Michikazu Kojima, “Toward Regional Cooperation of Local Governments in ASEAN”, ERIA
Collaborative/Support Research Report, IDE-JETRO, 2019
Chapter 5
Inter-Municipal Cooperation on Solid Waste Management in ASEAN:
The Case of the Philippines
Vella Atienza1
Abstract
The solid waste disposal system or environmental management system is one of the devolved
functions to the local government units (LGUs) in the Philippines as cited in the Republic Act
7160 (RA 7160), also known as the Local Government Code of 1991. This mandate has posed
a huge challenge to the LGUs considering their capacity both in terms of the technical and
financial aspects. Hence, the collaboration with the non-state actors like the private sectors has
been one of the recent trends or strategies on addressing waste management concerns. Another
approach being utilized now is the forging of cooperation between and among LGUs in
delivering public services like the solid waste management. This report explores the possibility
of the inter-municipal cooperation on waste management in the Philippines. It is composed of
five parts which include the introduction, the legal bases for inter-municipal cooperation or
clustering and its contribution to a more responsive delivery of public services, the status of
inter-municipal cooperation on solid waste management in the Philippines, the challenges to
inter-municipal cooperation, and the opportunities and possible recommendations for a more
effective and sustainable inter-municipal cooperation.
Keywords: Inter-Municipal Cooperation, Solid Waste Management, Philippines
1
1
Assistant Professor, Institute for Governance and Rural Development – College of Public Affairs and
Development (IGRD-CPAf), University of the Philippines Los Banos (UPLB)
1. Introduction
The solid waste disposal system or environmental management system is one of the devolved
functions to the local government units (LGUs) in the Philippines as cited in the Republic Act
7160 (RA 7160), also known as the Local Government Code of 1991. This mandate has posed
a huge challenge to the LGUs considering their capacity both in terms of the technical and
financial aspects. Hence, the collaboration with the non-state actors like the private sectors has
been one of the recent trends or strategies on addressing waste management concerns. Another
approach being utilized now is the forging of cooperation between and among LGUs in
delivering public services like the solid waste management. Most of the governments have
recognized “the comparative advantage of private companies in handling large infrastructure
projects through management and technical expertise, access to capital and technology, and in
the drive for efficiency (Fiszbein and Lowden 1999 as cited in ADB 2015).
On January 26, 2001, the Philippines’ Republic Act 9003 (RA 9003) also known as the
Ecological Solid Waste Management Act of 2000, came into force in response to the growing
problems on waste in the country. The Act declares the “policy of the state to adopt a systematic,
comprehensive and ecological solid waste management program which shall ensure the
protection of public health and environment” (Republic of the Philippines, RA 9003, Article 1,
Section 2). It also prohibits the operation and establishment of open dumpsites upon coming
into force of the Act. It further states that all open dumpsites should be converted into controlled
dumpsites and that all controlled dumpsites should be closed within five years of the
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Implementation of the Act. As an alternative, the construction of sanitary landfill (SLF) is
allowed as a final disposal site for residual wastes (RA 9003, Sections 37, 40-42). It also
mandates the segregation of solid waste at source (Section 21) and the creation of the material
recovery facility (MRF) in every barangay or cluster of barangays (Section 32) and the
establishment of common waste treatment and disposal facilities (Section 44).
However, based on the record of the NSWMC-EMB as of September 2018, there are
only 141 operational SLFs and 30 SLFs undergoing construction and not yet operational among
the total 1,634 cities and municipalities in the country (NSWMC-EMB, 2018). This data shows
that there is still weak compliance in the RA 9003 especially in terms of constructing SLFs as
a final disposal sites for residual wastes. Although there are some initiatives among LGUs to
form a cluster in constructing SLFs, there are other political and social issues which pose a
challenge in this kind of collaboration such as the political and terms of office of local
government officials and the not-in-my-backyard (NIMBY) syndrome for hosting the SLF.
Sometimes, the lack of capacities at the local level hinders the ability to reap the full
benefits of decentralization and local officials may not fully exploit other opportunities to
deliver better service (ADB 2015). This report explores the possibility of the inter-municipal
cooperation on waste management in the Philippines. It is composed of five parts which include
the introduction, the legal bases for inter-municipal cooperation or clustering and its
contribution to a more responsive delivery of public services, the status of inter-municipal
cooperation on solid waste management in the Philippines, the challenges to inter-municipal
cooperation, and the opportunities and possible recommendations for a more effective and
sustainable inter-municipal cooperation.
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2. Legal Bases for Inter-Municipal Cooperation on Solid Waste Management and the
Delivery of Public Services
This section reviews the related laws and policies in the country which support the inter-
municipal cooperation in the delivery of public services such as the solid waste management.
These include the following:
a) The 1987 Constitution of the Republic of the Philippines cited that “local government
units may group themselves, consolidate or coordinate their efforts, services, and
resources for purposes commonly beneficial to them in accordance with law” (Article
X, Section 13).
b) The RA 9003 mandated that a Provincial Solid Waste Management Board should be
established in every province and that it should “allow for the clustering of LGUs for
the solution of common solid waste management problems” [Section 11 (12)]. In
addition, Section 32 of this act cited that MRFs should be established in every barangay
or cluster of barangays. This facility can be a barangay-owned or leased land or any
open space suitable as determined by the barangay through its Sanggunian in
accordance to the guidelines and criteria set by the Act. The MRF shall receive mixed
waste for final sorting, segregation, composting, and recycling. The resulting residual
wastes shall be transferred to a long-term storage or disposal facility or sanitary landfill
(Section 32).
c) Pursuant to Section 33 of the Republic of the Philippines Act 7160 (RA 7160),
otherwise known as the Local Government Code of 1991, Section 44 of RA 9003
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mandated all provinces cities, municipalities and barangays through appropriate
ordinances “to consolidate, or coordinate their efforts, services, and resources for
purposes of jointly addressing common solid waste management problems and/or
establishing common waste disposal facilities”.
These laws and policies show that the gravity of the tasks entrusted to the LGUs and their
limitations are acknowledged, hence, the collaboration or cooperation between and among
LGUs and other sectors are encouraged. In the recent years, the public-private partnerships in
developing Asia has expanded which reduce the risks and responsibilities of the state, lower
fiscal costs, and widen access to quality public services (ADB 2015).
3. Status of Inter-Municipal Cooperation on Solid Waste Management in the Philippines
a) Types of Cooperation on Solid Waste Management
Based on the NSWMC database in 2015, the waste generation is 40,000 tons/day at the national
level while 9,000 tons/day in Metro Manila. The waste generation per capita ranges from 0.32-
0.71 at the national level while 0.71 in Metro Manila. In terms of waste collection efficiency,
it ranges from 40% to 85% at the national level while 85% in Metro Manila (NSWMC
database).
With regards to the compliance to the mandates of the RA 9003 such as the
establishment of the MRF in every barangay or cluster of barangay and the construction of
SLFs as a final disposal site for residual wastes, the NSWMC reported that they are still very
low but at an increasing rate. Also, as shown in Tables 5-1 and 5-2, there are number of LGUs
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sharing a common MRFs and or SLFs. These facilities are either privately managed or inter-
government/inter-LGU partnerships (Table 5-3).
Table 5-1. Number of MRFs reported to NSWMC from 2010 to 2015
Number Year
2010 2011 2012 2013 2014 2015
Number of MRFs in
the Philippines 6,958 7,329 7,713 8,486 8,656 9,335
Estimated Percentage
(%) of Barangays with 16.6% 17.4% 18.4% 20.2% 20.6% 22%
MRFs
Number of
Barangays/LGUs 7,938 8,323 8,843 9,634 10,327 12,607
served by MRFs
Estimated Percentage
(%) of Barangays 18.9% 19.8% 21.0% 22.9% 24.5% 30%
served by MRFs
Source: NSWMC
Table 5-2. Key information on SLFs in the Philippines
Parameters Year
2008 2010 2013 2014 2015 2016 2017 October
2018
Population 88,543 92,33 98,449, 100,420, 101,716, 103,320, 104,918,
of the ,800 7,852 090 642 359 222 090
Philippines
Number of 21 33 72 86 101 118 135 144
operating
SLFs
Number of 63 78 130 154 228 248 293 345
LGUs with
access to
SLFs
Percent of 3.86% 4.77 7.96% 9.42% 13.95% 15.17% 17.93% 21.11%
LGUs with %
access to
SLFs
Source: NSWMC
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Table 5-3. Types of Partnership (or Cooperation) on Solid Waste Management
REGI Name of Type of Partners Type of Legal Status
ON Cluster/ Partnership Facility/ Instrument/
Facility Location Date
NCR Navotas Private MMDA-LGU SLF/Navot Memorandum Operational
Sanitary Enterprise Navotas LGU as MM of Agreement
Landfill utilized by Manila (MOA)/ 2005
LGUs
1 Urdaneta Inter- Urdaneta City- SLF/ Inter- Operational
City SLF Government Municipality of Urdaneta Government
Executive Sta. Barbara City Executive
Agreement Pagasinan Agreement /
2011
III Clark Private Lubao Guagua SLF With MOA Operational
SLF Enterprise Apalit, San MRF
utilized by Fernando City
LGUs Pampanga,
Angeles, Moncada,
Cabanatuan City
IV A Pilotage Private San Pedro, Sta SLF with Contract Operational
SLF, San Enterprise Rosa MRF
Pedro utilized by Los Banos and
Laguna LGUs Carmona
VII Bohol Inter-LGU Bohol Province SLF Memorandum Operational
cluster partnership LGU- of Agreement
in the Alburquerque- (MOA)/ 2011
Province of Baclayon-
Bohol Balilihan-Corella-
Cortes-Dauis-Lila-
Loboc-Maribohoc-
Panglao-Sikatuna
X Camigui Inter-LGU Camiguin SLF MOA Operational
n partnership Province- Mambajao,
Province in Camiguin Mambajao- Camiguin
Cluster/ Mahinog-
LGUs Guinsiliban-Sagay-
Alliance Catarman
Project
XII Surallah Inter- LGU Province of South Sanitary MOA/ Operational
Sanitary Partnership Cotabato-Surallah- Landfill/ 2008 (among
Landfill Banga-T’boli-Lake Municipali LGUs)
(South Sebu-Sto. Niño, ty of MOA
Cotabato Norala Surallah, 2011
Cluster South (Province
Sanitary Cotabato South
Landfill Cotabato and
Surallah)
Source: EMB Regional Offices
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As shown it Table 5-3, there are two common types of cooperation in managing solid waste in
the country: the inter-government or inter-LGU partnership; and the private enterprise utilized
by LGUs. Both types of cooperation use the Memorandum of Agreement (MOA) or Contract
as the legal instrument for entering such kind of partnership in delivering waste management
services.
b) Cases of Inter-Municipal Cooperation on Solid Waste Management and the Partnership
Arrangement
At the National level’s initiative, a report on Cost Sharing Framework for Solid Waste
Management was developed in 2008 based on the results from regional consultations with the
representatives from local government units and in consultations with concerned government
agencies such as the Secretariat of the National Solid Waste Management Commission
(NSWMC), the National Economic and Development Authority (NEDA), and the Municipal
Development Fund Office (MDFO) under the Department of Finance (DOF). The Policy
Governing Board of the DOF has approved the institutional arrangement with the MDFO and
the loan portfolio in principle, however, the cost-sharing framework is still under review due
to its budgetary implications. One of the proposed scenarios cited in this report was the cluster
of LGUs would share a common facility. It cited that this option is more cost-efficient since
the disposal cost per unit of solid waste is less for bigger and more sophisticated SLFs.
However, the high transaction costs in clustering and the social acceptability of hosting a
common facility could be a barrier. It further recommended that the national government
should shoulder the additional 5% of the investment cost should the LGUs decide to form a
cluster (NSWMC-EMB, 2008).
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In the next pages, some examples of inter-LGU cooperation and privately managed SLFs being
utilized by the LGU will be discussed.
The Surallah Cluster SLF, South Cotabato Province
One of the success stories of inter-LGU collaboration is the Surallah Cluster SLF in South
Cotabato. This was initiated from the Provincial Office of South Cotabato since the financial
involved for constructing SLF is too high for an LGU, the consolidated efforts among LGUs
is better and more feasible option. The Memorandum of Agreement (MOA) for the Surallah
Cluster Sanitary Landfill for Sustainable Solid Waste Management between the Province of
South Cotabato represented by the Governor and the six (6) member municipalities represented
by their Mayors was signed in 2009 but the facility has become operational since 2011. The
Municipality of Surallah is the host LGU for the common SLF and it receives the residual
waste generated from the member LGUs. It is a 6-hectare Cluster SLF and has a capacity of
75,000 cubic meters and estimated to last for 14 years (until 2024). It is located nine (9)
kilometers away from the Surallah town proper and has its own leachate treatment facility by
pond method. This Cluster SLF was a recipient of the Galing Pook Award in 2014
(Municipality of Surallah 10 Year Solid Waste Management Plan: 2015-2024). The MOA for
the Surallah Cluster SLF was renewed in 2016 with the additional two (2) member
municipalities.
In terms of the economies of scale, Tables 5-4 and 5-5 reveal that it is really more
economical for a cluster SLF rather that for the individual SLF. As shown in Table 5-4, the
required investment is P54,000 from the 6 LGUs in the scenario wherein they have to build
their own SLF. But with the cluster SLF, the investment needed is only P15,000 with the
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capacity of 30 tons per day (Table 5-5). Thus, with the cluster SLF, the LGUs can save huge
amount which they can utilize to deliver other public services in the community.
Table 5-4. Required Volume of Waste and Investment for Individual SLF
Individual SLF Required Wastes (in Required Investment
tons/day) (Maximum)
Surallah (as host) 4.15 PhP 7,500,000
Lake Sebu 5.18 PhP 12,000,000
Sto. Nino 1.74 PhP 7,500,000
T’boli 3.24 PhP 7,500,000
Norala 1.89 PhP 7,500,000
Banga 7.30 PhP12,000,000
TOTAL 23.50 PhP54,000,000
Source: Balucanag, Elbe M. Presentation document on “Solid Waste Management Program:
The South Cotabato Experience” (n.d.)
Note: This excludes manpower, equipments, and operational costs
Table 5-5. Residual Waste Capacity and Required Investment for the Cluster SLF
Cluster SLF Residual Wastes Required Investment
Capacity (in tons/day) (Maximum)
Surallah Cluster 30 PhP15,000,000
Source: Balucanag, Elbe M. Presentation document on “Solid Waste Management Program:
The South Cotabato Experience” (n.d.)
Note: This excludes manpower, equipments, and operational costs
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Alburquerque Cluster SLF, Bohol Province
The Alburquerque Cluster SLF is another example of inter-LGU cooperation in the province
of Bohol. The Cluster SLF is a 6.9-ha facility located about 12 kilometers from the capital city
of Tagbilaran. It has become operational since 2017, about 15 years after the Tourism
Infrastructure and Enterprise Zone Authority (TIEZA) and the local government unit of
Alburquerque signed a Memorandum of Agreement in 2011. The TIEZA (presently the
Philippine Tourism Authority or PTA) provided the P300-million funds for the construction
and development of the facility (Obedencio, 2017). Based on the MOA, the Albur as the host
shall ensure the establishment and operation of the SLF in accordance to the law, allow
continuous access of garbage vehicles of cluster LGUs and its private entities, and continuously
comply with the regulatory maintenance requirements. The Cluster LGUs on the other hand,
shall provide their own transport equipment, MRF and transfer station; comply with disposal
schedule and procedures established by the Board; and pay tipping fee to Albur LGU thru
automatic allocations (Alburquerque SLF Feasibility Study and Detailed Engineering Design,
2012).
Privately managed SLFs being utilized by the LGUs
As shown in Table 5-3 and based on key informant interviews, the common type of partnership
on solid waste management in the Philippines is the privately managed or operated SLFs which
are being utilized by a group of LGUs. Examples of this kind of cooperation are the Navotas
SLF at the National Capital Region and the Rodriguez Rizal SLF from the Rizal Province
which receive waste from the LGUs in Metro Manila; the Pilotage SLF in San Pedro, Laguna
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which receive waste from the LGUs in Laguna province like the San Pedro, Sta. Rosa, Los
Banos and Carmona; among others.
The 40-hectare Navotas SLF is the first engineered SLF in Metro Manila privately managed
by the Phil Ecology Systems Corporation. It accommodates 1,500 tons per day of municipal
solid wastes from various cities in the National Capital Region and uses the landing craft
transport (LCT) barges to transport waste from the transfer station to the SLF (Phil Ecology,
2019). The Rodriguez Rizal SLF is privately operated and owned by the International Solid
Waste Integrated Management Specialist Inc. (ISWIMS). The Pilotage SLF is a 12-hectare
facility operated by the Pilotage Trading and Construction (PTAC) located in San Pedro,
Laguna.
4. Challenges to Inter-Municipal Cooperation on SWM
Based on the Surallah Cluster SLF’s experience, one of the challenges in constructing a cluster
SLF is finding the host LGU because of the possible negative impacts to the surrounding
communities. Thus, information and education awareness plays a very important role to assure
the possible host LGU of the mitigating measures to avoid negative impacts from SLF and to
inform the community of the significance of this kind of activity. Another concern is the huge
financial requirement for construction. Thus, the Provincial Office of South Cotabato provided
an initial financial support and the LGU officials of the host LGU also contributed for the
construction of the Surallah Cluster SLF. This shows the need for strong political will in
initiating this kind of collaboration.
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On November 23, 2018, the Seminar on “Inter-Municipal Cooperation on Waste
Management in Japan and Other Asian Countries” was held at the University of the Philippines
Los Banos (UPLB), Laguna, Philippines. It was co-organized by the Institute for Governance
and Rural Development – College of Public Affairs and Development (IGRD-CPAf)- UPLB,
the Institute of Developing Economies – Japan External Trade Organization (IDE-JETRO),
and the Economic Research Institute for ASEAN and East Asia (ERIA). About 70 participants
attended the event composed of Mayors and other officials from different LGUs in the
CALABARZON (Cavite, Laguna, Batangas, Rizal, Quezon), representatives from the academe,
private and business sectors, non-government organizations (NGOs), and resource persons
from the Japanese research institution and universities. During the seminar, some of the
challenges cited by the participants to the inter-municipal cooperation on solid waste
management were the following:
- The political will of the local leaders to enter in this kind of cooperation;
- The sustainability of cooperation due to the limited terms of the elected officials or the
change of leadership;
- The lack or limited support from the national government in terms of technical and
financial aspects; and
- The weak implementation of the cost-sharing mechanism to help the LGUs with the
cost requirement especially for the low-income class municipalities.
5. Opportunities and Recommendations
In terms of opportunities, the legal bases for inter-municipal cooperation are present in the
Philippines. Also, the responsibility of solid waste management is already devolved to LGUs
but most of them have no environmentally sound facilities. Although, there are private
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companies who offer their technologies to the LGUs (i.e. Waste-to-energy), however, the cost
requirement is too high if it will be shouldered by the single LGU alone. Hence, the provision
of the technical and financial support and incentives from the national government to promote
this kind of cooperation needs to be strengthened. Professor Toshiaki Sasao, one of the resource
persons during the seminar, also cited that the central (national) government should take the
opportunity to provide incentives to host LGUs to help turn the NIMBY mindset into PIMBY
or “please-in-my-backyard”. It was also mentioned during the seminar that there are several
private institutions reach out to various LGUs in the Philippines. However, there is a need for
the LGUs to cooperate to increase volume of waste which will then encourage investment from
private institutions. Lastly, the practice of transparent and participatory decision-making to
build trust and better relationship among members is highly recommended to ensure a more
effective and sustainable cooperation.
Acknowledgment
The author also would like to thank the following key informants for generously sharing data
and information, their knowledge and experiences on waste management: Engr. Iligio
Ildefonso and Ms. Ma. Delia Cristina Valdez (EMB-DENR); Ms. Elsie Encarnacion, Engr.
Reynaldo Estipona, Mr. Manalo Jarmin and Ms. Raqui Torres (MMDA); Ms. Frederika Rentoy,
Ms. Patricia Orante and David John Vergara (EPWMD, Quezon City); Ms. Eloisa Rozul, Mr.
Brian Ballon and the Manila Bay Rehabilitation Program Team (Department of Interior and
Local Government (DILG)- Region IVA Calabarzon; and the resource persons (Mr. Michikazu
Kojima, Prof. Fumio Nagai, Prof. Toshiaki Sasao), panelists from EMB-DENR, MMDA and
EPWMD, and participants during the seminar on Inter-Municipal Cooperation on Waste
Management in Japan and Other Asian Countries held on November 23, 2018, co-organized
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by the Institute for Governance and Rural Development – College of Public Affairs and
Development (IGRD-CPAf), University of the Philippines Los Banos (UPLB), Institute of
Developing Economies – Japan External Trade Organization (IDE-JETRO) and the Economic
Research Institute for ASEAN and East Asia (ERIA).
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