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ACTION PLAN
September 2011
1.1 Authority
This Sewerage and Sanitation Project Action Plan is prepared pursuant to the decision
rendered by the Supreme Court on 15 February 2011 regarding G. R. Nos. 171947 and
171948 entitled Metropolitan Manila Development Authority, et al. vs. Concerned
Residents of Manila Bay, et al. The Court orders the petitioners to clean up, rehabilitate
and preserve Manila Bay, and restore and maintain its waters to SB level (Class B sea
waters per Water Classification Tables under the Department of Environment and
Natural Resources (DENR) Administrative Order No.34 [1990]) to make them fit for
swimming, skin-diving, and other forms of contact recreation.
In the said Supreme Court Decision, the Local Water Utilities Administration (LWUA) is
one of the mandamus agencies required to submit to the Court on or before 30 June
2011 the list of cities and towns in Laguna, Cavite, Bulacan, Pampanga and Bataan that
do not have sewerage and sanitation facilities. LWUA is further ordered to submit on or
before 30 September 2011 its plan to provide, install, operate and maintain sewerage
and sanitation facilities in said cities and towns and the completion period for said works
which shall be fully implemented by 31 December 2011.
The Manila Bay Basin comprises the National Capital Region (NCR), Region III
(Provinces of Bataan, Bulacan and Pampanga) and Region IV-A (Provinces of Cavite
and Laguna). LWUA’s focus will be confined to the localities with duly-formed Water
Districts (WDs) as it is in these areas where LWUA exercises its regulatory authority over
the WDs.
Figure 1 is the location map showing LWUA’s area of concern while Table 1 presents the
list of localities with WDs but without sewerage facilities. There are 81 cities and
municipalities with WDs within the Manila Bay Basin.
1.3 Objectives
The principal objective of the sewerage and sanitation project is to reduce the pollution
load in Manila Bay due to domestic wastewater from households and buildings, and to
improve the sanitation condition of the WDs within its basin. Manila Bay is the final
discharge point of water channels within the basin and as such is the depository of
untreated wastewater that contributes to its pollution load.
Under the LWUA’s Charter, the Provincial Water Utilities Act of 1973 also known as
Presidential Decree (P.D.) 198, as amended, LWUA is mandated to be a specialized
lending institution for the promotion, development and financing of local water utilities. In
the implementation of its functions, LWUA is authorized to: 1) prescribe minimum
standards and regulations in order to assure acceptable standards of construction
materials and supplies, maintenance, operation, personnel training, accounting and fiscal
practices for local water utilities, 2) furnish technical assistance and personnel training
programs for local water utilities, 3) monitor and evaluate local water standards, and 4)
effect systems integration, joint investment and operations, district annexation and de-
annexation whenever economically warranted.
Under the same charter, local WDs may be formed for the purpose of 1) acquiring,
installing, improving, maintaining and operating water supply and distribution systems for
domestic, industrial, municipal and agricultural uses for residents and lands within the
boundaries of such districts, b) providing, maintaining and operating wastewater
collection, treatment and disposal facilities, and 3) conducting such other functions and
operations incidental to water source development, utilization and disposal within such
districts, as are necessary or incidental to said purpose.
In the exercise of its function, a district may require, construct, operate and furnish
facilities and services, within or without the district, for the collection, treatment and
disposal of sewerage, waste and storm water. The district may only furnish such service
outside the district by means of facilities designed primarily to serve inside the district.
Upon providing a sewer system in any area of the district, the district may require all
buildings used by human beings to be connected to the sewer system within such
reasonable time as may be prescribed by the district, provided that the property upon
which such building to be connected stands is located within 35 meters of an existing
mains of the district’s sewer system. The district may declare the further maintenance or
use of cesspools, septic tanks, or other local means of sewerage disposal in such area
to be a public nuisance and, after notice in writing of at least 10 days deprive said
property owner of any and all services provided by the district, which sanctions may be
co-extensive with the period during which the property owner persists in refusing to
connect with the district’s sewer system.
2.1 Background
The provision of sewerage and sanitation services has always ranked low in priority for
the WDs as the focus has always been on water supply improvement. This may be
attributed to two (2) main factors. One is the lack of awareness of the people and of the
local leadership on the adverse health and environmental effects of poor sanitation
and/or the lack of sewerage facilities. The other one is the prohibitive cost of putting up
sanitation and sewerage facilities, and the uncertainty of cost recovery, both on the
capital and operational outlays.
The improvement in the level of water supply service rendered by the WDs, coupled with
expansion of the service area coverage, resulted to the increase in the volume of
wastewater generated contributing to the problem of pollution of groundwater and
surface water resources.
Based on the 2007 Poverty Indicator Survey of the National Statistics Office, only about
2.9% of the total families in Region III and about 5.9% of the total families in Region IV-A
have no sanitation facilities (flush toilets and closed pits). However, these on-site
sanitation facilities, mostly septic tanks, only partially treat or decompose the organic
wastes and provide minimal consumption of pathogenic organisms. In many cases, the
septic tanks are not constructed based on best design specifications and are poorly
maintained which greatly reduces the treatment efficiency of the septic tank system.
The effluents from those on-site facilities, which are high in domestic pollutant load or
biochemical oxygen demand (BOD), leach to the ground and sub-surface drains, or
overflow to existing drains. These eventually find its way to Manila Bay through the
network of drainage channels and connecting streams and river systems. This condition
is one of the leading factors for the continuous increase of contaminant loading that
exacerbates the already grave situation of the pollution level in Manila Bay.
3 PLANNING FUNDAMENTALS
There are 81 WDs within the Manila Bay Basin. In the proposed sewerage and
sanitation project to be implemented by LWUA, priority is given to the 45 WDs that
contribute, directly or indirectly, to the pollution load in Manila Bay.
3.2 Strategy
The strategy to avert the increasing pollution load from domestic wastes in Manila Bay is
to reduce the contaminant loading from the point sources to as much extent as possible,
i.e., from the outlets of septic tanks or directly from the septic tanks. To attain this goal,
the strategy calls for:
Provision of sewerage system is obviously very expensive, both on the capital and
operation and maintenance costs, and, therefore, not cost-effective for most, if not all
WDs. Sewerage system is applicable only when the following factors are present:
Considering the nature of most of the WDs as to population density and ability to pay for
sanitation services, septage management system is deemed the more practical in
technical and financial terms, and more doable to achieve the objective of this plan.
However, in the long run, conventional sewerage system should be considered since this
usually provides a high level of treatment and deal collectively with all domestic wastes
relieving the household owners from the responsibility of sanitation.
Table 3 shows the administrative population of the 45 WDs in 2007. The table likewise
shows the number of water service connections, the average connection size (number of
persons per connection) and the corresponding total served population.
Table 4 shows the projected served population in the WD-water supply system and the
resulting wastewater volume generated up to year 2020.
The administrative population of the 45 WDs is projected considering the year 2020 as
the design year for the proposed sewerage and sanitation project. It is assumed that the
population will grow at an average rate of 2% p.a. from the 2007 level.
The water supply served population is projected based on the baseline 2007 percentage
of population served by the WDs. In 2007, the WDs served about 58% of the population
within its administrative boundaries. This is projected to increase to 63% in 2011, 65%
from 2012 to 2014, 70% from 2015 to 2016, 75% from 20117 to 2018 and 80% from
2019 to 2020.
The volume of wastewater generated is dependent upon the water consumption. In this
proposed project, a return coefficient of 80% of water consumption is assumed. The
typical per capita water consumption is taken as 150 liters per capita per day (lpcd),
hence, the wastewater generated is 120 lpcd. A peaking factor of 1.5 is applied for
design purposes.
The BOD loading is calculated based on the typical pollution loading of sewage at 250
mg/l.
Table 5 shows the projected wastewater generated for the sewerage component of the
project.
The volume of sludge is projected based on the typical sludge accumulation rate of 40
liters per capita per year. It is also assumed that each septic tank will be desludged
every four (4) years.
Table 6 shows the year-by-year number of septic tanks to be desludged as well as the
volume of septage to be treated.
4.1 General
The Plan for the provision, installation, operation and maintenance of sewerage
(conventional sewerage system) and sanitation (septage management system) facilities,
as ordered by the Supreme Court, shall be fully implemented by December 31, 2020.
Figure 2 shows the work schedule for the implementation of the sewerage and sanitation
systems for the 45 WDs. Based on the work schedule, full implementation of the
sewerage and sanitation project will be completed in 2020.
Preliminary works will be carried out by LWUA in the last quarter of 2011 with emphasis
on coordination efforts and building consensus with the WDs. Part of this undertaking
would be the initial updating of the baseline data of the WDs.
Feasibility study and detailed design will be farmed out to local consultants specializing
on sewerage and sanitation systems.
Feasibility study will be conducted to come up with the most appropriate and most cost-
effective sewerage and sanitation technology for the 45 WDs. The study would involve a
detailed assessment of the current situation on sanitation to establish benchmarks that
would serve as the baseline data for which the project impact would be assessed. This
would also include public awareness campaigns such as information dissemination and
stakeholders’ participation. Likewise, the feasibility study will recommend the most
advantageous financing scheme and the most acceptable institutional arrangement for
the operation and maintenance of the project.
After the feasibility study is finalized and accepted by the concerned parties, detailed
design will ensue. The purpose of the detailed design is to come up with plans/drawings
that will serve as the guide in project tendering and implementation.
4.4 Construction
Implementation of the proposed sewerage and sanitation project will be contracted out to
contractors experienced in sewerage and sanitation projects. The LWUA, the design
consultants and the WDs will monitor the progress of the works.
5 INVESTMENT SCHEDULE
The assumptions, recommendations and timetable as contained in this report are only
preliminary as t hese will be studied in more details in the feasibility study and detailed
design that will be undertaken as soon as the budget for the purpose is secured by
LWUA.
As provided for under P. D. 198, WDs are the ones authorized to operate sewerage and
sanitation systems. LWUA’s role is limited to that of providing financial (through loans)
and technical (through engineering services) assistance to the WDs in the pursuit of their
sewerage and sanitation projects. The P.D. 198 further states that funds from prior and
future appropriations of the National Government for waterworks and sewerage systems
in cities, municipalities and provinces that are covered by duly formed water districts
shall be released directly to the LWUA for the account of the water district concerned.
One of the more pressing issues for this plan is the willingness and capability of the WDs
(and also of the local government units), both on the technical and financial aspects, to
pursue the proposed sewerage and sanitation project. The effectiveness of the LWUA in
implementing the Supreme Court order will hinge primarily on the availability of funds
and whether the sewerage and sanitation project will be viable for, and acceptable to, the
WDs.
WDs are operated on a business-like manner and towards full-cost recovery. Minimum
charge for water is limited to 5% of the average monthly income of the population
belonging to the low-income group. Pursuing the cost-intensive sewerage and sanitation
project may be beyond the ability to pay of the consumers and, therefore, may not be
viable for the WDs unless grant funds are made available.
List of Water Districts that Contribute to the Pollution Load in Manila Bay
Particulars 2007 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020
Population
Administrative Population, 2% growth rate p.a. 5,959,052 6,450,270 6,579,275 6,710,860 6,845,078 6,981,979 7,121,619 7,264,051 7,409,332 7,557,519 7,708,669
% of Population Served by WD-Water Supply System (WSS) 58% 63% 65% 65% 65% 70% 70% 75% 75% 80% 80%
Population Served by WD-WSS 3,436,281 4,063,670 4,276,529 4,362,059 4,449,300 4,887,385 4,985,133 5,448,038 5,556,999 6,046,015 6,166,935
Number of Connections Served by WD-WSS
Average Household (HH) Size (persons) per Connection 6.15 6.15 6.00 6.00 6.00 5.80 5.80 5.80 5.80 5.80 5.80
Number of HH Served ~ No. of Connections 558,514 660,486 712,755 727,010 741,550 842,653 859,506 939,317 958,103 1,042,416 1,063,265
Wastewater Volume
Water Consumption, lpcd 150 150 150 150 150 150 150 150 150 150 150
Return Flow Coefficient 80% 80% 80% 80% 80% 80% 80% 80% 80% 80% 80%
Equivalent Average Wastewater Generated, lpcd 120 120 120 120 120 120 120 120 120 120 120
Wastewater Generated by WD-WSS Served Population, cumd 412,354 487,640 513,183 523,447 533,916 586,486 598,216 653,765 666,840 725,522 740,032
BOD Loading
Estimated Pollution Loading, mg/l 250 250 250 250 250 250 250 250 250 250 250
Biochemical Oxygen Demand (BOD) Load, kg/day 103,088 121,910 128,296 130,862 133,479 146,622 149,554 163,441 166,710 181,380 185,008
Particulars 2007 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020
Population
% of WD-WSS Served Population to be Served by SS 2.0% 2.6% 3.4% 4.4% 5.7% 7.4% 9.7%
Population to be Served by SS 88,986 127,072 168,497 239,387 317,427 448,969 595,332
Equivalent No. of HH to be Sewered 14,831 21,909 29,051 41,274 54,729 77,408 102,643
Wastewater to be Collected and Treated by SS 10,678 15,249 20,220 28,726 38,091 53,876 71,440
Resulting % of Pollution Loading to be Treated by SS 2.0% 2.6% 3.4% 4.4% 5.7% 7.4% 9.7%
Hydraulic Peak Factor 1.5 1.5 1.5 1.5 1.5 1.5 1.5
Required SS Capacity, Adjusted Considering Peak Factor 16,017 22,873 30,330 43,090 57,137 80,814 107,160
Proposed Sewerage System Capacity,cumd 20,000 30,000 40,000 50,000 60,000 90,000 110,000
Particulars 2007 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020
Number of Septic Tanks to be Desludged in WD-WSS
No. of HH Served by WD-WSS 558,514 660,486 712,755 727,010 741,550 842,653 859,506 939,317 958,103 1,042,416 1,063,265
Assumed % of HH with Septic Tanks 90% 95% 95% 95% 95% 95% 95% 95% 95% 95% 95%
Equivalent No. of WD-WSS Served HH with Septic Tanks 502,663 627,462 677,117 690,659 704,473 800,520 816,530 892,351 910,198 990,296 1,010,101
No. of HH to be Sewered (from Table 5) 14,831 21,909 29,051 41,274 54,729 77,408 102,643
No. of HH with Septic Tanks Left Unsewered (to be Desludged) 502,663 627,462 677,117 690,659 689,642 778,611 787,479 851,078 855,469 912,887 907,458
Desludging Interval (Years) 4 4 4 4 4 4 4 4 4 4 4
% of Septic Tanks to be Desludged per Year 25% 25% 25% 25% 25% 25% 25% 25% 25% 25% 25%
Equivalent No. of Septic Tanks to be Desludged/Year 125,666 156,865 169,279 172,665 172,410 194,653 196,870 212,769 213,867 228,222 226,865
Volume of Sludge to be Treated
Typical Sludge Accumulation Rate, liters/capita/year 40 40 40 40 40 40 40 40 40 40 40
Sludge Accumulation Rate/HH, liters/year 246 246 240 240 240 232 232 232 232 232 232
Sludge Acumulated Between Desludging Interval of 4 Years ~
Desludged Volume per HH in Equivalent cum/year 0.984 0.984 0.960 0.960 0.960 0.928 0.928 0.928 0.928 0.928 0.928
Total Desludged Volume in cum/year ~ Required Septage
Treatment Capacity in cum/year 123,706 154,419 162,508 165,758 165,514 180,638 182,695 197,450 198,469 211,790 210,530
Septage Treatment Plant Capacity
Programme Septage Treatment Plant Capacity in Stages
(cum/year) ~ Capacity in No. of HH Desludged 40,000 40,000 60,000 60,000
Cumulative Number of WD-WSS Households Desludged 40,000 80,000 140,000 200,000 200,000 200,000 200,000 200,000
% of HH to be Desludged Actually Desludged 23.17% 46.40% 71.92% 101.59% 94.00% 93.52% 87.63% 88.16%
Particulars 2007 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020
Sewerage System Component
Estimate SS Cost in Peso/cum Capacity @ Year 2011 Inflated
@ 8% p.a. 50,000 68,024 68,024 68,024 68,024 68,024 68,024 68,024 68,024 68,024 68,024
FS/Design Cost in % 20% 6%
Investment Cost of Sewerage System @ Year 2011 Price Level*
(P Thousands): FS/Design Cost Reckoned for 1st Year of
Implementation, 2012 30,000 1,360,489 680,244 680,244 680,244 680,244 2,040,733 1,360,489
Septage Management Component
Estimated Septage Management Cost in Peso/HH Served @
Year 2011 Inflated @ 6% p.a. 10,000 12,625 12,625 12,625 12,625 12,625 12,625 12,625 12,625 12,625 12,625
Investment Cost of Septage Management Program (all inclusive
incl. Desludging) @ Year 2011 Price Level (P Thousands) 504,991 504,991 757,486 757,486
Total Investment Required, P Thousands 30,000 504,991 1,865,480 1,437,731 1,437,731 680,244 680,244 2,040,733 1,360,489
Total Investment Required, P Thousands (Rounded-off) 30,000 505,000 1,866,000 1,438,000 1,438,000 681,000 681,000 2,041,000 1,361,000
Total Investment Required, P Thousands, Cumulative 30,000 535,000 2,401,000 3,839,000 5,277,000 5,958,000 6,639,000 8,680,000 10,041,000
* FS/Design cost consolidated into investment costs for Years 2014 onwards
P30.0 M investment for SS in 2012 intended for pilot sewerage project including FS/Design costs
WORK SCHEDULE
SEWERAGE AND SANITATION PROJECT
45 WATER DISTRICTS THAT CONTRIBUTE TO THE POLLUTION LOAD IN MANILA BAY
PROVINCES OF BATAAN, BULACAN, PAMPANGA, CAVITE AND LAGUNA
Year
Activity
2011 2012 2013 2014 2015 2016 2017 2018 2019 2020
Preliminary Works
1 Activities within LWUA
2 Field Visits to WDs
3 Pilot Sewerage Project
Sewerage Component
1 Tendering for Consultancy Services
2 Feasibility Study
3 Detailed Design
Construction
Sewerage Component
1 Tendering for Construction Works
2 Construction Works