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Planning, Establishment and Operation of a Waste Management and Ecology

Center in Bayawan City, Philippines

Conference Paper · June 2011

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 Technical Committee on Geotechnics of Landfill Engineering
German Geotechnical Society (DGGT)

Technical Committee Sanitary Landfills

German Association for Water, Wastewater and Waste (DWA)
Association of Municipal Waste Management and City Cleaning (VKS in the VKU)

Technical Committee Landfill Technology

Planning, Establishment and Operation of a Waste

Management and Ecology Centre Including a Sanitary Landfill
in Bayawan City, Negros Oriental, Philippines

Dr. Johannes Paul, GIZ-AHT SWM4LGUs

Jouke Boorsma, GIZ
Udo Lange, AHT GROUP AG, Essen, Germany

Reviewed by DGGT/DWA-VKS-Technical Committee

“Landfill Technology” and published in the internet
http:/Iwww. landfill-technology.info.

July 2011
Table of Contents i

Table of Contents Page

1 Summary .............................................................................................................. 1
2 Solid Waste Management in the Philippines..................................................... 4
2.1 Philippine Ecological Solid Waste Management Act of 2000 ................................ 4
2.2 Implementation and Applied Waste Management Technologies........................... 4
2.3 Support to SWM by German Development Cooperation ....................................... 5
2.4 The LGU Bayawan as Partner of German Development Projects......................... 7
3 Solid Waste Management in Bayawan City According to RA 9003................. 9
3.1 General LGU Profile .............................................................................................. 9
3.2 General Waste Figures and Compliance Reached per RA 9003 ........................ 11
3.2.1 SWM Planning and Institutional Set-up ............................................................... 11
3.2.2 Waste Characterization Studies .......................................................................... 11
3.2.3 Waste Collection.................................................................................................. 13
3.2.4 Licensing for a New Landfill................................................................................. 13
3.3 Resources Recovery, Recycling and Composting............................................... 13
3.4 Waste Management Improvements ..................................................................... 14
4 The Bayawan City Waste Management and Ecology Center (BCWMEC) ..... 16
4.1 Site Selection....................................................................................................... 16
4.2 Site Development and Lifespan........................................................................... 16
4.3 Main Elements of the BCWMEC and the Construction Process.......................... 18
4.3.1 The Base Liner of the Sanitary Landfill................................................................ 25
4.3.2 The Protection and Drainage Layer..................................................................... 27
4.3.3 Composting at BCWMEC .................................................................................... 29
4.3.4 Material Recovery Facility at BCWMEC .............................................................. 29
4.3.5 Wastewater Treatment at BCWMEC ................................................................... 31
4.3.6 Septage Treatment at BCWMEC......................................................................... 32
5 Inauguration of BCWMEC April 2010 ............................................................... 33
6 Operation of BCWMEC since May 2010........................................................... 35
6.1 Amounts, types of waste received and fees collected ......................................... 37
6.2 Use of the BCWMEC by other neighbouring LGUs ............................................. 38
7 The Monitoring System for the Waste Management Centre .......................... 39
7.1 Material and Methods .......................................................................................... 39
7.1.1 Parameter Selection for Water Monitoring........................................................... 39
7.2 Waste Characterization ....................................................................................... 40
7.3 Results................................................................................................................. 41
7.3.1 Waste Stream Analysis by Characterization and Weighbridge ........................... 41
7.3.2 Early Warning Monitoring at the Waste Management Centre.............................. 41
8 Financing and Costs Recovery Mechanisms in Bayawan ............................. 44
8.1 Framework for FCA ............................................................................................. 46
8.2 The PAYT Scheme .............................................................................................. 46
8.3 Pricing Garbage by the Bag................................................................................. 49
8.4 Impacts ................................................................................................................ 50
8.4.1 Biodegradables.................................................................................................... 50
8.4.2 Recyclables ......................................................................................................... 50
8.4.3 Residuals ............................................................................................................. 51
8.5 Cost Recovery Options for Bayawan City............................................................ 53
9 Authors and Materials Used ............................................................................. 55
10 References ......................................................................................................... 56
Table of Contents ii

List of Figures
Figure 1: Selected GDC Solid Waste Management Projects in the Visayas 2000 -
2010 .................................................................................................................. 7
Figure 2: Philippines, Negros Island and Bayawan City LGU area .................................. 9
Figure 3: Urban and rural area of Bayawan City ............................................................ 10
Figure 4: Waste composition of Bayawan City 2009 (collection area) ........................... 12
Figure 5: Calculation formula for landfill lifespan............................................................ 17
Figure 6: Google Earth screen shoot 2009 showing the full site and works
underway (at left) / Site Development Plan (at right) ...................................... 18
Figure 7: Comparison for the permeability of a bentonite-clay liner with the use of
leachate and water (Source: Hoeks et al., 1986) ............................................ 26
Figure 8: Technical details for the first disposal cell (sketch with monitoring
elements) ........................................................................................................ 27
Figure 9: Cross section of the Bayawan Landfill ............................................................ 28
Figure 10: Perspective of the Bayawan Material Recovery Facility ................................. 30
Figure 11: Scheme wastewater treatment facilities.......................................................... 32
Figure 12: Water monitoring at the BCWMEC (König 2008)............................................ 39
Figure 13: Sample points and their location ..................................................................... 40
Figure 14: Breakdown of the BCWMEC Costs (Dollars in thousands)............................. 44
Figure 15: Schematic overview of the Full Cost Accounting (FCA).................................. 46
Figure 16: Assigned budget and income generated (US$) (left side) .............................. 47
Figure 17: Income generated out of the PAYT (US$) (right side) .................................... 47
Figure 18: Allocation per cost group (percentage) ........................................................... 48
Figure 19: PAYT Garbage Collection Sticker ................................................................... 49
Figure 20: Main elements and options for cost recovery of the Bayawan MSWM
system (adapted from Bartone, 1990)............................................................. 54

List of Tables
Table 1: Waste Analysis and Characterization Study (WACS) Bayawan City 2009 ..... 12
Table 2: Scenarios for the lifespan of the Bayawan Landfill ......................................... 17
Table 3: Landfill construction process........................................................................... 19
Table 4: Construction of waste water treatment facilities.............................................. 22
Table 5: Construction of the material recovery facility MRF and office building............ 25
Table 6: Inauguration of BCWMEC............................................................................... 34
Table 7: Operation of landfill ......................................................................................... 35
Table 8: Operation of other facilities ............................................................................. 36
Table 9: Amounts and types of waste ........................................................................... 37
Table 10: Income from fees collected ............................................................................. 38
Table 11: Overview of the generated waste together with the received waste at the
BCWMEC........................................................................................................ 41
Table 12: Selected parameters and monitoring level...................................................... 42
Table 13: Measuring of landfill gas ................................................................................. 42
Table of Contents iii

Table 14: Results on water monitoring............................................................................ 43

Table 15: Overview for the tipping fees (in USD)............................................................ 45
Table 16: Overview of costs per activity.......................................................................... 47
Table 17: End of pipe analysis 2003 ............................................................................... 48
Table 18: End of pipe analysis 2010 ............................................................................... 48
Table 19: Collection rates / collection efficiency per type of waste ................................. 51
Table 20: Business at the local junkshop........................................................................ 52
Table 21: Collection from the household/businesses...................................................... 53
Table 22: Collection at the public market (PAYT) ........................................................... 53

For reference: exchange rates July 2011:

1 Euro = ca. 58.5 Philippine Pesos (PHP)
1 Dollar = ca. 43.17 Philippine Pesos (PHP)

Acknowledgement
The authors wish to thank Bayawan City and the German Development organizations DED
and GTZ (merged into GIZ since January 1, 2011) which provided the means for this project
work, research and publications. Further thanks are extended to the City Engineering Office
and the City Environment and Natural Resources Office for their valuable inputs. Special
thanks go to Silliman University which supported the set up of the monitoring system and the
actual sampling and laboratory analysis.
Table of Contents iv

List of Abbreviations
ABR Anaerobic baffled reactor
AHT AHT GROUP AG, Essen / implementation consultant of behalf of GIZ for the SWM4LGUs
project
ASTM (formerly) American Society for Testing and Materials
BCWMEC Bayawan City Waste Management and Ecology Centre
BMZ German Federal Ministry for Economic Development and Cooperation
BOD Biological Oxygen Demand
CENRO City Environmental and Natural Resources Office
CIM Centre for International Migration and Development / merged to GIZ
COD Chemical Oxygen Demand
DBP Development Bank of the Philippines
DED German Development Service / merged to GIZ
DENR Department of Environment and Natural Resources
DILG Department of Interior and Local Government
DOST Department of Science and Technology
ECC Environmental Compliance Certificate
EcoGoV Environmental Governance Project (of USAID)
EMB Environmental Management Bureau
ENRO Environment and Natural Resource Officer
EOP End of Pipe
FCA Full Cost Accounting
GDC German Development Cooperation
GHG Green House Gases
GIZ / GTZ German Technical Cooperation / German International Cooperation
HDPE High Density Polyethylene
IEC Information and Education Campaign
IEE Initial Environmental Examination
IRA Internal Revenue Allotment
JICA Japanese International Cooperation Agency
KfW German Financial Cooperation / KfW Entwicklungsbank
LGU Local Government Unit
MGB Mines and Geosciences Bureau
MRF Material Recovery Facility
MSW Municipal Solid Waste
MSWM Municipal Solid Waste Management
NCR National Capital Region = Greater Manila Region
NSWM National Solid Waste Management
NSWMC National Solid Waste Management Commission
PAYT Pay as you throw principle
PhP / PHP Philippine Peso
RA 9003 Republic Act 9003 / Philippine Ecological SWM Act
RDF Refused Derived Fuels
SLF Sanitary Landfill
SWM Solid Waste Management
SWM4LGUs Solid Waste Management for LGUs, GIZ /AHT project name
USAID United States Agency for International Development
USD US Dollar
WACS Waste Analysis and Characterization Study
WMC Waste Management Centre
Chapter 1 1

1 Summary
Although Republic Act 9003 was launched in 2001, many municipalities in the
Philippines still lack a proper site for disposing their residual waste. Bayawan City
has not only complied with the legal prescription of RA 9003. Jointly treating both
solid and liquid wastes in one facility by employing state of the art technology, the city
managed to provide an environmentally-sound waste management system to support
and sustain local development with environmental preparedness at low cost. The
multi-tiered project is another pioneering effort of the city by providing the needed
infrastructure to perform its duties to the environment, focusing on the application of
appropriate technologies and utilizing its own revenue, local equipment, local
expertise and local materials to reduce project cost as far as possible. The BCWMEC
is indeed an environmental milestone and represents one of the few new SWM
centres in the country today. It showcases the willingness to comply not only by the
local officials who constantly conjure images of development for the city to make it
more liveable, but also the constituents of the city who cooperate in maintaining the
integrity of their environment.

In terms of population, Bayawan City’s waste collection area covers approximately 35

percent. The most of collected solid waste comes from the city centre and the
adjacent rural barangays. Based on the waste characterization conducted in 2003 a
total amount of around 2,000 tons per year of residuals will be disposed to the newly
constructed sanitary landfill.

Assuming that only residuals will be disposed and a proper waste compaction can be
performed at the new landfill, it is expected that the lifespan of the first cell will be
over 10 years. Furthermore, a scenario analysis shows that segregation of
biodegradables, non biodegradables and recyclables significantly influence the
lifespan of the cell.

In order to provide ground- and surface water protection, the first fill cell of the new
landfill is equipped with an engineered base liner. The application of a bentonite
enhanced clay liner was chosen to utilize locally available materials and to lessen
cost for material import. Because of its swelling capacity, bentonite clay was chosen
as additive to construct the liner. By reducing the amount of bentonite to 10 percent
instead of 20 percent, a significant reduction in construction cost could be reached.
During the construction it was experienced that rainfall negatively influenced the
construction works for the liner. Due to long rainfall, heavy equipment could not enter
the site and the targeted optimum moisture content could hardly be reached
respectively became a time consuming process. However, the decision to establish a
clay liner instead of a HOPE liner was proven right on July 15, 2011 when an
earthquake with magnitude 6.4 hit the region followed by several other shocks
> magnitude 5 (Richter scale).
Chapter 1 2

To ensure the proper protection and drainage of the cell, a protection layer, drainage
layer and leachate pipes were installed. The different layers were installed on top of
the liner which was engineered in such a way that the leachate flows by gravity
towards the outlet of the cell. Due to the delay in the liner construction, difficulties
were faced during the work planning and process coordination, especially with
regards to the materials to be delivered on site.

In order to extend the lifespan of the first cell, Bayawan City implemented various
measures to minimize the disposal of residual waste. Applied source reduction
methods are backyard composting, source segregation and segregated collection.
With this approach the amount of biodegradables collected and transported to the
Material Recovery Facility (MRF) can be minimized whereas a further segregation is
conducted at this facility to reduce waste disposal as far as possible. At the MRF the
recyclables and biodegradables are removed from the delivered waste.

Although monitoring is a new task for most municipalities in the Philippines, the
Bayawan City Waste Management and Ecology Centre (BCWMEC) example shows
that it is possible to monitor waste streams and water resources with local available
means and knowledge. First results from the weighbridge indicate that the
municipality needs to improve their residual waste collection since a larger portion of
uncollected waste is most likely still buried or disposed in an uncontrolled manner,
especially in more distant parts of the city. However, diversion of biodegradable
waste and recyclables already comply with the legal prescriptions with a waste
diversion rate > 25 %.

In developing economies, financing solid waste management systems is one of the

main hindering aspects to enhance systems and to provide sustainability. Common
reasons mentioned for not improving the system and/or delaying the needed changes
are the lack of financial resources due to poverty and more pressing needs. The
latter is often caused by unawareness and lack of knowledge regarding Solid Waste
Management (SWM) systems. The applied Full Cost Accounting (FCA) helps
decision makers to increase the understanding of SWM systems by clarifying budget
needs and constraints in a transparent and comprehensive manner.

By cost recovery accomplished by the local government itself, such as through

tipping fees and material sales, the level of fees needed from households and users
can be reduced, which largely contributes for social acceptance.

In the future it is expected that neighbouring municipalities will approach the Local
Government Bayawan City and apply to dispose their waste at the BCWMEC as well.
For this purpose a tipping fee was calculated. Assuming a lifespan of over 10 years,
the calculation projected a per cubic meter tipping fee of 21 USD. Correspondingly,
the tipping fee per ton was estimated with 53 USD based on 0.4 tons per cubic meter
waste compaction.
Chapter 1 3

The introduced Pay-As-You-Throw (PAYT) system requests a minimal charge so far

but significantly contributes to reach the waste diversion goals set by the municipality,
hereby justifying the need for pricing garbage by the bag. The largest waste diversion
was noticed on the decreasing collection of biodegradable waste, whereas the
collection rate for such materials decreased from almost 50 percent to 16 percent
during the time period 2003 to 2010. With this reduction, pressure on the waste
disposal facility is minimized by reducing the volume of waste disposed and reducing
the emissions of leachate and gas likewise. Aside from the diversion for
biodegradables, a sharp drop was noticed for recyclable materials as well. Main
reasons for this change are enhanced waste segregation at source, the increase of
formal waste markets, improved conditions for the informal sector and the PAYT
implemented.

The experience of Bayawan City during the implementation of the PAYT is that it
needs strong support of the local decision makers by employing a team of special
trained waste management enforcers. Without enforcement, the number of illegal
dumping will most likely increase and hereby result in creating illegal dumpsites and
secondary environmental problems.

In order to improve the income and sustainability of the BCWMEC, the municipality
needs to draft an ordinance to establish tipping fees for residual waste acceptance.
With this ordinance in place, the municipality can share the disposal costs with 3rd
parties. As a result, the price per ton waste delivered to the waste management
centre will automatically decrease. Additionally, the municipality needs to explore
options for recovery of Refuse Derived Fuels.

In the Philippines average organic content of the generated waste is around 60

percent and can therefore be considered as a key option to reduce waste disposal.
The results of the Bayawan case show that the implemented PAYT reduces the
portion of organic wastes within the municipal waste collection significantly.

It is hoped that the findings of the BCWMEC experience can be replicated

respectively utilized for planning purposes and SWM system enhancements in other
municipalities as well.
Chapter 2 4

2 Solid Waste Management in the Philippines

2.1 Philippine Ecological Solid Waste Management Act of 2000
Currently the Philippines population of around 95 million people produces around 17
million tons domestic solid waste per year. The ongoing uncontrolled dumping and
open burning of waste in many municipalities in the Philippines poses various
environmental risks and causes a loss of valuable resources, whereas waste
generation increases steadily due to urbanization and population growth. So far only
a handful of sanitary landfills operate in the Philippines and most of the utilized waste
disposal sites do not meet minimum standards to protect water, soil and air. Although
the Philippines Ecological Solid Waste Management Act (Republic Act 9003) was
released in 2001 and inter alia demanded to increase waste diversion to at least 25
% and to face out dumping at the latest in 2006, these legal prescriptions have
shown little effect on the local level so far. Most of the tasked Local Government
Units (LGU) remain unable to plan, implement and operate integrated waste
management systems in a sustainable and effective manner. Main reasons for these
are lack of political support and limited financial and technical capacities on all levels.
At local level, the insufficient cost recovery for provided SWM services from users
further hinder to upgrade municipal SWM systems. Besides, the supervising
authorities of Department of Environment and Natural Resources (DENR) and
Environmental Management Bureau (EMB) are still not organized sufficiently since
the ongoing governmental rationalization program did and does not provide a clear
delineation of roles, functions, tasks and related work budget on national, regional
and local level so far. Hence, the most of the involved stakeholders tasked to
enhance Solid Waste Management (SWM) systems are not yet sufficiently
capacitated to perform their implementing respectively regulatory and advisory
functions in the waste management sector.

2.2 Implementation and Applied Waste Management Technologies

According to the NSWM Framework 2004, collection service efficiency in the rural
area is 40% of the total service area while in highly urbanized cities collection service
efficiency is recorded at 70%. This rate will increase as more LGUs are acquiring
waste collection trucks through financing institutions e.g. the Development Bank of
the Philippines (DBP). In many LGUs, aside from the truck collection service, small
vehicles, e.g. “tricycles“ are used by eco-aides to collect recyclable materials in city
areas and settlements which can not be reached by truck. Segregation is mostly
practiced in urban areas and highly urbanized cities, whereas only “sellable”
materials such as paper, cartoons, hard plastics, metals are recovered. Facilities
which perform value adding treatment on a larger scale are hardly established in the
country.

In highly urbanized cities and municipalities like Metro Manila, Cebu City, or Davao
City, the use of waste bins and containers is becoming the trend while the rural towns
continue to use improvised containers, plastic bags, bamboo baskets, sacks, and
drums prior to collection. The full implementation of waste segregation favours the
use of hard plastic containers in public places and commercial establishments
Chapter 2 5

because they have a longer service life than other containers. Segregation can easily
be done by providing one container for one type of waste, which is strategically
located. Some LGUs prefer not to have waste bins/containers along the road as it
encourages more waste for storage. Residents in urban areas especially in sub-
divisions/villages use small bins for storing their waste. In squatter settlement areas
or high density urban areas the use of plastic bags is still prevalent. Burying of waste
in pits and burning is still practiced, especially in rural areas.

RA 9003 requires each barangay as the smallest administrative division in the

Philippines to establish a Material Recovery Facility. However, as of September 2009
the countrywide compliance rate was low with about 13% with an even lower
compliance rate of only 4.5% in Region V but reached as high as 40.7% in the NCR.
The Visayas Region with its Administrative Regions VI, VII and VIII has an average
compliance of 11.1% which is below the countrywide compliance rate.

The compliance rate of the over 1.600 LGUs to close open dumpsites and to
establish sanitary landfills for enhanced waste disposal is very low although
requested by RA 9003 to be implemented in 2006. Most of the municipalities still
dispose their solid waste in open dumps, thus, contributing to environmental pollution
through leachate and landfill gas emissions, whereas the latter contributes
significantly to global warming since methane is recognized as harmful Green House
Gas (GHG) with a potential 21 times higher than carbon dioxide. However, climate
mitigation measures could be achieved especially if the main waste fractions, which
are organic wastes with often more than 50 % contained in the municipal waste
collection, could be segregated and treated with suited waste treatment options. This
also applies for the second largest waste fraction contained in collected waste that is
mainly light density packages and plastic bags. Such materials contain a high
calorific value and could be used for “waste-to-energy” options, for example as
Alternative Fuels and Raw materials for co-processing in cement kilns. So far, waste
treatment options which could assist to better segregate waste on a larger scale (e.g.
sorting plants) and/or utilize organic materials for energy production (e.g. anaerobic
digesters) are hardly existing in the country.

2.3 Support to SWM by German Development Cooperation

For more than ten years German Development Cooperation (GDC) agencies like
GTZ, KfW, DED and CIM continue capacitating Philippine public institutions and civil
society involved in the field of waste management. Within this discipline, GDC aims
at creating public awareness and empowering municipalities to handle waste
collection, establish sanitary landfills as well as facilities to recover recyclables and
compost organic waste.

The German Agency for Technical Cooperation GTZ had responded on a request by
the Department of Environment and Natural Resources to support the
implementation of RA 9003 through the project “Solid Waste Management for Local
Government Units in the Philippines” which is implemented on behalf of the German
Federal Ministry for Economic Development and Cooperation (BMZ) and GIZ by the
Chapter 2 6

German consultant AHT GROUP AG (AHT) since January 2005. The project is now
in the hand over phase and will be completed in December 2012. In comparison to
interventions of other donor institutions like JICA or USAID, the German development
support, by way of example, builds capacity in the decentralised structures (LGUs,
EMBs) which are mainly responsible for the implementation of waste legislation in the
Philippines and links the former to the formulation of a National Solid Waste
Management Strategy at the national level (DENR and the National Solid Waste
Management Commission, NSWMC).

The overall aim of the project “Solid Waste Management for Local Government Units“
is that “Selected Local Government Units operate integrated solid waste
management systems proficiently and economically”. The regional and local levels
are the target regions in the Visayas with support for the Administrative Regions VI,
VII, VIII and XIII and selected LGUs.

The methodological approach for the hand-over phase (2011-2012) links

conceptually and institutionally to the previous conducted phases and their outcomes.
At the local level the consultation of selected LGUs in planning, implementation and
monitoring of enhanced SWM systems will be continued. The planning of investment
measures will be supported and partners assisted in applying for funding. Likewise,
selected LGUs will be supported in the formulation of waste ordinances and the
introduction of cost recovery schemes. In order to consolidate the results of selected
LGUs and to scale up their outputs to the national level, best practices will be
evaluated, documented and forwarded to the NSWMC for utilization and replication.
Best practices documentation will focus on those LGUs which demonstrated efficient
operation of their SWM systems and already reached presentable impacts. In total 12
selected LGUs were supported in the planning and implementation of SWM
enhancement measures in Phase 2. The homepage www.swm4lgus.net offers more
detailed information about this project.

The GTZ project is conducted in close cooperation with the German Financial
Cooperation “Credit Program for the Financing of Local Investments in Solid Waste
Management” by KfW with the partner institution Development Bank of the
Philippines (DBP) as national implementation agency.

After successfully supporting the solid waste management of the City of Bais for
some years, the German DED extended this kind of support within the Visayas to
both government and nongovernmental organizations. During the ten years of
cooperation, a total of six municipalities, two provincial governments and one
university were supported by deploying an international advisor. Currently, out of the
six municipalities, four have established their sanitary landfill and two others started
to construct their landfills with the target to be operational by 2012. With the Central
Philippine University in Iloilo City, a special DED cooperation was agreed upon in
2010 to scale up the developed 17-module SWM training course for expert personnel
and to develop a SWM curriculum for student education by utilizing project outcomes
and experiences from GTZ SWM4LGUs and DED projects in the Visayas.
Chapter 2 7

In the time period 2001 to 2007, three international experts were extended by the
Centre for International Migration and Development (CIM) which supported the
Environmental Management Bureau in Cebu in Environmental Management and
Waste Water Treatment as well as two private agencies in special waste (Cebu
Common Treatment Facility) and solid waste management projects (Magumad
Foundation, Cebu).

Figure 1: Selected GDC Solid Waste Management Projects in the Visayas 2000 - 2010

Since January 2011, DED and CIM are integrated into the new German Agency for
International Cooperation GIZ.

2.4 The LGU Bayawan as Partner of German Development Projects

Since September 2006, Bayawan City is official project partner LGU in the GTZ
SWM4LGUs project. Technical staff of this LGU participated in numerous training
workshops conducted during the three phases of this project. They successfully
passed the exam offered at the end of the 17-module SWM training course
mentioned above. In 2009, the designated landfill manager underwent on-the-job
training at the Waste Management Center “Pohlsche Heide” in Hille, Germany,
together with five other colleagues of SWM4LGUs partner LGUs. The Bayawan City
Mayor joined the landfill managers together with other Mayors and representatives of
the NSWMC for a Study Tour on solid waste management in Germany. In the 2010 -
Chapter 2 8

2012 hand-over phase of SWM4LGUs, the LGU Bayawan is one of the selected
partner LGUs that is still offered advisory services and support in knowledge
management, among others, to document the established SWM initiatives and to
proof the achievement of the project objectives by fulfilling the set standards
described in the project indicators.

Since the year 2008, DED supported the City of Bayawan by providing one
international advisor which assists the local government on the following main topics:
Support the planning, the construction and operation of the Bayawan City Waste
Management and Ecology Center; Support the closure of the existing dumpsite;
Support in planning and implementation of waste segregation and recycling and
knowledge management. The above mentioned activities were levelled off with the
GTZ SWM4LGUs program. Furthermore, the DED advisor is supporting the City on
liquid waste management, sanitation and septage management.

Bayawan City was also partner LGU together with the DILG-GTZ Water and
Sanitation Program in 2006. During this partnership a pilot on ‘reed bed treatment’ or
wetland, which treats the liquid waste from around 700 households at a newly
constructed fisherman’s village in the city centre was implemented (see a detailed
presentation to the International Conference on Sustainable Sanitation, Dongsheng,
China, 2007 under http://www.ecosanres.org/icss/proceedingspresentations.htm or
on www.watsansolid.com.ph).
Chapter 3 9

3 Solid Waste Management in Bayawan City According to RA

9003
Republic Act 9003 declared that it is the policy of the State “to adopt a systematic,
comprehensive and ecological solid waste management program” that ensures the
protection of public health and environment. Section 37 of Article 6 specifies that no
open dumps shall be established, and that existing dumpsites should be converted to
controlled dumps within three years after effectivity of the law, and the establishment
of a sanitary landfill five years after the enactment of RA 9003. One of the
municipalities which are on the way to implement RA 9003 is Bayawan City.
Bayawan City proposed to enhance its local solid waste management system and to
implement the legal prescriptions of RA 9003 by implementing their new 10-Year
Solid Waste Management (SWM) Plan, which includes the establishment of a
Municipal Waste Management and Ecology Centre (BCWMEC).

3.1 General LGU Profile

Name of the Mayor: Hon. Rene G. Gaudiel (since July 1, 2010)
Population: 110,250 (Census, 2007)
Land Area: 69,908 hectares
Classification: 3rd Class City
No. of Barangays: 28, of which 7 are urban barangays
IRA/Budget: PHP 498 Mio (2009)
PHP 524 Mio (2010)
PHP 595 Mio (projected for 2011)

Figure 2: Philippines, Negros Island and Bayawan City LGU area

Chapter 3 10

Figure 3: Urban and rural area of Bayawan City

Bayawan City became a component city on December 5, 2000 per Republic Act 8983
and is part of the 3rd Congressional District of the Province of Oriental Negros. It is
located 101 kilometres from the provincial capital, Dumaguete City, and close to the
provincial border with Negros Occidental. It is a coastal city with a land area of 699
km² and with that the largest city in the province.

Bayawan City is subdivided into three development zones: First, the urban area
constitutes only 2.3% (15.73 km²) of the city's total area and hosts the main
institutional, commercial and central business establishments of the city. It functions
as the main economic hub, while economic growth nodes are established in
strategically located barangays in the hinterlands. Secondly, the sub-urban area is
about 14.7% (102.6 km²) of the total area and comprises agro-industrial zones,
industrial zones and rural settlements. The existing industrial activity (e.g. lime plant),
the establishment of saw mills, and the identified industrial zones in the area show
the present trend of development. Development of further residential zones is
proposed for the sub-urban area to provide settlements for the people in the
commercial centre and in the industrial zones. Lastly, the rural area accounts for
83.1% of the total land area and is basically agricultural, mainly for agricultural
production areas.

The city is accessible by land through major arterial highways of the province. It has
two distinct climate seasons: the dry season, well pronounced in the months of
January to May; and the wet season, in the months of June to December. Typhoons
intermittently occur between May to December. The majority of the people of
Bayawan speak either Cebuano or Ilonggo.
Chapter 3 11

3.2 General Waste Figures and Compliance Reached per RA 9003

3.2.1 SWM Planning and Institutional Set-up
To enhance its local solid waste management system and to implement the legal
prescriptions of RA 9003 the LGU Bayawan City established a new 10-Year Solid
Waste Management Plan in August 2004. The Plan manifests proposed SWM
programs and interventions for a time period of 10 years. Included in the plan were
the implementation of a municipal waste management centre and a supporting
financing mechanism by users as an economic instrument.

In 2005 the city started planning for the establishment of an integrated waste
management facility and ecology centre as outlined in the 10-year SWM Plan, with
funding source from the city’s own revenues.

In the same year, the city passed Ordinance No. 63-2005, otherwise known as
Bayawan City Integrated and Ecological Solid Waste Management Ordinance of
2005. Likewise, the city created a SWM Division under the Office of the City ENRO.
The SWM office has been fully functional and responsible in the immediate
implementation of all the integrated solid waste management projects identified under
the SWM Plan.

3.2.2 Waste Characterization Studies

Waste characterization data are hardly available in the needed detail and quality in
the Philippine setting due to lack of knowledge and funding. This makes it more
difficult to plan and implement SWM systems. As part of the legally prescribed
planning process, Bayawan City conducted a waste characterization in the year
2003. To this end a 7-day waste stream analysis was applied. During these days,
samples were taken from selected waste generators. The biodegradable, recyclable,
residual and special wastes were measured in weight and volume. The waste
characterization conducted in 2003 revealed a per capita waste generation of 0.58
kg/day. With an average of 4.5 persons per household, the approximate daily waste
generation per household is about 2.5 kg/day. Evaluation of the waste
characterization data was the main initial consideration to outline the municipal solid
waste management system. The results showed the actual composition of waste
generated (biodegradable, recyclable, residual and special waste) within the
collection area, and provided a basis for its projection for the whole LGU.

Whereas, the quantity of waste generation determines the following:

− Land area requirement for a sanitary landfill;

− Type and specifications of collection trucks and collection system;
− Frequency of waste collection activities;
− Area requirement for material recovery (MRF) and composting facilities and
− Dimensions of supporting infrastructures.
Chapter 3 12

Later on it was realized that this method was too costly and time consuming.
Hence, the local government of Bayawan City decided to conduct a less labour and
cost intensive 3-day analysis. Similar to the 7-days analysis, it measures the quality
and quantity of the waste streams from selected waste generators. The Philippine
Environmental Governance Project (EcoGov) of USAID performed a series of
analysis and concluded that there were no significant differences between the 3 and
7-day waste characterization studies.

Therefore, in 2009, another Waste Analysis and Characterization Study (WACS) was
conducted in the urban and rural barangays of the city. Table 1 summarizes the main
findings of this study.

Table 1: Waste Analysis and Characterization Study (WACS) Bayawan City 2009

Waste generation 2009 Waste collected 2009

Composition % %
(tons/year)1,2 (tons/year)1,2
Biodegradable 8,300 56 3,215 51
Recyclable 2,223 15 1,054 17
Residuals 4,150 28 1,967 31
Special Wastes 148 1 70 1
TOTAL 14,821 100 6,306 100
Note: Based on the waste characterization performed in 2003 with an average waste generation rate of 0.58
kg/cap/day for urban and an assumed per capita production of 0.29 kg /day for rural barangays.
Based on the following population figures (census 2007 with a growth rate of 1.2 percent): 27,117 urban,
12,139 rural collected, 73,665 rural not collected, 112,912 total.

The average waste generation rate is 0.58 kg/capita/day in urban barangays and
0.29 kg/capita/day in rural areas. As of 2009, estimated waste generation within the
city is 23 tons/day. The city’s MSW predominantly comes from residential areas,
commercial and institutional sources.

Figure 4: Waste composition of Bayawan City 2009 (collection area)

Chapter 3 13

However, with the extensive information and education campaign (IEC) conducted in
line with the implementation of a fee system for the collection of both biodegradable
and non-biodegradable waste, it is likely that the current waste management
practices may render the 2003 data inapplicable. However, the study assisted to
adjust the planning of detailed components for composting and material recovery at
the BCWMEC as well. In addition, the results will also clarify if the projected lifespan
of the sanitary landfill is sufficient to accommodate residual waste from neighbouring
municipalities later on.

3.2.3 Waste Collection

The city established a municipal collection system with separate collection days for
biodegradable and non-biodegradable wastes utilizing 4 compactor trucks and 1 mini
dump truck. The schedule of collection starts from Monday, Wednesday and Friday
for biodegradables while Tuesday and Saturday non-biodegradables are collected.
Currently, Bayawan City collects its waste from 10 out of the 28 barangays. In terms
of population, the collection area covers approximately 35 percent. Out of 10
barangays in which collection takes place, 7 are urban and 3 are rural. In the rural
areas biodegradables are not collected due to lack of access roads and high costs of
collection. Instead, backyard composting is promoted. Based on a 0.58 kg/cap/day
waste generation rate for the urban area and an assumed generation of 0.29
kg/cap/day for the rural barangays, the total waste generation within the present
collection area of Bayawan City can be assessed at 17.3 tons/day with average main
fractions of 8.8 tons biodegradable, 2.9 tons recyclable, 5.4 tons residual waste and
0.2 tons/day special waste.

3.2.4 Licensing for a New Landfill

Based on the outline of the SWM Plan, the LGU conducted a site selection survey,
prepared the needed planning documents and officially submitted its Initial
Environmental Examination (IEE) document to DENR/EMB-7 for its proposed 24-
hectare BCWMEC located in Sitio Omod, Barangay Maninihon. In June 2008, the
facility was granted an Environmental Compliance Certificate (ECC) with registration
No. ECC-RO7-0806-0177-213. The BCWMEC includes a bentonite clay-lined
sanitary landfill, a composting area, an office building, a MRF facility, a septage
treatment facility and a wastewater collection and treatment facility.

3.3 Resources Recovery, Recycling and Composting

The MRF and windrow composting area are both located within the BCWMEC. The
MRF is a permanent shed/building that utilizes gravity force to slide down the
recyclables to segregation bins during final waste processing. The use of a gravity-
based system in segregation allows an efficient operation as well as integration of
waste pickers. The MRF follows the low cost and low maintenance approach as firstly
developed in San Carlos City, a partner LGU of the DED and GIZ SWM4LGUs
project. The operation of the MRF and composting plant support waste diversion and
hence significantly extend the lifespan and quality of the sanitary landfill.
Chapter 3 14

The collected segregated materials are delivered to the MRF/composting facility. Two
types of static compositing are presently applied: windrow composting and vermi
composting. The former used mechanized drum composting (dynamic) used trommel
composters driven by an electric engine whereby the trommels rotate rather slowly
around a horizontal axis to provide a continuous turning and hence better aeration.
Although the controlled process offered to shorten the process time, the mechanical
turning requires energy input and process enhancer. The final product from drum
composting does not provide significant advantage in terms of quality and
marketability (Paul et al, 2008). Hence, compost production was changed to less
costly approaches as windrow composting and vermi composting.

Supported with intensive information campaign on source reduction methods such as

backyard composting, source segregation, segregated collection including fee
system, Bayawan City regularly conducts WACS in order to clarify status and
changes of the different material fractions of waste collected by the LGU. This
approach allows the LGU to adjust its strategies and interventions to improve the
operation of BCWMEC.

3.4 Waste Management Improvements

Dumpsite Closure and Rehabilitation
The city prepared a Closure and Rehabilitation Plan for its old open dump in
barangay Banga, which was granted an Authority-to-Close by DENR/EMB VII. With
the operation of the BCWMEC, disposal of solid waste at the old dumpsite ceased.

Integrated Waste Management and Sanitary Landfill Establishment

The sanitary landfill at the BCWMEC started its operation officially in April 2010. The
SLF has a projected lifespan of over 15 years. The compaction rate for the deposited
residuals is estimated at only 450 kg/m³ due to lack of waste compactors.

As supporting infrastructures for the landfill and the MRF, a waste water treatment
and septage treatment facility were established as well.

Enhancing Cost Recovery Mechanism with a local ordinance

To support a sound operation of the BCWMEC, Bayawan City implemented the
needed support measures for waste segregation at source and for cost recovery by
releasing a new Waste Management Ordinance, Ordinance No. 63-2005 otherwise
known as the Bayawan City Integrated and Ecological Solid Waste Management
Ordinance of 2005. Article 18, Section 44 of this Ordinance details the provision on
establishment of a SWM Fund. It provides also the creation of a special account to
be administered by the City Solid Waste Management Board.

Cost Recovery and Full Cost Accounting

In the Philippines, cost recovery mechanisms for provided municipal waste
management services are seldom in place due to the fact that the citizens expect
(and are used to) that SWM services are provided by the government cost-free.
Chapter 3 15

Since waste management fees are hardly claimed so far, it seems difficult to propose
and implement a ‘generators-pay principle’. However, without an efficient cost-
recovery mechanism, the sustainability of waste management services and
enhancement projects is questionable (Boorsma et al, 2009 and 2011). For a project
like BCWMEC, cost evaluations at every stage of development are needed to
determine which level of the project can be implemented by the LGU respectively in
what way cost reduction measures have to be implemented related to its funding
capacity.

In 2008, Bayawan City conducted a Full Cost Accounting for the municipal Solid
Waste Management system. Based on the result, it formulated its cost recovery
mechanism that applies (prepaid) stickers as medium to implement waste
segregation at source combined with cost recovery. The sticker system makes it
mandatory that a sticker worth 2 Peso needs to be attached to an equivalent size of
cement sack respectively same volume container of solid waste from households and
business establishments prior to garbage collection. With this system, the city was
able to collect monthly fees of around 20,000 Peso, which may be too low for cost
recovery but are a promising start to introduce waste management fees for users
(Boorsma et al, 2009).

Again, an extensive IEC for the target barangays preceded the implementation of the
sticker system. The city also formulated a SWM Enforcement Plan and provided
training and deputization to enforcers.
Chapter 4 16

4 The Bayawan City Waste Management and Ecology Center

(BCWMEC)
4.1 Site Selection
On many occasions, site selection in the Philippines is based on availability rather
than on suitability. This often results in waste disposal sites located in former
fishponds, watershed areas, natural depressions, former mining sites and other non-
suitable areas. However, for Bayawan City site identification strictly adhered to the
availability and suitability requirements. Bayawan City started to search for suitable
sites away from the shoreline and watershed areas. In addition, areas with steep
slopes were excluded. Applying these criteria, a few areas were left to choose from,
especially since most areas complying with the given restrictions are used for
agricultural purposes and therefore considered as valuable lands. Despite the
restricting conditions, two target sites were identified, - designated as sites A and B -
which after ocular inspection, were subjected to a hydro-geological survey by the
Mines and Geosciences Bureau (MGB).

The soil analysis of site A demonstrated a permeability of 4 x 10 -6 cm/sec, a slightly

higher permeability if compared with the legal standard of 1 x 10 -6 cm/sec for a
category 2 landfill. However, the sample was taken randomly and does not secure
the given permeability for the site as a whole. For site B, the MGB conducted a
hydro-geological survey as well. Initial findings showed that the area is suitable for
SLF establishment. The results for the permeability analysis showed a value of 1.2 x
10-7 cm/sec. For this value the same argument applies as for site A. The permeability
value does not provide a sufficient protection since the finding was based on random
sampling. In addition, the permeability factor is very close to the prescribed legal
standard. Therefore, for both identified sites a liner needs to be installed in order to
avoid leachate leakage into the groundwater system.

4.2 Site Development and Lifespan

In order to address social concerns, the LGU of Bayawan City processed legal
instruments for the land ownership of the property. From the beginning, the
landowners of site A signified their objection to the proposed establishment of a SLF
on the identified site. At the second site, dialogues and assemblies were conducted
to ensure social acceptability of the proposed SLF. A Barangay Resolution was
passed to legitimize acceptance by the local residents.

Prior to SLF site development planning, topographic and parcel of land surveys were
conducted by the City Engineering Office. By using the topographic map, the site
development plan was drawn including the following components: SLF, septage
treatment facility, waste water treatment facility, composting plant, MRF and an
administration building. After designing the general site development plan, the task of
the involved Bayawan City engineers was to identify and establish the detailed
engineering components for project implementation. The first and most challenging
part was to plan out the first fill unit of the SLF component.
Chapter 4 17

In order to avoid unnecessary filling of recoverable materials within the SLF, a MRF
component was added to the project. With the MRF, where recyclables,
biodegradables and residuals can be segregated, the lifespan of the SLF can be
extended significantly. Assuming that 5.4 tons residuals arrive at the landfill and the
SLF operation is able to attain a compaction rate of 0.4 tons/m³, the lifespan of the
SLF unit 1 will be in the magnitude of approximately 18 years.

Other aspects that considerably influence the lifespan of the cell are the compaction
rate and segregation. To show the influence of these factors a calculation was made
using the following formula:

V
T=
w *1
d c

Where:
V – available volume of SLF (1)
w – tons of waste disposed every day
T – landfill lifespan in days
d – density of collected waste with 0.20 tons/m³
c – factor of waste density after waste compaction
e.g. 2 meaning a compacted density of 0.4 tons/m³.

Figure 5: Calculation formula for landfill lifespan

Table 2 shows the lifespan of the first cell for 3 different scenarios. From the table it
becomes clear that segregation together with compaction contribute significantly to
the extension of the lifespan.

As stated earlier, currently 35 percent of the population is served with collection

services. The municipality is planning to extend their services. In addition, it is
expected that neighbouring municipalities will apply to dispose their waste at the
BCWMEC as well. Taking these two aspects in mind, the lifespan of the first cell will
most likely not reach its predicted 18 years.

Table 2: Scenarios for the lifespan of the Bayawan Landfill

Estimated lifespan (years)

Landfill Area Average Storage Non-segregation Segregation and Segregation and

Cell fill-height capacity non-compaction non-compaction compaction

Fill unit 1 10.000 m² 9m 90.000 m³ 2.8 9.2 18.4

Chapter 4 18

4.3 Main Elements of the BCWMEC and the Construction Process

Since June 2008, various construction works are being conducted to accomplish the
first fill unit of the SLF; a composting plant; a MRF; a septage treatment facility and a
wastewater treatment facility to treat the leachate from the landfill and the
supernatant from the septage treatment tank. The construction of the BCWMEC
focused on the application of appropriate technologies and utilized local equipment,
local expertise and local materials to reduce project cost as far as possible.

Directly after the issuance of the ECC, the LGU Bayawan City started with site
development, construction of access road, site fencing, excavation works at the fill
unit 1 and the clay base liner construction. Working with clay is a challenging task. In
order to reach maximum compaction, the mixture should be compacted at around a
moisture content of 26 %. Preferably, the compaction should take place at the wet
side (a little bit above 26 percent). Instead of being a summer month as expected,
April 2009 turned out to be rather wet and brought a total of 14 rainy days with a
corresponding 173 mm ample rainfall. Data from the city's weather station showed a
maximum rainfall intensity of 140 litres per square meter per hour. Consequently, the
construction of the SLF faced an unexpected delay due to the changing weather
patterns.

The following sketch shows the general site development plan of the BCWMEC
which comprises 24 hectares. After designing the general site development plan, the
task of the involved Bayawan City engineers was to identify and establish the
detailed engineering components for project implementation.

Figure 6: Google Earth screen shoot 2009 showing the full site and works underway (at
left) / Site Development Plan (at right)

The following pages display pictures taken during the different construction phases
focussing on the various elements of the BCWMEC with priority on the landfill proper.
Chapter 4 19

Table 3: Landfill construction process

Surveying of the first cell by city engineers Surveying of the first cell by city engineers

Excavation works at cell 1

Compaction of the clay liner Compaction of the slopes with the help of a compactor

Compaction work at cell 1 Compactor at work

Chapter 4 20

Testing of the liner Density test of liner by civil engineers

Perforation of the pipes Leachate pipe with attached smaller pipe for flushing

Installation of leachate pipes Close view of perforated pipe

Installation of leachate collection pipes Installation of the protection layer

Chapter 4 21

Distribution of the sand for the protection layer Sand and gravel for protection and drainage layer

Installation of the drainage layer

Supervising the use of a slide to transport the gravel Manual distribution of the gravel for the drainage layer

Dump truck bringing in sand and gravel

Chapter 4 22

Installation of the drainage layer

Installation of plastic sheets to prevent erosion Completed SLF construction

of the side liner

Table 4: Construction of waste water treatment facilities

Construction of the storage tank for septage Installation of outlet pipe for the storage tank
management

Pouring of concrete for the septage storage tank Construction of the waste water treatment facility
Chapter 4 23

Construction of the anaerobic baffled reactor (ABR) Outlet of the septage management storage tanks

On right side: dying beds for treated sludges. Construction of the lagoon in which wastewater
On left side: the lagoon can be buffered

Installation of the HDPE liner at the wetland Welding machine used for welding the HDPE sheets

Welding works of HDPE Installation of HDPE at the lagoon

Chapter 4 24

Installation of HDPE at the lagoon Drying beds for the septage management

Drying beds and lagoon at the background Lagoon (right), ABR (down left), aerobic tanks and
wetland (at the upper part)

Aerobic tanks together with the wetland Aerobic tanks with wetland

Septage storage tanks Newly planted wetland

Chapter 4 25

Table 5: Construction of the material recovery facility MRF and office building

Construction of the MRF

Construction of the MRF Operational MRF

Office building under construction Overall view of the landfill site

4.3.1 The Base Liner of the Sanitary Landfill

At the SLF an engineered base liner was installed in order to collect the leachate and
to avoid the pollution of groundwater and surrounding surface waters. Choosing an
engineered lining system was intended to comply with the permeability factor as
requested by law. Furthermore, it cannot be assumed that a given natural site
provides an equal distribution in terms of permeability for the site as a whole due to
geological considerations. To cut on cost, soil was used as bottom liner instead of an
expensive synthetic liner. The material chosen for the liner was bentonite as a clay
additive instead. Bentonite was chosen due to its known swelling capacity and
hereby closing any voids within the 75 cm thick base soil liner. By using a synthetic
liner it was expected that costs for liner construction would at least double (Paul,
2003).
Chapter 4 26

Figure 7: Comparison for the permeability of a bentonite-clay liner with the use of
leachate and water (Source: Hoeks et al., 1986)

Planning of the first cell followed the legal prescriptions of RA 9003 and applicable
technical standards. Initially it was proposed that a 20 - 80 mixture (20% bentonite
clay/80% host soil) should be used. However, hauling cost to bring in bentonite clay
was expensive, since the bentonite clay source is located at the other side of Negros
Island more than 200 km away from Bayawan City. Hence, the viability to further
reduce bentonite content to 10% of the base liner was explored. A study performed
by Hoeks et al. (1986) revealed that the permeability coefficient could already be
reached by adding three to four percent bentonite. However, it has to be mentioned
that the tests were run under laboratory conditions. In addition, due to difficulties in
the mixing of clay and impurities present within the delivered bentonite it is unlikely to
meet laboratory conditions in the field. Furthermore it has to be considered that
leachate behaves more aggressive towards a bentonite liner if compared with
distilled water. The study by Hoeks et al. showed that the permeability of sand-
bentonite mixtures is about 100 times greater for leachate than for distilled water (see
Figure 7). To safeguard the quality of the clay liner and to especially check whether
the permeability coefficient meets the standards set by RA 9003, several samples
were sent to the Department of Science and Technology (DOST). The outcome of
the sampling for the 10 - 90 mixture (10 percent bentonite/90 percent host soil) was
3.44x10-8 cm/sec, which confirmed the use of the mixture as liner, having exceeded
the permeability coefficient of 1.10-6 cm/sec as set by RA 9003 for a category 2
landfill. The optimized clay liner mixture translates to cost savings of approximately
22,000 USD for the municipality. Figure 8 shows the final design of the first disposal
cell.
Chapter 4 27

Figure 8: Technical details for the first disposal cell (sketch with monitoring elements)

The technical design shows that the municipality has chosen a roof-like profile within
the base liner. In order to ensure stability of the cell, a side slope of 1:3 was chosen
(vertical to horizontal). The produced leachate is collected and forwarded towards the
buffer lagoon by the sloping bottom liner. The transverse slope of the cell is defined
at 4 percent and the longitudinal slope is defined at 2 percent for the leachate piping.
After passage of the lagoon the leachate will be treated by the wastewater treatment
system. Besides proper collection and treatment of leachate an important aspect of
the landfill operation is the monitoring of groundwater and surrounding bodies of
surface waters in order to safeguard the proper functioning of the installed liner
system. For groundwater monitoring, several wells were strategically placed
surrounding the cell. To determine the actual water depth and flow direction, a survey
was conducted. The results of the survey are represented in Figure 7 and include the
water level of each well together with the contours.

As elaborated during a landfill construction workshop, working with clay is a

challenging job. In order to reach maximum compaction, 3 layers of 25 cm each were
installed.

4.3.2 The Protection and Drainage Layer

Following the installation of the bentonite-clay liner, a protection layer of sand was
placed on top to protect the liner from the gravel which was placed on top to serve as
drainage layer. The used sand has a grain size between 2/8 mm, whereas the lime
content should preferably be less than 20 percent. The latter seemed hard to reach
due to the abundant presence of limestone in the Philippines.
Chapter 4 28

After installing the protection layer the drainage layer was installed. This layer
ensures that the leachate is properly channelled towards the leachate pipes. The
drainage layer has a thickness of 40 cm whereas the used gravel has a grain size
between 16/32 mm.

To collect and channel the leachate out of the SLF unit, two 8 inch leachate pipes
were embedded under the drainage layers which drain towards the lowest point in
the cell. Figure 9 shows the cross-section of the Bayawan City landfill.

Figure 9: Cross section of the Bayawan Landfill

The most difficult aspect encountered during the installation of the protection and
gravel liner was the logistics. The liner installation together with the installation of the
protection layer, drainage layer and leachate pipes required accurate planning. In
addition, the gravel delivered on site did not match the requested grain size
distribution and diameters. Furthermore, it still contained a lot of silt and small grain
sizes which could later clog up the drainage systems once in place. To avoid
clogging, additional screening of the gravel was performed.

The set up of the BCWMEC aimed to avoid gas production and accumulation within
the landfill site. To avoid accumulation of gas within the cell, an additional gas venting
system will be installed. The system will consists of bottomless oil drums which are
placed in the cell and filled with gravel. When the waste reaches the top of the drum,
the drum will be pulled up and filled again with gravel until the waste reaches the
Chapter 4 29

maximum allowable level. To avoid unnecessary waste disposal and to avoid landfill
gas production, the municipality applies two strategies namely: waste segregation at
source and at the “end of the pipe” segregation of biodegradable and non
biodegradable materials. The next paragraphs describe these strategies and needed
processes in more detail.

4.3.3 Composting at BCWMEC

Organic material decay is nature’s way of biodegeneration. As end product organic
waste are being transformed and incorporated as solid matter in soils, floodplains,
swamps, inland water or marine deposits or broken down into their end products
carbon dioxide, methane and water and are released into the environment
respectively the atmosphere (Paul et al., 2008). Therefore, by avoiding biodegradable
matter within the landfill, a reduction in methane emission will be achieved.

According to the 2003 waste characterization, biodegradables are the main portion of
waste produced at household level. From the biodegradables collected, 56 percent of
the total waste volume is biodegradable which results in 3,215 tons on a yearly base
in the collection area. By applying intensive IEC, Bayawan City promoted for the past
years segregation at household level in addition to the introduction of a sticker
system for segregated collection. Initial results of the 2009 waste characterization
show that the amount of collected biodegradables is lower if compared with the 2003
results.

Presently, collected biodegradables are transported to the MRF where the City’s
Environmental and Natural Resources Office (CENRO) applied different types of
composting. The first technology applied was drum composting. Due to difficulties
with drum composting, it was decided to shift to windrow composting. This static
technology provides a less costly way to process biodegradable waste.

4.3.4 Material Recovery Facility at BCWMEC

Segregated wastes arriving at the BCWMEC are further segregated at the MRF in
order to divert as many recyclable and organic materials as possible. The
segregation system at the MRF applies slides which allow the utilization of gravity
force. The slides forward the waste down into separate boxes for each type of
recovered material. The use of a gravity-based system results in a more efficient
operation and reduced maintenance. Figure 10 shows the principle and perspective
of the proposed MRF.
Chapter 4 30

Figure 10: Perspective of the Bayawan Material Recovery Facility

Based on the WACS conducted in 2009, a yearly amount of 65 tons of recyclables

can be segregated out of the waste and sold to local junkshops by applying this end-
of-pipe segregation system. The city has 5 active junkshops that significantly support
the city’s waste diversion efforts and assist to segregate valuable materials at source.

As part of the effort of the city to recycle and further reduce the disposal of residual
waste, as well as to provide livelihood to a local women’s group, initiatives such as
crafting of shopping bags out of thrown-away doy packs and paper bags and
jewelleries out of used magazines were introduced.
Chapter 4 31

4.3.5 Wastewater Treatment at BCWMEC

The wastewater treatment facility at the BCWMEC collects leachate which originates
from the landfill and supernatant from the septage management system. The quality
of leachate depends highly upon the waste composition, stage of fermentation in the
landfill, procedures and operation. Many chemicals (e.g. metals, aliphatics, acyclics,
terpenes, and aromatics) have been detected in landfill leachate from domestic,
commercial, industrial, and co-disposal sites (El-Fadel et al., 1995). Unlike the
leachate, the supernatant has a constant composition and its quantity can be
controlled. The quantity depends on the collection rate of septage, this in contrary to
the landfill leachate which depends on the precipitation, moisture content of the
waste and operation practices.

The designed system (see Figure 11) consists of 4 different components without
moving parts in order to avoid additional costs for electricity and maintenance. The
leachate treatment uses a lagoon, aerobic ponds and a wetland. The septage
treatment uses an anaerobic baffled reactor (ABR), aerobic ponds and a wetland.
The lagoon was designed in order to catch large amounts of leachate during rainy
days. It should be able to buffer at least a heavy rain event which is assumed to be
150 mm in 3 or 4 days. During normal operation, the lagoon will have a depth of not
more than 1.0 meter. With this depth, the lagoon will, beside its role as buffer, serve
as an aerobic treatment. The total volume of the system compromises 1,500 m³. The
lagoon is protected by a HDPE liner since concrete basins are subjected to cracks.
To assure the quality of the liner, the city has chosen for a supplier which follows
ASTM standards in their production and liner installation process.

The ABR is solely used for septage treatment. The reactors main purpose is to
reduce the waste load of the supernatant originating from the drying beds and the
storage tanks. The ABR reaches high treatment rates due to its high solids retention
time. According to a study performed by Foxon et al. (2004) the ABR reaches a 1 log
reduction in pathogen indicator organisms (e-coli and total coliforms) and a Chemical
Oxygen Demand (COD) removal between 58 and 72 percent. After the ABR, the
wastewater flows to the aerobic pond. The aerobic pond consists of 4 chambers in
which filter materials can be placed if needed. The final treatment for both types of
wastewater is the wetland.

The city of Bayawan has already good experiences with wetlands. Since 3 years the
city is operating a wetland within the city center area which treats the liquid waste
from approximately 700 households. The system is able to reach 99 percent removal
efficiency in terms of Biological Oxygen Demand (BOD). The wetland at the
BCWMEC will receive a different type of wastewater compared to the existing
wetland. Once in place, the wetland needs to be monitored on its performance.
During the design, one of the key issues was that the system should be low cost and
maintenance. Therefore, the whole system is able to flow on gravity without use of
electricity.
Chapter 4 32

Figure 11: Scheme wastewater treatment facilities

4.3.6 Septage Treatment at BCWMEC

Worldwide, many countries suffer from the effects of improper disposal of domestic
liquid waste. The most-known effect is diarrhoea that kills 2.2 million children every
year and consumes scarce funds in health care costs, preventing families and
nations from climbing the ladder of development (Khan, 1997). According to a study
performed in a similar setting, liquid waste contributes significantly towards the total
pollution load. In terms of BOD, the domestic liquid waste contributes approximately
65 percent to the total load (Boorsma, 2004). In order to reduce the pollution load of
the domestic sector, Bayawan City has an ongoing project to empty all septic tanks
on a regular base to prevent leakage into the groundwater aquifer, and minimize the
incidence of waterborne diseases. Recently, the City acquired two vacuum trucks,
which will be used to collect septage from households in the city, for this purpose.

The applied technology consists of two storage tanks connected to drying beds.
Collected septage will be stored for approximately 30 days in the storage tanks and
subsequently emptied into the drying beds. A waste water treatment facility is
connected to the system. The multi-tiered project is another pioneering effort of
Bayawan City that demonstrates that new laws which aim to enhance environmental
management can be implemented in the context of a developing country by providing
the needed infrastructure with appropriate and locally made technologies. In the
meantime the treatment system is operational and manifests a further milestone of
sound environmental management in Bayawan City.
Chapter 5 33

5 Inauguration of BCWMEC April 2010

BCWMEC complex was inaugurated on April 16, 2010 at its location in barangay
Maninihon. The auspicious occasion was attended by Mr. Pit Heltmann, Deputy Head
of Mission, German Embassy, Dr. Ute Hübner, Country Director (DED) for German
Technical Cooperation (GTZ), Governor Emilio Macias II, City Mayor German P.
Saraña, Jr., Dr. Ben Malayang, President of Silliman University, functionaries of
government and the media.

City Mayor Saraña stressed the City’s willingness to share the technology and
considering the cost of putting up a landfill – current estimated project cost is PHP 31
million - adjacent municipalities can avail of its services for a fee to assure project
sustainability. In addition, he emphasized that safeguarding systems are in place to
prevent migration of leachate and contaminants to water bodies that could pose a
health hazard, citing the involvement of the Chemistry Department of Silliman
University in conducting periodic monitoring of proximate water sources for pathogen
content.

During the opening ceremony, Silliman University President Ben Malayang used the
word “rurban” to describe Bayawan City as rural but is rapidly urbanizing just like Los
Baños City 20 years ago. Waste management is intended for today and the future,
and being new, is met with cynism because people tend to only see present day
realities. He cited “creative commitment” between friends and foes, in addition to the
social capital, so innovatively harnessed in Bayawan City to come up with this kind of
project.

Mr. Pit Heltmann, Deputy Head of Mission, German Embassy for his part cited
BCWMEC as one of a kind in the country and being completed out of local funds,
local manpower and resources, considers it as a monumental achievement. He
hopes that it will serve the communities for a very long time, serving as a model that
can be replicated by others, and contribute to the beauty of our unique environment.

The turn-over ceremony top billed Dr Ute Hübner, City Engineer Mike Mananquil, City
Mayor German P. Saraña, Maninihon Brgy. Captain Stanley Tamala and BCWMEC
Manager Engr. Antonio Aguilar of the CENRO as the final recipient of the symbolic
key. Engr. Eric Torres of the Engineering Office is the Project Engineer with Mr.
Jouke Boorsma of GTZ as Project Consultant.
Chapter 5 34

Table 6: Inauguration of BCWMEC

Mr. P. Heltmann, Dr. U. Hübner Project brief during the inauguration

Inauguration ceremony Mr. P. Heltmann and Philippine dignatories

Final turn over of the project to Mayor Saraña (center) Announcement to the public regarding the
environmental compliance certificate
Chapter 6 35

6 Operation of BCWMEC since May 2010

Finally in May 2010 the BCWMEC entered into operation. The following pictures
show the different facilities of the BCWMEC in use.
Table 7: Operation of landfill

Begin of landfill operation with first residual waste implacement

Covering of residual waste with soil layer Levelling and compaction of intermediate soil cover

Levelling and compaction of intermediate soil cover Low cost equipment for soil covering and compaction
Chapter 6 36

Table 8: Operation of other facilities

Entrance gate of BCWMEC Meeting room at office

Weighing bridge Buffer pond filled, with wetland treatment facility

Gravity MRF in operation Storage facility for segregated materials

First batch of biodegradables delivered Composting facility

Chapter 6 37

Composting bed for vermin-composting with added Ready compost product

“Madre de cacao” (nitrogen rich plant)

Baseline water monitoring at the BCWMEC Weighbridge reading

6.1 Amounts, types of waste received and fees collected

The following tables below represent the amounts and types of waste received since
the inauguration. With regard to the income from fees collected including fees for
liquid waste starting in May 2011, it is expected to collect over 1 million PHP each
year.

Table 9: Amounts and types of waste

total 
Non bio 348,830 tons June 22 to Jan. 5
type of waste collected(2010) percent
(kg/day) (%)
Bio 615,96 tons May 7 to Jan. 5
Biodegradable 2.534,8 58%
Recyclable 37,1 1%
Residual 1.773,3 41% 2,710 tons June to Sept.
Special 2,6 0% Recyclables
total 4347,7 100% 1.74 tons Sept. to Dec.
Chapter 6 38

Table 10: Income from fees collected

Monthly income 1

2008 2009 2010 2011

January 41,548 51,856 40,030

February 16,872 12,190 18,730

March 16,152 17,838

April 14,880 15,258

May 18,342 18,342

June 21,098 21,098

July 14,900 14,900

August 18,050 18,050

September 650 17,000 17,000

October 22,142 23,000 23,000

November 2,582 20,652 18,070

December 11,544 28,174 16,630

Totals 36,918 250,668 244,232 58,760

6.2 Use of the BCWMEC by other neighbouring LGUs

Political discussion are underway if and how other neighbouring LGUs might use the
BCWMEC. Currently, the Bayawan City administration is busy drafting a tipping fee
ordinance for this opportunity.

1
The amounts include income received from penalties.
Chapter 7 39

7 The Monitoring System for the Waste Management Centre

7.1 Material and Methods
7.1.1 Parameter Selection for Water Monitoring
Water monitoring is a new task for LGUs and a rather challenging undertaking in the
Philippine context where expertise, probes for field testing, laboratory facilities and
other tools for environmental monitoring are hardly available. Especially more
complex parameters, that require expensive and sensitive laboratory equipment, can
only be analyzed in larger cities. For this reason, a special parameter set which can
be analyzed locally was proposed to provide sufficient and reliable data for
monitoring in an efficient and affordable manner. In general, monitoring of surface,
ground and wastewater is regulated within Administrative Orders. Such were put in
place in the Philippines already in 1990. However, over the years, more information
became available regarding monitoring of waste disposal sites. Since the RA 9003
does not prescribe parameters for environmental monitoring for waste disposal sites,
a set of basic parameters was proposed and tested for the BCWMEC.

Figure 12: Water monitoring at the BCWMEC (König 2008)

For the baseline monitoring five points were strategically located at the site. For the
groundwater wells, two were located downstream and one well was located up
stream. For the surface water two samples were taken, one upstream and one
downstream. The sample points and their location are represented in Figure 13.
Chapter 7 40

st
1 level monitoring
field test parameters
and simple to measure
laboratory analysis

No further action

Trigger levels of at least

five parameters are
getting confirmed
Monitoring data
mostly within
reference levels

nd
2 level monitoring
laboratory testing

nd
Continue with 2 Alarm levels
level monitoring confirmed

Trigger levels of at least

five parameters, Start and implement
or one alarm level Contingency and mitigation
concentration measures

Figure 13: Sample points and their location

It was chosen to measure the full set of parameters twice in order to establish a good
baseline. The set up of the monitoring is based on a proposal prepared by GIZ.

Samples are analyzed by the participating local university which is the only institution
in the province that offers laboratory analysis to the public. It is assumed that results
produced by the university do not differ significantly compared with a certified
laboratory since the analyses performed are not complex. Besides, certified
laboratories are located far away which would result in increased costs and logistical
challenges.

7.2 Waste Characterization

Data collection in the Philippines is a rather challenging task. Often, data are not
collected in a proper manner and if collected follow ups are seldom performed on a
regular basis. With regard to the WACS performed in the years 2003 and 2009 there
were discrepancies observed in the end of pipe (EOP) data. Probably these
discrepancies were caused since a 3 day characterisation was used instead of the 7
day characterisation in 2003. It is very plausible that people do not use every
collection schedule offered to throw their waste. Therefore, the EOP data from 2009
was disregarded in this study and the actual data from the newly installed
weighbridge was used. However, the waste generation data from 2009 show no
significant difference with the data from 2003. Therefore, it is decided to use these
data in calculating the collection rates.
Chapter 7 41

7.3 Results
7.3.1 Waste Stream Analysis by Characterization and Weighbridge
Due to the newly installed weighing bridge, waste streams can now be monitored
more accurate than before. This enables to delineate waste characterization data for
the received wastes, which significantly assists to increase knowledge of local waste
composition but also as base for adjusting and improving site operations and
collection schemes. The generated data is not only important for Bayawan City but
also for other municipalities that have a similar setting and could use such data for
planning their SWM facilities. Table 11 summarizes regarding data for the Bayawan
City SWM context.

Table 11: Overview of the generated waste together with the received waste at the
BCWMEC

Total Composition of
Total collected Composition of Collection
generated generated 2
Type of waste 1 (2010) collected waste rate
(2010) waste

(kg/day) (%) (kg/day) (%) (%)

Biodegradable 16050.4 69 2,534.8 58 16

3
Recyclable 480.3 2 37.1 1 8

Residual 4 6835.4 29 1,773.3 41 26

Total 23,366.1 100 4,345.2 100 19

Currently, 26 % of the residual waste is collected. It is assumed that uncollected

waste is buried, burned or disposed illegally. With enhanced waste enforcement and
IEC, the LGU tries to bring down the number of illegal practices. Furthermore, 58
percent of the waste collected from the households and establishments is
biodegradable. By treating this organic fraction with composting technology, the
municipality easily meets the diversion goal set by national law with 25 percent. In
order to improve the monitoring system, the municipality developed a simple
computer program in which all incoming and outgoing waste streams are constantly
monitored. With this program, the LGU can closely monitor waste streams and
propose measures to enhance waste collection and efficiency of the centre itself.

7.3.2 Early Warning Monitoring at the Waste Management Centre

For water monitoring of the BCWMEC a special set of parameters was chosen,
subdivided into 1st and 2nd levels of monitoring. The chosen parameters can be
analyzed locally and are listed in Table 12. Initially, only 1st level parameters are
monitored. Depending on the result of the analysis of 1st level parameters, 2nd level

1
Based on waste characterisation performed in 2009.
2
Based on weighbridge data produced in the period June 2010 until January 2011.
3
Consists of plastic bottles, scrap metal, cardboard, dry paper, cans and glass bottles.
4
Includes special waste.
Chapter 7 42

parameters can be analyzed in the laboratory. The decision to analyze 2nd level
parameters depends on rules as documented in Table 12. Reference levels are
provided by national law. If not available for a certain parameter, international
guidelines are followed. As long as concentrations are within the reference level, no
action will be undertaken. Once the outcome of the analysis exceeds by 100 % the
reference level, the so-called trigger level is reached. If a trigger level is reached, it is
strongly advised to intensify the monitoring of 1st level parameters. Currently, the 1st
level of monitoring is conducted semi-annually. This may be changed to a quarterly
routine later on. However, as of now three monitoring events were conducted after
start of landfill operation to establish a first baseline. It was chosen to monitor both 1st
and 2nd level parameters for future reference. As expected, there are no alarming
levels caused by leachate contamination so far. Besides the early warning monitoring
of the SLF and local natural water resources, the treatment facility itself is monitored
on its performance. The monitoring is supported by a local university which provides
knowledge inputs and conducts water analyses. In a next step, the municipality
needs to set up an own laboratory in order to analyze basic parameters and to
safeguard environmental performance of the BCWMEC. The following Table 12 and
Table 14 summarize the proposed parameter set and monitoring procedure.

Table 12: Selected parameters and monitoring level

Level Level Level Level
Parameter st nd Parameter st nd Parameter st nd Parameter st nd
1 2 1 2 1 2 1 2
TSS Sulphate Colour Zinc
Total hardness Potassium Alkalinity Cadmium
Nitrate Nitrite Lead BOD5
Turbidity pH Nickel NH3
Copper Temperature Chromium (VI)
Chloride Conductivity COD
Animal/Vegetable Dissolved
Fat oxygen Cyanide (Free)

Table 13: Measuring of landfill gas

Measuring of landfill gas at former dumpsite in Used gas measurement equipment (imported from
Bayawan Germany) shows 18 % volume Methane 1 m depth
below surface
Chapter 7 43

Water Monitoring
The table below represents first results on water monitoring.
Table 14: Results on water monitoring
Source
Parameter Unit Groundwater 1 Purok Groundwater 2 Creek Groundwater 3
Baseline Dec '10 Baseline Dec'10 Baseline Dec'10 Baseline Dec'10 Baseline Dec'10
Water level (if
applicable) Meters 7.53 7.58 - - 2.28 1.72 - - 6.78 6.15
pH 0 – 14 - 6.98 - 6.88 - 7.88 - No H2O - 6.81
Temperature Celcius 29 28.5 26.8 27.9 28.6 28.7 26.9 No H2O 28.8 29.4
color color units 1 20 1 1 40 1 1 No H2O 5 1
conductivity µS/cm 453 576 574 637 585 814 675 No H2O 670 694
Turbidity NTU 3.46 189 2.96 1 23.8 1.3 1.7 No H2O 0.89 0.1
Dissolved oxygen mg/lit 1.35 0.26 4.68 4.58 1.59 3.01 0.62 No H2O 2.41 3.19
BOD mg/lit 3.06 1.66 1.91 0.27 1.53 2.31 6.13 No H2O 1.75 1.41
COD mg/lit - - 3.5 - 4.92 - No H2O - 2.42
TSS mg/lit 10.9 777.8 1.8 1.2 643 443.8 73.8 No H2O 51.4 20
Total hardness mgCaCO3/lit 231.65 212.5 309.61 157.5 310.72 281.3 371.98 No H2O 354.16 271.3
MO alkalinity mgCaCO3/lit 260.9 271 354.15 250.7 297.57 284.1 315.91 No H2O 358.34 571.9
Cl mg/lit 16.8 4.11 19.64 2.68 20.82 4.29 19.17 No H2O 21.3 3.04
SO4 mg/lit 0.4 11.97 1.1 5.9 7.49 53.52 7.43 No H2O 6.86 5.33
NH3-N mg/lit 0.35 1.154 0.03 0.019 0.15 0.32 0.05 No H2O 0.06 0.096
NO2-N mg/lit 0.01 0.028 0.009 0.028 0.004 0.028 0.009 No H2O 0.011 0.028
NO3-N mg/lit 0.193 0.829 0.178 0.714 0.204 0.728 0.191 No H2O 1.017 3.36
PO4-P mg/lit 0.07 0.037 0.05 0.028 0.13 0.028 0.12 No H2O 0.13 0.028
K mg/lit 1.88 6.63 0.12 1.6 1.91 5.47 0.54 No H2O 0.98 3.51
Cr6+ mg/lit 0.29 <0.45 0.29 <0.45 0.29 <0.45 0.29 No H2O 0.29 <0.45
Cd mg/lit 0.01 0.01 0.01 0.01 0.01 0.01 0.01 No H2O 0.01 0.01
Pb mg/lit 0.02 <0.06 0.02 <0.06 0.06 <0.06 0.06 No H2O 0.02 <0.06
Cu mg/lit 0.16 <0.05 0.03 <0.05 0.09 <0.05 0.24 No H2O 0.14 <0.05
Zn mg/lit 0.31 <0.11 0.31 <0.11 0.31 <0.11 0.31 No H2O 0.31 <0.11
Ni mg/lit 0.03 <0.05 0.03 <0.05 0.03 <0.05 0.03 No H2O 0.03 <0.05

RED detection level

Groundwater one Under acasia
Groundwater two next to abr
Groundwater three Next to digester
Chapter 8 44

8 Financing and Costs Recovery Mechanisms in Bayawan

One of the main hindering forces to implement the R.A. 9003 law is the lack of
financial resources by the municipal governments, as main service provider. In fact,
the annual budget provided from the national government is in most cases too low to
cover the needed local investments. Hence, solid waste management suffers less
priority during budget negotiations and is often being postponed due to more
pressing local needs.

In addition, cost recovery mechanisms for waste are seldom in place due to the fact
that the citizens expect that solid waste management services are provided by the
government cost-free. Since waste management fees are hardly claimed so far, it
seems difficult to propose and implement a “generator-pay’s principle”. However,
without an efficient cost recovery mechanism, the sustainability of waste
management services and enhancement projects is questionable.

For a project like the BCWMEC, cost estimate at every phase of work is
indispensable, to determine which stage of the project the LGU can implement or
initiate cost reduction measures, based on its funding capacity.

Figure 14: Breakdown of the BCWMEC Costs (Dollars in thousands)

Figure 14 shows the breakdown of both fixed investment and operational costs.
Assuming a lifespan of 9 years, the total costs for the first cell within the BCWMEC
reaches around one million US dollar.

Nevertheless, Bayawan City established a new approach to recover expenses

through a sticker system. The system makes it mandatory that a sticker worth 4
dollar cents should be attached to a volume comparable to a “cement sack” of solid
waste from household and business establishments before the conduct of garbage
collection. An extensive IEC of the target barangays preceded the implementation of
Chapter 8 45

the system. With this system the city is able to collect monthly fees of approximately
425 USD.

At the moment, Bayawan City administration is busy calculating tipping fees from the
total costs of the solid waste management component within the BCWMEC.

Table 15: Overview for the tipping fees (in USD)

Per household per

Per capita per year
Per m³ 1 Per ton 2 Per m² 3 year served within
served within collection area 4
collection area 5
Tipping fee 6 21 53 96 2.7 12.2

Currently, the BCWMEC serves the city centre and adjacent areas. With this,
approximately 35 percent of the population is provided with waste management
services. For this part of the population, a “Pay As You Throw” (PAYT) principle was
proposed and agreed upon within a new local ordinance. Consequently, the
municipality prioritized to introduce the new PAYT system to its constituents. Aside
from the revenue generated by the economic instrument, it also encourages waste
diversion for different types of waste. The largest waste diversion can be realized by
reducing the amount of bio waste collected since biodegradable waste components
are abundant within the collected waste given that Bayawan City is dominated by
agricultural activities. By reducing the amounts of biodegradables collected, a
considerable amount of costs are saved for both collection and disposal.
Furthermore, the reduction results in a decreased amount of leachate and gas
produced. These emissions cause negative effects on the environment especially in
the case of uncontrolled waste disposal, which remains the dominating practice for
residual waste management throughout the Philippines.

Consequently, the City of Bayawan proposed to establish an engineered landfill to

provide the needed barriers and protection measures to prevent environmental
impacts. To safeguard sustainable operation of this project and other municipal SWM
services, a further target for the municipality was to clarify true costs of municipal
waste management. Based on that, a policy can be proposed for social acceptable
cost recovery. This policy should integrate as well mechanisms to enhance waste
segregation and to increase material recovery. Full Cost Accounting (FCA) was used
as a tool to identify the actual cost incurred for the SWM services. The Full Cost
Accounting together with the revenues generated by the PAYT scheme reveals the
actual municipal cost scenario.

1
Based on a volume of 45,000 m³.
2
Based on a compaction rate of 0.4 tons/m³.
3
Based on a surface area of 10,000 m².
4
Based on 39,256 served people within the collection area.
5
Based on a household size of 4.5.
6
Only costs for disposal are included.
Chapter 8 46

8.1 Framework for FCA

For the majority of municipalities in the Philippines, the understanding for total
expenditures of SWM and the need to refinance municipal services to sustain SWM
systems is rather meagre. The actual money available for SWM services is often
based on the outcome of budget negotiations. The FCA is considered as a useful tool
to be applied in order to augment the understanding for budget need and to serve as
a tool for planning and analyzing future budget needs. Other reasons to apply FCA
are: it may serve (a) to identify the hidden costs, (b) trace and reform the
inefficiencies of a program, especially if FCA is performed every single year, (c)
evaluate scenarios under the financial aspect and the potential impact on the quantity
and quality of municipal solid waste, (d) investigate the potential for implementing
new and/or innovative systems of waste collection and related charging, whose intent
is to render financial incentives to citizens for reducing waste generation, as PAYT
systems (Karagiannidis et al. 2008).

In contrast with the situation in developed economies, information regarding external

costs, which include environmental and social costs made, is often incomplete or
absent in developing economies. For this reason, only SWM expenses made for
planning, construction, operation and aftercare are taken into account in the FCA
presented. Figure 15 represents the approach used to form the FCA in Bayawan
City.

Figure 15: Schematic overview of the Full Cost Accounting (FCA)

8.2 The PAYT Scheme

In the table and figures below, the details of the FCA are summarized. Bayawan City
spends around a quarter of a million US dollars for waste management services
provided to the community, whereas the main portion is taken by the disposal of the
residual wastes followed by the collection.
Chapter 8 47

The municipality is able to generate income by the PAYT system in place. The
average collected amount over the years 2009 and 2010 is approximately $5,000.
Furthermore, the waste diversion occurred over the last years is represented as well,
whereby the municipality encountered visible changes in the waste composition of
the collected waste. A sharp decline is visible for both biodegradables and
recyclables. In the following paragraphs, the PAYT scheme in place is discussed
together with the current issues and impacts.

Table 16: Overview of costs per activity

Allocation per activity 2010 7 (in US$ 8 )

Particular Reduction at 9
Collection Composting Disposal Total
source

Salaries & wages 24,687 36,093 22,944 10,751 94,475

Vehicle & equipt oper & maint. cost 880 17,141 6,026 13,636 37,684
Buildings & grounds maintenance - - 4,527 17,427 21,955
Utilities - - 1,350 3,150 4,500
Other indirect costs 2,597 6,059 5,194 9,522 23,372
Depreciation of capital outlay 796 5,907 7,713 28,307 42,724
Amortization of back-end costs - - 442 5,492 5,934
Depreciation of up-front costs - - 676 676 1,352
Contingency 3,186 7,172 5,376 9,786 25,520
Total 32,146 72,373 54,248 98,748 257,515

Figure 16: Assigned budget and income generated (US$) (left side)

Figure 17: Income generated out of the PAYT (US$) (right side)

7
Includes planning and management costs.
8
Exchange rate: 1US$=44PHP.
9
Includes monitoring and aftercare.
Chapter 8 48

Table 17: End of pipe analysis 2003

Collected (2003) 10 Percent

Type of waste
(kg/day) (%)

Biodegradable 4407.3 78.8

Recyclable 11 448.9 8.0
Residual 12 735.5 13.2
Total 5592.6 100.0

Table 18: End of pipe analysis 2010

Collected (2010) 13 Percent

Type of waste
(kg/day) (%)
Biodegradable 2534.8 58.3
Recyclable 14 37.1 0.9
Residual 15 1773.3 40.8
Total 4345.2 100.0

Figure 18: Allocation per cost group (percentage)

10
Based on waste characterization 2003.
11
Consists of plastic bottles, scrap metal, cardboard, dry paper, cans and glass bottles.
12
Includes special waste.
13
Based on weighbridge data (June ’10 - Jan. ’11).
14
Includes special waste.
15
Consists of plastic bottles, scrap metal, cardboard, dry paper, cans and glass bottles.
Chapter 8 49

8.3 Pricing Garbage by the Bag

Revenues from the local users have to be regarded as an important source to justify
the establishment and financing of new projects and to operate improved waste
management services in a sustainable way. However, since waste issues are hardly
attractive, local decision-makers struggle with an “unwillingness to pay for waste
management services” of their constituents and rather prefer to avoid system
improvements. Nevertheless, Bayawan City took the step to introduce a cost
recovery mechanism to their constituents. Prior to the actual implementation, the
municipality drafted an ordinance which was subsequently approved by the provincial
government. With this, the road was paved to start the implementation of pricing
garbage by the bag in October 2008. The applied pricing of garbage by the bag is
commonly employed in different parts all over the world. Based on data available in
literature, the price for one kerbside bag (20 pounds) in the Netherlands is roughly
$2.15 and around $0.75 in the United States (Kinnaman 2009). The variation in price
occurs due to differences in prices of land, density of populations, technology used,
etc. Included in the prices stated are the external costs of waste disposal. By using
appropriate technology, in the case at hand land filling, the external costs are
expected to be reduced significantly when compared to dumping. Currently, there is
still little known about external costs of waste disposal, either by land filling or
dumping, in the Philippine setting. Following the data provided by research, the
external marginal costs in Europe were estimated between $5.39 and $8.76 per ton
(Kinnaman 2006). In the Philippines, many indiscriminate (uncontrolled) waste
disposal sites can be found and are often even situated in coastal close to the sea
side. Since majority of the Filipinos depends on fishery, the negative impact on their
livelihood and sustainability are likely to be assessed higher.

The implemented scheme requires that Bayawan City citizens purchase one sticker
per cement size garbage bag (approximately 25 litres) disposed. Each has a sticker
which can be acquired at authorized selling centres for a price of more or less $.05.

Figure 19: PAYT Garbage Collection Sticker

The system in place generates annually revenues of roughly US$ 5,000. With this,
the total cost recovery percentage is around 1.5 percent. The reason for this
relatively low percentage recovered is initially caused by the instated fee which is set
by the local legislators and determined based on the waste generated within the
community. Moreover, social acceptability plays an important role. High fees are
Chapter 8 50

simply not attractive to sell to the community. Furthermore, the cement bag size is
not strictly implemented. Often, people only apply one sticker for large loads of
garbage. However, cost per sticker could be gradually increased over time provided
the community accepts the new system.

8.4 Impacts
During the last years, several changes and modifications were made in the SWM
system of Bayawan City. The most significant ones are the implementation of waste
segregation at source and the PAYT. The main and most important feature of the
latter is the waste reduction. The PAYT is not only limited to recycling it encourages
as well composting and waste reduction at source. The implementation of the
measures mentioned caused significant impacts on the waste streams. Analyzing the
waste characterization data, there are visible changes in the waste stream. The
results are generated out of the waste characterisation performed in 2003 and the
actual data originating from the weighbridge. Below, the changes are discussed per
type of waste.

8.4.1 Biodegradables
Since the year 2006, waste segregation at source is strictly implemented by the local
government. A large portion of the biodegradable waste is now composted at
household level due to the new policy. However, a certain portion of organic waste,
for example, from green works at the city and households from the densely populated
city centre and from the market is collected and processed at the newly established
BCWMEC. With this approach, common negative environmental impacts such as
leachate and landfill gas production are significantly minimized.

During the period 2003-2010 the amount of biodegradable waste collected reduced
almost by half from 4.4 to 2.5 tons/day whereby the overall organic waste collection
is reduced from 62 to presently 16 percent. In contrary to these reductions, which
took place with the recyclables over the same period, it can be assumed that the
reduction is for the most part formed by the introduction of the PAYT. This reduction
is a gain for the municipality since related costs and environmental impacts can be
reduced. Besides, composting on municipal level is still regarded as a non profitable
activity (Paul, 2008). Finally, it has to be stressed that over 60 percent of the
generated waste is biodegradable and therefore, the reduction of organic waste is
considered as the key option to enhance the waste disposal situation in the
Philippines.

8.4.2 Recyclables
Since the last waste characterisation from 2003, the amounts of recyclables
drastically dropped. The amounts were reduced from almost half ton a day to 37
kg/day. The collection rate dropped from 21 to 8 percent in the same time period.
Main reasons attributed to this may be the significant change in the amount of
recyclables collected at source by the private sector as well as the change in
definition and markets of recyclables over time. Nevertheless a sharp drop in the
collection rate can be noticed. The change can be explained by: a) enhanced waste
segregation at source, b) the increase of formal waste markets and related better
Chapter 8 51

condition for the informal sector and c) the newly implemented PAYT. According to a
study performed by Skumatz (2008), results showed that implementing PAYT had a
larger impact on recycling diversion than other changes to SWM programs. However,
this and other studies are performed in developed economies. Hence, their findings
might not be valid in the Philippine context.

8.4.3 Residuals
Without intervention, one would expect all types of waste to increase due to
economical development. However, in this study only the residual waste increased
during the period 2003 to 2009, whereas the amounts of residuals collected
increased from 721 to 1,771 kg/day. This increase is higher compared to the
increase in the generation of residuals over the years. This can be attributed to the
efforts of the municipality to enhance general collection efficiency but also the
increase of awareness among residents mainly due to municipal education
campaigns and PAYT. Parallel to that, the municipality increases enforcement
activities in line with the new policy in place. Consequently, people became more
aware and shifted away from common practices like burying and burning of waste.
This again increased the need for the municipality to collect those wastes. These
changes resulted in an increased collection rate of residual waste from before 18 to
presently 26 percent.

Table 19: Collection rates / collection efficiency per type of waste

Type of waste 2003 (%) 2010 (%)

Biodegradable 62.4 15.8
Recyclable 20.7 7.7
16
Residual 17.7 25.9

Overall 41.5 18.6

Overall, the amount of waste collected decreased from approximately 5.6 to 4.4
tons/day and the collection rate dropped from 42 to 19 percent. With this reduction of
waste over the years, the municipality did not necessarily reduce costs for waste
collection since they did not change the collection routes. However, a considerable
amount of biodegradable waste is diverted prior to collection and final disposal. In the
latter the waste is forwarded to a central processing facility.

Aside from the positive impacts, there are as well negative issues concerning the
PAYT principle introduced. In the planning stage of the system, it was unclear how
much income it would generate. It was assumed that the waste generators would
only use a bag with the size of a cement bag. During the implementation it was
noticed that larger bag sized are used with applying only one sticker or one sticker is
used for two or three bags. This practice resulted in lower income generation than
expected. Currently, the average weight for one bag is around 13 kg. This amount is

16
Includes special waste:
Chapter 8 52

approximately 2 ½ times more than what would fit into an ordinary cement bag. In
addition, the total amount of waste expected to be collected reduced due to the PAYT
itself.

Another negative impact developed is that some residents and other users started to
dispose waste illegally in order to avoid collection costs. To tackle the issue, the
enforcement teams traces back the generator of the waste by looking for indications
of ownership in the garbage. Subsequently, the owner is confronted with their
behaviour and requested for compliance. With this enforcement, the number of illegal
dumping is reduced.

During the implementation of the PAYT it was noticed that administrative work
needed for distributing the stickers and the following up of violations increased,
hereby inflating the cost maintaining of the system.

Table 20: Business at the local junkshop

Chapter 8 53

Table 21: Collection from the household/businesses

Table 22: Collection at the public market (PAYT)

8.5 Cost Recovery Options for Bayawan City

The main budget items of MSWM in Bayawan are waste collection, material/energy
recovery, composting and waste disposal which are considered as main entry points
for cost recovery as well. In the case of waste collection, the new policy manifests
that users pay according to the amount of generated waste with a prepaid sticker
system. One of the dilemmas the municipality faces is the early collection by
authorized waste collectors. They have early access to the higher value recyclables,
thus cutting into the revenue of the municipality which collects recyclables as well
before the final disposal at the sanitary landfill.
Chapter 8 54

For material/energy recovery and composting the costs for saleable materials and
products are unclear at this stage of development. However, future policy and the
market will establish adequate sale prices for such materials and products to allow a
sustainable operation. The development of prices and the operational costs will be
monitored and used as a base for corresponding policy making.

The prices for waste disposal are approximately 20 - 25 US$ per tons of waste when
3rd party users are bringing in their waste and pay the corresponding tipping fee.
Currently, the local government is in the process to establish a tipping fee system
which will include construction, operation and aftercare costs. With an appropriate
ordinance in place, automatically costs made can be shared hereby reducing the
costs made for disposal.

A future option for Bayawan City is to produce Refused Derived Fuels (RDF) out of
the materials with a relative high caloric value. These materials can be used as a
substitute for power plants and other industrial processes such as cement
manufacturing. The benefits are twofold. Firstly, it creates a reduction of the amount
of waste land filled; secondly it saves on the amount of fossil fuels used, whereas
further benefits result for the informal sector with additional livelihood. As of now, the
demand from the commercial sector is not yet sufficient to start processing these
materials. However, with the current developments of fuel prices, the municipality can
turn the landfill from final disposal into a temporarily disposal facility if RDF recovery
can be implemented on a larger scale. By segregating inert materials from materials
with caloric value, the municipality could significantly increase the recovery of RDF.

Figure 20: Main elements and options for cost recovery of the Bayawan MSWM system
(adapted from Bartone, 1990)
Chapter 9 55

9 Authors and Materials Used

Compilation of the listed publications and materials for this text:
Udo Lange, AHT GROUP AG, Essen, Germany

(1) Jouke D. Boorsma (2009) German Development Service, c/o Local Government Bayawan City,
Negros Oriental; Johannes G. Paul (2009) AHT GROUP AG, SWM4LGU’s
Project/GTZ-AHT, c/o DENR Region 6, Iloilo City, Panay, German P. Saraña, Jr.
(2009) Local Government, Bayawan City, Negros Oriental: Establishment of a Waste
Management and Ecology Centre IN Bayawan City, Negros Oriental, Philippines;
Paper presented at the WASTESAFE (2009) conference in Bangladesh.

(2) Solid Waste Management Program for Local Government Units. GIZ Project No. 1995.3505.5.
Facts and Figures and Status of Solid Waste Management in SWM4LGUs Partner
LGUs, (DRAFT as of March 2011). Solid Waste Management for Local Government
Units (SWM4LGUs). A joint project of the German International Cooperation-AHT
Group AG (GIZ-AHT) and the Environmental Management Bureau of the Department
of Environment and Natural Resources (EMB-DENR). 2/F EMB-6 Lab Bldg.,
DENR/FMS-6 compound, Parola, Iloilo City. Tel/Fax No.: (033) 509-9788. e-mail:
sec_aht@yahoo.com

(3) Implementing a Monitoring System for the Waste Management Centre Bayawan City, Philippines:
1,* 2 3. 1
J.D Boorsma , R. Gaudiel , J.G Paul Deutsche Gesellschaft für Internationale
Zusammenarbeit (GIZ), Bayawan City, Philippines; 2 Local Government Unit, Mayors
Office, Bayawan City, Philippines; 3 AHT Group AG, GIZ/AHT Project Office
SWM4LGUs, Iloilo, Philippines. * Corresponding author. Tel: +63(0)354300187, Fax:
+63(0)355310728, E-mail: joukedouwe.boorsma@giz.de. Paper presented on the
International Conference on Solid Waste 2011 in Hong Kong

(4) Cost Recovery Mechanism to enhance Solid Waste Management in Bayawan City, Philippines:
Experiences and Potentials. J.D Boorsma1,*, R. Gaudiel2, J.G Paul3. 1 Deutsche
Gesellschaft für Internationale Zusammenarbeit (GIZ), Bayawan City, Philippines. 2
Local Government Unit, Bayawan City, Philippines. 3 Deutsche Gesellschaft für
Internationale Zusammenarbeit (GIZ/AHT), Iloilo, Philippines. * Corresponding author.
Tel: +63(0)354300187, Fax: +63(0)355310728, E-mail: joukedouwe.boorsma@giz.de.
Paper presented on the International Conference on Solid Waste 2011 in Hong Kong

(5) Establishment of Bayawan City's Waste Management and Ecology Centre: An Environmental.
Milestone. By Jouke D. Boorsma, German Development Service & Ion T. Bollos, Eric
O Torres, and Antonio S. Aguilar. Bayawan City, Negros Oriental. Date released: May
20, 2009. For more information, please feel free to contact the authors at: UEM office
Social Hall, Bayawan City Telephone: 035-5310743. Editing by Raul V. Abejuela,
CAO. Article from the homepage of the City of Bayawan: www.bayanwancity.gov.ph

(6) Eric O. Torres, Field Engineer Bayawan City, Philippines: Solid Waste Management in the
Philippines (powerpoint)

(7) Homepage of the City of Bayawan: www.bayawancity.gov.ph. See also projects under:
www.bayawancity.gov.ph/gpmrs

(8) draft Success Story SWM4LGUs, GIZ Office Manila. See under: www.giz.de/philippines as well as
project website: www.swm4lgus.net

(9) Raul V. Abejuela: BCWMEC: An Ecological Milestone, 2010. With photo credits to Ceros
Tiampong, CMO Bayawan City.
 Chapter 10 56

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