two private
haulers, ‘Car A’ and ‘PHILECO’, have been contracted to haul waste from Pier 18 to the disposal site in
Rodriguez. See Section 3.3 above. The tipping fee charge is Php 600 per ton, of which Php 150 goes to the
LGU and the rest to the landfill operator. Waste collection fees are collected from business and commercial
establishments with the annual renewal of business permits. The rates have not been upgraded since the early
1980s and vary from Php 50 to Php 150 depending on the waste generated by the establishment.
Manila Health Department is responsible for inspecting establishments, ensuring compliance with the
Sanitation Code and has the power to order the closure of establishments.
The City enforces: Presidential Decree (PD) No. 825 -anti-littering, PD 856, the Sanitation Code of the
Philippines and also the various city ordinances relative to solid waste management. Executive Order 427,
which required the provision of waste containers by residents and establishments was repealed but had limited
success. The City enforces MMDA Resolutions: No. 96-009, prohibiting littering, and No. 99-004 requiring
waste segregation practices to be adopted. It is also implementing PD 825, anti-littering law.
8. LGU 10-Year Solid Waste Management Plans
8.1 Introduction
One of the major emphases of this project involved capacity building of Local Government Units. The project
team conducted activities to define the needs for capacity building for LGUs, leading to the selection of 8 LGUs
who would receive direct technical assistance, and in particular capacity building, from the project team. The
following activities were conducted:
• Guidance on solid waste management technologies;
• Development of a solid waste management planning tool;
• Preparation of an annotated outline for the 10-year plans;
• Assistance in the preparation of 10-year plans;
• Conduct of waste analysis and characterization studies; and
• Development of community-based solid waste management projects.
8.2 Capacity Building for Local Government Units
An emphasis throughout the project was Capacity Building of LGUs, particularly related to its responsibility
under RA 9003, which requires every LGU to prepare a solid waste management plan; to promote the
segregated collection of recyclables, bio-degradables, and residual waste; to establish community-based
facilities to sort the recyclables, process and transfer to markets, compost the bio-degradables to produce a soil
amendment; and to plan for disposal of waste at well designed and managed disposal facilities.
Efforts during the first part of the project were focused on identifying the needs of the LGUs in these areas, and
to define general subject areas in which assistance could be provided during the second part of the project.
These activities relate particularly to the preparation of the 10-year solid waste management plans and to the
CBSWM projects that are on going and are expected to continue after the completion of this project.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
8.2.1 Preliminary Activities
Activities conducted early in the project served to introduce the project to the communities and to determine
their needs, as well as to establish the process for working with the LGUs selected to receive direct technical
assistance. These are described in Section 2 of the Capacity Building for Local Government Units Report No: 8
but are briefly described below:
•
LGU Surveys and Meetings
These were held with 17 LGUs in Metro Manila who completed a survey that was designed to assess
the status of activities related to the implementation of RA 9003, following which areas were identified
in which technical assistance was needed:
o
Meeting the requirements of RA 9003
o
Preparation of the 10-year plan
o
Establishment of user fees
o
Provision of collection service for the commercial sector by the municipality
o
Definition of responsibility for final disposal of the waste
•
LGU Selection for Technical Assistance
Direct assistance related to the preparation of 10-year solid waste management (SWM) plans was
provided to eight LGUs Makati, Malabon, Manila, Muntinlupa, Navotas, Pasig, Quezon City, and
Valenzuela, selected through a competitive tendering process
•
Technical Working Group
Technical Working Groups were formed to assist the LGUs in the various aspects of the project.
8.2.2 Resource Documents
Two resource documents were prepared:
•
Guidance on SWM Technologies – The guidance document was prepared to assist LGUs in making
suitable choices for future facilities and practices needed as part of their SWM plans. The document
presents experiences in many countries around the world, covering key aspects of solid waste
management from waste generation and characterization, to collection, treatment and disposal
systems. Available on the web site www.nswmc.ph.org
•
Metro Manila SWM Planning Tool – A computer-based model was developed to assist LGUs in the
development of SWM plans, and especially to determine the types, number and associated costs for
new facilities needed in meeting required RA 9003 targets. Provided with training directly to the LGUs.
8.3 Ten-Year Solid Waste Management Plans
The Consultants have assisted the LGUs in the preparation of their solid waste management plans. An
example of a Ten Year Plan is given in Report No. 8,Capacity Building for Local Government Units, and Annex
3.
•
•
Annotated Outline – In cooperation with the NSWMC, a comprehensive annotated outline was prepared
for the preparation of the SWM plans. See Annex 1 Capacity Building for Local Government Units.
Report No. 8
Seminar/Workshop for Preparation of SWM Plans -- A comprehensive seminar/workshop was
organized and conducted by the Consultants, in March 2003 in Antipolo. . See Annex 2 Capacity
Building for Local Government Units. Report No. 8
• Seminar – to provide an overview on the components of the SWM plans and on solid waste
management practices to all of the LGUs in Metro Manila, selected LGUs from regions outside of
Metro Manila, and representatives from regional and national agencies.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
•
•
•
Workshops -- conducted over three days covered a wide range of waste management topics: with
Write-shops to provide assistance to the LGUs in preparing elements of their plans, and for the
LGUs to present conceptual plans that they had prepared on the final day.
Preparation of SWM Plans – assistance provided to the LGUs in the preparation of their solid waste
management plans.
Waste Analysis and Characterization Studies (WACS) – Technical assistance provided in the planning
and conduct of WACS. Detailed information about the entire waste characterization program is
provided in the Waste Analysis and Characterization Study Report No: 3.
8.4 Community-Based Solid Waste Management Projects
Due to the importance of community-based recycling in enabling communities to meet the mandates of RA
9003, a significant part of the Project involved providing assistance to the LGUs in the implementation of
community-based recycling projects. The LGUs selected for assistance in the project received:
• technical assistance in terms of project formulation, design and implementation, and
• financial assistance through the issuance by ADB of funds set aside in the project for this purpose.
The processes are described in more detail in Section 5 of the Capacity Building for Local Government Units
Report No. 8.
Through this assistance, the LGUs are enabled to implement, expand, or enhance community-based recycling
activities, e.g., segregated collection, recycling, and composting. The project may include equipment, supplies,
personnel, operations and maintenance, IEC, etc., and may be allocated to one or more than one barangay.
As part of this TA, the ADB set aside a special fund, consisting of US$200,000, to be used by selected LGUs
for the design and implementation of community-based solid waste management projects.
Selection criteria included:
•
•
•
•
•
Technical and financial sustainability
Could serve as a model for other communities in Metro Manila
Low technology
Low cost
Supported by community and barangay leaders
Every effort was made to promote a variety of approaches to provide a broad base for evaluation. As of the
writing of the Final Report, the projects are in the process of being implemented.
The following process steps were developed to expedite the identification of projects for implementation, the
preparation of proposals, and the approval of the projects.
•
•
•
•
•
•
•
•
Identification of potential projects
Site visits to potential project sites
Presentation of guidelines to LGUs at the Workshop on the Preparation of 10-year Solid Waste
Management Plans held in Antipolo (see Table L-1)
Discussions with each of the LGUs at the Workshop to identify potential projects
Submittal by LGUs of concept documents
Review of concept documents
Submittal by LGUs of proposals
Review of proposals and submittal to ADB for approval
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
Table L-1 CBSWM Project Funding Guidelines Provided to LGUs
Source of fund:
Asian Development Bank
Amount available:
Maximum of US$25,000 available to each of the 8 LGUs participating in the Project
Use of funds:
To implement, expand, enhance community-based recycling activities, e.g., segregated
collection, recycling, and composting. Funds may be used for equipment, supplies,
personnel, operations & maintenance, IEC, etc and may be allocated to more than one
community/barangay.
• Can be implemented in short term (2-3 months)
• Community support
• Barangay captain/council support
• Available site
• Segregated collection (if project is for a MRF or composting facility)
Discussion between LGU representatives and ADB project team to identify
community-based projects
Preparation of concept document -- brief description and cost estimate (1 to 2 pages)
Submittal of proposed project concept to DENR for approval
Preparation of proposal (3 to 5 pages) – description, cost estimate, implementation
schedule. Supported by documentation of barangay council support and availability
of site, and submittal of supporting financial information.
Submittal of proposed project to ADB for approval
Preparation of disbursement plan
Implementation
Important
considerations:
Procedure:
The LGUs were requested to submit a concise concept paper that would explain the general idea of the project.
In addition, the LGUs were given guidelines in terms of amounts of funds available to them. In order to treat
every LGU in the same manner, the available funds were divided into eight parts such that each LGU would be
eligible to receive approximately US$25,000. Once the concept paper was submitted and approved or revised
by the project team, the LGUs were requested to submit a formal proposal. In general, the formal proposal
consisted of a technical description and a cost estimate. Upon receipt of the formal proposals, the project team
reviewed the proposals and either requested clarification from the proponents or made a recommendation to
the ADB. Five projects were approved by the ADB for funding with a summary of them presented in Table L-2
with the approved budgets for the projects in Annex 4 Capacity Building for Local Government Units. Report
No. 8.
Table L-2. Status and Description of CBSWM Projects
LGU
Makati
Status
Project approved
Muntinlupa
Pasig
Project approved
Project approved
Quezon City
Project approved
Valenzuela
Project approved
Description of Project
Design and implementation of two types of mobile material recovery
facilities
Improvements to the existing materials recovery facility
Improvements to the composting, recycling, and livelihood operations in
Brgy. Ugong
Improvements to the recycling and composting operations in Brgy. Holy
Spirit
Implementation of segregated collection system, and recycling and
composting operations in Brgy. Mapulang Lupa
The consultants continued to provide technical assistance to the LGUs during the implementation of their
projects. This work included site visits to the projects to examine progress and suggest improvements; advice
to the LGUs via telephone, e-mail, and during meetings; and other assistance as needed. In addition, the
consultants assisted the ADB in administering the projects through the review of invoices and monitoring of
progress.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
The projects, described more fully in Section 5.2 of Capacity Building for Local Government Units. Report No.
8, were:
Makati
The City of Makati faces one major problem in the implementation of its resource recovery and reduction
program for solid waste management. It has limited available land. Facing this constraint or challenge, Makati
is developing mobile materials recovery facilities for the City'
s Resource Recovery and Reduction Program.
The project involves the development of two types of "mobile MRF’s" to be used in the two districts in Makati: 1
van and 10 pushcarts, these are designed to collect paper, plastic, metal and glass.
The objectives of the project:
• provide a tool that will be used for the recovery of recyclable wastes by a minimum of 5% yearly;
• provide a prototype mobile MRF that can be adopted for solid waste resource recovery program; and
• push the barangay through the provision of infrastructure support, to implement, enforce and sustain
their solid waste resource recovery and reduction program, most specially segregation at source.
Muntinlupa
The project being implemented by Muntinlupa includes: (i) expansion of the present MRF, (ii) shredding of buko
(coconut) shells, where the by-products will be used by the City Plan Nursery and the local DA office for urban
farming, and (iii) information, education and communications (IEC) support.
The objectives of the project are:
• To broaden the recycling program for the present nine areas/communities in two barangays
• To increase waste diversion through composting
The expected benefits of the project include: reduction of waste for final disposal, reduction of truck/trip for
garbage collection, and landfill savings.
Pasig
Pasig is implementing a project to improve its community-based solid waste management system in Brgy.
Ugong. The project includes: (i) improvement of the composting operation; (ii) implementation of a livelihood
project using the compost produced for gardening; (iii) improvements to the recycling operation to increase
efficiency in packing and storing recyclable materials; (iv) enhancements to the Doy Pack livelihood project;
and (v) public awareness activities.
The objectives of the project are:
• At the composting facility; reduce moisture content; improve compost quality, and expand operations
• Implement a livelihood project with the produced compost used to grow vegetables for the community.
• Increase efficiency at the recycling center and expand operations
• Enhance the existing livelihood project using Doy Packs to produce bags, folders, and other items for sale
• Increase recycling through public education
Quezon City
The project being implemented by Quezon City is to improve and expand the existing materials recovery and
composting facility in Brgy. Holy Spirit.
The objectives of the project are:
• To provide and implement a waste management system in accordance with the provision of RA 9003.
• To implement waste segregation in every source of waste within the barangay.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
•
Final Report
Improve the efficiency of waste processing in the facility for composting, recycling and urban farming.
The improvements to the system will include:
• Procurement of materials and equipment: shredder, rotary compostors, rotary screen, composter bin
• Increase in the area of composting
• Addition of a greenhouse eco-center structure
• Conduct of an IEC campaign
Valenzuela
Valenzuela is implementing a community-based ecological solid waste management project in Brgy. Mapulang
Lupa. The project involves social mobilization, training of personnel, implementation of segregated collection,
and establishment of a materials recovery facility and windrow composting operation.
The objectives of the project are:
•
•
•
•
•
•
For the community to adopt segregation of waste at source, recycling, reuse and backyard composting.
To establish a materials recovery facility and windrow composing operation.
To form a Technical Working Group with representatives from each purok, and to train them on
implementation and monitoring of the project.
To train Eco-aides in the proper handling of waste.
To establish linkage with junk shops and industries for the marketing of the recyclables.
To establish a monitoring scheme on project implementation.
9. Financial
9.1 Introduction
The financing of government activities and functions has become a key policy issue especially in a developing
country like the Philippines. In general, the issue is the ever-rising local expenditures creating intolerable fiscal
pressures. The current scenario demands that the LGUs must find innovative approaches and they must have
access to financial resources if they are to meet the ever-increasing demand for services especially with regard
to solid waste management.
9.2 Local Government Units
Sources of funds for SWM include the following:
•
•
•
•
General budgetary appropriations which include locally-generated taxes, fees and charges;
Internal Revenue Allotment; and other income to which the LGUs are entitled;
External sources which include Countryside Development Fund (CDF); credit finance
instruments; local and foreign-funded loans and grants, and private sector participation;
Cost recovery of SWM related activities such as collection of garbage fees and imposition of
fines for violations; and
National Solid Waste Management Fund (NSWMF).
The LGUs are mandated by the Local Government Code (LGC) to collect fees for services rendered to its
constituents. One of these is the collection of waste management fees from business establishments, where
the charges are incorporated in the annual application for business permit. While LGUs are allowed by the LGC
to adjust its fees every five years, it is noted that most of these LGUs have not updated their garbage fees as
allowed by law. From available information on the eight pilot study areas of this TA, at least four LGUs have
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
Tax Ordinances that were passed at least ten years ago. The rates are already outdated and are unrealistically
very low. Collection of waste management fees from the residential sector appears to be situational. While it is
being done in some isolated barangays, the LGU survey reveals that the willingness of households to pay for
SWM is quite low. See Report No: 2 Public Awareness. The problems in these areas are political, behavioral
and structural in nature.
For 2001, Metro Manila LGU expenditures for SWM varied from about 5% to 24% or an average of 13% of their
total expenditures. A bigger percentage of the SWM expense is spent for payments to private hauling
contractors. Obviously, LGUs in Metro Manila are not recovering the full cost of garbage collection service
since it is only the business sector that is paying garbage fees. For 2001, the rate of recovery of SWM
expenses from garbage fees was from only 2% to 24%. The bigger part of the expenses is thus subsidized by
the LGUs and included in the General Appropriation for the year.
There is a big disparity in the per capita cost for SWM among the LGUs, ranging from Php 64 per person in
Pateros to Php 1,164 per person in Makati. The same disparity exists in the cost per ton of solid waste
collected and disposed. However, it is important to note that the presentation of this data is mainly focused on
the level of expenditure of each LGU on SWM. It is not passing judgment on the efficiency and cost
effectiveness of SWM operations. There are several factors that affect the level of expense of an individual
LGU.
9.3 National/Metro Manila Agencies
9.3.1 Department of Environment and Natural Resources
A National Solid Waste Management Fund (SWMF) was established under RA 9003 as a special account in
the National Treasury and to be administered by the Commission. Sources include: donations, endowments,
grants and contributions from domestic and foreign sources; amounts specifically appropriated for the Fund
under the annual General Appropriations Act; fines collected under Sec. 49 of the Act based on a sharing
scheme between the Fund and the concerned LGU.
The Fund is to support the following activities: products, facilities, technologies and processes to enhance
proper SWM; awards and incentives; research programs, information, education, communication and
monitoring activities; and technical assistance and capability building activities.
However, the Fund still has to be established and a start-up fund needs to be sourced. Even the budgetary
appropriation for the operation of the Commission has still to be provided by the National Government. For
2002, the Commission is reportedly utilizing the budget of the Environmental Management Bureau (EMB) for its
operation.
9.3.2 Metro Manila Development Authority
Republic Act No. 7924 stipulates the functions of MMDA that includes the operation and development of
sanitary landfills. The fund sources for MMDA SWM operation are: General Appropriation; mandatory
remittances of its component LGUs; Internal Revenue Allotment; and operating revenues which include
collection from traffic fines, permits, and clearances.
The annual budgetary appropriation to MMDA is used for solid waste operation, leachate treatment and repair
of disposal site drainage system. The current budget includes expenditures for about 1,800 tonnes/day of
tipping fees.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
9.4 Health Care Waste
Regular fund sources of Metro Manila hospitals come from the following:
•
•
•
National Government Appropriations for general administration, support and operations, and subsidy
requirements
Local government units’ annual budget
Operating revenues (hospital fees and charges).
Aside from hospitals, at least two private companies are involved in the treatment and disposal of health care
waste. Most of the private hospitals have contracts with either Chevalier Environ System, Inc. (CESI) or
Integrated Waste Management, Inc. (IWMI) for the disposal of health care waste.
Most hospitals do not keep a separate record of expenditures for health care waste management. This
function is usually incorporated within expenses for housekeeping, grounds management or general
administration and support services. However, estimates are placed at about 1% of total operating cost, based
on interviews with private hospital staff. However, for government hospitals, the situation is worse since in
some cases, the health care waste is disposed of together with general waste and the hospital administration
has no medical waste management plan since there is reportedly no budget. Funds are given to other priorities
such as personnel services, equipment and procurement of medicine and medical supplies.
Health care wastes of hospitals with contracts with either CESI or IWMI are collected on a daily or weekly basis
and costs are about Php 35 to Php 40 per kg. See Section 4 Financial Management Report No: 9 for more
details.
9.5 Cost Recovery
Waste management is a key area for the ‘polluter pays’ principle, through the introduction of service charges
(for collection, transportation, treatment and disposal of waste). The Government requires all waste generators
to pay for the full costs of waste management services. This ‘polluter pays’ principle must be progressively
imposed on all waste generators, at a pace dictated by local conditions and levels of affordability. All sectors of
society are required to exercise environmental duty of care over the wastes they generate. All generators of
waste must ensure that the waste they generate is properly collected, treated and disposed in accordance with
national and local regulations. Penalties will be imposed on those who fail to exercise their responsibility to
protect the environment from pollution arising from improperly disposed wastes. Currently, only commercial
and industrial organizations are required to pay a garbage charge. Very few domestic customers pay any
charge. Obviously, LGUs in Metro Manila are not recovering the full cost of garbage collection service. Since it
is only the business sector that is paying garbage fees, the rate of recovery of SWM expenses is very low. For
2001, the rate of recovery of SWM expenses from garbage fees was from only 2% to 24%. The bigger part of
the expenses is thus subsidized by the LGUs and included in the General Appropriation for the year.
Comparative data is plotted in Figure F-1.
The introduction of service charges and the eventual achievement of full cost recovery are essential for
securing the long-term sustainability of waste management services. Municipalities should ensure that
revenues from charges, recommended to be collected by either water or electricity utilities (a preferred shortterm agency for tariff collections), are directed entirely to the SWM Department and used solely towards
improving and sustaining services, through full and transparent accounting procedures. For administrative
simplicity, charges on householders should be uniform, with exemptions given to only those groups receiving
socio-economic support. Charges on other waste generators should be established through a contractual
relationship directly with the service provider, based on quantities and types of waste generated.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
Figure F-1 SWM Cost Recovery Rate, 2001
30%
25%
20%
15%
10%
5%
on
Pi
na
s
Pa
te
ro
s
M
ar
ik
in
a
M
an
ila
Ta
M
gu
an
ig
da
lu
yo
M
ng
un
tin
lu
pa
Pa
si
g
Sa
n
J
Q
ua
ue
n
zo
n
C
i
ty
C
al
oo
ca
n
N
av
ot
as
M
ak
at
i
Pa
s
Pa
ay
A
ra
ve
na
ra
qu
ge
e
Al
lL
G
U
s
La
s
ab
M
al
Va
le
n
zu
e
la
0%
The initial priority should be to set charges at a level that will enable as high a proportion of the operational cost
to be covered as possible. For SWM, this will involve implementing full cost recovery through service charges
on households, and other enterprises or waste generators for operational activities associated with waste
collection, treatment and disposal. The need for targeted cross subsidy of waste services for low-income
groups and enterprises in transition should be identified.
Once operational service charges have become widely accepted, the long-term aim should be to increase the
rate of cost recovery (through service charges) to cover all capital investment and the recurrent costs. The rate
of increase will generally depend on the rate of socio-economic development. As a result, all viable alternative
cost recovery mechanisms should also be explored. Other non-household generators of municipal waste (such
as shops, hotels, companies and enterprises) should be charged for the full cost of services.
A cost recovery policy can be used to provide direct influences both on waste generation and the
implementation of a waste hierarchy. This is done by shifting emphasis from the true financial cost of SWM,
i.e., what it costs to operate the SWM system, to considering the social and economic cost of SWM to society.
In other words a cost recovery policy would calculate the real cost to society of a certain level of SWM service
provision by valuing a broader range of criteria, often termed positive and negative externalities, such as
human health or environmental impact. Given efficient market conditions, this would allow greater economic
efficiency by encouraging an optimal level of SWM services at least cost to society. Tariff and Financial
Management Reforms are fully described in Section 6 of the Financial Management Report No: 9
9.6 Future Cost Recovery Mechanisms
Full cost-recovery means inclusion of all capital and operational and closure costs for all aspects of services
provided, including an element that reflects the marginal external costs associated with ensuring that SWM
minimizes social and environmental impacts on the environment. The range of options to be evaluated include
grouping together charges for waste collection, treatment and disposal into a single municipal management
service charge, and/or and linking waste management charges to other services (such as wastewater
treatment, water, or electricity). Our recommendations of cost recovery through waste fees are described in
Section 9.1 of the Financial Management Report No: 9 .
9.7 Understanding Existing Costs, True Cost Accounting and Sustainable Financing
An essential step prior to the introduction of market mechanisms is that the municipal authorities should fully
understand the costs of existing services by undertaking independent audits of the costs of all parts of the
waste management service. At a minimum these should identify all components forming management and
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
operation costs of the primary waste collection, the transfer stations/local collection points, secondary
collection/haulage, treatment and disposal. Current costs will form an essential basis for later agreements on
the level of government funds and/or service charges to be provided for by these market services. All existing
municipal and district authorities should introduce true cost accounting systems for waste management
services (identifying all social, hidden and transferred costs). Itemized accounts should identify annual capital
and operational costs, creating separate cost centers for each part of the waste management service.
Municipal authorities should introduce the concept of sustainability into their financial management procedures,
and continue to search for innovative methods of financing further illustrated in section 9.2Financial
Management Report No: 9 .
9.8 Long-Term Financial Planning
The SWM Departments should prepare long-term Financial Plans setting out all areas of required capital and
recurrent expenditure, covering the same time period as Waste Management Plans. These Financial Plans
should include projected annual costs of investment capital (including repayment rates) and operation and
maintenance costs covering staffing, equipment, monitoring, vehicles and infrastructure. Sources and amount
of revenue should be identified including the level of required government subsidy and fees from waste
generators. Financial Plans should integrate and identify the affordability of proposed future developments for
waste management services. Following the establishment of contracted services, potential contractors should
provide similar detailed financial assessments as part of their tender submissions for proposed services.
Cash flow projections for LGUs over a ten-year period have been evaluated under a series of different
scenarios to assist the development of long term integrated waste management plans:• status quo
• status quo together with some improved recycling element
• status quo with improved recycling , but because of dumpsite closure, it includes the cost of
haulage to and the gate costs of a new sanitary landfill from 2006.
• as above, but to commence in 2008.
• as above, but with a much improved recycling operation
Fig F-2 SWM Projected Annual Cost
7,000
Existing
Php million
6,000
Existing plus reduction
5,000
4,000
Landfill Closure Case 1
3,000
Landfill Closure Case 2
2,000
1,000
Case 1 with more
recycling
Year
Summary Report No: 1
AEA Technology
20
13
20
12
20
11
20
10
20
09
20
08
20
07
20
06
20
05
20
04
20
03
0
Metro Manila Solid Waste Management Project
Final Report
Figure F-2 dramatically shows the rapidly escalating cost of SWM if it continues in its present manner and no
mitigating action is taken. By assuming a reduction in deposited waste due to an increase in recycling, the
existing scenario is changed and becomes an almost constant figure. A reduction in deposited waste is
fundamental to the future budgets for LGU SWM operations and therefore an essential element of any 10-year
waste management plan will require focus on removing waste from the final disposal stream.
9.9 Corporatization
Government wishes to introduce the principles of the market into its urban services. Services that have
historically been managed and operated by government often resulted in low performance and high
management levels. Market mechanisms will be progressively introduced in order to deliver the social and
economic benefits derived from improved efficiency and innovation. During the transition process the role of
government will change: it will remain responsible for implementing and regulating these services, which are
subject to market mechanisms, and will provide essential monitoring and enforcement of required standards as
carried out through an independent environmental protection agency. This will ensure that an equally high
standard of environmental protection is applied to all. Corporatization and Private sector involvement are
discussed further in Section6.3 Financial Management Report No: 9.r
9.10 Economic Analysis and Economic Efficiency
An economic analysis of alternative collection, treatment and disposal options should be presented within
waste management plans. Analysis should include a balanced assessment of capital, operation and
maintenance costs of alternative scenarios, including costs of transportation/haulage and different
treatment/disposal options. Analysis should also include analysis of risks, social costs and sensitivities. This
analysis will ensure that the chosen mix of options represents the best value-for-money for services that
provide acceptable levels of environmental protection. All development plans for improved services, should not
only address the full direct costs of the service provision, but also additional marginal costs and/or benefits
derived from measures that are designed to manage wastes in the most optimal way. This includes measures
designed to minimize waste generation.
9.11 Waste Recycling
The initial ‘funding’ for the future SWM function should be focused at mechanisms and facilities to reduce the
waste taken to dumpsites by increased recycling, and should be undertaken at the same time as any tariff
impositions are introduced. There is an awareness of the recycling function already, and so it would be easier
politically to press for increased recycling than it would be for the introduction of garbage fees, though the latter
is an important element of the future funding strategy.
10. IEC, Community Awareness & Media
10.1 Community Awareness Strategy
The proper management of solid wastes is essential to the protection of public health and the preservation of
the environment. Nevertheless, it is a topic that is rarely at the forefront of discussion, by the media or by the
general public. It is usually only during a crisis situation that much attention is given to waste management,
and then generally in a negative context. In the absence of a crisis or other significant event, people prefer not
to think about garbage, about who collects it, where the waste is taken, or how it is handled at the disposal site.
Public education is an essential part of an integrated solid waste management program. In order for an
outreach program to be effective, it must promote actions on the part of the audience that are available to him
or her and that are feasible.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
This was substantiated by the survey that was conducted which provided a baseline assessment of current
public attitudes and barriers to paying for waste collection and to suggested areas for improvement, i.e., a “form
of needs” analysis for subsequent education and awareness initiatives. The survey also provided an indicative
snapshot of trends in public awareness across a range of socio and geo-demographic regions of Metro Manila.
The work comprised the completion of 2000 survey forms between March and April 2003 within five selected
LGUs: Makati, Malabon, Muntinlupa, Pasig and Valenzuela.
The survey, details of which are contained within Annex 2 Report No 2, Public Awareness, covered the
following aspects:
• Identification and knowledge about garbage collection and disposal
• Existing situation regarding garbage collection and disposal
• Waste segregation and recycling
• Willingness to pay for garbage collection and disposal
Key findings included:
• Nearly 70% felt that there was a garbage problem in Metro Manila
• There appears to be a correlation between waste problems and lower income households
• Problems identified with garbage are noted ‘every day’ by half of those registering occurrences
• In general people believed that financial resources allocated for garbage collection and disposal
were adequate, whether or not these were properly utilized.
• There was a strong ownership perception with the barangays to be held responsible for keeping
the community clean of garbage
• Nearly 70% were not very satisfied with the collection services provided
• There was a surprisingly high appreciation of the need to site sanitary landfill in their own areas
(more than 1 in 4).
• About 50% of the community were unwilling to pay for garbage collection and disposal.
Information, education and communication (IEC) activities are therefore needed to address this situation, to
present a clear message in a way that encourages action by the recipient. They need to be designed with a
goal and an audience in mind. Depending on the purpose and the audience, the IEC activities may need to be
informative/educational, inspiring/persuasive, and/or entertaining. Furthermore, outreach activities should be
conducted according to a well-conceived plan, and their effectiveness must be monitored.
A comprehensive, integrated information, education, and communication (IEC) plan is critical to the successful
implementation of the Ecological Solid Waste Management Act (RA 9003) in the Philippines. The ADB project
team worked closely with representatives from the various entities involved in solid waste management in
Metro Manila to develop a communications strategy that addresses the needs of the communities and the
resources of the NSWMC.
10.2 IEC Working Group
This consisted of representatives from national, regional, and local agencies and from the NGO sector:
National Solid Waste Management Commission (NSWMC), DENR-Public Affairs Office (PAO), DENR-EMBEnvironmental Education & Information Office (EEIO), Philippine Information Agency (PIA), Department of
Interior and Local Government (DILG), Metro Manila Development Authority (MMDA), Metro Manila Local
Governments, Non-government organizations, and the ADB-TA3848 team.
The working group met regularly throughout the project and participated in the development of the IEC
strategies. The working group provided input on the framework for a 3-year communications plan: core
messages, target groups, and strategies. In addition, plans for specific IEC activities were made and
discussions were held about the needed IEC strategies related to disposal and to medical waste.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
10.3 Strategy for NSWMC
The NSWMC, under RA9003, is responsible for the formulation of policies and the development of a national
program that will manage the control, transfer, transport, processing, and disposal of solid waste in the
Philippines. In addition, the Commission is mandated to provide technical assistance aimed at enhancing the
administrative and project management capabilities of national and local governments.
A primary emphasis of the project was to provide technical assistance to the NSWMC in the development of an
IEC strategy and in the implementation of activities. Various activities were undertaken including:
Assessment of Existing Activities – Meetings were held with the eight selected LGUs, DENR, and
MMDA to discuss what IEC activities/materials they have used in the past to promote solid waste
management, what the messages and the target audiences were, their assessment of the materials’
effectivity, the financing of the materials’ production, and any constraints or concerns they may have
regarding IEC. An inventory of IEC activities was prepared. See Section 3.1 Community Awareness
Strategy Report No: 10
Issues and Needs – to be taken into consideration in the preparation of the communications plan.
o
o
o
o
o
o
o
Lack of understanding of RA9003 at the barangay level
Need for ongoing activity to sustain interest and motivation
Need for support of LGU officials
Lack of resources to produce and disseminate IEC materials
Lack of strategic plan for coordination of IEC initiatives
Need to assess effectivity of IEC materials
Need for useful information that barangay officials can access at the City’s Ecology center
Development of Elements of IEC Strategy and Short-term Plan
o
Message Concepts -- Two concepts for messages were developed, utilizing a combined approach
of education and motivation.
Waste Costs -- the cost associated with improper management of waste
Lives
Health
Resources (importance of source reduction, segregation, recycling, composting)
Money
Quality of life
RA 9003 – the need to work together to solve the problem of waste management
Avoid creating waste (source reduction)
Paper, glass, plastic bottles – should be recycled
Food waste should be composted (or used as animal feed in some cases)
Residual waste should be disposed in a proper disposal site
o
Target Audiences -- The initial focus of the IEC activities are on: influential groups (government
officials, civic organization, business leaders, and media); young school children, and the general
public. The focus will be expanded as the communications plan is implemented to include religious
groups and teachers.
Short-term Plan – Using the concepts developed, a short-term communications plan was prepared.
The purpose of the short-term plan was to identify IEC activities that could be conducted during the
project, and to provide a basis for a longer-term communications plan.
Implementation of IEC Activities:
o
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
o
o
o
o
o
o
o
o
o
Final Report
Preparation of a simplified version of RA 9003 and IRR; distribution to participants at the National
Conference of Barangays, industry associations, and LGUs.
Preparation of fact sheets on four topics (waste characterization, recycling, composting, and
residual wastes); distribution to participants at the National Conference of Barangays, industry
associations, and LGUs.
Presentation at LGU seminar and workshop held March 10-13, 2003.
Conduct of a tour for children of a materials recovery facility on May 9, 2003, including a lunch
workshop and a poster-making contest. A press kit was prepared for media that attended.
Assistance in revisions to an existing TV plug on MRF’s; participation in the preparation of a new
TV/radio plug on the subject, SWM is my personal responsibility, featuring Sen. Jovito Salonga.
Development of text messages to be designed by Wireless Services Asia (WSA) and broadcast
through the Globe Telecom.
Sponsorship of refrigerator magnets promoting segregation.
Preparation of press releases about project activities including: waste characterization studies,
MOA signing with local LGUs, workshop/seminar on the LGUs10-year SWM Plan, MRF tour.
Contribution of an article on the role of business in solid waste management in the magazine
Business and Environment.
Preparation of Three-Year Communications Plan – A three-year IEC strategy was developed for the
NSWMC using the concepts developed under the project and building on the short-term IEC activities.
Recommendations for Continuation of IEC Working Group – The IEC Working Group should continue to
play an important role in solid waste management planning for Metro Manila. The ADB project team
recommends that the Working Group continue to meet on a regular basis. The primary objective of the
Group would be the continued development and implementation of an integrated IEC strategy in Metro
Manila.
10.4 Strategy Related to Disposal
An outreach strategy related to waste disposal was developed based on the evaluation conducted under
that component. The consultants’ proposed improvement measures described in Section 4 Community
Awareness Strategy Report No: 10 include:
Immediate, short term, and longer-term dumpsite improvements where the stability assessment and
mitigation of the Payatas and the Rodriguez sites are extremely urgent;
Future disposal initiatives which includes the continued pursuit of longer-term regulatory-compliant
sanitary landfills which take years of preparation before they become operational;
Strengthening of regulatory capacity which includes improved comprehensive technical documentation
and an enhanced monitoring program with measurable objectives and strategies; and
Institutional reform to enable cities and municipalities to improve their contracting and monitoring
capacities.
IEC activities are needed to help implement this disposal strategy. The consultants propose an IEC strategy in
which relevant government agencies are first convinced and moved to develop a disposal improvement plan,
after which the general public is addressed with the message from the government: “The current waste
disposal situation is unacceptable but we have a plan to reverse it. Please help us implement it.”
The consultants propose a three-phase IEC strategy, in which a target audience is addressed at each phase.
These audiences are:
• Phase 1- core national agencies mandated to regulate solid waste management
• Phase 2- LGUs which have the primary mandate to implement solid waste management and
• Phase 3 - the general public including non-government agencies and the business sector.
At each phase, the principal message consists of the key issues and proposed improvements identified
by the consultants, and are supplemented by core messages that address the specific concerns of the
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
target audience. For each phase, specific IEC activities for delivering the core message are also
identified. See Section 4.3 Community Awareness Strategy Report No: 10
10.5 Strategy Related to Medical Waste
An outreach strategy related to medical waste was developed based on the results of the various activities
conducted under that component including, workshops, survey of hospitals and other medical facilities, medical
waste characterization study, working group meetings, and meetings with representatives of the Department of
Health.
Issues and Needs – Two key issues were identified,
o Problems associated with improper segregation
o Dangers from disposal of untreated infectious wastes commingled with general waste;
o Additional cost from treatment of general waste commingled with infectious wastes by non-burn
technologies.
o Increasing public awareness and concern related to the collection, treatment and final disposition
of health care waste has increased considerably during the past few years.
Target Audiences – Based on the issues and needs identified by the project team, two target audiences
were identified:
o
o
Hospital personnel – doctors, nurses, laboratory technicians, aides, janitors, cafeteria personnel,
administrative staff, others
Non-hospital personnel – patients, visitors, watchers (attendants)
Development of Strategy – is fully discussed in Section 5 Community Awareness Strategy Report No: 10
with a listing of recommended activities presented in Table I-1.
Table I-1. Recommended IEC Strategies Related to Medical Waste
Target Audience
Hospital Personnel
Training
Purpose
Reminder
Non-hospital Personnel
Instruction, motivation
Strategy/Method
Guidance document
Trainer training
Personnel training
Interactive training guide
Posters
Fact sheets
Posters
Implementation of Activities – Training and outreach activities that were implemented:
o
o
o
o
Training Manual – The project team assisted in revising the Manual of Hospital Waste Management
for the DOH.
Posters – Layouts for four posters were developed, two targeted at hospital personnel and two at
non-hospital personnel.
Training – A workshop was held for health care personnel and for key members of the Department
of Health.
Fact sheets – Two fact sheets were prepared, one of the characteristics of health care waste, and
the other on alternative processing technologies
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
11. Medical Waste Management
11.1 Introduction
Worldwide, public concern related to the collection, treatment, and final disposition of health care waste has
increased considerably during the past few years. These concerns regarding medical waste are also evident in
the Philippines. In addition, there has been concern regarding incineration and a renewed interest in
segregation and recycling. As a result, two important pieces of legislation have been passed in the last few
years that pertain to solid waste management, including health care wastes:
•
•
the signing of Republic Act No. 8749, an act providing for a comprehensive air pollution control
policy and for other purposes (typically known as the Clean Air Act) – prohibits the burning of biomedical wastes and requires the phase out of existing incinerators by July 2003; and
the signing of Republic Act No. 9003, an act providing for an ecological solid waste management
program and for other purposes (generally known as the Ecological Solid Waste Management Act
of 2000 - ESWMA) – requires proper segregation, recycling, and composting of the non-infectious
fraction of the waste stream.
This report deals strictly with solid wastes generated in health care facilities. Every facility involved in the
provision of care for the maintenance or improvement of the health and well being of either humans or animals
produces some type of residue. The quantity, composition, and characteristics of the waste vary depending
upon the type of health care facility.
11.2 Laws Dealing with Medical Waste
Numerous laws and regulations have been identified as being pertinent to the management of health care
wastes in the Philippines. On a national level, 12 key laws and regulations were identified. The two most
pertinent ones are RA8749 and RA 9003, as described above.
At the Metro Manila level, the management of health care wastes has been regulated primarily by three
regulations:
•
•
•
Metro Manila Council MMDA Regulation No. 96-000 -- prohibits littering/throwing of any kind of waste in
open or public places, and requires all owners, lessees, occupants of residential, commercial
establishments to clean and maintain the cleanliness of their surroundings
Ordinance No. 16 Series of 1991 -- regulates the management, collection, and disposal of hospital
waste and similar institutions in Metro Manila
MMDA Regulation No. 98-008 -- requires that health care facilities provide four types of waste bags.
11.3 Types and Number of Health Care Facilities
Based on the Consultant’s evaluation, at the present time there are 3,670 health care facilities in Metro Manila.
A breakdown by type of facility is presented in Table M-1.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
Table M-1. Sources of Medical Waste in Metro Manila
Type of Facility
Accredited Hospitals
Health Centers
Medical Clinics
Dental Clinics
Veterinary Clinics
Pharmaceutical Labs
Blood Banks
Funeral Parlors
Medical Schools
Research Institutions
Totals
Government
46
393
2
30
4
97
3
0
3
4
582
Private
151
8
1288
950
89
384
14
196
8
0
3088
Totals
197
401
1290
980
93
481
17
196
11
4
3670
11.4 Quantity and Composition
The Consultants conducted a review of available data and compiled the limited reliable information that is
available. The Consultants subsequently conducted a one-week analysis of non-infectious and infectious
waste at the East Avenue Medical Center (EAMC) in Quezon City to obtain additional data. A comparison of
the results of the study at EAMC with previous studies is presented in Table M-2.
Table M-2. Comparison of Waste Generation by Various Studies
Study (date)
Infectious
Non-infectious
Waste
Waste
Hospitals (kg/bed-day)
JICA (1999)
0.31
N/A
San Lazaro (2002)
0.17
0.39
EAMC (2002)
0.34
0.19
All Health Care Facilities (tons/day)
JICA (1999)
17
N/A
MMDA (2000)
9
51
ADB TA (2003)
27
20
N/A: Not available
Total
N/A
0.56
0.53
N/A
60
47
Based on the results of the study, health care facilities in Metro Manila generate about 47 tons/day of waste.
The estimates are based on the highest unit rates from the studies conducted at San Lazaro and at EAMC.
Given the present level of segregation, approximately 27 tons/day of the health care waste (about 56% by
weight) is considered infectious and/or potentially infectious. The estimated amount of waste generation by
type of facility is given in Table M-3.
Based on the results of the waste characterization study and on an expected growth rate of the number of beds
of about 2% per year, an estimate has been made on the quantity of health care waste that will be generated in
Metro Manila over the next 8 years (see Figure M-1). The estimate shows that the total amount of health care
waste will increase to about 55 tons per day by the year 2010. On the other hand, the amount of infectious
waste is projected to decline until the year 2008 and after that it will stabilize at approximately 19 tons per day.
This decline will only be achieved if comprehensive and continuous training efforts are conducted at all the
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
health care facilities. Furthermore, IEC and other similar activities will also make positive contributions to the
reduction of the amount of infectious waste generation.
Table M-3. Estimated Quantities of Health Care Waste Generated in Metro Manila
Unit Generation
NonInfectious
No. of
No. of
Rate (kg/day)
Infectiou
Type of Facility
Waste
Facilities Beds
Infec.
Nons Waste
(kg/day)
infec.
(kg/day)
Accredited Hospitals
197
Government (no. of beds)
17,563
0.34
0.39
5,971
6,850
Private (no of beds)
11,753
0.34
0.39
3,996
4,584
Health Centers
401
2
3
802
1,203
Medical Clinics
1,290
2
3
2,580
3,870
Dental Clinics
980
6
2
5,880
1,960
Veterinary Clinics
93
4
1
372
93
Pharmaceutical Labs
481
12
3
5,772
1,443
Blood Banks
17
12
3
204
51
Funeral Parlors
196
6
1
1,176
196
Medical Schools
11
12
3
132
33
Research Institutions
4
12
3
48
12
Total
3670
26,933
20,294
Total
(kg/day)
12,821
8,580
2,005
6,450
7,840
465
7,215
255
1,372
165
60
47,228
60,000
Kilograms per day
50,000
40,000
30,000
20,000
10,000
0
2002
2004
2006
Non-infectious waste
Infectious waste
2008
2010
Figure M-1. Estimate of Current and Projected Quantities of HCW Generated in Metro Manila
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
11.5 Current Practices
A key component of the study incorporates an evaluation and suggestions for improvement for the
management of health care wastes for both infectious and non-infectious waste. Surveys were conducted of
selected health care facilities (hospitals and clinics as well as minor health care facilities) in Metro Manila to
determine the status of the waste management system in the sector.
Hospitals and Clinics
Eighteen hospitals and clinics were surveyed; ten owned and operated by the government, and the rest private
hospitals. Key results are as follows:
•
•
•
•
•
The majority of the hospitals (90%) indicated that they have established a committee that looks after
waste management.
All of the hospitals surveyed separate sharps such as syringes, scalpels and similar items, from the rest
of the wastes. The syringes usually are placed in plastic containers designed to hold sharps (safety
boxes) or in other containers such as hard plastic bottles, cans or plastic gallon containers lined with
plastic bags.
Most (65%) of the sharps are given to a private contractor for treatment and disposal. The rest are
buried at the site (10%), disposed (5%), incinerated (15%), or burned in improvised combustion units
(5%).
Disinfection of infectious waste is carried out in about 80% of the hospitals surveyed using either steam
sterilization or chemical methods.
All of the hospitals surveyed indicated that they separate medical wastes from general wastes. Ninety
percent of the hospitals practice color-coding in storing their wastes while 10% do not follow any type of
system.
Minor Health Care Facilities
An assessment was conducted of the following types of facilities: dental clinics, veterinary clinics, diagnostic
and laboratory clinics, and mortuaries/funeral parlors. Waste management practices were similar among the
facilities surveyed. The following sections of this report describe the results of the survey.
•
•
•
•
•
•
General wastes typically are stored in plastic bags, are disposed through open burning or are collected
by a municipal waste collector. In some cases, the wastes are burned.
Sharps are separated from other medical waste and are placed in plastic containers, and eventually are
taken to the municipality’s dumpsite.
Infectious or potentially infectious wastes generally are not disinfected prior to disposal.
Pharmaceutical wastes typically are flushed into the sewer or disposed at the disposal site.
Most medical wastes currently are separated from the general wastes, but often are mixed with other
wastes during disposal.
At mortuaries/funeral parlors, placenta and fetuses were collected by family members or buried in a
cemetery.
Waste Treatment Systems and Equipment
A separate survey was carried out to supplement the information related to the different practices associated
with the management of health care wastes. A total of 36 hospitals participated in the survey. According to the
respondents, the quantity of regulated waste (infectious, toxic and hazardous) generated each day by the
facilities ranges from 3 to 700 kg. At the time of the study (early 2003), most regulated wastes were treated by
incineration or through microwave.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
Treatment of Medical Wastes at DOH Hospitals
Approximately five years ago, the DOH completed the acquisition of various types of equipment (including 25
incinerators and 36 small microwave units) for DOH hospitals, financed through a Soft Loan by the Austrian
Government. The capacity of the incinerators varies from 300 to 500 kg/day and that for microwaves from 84
to 144 kg/shift. The DOH reported that 13 microwave units were installed in Metro Manila, only one of which is
operational.
Private Sector Participation
At the time of the study (early 2003), there are two privately owned facilities, the operating companies of which
provide collection, treatment, and disposal services to both private and public health care facilities in Metro
Manila (IWMI and CESI). IWMI uses incineration (2000 kg/day), and has reported that they have acquired a
new pyrolysis unit that will be capable of treating 10 tons per day. CESI uses a large-scale microwave (250-400
kg/hr). Collection schedules vary for each hospital from daily to once or thrice per week.
St. Luke’s Medical Center installed an autoclave for the treatment of its residues. The unit is capable of
processing about 330 kg/hr and it is for the exclusive use of the hospital.
Alternative (Non-burn) Technologies
The Consultants conducted an analysis of technologies that could treat infectious wastes and meet the
requirements of the Clean Air Act. The following technologies were evaluated: mechanical (size reduction and
compaction); thermal (autoclave, microwave, pyrolysis/gasification); chemical (chlorination, ozonation);
radiative (electron beam, Cobalt-60); and biological (enzymatic processes, composting).
The following criteria were used to evaluate the technologies:
• Prevailing regulations
• Available options in the region
• Quantities of generated waste categories
• Availability of qualified personnel
• Technologies available on the market
• Capital and operating and maintenance cost
Based on the results of the evaluation, the Consultants concluded that infectious and some hazardous wastes
generated in health care facilities in Metro Manila could be treated by a combination of physical and thermal
technologies. Given the degree of development of some of the technologies and the current conditions in the
country, the most appropriate technologies for the Philippines seems to be disinfection by means of autoclaves or
microwaves.
11.6 Capacity Building and Stakeholder Participation
Seminars, workshops, and meetings were organized throughout this TA. In addition, a technical working group
was established to discuss issues and obtain feedback on several initiatives. Additionally, the project team
supported the process to update the DOH’s Manual on Hospital Waste Management.
11.7 Strategy for the Treatment of Medical Wastes Generated in Metro Manila
The results of the surveys and evaluations were used by the project team to develop a strategy for collecting,
treating, and disposing of the wastes. The strategy utilizes a combination of microwave and autoclaves
providing service to either one or a combination of users. The system also relies on a waste collection system
provided by dedicated, specialized vehicles to transport the waste from the generators to the treatment facilities
using a reliable “chain of custody” system. The service providers can be a combination of public and private
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
sector (taking advantage of the two existing private sector contractors). Finally, the strategy relies on the use
of one or more sanitary landfills equipped with the appropriate features to accept the treated materials.
The strategy has been designed such that:
• currently estimated quantities of waste generated can be properly managed; and
• maximum use of existing appropriate facilities can be accomplished.
The strategy also relies on the development and implementation of an education and training program aimed at
all of the staff and patients of health care facilities. The education and training program should emphasize
waste minimization and proper and efficient segregation of the wastes.
The strategy consists of two options (Option 1 and Option 2) to treat the estimated 26,930 kg/day of infectious
wastes generated in Metro Manila. The alternatives are based on the viability of repairing and operating
existing microwaves that have been installed in several DOH facilities in Metro Manila. In both options it is
assumed that the private sector would play a critical role. Treatment facilities could be established through
strictly private sector initiatives or in partnership with the public sector. The strategy also provides the
opportunity for the establishment of special lending programs aimed at encouraging the development of
additional private sector participation in the management of health care wastes. A summary of the proposed
options is provided in Table M-4.
Table M-4. Proposed Options for Treatment of Infectious Medical Waste*
Option 1
Technology
kg/day, 2 shifts
Option 2
Technology
kg/day, 2 shifts
Quantity Generated
Department of Health
3,230
All other facilities
23,700
Total
26,930
Service Provider
DOH
Microwave
3,230
Autoclave
IWMI
Pyrolysis
10,000
Pyrolysis
Chevalier
Microwave
4,800
Microwave
St. Luke’s Medical Center
Autoclave
900
Autoclave
New individual units at facilities**
Autoclave/Other
1,600
Autoclave/Other
New cluster units at facilities**
Autoclave/Other
3,200
Autoclave/Other
New private sector operation**
Autoclave/Other
3,200
Autoclave/Other
Total
26,930
*Large body parts and cadavers would be cremated.
**Other – implies the use of any technology that would meet the requirements of the Clean Air Act.
3,230
23,700
26,930
3,230
10,000
4,800
900
400
1,600
6,000
26,930
Option 1
As shown in Table E-4, Option 1 is based on the use of microwave and autoclave units to sterilize infectious
waste, and assumes the repair and use of the 13 existing DOH microwave units that are installed in various
health care facilities in Metro Manila. The private facilities (IWMI, Chevalier, and St. Luke’s) would be utilized.
The rest of the waste would be treated in 6 autoclaves, each with a capacity of 150 kg/hr. To maximize the
investment, all units (microwaves and autoclaves) would be operated for two shifts per day (8 hr/shift). The
third shift would be used for maintenance.
The estimated capital costs and O&M costs are subdivided by public and private sectors. The total capital cost for
the public sector is US$885,000 and that for the private sector is US$2,065,000. Similarly, the O&M cost for the
public sector would be US$1,063,464 and that for the private sector US$1,179,320. These costs include
amortization.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
Option 2
This option essentially is the same as Option 1 with the major difference that we assume that the DOH decides
not to use the 13 microwave units in Metro Manila. In Option 2, the waste that would have been treated by the
microwave units would be treated by autoclaves. The waste would be treated in 9 autoclaves (3 pubic and 6
private). The capacity of 8 autoclaves would 150 kg/hr and one would be 80 kg/hr. St. Luke’s, CESI and IWMI
would process wastes as suggested in Option 1. All units would be operated for two 8-hr shifts per day. The
third shift would be used for maintenance.
The estimated capital costs and O&M costs are subdivided by public and private sectors. The total capital cost
for the public sector is US$1,235,000 and that for the private sector is US$4,829,000. Similarly, the O&M cost
for the public sector would be US$705,592 and that for the private sector US$2,327,672. These costs include
amortization.
11.8 Public Education and Outreach
An outreach strategy related to medical waste was developed based on the results of the evaluation of health
care facilities. The strategy is summarized below; further information is presented in the report on Community
Awareness Strategy. Two key issues related to medical waste management were identified, which
demonstrate the need for additional IEC activities: (1) problems associated with improper segregation; and (2)
an increase in public awareness and concern. Recommended activities are outlined in Table M-5. Posters and
fact sheets were prepared and will be made available to health care facilities.
Table M-5. Recommended IEC Strategies Related to Medical Waste Management
Target Audience
Hospital Personnel
Training
Purpose
Reminder
Non-hospital Personnel
Instruction, motivation
Strategy/Method
Guidance document
Trainer training
Personnel training
Interactive training guide
Posters
Fact sheets
Posters
11.9 Consultation with Key Entities
The Consultants conducted a series of meetings with key Government and Non-Government organizations
including the Secretary of the DENR (Secretary Gozun), Undersecretary of the DOH (U. Sec. Lopez), other
representatives from the DENR (Director of EMB), representatives from the DOH, the BOT Center, and the
Philippine Medical Association on May 28, 2003. In addition, the Consultants presented the proposed strategy
to representatives of the DENR, DOH, BOT Center, MMDA, Philippine Hospital Association, Philippine Medical
Association, the Heart Center, and others on June 9, 2003. The participants in these meetings reached
consensus and offered strong support for the strategies.
11.10 Conclusions
•
Two important pieces of legislation have been passed in the last few years (the Clean Air Act and the Ecological
Solid Waste Management Act) that impact the management of health care wastes. Nevertheless, few changes
have taken place in the actual management of health care wastes in Metro Manila during the last two years. Two
of the most notable changes include: an increased reliance on the private sector for the collection and treatment of
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
health care wastes and the decision by the MMDA to stop its participation in the management of health care
wastes.
•
Those responsible for the management of health care wastes have a number of concerns including: complying
with the requirements of recent legislation (the Clean Air Act and the Ecological Solid Waste Management Act),
and the reassignment of responsibilities that were once under the purview of MMDA.
•
Until recently, incineration has played a major role in the treatment of health care wastes. Technically viable and
affordable alternatives are needed to treat wastes that have in the past been treated by incineration. A secure and
reliable final disposal site is not available for accepting health care wastes treated by non-burn technologies.
•
The DOH acquired 25 incinerators and 36 disinfection units from the Austrian Government for
installation in some of its hospitals. Only four of the microwave units currently are in operation, the
others either are defective or not used.
•
Health care facilities in Metro Manila generate on the order of 47 tons of medical waste. Approximately
27 tons are considered infectious or potentially infectious. Based on the information collected during
this evaluation, it is estimated that about 5 tons per day of infectious waste (or about 18.5% by weight)
were disposed properly (i.e., through autoclave, microwave or incineration) and approximately 22 tons
per day (or about 81.5% by weight) were disposed on the land (either buried on-site or discarded along
with the rest of the waste collected by the municipal waste collection service).
•
According to the survey results, most health care facilities that generate cytotoxic wastes pay private
contractors to collect and dispose of the materials. Most of the other water-soluble pharmaceutical
wastes are discharged into the sewer system. Radioactive wastes are carefully collected from the point
of generation and appropriately stored until the radioactivity has decayed to safe levels and the
materials can be safely disposed along with the general waste.
•
Hospitals generate on the order of 0.73 kg/bed-day of solid wastes. Approximately 0.34 kg/bed-day are
considered infectious or potentially infectious. Most hospitals practice some segregation. Most (about
78%) of the accredited hospitals dispose of their infectious waste properly (either through incineration
or microwave), 66% of which is conducted off-site. The remaining hospitals (22%) relied on land
disposal or open burning.
•
Many of the other health care facilities (dental clinics, veterinary clinics, diagnostic and laboratory clinics, and
mortuaries/funeral parlors) practice some segregation; in particular sharps are placed in rigid containers. In
general, all wastes (including untreated infectious waste and sharps) are mixed and collected as municipal solid
waste.
•
The results of the waste characterization survey conducted in the course of this TA demonstrated that
improper segregation still takes place in some facilities. Little if any inspection of segregation of wastes
at health care facilities is conducted.
•
Estimates indicate that the total amount of health care waste will increase in Metro Manila to about 55
tons per day by 2010. At the same time, our estimates show that thorough training programs and other
activities will lead to proper segregation and therefore the amount of infectious waste will decrease to
18.5 tons by 2010.
•
Information obtained in course of this study shows that the health care sector is not prepared to comply
with the provisions set forth by the Clean Air Act. Recently, the DOH and the DENR have held a series
of meetings in an attempt to address the Clean Air Act. Based on the discussions held with
representatives from the public and private sectors, the majority of the entities seemed to be waiting for
the Government to provide solutions.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
•
Final Report
The Consultants have developed a strategy aimed at managing the infectious wastes generated in
Metro Manila. The strategy has been presented to key representatives of the public and private
sectors. The strategy has been widely accepted and supported.
11.11 Recommendations
•
The Government and the public sectors must comply with the provisions set forth by the Clean Air Act.
•
The infectious wastes generated in Metro Manila can be managed through a combination of public and
private sector initiatives using microwave and autoclaves.
•
The DOH in cooperation with other agencies should print and distribute the revised version of its Health
Care Waste Management Manual. The manual should be used to conduct training programs on the
proper management of health care wastes.
•
Infectious wastes should be collected by means of special vehicles relying on a thorough system of
chain of custody.
•
The regulatory system seems to be adequate for the management of medical wastes. Some
modifications may be required in the area of transportation of medical wastes to require the use of
“chain of custody” procedures.
•
The agencies currently involved in developing a memorandum of understanding (MOU) should make
every effort to finalize it as soon as possible so that the responsibilities for monitoring the proper
management of health care wastes are clearly delineated.
•
The interagency MOU should include aspects for the enforcement of existing laws and regulations
including strong penalties for the improper treatment and disposal of medical wastes.
•
The DOH should carry out a technical and financial evaluation of the potential to repair and operate its
existing microwaves. Based on the results of the evaluation, the DOH can decide whether to operate
the units in Metro Manila or to transfer the microwave units to other DOH institutions in other regions.
•
The DOH and the DENR should put into practice, as soon as practical, the strategy developed by
Consultants.
•
The proposed strategy should be implemented along with a comprehensive maintenance program.
•
The DENR and the DOH must work jointly to identify and define a suitable final disposal site for the
treated medical wastes.
12. Sector Coordination and Donor Agency
12.1 Introduction
The Sector Coordination and Donor Agency Report No: 12 summarizes coordination and advisory activities
completed to facilitate TA and sector progress. Reviews International donor agency interventions in the Metro
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
Manila solid waste management sector over the past decade and identifies opportunities for future donor
support.
12.2 Coordination and Advisory Support
Coordination activities have supported a range of solid waste management initiatives, primarily to facilitate
development of key TA activities. These are summarized as follows:
•
Barangays and Community-Based Entities: Coordination support has been provided to implement
CBSWM program assessments, and develop the CBSWM Pilot Project Advisory Facility (CBSWM
Facility)12. This has included; (i) field reviews of Metro Manila CBSWM schemes; (ii) facilitating
barangay and NGO discussions; (iii) an initial CBSWM workshop with civil society groups to discuss
CBSWM opportunities and constraints and establish a coordination network; (iv) meetings with donor
agencies involved in Metro Manila CBSWM initiatives to ensure program compatibility; (v) ensuring
CBSWM civil society TA involvement through meetings and working groups; (vi) implementing CBSWM
technical workshops; (vii) ensuring CBSWM is a focus of Technical Working Group (TWG) and TA
Steering Committee meetings; (viii) attending major events such as a barangay national conference in
support of Earth Day, and a CBSWM seminar hosted by the Rotary Club of Metro Manila; (ix) assisting
with CBSWM Facility development including LGU meetings; and (x) developing the NSWMC website as
an important CBSWM coordinative and technical resource;
•
Local Government Units: Promoting the involvement and coordination of the 17 Metro Manila local
government units (LGUs) through; (i) meeting senior officials of every Metro Manila LGU to encourage
TA involvement and support; (ii) conducting an LGU survey; (iii) promoting LGU involvement through
technical workshops, working group meetings13, field visits and meetings; (iv) conducting additional
meetings plus a three-day extensive workshop program14 for the eight LGUs selected for additional
assistance15; (v) providing additional technical support to LGUs when requested; and (vi) promoting
coordination of LGU operational personnel through the Waste Analysis and Characterization Studies
(WACS).
•
National Government Agencies: Augmenting coordination between national agencies including; (i)
working alongside the NSWMC and Secretariat, and providing wide ranging advice and specialist
support; (ii) coordinating activities with other DENR departments, such as the Foreign Assisted Special
Projects Office (FASPO), the Environmental Management Bureau (EMB), the Public Affairs Office
(PAO), and the Environmental Education and Information Division (EEID); (iii) assisting the Department
of Health (DOH) in medical waste management16; (iv) collaborating with the Metro Manila Development
Authority (MMDA) on waste disposal assessment and strategy development and involving them in
meetings, workshops and working groups17; (v) coordinating with and involving in workshops, working
groups and meetings as necessary the Department of the Interior and Local Government (DILG)18, the
12
ADB TA fund allocation to support pilot barangay CBSWM projects within Metro Manila.
13
TA Working Groups included; (i) Information, Education and Communication; (ii) Technical Solid Waste Management; (iii) Medical Waste Management; (iv)
14
TA workshops included; (i) solid waste management issues and problems; (ii) medical waste management issues and problems; (iii) issues in developing LGU 10-
Institutional and Regulatory; (v) CBSWM; and (vi) Financial Management.
Year Solid Waste Management Plans; (iv) preparation of a draft manual, medical waste management; (v) solid waste treatment and disposal; (vi) annotated outline
for LGU 10-Year Solid Waste Management Plans; (vii) waste characterization study procedures for Metro Manila; (viii) description of selected CBSWM facilities; (ix)
materials recovery and recycling; (x) composting; (xi) sanitary landfills; (xii) financial arrangements for solid waste management; and (xiii) medical waste strategy
development.
15
This initiative included; (i) guidance on solid waste management technologies; (ii) development of a solid waste management planning tool; (iii) preparation of an
annotated outline for LGU 10-Year Solid Waste Management Plans (LGU Plans); (iv) assistance in the preparation of LGU Plans; (v) conduct of waste
characterization surveys; and (vi) assistance with the development of community-based recycling projects.
16
DOH: member of the medical waste management and institutional and regulatory TA working groups.
17
MMDA: member of the institutional and regulatory, IEC, CBSWM and financial management TA working groups.
18
DILG: member of the IEC, institutional and regulatory, and CBSWM working groups
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
Department of Trade and Industry (DTI)19; the Laguna Lake Development Authority (LLDA), the
Philippine Information Agency (PIA)20, and the Department of Science and Technology (DOST)21; (vi)
attending NSWMC and Metro Manila Solid Waste Management Board meetings; (vii) holding
discussions with the League of Cities and League of Municipalities; and (viii) advising the Office of the
President22 on Metro Manila disposal issues.
•
Civil Society: Maintaining coordination with civil society groups through; (i) involvement in TA
meetings, workshops and presentations23; (ii) discussions with private-sector recycling, manufacturing
and packaging representatives; (iii) discussions with members of the Solid Waste Contractors
Association of the Philippines (SWACAP)24; and (iv) meeting private-sector dumpsite operators and
private sector groups currently proposing sanitary landfill solutions. The NSWMC website has also
been developed which will improve civil society coordination and information access.
•
International Donor Agencies: Coordinative activities have included; (i) researching donor agencies25;
(ii) coordination with sector-active international donor agencies throughout the TA; (iii) DENR-initiated
donor coordination meetings to review current programs and highlight areas where further donor
intervention could be beneficial; and (iv) maintaining close coordination with relevant ADB departments
in order to fully report and discuss TA and sector progress.
•
Medical Waste Management; Providing targeted coordinative support including; (i) assisting DOH and
the Inter-Agency Committee on Environmental Health (IACEH)26 through advisory meetings and
planning sessions; (ii) providing technical and financial support for DOH workshops; (iii) coordinating
TA activities with the BOT Center of the Department of Trade and Industry (DTI), the Philippine
Hospitals Association (PHA) and the Philippine Medical Association (PMA); (iv) actively involving DOH
in TA meetings, workshops and working groups; (v) collaborating technical assistance with the World
Health Organization (WHO)27; (vi) enhancing DOH operational personnel coordination through the
conduct of a medical waste characterization survey: (vii) liaising with Metro Manila medical institutions
during the performance of a medical waste generator survey; and (viii) meetings and discussions with
private sector medical waste treatment and disposal service providers.
Recommendations: The following coordination initiatives are recommended;
•
•
•
Continuation of RA 9003 mandated national (NSWMC), metro-wide (Metro Manila Solid Waste
Board) and local (LGU Solid Waste Board) meetings to maintain formalized sector coordination;
Continuation of the TA working groups28 by the NSWMC Secretariat;
Continuation by the NSWMC Secretariat to coordinate LGU Plan development for the eight TAassisted LGUs, followed by LGU Plan development for the other nine LGUs;
19
The BOT Center of DTI: member of CBSWM, medical waste and financial management TA working groups.
20
PIA: member of the IEC working group
21
DOST: member of the CBSWM TA working group.
22
Office of the Presidential Advisor for Strategic Projects (OPASP).
23
NGOs involved in CBSWM have provided valuable assistance in the conduct of community-based activities throughout the TA, including their assistance to develop the
IEC strategy of the TA
24
25
SWACAP, which represents many of the Metro Manila waste collection and disposal contractors, also attended the Solid Waste Treatment and Disposal workshop.
Including Asian Development Bank (ADB), World Bank (WB), United Nations Development Program (UNDP), World Health Organization (WHO), European Union (EU),
USAID, USAEP, United Kingdom Department for International Development (DFID), Japan International Cooperation Agency (JICA), Australian Agency for
International Development (AusAID), Canadian International Development Agency (CIDA), German Technical Cooperation (GTZ), Danish International Development
Agency (DANIDA), and the development agencies of France and Austria.
26
The IACEH is a highly specialized technical committee convened to assist in medical waste management strategy development and address key issues, including
medical waste disposal.
27
World Health Organization, Environmental Health and Urban Development Division.
28 Including; (i) Information, Education and Communication; (ii) Technical Solid Waste Management; (iii) Medical Waste Management; (iv) Institutions and
Regulatory; (v) Community Based Solid Waste Management; and (vi) Financial Management working groups.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
•
•
Final Report
Progressive improvement, expansion and integration of the NSWMC website and encouragement
to government stakeholders to immediately establish internet capability;
NSWMC consideration of additional meetings to enhance sector coordination including; (i) a
CBSWM quarterly workshop; (ii) a quarterly international donor meeting; (iii) a quarterly meeting
with waste collection and disposal stakeholders; and (iv) a medical waste management
coordination meeting in conjunction with DOH and IACEH.
12.3 International Donor Intervention
International donors have provided considerable financial investments and technical assistance initiatives to Metro
Manila solid waste management. These initiatives are reviewed, and conclusions are drawn regarding their success.
Ongoing initiatives are also summarized, and opportunities identified for further donor support.
12.3.1 Historical Perspective
Figure S-1 presents a chronology of donor activity over the past decade, and a summary of these interventions
is provided as follows;
•
Progress (1990-91): The early 1990s marked a breakthrough in Metro Manila solid waste
management, with the opening of the World Bank funded San Mateo and Carmona regional sanitary
landfill facilities for Metro Manila waste. This represented a major step forward in solid waste
management, and a major achievement for the Government and the World Bank. For most of the
remainder of the decade, both facilities continued to operate, but as described later they both
progressively degenerated to the point of forced closure.
•
Quiescence (1992-97): In the interim, Metro Manila enjoyed a relatively quiescent time in solid waste
management, and apart from two major donor initiatives there was little donor activity. These initiatives
included; (i) DOH procurement of 26 medical waste incinerators and 36 microwave-disinfection units
from the Austrian government; and (ii) solid waste management improvements to Pasig River
communities from DANIDA and ADB funded environmental rehabilitation projects.
•
Decline (1998-99): By this time, public opposition had mounted against the Carmona disposal facility,
and ultimately the Carmona facility was forced to close in early 1998. This put pressure on the San
Mateo facility and Metro Manila dumpsites to accommodate additional waste. Although Metro Manila
was heading for a crisis, positive donor-led developments did occur in this period including; (i)
completion of a toxic and hazardous waste project (European Union); (ii) commencement of two
provincial development programs, the PRMDP and LGSP29, which included solid waste management;
(iii) completion of the World Bank SWEEP project30; and (iv) completion of the JICA Master plan31
which developed a Metro Manila Master plan for residual waste collection, transfer and disposal. The
Clean Air Act was also enacted, severely restricting the thermal treatment of waste. This was a serious
development for DOH, who only two years previously had purchased 26 incinerators, which along with
other incinerators, are required to terminate operations in mid-2003.
As the millennium drew to a close, Metro Manila solid waste management was plunged into crisis. This
was caused by the forced closure of the San Mateo facility in late 1999 due to local public opposition,
resulting in an immediate deficiency in disposal capacity.
•
29
Crisis (2000-01): The disposal crisis hit suddenly, and rapidly reached serious and potentially
catastrophic proportions. It placed tremendous pressure on the existing dumpsites to accommodate the
The ADB and AusAID financed Philippine Regional Municipal Development Project (PRMDP) and Phase II of the CIDA- financed Local Government Support Program
(LGSP).
30
The World Bank Solid Waste Ecological Enhancement Project (SWEEP), a technical assistance project to formulate a US$ 55 million loan for solid waste management
improvements for seven LGUs in intermediate provincial cities.
31
The Study on Solid Waste Management For Metro Manila In The Republic of the Philippines, Japanese International Cooperation Agency, 1999 (JICA Masterplan).
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
additional waste. To add to the tragedy, a catastrophic slide occurred at the Payatas Dumpsite
(Quezon City) in July 2000 smothering an urban poor settlement area and killing over 200 people.
The crisis seriously affected donor initiatives. The forced closure of Carmona and San Mateo
represented a needless waste of municipal infrastructure. Many donor initiatives developed in the
1998-99 period were curtailed.
The World Bank SWEEP project was dropped, and the
recommendations of the JICA Master plan, and reportedly the European Union hazardous waste study
were not implemented. Waste was piling up in the streets, there was heightened public awareness and
concern, and the entire sector was in a state of crisis. In addition, USAID provided technical support to
assist with a major Government-led private sector procurement initiative to rapidly secure a regional
transfer and disposal system. Although this resulted in the successful selection of a preferred bidder,
the process was later curtailed due to legal impediment. This was certainly not the situation that the
international donor community had expected, and not one in which they were comfortable.
•
Aftermath (2001-03): Although Metro Manila still confronts serious residual waste disposal
deficiencies; the perceived level of overall concern has dropped considerably since 2000 due primarily
to the development of several hastily conceived dumpsites within the metropolis. The sector has also
gained considerably from the enactment of RA 9003 in 2001, which for the first time, provides an
integrated approach to solid waste management. Following the crisis, apart from the ongoing provincial
programs, there was a virtual suspension of donor activities in the sector. Since late 2001 however,
donor activity has again re-activated with several innovative projects currently being implemented32.
12.3.2 Conclusions
The following conclusions are drawn from the events of the past decade;
•
•
•
•
•
The crisis and subsequent ramifications could not have been reasonably foreseen by donor
agencies until the closure of Carmona in early 1998, by which time most of the projects of the 199899 era were being developed;
Conventional donor loan assistance focusing exclusively on solid waste management has not
worked;
Loans for multi-sectoral projects, which include solid waste management as part of an overall
package, appear to have been more successful. An example of this is PRMDP;
Donor technical assistance to Government to facilitate a private-sector procurement was not
ultimately successful;
Bi-lateral donor intervention where solid waste is part of a development package has been and
continues to be successful. Examples include LGSP and ECOGOV;
Although there is a trend to promote solid waste sector development through donor funded LGU loan facilities,
few if any Metro Manila LGUs have utilized these facilities.
32
These include; (i) the USAID Philippine Environmental Governance Project (ECOGOV) providing technical assistance in solid waste management to 43
LGUs throughout Mindanao, the Visayas and northern Luzon; (ii) the JBIC Ecological Solid Waste Management Plan Project (ESWMP) which is formulating
LGU Plans in three provincial cities; (iii) the UNDP and JICA Community Based Ecological Solid Waste Management Project (CBESWMP) which is
promoting CBSWM projects in at least 10 Metro Manila barangays; and (iv) this ADB TA. Recent donor initiatives also include provision of LGU-targeted
loan facilities, supported by technical assistance and capacity building initiatives.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
FIGURE S-1
CHRONOLOGY OF DONOR INTERVENTION
2003
ADB MMSWMP Scheduled Completion
Clark Sanitary Landfill (Capas) Opens
Government Declines Jancom and Pro-Environment Initiatives
Tanza Dumpsite (Navotas) Opens, Pier 18 Dumping Diminishes
2002
JBIC ESWMP Commences
ADB MMSWMP Commences
Clean Air Act: Termination of Medical Waste Incineration
UNDP-JICA MMESWMP Commences
Rodriguez Disposal Facility (Montalban) Opens
Effectivity of RA 9003 IRRs
2001
USAID ECOGOV Commences
Barging of Waste To Semirara (Subsequently Curtailed)
RA 9003 Enacted by Congress
2000
Payatas Dumpsite (Quezon City) Re-Opens
Bataan Landfill Disposal Initiative (Subsequently Curtailed)
USAID Technical Support for Waste
Management BOT Procurement Process
CIDA LGSP Commences
JICA Solid Waste Master plan Completed
San Mateo Facility Forced To Suspend Operations
1998
ADB - Australia PRMDP Commences
SWAPP Established
EU Toxic and Hazardous Waste
Project Completed
Pro-Environment Selected For Build-Own-Operate Regional Facility
DISPOSAL CRISIS HITS METRO MANILA
1999
World Bank SWEEP Completed
PAYATAS (QUEZON CITY) CATASTROPHIC SLIDE KILLS 200
Dumping At Pier 18 Commences
DAO 98-49 and DAO 98-50 Formulated
Enactment of Clean Air Act
Lingunan Dumpsite (Valenzuela) Opens
Carmona Facility Forced To Suspend Operations
1997
ADB - DANIDA Pasig River Environmental
Improvement Projects (1994-2003)
Include Solid Waste Improvements
1996
Austrian Government Loan to DOH For
Medical Waste Equipment
Jancom Initiative Considered By Government
Small C4 Dumpsite (Navotas) Opens
World Bank Finances San Mateo Landfill
Summary Report No: 1
1991
World Bank Finances Carmona Landfill
1992
Bagumbong Private Dumpsite (Caloocan) Opens
Carmona Landfill Opens. Smokey Mountain Closes
San Mateo Landfill Opens
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
12.3.3 Recent Initiatives
As shown on Figure S-2, the combined assistance being provided by current initiatives is considerable and
wide-ranging. Most projects are providing institutional strengthening, capacity building and training at the
national and local level, and several are assisting civil society groups. Many also have an RA 9003 focus,
providing planning support including LGU Board formulation and the preparation of LGU Plans, performing
waste characterization assessments, promoting CBSWM, and developing public awareness initiatives.
There is collective emphasis on barangay-level CBSWM, and also a focus on solid waste disposal. Medical
waste management is being assisted through this TA and through WHO. Small-scale funding is being
provided, particularly for CBSWM initiatives. Although not shown on the figure, additional projects are
providing loan facilities for LGUs in support of solid waste management. Guidelines, manuals and useful
documents are also being developed through the donor interventions, relating to medical waste, solid waste
management planning, RA 9003 implementation, LGU Plan development, waste characterization, public
awareness and IEC, and CBSWM, waste collection and waste disposal systems and facility development.
Additional donor initiatives are also being planned for the sector for later in 2003. These include another
integrated solid waste management program for LGUs in Regions VI, VII and VIII (GTZ), and the provision of a
technical advisor to the NSWMC Secretariat (JICA).
12.3.4 Recommendations
•
Existing donor outputs should be thoroughly collated, integrated and distributed nationwide to
national agencies, LGUs, barangays, civil society and other stakeholders. This entire information
collection should be collated with other donor-based information and uploaded directly onto the
NSWMC and other websites. It is suggested that this be a key function of the NSWMC Secretariat.
•
The NSWMC Secretariat and DENR should continue with donor coordination meetings as initiated
by DENR earlier this year, focusing on the development of integrated, targeted donor assistance
initiatives to ensure adequate coordination, prevent replication and optimize valuable donor
resources.
As shown on Figure S-2, donors can deliver further valuable support in many areas. This is particularly
relevant for Metro Manila, and this TA Final Report package contains specific recommendations for various
sub-sectors where future donor intervention can provide significant outputs and impacts.
Summary Report No: 1
AEA Technology
Metro Manila Solid Waste Management Project
Final Report
TECHNICAL ASSISTANCE ACTIVITIES
General
Provincial SWM Board Establishment
LGU SWM Board Establishment
Provincial SWM Plan Preparation
LGU SWM Plan Preparation
Waste Characterization
SWM Financing, Incentives, Cost Recovery
SWM Civil Society Involvement
Private Sector Involvement
Public Awareness Campaigns and IEC
Strategy Development / Other
Institutional Strengthening, Capacity Building, Training
National Agencies
LGUs
Barangays
SWM Civil Society
Regulatory Enforcement Agencies
Waste Recycling
Barangay and CBSWM Development
Waste Collection and Transfer
Waste Collection and Transfer Planning Assistance
Waste Disposal
Waste Disposal Planning Assistance
Dumpsite Improvements
Dumpsite Remediation and Closure
SLF Development Assistance
Medical Waste Management
Institutional Strengthening, Training
Technology Assistance
Private Sector Participation
Legislative and Regulatory Reform
Training
Public Awareness and IEC
Funding, Incentives and Cost Recovery
Strategy Development, Other
Preparation of Guidelines, Manuals, Useful Documents
SWM Strategic Planning
RA 9003 Implementation Guidelines
Waste Characterization
Provincial SWM Plans
LGU SWM Plans
CBSWM and Recycling Systems and Facilities
Waste Collection and Transfer Systems and Facilities
Waste Disposal Systems and Facilities
Medical Waste Management
Public Awareness and IEC
FINANCIAL INVESTMENTS
CBSWM and Recycling Systems and Facilities
Waste Collection and Transfer Systems and Facilities
Waste Disposal Systems and Facilities
Medical Waste Management Systems and Facilities
Other
Summary Report No: 1
AEA Technology
ESWMP
DENR JBIC
PRMDP
DILG-ADBAUS
MEDICAL
WASTE
DOH-WHO
ECOGOV
DENRUSAID
LGSP
DILGNEDACIDA
PRINCIPAL AREAS OF ASSISTANCE
CBESWMP
MMDAUNDPJICA-AUS
MMSWMP
DENRADB
FIGURE S-2
CURRENT DONOR INITIATIVES PRINCIPAL AREAS OF ASSISTANCE
Metro Manila Solid Waste Management Project
Final Report
13. Web Site Development
In order to maximize the effectiveness in accomplishing the provisions of RA 9003 and its IRR, the national
agencies and local governments need to learn from the experience of other environment and solid waste
agencies, local governments, NGOs, and the private sector and academia. In order to achieve this there is a
need to mobilize the resources and skills of all stakeholders and also to significantly strengthen the capacity of
these groups through information, education and training to allow these groups to become even more effective.
The existing NSWMC web site has been reviewed, redesigned and enhanced to allow the site to play an
important part in this process. The web site has been developed in coordination with the NSWMC and includes
hypertext links, searchable features, navigation tools and an integrated database for RA 9003 and it’s IRR,
other relevant, effective legislation and ordinances, etc.
The development work has significantly improved design, format and image of the site and allows improved
access and speed of delivery. The web site provides access to authoritative and extensive resources with ‘live’
links to the existing NS|WMC databases. The main topic areas covered by the web site have been prepared to
be concise, informative, educational, and technically appropriate. A familiarization and training plan has also
been implemented for selected NSWMC staff. This included the use of graphics software for the creating and
editing and selected information on animation to allow staff to maintain and further develop the site.
As the web site development continues numerous other sources of information will be added to the framework
that has been finalized to date. With the completion of the draft final report the additional information that will
be uploaded is being identified. This will be added to the web site upon completion of the final report. Approval
from NSWMC will be sought for all information to be placed on the web site prior to final uploading.
Summary Report No: 1
AEA Technology