ADB EMB Solid Wastes Study

8/20/2019 ADB EMB Solid Wastes Study

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AEA Technology In Association With GlobalWorks • CalRecovery • ENR Consultants

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Republic of the PhilippinesDepartment of Environment and Natural ResourcesAsian Development Bank


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METRO MANILA SOLID WASTE MANAGEMENT PROJECT (TA 3848-PHI)

FINAL REPORT

REPORT No: 12

SECTOR COORDINATION

ANDINTERNATIONAL DONOR INTERVENTION

Project Team

Neil Varey, AEA Technology, Project DirectorLuis F. Diaz, CalRecovery, Inc., Technical Team Leader

Nick Allen, GlobalWorks, DisposalLevi Buenafe, GlobalWorks, Institutional

Horace Crowe, AEA Technology, InstitutionalLuis Diaz, CalRecovery, Inc., Medical Waste

Linda Eggerth, CalRecovery, Inc., Community AwarenessGrace Favila, ENR Consultants, Community Awareness

Manjit Kahlon, AEA Technology, Solid Waste

Roger Lopez, ENR Consultants, SocialAgnes Palacio, GlobalWorks, Financial

Richard Pook, AEA Technology, FinancialReynor Rollan, ENR Consultants, DisposalJoey Sta. Ana, GlobalWorks, Solid Waste

September 2003


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ADB TA 3848-PHI: Metro Manila Solid Waste Management Project Final Report

Sector Coordination & Donor Agency Report No: 12 AEA Technology

Table of Contents

EXECUTIVE SUMMARY..............................................................................................................................i

1.

Introduction.......................................................................................................................................... 1

2

Coordination and Advisory Support .................................................................................................... 1

2.1 Barangays and Community-Based Entities.................................................................................. 1 2.2

Local Government Units ............................................................................................................... 2

2.3

National Government Agencies.................................................................................................... 3

2.4 Civil Society .................................................................................................................................. 3 2.5

International Donor Agencies ....................................................................................................... 4

2.6 Medical Waste Management ........................................................................................................ 5 2.7 Recommendations........................................................................................................................ 5

3. International Donor Intervention.......................................................................................................... 6

3.1

Historical Perspective ................................................................................................................... 6

3.2 Current Initiatives ........................................................................................................................ 14 3.3

Future Intervention...................................................................................................................... 16


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Sector Coordination & Donor Agency Report No: 12 AEA Technology i

EXECUTIVE SUMMARY

This report summarizes coordination and advisory activities completed to facilitate TA and sectorprogress. International donor agency interventions in the Metro Manila solid waste management sectorover the past decade are also reviewed, and opportunities are identified for future donor support.

Coordination and Advisory Support

Coordination activities have supported a range of solid waste management initiatives, primarily tofacilitate development of key TA activities. These are summarized as follows;

Barangays and Community-Based Entities: Coordination support has been provided toimplement CBSWM program assessments, and develop the CBSWM Pilot Project AdvisoryFacility (CBSWM Facility)1. This has included; (i) field reviews of Metro Manila CBSWMschemes; (ii) facilitating barangay and NGO discussions; (iii) an initial CBSWM workshop withcivil society groups to discuss CBSWM opportunities and constraints and establish acoordination network; (iv) meetings with donor agencies involved in Metro Manila CBSWMinitiatives 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 Committeemeetings; (viii) attending major events such as a barangay national conference in support ofEarth Day, and a CBSWM seminar hosted by the Rotary Club of Metro Manila; (ix) assistingwith CBSWM Facility development including LGU meetings; and (x) developing the NSWMCwebsite as an important CBSWM coordinative and technical resource;

Local Government Units: Promoting the involvement and coordination of the 17 Metro Manilalocal government units (LGUs) through; (i) meeting senior officials of every Metro Manila LGU toencourage TA involvement and support; (ii) conducting an LGU survey; (iii) promoting LGUinvolvement through technical workshops, working group meetings2, field visits and meetings;(iv) conducting additional meetings plus a three-day extensive workshop program3 for the eightLGUs selected for additional assistance4; (v) providing additional technical support to LGUs

when requested; and (vi) promoting coordination of LGU operational personnel through theWaste Analysis and Characterization Studies (WACS).

National Government Agencies: Augmenting coordination between national agenciesincluding; (i) working alongside the NSWMC and Secretariat, and providing wide ranging adviceand specialist support; (ii) coordinating activities with other DENR departments, such as theForeign Assisted Special Projects Office (FASPO), the Environmental Management Bureau(EMB), the Public Affairs Office (PAO), and the Environmental Education and InformationDivision (EEID); (iii) assisting the Department of Health (DOH) in medical waste management 5;

1 ADB TA fund allocation to support pilot barangay CBSWM projects within Metro Manila.2 TA Working Groups included; (i) Information, Education and Communication; (ii) Technical Solid Waste Management;

(iii) Medical Waste Management; (iv) Institutional and Regulatory; (v) CBSWM; and (vi) Financial Management. 3 TA workshops included; (i) solid waste management issues and problems; (ii) medical waste management issues and

problems; (iii) issues in developing LGU 10-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 SolidWaste Management Plans; (vii) waste characterization study procedures for Metro Manila; (viii) description of selectedCBSWM facilities; (ix) materials recovery and recycling; (x) composting; (xi) sanitary landfills; (xii) financialarrangements for solid waste management; and (xiii) medical waste strategy development.

4 This initiative included; (i) guidance on solid waste management technologies; (ii) development of a solid wastemanagement 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.

5 DOH: member of the medical waste management and institutional and regulatory TA working groups.


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Sector Coordination & Donor Agency Report No: 12 AEA Technology ii

(iv) collaborating with the Metro Manila Development Authority (MMDA) on waste disposalassessment and strategy development and involving them in meetings, workshops and workinggroups6; (v) coordinating with and involving in workshops, working groups and meetings asnecessary the Department of the Interior and Local Government (DILG)7, the Department ofTrade and Industry (DTI)8; the Laguna Lake Development Authority (LLDA), the PhilippineInformation Agency (PIA)9, and the Department of Science and Technology (DOST)10; (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 Officeof the President11 on Metro Manila disposal issues.

Civil Society: Maintaining coordination with civil society groups through; (i) involvement in TAmeetings, workshops and presentations12; (ii) discussions with private-sector recycling,manufacturing and packaging representatives; (iii) discussions with members of the Solid WasteContractors Association of the Philippines (SWACAP)13; and (iv) meeting private-sectordumpsite operators and private sector groups currently proposing sanitary landfill solutions.The NSWMC website has also been developed which will improve civil society coordination andinformation access.

International Donor Agencies: Coordinative activities have included; (i) researching donor

agencies

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; (ii) coordination with sector-active international donor agencies throughout the TA;(iii) DENR-initiated donor coordination meetings to review current programs and highlight areaswhere further donor intervention could be beneficial; and (iv) maintaining close coordination withrelevant ADB departments in order to fully report and discuss TA and sector progress.

Medical Waste Management; Providing targeted coordinative support including; (i) assistingDOH and the Inter-Agency Committee on Environmental Health (IACEH)15 through advisorymeetings and planning sessions; (ii) providing technical and financial support for DOHworkshops; (iii) coordinating TA activities with the BOT Center of the Department of Trade andIndustry (DTI), the Philippine Hospitals Association (PHA) and the Philippine MedicalAssociation (PMA); (iv) actively involving DOH in TA meetings, workshops and working groups;(v) collaborating technical assistance with the World Health Organization (WHO)16; (vi)enhancing DOH operational personnel coordination through the conduct of a medical waste

characterization survey: (vii) liaising with Metro Manila medical institutions during theperformance of a medical waste generator survey; and (viii) meetings and discussions withprivate sector medical waste treatment and disposal service providers.

6 MMDA: member of the institutional and regulatory, IEC, CBSWM and financial management TA working groups.7 DILG: member of the IEC, institutional and regulatory, and CBSWM working groups8 The BOT Center of DTI: member of CBSWM, medical waste and financial management TA working groups.9 PIA: member of the IEC working group10 DOST: member of the CBSWM TA working group.11 Office of the Presidential Advisor for Strategic Projects (OPASP).12 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 TA13 SWACAP, which represents many of the Metro Manila waste collection and disposal contractors, also attended the

Solid Waste Treatment and Disposal workshop.14 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 InternationalDevelopment (DFID), Japan International Cooperation Agency (JICA), Australian Agency for InternationalDevelopment (AusAID), Canadian International Development Agency (CIDA), German Technical Cooperation (GTZ),Danish International Development Agency (DANIDA), and the development agencies of France and Austria.

15 The IACEH is a highly specialized technical committee convened to assist in medical waste management strategydevelopment and address key issues, including medical waste disposal.

16 World Health Organization, Environmental Health and Urban Development Division.


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Recommendations: The following coordination initiatives are recommended;

(i) Continuation of RA 9003 mandated national (NSWMC), metro-wide (Metro Manila SolidWaste Board) and local (LGU Solid Waste Board) meetings to maintain formalizedsector coordination;

(ii) Continuation of the TA working groups17 by the NSWMC Secretariat;

(iii) Continuation by the NSWMC Secretariat to coordinate LGU Plan development for theeight TA-assisted LGUs, followed by LGU Plan development for the other nine LGUs;

(iv) Progressive improvement, expansion and integration of the NSWMC website andencouragement to government stakeholders to immediately establish internet capability;

(v) NSWMC consideration of additional meetings to enhance sector coordination including;(i) a CBSWM quarterly workshop; (ii) a quarterly international donor meeting; (iii) aquarterly meeting with waste collection and disposal stakeholders; and (iv) a medicalwaste management coordination meeting in conjunction with DOH and IACEH.

International Donor Intervention

International donors have provided considerable financial investments and technical assistanceinitiatives to Metro Manila solid waste management. These initiatives are reviewed, and conclusionsare drawn regarding their success. Ongoing initiatives are also summarized, and opportunitiesidentified for further donor support.

Historical Perspective:

Progress (1990-91): The early 1990s marked a breakthrough in Metro Manila solid wastemanagement, with the opening of the World Bank funded San Mateo and Carmona regionalsanitary landfill facilities for Metro Manila waste. This represented a major step forward in solidwaste 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 laterthey both progressively degenerated to the point of forced closure.

Quiescence (1992-97): Metro Manila enjoyed a relatively quiescent time in solid wastemanagement, and apart from two major donor initiatives there was little donor activity. Theseinitiatives included; (i) DOH procurement of 26 medical waste incinerators and 36 microwave-disinfection units from the Austrian government; and (ii) solid waste management improvementsto Pasig River communities from DANIDA and ADB funded environmental rehabilitationprojects.

Decline (1998-99): By this time, standards at the Carmona and San Mateo facilities hadprogressively declined, public opposition had mounted, and ultimately the Carmona facility wasforced to close. Positive donor-led developments did occur in this period including; (i)completion of a toxic and hazardous waste project (European Union); (ii) commencement of twoprovincial development programs, the PRMDP and LGSP18, which included solid waste

17 Including; (i) Information, Education and Communication; (ii) Technical Solid Waste Management; (iii) Medical WasteManagement; (iv) Institutions and Regulatory; (v) Community Based Solid Waste Management; and (vi) FinancialManagement working groups.

18 The ADB and AusAID financed Philippine Regional Municipal Development Project (PRMDP) and Phase II of theCIDA- financed Local Government Support Program (LGSP).


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management; (iii) completion of the World Bank SWEEP project19; and (iv) completion of theJICA Masterplan20 which developed a Metro Manila masterplan for residual waste collection,transfer and disposal. The Clean Air Act was also enacted, severely restricting the thermaltreatment of waste. This was a serious development for DOH, who only two years previouslyhad purchased 26 incinerators, which along with other incinerators, are required to terminateoperations in mid-2003.

As the millennium drew to a close, Metro Manila solid waste management was plunged intocrisis. This was caused by the forced closure of the San Mateo facility in late 1999 due to localpublic opposition, resulting in an immediate deficiency in disposal capacity.

Crisis (2000-01): The disposal crisis hit suddenly, and rapidly reached serious and potentiallycatastrophic proportions. It placed tremendous pressure on the existing dumpsites toaccommodate the additional waste. To add to the tragedy, a catastrophic slide occurred at thePayatas Dumpsite (Quezon City) in July 2000 smothering an urban poor settlement area andkilling over 200 people.

The crisis seriously affected donor initiatives. The forced closure of Carmona and San Mateorepresented 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 therecommendations of the JICA Masterplan, and reportedly the European Union hazardous wastestudy were not implemented. Waste was piling up in the streets, there was heightened publicawareness and concern, and the entire sector was in a state of crisis. In addition, USAIDprovided technical support to assist with a major Government-led private sector procurementinitiative to rapidly secure a regional transfer and disposal system. Although this resulted in thesuccessful selection of a preferred bidder, this too was later curtailed due to legal impediment.This was certainly not the situation that the international donor community had expected, andnot one in which they were comfortable.

Aftermath (2001-03): Although Metro Manila still confronts serious residual waste disposaldeficiencies, the perceived level of overall concern has dropped considerably since 2000 dueprimarily 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 firsttime, provides an integrated approach to solid waste management. Following the crisis, therewas a virtual suspension of donor activities in the sector apart from the ongoing provincialprograms, although even the PRMDP has subsequently faced difficulties relating to solid wastecomponent implementation. Since late 2001 however, donor activity has again re-activated withseveral innovative projects currently being implemented21.

19 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.20 The Study on Solid Waste Management For Metro Manila In The Republic of the Philippines, Japanese InternationalCooperation Agency, 1999 (JICA Masterplan).

21 These include; (i) the USAID Philippine Environmental Governance Project (ECOGOV) providing technical assistancein solid waste management to 43 LGUs throughout Mindanao, the Visayas and northern Luzon; (ii) the JBIC EcologicalSolid Waste Management Plan Project (ESWMP) which is formulating LGU Plans in three provincial cities; (iii) theUNDP and JICA Community Based Ecological Solid Waste Management Project (CBESWMP) which is promotingCBSWM projects in at least 10 Metro Manila barangays; and (iv) this ADB TA. Recent donor initiatives also includeprovision of LGU-targeted loan facilities, supported by technical assistance and capacity building initiatives.


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Conclusions: The following conclusions are drawn from the events of the past decade;

(i) The crisis and subsequent ramifications could not have been reasonably foreseen bydonor agencies until the closure of Carmona in early 1998, by which time most of theprojects of the 1998-99 era were being developed;

(ii) Conventional donor loan assistance focusing exclusively on solid waste management

has not worked, and even a multi-sectoral project loan, which includes solid wastemanagement as part of an overall package, faces implementation difficulties;

(iii) Donor technical assistance to Government to facilitate private-sector procurement wasnot ultimately successful;

(iv) Bi-lateral donor intervention where solid waste is part of a development package hasbeen and continues to be perceived as successful. Examples include LGSP andECOGOV;

(v) Although there is a trend to promote solid waste sector development through donorfunded LGU loan facilities, few if any Metro Manila LGUs have utilized these facilities.

Donor success in facilitating private sector participation (PSP) in solid waste management has beenmixed. PSP already dominates in residual waste collection anyway, and future donor intervention inthis regard should re-focus towards operational improvement in terms of efficiency, accountability andtransparency. RA 9003 encourages PSP in recycling, and many donors provide small-scale grants,preferential loans and related technical assistance for CBSWM schemes. While these initiatives arevaluable, it is yet to be seen whether these pilots will be financially viable and economically sustainablefollowing termination of preferential donor funding, whether they can be successfully replicatednationally, and whether they can attract and retain PSP in the longer term. Indeed, the overall financialsustainability of recycling systems required by RA 9003 is yet to be determined, as is the necessity forany assistance initiatives to ensure PSP attractiveness. Donors could therefore greatly encourage PSPin the future by ensuring that CBSWM projects in which they are involved meet fundamental PSPrequirements.

Donors have also attempted to encourage PSP in solid waste disposal. For example, USAID throughthe CCPSP assisted MMDA to select a waste treatment and disposal system through a Build-Operate-Transfer procurement initiative. Although selection was successful, the initiative has not succeededdue to a legal restraining order. The JICA Masterplan and the World Bank SWEEP initiatives wouldalso have encouraged PSP if only Government had been able to implement them. In addition, it isreported that specialized funding modalities established by donors to support PSP initiatives are yet tobe utilized by the private sector.

Although the Government supports PSP in resolving the critical waste disposal issues, it is thepracticalities of project development that have prevented progress. A multitude of other private sectorwaste disposal initiatives have been proposed for Metro Manila, but practically every one of these hasbeen stalled due primarily to public opposition, and/or legal impediment. From past experiences, donor

agencies should therefore consider carefully any further initiatives in PSP promotion in waste disposal.

Recent Initiatives: As shown on Figure 2, the combined assistance being provided by currentinitiatives 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 societygroups. Many also have an RA 9003 focus, providing planning support including LGU Boardformulation and the preparation of LGU Plans, performing waste characterization assessments,promoting CBSWM, and developing public awareness initiatives.


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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 fundingis being provided, particularly for CBSWM initiatives. Although not shown on the figure, additionalprojects 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 tomedical waste, solid waste management planning, RA 9003 implementation, LGU Plan development,

waste characterization, public awareness and IEC, and CBSWM, waste collection and waste disposalsystems and facility development. Additional donor initiatives are also being planned for the sector forlater in 2003. These include another integrated solid waste management program for LGUs in RegionsVI, VII and VIII (GTZ), and the provision of a technical advisor to the NSWMC Secretariat (JICA).

Recommendations: Existing donor outputs should be thoroughly collated, integrated and distributednationwide to national agencies, LGUs, barangays, civil society and other stakeholders. This entireinformation collection should be collated with other donor-based information and uploaded directly ontothe 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 byDENR 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 2, donors can deliver further valuable support in many areas. This is particularlyrelevant for Metro Manila, and this TA Final Report package contains specific recommendations forvarious sub-sectors where future donor intervention can provide significant outputs and impacts.

With regard to future ADB assistance, it is firstly important that the results and outputs of this TA bemonitored in the short-term to ascertain their level of effectiveness and impact on the sector. Theseinclude for example; (i) the success of the pilot CBSWM projects in the selected LGUs which have beenfunded through the Pilot Project Advisory Facility of the TA; (ii) the continued formulation andimplementation of the LGU Solid Waste Management Plans for selected LGUs, which have beeninitiated as an integral part of the TA; (iii) implementation of the waste disposal improvement strategy,including the Short-Term Improvement Program which is recommended for immediate implementation;

(iv) the medical waste management recommendations; (v) progress with public awareness and IECinitiatives; (vi) improvements to national, metro-wide and local solid waste management institutions andboards; and (x) implementation of the sector coordination recommendations.

Due to the relative volatility of the sector, particularly in regard to waste disposal, it is important to alsomonitor other events and their potential impact to the sector. This is important in relation to overallnational developments, such as the upcoming national elections in mid-2004, and also to sector-specificdevelopments, such as the progress of sector institutions to build capacity and receive adequatefunding with which to operate.

As a progression to this advisory TA, existing ADB proposals potentially include a loan to theGovernment of the Philippines in 2005, in the provisional amount of US$ 50 million, to assist with MetroManila solid waste management improvements. This loan facility could be utilized to support one or avariety of Government improvement initiatives as initially defined by this TA, potentially relating toCBSWM, waste disposal and/or medical waste management. In this regard, it is necessary for relevantGovernment entities to further develop these initiatives in the short-term, in order to allow adequateappraisal and subsequent loan packaging by ADB. Additional advisory or project preparatory technicalassistance has not been assigned to this sector at this time.


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Sector Coordination & Donor Agency Report No: 12 AEA Technology 1

1. Introduction

This report summarizes coordination and advisory activities completed as an integral part of thetechnical assistance (TA)22. These activities have facilitated progress in key areas of the solid wastemanagement sector throughout the performance of the TA, particularly in relation to supporting andpromoting TA terms of reference (TOR) initiatives. Section 2 of this report summarizes the primary

coordinative activities performed.

Previous, present and proposed (future) interventions of international donor agencies in the solid wastemanagement sector have also been evaluated both for Metro Manila and for the Philippines in general.This includes a review of past interventions, evaluation of ongoing sector initiatives, and theidentification of opportunities where donor assistance could provide valuable support in the future.Discussion of donor intervention is provided in Section 3.

2 Coordination and Advisory Support

Targeted TA coordination support has been provided to a range of solid waste management sub-

sectors, primarily to facilitate development of key TOR activities

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. These relate to initiatives in wastemanagement planning, waste minimization and recycling, waste collection and transfer, waste disposaland medical waste management, and also to facilitate capacity building and training for key institutions.Coordinative activities conducted are summarized as follows.

2.1 Barangays and Community-Based Entities

A primary objective of the TA is to promote sustainable community-based solid waste management(CBSWM) initiatives for Metro Manila. This is being accomplished through the completion of a CBSWMprogram assessment and the selection of pilot CBSWM projects for TA financial assistance. Theseactivities will significantly enhance the development and implementation of CBSWM initiativesthroughout Metro Manila, and are designed to compliment other local and international-donorsponsored programs.

Coordination activities have supported the TA objectives. Initially, field reviews were performed ofselected CBSWM schemes in Metro Manila, and detailed discussions held with barangays, NGOs andother groups involved in CBSWM. An initial CBSWM workshop was then convened to bring togethervarious civil society groups to discuss opportunities and constraints relating to CBSWM and establish acoordination network. Coordination meetings were also held with international donor agencies involvedin CBSWM24 to ensure that the proposed TA activities complimented other Metro Manila CBSWMprograms.

Subsequent support has promoted the involvement of environmentally-based NGOs throughout the TAduration through meetings, seminars and working groups. In addition, technical workshops havefocused on CBSWM initiatives, and community-based approaches have been a focus of Technical

Working Group (TWG) and TA Steering Committee meetings. The TA team has also been active withother coordinative tasks, including for example attending major events on behalf of the TA such as a

22 Asian Development Bank TA 3848-PHI: Metro Manila Solid Waste Management Project (MMSWMP).23 The TA has been performed in full compliance with ADB procedures and protocols.24 This included meetings with the United Nations Development Program (UNDP) to coordinate TA activities with the

ongoing Japanese funded 3-year Community-Based Ecological Solid Waste Management Program (CBESWMP)being implemented by the Metro Manila Development Authority (MMDA) and UNDP. Discussions were also held withthe United States Asian Environmental Partnership (USAEP) and the United States Agency for InternationalDevelopment (USAID) who were also considering CBSWM program initiatives within Metro Manila.


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2.3 National Government Agencies

The TA team has worked closely with the NSWMC and Secretariat throughout the TA, and providedcoordinated advice and specialist support across a wide range of sector development activities. The TAhas provided strategic-level advice in many areas of solid waste management, including for examplewaste management planning, waste characterization, IEC, CBSWM initiative development and wastedisposal regulatory enforcement In addition, the TA team has provided specific technical assistance asrequested by the Secretariat, such as to provide specialist technical reports on waste disposal sites,advice on composting, attendance at meetings and hearings, assisting to prepare media releases, plusother assistance initiatives29. The team has also endeavored to provide coordinated assistance to otherDENR departments, such as the Foreign Assisted Special Projects Office (FASPO), the Public AffairsOffice (PAO) and the Environmental Education and Information Division (EEID). The EnvironmentalManagement Bureau (EMB) has also been actively involved in meetings and workshops, and several ofthe EMB regional officers have attended workshops.

As described later, the TA team has worked closely with the Department of Health (DOH)30 who is theTA medical waste management implementing agency. The TA has also strived to involve other nationalagencies throughout the TA, and coordinate their activities with those of the TA. These agencies haveincluded the Metro Manila Development Authority (MMDA), which has been extensively involved in

meetings, workshops and working groups31

, particularly relating to CBSWM, institutional and regulatory,financial and waste collection and disposal aspects. MMDA officials have also provided valuableassistance in the performance of TA activities, particularly regarding waste disposal assessment anddevelopment.

The Department of the Interior and Local Government (DILG) has also been involved in workshops,meetings and working groups32 focusing on IEC and community-based approaches. Other nationalagency involvement includes; (i) the Department of Trade and Industry (DTI) who attended several ofthe workshops and have been active in the working groups33; (ii) the Laguna Lake DevelopmentAuthority (LLDA) who attended workshops relating to technical aspects; (iii) the Philippine InformationAgency34 (PIA) who provided significant input into IEC plan development; and (iv) the Department ofScience and Technology (DOST) who attended several of the workshops and one working group35.

Members of the team have also attended meetings of the NSWMC and Metro Manila Solid WasteManagement Board. They have also held discussions with the League of Cities and League ofMunicipalities, and both these organizations are members of the institutional and regulatory TA workinggroup. Sector advice has also been provided to the Office of the President36 in relation to Metro Manilasolid waste disposal constraints, and future development requirements.

2.4 Civil Society

Throughout TA implementation, coordination has been maintained with numerous civil society groups,and many groups have been involved in the TA meetings, workshops and presentations. NGOsinvolved in CBSWM have provided valuable assistance in the conduct of community-based activitiesthroughout the TA, including their assistance to develop the IEC strategy of the TA. Although of a less

formal nature, discussions have also been held with many private sector recycling organizations and a29 Including an invitation to an ADB-organized seminar: A Diagnostic Approach to Assessing Public Sector

Organizations, October 2002.30 DOH: member of the medical waste management and institutional and regulatory TA working groups.31 MMDA: member of the institutional and regulatory, IEC, CBSWM and financial management TA working groups.32 DILG: member of the IEC, institutional and regulatory, and CBSWM working groups33 The BOT Center of DTI: member of CBSWM, medical waste and financial management TA working groups.34 PIA: member of the IEC working group35 DOST: member of the CBSWM TA working group.36 Office of the Presidential Advisor for Strategic Projects (OPASP).


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survey has been completed of major junkshops. Discussions have also been held with representativesof the manufacturing and packaging industries. Civil society coordination, cooperation and access toinformation has also been greatly enhanced through the initiation of the NSWMC website, which shouldultimately provide civil society access to a wealth of information, and represents another valuableelectronic communication portal for civil society and other groups37.

Regarding waste collection and disposal, the TA has held discussions with members of the Solid Waste

Contractors Association of the Philippines (SWACAP)38. The TA team has also met with most of theprivate-sector organizations operating the Metro Manila dumpsites, and with private sector groups whoare currently proposing sanitary landfill solutions. This has provided valuable information on existingprivate sector operations, and also allowed these organizations to learn of other activities in the sector.

The TA has also gained media attention, and several articles have been published in metro-widenewspapers. These have included articles regarding the objectives and achievements of the TA, andspecifically regarding LGU Plan development and waste characterization assessments.

2.5 International Donor Agencies

TA coordination activities have included research of international donor agencies39, and specifically

those who are currently active or were previously active in the waste management sector. Theassistance provided by these donor agencies over the past decade is considerable40 and has includedsupport in virtually every facet of solid waste management. Currently, there are several ongoing donorfunded initiatives relating to solid waste management, and emphasis has been placed wherepracticable to coordinate relevant areas of the TA with these programs. In addition, DENR hasconvened several pioneering donor coordination meetings with primary solid waste management donoragencies. Progress has been achieved in these meetings in order to review current programs andhighlight areas where further donor intervention could be beneficial. Details are provided in Section 3.

Through regular discussions and meetings, close coordination has also been maintained with relevantADB departments in order to fully report and discuss TA and sector progress. The TA has alsosuccessfully utilized information and findings from previous sector interventions funded by donoragencies. Notable examples include the JICA Masterplan41 (providing useful solid waste managementplanning and WACS information), WHO (providing medical waste management data), and the WB(including their Philippines Environmental Monitor, Solid Waste, 2001).

37 Other web-based tools include the website of the Solid Waste Management Association of the Philippines (SWAPP).38 SWACAP, which represents many of the Metro Manila waste collection and disposal contractors, also attended the

Solid Waste Treatment and Disposal workshop.39 Including Asian Development Bank (ADB), World Bank (WB), United Nations Development Program (UNDP), WorldHealth Organization (WHO), European Union (EU), USAID, USAEP, United Kingdom Department for InternationalDevelopment (DFID), Japan International Cooperation Agency (JICA), Australian Agency for InternationalDevelopment (AusAID), Canadian International Development Agency (CIDA), German Technical Cooperation (GTZ),Danish International Development Agency (DANIDA), and the development agencies of France and Austria.

40 Includes institutional strengthening and reform, governance, financial analysis, capital investment, capacity buildingand training, CBSWM development and implementation, medical waste management, operational assistance,industrial and hazardous waste management, environmental planning, and environmental remediation.

41 The Study on Solid Waste Management For Metro Manila In The Republic of the Philippines, Japanese International

Cooperation Agency, 1999 (JICA Masterplan).


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2.6 Medical Waste Management

Medical waste treatment and disposal is an urgent issue42, and this has been fully recognized by DOHand other agencies. In response, the DOH through the Environmental and Occupational HealthDepartment established the Inter-Agency Committee on Environmental Health (IACEH), a highlyspecialized technical committee convened to assist in medical waste strategy development and addresskey issues, including medical waste disposal. Throughout the TA, the TA team has therefore focusedmedical waste technical assistance to help DOH and the IACEH address key issues and develop amedical waste strategy for Metro Manila43. This has included advisory meetings and planning sessionswith senior officers of the DOH and IACEH, and the provision of technical and financial support for DOHworkshops. The team has also coordinated activities with the BOT Center of DTI, the PhilippineHospitals Association (PHA) and the Philippine Medical Association (PMA). DOH have also beenactively involved in TA activities, including attendance at workshops and working groups.

Throughout the TA, coordination has also been maintained with the World Health Organization (WHO)44 in order to collaborate TA advisory assistance with ongoing WHO assistance. The TA team has alsostrived to improve cooperation and coordination between other medical waste stakeholders. Thisincludes; (i) enhancing the coordination of DOH operations personnel through the conduct of a medicalwaste characterization survey: (ii) liaising with medical institutions within Metro Manila during the

performance of a medical waste generator survey; and (iii) meetings and discussions with private sectorwaste treatment and disposal service providers.

2.7 Recommendations

As discussed above, the solid waste management sector includes a wide range of government andnon-governmental stakeholders, and throughout the TA, emphasis has been placed on optimizing thecoordination and involvement of sector stakeholders wherever possible. The TA has also identifiedseveral priority sector coordination initiatives which greatly enhance sector development. These aresummarized as follows, and it is recommended that they be initiated and / or continued;

(i) As mandated in RA 9003, the continued regular meetings at the national level(NSWMC), metro-wide level (Metro Manila Solid Waste Board) and LGU level (City andMunicipal Solid Waste Boards) are crucial to maintain formalized sector coordination;

(ii) The working groups initiated during the TA45 should be continued by the NSWMCSecretariat, as these provide a valuable mechanism for relevant stakeholders tocoordinate, discuss and promote improvements in key sector areas;

(iii) The progress achieved by the eight selected LGUs in the preparation of LGU Plansindicates that this initiative should be continued through additional discussions,meetings and workshops hosted by the NSWMC Commission, and this should beexpanded to include the remaining nine Metro Manila LGUs at the soonest possibletime;

42

Although medical waste collection, segregation, storage and transfer deficiencies are significant, medical wastetreatment and disposal issues are serious and immediate. Only a portion of Metro Manila medical waste receivestreatment, primarily through incinerators operated by government and the private sector. As a result of the Clean AirAct, these incinerators are required to terminate operation during mid 2003, leaving the entire sector without adequatetreatment and disposal.

43 Presented in the TA Medical Waste Management Report.44 World Health Organization, Environmental Health and Urban Development Division.45

Including; (i) Information, Education and Communication; (ii) Technical Solid Waste Management; (iii) Medical WasteManagement; (iv) institutions and Regulatory; (v) Community Based Solid Waste Management; and (vi) FinancialManagement working groups.


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(iv) The NSWMC website should be progressively improved, expanded and integrated withother websites to ultimately include a wealth of solid waste management informationrelating to Metro Manila, and to provide a useful communication portal for a wide varietyof stakeholders. In addition, government stakeholders and particularly Metro ManilaLGUs should be encouraged to establish internet capability at the soonest time;

(v) The NSWMC should consider enhancing stakeholder coordination through additionaltargeted meetings to be held periodically with key groups, as follows;

(a) A CBSWM quarterly workshop involving a wide range of active barangays,NGOs and private sector recycling entities in order to review progress andcoordinate proposed activities;

(b) A quarterly international donor meeting with interested donors in order tocontinue progress achieved at the recent donor meetings;

(c) A quarterly meeting on Metro Manila waste collection and disposal in order tobring together government agencies, private-sector waste collection and

disposal organizations and civil society groups to discuss future solutions forMetro Manila waste disposal; and

(d) In conjunction with DOH and the IACEH, convene regular meetings with relevantgovernment agencies and stakeholders to review progress in resolving medicalwaste management issues, particularly relating to medical waste disposal.

3. International Donor Intervention

Over the past decade, international multi-lateral and bi-lateral donors have invested significantly in theMetro Manila solid waste management sector. This has included major financial investments andtechnical assistance initiatives across a wide range of sector activities by over a dozen of the primarymulti-lateral and bi-lateral international donors. In addition, there have been a multitude of other paralleldonor initiatives which have provided indirect assistance over this period46. This section reviewsprevious initiatives for Metro Manila and provincial areas, and draws conclusions regarding the successof these initiatives. Ongoing donor initiatives are also reviewed, and opportunities are identified wheredonor assistance could provide valuable support in the future for Metro Manila.

3.1 Historical Perspective

Figure 1 provides a summarized chronology of principal donor intervention in solid waste managementover the past decade. This is shown alongside the major events in the sector over this period. Figure 2provides additional information on many of these interventions.

46 This includes for example donor assisted initiatives in industrial waste and cleaner production, including; (i) theIndustrial Efficiency and Pollution Control Project, sponsored by the Metropolitan Environmental Improvement Program(MEIP), World Bank; (ii) a Cleaner Production program sponsored jointly between the MEIP and the United StatesTrade and Development Agency; (iii) a UNIDO technical assistance project on lead-acid battery disposal; and (iv) ahazardous waste survey conducted by JICA.


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FIGURE 2SUMMARY OF PRIMARY INTERNATIONAL DONOR INTERVENTIONS

Metro Manila Solid Waste Management Project(MMSWMP)DENR - ADB (2002-03)

Technical Assistance (US$ 1.5 Million)

Integrated planning, design, training, and implementation assistance tostrengthen Metro Manila solid and medical waste management. Includesfive key components;

i. RA 9003 capacity building including LGU Plan developmentassistance, waste characterization assessments, funding of pilotCBSWM projects, formulation of model CBSWM guidelines;

ii. Medical waste sector review, training, IEC, technologyassessment, formulation of a sector-wide improvement strategy;

iii. RA 9003 national agency support including institutional capacitybuilding, media outreach and website initiatives;

iv. Waste disposal assistance including sector review, formulatingshort-term improvements, assisting in longer-term planning; and

v. Providing coordination and advice.

Community Based Ecological Solid WasteManagement Project (CBESWMP)MMDA – UNDP – JICA – Australia (2002-05)Technical Assistance (US$ 0.3 Million)

Three-year community based technical assistance project to promoteCBSWM in at least 10 Metro Manila pilot barangays, including;(i) Establishment of CBSWM infrastructure, mechanisms and

institutional arrangements;(ii) Implementation capacity building and IEC; and(iii) Formulation of CBSWM guidelines and templates for replication.

Ecological Solid Waste Management Plans (ESWMP)DENR – JBIC (2002-03)Technical Assistance

Formulation of LGU Plans for Munoz City, Legaspi City and Butuan.

Local Government Support Program (LGSP)DILG – NEDA - CIDA (1999-2005)Technical Assistance (US$ 20 Million)

Technical assistance for over 200 LGUs in seven regions of the Visayas,Mindanao and ARMM to build capacity and implement developmentprojects. During 2000-02, solid waste management interventions includedorientations and workshops, rapid waste appraisals, LGU Plan assistance,LGU Board formation, capacity needs analyses, waste characterizationsupport, and IEC activities

Philippine Environmental Governance Project (ECOGOV)DENR – USAID (2001-04)Technical Assistance (US$ 15 Million)

Three-Year LGU demand-driven program to improve environmentalgovernance. Resources are focused in Mindanao (50 percent), theVisayas (35 percent) and Northern Luzon (15 percent). Solid wastemanagement assistance is being provided to 43 LGUs including;

(i) Stakeholder orientation;(ii) LGU Board establishment;(iii) Waste management planning and formulation of priority actions;(iv) Waste characterization;(v) LGU Plan development;(vi) Public awareness, including formulation of a RA 9003 primer;(vii) Inventory and characterization of industrial wastes; and(viii) Assistance with dumpsite closure and rehabilitation, and sanitary

landfill development for Cotabato City and possibly other LGUs.

Biomedical Waste Treatment and Disposal Options in thePhilippines (2002)USA Trade & Development Agency

To provide the EMB with information regarding technologies that wouldtreat health care wastes properly and comply with the Clean Air Act

Medical Waste Management Technical Assistance(Various)DOH – WHO (1995-2003), Technical Assistance

Medical waste advisory technical assistance to DOH, DENR and otheragencies. This assistance has included medical waste treatment anddisposal technologies.

San Mateo Disposal Facility Closure AssessmentMMDA – Government of Finland (2000)Technical Assistance

Technical evaluation and conceptual closure plan for the closure and post-closure maintenance of the San Mateo Disposal Facility, Rizal.

Philippine Regional Municipal Development Project(PRMDP)DILG – ADB – Government of Australia (1998-2003)Loan (Over US$ 30 Million)

Joint ADB and Australia municipal infrastructure development project forsix provincial cities. Includes the provision sanitary landfill facilities forPuerto Princessa and Tagbilaran, equipment for Puerto Princessa andGeneral Santos, institutional development programs and development ofsystems and manuals. The project is facing difficulties in theimplementation of these solid waste management components.


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FIGURE 2SUMMARY OF PRIMARY INTERNATIONAL DONOR INTERVENTIONS (CONTINUED)

Solid Waste Ecological Enhancement Project (SWEEP)PTFWM - DENR – World Bank (1998-2000)

Technical Assistance (US$ 1.5 million)

Project preparatory technical assistance to formulate a US$ 55 millionloan package for solid waste management improvements for seven

selected LGUs in intermediate cities. The proposed package included;(i) Demonstration sub-projects including capital investments in

system facilities and equipment, dumpsite closure andrehabilitation and institutional capacity building technicalassistance;

(ii) Institutional strengthening at the national level through nationalpolicy enhancement, development of technical guidelines, trainingand capacity enhancement in contract procurement andmanagement; and

(iii) Formulation of a social and ecological support program for thesocial rehabilitation of waste pickers, micro-financing for wastepickers and city-specific activities to promote recycling and publicawareness.

The project has subsequently been dropped.

Waste Management Procurement Technical SupportMMDA – CCPSP - USAID (1999)Technical Assistance (US$ 0.1 Million)

Provision of technical consultants to assist the Government in theformulation and implementation of a major waste treatment and disposalBuild-Operate-Transfer procurement process for Metro Manila. Althoughthe procurement process resulted in the selection of a preferred bidder,the initiative stalled due to issuance of a restraining order. Governmenthas declined to proceed with the initiative.

The Study on Solid Waste Management For Metro Manilain the Republic of the Philippines (JICA Masterplan)MMDA – JICA (1997-99)Technical Assistance

Major technical assistance project resulting in the development of aMetro Manila solid waste masterplan. The project focused on theevaluation of alternatives and selection of a preferred waste transfer,treatment and disposal system comprising transfer stations, onshore andoffshore sanitary landfills and an offshore incinerator complex. Themasterplan recommendations were not implemented, reportedly dueprincipally to public opposition at the disposal sites and enactment of theClean Air Act.

Establishment of SWAPP and Training ActivitiesUSAEP (1997-2003)

Technical Assistance

USAEP has actively supported the sector since the mid 1990s including;(i) assistance to establish the Solid Waste Association of the Philippines

(SWAPP) in 1998; (ii) integrated solid waste management training(2000); (iii) financial assistance to develop a resource center, trainingmodules and a database (2000); (iv) supporting the SWAPP annualconference (2001-02); and (v) in conjunction with civil society, developinga technical design manual for solid waste management-friendly buildings(2003).

Toxic and Hazardous Waste Management StudyDENR – EU – World Bank (1997-98)Technical Assistance

A comprehensive assessment of toxic and hazardous wastemanagement in the Metro Manila and CALABARZON regions resulting inrecommendations for waste minimization and recycling.

Pasig River Environmental Management and RehabilitationPRRC – DENR – ADB – DANIDA (1994-2003)Technical Assistance

Major environmental improvement programs for the Pasig River systemfunded by DANIDA and later by ADB, and both included technicalassistance to improve solid waste management within riversidecommunities and provide support to CBSWM.

Medical Waste Equipment Loan

DOH - Austrian Government (1996-97)Loan (US$ 20 Million)

Austrian government aid package to supply 26 incinerators and 36

microwave-disinfection units to DOH for the treatment of medical wastein government medical facilities. Reportedly, the incinerators have onlylimited air pollution control equipment, and will become obsolete in mid-2003 due to the Clean Air Act.

Solid Waste Disposal Facility LoanDPWH – World Bank (1990-91)

World Bank funding for the development of the Carmona and San Mateodisposal facilities. Reportedly, although both facilities were initiallydesigned, constructed and operated to appropriate standards, in lateryears these standards diminished, resulting in the forced suspension ofoperations at both facilities due to public opposition.


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Progress (1990-91)

The beginning of the 1990s marked a breakthrough in Metro Manila solid waste management, with theopening of the World Bank funded San Mateo and Carmona sanitary landfill facilities. Prior to this, themetropolis had only operated dumpsites, including the internationally infamous Smokey Mountain47.Carmona and San Mateo were designed to accommodate the majority of Metro Manila waste in themedium-term, and in the early days, both facilities were reportedly designed, constructed and operated

to appropriate environmental standards. This initiative represented a major step forward in solid wastemanagement, and a major achievement for the Government and the World Bank. For the remainder ofthe decade, both facilities continued to operate, but as described later they both unfortunatelydegenerated to the point of forced closure.

Quiescence (1992-97)

In the interim, Metro Manila enjoyed a relatively quiescent time in solid waste management, with SanMateo and Carmona handling Metro Manila waste disposal in conjunction with several major MetroManila dumpsites, notably Payatas (Quezon City) and Catmon (Malabon). Apart from two majorinitiatives, there was little donor activity in the sector. One initiative was the procurement of medicalwaste treatment equipment by DOH from the Austrian government through a preferred loan facility

(1996-97). The procurement included 26 incinerators and 36 microwave-disinfection units for thetreatment of medical waste in government medical facilities throughout the Philippines. During thisperiod, there was also significant international donor activity in the Pasig River environs, with majorprograms by DANIDA and the ADB on the rehabilitation of the river system. These projects includedimprovements in solid waste management within communities situated along the banks of the riversystem, focusing primarily on improving waste collection and transfer within the high-density, lower-income urban areas, and reducing the incidence of river dumping.

Decline (1998-99)

During this time also, the design, construction and operation standards at the Carmona and San Mateofacilities gradually degraded as successive phases of the facilities were developed. This resulted inmounting public opposition to the continuation of the facilities as regional disposal facilities, culminating

firstly in the forced closure of the Carmona facility during early 1998. This event immediately putpressure on the San Mateo facility and active dumpsites to accommodate the additional waste.Although not fully realized at the time, this event also set in motion the near-catastrophic collapse of thesolid waste system in early 2000.

Although Metro Manila was heading for a crisis, positive donor-led developments did occur in the 1998-99 period. These included the completion of a major toxic and hazardous waste project financed by theEuropean Union, the establishment of the Solid Waste Association of the Philippines (SWAPP) primarilythrough the assistance of USAEP, and the commencement of two major provincial developmentprograms which included solid waste management, namely the PRMDP and LGSP48.

Both the PRMDP and the LGSP targeted and continue to target assistance at provincial LGUs.PRMDP is providing municipal infrastructure development for six LGUs, including sanitary landfill

facilities (SLFs) for Puerto Princessa and Tagbilaran, and solid waste management equipment forPuerto Princessa and General Santos. LGSP is providing technical assistance for over 200 LGUs inseven regions of the Visayas, Mindanao and ARMM to build capacity and implement developmentprojects. Solid waste management interventions include orientations and workshops, rapid waste

47 The Smokey Mountain dumpsite was a large dumpsite located in the City of Manila adjacent to the port area.48 The ADB- and AusAID- financed Philippine Regional Municipal Development Project (PRMDP) and Phase II of the

CIDA- financed Local Government Support Program (LGSP).


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The crisis also placed tremendous pressure on the existing dumpsites within the metropolis. Thismanifested in a catastrophic slide at the Payatas Dumpsite (Quezon City) in July 2000, whichsmothered an urban poor settlement area killing over 200 people.

The crisis also had significant ramifications for donor initiatives in the sector. Firstly, Carmona and SanMateo, the two flagship regional disposal facilities funded by the World Bank in the early 1990s wereforced into closure. This represented a needless and tragic waste of municipal infrastructure, and one

on which the Philippines continues to service the debt. Secondly, several of the major donor initiativesculminated in the 1998-99 period were terminated, apparently due to Government inaction due to thecrisis. These included the World Bank SWEEP project, which was dropped, and the recommendationsof the JICA Masterplan, which were not implemented. Reports also indicate that the European Uniontoxic and hazardous waste study recommendations were also not implemented.

In summary therefore, the World Bank-funded regional disposal facilities of Carmona and San Mateohad to suddenly terminate operations, the Austrian-funded incinerators for medical waste treatment arerequired to terminate operations in 2003, the World Bank SWEEP project was canceled, therecommendations of the JICA Masterplan for Metro Manila and the European Union hazardous wasteproject were not implemented, a catastrophic slide killed 200 urban poor people at a dumpsite inQuezon City, waste was piling up in the streets, there was heightened public awareness and concern,

and the entire sector was in a state of crisis. This was certainly not the situation that the internationaldonor community had expected, and not one in which they were comfortable.

To add to this list, USAID also provided technical support to assist with a major Government-ledprocurement initiative to rapidly secure a regional transfer and disposal system. Although this resultedin the successful selection of a preferred bidder, this too was later curtailed due to legal impediment,thereby joining the long line of unsuccessful PSP initiatives of that time, as discussed in the WasteDisposal Report.

Aftermath (2001-03)

Although Metro Manila still confronts serious residual waste disposal deficiencies as discussed in theWaste Disposal Report, the perceived level of overall concern has dropped considerably since 2000

due primarily to the development of several hastily-conceived dumpsites within the metropolis. Thesector 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.

As shown on Figure 1, there is a gap in donor sector intervention between the commencement of thecrisis in early 2000 and late 2001. Since late 2001 however, donor activity has again re-activated withseveral innovative projects currently being implemented in the sector. These include; (i) ECOGOV(USAID) providing technical assistance in solid waste management to 43 LGUs throughout Mindanao,the Visayas and northern Luzon; (ii) ESWMP (JBIC) which is formulating LGU Plans in three provincialcities; (iii) MMESWMP (JICA through the UNDP) which is promoting CBSWM projects in at least 10Metro Manila barangays; and (iv) this ADB TA, which provides technical support to Metro Manila at thenational and local level through RA 9003 implementation support, capacity building, training,institutional development, and target assistance to the residual waste disposal and medical waste

management sub-sectors.

Recent donor initiatives also include the development of LGU-targeted loan facilities, examples of whichare shown later on Figure 4. These facilities are designed to promote sector development through theprovision to LGUs of loan funds and supporting technical assistance and capacity building initiatives.


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Conclusions

The following conclusions are drawn from the events of the past decade;

(i) The crisis and subsequent ramifications could not have been reasonably foreseen bydonor agencies until the closure of Carmona in early 1998, by which time most of theprojects of the 1998-99 era were being developed;

(ii) Conventional donor loan assistance focusing exclusively on solid waste managementhas not worked. The Carmona and San Mateo initiative resulted in system degradationto the point of forced facility closure. Imminent regulatory mandates will soon result inthe termination of the donor-funded medical waste incinerators. The SWEEP project,which proposed a loan for provincial solid waste management, was recently terminated.And the JICA Masterplan, which proposed an upgraded system for Metro Manila, wasnot implemented. In addition, even the PRMDP, a multi-sectoral project loan whichincludes solid waste management as part of an overall package, faces implementationdifficulties;

(iii) Donor intervention to assist the Government to facilitate a private-sector procurement

initiative in Metro Manila waste transfer and disposal system development has notultimately been successful due to subsequent legal impediment;

(iv) Bi-lateral donor intervention where solid waste is part of a development package hasbeen and continues to be perceived as successful. Examples include LGSP andECOGOV;

(v) There is a current trend to promote solid waste sector development through theprovision of LGU loan facilities (Figure 4). However, few if any Metro Manila LGUs haveutilized these or other donor-led facilities for solid waste management initiatives.

It is also important to emphasize that the success of donor technical assistance to facilitate privatesector participation (PSP) in solid waste management has been mixed. The primary reasons for this

can be explained through a brief review of the principal components of the Metro Manila solid wastemanagement system.

Firstly, as discussed elsewhere in the TA report package, residual waste collection in Metro Manila islargely performed by the private sector, through individual collection contracts with LGUs. Theremaining LGUs, which currently operate their own collection systems, either have little desire tooutsource their operations, or are independently considering outsourcing as an option. There appearslittle need therefore for further donor intervention to encourage PSP in collection as PSP is alreadyprevalent, and any future donor intervention should focus on operational improvement in terms ofefficiency, accountability and transparency.

Over the past decade, there has been a tremendous growth in informal recycling in Metro Manila,culminating in the establishment of hundreds of recycling “junk shops”, several large consolidators and

thousands of informal waste pickers and collectors. This entire sub-sector has evolved almostexclusively as a private sector phenomenon, driven primarily through the economic advantages ofwaste recycling. Until recently, Government has had little involvement in this informally-based sub-sector, and neither have the donor agencies.

As mandated by RA 9003, there is however a tremendous need to facilitate PSP in the formalizedrecycling sub-sector, and in this regard there are donors currently involved in recycling, primarily inCBSWM schemes at the community level. Many of these donor interventions are based on small-scale


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grants and preferential loans, where a particular donor agency is funding pilot-type community projectsand providing other assistance to selected LGUs and barangays. While these initiatives provide avaluable contribution, it is yet to be seen whether these pilots will be financially viable and economicallysustainable following termination of preferential donor funding, whether they can be successfullyreplicated nationally, and whether they can attract and retain PSP. Indeed, the overall financialsustainability of recycling systems required by RA 9003 is yet to be determined, as is the necessity ofany assistance initiatives to ensure PSP attractiveness. Donors could therefore greatly encourage PSP

in the future by ensuring that CBSWM projects in which they are involved meet fundamental PSPrequirements.

It is in the waste disposal sub-sector where donors have invested significantly to attempt to encouragePSP. This is highlighted in (iii) above, where considerable technical assistance was provided by USAIDto the MMDA through the CCPSP in order to assist in the formulation and implementation of a majorBuild-Operate-Transfer procurement initiative to select a preferred regional waste treatment anddisposal system for Metro Manila. Although a system was eventually selected, the Government hassubsequently been unable to proceed with the initiative due to a legal restraining order. Other initiativeshave also attempted to support PSP in waste disposal, although less directly. These include the JICAMasterplan and the World Bank SWEEP, which would most likely have encouraged PSP in solid wastedisposal if only Government had been able to implement them. In addition, specialized funding

modalities to support the financing of private sector solid waste management projects have beenestablished by several donors, although these are reportedly not being utilized by the private sector.

Although the Government firmly supports PSP in resolving the critical waste disposal issues of MetroManila, and RA 9003 also provides the mandates for and encourages PSP, it is the practicalities ofproject development that have prevented progress. As in the case of the USAID procurementassistance initiative mentioned above, there have been a multitude of other private sector initiativeswhich have been proposed to address the waste disposal issue, but which have been curtailed primarilydue to public opposition, and/or legal impediment. Indeed, practically every initiative has stalled, andcurrently Metro Manila lacks any adequate waste disposal facilities or systems. Donor agencies shouldtherefore consider carefully the lack of success of previous donor interventions prior to any furtherinitiatives in promoting PSP in waste disposal.

3.2 Current Initiatives

Figure 3 summarizes most of the primary donor initiatives currently being implemented in solid wastemanagement. As shown, the figure provides an indication of the key areas of focus of these initiatives,throughout the solid waste management and medical waste management sectors. As evidenced onFigure 3, the assistance being provided collectively by these initiatives is considerable and wide-ranging. The majority of the projects provide institutional strengthening, capacity building and trainingat the national and local level, and several of them are helping civil society groups. Many also have anRA 9003 focus, providing planning support including the formulation of LGU Boards and preparation ofLGU Plans, performing waste characterization assessments, promoting CBSWM and the involvementof civil society, and developing IEC and public awareness initiatives. These initiatives also cover arange of situations, from the large Metro Manila LGUs to small provincial municipalities.

Collectively, there is strong emphasis on barangay-level CBSWM, and practically every project beingimplemented is supporting CBSWM initiatives. There is also a focus on solid waste disposal, andseveral projects are advancing waste disposal systems and facilities. Medical waste management isbeing assisted through this TA and also through ongoing support provided by WHO. Small-scalefunding is also being provided, for example on a grant basis in the case of Metro Manila for CBSWMprojects (MMSWMP and MMESWMP) and on a loan basis for provincial LGUs to develop recycling andwaste disposal facilities (PRMDP). As discussed above, solid waste sector development is also beingpromoted through the provision of LGU loan facilities, examples of which are shown on Figure 4.


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FIGURE 3CURRENT DONOR INITIATIVES PRINCIPAL AREAS OF ASSISTANCE

PRINCIPAL AREAS OF ASSISTANCE

M

M S W M P

D

E N R - A D B

C

B E S W M P

M M D A -

U N D P -

J I C A - A U S

L G S P

D I L G -

N E D A -

C I D A

E C O G O V

D E N R -

U S A I D

M E D I C A L

W A S T E

D

O H - W H O

P R M D P

D

I L G - A D B -

A U S

E S W M P

D E N R -

J B I C

TECHNICAL ASSISTANCE ACTIVITIESGeneral

- 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


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Resources are also being developed in terms of guidelines, manuals and useful documents. As shownon Figure 3, these relate to medical waste management, solid waste management planning, RA 9003implementation, LGU Plan development, waste characterization, public awareness and IEC, andCBSWM, waste collection and waste disposal systems and facility development.

Additional donor initiatives are also being planned for the sector for later in 2003. These includeanother 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).

3.3 Future Intervention

It is recommended that the outputs of the ongoing donor activities as shown on Figure 3 be thoroughlycollated, integrated and distributed as widely as possible to national agencies, LGUs, barangays, civilsociety and other interested stakeholders throughout the Philippines. Collectively, these interventionsrepresent a wealth of useful and current information covering most areas of solid waste managementand RA 9003 implementation, and this can provide a valuable contribution for immediate nationalreplication. Furthermore, this entire information collection should be collated with other donor-basedinformation51 and uploaded directly onto the NSWMC and other websites, to facilitate access. It shouldalso be regularly updated. It is suggested that this be a key function of the NSWMC Secretariat.

It is also recommended that the NSWMC Secretariat and DENR continue with donor coordinationmeetings as initiated by DENR earlier this year. This initiative should focus directly on the developmentof integrated, targeted donor assistance initiatives to ensure adequate coordination, prevent replicationand optimize the utilization of valuable donor resources. Further coordination can also be maintainedthrough web initiatives such as the NSWMC website.

As highlighted on Figure 3, there are a multitude of assistance areas where donors can deliver valuableoutputs. This is particularly relevant in the case of Metro Manila, and this TA Final Report packagecontains specific recommendations for various sub-sectors where future donor intervention can providesignificant outputs and impacts.

FIGURE 4POTENTIAL INTERNATIONAL DONOR INITIATED FUNDING SOURCES

LGU Support Credit ProgramLBP (Implementing), JBIC (Funding) - 1999-2005

Loan funds to LGUs to construct urban sector infrastructurecomponents, including solid waste management facilities.

LGU Private Infrastructure Development FacilityCCPSP (Implementing), ADB (Funding) - 2000-02

TA Loan for design development of facilities and preparation ofpilot projects.

Public and Private Sectors Convergence for Solid Waste Co-Governance on Urban Poor CommunitiesDENR (Implementing), UNDP (Funding) - 2002-04

Fund support for development of material recovery facilities, inLaguna.

LGU Finance and Development Project (LOGOFIND)DOF (Implementing), WB (Funding) - 1999-2004

Potential funding for LGU solid waste management Sub-Projects,access to training and capacity building technical assistance.

Environmental Infrastructure Support Credit Program II (EISCP)DBP (Implementing), JBIC (Funding) - 2000-06

Potential private sector support for environmental infrastructureprojects, including waste treatment and disposal.

51 For example, the Guidance Pack on Private Sector Participation in Municipal Solid Waste Management developed bythe Swiss Agency for Development and Cooperation, World Bank, and Swiss Center for Development Cooperation inTechnology and Management, a copy of which is attached to the main report.


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