GUIDANCE ON THE DEVELOPMENT OF A ROADMAP FOR MANAGING PLASTIC WASTE AND REDUCING NON-RECYCLABLE SINGLE-USE PLASTICS IN THE PHILIPPINES Guidance on the Development of a Roadmap for Managing Plastic Waste and Reduction of Non-Recyclable Single-use Plastics in the Philippines Copyright 2024 © by International Bank for Reconstruction and Development / The World Bank 1818 H Street NW, Washington DC 20433 Telephone: 202-473-1000, Internet: www.worldbank.org This work is a product of staff at The World Bank with external contributions. The findings, interpretations, and conclusions expressed in this work do not necessarily reflect the views of The World Bank, its Board of Executive Directors, or the governments they represent. The World Bank does not guarantee the accuracy, completeness, or currency of the data included in this work and does not assume responsibility for any errors, omissions, or discrepancies in the information, or liability with respect to the use of or failure to use the information, methods, processes, or conclusions set forth. The boundaries, colors, denominations, and other information shown on any map in this work do not imply any judgment on the part of The World Bank concerning the legal status of any territory or the endorsement or acceptance of such boundaries. Nothing herein shall constitute or be construed or considered to be a limitation upon or waiver of the privileges and immunities of The World Bank, all of which are specifically reserved. Citation: World Bank. 2024. “Guidance on the Development of a Roadmap for Managing Plastic Waste and Reduction of Non-Recyclable Single-use Plastics in the Philippines.” Washington, DC: World Bank. Rights and Permissions The material in this work is subject to copyright. Because The World Bank encourages dissemination of its knowledge, this work may be reproduced, in whole or in part, for noncommercial purposes as long as full attribution to this work is given. Any queries on rights and licenses, including subsidiary rights, should be addressed to World Bank Publications, The World Bank Group, 1818 H Street NW, Washington, DC 20433, USA; fax: 202-522-2625; e-mail: pubrights@worldbank.org. Cover photos: (top) iStock/laughingmango; (bottom) Shutterstock/Gigira. Further permission required for reuse. GUIDANCE ON THE DEVELOPMENT OF A ROADMAP FOR MANAGING PLASTIC WASTE AND REDUCTION OF NON-RECYCLABLE SINGLE-USE PLASTICS IN THE PHILIPPINES CONTENTS EXECUTIVE SUMMARY....................................................................................................................................XIII 1. INTRODUCTION...............................................................................................................................................1 1.1 The Plastic Waste Problem in the Philippines...............................................................................................................................................1 1.2 Methodology and Approach....................................................................................................................................................................... 2 1.3 Structure of the Report............................................................................................................................................................................... 3 2. BACKGROUND: PLASTIC AND WASTE MANAGEMENT – PHILIPPINES............................................................5 2.1 Solid and Plastic Waste Generation and Collection.................................................................................................................................... 5 2.2 Municipal Solid Waste Segregation, Collection, Treatment, and Disposal................................................................................................ 7 2.3 The Informal Waste Sector......................................................................................................................................................................... 8 2.4 Financing Waste Management ................................................................................................................................................................. 9 2.5 Plastic Resins, SUPs, and Alternatives .....................................................................................................................................................10 3. CURRENT SECTOR STRATEGY – PLASTIC AND SOLID WASTE MANAGEMENT...............................................13 3.1 Institutional Arrangements and Responsibilities ......................................................................................................................................13 3.2 Forthcoming Regulations on Plastic Waste..............................................................................................................................................15 3.3 Strategies for Plastic and Waste Management.........................................................................................................................................16 4. BARRIERS IN PLASTIC WASTE MANAGEMENT ............................................................................................. 19 4.1 Policy and Institutional Barriers ................................................................................................................................................................19 4.2 Analytical and Infrastructure Barriers ..................................................................................................................................................... 23 4.3 Financial and Funding Barriers ............................................................................................................................................................... 23 4.4 Data and Information Barriers ................................................................................................................................................................. 25 5. THE PHILIPPINE PLASTIC WASTE MANAGEMENT ROADMAP........................................................................ 27 5.1 Roadmap – Rationale................................................................................................................................................................................ 27 5.2 Roadmap – Goal and Outcomes..............................................................................................................................................................29 5.3 Roadmap – Actions.................................................................................................................................................................................. 32 5.4 Roadmap – Proposed Institutional Set-up............................................................................................................................................... 45 5.5 Roadmap – Key Stakeholders’ Engagement........................................................................................................................................... 48 5.6 Roadmap – Funding Sources................................................................................................................................................................... 52 5.7 Roadmap Implementation: Monitoring, Evaluation, Reporting, and Verification..................................................................................... 54 5.8 Strategic Alignment with On-going Efforts to Improve Plastic Waste Management...............................................................................56 6. CONCLUSION...............................................................................................................................................59 BIBLIOGRAPHY ...............................................................................................................................................60 ANNEXES ........................................................................................................................................................65 Annex A: Key Plastic Resins and Single-use Plastics in the Philippines........................................................................................................65 Annex B: Actions and Timelines for the Plastic Waste Management Roadmap ........................................................................................... 68 Annex C: Proposed Institutional Set-up: Philippine Plastic Waste Management Roadmap .......................................................................... 71 Annex D: Stakeholder Consultations Conducted in Preparing the SUP Roadmap........................................................................................ 74 Annex E: External Evaluations of the Roadmap’s Implementation................................................................................................................ 75 iv | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines LIST OF FIGURES Figure E.1. The Philippine Plastic Waste Management Roadmap and its outcomes.................................................................................... xv Figure 2.1. Percentages for the main sources of waste in the Philippines................................................................................................... 5 Figure 2.2.Top 10 most common plastic items within, and on the banks of the Pasig River........................................................................ 6 Figure 2.3. Percentages for the top 10 plastic items within, and on the banks of the Pasig River.............................................................. 6 Figure 2.4. Waste collection coverage across different areas in the Philippines..........................................................................................7 Figure 3.1. Most relevant national provisions on waste and plastic waste, with descriptions.................................................................... 14 Figure 3.2. Summary of Proposed Bills on Plastics and their Target Groups (19th Congress of the Philippines)....................................... 15 Figure 3.3. The National Plan of Action for the Prevention, Reduction, and Management of Marine Litter up to 2040............................ 16 Figure 3.4. Overview of the most relevant recent national strategies related to plastic production, consumption, and disposal; the leading institutions; their implementation timeframes; and their main objectives..................................................................................... 17 Figure 5.1. Key Steps in formulating the Philippine Plastic Waste Management Roadmap........................................................................ 28 Figure 5.2. The Philippine Plastic Waste Management Roadmap and its outcomes................................................................................. 30 Figure 5.3. Outcomes and Milestones of the Philippine Plastic Waste Management Roadmap................................................................. 31 Figure 5.4. Short-term Actions (2023–2028, and beyond) – The Philippine Plastic Waste Management Roadmap.................................34 Figure 5.5. Medium-term Actions (2023–2034, and beyond) in the Philippine Plastic Waste Management Roadmap............................ 38 Figure 5.6. Long-term Actions (2023–2040, and beyond) – The Philippine Plastic Waste Management Roadmap................................. 40 Figure 5.7. Potential interactions among government agencies in implementing the Philippine Plastic Waste Management Roadmap..................................................................................................................................................................................................... 49 Figure 5.8. Proposed Monitoring, Evaluation, Reporting, and Verification (MERV) Framework – Philippine Plastic Waste Management Roadmap............................................................................................................................................................................... 55 LIST OF TABLES Table 5.1. Summary of the Barriers and Gaps in Plastic Waste Management............................................................................................. 29 Table 5.2. Thematic Approach – Philippine Plastic Waste Roadmap: Addressing the Barriers..................................................................44 Table 5.3. Government institutions’ potential roles and responsibilities in implementing the Philippine Plastic Waste Management Roadmap............................................................................................................................................................................... 46 Table 5.4. Expected impacts of phasing out of SUPs on stakeholders across the plastic value chain – Philippine Plastic Waste Management Roadmap................................................................................................................................................................................ 51 Table 5.5. Potential funding and financing options for implementing the Roadmap................................................................................. 54 Table 5.6. The most relevant and recent national strategies expected to impact plastic production, consumption, and disposal; the leading agency; and the implementation timeframe........................................................................................................................... 58 Table A.1. Uses for various plastic resins, and their recyclability in the Philippines....................................................................................67 LIST OF BOXES Box 4.1. Implementation of standards to improve plastic waste management and promote eco-design................................................. 20 Box 4.2. Extended producer responsibility examples................................................................................................................................. 21 Box 4.3. Examples of international best practices for integrating informal workers into solid waste management................................. 22 Box 4.4. Singapore’s example of public-private partnerships for waste collection................................................................................... 24 Box 4.5. Examples of best practice waste management information systems.......................................................................................... 25 Box 5.1. Examples of plastic waste management in island countries with major tourist industries ...........................................................43 List of Figures | v CURRENCY EQUIVALENT Currency Unit – Philippine Peso (₱) ₱1.00 = $0.0184 $1.00 = ₱54.418 Note: As of January 26, 2023 – Source: Bloomberg.com In this report, “$” refers to United States dollars. vi | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines ACKNOWLEDGEMENTS The publication describes a timebound Roadmap for Managing Plastic and Phasing-out Single Use Plastics to support the Goal of Zero Plastic Waste Pollution by 2040 in the Philippines, based on analysis of current plastic and waste management practices in the country. The development of this publication was coordinated by the World Bank’s Environment, Natural Resources, and Blue Economy Global Practice, with funding from the World Bank Group. The team responsible for preparing this publication, led by Junu Shrestha (Senior Environmental Specialist) and Agnes Chung Balota (Senior Environmental Specialist), included the core members: Reynar Rollan (Solid Waste Management Consultant), Hubert Jenny (Technical Consultant), Hyunji Roh (Environmental Consultant), Mercy Amai Emojong (En- vironmental Specialist), and Rea Uy Epistola (Consultant). Özgül Calicioglu (Environmental Engineer), Benan Berhan (Plastic Policy Consultant), and Mahama Samir Bandaogo (Economist) contributed to the supporting analytical work on alternatives to plastic products and plastic-related fiscal policies. Ann Bishop (Technical Editor) and Sarah Hollis (Designer) played essential roles in the final editing and design. Operational support was provided by Venessa Vaishali Sarkar (Program Assistant). The preliminary research and consultations were conducted by the consulting firm Environmental Agency Austria in collaboration with the University of the Philippines, involving Francesca Montevecchi and Mikhail Asenov (Environment Agency Austria); Ma. Brida Lea Diola and Maria Antonietta Tanchuling (University of the Philippines). The team expresses gratitude for the valuable advice provided by the peer reviewers, including Sameer Akbar (Senior Environmental Specialist), Helena Naber (Senior Environmental Specialist), and Jiang Ru (Senior Environmental Specialist). Additional comments were received from Ashraf El-Arini (Senior Environmental Specialist) and Kate Almora Philp (Environmental Engineer). Anjali Acharya (Senior Environmental Specialist) contributed strategic guidance to the study. Overall, the study received guidance from Ndiamé Diop (Country Director for Brunei, the Philippines, Malaysia, and Thailand) and Mona Sur (Practice Manager, Environment, Natural Resources, and Blue Economy Global Practice). The study team would like to extend their special thanks to the private and public sector stakeholders in the Philip- pines who generously dedicated their time to this study. This includes the following government agencies and their representatives: Department of Environmental and Natural Resources; National Solid Waste Management Commission; National Ecology Center; Climate Change Commission, Department of Finance; Department of Trade and Industry; Department of Science and Technology; Department of Health; Department of Labor and Employment; Department of Tourism; Department of Interior and Local Government; and selected Local Government Units. Acknowledgements | vii LIST OF ABBREVIATIONS AND ACRONYMS 3Rs Reduce, Reuse, and Recycle AASC Auditing and Assurance Council ADB Asian Development Bank BOC Bureau of Customs BOI Board of Investments BSMED Bureau of Small and Medium Enterprise Development CCC Climate Change Commission CHED Commission on Higher Education DA Department of Agriculture DBP Development Bank of the Philippines DENR Department of Environment and Natural Resources DepEd Department of Education DILG Department of the Interior and Local Government DND Department of National Defense DOF Department of Finance DOH Department of Health DOLE Department of Labor and Employment DOST Department of Science and Technology DOT Department of Tourism DTI Department of Trade and Industry DTI-BPS Department of Trade and Industry-Bureau of Philippine Standards EBD Environmental and Biotechnology Division EMB Environmental Management Bureau ENRO Environment and Natural Resources Office EPR Extended producer responsibility EPS Expanded polystyrene ETV Environmental Technology Verification EU European Union GAA General Appropriations Act GAIA Global Alliance for Incinerator Alternatives GEF Global Environment Facility GHG Greenhouse gas GIZ Deutsche Gesellschaft für Internationale Zusammenarbeit HB House Bill HDPE High-density polyethylene HLAs High-level Actions HORECA Hotel, restaurant, and catering (sector) viii | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines IEC Information, education, and communication (campaigns) IFC International Finance Corporation IPO Intellectual Property Office IRA Internal Revenue Allotment IRR Implementing Rules and Regulations ISO International Organization for Standardization ITDI Industrial Technology Development Institute (of DOST) JICA Japan International Cooperation Agency KfW Kreditanstalt für Wiederaufbau. LBP Land Bank of the Philippines LCA Life cycle assessment LDIP Local Development Investment Program LDPE Low-density polyethylene LLDPE Linear low-density polyethylene LGC Local Government Code LGU Local government unit M&E Monitoring and evaluation MDFO Municipal Development Fund Office MMDA Metropolitan Manila Development Authority MNC Multinational company MRF Material recovery facility MSD Materials Science Division MSMEs Micro, small, and medium enterprises MSW Municipal solid waste MT/Y Metric tons per year NCR National Capital Region NDC Nationally Determined Contribution NEAP Non-environmentally acceptable product NEC National Ecology Center NEDA National Economic and Development Authority NGO Nongovernmental organization NPOA-ML National Plan of Action for the Prevention, Reduction and Management of Marine Litter NRH National Recycling Hub NSWMC National Solid Waste Management Commission NSWMF National Solid Waste Management Fund NSWMS National Solid Waste Management Strategy O&M Operations and maintenance ODA Official development assistance PAP4SCP Philippine Action Plan for Sustainable Consumption and Production PARMS , Inc. Philippine Alliance for Recycling and Materials Sustainability​ PCIEERD Philippine Council for Industry, Energy, and Emerging Technology Research and Development PCX Plastic Credit Exchange PDP Philippine Development Plan List of Abbreviations and Acronyms | ix PET Polyethylene terephthalate ₱ Philippine peso PIA Plastic Industries Association PNB Philippine National Bank PP Polypropylene PPA Programs, projects, and activities PPIA Philippine Plastics Industry Association PPP Public-private partnership PPPDD Policy, Planning, and Program Development Division PRO Producer responsibility organization PS Polystyrene PTD Packaging Technology Division PVC Polyvinyl chloride PWCs Public waste collectors R&D Research and development RA Republic Act rHDPE Recycled high-density polyethylene rPE Recycled polyethylene rPET Recycled polyethylene terephthalate rLDPE Recycled low-density polyethylene rPOY Recycled partially oriented yarn rPP Recycled polypropylene rPSF Recycled polyester staple fiber S&T Science and technology SCP Sustainable consumption and production SLF Sanitary landfill facility SME Small and medium enterprise SPI Society of the Plastics Industry SRF Solid refuse fuel SUP Single-use plastic SWM Solid waste management SWMB Solid Waste Management Board SWMD Solid Waste Management Division SWMO Solid Waste Management Office SWMP Solid Waste Management Plan TESDA Technical Education and Skills Development Authority TWG on CE, SCP, Technical Working Group on the Circular Economy, Sustainable Consumption and Production, and SUPs and Single-use Plastics UK United Kingdom ULAP Union of Local Authorities of the Philippines UNDP United Nations Development Programme UNFCCC United Nations Framework Convention on Climate Change UN-Habitat United Nations Human Settlements Programme x | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines US United States USAID United States Agency for International Development $ United States dollar VA Voluntary Agreement VBMF Volume-based Waste Fee WCS Waste Charge System WWF World Wildlife Fund List of Abbreviations and Acronyms | xi Photo: Shutterstock EXECUTIVE SUMMARY The growing plastic waste problem in the Philippines Plastic waste has become a serious threat in Southeast Asia because of its adverse environmental, health, and economic impacts. Single-use plastics (SUPs) are a major concern in countries such as the Philippines due to SUPs’ extensive use and significant production, which has resulted from economic growth, increasing availability, and consumers’ desire for convenience. In 2019, Filipinos used more than 163 million plastic sachets, 48 million shopping bags, and 45 million thin-film bags (GAIA 2019). Of the estimated 1.7 million metric tons (MTs) of post-consumer plastic waste generated in the Philippines every year, 33 percent is deposited in landfills and dumpsites, and 35 percent is discarded on open land. A significant amount leaks into waterways and the ocean (WWF Philippines, Cyclos GmbH, and AMH Philippines 2020). The government of the Philippines has adopted several important measures to combat the negative impacts of mismanaged plastic waste. The principal law governing plastic waste management is the Ecological Solid Waste Management Act of 2000 (Republic Act No. 9003), which is supplemented by the Philippine Development Plan (PDP) 2023–2028; the Extended Producer Responsibility Act of 2022 (Republic Act 11898); and the ordinances passed by ​ egulate the use of plastic bags and expanded at least 489 of the country’s 1,634 local government units (LGUs) to r polystyrene. In addition to these legal instruments, the government developed the National Plan of Action for the Prevention, Reduction, and Management of Marine Litter (NPOA-ML), which has the goal of achieving Zero Waste to Philippine Waters by 2040. However, despite these strong measures, plastic waste pollution continues to be a serious problem across the Philippines. The World Bank, in response to a request from the government of the Philippines, developed this Roadmap to pave the way for attaining the goal of Zero Plastic Waste Pollution by 2040. Background on Plastic and Solid Waste Management in the Philippines In consultation with stakeholders, an assessment of the plastic and solid waste sector revealed gaps and barriers regarding: (1) policy and institutions, (2) analytical and infrastructure, (3) finance and funding, and (4) data and information. With regard to policy, important laws that promote the reduction of plastic consumption and the adoption of eco- designed alternatives have yet to be passed, and the laws that have been passed still need to be implemented. The committed participation of both the private sector and consumers is crucial for reducing plastic consumption and waste generation, as well as the adoption of eco-designed alternatives. As the current Philippine industry-led initiatives on the Circular Economy primarily target recycling or substituting plastic products with other single-use products, these initiatives need to be complemented with reductions in consumption. Enforcement also needs to be improved for the industry-specific collection and take-back requirements that apply to the significant amounts of plastic materials that are reaching their end-use. xiii The low waste collection rate achieved by the LGUs to SLFs, and to the related disposal services mandated and barangays can be partially attributed to their limited by the law. Currently, the infrastructure available in the institutional capacity and financial resources to implement Philippines for the collection and recovery of recyclables, the requirements of RA 9003. While SWM collection and recycling, and disposal are not sufficient to cope with the management is a basic service that the LGU needs to increasing generation of plastic and solid waste in the provide, many still need to establish a local Environment and country. Thus, the social and behavioral change and the Natural Resources Office (ENRO) with adequately trained availability of financing for the technologies that recyclers staff who can effectively oversee solid waste management. use needs to improve. The need for adequate facilities for carrying out waste The LGUs need more effective cost-recovery mechanisms collection and treatment is substantial in metropolitan areas for waste management. The limited funds from the in the Philippines, and even more so in remote and under- National Tax Allotment, the fees charged to commercial developed areas. RA 9003 requires that all barangays, or establishments, and the penalties imposed for waste clusters of barangays, establish a material recovery facility violations are not enough to pay for acquiring and (MRF), which is the primary formal infrastructure for the maintaining solid waste management (SWM) equipment recovery of recyclables. In 2021, within Metro Manila, a and facilities, training SWM staff, and paying staff salaries. mere 20 percent of barangays had operational MRFs, while the national average stood at approximately 44 percent. Currently, there is no systematic method in place in the This deficiency significantly impedes the proper retrieval Philippines for the collection and presentation of data at of recyclable materials from municipal solid waste. the local, regional, or national levels on waste generation, collection, treatment, and disposal. Furthermore, critical As the LGUs are unable to segregate and collect all of their data on buyers, sellers, recyclables, and pricing for recycled solid waste, the informal waste sector, which comprises plastics; the extent of littering and marine pollution; suitable individuals, families, groups, and small and medium-sized alternatives to the SUPs specific to the Philippines; and enterprises (SMEs), plays a crucial role in the recovery the adverse impacts of plastic consumption, are notably of waste materials for recycling, either on a full-time or scarce, and not readily accessible for the public. part-time basis. While no comprehensive, national-level assessment has been conducted regarding the number, capacity, and spatial distribution of the junk shops1 involved The Roadmap in recovery for recycling, estimates suggest that they handle To address the identified gaps and barriers in plastic approximately 28 percent of the waste diverted from waste management in the Philippines, a Roadmap has landfills in the Philippines (NSWMC 2009). These informal been developed that provides a systematic and detailed establishments are estimated to process up to 50 percent of sequence of Actions, Milestones, and Outcomes for relevant all the plastic materials collected for recycling (World Bank government agencies and other key stakeholders to follow 2021). The average collection ratio for municipal solid waste in supporting the reduction of non-recyclable SUPs, and in the Philippines is low, at about 40 percent; however, the improving waste management. This Roadmap uses a rate varies significantly across different regions, depending phased, evidence-based, and holistic approach to address on their socio-economic conditions. Metropolitan areas SUP pollution along the plastic value chain, from SUPs’ have the highest collection rates (above 90 percent), production, through their consumption, to their collection, whereas 3rd to 6th class municipalities,2 including those and recycling or disposal. The Roadmap also proposes in developing and remote areas, have collection rates Actions to close the gaps in plastic waste management in below 30 percent. the Philippines, and progressively decrease plastic pollution. Data available on the National Solid Waste Management Thus, the Roadmap is intended to help the country move Commission (NSWMC) website show that 22,638 MTs of toward a more Circular Economy, while providing better waste are deposited, daily, in 279 functioning sanitary plastic waste management. Also, the Roadmap’s Actions landfills (SLFs). These SLFs provide services for 567 of the have been carefully crafted, prioritized, and timed based 1,634 LGUs in the Philippines. These statistics show that on consideration of stakeholders’ current capacities, but approximately two-thirds of the LGUs in the Philippines the Actions also anticipate that stakeholders’ capacities (1,067 of them), are not complying with RA 9003. This non- will improve over the Roadmap’s three six-year terms. This compliance is likely a result of these LGUs’ lack of access strategic approach will be based on policy assessments, evaluation of implementation, and consultations with stakeholders. 1 In the Philippines, small recovery for recycling centers known as “junk shops” buy recyclables from individual garbage collectors and resell them to bigger aggregators and processing plants. Given the evident problem of plastic waste leakage in the Philippines, as well as the long-standing, unaddressed 2 Municipalities are divided into income classes that are based on their aver- age annual income over the previous four calendar years: 1st class: at least weaknesses in current waste collection, segregation, and Philippine pesos (₱) 55 million; 2nd class: ₱45–55 million; 3rd class: ₱35–45 recycling systems, the Roadmap places significant emphasis million; 4th class: ₱25–35 million; 5th class: ₱15–25 million; and 6th class: less than ₱1 million. on tackling these downstream problems within the plastic xiv | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines value chain. From the outset, the Roadmap prioritizes urban As shown in Figure E.1, below, the Roadmap provides three areas because more than half of the country’s waste is strategic pathways of overlapping and time-bound target generated in urban areas, and with their better solid waste Outcomes. These Outcomes will be attained through a set management systems, urban areas will be better able to of Actions and Milestones that need to be implemented implement the Roadmap’s Actions. over three six-year terms—the first of which is from 2023 to 2028. All of the interrelated Actions start in 2023, and As noted above, it is expected that more complex strategies, they are expected to continue beyond their time-bound which require advanced technical skills, capacity, and Milestones so that they carry on their efforts to achieve and regulatory systems will be implemented at later stages in sustain the Roadmap’s goal of Zero Plastic Waste Pollution the Roadmap‘s timeline. This sequencing of increasingly by 2040. Thus, after the Milestones for short-term Outcome complex Outcomes over the stages of the Roadmap is 1—Plastic Leakage Pathways Closed—have been achieved expected to progressively reduce waste leakage, gradually in 2028, its Actions are expected to continue. Similarly, increase recycling rates, and continuously improve the for mid-term Outcome 2—Plastic Recycling Enabled—the design of plastic products. Additionally, the Roadmap’s implementation of its Actions should continue after its Actions are attuned to the realities of waste management in Milestones have been achieved in 2034. For long-term the country. For example, the developers of the Roadmap Outcome 3—Demand for Plastics Managed and Products recognize the indispensable role played by the informal Designed for Circularity by 2040—its Actions, which start waste sector in separating, collecting, and recycling at various times, and end in 2040, are based on achieving plastic waste; and, thus, the Roadmap includes Actions the required prerequisites. The synergy achieved through to integrate and support the informal sector in the LGUs’ the Roadmap’s interlinked Actions is expected to result in solid waste systems. The Roadmap also aims to enhance significant improvements in plastic waste management, and the institutional capacity of the LGUs to manage waste to help realize the Roadmap’s 2040 goal in a sustainable collection and treatment. manner. FIGURE E.1. THE PHILIPPINE PLASTIC WASTE MANAGEMENT ROADMAP AND ITS OUTCOMES 1. CLOSING PLASTIC LEAKAGE PATHWAYS 2. ENABLING PLASTIC RECYCLING 3. MANAGING PLASTIC DEMAND 2023-2028 ZERO PLASTIC WASTE 2023-2034 POLLUTION 2023-2040 2040 Executive Summary | xv As discussed below, a set of Actions will be taken to reach the combined Milestones that lead to achieving the targeted Outcomes of the Roadmap. Short-term Actions and Milestones: Outcome 1—Plastic Leakage Pathways Closed by 2028 The short-term Actions presented below are expected to contribute to achieving Outcome 1— Plastic Leakage Pathways Closed by 2028. This success is expected to be realized through enhancing the LGUs’ waste collection and recovery processes. Achieving the Outcome of stopping plastic leakage into the environment at the collection, recycling, and disposal stages of the LGUs’ SWM systems requires successfully carrying out the Actions for the following five Milestones: Actions Milestones Outcome A1.1.1. Strengthen the regulatory framework to r ​ educe non- recyclable SUPs through enforcing existing and new regulations on SUPs, plastics, and SWM A1.1.2. Enforce the ​ provisions of the EPR Law Non-Recyclable SUPs are Reduced A1.1.3. Increase the waste management capacity of selected (M1.1) priority sectors such as tourism A1.1.4. Develop understanding of the distributional impacts of SWM and plastic policies, laws, and regulations, and how to minimize negative impacts A1.2.1. Audit LGUs’ waste collection systems to identify facilities that could be the focus for short- and medium-term Actions for increasing recovery A1.2.2. Conduct an audit to develop an inventory of the existing MRFs, recycling facilities, and sanitary landfill sites A1.2.3. Improve plastic and solid waste collection, including Plastic Recovery from Existing procuring waste collection vehicles Facilities is Increased (M1.2) A1.2.4. Train SWM facility staff on O&M to improve their performance in ​recovery or recycling plastic waste A1.2.5. Conduct feasibility studies to plan investments for Plastic Leakage designing and constructing additional MRFs, recycling facilities, and regional SLFs Pathways Closed by 2028 A1.3.1. Enact the laws that support the ​ reduction of non-recyclable SUPs: the SUP Bag Tax Act, the SUP Product Registration Act, and the Plastic Labeling Act Complementary SWM Legislation is A1.3.2. Amend Section VIII of RA 9003’s IRR in the NSWM Enacted (M1.3) Framework to raise awareness about plastic waste, its impacts, and sustainable alternatives A1.4.1. Design a database on plastic recovery and recycling National Database on Recycling and A1.4.2. Publish data on waste collection, recovered recyclables, SWM is Set Up and Operationalized processed biodegradables, disposed of waste, and recycled (M1.4) plastic A1.5.1. Survey LGUs and the private sector regarding the waste Technical Guidelines on a Cost- collection fees they charge businesses recovery Mechanism for Plastics A1.5.2. Prepare technical guidelines on cost-recovery and SWM are Adopted and Enforced mechanisms for plastic waste management (M1.5) xvi | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines Medium-term Actions and Milestones: Outcome 2—Plastic Recycling Enabled by 2034 The medium-term Actions presented below are expected to deliver Outcome 2—Plastic Recycling Enabled by 2034. This Outcome is expected to be realized through creating an enabling environment for plastic recycling in the Philippines and fulfilling the following three Milestones. Actions Milestones Outcome A2.1.1. Build the capacity of the LGUs with staff training on how to prepare feasibility studies A2.1.2. Establish new centralized MRFs,​recovery or recycling facilities, and regional SLFs LGUs’ Capacity to Carry A2.1.3. Establish a local SWM Office in each LGU, as authorized by the national LGU SWM Plan Out Plastic and Solid Waste Management is Developed (M2.1) A2.1.4. Develop O&M standards for MRFs, and an operations manual for barangays’ SWM Committees A2.1.5. Increase staff in the SWM Division of the DENR-EMB, and improve their technical capacity A2.2.1. Prepare guidelines for the recognition, integration, and / or support of informal workers, including interventions for those displaced in the LGUs’ SWM system Plastic Recycling Informal Sector is Integrated into Enabled by 2034 A2.2.2. Issue minimum technical operating standards for junk shops the LGUs’ SWM Systems (M2.2) A2.2.3. Pilot SWM projects that promote the integration of informal workers A2.3.1. Develop national standards for the quality of plastic recyclates Production of Good Quality A2.3.2. Increase the capacity of recycling facilities Plastic Recyclates is Increased A2.3.3. Establish a plastic certification scheme for plastic (M2.3) recyclers Long-term Actions and Milestones: Outcome 3—Demand for Plastics Managed and Products Designed for Circularity by 2040 The long-term Actions are expected to deliver Outcome 3—Demand for Plastics Managed and Products Designed for Circularity by 2040. These Actions start at various times, and are expected to build on the achievement of the short- and medium-term Outcomes. These include enhancement of the design of plastic products, the incorporation of advanced technologies to manage plastic waste, and progressively shifting toward achieving full plastic circularity. Outcome 3 is expected to be realized through fulfilling the following three Milestones: Actions Milestones Outcome A3.1.1. Conduct life cycle assessments to identify options for eco-designs, eco-labeling, and alternatives to SUPs, in the short Measures for Eco-design, Eco- term labeling, SUP Alternatives, and A3.1.2. Develop and issue guidelines for compliance on eco- Green Public Procurement that design and Green Public Procurement, in the medium term Promote Plastics’ Circularity are A3.1.3. Initiate on-product and on-packaging information about Adopted and Enforced (M3.1) proper plastic waste disposal, as a long-term Action Demand for Plastics A3.2.1. Define standards and guidelines to implement the EPR Managed and Law, in the short term Products Designed Private Sector is Engaged in A3.2.2. Assist micro, small, and medium enterprises to participate for Circularity by Plastic Reduction and Waste in an EPR program, in the medium term 2040 Management (M3.2) A3.2.3. Negotiate voluntary agreements with the private sector on eco-design, in the long term Executive Summary | xvii Actions Milestones Outcome A3.3.1. Develop and implement a communication strategy on plastic waste management A3.3.2. Conduct feasibility studies to implement energy recovery Support for Nurturing In-country technologies that adhere to the environmental laws and other Innovation and Incentivizing relevant policies Demand for Plastics Information Exchanges is Managed and A3.3.3. Establish a National Recycling Hub (NRH) to support Strengthened (M3.3) Products Designed partnerships, and share information among the Roadmap’s diverse stakeholders for Circularity by 2040 In addition to the primary Actions and Milestones for each and evaluation (M&E) systems to assess their outcomes, pathway in the Roadmap, High-level Actions (HLAs) have and provide reports to the NSWMC. External evaluations been formulated that cut across the three Outcomes to could be conducted in 2028, 2034, and 2040 to validate support and facilitate the implementation of the Roadmap. the overall progress made in implementing the Roadmap. Under HLA1, the government agencies carrying out the These evaluations would entail comparing the Roadmap’s Roadmap’s Actions would regularly monitor and evaluate technical and economic outcomes with its baseline data, the Roadmap’s Actions, and report on the results. Under while also considering its non-quantifiable and indirect HLA2, to facilitate the LGUs’ access to funding sources, consequences. Based on these external evaluations, government procedures would be improved to simplify the potential adjustments to the Roadmap’s Actions and requirements and guidelines for loan and grant applications. Milestones could be recommended. Under HLA3, a Stakeholders’ Engagement Plan would be initiated to assist with the overall implementation of the The task of managing plastic waste effectively and r​ eduction Roadmap; define the principles for the communication of non-recyclable SUPs in the Philippines is daunting, but it strategy on plastic waste management; and assess how is attainable. Through the effective collaboration of national various SWM regulations impact different populations, and government agencies, local governments, the private the responses needed to minimize any negative impacts. sector, informal workers, nongovernmental organizations, and consumers, the Roadmap will be a powerful tool for Throughout the duration of the Roadmap, the governmental achieving a future that is free from plastic waste pollution. entities responsible for the execution of the prescribed Actions are expected to utilize their internal monitoring xviii | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines 1. INTRODUCTION 1.1 The Plastic Waste Problem in the Philippines Plastic waste has become a serious threat in Southeast Asia because of its adverse environmental, health, and economic impacts. Single-use plastics (SUPs) are of particular concern due to their widespread use and substantial volume. In the Philippines, as a result of changing consumption patterns and the growing economy, the country has been experiencing a rise in the use of SUPs. In 2019, the Global Alliance for Incinerator Alternatives (GAIA) reported that on a daily basis, Filipinos used more than 163 million plastic sachets,3 48 million shopping bags, and 45 million thin-film bags (GAIA 2019). About 1.7 million metric tons (MTs) of post-consumer plastic waste are generated in the Philippines every year. About 33 percent of this goes to landfills and dumpsites; around 35 percent is dumped on open land, and often burned, which produces toxic smoke; and a significant amount of plastic waste leaks into waterways and the ocean (WWF Philippines, Cyclos GmbH, and AMH Philippines 2020). The Philippine government has adopted several important measures to combat the negative impacts of plastic waste. These are intended to promote sustainable economic growth, while at the same time reduce the consumption of plastic products. The principal policy governing plastic waste management is the Ecological Solid Waste Management Act of 2000 (Republic Act 9003), which is supplemented by the Philippine Development Plan (PDP) 2023–2028; the Extended Producer Responsibility Act of 2022 (Republic Act 11898); and the ordinances that have been passed by at least 489 of the country’s 1,634 local government units (LGUs) to ban or regulate the use of plastic bags and expanded polystyrene, which is used for take-away cups and food containers. The government’s most relevant strategy concerning plastic waste management is the National Plan of Action for the Prevention, Reduction, and Management of Marine Litter (NPOA-ML), which was adopted in 2021 through a memorandum prepared by the Department of Environment and Natural Resources (DENR 2021). The goal of the NPOA-ML is achieving Zero Waste to Philippine Waters by 2040, and government agencies, including the LGUs, are responsible for implementing the NPOA-ML’s policies. However, despite the Philippines’ strong measures to combat plastic waste pollution, it continues to be a serious problem across the Philippines. Since plastic waste is a component of solid waste, improving plastic waste management requires improving solid waste management, overall. The significant factors that contribute to the growing leakage of SUPs into the environment in the Philippines are the lack of reusable plastic products; inadequate collection and separation of waste at its source; and inadequate recycling, waste treatment, and waste disposal facilities and operations. A roadmap that assigns a precise and detailed sequence of Actions, Milestones, and Outcomes to relevant government agencies is needed to support the ​reduction of non-recyclable SUPs, improve waste management, and contribute to achieving the goal of Zero Plastic Waste Pollution by 2040. This Roadmap must align with the Philippines’ waste and 3 Sachets are small packages of shampoo, liquid soap, instant coffee, and other personal and household products. 1 waste management laws, regulations, and strategies, and extended producer responsibility (EPR), provides be appropriate for the country, given its level of plastic guidance for national and local decision-makers in the waste management and financial resources. Philippines on how to design and implement effective and affordable EPR systems to improve plastic waste The World Bank, in response to a request from the management. Philippine government, crafted this Roadmap, to pave the way for attaining the goal of Zero Plastic Waste Pollution 1.2 Methodology and Approach by 2040. It assigns a systematic and detailed sequence of Actions, Milestones, and Outcomes to relevant government The formulation of the Roadmap was undertaken with the agencies and key stakeholders to support the r ​ eduction following three steps: of non-recyclable SUPs and improve waste management. 1. Gathering, processing, and analyzing information to Due to the environmental, economic, and public health identify gaps and barriers in the Philippines’ strategies threat of mismanaged, the World Bank has made reducing and plans related plastic waste management, in solid waste and plastic waste pollution a worldwide priority. particular, and solid waste management (SWM), in At both regional and national levels, the World Bank general; provides analytical, policy, and capacity development support, as well as institutional strengthening, partnerships, 2. Developing strategies and action plans to address the and investments to improve solid waste and recycling barriers and gaps in plastic waste management; and infrastructure (World Bank 2018a). 3. Using a consultative approach to design and improve Since 2018, the World Bank has conducted activities to the Roadmap through holding public consultations reduce marine plastics in East Asia and the Pacific, in with stakeholders. general, and specifically in Association of Southeast Asian Nations (ASEAN) countries, including the Philippines. In the Under the first step, an assessment was conducted to Philippines, the World Bank has conducted the following determine the baseline for plastic waste management- studies to support the government’s efforts to reduce related information in the Philippines. The sources for marine plastics: this comprised reports and data on waste management in the Philippines; current and anticipated legislation; • Philippines: Plastic Diagnostics, Field and Remote scientific literature on plastics and plastic pollution; field Sensing, River Monitoring, and Microplastics studies on plastic pollution; and consultations with relevant Assessments (2023c). This study used images recorded stakeholders in government, private enterprise, financial with drones and field surveys to identify the top 10 institutions, nongovernmental organizations (NGOs), and plastic items floating in the Pasig River. international development agencies. • Market Study for the Philippines: Plastics Circularity Information for the Roadmap was gathered across the Opportunities and Barriers (World Bank Group 2021b): plastic value chain: This study looked at the entire plastic value chain in the Philippines to identify challenges and opportunities to • The upstream stage focused on activities related achieve circularity in managing plastic waste. to plastics’ production (alternative materials and • Reducing Plastic Waste in the Philippines: An substitutions), as well as packaging and product design Assessment of Policies and Regulations to Guide (redesigned solutions). Country Dialogue and Facilitate Action (World Bank • The midstream stage focused on the logistics of plastics’ Group 2022c): This study analyzed policy options to delivery from wholesalers to retailers, to the consumers reduce, reuse, and recycle plastics, and stimulate the who use plastic products for various purposes. development of alternatives for priority plastic items. • The downstream stage focused on the end-of-life stage • An Assessment of Municipal Solid Waste Plans, of plastics to minimize their negative environmental Collection, Recycling, and Disposal of Metro Manila (World Bank 2021a): This study assessed SWM in and public health impacts. Metropolitan (Metro) Manila, and it identified the priority Understanding all of the stages in the plastic value chain investments to make in Metro Manila’s LGUs. is essential for achieving the Roadmap’s goal of Zero • Combating the Plastic Waste Crisis in the Philippines: Plastic Waste Pollution by 2040. However, given the Implementing Extended Producer Responsibility with extent of plastic waste leakage into the environment in Lessons Learned from Korea (World Bank 2023a): This the Philippines, in developing the Roadmap, the midstream study, which distilled the lessons learned in Korea over and downstream stages were prioritized. Improvements in 20 years of effectively reducing the littering of plastic managing plastic waste at these two stages are expected waste, and increasing recycling though implementing to achieve the greatest results in the short term, while at the 2 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines Given the extent of plastic waste leakage into the environment in the Philippines, in developing the Roadmap, the midstream and downstream stages were prioritized. Improvements in managing plastic waste at these two stages are expected to achieve the greatest results in the short term. same time, this would prepare for improving the production The discussions with stakeholders achieved agreement of plastics and alternatives at the upstream stage. about the current status, barriers, and gaps in plastic waste The plastic value chain and effective SWM are closely management, and on the Actions, Milestones, Outcomes, linked. This combination is a key success factor for and Goal for the Roadmap. Among the topics discussed with addressing the negative environmental and public health stakeholders were the reduction of non-recyclable SUPs, impacts of plastic waste, and capitalizing on its socio- and the related processes and impacts; the development economic potential through recycling and recovery. This can of alternatives to SUPs and the markets for these; the reduce the reliance on virgin plastics, conserve resources, promotion of research and innovation on eco-design; the promote circularity (the reuse and regeneration of materials readiness of relevant sectors to implement various elements and products), and create business and employment of the Roadmap; and multi-sectoral perspectives on EPR. opportunities. Following the World Bank team’s assessment, they 1.3 Structure of the Report organized the information for the Roadmap into crucial focus areas: the status of waste management and recycling; the types of plastic waste, including the most polluting This report on the Roadmap is organized into five sections SUPs; current and proposed legislation, regulations, and and five annexes. Following this first Section, which institutional setups, including the roles and responsibilities introduced the plastic waste problem in the Philippines, of the relevant government agencies; plans, policies, and and the methodology used to develop the Roadmap, regulations concerning plastic products and plastic waste; Section 2 presents an assessment of plastic and solid the mobilization of finance for waste management, in waste management in the Philippines. general, and plastic waste, in particular; alternatives for SUPs and their potential negative impacts; current initiatives Section 3 assesses the current sector strategies for related to the production of plastics, and to plastic waste plastic and solid waste management in the Philippines by management; key stakeholders; and the expected impact examining the institutional arrangements and the upcoming of plastic-related policies. legislation on plastics and SWM. Section 4 summarizes As noted above, as part of the initial assessment, the results of stakeholder consultations that were held to consultations were held with various stakeholders to get identify the gaps and barriers in the waste management their inputs for the Roadmap. These stakeholders included sector, and Section 5 presents the Roadmap and provides the Climate Change Commission (CCC); Department of recommendations on how to overcome these barriers in Environment and Natural Resources (DENR); Department waste and plastic waste management. of the Interior and Local Government (DILG); Department of Finance (DOF); Department of Science and Technology The report is supported by five annexes: Annex A discusses (DOST); Department of Tourism (DOT); Department of Trade the key types of plastic resin used in the Philippines, their and Industry (DTI); the LGUs through their respective uses, and the extent of their recycling; Annex B presents leagues (League of Cities of the Philippines, League of the Roadmap’s proposed Actions, lead stakeholders, Municipalities of the Philippines, and League of Provinces of supporters, funding sources, and timelines; Annex C on the Philippines); the National Economic and Development the institutional set up for the Roadmap describes the Authority (NEDA); National Solid Waste Management roles of the different government agencies that would Commission (NSWMC); House of Representatives be involved in implementing the Roadmap, including the Committees on Climate Change and on Ecology; Senate LGUs; Annex D discusses the consultations that were held Committee on Environment, Natural Resources, and Climate Change; and relevant international development agency, with stakeholders in developing and refining the Roadmap; NGO, and industry groups, including the Philippine Alliance and Annex E discusses the three external evaluations that for Recycling and Materials Sustainability (PARMS), Inc., should be conducted to validate the internal monitoring and the Philippine Plastics Industry Association (PPIA), Inc. and evaluation that the government agencies implementing the Roadmap would undertake. 1. Introduction | 3 Photo: Shutterstock/MDV Edwards 2. BACKGROUND: PLASTIC AND WASTE MANAGEMENT – PHILIPPINES 2.1 Solid and Plastic Waste Generation and Collection The Philippines is an archipelago of more than 7,600 islands, which is subdivided into 17 regions, 81 provinces, 1,634 LGUs (cities and municipalities), and 146 chartered cities. Based on reports provided by local governments, there are significant differences in the amount of waste generated and collected across the country. On average, the amount of waste generated, per capita, per day, is 0.4 kilograms (kg) (DENR 2018). In 2022, this resulted in total waste generation of approximately 21.4 million metric tons (NSWMC 2022a). Some 10.55 percent of municipal solid waste (MSW), or about 2.1 million metric tons, per year (MT/Y), is recyclable plastic—polyethylene terephthalate (PET) bottles and high-density polyethylene (HDPE) containers. Recyclable waste does not include SUPs such as sachets and plastic bags, which are considered residual waste. As indicated in Figure 2.1, more than half of the waste generated in the Philippines comes from residential sources (DENR 2018). FIGURE 2.1. PERCENTAGES FOR THE MAIN SOURCES OF WASTE IN THE PHILIPPINES Industrial 4.1% Institutional 12.1% Other Commercial 8.8% Residential 56.7% Market 18.3% Source: Department of Environment and Natural Resources 2018 5 A study on plastic packaging waste in the Philippines (WWF wrappers, straws, and noodles/seasoning packaging (see Philippines, Cyclos GmbH, and AMH Philippines 2020) Figure 2.2). Almost two-thirds (63 percent) of plastic litter revealed that 760,000 MT, or 35 percent of all plastic waste, comprised plastic packaging with no tangible market value, leaks into the environment, and only 9 percent is recycled. and these items are incompatible with standard recycling A World Bank study (World Bank 2021c) found that the top processes (Figure 2.3). 10 plastic items of litter within, and on the banks of the Pasig River comprised polystyrenes (PS) and expanded The National Capital Region (NCR), Metro Manila, and PS pieces,4 sando bags (single-use carrier bags), labo nearby Calabarzon collectively make up 25% of the bags (flimsy bags without handles), snack wrappers, drink 2020 population5 of the Philippines and generate about containers, PET bottles, diapers/sanitary napkins, candy 32 percent of the waste produced in the country.6 If the FIGURE 2.2.TOP 10 MOST COMMON PLASTIC ITEMS WITHIN, AND ON THE BANKS OF THE PASIG RIVER Polystyrenes (PS) and expanded PS pieces 21.21% Sando bags (single-use carrier bags) 14.81% Labo bags (flimsy bags without handles) 14.75% Snack wrappers 13.48% Drink containers 9.92% PET bottles 6.18% Diapers/sanitary napkins 5.82% Candy wrappers 5.30% Straws 4.63% Noodles/seasoning packaging 3.91% 0.00% 5.00% 10.00% 15.00% 20.00% 25.00% Source: World Bank 2021c FIGURE 2.3. PERCENTAGES FOR THE TOP 10 PLASTIC ITEMS WITHIN, AND ON THE BANKS OF THE PASIG RIVER HDPE OTHER PET 3.15% 1.53% PVC 5.21% 0.02% PP 9.52% MULTILAYER 37.69% PS 17.89% LDPE 24.99% Source: World Bank 2021c 4 EPS is a thermal insulator used both for preserving and transporting animal protein (such as fish). SUPs with EPS include food boxes and single-use plastic cups, and especially cups for hot beverages. With improper disposal, EPS tends to break down into smaller pieces that are light enough to float on water. 5 According to the Philippine Statistics Authority’s 2020 Census, the region of Calabarzon was the most populous one in the country, with more than 14.4 million inhabitants. This was followed by the National Capital Region (NCR) with 13.5 million inhabitants. After the NCR, Calabarzon was the country’s second most densely populated region (Philippine Statistics Authority 2021). 6 NSWMC (National Solid Waste Management Commission (nd) Projected Waste Generation from 2020 to 2025. https://app.powerbi.com/view?r=eyJrIjoiNjc4OTE2OT- ktMDdhMC00YzM1LTkwMjEtYWUxMDIyMjI0MWMwIiwidCI6ImY2ZjRhNjkyLTQzYjMtNDMzYi05MmIyLTY1YzRlNmNjZDkyMCIsImMiOjEwfQ%3D%3D&pageName=Re- portSection&fbclid=IwAR264Sfm3ocnSBovLnpGgdSKXljXQeGAx9JpZIxcAS3YyV4voqVpHzPTBNw 6 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines Philippines’ population increases at the current rate, the must plan to divert at least 50 percent of their waste. country could generate 23.6 million MT of waste by 2025.7, 8 Consistent with the Local Government Code (LGC), RA The average collection ratio for municipal solid waste in 9003 assigns the LGUs with the primary responsibility to the Philippines is low, at about 40 percent. As shown in implement and enforce the segregation and collection Figure 2.4, this ratio varies significantly across different of MSW at the barangay level.11 This applies specifically regions, depending on their socio-economic conditions.9 to biodegradable, compostable, and reusable wastes. The collection of non-recyclable materials and special Metropolitan areas have higher collection rates (above 90 wastes remains the responsibility of the LGUs. The section percent), whereas 3rd to 6th class municipalities, including that follows focuses on the status of MSW segregation, those in developing and remote areas, have collection collection, treatment, and disposal related to plastic waste. rates below 30 percent (WWF Philippines, Cyclos GmbH, and AMH Philippines 2020).10 RA 9003 requires that all barangays, or clusters of barangays, establish a material recovery facility (MRF), which is the primary formal infrastructure for the recovery 2.2 Municipal Solid Waste Segregation, of recyclables. The MRFs would then sell the materials they Collection, Treatment, and Disposal recover to junk shops, which would sort, pack, and sell the recyclables to consolidators or recycling companies. Republic Act 9003 provides the necessary policy However, not all barangays have established an MRF framework, institutional mechanisms, and mandate to because they lack the necessary space and financing. In enable the LGUs to significantly reduce their solid waste Metro Manila, in 2021, only 20 percent of the barangays by developing and implementing integrated SWM plans operated an MRF, while nationally, this figure rose to about that are based on the 3Rs (Reduce, Reuse, and Recycle). 44 percent. Centralized MRFs process waste from a group To have their SWM plans approved by the National Solid of LGUs and nearby barangays, and in Metro Manila, there Waste Management Commission (NSWMC), the LGUs are 13 of these facilities. Along with recovering recyclables, FIGURE 2.4. WASTE COLLECTION COVERAGE ACROSS DIFFERENT AREAS IN THE PHILIPPINES Tourism Areas Metro Cities Quantity variable >1,000 Tons per Day Collection: 80-90% Collection: 90-95% Remote Areas PHILIPPINES Highly Urbanized Cities <50 Tons per Day 500-1,000 Tons per Day Collection: 10-15% WASTE GENERATION Collection: 80-89% & COLLECTION Developed Areas Emerging Cities & 50-150 Tons per Day Municipalities Collection: 15-50% 150-500 Tons per Day Collection: 50-80% Source: WWF Philippines, Cyclos GmbH, and AMH Philippines 2020 7 This projection did not include the impact of the COVID-19 pandemic, which was expected to increase the use of plastics for take away food and personal protective and medical equipment (face masks and shields, gloves, sanitizers, respirators, syringes, and related equipment). 8 The projected amount for waste generated is likely to be an underestimate as it does not take into account the results of the latest waste analysis and characteri- zation study, and the increase in the region’s gross domestic product. All of these factors contribute to higher, per capita, waste generation (World Bank 2021a). 9 Waste collection coverage identifies the percentage of the population that is served by waste collection services. 10 Municipalities are divided into income classes that are based on their average annual income over the previous four calendar years: 1st class: at least Philippine pesos (₱) 55 million; 2nd class: ₱45–55 million; 3rd class: ₱35–45 million; 4th class: ₱25–35 million; 5th class: ₱15–25 million; and 6th class: less than ₱1 million. 11 The barangay is the smallest administrative division in the Philippines. 2. Background: Plastic and Waste Management – Philippines | 7 these centralized MRFs also carry out the composting of 2.3 The Informal Waste Sector waste (World Bank 2021a). Most suppliers of locally-recycled plastic resins in the As the LGUs are unable to segregate and collect all their Philippines are small and medium enterprises (SMEs), solid waste, informal waste pickers play a crucial role and the majority are located within Metro Manila.12 This in separating, collecting, and recycling plastics in the means that the Philippines has little recycling capacity Philippines. Informal collectors voluntarily work in MSW outside of Manila. The recycling technologies used for to recover recyclables, and this allows local governments plastics comprise: (i) electric plastic densifiers with a to save on the time and resources they spend on waste capacity of 4 kg/day (for polyethylene (PE) plastic bags); collection and disposal. (ii) plastic shredders for soft plastics such as plastic bags The National Solid Waste Management Strategy (NSWMS) and sachets; (iii) plastic extrusion to flakes or pellets for 2012–2016 (NSWMC 2011) refers to the informal waste molders; and (iv) pyrolizers for the thermal processing of sector as “individuals, families, groups, or SMEs engaged industrial plastic waste. A World Bank study carried out in the recovery of waste materials, with revenue generation in 2019, estimated that the Philippines recycles only 28 as the motivation, either on a full-time or part-time basis. percent of its crucial plastic resins (World Bank 2021b).13 Members of this sector are classified as itinerant waste As a result, “78 percent of the material value of plastics is buyers, jumpers at collection trucks, garbage crew, waste lost to the Philippine economy each year, and the market reclaimers, and small and illegal junkshops.” Even though failure for plastics recycling leads to a plastic material value no national-level formal assessment has been conducted loss of $790–$890 million, per year (WWF Philippines, of junk shops’ number, capacity, and spatial distribution, Cyclos GmbH, and AMH Philippines 2020).”14 An increase these are estimated to handle 20 percent of the Philippines’ in recycling capacity, and in the availability of recycling diverted waste (NSWMC 2009), and process up to 50 technologies is necessary to boost the Philippines’ recycling percent of all of the plastic materials collected for recycling ratio. (World Bank 2021b). Most junk shops are concentrated in Data on the NSWMC website show that 22,638 MTs of highly urbanized areas such as Metro Manila, where there waste are deposited, daily, in 279 operational sanitary are at least 1,268 of them (World Bank 2021a). landfills (SLFs). These disposal facilities serve 567 out of The informal waste sector only collects plastic resins with the Philippines’ 1,634 LGUs, which in 2022, was about higher market value (2023). These comprise polyethylene one-third of all the LGUs.15 These figures indicate that about terephthalate (PET), polypropylene (PP), and high-density two-thirds of Philippine LGUs (1,067) do not comply with RA polyethylene (HDPE). The high-value plastic waste collected 9003 as they lack access to, and the services of, sanitary by junk shops is sold to larger consolidators or brought to landfills. As of 2019, about 489 LGUs (fewer than 30 percent recycling plants in the larger provinces such as Cebu (World of all the cities and municipalities in the Philippines) had Bank 2021c). As the informal sector does this trading, no passed ordinances banning or regulating the sale and use comprehensive data are available on the quantities and of plastic bags and expanded polystyrene (EPS) foam. The types of plastic traded, and their respective value. Although primary objective of these bans is preventing pollution under RA 9003, waste picking and unauthorized waste and the clogging of waterways that can cause flooding.16 segregation activities are prohibited due to the health In Barangay Nagerong, Lazi City, and the Visayas Islands, and safety hazards inherent with this work, thousands small convenience stores (sari-sari shops) are prohibited of informal workers have no alternative as they lack the from using plastic packaging for their products. In 2013, education and job opportunities to do anything else. As the city of Santa Rosa in Laguna Province initiated and their work is prohibited, these key SWM stakeholders gradually implemented a “no plastic policy,” which included have no legal rights. SUPs and Styrofoam. Metropolitan Manila Development Authority (MMDA) Regulation N° 99-009 (the Anti-Littering Law) also prohibits the littering/dumping/throwing of garbage, rubbish, or any other waste in open public places. 12 As data were not systematically collected, the actual numbers could differ. 13 Polyethylene terephthalate (PET), excluding PET polyester, polypropylene (PP), high-density polyethylene (HDPE), and linear low-density polyethylene/low-density polyethylene (LLDPE/LDPE). 14 The significant difference between the two recycling rates—9 percent and 28 percent—may, to some extent, be explained by the different methodologies used in the studies. The World Bank looked at key resins (World Bank 2021b), whereas the estimations of the World Wildlife Fund and its co-authors were based on applications and materials (WWF Philippines, Cyclos GmbH, and AMH Philippines 2020). 15 NSWMC (National Solid Waste Management Commission). n.d. “Operational Sanitary Landfill: Actual Waste Received (Tons Per Day) By Operator/Project Name.” 16 Among these LGUs are the cities of Muntinlupa, Quezon, and Pasig in Metro Manila, and the municipalities of Los Baños, Laguna, Burgos, Ilocos Sur, and San Marcos, in Isabela Province. 8 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines 2.4 Financing Waste Management technologies, and processes to enhance SWM; (b) awards; (c) incentives; (d) research programs; (e) information, In the Philippines, the funding sources for capital education, communication campaigns, and monitoring investments and the operation of the LGUs’ waste activities; (f) technical assistance; and, (g) capacity-building management systems are: activities. However, as of mid-2023, no SWM Funds had been established as no guidelines for these had been 1. Fiscal transfers from the central government to the issued. LGUs that occur through the National Tax Allotment (NTA): In accord with the LGC of the Philippines (RA Through the Mandanas Ruling of 2018, the LGUs are 7160), the allocation of funding is based on an LGU’s expected to receive a more significant share of the population and land area. The NTA is set at 40 percent revenues collected through national taxes, which they of all the national taxes collected over three years prior could then employ to fund waste management (World to the current year. Bank 2021d).18 The National Tax Allotment and other local resources could cover the cost of providing the services 2. The LGUs’ revenues from taxes, fees, and charges and facilities enumerated in the LGC, but since the LGUs such as property and business taxes, licensing fees, can designate this budget for any activity they choose and so on, which go into the LGU’s General Fund: In (public health, education, and so on), there is no guarantee accord with the LGC and RA 9003, the LGUs can also they will allocate the money for waste management, in collect payments from their constituents for services general, and plastic waste, in particular. The LGUs clearly rendered such as waste collection and management, need more funding than what they currently spend on but data analyzed for the Roadmap show that only a waste management. few LGUs collect SWM fees. In addition to official development assistance, another The funds for SWM projects are derived from 20 percent of financing option for an LGU is a public-private partnership the annual NTA provided to the LGUs. The amount allocated (PPP). This is a financing vehicle that can be used by either for SWM depends on the priorities of the respective LGU. national government agencies or LGUs, and it has the As a result, the SWM systems of the LGUs are limited following key characteristics:19 to basic waste collection, their collection vehicles and MRFs are poorly maintained, and disposal takes place • Public assets—PPPs deliver public goods, assets, and in marginally operated sites. Lack of funds also restricts services by bundling the provision of public assets the LGUs’ ability to construct and operate the required (new or existing ones) with associated services for a material recovery and recycling facilities. specific period. According to RA 9003, the LGUs are required to impose • Long-term contractual arrangement—PPPs that provide waste collection fees on the commercial establishments that financing for infrastructure or services are typically for cannot operate their own SWM system. Although residential a long period (10 to 30 years). areas produce the bulk of solid waste (56.7 percent), very few LGUs impose waste collection fees in residential areas • Private investment—PPPs can mobilize private and (DENR 2018). Data on the revenues generated through the commercial finance to pay the upfront capital costs imposition of fines for violating local SWM ordinances are for infrastructure. not available, but such payments are likely to be minimal • Risk transfer—Responsibilities and risks are shared due to the LGUs’ inadequate implementation of national equally between the public and private partners. and local SWM regulations. • Performance-based contract —PPP contracts are Other financing mechanisms for waste management are performance-based and output-based, rather than anticipated under RA 9003, which prescribes establishing input-based. Thus, a PPP links remuneration of the a SWM Fund financed by fines, penalties, grants, donations, private operator to its performance, and penalties are and the annual General Appropriations Act (GAA).17 This charged for poor performance or failing to deliver the fund, which could catalyze broad-based, large-scale required services. SWM interventions, could cover (a) products, facilities, 17 The General Appropriations Act (GAA) is annual financing allocated by the Philippine Congress in specific amounts for salaries, wages, and other personnel benefits; maintenance and other operating expenses; and capital outlays for the implementation of all programs/projects and activities in government departments, bureaus, and offices. All agencies and offices prepare annual estimates for their expenditures and submit this to Congress. 18 The Mandanas Ruling of 2018 adjusted the LGUs’ share from national taxes to include the collection (customs duties) from the Bureau of Customs. The revenue allotment of the LGUs is expected to increase by 27.6 percent, which is equivalent to 1.03 percent of the Philippines’ gross domestic product (GDP). In line with the Mandanas Ruling, Executive Order No. 138, Series of 2021 was issued, which requires that by 2024, the national government agencies (NGAs) fully devolve the functions identified in the 1991 LGC and succeeding laws. The DENR environmental services related to SWM that have been devolved to the LGUs include the enforcement of the pollution control law (Provinces); the solid waste disposal system or environmental management system (Cities/Municipalities); and solid waste collection services and facilities (Barangays). 19 Adapted from the World Bank’s 2017 publication, Public-Private Partnerships: Reference Guide, Version 3. 2. Background: Plastic and Waste Management – Philippines | 9 2.5 Plastic Resins, SUPs, and Alternatives • Single-use, compostable plastic: Plastic products made from resins with better environmental performance could In 2015, the four plastic resins—low-density polyethylene be considered as alternatives. For instance, SUPs could (LDPE), high-density polyethylene (HDPE), polypropylene be produced by substituting one resin with another (PP), and polyethylene terephthalate (PET)—comprised that is in higher demand on the recycling market, 80 to 93 percent of all plastic resins consumed in the and that is less likely to be littered. In the Philippines, Philippines (WWF Philippines, Cyclos GmbH, and AMH the production of compostable plastic is limited, and Philippines 2020). Polyvinyl chloride (PVC) and polystyrene comprises only a small proportion of the commercially (PS) comprised the remaining 7 to 20 percent (World Bank available packaging. In addition, there is no facility for 2021b). The information on using various resins and their exclusively treating compostable plastic. recyclability is discussed in Annex A. Compostable and biodegradable products could be The Philippines produced about 900,000 MT of HDPE/ suitable; however, many of these products require special LDPE, PP, and PVC in 2019. Domestic demand for these conditions and temperatures for decomposition. If these critical resins was only about 34 percent. Due to the lack products are not collected, properly, and industrially of local capacity to produce PET resins, the Philippines processed, they are not biodegradable, they behave like is highly dependent on imports. As a result, starting in plastic, and they can contribute significantly to littering. 2021 (World Bank 2021b), the country planned to increase domestic capacity to produce virgin resins by at least In considering alternatives, it is essential to evaluate the 360,000 MT (250,000 MT of HDPE/LDPE and 110,000 MT information available on the impacts of a product throughout of PP). Reduction of low-value and hard-to-recycle plastics its life cycle (Government of Canada 2021). A comparative requires the introduction of suitable and environmentally life cycle analysis of plastic carrying bags and single-use sustainable alternatives. Some of the alternatives to SUPs paper bags in the Philippines, which was conducted for include: the Department of Science and Technology, showed that • Multi-use, reusable, and refillable products: These the plastic bags were more environmentally friendly than durable products, which can be reused multiple times, paper bags with regard to global warming, acidification, include water dispensers, bulk dispensers for dry food, human toxicity, and photochemical ozone creation (Biona refillable dispensers for soap and detergent, and et al. 2015). reusable cutlery and cups. Consumer inconvenience The World Bank’s Plastic Substitution Tradeoff Estimator20 and lack of hygiene standards and regulations, including was used in the Philippines to compare the impacts of 10 adequate water supply and wastewater management major plastic products with up to four potential substitutes are the most significant barriers to the widespread use for each one, and the results of this comparison are of these products. presented in a supplement to this report—”External Costs of • Single-use, non-plastic alternatives: These are typically Common Plastics and Alternatives in the Philippines.” The made from materials such as starch, paper, bamboo, Estimator provided an External Cost Analysis, which was banana leaves, and palm leaves. These can be sourced developed by quantifying and monetizing the effects that domestically, but there are concerns related to s ​ helf substituting an alternative for a plastic product would have life and potential contamination and this is especially on societal and environmental welfare. The key findings of the case with products used for food packaging. the Estimator’s analysis in the Philippines were as follows: The Philippines produced about 900,000 MT of HDPE/LDPE, PP, and PVC in 2019. Domestic demand for these critical resins was only about 34 percent. Due to the lack of local capacity to produce PET resins, the Philippines is highly dependent on imports. As a result, starting in 2021, the country planned to increase domestic capacity to produce virgin resins by at least 360,000 MT (250,000 MT of HDPE/LDPE and 110,000 MT of PP). 20 The Plastic Substitution Tradeoff Estimator is an innovative tool that can inform target setting by estimating the external costs of 10 plastic products and their alter- natives across their lifespan. The model can identify which materials, or a combination of them, will perform best in different circumstances. The Estimator can also assess the trade-offs between plastics and their alternatives to help establish targets for reduction and substitution (Arri and Peszko 2022). 10 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines • Substituting single-use PET beverage bottles 100 percent with alternatives such as reusable glass bottles and reusable PP bottles could achieve almost 100 percent improvement in the environmental footprint of the SUP bottles. • Of the options, the best alternative to single-use EPS beverage cups and food containers is multi-use PP. • Reusable LDPE bags that have a lifespan of 44 uses, nominal external costs, and a nominal environmental footprint are the best alternative to shopping/carrier bags. • Multi-use chromium steel utensils are an alternative that has the least monetized external cost when compared to single-use, bio-based PP, and single-use disposable wood utensils. Some environmentally conscious customers take re-usable utensils with them when they are planning to eat take-out food. • A multi-use PET/PE/PP container, which is used as a replacement for a food wrapper, has the lowest external cost and the best environmental impact when compared with an aluminum foil or single-use bio-LDPE wrapper. The use of aluminum foil or a PET/PE/PP container may result in food spoiling more quickly than if it is wrapped with PVC. • Refillable PET/PE/PP containers offer a better alternative to sachets, although the feasibility of achieving 100 percent substitution depends on government policy and consumers’ willingness. • Reusable glass bottles are the most suitable alternative to multi-material (plastic laminated) beverage cartons. Interpreting the results from the Plastic Substitution Tradeoff Estimator, and determining the most suitable alternative/s for a product, requires expert knowledge about the current local waste and recycling conditions. 2. Background: Plastic and Waste Management – Philippines | 11 Photo: Shutterstock/junpinzon 3. CURRENT SECTOR STRATEGY – PLASTIC AND SOLID WASTE MANAGEMENT 3.1 Institutional Arrangements and Responsibilities The Department of Environment and Natural Resources (DENR) is the key government agency responsible for waste management in the Philippines, and its components are the Environmental Management Bureau (EMB), the Solid Waste Management Division (SWMD), and the Policy, Planning, and Program Development Division (PPPDD). The Ecological Solid Waste Management Act of 2000 (Republic Act 9003) mandated the establishment of the National Solid Waste Management Commission (NSWMC), which is the government entity in charge of implementing RA 9003’s Rules and Regulations. The EMB hosts the NSWMC Secretariat, it published the National Solid Waste Management Strategy 2012–2016 (NSWMC 2011), it standardized national guidelines for waste management, and it approves local SWM plans and regulations. Municipal, city, and provincial SWM Boards and Environment and Natural Resources Offices (ENROs) are responsible for delivering solid waste and plastic waste management services. The implementation of RA 9003 requires a systematic, comprehensive, and ecologically sound solid waste management plan (SWMP) that is applied from the national level down to the barangay level. RA 9003 also requires the segregation of solid waste at its source. From 2001 to 2006, the LGUs were expected to divert at least 25 percent of their solid waste from disposal into recovery or recycling. In 2022, based on the Philippine Development Plan 2017–2022, the target diversion rate rose to 80 percent. In addition, the act regulates the coding system for packaging materials and products to facilitate waste recycling and reuse, but this system has yet to be developed (mid-2023).21 As a precursor to the coding system, a list is being developed of the non-environmentally acceptable products (NEAPs) that will be prohibited in the Philippines. Alternatives to these NEAPs must be available in the Philippines, and cost no more than 10 percent above the NEAPs they are replacing. Concerning NSWMC Resolution No. 1363 of 2020, which directs the DENR to prepare and implement a ban of unnecessary SUPs, and 1428 of 2021 declaring plastic drinking straws and coffee stirrers as NEAPs, DENR was still formulating the implementation guidelines as of 2023. Notably, these resolutions do not ban unnecessary SUPs, nationwide, and for SUPs to be banned, they must be included in the list of NEAPs. 21 The Implementing Rules and Regulations for RA 9003 require that the coding system used is that of the International Organization for Standardization (ISO) standards’ series ISO 14020, and particularly ISO 14024. 13 In addition to RA 9003, and Resolutions No. 1363 and 1428 • The Cabinet Cluster on Climate Change Adaptation, banning NEAPS, several other regulations and policies Mitigation, and Disaster Risk Reduction (CCAM-DRR) are intended to eliminate plastic waste and promote the approved Cabinet Cluster Resolution No. 1 on January sustainable production and consumption of plastics, Green 27, 2021, on Adopting the Principles of Sustainable Public Procurement, eco-labeling, and the 3Rs: Consumption and Production (SCP), Towards Regulation and Phase-out of Single-use Plastics and a Responsible • The Philippine Green Jobs Act of 2016 (RA 10771) incentivizes enterprises to provide green Transition to the Use of Environment-friendly Products. (environmentally friendly) jobs. Figure 3.1 presents an overview of the Philippine • The Extended Producer Responsibility Act (EPR-RA government’s most relevant national provisions on waste 11898), which became law in July 2022, obligates and plastic waste, and their prescriptions with regard to producers to assume full financial responsibility for primary legislation, implementing acts, and resolutions. treating the waste from their products and packaging over their lifespan, and once they reach their end-of-life. FIGURE 3.1. MOST RELEVANT NATIONAL PROVISIONS ON WASTE AND PLASTIC WASTE, WITH DESCRIPTIONS Presidential Decree No. 1152 Sets specific environmental policies for Philippines Environmental Code managing plastic waste Primary Legislation Ecological Solid Waste Management Act Regulates SWM from the national level of 2000 (RA 9003) down to the barangay level Obligates producers to set up EPR EPR Act of 2022 (RA 11898) programs for their plastic products Implementing Acts Supports implementation RA 9003: DENR-AO 2001 - 34 IRR of RA 9003 • Targets waste management • Eco-design & Eco-labeling • NEAP • Labelling System for Plastic Packaging NSWMC Resolution No. 1428 (Series Identifies and lists non-environmentally 2021) acceptable products (NEAPs) Resolutions NSWMC Resolution No. 1428 (Series Identifies plastic straws and plastic co ee 2021) Directing the DENR stirrers as NEAPs pending phase out plan NSWMC Resolution No. 1363 (Series Directs the DENR to prepare & implement 2020) Directing the DENR a ban on the use of unnecessary SUPs pending DENR implementing guidelines Provides principles for sustainable CCC Resolution No. 2020-003 production and consumption to regulate and phase out SUPs Notes: AO = Administrative Order; CCC = Climate Change Commission; DENR = Department of Environment and Natural Resources; EPR = extended producer re- sponsibility; IRR = Implementing Rules and Regulations; NEAP = non-environmentally acceptable product; NSWMC = National Solid Waste Management Commission; RA = Republic Act; SUP = single-use plastic; SWM = solid waste management. Source: World Bank 14 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines 3.2 Forthcoming Regulations on Regulation Act (HB 9147) was approved by the House of Representatives, but not by the Senate. The proposed Plastic Waste Plastic Bags Tax Act (HB 9171) was approved by the House Some legislation and regulations concerning plastics of Representatives on the Third Reading, and transmitted and SUPs have been developed, but they still need to be to the Senate on July 29, 2021. The Senate Committee adopted. The proposed plastic-related bills are intended conducted a hearing on HB 9171 on April 25, 2022, but to provide a holistic policy framework for restricting or the bill did not pass the First Reading during the 18th prohibiting the use of problematic SUPs. Legislative reforms Congress. The EPR Law, which was passed on July 23, on solid waste and plastic waste management, which 2022, prescribes progressively increasing plastic recovery gained momentum in the 18th Congress of the Philippines targets: December 31, 2023 (20 percent); December 31, (2019–2022), were promoted through three related bills 2024 (40 percent); December 31, 2025 (50 percent); on: phasing out SUPs and plastic bags, imposing an excise December 31, 2026 (60 percent); December 31, 2027 tax on plastic bags, and implementing EPR. During the (70 percent); December 31, 2028 (80 percent) and every 18th Congress, the proposed Single-use Plastic Products year, thereafter. FIGURE 3.2. SUMMARY OF PROPOSED BILLS ON PLASTICS AND THEIR TARGET GROUPS (19TH CONGRESS OF THE PHILIPPINES) Relevant Provisions: • Gradually phase-out certain SUPs & consumers' fees for SUPs • Promote reusable or alternative products for SUPs • Set EPR targets Single-use Plastic Products Target groups: Regulation Act • Consumers, producers, and commercial establishments Targeted plastic products: • Several SUPs for take-away food, personal hygiene, etc. Relevant Provisions: • Impose an excise tax of ₱10 per kilo on plastic bags at their place of production or when they are released from Customs • Increase the tax rate by 4% per year from 2026 • Allocate the incremental revenues from the collected excise tax to DENR programs for implementing RA9003 Single-use Target groups: Plastic Bag • Producers & importers Tax Act Targeted plastic products: • Single-use plastic bags Relevant Provisions: • Labeling of plastic products Plastic Target groups: Labelling • Producers Act Targeted plastic products: • All plastic products Notes: DENR = Department of Environment and Natural Resources; EPR = extended producer responsibility; RA = Republic Act; SUP = single-use plastic. Source: World Bank 3. Current Sector Strategy – Plastic and Solid Waste Management | 15 In the 19th Congress, which was underway in 2023, 25 3.3 Strategies for Plastic and Waste plastic waste-related bills were filed in the House of Representatives, and two counterpart bills were filed in Management the Senate to phase out or regulate SUPs and impose In addition to the legal framework, the government and an excise tax on them. House Bill (HB) 04102—An Act the private sector have developed several strategies and Imposing Excise Tax on Plastic Bags, Thereby Adding plans to address plastic waste, and waste management, New Sections 150-C and 288 (H) in the National Internal overall. The most relevant strategy is the National Plan of Revenue Code of 1997—was approved by the House of Action for the Prevention, Reduction, and Management Representatives on November 14, 2022, and passed on of Marine Litter (NPOA-ML), which the DENR adopted to the Senate. through Memorandum Circular 2021-10 on August 5, 2021. Although not yet in force, the proposed legislation listed The NPOA-ML is intended to achieve the goal of Zero above shows that the Philippines’ government is serious Waste to Philippine Waters by 2040, and it calls on the about tackling plastic waste. The Roadmap presented in relevant government agencies to issue policy instruments this report serves as a guide for government agencies in (circulars and orders) to manage implementing the plan in undertaking actions that build on the existing policies, accord with their responsibilities. The NPOA-ML provides legislation, and regulations, and that can be readily im- a strong foundation for implementing this Roadmap to plemented using a step-by-step approach. Furthermore, manage plastic waste, and reduce non-recyclable SUPs the Roadmap has been strategically formulated to remain until the reduction of land-based plastic litter meets the relevant whether or not there is any progress with the government’s goals. As shown in Figure 3.3, the NPOA-ML ongoing legislative process to phase out SUPs. A list of the comprises 10 programmatic strategy clusters. bills proposed in the 19th Congress and their objectives Some national agencies and private sector entities have set is presented in Figure 3.2. their own targets that comprise sustainable consumption and production, national waste objectives and targets, and the sustainability and circularity of the plastics industry. The essential features of these other Philippine strategies and their implementation timelines are presented in Figure 3.4. FIGURE 3.3. THE NATIONAL PLAN OF ACTION FOR THE PREVENTION, REDUCTION, AND MANAGEMENT OF MARINE LITTER UP TO 2040 Strengthen LGU capacities for local Establish science- and evidence-based level implementation of NPOA-ML. S10 S1 baseline information on marine litter. 2020 - 2020 - onward 2021 Enable su cient and cost-e ective financing and S2 Mainstream circular other institutional resource S9 2020 - economy (CE) and requirements for the 2022 onward sustainable consumption and implementation of the NPOA-ML. production (SCP) initiatives. Develop and implement NPOA ML strategic and targeted PROGRAMMATIC S3 Enhance recovery and social marketing and S8 2021 - 2020 - recycling coverage and communications CLUSTER OF onward onward markets. campaigns using various STRATEGIES media. TO 2040 Enhance policy support and enforcement for marine S7 S4 Prevent leakage from 2020 - 2020 - collected or disposed waste. litter prevention and onward 2030 management. S6 S5 Manage litter that is already existing in 2020 - 2020 - Reduce maritime sources of the riverine and marine environments. onward onward marine litter. Source: World Bank 16 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines FIGURE 3.4. OVERVIEW OF THE MOST RELEVANT RECENT NATIONAL STRATEGIES RELATED TO PLASTIC PRODUCTION, CONSUMPTION, AND DISPOSAL; THE LEADING INSTITUTIONS; THEIR IMPLEMENTATION TIMEFRAMES; AND THEIR MAIN OBJECTIVES National Plan of Action for the Prevention, Sustainable Science and Technology Solid Reduction and Management of Marine Litter Waste Management Roadmap (DENR-EMB) (DOST, PCIEERD) 2021-2040 2022-2026 Overarching goal "Zero Waste to Philippine Waters by Industry compliance with SWM regulations, and 2040" through shared responsibility, accountability, and minimization of waste generation participatory governance Philippine Action Plan for Sustainable Philippine Plastics Industry Roadmap Consumption and Production (NEDA) (PPIA, DTI-BOI) 2014-2030 2020-2040 Development and strengthening of the plastics Sustainable consumption and production through recycling industry, targets for recovery and business models for waste minimization and recycling (2022: 20%; 2030: 60%); innovation hubs, EPR, and banning SUPs PHILIPPINES Inclusion of the informal waste sector NATIONAL STRATEGIES RELATED TO Philippines Development Plan PLASTIC WASTE Zero Waste to Nature: Ambisyon (NEDA) 2030 Roadmap (PARMS) 2017-2022 2021-2030 National waste diversion rate targets (80% by 2022) Strategies to achieve zero waste with industrial and 2023-2028: post-consumer packaging Waste minimization initiatives (EPR Law and NPOA-ML) Simulation Packaging Testing Laboratory 25-year Solid Waste Management Master Plan (SPTL) and Green Packaging Laboratory (GPL) (MMDA) (DOST-ITDI -PTD) 2022-2046 2022-2032 Facilities development through PPP, SWM policy Reduce environmental impact packaging materials; development program, stakeholder engagement, Develop locally produced biodegradable and bioplastic; behavioral change, and institutional strengthening Establish circular system/technologies for packaging Notes: DENR = Department of Environment and Natural Resources; DENR-EMB = Department of Environment and Natural Resources-Environmental Management Bureau; DOST = Department of Science and Technology; EPR = extended producer responsibility; ITDI = Industrial Technology Development Institute; MMDA = Metro- politan Manila Development Authority; NEDA = National Economic and Development Authority; PARMS = Philippines Alliance for Recycling and Materials Sustainabil- ity; PCIEERD = Philippines Council for Industry, Energy, and Emerging Technology Research and Development; PPIA = Philippine Plastics Industry Association; PPP = public-private partnership; PTD = Packaging Technology Division; SUP = single-use plastic; SWM = solid waste management. Source: World Bank 3. Current Sector Strategy – Plastic and Solid Waste Management | 17 Photo: Shutterstock/Wachiwit 4. BARRIERS IN PLASTIC WASTE MANAGEMENT An analysis of the status of plastic waste management in the Philippines identified the barriers along the plastic value chain and in the waste management system that contribute to the littering of large amounts of SUPs and other plastic waste. In order to explain the rationale for the Actions, Milestones, and Outcomes, which are presented in Section 5 of this report, this section discusses the barriers, which are categorized under four different headings: (i) Policy and Institutional; (ii) Analytical and Infrastructure; (iii) Financial and Funding; and (iv) Data and Information. 4.1 Policy and Institutional Barriers Policies are needed that promote reducing plastic consumption and adopting eco-designed alternatives. The proposed legislative framework that is intended to encourage the reduction of plastic consumption, reduce the generation of plastic waste and littering, and promote the adoption of eco-designed alternatives, still needs to be developed and adopted. As noted in Section 3.2, some of the bills debated during the 18th Congress to address these issues still have to be enacted,22 including ones to reduce the consumption of SUPs. About one third of the LGUs in Philippines have passed ordinances banning or regulating the sale and use of plastic bags and polystyrene foam; however, the results from the plastic littering field studies, which the World Bank conducted in 2021, show that more efforts are needed to tackle the plastic waste problem and reduce marine littering (World Bank 2021d). Hence, policies must be more comprehensively implemented that promote the participation of both the private sector and consumers in reducing plastic consumption and waste generation, and adopting eco-designed alternatives. Box 4.1 presents examples from the European Union (EU) and the International Organization for Standardization (ISO) on best practices for implementing standards to improve plastic waste management and promote eco-design. 22 The Single-Use Plastic Products Regulation Act (HB 9147 and SB 2262), Single-Use Plastic Bag Tax Act (HB 9171), and 2020 NSWMC Resolution No. 1363, all direct the DENR to prepare and implement banning the use of unnecessary single-use plastics when adopted and put in effect. 19 BOX 4.1. IMPLEMENTATION OF STANDARDS TO IMPROVE PLASTIC WASTE MANAGEMENT AND PROMOTE ECO-DESIGN The EU Ecolabel, which was launched in 1992, is the European Union (EU) voluntary label for environmental excellence, and it certifies that goods and services meet high environmental standards across all stages of their life span, from raw material extraction, through production and distribution, to disposal. The criteria for the EU Ecolabel were developed and reviewed by the European Commission in cooperation with the EU Member States and other stakeholders, which included consumer organizations, industry experts, and environmental NGOs. The EU Ecolabel criteria require that a product or service is market-oriented, simple to understand and use, based on scientific evidence, and takes the latest technology into consideration. All of the manufacturers, importers, service providers, wholesalers, and retailers that produce products or provide services in the European Union are eligible to apply for the EU Ecolabel. The EU Ecolabel promotes the Circular Economy by encouraging manufacturers to produce less waste and greenhouse gasses (GHGs) during production, and businesses to distribute or sell durable, easy-to-repair, and recyclable products, and make it easier for consumers to choose high-quality, environmentally friendly, and healthy products. The EU Ecolabel relies on third-party verification to confirm whether or not a product or service meets its standards, and each EU Member State designates a government or other authority that makes sure that the verification process is consistent, neutral, and reliable. The International Organization for Standardization (ISO) is an independent, nongovernmental organization that develops standards to ensure the quality, safety, and efficiency of products, services, and systems. ISO 15270 provides guidance on the recovery and recycling of plastic waste; it establishes quality requirements that should be considered at all stages of the waste recovery process; and it provides recommendations to include in the standards for materials and tests, as well as for products’ specifications. The ISO has established a working group to update ISO 15270:2008 Plastics—Guidelines for the Recovery and Recycling of Plastics Waste, and it is hoped that this process will identify additional standards related to plastics’ recycling, design for recycling, and uses for recycled plastics (Akenji et al. 2019). There are industry-led initiatives on the Circular Economy the principle, Polluters Must Pay, DENR Administrative in the Philippines, but these primarily target recycling Order (DAO) 2023-02, dated January 24, 2023—the IRR or substituting plastics with other single-use products, of RA 11898—contains crucial elements to strengthen rather than addressing the need to reduce consumption. operationalization of the EPR Law. These elements include Data analyzed by the Global Alliance for Incinerator registration procedures for the companies obligated to Alternatives (GAIA) in the Philippines show that a third comply with EPR; provisions for an information database (34.65 percent) of all the residual waste in the country is on SWM; and standards, rules, and guidelines for EPR produced by only 10 companies (GAIA 2019). The strong reporting, verification, and auditing.23 market demand for SUPs, and uncertainties about the prospects for businesses if they invest in technologies Under the EPR Law, the Philippines should consider focusing and materials to produce more sustainable alternatives, from the outset on key rigid plastic types which has high could be dampening their interest. This is especially likely value for recycling such as as PET, PP and PE; and flexibles with micro, small, and medium enterprises (MSMEs), which recovery for co-processing. The progressive inclusion usually lack the capacity and resources needed to invest of other plastic types would then follow when the main in new technologies and products. targets for recovery and efficiency have been achieved. For the EPR Law to be effective, it should be supported by Enforcement must be improved for the industry-specific improving the LGUs’ solid waste management systems, collection/take-back requirements for the significant which primarily carry out the collection and recovery of amounts of plastics reaching their end-use. Republic Act recyclables. Good EPR implementation examples for the 11898 on mandatory EPR for large corporations, which Philippines to consider are those of the Republic of Korea was enacted in July 2022, specifies industry-specific and the Ellen MacArthur Foundation (see Box 4.2). collection and take-back provisions for plastic products and packaging that are reaching their end-use. Based on 23 As of November 2022. 20 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines BOX 4.2. EXTENDED PRODUCER RESPONSIBILITY EXAMPLES Korea’s EPR system: The Republic of Korea enacted its EPR system for packaging in 2003, following significant economic growth that began in the 1980s, and resulted in far greater waste generation and waste management challenges. To minimize the use of resources required to meet Korea’s high demand for energy, the government adopted resource recovery from landfills, and maximized reuse and recycling. The Korean Ministry of Environment developed and implemented laws related to waste management that apply the 3Rs (Reduce, Reuse, and Recycle). Based on this strong legal foundation, the Korean government introduced several recycling policies, including EPR, and these have contributed to substantially reducing the volume of waste in Korea. In addition to setting up the EPR system, several preventive and economic measures were taken in Korea that include the Volume-Based Waste Fee (VBWF) system, the Waste Charge System (WCS), and the Voluntary Agreement (VA) system. Under the VBWF system, waste dischargers pay the costs for managing their waste, including collection and treatment. The WCS requires manufacturers to consider the environmental impact of their products at the production stage, and they must pay non-refundable fees on “products and containers which are difficult to collect, treat, or recycle or likely to render waste management generally difficult.” Under the VA system, companies that are not legally required to do so, voluntarily reduce their plastic waste, using the most feasible approach for their business. The EPR system in Korea has achieved the following results: • In 2018, 1.45 million tons of recyclable plastic waste were collected from households. Of this, 30.8 percent were fed into recycling processes. Of the remainder, 22.7 percent were used for energy recovery through conversion into solid refuse fuel (SRF) for cement kilns; 40.9 percent were incinerated; and 4.6 percent were deposited in landfills. • The proportion of plastic waste in landfills and incinerated decreased significantly between 2003 and 2019. Between 2003 and 2006, 20 to 25 percent of plastic waste, including plastic packaging, was landfilled. By 2019, only 5 percent of plastic waste was landfilled. The incineration of plastic waste, including plastic packaging, decreased from 48 percent in 2003 to 25 percent in 2019. Due to the reduction of incinerated and landfilled plastic waste, including plastic packaging, between 2003 and 2019, Korea’s greenhouse gas (GHG) emissions declined by about 3 million tons of carbon dioxide (CO2) equivalent. • The amount of plastic packaging recycled as a result of EPR increased from about 172,000 tons in 2003 to about 875,000 tons in 2019. Since the inception of Korea’s EPR scheme in 2003, the recycling of plastic packing has increased by an estimated 74 percent. Plastics Pacts: The Ellen MacArthur Foundation was established in 2010 to create a worldwide network of national and regional initiatives to support developing a Circular Economy for plastics. The network includes national Plastics Pacts in Canada, Chile, France, the Netherlands, Poland, Portugal, South Africa, the United Kingdom, and the United States. Regional pacts include the European Plastics Pact and the Australia, New Zealand, and Pacific Islands (ANZPAC) Plastics Pact (Ellen MacArthur Foundation n.d.). Each initiative has an ambitious set of local plastic eco-design targets, which include: (i) elimination of unnecessary and problematic plastic packaging through redesign and innovation; (ii) transition from single-use to reuse; (iii) ensuring that all plastic packaging is reusable, recyclable, or compostable; (iv) increasing the reuse, collection, and recycling, or composting of plastic packaging; and (v) increasing the recycled content in plastic packaging. In the United Kingdom, the target is for 100 percent of plastic packaging to be reusable, recyclable, or compostable by 2025. In South Africa, the Plastics Pact commits its members to the following 2025 targets: • Taking action on problematic or unnecessary plastic packaging through redesign, innovation, or alternative (reuse) delivery models; • Ensuring that 100 percent of plastic packaging is reusable, recyclable, or compostable; • Effectively recycling 70 percent of plastic packaging; and • Maintaining a 30 percent average for recycled content across all types of plastic packaging. 4. Barriers in Plastic Waste Management | 21 The low collection rate achieved by the LGUs and As informal workers are not employed by the LGUs, their barangays can be partially attributed to their limited revenues depend on the volume of good quality recyclables institutional capacity to implement the requirements of that they recover from collection points, collection vehicles, RA 9003, and perform the waste management-related and at disposal sites. duties that are identified in the act. Establishing a SWM Board in each community is critical for providing policy Some LGUs register and regulate junk shops through local direction, formulating SWM plans, and sustainably carrying ordinances as they consider junk shops to be material out SWM. recovery facilities for recyclables, and some LGUs have even established a Memorandum of Agreement with a Most LGUs still need to establish a local Environment and junk shop operators’ association. However, the LGUs need Natural Resources Office (ENRO) since this is an optional more guidance regarding the opportunities and benefits provision of RA7160 or the Local Government Code resulting of officially incorporating informal workers into their waste in challenges such as addressing the Personnel Services services. Cap. The lack of, or the understaffing of a local ENRO is one of the main reasons why an LGU provides inadequate Box 4.3 provides an example from Colombia on best SWM services, and this also hinders the development practices for integrating informal workers into the SWM and implementation of an LGU’s SWM Plan. The term of system, and one from Vancouver, in Canada, on scaling up members on most LGU SWM Boards coincides with their its Plastic Bank in 2013 to include members from developing political term, which results in continual changes in board countries, including the Philippines. membership and this, in turn, affects the continuity of the board’s policies, and their effective implementation. BOX 4.3. EXAMPLES OF INTERNATIONAL BEST PRACTICES FOR INTEGRATING INFORMAL WORKERS INTO SOLID WASTE MANAGEMENT Colombia: In 2013, the Association of Waste Pickers of Bogotá (ARB) received a favorable ruling from the Constitutional Court of Colombia that led to their inclusion, recognition, and remuneration for collecting, transporting, and recycling waste. The Columbian government then modified its recycling policies to be more inclusive by no longer requiring the legalization, formalization, and elimination of informal recycling. Bogotá was one of the first cities in Colombia to integrate waste pickers into the SWM system, and pay them for their services. Since then, this approach has been replicated in other cities in Columbia, and by May 2019, more than 25 cities had recognized at least one waste pickers’ organization, and was paying for their recycling services. The integration of waste pickers into municipal SWM systems has had a significant impact in Colombia. For example, the quantity of waste recovered and recycled increased dramatically from 97,905 tons in 2016 to 536,092 tons in 2017. A system of diversion credits compensates recyclers for the environmental benefits and public services they provide; however, only registered recyclers are entitled to this payment. Under this system, not all junk shops are required to report their quantity of recyclables. Colombian collectors must join an organization, a union, or a cooperative by a specific date in order to qualify for the service payments authorized under the Decree (GIZ 2018). Plastic Bank: The Plastic Bank was started in 2013 in Vancouver, Canada, and it has become a worldwide initiative to clean up the oceans by paying people to collect plastic waste. This, in turn, is helping to improve people’s livelihoods. In some of the world’s poorest countries, the Plastic Bank encourages people, and especially women, to collect and deliver plastic waste to recyclers in their local community. In return for collecting and delivering plastics, these waste pickers receive goods, cash, blockchain-secured digital tokens, or other rewards, such as schooling for their children, and even food. This trading system improves communities’ recognition of the value of plastic waste, and it makes plastic too valuable to throw away. The Plastic Bank, which enables the processing of collected plastic so that the materials can be reintroduced into the supply chain, operates in Haiti, the Philippines, Indonesia, and Brazil (Plastic Bank 2022). 22 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines In the Philippines, through efforts to integrate informal meet the eligibility criteria for financing, and to fulfill the workers into the SWM system, the Philippine Alliance for BOI’s administrative requirements (World Bank 2021b). Recycling and Materials Sustainability (PARMS), which is a consortium of businesses operating at all stages of the Proper waste disposal is severely limited in the Philippines plastic value chain, is developing a plan to award credits to due to the small number of sanitary landfills, and their recyclers and producers of plastic products and packaging. lack of remaining capacity. This has resulted in a large number of unregulated dumpsites, the dumping of waste 4.2 Analytical and Infrastructure Barriers on vacant land, and the widespread burning of waste, which produces toxic smoke. The differences in disposal The need for adequate facilities for waste collection and capacity across the Philippines highlights the need for treatment is substantial in metro areas in the Philippines, new approaches in dealing with plastic waste. Regions as well as in remote and underdeveloped areas. In the with limited capacity for landfills, such as small islands 7,600 plus islands of the Philippines, waste collection and and upland areas, should consider prioritizing policies treatment varies greatly across urban, rural, and remote that reduce the generation of plastic waste. This approach areas. The poor collection coverage in much of the country is crucial, too, across the Philippines to reduce pressure can be attributed to factors that include the lack of funds on the existing landfills. The slow adoption of the LGUs’ to procure and maintain waste collection equipment; the SWM plans also needs to be addressed to fast-track the lack of vehicles or the wrong type and size of vehicles; the clustering and regionalization of sanitary landfills, which inability of collectors to access remote areas; and inefficient would allow multiple LGUs to use the same facility. collection schedules and methods. As the availability of funding is a limiting factor in procuring equipment for LGU and regional solid waste management offices have waste management, Green Public Procurement,24 or a limited capacity. The LGUs’ adoption of new technologies public-private partnership could finance improving waste for SWM is limited by their lack of knowledge and skills on collection (see Section 4.3). For example, due to their how to operate and maintain their waste infrastructure. limited capacity, the barangays in Metro Manila contract Thus, developing the capacity of LGU staff is crucial to out most of their waste collection to private haulers. enable them to adopt new technologies, and the private sector to participate in addressing the gaps in SWM The Philippines needs more recycling infrastructure. Little knowledge and skills. Increasing the involvement of the recycling occurs on the small, less populated islands, and private sector in waste management also means that the in the Philippines’ uplands. In these areas, lack of scale, LGUs will need new skills to effectively supervise and poor management systems, and available technologies are regulate private service providers. a challenge for recycling companies. Recycling companies rely on informal and fragmented waste supply networks that only operate on cash terms, and they have no long- 4.3 Financial and Funding Barriers term, formal contracts. As many recyclers operate with The LGUs need more effective cost-recovery mechanisms low-efficiency equipment, achieving profitability is incredibly for waste management. The cost-recovery tools to cover challenging (World Bank 2021b). waste management expenses, which are mandated by RA The availability of financing for the technologies used 9003, need to be better implemented so that they finance by recyclers needs to improve. Although the recycling increasing the low waste collection rate and coverage, and industry is eligible for the general public investment in- especially in remote areas. RA 9003 requires the LGUs to centives offered to all businesses by the Philippine Board establish material recovery facilities (MRFs); however, many of Investments (BOI), in mid-2023, the BOI, which is an barangays lack the financing to build and operate these agency of the Department of Trade and Industry, had no facilities. Poor implementation of segragation-at-source investment incentives that specifically target the recycling mandates and the limited number of MRFs and their lack industry. Consequently, more government support is of efficiency limits the potential for recovering recyclables. needed to finance improving the technology that recyclers This also leads the LGUs to rely heavily on the informal use. In interviews with recyclers’ associations, which the sector to carry out recycling. World Bank conducted in 2021, some participants stated Data is not available on the number of LGUs that charge that the available incentives are more suitable for large residential SWM fees, but it appears that few do. In the multinational companies. Respondents also stated that the LGUs that do charge fees, not all households pay their SWM typical SME recycler would likely find it too challenging to fees. The reasons why an LGU may not charge residential SWM fees include: (i) The imposition of residential SWM fees is a local government matter. While national laws 24 Green Public Procurement is the term applied when a government uses its provide a framework for SWM, the local government purchasing power to choose goods, services, and public works that have a decides how to implement the SWM regulations based positive environmental impact, and contribute toward the country’s sustain- ability goals. on its own interpretation, circumstances, and priorities; (ii) 4. Barriers in Plastic Waste Management | 23 Some LGUs lack the financial skills to manage residential included in their yearly budget for the Annual General fee collection and accounting; (iii) Some LGUs delay Appropriation (Kariuki and Ancheta 2008). Furthermore, implementing residential SWM fees until they have the although prescribed by RA 9003, most barangays have infrastructure necessary to provide a proper level of service; not established a Local SWM Fund. (iv) Funds for SWM are available from other sources such as the National Tax Allotment, an international development Collected and segregated waste must be transported to project that supports SWM, and/or property taxes and other recyclers, most of which are in Metro Manila, so transporting local fees; (v) Local social and political factors influence waste from other areas of the country is expensive. On whether or not to impose residential SWM fees. For the Philippines’ bigger islands, the collected waste is example, the LGUs may be concerned that households transported by boat to Cebu Island. In the case of small cannot afford to pay the fees, or that charging fees will islands, the focus is on waste collection, recovery, and negatively influence voters in the next local election; (vi) temporary storage of recyclables until there is enough No data are available to use in appropriately structuring waste to economically transport it for recycling, or proper residential SWM fees—for example, data on the amount disposal in a sanitary landfill. of waste, the type of waste, and residents’ willingness to To achieve high-quality output, there must be more pay the fees; and (vii) Imposing residential SWM fees is investment in recycling technologies for plastics. As noted situational and depends on the classification of the LGU, above, most of the businesses in the recycling sector are as well local leaders’ political will to pass the an ordinance SMEs, and these require funding to improve their processes requiring households to pay waste collection fees. so that they can carry out high-quality work. As noted A sustainable cost-recovery mechanism, which leads to above, some significant challenges in the recycling sector certainty about the repayment of financing, could incentivize mean that private investors lack confidence in investing in the private sector’s participation in SWM (See Box 4.4 the recycling industry. These challenges include data and on Singapore’s example of implementing public-private market information barriers (Section 4.4). In addition, more partnerships for solid waste management). Conversely, and better-quality secondary raw materials are needed. cross-subsidization and lack of earmarking have adverse The commercial recycling technologies that produce effects on SWM financing because the funds collected high-value recycled plastic such as food-grade recycled from the SWM fees could be spent on other local needs polyethylene terephthalate (rPET), recycled polyethylene such as education and health care. Although the LGC (rPE), and recycled polypropylene (rPP), require consistent allows the LGUs to adjust the assorted fees they charge tonnage, but this is not available due to reliance on informal every five years, most LGUs have not taken advantage collectors, the high cost of transporting recyclables, and of this. In summary, the collection of SWM fees from the competition within the informal recycling industry (World residential sector appears to be situational, and most Bank 2021b). Box 4.4 discusses how Singapore has LGUs’ SWM costs are paid by the LGUs, themselves, and managed to attract private investment in waste collection. BOX 4.4. SINGAPORE’S EXAMPLE OF PUBLIC-PRIVATE PARTNERSHIPS FOR WASTE COLLECTION Launched in April 2001, the National Recycling Programme in Singapore uses public-private partnerships, it encourages household recycling, and it promotes the 3Rs (Reduce, Reuse, Recycle). Public waste collectors (PWCs) are recruited and licensed by the National Environment Agency through open tenders that require prequalification, and the PWCs are financed with the fees that households pay for their waste collection. For the duration of their contract, which is usually for seven or eight years, the PWCs provide recycling bins and collection services to household groups in Housing Development Board estates, as well as to individual households. However, industrial and commercial establishments must have their waste collected by licensed collectors, and pay enough to cover the full cost (National Environment Agency 2022). Individual households and those in housing estates deposit their mixed recyclables (paper, plastic, glass, and metals) in the blue bins provided by the PWCs. After these mixed recyclables are collected by truck, and sorted, they are sent on to recycling facilities for further processing. The recyclables in housing estates are collected three times a week from the 660 liter (L) recycling bins, and once a week from the 1,800L/2,200L side-loader recycling bins. Recyclables and garden waste are collected, weekly, from individual households. 24 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines 4.4 Data and Information Barriers of the LGUs to make well-informed decisions, policies, and plans for the development of infrastructure and the More data are needed on waste generation, collection, purchase of equipment, as well as accurately calculate and treatment. The Philippines has no systematic way SWM fees. Box 4.5 presents examples of best practice of collecting and presenting local, regional, or national waste management information systems in South Africa aggregate data on waste generation, collection, treatment, and Austria. and disposal. Moreover, the limited data that are available are not based on empirical evidence. This is due to the lack of an integrated information system for collecting data on the generators of waste. The NSWMC has assigned the National Ecology Center to collect waste-related data, but as of mid-2023, the database was not ready to operate. Moreover, waste generators and companies collecting, sorting, and recycling waste do not report on the quantities and types of waste they handle. The lack of data on SWM is even worse in rural and remote areas. The SWM data that are available at the barangay, LGU, and agency levels are also limited. This lack of data negatively impacts the ability BOX 4.5. EXAMPLES OF BEST PRACTICE WASTE MANAGEMENT INFORMATION SYSTEMS South Africa: One of the waste management challenges faced by South Africa has been the need for more information on the sector. To address this, the Department of Environmental Affairs and Tourism developed the South African Waste Information System in 2005 (South African Waste Information Center n.d.). This system requires reporting data, monthly and annually, on the quantities of waste that are generated, recycled, and discharged. A phased approach to reporting has been adopted to assess the status of SWM. This system of progressively collecting and reporting data could be expanded when the private companies and designated government agencies have the capacity to take full ownership and responsibility for the system. The system could also include additional and more detailed data from stakeholders. The collected data are made public through annual reports that can be accessed online in various formats, including maps and statistics. Austria: According to the requirements of the Austrian federal law on sustainable waste management (Waste Management Act 2002-AWG 2002), before they begin their activities, waste collectors and operators of waste treatment facilities must register on the Environment Data Management (EDM) portal of the Federal Ministry for Climate Action, Environment, Energy, Mobility, Innovation, and Technology. They must also report on the quantity of waste they receive or transfer. The EDM provides a network of internet applications and databases that support the complex procedures needed to enable the recording of documentation on registration, and on the reporting obligations in the environmental sector (BMK n.d.). To apply to join the EDM system, a waste collector or the operator of a treatment facility must provide the following information: (i) name, (ii) mailing address, (iii) company registration number, (iv) industry sector code, and (v) a contact person’s information. After the acceptance of its application, the business receives an identification number, and access to the register so that it can input the required waste management information, which includes: (i) addresses for the locations of its facilities, (ii) the treatment methods it uses, (iii) its types of facilities, (iv) its reporting units, and (v) contact information for its applicable company personnel. 4. Barriers in Plastic Waste Management | 25 The current reporting system employed by the NSWMC recycling technologies. In addition, there should be more includes the number and location of sanitary landfills, registration of junk shops, reporting on their waste, and material recycling facilities, and the dumpsites that have verification of the quantities of waste they report as lack been closed down. However, the quantities of waste of this information is a significant obstacle in implementing generated, collected, recycled, composted, and disposed the EPR Law. of, are not reported. Basic annual reporting should include More data are needed on the extent of littering and marine the: pollution. Some field studies have been conducted in the • waste generated at the LGU level, which is based on Philippines to gather reliable information on the types and an updated Waste Analysis and Characterization Study; quantities of plastic waste littered in the environment (World Bank 2021c, World Bank 2021d, and Yoshioka and Sasaki • location, capacity, inputs, outputs, and status of the 2021), however, these data are only available for a few MRFs and junk shops in each LGU; urban regions. The limited data from the few surveys do not identify socio-economic and other regional differences, • location, initially built capacity, remaining capacity, and and the data do not indicate where waste is produced and daily inputs of the operating landfills in each LGU; and leaked, or the sectors or industries that are responsible for • amount of waste collected per LGU. the waste. The collection of reliable data on the sources and pathways of the plastic waste that is discarded on land and The data collected and processed by the NSWMC could leaks into waterways and the ocean needs improvement, be made available to people through the agency’s website. as this lack of reliable data poses a significant barrier to The NSWMC could also consider developing a simpler informed decision-making, target setting, and monitoring. method for reporting data so that the LGUs are willing to comply with their data reporting requirements. This More data are needed on the alternatives to SUPs that are reporting on solid waste and plastic waste should include appropriate for the Philippines. Comprehensive studies information on the waste’s source, destination, method of should be conducted in the Philippines to provide informa- collection and disposal, and the quantity diverted. tion on the alternatives to SUPs that are in use, or that could be considered for replacing the most polluting plastic. Life Through its Environmental Management Bureau, the cycle assessments (LCAs) have been conducted for just a DENR has completed improvements to the LGU SWM few alternatives to plastic, such as paper bags. LCAs for Self-compliance Monitoring and Auditing Report. An online the socially acceptable alternatives such as those made system for this reporting is also being developed to cover from natural materials must be initiated, too, along with all of the LGUs across the Philippines, and this will help to LCAs for potential alternatives to all of the primary plastic determine waste flows, including leakage, and the resulting products that are targeted for phase-out in the Philippines. GHG emissions. Consumer awareness needs to improve about the negative More data are needed on buyers, sellers, recyclables, impacts of plastic consumption. A tingi or “piece-meal” and the prices for recycled plastics. As of mid-2023, no approach prevails in the Philippines, and drives the systematic monitoring data were collected and available over-consumption of sachets and other SUPs (Ang and that indicate the number of recyclables that have been Sy-Changco 2007). Low-value and hard-to-recycle flexible separated from the waste stream and sold to junk shops, plastic packaging comprises a large share of the plastic consolidators, and recyclers (World Bank 2021b). In most packaging entering the Philippine market. Although, LGUs, junk shops and, in some cases, even consolidators, most Filipinos are now aware of the need to reduce their are not registered/hold a permit, and therefore they do not consumption of SUPs (GAIA 2020), to phase out sachets report on the plastic waste quantities they collect (the LGUs and other SUPs, affordable alternatives must be available. in Metro Manila and other cities and municipalities are the Consumers’ attitudes also need to change to drive their exception to this). As noted previously, the availability of demand for products sold in bulk. Additionally, as required these data on waste management and recycling is critical by RA 9003, financial sustainability needs to be achieved for informing policy makers so that they can develop the through the LGUs charging waste collection fees, and appropriate targeted solutions, and also for increasing indirect charges in the form of time-bound and targeted investors’ trust so that they are willing to finance new subsidies. 26 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines 5. THE PHILIPPINE PLASTIC WASTE MANAGEMENT ROADMAP 5.1 Roadmap – Rationale According to various studies, the Philippines is one of the top three emitters of plastics that end up in the ocean (Ritchie and Roser 2018). Previous studies by the World Bank (see Section 1.2) have identified plastic waste pollution as one of the Philippines’ most critical environmental issues. Plastic waste management is part of solid waste management, and the current inadequacy of the Philippines’ SWM system negatively impacts its management of plastic waste. Thus, plastic waste pollution can only be improved through corresponding improvements in solid waste management. As noted previously, the environmental threat of plastic pollution has been growing in the Philippines as a result of the combined effects of economic growth; people’s increasing consumption; changing consumption patterns; poor enforcement of waste-related regulations; limited public awareness about the impact of plastics’ mismanagement; and the lack of suitable alternatives to SUP products.25 With its emerging policy and institutional framework, the Philippines appears to be becoming well-equipped to address plastic waste pollution. With the acknowledgment of plastic waste pollution’s contribution to GHG emissions, and to the exacerbation of climate hazards, the Philippines’ Nationally Determined Contribution (NDC), which was submitted to the United Nations Framework Convention on Climate Change (UNFCCC) in 2021, cites promoting the Circular Economy as one of the measures to strengthen the Philippines’ resilience and capacity to adapt to climate change. As previously noted, Republic Act 9003 provides guidelines for SWM that include provisions for managing potentially recyclable materials, including plastics. With its focus on marine litter, including marine plastic, the National Plan of Action for the Prevention, Reduction, and Management of Marine Litter (NPOA-ML) also supplements RA 9003. The other important plastic and solid waste management measures in the Philippines are: the National Solid Waste Management Commission’s Resolution 1428, which bans plastic straws and stirrers pending a phase-out plan as prescribed by law; the 2022 Extended Producer Responsibility Act, which makes the producers of plastic waste fully responsible, financially, for treating the waste from their products and packaging over their lifespan, and after disposal; and the Philippine Green Jobs Act of 2016 (RA 10771), which provides a policy framework for fostering low-carbon, resilient, and sustainable growth, as well as incentivizing enterprises to create green jobs. RA 10771 also promotes the creation of jobs that minimize or altogether avoid the generation of all forms of waste and pollution. At the local level, nearly 500 LGUs (about a third of all LGUs) have issued ordinances to either ban or regulate SUPs. 25 RA 9003 requires that alternatives to NEAPs be available for consumers at no more than 10 percent above the cost of the disposable product (Section 29, RA 9003). 27 Although Philippine laws and regulations on SWM provide • Participation of Stakeholders. The Roadmap supports national government agencies and the LGUs with a clear a participatory approach. Preparation of the Roadmap legal, technical, and financial mandate on solid waste and included consultations with relevant stakeholders across plastic waste management, plastic waste continues to be the plastic supply chain (see Section 5.5 and Annex D), a substantial threat to the environment and people of the and these consultations are ongoing as the Roadmap Philippines. is implemented. The Roadmap presented in this section combines the • Polluters Pay. The Roadmap is designed to be financially government’s current policies, strategies, and programs sustainable. By leveraging the financial mechanisms on SWM, which were discussed in previous sections that various laws support, including the principle in the of this report, with clear directions that the key plastic EPR Law that Polluters Pay, manufacturers and other waste management stakeholders can follow in reducing waste generators are made accountable for the cost non-recyclable SUPs. of managing the waste generated by their products. This Roadmap is grounded in the following principles: • Adaptive Approach. The Roadmap is designed to operate within the current legal and institutional • Inclusion of All Relevant Groups. The Roadmap framework, but it is flexible so that if the Roadmap’s identifies the various socio-economic impacts that monitoring and evaluation (M&E) assessments identify the elimination of SUPs could trigger, and which could the need for change, the Roadmap can be revised. negatively impact stakeholders at all levels of society. These stakeholders comprise consumers, vulnerable • Science-based and Data-driven. The Roadmap uses communities, the informal waste sector, women and evidence-based practices that are technically sound, youth, and the private sector, and especially small and have verifiable methodologies for data collection, and medium enterprises. it offers a selection of viable options at different stages of its implementation. FIGURE 5.1. KEY STEPS IN FORMULATING THE PHILIPPINE PLASTIC WASTE MANAGEMENT ROADMAP GOAL: DEFINE OUTCOMES ZERO SECTOR SUPPORTED BY ACTIONS PLASTIC TO ACHIEVE MILESTONES: ASSESSMENT WASTE • Closing plastic leakage EVALUATED PLASTIC pathways POLLUTION VALUE CHAIN: • Enabling plastic recycling BY 2040 STAKEHOLDERS • Managing plastic demand Upstream CONSULTATION • Production Supported by • Packaging Outcomes IDENTIFIED BARRIERS: • Product Design • Policy & Institutional Midstream • Analytical & • Product Delivery Infrastructure • Waste Generation • Financial & Funding Downstream • Data & Information • Waste Collection • Waste Recovery • Waste Recycling • Waste Disposal Source: World Bank 28 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines The Roadmap’s development process is summarized in increase recycling rates, and continuously improve the Figure 5.1. design of plastic products. Additionally, the Roadmap’s Actions are attuned to the realities of waste management in The Roadmap uses a phased, evidence-based, and the country. For example, the developers of the Roadmap holistic approach to address SUP pollution along the recognize the indispensable role played by the informal plastic value chain, from the production of SUPs, through waste sector in separating, collecting, and recycling plastic their consumption, to their collection, and recycling or waste; and, thus, the Roadmap includes the intention to disposal. The Roadmap also proposes Actions to close organize and support the informal sector. The Roadmap the gaps in plastic waste management in the Philippines, also aims to enhance the institutional capacity of the LGUs and progressively decrease plastic pollution. Thus, the to manage waste collection and treatment. Roadmap is intended to help the country move toward a more Circular Economy, while providing better plastic waste In the text that follows, the Roadmap’s Actions, Milestones, management. The Roadmap’s Actions have been carefully Outcomes, and ultimate Goal are discussed in detail. crafted, prioritized, and timed based on consideration of stakeholders’ current capacities, but the Actions also anticipate the improvement of stakeholders’ capacities 5.2 Roadmap – Goal and Outcomes over the Roadmap’s three six-year terms. This strategic The Roadmap provides a systematic approach for address- approach will be based on assessments of policies, their ing the plastic waste problem in the Philippines, and it is implementation, and consultations with stakeholders. intended to achieve the progressive realization of its major Given the evident problem of plastic waste leakage in the SWM Milestones, the timely passage and implementation Philippines, as well as the long-standing, unaddressed of relevant legislation, and the reduction of non-recyclable weaknesses in the existing waste collection, segregation, SUPs. Thus, the Roadmap is designed to achieve the goal and recycling systems, the Roadmap places significant of Zero Plastic Waste Pollution by 2040. emphasis on tackling downstream problems within the The Roadmap is based on a framework that links the plastic value chain. At the outset, the Roadmap prioritizes barriers discussed in Section 4, which were identified in urban areas because more than half of the country’s waste stakeholder consultations (see Section 5.5 and Annex D), is generated in urban areas, and with their better SWM and in the sector assessment (see Section 2). As noted in systems, urban areas will be better able to implement the Section 1, these barriers along the plastic value chain are: (i) Roadmap’s Actions. Upstream: Production, Packaging, and Product Design; (ii) As noted above, it is expected that more complex strategies, Midstream: Product Delivery and Plastic Waste Generation; which require advanced technical skills, capacity, and and (iii) Downstream: Plastic Waste Collection, Recovery, regulatory systems will be implemented at later stages in Recycling, and Disposal. the Roadmap‘s timeline. This sequencing of increasingly These barriers in plastic waste management contribute to complex outcomes over the stages of the Roadmap is the large production of SUPs and their leakage into the expected to progressively reduce waste leakage, gradually TABLE 5.1. SUMMARY OF THE BARRIERS AND GAPS IN PLASTIC WASTE MANAGEMENT Category Barriers and Gaps in Plastic Waste Management • Policies are needed that promote reducing non-recyclable plastic consumption and adopting eco-designed alternatives. • Enforcement must be improved for the industry-specific collection/take-back requirements for the significant amounts Policy and of plastics reaching their end-use. Institutional • The LGUs and barangays have limited institutional capacity to carry out waste collection and management. • Due to the LGUs’ challenges in collecting and segregating all of their waste, the informal sector plays a significant role in recovering valuable recyclables. • The need for strict implementation of segragation-at-source complemented by adequate facilities for segragated waste collection and treatment is substantial in metro areas in the Philippines, as well as in remote and underdeveloped areas. • The Philippines needs more recycling infrastructure, and more than just a few companies that are authorized to carry Analytical and out recycling. Infrastructure • The availability of financing for the technologies used by recyclers needs to improve. • Proper waste disposal is severely limited in the Philippines due to the small number of sanitary landfills, and their lack of remaining capacity. • LGU and regional solid waste management offices have limited capacity. Financial and • The LGUs need more effective cost-recovery mechanisms for waste management. Funding • To achieve high-quality output, there must be more investment in recycling technologies for plastics. 5. The Philippine Plastic Waste Management Roadmap | 29 Category Barriers and Gaps in Plastic Waste Management • More data are needed on waste generation, collection, and treatment. • More data are needed on buyers, sellers, recyclables, and the prices of recycled plastics. Data and • More data are needed on the extent of littering and marine pollution. Information • More data are needed on the alternatives to SUPs that are appropriate for the Philippines. • Consumer awareness needs to improve about the negative impacts of plastic consumption. environment, and especially into the marine environment. Milestones, which are shown in Figure 5.3. As noted These barriers, which were discussed in detail in Section above, to attain the goal of Zero Plastic Waste Pollution 4, are summarized in Table 5.1. by 2040, the Roadmap’s Actions are designed to achieve the Milestones and their respective Outcomes over three Based on the Roadmap’s sector assessment and gap six-year terms—the first of which is from 2023 to 2028. The analysis, and on agreement with the stakeholders consulted, implementing Actions that address all of the plastic life cycle the Roadmap was designed with three strategic pathways stages sequenced in the three medium-term development of overlapping and time-bound target Outcomes (see Figure plans will require well-coordinated interventions. 5.2). These are based on the three six-year, medium-term planning cycles of the Philippines’ government, and each The Milestones that are intended to achieve the short-term cycle has defined Actions and Milestones. The Roadmap is outcome (Outcome 1)—Plastic Leakage Pathways Closed designed to suit the current capacity and needs of the LGUs, by 2028—comprise: but to achieve the goal of Zero Plastic Waste Pollution by • M1.1. Non-recyclable SUPs are Reduced 2040, the Roadmap provides substantial capacity-building Actions to scale up the knowledge and skills of the LGUs, • M1.2. Plastic Recovery from Existing Facilities is as well as the national agencies involved in implementing Increased the Roadmap. • M1.3. Complementary SWM Legislation is Enacted Each Outcome presented in Figure 5.2 is monitored and measured against the achievement of its specific FIGURE 5.2. THE PHILIPPINE PLASTIC WASTE MANAGEMENT ROADMAP AND ITS OUTCOMES 1. CLOSING PLASTIC LEAKAGE PATHWAYS 2. ENABLING PLASTIC RECYCLING 3. MANAGING PLASTIC DEMAND 2023-2028 ZERO PLASTIC WASTE 2023-2034 POLLUTION 2023-2040 2040 Source: World Bank 30 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines • M1.4. National Database on Recycling and SWM is Set • M2.1. LGUs’ Capacity to Carry Out Plastic and Solid Up and Operationalized Waste Management is Developed • M1.5. Technical Guidelines on a Cost-recovery • M2.2. Informal Sector is Integrated into the LGUs’ SWM Mechanism for Plastics and SWM are Adopted and Systems Enforced • M2.3. Production of Good Quality Plastic Recyclates The Milestones that are intended to achieve the medium- is Increased term outcome (Outcome 2)—Plastic Recycling Enabled by 2034—comprise: The Milestones that are intended to achieve the third and longer-term outcome (Outcome 3)—Demand for Plastics Managed and Products Designed for Circularity by 2040—comprise: FIGURE 5.3. OUTCOMES AND MILESTONES OF THE PHILIPPINE PLASTIC WASTE MANAGEMENT ROADMAP 1. CLOSING PLASTIC 2. ENABLING PLASTIC 3. MANAGING PLASTIC LEAKAGE PATHWAYS RECYCLING DEMAND ZERO PLASTIC WASTE POLLUTION 2023-2028 2023-2034 2023-2040 2023 2028 2034 2040 M1.1 Non-recyclable SUPs are Reduced M1.2 Plastic Recovery from Existing Facilities is Increased M1.3 Complementary SWM Legislation is Enacted M1.4 National Database on Recycling and SWM is Set up and Operationalized M1.5 Technical Guidelines on a Cost-recovery Mechanism for Plastics and SWM are Adopted and Enforced M2.1 LGUs’ Capacity to Carry Out Plastic and Solid Waste Management is Developed M2.2 Informal Sector is Incorporated into the LGUs’ SWM Systems M2.3 Production of Good Quality Plastic Recyclates is Increased M3.1 Measures for Eco-design, Eco-labelling, SUP Alternatives, and Green Public Procurement are Adopted and Enforced M3.2 Private Sector is Engaged in Plastics’ Reduction and Waste Management M3.3 Support for Nurturing In-country Innovation and Incentivizing Information Exchanges is Strengthened Source: World Bank 5. The Philippine Plastic Waste Management Roadmap | 31 The Roadmap’s Actions, which prioritize urban areas, are intended to close the gaps in plastic waste management in the Philippines, decrease plastic pollution, and help the country to move toward a circular plastics’ economy by progressively improving stakeholders’ capacities over three six-year terms. • M3.1. Measures for Eco-design, Eco-labeling, SUP Al- 2040, are based on the required prerequisites. The synergy ternatives, and Green Public Procurement that Promote achieved through the Roadmap’s interlinked Actions is Plastics’ Circularity are Adopted and Enforced expected to result in significant improvements in plastic waste management, and to help realize the Roadmap’s • M3.2. Private Sector is Engaged in Plastic Reduction 2040 goal in a sustainable manner. and Waste Management Short-term Outcome 1 (Year 2028) focuses on initiating the • M3.3. Support for Nurturing In-country Innovation reduction of non-recyclable SUPs, and it is supported by the and Incentivizing Regional Information Exchanges is legislation that was proposed in the 18th Congress of the Strengthened Philippines (2019–2022). This Outcome requires improving 5.3 Roadmap – Actions the performance of the MRFs to maximize their recovery of plastic waste before any additional investments are made As previously noted, the Roadmap is designed to lead the in the MRFs. Improvements in plastic waste collection, Philippines toward sustainable systems for plastic produc- recovery, recycling, and disposal should pave the way for tion, consumption, collection, recycling, and disposal. As an effective transition to medium-term Outcome 2 (Year such, the Roadmap’s Actions, which prioritize urban areas, 2034), which would create an enabling environment for are intended to close the gaps in plastic waste management plastic recycling in the Philippines. Long-term Outcome in the Philippines, decrease plastic pollution, and help the 3 (Year 2040)— Demand for Plastics Managed and country to move toward a circular plastics’ economy by Products Designed for Circularity—relies on achieving progressively improving stakeholders’ capacities over three the earlier Milestones, which are intended to optimize six-year terms. This strategic approach, which addresses the waste management and plastic recycling (see Section long-standing weaknesses in the LGUs’ waste collection, 5.2 and Figure 5.3). segregation, and recycling systems, emphasizes tackling The Roadmap is expected to: the downstream problems within the plastic value chain. As • drive significant reduction in non-recyclable plastic training and capacity development improves the LGUs’ solid consumption and increase plastics’ recovery through waste and plastic waste management skills, the Roadmap recycling and treatment; will also implement more complex strategies that require advanced technical skills, capacity, and regulatory systems. • ensure the proper collection and recycling of SUPs; This sequencing of increasingly complex outcomes over the stages of the Roadmap is expected to progressively reduce • facilitate the implementation of extended producer plastic waste leakage, gradually increase recycling rates, responsibility schemes for plastic waste management; and continuously improve the design of plastic products. • develop strategies for the identification and All of the interrelated Actions start in 2023, and they are mainstreaming of reusable and recyclable alternatives expected to continue beyond their time-bound Milestones to SUPs; so that they carry on their efforts to achieve and sustain the • improve peoples’ behavior by increasing their awareness Roadmap’s goal of Zero Plastic Waste Pollution by 2040. about the negative impacts of improper plastic waste Thus, after the Milestones for short-term Outcome 1—Plastic disposal, and about best practices in plastic waste and Leakage Pathways Closed have been achieved in 2028, SWM; and its Actions are expected to continue. Similarly, for mid-term Outcome 2—Plastic Recycling Enabled, the implementation • provide incentive mechanisms for fiscal and non-fiscal of its Actions should continue after its Milestones have been rewards to achieve the goal of Zero Plastic Waste achieved in 2034. For long-term Outcome 3—Demand for Pollution by 2040. Plastics Managed and Products Designed for Circularity by 2040—its Actions, which start at various times, and end in 32 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines Photo: Shutterstock/NavyBank Short-term Actions and Milestones: Outcome 1— • A1.2.4. Train SWM facility staff on O&M to improve their Closing Plastic Leakage Pathways by 2028 performance in recovering or recycling plastic waste; and, The short-term Actions presented in Figure 5.4 are • A1.2.5. Conduct feasibility studies to plan investments for expected to deliver Outcome 1—Closing Plastic Leakage designing and constructing additional MRFs, recycling Pathways by 2028 through improving waste collection facilities, and regional SLFs. and recovery. These Actions support the achievement of the following five Milestones: (iii) M1.3. Complementary SWM Legislation is Enacted: (i) M1.1. Non-recyclable SUPs where viable alternatives • A1.3.1. Enact the laws that support the reduction of are identified are Phased Out: non-recyclable SUPs; and, • A1.1.1. Strengthen the regulatory framework to phase • A1.3.2. Amend Section VIII of RA 9003’s IRR in the out non-recyclable SUPs though enforcing existing and NSWM Framework to raise awareness about plastic new regulations on SUPs, plastics, and SWM; waste, its impact, and sustainable alternatives. • A1.1.2. Enforce the mandate of the EPR Law; (iv) M1.4. National Database on Recycling and SWM is • A1.1.3. Increase the waste management capacity of Set up and Operationalized: selected priority sectors such as tourism; and, • A1.4.1. Design a database on plastic recovery and • A1.1.4 Develop understanding of the distributional recycling; and, impacts of SWM and plastic policies, laws, and • A1.4.2. Publish data on waste collection, recovered regulations, and how to minimize negative impacts. recyclables, processed biodegradables, disposed of waste, and recycled plastic. (ii) M1.2. Plastic Recovery from Existing Facilities is Increased: (v) M1.5. Technical Guidelines on a Cost-recovery • A1.2.1. Audit LGUs’ waste collection systems to identify Mechanism for Plastics and SWM are Adopted and facilities that could be the focus for short- and medium- Enforced: term actions for increasing recovery; • A1.5.1. Survey LGUs and the private sector haulers or • A1.2.2. Conduct an audit to develop an inventory of the service providers regarding the waste collection fees existing MRFs, recycling facilities, and sanitary landfill they charge businesses; and, sites; • A1.5.2. Prepare technical guidelines on cost-recovery • A1.2.3. Improve plastic and solid waste collection, mechanisms for plastic waste management. including procuring waste collection vehicles; 5. The Philippine Plastic Waste Management Roadmap | 33 FIGURE 5.4. SHORT-TERM ACTIONS (2023–2028, AND BEYOND) – THE PHILIPPINE PLASTIC WASTE MANAGEMENT ROADMAP TIONS AC M R TE ZERO SHORT PLASTIC WASTE POLLUTION 1. CLOSING PLASTIC LEAKAGE PATHWAYS 2023 2028 2034 2040 M1.1 SUPs are Phased Out A1.1.1. Strengthen the regulatory framework to phase out non-recyclable SUPs where viable alternatives exist by enforcing existing and new regulations on SUPs, plastics, and SWM; A1.1.2. Enforce the mandates of the EPR Law; A1.1.3. Increase the waste management capacity of selected priority sectors such as tourism; and, A1.1.4 Develop understanding of the distributional impacts of SWM and plastic policies, laws, and regulations, and how to minimize M1.2 Plastic Recovery from Existing Facilities is Increased A1.2.1. Audit LGUs’ waste collection systems to identify facilities that could be the focus for short- and medium-term actions for increasing recovery A1.2.2. Conduct an audit to develop an inventory of the existing MRFs, recycling facilities, and sanitary landfill sites; A1.2.3. Improve plastic and solid waste collection, including procuring waste collection vehicles; A1.2.4. Train SWM facility sta on O&M to improve their performance in recycling plastic waste; and, A1.2.5. Conduct feasibility studies to plan investments for designing/constructing additional MRFs, recycling facilities, and regional SLFs. M1.3 Complementary SWM Legislation is Enacted A1.3.1. Enact the laws that support the reduction of non-recyclable SUPs; and A1.3.2. Amend Section VIII of RA 9003’s IRR in the NSWM Framework to raise awareness about plastic waste, its impacts, and sustainable alternatives. M1.4 National Database on Recycling and SWM is Set up and Operationalized A1.4.1. Design a database on plastic recovery and recycling; and, A1.4.2. Publish data on waste collection, recovered recyclables, processed biodegradables, disposed of waste, and recycled plastic. M1.5 Technical Guidelines on a Cost-recovery Mechanism for Plastics and SWM are Adopted and Enforced A1.5.1. Survey LGUs and the private sector regarding the waste collection fees they charge businesses; and, A1.5.2. Prepare technical guidelines on cost-recovery mechanisms for plastic waste management. Source: World Bank 34 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines The short-term Outcome (2023–2028) of Closing Plastic Pending the enactment of new regulations, enforcement Leakage Pathways into the environment at the collection, of the existing regulations is expected to systematically recycling, and disposal stages of the LGUs’ SWM systems contribute to reduction of hard-to-recycle plastic products. requires the achievement of five Milestones: (i) Non- The EPR Law also serves as a fiscal instrument that supports recyclable SUPs are Reduced (M1.1); (ii) Plastic Recovery from SWM initiatives, including plastic waste management, as Existing Facilities is Increased (M1.2); (iii) Complementary the law enables a mechanism for producers to finance SWM Legislation is Enacted (M1.3); (iv) National Database on establishing and operating collection, recycling, and Recycling and SWM is Set Up and Operationalized (M1.4); disposal systems. Thus, the EPR Law establishes a and (v) Technical Guidelines on a Cost-recovery Mechanism financial mechanism that requires producers to cover for Plastics and SWM are Adopted and Enforced (M1.5). the cost of managing the waste from their products over their products’ lifespan and after disposal. Finally, the EPR Kick-starting these short-term Actions should improve the Law aligns economic and financial incentives with critical confidence of stakeholders, including the leading national environmental objectives to create a more sustainable government SWM agencies and the LGUs, so that they Circular Economy. are able to successfully implement the Roadmap, and establish the necessary foundation for future Actions. For The tourism sector should be one of the first ones to be the Roadmap to progress toward the goal of Zero Plastic targeted in reduction of non-recyclable SUPs (A1.1.3). Waste Pollution by 2040, successfully achieving these Tourism businesses normally operate in small areas, early Milestones is crucial. which means that it should be relatively easy to make these businesses comply with government waste-related Actions to achieve Milestone M1.1 (Non-recyclable SUPs are regulations. In general, tourists will comply with the Reduced) environmental requirements of an island or facility, and if tourists fail to comply, the businesses serving them can be First, strengthening the regulatory framework to phase easily fined. Thus, strict implementation of non-recyclable out SUPs through enforcing existing and new regulations SUPs’ reduction by tourism businesses could be achievable. on non-recyclable SUPs, plastics, and SWM (A1.1.1) is a For example, a revision of the National Accommodation prerequisite for initiating later Actions in the Roadmap. Standards could include indicators on reducing SUPs’ These regulations comprise (i) NSWMC Resolution consumption, and the Department of Tourism could prepare 1428, which identifies plastic straws and stirrers as non- new guidelines and training materials for managing SUPs environmentally acceptable products (NEAPs); (ii) the in the hotel industry. various ordinances to regulate plastic waste that 489 The regulations discussed above will have positive as well LGUs have passed; and (iii) the EPR Law enacted in July as negative impacts on the producers of plastic products, 2022, and its IRR, which were completed in January 2023, the businesses that distribute these, and the communities and that require: producers taking responsibility for the that use them. It is crucial for government policy makers environmentally sound management of their products and agencies to understand the distributional impacts of from manufacturing to disposal; buy-back schemes based the new regulations—that is, how do the SWM regulations on the Polluters Pay Principle that require producers to impact different socio-economic groups, and what set up collection points for their waste, and collaborate measures are needed to minimize the negative impacts with recycling organizations, and public and private waste on vulnerable groups (A1.1.4). Section 5.5 and Annex D management providers; product designs (promoted under identify and share some preliminary understanding about Outcome 3) that stress the importance of eco-design to the distributional impacts of implementing the Roadmap address the negative environmental impact of plastics on various stakeholders. throughout their life cycle (A3.1.2); and the labeling of products and packaging with information on their Actions to achieve Milestone M1.2 (Plastic Recovery from recyclability, composition, and proper disposal methods Existing Facilities is Increased) (A3.1.3). The second set of Actions starts with a comprehensive Thus, as noted above, the new EPR Law encourages audit of the LGUs’ waste collection systems to identify producers to: adopt more sustainable practices, including facilities that could be the focus for short- and medium- the use of eco-friendly materials; improve product designs; term actions for increasing recovery (A1.2.1). This should set up collection points for plastic waste; clean up coastal be supplemented by the development of an inventory areas and public roads; divert recovered plastic waste of existing MRFs, recycling facilities, and sanitary landfill back into the plastic value chain; and establish new sites (A1.2.2). These two audits will provide quantitative centralized MRFs, recycling facilities, and regional SLFs evidence of the waste sector’s need for facilities, and (A2.1.2). In addition, as part of implementing the new EPR the level of financing required for investments in these Law, non-recyclable SUPs’ reduction will be promoted to facilities. To reduce plastic leakage in the short term, the manufacturers by the LGUs and the NSWMC. initial focus should be on upstream facilities such as waste 5. The Philippine Plastic Waste Management Roadmap | 35 transport and centralized MRFs. The goal is to increase the the volume of SUPs in the environment (SUP Bag Tax Act); recovery of recyclable plastic by improving the segregation, (ii) enhancing oversight and the management of the SUP collection, and sorting of waste. supply chain to reduce the risk of leakage points; and (iii) empowering consumers to make informed choices, which In the Roadmap’s initial stage, the LGUs are expected to would favor plastics with lower leakage potential, and improve solid and plastic waste collection, including the promote the Circular Economy (Plastic Labeling Act). This procurement of suitable waste collection vehicles (A1.2.3). new legislation would align with the broader objective of To support the LGUs in improving their performance in Outcome 1—Plastic Leakage Pathways Closed by 2028 recovery or recycling plastic waste, the NSWMC would through minimizing plastic waste generation, enhancing provide O&M training for LGU staff (A1.2.4). In addition, plastic waste management systems, and protecting the critical SWM infrastructure such as centralized MRFs, environment and public health from the negative impacts recycling facilities, and regional SLFs would be identified of plastic pollution. through an audit (A1.2.2), and after identifying SWM needs, feasibility studies would be carried out to plan and design Before introducing these new SWM regulations and their the additional MRFs, recycling facilities, and regional SLFs incentive schemes, the negative impacts on vulnerable (A1.2.5) that would be financed and constructed in the populations (A1.1.4) should be considered and addressed, next phase (A2.1.2). As it could take up to five years for including the financial implications for different actors in new SWM facilities to become operational, in order to the system, and on government budgets. increase plastic recovery in the existing MRFs, the NSWMC would provide O&M training to improve the LGUs’ SWM The following Action (A1.3.2) requires amending the imple- performance (A1.2.4). menting rules and regulations for RA 9003, Section VIII in the NSWM Framework, in order to raise awareness about Actions to achieve Milestone M1.3 (Complementary SWM plastic waste, its impacts, and sustainable alternatives. Legislation is Enacted) For example, this should enable sharing information related to different plastic products and their sustainability, Enact the three new laws that were proposed during the which would be based on their use of renewable and 18th Congress to support the reduction of non-recyclable recycled materials. This should also increase communities’ SUPs where viable alternatives had been identified (A1.3.1), awareness about plastic waste’s adverse public health and introduce fiscal instruments to target the environmental and environmental impacts. impact of SUPs. These laws are: (i) the SUP Bag Tax Act, which proposes to impose a tax on SUP bags to reduce Actions to achieve Milestone M1.4 (National Database on their consumption and improper disposal. This tax would Recycling and SWM is Set Up and Operationalized) be levied on the retailers that provide SUP bags at the point of sale, and the revenues generated would support Having reliable and accessible information and data plastic waste management initiatives, recycling programs, on plastic, waste, and related technology is essential and the promotion of sustainable alternatives to SUP bags; for effective plastic waste management. This requires (ii) the SUP Product Registration Act, which requires any designing (A1.4.1), and publishing (A1.4.2) a national database business producing, importing, or distributing SUPs to that collects information from the LGUs on solid waste register with the relevant authorities. This fiscal instrument composition and generation. To establish this database, should improve accountability, and the monitoring of SUPs’ the DENR would issue a resolution that requires all of the production and supply chains. Registration fees could LGUs, waste collectors, MRFs, recycling facilities, and SLF also be imposed, which would generate revenues to fund operators to report their waste inputs and outputs as part monitoring, enforcement, and plastic waste management of the monitoring system. This database would also include initiatives; and (iii) the Plastic Labeling Act, which focuses on information on plastic products placed on the market by the product labeling requirements for plastic packaging to obliged enterprises (such as those covered by the EPR improve the collection and segregation of recyclable plastic Law). For reporting waste-related data, including data products, and reduce plastic leakage into the environment. from the LGUs on waste composition and generation, The fiscal aspect of this act could involve imposing fines the DENR would provide a standardized methodology for non-compliance with the labeling requirements, which and format. Additionally, in coordination with the LGUs, would contribute to the revenue pool for plastic waste the DENR would provide training for key waste-related management. (including plastic) businesses on data collection, recording, reporting, and database access. The establishment, and Collectively, the three proposed acts should create a the systematic operation of this database on all aspects comprehensive framework for achieving Outcome 1— of solid waste and plastic waste management, is critical. Plastic Leakage Pathways Closed by: (i) discouraging the Achieving this Milestone (M1.4) will make key data publicly consumption of SUP bags, which would directly reduce available on waste collection, recycling, disposal, and 36 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines littering; unlock better waste monitoring; and facilitate • A2.2.2. Issue minimum technical operating standards informed decision-making on plastic waste management. for junk shops; and This, in turn, should increase stakeholders’ and investors’ • A2.2.3. Pilot SWM projects that promote the integration trust in recycling. of informal workers. Actions to achieve Milestone M1.5 (Technical Guidelines on a Cost-recovery Mechanism for Plastics and SWM are M2.3. Production of Good Quality Plastic Recyclates is Adopted and Enforced) Increased: The final set of short-term Actions addresses the • A2.3.1. Develop national standards for the quality of adoption and enforcement of technical guidelines on plastic recyclates; the cost-recovery mechanism. These concern the post- • A2.3.2. Increase the capacity of the recycling facilities; and, fiscal devolution transition, which is expected to be • A2.3.3. Establish a plastic certification scheme for plastic extended from 2024 to 2027.26 With the assistance of recyclers. the NSWMC, a survey would be conducted on the waste collection fees that the LGUs and private haulers currently The medium-term Outcome (2023–2034)—Plastic Recycling charge businesses (A1.5.1), and the results should help Enabled—should be facilitated by the achievement of in determining appropriate waste collection fees for the the short-term Milestones and their combined short- residential sector. The DILG and the DENR would also term Outcome—Plastic Leakage Pathways Closed. The develop technical guidelines for the LGUs on various medium-term Milestones are: (i) LGUs’ Capacity to Carry cost-recovery mechanisms (A1.5.2), which would aid in Out Plastic and Solid Waste Management is Developed setting up and operating local SWM Funds, and support (M2.1); (ii) Informal Sector is Integrated into the LGUs’ resolutions to enable the LGUs to progressively increase SWM Systems (M2.2); and (iii) Production of Good Quality their SWM budget. Plastic Recyclates is Increased (M2.3). The Actions that supported achieving the short-term outcome of Plastic Medium-term Actions and Milestones: Outcome 2— Leakage Pathways Closed should continue in order to Plastic Recycling Enabled by 2034 sustain the reduction of non-recyclable SUPs and improve MRFs’ operations. The medium-term Actions would build The medium-term Actions presented in Figure 5.5, are on these successes by improving recycling and the overall expected to deliver Outcome 2—Plastic Recycling Enabled capacity of the LGUs to finance and manage plastic waste. by 2034, and support achieving the following Roadmap Milestones: Actions to achieve Milestone M2.1 (LGUs’ Capacity to Carry M2.1. LGUs’ Capacity to Carry Out Plastic and Solid Waste Out Plastic and Solid Waste Management is Developed) Management is Developed: First, the NSWMC, in cooperation with local banks, • A2.1.1. Build the capacity of the LGUs with staff training would provide training and capacity building for the on how to prepare feasibility studies; LGUs to prepare them to capably oversee and assess • A2.1.2. Establish new centralized MRFs, recycling the preparation of better-targeted feasibility studies and facilities, and regional SLFs; investment plans (A2.1.1). These comprise: environmental assessments, technology assessments, financial and • A2.1.3. Establish a local SWM Office in each LGU, as economic analyses, procurement and implementation authorized by the national LGU SWM Plan; plans, cost estimates, and plans for sourcing funding to • A2.1.4. Develop O&M standards for MRFs, and an cover the development and operation of SWM projects. operations manual for barangays’ SWM Committees; This assumes that because most LGUs and SWM investors and, lack the capacity to undertake this work, themselves, it would be carried out by private consulting firms with the • A2.1.5. Increase staff in the SWM Division of the necessary expertise. The training would be conducted DENR-EMB, and improve their technical capacity. on a regional basis for a cluster of LGUs by inhouse or M2.2. Informal Sector is Integrated into the LGUs’ SWM outsourced specialists who work for the DENR-EMB and Systems: the NSWMC. These national agencies need to allocate the funds to finance these activities, and they can also secure • A2.2.1. Prepare guidelines for the registration and grants from international development partners to support accreditation of informal workers in the LGUs’ SWM capacity development activities. These capacity-building system; efforts would be scaled up once the National Ecology Center is fully operational. Such capacity development 26 Mandanas Ruling, Executive Order No. 138, Series of 2021. 5. The Philippine Plastic Waste Management Roadmap | 37 FIGURE 5.5. MEDIUM-TERM ACTIONS (2023–2034, AND BEYOND) IN THE PHILIPPINE PLASTIC WASTE MANAGEMENT ROADMAP ONS M ACTI R TE M ZERO MEDIU PLASTIC WASTE POLLUTION 2. ENABLING PLASTIC RECYCLING 2023 2028 2034 2040 M2.1 LGUs’ Capacity to Carry Out Plastic and Solid Waste Management is Developed A2.1.1. Build the capacity of the LGUs with sta training on how to prepare feasibility studies; A2.1.2. Establish new centralized MRFs, recycling facilities, and regional SLFs; A2.1.3. Establish a local SWM O ce in each LGU, as authorized by the national LGU SWM Plan; A2.1.4. Develop O&M standards for MRFs, and an operations manual for barangays’ SWM Committees; and A2.1.5. Increase sta in the SWM Division of the DENR-EMB, and improve their technical capacity. M2.2 Informal Sector is Incorporated into the LGUs’ SWM Systems A2.2.1. Prepare guidelines for the registration and accreditation of informal workers in the LGUs’ SWM system; A2.2.2. Issue minimum technical operating standards for junk shops; and A2.2.3. Pilot SWM projects that promote the integration of informal workers. M2.3 Production of Good Quality Plastic Recyclates is Increased A2.3.1. Develop national standards for the quality of plastic recyclates; A2.3.2. Increase the capacity of recycling facilities; and, A2.3.3. Establish a plastic certification scheme for plastic recyclers. Source: World Bank 38 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines initiatives are expected to increase the LGUs’ sense of Actions to achieve Milestone M2.3 (Production of Good ownership for the SWM projects that they will implement. Quality Plastic Recyclates is Increased) This Action (A2.1.1) builds on the feasibility studies that were conducted during the short-term phase to plan In compliance with the relevant legislation, the NSWMC investments for designing and constructing additional would develop national standards for the quality of plastic MRFs, recycling facilities, and regional SLFs (A1.2.5), and recyclates (A2.3.1). To prepare for this, under the short-term it would be supplemented by the LGUs’ sourcing funds to Outcome—Plastic Leakage Pathways Closed—pre-requi- finance the construction of new, centralized MRFs; recycling sites such as improving waste collection and segregation facilities; and regional SLFs (A2.1.2). These Actions should equipment and infrastructure would have been carried out. all help to address the solid waste infrastructure gaps at In this medium-term phase, centralized MRFs would be the LGU level. constructed to maximize the value of the recyclable plastics that are collected. This should help in securing additional As authorized by the national LGU SWM Plan, the next investments to increase the capacity of recycling facilities Action is establishing a SWM Office in each LGU (A2.1.3) (A2.3.2) so that they can process a wider range of plastic that is staffed with an adequate number of people who resins such as linear low-density polyethylene (LLDPE) and have been trained with the required skills (A2.1.1). The polypropylene (PP) and high-density polyethylene (HDPE). establishment of a SWM Office in the LGU should help To ensure high standards, a Plastic Certification Scheme to prioritize SWM-related decision-making, and the for recyclers (A2.3.3) would be established, which would development and implementation of a local SWM Plan. raise the quality of recycling facilities’ outputs, and give The centralized MRFs and recycling facilities would also suppliers confidence that any waste plastic delivered to the benefit from the development of standards for O&M, and certified recyclers will be recycled with the best available an operations manual to guide the work of the barangays’ technologies and practices. This Action targets traceability SWM Committees (A2.1.4). These committees would be along the supply chain, throughout the recycling process, supported, too, by the training and capacity development and the quality of recycled contents until the final recycled provided to the LGUs (A1.2.4). At the national level, the product is produced. DTI, 27as the lead accreditation agency, focus would be on increasing staff in the Solid Waste would be responsible for specifying the procedures for Management Division of the DENR-EMB, and improving certifying plastic recycling facilities. their technical capacity (A2.1.5). Long-term Actions and Milestones: Outcome Actions to achieve Milestone M2.2 (Informal Sector is 3—Demand for Plastics Managed and Products Integrated into the LGUs’ SWM Systems) Designed for Circularity by 2040 As noted previously, integrating informal workers is The long-term Actions, which are presented in Figure 5.6, necessary because they play a significant role in the are expected to deliver Outcome 3— Demand for Plastics LGUs’ recycling. The integration process would begin with Managed and Products Designed for Circularity by 2040. preparing guidelines for the registration and accreditation These Actions support achievement of the following three of informal workers (A2.2.1) so that they can work in the Milestones: LGUs’ MRFs on recovering recyclables and composting. The MRFs’ health and safety standards would also be (i) M3.1. Measures for Eco-design, Eco-labeling, SUP Alter- improved to protect these workers. In addition, to maximize natives, and Green Public Procurement that Promote progress in integrating the informal sector, the NSWMC Plastics’ Circularity are Adopted and Enforced: would issue minimum technical operating standards for • A3.1.1. Conduct life cycle assessments to identify options junk shops (A2.2.2) so that they properly manage residual for eco-design, eco-labeling, and alternatives to SUPs, waste, and they record and report on the recyclables that in the short term; they collect, process, and sell. The LGUs would also pilot projects that promote integrating the informal workers • A3.1.2. Develop and issue guidelines for compliance into the LGU plastic waste and solid waste management on eco-design and Green Public Procurement, in the system (A2.2.3). These pilot projects would be a prelude medium term; and, to informal workers’ more permanent engagement in the • A3.1.3. Initiate on-product and on-packaging information LGUs’ SWM. By 2034, it is expected that the informal waste about proper plastic waste disposal, as a long-term sector, including junk shops, consolidators, and waste Action. pickers would be integrated into the formal SWM systems of the LGUs. Their integration would occur in all of the (ii) M3.2. Private Sector is Engaged in Plastic Reduction waste-related activities carried out by the LGUs, including and Waste Management: waste collection, MRF operations, waste disposal, and the systematic recording of data on plastic waste and 27 Lead Agency responsible for expanding the recycling market (according to the IRR recycling in the data collection system. of RA 9003, Rule 12, Section 1). 5. The Philippine Plastic Waste Management Roadmap | 39 FIGURE 5.6. LONG-TERM ACTIONS (2023–2040, AND BEYOND) – THE PHILIPPINE PLASTIC WASTE MANAGEMENT ROADMAP S TION AC M TER ZERO LONG PLASTIC WASTE POLLUTION 3. MANAGING PLASTIC DEMAND 2023 2028 2034 2040 M3.1 Measures for Eco-design, Eco-labelling, SUP Alternatives, and Green Public Procurement are Adopted and Enforced A3.1.1. Conduct life cycle assessments to identify options for eco-designs, eco-labelling, and alternatives to SUPs, in the short term; A3.1.2. Develop and issue guidelines for compliance on eco-design and Green Public Procurement, in the medium term; and, A3.1.3. Initiate on-product and on-packaging information about proper plastic waste disposal, as a long-term Action. M3.2 Private Sector is Engaged in Plastics’ Reduction and Waste Management A3.2.1. Define standards and guidelines to implement the EPR Law, in the short term; A3.2.2. Assist micro, small, and medium enterprises to participate in an EPR program, in the medium term; and, A3.2.3. Negotiate voluntary agreements with the private sector on eco-design, in the long term. M3.3 Support for Nurturing In-country Innovation and Incentivizing Information Exchanges is Strengthened A3.3.1. Develop and implement a communication strategy on plastic waste management; A3.3.2 Conduct feasibility studies to implement energy recovery technologies that adhere to the environmental laws and other relevant policies; and, A3.3.3. Establish a National Recycling Hub (NRH) to support partnerships, and share information among the Roadmap’s diverse stakeholders. Source: World Bank 40 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines • A3.2.1. Define standards and guidelines to implement eco-design requirements should be established based the EPR Law, in the short term; on technical, economic, and environmental analyses, and then the best-performing products or technologies • A3.2.2. Assist micro, small, and medium enterprises should be identified that are available in the Philippine to participate in an EPR program, in the medium term, market, and internationally. In the medium term (from • A3.2.3. Negotiate voluntary agreements with the private 2028 to 2034), guidelines for eco-design and Green sector on eco-design, in the long term. Public Procurement should be developed, and enforced (A3.1.2). The eco-design guidelines should require that (iii) M3.3. Support for Nurturing In-country Innovation and products meet the eco-design requirements before they Incentivizing Information Exchanges is Strengthened. are placed on the market in the Philippines. Manufacturers and importers would then be required to declare (with • A3.3.1. Develop and implement a communication a declaration of conformity) that their product complies strategy on plastic waste management; with all the eco-design requirements. The Green Public • A3.3.2 Conduct feasibility studies to implement energy Procurement programs of all government departments, recovery technologies that adhere to the environmental offices, and agencies should also be amended to include laws and other relevant policies; and, plastic waste-related criteria. A key success factor, in the long term, will be negotiating voluntary agreements with • A3.3.3. Establish a National Recycling Hub (NRH) to private enterprises on eco-design (A3.2.3). support partnerships, and share information among the Roadmap’s diverse stakeholders. Regarding eco-labeling, a coding system should be created for packaging materials and products that indicates the The long-term Outcome—Demand for Plastics Managed type of plastic resin used. This labeling program would and Products Designed for Circularity by 2040—requires facilitate waste recycling and re-use; improve the reliability, achieving the following Milestones: (i) Measures for Eco- comprehensiveness, and transparency of recyclability Design, Eco-Labeling, SUP Alternatives, and Green Public claims; and distinguish between different kinds of Procurement that Promote Plastics’ Circularity are Adopted biodegradable plastic products.28 The provision of detailed and Enforced (M3.1); (ii) Private Sector is Engaged in Plastic on-product and on-packaging information about proper Reduction and Waste Management (M3.2); and (iii) Support plastic waste disposal (A3.1.3) would make waste recovery for Nurturing In-country Innovation and Incentivizing more efficient (in the longer term, after 2034). Information Exchanges is Strengthened (M3.3). Actions to achieve Milestone M3.2 (Private Sector is Actions to achieve Milestone M3.1 (Measures for Eco- Engaged in Plastic Reduction and Waste Management) design, Eco-labeling, SUP Alternatives, and Green Public Procurement that Promote Plastics’ Circularity are Adopted The second set of Actions under M3.2, begins in the short term with defining standards and guidelines for and Enforced) implementing the EPR Law (A3.2.1). As required under To facilitate the reduction of non-recyclable single-use the law, verified information on the type and quantity of plastic products in the market, which was initiated in 2023 plastics from the obligated producers must be available under M1.1, a life cycle assessment should be undertaken and consolidated with those recovered by waste diverters, to identify options for eco-design, eco-labeling, and processed by recyclers, and deposited in a SLF. The alternatives to SUPs (A3.1.1). This will help to fast-track implementation of the EPR Law, and compliance with building knowledge and know-how, and allow sufficient Green Public Procurement requirements should use time to raise awareness and promote the adoption of a participatory approach by creating working groups alternatives, eco-designs, and eco-labeling. This study comprised of representatives from government agencies; should comprise both an LCA and a market analysis, and private businesses, including MSMEs; plastic producers; focus on products that can be easily replaced with locally and other relevant stakeholders. The goal of these working available, single-use, non-plastic, and multi-use alternatives, groups would be to define standards and guidelines to or with highly recyclable or retrievable plastic alternatives. implement the EPR Law, and how to finance plastic recovery through arrangements with PROs. Programs would also For eco-design, the product groups that are the most be developed in the medium term (A3.2.2), specifically, responsible for plastic pollution should be identified. to assist MSMEs to participate, as these businesses have Then those products should be studied to determine less capacity to adopt an EPR program and benefit from a which measures could increase their renewable content, PRO’s arrangements, and especially from arrangements reusability, recyclability, durability, and other waste- for financing plastics’ recovery. related performance characteristics that would make the greatest contribution in reducing plastic waste and minimizing the use of natural resources. The level of 28 Industrially compostable, home-compostable plastic products, and those that biodegrade in other environments such as soil or seawater. 5. The Philippine Plastic Waste Management Roadmap | 41 Actions to achieve Milestone M3.3 (Support for Nurturing would build on the previous short-term Action (A1.4.2), In-country Innovation and Incentivizing Information which published data on waste collection, waste disposal, Exchanges is Strengthened) recovered recyclables, processed biodegradables, and recycled plastics. By bringing together recycling operators, A communication strategy on plastic waste management plastic producers, the LGUs, and private investors, the should be developed (A3.3.1), which is based on the Recycling Hub would promote information sharing, and principles agreed on in the Stakeholders’ Engagement facilitate partnerships and other types of collaboration Group (see HLA3 below). This communication strategy that could lead to new ventures for developing waste would list campaigns on topics that suit each stage of the diversion infrastructure. Roadmap’s implementation—for example, on the various impacts of plastic waste, the roles within EPR, and on SUP Cross-cutting, High-level Actions toward the Goal of Zero alternatives, in the early stages, and on quality standards Plastic Waste Pollution by 2040 for recyclates and eco-design in the later stages. The following High-level Actions (HLAs), which are spread In the longer term, plastic producers would be fully engaged across the three Outcomes’ Milestones, comprise central in reducing plastic waste and enhancing plastic circularity; government-level Actions to support and facilitate the reporting their data in the EPR system; adopting eco-design implementation of the Roadmap. principles in placing their plastic products on the market; using packaging that can be easily reused or recycled; (i) HLA1. Monitor, evaluate, report on, and verify the and identifying eco-designs, eco-labeling, and alternatives Roadmap’s progress, and the status of plastic waste to SUPs that have undergone LCAs (A3.1.1). As a key pollution in the Philippines. Regular monitoring and Milestone (M3.1), the SUPs that have environmentally sound evaluation of the implementation of all of the Actions alternatives should be progressively restricted in the market should be carried out by the participating government and eventually phased out. Finally, in the longer-term, the agencies and other stakeholders. Based on these EPR Law would be fully implemented and enforced to assessments, to ensure the sustainable management achieve its waste recycling and recovery targets. of plastic waste, the Actions and Milestones in The feasibility of energy recovery technologies that adhere the Roadmap could be revised in accord with the to environmental laws and relevant policies should be institutional arrangements for implementing and studied (A3.3.2) when the earlier stages of SWM, such as monitoring the Roadmap’s Actions (see Section 5.4); collection and recycling, have been improved (A1.2.3). This would then be a continuation of earlier Actions on (ii) HLA2. Achieve progress in finding sources of funds waste characterization, and on the optimization of waste and managing finances by improving government collection and recycling undertaken by the LGUs, and the procedures to facilitate the LGUs’ access to resulting feedstock would be available and appropriate for funding sources, and simplifying the guidelines and the energy recovery technologies (A3.3.2). Knowledge- requirements for loan and grant applications for plastic sharing programs with other countries within, and outside and SWM projects; and, the Asia Pacific Region, could facilitate the identification (iii) HLA3. Initiate a Stakeholders’ Engagement Plan to: and adoption of energy-recovery technologies that would assist with the overall implementation of the Roadmap; be suitable for the Philippines’ context. define the principles for the communication strategy A National Recycling Hub should be established to on plastic waste management (A3.3.1); understand support partnerships and information sharing among how various SWM regulations impact vulnerable the diverse stakeholders that are responsible for plastic populations, and identify the responses needed to waste management and recycling (A3.3.3). This Action minimize these negative impacts (A1.1.4) In large urban centers with a high population density, solid waste tends to be better managed because cities have better solid waste infrastructure; established waste collection systems, MRFs, and recycling facilities; and a thriving informal waste sector. Thus, urban centers have greater capacity to handle different types of plastic waste, including packaging materials, and household and industrial plastics. 42 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines Thematic approach for Roadmap Actions heavy dependence on marine resources—all of which are seriously impacted by plastic pollution: The LGUs’ lack of staff capacity and adequate technologies have been identified as barriers to effective SWM (Table (i) Islands with a tourist industry often face challenges 5.1). As noted previously, because urban centers are the in managing their plastic waste because they have key source of plastic waste, the Roadmap targets the limited solid waste infrastructure, and tourists’ SUPs Philippines’ metropolitan cities, highly urbanized cities, increase waste generation. During the tourist season, and emerging cities and municipalities (see Section 2.1). temporary waste management facilities and more In large urban centers with a high population density,29 frequent waste collection may be required to cope solid waste tends to be better managed because cities with the increase in waste. Thus, islands with a tourist have better solid waste infrastructure; established waste industry should prioritize: (i) reduction of non-recyclable collection systems, MRFs, and recycling facilities; and a SUPs to prevent the haphazard disposal of plastic thriving informal waste sector. Thus, urban centers have waste on land and in the marine environment; (ii) greater capacity to handle different types of plastic waste, training hotel, restaurant, and catering staff to use and including packaging materials, and household and industrial promote alternatives to improve facilities’ recycling and plastics. Recycling initiatives may be more accessible for composting of waste; (iii) mitigating the impact of waste residents, and waste segregation practices may be better. on the island’s fragile ecosystem by educating tourists Thus, in accord with the Roadmap’s Short-term Outcome and residents about responsible plastic waste disposal (Plastic Leakage Pathways Closed by 2028), cities should practices; and (iv) financing proper waste management increase the capacity and improve the performance of infrastructure, including recycling facilities, by imposing their SWM infrastructure and services, while working in a tourist-related tax on hotels and restaurants. Other parallel to prioritize reduction of non-recyclable SUPs. strategies could include installing litter traps in water This means that cities would implement the Roadmap bodies, and organizing beach clean-ups. as it is presented in this report. However, away from the highly urbanized and densely populated cities of the (ii) Remote and undeveloped islands often face challenges Philippines, on small, remote islands, plastic and solid in coping with solid waste due to their lack of SWM waste management issues differ, and the Roadmap needs infrastructure and services. If no waste management to be tailored to their needs. This is due to the limited land infrastructure is available on remote islands, solid area of these islands, their fragile ecosystems, and their waste, including plastic waste, is dumped on vacant BOX 5.1. EXAMPLES OF PLASTIC WASTE MANAGEMENT IN ISLAND COUNTRIES WITH MAJOR TOURIST INDUSTRIES Jamaica, a Caribbean island, has banned SUP bags and Styrofoam products, which has reduced plastic leakage into the marine environment. In partnership with the private sector, Jamaica’s government has established plastic bottle recycling programs that collect and process plastic bottles for reuse. The government has also invested in beach clean-ups and educational campaigns to raise people’s awareness about the negative impact that plastic waste has on marine ecosystems. Indonesia, an archipelago in Southeast Asia, with the second longest coastline in the world, faces similar SWM challenges as the Philippines. To resolve these challenges, the government has set ambitious targets for reducing plastic waste, and it engages in regional and international cooperation to address the plastic pollution crisis. To incentivize communities to separate and recycle plastic waste, the government finances the establishment of waste banks. The national campaign “Clean Indonesia” organizes waste clean-ups and provides waste management education. In 2023, the government was also considering developing waste-to-energy facilities. The Maldives, an archipelago in the Indian Ocean, prioritizes sustainable waste management to protect its pristine marine environment, which is the basis for its tourism industry. The government has implemented a ban on SUPs, nationwide, which targets plastic bags, straws, and bottles; it has established waste collection centers and recycling facilities; it organizes beach clean-ups that involve residents and tourists; and it conducts educational programs to promote responsible waste management. 29 According to the Philippine Statistics Authority’s 2020 Census, the region of Calabarzon was the most populous one in the country, with more than 14.4 million inhabitants. This was followed by the National Capital Region (NCR) with 13.5 million inhabitants. Calabarzon was the country’s second most densely populated region after the NCR (Philippine Statistics Authority 2021). 5. The Philippine Plastic Waste Management Roadmap | 43 land, improperly buried, and burned. The lack of heavily on manual sorting, and the limited recycling comprehensive waste management infrastructure activities usually focus on higher-value plastic. In small and services increases the likelihood that plastic waste islands with a low population density, rather than invest will leak into the ocean and negatively impact the in waste treatment and recycling infrastructure, these aquatic ecosystem. Development of pre-treatment islands should make reduction of non-recyclable SUPs facilities for recyclables at the centralized MRF level a high priority, and focus on limiting their use, and or at the EMB-funded MRFs would be more efficient. promoting reusable packaging. The pre-treated recyclables, which would be either cleaned and flaked, crushed, or baled, could then be transported more easily to nearby recyclers or consolidators. With regard to recycling, residents rely As discussed previously (see Section 4 and Table 5.1), the Actions supporting each of the three key Outcomes in the Roadmap, and measured by the various Milestones, were sorted into four thematic areas based on the barriers identified in consultations with stakeholders: These barriers are: (i) Policy and Institutional; (ii) Analytical and Infrastructure; (iii) Financial and Funding; and (iv) Data and Information. These are presented in Table 5.2 on government agencies’ proposed roles for each Action, and in Annex B. TABLE 5.2. THEMATIC APPROACH – PHILIPPINE PLASTIC WASTE ROADMAP: ADDRESSING THE BARRIERS GOAL: Zero Plastic Waste Pollution (2040) OUTCOMES Closing Plastic Leakage Pathways Enabling Plastic Recycling Managing Plastic Demand (2023–2028) (2023–2034) (2023–2040) M1.1. Non-Recyclable SUPs are Reduced M2.1. LGUs’ Capacity to Carry Out M3.1. Measures for Eco-design, Plastic and Solid Waste Management is Eco-labeling, SUP Alternatives, and Developed Green Public Procurement that Promote Plastics’ Circularity are Adopted and Enforced M1.2. Plastic Recovery from Existing M2.2. Informal Sector is Integrated into M3.2. Private Sector is Engaged Facilities is Increased the LGUs’ SWM systems in Plastic Reduction and Waste Management Milestones M1.3. Complementary SWM Legislation M2.3. Production of Good Quality M3.3.Support for Nurturing In- is Enacted Plastic Recyclates is Increased country Innovation and Incentivizing Information Exchanges is Strengthened M1.4. National Database on Recycling and SWM is Set Up and Operationalized M1.5. Technical Guidelines on a Cost- recovery Mechanism for Plastics and SWM are Adopted and Enforced HLA3. Initiate a Stakeholders’ Engagement Plan A1.1.1. Strengthen the regulatory framework to reduce non-recyclable SUPs through enforcing existing and new regulations on SUPs, plastics, and SWM. A1.1.2. Enforce the resolutions and ordinances of the EPR Law. A1.3.1. Enact the laws that support the A2.1.3. Establish a local SWM Office in A3.2.1. Define standards and guidelines reduction of non-ecyclable of SUPs. each LGU, as authorized by the national to implement the EPR Law, in the short LGU SWM Plan. term. A3.1.2. Develop and issue guidelines for compliance on eco-design and Green Public Policy and Procurement, in the medium term. Institutional A1.3.2. Amend Section VIII of RA 9003’s A2.1.5. Increase staff in the SWM Division A3.2.2. Assist micro, small, and medium IRR in the NSWM Framework to raise of the DENR-EMB, and improve their enterprises to participate in an EPR awareness about plastic waste, its technical capacity. program, in the medium term. impacts, and sustainable alternatives. A2.2.1. Prepare guidelines for the A3.2.3. Negotiate voluntary agreements registration and accreditation of informal with the private sector on eco-design, in workers in the LGUs’ SWM system. the long term. A2.3.1. Develop national standards for the quality of plastic recyclates. 44 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines GOAL: Zero Plastic Waste Pollution (2040) OUTCOMES Closing Plastic Leakage Pathways Enabling Plastic Recycling Managing Plastic Demand (2023–2028) (2023–2034) (2023–2040) A1.2.3. Improve plastic and solid waste A2.1.2. Establish new centralized MRFs, A3.3.2. Conduct feasibility studies to collection, including procuring waste recovery or recycling facilities, and implement energy recovery technologies collection vehicles. regional SLFs. that adhere to the environmental laws and other relevant policies. A1.2.5. Conduct feasibility studies to A2.2.2. Issue minimum technical Analytical plan investments for designing and operating standards for junk shops. and constructing additional MRFs, recycling Infrastructure facilities, and regional SLFs. A1.1.3. Increase the waste management A2.2.3. Pilot SWM projects that promote the integration of informal workers. capacity of selected priority sectors such as tourism. A1.4.1. Design a database on plastic A2.3.2. Increase the capacity of recycling facilities. recovery and recycling. HLA2. Achieve Progress in Finding Sources of Funds and Managing Finances A1.5.1. Survey LGUs and the private sector regarding the waste collection fees they Financial charge businesses. and Funding A1.5.2. Prepare technical guidelines on cost-recovery mechanisms plastic waste management. HLA1. Monitor, Evaluate, Report on, and Verify the Roadmap’s Progress, and the Status of Plastic Waste Pollution in the Philippines A1.1.4. Develop understanding of the distributional impacts of SWM and plastic policies, laws, and regulations, and how to minimize negative impacts. A3.1.1. Conduct life cycle assessments to identify options for eco-designs, eco-labeling, and alternatives to SUPs, in the short term. A1.2.1. Audit LGUs’ waste collection A2.1.1. Build the capacity of the LGUs with A3.1.3. Initiate on-product and on- systems to identify facilities that could staff training on how to prepare feasibility packaging information about proper be the focus for short- and medium-term studies. plastic waste disposal, as a long-term Data and actions for increasing recovery. Action. Information A1.2.2. Conduct an audit to develop an A2.1.4. Develop O&M standards for MRFs, A3.3.1. Develop and implement a inventory of the existing MRFs, recycling and an operations manual for barangays’ communication strategy on plastic waste facilities, and sanitary landfill sites. SWM Committees. management. A1.2.4. Train SWM facility staff on O&M to improve their performance in recycling plastic waste. A1.4.2 Publish data on waste collection, A2.3.3 Establish a plastic certificate recovered recyclables, processed scheme for plastic recyclers. biodegradable, disposed of waste, and recycled plastic. 5.4 Roadmap – Proposed Institutional Set- the Interior and Local Government (DILG), Metropolitan Manila Development Authority (MMDA), Department of up Health (DOH), Department of Agriculture (DA), Union of Local Authorities of the Philippines (ULAP), NGOs, and the The National Solid Waste Management Commission private sector. At the LGU level, policy guidance would be (NSWMC) is expected to provide overall policy direction provided by the local SWM Board; however, policy making and coordinate the work of the government agencies and and enforcement would be the responsibility of the local the LGUs that will be responsible for implementing the legislative council and its chief executive. Table 5.5 and Roadmap. The NSWMC is comprised of representatives Annex B list the roles and responsibilities of the government from the Department of Environment and Natural Resources agencies and institutions that would be responsible for (DENR), Department of Trade and Industry (DTI), Depart- implementing the laws and ordinances concerning plastic ment of Science and Technology (DOST), Department of and solid waste management. 5. The Philippine Plastic Waste Management Roadmap | 45 TABLE 5.3. GOVERNMENT INSTITUTIONS’ POTENTIAL ROLES AND RESPONSIBILITIES IN IMPLEMENTING THE PHILIPPINE PLASTIC WASTE MANAGEMENT ROADMAP Institutions Potential Roles and Responsibilities Serves as the lead agency for implementing the Roadmap: • Acts as the coordinating body for policymaking, planning, and implementing the regulation of plastic waste under RA 9003 (2000), and its amendments; National Solid Waste Management • Coordinates with all of the agencies and institutions involved in the Roadmap’s implementation; Commission • Issues the list of non-environmentally acceptable products (NEAPs) prohibited under RA 9003 (Outcome 1); (NSWMC) • Guides the LGUs in institutional strengthening, improving waste collection and treatment, and incorporating informal workers into the formal SWM system (Outcome 2); and • Enforces the implementation of the EPR Law. Serves as the key agency under the NSWMC: • Identifies, reviews, and updates the list of NEAPs and plastic packaging materials to phase them out (Outcome 1); • Collaborates with academic and training institutions in developing the capacity of the LGUs and the private sector to carry out effective solid waste management, operate and maintain SWM facilities, and enforce solid waste regulations (Outcome 2); National Ecology Center (NEC) • Establishes, manages, and disseminates information about the comprehensive, publicly available SWM database, which provides technical and operational approaches to resource recovery, the diversion rate for each type of plastic waste and its recovery and diversion cost, and appropriate plastic management technologies (Outcome 3); • Promotes the development of the recycling market by establishing a national network to enhance opportunities to recycle; and • Acts as the networking hub for the LGUs, industry, and NGOs on cleaner production and cleaner technologies for SWM. Plays a leading role as the chair of the NSWMC, the head of the NEC, and in operating the NSWMC Secretariat: • Authorizes methods and parameters to measure waste reduction, collection, and disposal; • Provides technical and other capacity-building assistance on SWM for the LGUs; Department of • Prepares the IRR and the National Framework for All Types of Product Waste, as well as implementation of the EPR Law; Environment and • Leads and collaborates with other agencies and stakeholders in determining the targets for recycled content in Natural Resources packaging materials; (DENR) • Provides guidelines on the diversion of packaging materials; • Formulates and adopts the credit system for Plastic Footprint Reduction Accomplishments; • Monitors and evaluates the compliance of the Obligated Enterprises/PROs with the EPR Law; and • Assists in securing SWM data from the LGUs for inclusion in the National Ecology Center database. Serves as the key agency in implementing actions to improve recycling (Outcome 2): • Collaborates with other government agencies and manufacturers in formulating standards for the appropriate environmental labeling of products and packaging by enterprises, whether they are covered by the EPR Law or not (Outcome 3); • Develops and promotes the adoption of Plastic Product Footprint generation and recovery standards; Department of Trade • Develops and promulgates a standardized compliance auditing manual under the EPR Law; and Industry (DTI) • Collaborates with the National Ecology Center in establishing and managing a solid waste management information database; • Conducts and publishes studies on the markets for processing and purchasing recyclable materials, and perspectives about how to improve these markets; • Improves the collection and processing of post-consumer materials; and • Assists micro, small, and medium enterprises in participating in an EPR scheme. 46 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines Institutions Potential Roles and Responsibilities Supports and manages its offices—the Industrial Technology Development Institute, Environmental and Biotechnology Division, Materials Science Division, and Packaging Technology Division—in implementing the Roadmap (Outcomes 2 and 3): • Initiates studies on alternatives to non-recyclable and non-reusable materials; Department of • Develops environmental technology verification programs to evaluate technologies prior to their introduction in Science and the Philippines; Technology (DOST) • Promotes clean technology and production programs in the industrial sector; • Fosters new and enhanced solid waste collection and disposal for processing and recovering materials and energy, and improving the use of organic material as fertilizer and biofuel; and • Conducts studies on new uses for recovered resources.30 Supports the implementation of the Roadmap (Outcome 2): • Raises awareness about the health risks of mismanaged plastic waste, and especially within the informal sector; • Spearheads studies on the negative health impacts that handling solid waste has on garbage collectors, waste Department of Health pickers, and other personnel working in SWM; (DOH) • Develops training guidelines for waste collectors and other personnel on handling solid waste, safely;31 and • Prepares a Health Care Waste Management Manual on the safe sorting, collection, transport, treatment, storage, and disposal of medical waste.32 Department of Labor Plays a supporting role in the implementation of the Roadmap: and Employment (DOLE) • Ensures the safety of informal workers (Outcome 2).33 Plays a supporting role in the implementation of the Roadmap: • Issues National Accommodation Standards (Outcome 1); Department of • Collaborates with the private sector, LGUs, and other stakeholders to produce guidelines for hotels to follow the Tourism (DOT) reduction of non-recyclable SUPs; • Facilitates awareness raising on SUPs and their alternatives through education and training for hotel operators; and • Encourages voluntary pledges by hotels and other tourist-related establishments to reduce their use of SUPs. Plays a key supporting role in helping the LGUs to implement the Roadmap: • Assists the Philippines’ President in overseeing supervision of the LGUs;34 • Facilitates setting up Solid Waste Management Boards (SWMBs); • Collaborates with the National Economic and Development Authority, the Department of Environment and Natural Department of the Resources, and the various LGU leagues in establishing a coordinating mechanism for advising the LGUs on how Interior and Local to prepare their SWM Plans; Government (DILG) • Conducts studies on the markets for processing and purchasing recyclable materials, and on taking the necessary steps to expand these markets; • Publishes an inventory of all the solid waste disposal facilities and sites in the country; • Conducts continuing education and information campaigns on SWM; and • Enforces compliance regarding prohibited acts and penalties.35 30 DENR AO 2001-34. 31 DENR AO 2001-34. 32 Sec. 3 (e), OP AO 16, s. 2019. 33 An Act Strengthening Compliance with Occupational Safety and Health Standards and Providing Penalties for Violations Thereof. 34 Executive Order No. 262 (1987): Reorganizing the Department of Local Government and for Other Purposes. 35 DENR AO 2001-34. 5. The Philippine Plastic Waste Management Roadmap | 47 Institutions Potential Roles and Responsibilities Plays a key role in implementing the Roadmap (Outcomes 1, 2, and 3): • Implements and enforces RA 9003, and its amendments within the LGU’s respective jurisdiction, and in line with RA 7160 (1991); • Institutes the creation of a SWM Board at the provincial, city, and municipal level, and an SWM Committee at the barangay level; • Prepares, submits, and executes a 10-year LGU Solid Waste Management Plan; • Enforces mandatory solid waste diversion; • Implements the mandatory segregation of solid waste; • Establishes an MRF in each barangay or cluster of barangays; • Closes all open dumpsites and constructs SLFs to replace these by 2026; Local government • Launches reclamation programs and buy-back centers for recyclables and toxic wastes; unit (LGU) • Through a local ordinance, strengthens institutional capacity by setting up an LGU Environment and Natural Resources Office (ENRO) or a Solid Waste Management Office (SWMO); • Enacts ordinances, in consultation with the DENR, DTI, DOST, the private sector, and other entities to: • prohibit SUPs that can be easily phased out (Outcome 1); • require the registration of junk shops; • impose SWM fees to enhance cost-recovery mechanisms; • employ informal workers in the operation of MRFs; • support the tourism sector in reduction of non-recyclable single-use plastics; • Allocates a budget for training LGU staff on SWM; • Supports implementation of the EPR Law by setting up partnerships with the Obligated Enterprises, Producer Responsibility Organizations, and MSMEs. The Department of Finance is indirectly involved in the Guidelines and programs should also be developed to financing, and especially the public funding of plastic and adequately inform and build these stakeholders’ capacity solid waste management, and under the Green Jobs Act, to participate in relevant Roadmap activities. it incentivizes industries to support the Circular Economy by implementing recycling and the recovery of their waste. Plastic producers and importers (Outcome 3): Private companies launched the Philippine Alliance for Recycling The potential institutional roles that are presented in Table and Materials Sustainability (PARMS) in 2014 to develop 5.3 align with the mandate of each agency, however, these and implement holistic and comprehensive programs to need to be agreed on by the leadership of the national government, and by the heads of each government agency. eliminate waste across the entire plastic value chain. In doing so, PARMS aims to improve the efficiency of resource The main responsibilities for plastic management and utilization, and reduce the need for SLFs. Another important the interlinkages between the different agencies in stakeholder in the private sector is the Philippine Plastics implementing the Roadmap are presented in Figure 5.7. Industry Association (PPIA). Some multinational companies are key players, too, as some of their brands are responsible for substantial amounts of residual waste. 5.5 Roadmap – Key Stakeholders’ Producers and importers of alternatives to SUPs (Outcome Engagement 3): The producers and importers of SUP alternatives are In addition to the government agencies discussed above, expected to increase as the market shifts toward more the other major stakeholders involved in implementing the sustainable consumption patterns. The businesses that Roadmap are private companies, NGOs, and consumers. manufacturer SUP alternatives in the Philippines often use Systematic engagement with these stakeholders, which are locally available materials (for example, bayongs are woven described below, is a key factor in successfully implementing bags or baskets made from several types of leaves that the Roadmap and achieving its goal of Zero Plastic Waste grow in the Philippines). Pollution by 2040. Government agencies’ engagement with Retailers and the hotel, restaurant, and catering sector that these stakeholders should focus on understanding how they distribute SUPs (Outcome 1): Commercial establishments, are impacted by the Roadmap’s Actions so that effective including retailers; sari-sari shops;36 the hotel, restaurant, measures can be taken to reduce any adverse impacts. and catering (HORECA) sector; and street vendors sell or 36 Sari-sari shops are small stores in the community that sell inexpensive products used in everyday life, and many of these food and household products are sold in small amounts in plastic sachets. 48 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines FIGURE 5.7. POTENTIAL INTERACTIONS AMONG GOVERNMENT AGENCIES IN IMPLEMENTING THE PHILIPPINE PLASTIC WASTE MANAGEMENT ROADMAP Production of bio- Networking & communication, Training LGUs & based materials private sector, Data collection on SWM, Maintenance of EPR Registry, Review & update NEAP list DOT National accommodation standards, inspection of Strengthening and capacitating tourism establishments urban LGUs in recovery and processing of recyclables and in composting DA MMDA, Compliance NATIONAL ULAP Assessment, LGUs' ECOLOGY CENTER Capacity building & training ing & planning coord DILG DepED, CHED mak ina licy tio IEC Po n NATIONAL Health & safety SOLID WASTE DOH requirements MANAGEMENT COMMISSION iat Te hn t ar c Source: World Bank ic a re l su S ec DOST ppor WMC t fr o m N S Environmental LOCAL technologies GOVERNMENT UNITS DTI • LGUs = Provincial SWM DENR • Product policy making Boards, Governors, Municipal • Market surveillance SWM Board, Mayors, Barangay • Inspection of producers SWM Committees • Coding of packaging materials • Restrict plastics' sales • Eco-labeling & Eco-design • Provide basic SWM services • Voluntary Agreements • Create IEC on SWM plans • Standardization/accreditation • Collect SWM fee • Manage SWM Funds • Coordination/regulation Intellectual Property • Regulate junk shops & informal sector • implementation & enforcement O ce • Inspect commercial establishments • Environmental compliance Eco-innovation patents certificates NEDA • Substances of concern regulation National Innovation Council, • Voluntary agreements Public funding through • IEC Innovation Fund • Monitor & evaluate compliance DOF, Bureau of Customs Market surveillance, inspection of importers 5. The Philippine Plastic Waste Management Roadmap | 49 give SUPs to consumers. Additional SUP distributors are 1) is the fastest way to get consumers to change their street markets, wet markets, supermarkets, and department behavior and progress toward achieving the Roadmap’s stores. MSMEs are a subset of these stakeholders, and goal of Zero Plastic Waste Pollution by 2040. they are both consumers and distributors of SUPs. The NGOs and civil society organizations (Outcome 3): A ability of these businesses to shift to selling and distributing number of NGOs and social enterprises in the Philippines SUP alternatives is a key success factor in implementing are active in plastic waste management through the the Roadmap. bottom-up initiatives they operate. Examples include “Aling Waste management and recycling operators (Outcome Tindera” by the Plastic Credit Exchange (PCX) (World Bank 2): Most suppliers of recycled resins in the Philippines are 2021a), “Basura Bangka” by Pure Oceans, the “Waste SMEs, and these are challenged by their lack of scale, Watchers” Project by Save Philippine Seas, “Bin Exchange” inefficient management, their outdated technology, and by Clean Our Oceans, and TrashCan. These initiatives play the informal and fragmented waste supply networks that an important role in complementing the waste reduction operate on cash-only terms. Local recyclers also face efforts of national government agencies and the LGUs, and challenges related to: competition from the suppliers they provide examples for the PROs to follow in addressing of imported virgin plastic that are inexpensive due to the problems caused by the plastic waste they generate. low oil prices (mid-2023), unclear government policies Educators and researchers (Outcome 3): Educators regarding the use of recycled resins in food-contact are key stakeholders in reducing solid waste pollution applications, and the low availability of feedstock due to due to the significant role they can play in promoting poor collected-for-recycling rates. Only a few manufacturers awareness and improving knowledge about the importance of recycling technologies are located in the Philippines, and of environmental sustainability. Schools and universities these are mostly in Luzon, near Manila. Waste treatment can raise students’ awareness, and also educate the technologies are considered expensive, and their O&M public about the negative impact that SUPs and improper requires specialized skills. solid waste disposal have on the environment. Academic Informal waste sector (Outcome 2): The SWM system in and independent researchers play an important role, the Philippines employs thousands of informal workers too, through conducting research that supports the who depend on separating highly valuable recyclables technological advances needed to boost the production for their livelihood. These informal workers comprise and consumption of sustainable alternatives to polluting plastics. Such research should receive greater attention, waste pickers and buyers, “jumpers” who work on the encouragement, and financial support from both waste collection trucks, garbage clean-up crews, waste government and the private sector. reclaimers, and the owners of small junk shops that buy and consolidate materials to sell to recyclers. Thousands Mass media (Outcome 3): Mass media (radio, television, of informal workers have no alternative as they lack the newspapers, websites, and social media), as well as the skills and opportunities to do anything else. Since their advertising and public relations industry are important work is unregulated, these key SWM stakeholders have stakeholders due to their ability to raise awareness and no legal rights or protection from the health and safety disseminate information that promotes public discourse risks of working with solid waste. A key success factor in about the need to eliminate SUPs and avoid littering. implementing the Roadmap will be integrating the informal sector into the LGUs’ solid waste management systems Analytical work to assess the distributional impacts (Outcome 2). of plastic waste management Consumers (Outcome 1): SUPs continue to predominate in As noted previously, an important Action (A1.1.4) for Philippine consumers’ waste, and their behavior contributes achieving Outcome 1—Plastic Leakage Pathways Closed by to plastic pollution in two ways: (i) consumers purchase 2028, is developing understanding about how the positive plastic products, and especially SUPs; and (ii) consumers’ and negative impacts of plastic-related regulations vary SUPs become litter. The high value placed on convenience across different socio-economic groups. Variations in in everyday life means that consumers rely heavily on impact arise because of the varying costs, benefits, and short-lived, disposable plastic items, and the convenience responsibilities associated with plastic waste management. of these discourages the transition to reusable alternatives. Reducing the enormous waste and consequent litter Additional analytical work is recommended to fully assess produced by SUPs requires persuading consumers to the distributional impacts of plastic waste management, switch to more environmentally friendly single-use and which includes: (i) A comprehensive socio-economic multi-use alternatives, and to buy products in bulk instead impact assessment to better understand how the impact of buying small portions in sachets. Enacting and enforcing of plastic waste management actions and measures may local regulations to reduce non-recyclable SUPs (Outcome vary across different stakeholders. This assessment would 50 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines review the costs, benefits, and varying impacts on the This report is based on the results of the stakeholder producers of plastic products, businesses that use these, consultations presented in Section 5.5 and Annex D, which and consumers, including vulnerable groups; (ii) A cost- included identifying vulnerable populations and gaining benefit analysis that evaluates the economic implications some preliminary understanding about the varying impacts of plastic waste initiatives by assessing the financial costs that regulations and policy measures could have on them. incurred by various stakeholders versus the expected This consultation process, which first identified barriers, and long-term benefits; (iii) An environmental impact assessment then contributed to the design of the Roadmap, indicates that identifies the environmental impacts of plastic waste the high level of engagement with various stakeholders. management initiatives versus their effectiveness and However, this does not constitute a Stakeholders’ potential trade-offs. This assessment would identify Engagement Plan. Preparing that under High-level Action sustainable practices that minimize and mitigate potential 3 (HLA3) to assist with overall implementation of Roadmap, negative environmental impacts; (iv) Stakeholder analyses will involve defining the principles for developing and on how to sustain engagement with the stakeholders that implementing a communication strategy (A3.3.1); and were identified and consulted in preparing the Roadmap, evaluating how the impact of the regulations and measures and ensure their ongoing participation; and (v) A social to reduce non-recyclable SUPs could vary across different equity assessment that identifies and addresses potential vulnerable populations, and identifying how to minimize disparities and ensures fair outcomes for all stakeholders negative impacts (A1.1.4). These varying impacts of reduction by better understanding the power dynamics that affect of non-recyclable SUPs on different stakeholder groups them, and the potential conflicts of interest that could arise. are summarized in Table 5.4: TABLE 5.4. EXPECTED IMPACTS OF REDUCTION OF NON-RECYCLABLE SUPS ON STAKEHOLDERS ACROSS THE PLASTIC VALUE CHAIN – PHILIPPINE PLASTIC WASTE MANAGEMENT ROADMAP Plastic Value Stakeholders Milestones Roadmap Impact Chain Plastic Producers M1.1 and M3.2: Address Outcome 1. Plastic producers and importers may suffer a slight and Importers the responsibility negative economic impact from the reduction of non-recyclable SUPs for SUPs and plastic (bans, restrictions, and EPR). For example, EPR will increase the cost packaging production of manufacturing and imports. The negative impact on producers and importers could be avoided if they shift to SUP alternatives. Plastic Production and Producers and M3.3: Need to compete Outcome 1. Producers of alternatives would likely benefit from policies that Consumption Importers of with lower-priced SUPs phase out SUPs and promote alternatives. Alternatives Consumers M1.1: Enforce non- Outcome 1. Reduction of non-recyclable SUPs and requiring the use of recyclable SUPs’ higher-priced alternatives could have negative impacts on the poorest reduction segment of the population (street-vendors and informal workers). HORECA M3.3: Distribute SUPs Outcome 3. Strong collaboration across agencies is required to develop and implement policies to reduce non-recyclable SUPs. Some resistance is Waste expected due to the higher price of SUP alternatives. Generation Consumers M3.3: Change Outcome 1. The generation of SUP waste will decrease, but the waste from consumption behavior SUP alternatives could increase. Informal Waste M3.2 and M1.4: Outcomes 1 and 3. Once SUP collection and recycling is regulated, private Sector (Junk Mostly undocumented haulers and junk shops may resist complying with the new registration, Shops) and unregulated; taxation, and data reporting requirements. no systematic data reporting Waste Collection Informal Waste M2.2: Unhealthy Outcome 2. The quantities of SUPs for informal waste pickers to Sector (Waste and unsafe working collect will decline, and they will have to compete for these with the Pickers) conditions LGUs, which could have a negative economic impact on the informal collectors. However, if waste pickers are formally integrated into the LGUs’ SWM system, their income should improve. With EPR, informal sector opportunities should increase as SUPs that previously had no value, would now have value as their recovery is required. 5. The Philippine Plastic Waste Management Roadmap | 51 Plastic Value Stakeholders Milestones Roadmap Impact Chain Educators and M2.3: Increases the Outcome 2. Policies promoting recycling should increase the quality of Researchers quality of the plastic recycling, and decrease the dependency on imported plastic resins. recyclates produced Recovery and Recycling Waste M1.2, M2.3, M1.5, and Outcome 2. New and improved recycling technologies should increase the Management M3.3: Increase technical quality of recyclables and the efficiency and performance of recyclers. New and Recycling and financial capacity policies to improve recycling standards will require building the capacity of Operators and know-how human resources, improving technologies, and so on. Waste M1.2 and M3.2: Improve Outcome 3. Following non-recyclable SUPs’ reduction, the performance Management the standards for the and efficiency of SLFs’ O&M in carrying out the final disposal of plastics and Disposal and Recycling design and construction other solid waste should improve. Operators of SLFs and their efficiency 5.6 Roadmap – Funding Sources additional financial resources from private businesses and industry. The availability of adequate funds is crucial for ensuring the successful implementation of the Roadmap. The initial The key financial resources and instruments available for key Actions include audits and surveys to quantify the plastic waste management are as follows: funding gaps. Traditionally, the funding for plastic waste Annual General Appropriations Act (GAA) management initiatives in the Philippines has come from the national government and the LGUs’ budgets, and this The funds appropriated to finance government programs includes the annual General Appropriations Act (GAA), the and projects under the annual General Appropriations Act LGU General Fund, the National Solid Waste Management (GAA) come from the General Fund, which comprises all Fund (NSWMF), and local Solid Waste Management Funds. of the government’s revenue and income. The GAA is an International development agency projects also finance SWM annual authorization from the Philippine Congress, which, initiatives by supplementing the government’s resources. in a given year, provides dedicated appropriations for The environmental and SWM fees levied on residents, salaries, wages, and other personnel benefits; maintenance industries, and businesses provide sources of funding, and other operating expenses; and capital outlays for the too, for plastic and solid waste management. implementation of all programs, projects, and activities in government departments, bureaus, and offices. To prepare By applying the Polluters Pay Principle, such as EPR, the for the GAA, all government agencies provide estimates government can create a funding mechanism that holds for their expenditures to submit to Congress. For example, producers financially responsible for the management of the National Ecology Center (NEC) and the DENR-EMB are their products’ waste. This approach shifts the financial both mandated under the EPR Law to include the sums burden for plastic waste management to the producers, necessary for the effective implementation of the law in the and it encourages them to adopt sustainable practices annual budget that they submit for financing under the GAA. by redesigning their products for reuse and recyclability. The implementation of the new EPR Law’s IRR introduces a LGU General Fund comprehensive and sustainable approach for funding plastic At the local level, the LGU General Fund finances the waste management in the Philippines. This is because EPR programs, projects, and other expenditures related to an funds are specifically earmarked for waste management LGU’s mandate and functions, including SWM. This General activities, including infrastructure development, material Fund comprises an LGU’s entire income from fees, charges, recovery facilities, recycling facilities, awareness campaigns, and other revenue sources, as well as the IRA from the and stakeholder engagement. The combination of all of these national government. The amount is fixed at 40 percent of funds and fees, and the very strong public-private partnership all of the national taxes collected in the three years prior to framework in the Philippines should facilitate private sector the current year. Under RA 7160 (1991), at least 20 percent participation through co-financing and contributing additional of the IRA could be earmarked to finance development skills for carrying out plastic waste management. projects and activities, including SWM. An LGU can allocate The Roadmap primarily focuses on highly urbanized cities the SWM budget from the General Fund, and 20 percent and municipalities. As noted previously, the key municipalities from the local development fund. in Metro Manila have the necessary resources to implement Similar to the national government, the LGUs must draft the recommended improvements in solid and plastic waste a multi-year, multi-sectoral development plan, which is management, and they also have the capacity to access called the Comprehensive Development Plan (CDP). The 52 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines The Polluters Pay Principle holds producers financially responsible for the management of their products’ waste. This approach shifts the financial burden for plastic waste management to the producers, and encourages them to adopt sustainable practices by redesigning their products for reuse and recyclability. CDP is implemented through an LGU’s programs, projects, National Solid Waste Management Fund and activities (PPAs), which are prioritized under the Local Development Investment Program (LDIP). The LDIP reflects Although the National Solid Waste Management Fund the prioritized PPAs that must be included in an LGU’s Annual (NSWMF) is still not operational (mid-2023), RA 9003 of 2000 Investment Plan, and then reflected in the LGU’s annual authorized the fund’s establishment as a special account in budget. In order to secure funding for their Actions in the the National Treasury, which is to be administered by the Roadmap, the LGUs must include these in their LDIP. National Solid Waste Management Commission. The possible sources of financing for the NSWMF include: (i) donations, The LGUs are allowed to incur debt under Section 296 of endowments, grants, and contributions from domestic and RA 7160 (1991), and avail themselves of credit facilities to foreign sources; (ii) amounts specifically appropriated for finance local infrastructure and socio-economic projects, the fund under the annual General Appropriations Act; and including SWM. This financing can come from government (iii) fines collected under RA 9003, which are based on a financial institutions (for example, the Land Bank of the sharing agreement between the NSWMF and the LGUs. Philippines, the Development Bank of the Philippines, and the However, the NSWMF will not include the fees collected Philippine National Bank); private financial institutions; and through implementation of the EPR Law. government lending programs managed by the Municipal Development Fund Office (MDFO). Under Section 324 of the Local Solid Waste Management Funds Local Government Code, the ceiling for LGU borrowing is The IRR of RA 9003 (2000) authorizes the barangays to set to allow an appropriation for servicing debt that amounts set up a local SWM Fund, which can be financed from: (i) to 20 percent of an LGU’s regular annual income. donations, endowments, grants, and contributions from Multilateral and Bilateral Funds domestic and foreign sources; (ii) the LGU’s share of the fines it collects; (iii) fees collected by the LGU for providing solid Multilateral financial institutions (for example, the Asian De- waste services, such as collecting, recycling, and transporting velopment Bank [ADB], the World Bank, and the International waste; (iv) sub-contracting fees, including those for waste Finance Corporation [IFC]) and bilateral funding agencies (for management, transport, and so on; and (v) allocation from example, the Japan International Cooperation Agency [JICA], the 20 percent of the Local Development Fund. Kreditanstalt für Wiederaufbau [KfW], the United States Agency for International Development [USAID], and Austra- Both national and local funds can be used to support SWM lian Aid) are major sources of financing for the infrastructure endeavors that enhance the implementation of RA 9003. This projects of both the national and local governments, and includes (i) products, facilities, technologies, and processes for various NGOs. These multilateral and bilateral funding that enhance effective SWM; (ii) awards; (iii) incentives; agencies can also provide Philippine government financial (iv) research programs; (v) information, education, and institutions and the MDFO with concessional long-term communication campaigns, and monitoring activities; (vi) funds for lending to the LGUs. technical assistance; and (vii) capacity-building activities. Public-private Partnerships Table 5.5 presents potential funding and financing options for implementing the Roadmap. The key agencies listed would A public-private partnership (PPP) can be used to finance identify potential sources of funding within their agency that government services, including SWM. The Roadmap’s could be used to fill the identified financing gaps. implementing agencies can set up a PPP, and especially one for capital intensive activities. The selection of the Funding should become progressively more available modality ranges from schemes authorized under the through the implementation of the EPR Law, and the Build-Operate-Transfer Law (RA 6957 of 1990), which was establishment of public-private partnerships for SWM amended by RA 7718 of 1994, to joint-venture arrangements. projects. In addition to the LGU General Fund, the source This is allowed under the Local Government Code, as well of funds for SWM projects will primarily be loans from as other private sector-funded arrangements. financial institutions, and grants and concessional loans from international development agencies. 5. The Philippine Plastic Waste Management Roadmap | 53 TABLE 5.5. POTENTIAL FUNDING AND FINANCING OPTIONS FOR IMPLEMENTING THE ROADMAP Source Features Gaps Viability Public funding Comprises appropriations for: salaries, wages, and other benefits for Total budget for each Primary source personnel; maintenance and other operating expenses; and capital agency is limited of funding Annual GAA outlays to fund implementation of the programs, projects, and activities in all of the government departments, bureaus, and offices for the given year National and Supports national and local agencies’ SWM activities Few, to no resources, so Local Solid Waste currently this is not used Management Funds Comprises all of the income from fees, charges, and other revenue No earmarking; allocation LGU General Fund sources, as well as the Internal Revenue Allotment (IRA) depends on the priorities of the LGU Financing and funding sources from the private sector Through the EPR’s RA 11898, Section 10, this supports the enterprises Not implemented yet Financing Revenue generated and PROs that are responsible for the EPR system’s O&M (mid-2023) unlocked by from EPR meeting the Roadmap’s Finance the implementation, development, and building of waste Currently (mid-2023) not Milestones management systems and other infrastructure widely adopted; suitable PPPs enabling conditions need to be in place to bring in the private sector Land Bank of the Philippines (LBP), Development Bank of the LGUs will need to repay Additional Philippines (DBP), and Philippine National Bank (PNB) these loans; proper financing/ Loans from financial cost-recovery mechanisms funding sources institutions Multilateral financing institutions (for example, ADB, the World Bank, should be established and IFC) and bilateral funding agencies (for example, JICA, KfW, USAID, beforehand and Australian Aid) United Nations’ organizations such as the United Nations Environment Dependent on third-party Official Programme and the United Nations Development Programme; JICA, funding development WWF, the Global Environment Facility (GEF), GIZ, the Green Climate assistance (ODA) Fund (GCF), and so on 5.7 Roadmap Implementation: Monitoring, and proposed legal and regulatory framework with respect to plastic waste management. The proposed Actions in the Evaluation, Reporting, and Verification Roadmap to support its Outcomes, which are measured by the Roadmap’s Milestones, will transition over a reasonable With the start of the Roadmap’s implementation in 2023, period of time from simple Actions to complicated ones. a capacity development needs assessment should be Based on the analysis of current conditions, addressing performed by the key agencies involved in implementing the basic issues and barriers that affect waste collection, the Roadmap to determine the gaps in knowledge and diversion, treatment, and disposal need to be prioritized implementation skills. Based on this assessment, the to first reduce, and then eventually stop plastics’ leakage responsible agencies (see Section 5.4 of the Roadmap into the environment. – Institutional Set-up) would use internal and external resources to carry out the required capacity building. The Tracking and measurement of the achievements of the efforts of these agencies would be supplemented once the Roadmap, and assessment of the effectiveness of its National Ecology Center is fully operational. As indicated in implementation from 2023 to 2040, should use the mon- the Roadmap, capacity building should continue throughout itoring and evaluation (M&E), and the reporting systems the Roadmap’s implementation period, as this is crucial for of the designated government agencies. This would be the success of the Roadmap. carried out through the agencies’ annual reporting on their progress in implementing the Roadmap’s Actions The Roadmap was designed to suit the current SWM and and achieving its Milestones. At the end of the Roadmap’s plastic waste conditions in the Philippines, which were short-term, medium-term, and long-term implementation assessed through consultation with stakeholders, and an timeline, external reviews should be carried out to verify assessment of the capacity of the key government agency government agencies’ annual M&E and reporting. The stakeholders, the current financial conditions, and the current Monitoring Framework is presented in Figure 5.8. 54 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines FIGURE 5.8. PROPOSED MONITORING, EVALUATION, REPORTING, AND VERIFICATION (MERV) FRAMEWORK – PHILIPPINE PLASTIC WASTE MANAGEMENT ROADMAP The Philippine Plastic Waste Management Roadmap (proposed MERV) National Solid Waste Other Management Commission Agencies DENR DTI DOF, Bureau of Customs DILG DOST Intellectual Property O ce TESDA, PIA DOH NEDA MMDA DA DepEd, CHED LPP, LCP, LMP DOT Information Draft annual reports Draft annual reports Coordinators by each lead Agency & by each lead Agency from Coordinators from non-NSWMC National Ecology Center NSWMC Agencies Agencies Information Monitoring Unit External Evaluators (Summarizes all draft reports (Prepare external Information and approves the final annual monitoring reports) report based on Monitoring Tool) Information External Evaluation Reports Other Public House and Senate Sources Committees on Environment Source: World Bank 5. The Philippine Plastic Waste Management Roadmap | 55 Each government agency participating in the Roadmap relevant stakeholders in the Roadmap’s implementation should identify which of its units will be responsible for phases (see Section 5.5 and Annex D). These conducting M&E, and who will coordinate the unit and implementation phases are supported by information, report the annual M&E results to the NSWMC so that it can education, and communication campaigns to raise carry out an evaluation. The NSWMC, in consultation with awareness about plastic waste pollution, alternatives its participating agencies, could consider other parameters, to SUPs, and the legal and regulatory framework for too, for assessing the Roadmap’s results, which would be plastics and SWM. based on the goals and timelines indicated in the Roadmap. 6. Too long an implementation period for the Roadmap: As noted above, external reviews should be performed By design, the Roadmap extends until 2040 to allow by an independent evaluator to verify accomplishment of enough time to implement the Actions and reach the the short-term, medium-term, and long-term goals of the Milestones. As implementation could be affected for Roadmap (see Annex E). Based on the results of the NSWMC various reasons, including changes in the participating evaluations, and those of the external reviewers, the Actions agencies and stakeholders, to address this challenge, and corresponding Milestones in the Roadmap could be regular reviews of the Monitoring Framework will be extended, modified, or stopped and replaced with more carried out until 2040. appropriate ones. The external evaluations are particularly important to ensure that the internal monitoring for the 5.8 Strategic Alignment with On-going Efforts Roadmap is high quality. Annex E provides recommendations to Improve Plastic Waste Management on how to conduct the external evaluations. The Philippines has initiated a number of complementary The implementation of the Roadmap could face some strategies to tackle plastic waste and solid waste challenges, and the measures for mitigating these are: management (see Figure 3.4). Each strategy provides a different part of the solution for achieving effective plastic 1. Difficulties in attaining the 2040 goal of Zero Plastic waste management. Given the severity and the complexity Waste Pollution: The Roadmap aligns with the Strategies, of the issue, any potential duplication of efforts in the Actions, and Milestones of the National Plan of Action for strategies should be viewed as necessary to reinforce the the Prevention, Reduction, and Management of Marine Roadmap’s Actions. With RA 9003 as the umbrella legislation Litter (NPOA-ML) (see Figure 3.3). The Roadmap is also for plastic waste management, and the DENR ensuring the based on the assumption that best international practices act’s implementation, the other strategies should ensure suited to conditions in the Philippines have been, and a synergistic approach to plastic waste management. The will be widely adopted. proposed Roadmap aligns with the timeline for implementing the current legislation and strategies, and it will focus on 2. Problems sourcing and mobilizing adequate funding: harmonizing the government’s strategies, clarifying the Funding from public and private sources has been roles of the participating agencies, streamlining the Actions, identified. Legislation to allow the inclusion of SWM and ensuring consistent and effective implementation to programs in the national budget could also be proposed achieve the goal of Zero Plastic Waste Pollution by 2040. (see Section 5.6). As noted previously, the proposed Actions of the 3. The Roadmap’s Actions are too ambitious, given the Roadmap align with the NPOA-ML’s 10 strategic actions current state of SWM in the Philippines, which is little to progressively restrict specific SUPs and mainstream plastic circularity and booming plastic demand: The sustainable consumption and production initiatives (see Roadmap is designed to ensure that its Actions are Figure 3.3). Thus, the Roadmap supports a shift toward the implemented in phases. For example, Actions to improve Circular Economy. The Philippine Action Plan for Sustainable Consumption and Production (PAP4SCP) also includes waste collection systems and recycling markets (M2.2) actions for developing waste minimization policies, and it would be carried out before more ambitious Actions provides a plan to reduce non-recyclable SUP packaging such adopting eco-design measures (M3.1). in the short term. 4. Lack of collaboration across government agencies: To Actions in the Roadmap contribute as well to achieving the develop their sense of ownership, government agencies development outcomes in the Philippine Development Plan were consulted and involved in preparing the Roadmap 2023–2028. These comprise improving environmental (see Section 5.5 and Annex D). The proposed institutional quality by broadening waste minimization initiatives, framework (see Section 5.4) clearly identifies the lead increasing access to proper waste disposal facilities, and and supporting agencies, and their specific roles. addressing the capacity constraints at the local level that continue to impede effective solid waste management. 5. Problems sustaining the participation and cooperation of key stakeholders: As this is a key success factor to ensure The Green and Sustainable Packaging Science and Technology Roadmap prepared by the Packaging the Roadmap’s proper implementation, its Stakeholders’ Technology Division of the DOST Industrial Technology Engagement Plan is designed to incorporate all of the 56 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines Development Institute (PTD-ITDI) targets developing policy Actions: S2—Mainstream Circular Economy and Sustainable measures and regulations for using recycled packaging, Consumption and Production Initiatives, S3—Enhance and achieving the effective disposal of plastic packaging by Recovery and Recycling Coverage and Markets, and 2029. The PTD roadmap also plans to establish standards S4—Prevent Leakage From Collected or Disposed Waste. for plastic and bioplastic recycling. The Roadmap’s information exchanges on recycling and waste management also align with the NPOA-ML’s Strategic Private sector involvement in waste management, in Action S3. general, and in plastic reduction, in particular, is one of the Actions under the Roadmap. This aligns with the NPOA-ML’s Roadmap Actions to enforce and implement the EPR Law Strategic Action S2—Mainstream Circular Economy and are consistent with the law’s provisions, the NPOA-ML’s Sustainable Consumption and Production Initiatives. Strategic Action S2—Mainstream Circular Economy and Sustainable Consumption and Production Initiatives, and Actions in the Roadmap to increase the quality of recyclates NEDA’s Philippine Action Plan for Sustainable Production and sorted waste, boost the demand for recyclates, and and Consumption (PAP4SCP), which, in the medium term improve the technical capacity of the LGUs to produce (2022–2030), is intended to institutionalize the Polluter quality recyclates, align with the NPOA-ML’s Strategic Pays Principle for consumers, and EPR for manufacturers. Action S2—Mainstream Circular Economy and Sustainable Consumption and Production Initiatives, as well as with the The Roadmap’s fund sourcing and financial management system-changing strategies of the Zero Waste to Nature Actions align with the NPOA-ML’s Strategic Action S9— (ZWTN) 2030 Roadmap of PARMS. The latter’s strategies Enable Sufficient and Cost-effective Financing and Other are intended to drive market demand and the uptake of Institutional Resource Requirements for the Implementation products from waste, as well as facilitate partnerships of the NPOA-ML, and with the MMDA 25-Year SWM Master and collaborations that bring together private investors, Plan, under the heading, Institutional Strengthening, LGUs, and local stakeholders to enter new ventures for which includes building capacity to conduct financial developing waste diversion infrastructure. and economic analyses for proposed projects, as well as Research and innovation on eco-design and alternatives providing technical assistance for identifying sources of to SUPs align with the NPOA-ML’s Strategic Action S1— funding for SWM projects. Establish Science- and Evidence-based Information on Marine Litter, and with NEDA’s Philippine Action Plan for The Roadmap’s Action to integrate the informal sector into Sustainable Production and Consumption (PAP4SCP), which the LGU SWM system aligns with two of the NPOA-ML’s states “Strengthen research and innovation towards SCP Strategic Actions: S2—Mainstream Circular Economy and and develop prototype green technologies.” In addition, Sustainable Consumption and Production Initiatives, and the PAP4SCP’s identification, prioritization, and adoption of S4—Prevent Leakage From Collected or Disposed Waste. eco-design principles align with the NPOA-ML’s Strategic Action S2—Mainstream Circular Economy and Sustainable The Roadmap’s cross-cutting Actions, which contribute Consumption and Production Initiatives. to increasing consumers’ awareness about the need to separate their waste for collection, and on the adverse Enabling sufficient, cost-effective financing and other impacts of SUP littering, align with the NPOA-ML’s Strategic institutional resource requirements under the Roadmap Action S8—Developing and Implementing Strategic and support the implementation of the NPOA-ML’s Strategic Action S10—Strengthen LGUs’ Capacities and Local- Targeted Social Marketing and Communications Campaigns. level Implementation of [the] NPOA-ML. Strengthening The Roadmap’s Action on developing a communication the institutional set-up for waste management in the strategy (A3.3.1), and its High-level Action 3 (HLA3) on LGUs also aligns with the NPOA-ML’s Strategic Action the Stakeholders’ Engagement Plan, align with the major S9—Enable Sufficient and Cost-Effective Financing and programs/projects of the MMDA 25-Year SWM Master Plan Other Institutional Resource Requirements to Implement on preparation and training for stakeholder engagement, [the] NPOA-ML. and capacity building through social and behavior change In addition, the Roadmap aligns with the Sustainable S&T communication. Table 5.6 summarizes the different Solid Waste Management Roadmap of the Philippines strategies just discussed, their leading agency, and their Council for Industry, Energy, and Emerging Technology relevance to plastic waste management. Research and Development (PCIEERD) under the heading, Human Resources “Upgrading of capacities/capabilities of institutions for sustainable SWM.” Similarly, the Metropolitan Manila Development Authority (MMDA) 25-Year SWM Master Plan includes the formulation of ordinances to support improving organizational structures and plans, and it provides an introductory course and the roll-out of a new SWM Monitoring and Information System, which the LGUs can adopt. The Roadmap’s Actions to improve the systematic collection of data on waste management and make these data publicly available, align with three NPOA-ML Strategic 5. The Philippine Plastic Waste Management Roadmap | 57 TABLE 5.6. THE MOST RELEVANT AND RECENT NATIONAL STRATEGIES EXPECTED TO IMPACT PLASTIC PRODUCTION, CONSUMPTION, AND DISPOSAL; THE LEADING AGENCY; AND THE IMPLEMENTATION TIMEFRAME Title of the strategy Leading agency Contents Timeframe National Plan of Action Department of Overarching goal, Zero Waste to Philippine Waters by 2040, through 2021–2040 for the Prevention, Environment and Natural shared responsibility, accountability, and participatory governance. Reduction, and Resources-Environmental Management of Marine Management Bureau Litter (NPOA-ML) (DENR-EMB) National Economic and Strategies on Policy Regulation, Research and Development, 2020–2040 Development Authority Innovation and Technology, Infrastructure, and Promotion and (NEDA) Education, have been developed to increase the production and Philippine Action consumption of Green products: Plan for Sustainable • Creation of business models for waste minimization and innovation Consumption and hubs (2020–2022); Production (PAP4SCP) • Institutionalization of EPR (2022–2030); and • Banning non-recyclable SUPs where viable alternatives exist (2022–2030). Packaging Technology • Reduce the environmental impact of packaging materials; 2022–2032 Green and Sustainable Division of the DOST • Develop locally produced biodegradable and bioplastic packaging Packaging Science and Industrial Technology with improved properties; and Technology Roadmap Development Institute (PTD-ITDI) • Establish circular system/technologies for three types of packaging. Philippine Alliance for Provides strategies for members, including those offering fast-moving 2021–2030 Recycling and Materials consumer goods, to enable them to achieve zero industrial and Zero Waste to Nature Sustainability (PARMS) post-consumer packaging waste in nature by 2030. Its three major (ZWTN) Roadmap strategies are: design for circularity, support for waste recovery facilities, and facilitation of investments in diversion pathways. Philippine Council for Serves as the basis for the development and prioritization of new 2022–2026 Industry, Energy, and programs and projects to be included in the call for proposals related Sustainable S&T Solid Emerging Technology to solid waste management funding. Waste Management Research and Roadmap Development (PCIEERD) The milestones set for 2026 are enhanced industry compliance with solid waste management policies/regulations, and the reduction and minimization of solid waste generation. National Economic and Targets by 2028 are: 2023–2028 Development Authority • 53 percent of barangays served by materials recovery facilities (MRFs); (NEDA) • 50 percent of cities/municipalities served by sanitary landfill facilities Philippine Development (SLFs); Plan (PDP) • 80 percent of plastic products’ footprint recovered; and, • 5.40 MtCO2e greenhouse gas (GHG) emissions reduced from the waste sector. Philippine Plastics Ensure the viability, sustainability, and competitiveness of the industry 2014–2030 Industry Association through the development and strengthening of the plastics’ recycling Philippine Plastics (PPIA), in partnership with industry. Targets for recovery and recycling are 20 percent by 2022, 60 Roadmap the Department of Trade percent by 2030, and improving employment in the recycling industry, and Industry’s Board of including the marginalized sector (informal waste pickers). Investments (DTI-BOI) Metropolitan Manila Once the Master Plan has been agreed by the Metro Manila Council, 2022–2046 Development Authority a resolution to adopt 25-year plans and strategies will be developed (MMDA) and published. Some of the major programs/projects/activities under consideration are: 25-Year SWM Master Plan • Facility-based Integrated SWM; • SWM Policy Development Program; • Stakeholder Engagement and Behavioral Change; and • Institutional Strengthening. 58 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines 6. CONCLUSION In conclusion, this report illustrates the urgent and substantial challenges posed by plastic waste in the Philip- pines, while also outlining the foundations for a Roadmap to manage, and to ultimately reduce non-recyclable single-use plastics in the country. The pervasiveness of plastic waste, which is fueled by significant consumption, ineffective waste management, and the public’s general lack of environmental consciousness, underscores the need for immediate and strategic action. The legislation and sector strategies for plastic waste management in the Philippines, although commendable, fall short in effectively tackling the sheer volume of plastic waste, and the complex structural issues in waste management. Current government efforts comprise policies for waste segregation, initiatives for recycling, and local bans on single-use plastic products; however, these measures have been unevenly applied and insufficiently enforced, which has resulted in their limited success. The barriers impeding the further improvement of plastic waste management are multi-faceted, and range from institutional to socio-cultural ones. There is obvious lack of coordination among the various stakeholders, insufficient infrastructure, and lack of public awareness regarding plastic waste issues. Moreover, the systemic issues in waste management and the informal sector’s role in waste collection and recycling add more layers of complexity to the situation. To address these challenges, the Roadmap presented in this report provides a comprehensive, phased, and long-term approach to manage plastic waste and reduction of non-recyclable single-use plastics. The goal of achieving Zero Plastic Waste Pollution by 2040 might seem ambitious, however, it is feasible and necessary given the scale of the Philippines’ plastic waste problem. The proposed Roadmap provides a strategic plan that is built on three significant Outcomes, it is supported by a number of practical Actions, and these are measured by time-bound Milestones: • The Actions to achieve the First Outcome, Plastic Leakage Pathways Closed, over the period from 2023 to 2028, target improving waste collection, segregation, and disposal; and reducing the amount of plastic that enters natural ecosystems, and especially the ocean. By upgrading waste management infrastructure, and carrying out stricter regulation, this phase should establish the groundwork for the succeeding steps in the Roadmap. • The Actions to achieve the Second Outcome, Plastic Recycling Enabled, over the period from 2023 to 2034, requires investments in recycling technologies, training programs, and incentives to encourage more significant participation in recycling efforts. The vision here is to transform waste into resources, and foster a Circular Economy. • The Actions to achieve the Third Outcome, Demand for Plastics Managed and Products Designed for Circularity, over the period from 2023 to 2040, focus on reducing the production and consumption of plastics, and particularly single-use items. This outcome necessitates public education campaigns, legislation to restrict single-use plastics, and the promotion of alternatives to plastics. 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Journal of Education, Arts and Sciences Volume 4, Issue 2: https://www.niva.no/en/projectweb/aseano. 62 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines 85-102. http://apjeas.apjmr.com/wp-content/uploads/2017/10/ UNESCAP (United Nations Economic and Social Commission for Asia APJEAS-2017.4.2.12a.pdf and the Pacific). n.d. “Closing the Loop.” Bangkok: UNESCAP. https://www.unescap.org/projects/ctl PROBLUE (World Bank). n.d. “PROBLUE: Healthy Oceans, Healthy Economies, Healthy Communities.” PROBLUE website. https:// Unilever. n.d. “Rethinking plastic packaging.” https://www.unilever.com/ www.worldbank.org/en/programs/problue planet-and-society/waste-free-world/rethinking-plastic-pack- aging/ Republic of the Philippines. 2000. Republic Act No. 9003: The Ecological Solid Waste Management Act of 2000. Metro Manila: Congress Valinsky, Jordan. 2019. “New York will Start Enforcing Its Styrofoam Ban of the Philippines. Today. Here’s Where Else It’s Banned.” CNN. July 1, 2019. https:// edition.cnn.com/2019/07/01/business/new-york-styrofoam- _______. 2022. Republic Act No.11898: The Extended Producer Respon- ban-trnd/index.html. sibility Act of 2022. Metro Manila: Congress of the Philippines. Watkins, Emma, Susanna Gionfra, Jean-Pierre Schweitzer, Mia Pantzar, Ritchie, Hannah and Max Roser. 2018. “Plastic Pollution”. OurWorldInData. Charlotte Janssens, and Patrick ten Brink. 2017. EPR in the EU org. Retrieved from: https://ourworldindata.org/plastic-pollution. Plastics Strategy and the Circular Economy: A Focus on Plastic Packaging. Brussels: Institute for European Environmental RiverRecycle. n.d. “PHILIPPINES: Pasig River cleanup.” RiverRecycle Policy. https://zerowasteeurope.eu/wp-content/uploads/2019/11/ website accessed August 12, 2023. https://www.riverrecycle. zero_waste_europe_IEEP_EEB_report_epr_and_plastics.pdf com/philippines-pasig-river-cleanup/ World Bank. n.d. “How is the international poverty line derived? How is it South African Waste Information Centre. n.d. “South African Waste different from national poverty lines?” Washington, DC: World Information Centre.” http://sawic.environment.gov.za Bank. https://datahelpdesk.worldbank.org/knowledgebase/ Starbucks Corporation. 2018. “Starbucks to Eliminate Plastic Straws articles/193310-how-is-the-global-poverty-line-derived-how-is-it Globally by 2020.” July 9, 2018. https://stories.starbucks. ______. 2017. Public-Private Partnerships: Reference Guide, Version com/press/2018/starbucks-to-eliminate-plastic-straws-glob- 3. Washington, DC: World Bank. https://openknowledge. ally-by-2020/ worldbank.org/handle/10986/29052 Stinson, Liz. 2019. “New ‘Zero-waste Platform’ Sells Products in Reusable ______. “Project Appraisal Document. P153814. Metro Manila Flood Stainless Steel Containers.” Curbed. January 30, 2019. https:// Management Project.” Washington DC: World Bank archive.curbed.com/2019/1/30/18201277/loop-zero-waste-plat- form-recycling ______. 2018b. “World Bank Announces New Global Fund for Healthy Oceans.” Press Release. World Bank. NO: 2018/036/ENR. Sur, Mona, Junu Shresta, and Agnes Balota. 2023. “Addressing the September 26, 2018. https://www.worldbank.org/en/news/ plastic pollution crisis in the Philippines: New momentum.” press-release/2018/09/26/world-bank-announces-new-global- World Bank Blogs, March 16, 2023. https://blogs.worldbank. fund-for-healthy-oceans org/eastasiapacific/addressing-plastic-pollution-crisis-phil- ippines-new-momentum?cid=SHR_BlogSiteEmail_EN_EXT ______. 2021a. An Assessment of Municipal Solid Waste Plans, Collection, Recycling and Disposal of Metro Manila. Washington DC: Tanaka, Julian. 2021. Sachets at the Bottom of the Pyramid: Redesigning World Bank. Laundry Detergent Sachet Packaging Systems for Impactful Reduction of Plastic Waste in the Philippines. Master’s ______. 2021b. Market Study for the Philippines: Plastics Circularity Thesis submitted to Massey University, New Zealand. Palm- Opportunities and Barriers. Washington, DC: World Bank. erston North: Massey University. https://mro.massey.ac.nz/ http://hdl.handle.net/10986/35295 handle/10179/16759 ______. 2021c. Plastic Survey and Product Alternatives Analysis in the Transparency International. 2018. “Corruption Perception Index.” Berlin: Philippines Islands of Bohol, Siargao, and Siquijor. Washington, Transparency International. https://www.transparency.de/cpi/ DC: World Bank. cpi-2018/cpi-ranking-2018/ ______. 2021d. „PHILIPPINES: Mandanas Ruling Provides Opportunities Tun-atiruj, Choltanutkun. 2018. “Foodpanda Now Lets You “Opt Out” of for Improving Service Delivery Through Enhanced Decentral- Plastic Cutlery.” BK Magazine. June 5, 2018. https://bk.asia-city. ization.“ Press Release. World Bank. June 10, 2021. https:// com/city-living/news/foodpanda-to-give-you-option-to-opt- www.worldbank.org/en/news/press-release/2021/06/10/ out-plastic-cutlery philippines-mandanas-ruling-provides-opportunities-for-im- proving-service-delivery-through-enhanced-decentraliza- UNEP (United Nations Environment Programme). 2018. Single-Use Plastics. tion#:~:text=As%20a% A Roadmap for Sustainability. United Nations Environment Programme. Nairobi: UNEP. https://www.unep.org/resources/ ______. 2022a. 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Reducing Plastic Waste in the Philippines: An Assess- in Travel & Tourism - Impacts, Management Practices and ment of Policies and Regulations to Guide Country Dialogue Recommendations. June 2021. Nairobi: UNEP. https://wedocs. and Facilitate Action. Washington, DC: World Bank. https:// unep.org/bitstream/handle/20.500.11822/36324/RSUP.pdf documents1.worldbank.org/curated/en/099125107222237489/ pdf/P17099403d3da6044094b10b703a895c34d.pdf Bibliography | 63 ______. 2023a. Combating the Plastic Waste Crisis in the Philippines: WRI (World Resources Institute) Indonesia. n.d. “Indonesia National Implementing Extended Producer Responsibility with Lessons Plastic Action Partnership (NPAP).” https://wri-indonesia.org/ Learned from Korea. Washington, DC: World Bank. https:// en/our-work/project/indonesia-national-plastic-action-part- documents1.worldbank.org/curated/en/099201003082324515/ nership-npap pdf/P177183036b0c904c08b1a0526fcb062538.pdf WWF Philippines (World Wildlife Fund, Philippines), cyclos GmbH, and ______. 2023b. “External Costs of Common Plastics and Alternatives.” AMH Philippines. 2020. EPR Scheme Assessment for Plastic Washington, DC: World Bank. Forthcoming Packaging Waste in the Philippines. Quezon City: WWF Philippines. https://wwf.org.ph/wp-content/uploads/2020/12/ ______. 2023c. Philippines: Plastic Diagnostics, Field and Remote WWF_REPORT_EPR_Philippines_2020.pdf Sensing, River Monitoring, and Microplastics Assessments. Washington, DC: World Bank. Forthcoming Yoshioka, Nagisa, Marlon Era, and Daisuke Sasaki. 2021. “Towards Integration of Climate Disaster Risk and Waste Management: World Economic Forum, Ellen MacArthur Foundation, and McKinsey & A Case Study of Urban and Rural Coastal Communities in the Company. 2016. The New Plastics Economy: Rethinking the Philippines.” Sustainability Volume 13, Issue: 4. https://www. Future of Plastics. January 2016. Cowes: Ellen MacArthur mdpi.com/2071-1050/13/4/1624# Foundation. https://ellenmacarthurfoundation.org/the-new- plastics-economy-rethinking-the-future-of-plastics. 64 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines ANNEXES Annex A: Key Plastic Resins and Single-use Plastics in the Philippines Information on the use of various plastic resins, and their recyclability is described in this annex and summarized in Table A.1. Low-density polyethylene (LDPE) is primarily used as a film for packaging products, which includes food. LDPE is also used in bags and sando bags.37 As the latter are challenging to collect, and have no street value, they are not recycled. Thus, LDPE has a collection ratio for recycling of only 5 to 15 percent. Recycled LDPE is made into plastic lumber, furniture, trash bags, sheeting, films (used for agricultural products), and flooring. LDPE’s non-recyclable components are used in manufacturing composite products (for example, electronic and automotive parts). High-density polyethylene (HDPE) comprises about 17 percent of all of the plastic resins consumed in the Philippines, and a large proportion of HDPE is made into film for packaging food products, and into garbage bags. Other packaging applications include shampoo bottles, milk jugs, and plastic shopping bags, such as labo bags.38 The collection rate for recycling HDPE is about 25 to 35 percent. In general, HDPE can be recycled for packaging and industrial applications; however, HDPE products used for packaging food are often contaminated, so they have a low value, and little is collected. Rigid HDPE is often recycled into plastic shopping bags (labo bags), of which approximately 75 percent is recycled high-density polyethylene (rHDPE), and 25 percent is low-density polyethylene (rLDPE). As is the case with sando bags, labo bags are not collected by the informal sector because recyclers do not want these bags, and they will not pay for them. However, recyclers will pay for rigid HDPE, rigid LDPE, and rigid polypropylene (PP) so informal waste collectors and junk shops in Metro Manila can earn about ₱15 per kilo for these (the price in 2019). Polypropylene accounts for about 39 percent of the domestic production of plastics in the Philippines. Because of its low cost, PP is the cheapest plastic available, and suitable for both rigid and flexible packaging such as that used in the automotive industry, and as fiber in fabrics. PP is also used in making SUPs such as plastic straws, food containers, and sando bags. PP’s collection ratio for recycling is about 25 to 35 percent, and recycled PP is used for packaging and applications in the automotive, electronics, and furniture industries.39 A high percentage of PP is used as a film for food packaging, which means that these PP products are usually contaminated, and informal collectors do not want them because they have a low value. As polyethylene terephthalate (PET) is not produced in the Philippines, all PET resins are imported, with most coming from Asian countries. PET is primarily used in manufacturing plastic bottles for beverages and in food packaging ( jars, ovenable film,40 and microwavable food trays). Cleaned and recycled PET flakes and pellets are in high demand, globally, 37 Sando bags are ones with handles that are used for carrying goods. 38 Labo bags are multi-purpose plain plastic bags. 39 Based on interviews with key local stakeholders. 40 Suitable for cooking in an oven. 65 and can be used as: (i) recycled polyester staple fiber (rPSF) The domestic production of polyvinyl chloride (PVC) in the and recycled partially oriented yarn (rPOY) for making Philippines accounts for 22 percent of the country’s total carpets, fleece jackets, and fill for comforters and sleeping production of plastic resins. PVC is used in the building and bags; (ii) food-grade containers for food and beverages; construction industry, and usually ends up in construction and (iii) non-food-grade items (films, sheets, and strapping). and demolition waste. PVC has limited application in the packaging industry, other than as labels. Because of its Collection for recycling varies, dramatically, depending on long use-life, PVC is less likely to end up as marine debris the packaging type. Due to their high value, the recycling than is the case with most other plastic products, and it rate for PET beverage bottles in the Philippines is about does not get collected for recycling. 35 to 65 percent. The estimated recycling rate for other PET packaging applications (such as sheets, films, oil Domestic polystyrene (PS) production is only about 3 bottles, and cosmetics) is 20 to 30 percent. The price of percent of the total resin production in the Philippines. PS rPET fluctuates due to the varying price of virgin material. and expanded polystyrene (EPS), which are not widely used When PET prices drop, aggregators and recyclers reduce in the country, comprised only 5 percent and 6 percent of their collection of PET products because recycling these total plastic consumption in 2015 and 2019, respectively is less profitable. There is little PET recycling capacity in (World Bank 2021b). EPS is a thermal insulator, which is the Philippines. The current formal recycling capacity for used both for preserving and transporting animal protein PET is about 66,900 metric tons per year (MT/Y), and the such as meat and fish. EPS SUPs include food boxes and informal recycling/processing capacity is about half of plastic cups, and especially cups for hot beverages. Due to that.41 The collected PET is turned into PET flakes, which is improper disposal, EPS tends to break down into smaller, technically considered to be pre-processing, not recycling.42 light-weight pieces that float in water. The collection rate Furthermore, none of the PET bottles collected for recycling of PS for recycling is less than 10 percent. The need to are recycled into food-grade materials. The latter is a crucial phase out PS production is recognized, worldwide, due to issue because as PET has a higher market value, it has its poor recycling rate. Because the conventional floatation potential for circularity (such as bottle-to-bottle recycling). process in recycling cannot remove PS, it contaminates polyolefin recycling. 41 Formal PET recycling absorbed 39 percent of the consumed PET packaging, and recycling capacity was expected to grow by 65,000 MT/Y by 2022, which would enable 76 percent of the PET consumed in the Philippines to be recycled, locally. 42 Stakeholders interviewed in the Philippines widely reported that a number of informal PET processors create PET flakes and export them—primarily to China. 66 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines TABLE A.1. USES FOR VARIOUS PLASTIC RESINS, AND THEIR RECYCLABILITY IN THE PHILIPPINES Domestic Production Use Collection for Recycling Recycling PET (Society of the Plastics Industry [SPI] Resin ID code 1) PET resins are imported— Used for plastic beverage For beverage bottles: 35 to Insufficient recycling capacity (about 66,900 mainly from other Asian bottle manufacturing and food 65 percent; for sheets, films, MT/Y, or 39 percent of the PET placed on countries packaging (food jars, ovenable and cosmetic bottles: 20 to the market), and no capacity for recycling film, and microwavable food trays) 30 percent food-grade materials. PET is mainly exported to China HDPE (SPI Resin ID code 2) 320,000 MT/Y of HDPE/ Used for food packaging, About 25 to 35 percent As food packaging is often contaminated, it has LDPE (36 percent of shampoo bottles, milk jugs, and low value so not much is collected. Rigid HDPE the Philippines’ total plastic shopping bags such as is often recycled into plastic shopping bags. production of resins labo bags The informal sector does not collect labo bags for recycling as recyclers will not pay much for them PVC (SPI Resin ID code 3) 200,000 MT/Y (22 Used in the building and Little information is If not properly removed from packaging, PVC percent of the Philippines’ construction industry, with limited available on the collection labels can enter the recycling process and total production of resins) application in packaging (only as of PVC that is used in hamper it labels) packaging LDPE (SPI Resin ID code 4) 320,000 MT/Y of HDPE/ Used as packaging film for food About 5 to 15 percent As LDPE food packaging is usually LDPE (36 percent of and for sando bags contaminated, it has low value, so it is not the Philippines’ total collected for recycling. Rigid LDPE has higher production of resins) value if it can be recycled (such as in Metro Manila) PP (SPI Resin ID code 5) 350,000 MT/Y (39 Ideal for both rigid and flexible About 25 to 35 percent43 As PP film products for food packaging are percent of the resins uses such packaging, straws, and usually contaminated, collectors and recyclers produced in the food containers do not want them Philippines) PS (SPI Resin ID code 6) 30,000 MT/Y (3 percent Food packaging, including Less than 10 percent Poor recycling outcomes as it contaminates the of the Philippines’ total Styrofoam (EPS) for food, and polyolefin recycling system production of resins) single-use cups Mix of Plastic Resins (SPI Resin ID code 7) Multilayer, multi-material Film for packaging, which includes Low collection rates, due Recycling is generally low, as recyclers cannot flexibles form an food packaging and sachets to their low value in the get the financing they need to scale up as they important percentage of recycling market, which do not earn enough to reliably repay a loan. packaging for consumer means that much of the Between 3 to 7 percent of the waste becomes goods in the Philippines waste ends up in landfills, refuse-derived fuel (RDF) for use in factories dumpsites, or is burned such as cement plants, and less than 2 percent (more than 90 percent) is recycled into products such as eco-bricks, lumber, and furniture 43 Based on interviews with key local stakeholders. Annexes | 67 Annex B: Actions and Timelines for the Plastic Waste Management Roadmap 68 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines Outcome 1: Plastic Leakage Pathways Closed Actions Lead Support Funding Source Timeline Stakeholder/s Preparations to Reduction of Non-Recyclable SUPs Define standards and guidelines to implement the EPR DENR, DTI, NEC NSWMC GAA 2023–2040 Law Conduct a study to identify the SUPs that could be NSWMC DTI, DENR, DOST GAA, NSWMF 2023–2025 easily phased-out Conduct LCAs to identify options for eco-designs, DOST, DTI NSWMC, DENR GAA 2023–2040 eco-labeling, and alternatives to SUPs Enact the laws that support the reduction of non- Congress, LGUs DILG, NSWMC GAA 2023–2040 recyclable SUPs Formulate IRR on reduction of non-recyclable SUPs and DENR, DILG, DOF NSWMC GAA 2028 prepare related guidelines Improve LGUs’ Waste Collection Systems Audit the LGUs’ waste collection systems to identify DENR-EMB, LGU NSWMC, DILG GAA 2023–2025 facilities that could be the focus for short- and medium- term actions for increasing recovery Improve plastic and solid waste collection, including LGU DILG LGU IRA, Loan/ 2024 onward procuring waste collection vehicles Grant Improve the Recovery of Recyclables, Recycling, and Waste Disposal Conduct an audit to develop an inventory of existing DENR-EMB, LGU NSWMC, DILG GAA 2023–2024 MRFs, recycling facilities, and sanitary landfill sites Conduct feasibility studies to plan investments for LGU, Private Sector NSWMC, DENR GAA, Loan, Grant 2023 onward designing and constructing additional MRFs, recycling facilities, and SLFs Expand plastic waste recovery from PET and HDPE to LGU, NSWMC Private Recyclers Funds from 2023 onward include PP and LLDPE with focus on flexibles private companies Increase the capacity of recycling facilities Recycling companies DTI, NSWMC Funds from 2023 onward private companies Improve the Sourcing of Funds and Financial Management Survey the LGUs and private sector regarding the waste DENR NSWMC, LGUs GAA 2023 collection fees they charge businesses Prepare technical guidelines on cost-recovery DILG, DENR LGUs GAA 2024 mechanisms for plastic waste management Simplify the guidelines and requirements for loan and Development Banks DOF, NSWMC Multilateral and 2023–2024 grant applications for plastic waste and SWM projects bilateral funding agencies Build the capacity of the LGUs with staff training on how NSWMC DILG, LGU GAA, NSWMF 2024–2025 to prepare feasibility studies Prepare technical guidelines on the establishment and DILG LGUs GAA 2025 operationalization of local Solid Waste Management Funds Annexes | 69 Outcome 2: Plastic Recycling Enabled Actions Lead Support Fund Timeline Stakeholder/s Source Develop the LGUs’ Capacity to Carry Out Plastic and Solid Waste Management Amend Section VIII of RA 9003’s IRR in the NSWM DENR NSWMC GAA 2024 Framework to raise awareness about plastic waste, its impacts, and sustainable alternatives Develop and implement a communication strategy on Barangays, LGUs, DepEd, TESDA, GAA 2024 onward plastic waste management DILG CHED, DILG and PIA Develop guidelines and procedures for reporting NSWMC DENR GAA 2023 waste-related data Develop standards and guidelines to implement the EPR DENR NSWMC, Private GAA 2023–2024 Law sector Develop guidelines and training for hotels on SUPs DOT LGUs, Private sector GAA 2023 Develop and issue guidelines for compliance on DTI All government GAA 2023 eco-design and Green Public Procurement offices Develop national standards for the quality of plastic DTI-BPS DENR, DILG, LGUs GAA 2024 recyclates Issue minimum technical operating standards for junk NSWMC DENR GAA 2025 shops Integrate the Informal Sector into the LGUs’ SWM Systems Prepare guidelines for the registration and accreditation DILG NSWMC, LGUs GAA 2025–2028 of informal workers in the LGUs’ SWM system Prepare guidelines on the minimum health and safety DOLE, DILG DOH GAA 2023 requirements for waste pickers working in the MRFs LGUs Local NGOs Pilot SWM projects that promote the integration of DOLE, DILG DOH GAA 2023 informal workers LGUs Local NGOs Increase the Production of Good Quality Plastic Recyclates Develop O&M standards for MRFs, and an operations NSWMC DENR, DILG, LGUs GAA 2023 manual for barangays’ SWM Committees Develop national standards for the quality of plastic DTI-BPS NSWMC GAA 2025 recyclates Establish a plastic certification scheme for plastic DTI-Philippine NSWMC, GAA 2027 onward recyclers Accreditation Plastic recyclers Bureau (PAB), DENR Increase Know-how, Technology Development, and Information Exchanges on Recycling and Waste Management Issue a resolution requiring obligatory reporting by all DENR NSWMC DENR-EMB 2023 waste management operators funding allocation in the GAA Prepare a standardized methodology and forms for DENR DOST, NSWMC GAA 2023 reporting waste-related data Prepare information, education, and communication DENR, LGUs DILG, NSWMC, GAA 2024 campaigns on data collection, recording, reporting, and Waste recyclers database access Design a database on plastic recovery and recycling DENR DILG, NSWMC, GAA 2024 Waste recyclers, LGUs 70 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines Outcome 3: Demand for Plastics Managed and Products Designed for Circularity Actions Lead Support Fund Timeline Stakeholder/s Source Progressively Reduce Non-Recyclable SUPs Adopt eco-design, eco-labeling, SUP DOST, DTI, DENR GAA 2026–2040 alternatives, and Green Public Procurement PECEPSDI Enforce the provisions of the EPR Law NEC DENR, NSWMC GAA 2023–2040 Enforce new laws concerning SUPs DENR, LGUs NSWMC GAA 2027–2043 Reduce non-recyclable SUPs in tourism areas 2027–2043 Reduce non-recyclable SUPs nationwide DENR, LGUs NSWMC GAA 2029 onward Engage the Private Sector in Plastic Reduction and Waste Management Encourage the HORECA sector and other tourist Private sector DTI, DOT, DENR, Private 2025 onward enterprises to make voluntary pledges to reduce NSWMC sector SUPs Establish working groups on EPR NSWMC Concerned govt. GAA 2024 onward implementation that include government, plastic agencies, Private producers, and other relevant stakeholders sector Conduct Information, Education, and Communication Campaigns Conduct information, education, and LGU, DENR Plastic producers/ GAA 2023 onward communication campaigns on alternatives to manufacturers,EMB SUPs and the harmful impacts of mismanaged plastic waste Annexes | 71 Annex C: Proposed Institutional Set-up: being collected and recycled, and their respective prices; the rate of recovery and diversion for each type of plastic Philippine Plastic Waste Management waste; the cost of recovery and diversion for each type of Roadmap plastic waste; and SWM and recycling technologies. Under RA 9003, the NEC is also responsible for promoting the National Solid Waste Management Commission (NSWMC) development of the recycling market through establishing a national network that will enhance the opportunities to The National Solid Waste Management Commission’s recycle, and provide the LGUs, NGOs, and industry with role is crucial in the Roadmap’s implementation as it is information on cleaner production and technologies for the coordinating body for policymaking, planning, and the SWM. regulation of plastic waste under RA 9003 (2000), and its amendments. As such, the NSWMC would coordinate the Department of Environment and Natural Resources (DENR) Roadmap-related efforts of the Department of Trade and Industry (DTI), Department of Science and Technology RA 9003 has designated the Secretary of the Department (DOST), Department of Health (DOH), Department of of Environment and Natural Resources (DENR) as the chair Agriculture (DA), Department of Environment and Natural of the NSWMC, the DENR Environmental Management Resources (DENR), Department of the Interior and Local Bureau (DENR-EMB) as the host for the NSWMC Secretariat, Government (DILG), Metro Manila Development Authority and the Assistant Director of the DENR as the head of (MMDA), League of Provinces of the Philippines (LPP), the NEC. (as amended under RA 9003) also authorizes League of Cities of the Philippines (LCP), League of the DENR to establish the methods and parameters for Municipalities of the Philippines (LMP) and the Philippine measuring waste reduction, collection, and disposal, and Plastics Industry Association (PPIA). The NSWMC also providing technical and other capacity building assistance cooperates on common concerns with the Department on SWM to the LGUs. of Tourism (DOT), Department of Finance (DOF), National The DENR, and particularly the EMB, plays a key role in Economic and Development Authority (NEDA), Bureau the preparation of the IRR for RA 9003, and the National of Customs (BOC), Intellectual Property Office (IPO), Framework for All Types of Product Wastes, as well as Department of Education (DepEd), and Commission on the implementation of the EPR Law. In particular, the EMB, Higher Education (CHED). In addition, the NSWMC is together with the Department of Trade and Industry’s Bureau responsible for issuing the list of non-environmentally of Philippine Standards (DTI-BPS), and relevant industry acceptable products (NEAPs) that will be prohibited under associations, determines the targets for recycled content in RA 9003. In accord with the LGUs’ SWM Plans, which they packaging materials; provides guidelines on the diversion submit to the NSWMC for evaluation and approval, the of packaging materials; formulates and adopts the system NSWMC guides the LGUs in strengthening their institutional for crediting Plastic Footprint Reduction Accomplishments; set-up, improving their waste collection and treatment, and monitors and evaluates the Obligated Enterprises/ and integrating informal workers into their SWM system. Producer Responsibility Organizations’ compliance with The NSWMC is the primary body, too, in implementing the EPR Law. The EMB could also assist in securing SWM the EPR Law. data from the LGUs for inclusion in the NEC’s database, and National Ecology Center (NEC) the environmental impact assessment (EIA) system could generate SWM and plastic waste-related data/information Under the NSWMC, the National Ecology Center (NEC) is from the regulated companies. responsible for identifying, reviewing, and updating the list of NEAPs and plastic packaging materials to recommend to Department of Trade and Industry (DTI) the NSWMC for phasing out. In coordination with academic The Department of Trade and Industry (DTI) is a key and training institutions such as the DepEd, CHED, and agency for improving recycling in the Philippines, and Technical Education and Skills Development Authority the DTI Bureau of Philippine Standards (DTI-BPS) and (TESDA), the NEC also facilitates training and education the NSWMC, in collaboration with other government for the LGUs and private businesses on proper SWM, SWM agencies, are responsible for formulating standards for facility technical operations and maintenance (O&M), and the appropriate environmental labeling of products and enforcement of the SWM regulations. packaging by enterprises and manufacturers, whether In coordination with the DTI, DENR, DILG, and other they are covered by the EPR Law, or not. The DTI-BPS, as concerned agencies, the NEC is responsible for establishing an initiative of the NSWMC, DENR-EMB, and DTI, is also and managing a comprehensive solid waste management mandated to develop and promote the adoption of Plastic information database and dissemination system on: Product Footprint generation and recovery standards. solid waste generation and management techniques; In addition, the DTI is expected to collaborate with the management, technical, and operational approaches to Auditing and Assurance Council (AASC) in developing resource recovery; processors/recyclers; the materials and promulgating a standardized compliance auditing 72 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines manual on the EPR Law, and with the NEC in establishing Department of Labor and Employment (DOLE) and managing the SWM information database. The Department of Labor and Employment (DOLE) is Under RA 9003, and its amendments, the DTI, in cooper- responsible for providing support to ensure the safety ation with other agencies, is responsible for conducting of informal workers. Under the Labor Code and its IRR, and publishing studies on the markets for processing occupational health and safety standards must be set up and purchasing recyclable materials, as well as making and enforced in all workplaces, including SWM facilities. recommendations for improving these markets. The DTI Under RA 11058,47 the government guarantees a safe and could also provide support to improve the collection and healthy working environment for employees by providing processing of post-consumer materials. In addition, based protection from all possible dangers in any place where on the IRR of the EPR Law, the DTI could encourage MSMEs work is being done. to implement extended producer responsibility (EPR), and then through the Bureau of Small and Medium Enterprise Department of Tourism (DOT) Development (BSMED), assist MSMEs in adopting EPR Programs. Regarding the reduction of non-recyclable SUPs in tourist facilities, the Department of Tourism (DOT), which issues Department of Science and Technology (DOST) the National Accommodation Standards, could revise these to include additional indicators on SUP consumption in The Department of Science and Technology (DOST) hotels and other accommodation, and collaborate with and its offices—the Industrial Technology Development the private sector, the LGUs, and other stakeholders to Institute (ITDI), Environmental and Biotechnology Division produce guidelines on reduction of non-recyclable SUPs in (EBD), Materials Science Division (MSD), and Packaging tourist areas. The DOT could raise awareness, too, about Technology Division (PTD)—are responsible for supporting SUPs and their alternatives by providing education and actions that will lead to increasing the capacity of the training for hotel operators and other establishments that LGUs for recycling, reducing the demand for plastics, and cater to tourists, and also encourage tourism businesses promoting the Circular Economy. The DOST is also tasked to make a public pledge to reduce SUPs. with initiating a study on alternatives to non-recyclable and non-reusable materials; developing an environmental Department of the Interior and Local Government (DILG) technology verification (ETV) program for evaluating tech- nologies prior to their local introduction; promoting the For actions that are LGU-led, the Department of the development of a clean technology (CT)/clean production Interior and Local Government (DILG) plays an important (CP) program in industry; developing and applying new role. Under Executive Order No. 262 (1987),48 the DILG and improved methods for collecting and disposing of is responsible for: assisting the Philippines’ President in solid waste, and processing and recovering materials supervising local government; facilitating the setting up and energy from solid waste; improving the utilization of of SWM Boards; collaborating with the DENR, NEDA, and various types of organic materials as a source of fertilizer the various LGU Leagues in developing a coordinating and biofuels; and conducting a study on developing new mechanism to guide the LGUs in preparing their SWM uses for recovered resources.44 plans; conducting and publishing a study on the markets for processing and purchasing recyclable materials, and Department of Health (DOH) potential steps for expanding these markets; publishing an inventory of all the solid waste disposal facilities and sites The Department of Health (DOH) is responsible for increas- in the country; conducting an information, education, and ing informal sector workers’ awareness about health and communication campaign on SWM; ensuring the ongoing safety when they are collecting and processing plastic provision of information and training on waste manage- recyclables. Under RA 9003, the DOH spearheads studies ment for every level of LGU, down to the barangays; and on the negative impacts of solid waste on the health of scav- enforcing compliance with SUP prohibitions, and charging engers, garbage collectors, and other personnel involved penalties for violations.49 in SWM programs; and develops training guidelines for collectors and other personnel involved in handling solid Local government units (LGUs) waste.45 In addition, the DOH is responsible for preparing the Health Care Waste Management Manual that explains Consistent with RA 7160 (1991), within their respective the effective and proper handling, collection, transport, jurisdictions, the LGUs are principally responsible for the treatment, storage, and disposal of health care wastes.46 implementation and enforcement of RA 9003, and its amendments. RA 9003 (2000), its amendments, and its 47 An act that strengthens compliance with occupational safety and health stan- 44 DENR AO 2001-34. dards and provides penalties for violations. 45 DENR AO 2001-34. 48 Reorganizing the Department of Local Government, and for other purposes. 46 Sec. 3 (e), OP AO 16, s. 2019. 49 DENR AO 2001-34. Annexes | 73 IRR require the LGUs to establish Solid Waste Management In consultation with the DENR, DTI, DOST, the private (SWM) Boards at the provincial and city/municipal levels, sector, and other entities, the LGUs could enact ordinances and SWM Committees at the barangay level; prepare and that prohibit the use of non-recyclable SUPs that can be submit a 10-year Solid Waste Management Plan (SWMP); easily phased out. Similarly, through local ordinances, the establish mandatory solid waste diversion; implement the LGUs can require the registration of junk shops and their mandatory segregation of solid waste; establish a MRF adoption of SWM standards; impose SWM fees to enhance in each barangay or cluster of barangays; close all open cost-recovery mechanisms; employ informal workers in the dumpsites and establish sanitary landfill facilities by 2006; operation of MRFs; support the tourism sector in reducing and establish reclamation programs and buy-back centers non-recyclable SUPs; allocate a budget for training the for recyclables and toxic products. LGU personnel who are involved in SWM; and support the implementation of the EPR Law, and particularly through The SWM Board is the policy-making body at the local level setting up partnerships with the Obliged Enterprises, PROs, that formulates an LGU’s SWMP. Execution of the SWMP is and MSMEs. carried out by the local chief executive through the LGU’s Environment and Natural Resources Office (ENRO) or its Solid Waste Management Office (SWMO). The status and composition of an ENRO or SWMO varies from one LGU to another because the creation of such an office is not mandatory under RA 7160. The LGUs could strengthen their institutional mechanism by creating an ENRO, and through a local ordinance, develop the capacity of its personnel. 74 | Guidance on the Development of a Roadmap for Managing Plastic Waste and Phasing out Single-use Plastics in the Philippines Annex D: Stakeholder Consultations Roadmap, and specific activities required to prepare the Roadmap. Conducted in Preparing the SUP Roadmap The fourth TWG meeting on March 3, 2022 discussed In preparing this publication, Guidance on the Development the Gap Analysis Report that had been prepared for the of a Roadmap for Managing Plastic Waste and Reduction Roadmap. of Non-Recyclable Single-use Plastics in the Philippines, the Cabinet Cluster on Climate Change Adaptation and In addition to the TWG meetings, consultations were held Disaster Risk Reduction’s Technical Working Group on with a number of government agencies, international the Circular Economy, Sustainable Consumption and development partners, private sector associations, and Production, and Single-use Plastics (TWG on CE, SCP, NGOs to examine the policy and implementation gaps and SUPs), which is led by the Department of Environment that impact the different sectors involved in plastic waste and Natural Resources (DENR), in collaboration with the management. These consultations included the: Department of Finance (DOF), and the Climate Change • Climate Change Commission (CCC); Commission (CCC) Secretariat, served as the platform for knowledge exchange, government agencies’ review, and • Department of Environment and Natural Resources technical deliberations. (DENR); The DOF introduced the concept of developing the • Department of Finance (DOF); Roadmap in the first TWG meeting on March 11, 2021, after which the World Bank’s Task Team, which would coordinate • Department of the Interior and Local Government (DILG); the Roadmap’s development, made a presentation on other • Department of National Defense (DND) – Office of Civil Asia Pacific countries’ experiences in developing plastic Defense; waste management roadmaps. As a crucial component of effective solid waste management (SWM), it was agreed • Department of Science and Technology (DOST) in the meeting that the Philippines’ Roadmap would serve • Department of Tourism (DOT); as a guide in pursuing actions that build on existing and future policies, legislation, and regulations, and which could • Department of Trade and Industry (DTI); be readily implemented with a step-by-step approach. • Deutsche Gesellschaft für Internationale Zusammenar- In the second TWG meeting on May 14, 2021, it was agreed beit (GIZ); that the Roadmap would comprise the major Milestones, and Actions that are needed to: (i) achieve significant • European Union Delegation; reduction in SUPs’ consumption, and increase the recovery • House of Representatives Committee on Ecology; of SUPs for recycling and treatment, or their proper disposal; (ii) ensure a just transition, and provide social safety nets • National Economic and Development Authority (NEDA); for affected workers and businesses, and especially for • Philippine Alliance for Recycling and Materials Sus- MSMEs; (iii) formulate producer responsibility schemes that tainability (PARMS); make producers financially responsible for the management of their products’ waste from production to disposal; (iv) • Philippine Plastics Industry Association (PPIA); develop strategies for identifying and mainstreaming the use of reusable and compostable single-use plastic (SUP) • Senate Committee on Environment, Natural Resources, alternatives; (v) increase awareness about the impact of and Climate Change; SUPs’ use, their improper disposal, and best practices in • United Nations Development Programme (UNDP); plastic and solid waste management; and (vi) establish mechanisms for fiscal and non-fiscal rewards and incentives. • United Nations Human Settlements Programme Additionally, it was agreed among the various stakehold- (UN-Habitat); and ers attending the meeting that the Roadmap would be • World Wildlife Fund – Philippines. strategically formulated to remain relevant, regardless of progress on the legislative measures to phase out single-use plastic products that were proposed in the Philippines’ 18th Congress. The third TWG meeting on December 14, 2021 was the inception meeting for the Roadmap’s preparation after the consultant, Environment Agency Austria, had been hired to undertake the assignment. The meeting developed common understanding about the scope of work, tasks involved, lead agencies for the key components of the Annexes | 75 Annex E: External Evaluations of the Evaluation of the implementation of the waste management program should be carried out by comparing the baseline Roadmap’s Implementation data with the results achieved. In addition to objectively Three external evaluations should be conducted to assess evaluating the technical and economic results, the external the independence, openness, objectivity, and transparency evaluations should take into account the non-quantifiable of the internal monitoring and evaluation carried out by the results, as well as the indirect results. As a result of the Roadmap’s implementing agencies. For this purpose, the external evaluations, changes in some of the objectives external evaluator would have access to the information and parameters of the Roadmap, as well as the tools used required to precisely assess compliance in implementing for its implementation, could be proposed. the targeted measures, and whether the financial resources The main reliable sources of information for use in the have been used effectively. Thus, over the period of the three external evaluations are: Roadmap’s implementation, the following three external evaluations should be carried out: • The annual National Solid Waste Management Status Report (Section 8, item b, of RA 9003); • Foundation assessment. Since the foundation for an effective plastic waste management system will be • The Report to Congress (Section 63 of RA 9003); laid in the Roadmap’s first five years, it is vital to assess • Annual status reports for the National Solid Waste the degree of success in implementing the Actions Management Fund (Rule XV, Section 1, of the IRR for envisaged over this period (conduct in 2028, at the RA 9003), and status reports for the local Solid Waste end of the short-term period, 2023–2028). Management Funds (Rule XV, Section 6, of the IRR • Мid-term review. A Mid-term Review should be for RA 9003); conducted halfway through the full implementation • Reports on the implementation of the provincial, city, of the Roadmap to assess its progress, and the impacts and municipal solid waste management plans from achieved through its Actions (conduct in 2034, at the previous years; end of the medium-term period, 2028–2034). • Information submitted on the implemented, terminated, • Final evaluation. A Final Evaluation should be conducted and completed plastic waste-related projects; at the end of the Roadmap’s implementation to evaluate progress and the impacts achieved through the Actions • Information from the Solid Waste Management Informa- carried out over the Roadmap’s whole implementation, tion Database that will be established by the National and this should recommend future measures (conduct Ecology Center (Section 7, item b, of RA 9003); in 2040, at the end of the long-term period, and the full implementation of the Roadmap). • Minutes of public discussions and workshops on themes related to the implementation of waste management programs, plans, and so on; and • Questionnaires and/or survey cards used for gathering public opinions. Annexes | 76 January 2024