Water Issues in the Context of Sustainable Development
2nd APO WORLD CONFERENCE ON GREEN PRODUCTIVITY
DECEMBER 9-11, 2002
Edsa Shangri-la, Manila, Philippines
Dr. Alma Bella P. Madrazo
Director
Center for Engineering Research, Training & Consultancy
(CERTC)
De La Salle University
ISSUES RELATED TO WATER
• Inadequate supply of clean water.
– UAW
– Saline intrusion
• Structure of water governance
– Multiple agencies govern the water sector
• Sewerage Systems
– virtually non-existent outside Metro Manila area
• Water Pollution
– (domestic and industrial sources)
• Clean Water Act
The difficulties in meeting these challenges are formidable.
INADEQUATE SUPPLY OF CLEAN WATER
An adequate supply of clean water is an absolute prerequisite to the
provision of proper health care, nutrition, and
industrialization.
• Demand exceeds supply, particularly among the urban poor who pay
private vendors higher water rates (sometimes 10 times the price of
piped water)
• Lack of accurate water usage monitoring and the large amount of
“unaccounted-for-water” (UAW)
– Losses due to leaks in distribution pipes, inefficient metering, and poor
administration, all of which affect the quality and quantity of safe water
delivered to end users.
• Dramatic lowering of the water table and saline intrusion
– Uncontrolled installation of private deep wells and use of booster pumps
in more affluent residential areas.
Only Two out of Five Filipinos Have Piped Water
39
Philippines
23
Mindanao
50
Visayas
27
Balance of Luzon
82
Metro Manila
14
Rural
56
Urban
53
Rich
35
Middle
25
Poor
0
20
40
60
80
100
Percent of respondents with access to home-piped (Level III) water connections
Levels of Water Supply
• Level I – is a point source (without any piped
•
•
distribution), a spring or protected well serving
around 15 households within 25 meters.
Level II – is a piped system with community
faucets serving four to six households within 25
meters.
Level III – is a full waterworks system with
individual house connections.
– Only ¼ of the poor get water piped to their homes
Table 1. Urban Water Coverage &
Unaccounted-for-Water (UAW)
Country
Urban Water Access UAW
• Indonesia (Jakarta)
68%
53%
• Malaysia
96%
36%
• Philippines
85%
38%
• Singapore
100% 6%
• Thailand
87%
38%
• Vietnam
68%
50%
Source: ADB Second Water Utilities
Databook, 1997.
Structure of Water Governance
Governance of the Philippine water sector refers
to the range of political, social, economic, and
administrative systems used to regulate the
development and management of existing water
resources and provision of services.
Multiple agencies govern the water sector.
Government Agencies in the “Water Sector”
• NWRB – National Water Resources Board
• Responsible for policy formulation, administration, and
enforcement of the Water Code of the Philippines. It grants
permits for the extraction and sale of water.
• DPWH – Department of Public Works & Highways
• (for flood control and drainage). This has been recently
transferred to the Metro Manila Development Authority
(MMDA).
• DOH – Department of Health
•
• for sanitation
DENR - Department of Environment & Natural Resources
• Watershed protection and water quality
• DILG - Department of Interior and Local Government
• For local government-managed water supplies, sewerage, sanitation
systems, and capability building.
• NPC – National Power Corporation
• For hydropower development
Government Agencies in the “Water Sector”
• NIA – National Irrigation Administration and the
• BSWM – Bureau of Soils and Water Management
• For irrigation development
• MWSS – Metropolitan Waterworks and Sewerage System
• For water supply, sewerage, and sanitation in Metro Manila and its
environs; and
• LWUA – Local Water Utilities Administration
• for water district managed water supply and sewerage
systems
In addition to these existing agencies, the Philippine Congress is
considering additional legislation related to a Water Regulatory
Commission (WRC), a National Water Resources Commission
(NWRC), and a Water Resources Authority of the Philippines
(WRAP).
The WRAP would streamline the operations of existing agencies and
perhaps merge agencies involved in the water sector.
Structure of Water Governance
• With multiple government agencies managing
the water resources in the Philippines and
without good coordination, the “water sector” is
fragmented.
• Responsibilities overlap and sometimes conflicts
ensue among agencies.
• The CWA may help to correct the situation.
ISSUES RELATED TO WATER
• Adequate supply of clean water.
– UAW
– Saline intrusion
• Structure of water governance
– Multiple agencies govern the water sector
• Sewerage Systems
– virtually non-existent outside Metro Manila area
• Water Pollution
– (domestic and industrial sources)
• Clean Water Act
The difficulties in meeting these challenges are formidable.
Water and Sanitation in the
Philippines:
• Only about 65% of the residents in large urban
centers receive piped water, and most use open
drains, septic tanks and pit latrines to dispose of
liquid and human waste.
• As a result, public health is severely affected:
Gastro-intestinal illnesses and typhoid are
common among the urban poor, particularly
children.
Sewerage, Sanitation, and
Drainage
• Sewerage is virtually non-existent outside
the Metropolitan Manila area, thus most
residents rely on private solutions to
dispose of human and liquid waste, and
the use of open drains and poorly
constructed septic tanks pollute urban
areas and surrounding water bodies
Water Pollution
Relationship between polluted water and
disease has been firmly established for years.
Pollution of our water resources can occur
directly from sewer outfalls or industrial
discharges (point sources) or indirectly from air
pollution or agricultural urban runoff (non-point
sources).
ISSUES RELATED TO WATER
• Adequate supply of clean water.
– UAW
– Saline intrusion
• Structure of water governance
– Multiple agencies govern the water sector
• Sewerage Systems
– virtually non-existent outside Metro Manila area
• Water Pollution
– (domestic and industrial sources)
• Clean Water Act
The difficulties in meeting these challenges are formidable.
• Definitions:
– Municipal wastewater, also called sewage is a
complex mixture containing water (usually over 99%)
together with organic and inorganic contaminants,
both suspended and dissolved.
– The excreted waste from humans is called sanitary
sewage. Wastewater from residential areas, referred
to as domestic sewage includes kitchen, bath,
laundry, and floor drain wastes. These together with
the liquid wastes from commercial and industrial
establishments, are termed municipal wastewater.
Current Environmental
Status of Rivers and
Lakes in Metro Manila
PASIG RIVER
• Coliform content is
extraordinarily high
• Entire stretches of the
river has a dark, murky
color
•Islands of floating
garbage has encrusted the
water surface
•Sunken boats and
abandoned barges not
only make navigation
difficult but also hazardous
•Along with factories,
commercial establishments
and houses, colonies of
makeshift shanties lined
along stretches of the
riverbank
Pasig River Profile
• 26 km long
• 50 m wide
• 4-6 m deep
• The river basin
includes 8 cities and 3
municipalities, namely Pasig
City, City of Manila, Pateros, Caloocan
City, Marikina City, Pasay City,
Taguig, Quezon City, San Juan,
Mandaluyong City and Makati City
MAIN FEATURES
Aggregate Land Area
Basin Area
Lake Surface
Shoreline
Total Lake Volume
Average Depth
No. of Tributaries
Outlet of the Lake
:
:
:
:
:
:
:
:
382, 000 has.
472, 000 has.
90, 000 has.
220 sq. Km.
3.2 billion m3
water- 2.8 m
21 rivers
Pasig River
through Napindan
Channel
Biochemical Oxygen Demand
(BOD)
• Is the measured amount of oxygen required by
acclimated microorganisms to biologically
degrade the organic matter in the wastewater.
• BOD is the most important parameter in water
pollution control. It is used as a measure of
organic pollution, as a basis for estimating the
oxygen needed for biological processes, and as
an indicator of process performance.
SOURCES OF
WASTES
Table 1. Estimated total BOD load discharged into the Pasig River
(in metric tons per day)
BOD-load source
1990
1995
2000
2005
2010
Domestic sewage
119
138
168
206
252
Commercial & industrial
142
75
69
63
56
Solid waste
34
10
5
0
0
Total:
295
223
242
269
308
Source: "Pasig River BOD-load Assessment and Water Quality Projections," RRS 98 estimates, January 1999.
2015
308
51
0
359
Locally Funded Projects
Ongoing/Pipeline
•Master Plan for the Rehabilitation of the Pasig River
•Relocation, housing and resettlement of the 10,000
informal settlers along the Pasig River
•Restoration and redevelopment of historically and culturally
significant areas (Proposed)
ISSUES RELATED TO WATER
• Adequate supply of clean water.
– UAW
– Saline intrusion
• Structure of water governance
– Multiple agencies govern the water sector
• Sewerage Systems
– virtually non-existent outside Metro Manila area
• Water Pollution
– (domestic and industrial sources)
• Clean Water Act
The difficulties in meeting these challenges are formidable.
The Proposed
Clean Water
Act
DECLARATION OF
POLICIES
SD Framework
 Holistic National Program
 Integrated WQ Framework thru proper
delegation, effective coordination of functions
 Self regulation among industries thru MBIs
 Focus on pol. prevention rather than control
 System of accountability of adverse
environmental impacts
CWA Framework
Natl. Water Resources Status Report
Integ. WQ Improvement Framework
WQM Area Action Plans
Industrial
Domestic
Others
Nat’l Water Resources
Status Report
 Prepared & published by DENR, NWRB, etc.
w/in 12 mos. from the effectivity of the Act
 Report shall identify:
• Location of water bodies, existing/
potential uses
• Water quality & pollution sources
• Groundwater vulnerability map
• Water quality management areas
• Water classification
Integrated Water Quality
Improvement Framework
Official Blueprint of govt. agencies
 Water quality goals and targets
 Period of compliance
 Water pollution control strategies &
techniques
 IEC
 Human resources devt.
Water Quality Mgt. (WQM)
Area Action Plan







Goals & targets
Schedule of compliance
Water pol.control strategies & techniques
Public information & education campaign
Resource req. & possible sources
Enforcement procedures of the plan
Rewards & incentives
Establishment of Water
Quality Mgt. (WQM) Area
 LGUs with similar geographical,
meteorological conditions, etc., or
 LGUs which share common interest or face
similar dev’t. prog./problems
 Governed by a governing board:
- composed of reps. of mayors, governors,
relevant natl. govt. agencies, civil society, water
utility & business sector
 LLDA - one mgt. area
Mgt. of Non-attainment
Areas
 Where specific pollutants have already
exceeded water quality guidelines
 Program not allow new sources of
exceeded water pollutant
 If the pollutant is naturally occurring should
not exceed natural level
 Upgrade to its projected or potential use
 Contingency plans to relocation residents
within affected areas
National Sewerage &
Septage Mgt. Program
 DPWH, w/ the DENR, DOH etc. - prepare a
natl. prog. on sewerage & septage mgt.
 includes a priority listing of sewerage,
septage & combined sewerage-septage
proj. for LGUs based on relevant
considerations for the protection of water
quality
Cont.
 On the basis of the natl. listing, funds for the
const. & rehab of facilities may be allotted
 LGUs may enter into BOT or joint venture
agreement with pvt. sector for the const.,
rehab. and/or operation of sewerage treatment
or septage facilities
 LGU may raise funds to subsidize expenses
therefor thru local property taxes &
enforcement of a service fee system
Domestic Sewage
Collection, Treatment and
Disposal
 Subd., condo, malls, hotels, public bldg. etc.
including households in MM & other HUCs
shall connect their sewage line to other
available sewerage system or utilize their own
sewerage system
 For Non-HUCs - septage or combined
sewerage-septage management system shall
be employed
Cont.
 DOH, with other govt. agencies, shall
formulate guidelines for the
- collection, treatment and disposal of
sewage,
- and for the establishment & operation
of centralized sewage treatment system.
Water Pollution Charge
System
 Based on the total waste load
 Water pollution charges consideration:
 strong economic inducement
 cost of administering water quality
management or improvement programs
 damages caused by water pollution on
the surrounding environment
Discharge Permits
 For : owners/operators of facilities that
discharge regulated water pollutants
 Required Permit Info, among others:
 quantity and quality of effluent
 compliance schedule
 monitoring requirement.
 permit to discharge shall be
renewable every 3 years
 Effluent trading - allowed per mgt. areas
Financial Liability for
Envt’l. Rehabilitation
 Envt’l. guarantee fund (EGF) as part of EMP
 finance the needs of emergency response,
clean-up/rehabilitation of areas damaged
 Liability for damage shall continue even
after the termination of a program or project
 may be in the form of a trust fund envt’l.
insurance, surety bonds, letters of credit,
self-insurance & any other instrument
Incentives
a) Rewards for outstanding and innovative
projects, technologies, processes and
techniques in water quality management
b) Incentive scheme
1. Fiscal incentives
i) Tax and duty exemption on imported
capital equipment
 w/in 10 yrs.
 for industrial wastewater treatment/
collection & treatment facilities
 subject to conditions
Prohibited Acts
1.
2.
3.
Depositing material of any kind w/c could
cause water pollution or impede natural
flow in the water body
Discharging, injecting or allowing to seep
into the earth any substance that would
pollute groundwater
Operating facilities that discharge regulated
water pollutants without the valid required
permits
Fines and Penalties
Any person who commits any of the prohibited
acts or violates any provision of this Act
Fine
- P25T – P100T/ day of violation
- subject to the PAB discretion
Gross Violation - Imprisonment - 6 to 10 years
deliberate discharge of toxic substances
3 or more violations of any of the prohibited
acts w/in 2 yrs
 blatant disregard of PAB order


Water Quality Mgt. Fund
Sources:
- Fine, damages, fees
- Donations, endowments and grants
Purpose:
- To finance containment, clean-up operations,
restoration & rehabilitation of affected areas
- Support research, enforcement, monitoring
- Provide technical assistance, info, rewards
and incentives
Salient Features of the Clean Water Act
• To promote a system of policy coordination and
•
•
cooperation among LGUs, water quality
management areas or “river basisn” shall be
formed, each with a governing board.
Establishment of a national baseline
groundwater vulnerability zoning as guide in the
protection of groundwater from contamination
from pollutants.
Requirement for sewage generators in highly
urbanized cities HUCs, a septage or combined
sewerage-septage management system shall be
employed.
Salient Features of the Clean Water Act
• Establishment of effluent standards based on categories of point
sources. Existing industries which fail to comply with such
standards shall be allowed a grace period of 1 to 2 years for the
establishment of an EMS, including compliance schedule.
• Implementation of water pollution charge system based on
“polluters pay” principle. The fee shall be based on the total waste
load and other factors.
• For new projects which are subjected to EIA System, a financial
guarantee instrument sahll be required to finance emergency
response, clean-up or rehabilitation of affected areas, should
pollution incident clearly attributable to the project occurs.
• Establishment of Water Quality Management Fund to finance
containment and clean-up operations of government, research,
capability-building, enforcement and monitoring other expenses.
Primary Aspects of the CWA
For the first time, national legislation will focus on
land-based point sources of pollution.
• Nationalize a system of discharge permits,
granting permissions to industry for the use of
surface waters (lakes, rivers, etc). This will be
based on the “polluter pays” principle.
• Creation of “Water Quality Management” areas
responsible for all water and water users within
their jurisdictions.
INSTITUTIONAL LINKAGES
Others
PCG
LLDA
DOH
DPWH
Congressional Oversight Committee
Civil Society
LLDA
WQMA Board
Tech.Sec
DENR
WQMA Board WQMA Board
Tech.Sec
Tech.Sec
Observations
- gathered through informal interviews with industries
throughout the Philippines
• Discharge Permits
– Those operating under the Laguna Lake Development
Authority (LLDA) supervision are more comfortable
with how the Environmental User’s Fee system works
• System has been pilot tested by LLDA
– Based on BOD
• Under the CWA, coverage would include other
•
parameters aside from the BOD
The CWA in effect will have more stringent
requirements.
WHAT IS THE
ENVIRONMENTAL USER FEE
SYSTEM?
• It is a fee that is paid for the amount of pollution
•
•
•
that one discharges into Laguna Lake;
It is composed of a fixed fee and a variable fee;
The fixed fee will cover the administrative cost
of implementing the environmental user fee
system;
The variable fee will depend on the volume and
concentration of the wastewater discharge.
HOW IS THE FEE COMPUTED?
Total Annual User’s Fee = Fixed Fee + (Variable Fee X Total Annual BOD in Kg)
The variable fee is as follows:
FEE
VOLUME OF WASTEWATER DISCHARGE
P 15, 000
>150 cu. m /day
P 10, 000
between 30 and 150 cu. m/day
P 5, 000
<30 cu. m /day
• P 5.00 per kilogram of total BOD, when BOD
•
Concentration is <50mg/l
P 30.00 per kilogram of total BOD, when the BOD
Concentration is 50mg/l
The formula in getting the Total Annual BOD in Kilogram is:
Total Annual BOD = CBODm X Qm X d X 10-3
where:
CBODm = average concentration BOD5 (mg/L)
Qm = daily wastewater discharge (m3/day)
d = number of discharging days per year
10-3 = conversion factor (m3/L/kg/mg)
Water Quality Management Areas
• This would mean that within each ecological
•
sub-watershed, institutions – industries,
barangays, churches, schools, and other
institutions – would have to coordinate their use
and discharge of water according to national
standards.
WQM areas might receiving an allocation of
effluent quotas, meaning – a limit to the
pollution that will be permitted within each
watershed. This has potential to lead to a
system of “trading permits”.
• Hopefully, the new WQM areas will
address current disputes between local
water districts and those who draw water
from independent wells without paying
any sort of fee for the use of the resource.
ISSUES RELATED TO WATER
The reasons why advances in the technology of water treatment and
supply have not been applied in LDCs are both financial and
institutional.
Present water supply systems in developed countries evolved slowly in
an environment where the capital resources for their installation and
maintenance were not a major problem.
This is not possible in poorer countries that must quickly install capitalintensive water treatment and distribution systems to meet the
demand for clean water by an exponentially growing population.
Barriers in implementing water supply and
wastewater treatment projects:
• Financial Barrier – lack of funds or no funds to even
provide “low cost solutions tailored fit to local needs”.
• Institutional Barrier –adequate funding does not also
guarantee success of a project. Large scale modern
water supply facilities have gone unused because of a
lack of skilled personnel to maintain them.
Finally,
• Many observers remain skeptical about CWA’s
potential for success.
• Some say that the CWA has no real component
to ensure strict enforcement of industrial
pollution standards.
• While it may establish new rules and additional
layers of bureaucracy, the CWA continues to
avoid the fundamentals of monitoring and
enforcement.
This has to be addressed to ensure that this CWA
will facilitate a more productive and
sustainable use of water.