TERMS OF REFERENCE

Metro Manila Flood Management Project

Procurement of Consulting Services for Planning and
Demonstration of
Community-Based Solid Waste Management Initiatives
in Priority Project Drainage Areas

1. BACKGROUND

1.1. Solid Waste Issues and Management - General

In 1991, the Local Government Code (RA 7160) was established to
devolve powers and responsibilities to Local Government Units
(LGU), including that of solid waste collection and disposal. Cities
and municipalities are responsible for secondary collection and
disposal while barangays are responsible for primary waste
collection.The centerpiece legislation on solid waste management
(SWM) the Ecological Solid Waste Management Act of 2000 —
Republic Act 9003 (RA 9003) – was developed to mandate the
closure and conversion of open dumpsites into controlled disposal
facilities and eventually into sanitary landfills; the implementation of
a “3R approach” (reduce, reuse, recycle); the creation of Materials
Recovery Facilities (MRFs); and integration of the informal waste
sector in mainstream waste management.

As of 2018, it is estimated that Metro Manila1 generates about

9,800 tons of domestic solid waste per day. The LGUs are
mandated to implement RA 9003. Barangays (lowest elected
political unit in the Philippines) are tasked with ensuring waste
segregation and undertaking basic waste collection, while cities and
municipalities are responsible for large-scale collection, as well as
for the transfer and final disposal of solid waste at designated
disposal sites (i.e. sanitary landfill, recycling and special waste
facilities). Most LGUs contract out collection and disposal to private
service providers, for which about 1,375 trucks are available as of

1Metro Manila is composed of the 16 cities of Caloocan, Las Piñas, Makati, Malabon, Mandaluyong, Manila,
Marikina, Muntinlupa, Navotas, Paranaque, Pasay, Pasig, Quezon City, San Juan, Taguig and Valenzuela;
and the one municipality of Pateros.
May 2018. Solid waste collection efficiency in Metro Manila is
estimated at 92 percent of which 35 percent is diverted (diverted
recyclable materials) while 57 percent ends up in the landfill
facilities. The remaining 8 percent is either burned in backyards, left
on the streets, or disposed into waterways.

Aside from creating major environmental and health hazards to

local populations, a significant portion of this improperly dumped
waste accumulates at water pumping stations throughout Metro
Manila, thus reducing the flood mitigation capacity of the pumping
stations. This, in turn, increases the probability and extent of
severe flooding that frequently affects the people and economy of
the Metro Manila area.

Solid waste that clogs waterways or accumulates at pumping

stations compromises the integrity of the flood control system of the
city. This is one of the reasons why many pumping stations
managed by the Metro Manila Development Authority (MMDA) are
operating below their optimum capacity. Most of the solid waste
accumulating at pumping stations is residual waste (i.e. with limited
recyclable value), such as plastic bags, styrofoam, tetrapack, and
single-use plastic sachet-packaging. During storm events, bulk solid
wastes as big as sofas, refrigerators, wood planks, etc. have been
found to block trash racks or bar screens.

The collection and disposal of solid waste that accumulates at

pumping stations is the responsibility of LGUs. From records of
actual collection of solid wastes at pumping stations, an average of
about 17,000 m3 of solid waste (about 5,000 tons) every year ends
up at the trash racks of the major pumping stations. Solid waste
collected at pumping stations often remains on-site for a significant
period due to infrequent collection by the LGUs, which takes up
space while also posing health and environmental hazards. Most
pumping stations lack sufficient equipment, such as trash loaders,
bins, and containers, to efficiently store and remove waste that has
accumulated in the pump station vicinity.

1.2. MMDA and DPWH

Many agencies are involved in flood management at national and
local levels. The Department of Public Works and Highways
(DPWH) and MMDA are the two main implementing agencies for
the World Bank (WB) and Asian Infrastructure Investment Bank
(AIIB)-supported Metro Manila Flood Management Project (MMFMP
or the Project). Component 2 of MMFMP is the Solid Waste
Management Program which aims at reducing solid wastes in
waterways, for which MMDA will be the main implementing agency,
in close cooperation with LGUs.

DPWH is mandated to undertake country-wide planning, design,

constructionand maintenance of infrastructure, such as national
roads and bridges, flood control systems, water resources projects,
and other public works. Historically, DPWH was responsible for the
design, construction, and management of large pumping stations in
Metro Manila. On July 9, 2002, a Memorandum of Agreement
(MoA) was entered into by and between DPWH and MMDA to turn
over to MMDA all functions and responsibilities for flood control in
Metro Manila, including all relevant programs, projects and
activities, as well as personnel, funds, equipment, facilities, records,
assets, and liabilities.However, even with the MoA in place, DPWH,
through its Flood Control Management Cluster (FCMC), continues
to support flood management-related projects in Metro Manila
including the design and construction of drainage pipes or culverts
along national roads; pumping stations; river walls, dikes, and
embankments; and dredging of major rivers and waterways.

MMDA is the main metropolitan government entity responsible for

the identification and management of sanitary landfills, in
partnership with private landfill operators. Likewise, the MMDA
chairs the Metro Manila Solid Waste Management Board, which
has, among its mandate:

Develop a provincial solid waste management plan from

the submitted solid waste management plans of the
respective city solid waste management boards herein
created. It shall review and integrate the submitted plans
of all its component cities and municipalities and ensure
that the various plans complement each other and have
the requisite components. The Provincial Solid Waste
Management Plan shall be submitted to the National
Solid Waste Management Commission (NSWMC) for
 approval.

The Provincial Plan shall reflect the general program of

action and initiatives of the provincial government in
implementing a solid waste management program that
would support the various initiatives of its component
cities and municipalities.

Under Republic Act 7924, MMDA’s scope under the solid waste
management services include the following:

(c) Solid waste disposal and management which include

formulation and implementation of policies, standards,
programs and projects for proper and sanitary waste
disposal. It shall likewise include the establishment and
operation of sanitary landfill and related facilities and the
implementation of other alternative programs intended to
reduce, reuse and recycle solid waste.

(d) Flood control and sewerage management which

include the formulation and implementation of policies,
standards, programs and projects for an integrated flood
control, drainage and sewerage system.

(f) Health and Sanitation, urban protection and pollution

control which include the formulation and implementation
of policies, rules and regulations, standards, programs
and projects for the promotion and safeguarding of the
health and sanitation of the region and for the
enhancement of ecological balance and the prevention,
control and abatement of environmental pollution.

Within MMDA, the Flood Control and Sewerage Management Office

(FCSMO) is mandated with the formulation and implementation of
policies, standard, programs, and projects for integrated flood
control, drainage, and sewerage services in Metro Manila.
Presently, MMDA operates 57 pumping stations, located throughout
Metro Manila, including 23 major stations with capacity exceeding 1
m3/sec. MMDA’s Solid Waste Management Office (SWMO), on the
other hand, is mandated with the promotion of effective door-to-
door garbage collection in all LGUs of Metro Manila as a means to
achieve garbage-free public areas, vacant lots and waterways.
SWMO is also directly responsible for managing sanitary landfills,
transfer facilities, and other related disposal facilities; and ensuring
that Metro Manila will have adequate final disposal capacity.

1.3. The Continuing Mandamus of the Supreme Court

The Continuing Mandamus was ordered by the Supreme Court as
the result of the case Concerned Citizens of Manila Bay vs. MMDA,
et al. onDecember 18, 2008. The Court ordered the defendant-
government agencies, namely, MMDA, DENR 2, DOH3, DA4, DPWH,
DBM5, PCG6, PNP-MG7, and DILG8to clean up Manila Bay and
restore and eventually maintain its waters to minimum class SB 9 or
recreational water class I (bathing, swimming, skin diving, etc.) and
fishery water class I (suitable for commercial propagation of
shellfish and spawning areas for milkfish (Chanoschanos) and
similar species).Solid Waste entering Manila Bay through creeks or
the drainage system is one of the major sources of organic and
inorganic pollution negatively affecting water quality.MMDA is
cooperating with aforementioned agencies to implement
Operational Plan for the Manila Bay Coastal Strategy headed by
DENR.

LGUs surrounding Manila Bay, including 13 Metro Manila LGUs and

the Provinces of Rizal, Laguna, Cavite, Bulacan, Pampanga and
Bataan are mandated to manage both solid and liquid wastes, as
well as major river systems in their respective areas of jurisdiction.
Further, as per R.A. 9003, the province, city or municipality, through
its local solid waste management boards, shall prepare its
respective 10-year solid waste management plans consistent with
the national solid waste management framework. While much
technical assistance has been provided to these LGUs in the
formulation of their plans as part of the Mandamus, MMDA has still
to formulate its Metro Wide 10-year Solid Waste Management Plan
2Department of Environment and Natural Resources
3Department of Health
4Department of Agriculture
5Department of Budget and Management
6Philippine Coast Guard
7Philippine National Police – Maritime Group
8Department of Local and Interior Government
9Refer to DENR Department Administrative Order (DAO) 2016-08
as mandated under RA 9003.

1.4. The Metro Manila Flood Management Project

On September 26, 2009, one of the most severe tropical storms in
history, Ondoy (internationally named Ketsana), affected Metro
Manila. It caused substantial damage and losses equivalent to
about 2.7 percent of GDP. After Ondoy, the Government, with
technical and financial support of the World Bank, prepared a Flood
Management Master Plan for Metro Manila and Surrounding Areas.

The Flood Management Master Plan, approved by the National

Economic and Development Authority (NEDA) Board on September
4, 2012, proposed a set of priority structural and non-structural
measures to provide sustainable flood management and safely
control major flood events in Metro Manila. This Flood Management
Master Plan envisions three separate and distinct elements related
to structural interventions:

1. Flood protection works to reduce flooding from rivers that run

through the city;
2. Flood protection works along the floodplain surrounding
Laguna de Bay; and
3. Improvements to urban drainage capacity through
modernization of existing pump stations, construction of new
pump-stations serving flood-prone areas of an expanding
Metro Manila, and cleaning of waterways and drainage
channels that serve the pumping stations.

The Projectrelates to the key element (3) of the Master Plan that
addresses drainage issues in Metro Manila. Besides the
interventions for the pumping stations and related waterways and
drainage channels, the Project will also support improvements to
solid waste management in waterways that are served by pumping
stations and physical resettlement and economic rehabilitation of
project affected persons (PAP) that would be obstructing the proper
operation and maintenance (O&M) of the drainage systems. The
project development objective (PDO) is to improve flood
management in selected areas of Metro Manila. This will be
achieved by the following components:
  Component 1: Modernizing Drainage Areas. The component
will finance the modernization of about 36 existing pumping
stations, its appurtenant infrastructure such as flood gates and
trash racks, and associated drainage systems; construction of
about 20 new pumping stations and improvements to
associated drainage systems; increases in water retention
capacity within drainage areas; and modern dredging and
drainage cleaning equipment.

 Component 2: Minimizing Solid Waste in Waterways. The

component will finance improved solid waste collection
services in drainage areas through provision of equipment and
tools as well as awareness and behavior change information,
education, and communication (IEC) campaigns; and provide
equipment and tools at pumping stations for solid waste
management and removal of solid waste.

 Component 3: Participatory Housing and Resettlement.

The component will finance the resettlement of about 11,500
project affected persons (PAP) from the technical footprint of
about 15 drainage areas, as well as remedial measures for
persons that were resettled from the technical footprint before
the commencement of the Project and community-based
interventions in resettlement sites.

 Component 4: Project Management and Coordination. The

component will finance project management offices (PMO)
responsible for the management and coordination of project
activities and consulting services to support the implementing
agencies with the implementation of the Project.

1.5. Component 2
Distinctively, Component 2: Minimizing Solid Wastes in Waterways
hasactivities that fall under three categories presented below:

 Improving Solid Waste Management in Project Drainage

Areas. The component will carry out neighborhood-level
activities near the pumping stations and waterways and
drainage channels targeted under Component 1 of the Project
through: (i) improved solid waste collection services; (ii)
 community mobilization and awareness creation; (iii)
incentive-based improved waste collection with independently
verified results; and/or (iv) neighborhood upgrading.

 City-wide Waste Management Activities. The component will

carry out metropolitan-wide activities for improved solid waste
management, including: (i) a large-scale metro-wide IEC
campaign; (ii) the development of an integrated management
information system (MIS); and (iii) preparation of a solid waste
Master Plan for Metro Manila.

 Innovative Waste Management Opportunities. If confirmed by

the solid waste master plan, the Project will support, where
feasible, MMDA’s agenda to apply appropriate technologies to
reduce the volume of residual solid waste from
projectdrainage areas that ends up in sanitary landfills.

This Terms of Reference (TOR) for Community-Based Solid Waste

Management Program (CBSWMP or the Program)covers the first
category listed above. It shall includeplanning and demonstration of
community-based solid waste management interventions.

The Project will engage a separate consultancy service to develop

the Metro Manila Solid Waste Management Master Plan
(MMSWMMP) which will also include metro-wide information,
education and communication strategies. It is expected that the
selected consultant for this assignment will coordinate efforts with
the consultants of the master planwith the intention of
contemporaneous implementation. This is to ensure that the final
output of the Program and the master plan shall have sub-activities
synergistically interlink towards the achievement of the broader
project objective.

1.6. Community-Based Solid Waste Management (CBSWM)

Direct disposal of wastes into waterways and uncollected solid
wastes on streets and open spaces eventually get washed off by
rainfall run-off into the drainage system. This assignment is under
the principle that the long-term prevention for clogged drainage and
flood control systems due to solid waste is not the end-of-the
system interventions (i.e. systems at or near the pumping stations)
rather, the prevention of solid waste discharge into the drainage
systems and waterways from the source—i.e. at the community
level.

The structural or civil works component of the Project (i.e.

Component 1) will be implemented in batches of five to ten pumping
station catchments per year and are expected to be implemented
for 1 to 2 years depending on scale of required civil works. The
planning and demonstration of the CBSWMProgram and its
complementing initiatives are intended to be in batches parallelto
the Component 1 drainage areas. The vision is improvement of
solidwaste management practices within communities in and
upstream of the project drainage areas which will be concurrent to
the completion of civil works and operation of Component 1 projects
thus, amplifying the flood-management benefits.

For this particular consultancy contract, the covered drainage areas

are selected barangays in the following drainage catchments:
1. Vitas pumping station
2. Balut pumping station
3. Paco pumping station
4. Tripa de Galina pumping station
5. Labasan pumping station

The pumping stations listed above are the first batch of pumping
stations slated to commence implementation in late 2018 / early
2019.

The CBSWMP and its complementing initiatives will cover multiple

components including, but not limited to the following:
1) Community organizing and capacity-building
2) Formative research
3) Behavior Change Communication (BCC)/Information,
Education Communication (IEC)
4) Results-based incentives, in kind (RBI)
5) Enforcement system (e.g. community-based regulation and
enforcement)
6) Monitoring and evaluation

To effectively implement the project, there is a need to establish

SWM program in communities to catalyze behavioral change. One
critical component of the CBSWMP shall be BCC
strategiescognizant that ultimately there is a need tochangepeople’s
behaviors and practices. Equipment/tools-based measures and/or
institutional/policy improvements shall be designed to activate,
enable, reinforce and sustain the desired behavior change.

The activities covered by this contract are critical because it is

envisioned to identify and pilot the over-arching strategies that will
be adopted in succeeding drainage catchments notwithstanding the
customization and adaptation to the specific characteristics of other
drainage catchments.

1.7. Implementation Partners

ThePrograms shall be designed for implementation by the
barangays with the support of the City or municipal government and
with cooperation of civic groups and private sector in the areas.

The consultant should come up with clear institutional

arrangements and obligations that are acceptable with the
stakeholders. It is important to establish this so that anyone would
know which agency to approach (i.e. home of baseline data and
documents, MIS and long-term M&E arrangements to sustain or
further improve results) and identify the needs to sustain the
programs (i.e. capacity building/institutional strengthening needed,
O&M and financial needs, among others).The results of theProgram
will also be used as an input to the SWM Master Plan.

2. OBJECTIVES
The overall objective of this Program is to reduce the volume of
solid wastes that end up in the waterways and drainage systems,
which eventually accumulate and clog downstream pumping
stations inhibiting optimum flood control functions. To accomplish
this, the objective of the consultancy is to conceptualize, develop
and implement in the five priority drainage areas a community-
based solid waste management system which isan interplay of the
componentsresulting to change of behavior of the community,
making the Program sustainable and effective. This will be
supported by appropriate complementing activities such as solid-
waste collection tools, results-based incentives (in kind), clean-up
drives and other activities to be identified.

2.1. The Respective Roles of MMDA, Barangays and

Consultants
Based on a rapid appraisal from MMDA flood control personnel and
city waste engineers, communities or households closely adjacent
to open waterways or open drainage channels are the primary
contributors to directly discharged solid waste into waterways,
which accumulates at the pumping stations downstream. Maps of
the barangays covered by the first five (5) pumping stations are
shown in Annex 1 (For validation by hired consulting firm).
Approximated in blue highlights are the communities that are
directly adjacent to open waterways and other open drainage
channels. For the purpose of bidding for this activity, the consultant
may assume that barangays directly adjacent to waterways (i.e.
blue-highlighted areas) shall be covered. During actual
implementation, it may be possible that critical solid-waste
generators are barangays further in-land and not the barangays
directly beside the waterways..Furthermore, communities further
inland of the drainage catchment also contribute to solid waste in
waterways in terms of dispersed pollutants that are washed by
storm water run-off into the waterways. In some communities, there
may also be informal waste collectors that dump garbage along
roads or at waterways. The consultant shall verify these as part of
the environment survey and formative research.

Aside from households, critical point sources of garbage in some

cases are markets, establishments and shops beside waterways.
Interventions for these non-domestic sources shall be included in
the complementingactivities.

At all times, the consultant together with the MMDA should serve
mainly to coordinate activities that will be spearheaded by the
barangay. The main overall role of the consultant is thus to create
and roll out the programs which will be funded by the Project and
implemented by LGUs or by NGOs, POs and other neighborhood
associationsas seen fit by the consultant. Facilitation and support
shall be provided by the consultant, but the ownership of the project
must at all times be with the permanent or semi-permanent
organizational structures within the communities.
All costs pertaining to community organizing such as conduct of
meetings and workshops as well as the cost of hiring personnel to
organize communities shall be included in the contract cost.
However, for RBIs, the consultant shall propose incentives such as
street lights, bicycle paths, playgrounds, MRFs or other community
facilities to the Project Management Office (PMO) subject for its
approval and procurement, with funds for implementation not
included in this contract.

3. SCOPE OF WORK
TheConsultant is expected to carry out the following activities:
3.1. Planning, Design and Preparation
A. Accomplish an initial material, spatial and institutional
assessment of the existing solid waste management
systems and practices in the LGUs and in particular in the
targeted barangays;
B. Conduct a rapid assessment of MMDA’s past and on-
going community-based solid waste management
activities, including training and awareness programs.
C. Conduct formative research on the SWM-related
behaviors and socio-economic context of barangay
residents. Formative research may include a combination
of quantitative surveys (ex. KAPs survey), focus group
discussions, and workshops. Involve residents or
households in designing catchment-specific strategies to
galvanize community support and involvement in taking
responsibility for their drainage catchment;
D. Recommend clear institutional arrangements and
obligations acceptable to the establishednetwork of
stakeholders; and
E. Design the initial strategy and work plan for
implementation of the Program and its complementing
activities including preparation of logical framework and
key performance indicators. The initial strategy shall be
founded on the results of the formative research. The
initial strategy and work plan report shall be submitted to
and finalized with MMDA.

3.2. Demonstration
 A. Community organizing for community development
activities;
B. Implement applicable community consultation, events,
workshops, discussions, trainings, house-to-house or
person-to-person activities to educate residents about
proper solid waste management practices and conduct
community clean-up drives of waterways and
neighborhood area;
C. Prepare, test and roll-out of BCC/IEC materials;
D. Implement solid waste management system which may
include procurement of collection bins, safety equipment,
wheeled-transportation and mobilization of neighborhood
collection bin community caretakers and eco-aides. The
necessary procurement and funding will be done by
MMDA’s PMO; and
E. Train barangay or municipality social workers, community
user groups, and/or NGOs to implement program and
succeeding follow-through activities that will sustain
behavior change.

3.3. Monitoring and Evaluation

A. Develop and implement appropriate results-based
incentives(in kind) for targeted barangays; and
B. Conduct monitoring and evaluation of implemented
BCC/IEC campaign to derive improvement measures.
Results of project monitoring and evaluation shall be
submitted through Implementation Completion Report.
The Implementation Completion Report shall include
lessons learned and recommendations for input to
succeeding catchments.

3.4. Follow-Through Phase

A. Prepare draft TORs of priority follow-through projects,
which shall be annexed to the Implementation Completion
Report above;
B. The community-based BCC/IEC campaign covered under
this assignment, and succeeding BCC/IEC campaigns in
next areas are envisioned to be complemented by a
Metro-wide BCC/IEC that will utilize mass media and that
will be implemented as a separate contract. The
 implementation completion report of this Program shall
include recommendations for the Metro-wide BCC/IEC;
and
C. Provide inputs and insights to the Metro Manila Solid
Waste Master Plan Project. The experiences learned in
piloting CBSWM in the first five drainage areas shall be
inputs to the Solid Waste Master Plan.

In addition to key project activities described above, the consultant

shall conduct regular coordination and progress update meetings,
the specific outputs and frequency/schedule of which shall be
agreed with MMDA.

2. DELIVERABLES
2.1. Inception Report, in six (6) copies, no later than one (1) month
after the receipt of the notice to proceed
2.2. Environment survey and Formative Research report, in three
copies, no later than two (2) months after the Inception report
2.3. Over-all project design and work plan report, no later than two
(2) months after the Formative Research report
2.4. Quarterly progress report after the approval of inception report
2.5. Draft Project Implementation Completion and Draft Project
Evaluation Report no later than eight (8) months after the
Formative Research report. The finalized project
implementation report and finalized project evaluation report
shall be submitted one month later, after receiving comments
from reviewing agencies not later than three weeks after draft
reports’ submission.
2.6. All the solid waste management data, survey results, results
monitoring results in a database-ready format, at the project
completion

3. WORK PROCESS AND OUTPUTS

The consultant must already be implementing the strategies within
seven months from the notice to proceed. The entire assignment
will be conducted no more than twelve (12) months from the date of
project initiation with the continuation of activities to be done by
MMDA. The consultant must provide a timeline in which it proposes
to complete all the requirements and provide the deliverables in a
timely manner.
4. IMPLEMENTATION ARRANGEMENTS
For administrative and contractual obligations, which includes, but
not limited to, the periodic and timely liquidation of expenses, the
Consultancy Firm shall deal with the MMDA.

5. CONSULTANCY GROUP’S QUALIFICATION

Essential staff for the assignment including long term and short-
termstaff:

A. Team Leader/Solid Waste Management Expert with at least

10 years of experience in leading, designing, and
implementing sustainable solid waste management projects,
with relevant university degree. Experience in community-
based projects is an advantage; (12 man-months)

B. Co-Team Leader/Behavior Change Communication

Specialist with at least 10 years of experience in leading,
designing, producing and implementing successful and
effective BCC/IEC campaigns; (est. 12 man-months)

C. Formative Research Specialist with at least 5 years of

experience in designing and implementing formative research
and analyzing data results; fluency in Filipino and English is
necessary; with relevant university degree; (est. 3 man-
months)

D. Community Organizing Specialist with at least 10 years of

experience organizing communities for social development
projects; experience in solid waste projects is an advantage;
experience in working with Metro Manila LGUs is necessary;
with relevant university degree;(est. 10 man-months)

E. Monitoring and Evaluation Specialist with at least 5 years

of experience in conducting monitoring and evaluation of
social development project; with relevant university
degree;(est. 3-man-months)

6. FACILITIES TO BE PROVIDED BY THE CLIENT

MMDA will provide all relevant background information, including
previous studies and reports, project documents, LGU plans and
manuals as required. MMDA will also facilitate the consultant in
obtaining relevant reports and data from the computer LGUs, and in
organizing stakeholder meetings and discussions, if any.

The consulting firm is required to manage all the arrangements with

sufficient logistics, staff and infrastructure. No cost for such
arrangements shall be borne by MMDA.
ANNEX I: MAPS OF THE PRIORITY DRAINAGE AREAS

Note: 100-meter-deep on both sides. Scope is for further validation of consultancy firm.
Note: 100-meter-deep on both sides. Scope is for further validation of consultancy firm.
Note: 100-meter-deep on both sides. Scope is for further validation of consultancy firm.
Note: 100-meter-deep on both sides. Scope is for further validation of consultancy firm.
Note: 100-meter-deep on both sides. Scope is for further validation of consultancy firm.