Resource Cities: Cebu-Fort Collins Case Study Page 1 of 8

Resource Cities Program: Case Study

International City/County Management Association Cebu City, Philippines and Fort Collins, Colorado, USA

CHARTERING A 10-YEAR PLAN FOR SOLID WASTE REDUCTION IN CEBU CITY

Background The primary focus of the technical exchange between Fort Collins, Colorado and Cebu City, Philippines was to improve solid waste management, with an emphasis on applying source separation (segregation) and recycling strategies to reduce the amount of waste placed in landfills. The two cities share the same problem of rapidly aging local landfills, and the prospects of committing significant public funding to build new facilities in the near future. Municipal goals to reduce greenhouse gas emissions (methane generated by decomposing trash in landfills) were another similarity, with both partners participating in the Cities for Climate Protection program sponsored by ICLEI. The objectives of the exchange were fourfold:

• Provide a “snapshot” of the current situation for solid waste management in Cebu City as of January 2003.

• Respond to Philippines federal regulatory requirements (RA 9003, RA 6969).

• Describe Cebu City’s long-term goal and objectives for solid waste, including the process for implementing shorter-term action plans (two-year, four-year) to achieve the City's goals.

• Study the differences in culture that result in variations in purchasing, packaging, trash disposal, recycling and waste between the two cities.

Problem Statement The City of Cebu is intent on complying with the Republic Act 9003, otherwise known as the Ecological Solid Waste Management (ESWM) Act, promulgated in January 2001. In the face of rapid economic and population growth, Cebu’s waste volumes are rising.

A bustling pedestrian hub of the city, Cebu’s Basilica De Santo Nino is one of the oldest churches in the Philippines.

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In 1982, the City generated 212.2 tons/day of garbage. Volumes had risen to 360 tons/day by 1998; when the Inayawan landfill was constructed, it was estimated that it

would reach capacity by 2005-061. Today, approximately 400 tons of waste are deposited each day at Cebu’s landfill, significantly shortening the life of the landfill2. Cebu officials sought assistance from international partners to manage waste using the preferred hierarchy established in Philippine legislation (RA 90033). The hierarchy prescribes that efforts to manage waste start first with waste prevention, then move to recycling, followed by processing and treatment, and ending with disposal (in landfills) as a final resort to use when other options are exhausted. The community has adopted numerous City ordinances to address trash issues (e.g., 1990

ordinance to prohibit dumping or littering, requiring a trash-free perimeter to be maintained around residential and commercial buildings4). However, more public information and recycling infrastructure are needed to effectively apply waste reduction strategies. Project Description In evaluating the current situation in Cebu, many positive and negative characteristics quickly became apparent to the Fort Collins partners. It was a pivotal moment when we learned that Cebu City government commits considerable effort and investment to improving its solid waste management system, but that lack of coordination often prevents opportunities from being fully realized. The Fort Collins staff suggests that this happens in all government agencies throughout the world (it

1 Workshop: Proposals for Improvements of Cebu City’s Solid Waste Management, Advanced International Training Program on Solid Waste Management, Part II, Cebu City. Page 1:.3, November 1999. Produced with participation from Swedish International Development Agency. 2 Source: Engineer Dionisio Gualizo, Department of Public Service, January 14, 2003. 3 Instructional Manual on Ecological Solid Waste Management for Building Administrators and Managers, Page 11. February 2002. Jointly produced by Ayala Foundation, Inc. and the Solid Waste Management Association for the Philippines (SWAPP). 4 Cebu City Cleanliness Action Team (CCCAT) brochure, and Cebu City Strategic Master Plan Study (SCHEMA Konsult, Inc), Chapter 3.5, Page 41. December 2000.

During a technical exchange in January 2003, Cebu City Council welcomed visitors from Fort Collins, Colorado (Greg Byrne, Director of Fort Collins’ Community Planning and Environmental Services (on left) seen here shaking hands with Michael Ramos, Vice Mayor of Cebu City).

Mayor Tommy Osmena, third from right, shows newly purchased City garbage trucks to the Fort Collins partners.

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certainly does in Colorado) but maintains that it is our job to practice cooperative, well-informed planning and management to reduce inefficiencies for the benefit of our citizens. The signs of poor communications and collaboration are abundant in Cebu. Of special note, when the Inayawan landfill was constructed, it included a facility for fully segregating recyclable materials from the waste stream that was never started up and sits today, rusty and inoperable. Another standard landfill management technique, using heavy equipment to compact waste materials, was not included, which probably would have doubled the lifespan of the facility. First and foremost, the Fort Collins team brought with it neutral perspective, and enthusiasm for

looking at “the big picture” for solid waste issues. We were especially gratified that during the course of the exchange project, a strong partnership formed between elected officials, City staff, representatives of non-profit organizations (NGO), neighborhoods (barangay officials), and the academic community to work on solid waste reduction issues. Together, the group established priorities for changes that need to occur, which were documented in a ten-year “Framework for Ecological Solid Waste Management Plan.” With this group of insightful community leaders who are focused on a goal to “create an environmentally friendly system for managing its solid waste,” the City of Cebu is well positioned to achieve compliance with RA9003 over the next few years, although it will require determined and sustained effort. Indicators The right elements for sustainable change (economic, social and environmental) that will help improve waste prevention, recycling, composting, etc. are to be found in Cebu:

• There is a high level of awareness among Local Governmental Units (LGUs), including barangays, and increasing levels of concern.

• The beginnings of a strong institutional

framework are in place.

Non-governmental organizations (NGO) are devoting time and resources to solid waste issues.

Neighborhood representatives from Bargangay Luz listen as Lindy Morrell, academician and president of the Mactan Channel Multi-sectoral Management Council, Inc., describes how recyclable materials are collected to Greg Byrne.

A tour of the recycling facility in Boulder, Colorado, operated by a non-profit organization (Ecocyle) was taken during the visit in March 2001 by a contingent of Cebu City staff to Fort Collins.

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In City government, formation of the Solid Waste Management (SWM)

Board required by RA 9003 has been approved, and the Board has begun meeting.

There are several existing and potential international partners. Increasingly, barangay crews are collecting solid waste, which is where

source separation (segregation of materials) will best occur.

• Cebu, a port city, is positioned with enviable market access for recyclables, and a significant amount of recycling is already going on.

• Some best practices are currently adopted, but not fully implemented. For

example, hospitals segregate wastes, but those are then commingled with other wastes upon collection.

Several waste management activities are being conducted that demonstrate the trend that we observe is beginning to occur in Cebu. Two are particularly worthy of mention. 1. Commercial Recycling The Ayala Foundation, Inc. (AFI) is helping to implement solid waste segregation at the source at the Ayala Center, a modern, six-story shopping mall with 300 shops and businesses. The parent company, Ayala Center Cebu (ACC), has instituted mandatory separation as a provision of their lease agreement with tenants. The program, started in December 2001, is currently in the pilot phase, with ACC staff monitoring and measuring activity under the program. Segregated materials are handled under contract by a private vendor for resale or reuse. The program generates 5,000 pesos (about $100) per month, which is given to the Cebu Business Park and Neighboring Barangays Altruistic Alliance, Inc. (CBP-NBAAI) as part of the contractual agreement. ACC plans to institute similar programs at two more office buildings in Cebu Business Park in coming months.

2. Composting The City of Cebu, under the leadership of Councilman Nestor Archival, is experimenting with an organic bio-gas digester at the City’s landscape nursery as a technique to manage organic waste. Waste from the Carbon Public Market is being deposited in the digester under a program being pioneered by the University of San Carlos in Cebu City.

Employees of Ayala Center Cebu, Emma Mawe and Joyce Rale Robin, share information about getting businesses to participate in recycling while Susie Gordon, City of Fort Collins environmental planner, takes notes.

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Byproducts of the bio-gas decomposition process are put to beneficial secondary uses; (1) Methane is drawn off the digester vessel and used as fuel to generate electricity, and (2) Compost is collected from the outlet of the digester and used to fertilize plants at the nursery. The Resource Cities Partners observed two similar digesters in operation in the Cebu metro area, also installed by the University team. Both are handling animal and household waste; one has been in successful operation for five years. Both provide methane fuel for domestic use, and compost for soil amendment. This technology may prove to be extremely important given the high proportion of organic waste in Cebu’s waste stream (56%, according to the December 2000, final draft report from SCHEMA Konsult, Inc.; Cebu City Strategic Master Plan Study). Tactical Issues to Resolve Compliance with RA 9003 and development of an integrated, sustainable solid waste management system will take determined and sustained effort. The City will work strategically to overcome key economic and political obstacles that will impede progress.

• Solid waste collection and disposal costs fall to local government; the true “life cycle” costs are not known. Revenues collected from citizens (total P5M) are inadequate to cover annual expenses (P65M). Citizens of Cebu perceive trash collection to be a free service. This needs to be corrected so that everyone understands the costs and becomes more willing (if grudgingly) to pay them.

• A pressing issue for Cebu is that Inayawan sanitary landfill will close soon. It has

a projected life of three years at best, and the City has not yet begun the process to find a replacement. Siting, permitting, and constructing a new landfill can be expected to take at least five years.

• Reliable local data are needed to make well-informed decisions about managing

the waste stream, including an up-to-date characterization of the types and volumes of materials entering Inayawan landfill.

Councilman Nestor Archival (right) has spearheaded efforts to compost organic material for use in Cebu City nursery gardens.

Rommel Urgel, Science Research Specialist at the University of San Carlos (right), demonstrates household use for methane gas generated by a pig farmer (left) who composts farm wastes in a bio-gas digester.

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• Equipment problems plague the collection process and trash collection practices are often inefficient. For instance, City trash crews segregate recyclables as they go about their work, to sell for personal profit, which slows them down to the point that they can’t finish daily routes. Either a training program should be developed to eliminate this practice, or the collection system should be redesigned to enhance this informal recycling process. The fleet of vehicles should be brought into a regular maintenance program that will reduce break-downs and extend trucks’ service-life.

• A single, organized public relations

campaign should be adopted and used by any sector of the community to send the universal message of litter/waste reduction. In many of the barangays, there appear to be low levels of awareness, and people routinely dispose of trash in canals and unauthorized piles along streets. It also appears that enforcement of trash ordinances needs to be increased. The City should find a “home” department for all issues about trash and for environmental education programs, instead of being fragmented and scattered throughout the organization.

• Policy gaps need to be closed so that ocean-going ships that dump waste and

discharge oil into the harbor are accountable to either the local or national government.

Practical Visions As noted above, the Resource Cities Team met in Cebu in February 2003 to complete the Framework for Ecological Solid Waste Management Plan for Cebu. Using the knowledge gained from prior exchanges, and enlisting the support and participation of the Ayala Foundation, and barangay and university representatives, the group drafted a document based on the Federal Legislation. It includes both short-term and long-term strategies, and a practical vision of the future for Cebu, acknowledging constraints. Highlights of the Plan include: 1. City Resolution The City is poised to adopt a 10-year plan for an effective waste stream management system that will meet Republic Act 9003 and advocates using a hierarchical approach of reduction, recycling, and treatment before waste is sent to landfills for disposal.

Newly acquired trash trucks ready to roll in Cebu City.

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Endorsing this approach will give the community license to take all opportunities that are reasonable and appropriate to reduce waste generation and divert material from disposal in landfills. Creativity and free-market responses to economic opportunities will blossom when social and environmental values are recognized and rewarded by the government. 2. Fee System for Trash Since funding is a key piece of responsible waste management, the City of Cebu will examine its options and find a way to create a fee-based solid waste management system that helps provide a new revenue stream. An economically viable SWM program will enable local government to implement best management practices, including enforcement of the City's ordinances concerning trash collection and segregation of materials. 3. Commitment for Future Landfill In the near future, it is imperative for Cebu City to have a new, well-engineered sanitary landfill in operation. Design and planning for a new site should get underway as soon as possible, since the entire process can be lengthy (it was a seven-year undertaking the last time Cebu opened a new landfill). A state-of-the-art facility should be constructed that provides, among other things, an exemplary system for managing hospital waste. 4. Community Involvement and Economic Benefit Citizens will learn to appreciate the importance of handling the community’s waste in a responsible and well-planned way. With increased awareness, participation will occur at all levels; household, neighborhood (barangay), local business, church, schools, corporations, NGO’s, and government. The public relations campaign will be the centerpiece of the City’s solid waste reduction planning and implementation, designed to respond to public input and needs. It will recognize and honor the perspectives of diverse “stakeholders,” including the business community’s role in motivating supply and demand for recycled and re-use products. The City of Cebu is in a position to improve urban economy by creating new jobs in waste segregation and recycling; with careful management, the quality of segregated materials will be good and command top prices. By having a strong and predictable municipal program in place, the City will help attract investors for processing plants that use recycled material in the manufacture of new products. Finally, as a result of changing citizens’ trash disposal habits, Cebu will improve its reputation as a pleasant place to live and a beautiful travel destination that will further enhance the economy through tourism.

Small businesses, like this one in the Carbon market district of Cebu, pay local market prices for various recyclable materials such as glass bottles and newspapers brought in by citizens.

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Conclusions In reviewing the current situation, and the opportunities, and constraints that face Cebu, the Resource Cities planning team is convinced that by working in a two-pronged approach, changes will start to happen. First, some short-term actions are time critical and need not wait for adoption of a master plan; e.g., siting a new landfill. However, developing and adopting a full, long-term master plan may take many months of hard work. Local stakeholders have developed a “short list” of strategies to work on that will help respond to pressing issues. They can apply these measures and move Cebu closer to successfully meeting regulatory requirements, while continuing to define what the ultimate integrated solid waste system will look like.

Partners on the Cebu-Fort Collins technical exchange, sponsored by the International City/County Managers Association, included R-L Joseph Batac and Archimedes Velasco, Ayala Foundation, Inc., Councilman Nestor Archival, Greg Byrne and Susie Gordon, City of Fort Collins staff, Arthur Barrit, Cebu Department of Public Services, Cita Ajero, AFI, Cebu Engineer Dionisio Gualiza, and Dino Abellanosa, AFI.