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BATON Political Will Key to Zero Waste

ZERO WASTE CITIES ASIA SERIES City of San Fernando, Pampanga, Philippines PICKING UP THE BATON Political Will Key to Zero Waste

ne of the biggest challenges of waste management programs Oin Philippine cities and municipalities is sustainability. Often, a change in leadership comes with a change in priorities, especially if incoming leaders hold political differences from the former leader.

Thus, programs put in place by previous administrations are almost always in danger of being discontinued by current leadership, even if those said programs have been successful.1 Waste management programs are especially at risk because they are one of the most high-profile and difficult services that a city provides.

Despite this, the City of San Fernando City of San Fernando, Pampanga Mayor Edwin Santiago under whose leadership, proves that with strong leadership and program implementation of Zero Waste was political will, a change in authority does scaled up. © VEEJAY VILLAFRANCA/GAIA not mark the end of a program, but rather an opportunity to improve it. offices operating in the region. One of San Fernando’s greatest assets is THE CITY OF its geographic location, as all major SAN FERNANDO, highways leading to and from all provinces in the north pass through PAMPANGA it. Because of its strategic location, it The City of San Fernando is the has become the hub of commerce, capital and one of the busiest cities in City of San Fernando trade, transportation, and agriculture Province of Pampanga Pampanga, a province in Central Luzon, in Central Luzon. There are over 8,000 Population: 306,659 (2015 census) 2 Philippines. It measures 6,774 hectares Area: 67 km2 business establishments in the city and (67 km2) and is divided into 35 villages Population density: 4500/ km2 more than 120 academic institutions, as or barangays.3 It is home to more Altitude: 5-70 meters above sea level well as at least 70 health care facilities. Average temperature range: 22-32 °C than 306,659 people4, which easily The growing number of business Waste generation: .6kg/capita/day quadruples during daytime. Waste to landfill reduction rate since establishments has created abundant beginning of the program: 12% employment opportunities in San San Fernando is also the regional Waste diversion rate as of 2018: 80.69% Fernando, thus attracting thousands Public spending per capita in SWM: administrative capital of Central Luzon, of migrants from neighboring towns PHP 111.00/year hosting national government agency and provinces.

2 PICKING UP THE BATON THE FIRST FEW YEARS of residual waste, was on the rise, and WHEN THERE’S open dumping and burning of waste POLITICAL WILL, OF REPUBLIC ACT 9003 remained prevalent. Waste management in the Philippines THERE’S A WAY is governed by a national law called the But San Fernando was determined to Despite the numerous setbacks to Ecological Solid Waste Management Act meet its waste management program the city’s solid waste management of 2000 or Republic Act 9003 (RA 9003). targets. In 2007, San Fernando created goals, former city Mayor Oscar Samson This law puts the prime responsibility of the City Environment and Natural Rodriguez (2004-2013) remained waste management on the barangay. Resources Office (CENRO), a separate adamant on finding a sustainable It requires the barangay to implement office whose primary responsibility is to and ecological solution for the city’s waste segregation at source; collect implement the SWM program. The city garbage woes. and manage all biodegradable, government also distributed pushcarts reusable, and recyclable wastes; and tri-bikes6 to barangays for waste In 2011, San Fernando formed a build necessary facilities and acquire collection along with cash incentives partnership with Mother Earth the appropriate land and vehicles to worth PHP 150,000 (USD 2,940.457) to Foundation (MEF), a GAIA member in manage wastes; and employ personnel barangays to speed up the construction the Philippines that actively promotes to deliver waste services. of MRFs, and PHP 50,000.00 (USD Zero Waste. The partnership paved 980.15) worth of construction materials the way for a more effective approach San Fernando initially struggled with to subdivisions to build their own MRFs. to achieving San Fernando’s waste the implementation of RA 9003. management goals. MEF provided Nevertheless, they persevered by In 2008, while still struggling to find technical assistance to local leaders taking steps forward which included a solution to the increasing volume about RA 9003, including a more instructing employees in charge of solid of waste, the city signed a contract comprehensive way of addressing waste management (SWM) to hold with a local company, Spectrum Blue household segregation. one-on-one seminars and trainings Steel, to build a gasification facility. with barangay officials to orient The company promised San Fernando When the new administration led by city them on RA 9003 and their roles and a share in tipping fees from waste that Mayor Edwin Santiago took over in 2013, responsibilities under the law. The city will be treated in its facility, as well as the city’s waste management program also required business establishments income from the energy that will be was not only sustained but also saw to secure a SWM inspection clearance generated. The company claimed that great improvements. While former Mayor in order to get a business permit5, and the city only had to provide land and Oscar Rodriguez focused on model- passed a city-wide ordinance requiring give full control of the management of building of barangays, Mayor Edwin waste segregation at source and the waste to Spectrum Blue Steel. However, Santiago directed his efforts towards construction of materials recovery several years after the contract signing, scaling up and institutionalizing the facilities (MRFs) in all barangays the company only managed to establish program by expanding it to all barangays, within the city. the frame of the building and boundary including schools and subdivisions. It of the facility, but never delivered on the was also during Mayor Santiago’s term Despite these efforts, compliance rest of its promises. Thus, in 2013, San that the Plastic Free Ordinance of 2014, among barangays and constituents was Fernando rescinded the contract and authored by City Councilor Benedict still low. Waste generation, particularly the project was cancelled permanently. Jasper Lagman, was enacted.

Waste workers in Pilar Village collect waste from the households. © VEEJAY VILLAFRANCA/GAIA

PICKING UP THE BATON 3 A waste worker in Barangay San Isidro further segregates recyclable paper. © VEEJAY VILLAFRANCA/GAIA

INFORMATION, in barangays, schools, and business a fourth offense. As of June 13, 2015, establishments, the city also introduced San Fernando has declared a total EDUCATION, AND a novel concept to encourage at-source ban on plastic bags which has an 85% COMMUNICATION (IEC) separation and home composting: a compliance rate today. CAMPAIGN live TV show called “Win-win for All.” The TV show, which goes live every A policy of no-segregation, no- One of the first strategies that MEF Friday and is hosted by a local artist collection has also been strictly assisted San Fernando in was leading and a CENRO staff member, awards a implemented. Household compliance an intensive public information, small sum of money to households that is monitored by the barangays, while education, and communication (IEC) separate their waste properly. Every compliance of business establishments campaign for residents. On one hand, episode, the hosts make surprise visits and other institutions are monitored barangay officials had always found it to unsuspecting households from the by the city. Business establishments, challenging to implement RA 9003 in week’s chosen barangay to check if private schools, and private health fear that requiring their constituents they do proper waste separation. Five care facilities are required to contract to participate in a waste program may winners are awarded Php 2,000 (USD a private hauler to collect segregated discourage their potential voters for the 39.21) each if they pass the inspection. waste and bring residuals to a final following elections. However, thanks disposal facility. To make sure that to the rigorous IEC campaign facilitated POLICY AND private contractors and businesses by MEF, citizens felt more empowered are separating at source, CENRO staff to take part in the city’s solid waste ENFORCEMENT conduct regular spot-checks. Health management program, and they came To further combat the increasing care facilities are required to contract to appreciate how the program would volume of residual waste, San Fernando accredited infectious and hazardous be beneficial for all, especially for the passed a Plastic-Free Ordinance in 2014 waste treatment facilities to dispose environment, when they saw how much (Ordinance No. 2014-008) which targets their infectious waste properly. cleaner their surroundings became. business establishments and aims to gradually phase out the use of plastic Additionally, when the city decided bags and styrofoam packaging for food STRENGTHENING AND to start a contest in 2012 where products. The ordinance also details EMPOWERING MULTI- they looked for the best-performing penalties that business establishments STAKEHOLDER DECISION- barangay and people’s own barangays will face should they violate any of the MAKING ON SWM started winning, citizens saw this as provisions stated within the ordinance. further encouragement to continue to The penalties start with a warning RA 9003 requires all LGUs to create support their barangay’s SWM program. and can escalate to the cancellation a city/municipality solid waste Aside from doing an IEC campaign of their business permit if they reach management board composed of city/

4 PICKING UP THE BATON municipal and sectoral representatives. street sweepers, and MRF managers 40 to 80 staff members. This expansion San Fernando is one of the few LGUs in that earn a monthly average salary of of the CENRO indicates the importance the country where the city solid waste PHP 4,800 (USD 94) with a range of San Fernando places on their solid waste management board (CSWMB) is properly PHP 1,000-10,800 (USD 19.5-211)7 and management program. constituted and fully functional. The an added average potential additional board meets regularly and acts promptly income sourced from sales of recyclables As of 2018, the city’s waste diversion to create or adjust the city’s overall collected from households of PHP rate rose from 12% to 80.69%, and they waste program. The city awards a small 4,700 (USD 92).8 plan to increase that to 91% by 2025. honorarium for CSWMB members during Now, the city only spends PHP 34.6M meetings as an additional incentive. (USD 677,404) annually on waste hauling, All relevant sectors are properly FRUITS OF THEIR LABOR compared to PHP 70M (USD 1.4M) in represented in the board, including The city has now covered all 35 barangays previous years.10 Additionally, the savings waste workers and the youth. and has reported 93% compliance with that come from diverting waste from RA 9003,9 with 85 fully functional MRFs landfills also increased from PHP 2M (USD Perhaps one of the biggest improvements located in barangays, private subdivisions, 39,206) to PHP 50M (USD 980,151) per in San Fernando’s program is the schools, health care facilities, public year. For 2018, San Fernando has saved recognition given to its waste workers. markets and business establishments. approximately PHP 20M (USD 391,563) Previously, most waste workers in the city These MRFs are regularly monitored by all from proper solid waste management were considered itinerant as they were the CENRO, which has now grown from from the barangays. not recognized by the city and therefore not given a regular salary. However, through the partnership with MEF, waste Diversion Rate per Year workers have been formalized and fully Year Waste Generated (per Waste diverted Difference from Percentage integrated into the SWM program at the year in kg) (per year in kg) previous year barangay and city levels since 2012. Waste 2012 61,571,149 7,388,538 NA 12% workers have also organized themselves into the city-wide San Fernando Waste 2013 61,571,149 33,864,132 26,475,594 55% Workers Association, the president of 2014 61,571,149 44,946,939 11,082,807 73% which sits in the CSWMB. 2015 66.039,016 48,208,481 3,261,542 73% According to the San Fernando 2016 66.039,016 45,566,921 (-2,641,560) 69% CENRO, there are currently around 160 barangay-hired waste workers working 2017 66.039,016 50,189,652 4,622,731 76% as collectors, drivers, segregators, Source: CSFP CENRO, 2018

A waste worker in San Isidro works at the barangay materials recovery facility. © VEEJAY VILLAFRANCA/GAIA

PICKING UP THE BATON 5 EMERGING ISSUES AND protection. “The decentralization of to take place in San Fernando, but the waste management will be in vain if the participation of the community is what SOLUTIONS MOVING barangays are not taught the basics pushed the program to greater heights. FORWARD [of waste management] and given the Currently, the emerging problem necessary assistance to manage their The community’s headstrong desire to that San Fernando is facing has to do solid waste,” she said. flourish coupled with the involvement with what helped build their success and compliance of individuals within in the first place: political will. The She added that it is also important the city enabled San Fernando’s SWM wavering political will of some barangay to know what kind of waste the program to take root, thrive and propel officials in the strict implementation households within the city produces, the city to become the model Zero and enforcement of RA 9003 in the and how much of it is single-use Waste City that it is today—a pioneer barangay level is a perennial problem. plastics. “Waste Analysis and in Zero Waste and considered as the In order to address this issue, the Characterization Study (WACS) should first LGU that strictly complies with the city government, through the City be conducted on a regular basis. Ecological Solid Waste Management Environment and Natural Resources Knowing the type and volume of Act of 2000. Office (CENRO), continuously monitors waste produced allows us to manage and provides assistance (be it financial our wastes properly, and to make “We believe that there is no perfect law. assistance in the establishment or policies that address the problematic But through the strong partnership of renovation of MRFs, distribution of waste streams. Waste reduction and the government, NGOs, [the] private tri-bikes and pushcarts as collection elimination of single-use plastics is sector, and most importantly with the equipment, or the conduct of quarterly important as single-use plastics are active participation of the community, household/barangay evaluation) to the the main source of water and marine we would be able to balance 35 barangays to ensure that the city’s pollution,” she said. economic progress and environmental solid waste management program sustainability for the benefit of the is maintained. The strides made in the city-wide Zero generations to come,” said City Waste implementation of San Fernando Councilor Benedict Jasper Lagman, To ensure the sustainability of San illustrates that the success of their author of the Plastic- Fernando’s solid waste management solid waste management program was Free Ordinance. program, the CENRO continuously a product of the efforts of the whole monitors the compliance of the community. From former Mayor Oscar 2013 2014 barangays and business establishments Rodriguez to current Mayor Edwin Start of MEF Implementation Start of Mayor to RA 9003 and other local Santiago, political will paved 2011 partnership of the 2015 Edwin Santiago’s environmental laws. As of 2019, new the way for a solid Plastic-Free Complete administration Ordinance programs are being crafted to further foundation for ban on increase waste diversion in the future. RA9003 2008 plastic bags CSFP signing MAIN TAKEAWAY contract with According to Maria Regina Rodriguez, Blue Steel Officer in Charge of the City ENRO, the empowerment 2007 of the barangays is very Creation of the City crucial in sustaining Environment their efforts on Environment and environmental Natural Resources Ofﬁce (CENRO) 2004 Sources: Start of Mayor City of San Fernando 10-year Solid Oscar Rodriguez’s Waste Management Plan for administration 2015-2024

Interview with City Environment and Natural Resources O ce Head RA 9003 Engr. Anele David, May 13, 2015 2000 implementation Interview with Barangay Maimpis Councilor Jose Sicat and Barangay Maimpis clerks Jen Reboldera and Sandra Manalo, May 13, 2015

6 PICKING UP THE BATON NOTES 1. Local elections are held every three 4. Census of Population (2015). San Fernando, Pampanga. years. Elected officials from the “Region III (Central Luzon)”. 6. A tri-bike or tri-bicycle is a bicycle barangay to provincial level are only Total Population by Province, with an attached wheeled cart. allowed up to three (3) three-year City, Municipality and Barangay. 7. 1 USD = PHP 51.0126 as of July 16 terms. Central Luzon, Philippines. Philippine Statistics Authority. 2019 (via Oanda) It measures 6,774 hectares (67 5. Agustin, Renato G. (2004). 8. Assuming 30 working km2) and is divided into 35 villages Ordinance No 2004-010, days per month or barangays. It is home to more An Ordinance Requiring All 9. This data is sourced from 24 out than 306,659 people, which easily Commercial, Industrial and of 35 barangays quadruples during daytime. Institutional Establishments 10. From March 2019 Progress Report 2. Official website of the City of San and Agricultural Businesses to of Mother Earth Foundation Fernando, http://cityofsanfernando. Secure Ecological Solid Waste 11. The city increased their tipping fee gov.ph/forvisitors/aboutourcity. Management Inspection Clearance for the disposal of residual waste 3. The barangay is the smallest as a Pre-Requisite to the Securing from the sanitary landfill from administrative unit in and/or Renewal of Mayor’s Permit/ PHP360.00 per cubic meter to the Philippines Business Clearance in the City of PHP630.00 per cubic meter in 2017.

2013 2014 Start of MEF Implementation Start of Mayor 2011 partnership of the 2015 Edwin Santiago’s Plastic-Free Complete administration Ordinance ban on 2008 plastic bags CSFP signing contract with Blue Steel 2007 Creation of the City Environment Environment and Natural Resources Ofﬁce (CENRO) 2004 Sources: Start of Mayor City of San Fernando 10-year Solid Oscar Rodriguez’s Waste Management Plan for administration 2015-2024

PICKING UP THE BATON 7 PICKING UP THE BATON Political Will Key to Zero Waste Copyright 2019 Global Alliance for Incinerator Alternatives Unit 330 Eagle Court Condominium, 26 Matalino St., Barangay Central, Quezon City, Philippines www.no-burn.org | +63 2 436-4733 Facebook: @GAIAAsiaPacific | Instagram, Twitter: @zerowasteasia Author: Felicia Dayrit with reports from Anne Larracas and Gigie Cruz

ACKNOWLEDGEMENT

GAIA is grateful for the contributions from Mother Earth Foundation and the City Government of San Fernando, Pampanga. This publication is made possible through the Zero Waste Cities project — an initiative coordinated by GAIA Asia Pacific and funded by the Plastic Solutions Fund (PSF).

This report has been made possible in part through funding support from the PSF. The views expressed in this publication do not necessarily reflect that of the PSF and its funders.

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