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Abbreviations and AcronymsBln. BOD BTU CALABARZON CCBPI CDS DA DENR DILG DOH DOST DPWH DTI EMB ESWMA GHG GTZ HW IEC IRR ITDI IWEP JICA LLDA LGU LOGOFIND Mln. MEIP MGB MM MMDA MRF MSE MSW NCR NEDA NGO NIMBY NSWMC PCG PET PhP/P PIA PPCP SLF SWM TDF TESDA THW TIRE WHO Billion Bio-chemical Oxygen Demand British Thermal Unit Provinces of Cavite, Laguna, Batangas, Rizal, and Quez6n Coca-Cola Bottlers Philippines, Inc. City Development Strategies Department of Agriculture Department of Environment and Natural Resources Department of Interior and Local Government Department of Health Department of Science and Technology Department of Public Works and Highways Department of Trade and Industry Environmental Management Bureau Ecological Solid Waste Management Act of 2000 Green House Gases German Agency for Technical Cooperation Hazardous Wastes Information, Education, and Communication Implementing Rules and Regulations Industrial Technology Development Institute Industrial Waste Exchange Program Japanese International Cooperation Agency Laguna Lake Development Authority Local Government Unit Local Government Finance and Development Project Million Metropolitan Environmental Improvement Program Mines and Geosciences Bureau Metro Manila Metro Manila Development Authority Materials Recovery Facility Micro and Small Enterprises Municipal Solid Waste National Capital Region National Economic and Development Authority Non-Governmental Organization Not In My Back Yard National Solid Waste Management Commission Philippine Coast Guard Polyethylene Terephthalate Philippine Pesos Philippine Information Agency Polystyrene Packaging Council of the Philippines Sanitary Landfill Solid Waste Management Tire-Derived Fuel Technical Education and Skill Development Authority Toxic and Hazardous Waste Totally Integrated Recycling Effort World Health Organization

The World Bank Group1818H. Street,N.W. WashingtonD.C. 20433 U.S.A. Tel.:(202) 477-1234 Fax: (202)477-6391 December 2001TheEnvironment's Ilth hour!!!

U

Country Office Manila 23rd Floor, The TaipanPlace Emerald Avenue,OrtigasCenter PasigCity,Philippines Tel.:(632)637-5855to 64 Fax: (632)637-5870

As highlighted the 2000 Environment in Monitor, environment naturalresources the the and of Philippines underincreasing is presstre.Thechallenge to act now to ensurea futurethatpreserves is the qualityof life, health,resources,and naturaltreasures the country In the spiritof this challenge, of a clockhasbeenchosen the symbolof theMonitor. as Theclockshownin the 2001Monitor in the 11thhourto represent urgency the factthat time is this and is nunning As theclockapproaches out. midnight, problemgetsmorecritical In the caseDf solid the waste,the clockstandsat 11:50 indicating timeis runningveryshort.Thereasonsfor this are the that lackof progressondeveloping safedisposalfacilities visibilityof the effectsincludingtheManila and gatbagecrisis,the Payatastragedy the common and sightof garbagestrewnin rivers,streetsandon privateand publicland in manyareasof the country. the samne solid wasteis beingproduced At time, at increasing ratesand without actiontheproblems Manilawillbecomeevenmorecritical in and thosein otherareasof thecountrywillgrow On thepositiveside,severalrecentmeasures have preventedtheclockfromcreeping closerto midnight, including passage the of groundbreaking framework legislation (Ecological SolidWaste Management and the Act) success citizen-led-initiatives as recycling awareness of such and programs. In the future,carefulimplementation the newlegislationrepresents greatesthopefor reversing of the theclockon this criticalissuefacingthe Philippines.

The Philippines Environment

Monitor 2000 presented a snapshot of

M:

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X af

environmental trends in the country The 2002 edition, currently : : kq50 0generalwill focus on air quality management.

under preparation,

This document preparedby a WorldBock Teemconsistingof1Messrs./Mfdmes. Acherya, BebetGozun,Patchamuthu wos Anjali Illangovan (Teem Leader),John Morton, end Meye Villeluz. Thedocumentwaspeer reviewedby Messrs.Cerl Bertone,Den Hoornweg,L. PanneerSelvam, Allen Rotmen,end Thomes Welton TheWorldBeck;end Mr N.C. Vesuki, E. of ChiefExecutive Officer,DelewereSolid Waste Authority, USA.Comments end suggestions offeredby thefollowing ore gratefully acknowledged: Ramon Mr. Paje, Undersecretary, Department Environmentand Natural of Resources (DENR); Mr. Julian D. Amador,Director/Officer-in-Charge, EnvironmentalManagement Bureau;Mr. Albert A. Magalang,Executive Director Office of theSecretariat,NationalSolid Waste Management Commission (NSWMIC); SoniaMendozaand MfrBert Guevara Ms. representing theNGOsand Leagueof Barangaysin theANSWMC, respectively. Comments werealsoprovided by thefollowing WorldBankstaff and consultants: Messrs./Mdmes. Joven Balbosa.BhuvanBhatnagarRob Crooks,GiovannaDare, Jack Fritz, Heidi Hennrich-Hanson, EmmaHooper Mary Judd, and KanchalikaKlad-Angkul. Ms. LuisaSambeliEspaflolacoordinated productionof this Monitor Ms.Agatha Anchetaassisted data collection. Mr Jeffrey Lecksellwas the in responsible preparing the map.Dissemination theMonitor iscoordinatedby Ms. LeonoraGonzales. cover wasdesigned for of The byVMr Brian Lu of Liquid Graphics.Thedocument printed at Inkwell PublishingCompany. was Theviewsexpressed the Philippines in Environment Monitor 2001areentirelythoseof the authors and shouldnotbe citedwithoutpriorpermission. They do not necessarily reflectthe viewsoFTheWorldBeckGroup,its Executive Directors,or the countries theyrepresent. materialcontained The hereinhasbeen obtained fromsourcesbelieved reliable it is notnecessarily but complete cannotbeguaranteed. and'Printed on Recycled Paper

Table of ContentsPreface Abbreviations and Acronyms. EXECUTIVE SUMMARY - DOWN IN THE DUMPS! .

1-2

WASTE GENERATION MAP ......................................................

3

MUNICIPAL SOLID WASTE SOURCES AND GENERATION .4-5

Waste Sources Waste Generation Waste CompositionMUNICIPAL SOLID WASTE RECYCLING AND COLLECTION ...........

................6-7

Recycling Collection Transfer and TransportMUNICIPAL SOLID WASTE TREATMENT AND DISPOSAL ............. ................

8-13

Composting Open and Controlled Dumping Sanitary Landfills Landfill Gas Collection and UseHAZARDOUS WASTE GENERATION, RECYCLING,

TREATMENT AND DISPOSAL ..................................................................

14-17

Generation Recycling Treatment and DisposalLEGISLATION, INSTITUTIONS, AND BUDGETS ...........................

18-22 23-2627 .. 28

THE TEN CHALLENGES .....

.

....

.

.........................

Case Study: The Two Faces of Payatas ................................. Glossary of Terms ..... ..... ...... ............................ Philippines at a Glance

PREFACEThe Philippines Environment Monitor series, launched in 2000, presents a snapshot of key environmental trends in the country. It aims to engage and inform stakeholders on key environmental changes as they occur. The 2000 Monitor benchmarked trends in environmental indicators associated with water and air quality, and natural resources conservation. Unlike economic indicators, environmental changes, however, occur over a period of time, and therefore, annual variations are difficult to measure or assess. Thus, the series is designed to track changes in general environmental trends every five years. In the intervening years, the Monitor will focus on specific annual themes to highlight critical and emerging problems. The Philippines Environment Monitor 2001 focuses on solid waste management, which, triggered by the "garbage crisis" of Metro Manila, has emerged as one of the most pressing environmental concerns in the country. Population growth, rising living standards, and inadequate attention have caused many of the current waste problems. As wastes are dumped along roads, drainage canals and waterways, or in low-lying open fields, it is inevitable that the sheer volume of the wastes including the toxicity of its contaminants will endanger human health and safety by polluting water, air and land as well as threatening the food chain. The present garbage crisis in Metro Manila and other cities in the country has started to reverse the apparent indifference of the people towards the 'grime and dirt' of society. The seriousness of the human and environmental impact arising from the lack of a strategic approach to waste management was highlighted by the premature closure of the Carmona and San Mateo landfills due to environmental and social considerations, and the Payatas dumpsite tragedy in 2000. In the absence of a clear national framework on waste management, local governments who are duty bound to manage solid wastes in their areas of jurisdiction, have resorted to solid waste disposal practices, such as open dumps, controlled dumpsites, and open or curbside street piles, which are operationally inadequate and do not protect either public health or the environment. Both the Government and civil society should be complimented for the passage of the Republic Act 9003: Ecological Solid Waste Management Act, which was signed into law by the President on January 26, 2001. This law was a result of several years of sustained work by many committed elected representatives, environmentalists, and professionals. It promotes an integrated approach to solid waste management and sets out ambitious goals. The challenge now facing the country is its implementation. The Environment Monitor 2001 consists of six sections. The first three sections discuss the current status and trends in municipal solid waste generation; recycling and collection; and treatment and disposal. The fourth section discusses hazardous waste generation, treatment, and disposal. An analysis of the laws, institutions and budget is presented in the fifth section; and the Monitor concludes with an assessment of the major challenges faced by the Philippines in implementing an integrated solid waste management program. The Monitor also discusses the situation at the Payatas open dumpsite in Quezon City. The information presented here has been obtained from a variety of sources, including published reports of government agencies, universities and nongovernmental organizations, unpublished data from individuals, and documents of the World Bank. However, solid waste data in many countries is often times unreliable due to inconsistencies in data recording, definitions, collection methods, and seasonal variations. The Philippines is no exception. Given the diversity and timeliness of the sources of data used, the information in this report has been assessed for its reliability, and as needed estimates have been made. Data, information and support provided by the Department of Environment and Natural Resources, Environmental Mangement Bureau, Metro Manila Development Authority, Local Government Units and Non-Govermental Organizations are acknowledged. Robert V. Pulley Country Director, Philippines East Asia and Pacific Region The World Bank Zafer Ecevit Sector Director Environment and Social Development East Asia and Pacific Region The World Bank

EXECUTIVE SUMMARY DOWNIN THE DUMPS! -

S

priority in the cities and OLID WASTE or basurahas emergedas the most visible environmental

municipalities of the Philippines. Generation of waste is increasing rapidly as consumption rises, while collection efficiencies are dropping as service levels deteriorate. Treatment and disposalfacilities are facing closure because of improper siting and management, and growing public opposition. The problem is most pronounced in Metro Manila, where it is a common sight to see uncollected garbage piling up on the streets or being burned. In the meantime, human health costs are rising because of improper handling and disposal of household, hospital, and industrial wastes.Sources and Gener

a-a_in SolidWaste Management the Philippines 2001 - At a Glance,Indicator(tons/year) Solidwastegeneratedby households by wastegenerated Toxicand hazardous

a smallportionis recycled.The rest is disposed in open

generates tion. A Filipino between0.3 and 0.7 kilograms of garbage daily

in dumps.Carmona CaviteProvince and San Mateo in

dependingupon income levels. The current annual generation of 10 milliontons is expected to increaseby 40percent at the end of the decade.The National

Value10 million

sector industrial/commercial (tons/year)by wastegenerated Hazardousand infectious hospitals (tons/year)

2.4 million6,750

were RizalProvince thefirst landfillsto be constructed. Thesesiteshavesincebeen closed,whichtriggeredthe current garbage crisis in Metro Manila. In San Valenzuela, and Dumaguete, open dumpinghas by beenreplaced controlled dumping. onlysanitary The is landfillin the country lowhichis curcatedin Cebu, eu hc scr ctdi operatrentlyexperiencinging problems.Fernando, La Union,

Region and SouthernTagalogRegionproduce the highest amount of waste,accounting 23 for and 13 percent of the country's production, respectively. * Recycling and Collection. Inadequatecollection vehiclesand lack of disposal sites have contributed to a reduction in

RegiNaand Southern

Capital

Share municipal of waste generated is that collected of as and Waste recycling re-use a percent (Metro Manila) total waste generated of Recycled material soldas a percentagetotalwastegenerated (Metro Manila) sites No. of propersolidwastedisposal dumps * Controlled No. of hospital wasteincinerators

Urban 70% Rural -40% 12%5%

Landfills landfills Closed

117 43

2

the collectionefficiency of household waste.Sev-

waste treatment facilities No. ofhazardous solidwastedisposed landfills in Shareof municipal dumps andcontrolled to in with access incinerators Shareof hospitals wastetreatedor recycled Shareof hazardous (range PhP) allocation LGUs in Percapita in budget managementLGU Share solidwaste of.

28 2%5%

Toxic and Hazardous Wastes.Justover5 percent hazardous of the estimated*

waste generation of nearly

12 - 250 1%- 12%-

tons is recycled 2.4 million Hospior treatedannually.

n;= enty percent of the garbage is collected in urban areas, while only 40 percent is collected in rural areas. Many of the poor neighborhoods in the country are under-served. Separate collection of segregated waste is still minimal. Thirteen percent of Metro Manila's waste is recycled, while it is much less in other areas. * Treatmentand DisposaL Nationally, only 2 percent of the waste generated is disposed in sanitary landfills or controlled dumps. Nearly 10percent is composted, and

tals in the country generate W 6,750 tons/year of hazardous and infectiouswaste. Some of this waste is incinerated. However,the Clean Air Act of 2000 prohibits the operation of all incineratorsafter November 2003. Waste recycling and disposal have always attracted wide attention in the Philippines. Many non-governmental organizations (NGOs) have been active since the early 1990s through recycling programs such as Zero WasteRecycling Movement and Linis Ganda. In recent times, many civil society and community orga-

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nizations have opposed improper management of open dumps and landfills, the siting of future facilities, and incineration of waste. Their sustained efforts led to the drafting of RA 9003 also known as the Ecological Solid Waste Management Act of 2000 (ESWMA),which was signed into law early this year. This law replaces the piecemeal provisions previously covered in several laws, and for the first time, provides an integrated national framework for environmentally-friendly solid waste management. The Act has set very ambitious goals, and their achievement will be a major challenge for all sectors of the society. The finalization of the law's implementing rules and regulations need to be expedited. While public awareness has been growing, it is not yet sufficientlymature to support appropriate and suitable management practices. The "Not In My BackYard" (NIMBY) syndrome has compelledmany local governments to abandon or defer plans to establish compostimg plants, controlled dumps, and sanitary landfills.A case in point is the situation in Metro Manila. Since the publicly-demandedclosure of the Carmona and San Mateo landfills,the metropolishas been buried in its own waste with few altemativesaside from open dumping.This will likely exacerbatepublic sentimentagainst sanitary landfills, the most suitable and cost-effectiveoption for the safe disposal of Metro Manila's residual waste in the context of an integratedsystem. Except for a handful of Local Government Units (LGUs), the performance of cities and municipalities in the provision of services to collect and dispose solid waste has been poor. This can be attributed to LGUs' weak capacity, inadequate budget, limited understanding of appropriate and cost-effective practices, and weak enforcement of regulations. Further, the lack of a cost-sharing formula between the national government and LGUs for financing capital costs is also hampering the establishment of proper disposal facilities. The City Development Strategies being piloted by a few cities and municipalities provide an opportunity for LGUs to integrate solid waste management interventions in the overall investment planning and institutional development framework. There are ten key challenges that the country needs to address to achieve the goals of the ESWMA. These include:

1.

2.

3.

4.

5.

6.

7.

8.

9. 10.

Strengtheningenforcement and providing better incentives.The current lax enforcementsituationneeds to be improvedto make the ESWMAan effectivepiece of legislation.In addition,providing incentiveswould reduce waste generation at source and improve management of waste disposal facilities. Building the capacity of national and local institutions. Capacity building for LGUs and barangays and improving strategic planning at all levels of govemient will be necessary. Addressing the NIMBY syndrome. This has prevented the siting of solid waste management (SWM) facilities and could be addressed through better awareness and consultation, and the demonstration of safe landfill practices. Raising public awareness on the benefits of proper solid waste management. Support and participation of the people in SWM programs will be key to the successful implementation of the ESWMA. Increasing expenditures on SWM. A back-of-theenvelope analysis indicates that the Philippines will need to spend an additional PhP150 billion (US$3 billion) over the next 10 years for SWM. Mainstreaming the utilization of new funding sources and employing cost-effective approaches. New funding sources such as national government cost sharing; private sector participation; and user fees should be explored along with cost saving measures, such as shared facilities and producing power using landfill gas. Obtaining reliable information for national, regional, and local planning. Without proper data, long-term planning decisions cannot be made. Ensuring proper management of closed dumps and sanitary landfills.The environmental and health risks of closed dumps and landfills will need to be minimized. Protecting the vulnerable and the under-served.This includes scavengers and poor communities. Expanding coverage of infectious medical and hazardous waste treatment. Effective implementation of the law will require a concerted effort that focuses exclusively on the practicalities of establishing safe and effective disposal practices in the short and long term.

Most importantly, the Philippines should avoid another Smokey Mountain or Payatas open dump situation from re-emerging!

2

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