SUCCESSFUL STRATEGIES TO GENERATE COMMUNITY INVOLVEMENT IN SOLID WASTE MANAGEMENT:
THREE CASE STUDIES IN THE PHILIPPINES
By
Agueda C. Mosqueda
A thesis submitted in conformity with the requirements for the Degree of Master of Arts
Department of Sociology and Equity Studies in Education Ontario Institute for Studies in Education
of the University of Toronto
©Copyright by Agueda C. Mosqueda 2008
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Successful Strategies to Generate Community Involvement in Solid Waste Management: Three Case Studies in the Philippines
Master of Arts 2008
Agueda C. Mosqueda Department of Sociology and Equity Studies in Education
University of Toronto
Abstract
This thesis presents three success stories in solid waste management in the Philippines
which focused on approaches toward community participation. Two cases highlighted the local
government efforts in the conversion of the open garbage dumpsites into a waste processing zone
i.e. the Controlled Waste Disposal Facility in Payatas, Quezon City, Metro Manila, and the Eco-
Waste Processing Center in Los Banos, Laguna. The other case was an information, education
and communication-based project of the author in Barangay Masili, City of Calamba, also in
Laguna, with emphasis on community consciousness in solid waste segregation for a cleaner
environment.
Solid waste is one of the country's major issues confronting the community and the local
government units. The legislation of RA 9003, the Ecological Solid Waste Management Act in
2001, addressed this phenomenon by calling for the involvement of all sectors, primarily the local
authorities together with the community. This research examines the commonality and
uniqueness of the strategies employed to encourage people's mobilization in managing solid
waste. It was found that participation starts from a deepening awareness of people about the
problems affecting them, getting involved, and becoming responsive when they understand its
potential benefits. Participation is deeply anchored in political mobilization where leaders take
the initiative and the will to make a difference in the community. Strong advocacy in the
furtherance of community awareness and consciousness in relevant programs together with the
stakeholders' partnership and networking play a very important role.
ii
Acknowledgment
My gratefUl thanks to God's inspiring words which says: "Trust in the Lord with all your
heart and do not rely on your own insights; in all your ways acknowledge Him and He will make
straight your path (Proverbs 3:5-6)." It serves as my guide in everything I do. This
achievement is wholeheartedly dedicated to God's gifts to me ~ my husband, Archie, for his love,
thoughtfulness and understanding; and our only child, Abigail Anne, whose sweetness and
giggles revive my strength whenever I feel tired. My dear parents, brothers, and sisters in the
Philippines for their unending love, concern and support which keep me determined and inspired
to move forward.
I would like to extend my sincere gratitude and profound appreciation to the following
persons who shared their valuable support and encouragement to make this research work a
reality.
The members of my Thesis Committee, Drs. Margrit Eichler and Njoki Wane for their
intellectual advice and feedback, time and effort shared to me, to make my research work more
substantive and meaningful. Also to Dr. David Livingstone for his candid insights and
challenging comments in my research proposal.
OISE-UofT staff, especially Kristine Pearson for her kindness in facilitating the required
documents prior to the conduct of my research work; Ruth Rogers for the reminders and
assistance in accomplishing the necessary forms to submit my thesis on time; the University
Graduate Study Scholarship Committee for the financial grant which I consider a great
opportunity for me to pursue higher education and accomplish my research work; and my friends
at UofT "Ate's" Celia Correa and Lynn Romero, Maya Soriano, Liwliwa Torres, Cathy Jeffrey,
Akena Francis Adyanga, and those I was not able to mention, for the encouraging words that
motivated me to persist with my graduate study programme.
iii
The officials and staff of the Municipality of Quezon City particularly the Environmental
Protection and Waste Management Department headed by Ms. F. Rentoy, Municipality of Los
Banos, and the Barangay Council of Masili for allowing me to have access to the available
information, reports and publications in their respective offices.
My brethren in the church, Pastor Belle Obsanga, "Ate" Yolly Herrera, Bro. Dindo and
Sis. Ruth Malihan for their concern and constant prayers.
For the sisterly treatment of "Ate" Minda Loberiano and Tina Mendoza who used to
offer assistance for my family as we go through the challenges of living in Canada, they really
make us feel that we are part of their 'real' family; and my friend, Cathy Sandy, for her kindness
and constant words of encouragement, that with God's grace through prayers, my wish can come
true for "God is good, all the time".
Finally, my former colleagues at PCARRD-Philippines, who constantly send me
messages of trust that I can do this research work with ease and confidence.
To all of you, thank you very much!!!
IV
TABLE OF CONTENTS
CHAPTER I
CHAPTER II
INTRODUCTION
A Glance of the Research Setting: Philippines Overview of the Solid Waste Situation in the Philippines Philippine Legislative Policies in Solid Waste
Management (SWM) Community and Community Participation Strategies Toward Community Mobilization Statement of the Problem Methodology
CASE STUDY 1: TRANSFORMATION OF PAYATAS DUMPSITE INTO A CONTROLLED WASTE DISPOSAL FACILITY
Metro Manila and Its Solid Waste Scenario The Tragedy in Payatas Garbage Dumpsite Transformation of Payatas Garbage Dumpsite into a
Controlled Disposal Facility Approaches Employed for Community Involvement Barriers in the Implementation of the SWM Program Controlled Waste Disposal Facility's Progress
in Payatas Community Lessons Learned
Page
1
2 5
6 9 11 15 17
19
19 22
23 31 35
37 39
CHAPTER III CASE STUDY 2: CONVERSION OF LOS BANOS DUMPSITE INTO AN ECO-WASTE PROCESSING ZONE 41
The Town of Los Banos, Laguna 42 Solid Waste Condition of Los Banos: Issues and Challenges 45 From Open Dumpsite to an Eco-Waste Processing Zone 47 Approaches Toward Social Participation and Mobilization
in SWM 53 Networking and Partnership among the Stakeholders 57 Barriers Encountered in the Implementation
of the SWM Program 58 Environmental and Socio-Economic Benefits 60 Lessons Learned 62
v
CHAPTER IV CASE STUDY 3: COMMUNITY CONSCIOUSNESS IN SOLID WASTE SEGREGATION FOR A CLEANER ENVIRONMENT IN MASILI 65
Gardening Utilizing Recyclables: My Own Home Project 66
Conceptualization and Proposition of the Project in Barangay Masili 67
The Profile of Barangay Masili, Calamba, Laguna 68 Methodology Framework for Project Initiation
in the Community 70 Pilot Project Context: Community Consciousness in Solid
Waste Segregation for a Cleaner Environment in Masili 72 Project Accomplishments 77 Lessons Learned 80
CHAPTER V SUMMARY, CONCLUSION, AND RECOMMENDATIONS 81
Summary 82 Conclusion 86 Recommendations 94 Suggested Directions for Further Study 100
REFERENCES 101
APPENDICES 107
VI
LIST OF FIGURES
Page
Figure 1 Map of the Philippines 3
2 Map of the Research Sites 4 (NCR/Manila, Los Banos & Calamba)
3 Aerial Maps of Barangay Payatas 21
4 Vicinity Map of Los Banos Incorporating 44 the Science Community
5 Vicinity Map of Barangay Masili (A coastal community) 69
6 Integrative Components of the Project 75
vn
LIST OF APPENDICES
Page
Appendix 1 Payatas open dumpsite before the tragic 108 garbage erosion (years 2000 and earlier)
2 Payatas today as Quezon City's central Controlled Waste Disposal Facility 109
3 Handicrafts training with recyclable waste by volunteers in Quezon City for interested individuals/groups in the community and sample products 111
4 Advocacy and social marketing initiatives of the Municipal Government of Quezon City toward community participation 112
5 List of the Los Banos Science Community member-agencies 113
6 Los Banos dumpsite prior to its conversion into an Eco-Waste Processing Zone (years 2002 and earlier) 114
7 The then Los Banos open dumpsite now an Eco-Waste Processing Center 116
8 Some initiatives and strategies of the Municipal Government of Los Banos toward community involvement in SWM 118
9 Vegetable seed/seedlings propagation using recyclable materials and compost from biodegradables at the author's home front yard 119
10 Selected photo documentation of the actual process of coordinating and conducting the pilot project in Barangay Masili in 2005 120
11 The ongoing snap hydroponics pilot project of the Barangay Council in Masili derived from the author's proj ect in 2005. 122
vin
CHAPTER I
INTRODUCTION
Solid waste refers to garbage or trash composed of materials (biodegradable
and non-biodegradable) that are considered to have no value and are discarded by
individuals, households, commercial establishments/private enterprises, and
institutions such as schools, hospitals, government and non-government offices.
Solid waste management (SWM) is becoming a complex issue in most developing
countries due to the growing urban population and industrialization. According to
the World Bank (2001), this issue is greatly affected by the country's development.
This implies that solid waste distribution is indicative of the degree of urbanization.
It is also a sign of how citizens' lifestyle changes.
The Municipal Government in the Philippines as the main channel in
managing the disposal of solid waste, finds it difficult to address this task due to
limited dump and landfill sites. Because of this, some municipalities experience
garbage accumulation along streets and public places, besides open and heavily
filled dumpsites within the community's vicinity. This scenario has resulted in
mounting public concerns about the hazardous effects of waste on human health and
well-being. The improvements in technology and recycling schemes are often not
sufficient to counter the voluminous solid waste production, obsolescence of
1
existing facilities, and shortage of dumpsites. These are further affected by
insufficient resources to support SWM programs and initiatives.
A Glance of the Research Setting: Philippines
The Philippines is a tropical agriculture-based country with 7,107 islands
subdivided into three geographic groups ~ Luzon, Visayas and Mindanao. It has a
total area of 300,000 square kilometers (km2) with land and water components of
298,170 km2 and 1,830 km2, respectively.
Its population in 2007 (National Statistics Office, 2008) has increased to 88.6
million people from 85.0 million in 2005. The annual growth rate is 2.3%. Of this
populace, 58% are women and 42% men. A big number of people live in a small
land area, which becomes even more crowded with the continuous increase in
population every year.
Luzon is the largest island in the country where Metro Manila or the National
Capital Region (NCR) and the Province of Laguna are located. Figure 1 shows the
map of the Philippines indicating NCR and Laguna. Quezon City, the largest
populated area in Metro Manila, and Laguna (specifically the towns of Los Banos
and Calamba) are the focal sites of this research on community participation on
SWM. Figure 2 presents the proximity of the research sites.
2
Figure 1. Map of the Philippines.
mm*
LEGENDS: • • BATANGAS
cAvrre LAGUNA NATIONAL CAPITAL REGION QUEZON RIZAL
SIANO/
TAOAYT/
Figure 2. Map of the Research Sites (NCR/Manila, Los Bafios, & Calamba).
4
Overview of the Solid Waste Situation in the Philippines
The emergence of industrialization and rapid population growth brought
congestion in communities, particularly in the urban areas with the massive
in-migration of people from the provinces looking for better economic
opportunities. This scenario consequently heightened the problem of improper
waste disposal which contributes to the emergence of illnesses due to health hazards
from waste, pollution, extreme floods particularly during rainy season.
The Philippines generates about 10,000 million metric tons of solid waste per
year and only 12% of the waste is recycled and reused. The single most dominant
issue is the inadequacy of disposal facilities. Presently, open dumping is still the
most common waste disposal method used as controlled dumpsites and sanitary
landfills are very limited. Solid waste is an environmental problem that has reached
critical proportions in the country. Due to a growing population, rapidly increasing
consumption, and urbanization, solid waste generated is estimated at 19,700 metric
tons per day. Projection shows that waste generation will increase by 47% or 28,875
metric tons per day by 2010 (National Solid Waste Management Commission,
2002).
The SWM experience in the Philippines as the focus of this study can be
barely described as earth-friendly. Conventionally, in rural communities, people
resort to burning and backyard dumping. In urban and urbanizing areas, garbage is
collected by trucks from the waste generators and disposed in designated dumpsites
5
and landfill areas. Metro Manila in particular, being the country's central megacity
with a huge population of 10.3 million inhabitants living within 686 km (Institute
for Local Self-Reliance, 2000) has an enormous collection of solid waste. Dump
and landfill sites have almost reached their full capacity. Uncollected garbage on
sidewalks and vacant lots has become a common sight around the capital. This
problem is compounded by the emergence of chronic diseases and tragic situations
of floods and soil erosion in times of natural disasters. Evidently, the simple collect-
and-dispose method of SWM is not a sustainable and environment friendly approach
(Lapid, 1995).
Philippine Legislative Policies in Solid Waste Management
Solid waste is a serious problem which highly contributes to the increasing
pollution levels and health hazards in the country. This condition has caught the
attention of the Philippine Government which resolved to strengthen its legislative
agenda and enforce policies as well as local ordinances to involve communities in
environmental programs concerning SWM.
It took years for the Philippine Government to come up with a
comprehensive and integrated SWM law. Most of the legislation that has been
passed addresses just an aspect of the solid waste issue. The first legislation passed
was the Anti-dumping Law in 1938. It prohibited the dumping of refuse waste
matter or other substances into bodies of water (Philippines Environmental Monitor,
6
2001: p. 18). Following this, were the Garbage Disposal Law and Sanitation Code
in 1975. These provided general orders for garbage disposal with specifications for
landfill site, identification and screening processes of municipal solid waste disposal
facilities. The Marine Pollution Control Decree of 1976 and the Toxic Substances
and Hazardous and Nuclear Waste Control Act of 1990 focused on more specific
issues. The implementation of the Local Government Code of 1991 with its
Implementing Rules and Regulations addressed matters of waste collection and
disposal, decentralizing the responsibility to the local government units.
Republic Act (RA) 8749 or the Clean Air Act of 1999, and RA 9003 or the
Ecological Solid Waste Management Act of 2000 were landmark laws on SWM
which were aimed to provide effective reforms that will protect the environment and
its inhabitants. RA 8749 was the first in the world to impose a nationwide ban on
incineration. It provides a comprehensive air pollution management program
(World Bank, 2001). According to environmentalist groups such as the Greenpeace,
who rallied for its approval, RA 8749 is an environmental milestone (Manila
Bulletin, 1999). This Act promotes the use of "state-of-the-art, environmentally
sound, and safe non-burn technologies" for the disposal of residual and medical
wastes. It includes a statement mandating the city and municipal governments to
encourage recycling and composting.
RA 9003 strengthened policy directives that counter the country's dilemma
on solid waste. According to the Philippine Legislators Committee on Policy and
7
Development (2002), it is the most comprehensive piece of legislation that details
the policies and provisions of managing waste from the municipalities down to the
community level. It calls for the creation of the National Solid Waste Management
Commission as a central body governing all aspects of SWM comprising
representatives from the government, the private sector, and non-government
organizations (NGOs). This Committee is mandated to formulate a national SWM
framework that emphasizes community-based approaches in waste reduction. It
promotes the idea of waste as a resource and diverts at least a quarter of the waste
generated through recycling, reuse, and composting with the participation of the
community as well as the private sector. RA 9003 also gives specific provisions for
existing and future solid waste disposal facilities. Open dumps are to be converted
to controlled disposal site or sanitary landfills. This Act emphasized control of the
"generation, storage, collection, transfer and transport, processing, and disposal" of
solid waste in a fashion that is in accordance to societal and economic needs, while
at the same time bring in compliance with environmental standards and principles
(Philippine Legislators Committee on Policy and Development, 2002).
Relative to community participation, policy directives and ordinances are
being put in place tapping the active leadership of the local government officials.
This primarily consists of the Philippine Department of Environment and Natural
Resources for the national program and the local government units for community-
oriented projects and activities. Other stakeholders like NGOs, civil society, the
8
academic, and international institutions are also concerned with consensus building
to carry out broad educational processes and approaches through all possible
channels to boost and uplift people's awareness, consciousness and participation at
the level of community, individual households, and industries. National policies and
directives are translated into municipal local ordinances. The inputs and roles of
these stakeholders are vital components of the total SWM system. Waste
management as a task is the collective responsibility of the majority of the sectors of
society, primarily the community.
Community and Community Participation
A community can be described as an aggregation of groups, which vary in
social class, economic status, often in political or religious affiliation, and also in
outlook and opinion. It is basically a social system within bounded territory, having
people with different needs and interests, and who also interact with each other.
With this description, it is quite difficult for the people in the community people to
spontaneously unite for a common purpose. Nevertheless, they can get involved in
community activities should they be aware that such would benefit them in the end.
This reflects an "affective community attachment" which means that people
participate because they have feel a "sense of belongingness" in their place of
residence (Liu et al., 1998: pp. 432-450).
9
According to Pfaff (1996), community is a source of group solidarity and has
the potential in mobilizing for collective action. Such solidarity, as stressed by
Goodsell (2000: pp. 357-375), sustains a community's collective power achieved
through the mutual promise of shared commitment to act in concert, and is
continually created and recreated through the union of commitment and action. In
connection with the above notions, Poplin (1979), identified crucial variables that
describe a community, such as the number of actors, awareness, goals and recipients
of action. Without community action, there is no development and the best way to
build it is to encourage people's participation in community programs/projects and
activities (Beggs et al., 1996: pp. 407-426).
The quest for unity and participation of the people in certain community
programs would initially be dependent on the approaches used by the local leaders.
Participation of people in the institutions and systems which govern their lives, is a
basic human right and an essential element of development. In a participative
model, people are mobilized to plan, and make decisions in partnership with the
government and other entities in finding solutions to social and economic issues
facing the community (United Nations Development Programme, 1990). Anchored
on this context, community participation in SWM requires that people get involved
in the activity at their own initiative; that they are aware of and understand its
benefit to them; thereby, make it part of their everyday practices. They need to
clearly understand the reason for their involvement.
10
Strategies Toward Community Mobilization
Mobilization is a process in which community members become aware of a
problem, identify it as a high priority for community action, and decide to take
action (Thompson and Perschuk, 1992). According to Ferrer (1991) as cited by
Deomampo-Cerezo (2005), community mobilization is an important part of any
community development program for people to become more productive,
responsive, and form into self-reliant groups. It is a process which involves the
active participation of the community in various stages of development work from
planning to implementation, even monitoring and evaluation that lead to people 's
empowerment.
As stipulated in the Philippine Local Government Code of 1991, the mandate
of people empowerment means that the local government units should involve all
sectors in the community in various development activities. This includes the
NGOs, people's organizations - the voluntary civic community groups, and other
sectors in society; making them aware that they constitute the truly legitimate and
relevant force in the community (Department of Interior and Local Government,
2000).
Deomampo-Cerezo (2005) further stated that community mobilization
strategy and process must be relevant and practical in the local community context.
People are more likely to get involved when decisions and a tions are based on
11
complete information on issues, problems, and other relevant concerns of the
community. There is a general agreement that community mobilization strategies,
tools, and techniques address a wide range of challenges and issues in many types of
communities. Since community differs from one another, there is no one set of
"conditions," "processes," or facts that define sure success. Some of the mobilization
strategies employed in community development and social changes are as follows:
• Advocacy. An important component of mobilization for policy support and
resources is advocacy. Mckee (1992: p. 13) defined advocacy as the
organization of information into an argument to be communicated through
various interpersonal and media channels. This is to gain political and social
leadership acceptance and prepare a society for a particular development
program. As the term implies, it is a persuasive communication for or against an
issue or concern. One of the goals of advocacy is empowerment, which
increases the capacity to define and analyze one's problems and needs.
Valdecanas (1989) stated that advocacy must be directed towards people's
decision-making power and aimed against policy makers to make them aware of
the needs and problems of the community. Thus, the main purpose of advocacy
is to generate support for a project in terms of funding allocation or some
commitment of resources. It focuses on various actors such as political leaders,
legislators, planners, and administrators in various sectors, media, organizations,
and NGOs which create a positive environment for program and service
12
delivery. According to Rose (1995: pp. 32-41), activities pertaining to advocacy
are planning with the community; dialogue with the people through assemblies;
distribution of leaflets, posters, signage displays, etc. These activities will
empower people making them realize that they can do something using their own
initiatives (Deomampo-Cerezo, 2005).
• Information, education and Communication (IEC). This is a common reference
to the communication component of development programs. IEC shows the
importance of the threefold concern of communication — information delivery,
training and human resource development, awareness and motivational
communication concerns. Valdez (2002) stated that the main aim of IEC is to
spread knowledge and encourage participation of the community.
• Volunteerism. Long range and short-term volunteerism in a community include
many factors: number of service projects completed, level of private support for
the different sectors, and meaningful fora in which to express appreciation for
volunteers. All of these factors are vital and will help achieve success if a final
ingredient of community's culture is added. Success will require inculcation of
an ethic of giving and sharing as a way of life (Civic Index, 1993). This needs
strong advocacy and a persuasive communication approach for people to realize
issues concerning their community. In return, this will initiate volunteerism and
participation among the people which are the key elements in development
programs.
13
• Networking and Collaboration. Community mobilization is based on
partnership. Networking adds success to mobilization efforts by identifying and
collaborating with relevant partners who can contribute to the program.
Community mobilization programs are directly related to the networking efforts
of the community representatives. According to Giarchi (2001: pp. 63-71),
access to and use of networks is also a strategy and a key element toward
community mobilization. These networks comprise institutions and community
organizations which indicate their interest to collaborate and become partners in
the implementation of a development program or project. Sharp (2001) contends
that the value of community networks and their qualitative aspects of interaction
structures are associated with the capacity for local action.
Alagcan (2006) indicated that collaboration and partnership are good
vehicles for building effective community development processes and structures.
Collaboration, to be successful, must be based on the commitment and
involvement of prominent leaders in the community. Support of high-level,
visible leaders brings credibility to the collaboration effort and is an essential
aspect of the success of the endeavor. On the other hand, partnership as viewed
by Lumbo (2001), can be achieved when organizations with similar vision and
philosophy, pool their resources together, and jointly work for a common goal.
They also agreed to share the risk and results of the partnership. This is
supported by Ohja (1999), who stated that partnership is an arrangement in
14
which two or more parties work cooperatively to attain a common goal, though
they have independent mandates and functions. It is based on the idea that
partnership presupposes a union of interests and a blurring of boundaries
(Arcadio, 2003). This reflects that none of the partners can perfectly function
like the other with the same interests. It is a requirement in balancing the diverse
intent of business, environment, community, and other sectors of society.
Statement of the Problem
Waste generation in the different regions of the country reflects the degree
of urbanization. In cities where the standard of living is high, there is usually a
huge amount of waste generated and collected, but with limited space for safe
disposal, ecological threats and health risks are also high. These pose challenges
to the roles of the government sectors as the lead actors engaged in SWM - the
Department of Environment and Natural Resources, local government units
especially the Barangay Councils, together with the NGOs, and the small private
enterprises (i.e. junkshops and scavengers). Following the same policies and
guidelines under RA 9003, the Ecological Solid Waste Management Act, these
channels employ various strategies and programs involving communities.
It is on this premise that this research intends to focus on analyzing the
evolving strategies that encourage community involvement in SWM; find out the
uniqueness and commonalities of the approaches employed; and the
15
sustainability of community participation. This study explores what has been
done in the past, based on relevant literature, and identifies approaches and
initiatives that work in the urban and urbanizing communities based on
Philippine experiences. It also includes my own contribution in managing
household wastes - as a mother, community member, educator, and civil servant.
My study mainly employs conducting secondary data analysis of historical and
existing literature and documents, personal and practical SWM experiences in
selected areas of the Philippines. From these reviews, conclusions are drawn
about the importance of community participation in SWM. Hence, my research
seeks to answer the following specific questions:
1. How did the government initiate the SWM program in three selected
communities?
2. Who are the major stakeholders in SWM and their respective roles?
3. What SWM approaches have led to community involvement?
4. What barriers hinder the implementation of SWM program in
communities?
5. What are the lessons learned from the three case studies?
6. What are the recommendations to promote and enhance community
participation in SWM as well as potential areas for further research?
16
Methodology
Selection of the study sites was based on population density and location
improvements. In particular, this study presented two success stories of
transforming an open garbage dumpsites into a controlled waste processing zone,
and my experience in initiating and conducting SWM-related project in a
community.
The first case was in Quezon City, which has the highest population in Metro
Manila, the capital of the Philippines. The particular focus in the Quezon City case
was the historical transformation of the Payatas garbage dumpsite into a facility for
controlled waste disposal. This conversion started in November 2000 and by 2004,
the Controlled Waste Disposal Facility of Payatas was fully operationalized.
The second case was Los Banos in Laguna, which is 64 kilometers away
from Manila. It is an urbanizing town known as the "Science and Nature City,"
where the University of the Philippines Los Banos campus and a number of local
and international research and development institutions are located. The specific
focus of the discussion is the conversion of the town's open dumpsite situated at the
foot of Mt. Makiling into an Eco-Waste Processing Zone with active involvement of
the community. The operation of this waste processing center was started in 2004.
The last case was my own experience in initiating and coordinating a SWM-
related project in Barangay (or village) Masili, Calamba City, an adjacent town to
17
Los Banos and also located in Laguna. Masili is a coastal community, which has
been the pilot site of my project on SWM in 2005.
The study centers on solid waste generated by residents and households in
the selected communities. The following methods were used: 1) Most data were
taken from public documents on SWM, i.e., historical and existing records both
published and unpublished, which include books, annual and program/project
accomplishment reports, journal articles, newspaper clippings and internet search,
among other documentations available from the Municipalities of Quezon City and
Los Banos as well as library research at the University of the Philippines campuses
in Los Banos and Diliman, Quezon City; 2) textual analysis of the pertinent
literature and studies obtained from the above sources; 3) learning from personal
experiences as a volunteer and a demonstrator guided by the "learning by doing"
principle; and 4) reflection on the sociological implications of SWM in the context
of being a mofher/homekeeper, community member, educator, and government
researcher/civil servant from 1988 to 2006 in a national agricultural council for
research and development in the Philippines.
Generally, the discussion and analysis of the research findings are
descriptive in nature adapting the interpretive mode of qualitative research.
Moreover, the analysis highlighted lessons learned from literature reviews, case
studies, and my own experience.
18
CHAPTER II
CASE STUDY 1: TRANSFORMATION OF PAYATAS DUMPSITE INTO A CONTROLLED WASTE DISPOSAL FACILITY
"For most cases, garbage crisis is limited to its collection. As long as the mounds of garbage are removed, it is a problem out of sight and out of mind".
— Asian Development Bank, 2004
Solid waste generation is one of the major environmental issues, which has
risen significantly in highly urbanized and industrialized areas. Metropolitan cities
in developing countries like the Philippines relentlessly encounter solid waste
consequences such as uncollected garbage, inadequate and inappropriate disposal
facilities, and flooding. Floods occurred during typhoons when soil eroded with
much garbage in overflowing water from rivers and canals that run through the low-
level communities.
As Asian Development Bank (2004) stresses, "For most cases, garbage crisis
is limited only to its collection. It is a problem out of sight and out of mind". Thus,
it becomes a never-ending struggle for the national and local government units
against uncontrolled and voluminous waste.
Metro Manila and Its Solid Waste Scenario
Metro Manila, as the center for trade and commerce of the Philippines,
consists of 17 cities/municipalities with a total population of 11.6 million (National
Statistics Office, 2008). In 2003, its population ranked as the second largest
19
population in the country despite being the smallest region with respect to its land
area.
Quezon City is the largest among the 17 municipalities in Metro Manila. It
has a total land area of 16,112.25 hectares or 161 km with 2.7 million population at
an annual growth rate of 1.92% (National Statistics Office, 2008). About 5% of the
city's land is covered by Barangay Payatas. The barangay has 774 hectares of land
area occupied by 200,000 people or 40,000 households. Figure 3 shows the aerial
maps of Barangay Payatas. Within the barangay is the main solid waste dumpsite
which has been in existence for more than three decades and caters to the 2.5
million residents of the city (National Statistics Office, 2005). It is one of the
primary garbage dumping sites of Metro Manila since 1973.
SWM in this megacity has been a big issue to its government as a
consequence of continuous "progress." Specifically, population expansion together
with the changing lifestyle of people, rapid urbanization and commercialization
contributed much to the increasing environmental problem. Metro Manila has the
highest waste generation in the island of Luzon estimated at 1.8 million tons a year
of which 74% came from the households, i.e., about 1,220 tons a day (National Solid
Waste Management Commission, 2000). With this, the government is spending
about Philippine Peso (PhP) 3.8 million a year (estimated at CAD $95,000 @ $1:
PhP40) to manage its solid waste reduction categorized into recyclables,
biodegradables, residuals, and other forms. The total annual spending of Manila
20
• > • . . • * > " • T&S>
Figure 3. Areal Maps of Barangay Payatas.
•J- 4
*£ * ' "
J « V ' «•-
. •Skf^i
Source : Metropolitan Manila, Philippines, 2007.
21
alone for garbage collection amounted to PhP10.5 million (CAD $262,500) at
PhP 1,500 per ton of garbage. If recyclables and biodegradable are segregated at
source and not disposed in dumpsites, about 95% of the budget or nearly PhP3.6
billion per year were expected to be saved. Thus, there was a great need for
systematic SWM (Asian Development Bank, undated).
Harsh environmental degradation and health risks from inappropriate and
mismanaged garbage disposal practices have become visible and alarming.
Dumpsites had been seen as the solution for all the waste generated in Metro Manila.
However, the dumpsites posed risks and problems. They generated potentially toxic
liquids called "leachate" contaminating surface and groundwater, which are sources
of drinking water. Furthermore, the burning of waste from dumpsites spread fumes
of toxins into the air. This scenario described the mountainous garbage within the
Payatas community since 1973 until early 2000. The critically unstable mountain of
waste had also been predicted to possibly cause a deadly garbage slide (Asian
Development Bank, 2004).
The Tragedy in Payatas Garbage Dumpsite
The Payatas tragedy in Quezon City in July 2000 was an 'eye opener' to the
emerging demand of addressing solid waste problem. It highlighted the severity of
Metro Manila's garbage crisis. Hundreds of homes were buried and people, mostly
scavengers, were killed when the Payatas garbage pile collapsed after a weekend of
22
heavy rains. This catastrophic garbage slide killed 229 scavengers and injured more
than hundreds of people (Rentoy, 2005). The incident significantly brought to the
Philippine Government's attention on the issue of improper disposal of solid waste.
Appendix 1 shows the mountainous garbage in the Payatas open dumpsite prior to
the tragic incident of erosion.
Under pressure from civil society groups and community organizations
dissatisfied with improper landfill and open dump management, (Philippine
Environment Monitor, 2001), President Gloria Macapagal-Arroyo ratified a new
National Solid Waste Management Bill in 2001. This policy set high standards for
the country's Integrated Sustainable Waste Management emphasizing the
importance of policy makers' awareness of contextual factors in devising and
initiating workable environmental policies focusing on SWM.
Transformation of Payatas Garbarge Dumpsite into a Controlled Disposal Facility
In view of the dumpsite disaster in Payatas and the pressing issue of solid
waste particularly in Quezon City, SWM became a priority concern of the city
government. Accordingly, Hon. Feliciano SB. Belmonte Jr., City Mayor, stated that
"a more efficient garbage collection and disposal system has to be established with
economically sound procedures" (Rentoy, 2005). This was to mitigate the adverse
23
environmental, health, and economic impacts of improper waste management
(Rentoy, 2008).
The tragedy of the trash slide in Payatas temporarily closed the dumpsite
with plans of transforming it into a sanitary landfill. However, its closure led to a
garbage collection crisis with waste left uncollected throughout the metropolis. In
November 2000, Payatas was reopened to serve as a transfer station of garbage. It
was fully converted and operated as a Controlled Waste Disposal Facility of Quezon
City in January 2004 (Sabater, 2006). Appendix 2 presents today's developments in
the Payatas Waste Facility.
Enforcement of Relevant Municipal Policies and Ordinances in Waste Management.
Administratively, RA 9003 or the "Ecological Solid Waste Management
Act" provides the legal backbone for systematic, comprehensive, and sound
ecological solid waste advocacy and management (Congress of the Philippines,
2000). This law viewed waste as a resource that can be recovered by following and
putting into practice the 3R principles: Reduce, Reuse, and Recycle.
While the extent of recycling through local government initiatives has been
limited, the process of recycling from the point of waste segregation to the stage of
transforming useful waste into another marketable product i.e. an income source,
makes it extensive. This necessitates coordinative work with the community and the
private sector. The scavengers play vital roles in this activity. Through this
24
approach, it is estimated that about 10% of the total waste generated can be recycled.
With RA 9003, higher amounts of waste are recycled and a 25% waste reduction
over a 5-year period is expected.
The transformation of Payatas into a controlled disposal facility led to the
formulation and adoption of many relevant policies under the supervision of the
Quezon City administration. Guided by the national government laws and
ordinances at the local level, the City imposed several garbage collection policies,
which are listed below:
• Garbage from all households including subdivisions1 shall be collected twice a
week. Any requests for additional days of collection shall be borne by the
homeowners through city-accredited private haulers.
• The collection schedule in high refuse generating residential areas identified by
the Environmental Protection and Waste Management Department shall depend
on the volume of waste generated, which means that these areas may be served
daily/ twice/ or three times a week.
• Waste generated by commercial and business establishments shall be collected
by city-contracted haulers only when they are along the route of collection. No
special collections shall be carried out by city-contracted haulers.
1 Subdivisions refer to "gated residential communities" with controlled entrances for pedestrians, bicycles, and automobiles, and sometimes having a closed perimeter offences. They usually consist of small residential streets including various amenities like a park, sports area, etc. They are situated within certain portion of the barangay or village of which homeowners are generally well-off.
25
• Only the domestic waste2 of industrial establishments and hospitals along the
route of collection shall be collected by city-contracted haulers.
• Industries and hospitals shall seek the services of a waste treatment company
duly accredited by the Department of Environment and Natural Resources for
the collection, cleaning, and disposal of toxic, hazardous, and hospital infectious
waste.
• Construction and demolition debris shall not be collected by city-contracted
haulers.
To date, Quezon City has already enacted 17 ordinances on SWM which
according to the Metro Manila Development Authority is the highest among all local
government units in Manila. Moreover, recent ordinances on SWM were enacted by
the City as a showcase of its make-over. Among the latest ordinances passed by the
municipality include:
• Ordinance SP-1711, S-2006: Regulating the operation of junkshops in Quezon
City and imposing a penalty for violation;
• Ordinance SP-1506, S-2005: Amending Ordinance No. 6305, prohibiting the
throwing of any kind of garbage, waste matters, or refuse in any drainage outlets
such as rivers, creeks, or any tributaries in Quezon City;
2 Domestic waste includes segregated garbage which is commonly collected from households (biodegradables and non-biodegradables) such as plastics, scrap metals, papers, food leftovers, etc.
26
• Ordinance SP-1530, S-2005: Mandating residents, owners, and operators of
institutions and establishments to clean their own surroundings including canals,
streets, or roads in their immediate premises to make Quezon City a cleaner and
healthier place to live in and providing penalties for violation;
• Ordinance SP-1501, S-2005: Requiring subdivision developers and/or
subdivision owners in Quezon City to provide sufficient space for the installation
of composting facilities to accommodate the disposal of recyclables or
biodegradable waste generated by homeowners and providing for penalties and
administrative sanctions for violation;
• Ordinance SP-1323, S-2003: Adopting guidelines and procedures for a unified
approach in managing solid waste;
• Ordinance SP-1203, S-2002: Granting incentives to barangays practicing best
SWM; and
• Ordinance SP-1191, S-2002: Providing incentives to all barangays utilizing their
own trucks for solid waste collection service in their respective areas (Rentoy,
2008).
Stakeholders' Partnership and Collaboration for the Operation of the Payatas Controlled Waste Disposal Facility
Under the supervision of the City Mayor, Payatas gradual transformation into
a disposal facility was achieved. Through the cooperation of a number of
27
organizations, which collaborated in achieving the goal for the conversion of
Payatas, efficient and effective planning strategies were defined. Among the
organizations which contributed to the Payatas initiatives were:
• Isabela P. Mercado Environmental Services, Inc., a private contractor signed up
by the Environment Protection and Waste Management Department of the
Municipality of Quezon City to collect the city's garbage;
• Payatas Operations Group, a workforce of 200 persons headed by former
Philippine Army Colonel Hadji Jameel Jaymalin, who provided control of the
operations done within the vicinity of the Payatas dumpsite (Rentoy, 2005); and
• NGOs such as the Homeless People's Federation Philippines, Vincentian
Missionaries for Social Development Foundation, Inc., and Star of Hope
Philippines.
The Municipal Government of Quezon City designated its Environment
Protection and Waste Management Department to implement the city's SWM
program. It consisted of 93 contractual personnel who implemented the monitoring
system of waste disposal in Payatas facility. Together with other contractors
working in tandem with the said Department, the facility was maintained and
developed. Mercado Environmental Services and other private contractors had
about a hundred trucks, each with a crew of two paleros (garbage haulers), driver,
and sweep coordinator, rolling into their designated dispatching area in Barangay
Payatas. Each truck was issued a Work Assignment Ticket and preceded to their
28
assigned routes picking and collecting all the garbage from shops, offices,
households, and other establishments. The collection process took an average of
three to four hours. Three mopping-up operations were conducted at almost four-
hour intervals. Mobile monitors roamed the community and reported via radiophone
to the Mercado Environmental Services Supervisor the uncollected garbage within
the district. In response, the Supervisor directed designated trucks to collect the
garbage in the next mopping-up operation or re-routed a truck to the spotted place to
pick up the garbage and unload the hauls in the disposal area of the facility.
The Operations Group supervised the conversion and eventual operation of
the Payatas Controlled Waste Facility. The process of transformation involved a
number of measures to restructure, upgrade, and optimize the utilization of the
dumpsite to invigorate the place and mitigate the environmental impact of its
operations. These included slope stabilization, greening of the slopes, drainage
system improvement, and leachate collection and recirculation. The slope of dumps
in Payatas, which used to be dangerously steep at 60-70 degrees angle, had been
reduced to a more stable 23-25 degrees through side-cutting and terracing. This
prevented garbage slide and surface run-off, thus averting water seepage and
leachate generation. The re-profiled slopes used soil cover to avoid erosion and
make it more stable. Greening of the slope was achieved by providing vegetative
cover on the slope. Vetiver, a plant species with an extensive root system was used
to cover the slope since it is capable of anchoring tightly in the soil and to further
29
stabilize it. This was an adoption of a study conducted by the University of the
Philippines Los Banos and the University of Singapore on the use vetiver grass for
greening purposes. Separate drains were constructed to enhance the drainage system
of waste facility. This ensured that rainwater was adequately collected especially
during heavy downpours; otherwise water would penetrate on the ground, and cause
erosion and slides. In addition, open canals and ditches were also constructed along
the periphery of the dumpsite to allow greater volumes of surface water runoff. It is
regularly dredge to ensure free flow of water. On the other hand, leachate was
collected through a drain conveyed to a pumping station and re-circulate above the
ground via sprinkler system to water the vetiver grass and other growing plant
species on the mulched dumps (Rentoy, 2005).
Other NGOs played key roles in social responsibility to provide livelihood
programs to the families living in Payatas. The people (scavengers in particular),
whose source of livelihood is derived from the trash, were provided with seminar-
workshops on income generation from recyclable materials through the NGOs
assistance. On the other hand, more than 300 families, specifically those residing
along the danger zone, had been relocated temporarily with the aid of the Municipal
Government.
30
Approaches Employed for Community Involvement
Community-based initiatives involved waste segregation at source, recycling,
and composting. The barangay leaders and NGOs directly working with the people
in the community aligned their respective programs with the execution and advocacy
of an effective and efficient implementation of SWM (Asian Development Bank,
2004).
In relation to the above, the Local Government of Quezon City created and
implemented various SWM-related programs and projects involving the community
and other stakeholders (Municipal Government of Quezon City Flyer, undated).
These were:
• Solid Waste Reduction
Simot Basura sa Barangay (Waste Picking in the Village). It was
created under the Executive Order No. 24 which declared that every last Sunday
of the month is the "Simot Basura sa Barangay Day" (Community Waste
Picking during Barangay Day). It was introduced to get rid of bulky waste such
as earth mounds, tree cuttings/trimmings that were usually mixed with regular
household waste. It also included securing and preventing the city's waterways
from incoming solid waste indiscriminately thrown of into them.
Sinop Basura sa Barangay (Village Solid Waste Reduction). This was a
community-based SWM program, which aimed to reduce the volume of solid
waste at the point of generation. It specifically supports the implementation of
31
"separate collection" or the "no segregation, no collection" scheme in the
barangay. Garbage segregation is done at the household level, otherwise
unsegregated waste will not be collected which result to an increasing risk of a
"mess of garbage" at certain households. In conjunction with this activity, was
the implementation of the Sweepers Brigade — a program that deployed
sweepers toward a litter-free street. It employed 260 street sweepers, which
concentrated on maintaining clean roads, gutter repainting, and grass cutting as
integral parts of their daily operations.
Door-to-Door Collection System, This is a system of waste collection
applied to places within Quezon City that were not accessible to big collection
trucks. Community leaders were assigned and provided with pushcarts for
house-to-house garbage collection. Garbage collected was later transferred to
trucks stationed in the main road.
• Livelihood from Solid Waste
Kalat Mo, Kabuhayan Ko (Your Garbage, My Livelihood). Launched
during Quezon City's Foundation Day in 2006, this project encouraged and
taught barangay constituents to make profitable handicrafts out of the waste they
usually discard. The city government with volunteer NGO representatives and
small business owners, provided training to interested individuals and groups
from various communities in the city. Appendix 3 shows the training on
handicrafts' making from recycled waste conducted by the volunteers of Quezon
32
City for the community, and some sample products such as wall decor, flower
vase, tissue holder, fan, among others.
Organization and Shift Schedule of Scavengers at the Controlled Waste
Disposal Facility. From various communities aside from Payatas, there were
about a thousand scavengers who depended on garbage as their source of income.
With the Payatas Operations Group and the barangay leaders, they were
organized into seven subgroups of scavengers on a rotating schedule (shifting) for
picking recyclables and reusable materials from the solid waste. These scavengers
had the option to either sell collected garbage to junkshops of their choice or to
recycle them into another item for sale in the market.
• Advocacy and Social Marketing
The Solid Waste Market. The city government, in coordination with the
private sector, identified strategic avenues to promote and showcase recycling of
traditional and non-traditional waste. Booths and stalls were set up in various
malls in the city. Every first Friday and Saturday of the month, these
promotional tours were conducted in super malls and on the 4th Friday of the
month, it was held in specific city locations. Items that can be redeemed
comprise: papers, plastics, metals, aluminum cans, bottles, junk electronics,
used ink and toner cartridges, lead acid batteries, juice packs, used oil, etc.
Massive IEC Campaign. To enhance community awareness and
consciousness on the need, importance, and benefits of SWM, consultations,
33
seminars, training workshops on proper solid waste segregation, recycling and
management were conducted within barangays, schools, and business
establishments. These included the distribution of information and educational
materials like flyers, posters, and pamphlets mostly written in Tagalog (national
dialect). Special events such as the Earth Day and Environment Month
Celebrations were held with speakers from the national and international
institutions engaged in environmental programs, participated in by the private
sector, NGOs, community leader representatives, among other concerned groups.
Bawas Basura (Waste Reduction) Mascots. The Quezon City-
Environment Protection and Waste Management Department introduced the
"Bawas Basura Mascots". They are individuals who wear masks and costumes
which symbolize SWM-related meanings to capture people's attention and
interest. Names given to the mascots were based on SWM terms in Tagalog,
i.e., "Tintin Kutingting (Reuse)", "Christina Compostina (Compost)," and
"Dodong Masinop (Recycle)" which were also printed in their costumes. These
Mascots promote solid waste reduction, segregation and recycling intended for
the youth and children as an early awareness campaign on the proper
management of solid waste. They usually visited malls, city events and
festivities, and school programs. Likewise, big posters with the slogan "Maliliit
na Basura, Ibulsa Pansamantala" (placing small garbage into one's pocket for the
meantime to avoid litter) were posted in different strategic areas where people
34
normally pass and stay. This served as a reminder for people not to litter, and
eventually became a habit for them. Community volunteers took part in
disseminating reading materials to households and business establishments, as
well as in posting the posters.
Zero Litter 2010. In February 2008, the city government initiated the
Zero Litter 2010 Program, which aims to educate the public on the shared
responsibility of maintaining cleanliness in the city. This IEC campaign focuses
on instilling discipline among the residents, business operators and owners with
respect to their concern and conscious effort toward SWM. Along with this was
the Junkshop Standardization Project that incorporated an informal sector
(junkshops) into the SWM program of the city by providing environmental
standards for the sector to follow (Rentoy, 2008).
Appendix 3 illustrates the advocacy and social marketing initiatives of the
Municipal Government in collaboration with various organizations, community
leaders and volunteers.
Barriers in the Implementation of the SWM Program
Problems of community involvement had arisen at different levels from
enforcement of the regulations to the implementation of relevant programs that
needs shared support (physical, technical, financial, etc.) from concerned
institutions. Despite the efforts of the legislators/policy makers together with the
35
national and local government leaders as well as NGOs, there is a continuing
dilemma on enhancing community participation in managing their own generated
waste. It is because of the obvious increase of population due to in-migration,
especially in Metro Manila. Hence, there is a need for a sustained campaign to
orient people towards SWM and to enhance their awareness of the various SWM
policies and programs in their communities in order to get them involved. This has
to be complemented with resources from involved institutions primarily the local
government units, which has a limited budget. In addition, these institutions have
their respective mandates, objectives, and programs, SWM is one of those priority
projects they are supporting .
According to Rentoy (2008), the low level of public awareness on SWM was
a critical consideration in the goal of gaining community participation.
Considering the huge and increasing population of Quezon City with a very small
land area, it was difficult for the city government to encourage people's involvement
in the SWM program. People tended to rely on local leaders. Awareness and
consciousness build up really took time before people constantly participated.
People were focused more on earning a living rather than managing their waste.
Monitoring the violators was a shared responsibility of the local government and the
community. Generally, the local leaders composed of the Barangay Captain and
Councilors take the lead in monitoring the non-compliance of the SWM ordinances.
Usually, the Councilors are assigned a sub-village to take care of with volunteers
36
from the community. They conduct meetings with the people to solicit suggestions
and encourage their participation to comply with the ordinances. Often, there are
women who speak about their household members' unintentional negligence to
comply with the proper management of solid waste and the reasons why they do so.
This helps the local leaders and the people to settle the problems at the community
level, and become aware of the degree of non-compliance. For Metro Manila with
its big and rising population, violators also increase. Monitoring helped instill
discipline and reinforced awareness concerning the consequences of non-compliance
of solid waste ordinances. The city government also concentrated on strengthening
the operation of the Payatas Waste Facility and promoting the benefits of SWM to
the people by enhancing its EIC campaign.
Controlled Waste Disposal Facility's Progress in Payatas Community
The new Payatas is now considered as a successful outcome of the city's
struggle for SWM. All the initiatives of waste diversion have already shown
measurable effect on the volume of trash that ends up at Payatas. In 2005, it had a
daily waste uptake of 1,214 tons, which was almost 50 percent less compared with
that of 2004 with 2,358 tons per day. As the pile of waste deteriorates, it produces
methane gas, which the city learned to utilize. The Payatas Facility now has a power
generator using the methane gas exuded from waste.
37
Based on the study conducted by the Philippine National Oil Company-
Exploration Corporation in 2002, the former dumpsite can produce sufficient gas in
the next 10 years. It can generate 1 megawatt that is enough to provide a
considerable amount of power for the Payatas community. As a result, a pilot
methane gas power plant was built at the dumpsite in 2003 to capture the methane
gas from the biodegradation of waste via surface and underground pipelines. This
was fed into the 100-kilowatt engine generator set that converts the gas into
electrical power. In 2004, the Facility was able to light methane-powered Christmas
lights all-night long throughout the holiday season. Through the electric facility,
people residing in the community can do their laundry and ironing for free. This is
also considered a breakthrough in the management of Payatas dumpsite.
Future plans are now being laid out to maximize the full potentials of the
dumpsite for the benefit of the community. In particular, the 1 megawatt gas-to-
power project is currently being evaluated by international monitoring agencies to
determine its qualification for a Clean Development Mechanism (CDM) project.
This certified project aims to reduce the emission of greenhouse gas which can be a
potential community development fund raising by selling its carbon credits to
industrialized countries that need reduction of their greenhouse gas.
Under the Kyoto Protocol, industrialized and developed nations agreed to
reduce their collective greenhouse gas emission by at least 5 percent from 2008 to
2012. To achieve the targets, the Protocol created flexibility mechanism such as
38
CDM embodying the concept that mitigation activities could be translated into
instruments called carbon credits that can be traded between countries to obtain the
quantified emission limitations and reduction commitments (Australian Department
of Foreign and Trade, 2006). Waste management projects, especially those that deal
with the production of methane from biodegradation of organic waste, are eligible as
CDM project (Rentoy, 2005).
Lessons Learned
To achieve a systematic waste disposal system through community
participation, strong leadership, political will, and the integration of a variety of
creative and innovative strategies were observed to be of great importance in
initiating SWM Program. However, the focus on strong leadership creates the
question on the sustainability of the program. Thus, the need for a highly involved
constituency would guarantee sustainability.
Most of the strategies implemented by the Municipal Government include
interventions that strengthen the knowledge and awareness of the people in the
community about the benefits of managing solid waste, including the notion of
"garbage as a resource" which means income source or "money generator". The
scheduled redeemable recyclable waste at various malls in Quezon City, provision of
training workshop for handicraft making from recyclables, for interested individuals
and groups in the community, implementation of a "Sweepers' Brigade" which
39
provides employment to a number of people in the community who serve as street
sweepers, and the organization of scavengers by sub-groups on a shifting schedule
for picking recyclable and reusable waste within the Payatas Controlled Waste
Disposal Facility are valuable initiatives for income/money generation. This in
effect encourages community participation for these strategies only need people's
effort, interest, time with very little or without any cost at all.
The inculcation of environmental ethics among community members, most
especially the youth, is an essential step to alleviate environmental issues of
mismanaged solid waste.
40
CHAPTER III
CASE STUDY 2: CONVERSION OF LOS BANOS DUMPSITE INTO AN ECO-WASTE PROCESSING ZONE
"Garbage problem is not a sole responsibility of the government; the citizens must do their share on proper waste disposal. Everyone is enjoined into becoming a disciplined citizen by practicing waste segregation, composting, re-use and recycling. No amount of high technology and financial capability can solve the garbage problem without discipline, as it is the road to community and nation's progress."
—Perez, Science & Technology Week Forum, 2006
SWM is a concern of every municipality and city in most parts of the
Philippines. Since the 1980s, Los Banos, one of the towns in the province of
Laguna, faced problems and challenges on how to reduce waste in its locality. The
foot of Mt. Makiling Forest Reserve was the site of an open garbage dumpsite that
affected people's health, especially of those in nearby communities. It likewise
created environmental problems due to the pollution it created. The conversion of
this open dumpsite into an eco-waste processing zone was a struggle among its
stakeholders. A stakeholder is any person, community, group, or institution having
interest in a development program, project or activity and its outcome (Qualman,
1997). It includes both the intended beneficiaries and intermediaries, and those
involved in the decision-making process. These are people and groups which
collaborate and become partners having commitment in the sharing of their
resources toward a more expedient delivery of services and outputs (Mosqueda,
1999).
41
In Los Banos, the participation, collaboration and educational campaigns of
the local government, the science community, and the people themselves to instill
knowledge and awareness allowed the SWM program to succeed and become a
model for other communities in the country. The program focused on the idea that
waste management is the responsibility of all sectors of society and requires
discipline among the citizenry (Perez, 2006).
The Town of Los Banos, Laguna
The Municipality of Los Banos, Laguna (under Region IV) is situated
between the shore of Laguna de Bay and the legendary Mt. Makiling, 63 km south
of Manila. It has a total land area of 5,650 hectares, 42% of which is covered by the
University of the Philippines Los Banos and 22% military reservation and other
government organizations. The rest are commercial, agricultural, and residential
areas from which the municipality derives income for the implementation of its
priority programs.
The town comprised 14 barangays and 83 'sitios' (sub-villages) with a
population of 92,071 composed of 17,030 households. It has two public markets
and approximately 2,500 commercial establishments based on 2004 demographic
data (Municipal Profile of Los Banos, 2004). From a backwoods town, home to a
number of agriculture-based research and development institutions, Los Banos has
evolved from a Special University Zone in 1979 (Letter of Instruction No. 883) to an
42
Agriculture, Forestry and Life Sciences Community in 1982 (Executive Order No.
784). In year 2000, it was proclaimed as a "Special Science and Nature City" by
virtue of Presidential Proclamation No. 349 (Los Baiios Science Community Post
2000: pp. 1 & 5).
Helping the municipality in its SWM program is the Los Banos Science
Community. This Science Community was established in 1984 and reconstituted
into a Foundation in 2001. It is a unique organization consisting of public and
private institutions with diverse yet complementary strengths in the fields of the
sciences, arts, business, and social services. It envisions and commits to effectively
cooperate towards the creation of a model community by addressing priority needs
of the Los Baiios community and similar environs through creativity and innovation.
This is anchored in its vision of building a prosperous, environmentally-
conscious, scientifically-oriented, humane, and united community, living in harmony
with nature (Los Baiios Science Community Post 2001: p. 1). The Los Baiios
Science Community Foundation, Incorporated constitutes 22 national and
international research and development agencies, most of which are located within
the University campus. They have sectoral programs on education, livelihood and
environment. Figure 4 presents the vicinity map of Los Baiios incorporating the
member-agencies of the Science Community (Appendix 5).
In 1994, Los Banos received an award as one of the top 10 "Cleanest Town
in the Philippines" (Los Baiios Science Community Post 2001: p. 5). It also gained
43
TO MANILA
• DOST-IV • IRRI • BPI-LBNCRDC • PMLRICE / • PCAMRD * UPLB • PCARRD • SEARCA • PARRFI * ERDB Q
• FPRDI 7 • Municipal • UPLBFI
Government of Los Banos 0 LBP
+ DA-LBFFRS * LWD
T LBCF
* LLDA UNIVERSITY OF THE PHILIPPINES COLLEGE OF FORESTRY
FOREST RESERVE
MT. UAKIUNG
TO BAY
Source: Los Banos Science Community Brochure, 2000.
Figure 4. Vicinity Map of Los Banos Incorporating the Science Community.
44
national recognition as Science and Nature City with collaborative and
complementary support from the member-institutions of the Foundation. Los Banos
continues to champion the cause of eco-tourism, green business and enterprise
development. It vows to advocate continually for ecological governance that
capitalizes on SWM.
Solid Waste Condition of Los Banos: Issues and Challenges
From the total land area of Los Banos, 64% is utilized for military and forest
(Mt. Makiling) reservations. This evidently contributed to a pressing problem of
limited space for sanitary landfills of the town's voluminous garbage. The daily
volume of 33-35 tons per day of unsegregated solid waste was mainly attributed to
the municipality's expanding population and increasing number of business
establishments. The accumulated waste from more than 20 years of use since the
1980s in the open dumpsite was aggravated by continuous waste disposal from
nearby towns, non-participation in waste segregation of the citizenry, and their
reliance solely to the local government units in solving this crisis. The absence of a
functional system of waste reduction, recycling, and disposal without enforcement of
local ordinances posed challenges to government leaders in the locality (Perez,
2006).
45
According to the Department of Environment and Natural Resources (1998),
open dumpsites are considered as the only form of solid waste disposal facility that
is affordable to the LGUs. However, this is based on simple financial calculations,
neglecting the direct and indirect costs associated with continuing and rising
environmental degradation, which impacts upon public health and the safety of the
population as a whole. This includes the effects of smoke, dust and persistent foul
odors on air and water quality; the presence of insects and vermin, the potential
vectors that spread diseases and allergies; and the overall impact on the environment
(people's habitat and source of food), among others. Based on the environmental
risk assessment project final report of the University of the Philippines Los Banos
(Alcantara, 2005: pp. 1-5), prior to 2001 most households in Los Banos dumped
their waste into creeks, waterways, canals and street corners, resulting in massive
breeding grounds for pathogens, parasites, and disease vectors. Small businesses
located in heavily populated areas also indiscriminately disposed of waste, such as
non-biodegradable materials, plastics and composite packaging into creeks.
Likewise, commercial and medical centers dumped potentially hazardous wastes.
People handling them, particularly the waste pickers/scavengers, were
predominantly exposed to pollution and experienced a high exposure to health
hazards. The 24-hour smoke emission from burning combustible waste was a
common complaint of nearby communities. These were the major social and health
problems brought about by the persistent and risky waste disposal system of the
46
open dumpsites ~ an 'eyesore' for Los Bafios known as a city where science
embraces nature. Appendix 6 shows the Los Banos garbage dumpsite before its
conversion into an eco-waste processing zone.
Recognizing the above issues and challenges, the Municipal Government of
Los Bafios, Science Community Foundation, and the Barangay Council, jointly
searched for a suitable site to process community waste.
From Open Dumpsite to an Eco-Waste Processing Zone
An open dumpsite is a disposal area where solid waste are indiscriminately
thrown without proper planning and consideration for environmental and health
standards (Alcantara, 2005: p.3). In municipalities with hilly areas, dumpsites are
typically located along the slopes of creeks, like in the town of Los Banos, which is
situated at the foot of a Forest Reserve. The threats to environmental security,
public health and safety of communities and their economic activities, have to be
addressed in collaboration with the local government and the people in the locality.
A safe and secured SWM facility is needed to protect the health of the community
and to support the economic development of the municipality.
47
Enforcement of Policies and Local Ordinances in SWM
RA 9003 of 2000 imposes mandatory segregation and recycling of solid
waste at the barangay level, and sets the deadline for the closure of dumpsites to
make way for the establishment of fully operational sanitary landfills. Segregation
at source is not widely practiced in communities, as recycling and recovery are
conducted in almost all communities on an informal and limited scale.
Under the said Act, it is stipulated that the local government is responsible
for collecting non-recyclable materials and special waste, while the barangay units
are given the task of collecting and segregating the biodegradable waste that can be
composted and reused. From this provision, the Municipality of Los Banos issued a
series of Municipal Ordinances and Memorandum Orders down to the community
level through the Barangay Council for strict compliance (compiled policies and
ordinances on SWM, as of 2008). These are as follows:
• Ordinance No. 2004-363, Declaration of "Pista ng Kapaligiran" (Environmental
Festivity) in Los Banos every 2nd Saturday of September;
• Ordinance No. 2001-07, Establishment of Task Force Kalinisan (Clean) which
designates groups to oversee the cleanliness of specific area that include river
ways, and impose penalty to violators;
• Ordinance No. 2004-338, Creation of SWM Board with Memorandum Order for
the creation of the Barangay Ecological SWM Committee. This appoints
48
Deputized Volunteer Enforcers and Task Force 'Kalinisan' (Clean), and the
formulation of a 10-year SWM Plan;
• Ordinance No. 2001-08 and Memorandum Order No. CPP-04-203,
Institutionalizing proper SWM (supported with an Order imposing
administrative case on any person. This includes the barangay officials who
violate rules under RA 9003 and this ordinance; and
• Ordinance No. 2008-752, Prohibiting the use of plastic bags on dry goods and
regulating their utilization on wet goods and prohibiting the use of styrofoam in
the Municipality, imposing penalties for non-compliance and violations.
The 'Birth' of the Ecological Waste Processing Center
The implementation of RA 9003 and its Implementing Rules and Regulations
has brought a major shift from garbage disposal to an ecological SWM. The
enactment of this law in 2000 coincided with the new leadership and administration
of the Municipality of Los Banos as a result of the local election in the same year.
The town's priority program has been set toward environmental protection and
rehabilitation that capitalized on SWM. In 2001, through the initiative and
leadership of the Municipal Mayor, with the technical assistance of the Los Banos
Science Community Foundation Inc., the plan to convert the dumpsite into an Eco-
3 An administrative case is a written complaint by an individual, group or sector of society against a person who violates a certain law or rule. This is a "sue" issued by the court to a person who committed an offensive activity/harassment to the other individual.
49
Waste Processing Center was planned. This primarily addressed the environmental
ills caused by the uncontrolled and voluminous waste disposal in the dumpsite.
After a series of meetings, consultations, and dialogues with concerned
stakeholders that comprised the member-institutions of the Science Community,
the Barangay Councils and representatives of the different government and non
government organizations, the municipal government finally crafted the town-wide
SWM Plan that highlighted the Waste Processing Center. It subscribed to the
principle that waste management is the responsibility of all rather than only the
government's and a few other sectors. It is an integral concern of environmental
protection, health, sanitation, employment, business, education, and other general
public welfare agenda.
As indicated in the 10-year plan of the Municipality, the goal was to
ultimately reduce and recycle waste into usable forms with the participation of the
community (Municipality Government of Los Banos, 2004). Through eco-
governance, Los Banos was envisioned to be one of the cleanest and healthiest
municipalities with a highly empowered and responsible citizenry. The Eco-Waste
Processing Center specifically aimed to implement soil and water conservation
measures for slope stabilization, acquire an upgraded facility for composting, come
up with a sanitary disposal system for residuals, and re-vegetate the center into an
ecological park. With these, the center has become the showcase of an integrated
50
SWM program in the municipality with the creation of the Municipal Environment
and Natural Resources Office responsible for its promotion and implementation.
Operationalization of the Eco-Waste Processing Center Through Science and Technology
It was in 2004 when the Waste Processing Center started its operation. To
initially finance the plan, solicitation of cash and in-kind contributions from various
sources was conducted to augment the 20% budget allocation from the
municipality's income (Municipality of Los Banos, 2004). A team of experts from
the university, the private sector, NGOs and other volunteers together with the
municipal mayor convened to share and complement their knowledge, skills, and
experiences for the center.
The ecological waste processing zone occupies 1.1 ha. The center showcases
the use of low-cost designs and construction of disposal and recycling facilities and
equipment using reusable materials like scrap metal, wood, etc. It utilizes about
1,000 m2 for facilities such as a shredding area for biodegradable waste, composting
bins, storage for recyclables, a pressing machine, and a multi-purpose hall. The
remaining space is used as an experimental site for the production of ornamental
plants using the produced compost. The composting system includes a leachate-
collecting pond preventing the contamination of underground water. This system
51
has been improved using the elevated crib-type composting pen of light materials
such as wood, bamboo, and plastic screen.
The center concentrates on the collection and transport of waste, static
concrete composting method of biodegradable waste, fabrication/upgrading of
equipment for shredding of biodegradables, and adoption of soil and water
conservation measures for slope stabilization (Agricultural Waste Processing and
Management Committee, 2003). The former garbage dumpsite became a "mini"
eco-park with flowering plants and ornamental trees such as champaca, ilang-ilang,
neem, lapnis, palm, mulberry and others. For composting, carbonaceous organic
materials such as coco coir dust (powder coconut husk) are used as bulking agents to
improve soil physical characteristics such as lowering moisture content, favoring
aeration, and enhancing soil biological properties. Compost slowly releases
nutrients like nitrogen, phosphorous, and potassium and can provide high sources of
carbon. The center also processes (washed, dried, melted, and molded) polyethylene
and polypropylene plastics into mini tables and chairs. The products are utilized in
the municipal's day care centers.
Appendix 7 presents the progress of the Los Banos Eco-Waste Processing
Center from its origin as garbage dumpsite, which is now a showcase of SWM
programs and community practices.
52
Approaches Toward Social Participation and Mobilization on SWM
As stressed by Perez (2006), SWM is not solely the responsibility of the
municipal government but everybody's concern. Every sector of society is equally
responsible in protecting the environment and sharing the task of keeping Los Banos
clean and healthy. A community-wide focus and participation is very crucial for
success. It relies heavily on the value of discipline among the constituents in
managing the municipal solid waste. A number of approaches have been employed
by the municipal government to encourage and strengthen people's participation and
motivation toward SWM with the establishment and operation of the Eco-Waste
Processing Center.
Experiencing and realizing the real problem on solid waste. The Municipal
Mayor decided to set up an office within a Multi-Purpose Hall at the dumpsite.
Most of the meetings with the different sectors and organizations from the early
stages of the project were conducted in the open dumpsite. As a policy, the
Municipal Mayor does not allow wearing of masks or covering of the face (nose and
mouth) in the dumpsite/center for people to feel the consequences of ignoring and
neglecting our garbage (Perez, 2006).
"Pista ng Kapaligiran " (Environmental Festivity). The first year of this
festivity in 2004, was held in the dumpsite. This is an annual event which highlights
the collection of e (electronic) junk i.e., old computers, printers, ink cartridges, etc.;
showcases innovative products from waste contributed by the Department of
53
Education and the civic and community organizations; as well as cultural parades
and shows of the Science Foundation member-institutions and other organizations
on the theme of SWM and environmental protection/preservation. Some of the
activities are part of competitions for the cleanest barangay, and lantern-making
from recyclable waste materials. Entries for the lantern-making contest out of
recyclables are selected on the basis of the following criteria: ingenuity or
originality that also includes uniqueness, number of participants from the
community involved, and the attached meaning/relevance to the environmental
theme. Cash awards and plaques of recognition are given by the municipal and
provincial governments.
Participatory problem identification and problem solving. This involves the
conduct of dialogues, meetings, consultations, and organizing stakeholders into
clusters for efficient and systematic collection of garbage and identification of
common problems and relevant strategies for community mobilization on SWM.
Clusters include the Science Community Foundation, barangay officials, business
establishments, homeowners, resorts, religious organizations, markets, junkshops,
funerals, schools, computer shops, etc.
Organization of pedestrians and 'bicycled' scavengers into Los Banos Solid
Waste Pickers now called the "Association of Recyclers and Traders. " Scavengers
were organized and trained by the Philippine Society for the Study of Nature. After
their training, they were provided with an identification card, a uniform, and seed
54
money for pedicabs (a manually-operated, 3-wheel bicycle-type) used in collecting
and managing the recyclables for sale to junkshops, where the recycling company
buys the bulk of recyclable materials. Waste pickers without IDs are not permitted
to collect garbage, and violators are being penalized. With their successful
organization and systematic generation of income from waste, some of them were
able to acquire a motorcycle and/or tricycle for their own junkshop. Moreover, the
local government unit's launching of the 'buy-back plastic" scheme augmented the
income of the members of the Organization. Early in 2008, their group transformed
itself into an "Association of Recyclers and Traders", aimed at empowering its
members by taking the initiative and leading the community in separating plastics as
non-biodegradable waste for collection, and promoting the use of woven indigenous
baskets called "bayong" instead of plastic bags.
Massive IEC campaign. The local government embarked on a house-to-
house distribution of leaflets on SWM. The members of the Barangay Nutrition
Scholars, Barangay Health Workers, and the municipal scholars are utilized for this
activity. The IEC materials include 3-fold flyers on SWM specifically pertaining to
science and technology, clean environment for a healthy and better community, and
composting at home. The flyers were written in layperson's language (Tagalog).
They were easy to read, have simple instructions and pictures highlighting the SWM
motto of Los Bafios which states "Dapat Walang Kalat, Hiwalay Na, ' Yan ang Los
Bafios" (No litter.! Segregate. That's Los Bafios).
55
Strict policy implementation on collection and transport of waste with the
constituents. To ensure that only biodegradable waste and a few selected, non
biodegradables are transported to the Waste Processing Center, the municipal
government set a schedule of collection and disposal site for each kind of waste
which has to be strictly followed, Constituents are required to bring out the
biodegradable waste between 8-9 in the evening from Monday to Friday. Non
biodegradable waste are brought out every second and fourth Saturdays of the month
at 8-9 in the evening. No collection of waste is done on Sundays. Branches of trees
are dumped in a separate site for composting. The Los Banos Science Community
Post, the quarterly newsletter of the Science Foundation, regularly features the
events, accomplishments, issues, new policies and ordinances on the SWM program.
Municipal Ordinances and Memorandum Orders including flyers, posters and other
announcements are posted in bulletin boards of the municipality and the barangay
halls. The provincial newsletter, "The Laguna Score" also publishes news about the
provincial SWM program occasionally featuring the municipal's activities.
Without exceptions, violators are penalized with a whole day community
service like cleaning/waste picking along the streets, market, creeks, etc. and/or a
fine of PhP 300 which was increased to PhP 500 this year. This information is also
included in the flyers distributed to each household.
Appendix 8 demonstrates some of the initiatives and strategies that
encouraged community interest and involvement in SWM programs and practices.
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Networking and Partnership among the Stakeholders
Through the leadership of the Municipal Government of Los Banos, the
conversion of the open dumpsite into an Eco-Waste Processing Center was
implemented with the support of different stakeholders. The Los Banos Science
Community Foundation, Inc. supported the continuing research and development on
waste conversion and utilization. NGOs, private enterprises like commercial centers,
junkshops, and most importantly the people in the community helped in
communication campaigns and implementation of the program in the municipality.
A Technical Working Group from the Foundation, which included the local council,
was created. Various committees and working groups were initially mobilized to
formulate a management and rehabilitation plan, and provide relevant technologies,
training, expert's advice, and other resources to the center. The SWM Board at the
municipal level, local government unit staff, and volunteer institutions also provided
technical assistance and administrative services.
Consequently, the Center inspired many local and international visitors from
different organizations engaged in SWM. The Municipality of Los Banos
continuously receives requests and invitations to share the town's experience in
transforming the dumpsite into an eco-waste processing center. These further
inspired and improved the municipality's capability to operate and manage the
Center, and to receive grants and donations from various sources for its
enhancement. The local government promotes the institutionalization of partnership
57
among municipalities through a Memorandum of Agreement for the implementation
of the GO-FAR Project (Good Governance Practices-Facility for Adoption and
Replication). Likewise, collaboration with the Department of Education includes
the incorporation of an environmental protection course in the curricula of
elementary and high schools, and at the college level.
Collaborative linkages with foreign and local partners included the following:
The Australian Embassy Manila and Asian Terminals, Inc. for clean-up tools; HMR
Envirocycle, Philippines as buyer of electronic waste; Australian Agency for
International Development funding for the Philippine Council for Agriculture,
Forestry and Natural Resources Research and Development—coordinated "Resource
Recovery Project in Selected Barangays"; Handy 4-in-l Company for discounted
procurement of shredder chopper; Philippine Society for the Study of Nature with
financial grant from the Australian Embassy Manila through the World Bank-
organized New Initiatives Competition for "Organizing the Los Banos Solid Waste
Pickers Project".
Barriers Encountered in the Implementation of the SWM Program
The local government units recognized that SWM has to be people-oriented
in order to succeed. No amount of technology is worthwhile if the citizens lack
discipline and knowledge to guide them in social decision-making (Perez, 2006).
58
These were the core problems prior and during the implementation of the SWM
program in Los Baiios.
It is evident that in any development undertaking, funding, resistance to
change, and political criticisms are often present. The establishment of an Eco-
Waste Processing Center in Los Banos was not exempted from such problems as
these took much time, attention, and effort especially during the course of the
project. In the initial stage of the Center's operation, allegations of dumping waste
into the creek which placed Laguna de Bay (a lake that surrounds the towns of Los
Banos and Calamba) at risk, became an issue raised by one of the Municipal
Councilors of Los Banos against the Mayor (Philippine Star, 2005). It was an
alleged negligence of a Government Official, as public servant, over his territorial
program i.e., highly relevant to SWM. Considering that the program operation was
in its preliminary phase at that time, not all concerns of people can be readily
responded to. However, political issues like the above case, cannot be avoided,
which may create distrust of people to the local official, and eventually lessen their
interest to participate in the implementation of the SWM-related programs. On the
other hand, should action be immediately taken on the issue together with the
affected groups/households in the community, it would not be a big problem.
Perez (2006) emphasized that local ecological governance, which relates the
environment in all levels of decision-making and action through a democratic
process, together with political will, transparency, participation, and accountability
59
will make a difference. The local government embarked on a massive education
campaign, utilized science-based solutions, and created strong institutional
arrangements to support and counter the public waste disposal problem.
Though funding is a perennial problem in most development program, it did
not seriously impede the implementation of the SWM program. Without available
land suitable for sanitary landfills, the only alternative was to convert the open
dumpsite into an eco-friendly waste processing zone. The collection of necessary
information to address problems like the lack of appropriate land to set up the
landfills is crucial. With a limited budget but with a good pool of experts and strong
political leadership by the Mayor, the SWM proposal was proven feasible. The
initial funding for the Center's operation was solicited from private enterprises,
commercial establishments, homeowners in subdivisions, and other voluntary donors
to augment the 20% budget of the municipality's income for priority programs.
Other factors related to this were the need for flexibility in landscaping and
designing, and the manufacture of facilities and equipment. The manufactured
equipment in the Center utilized only local resources, and employed technologies
provided by the Science Foundation.
Environmental and Socio-Economic Benefits
With the conversion and operation of the Eco-Waste Processing Center
through community and stakeholders' involvement, waste collection was reduced to
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about 70%, i.e., from 4 truckloads of mixed garbage to 1/4 truckload of
biodegradables daily, and a reduction of 3-4 truckloads of non-biodegradables every
2 weeks. This was over the 25% annual waste minimization targeted by the
municipality. This evidently diminished the amount of pollutants into the adjacent
creek, waterways, and groundwater that run through Laguna de Bay. More
importantly, garbage reduction helped decreased the negative effects of pollution on
the health of the residents.
Economically, the former open dumpsite became an avenue for waste pickers
to augment their income from recyclable waste. The development of appropriate,
low-cost waste processing equipment using available scrap materials like grinder
and shredder-chopper were utilized in public markets and in other areas outside the
town. Fabricated chairs and tables from plastic waste materials were distributed to
the day care centers. In addition, there was an observed increase in the use of
"bayong" (native woven bag) as alternative packaging for bread and other market
products. This resulted in higher income for small-scale producers of this item.
The production of compost provided an additional source of valuable soil
improvement that enhance soil fertility and other properties. This helped reduce the
use of chemicals while increasing farm productivity.
The experience of Los Banos in SWM has contributed significantly in
protecting the local natural resources and augmenting people's income in the
community. Political initiatives boosted the image of Los Banos as science and
61
nature city, and motivated public participation and self-discipline among the people
to keep the town clean and green. All these efforts made Los Banos a model
municipality.
Lessons Learned
It is said, "creativity originates from one's need." This is true in the case of
Los Banos. A support team with common interests and concerns for the
environment ensured the sustainability of the SWM program. The municipality was
able to organize a small group of volunteers, with diverse field of expertise, as part
of the technical working team, to assist in the formulation and implementation of
plans and programs.
Nurturing community values and preserving the environment are motivating
forces in the implementation and enforcement of SWM program. In order to
encourage and sustain participation in the community-based program, one strategy is
to organize the participants and stakeholders into sectoral groups, and maintain good
governance with transparency and a sense of responsibility and accountability.
Social preparation towards developing discipline among the citizenry is essential.
The process may have been slow and tedious, but it brought about consistent
interaction and sustainable positive values on waste management. Orienting people
to become more aware and conscious of the proper management of solid waste as
part of their everyday life, would really take time. Efforts to come up with an
62
innovative approach from the local government leaders together with other
stakeholders to sustain community involvement are much needed. This is in
consideration of the fact that population and in-migration increases as
industrialization and economic development continuously grow. Such obviously
add up to the volume of waste generated that has to be controlled and managed.
One of the strong pillars of the Waste Processing Center in Los Banos is the
role of local government leaders, particularly the Municipal Mayor and the barangay
officials. They serve as driving forces in realizing the vision of a clean and green
town. Leadership by example ensures effective and efficient ecological governance.
In essence, the local government demonstrates a serious concern in addressing the
garbage phenomenon with bold efforts like apprehending and penalizing citizens for
non-compliance of municipal ordinances pertaining to SWM; forging strong
partnership with stakeholders through participatory analysis and joint project
implementation; convening consultations with business manufacturers and private
enterprises to jointly find solutions to the mounting volume of waste; promoting
research and development on processing biodegradable and non-biodegradable
waste using available local materials; regularly updating constituents on new
developments on the program; and most importantly, the hands-on training
workshops and the organization of waste pickers (originally the scavengers) to
promote IEC in the locality, and prove that garbage can be a resource - a source of
income and livelihood.
63
The Mayor's initiative and strict policy of not allowing people to wear masks
and/or cover their face while in the open dumpsite, is a simple but unique strategy.
This served as an "eye opener" for constituents to feel the reality of having
mountainous garbage. Converting the open dumpsite into an eco-friendly waste
processing zone made the municipal government easier for community to
participate. The Mayor himself started to hold his office within the dumpsite from
the initial stage of transforming it into a Waste Processing Zone until its full
operation. The strategy of using recyclable materials in the manufacture of the
necessary facilities and equipment of the Center became effective and efficient as
funding has not been a big problem to this municipality.
Income generation and livelihood opportunities from the SWM programs
implemented have great impact on community participation. The innovative
approaches of the municipal government to demonstrate that there could be an
income from garbage, such as the launching of competitions for the cleanest
barangay, and the most attractive and meaningful lantern made of recyclable waste
materials; organizing scavengers into an association of recyclers and traders with
initial support from the municipal government for their "pedicabs", uniforms, etc.;
showcasing of entrepreneurial and livelihood sources from garbage in the Waste
Processing Center; and the strict implementation of policies and ordinances without
exception of penalties on violators; contributed to its success - making Los Banos, a
model town for other communities.
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CHAPTER IV
CASE STUDY 3: COMMUNITY CONSCIOUSNESS IN SOLID WASTE SEGREGATION FOR A CLEANER ENVIRONMENT IN MASILI
"Unity and commitment among leaders and constituents are strong foundation toward participation in any development endeavor. These can only be realized when they have common understanding of the problems on hand and agreed to collaboratively act, knowing the benefits in the end. With cooperative, responsive, persevering and open-minded citizenry, progress has a space toward reality."
-Mosqueda, 2004
A participatory approach towards a unified community objective of
development is an ideal exercise for its constituents. This provides an opportunity
for people to take part in the planning and decision making process in any
community project or activity which affect them. The essence of shared
responsibility and collaborative efforts among the constituents with their community
leaders are vital factors. Unity and commitment are strong foundations toward
participation in any development undertaking (Mosqueda, 2004). These can only be
realized if there is a common understanding of the problem at hand among the
citizenry, and if they agreed to act collaboratively. With their cooperation,
responsiveness, perseverance and open-mindedness, a progressive community will
become a reality.
It is within the above premise that this case study presents personal
experiences working with the people in a specific community in coordination with
its local government and other local leaders for a pilot project on SWM. This arose
from my own experience of home gardening and composting utilizing recyclable
65
waste. It was also an avenue for me to directly observe and learn how to work with
the community.
Gardening Utilizing Recyclables: My Own Home Project
I was a resident of Los Bafios, formerly a Senior Science Research Specialist
at the Philippine Council for Agriculture, Forestry and Natural Resources Research
and Development; and also a member of its SWM Brigade and Media Services until
the year 2006. My exposure to proper SWM, witnessing the early years of
operation of the Eco-Waste Processing Center of Los Bafios, stimulated me to adapt
what I have learned, at home. 'Learning by doing' is one of the important values I
can share with my family, being a mother and homekeeper. This, I can also
contribute as an educator and a government servant to my neighbors and the
community as a whole. I was encouraged to do home gardening in keeping with the
legacy of my grandmother who taught us some of the indigenous methods of
recycling and composting, which are now being revived in the country through the
SWM program.
In 2003, I started solid waste segregation and utilized recyclables (plastics,
cans, used basins, styrofoam, scrap wood, bamboo and metal) for container
gardening, given the small space at our front yard. With the help of my husband,
we used the vacant lot beside our home owned by my brother, to plant bananas and
66
vegetables while keeping a space for composting. The land was 120 m2 sufficient
for these purposes.
A number of vegetable crops such as lettuce, onions, eggplants, tomatos, and
carrots were planted in used containers and hung on the fence. Styrofoam fruit
boxes were used to grow seedlings, which were later transferred to bigger containers
and hung or arranged in layers on bamboo or scrap metal stands. Food leftovers,
dried leaves, animal manure, and trichoderma (a low-cost, naturally processed
solution available at the University of the Philippines Los Banos for easy
decomposition of biodegradables and odor reduction) were placed in covered
composting pits, and watered every other day. For more than a month, we were able
to get two sacks of compost which we used as fertilizer. A number of our neighbors
and passers-by begun to ask about our home gardening, especially when we had our
initial harvest. They developed an interest to learn and replicate the method in their
own home yard. Photos of seedlings grown in recycled materials fertilized with
compost in my home front yard are shown in Appendix 9.
Conceptualization and Proposition of the Project in Barangay Masili
It was in 2004 that I conceptualized the project on SWM as my fieldwork on
Environmental Communication at the Institute of Development Communication in
the University of the Philippines Los Banos. I met with one of the Barangay
Councilors of Masili, who was also the Chair of the Urban Poor Livelihood and
67
Environment Committees in the community. I had learned from him that Masili
received an award as the cleanest and most beautiful barangay in Calamba City from
2001 to 2003. The Barangay Council, during that time, envisioned to achieve the
"Hall of Fame Award" (i.e., 5 consecutive years of receiving the annual award) for
Masili and make it a model for other barangays. I also learned of the Council's plan
to develop a proposal toward this end. Hence, I was able to discuss and propose to
pilot test my own project in their community.
The Profile of Barangay Masili, Calamba, Laguna
Masili is one of the 54 barangays of Calamba City, Province of Laguna.
The barangay is located within the boundary of Calamba and Los Banos, comprising
6 "sitios" (sub-villages). The total land area is 32.1 hectares, divided into 26.1
hectares as residential, 4 hectares for commercial establishments and the remaining 2
hectares for quarrying. It has two soil types, loam covering 80% of the barangay
and the rest as tidal fresh type, 20% (Barangay Profile, 2001). As of 2007, this
coastal community had a population of 3,361 comprising 715 households. Fifty-two
percent were female and 48% male (Report of the Barangay, 2007: p. 12). Figure 5
illustrates the vicinity map of Barangy Masili.
This barangay is generally characterized as a coastal community for which
fishing from the Laguna de Bay is the main source of income. Fish cages were
constructed in the lake for livelihood and subsistence. However, the increasing
68
Source: People's Institute for Local Governance Advocacy and Research, 2002.
Figure 5. Vicinity Map of Barangay Masili (a coastal community).
69
population, continuing in-migration, and existence of industrial establishments in
Masili, contributed greatly to water pollution, particularly in the Laguna Lake, due
to improper waste disposal (People's Institute for Local Governance Advocacy and
Research, 2002).
Based on the project study of the Institute of Community Education of the
University of the Philippines Los Banos (Cruz et. al., 2003), the majority of the
residents along the coastal areas are migrants. Many of them squat within 12.5 m
distance from the lakeshore which is considered a danger zone because of the advent
of high tides. Some residents constructed their houses in narrow vacant lots along
the railroad owned by the Philippine National Railways. Such migration or
residential squatting not only increased the population in the community, but
consequently resulted in sanitation and waste disposal problems, due to the
congestion of houses within the same territorial bounds, near the lake and railroad.
Among the six 'smW of Masili, sub-village 6 had the highest population living
along the lakeshore. It experiences the most depressed situation, due to minimal
access to water sources and lack of sanitation practices, which make the people
susceptible to various illnesses.
Methodology Framework for Project Initiation in the Community
In early 2005, I started to coordinate my project through the Barangay
Councilor for Urban Poor Livelihood and Environment as my main contact person, I
70
met with the Barangay Council officials to discuss the activity process for the
project. A visual inspection of the community and informal group meetings were
undertaken where I got some basic information about the community, and a list of
possible key informants and community-based groups/organizations to work with.
This information provided me with insights and a better understanding of the
situation in the community.
Benchmark information was taken from the view of the constituents, with
regard to current environment-related issues and problems. Project plans were
identified and prioritized to address them, based on the urgency and importance as
perceived by the people in the community. A very simple and easily understandable
questionnaire in Tagalog was developed for respondents who were randomly
selected from among the residents in sub-village 6. The age bracket of the
respondents ranged from 21 to 65 years old with the assumption that these ages can
better understand the importance of maintaining the safety of the environment for
the benefit the community.
As a result of the actual survey conducted in sub-village 6, it was revealed
that there were a number of issues and problems confronting the people in the
community. These were reviewed by the people themselves to determine which
among the array of problems at hand had to be addressed first, that would
consequently solve other problems. A comprehensive analysis was done through a
consultative process and action planning. The problems were ranked by the
71
respondents according to urgency and importance. Solid waste disposal and
mismanaged waste were highlighted as the main issues. This coincided with
conflicting culture of people who migrated in Masili from the different
areas/communities with their own and different values and practices. This resulted
in negligence and lack of cooperation in community activities which would benefit
them. In addition, a related problem on people's lack of knowledge about policies
and ordinances concerning the environment particularly on proper management of
solid waste was identified.
Pilot Project Context: Community Consciousness in Solid Waste Segregation for a Cleaner Environment in Masili
Given the dilemma of the barangay on improper and mismanaged solid waste
disposal, as attested by the people in the community of Masili, the pilot project on
enhancing their consciousness in solid waste segregation for a cleaner environment
was very timely. Though the project had a duration of only 6 months, it had been
acceptable and gained interest to the community and the barangay leaders. The
context of the project was initially presented to the Barangay Council. The
components of the project were integrative in nature, aimed at long-term
implementation and benefits to the community. The Council had the option to select
which components they wanted to support and implement, in consideration of the
72
needs and interests of the community, which form part of the survey I conducted in
the locality.
Vision and Objectives. The project envisioned to build a community with
responsive and action-oriented constituents who work together in a sustainable
manner toward a cleaner, greener, and productive environment for a healthy,
pleasant, and model place to live. It generally aimed to promote consciousness and
mobilization of people on environmental concern focusing on solid waste
segregation. Its specific objectives were as follows:
a. To identify strategies that would enhance people's awareness of the
importance of SWM to them and the community as a whole;
b. To appreciate the value of the 4Rs (reduce, reuse, recycle, and resell)
principles in managing solid waste and put them into practice;
c. To encourage people in the community as local government partners in
strengthening programs on $WM;
d. To identify and collaborate with other stakeholders within and outside of the
community, i.e., government or NGO for possible productive projects and
income source from waste; and
e. To sustain the constituents' interest, initiative, and participation to
community programs on SWM, which consequently would benefit them and
the community in general.
73
Components of the Project. Following the municipal policies and barangay
ordinances on SWM, the project's integrative components (Figure 6) focused on
solid waste segregation. The project incorporated the 4Rs principles (originally 3Rs,
however the proponent added another R for "resell" of recyclable waste) of SWM
together with the following aspects: households' segregation of waste; community
garbage collection, productive and/or income generation from waste -- composting,
home/sub-village gardening or community nursery, sanitary landfill, small-scale
enterprises from useful waste, and establishment of a centralized barangay junkshop
by sub-village or at one strategic location accessible to the people in the community.
IEC Campaign. Based on the result of the survey, the respondents ranked
IEC as an effective strategy for them to increase their awareness and interest in any
related program concerning SWM. In particular, the majority of them preferred
access to simple, concise, and easily understandable reading materials, which they
can post in their home. In line with this, I was able to design a sample three-fold
flyer written in Tagalog that included illustrations on SWM, particularly the proper
solid waste segregation and composting method at the household level. This flyer
was presented to the Barangay Council for consideration and further improvements,
and with their consent copies were disseminated to some members of the community
to get feedback on the content.
According to the respondents, the flyer was generally acceptable and was a
good source of information, which they can readily apply in their everyday life i.e.,
74
Community Consciousness and Participation
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'''SapcpdiHi
fl vegetoMe-lPTtroit > Ceaminjty wmwvt
\ ^ » pr»§e«t • C D
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Figure 6. Integrative Components of the Project.
75
"learning-by-doing". They were also interested to participate in relevant seminars
and training courses, which they consider as avenues for them to directly ask and
clarify things of interest to them. This would benefit them further if it included trial
demonstrations or hands-on methods.
To assess whether or not there would be high participation of community
members for the seminar, I volunteered to conduct training on composting in
coordination with the Committee Chair on Urban Poor and Livelihood. The
members of MABUHAI (an organization of mostly women in the community) were
invited. I also provided food that could be easily cooked by the members prior to
the training. The training included brief demonstration on composting, using
biodegrables like food leftovers, dried leaves and the trichoderma solution. From
MABUHAI's 47 active members, 42 attended the training.
Fortunately, during the pilot testing of some of the components of the
project, two "pedicabs" were initially provided by the Council for which funds were
solicited from outside donors. These pedicabs were used by the Barangay Council
assigned staff in picking recyclable and saleable waste from far-off sub-villages
within the barangay. Barangay Masili has no existing junkshop in its locality.
Scavengers in Masili usually sell the recyclable waste in its neighboring community.
Hence, it would have been advantageous for the Council to centrally operate its own
junkshop for the community. In addition, one of the Councilors of Masili offered his
vacant lot as a demonstration site for community vegetable gardening and nursery
76
utilizing recyclables as well as for a composting area. Manpower services were
provided by women volunteers of MABUHAI and college students from Colegio de
San Juan de Letran, who did community service in the area as part of the school
curriculum. Every year, the council accepts students conducting community work in
the locality for a period of 3 months (half-day schedule every Saturday) normally
composed of 25-30 people. During that time, these students were tapped to provide
community service on SWM-related projects in the barangay.
Project Accomplishments
Within the period of 6 months, the community was able to establish
demonstration plots for the centralized community composting and nursery (selected
vegetable crops' seeds/seedlings which I personally requested from the Bureau of
Plant Industry in Los Banos). Interested households were given seeds/seedlings for
their own back/front yard container gardening as well as home composting applying
the learnings they gained from the seminar they attended. Three among the eight
Councilors of the barangay and 7 women from 42 MABUHAI participants started
their own home gardening and composting utilizing recyclable materials.
Posters and flyers on SWM were reproduced and distributed to the
constituents of the community. The promotion of a clean and green program was
led by a Councilor in his/her designated sub-village with strict adherence to the
municipal policies and barangay ordinances on SWM.
77
The overall SWM plan of the Barangay Council of Masili, which was part of
its 5-year Development Plan include the components of the project I originally
conceptualized and proposed for Masili. These are as follows: sustained
recognition as the "Cleanest and Most Beautiful Barangay in Calamba City"
focusing on solid waste segregation; transfer of the community nursery and
composting to a strategic location with wider space and accessible to the people in
the community to be managed by Barangay Council; establishment of a Council-
managed junkshop, given that there was none within the barangay; yearly training of
those interested in home vegetable gardening, composting, and waste recycling for
possible income generation; and organizing community groups for a "one vegetable,
one Purok" (sub-village) project. This is basically planting one vegetable crop in
one specific sub-village in the community utilizing recyclable materials, which is a
unique strategy for barangay beautification. For instance, sub-village 1 to plant
tomato, and sub-village 2, eggplant, either container gardening or home backyard
plots. Constituents among themselves would select a vegetable crop for their sub-
village. This project can be rated in recognizing the cleanest, greenest and most
beautiful barangay (Masili, as a barangay having 6 sub-villages) on the basis of
highest rate of waste reduction, utilization of recyclable waste, and number of
households participating. In the long run, each sub-village may want to trade-in or
sell their harvests with its neighboring sub-village or outside the barangay. This
may pave the way toward a community self-reliant vegetable crop production.
78
Based on the Report of the Barangay (2007), the "Hall of Fame Award" for
the cleanest barangay was gained by the community. It was also noted that a
number of households continued practicing waste segregation, waste recycling for
home gardening, and composting. However, the community vegetable nursery and
composting in the former pilot site has been discontinued since the Councilor in-
charge has assumed other assignment. Besides, there is a newly elected Barangay
Captain focusing on other priority community development projects which also need
funding support. Nevertheless, the Council supported the training of an agriculture
graduate and a resident of Masili, on snap hydroponics (urban agriculture) conducted
by the University of the Philippines Los Banos. The Council also provided him
with a demonstration lot for gardening (vegetables and flower plants) utilizing all
possible recyclables as well as composting. This is one of the Barangay Council's
community pilot projects. Once, the project becomes fully operational, he will be
the one to train interested individuals and groups in the community on hydroponics,
making use of recyclables and composting from biodegradable waste. The Council
will be responsible in organizing the participants and provide funding for this
training.
Photos of the activities conducted from the time of the coordination to the
implementation of my pilot project in 2005, and the current (2007) demonstration
site of the snap hydroponics pilot project of the barangay are shown in Appendices
10 and 11, respectively.
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Lesson Learned
Capitalizing on the existing active organization in the barangay was an initial
step toward the implementation of a community development project. The presence
of the organization of women, the MABUHAI, with its active members, made the
pilot project possible. It was evident that women's participation was an essential
element in solid waste segregation, as they are in the forefront of home keeping
chores.
People in the community were inspired to learn and be involved in seminars
and training courses when it included demonstration/hands-on activities with simple
instructions and illustrations. Their enthusiasm was further enhanced when they
immediately applied what they had learned at home. This involvement goes hand-
in-hand with the appropriateness of IEC materials using simple language and terms
used by the community.
The common understanding between the community and the barangay
leaders about the value and benefits of the projects being implemented was also a
very significant element in attaining success. The support and motivation provided
by key leaders in the community contributed in the people's mobilization. However,
community resources (people, leaders, manpower, facilities, and funding) to sustain
the project for long-term benefits are also of important considerations.
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CHAPTER V
SUMMARY, CONCLUSION AND RECOMMENDATIONS
The Philippines, like any developing country faces challenges concerning the
environment, particularly in managing the increasing and voluminous generation of
solid waste in its urban and urbanizing cities. Rapid urbanization and economic
growth matched with the increasing population contribute to the country's dilemma
of insufficient collection and inappropriate disposal of the growing piles of garbage
that contaminate water sources, pollute the air, pose risks to human health and the
environment. The advent of natural calamities like typhoons, which bring floods
and soil erosion, add to these problems to the extent that communities are devastated
and people are killed.
The Government, through its policy makers, has passed a series of laws and
policies that were geared toward local environmental governance or Eco-
Governance. The promulgation of the Local Government Code of 1991 stressed the
decentralization of power to the local authorities, including environmental
management. SWM at the municipal and the barangay levels in particular, had been
given priority in terms of the formulation of public ordinances, particularly the
promotion of the 3Rs principles of managing solid waste i.e., reduce, reuse, and
recycle. Through RA 9003, each province, city, or municipality was expected to
provide measures to facilitate the collection, transportation, processing, and disposal
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of waste within its jurisdiction in coordination with other concerned government
agencies. Specifically, the LGUs through the barangay officials were instructed and
advised to promulgate ordinances to complement and support policies concerning
environmental protection including proper SWM. This also provided people the
knowledge and awareness that waste can be a resource and can be a possible income
source.
The three case studies exemplified the evolutionary struggles of urban and
urbanizing communities in their efforts to counter problems in solid waste. These
showcased success stories emanated from community participation in SWM
programs and projects, which promoted management of waste at the household and
community levels.
Summary
Payatas Controlled Waste Disposal Facility. The first case explored the
experience of the Payatas community in transforming a central dumpsite in Quezon
City into an organized Controlled Waste Disposal Facility. The disastrous trash
slide in this former dumpsite in 2000 that destroyed houses and killed residents
helped the people realize the problem posed by unmanaged solid waste. It was an
'eye opener' for the government to pay attention and give priority to SWM.
In 2004, Payatas started its conversion into a waste facility with an objective
of actively involving the citizenry. Prior to the conversion of the dumpsite,
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relocation of residents living in the site was initiated by the city government. The
conversion process was sub-contracted to a private entity, which undertook the
necessary developmental, and rehabilitation works. The contractor implemented
various technological remediation measures that included slope stabilization,
greening and benching, methane gas extraction, maintenance of access roads and
waterways in and around the dumpsite as well as the establishment of a composting
and materials recovery facility. These efforts were done in consultation with
academic institutions and several government institutions such as the Department of
Environment and Natural Resources, University of the Philippines, Mapua Institute
of Technology, and the Philippine National Oil Company, among others. The city
government with its barangay leaders enforced massive promotion and strict
implementation of various ordinances to encourage people's involvement in SWM.
Specific programs focused on waste reduction strategies; income generation from
solid waste; and advocacy and social marketing. NGOs on the other hand, organized
the community through seminar-training related to entrepreneurial opportunities
from solid waste.
With the operation of the facility, Quezon City's garbage collection has been
reduced to a very significant volume. This was achieved due to the increased
awareness and interest of the constituents to participate along with the strict
implementation of the policies and ordinances on SWM by authorities.
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Los Banos Eco-Waste Processing Center. The story of Los Banos
presented the conversion of the central dumpsite of the town into an eco-friendly
processing center of solid waste. Through the initiative and leadership of the
Municipal Mayor, the center was successfully established and operationalized. The
participation of the members of the Science Community in the transformation
process of the dumpsite played a crucial role as it contributed scientific and
technological expertise in the process. The center served as a demonstration hub for
people on the advantage and benefits of managing solid waste.
The municipal government strictly adhered to the implementation of policies
and ordinances imposing penalties to violators without exceptions. The Mayor
himself established an office and a meeting hall at the dumpsite to accommodate
SWM-related events in the site. In 2004, the Waste Processing Center started to
operate with initial funding from the income of the municipality and solicitation of
in cash and in-kind contributions from various sources. The Los Banos Science
Community team of experts, the private sector, NGOs, and other volunteers
convened to share and complement their knowledge, skills, and experiences for the
center. It piloted the demonstration of low-cost designs and construction of disposal
facilities and equipment using reusable materials. The other part of the site was an
experimental venue for the production of ornamental plants fertilized with the
produced compost. It also showcases a "mini" eco-park with flower plants and
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ornamental trees, compost production, and sample products from solid waste like
tables and chairs provided to the municipal day care centers.
Presently, the Center concentrates on the collection and transport of waste,
static concrete composting method of biodegradable waste, fabrication/upgrading of
equipment for shredding of biodegradables, and adoption of soil and water
conservation measures for slope stabilization. Based on the premise that SWM is
everybody's responsibility, the municipal government with the local leaders and the
community jointly work in the following programs: Environmental festivity;
participatory problem identification and problem solving; organization of pedestrian
and 'bicycled' scavengers into an association of recyclers and traders; and massive
IEC campaigns.
IEC-Based Pilot Project in Masili. The conduct of the actual field work
through the pilot project in Masili was an exercise of learning and feeling what a
community needs, and not to feed them with what I or anyone wanted for them. The
objective of having a self-reliant community starts from the perceived needs of the
community. With these needs identified, they themselves would thrash out
strategies and make decisions that will eventually benefit them. Such was the goal
of the project, which focused on enhancing community consciousness in solid waste
segregation toward a cleaner environment.
The project was based on my own home gardening and composting project
focusing on solid waste segregation, i.e, the use of recyclable materials. It was
85
conceptualized in 2004 and pilot tested in Masili in 2005 in coordination with the
Barangay Council. The project has integrated components based on the 4Rs
principles of managing solid waste that include "resell" of reusable materials. It
comprised specific projects on vegetable gardening and nursery, composting,
garbage collection and segregation into saleable 'junk', landfill, and residuals.
Specific activities conducted, based on the needs and interests of the people, were
the packaging of an IEC flyer on SWM written in Tagalog; hands-on training on
composting at the household level; and a pilot showcase of community vegetable
gardening/nursery and a composting area. These were the accomplishments during
the implementation of the project in 2005. Based on the 2007 Report of the
Barangay, Masili has achieved its vision of being recognized as the "Hall of Fame
Award" for the cleanest barangay of the City of Calamba. Masili has also
established through the support of the Council, a pilot project on snap hydroponics
utilizing recyclable materials, managed by a trained community resident.
Conclusion
It can be gleaned from the cases presented that evidently, the garbage issue is
primarily rooted in a lack of disposal facility and mismanaged waste, as generated
by extensive economic development, population expansion, and in-migration in
urban and urbanizing areas. The capacity of the local government units to manage
the 'seemingly' unending volume of solid waste in their respective jurisdictions is
86
limited. The enactment of the Ecological Solid Waste Management Act 9003 was a
ray of hope for effective reforms in this sector. The government also continuously
invests in people, equipment, and technology to sustainably manage garbage. SWM
is an interrelated system, which combines appropriate technologies and mechanisms
in the generation, collection, processing/storage, transfer/transport, and disposal of
solid waste, designed to produce waste at the lowest possible cost and risk to the
health of the people and their environment (Department of Environment and Natural
Resources, 1998). It is a 'must' that the implementation of the SWM programs
from the municipal to the barangay level are congruent with RA 9003 as the prime
legislative policy. Local government acts as the catalyst for implementing SWM
legislation and serves as main actors in its realization. However, the
comprehensiveness of this Act is not yet fully implemented considering the barriers
of manpower to monitor and evaluate the provisions vis-a-vis the accomplishments
and impact of relevant programs/projects implemented by the communities, the
funding requirements, and time.
In the case studies, there are different approaches employed to encourage and
enhance community participation in SWM from the point of people's awareness to
practices. Community participation comes neither automatically nor spontaneously.
It must be understood as a collective system of different types of behavior, resulting
from different perceptions, representations, and practices. The concept of individual
or collective interest plays a very strong role in people's participation as gleaned
87
from the cases. The commonality of the strategy in these three cases is
predominantly related to political initiatives and mobilization. Massive IEC
campaigns, though not totally similar in the three cases, make a significant
contribution to people's involvement. Innovativeness, creativity, and consideration
of their preferences regardless of the mode of IEC material ~ poster, flyer, pamphlet
or shows -- are of great importance. Funding, as one of the usual constraints, in the
implementation of community development programs like SWM, was not seen as a
problem in these three case studies. Quezon City with the biggest population in
Metro Manila (Philippines capital), is the location for Payatas and the national
legislative and government institutions like the Congress of the Philippines,
Department of Environment and Natural Resources, and the University of the
Philippines Diliman campus, among others. Urban areas like Quezon City, have
autonomy how to spend their income, which is much higher than in urbanizing
areas, to implement the municipal identified priority programs. With the enactment
of RA 9003, the Municipal Government of Quezon City fully supported the
conversion of the Payatas open dumpsite into a Controlled Waste Disposal Facility
with the technical assistance and funding support from most of the abovementioned
national agencies.
Los Banos, an urbanizing town, had a very limited government budget and
income, but nevertheless managed to convert the open dumpsite into an eco-friendly
waste processing center. This was made possible through the shared effort and
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commitment of the Municipal Mayor and his Councilors down to the barangay level,
the Science Community member-institutions, and private establishments in the area.
The creativity and innovativeness to make use of low-cost, mostly recyclable
materials from waste to manufacture the necessary equipment and facilities rather
than buy them for the Center. This happened with the technical assistance of the
Science Community and the manpower services of the volunteer enforcers from the
different barangays. Hence, the Processing Center turned into a reality, not
constrained by funding limitation.
My project in Masili did not entail much of funding as the implementation of
its components depends on the interest and priority needs of the barangay
constituents, the existing community resources (physical, manpower, etc.), and the
available budget of the Barangay Council which is very limited. The presence of
MABUHAI organization of mostly women, who actively participated and
volunteered to work on the project, with one of the Councilors who offered his
vacant lot for trial demonstration, made the project feasible without cost at all. I can
also say that my intense desire to share with the community of Masili my learning
and experience from my own home project, for them to benefit from, also
contributed to making it a reality. Similarly, I myself learned much in dealing and
working with the community of Masili specifically in the context of how people deal
and jointly resolve social problems.
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Though it can be seen that SWM programs particularly in Payatas and Los
Banos were successful, it is still a continuing challenge for the local government to
sustain people's participation. Solid waste generation can be reduced but the
absolute amount will continually increase as population and urbanization grow.
On the other end, the uniqueness of the programs and approaches depended
on the nature of the location. Quezon City where Payatas is located is a highly
urbanized area while Los Banos is an urbanizing town, which is the home of the
national and international institutions engaged in science and technology. These
institutions significantly helped in the realization of an eco-friendly solid waste
processing zone. Payatas was under the full control of the city government and a
private-contractor for the technical structure, specifications, and maintenance of the
Waste Disposal Facility. It is evident that given the city's huge population within a
small land area, the facility had to be fully controlled to provide effective and
efficient services. The IEC strategy of solid waste mascots was helpful as the
message could easily be understood and remembered, especially by youth and
children. Demonstrations of recycled products exhibited in malls are commonly
seen, but the buy-back strategy on recyclables is a unique approach. Though
ordinary people (the poor and scavengers) in most developing countries like the
Philippines, seldom visit the malls.
The uniqueness of the Los Banos experience lies in the strong involvement
of all sectors in its locality coupled with the strong political will of the local
90
government. Local leaders and the constituents as main partners in managing solid
waste together with NGOs and private enterprises contributed to the success of the
program. The support of the 22 member-agencies of the Los Banos Science
Community also added to its success. A responsible and strong-willed citizenry who
strongly participated in the local government-initiated activities was definitely an
asset for the program. The local government unit's bottom-up planning approach
toward community needs and aspiration promoted the values of concern,
commitment and cooperation among the people. This started from the local leaders
namely, the Mayor with his Councilors, and the Barangay Captains and Councilors,
who set the examples. People's participation and collective action will only be
possible if the objectives, their roles, and community benefits are clear. In essence,
this requires good governance, which shows the relationship between the local
authorities and the citizens' provided space for public participation in planning and
decision-making process - a reflection of commitment from both parties.
Networking and partnership foster cooperation among stakeholders which was
highly visible in the case of Los Banos. It paved the way towards addressing other,
more pressing, environmental problems beyond solid waste like water pollution,
forest degradation, and water shortages. The establishment of the Los Banos Eco-
Waste Processing Center was the fruit of these networks.
The case of Masili presented more of the participation of women who are in
the forefront of experiencing the deteriorating environment and the effects of
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urbanization. The MABUHAI organization of women exhibited their sense of civic
responsibility and a desire to improve their living conditions and health situation
through a cleaner environment. This was reflective of the need for better
representation of women, having their ideas listened to and becoming involved in
the planning and decision-making process in community development programs like
SWM. On the other hand, the development of IEC materials for a community like
Masili has to be in agreement with the preference of the people in terms of form,
content, and language. The appropriateness and effectiveness of the communication
strategy were vital factors that persuaded people to participate.
In these three cases, policy directives and ordinances on SWM have been put
in place. The local government units and the Barangay Council are the main
avenues for community participation which highly reflect that there is a great
relationship between the political (i.e. the government) strategies employed and
people's participation, as this can also be seen from the effects of the SWM
programs in the community.
It can be concluded that people's receptiveness and participation are
dependent on their situation and comprehension of the program/project, and the
political leadership. Participation of the constituents is further facilitated by a close
relationships and partnership among the political leaders, NGOs, civic associations,
but above all by the presence of a culture of public knowledge, awareness, and
consciousness. Political discontinuity and lack of a democratic framework bring
92
unsustainable program priority and implementation. Participation can also be seen
as having a genuine social and sociological objective. It implies elements such as
community awareness, education and management, which suggest that there is a
clear understanding of the social scope of action. Hence, community participation is
a sociological process by which people organize themselves and become involved at
the level of a living area or neighborhood, to improve the conditions of daily life in a
conducive and safe living environment. It comprises various degrees of individual or
collective involvement (financial and/or physical contributions, social and/or
political commitment) at different stages.
The government approach of presenting to people that garbage can be a
source of income or money in various ways, is a highly motivating force for them to
participate in SWM. It is evident that people need to start from solid waste
segregation for them to identify the reusable/recyclable materials which can either
be sold directly to junkshops, or made into another marketable products such as
flower vases, wall decor, tissue holders, and other creative and useful items, which
may be of higher value. Waste pickers/scavengers also have the opportunity to start
their own small-scale junkshop, though this will require space to store recyclables.
But when a junkshop has been established, it is a definite source of livelihood and
money generation for the scavengers - a turning point for them to become
entrepreneurs.
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Recommendations
The fundamental areas of concerns to be considered in properly managing
solid waste include a sense of community responsibility; recognizing the value of
waste as a resource; and an entrepreneurial attitude for utilizing its potential for
other uses. The implementation of effective management strategies should be based
on the knowledge, interest and awareness of the community as well as their being
acceptable and understandable in order for people to get involved. This requires
instruments such as ordinances, budget support, public participation, and networking
with other stakeholders. To encourage better and greater community participation in
SWM, specific recommendations are in the following areas of concern:
Imposition of charges on collected solid waste and increased penalties for
violators. With the increasing solid waste generation and the scarcity of available
land for landfill, dealing with solid waste has to be the concern of not only the local
government unit as part of its general service, but a concerted effort with the
involvement of people in the community. The cost of managing solid waste usually
relies on the municipality's limited budget and income. Charges on solid waste
collected which was not segregated and beyond the specified minimum
measure/weight from the households and commercial centers should be imposed.
Along with this, are higher penalties for violators. These strategies will further
caution the people in the community from generating excessive solid waste and pay
more attention on the "don'ts" of SWM. The fees to be collected will augment the
94
local government's expanded coverage of SWM program and support better delivery
of services to its constituents.
Innovative and continuous enhancement oflEC approach in SWM. The
collection of increased user fees and penalty costs for violators may not be a long
term solution to curb waste generation, but it can also be an instrument to contribute
to people's awareness and consciousness about the consequence of their
unsystematic and unconcerned behavior concerning SWM. In order to be effective,
the IEC promotional campaign in terms of reading materials i.e., posters, flyers,
pamphlets, etc. should be in the preferred local language (concise, simple, and easily
understandable terminologies which may include 'catchy' illustrations/instructions).
Innovative approaches other than printed matter (e.g., community fairs or
showcasing of individual/group's creative use of recyclables, "clean and green"
barangay competitions, among others) may be introduced to capture people'
attention and interest to participate in SWM programs and adopt its practices. In
addition to this, inclusion of an ecological SWM as part of the school curriculum at
all levels is a good avenue to further enhance the knowledge and awareness of the
community starting from the youth. This will include students' community services
in the actual phase of learning or hands-on service practicum, which they can apply
at home.
Advocacy in utilizing environmental technology. In relation to IEC
promotion, there should be a paradigm shift from solid wasteful consumption to
95
conscientious utilization of resources, which will have to be instilled among the
youth as they are effective agents of change and essentially are the future
implementers of environmentally sustainable projects. Small-scale enterprises for
products made from recyclables can be promoted initially with trained out-of-school
youth and women groups. This will primarily orient and provide them with the
knowledge and skills to transform solid waste into a usable income generator.
Hence, it will lead them to regard solid waste as a resource with economic value.
However, this has to be advocated and supported by the local government units in its
preliminary stage of testing and implementation. For long-term benefits, the local
government must secure alternative sites for resource recovery facilities. IEC
campaign on ecological SWM should promote the material recovery at the
household level. Marketing of the recyclable materials, on the other hand, must be
fully developed to reduce garbage production in an integrative approach and not on a
'piecemeal' system.
Institutionalizing responsibility in SWM by investing in personnel. The
increasing solid waste generation greatly adds up to the work requirements of the
SWM force. This means investing in SWM personnel from community volunteers
which will provide people with opportunities and benefits in gaining technical skills
and expertise while at the same time improving the quality of SWM services at their
respective localities. Considering the provisions of RA 9003, which considers
garbage as a source of livelihood, the building of material recovery and composting
96
facilities in each barangay is a venue where these people can be employed. With
this institutionalized responsibility, people's participation will be further enhanced,
as they will be part of a responsible and accountable sector to counter solid waste
problems in communities.
Reviewing reforms and monitoring the progress of SWM vis-a-vis RA
9003. This Act was enacted in 2001. It addresses ecological issues of solid waste,
however, there is no single body dedicated to SWM considering that the members of
the National Solid Waste Management Commission constitute the representatives of
the different branches of the government with their own mandates. With the
continuous solid waste generation, the government definitely cannot bear the burden
of this problem, and therefore a concerted effort among the government, the public,
and the private sector has to be strengthened. It demands a strong body, unswayed
by corruption, to rouse participation, and encourage involvement in the
implementation of the reforms.
The development of the Municipal Integrated SWM plan which identifies
strategies to address the pressing problems of solid waste that consequently affects
its constituents in general, need to have a sustainable program that is functionally
implemented in the furtherance of community participation. There is a need to
review the SWM reforms implemented at the municipal down to the community
level as well as to monitor their progress and impact. At the national level, there is
a policy initiative that will hold the manufacturers responsible for products that
97
pollute the environment and contribute to municipal waste. They have to be
encouraged to utilize less harmful materials, products that last longer, are easy to
repair, and recyclable. Preventing waste accumulation is a "low waste approach"
that can be addressed at the national level.
A program on how the local government units can share experiences on
handling solid waste can be done. This will lessen the transaction costs of planning,
strategizing, and searching for possible solutions among the local governments.
Learning from others who are in the same predicament can expedite the process of
finding the most effective and efficient ways to arrest the garbage problem. While
from the local government unit's level, local officials should ensure that an effective
public awareness and education program is in place to support their SWM projects.
Long-term IEC plan must address the need for strong public commitment to
environmental goals. SWM to consciously start from home segregation of solid
waste, recycling, biodegradables for composting, and be supportive of
entrepreneurial activity - i.e., material recovery facilities established within
barangays. Progress of implementation and accomplishments has to be effectively
monitored to avoid waste of time, effort, and finances.
Sustainability focus of SWM practices. Strong political will, advocacy, and
partnership with the people in the community are vital elements for the success of
SWM undertaking. A well-informed and highly involved constituency would
almost guarantee its sustainability. Sustainable programs need to be implemented,
98
which will also promote community participation. The bottom-up approach
involving the grassroots level, from systematic planning to program implementation
and monitoring, would result in intensified program ownership. Hence, a more
effective and highly participated in SWM system will be built, provided that the
local authority is ready to manage and sustain the SWM projects with the resources
needed. The SWM Board of the municipality and each barangay must have a
functional long-term action plan for SWM.
Organizing scavengers into a cooperative program on integrated SWM.
This relates to sustaining people's participation in SWM programs. The municipal
government and the local leaders will initially provide the physical and financial
support for the organization of the scavengers into a cooperative which is geared
toward an entrepreneurial goal, thereby equally benefiting its members. Scavengers
have to be trained concerning the responsibilities, obligations and shared benefits of
a cooperative program. However, they will be given the option to choose what
component of the integrated SWM they would want to get involved in, like waste
picking and segregation, handicrafts production from recyclable waste (one group of
scavengers per product, according to their interest e.g. sections on wall decors, stuff
toys, etc.), hands-on training assistance for new members, among other services
within the cooperative. Through this cooperative, scavengers will learn to be more
responsible and at the same time enhance their skills, knowledge and potential as a
group, and more importantly, earning higher income.
99
Suggested directions for further study can be focused in the following areas:
• Tapping women and out-of-school youth as lead actors in managing small and
medium enterprises at the community level for the development of products
made from recyclable materials. The economic capacity to generate productive
resources (jobs, income source from garbage) encourages more participation.
Also, women as messengers of social transformation and political modernization
have to be recognized as intermediaries in raising awareness and as managers of
community services for SWM.
• Assessment of SWM policy loopholes vis-a-vis program implementation
focusing on local governance. .This essentially will include the tracking of the
progress of the implementation of the SWM provisions under RA 9003.
• Exploration of possible alternatives toward greater reduction from a continuing
and increasing generation of solid waste from all sources, most especially in
residential areas, in the midst of growing rapid industrialization. This is in
response to the reality that the time will come, when those controlled waste
disposal facilities, and waste processing centers will have reached their full
capacity, and may need to close, or otherwise another place for such facility
needs to be found.
The type of community mobilization strategy on SWM applicable to varied
ecological settings remains with a lot of challenges for future studies.
100
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106
APPENDICES
107
Appendix 1. Payatas open dumpsite before the tragic garbage erosion (years 2000 and earlier).
The mountainous garbage in Payatas dumpsite which serve as the source of income for the scavengers in the community and neighbouring areas.
Source: The Garbage Book-ADB, 2004.
Appendix 2. Payatas today as Quezon City's central Controlled Waste Disposal Facility.
^CANTINGOFVETITCRa GREENHOUSE& PLANTNURSERY
GAS VENTS GAS COLLECTION PIPE
) KW GAS ENGINE GENSET PERIMETER LIGHT FROM LFG
Source: Municipal Government of Quezon City, 2008. Use by permission.
109
SKIS
^ 1 H •
A number of junkshops along the road going to the Payatas Controlled Waste Disposal Facility. The scavengers and the household members sell the recyclable waste in these junkshops.
Source: From the author, photos taken in 2008.
110
Appendix 3. Handicrafts training with recyclable waste by volunteers in Quezon City for interested individuals/groups in the community and sample products.
Training for handicraft making out of recyclable materialsas a possible small-scale income source in the community conducted by NGO volunteers in coordination with the Municipal Government.
mm?.
Source: Municipal Government of Quezon City, 2008. Use by permission.
I l l
Appendix 4. Advocacy and social marketing initiatives of the Municipal Government of Quezon City toward community participation.
A number of booths set up at Quezon City malls (SM/Shoe Marts) for scheduled redeemable recyclable waste.
Massive IEC campaigns at schools and during City/ community events with the Waste Reduction Mascots.
Source: Municipal Government of Quezon City, 2008. Use by permission.
112
Appendix 5. List of the Los Banos Science Community member-agencies.
1. ARCBC 2. BFAR-FFRS
3. BSP 4. BPI-LBNCRDC
5. DOST-Region IV 6. ERDB 7. FPRDI 8. IRRI 9. LGU(MGLB) 10. LLDA ll.LSPC-LBC 12. LWD 13. LBP 14. PARRFI
15. PCAMRD
16. PCARRD
17. PhilRice 18. PHSA-DepEd 19. SEARCA
20. UPLB 21.UPLBFI 22. UPOU
Asean Regional Centre for Biodiversity Conservation Bureau of Fisheries and Aquatic Resources-Freshwater Fisheries Research Station Boy Scouts of the Philippines Bureau of Plant Industry-Los Banos National Crops Research and Development Center Department of Science and Technology-rV Ecosystems Research and Development Bureau Forest Products Research and Development Institute International Rice Research Institute Municipal Government of Los Banos Laguna Lake Development Authority Laguna State Polytechnic College-Los Banos Campus Laguna Water District Land Bank of the Philippines Philippine Agriculture and Resources Research Foundation, Incorporated Philippine Council for Aquatic and Marine Research and Development Philippine Council for Agriculture, Forestry and Natural Resources Research and Development Philippine Rice Research Institute Philippine High School for the Arts-Department of Education Southeast Asian Regional Center for Graduate Study and Research in Agriculture University of the Philippines Los Banos University of the Philippines Los Banos Foundation Incorporated University of the Philippines Open University
Source: Los Banos Science Community Brochure-DOST/TAPI, 2000.
113
Appendix 6. Los Banos dumpsite prior to its conversion into an Eco-Waste Processing Zone (years 2002 and earlier).
The mountain of garbage from different sources at the Los Banos open dumpsite at the foot of Mt. Makiling Forest Reserve area. This site is within 3 Barangays: Timugan, Bambang and Baybayin (the latter locates the Municipal Hall). Surrounding this dumpsite are various research and academic institutions.
Source: Municipal Government of Los Banos Photo Files, 2002. Use by permission.
114
f?
*S»T5<daflriMtel
- * v 4 . J *
M
Smoke emission from burning combustible wastes from the rear entrance up to the location proper of the dumpsite which heavily pollutes and impacts on the environment, air , water quality, and create risks to human health and other life forms.
Source: Municipal Government of Los Banos Photo Files, 2002. Use by permission.
115
Appendix 7. The then Los Banos open dumpsite now an Eco-Waste Processing Center.
The rear entrance and inside view before and after the dumpsite conversion into an eco- waste processing center.
%&T&-
Source: Municipal Government of Los Banos, Photo Files, 2002 & 2008. Use by permission.
116
*$vr ""****•
V,
• « ; 1 # 3 w ^ ; , ^
The whole view of the garbage dumpsite then and today's eco-waste processing center.
Source: Municipal Government of Los Banos Photo Files, 2002 & 2008. Use by permission.
117
Appendix 8. Some initiatives and strategies of the Municipal Government of Los Banos toward community involvement in SWM.
Meetings and organization of stakeholders mostly held at the dumpsite for people to see and feel the consequence of voluminous garbage and the need for their participation.
Organization of waste pickers into association of recyclers and traders provided with ID, uniform, pedicabs and allowance.
Deputation of volunteer enforcers from the different sectors (residents/homeowners, NGOs, business establishments, schools, etc.).
Source: Municipal Government of Los Banos, 2008. Use by permission.
118
Appendix 9. Vegetable seed/seedlings propagation using recyclable materials and compost from biodegradables at the author's home front yard.
Utilizing styrofoam, scrap aluminum basin, cans, plastics and water bottles, with holes underneath.
Source: From the author, photo taken in 2004.
Appendix 10. Selected photo documentation of the actual process of coordinating and conducting the pilot project in Barangay Masili in 2005.
Consultation with the Barangay Council and its Committee Chairs on Urban Poor and Livelihood, Health and Environment, Education and Public Relations regarding the author's pilot project.
.ST-* ' "\V7
^ % | % g f
Conduct of survey about the knowledge of households regarding solid waste segregation through the MABUHAI organization comprised mostly of women.
AA
\-J
Seminar on solid waste segregation and composting.
Source: From the author, who personally presented the project to the Barangay Council and conducted the above survey and seminar, photos taken in 2005.
120
Working to prepare lot for trial demonstrations of community composting and vegetable gardening/nursery (from cleaning, land/plots preparation to digging of compost pits), with manpower services through MABUHAI member-women volunteers, and the college students of Colegio de San Juan de Letran conducting community services in Masili.
m *sr: *
Source: From the author, who worked with the women volunteers and students in land preparation for community trial demonstrations, photos taken in 2005.
121
Appendix 11. The ongoing snap hydroponics pilot project of the Barangay Council in Masili derived from the author's project in 2005.
Ongoing pilot project of Masili with snap hydroponics utilizing recyclable materials supported by the Barangay Council, particularly through the training of an agriculturist resident in the community.
Source: From the author, photos taken in 2008.
122
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