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8/7/2019 SOLID WASTE MANAGEMENT IN METRO MANILA: WASTE GENERATION
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SOLID WASTE MANAGEMENT IN METRO MANILA:
WASTE GENERATION
CONTENTS
Statement of the Problem----------1
Objectives-----------------------1
Significance---------------------2
Limitations---------------------12
Method---------------------------------13
Presentation of Data----------------14
Analysis---------------------------------19
Institutions involved-------19
Waste Generation-----------28
Bibliography---------------------------37
Nathalie D. Dagmang
2010-24702 BS Community Nutrition
Sociology 11 WFU
Professor Rubio
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Passed October 6, 2010
STATEMENT OF THE PROBLEM
OBJECTIVES
This paper aims to (1) present the background of solid waste management in the
Philippines, specifically in Metro Manila, (2) to establish that Solid Waste Management is a
Social Issue using Mills criteria, (3) to determine the institutions involved and their specific
role expectations in implementing Solid Waste Management, (4) to determine the
contradictions and debates within the institutions involved and (5) to explain and analyze the
issue of Solid Waste Management in Metro Manila, specifically the problem of rapid waste
generation.
Will be included in the background to be presented in this paper are the definition of
solid wastes and solid waste management and the situation of solid waste management in
the Philippines, through the statement of the laws and description of waste flow in the
country. To be able to establish that it SWM is a social issue, the paper will also establish the
problem as a public concern, state the values threatened and describe the crises in
institutional arrangements and debates.
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Furthermore, the paper will introduce the different institutions involved in
implementing Solid Waste Management, their role expectations, what they are actually
doing. It will also illustrate the contradictions and debates between and within institutions
and analyze the current status of SWM in Metro Manila through this. The paper will
specifically analyze the present problem of excessive and rapid waste generation in the area.
To further study this problem, the paper will analyze the functions and actions of the
institutions responsible in solving the problem.
SIGNIFICANCE
Solid wastes and solid waste management
According to the the Presidential Task Force on Waste Management solid wastes are
thenon-liquid waste material arising from domestic, trade, commercial, industrial and
mining activities. It also includes wastes arising from the conduct of public services such as
street sweepings, landscape, maintenance, and the clearing of typhoon-wrought debris.
Note that the term non-liquid is relative, because it includes sludge (semi-liquid slurry)
such as those from industrial sources and sewage treatment plants. (Fernando, 2000)
The Ecological Solid Waste Management Act of 2000 (RA 9003), on the other hand,
refers solid waste to all discarded household waste, commercial waste, non-hazardous
institutional and industrial waste, street sweepings, construction debris, agricultural waste,
and other nonhazardous/non-toxic solid waste. (Navarro, 2003) There are two broad
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classifications of solid wastes: biodegradable (wastes that can be decomposted) and
nonbiodegradable (e.g. plastic, Styrofoam, metal), (Tidon, 2000) the latter being the main
cause of pollution as a result of its accumulation and dangerous chemical content. (Tidon,
2000)
It also defines Solid Waste Management as the control of the generation, storage,
collection, transfer and transport, processing and disposal of solid waste in a fashion that is
in accordance to societal and economic needs while at the same time compliant to
environmental standards and principles (Navarro, 2003).
The Presidential Task Force on Waste Management (PTFWM), in contrast, provides a
more specific definition on Solid Waste Management. It pertains to all acts pertaining to the
control, transfer, transport, processing and disposal of solid waste in accordance with the
best principles of public health, economics, engineering, conservation, aesthetic and other
environmental considerations. It scope include all attendant administrative, financial, legal,
planning and engineering functions. Projects that are considered as Solid Waste
Management Programs are those related to solid waste management as defined by the
PTFWM, which are not lead not just by the national and local government but also private
and non-government sectors. Also parts of these programs are both the official and
unofficial collaborations of different sectors in their effort to manage waste in the country.
(Fernando, 2000)
Waste Flow in the Philippines
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There are six functional elements of Solid Waste Management: (1) waste generation,
(2) storage and handling, (3) collection, (4) transfer and transport, (5) processing and
recovery and (6) disposal. (Fernando, 2000)
Waste generation and production has a number of factors namely the state of the
national and individual economy, demography, industrialization, and extent to which waste
management programs are carried out. The second element, handling and storage includes
the putting of wastes in proper containers and handling solid wastes until placed in their
storage containers and storage pits. The collection of waste, according to the PTFWM, is the
most expensive functions of the solid waste management(SWM). According to the
Environmental Management Bureau (EMB), 40-80% of SWM goes to this function which is
the main responsibility of the local government units (LGUs).
After the process of `collection, the waste may undergo processing and recovery, which
involves the size reduction, magnetic separation, density separation using air classifier and
other processes and operations designed to recover or produce usable materials like
compost or energy(Ibid from Fernando, 2000) or be transferred and transported to transfer
stations and then disposed in assigned dumpsites. The waste may also be directly disposed in
designated dumpsites or undergo all processes. The interrelationship of the six functional
elements stated above is summarized in Figure 1.
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Waste from the generators can also be self-disposed, discharged through legitimate
waste collectors such as junkshops or sent for recycling for the use of private establishments
such as businesses.
However, according to Navarro, the waste flow in Metro Manila only basically follows
the following set up: From the generators, they are burned by the generators themselves,
inappropriately dumped and littered, collected or recycled. Backyard burning or small-scale
community burning is a traditional waste treatment method and is usually done by
households within their premises. (Navarro, 2003)
Of the estimated 6,700 tons generated per day, approximately 720 tons per day is
recycled or composted. The remaining weight are either transported to the citys dump sites,
illegally dumped on private land, in bodies of water, or openly burned (The Garbage Book).
One could infer from this given situation of waste flow in the country that the full
compliance to RA 9003 is not achieved.
Legislation of Solid Waste Management
WASTE
GENERATION
STORAGE
TRANSFER AND
TRANSPORT
PROCESSING AND
RECOVERY
DISPOSALCOLLECTION
Figure 1. Interrelationship of the Six Functional Elements of Waste Management (Fernando, 2000)
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In the effort of the Philippine government to promote waste management in the
country, various laws have been formulated and promulgated for many years now.
A number of laws regarding solid waste management have been constantly revised
and reinforced due to the poor implementation and enforcement of previous laws regarding
the matter. Previous laws attempted to address the countrys problems on waste
management, particularly the unmonitored operations of open dumpsites, contamination of
bodies of water, and other problems related to the improper waste disposal. These laws
include Anti-dumping Law of 1938, Garbage Disposal Law of 1975 garbage disposal law
(1975), Sanitation Code of 1975, Marine Pollution Control Decree of 1976 and the Toxic
Substances and Hazardous and Nuclear Waste Control Act of 1990.
There are also laws regarding the strict implementation of solid waste management
programs, namely Presidential Decree (PD) 984 or the National Pollution Control Law, PD
115 Philippine Environment Policy (1978), PD 1152, Philippine environment code (1978),
Executive Order (EO) 432 (1990) and the Department administrative order no. 98-49 and 98-
50. The roles and responsibilities of different institutions are also constituted like the Local
Government Code of 1991, General Order no. 13 and RA 7160 local government code 1991.
Various laws are also implemented to further address the problems related to solid
waste management like the Clean Air Act of 1999 which provides a framework for a
comprehensive management of air pollution, mainly caused by improper waste disposal.
The Ecological Waste Management Act of 2000 (Republic Act 9003), specifically, is the
most comprehensive law regarding solid waste management. It declares the adoption of a
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systematic, comprehensice and ecological solid waste management program as a policy of
the state, adopting a community based approach and mandates waste diversion through
composting and recycling. (Bennagen, et al, 2002) It features (1) the establishment of
material recovery facility (MRF) in local communities, (2) waste diversion of at least 25% of
all solid waste from disposal facilities through re-use, recycling and composting, (3) eco-
labeling or coding system for packaging materials to facilitate waste recycling and re-use and
(4) the prohibition and conversion of open dumpsites to controlled dumpsites which strictly
conform to universal standards. Before the law was passed, open dumps are operated in
Metro Manila where there were no engineering controls are used at all.
SOLID WASTE MANAGEMENT AS A SOCIAL ISSUE
The Philippines problem regarding Solid Waste Management is a social issue,
considering the criteria of C.W. Mills: (1) it is a public matter; (2) it threatens the values of
the society; (3) it results to crises in institutional arrangements and (4) it brings about
debates regarding these values and crises (Mills, 1959). To illustrate the presence of these
characteristics in the issue of Solid Waste Management, observations and statistics on
important problem indicators are provided.
1. It is a public matter.
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As seen from the large budget allotment for waste management programs, it is clear
that the local and national government, taking into consideration its peoples needs and
demands, gives importance to SWM. In 2001, 5-24% percent total expenditures of Metro
Manilas local governments went to solid waste management.
The considerable amount of money allocated for waste management programs was
seen necessary because of the significant quantity of solid wastes generated by the
country (annual generation by households was estimated at 10 million tons, with an
expected rise by 40% by the end of the decade (Antonio))
But because of the excessive amount of wastes and the increasing rate of its
production, Filipinos experience problems on the efficiency
of garbage collection (only 40% in rural areas and 80% in
urban areas). Consequently, people resort to improper
waste disposal, causing environmental problems such as
land and water pollution in the process. According to the
Water Quality Association of the Philippines, up to 58
percent of groundwater sampled is contaminated with coli
form bacteria, and needs treatment and almost 45 percent of Metro Manila residents
(4.8 million people) are willing to buy bottled water due to this problem.
Health problems also follow the environmental problems brought about by the
improper waste disposal. Dengue cases in the country for the first seven months
increased 48 percent compared to figures for the same period last year, the (Department
of Health report, Uy, 2010) and 40,648 cases were recorded with a total of 328 deaths
Figure 2. Type of Illness 1992-2000
(DOH-National Epidemiology Center
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due to mosquito-borne diseases (January July 2010). According to the Department of
Health, in 2000, more than 500,000 morbidity and 4,200 mortality cases were attributed
to water-related disease while 31 percent of illnesses monitored for a five-year period
were caused by water-borne pathogens (Figure 2). According to the Senate Economic
Planning Office, the health costs of pollution in the cities of Metro Manila, Davao, Cebu
and Baguio in 2001 was 2.5% to 6.1% of per capita income in these cities, or 0.6% of the
countrys gross domestic product. (2005)
Those who are concerned with SWM are not only the generators and people who
experience the environmental and health risks of the huge amount of garbage present
but also those who benefit from it. From Martin Medinas paper Globalization,
Development, and Municipal Solid Waste: Management in Third World Cities,
approximately 12,000 scavengers live in municipal dumpsites and depend on scavenging
for their basic necessities. One of the provisions of the Ecological Solid Waste
Management Act is the control of waste picking and trading. Now, waste pickers are
organized and given designated areas to pick wastes from and identification cards for
them to where within the sites premises. However, waste picking poses danger on the
health and safety of the waste pickers. One example of the dangers that they face is the
caving in of the hill of garbage overlooking Payatas where 218 were killed and 300
families were left homeless in the year 2000.
Businesses also experience decline in customers due to the decreased tourism rates
which resulted from the negative effects of improper waste disposal on the aesthetics of
the country.
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2. It threatens the values of the society
Mismanagement of waste has serious environmental consequences: ground and
surface water contamination, local flooding, air pollution, exposure to toxins, and spread of
disease (Philippines Environment Monitor, 2004). These consequences threaten the societys
values, the culturally defined standards that people use to decide what is desirable, good,
and beautiful and that serve as broad guidelines for social living (Turner, 2006). The values
threatened by the problem in SWM are as follows: safety, water, food, health, aesthetics,
shelter, life, business and livelihood.
Due to the tropical climate of the Philippines, the country experience frequent rains
and flooding. But because of solid waste management problems, these worsen and cause
alarming dangers on Filipinos. Despite the promulgation of a number of laws regarding waste
disposal, Metro Manila residents still throw out their garbage into rivers, sea and drainage
channels. Former Metro Manila Development Authority (MMDA) Chairman Bayani Fernando
said that the MMDAs floodwater pumping stations all over Metro Manila have been
interfered and clogged by accumulated garbage, which came from different creeks and other
waterways, reducing the efficiency of pumping stations to 70% (MMDA News Updates,
2010).
Scattered waste and debris are seen after flooding, causing tremendous public health
implications and destroyed property and aesthetics. When fecal matter and waste products
seep into primary water channels along with the floodwater, it would be hard for the citizens
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to find clean sources of water, interfering and disrupting their daily activities and also posing
problems on food production.
Pollution in both land, air and water also produces health and safety risks on the
citizens. When organic waste decomposes, it emits greenhouse gases and other toxic fumes
like methane gas which may cause environmental problems like global warming. On the
global level, the DENR-EMB has estimated that solid waste brought to the dumps released
203 kilotons of methane, equivalent to an emission of 4,253 kilotons carbon dioxide in 1994
(Merilo, 2001). People living within the surrounding area (and within the actual area) of non-
sanitary landfills may be taken ill because of the pollution (Philippines Environment Monitor,
2004) and may be involved in dumpsite accidents.
Most of the dump sites are also located near bodies of water and so the dump sites
are also cause of the water pollution in the Philippines. The most common and oldest waste
disposal method is landfill, where waste materials are dumped in a treatment site and
covered with layers of soil to decompose. The problem with landfill, however, is that
decomposing waste produces leachate fluids which spread throughout the area,
contaminating groundwater and possibly the bodies of water nearby (Fajardo III, 2008).
Clogged drains are also perfect breeding grounds for disease-spreading mosquitoes.
In addition, fecal matter and other organic wastes attract insects and rodents which are good
carriers of diseases like cholera and dengue fever (UDSU-EAPR, 1999).
Leachate from the garbage penetrates into the water table and contaminates
groundwater supply, posing health problems to the water consumers and decreasing the
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already-scarce water supply. 38 Known diseases caused by polluted water include gastro-
enteritis, diarrhea, typhoid, cholera, dysentery, and hepatitis. According to the Department
of Health, in 2000, more than 500,000 morbidity and 4,200 mortality cases were attributed
to water-related disease. In the past, the contamination of beach water in Boracay produced
a significant number of cases of gastroenteritis and drove away foreign and local tourists.
Recently, the summer capital of the Philippines, Baguio City, experienced solid waste
management crises that threatened to drive away tourists (Quina, 2008).
3. It results to crises in institutional arrangements.
Lack of implementation of the RA 9003 is due to the crisis in institutional
arrangement. There is confusion in the roles of the institutions. It is not clear which
institution is responsible to perform certain roles in the implementation of solid waste
management. Institutions are not also able to perform their functions due to other issues
such as the following: lack of budget, lack of mass education about SWM, and lack of
political will. Some institutions do not seem to participate in managing wastes and
coordination within institutions appears to be minimal.
4. It brings about debates about values threatened and crises in institutional arrangements.
Most of the debates occur between the Local Government Units(LGUs) and the
National Solid Waste Management Commission (NSWMC). The non-compliance of the LGUs
to the RA 9003 is what is mainly being debated upon. There are also debates regarding the
contradiction on function and role implementation, where the problem may have arised
from the ineffective roles, passing of responsibilities and overlapping or conflicting functions.
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Some debates also aroused from the inefficiency or lack of coordination of the institutions
involved in SWM programs and the accountability of these when problems arise.
LIMITATIONS
Due to lack of time, budget and access to the other necessary information, this paper
does not state and analyze data that are directly acquired through interviews, surveys,
experiments and observations. This paper only thoroughly discusses one aspect of Solid
Waste Management, the waste generation. Other aspects such as the collection,
transfer/transport, reduction/processing and disposal are not included.
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METHODS
Review of Related Literature
To be able to get the background of Metro Manila, the current situation of SWM in
the area and the significance of SWM, books and articles are used as references. Books are
also used as references, including C.W. Mills The Sociological Imagination which served as
basis for establishing the topic as a social issue. Other references used are previous studies
on the topic, handbooks about the Ecological Solid Waste Management Act (RA 9003),
reviews/reports on the implementation of SWM and news articles about the ill effects of the
waste problems of Metro Manila.
Illustration using Statistics and Data
Statistics and data from certain agencies (e.g. MMDA, DENR-EMB, NSO) are used to
illustrate and emphasize the significance of the problem. These are also used to prove the
points and statements of the paper. These are presented with the help of charts and tables
for easier comprehension.
Analysis of data
Data, statistics and observations acquired from various references and records are
then interpreted and analyzed in the paper. This is done by enumerating the institutions
involved, their expected roles and functions, their actual actions, their interrelationship and
the debates between them. Some elements that also create an impact on waste generation
are explained and connected with certain aspects of SWM (e.g. industrialization).
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PRESENTATION OF DATA
SITUATION OF SW AND SWM IN METRO MANILA
The Philippines generates more than
10,000 tons of solid wastes per day, more than
50% of the total wastes or 5,800 tons/day
coming from Metro Manila (Bennagen, et.al.,
2002). The household sector is the primary
source of solid wastes in Metro Manila,
accounting for almost 75% (See Figure 3).The
other important sources of solid wastes are
industries, commercial establishments, markets, and institutions including schools and
government offices. About 45% of Metro Manila household wastes consist of food/kitchen
wastes, 16% paper, 15% plastic, and 9% glass and wood (Bennagen, et.al., 2002).
Both national and local governments allot a significant part of the Metro Manilas
budget to Solid waste management programs in their effort to solve its problems regarding
the matter. Per capita cost of solid waste management ranged from P 64.00 in Pateros City
to P 1,164.00 per person in Makati City (the affluent financial and residential district) Over P
Others
Markets
Households
Commercial
construction
institutions
Figure 3. Sources of Solid
Waste, Metro Manila
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3.54 billion was spent on the collection and disposal of solid wastes in Metro Manila, costing
approximately P 1,450 per ton. (Antonio) Non-governmental organizations (NGOs), private
sectors and other groups also invest in these programs.
Despite the relatively large amount of money allocated for waste management
programs, there is still a lack or a low quality of SWM programs. Approximately 40-80% of
this money is used for collection in particular. However, the nation still faces problems
regarding the process of collection, transfer and transport of garbage. It can be observed
from the data gathered by the National Solid Waste Management Commission, that there is
still a considerable rate of illegal dumping (30-35%) (as shown in Figure 4) and low rate of
collection efficiency (40% in rural areas and 80% in urban areas). There are also problems
brought about by the lack of facilities in landfills and the failure to convert open dumpsites
into sanitary landfills due to the high cost of this process.
Figure 4.Solid Waste Flow in Metro Manila
Source: National Solid Waste Management Commission
WASTE GENERATION IN METRO MANILA
Of the six functional elements of solid waste management, the focus of this paper
would be on the waste generation in Metro Manila. It has several factors, namely
generation67,000 tons
recycling
8-10%
discharge
80%
collection
65-70%
sanitary
landfill
open
dumpsites
controlleddumpsites
illegal dumping30-35%
self-disposal
6%
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industrialization and urbanization which could result to population growth, urban drift and
economic developments.
Industrialization
An industrialized country takes on the following features: has an economy in which
power-driven machinery replaces human and animal power, and steam, gas, or electricity
replaces wind and water as sources of power. The majority of the adult population works in
manufacturing or services, rather than agriculture. Work is based on a complex division of
labor, involving generally a considerable degree of mechanization and automation and a
strict separation of manual and mental labor. (Turner, 2006)
The United Nations Commission on Human Settlements (Habitat) has cited rapid
urbanization and economic development in most developing countries (UNCHS Promotion of
Waste Recycling and Reuse in Developing Countries, Manila, January 1993, pp. 1-8). The
increased population in the cities and the rise of more businesses and industries have
produced a greater volume of wastes. (JICA, 1998)
Industrialized countries also require more of manufacturing/producers goods which
mostly consist of non-biodegradable materials and less of raw materials that are usually
biodegradable and easier to dispose. Unlike in agricultural societies where wastes are mostly
from organic sources like plants and animals, developed societies face the problem of the
accumulation of wastes that do not decompose naturally.
As a result, industrialization plays a major role in the excessive waste generation in
Metro Manila. The economic developments, brought about by the industrialization, in turn
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increase the production of industries, change the lifestyles of the citizens, increase the
frequency of replacement of certain consumer goods and generate more projects and
experiments in the field of science.
The generation of more wastes causes an increase in waste collection, controlled and
open dumping activities and collection, transfer and disposal costs, which decrease the SWM
budget needed for its other operations.
Population growth
The Philippines population increased rapidly from 27 million in the 1960s to 88.57
million in 2007 (Espaldon and Baltazar 2004; NSO 2008) at the rate of 2.04 % for the period
2000-2007 (NSO 2008). Out of the countrys population of 82.8 million in 2005, about 63%
(51.8 million) lived in urban areas (Mangahas, 2006 from Atienza, 2008) where waste
management is more difficult compared to rural areas (Pujalte, 1993 from JICA, 1998).
Metro Manila, specifically, is a rapidly urbanizing metropolis and the center of
economic, social and political activities in the Philippines (Serrona, et al.). The National
Statistical Coordination Board of the Philippines (NSCB) recorded an accelerated growth in
Gross Regional Domestic Product (GRDP) from 2001 to 2002 at 4.59% (NSCB, 2003). With
65.2% of the population being economically active, aged between 15 to 64 years old, and a
98% literacy rate, there is a large potential for more growth in this region (NSO, 2003).
(Navarro, 2003)
This increase in population largely contributes to the increased generation of solid
waste in the country. At present, each person generates about half a kilo of waste per day
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and the variety of waste is increasing due to lifestyle changes (Philippines Canada-LGSP
2003).
Industrialization of the Metro Manila also causes influx of population from rural areas
because of the increased availability of work/educational opportunities and the promise of
modern lifestyle and development in the cities. This phenomenon is called the urban drift or
the migration of the population from rural areas to developed urban areas. But due to the
deficiency of shelter available for the immigrants brought about by the urban drift (the
movement of population from rural to urban areas), they usually become informal settlers,
who are said to be the main cause of water pollution. The squatter population was estimated
at 1.6 M in 1990 (DENR, Pasig River Rehab Secretariat, 1993), 60,000- 70,000 of which live
near rivers and water basins. However, squatters cannot be reached due to narrow roads,
and their location near riverbanks and esteros so garbage are usually accumulated in these
areas.
Metro Manila also experiences increase in population during the daytime as students
commute daily into the cities from provinces. (Ouano, 1990 from JICA, 1998)
ANALYSIS
ROLE EXPECTATIONS OF MAIN INSTITUTIONS
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There are 7 main institutions involved in the solid waste management of Metro
Manila: the National Solid Waste Management Commission (NSWMC), Metro Manila
Development Authority (MMDA), Department of Environment and Natural Resources-
Environmental Management Bureau (DENR-EMB), local government units (LGUs), non-
governmental organizations (NGOs), municipal services, industries and the actual community
members. Their responsibilities and role expectations are stated in various laws and written
in the constitution or dictated by its members. (Their interrelationship and hierarchy is
illustrated in Figure 5 below.) However, this
does not mean that these institutions perform
what is expected of them. Lack of budget,
corruption, lack of knowledge and training,
conflicting/overlapping functions, lack of
coordination, and unclear statement of
responsibilities may be hindrances to the
performance of the institutions.
National Solid Waste Management Commission (NSWMC)
NSWMC is a Commission established by Ecological Solid Waste Management Act of
2000 (RA 9003) under the Office of the President, composed members from the government
sector and private sector. The government sector is represented by the heads of the 14
member-agencies (DENR, 2003). The private sector is represented by a representative from
NGOs whose purpose is to promote recycling and the minimizing of air and water pollution, a
Figure 5. Institutional Set-up of SWM in Metro Manila
(Navarro, 2003)
NSWMC
MMDA
LGUs NGOs
Residential
Generator
Industrial
Generator
Municipal
Services
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recycling industry representative, and a manufacturing/packaging industry representative.
The NSWMC is responsible for the formulation of SWM programs, in monitoring the
implementation of solid waste management plans and the management of the solid waste
management fund. The Commission shall coordinate the operation of local SWM boards in
the provincial and city/municipal levels.
Despite the power given to NSWMC to supervise and coordinate the operations done
in SWM, the commission is not able to persuade all other institutions such as the LGUs to
comply with the provisions of RA 9003. Graft and corruption existing within the commission
and in most of the institutions that follow contribute to the lack of budget that can worsen
the poor implementation of SWM. Also, because the commission consists of members from
different branches of the government, their focus is not only on SWM issues but also other
concerns that their respective departments face. (Navarro, 2003)
Department of Environment and Natural Resources (DENR-EMB)
Department of Environment and Natural Resources Environmental Management
Bureau (DENR EMB) provides secretariat support to the NSWMC. DENR-EMB is tasked to
prepare an annual NSWM status report, distribute SWM information, formulate methods for
waste reduction, collection and disposal, provide technical assistance to LGUs in
developing/implementing local SWM programs and promulgate rules and regulations to
reinforce the provisions of RA 9003.
The DENR, however, is not able to properly educate and disseminate information
regarding SWM due to certain financial issues and lack of facilities. They also fail to give
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technical assistance in implementing local SWM plans to some LGUs because of this
problem.
Local Government Units (LGUs)
In the NCR, there are 17 LGUs 13 are cities while 4 are municipalities. Their
involvement in SWM in their respective jurisdictions involves solid waste collection, street
sweeping and river clean ups (Navarro, 2003). The LGUs shall be primarily responsible for the
implementation and enforcement of the provisions of RA 9003 within their respective areas.
LGUs can determine the appropriate penalties/ fines for violations. SWM is the responsibility
of local government units (LGUs), i.e., barangays, municipalities, cities and provincial
governments. The barangay is responsible for the segregation of waste at source, collection
of biodegradable and recyclable components and setting up of a materials recovery facility
(MRF).
Many LGUs perform their expected roles. They implement the provisions of RA 9003
and monitor its area. However, these actions do not seem to be effective in managing the
waste of the cities/municipalities that they are handling. These problems, i.e. inefficient
collection and transfer and improper disposal, may have resulted from the use of concepts,
technology, management techniques and institutions incompatible with prevailing social,
cultural, political and economic conditions in the area (Ouano, 1990, p.1)
For example, most LGUs complain about the lack of budget needed for the carrying
out of waste management programs. This results to the lack of equipment needed for these
programs like vehicles, incinerating machines, etc. (Passe, 1993, p.5 from JICA, 1998) And
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because of the lack of vehicles, and the poor maintenance of existing vehicles, collection
service at most times is delayed and inadequate. (Manimbo and Nombers, 1994 from JICA,
1998) In areas that are inaccessible to huge garbage trucks, there is a lack of appropriate
vehicles like pushcarts to collect the residents wastes. To make this worse, many
cities/municipalities also lack garbage crews. And at times, the already-small number of
garbage collectors (only an average of 14000 sweepers and 1500 garbage collectors)
performs labor strikes, slowing down the collection process. There are also garbage crews
who cheat on their loads, e.g. reporting as fully loaded half-full trucks and not attending
work during service days.
And even when the garbage are separated in individual homes, these still sometimes
get mixed up in when collected unlike in Marikina where garbage bags are tied with color
coded strings and are collected by separate garbage trucks. Also, at certain seasons, usually
before and after Christmas, when the volume of wastes is at its peak, or during rainy days,
many members of the garbage crew do not attend to their work. not available because of
the holidays.
Another cause of failure described by Navarro (2003) is the LGUs (and other
government agencies) tendency to aspire to fix the SWM problem within their political
terms, hence, long-term solutions, especially those that call for public participation, are not
much considered. Also, critics say that the LGUs hiring of contractors to manage the solid
waste collection and transport to dumpsites is plagued with corruption as many contractors,
as well as politicians, see this sector as a lucrative venture 2002). The mentioned corruption
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in SWM and the personal interests of authorities are some of the reasons of delay in the
implementation of ESWMs provisions. (PCIJ, 2001 from Navarro)
Metropolitan Manila Development Authority
The MMDA was created with the task of overseeing metro-wide services within
Metro Manila without trespassing on LGU autonomy. It is dependent on subsidies and
allocations from the national government as well as contributions from LGUs. The
implementation of RA 9003 widens its coverage of responsibilities, which includes creating a
regional SWM framework in accordance to the national framework (Navarro, 2003) and the
operations of sanitary landfills. Through its Environmental Sanitation Center, it is assigned to
the beautification and cleanliness of Metro Manilas major roads and infrastructures
(Fernando, 2000).
However, due to lack of budget, facilities, human resources and cooperation from
Metro Manila residents, the MMDA still cannot completely implement SWM in the area. This
can be seen in the failure of a number of open dumpsites to close and be converted to
sanitary landfills which can cost the government millions. According to Stat-USA.gov, the
most dominant issue for solid waste management is the inadequacy of disposal facilities.
Presently, open dumping is still the most common waste disposal method while controlled
dumpsites and sanitary landfills (SLFs) are still not widely used in the Philippines (Philippine
Solid Waste Management Market Summary). The Carmona landfill, which was used by Metro
Manila from 1993 to 1998, was found to be discharging leachate with high levels of
chromium and copper, toxic metals, into the Menama River while the San Mateo landfill
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causes the same problems to the Marikina Watershed Reservation. (Greenpeace SEA, 2000
from Navarro) The Payatas dump was also considered to be the worst case of open
dumpsites, with its tremendous amount of wastes that have accumulated since 1973
without any form of environmental measure and was found to be leaching out heavy metals
and was located near the La Mesa dam, a primary source of Metro Manilas drinking water
(Greenpeace SEA, 2000). Residents that use the Carmona and San Mateo landfills found out
the flaws of their designs and rallied and petitioned for the immediate closure of both
dumpsites even before they have reached maximum capacity. As a result, Metro Manilas
garbage is now disposed in six open or controlled dumpsites. However, these disposal sites
only have the capacity to accept years for two years.
Non-Governmental Organizations (NGOs)
NGOs focus on community-based projects such as environmental education. The
passage of RA 9003 also has long been fought for by a group of NGOs which include the
Recycling Movement of the Philippines, the Earth Day Network, Mother Earth, Linis
Ganda15, Concerned Citizens Against Pollution, and Greenpeace Philippines (Gonzales,
2002). After the signing of RA 9003 into law, these NGOs did not cease to watch the process
of implementation of the act. properly implemented. Odette Alcantara, founder and head of
Mother Earth, said that they strongly oppose MMDAs plans that focus more on finding the
potential landfill sites rather than promoting recycling and waste segregation (Personal
Interview of Navarro, 2003).
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Aside from overseeing the legislation of SWM, they also conduct recycling and
material recovery programs and help set-up SWM systems in different communities
(Navarro, 2003).
Residential Generators
The community is the primary waste generator in Metro Manila as seen from the
data gathered by JICA (1998) graphed in Figure 3. At the same time, they are expected to
comply with the Solid Management Act of 2000 (RA 9003) through segregating and recycling
wastes. However, despite the past efforts to promote the laws provisions, the community
still fails to follow. Some reasons for this may be the indifference of local residents to
participate in community waste management-related activities, local government collection
services non-allowance for segregated waste collection, residents attitude that government
has the sole responsibility over garbage management and lack of information and education
campaigns. (Bennagen et al, 2002)
Despite the penalties and incentives given by SWM programs, still not 100% of Metro
Manila residents comply with the provisions of SWM. These are due to the lack of willingness
of the residents and discouragements brought by government issues such as graft and
corruption and the non-compliance of authorities. Some residents do not comply because of
the lack of knowledge about how to contribute to the SWM programs or the inability to do
so due to specific living conditions and other aspects (e.g. no house, house cannot be
accessed by collection trucks, etc.)
Dumpsites Beneficiaries
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Although majority of the institutions involved in the implementation of solid waste
management consider the excessive and rapid generation of wastes a problem, there are
also those who benefit from it through the money and business opportunities that these
wastes can offer.
All recovered recyclables are converted into recycled materials without any cost to
the government mostly by the informal sector which is composed by scavengers, garbage
collectors and other individuals. In 2000, junkshops purchased about 101 850 tons of waste
paper, boards, cutlets, plastics and metals worth P 132.5 million and sold these to factories.
(WB, 2001 from Navarro)
The waste-pickers/scavengers, or those who earn a living from picking up wastes,
from open dumpsites and other waste storages that they can access (e.g. garbage bags left
out in front of households), that they then sell to junkshops (worth about 1B annually), small
businesses, or turn into something that they can sell. At present, there are also 2,312 existing
materials recovery facilities in Metro Manila where the scavengers can bring the wastes.
(NSWMC) Conflicts between household owners and scavengers arise when the waste-pickers
leave the trash scattered about after they have rummaged through the trash bins and plastic
bags. (Ouano from JICA, 1998) The garbage crew themselves can also scavenge through the
wastes they have collected. However, this may cause delay in the collection process.
These days, businesses who claim to support environmental programs sprouted and
are starting to multiply due to the observed high potential of environment-related
businesses in the market. A number of poor communities in the country are also developing
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programs that can provide its residents business opportunities with the use of available
resources which usually consist of recyclable waste materials like plastic and newspaper that
are abundant in these areas. Common businesses developed are junkshops and craft
businesses (e.g. bags out of tetra packs and straw).
Municipal Services
Schools, hospitals, and other establishments that cater to Metro Manilas residents
are not only expected to control the waste generation within their respective areas but are
also expected to perform their roles for the stricter and more effective implementation of
SWM. The heightening of awareness level necessary so as the society can efficiently follow
and carry out SWM programs can be achieved through the integration of SWM provisions in
school curricula, SWM campaign methods in establishments (e.g. posters) and conducting
seminars for the dissemination of the information needed for this. According to Sapuay
(2007), although the law is very clear on these aspects, it did not explain how this could be
achieved given the present situation of the country. It seemed that the law pre-occupied
itself in putting technical details rather than preparing the society for compliance. (Sapuay,
2007)
Industrial Generators
Industrial generators are abundant in the metropolis area which is the most
developed area in terms of infrastructure, attracting both foreign investors and tourists
(Navarro, 2003). These contribute to the waste problem of Metro Manila through the waste
generated by the manufacturing process by-products (which mostly consist of biodegradable
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materials) and the discharging of used items. They are also expected to comply with the
SWM provisions and cooperate with the whole community in their efforts to successfully
implement the program.
WASTE GENERATION
The focus of this paper will be on the
waste generation, the functional element of
SWM where all its other elements branch out.
Figure 6 illustrates two models of
production: the conventional model and the
closed loop model. The conventional model
shows how raw materials used in manufacturing consumer products become wastes in the
end. The closed-loop model, on the other hand, shows how potential waste from different
parts of the production process are identified and recovered or recycled for onsite or off-
site applications. (Antonio)
Clearly, the closed-loop model of production is the goal of Metro Manila in its effort
of reinforcing SWM programs. It aims either to slow down or reduce its generated wastes
that need to be disposed of. To be able to achieve the minimum wastes generated, cities and
municipalities use the 3R (Reduce Reuse Recycle) method where the residents reduce their
Figure 6. The Closed Loop Production Model vs. The
Contentional Model (Antonio)
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waste through more environmental-friendly choices, reuse of old products and the recycle
of non-biodegradable wastes. Most of the communities that compose Metro Manila try to
implement the 3R policies in their respective areas but not all are successful in doing so. This
failure is due to the lack of awareness and willpower/willingness of both the residents and
their authorities. Furthermore, each of the institutions involved does not claim its
responsibility over the excessive and increasing rate of waste generation in Metro Manila
although most hold the residents accountable not considering their own contributions to this
problem.
Residents
Most residents of Metro Manila wish to catch up with the developments occurring in
the country. In effect, they tend to demand and buy more products and perform more
activities that can add up to the wastes produced in the area. Some of them are also not
educated about the ill effects of the waste problem of the country, making them
unconcerned of its current situation. In addition, the residents are not aware of the large
potential for waste reduction through composting and recycling thus treating all discharges
as wastes that should be disposed of.
Hospitals
According to 2002 surveys, there were 2,068 hospitals in the whole Philippines,
producing 28 tons per day of biomedical wastes and projected to be producing 69.5 tons in
2050. In Metro Manila, there are 3,730 health care facilities, 1,509 of which are hospitals and
clinics and only 13 have their own incineration facilities. (MMDA). Furthermore, MMDA
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estimates that in 2001, these facilities generate an average of 9 tons of infectious wastes out
of the 60 tons of wastes they produce while in a study conducted by WHO in 2003, 27 out of
47 tons of hospital wastes are infectious. It can be inferred from these data that although
health care facilities have succeeded in reducing their wastes, there still exists the problem
of the large amount of hazardous wastes that it produces due to the developments of new
chemicals used in modern medicine and new diseases that have arrived in Metro Manila.
Because some medical wastes are disposed in the same dumps where other kinds of
wastes are disposed, there is a potential spread of infectious bacteria from sharps (needles,
syringes & glassware), blood and body fluids and pathological wastes (tissues and organs)
(Emmanuel, 2001 from Navarro)
Hospitals are responsible not only for the waste generation but also for the
dissemination of SWM programs. Within the hospital premises, the health-care providers,
staff and their patients are also expected to minimize their wastes. SWM programs are also
campaigned in hospitals through the use of posters, manuals/brochures and word-of-mouth.
Industrial Generators
Metro Manila is the countrys center of industrialization and urbanization. These
processes call for faster, more efficient and high-quality production and the construction of
more business establishments for more profit. The heightened standards and changing
lifestyles of residents result to the frequent replacement of their purchases (e.g. upgrading
of gadgets and appliances). This also encourage the advancement of science and technology
innovation which require trial-and-error procedures/experiments that can also contribute
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wastes. In some cases, these developments in science and technology promote the
reduction of wastes by introducing more efficient ways of manufacturing and
recycling/reusing.
The recycling program called for in RA 9003 includes requiring business
establishments of eco-labeling, environmentally preferable purchasing and identification of
non-environmentally acceptable products and packaging which can educate their
consumers and give them a choice whether to buy/use products that comply to the SWM
provisions. To further reinforce the policy, in 2003, the Philippines launched its eco-label,
Green Choice Philippines (owned by the DTR and DENR), which is awarded to twelve
screened products including pride and X-TEC fully synthetic engine oil.
The Industry Waste Exchange Program (IWES), which is managed by the Philippine
Business for the Environment (PEB), is another method used by the Philippines. It promotes
resource recovery through orientation, company in-house seminars, trade fairs, case
studies/publications, and IWEP advertisements in its quarterly Business and Environment
Magazine.
Companies (and a few LGUs and entrepreneurs) who join these programs mainly
because of the potential of environmental businesses and the benefits that they can get:
substitutions for rare raw materials, low cost and surplus of raw materials, energy savings,
reduced disposal costs, waste buyers and less conflict with environmental advocates. Despite
these benefits, IWEP only succeeded inside Metro Manila because of its economic set-up.
Others
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Through education, children will be aware of the current environmental problems of
the society and will feel the need of the society for solutions to these problems. Through
this, they tend to take responsibility in their actions and make an effort in helping the whole
society.
To be able to perform the roles that they think are assigned to them or they are
responsible of, they must learn the different ways of performing their tasks. The students
will learn about these if the SWM provisions and other information needed are integrated in
the schools curriculum and if the DENR-EMB, NGOs and LGUs help in the dissemination of
SWM information.
Certain government agencies also take part in the countrys effort to achieve zero
waste. Department of Science and Technology, for one, is expected to develop
technologies that can help manage and reduce waste which can also reduce the operational
costs of companies, attracting business establishments to comply with the SWM provisions.
These technologies that are currently used by many companies include
plastic/tincans/electronic waste recycling methods and energy conversion methods.
However, some companies, especially the small-scale ones, cannot afford these
technologies. As a result, they resort to old manufacturing methods that are less efficient
thus generating more waste. (Antonio)
In contrast, local government units conduct livelihood programs that usually consume
recyclable/recovered wastes. One example is the case of Baranggay Bagumbuhay in Quezon
city where they applied low cost methods in recovering wastes for the use of the community
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and the individual homes (e.g. for making compost and paving tiles) and eventually solved
the waste generation problems within the area.
DEBATES
Debates related to the problem of excessive and rapid waste generation usually
discuss whose responsibility are the (1) waste segregation, (2) waste reduction, (3) SWM
plan formulation and (4) dissemination of the information about SWM necessary in its
implementation.
Waste Segregation
Many residents and other institutions in Metro Manila these days are already
observing waste segregation in their homes as they are expected to do by the government
and advocates. But at times, they get discouraged because they observe that the garbage
collectors only mix trash bags that contain different types of wastes (e.g. biodegradable,
recyclables, etc.) in the garbage trucks and in actual dumpsites. When these mix, the wastes
that can still be recovered, reused or recycled, will only be dumped in landfills and add up to
the heaps of garbage generated by Metro Manila. The role of waste pickers in waste
segregation is also debated among different sectors. Many do not approve of allowing waste
pickers in dumpsite due to the health problems that it may pose and the disorganization
caused by their scavenging through garbage containers. There are also those who allow the
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waste pickers to do what they do to provide them a living instead of resorting to illegal
practices done by other members of the poor.
Waste Reduction
As a result of the ongoing industrialization and urbanization of Metro Manila, its
population demands more products from the industries, generating more potential wastes in
the process. It is now debated upon who should take the responsibility of making more
environmental-friendly choices: the industries who produce potential wastes (and generate
wastes in the process of manufacturing these) or the consumers who demand of the
production and development of these products.
SWM Plan formulation
The national government and local government units both formulate plans for the
implementation of SWM projects. But there is still the problem of which of them should
provide the SWM framework to specific cities/municipalities. Some people argue that the
national government should dictate the SWM projects to be implemented so that each area
complies to the same framework, making it easier for the cities to coordinate with each
other while others say that local government units should be the one to choose the methods
to be used so that these matches the economic/political state of the community and be
effectively carried out by the residents.
LGUs also do not allow the interference of MMDA in their SWM programs because it
is stated in RA 7924, the act regarding the creation of MMDA, that the agency is only given
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the task of overseeing metro-wide services within Metro Manila without trespassing on LGU
autonomy, (Navarro, 2003)
Dissemination of SWM information
SWM programs cannot be carried out if the expected actors do not have the
necessary knowledge on how to conform to these. It is still a problem, however, who should
be the main agent of the dissemination of SWM information and how it should be facilitated.
Institutions argue who should be held accountable of the peoples lack of awareness of the
SWM programs: the families (who should be teaching their children and serve as examples),
schools (who should be educating its students), the national government/agencies (who
should campaign the SWM provisions) or LGUs (who should monitor its areas compliance
with SWM policies)?
SUMMARY AND CONCLUSION
The following is a list that summarizes the existing problems that hinder the strict
implementation of SWM:
1. Lack of SWM awareness among Metro Manila residents
2. economic interests of private individuals/groups
3. lack of incentives and strict monitoring of the residents compliance with SWM
provisions
4. lack of willingness of residents to cooperate
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5. limitations in budget and technologies
6. inappropriate methods/technologies used
7. failure of the government and agencies to carry out their assigned tasks
Due to these factors, the implementation of Solid Waste Management is still not being
successfully carried out in most parts of Metro Manila. The existing solid waste disposal
facilities in Metro Manila are far from satisfactory, judging from the criticisms from
environmental watchdogs such as NGOs and the general reaction of Manileños as well as
people from surrounding towns to garbage dumps. There is also an over reliance on landfills
as a means of solid waste disposal. With further research, other technologies that are more
environmentally reliant and economically viable could be found. Examples of such
technology are those that are used in a modern sanitary landfill. (Navarro, 2003)
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Bennagen, e. a. (2002). Solid waste segregation and recycling in metro manila: household
attitudes and behavior.
Fernando, M. L. (2000). A study of solid waste management in greater Metro Manila and its
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