Mitigating SLCPs from the Municipal Solid Waste Sector
CCAC MSW City Action Plan
Cebu City, Philippines
Objective: To initiate cooperation that promotes short-lived climate pollutant (SLCP) mitigation
in waste management activities within CCAC partner cities.
Purpose: Understanding that CCAC partner cities have a broad range of experiences and
differing levels of familiarity with waste activities focused on SLCP mitigation, this “City Action
Plan” is designed to highlight key steps for development of these projects. While some cities
may wish to use this form to develop a plan for addressing projects that have already been
identified, other cities may wish to use the form to develop a more comprehensive strategy
that would help provide direction on specific activities.
This exercise should help organize our thoughts on main priorities, stakeholders, processes, and
resources needed for implementing waste sector SLCP projects. It will also help identify how
the CCAC can help advance these projects in a targeted way. While considering these key
issues, we can all think strategically about those actions that are within the purview of cities,
those that require the involvement of external authorities (state, regional, national), as well as
those challenges that may require engagement with other stakeholders.
Summary of City Assessment Results
Waste Generation
Cebu City, the highly urbanised growth center in the Central Visaya of the Philippines, generates
approximately 182,500 tonnes of MSW per year (about 500 tonnes of MSW per day). Average waste
generation per capita per day is about 500g. Due to the rapid urban and economic growth in the city,
daily MSW generation has increased from 212 tonnes in 1982 to 500 tonnes in 2010. Most of the MSW
in the city is generated by households, which accounts for about 40%, with the remainder coming from
commercial establishments, public markets, schools, hospitals and others.
Waste Collection
It has been estimated that the waste collection coverage in the city is almost 100%. Waste collection in
the city operates 24 hours a day in three shifts with the service is provided by the Department of Public
Services (DPS). Two popular collection methods are practiced for waste collection - (i) communal
method where common waste receptacles are strategically located in public places (ii) household
collection carried out by garbage trucks across the city.
Waste Disposal
First, the collected MSW from various parts of the city is transported to Inayawan, the only landfill site in
the city. At the site, approximately 40% of MSW is loaded again into bigger trucks and transported to
Consolacion landfill, which is located in a neighbouring city, 30 km away from Cebu City. The city pays
700 PhP per tonne as a tipping free. The rest of the 60% is disposed of in the Inayawan landfill site,
Mitigating SLCPs from the Municipal Solid Waste Sector
constructed in 1998 under the financial assistance of the Japan International Cooperation Agency (JICA)
as a sanitary landfill site. However, due to the lack of adequate expertise in utilising and maintaining the
equipment and facilities, insufficient financial and human resources for operation and maintance
coupled with the increasing volume of MSW disposed in the landfill daily, after few years of operation,
the landfill became an open dump.
Organic Diversion
According to a waste analysis 66% of the city’s MSW is organic. It was estimated that approximately
46,000 tonnes of organic waste in the city is composted annually at two centralised composting plants
operated by the private companies and at more than 50 small, decentralised composting plants
operated by barangay officers. The private companies who operate the two centralised composting
plants have signed yearlong contracts with Cebu City, receiving 700 PhP per tonne as a tipping fee. The
compost product is sold at the market. The barangay composting schemes, which have a receiving
capacity of less than one tonne per day, rely on waste collected from the neighbourhoods. The compost
produced is mainly used as fertilizer for beautifying the barangays.
Recycling
The city has been involved in promoting waste separation at source and recycling, though the success of
these activities is still very limited. There are three companies in the city involved in formal waste
recycling activities. These recycling plants received approximately 22,000 tonnes of recyclable materials
per year. In addition, there are more than 300 waste pickers who are making a living by picking up
recyclables from the landfill site. The health of waste pickers is a concern because they are living on or
nearby the open burning dump site.
Proposed activities under the CCAC MSW Initiative
Project/program/policy of interest to the city
The city identified that following programmes for future consideration:
1. Implementation of waste separation at source
Project/Programme: In compliance with Republic Act (RA) 9003, the Cebu City passed City Ordinance
2031 promoting MSW segregation at source with penalties for violations in 2004. Since April 2011, the
city has introduced a No Segregation No Collection policy and public education programmes to separate
waste at source into four different categories: biodegradable, recyclable, special (hazardous) and
residuals. However, the effective implementation of these bylaws and ordinance is still an issue
requiring urgent attention and will need strong political support and commitment. In addition, to
educate the people, Barangay Environmental Officers (BEOs) appointed at each barangay, will be utilised
as facilitators. To ensure the enforcement of the ordinance, the Cebu Environmental and Sanitation
Team (CESET) will be appointed.
SLCP Impact: This initiative will reduce methane and black carbon emissions from waste collection and
transportation; removing organic and other recyclable materials going to the landfill; open burning at
the dump site, communities, schools and religion organizations.
Technical Assistance Sought:
Mitigating SLCPs from the Municipal Solid Waste Sector
- Research and technical assistance for reviewing the current status in implementing the waste
separation at source, identify key challenges, documentation of best practices and lessons
learned and identifying key strategies.
- Technical assistance and capacity building for developing training manuals for BEOs and CESET
officers on environmental education and enforcement system
- Technical assistance and capacity building for introducing new technologies for material
recycling.
2. Promotion of composting
As 66% of MSW in the city is organic, promotion of composting helps the city to reduce the volume of
waste being disposed at the landfill. Model composting facilities have been established by the city in
partnership with different stakeholders at different levels. At the household level, composting baskets
have been distributed to make compost using kitchen waste in collaboration with women’s
organisations, homeowners associations and NGOs. In addition, small-scale barangay composting
facilities have been established. Further, two central waste treatment facilities have been established by
private ventures near the Inayawan landfill site to treat plastic and organic waste. However, these
composting schemes have encountered a number of challenges such as lack of cooperation from the
residents in waste separation, finding a suitable location, identifying suitable technologies (both physical
and biological operation), lack of capacity and management skills, and lack of political interest and
willingness of barangay officials and staff to tackle these issues.
SLCP Impact: This project will reduce SLCP emissions in terms of open dumping and open burning
organic waste at landfills. Further, it can minimize the SLCP emissions from production of chemical
fertilizer. SLCP emissions from waste transport could be minimized if the municipal composting site and
farms are located closer to the city than the current disposal site.
Technical Assistance Sought:
• Technical assistance and capacity building on composting technologies at different scales,
especially medium (5-50 tonnes/day) and larger (50-100 tonnes/day) scale facilities.
• Technical and capacity building on developing marketing strategies, supportive policies and
incentive systems and quality standards.
3. Final disposal site improvement
Project/Programme: The Inayawan Sanitary Landfill (ISL) is 15 ha and is located in the Inayawan
barangay. It was constructed in 1998 under the financial and technical assistance of the Japan
International Cooperation Agency (JICA) aiming to receive 400 tonnes of MSW daily with an estimated
life span to 2005. However, due to the lack of adequate expertise in utilising and maintaining the
equipment and facilities, insufficient financial resources for operation and maintenance coupled with
the increasing volume of MSW being disposed in the landfill daily, the landfill almost reached its
maximum capacity after only a few years. Although its lifespan was planned to be limited to seven years
only, the Cebu City Government still continues to operate the landfill by using a compactor machine.
Open burning at the dumpsite is a serious problem in Cebu City as it affects air quality. It also affects the
welfare of waste pickers and the neighbourhoods around the landfill. There was originally PhilBio biogas
reactor in the original operation of the landfill for collecting sewage and leachate. However, due to
technical problems, the reactor was closed. Since then the leachate treatment pond has served as an
impounding basin, discharging untreated leachate into the surrounding areas, causing land and water
Mitigating SLCPs from the Municipal Solid Waste Sector
contamination issues. Thus, the city seeks support to stop open burning at the dump site, and is asking
for technical assistance in upgrading the disposal site so that it is more environmental and climate
friendly.
SLCP Impact: Extinguish the fires at the dumpsite to avoid methane and black carbon emissions from
open burning. Trees can help offset SLCP emissions.
Technical Assistance Sought:
- Technical assistance and capacity building for improving the landfill site (especially Fukuoka
sanitary landfill method)
- Technical assistance and capacity building for utilization of the existing plastic in the landfill site
(RDF)
4. Building partnership for implementation of integrated solid waste management (ISWM)
The city has identified the importance of creating supportive institutional and financial mechanisms to
promote the partnership with other local and international groups in planning and implementation of
ISWM system in the city. Under the City Ordinance of 2017 which passed on October 6, 2004, the solid
waste management board (SWMB) was established to prepare, submit and implement working plans for
a safe and sanitary management of MSW generated in the city. The SWMB is headed by the Mayor with
the relevant representatives from other sectors, such as academic, community-based organisations
(CBOs), non-governmental organisations (NGOs) and private sector. In addition, the city has a strong
partnership with some of the foreign cities and their counterparts in Japan and USA. Since 2000, Cebu
city has been one of the most active members of the Kitakyushu Initiative Network for Clean
Environment. Under this, both Kitakyushu City and Cebu City have undertaken several programmes,
including community-based SWM and composting; building plastic waste recycling model project; and
an electronic waste research project. The city is now working with Yokohama City with JICA support in
establishing an intermediate processing facility for recycling of existing plastic waste inside the Inayawan
landfill into plastic fluff fuel to be used as alternative fuel by cement plants in the area. From 2000–
2005, Fort Collins (Colorado, USA), a sister city of Cebu, provided technical assistance to draft its SWM
plan to enhance the capability of local officials. Furthermore, Haarlemmermeer (The Netherlands),
another sister city, has helped Cebu in educating waste scavengers at the Inayawan landfill on how to
make organic compost as an alternative source of income. However, all these interventions are project-
based and not long-term interventions. Thus, Cebu city would like to develop a systematic SWM action
plan incorporating the on-going and future activities.
SLCP Impact: A comprehensive and integrated SWM Master Plan would enable SCLP reductions through
more efficient management in all areas.
Technical Assistance Sought:
Technical and capacity building on planning a ISWM system, establishment of institutional and
financial systems, environmental education and enforcement systems
Knowledge sharing, Networking, and City-to-City Exchanges
Interested in learning about:
- Planning and implementation of ISWM systems, waste separation at source, successful
environmental education programmes and effective enforcement systems.
- Planning and operation of sanitary landfill site (Fukuoka method)
- Planning and implementation of composting programmes especially at medium (5-50
Mitigating SLCPs from the Municipal Solid Waste Sector
tonnes/day) and larger (50-100 tonnes/day) scales.
- Technologies related to waste to energy (RDF)
- Technologies related to other waste categories (medical and E-waste)
- Research and capacity building for calculating SLCP mitigation
Interested in sharing information on:
- Implementation of community-based solid waste management and education programmes
- Planning and implementation of community-based composting and recycling programmes
Roles and Responsibilities
- Under the overall coordination of the council of environment of Cebu City, the Cebu Solid Waste
Management Board (CSWMB) will be responsible for submitting the city actin plan to the council
approvals for implementation.
- The DPS will be responsible in the implementation of actions related to waste collection,
transport, and final disposal.
- The Cebu City Environmental and Natural Resource Office (CCENRO) will be responsible for the
implementation of environmental education programmes and enforcement on waste separation
at source and implementation of community-based composting programmes with CBOs and
NGOs.
- Private sector will take a leading role in planning and implementation of recycling businesses
such as composting, RDF, etc.
- The research and academic institutions including the Solid Waste Management Association
(SWMA) in Cebu will assist the city in data collection, making strategic plans, and documenting
best practices.
- Kitakyushu City, Yokohama City and their business partners will provide technical and capacity
building, for establishing new business opportunities for waste recycling and treatment.
- IGES will provide technical assistance with the financial and technical support from CCAC and
other international donors to develop a work plan and then implement this plan to reduce SLCP
from waste management.
Next Steps
• Develop a work plan to implement the action plan in consultation with Cebu city and its key
stakeholders
• Assist Cebu City in finding financial support from its own sources and other international
programmes and donors
• Build the capacity of key stakeholders and set institutional structure to effectively implement the
work plan
• Conduct city-to-city exchange programs and technical workshops with mentor cities to build the
capacity of stakeholders to implement the action plan.
Overall experience
• It was found that Cebu is busy implementing some MSW projects with international partners.
However, most of them are project-based activities. In this regard, Cebu City found the
importance of CCAC project lay in its technical assistance for understanding the overall picture
of MSW in the city and assisting with the initial steps in identifying key actions based on the
overall plan.
• Cebu City is willing to go to the next step of the CCAC planning process in making detailed work
plans in consultation with its key stakeholders. Due to lack of capacity and budget constraints,
the city requires both technical and financial support from CCAC and international donors.
• The experience in Cebu revealed that the process required more time to inform the city partners
about the project and secure political support before the actual start. In addition, it was found
Mitigating SLCPs from the Municipal Solid Waste Sector
that it takes more time than expected to collect the data due to very poor data management in
the city.
• Cebu City’s experiences have also led it to acknowledge the positive role of mentor cities in
encouraging knowledge transfer, technological, expertise, best practices and lessons learned
through city-to-city learning to build awareness, solutions and capacity to the developing cities.
However, this technical transfer should be matched with the local conditions of the developing
cities.
