Resource Cities: Cebu-Fort Collins

Case Study

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Resource Cities Program: Case Study

International City/County Management Association
Cebu City, Philippines and Fort Collins, Colorado, USA
CHARTERING A 10-YEAR PLAN FOR SOLID WASTE
REDUCTION IN CEBU CITY
Background
The primary focus of the technical exchange between Fort Collins, Colorado and Cebu
City, Philippines was to improve solid waste management, with an emphasis on
applying source separation (segregation) and recycling strategies to reduce the amount
of waste placed in landfills. The two cities share the same problem of rapidly aging local
landfills, and the prospects of committing significant public funding to build new
facilities in the near future. Municipal goals to
reduce greenhouse gas emissions (methane
generated by decomposing trash in landfills) were
another
similarity,
with
both
partners
participating in the Cities for Climate Protection
program sponsored by ICLEI.
The objectives of the exchange were fourfold:
Provide a snapshot of the current
situation for solid waste management in
Cebu City as of January 2003.
A bustling pedestrian hub of the city, Cebus
Basilica De Santo Nino is one of the oldest
Respond to Philippines federal regulatory
churches in the Philippines.
requirements (RA 9003, RA 6969).
Describe Cebu Citys long-term goal and objectives for solid waste, including the
process for implementing shorter-term action plans (two-year, four-year) to
achieve the City's goals.
Study the differences in culture that result in variations in purchasing, packaging,
trash disposal, recycling and waste between the two cities.

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

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Case Study

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In 1982, the City generated 212.2 tons/day of garbage. Volumes had risen to 360
tons/day by 1998; when the Inayawan landfill was constructed, it was estimated that it
would reach capacity by 2005-061. Today,
approximately 400 tons of waste are deposited
each day at Cebus landfill, significantly
shortening the life of the landfill2.
Cebu
officials
sought
assistance
from
international partners to manage waste using
the preferred hierarchy established in
Philippine legislation (RA 90033). The hierarchy
prescribes that efforts to manage waste start first
with waste prevention, then move to recycling,
During a technical exchange in January 2003,
Cebu City Council welcomed visitors from Fort
followed by processing and treatment, and
Collins, Colorado (Greg Byrne, Director of Fort
ending with disposal (in landfills) as a final
Collins Community Planning and Environmental
resort to use when other options are exhausted.
Services (on left) seen here shaking hands with
The community has adopted numerous City
Michael Ramos, Vice Mayor of Cebu City).
ordinances to address trash issues (e.g., 1990
ordinance to prohibit dumping or littering, requiring a trash-free perimeter to be
maintained around residential and commercial buildings4). However, more public
information and recycling infrastructure are needed to effectively apply waste reduction
strategies.

Project Description
In evaluating the current situation in Cebu, many
positive and negative characteristics quickly
became apparent to the Fort Collins partners. It
was a pivotal moment when we learned that Cebu
City government commits considerable effort and
investment to improving its solid waste
management system, but that lack of coordination
often prevents opportunities from being fully
realized.
The Fort Collins staff suggests that this happens in
all government agencies throughout the world (it
1

Mayor Tommy Osmena, third from right, shows

newly purchased City garbage trucks to the Fort
Collins partners.

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

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certainly does in Colorado) but maintains that it is our job to practice cooperative, wellinformed planning and management to reduce
inefficiencies for the benefit of our citizens. The
signs of poor communications and collaboration
are abundant in Cebu. Of special note, when the
Inayawan landfill was constructed, it included a
facility for fully segregating recyclable materials
from the waste stream that was never started up
and sits today, rusty and inoperable. Another
standard landfill management technique, using
heavy equipment to compact waste materials, was
not included, which probably would have
Neighborhood representatives from Bargangay
Luz listen as Lindy Morrell, academician and
doubled the lifespan of the facility.
president of the Mactan Channel Multi-sectoral
Management Council, Inc., describes how
recyclable materials are collected to Greg Byrne.

First and foremost, the Fort Collins team brought

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

Indicators
The right elements for sustainable change (economic,
social and environmental) that will help improve waste
prevention, recycling, composting, etc. are to be found
in Cebu:

There is a high level of awareness among

Local Governmental Units (LGUs), including
barangays, and increasing levels of concern.

The beginnings of a strong institutional

framework are in place.

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

A tour of the recycling facility in Boulder,

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

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

Board required by RA 9003 has been approved, and the Board has begun
meeting.
There are several existing and potential international partners.
Increasingly, barangay crews are collecting solid waste, which is where
source separation (segregation of materials) will best occur.

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

Some best practices are currently adopted, but not fully implemented. For
example, hospitals segregate wastes, but those are then commingled with other
wastes upon collection.

Several waste management activities are being conducted that demonstrate the trend that we
observe is beginning to occur in Cebu. Two are particularly worthy of mention.
1. Commercial Recycling
The Ayala Foundation, Inc. (AFI) is helping to
implement solid waste segregation at the source
at the Ayala Center, a modern, six-story shopping
mall with 300 shops and businesses. The parent
company, Ayala Center Cebu (ACC), has
instituted mandatory separation as a provision of
their lease agreement with tenants.
The program, started in December 2001, is
currently in the pilot phase, with ACC staff
monitoring and measuring activity under the Employees of Ayala Center Cebu, Emma Mawe
and Joyce Rale Robin, share information about
program.
Segregated materials are handled getting businesses to participate in recycling while
under contract by a private vendor for resale or Susie Gordon, City of Fort Collins environmental
reuse. The program generates 5,000 pesos (about planner, takes notes.
$100) per month, which is given to the Cebu
Business Park and Neighboring Barangays Altruistic Alliance, Inc. (CBP-NBAAI) as part
of the contractual agreement. ACC plans to institute similar programs at two more
office buildings in Cebu Business Park in coming months.
2. Composting
The City of Cebu, under the leadership of Councilman Nestor Archival, is
experimenting with an organic bio-gas digester at the Citys landscape nursery as a
technique to manage organic waste. Waste from the Carbon Public Market is being
deposited in the digester under a program being pioneered by the University of San
Carlos in Cebu City.

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Byproducts of the bio-gas decomposition process

are put to beneficial secondary uses; (1) Methane
is drawn off the digester vessel and used as fuel to
generate electricity, and (2) Compost is collected
from the outlet of the digester and used to fertilize
plants at the nursery. The Resource Cities Partners
observed two similar digesters in operation in the
Cebu metro area, also installed by the University
team. Both are handling animal and household
waste; one has been in successful operation for five
years. Both provide methane fuel for domestic use, Councilman Nestor Archival (right) has
spearheaded efforts to compost organic material
and compost for soil amendment. This technology for use in Cebu City nursery gardens.
may prove to be extremely important given the
high proportion of organic waste in Cebus waste
stream (56%, according to the December 2000, final draft report from SCHEMA Konsult,
Inc.; Cebu City Strategic Master Plan Study).

Tactical Issues to Resolve

Compliance with RA 9003 and development of an integrated, sustainable solid waste
management system will take determined and
sustained effort. The City will work strategically to
overcome key economic and political obstacles that
will impede progress.

Solid waste collection and disposal costs fall

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

Rommel Urgel, Science Research Specialist at

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

A pressing issue for Cebu is that Inayawan sanitary landfill will close soon. It has
a projected life of three years at best, and the City has not yet begun the process
to find a replacement. Siting, permitting, and constructing a new landfill can be
expected to take at least five years.

Reliable local data are needed to make well-informed decisions about managing
the waste stream, including an up-to-date characterization of the types and
volumes of materials entering Inayawan landfill.

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Equipment problems plague the collection process and trash collection practices
are often inefficient. For instance, City trash crews segregate recyclables as they
go about their work, to sell for personal profit, which slows them down to the
point that they cant finish daily routes. Either a training program should be
developed to eliminate this practice, or the collection system should be
redesigned to enhance this informal recycling process. The fleet of vehicles
should be brought into a regular
maintenance program that will reduce
break-downs and extend trucks servicelife.

A single, organized public relations

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

Policy gaps need to be closed so that ocean-going ships that dump waste and
discharge oil into the harbor are accountable to either the local or national
government.

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

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

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

Partners on the Cebu-Fort Collins technical

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