SUMMARY OF FINDINGS AND RECOMMENDATIONS •••••••••••••••••••••••

•

Philippines 3201

REGIONAL OFFICE FOR THE WESTERN PACifiC BUI\EAU I\~GIONAL DU PACIFIQUE OCCIDENTAL

COMMUNI'lY WATER SUPPLY IN THE PHILIPPINES ASSESSMENT OF CONDITIONS AND NEEDS

by E. Dekel

WHO Sanitary Engineer

19 December 1972

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CONTENI'S

SUMMARY OF FINDINGS AND RECOMMENDATIONS •••••••••••••••••••••••

1.1 1.2

Find1ngs ... ..

Major recommendations

...

GmEFlAL BA.CKGRO(J}ID ... ..

2.1 2.2 2.3

Political subdivisions

...•.•...•....•..•.•...

National economic development plan Community water supply development

...

...

l'OPmATION ... ..

3.1

3.2

3.3

...

distribution

...

Past population growth Urban rural population

Urban communities

...

EXISTING WA'I'ER StJPPLY ... ..

4.1 4.2 4.3 4.4 4.5

General observations

...

.Government agencies in community water supply ••••••••••••

Existing water supply facilities

...

^,.

...

^,.

.. .

Population served ••••••••••••••••••••••••••••••••••••••••

Urban water supply •••••••••••••••••••••••••••••••••••••••

WA'l'ER D~ ••••••••• ,. ••••••••••••••••••••••••••••••••••••••••

5.1 5.2

Present demand

Supply targets

...

^,.

...

^,.

... . ...

WATER RESOURCES

...

6.1 6.2 6.3 6.4 6.5 6.6

Ground water •••••.••.•••••.••••••••••••••••••••••••••••••

Surface Climate

water ••...••••••••.••••••••••••••.•••••.•••.••.••

...

^,.

..

^,.

...

^,.

... .

• • • • • • • • • • • • • • • • • • • • • • • • • ,. • • • ,. • • • • • I) •

General observations

Pollution hazards • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • 0

RecolllDendations • • • • • • • • • • ,. • • • • • • • • • • • • • • • • 0 • • • • • • • • • • • • • •

WATEFt mEA~ PRAC'l'ICE •••••••••••••••••••••••••••••••••••• 0 .

7.1 7.2

Existing water treatment practice

...

^,.

... .

Recommendations

...

1 1

4

7 7 7 8

10

10 11

14 15 15 17 18 19

22 22 22

23

25

25

26

26

28

29

30

31

31

32

8 OPERATION AND MAINTENANCE ... ..

8.1 8.2

8.3 8.4 8.5 8.6

General observations •••••••••••••••••••••••• 0 • • • • • • • • • • • • • • •

Causes for the existing situation •••••••••••••••••••••••••••

Water consumption •••••••••••••••••••••••••••••••••••••••••••

Water production ••••••••••••••••••••••••••••••••••••••••••••

Operation of water systems ••••••••••••••••••••••••••••••••••

Overall assessment •••••••••••••••••••••••••••••••••••••••••.

9 PLANN'ING A'ND DESIGN ... ..

9.1

9.2 9.3 9.4

General observations ••••••••••••••••••••••••••••••••••••••••

Government financed projects ••••••••••••••••••••••••••••••••

"Turn key" project ••••••••••••••••••••••••••••••••••••••••••

Recommendations ••••••••••.••••••••••••••••••••••••••••••••••

10 MANPOWER.. " " " " " " .... " " " " • " " .. " .. " " • " " " " " " " ... " • " " " " " " " " " • " " " " " " • " " " " ••

10.1 Existing 10.2 Manpower

10.3

Training

manpower """"""""."""""""" .. """."" ... "",, •• ,,""",,.,,""",, ..

requirements ••••••••••••••••••••••••••••••••••.••••

needs _{" " "} " " " "

..

^"

.

" " " "

..

" "

.

^{" " " " "} " "

.

^"

.

" "

..

" "

...

^{" " "} " " " " " " "

11 ORGANIZATION." " " "" " " " " " " " " " " " " " " " " " " " " " " " " " " " " " " " " " " " " " " " " "" " " " " "

11.1 Present organization ••••••••••••••••••••••••••••••••••••••••

11.2 Problems to be considered •••••••••••••••••••••••••••••••••••

11.3 Technical assistance required •••••••••••••••••••••••••••••••

11.4 Proposed organization •••••••••••••••••••••••••••••••••••••••

11.5 Recommendations •••••.•.•••••••••••••••••••••••••••••••••••••

12 FINAll<:E . . . .

12.1 12.2

12.3

12.4

Required investments in water sup~ly ••••••••••••••••••••••••

Previous financing of community water supply projects •••••••

Water rates

...

Future financing ••••••••••••••••••••••••••••••••••••••••••••

13 CRITERIA FOR PRIORITY' SELECTION ••••••••••••••••••••••••••••••••••

13.1 Maximization of the investment

...

1.3.2

Public health

...

]3.3 Industrial development •••••••••••••.••••••••••••••••••••••••

13. 4 13.5

13.6

Tourism

...

Prospects for early implementation ••••••••••••••••••••••••••

Recommendations •••••••••••••••••••••••••••••••••••••••••••••

14 RtJRAL WATER StJPPI.,Y ... 0 • • • • • •

15 ACKNOWLEDGEMENT ••••••••••••••••••••••••••••••••••••••••••••••••••

~

33 33 33 33 34 34 34 39 39 39 40 40 44 44 44 47 47 47 48 49 49

51 52 52 52

64

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66 67 67 67

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71

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ANNEXES

2-1 DATA ON DEVEIIJPMml' OF PROVINCIAL CITY AND

MUNICIPAL WATERWORKS. FY 1955 - 1970 •••••••••••••••.••••••••••• 73 2-2 DATA ON DEVEIIJPMENT OF ARTESIAN WELLS AND

SPRIN'GS, F"l 1955 - ItRO ... 75

3-1a URBAN AREA DEFINITION IN THE PHILIPPINES. 1970 ••••••••••••••••• 77 3-1b URBAN AREA DEFINITION IN THE PHILIPPINES. 1960 ••••••••••••••••• 78 3-2 PROVINCIAL DISTRIBUTION OF URBAN POPULATION BY

SIZE OF OOMMtJNI'I'Y' ... 81

4-1 EXISTING WATERWORKS BY PROVINCE AND TYPE ••••••••••••••••••••••• 83 4-2 EXISTING WATER FACILITIES OF MARCH 1972

(NW'SA AND PWD FIGURES) ... 85

4-3 COMMUNITY WATER SUPPLY PROJECTS. PACD - 1971 ... 87 4-4 STATUS OF WATER SUPPLY - OCTOBER 1971 - BY THE

IlEALTIi DE:I>AR'lMElfI' ... .,... 89

4-5 BASIC DATA ON EXISTING WATERWORKS SYSTEM BY PROVINCE ••••••••••• 91

4-6

STATUS OF WATER SUPPLY (1970) - HEALTH DEPARTMENT

(NWSA REOORI>S) ... 93

6-1 "DATA" ON ARTESIAN WELLS (DEPTH AND WATER LEVEL) BY PROVINCE ••••• 97 6-2 HYDROLOGICAL DATA ON SURFACE WATER RESOURCES ••••••••••••••••••• 99 6-3a AVERAGE ANNUAL RUN-OFF IN 7 MAJOR RIVERS ••••••••••••••••••••••• 105

6-3b EVAPORATION DATA ... 107

6-4 RAINFALL DATA ... -. .. .. .. .. .. .. .. .. .. .. .. .. ... 109

6-5 POOR ENVIRONMENTAL HEALTH CONDITION ASSOCIATED DISEASES.

CASES AND DEATHS, 1962-1969 •••.••.•.•.•.•..•.•.. , .•••.••••••••• 111

10-la NUMBER OF EMPLOYEES IN EXIsrING WATERWORKS •••••••••••••••••••• 113 10-lb EMPLOYEES PER 100 000 PEX)PLE SERVED IN WATER UTILITIES

OF VARYING SIZE IN THE PHILIPPINES •••••••••••••••••••••••••••• 115

- iv -

10-2 EMPLOYEES PER 100 000 PEOPLE SERVED IN UTILITIES

OF VARYING SIZES IN THE UNITED STATES AND CANADA .~

•...•...

10-3 NATIONAL COURSES ON MUNICIPAL WATER SUPPLY - PRELIMINARY ASSESSMENT OF ~UIJIDolENTS - PROVINCIAL WATERWORKS IN

'tim

117

PHILIPPINES . . . 119 11-1 CLASSIFICATION OF MUNICIPALITIES AND FIRST CLASS

CITIES BY ANNUAL INCOr.m ... 125

12-1 ANNUAL RELEASES OF APPROPRIATIONS FOR WATERWORKS PROJFl:TS ••••••• 127 12-2 FUNDS RELEASED FROM VARIOUS PUBLIC WORKS ACTS APPMPRIATIONS

ARrESIAN WEILS AND SPRING DEVELOPMENT PROJECTS •••••••••••••••••• 129 12-3 LIST OF WATERWORKS SYSTEMS OOMPIEl'ED. FISCAL YEAR 1969-1970 ••••• 1,1 12-4 FOREIGN ASSISTANCE IN CO!I1MUNI'IY WATER SUPPLY •••••••••••••••••••• lJ3 12-5 LIST OF WATERWORKS SYSTEMS UNDER NWSA WT'IH WANS •••••••••••••••• 135

12-6 ESTIMATED AVERAGE WATER RATES ~UIRED •••••••••••••••••••••••••• 143 13-1 PROVINCIAL. CITIES AND MUNICIPALITIES WI'lH URBAN

POPULATiON OF OVER 100 000 ••••••••••••••••••••.••••••••••••••••. 1-5

14-1 NUMBER OF EXISTING WELLS AND ESTIMATED ANNUAL REPAIR

AND MAINTENANCE COSTS BY PROVINCE •••..•••.•••••••••••••••••••••. 1~1 14-2 LOCATION OF AlImlISTRATION POWER RIGS rmOOtJGHOUT

'niE PflILIPPINES . . . 1

J4.9

14-3 '!HE NEED FOR NATIONAL RURAL COMMUNITY WATER

SUPPLY PROG~ ... 152

11\_4

ARTESIAN WELLS AND SPRING

DEVELOPMENT... ¹⁵⁸

, I I

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Improving the living oonditions of the people in the Philippines.

and espeoially in the field of water supply services, as the most important single faotor in bettering environmental health, should not be regarded as a localized problem of the oommunities involved. The planning of these essential servioes must form an integral part of the national economio development plan; partioularly as the finanoial

resouroes of the oommunities and the state put together are insufficient to meet the demand. A pre11Jllinary study of requirements reveals the oonsiderable amounts needed for investment in new mWlioipal and rural water supply systems and to inorease the supply capacity of the existing ones. with the aim of keeping paoe with the rhythm of development. This rhythm is dictated by an average population growth of over 3'1> and the growth of urban population in exoess of 5~ annually, which, combined with unavoidable increases in ~ oapita and industrial demand, result in a very dynamio demand for water services.

Government support to provinoial water supply development in the last ten years reached only some l~ of the estimated requirements while the present four year development plan envisages the investment of some

2O~ of the needs of this seotor. Government policy, unless revised.

will result in a further increase of the gap between supply and demand.

At present. only about l~ of the total population is supplied through direot house oonnexions, an additional 20~ to 2~ have to rely on pub~io

fauoets or "artesian wells". The remaining 22 to 24 million people are without any regulated supply.

The present report was prepared under the WHO - UNDP-assisted oommunity water supply proJeot in oo-operation with the National Water- works and Sewerage Authority (NWSA) and its sucoessor the Metropolitan Water Supply System (MWSS). The main purpose of the study was to review the adequaoy of the existing community water supplies in the country. to identify problem areas and to propose ways and means for improvement •

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1.1 Findings

In this summary attention is drawn to some basic problems and weak- nesses that will require early attention. The summary is presented under

the same headings as the main report.

1.1.1 Population

The 1970 population of the Philippines totalled 36 700 000. Annual population growth is estimated to be between 3.0 to 3.2 per oent. The 1970 urban population is estimated at 11

800

000 or 3~ of the total population. The urban growth rate is estimated at 5.0 per oent. per annum. The average annual population growth for the present deoade is estimated at 1 280 000.

By 1970 there were 1431 urban ocmnunities of all sizes with 26.5~

of the urban population in ccmnunities of less than 5000 people and 27.~

in communities with a population of over

50

000 people.

1.1.2 Existing water supply

Most of the existing water supply systems fail to meet the demand of the population served. Supply in many cases is not oontinuous, pressures are low and quality is questionable. The development of new and existin~

systems does not keep pace with the increase in demand.

It was estimated that at present there are 1377 waterwork systems of all sizes. 20

840

wells and

2081

springs serving a total population of between 14 900 000 to 17 650 000 people. or between 38 to 45 per cent.

of the total population. The remaining 21 550 000 to 24 300 000 people obtain their water from sources of doubtful quality.

1.1.3 Water demand

Data on actual water demand are not available because metering of water at the souroe is not praoticed. The average daily per capita demand for urban areas is estimated at 30 gallons. ~ oapita demand in rural areas, through artesian wells or public fauoets. is estimated at 10 gpcd.

Realistio development targets call for supplying 7~ of the urban provincial population and ~ of the rural population by

1980

or an overall average of 48)C of the prOVincial population. '1h1s will require almost doubling the present rural water supply capaoity and tripling the urban supply oapacityl.

lRural demand will inorease from 68 mgd in 1970 to 120 mgd in 1980 and provincial urban demand fraD 120 mgd to 356 mgd •

1.1.4 Water resources

Present souroes of supply are both ground and surface water. The

majority of present water supply systems are fed by springs or surfaoe water (gravity supply) while the majority of the rural supplies are wells (either free flowing or equipped with hand pumps) or springs.

Hydrological data on both ground and surface souroes are very meagre. Surface water is subjeoted in varying degrees to pollution by discharge of untreated human wastes and unoontrolled discharge of effluent from the mining industry and sugar oentrals. Ground water is subjeot to pollution during high floods or when wells are located near potential souroes of pollution. Major pollution hazards exist in the

poorly maintained distribution systems, when pressure in the leaking pipes drops to zero or below. At these periods. the risks of oontamina- tion of the distribution system from outside sources (raw sewage. septio tank effluent. etc.) are vel7 high. more so during the rainy season.

1.1.5 Water treatment praotice

The treatment of surface water in the provinoial waterworks is inadequate and oonsists mainly of plain sedimentation and chlorination.

Spring and ground waters are generally considered safe and are not chlorinated.

1.1.6 Operation and maintenanoe

The area of operation and maintenance is one of the most neglected in the existing waterworks. This is one of the primary oauses for the

poor service rendered to the publio. Due to a chronio lack of funds.

the inadequate training of management and operation and maintenanoe staff.

and the lack of leadership at both looal and oentral levels. the standard of operation and maintenanoe of most provinoial waterworks are poor.

No metering of the aotual amounts of water produoed at the sources or delivered to the systems is praotioed. Actual water consumption is also not known. Although meters are installed in a large peroentage of the domestic oonnections. many of them do not funotion because of laok of preventive maintenance. spare parts and repair facilities. This makes it practically impossible to determine the efficiency of the

system. to estimate the extent of water (and revenue) losses (due to leaking mains and illegal oonnections), or to determine properly future needs. Essential data neoessary for effioient operation are not usually taken or reoorded.

Preventive maintenanoe of equipment (pumps and prime movers, water meters, vehicles, eto.) is not widely praoticed, "repair upon failure"

being the general rule.

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1.1.7 Planning and design

No planning policies and design criteria are available. Design periods are generally too long (20 to 30 years). Preference is generally given to the development of gravity sources without the benefit of economic analysis and comparison with other alternatives. '!he many advantages offered by development of ground water souroes are often not realized.

Basic data collection and surveys for planning purposes are frequently defioient. Design drawings are not adequately detaUed. Economic analysis to determine the size of the scbeme to be oonstruoted is not widely practiced resulting in uneoon<llll1oal develoJlll8!lt. Seleotion of souroes and determining the size of the scheme are frequently done without suffioient ^data on the safe yield of the source resulting at times in oversized schemes, having a capaoity h1sher ^~ the source.

Distribution 8ystems cover in most cases only

40

to 60 per cent. of the streets in the area served. '1h1s makes it very costly for people residing in unpiped streets to oonneot to the system. '!he importanoe of distribution storage is not properly recognized. Distribution storage in me.n;y systeJas 115 non .. existent or of very limited capaoity and elevation,

so that the potential oapacity of the system is not fully utilized.

1.1.8 Manpower

The number of employees in existing waterworke is adequate so is their basio education. '!here is, however, a great defioiency in the level of speoialized training and skills required for effioient operation and performanoe of waterworks. The total number of waterworks employees in the country's provinoial waterworks based on the NWSA average figures is estimated at some

4000

to

5000.

At the present, no training faoUities or prograales for waterworks personnel are available.

On the basis of the proposed development targets (Table 5-1) it is estimated that the number of waterworks employees will increase in the present deoade at a rate of some

500

new employees a year to reach the estimated number of

8900

employees that will be required by 1980. In addition, it is estimated that over 200 engineers will be required for planning and design of new waterworks and the improvement and expansion

of existing systems.

1.1.9 Finance

The required investments in provincial water supply to meet the proposed supply targets are estimated, for the present decade, at some

1850

million or an average of some fJ.20 million a year for the period

1973-1980. An additional

120

million a year w1ll be required for improving supply faoi11ties to the populat1on presently served. These figures should be oompared to the average of 110.0 million a year aotually spent on provincial water supplies during the period 1963-1970. The

recent national Four Year Development Plan for the Fiscal Year 1972- 1975. prepared by the National Econcmic Council. earmarked a total of

195.2

million or about

124

million a ;year for provincial water suppl;y for the period. ~s is about ~ of the est1lllated needs for achieving the moderate development targets.

Present water rates. averaging

14.8

per month per connection are general.l;y too low. 'Ibis. together with poor management that al"lows the unaccounted for water in sCllle instanc •• to exceed ~, results in an

overall inocme too low to penai t mean1ngful iIIIprovement in the standard of service. This makes the maJorit;y of waterworks dependent on govern- ment allocations (subsidy) for improvement. and expansion.

1.1.10 Organization

With the abolition of HWSA the majorit;y ot the provincial water s;ystems are now lllllnaged and operated b;y the local govel'lllll8nts. Most of these s;ysteaus are in need ot technical assistance in planning and de.ign.

Man7 s;ystems, mainly the smaller ones (with populations of less than 10 000) also need technical assistanoe in managaent operation and maintenanoe. The presant organization does not provide for this t7P8 of assistance. Provino1al or reg10nal office. tor technioal assistanoe in dall;y operation. lllllnagement and JII&1ntenanoe can, ^{i f} established.

greatl;y improve the overall perfonDance of the provincial waterworks.

1.1.11 Criteria for priorit;y seleotion

At the present, priorlt;y seleotion is done scmewbat arbitrarily and is greatly influenoed by politioal pressures. Priorit;y award. in order to achieve the max1JIuIII overall benefits from the avaU able funds, should depend on various faotors among ^which are: J!!!: cap1ta cost of project, the relative inoidence of water and filth-bome eliseases. industrial development needs. adequao;y of present supply. touriBIII. etc. ^Ranking should be baaed upon engineering and eooncmio feasibility stuelies of the different projeots evaluated.

For the 1mmed.1ate future, because of lact of adequate studies and plans, it i. proposed to start with the preparation of proJeot stUdies for the largest urban oentres in the oountry

(say

the larsest 20 s;yatema).

Prior1 t;y ranking of these projects baaed on the above oriteria will constitute the first stage priorit;y list of immediate development.

Later on. priority lists should be reviewed annually • . 1.2 Major reoommendations

1.2.1 Water resouroes

1.2.1.1 Ground water ^s~ud1es should be undertaken as a matter of urgency in all major s;ystems presentl;y supplied b;y ground water. This should be followed by a country-wide programme to determine ground water potentials for ^a~as now supplied by surface waters.

1.2.1.2 Data oolleotion should be implemented on existing water resouroes and those earmarked as potential future souroes# to establish minimUl11#

average, and maximum yields and seasonal fluotuation in water quality.

1.2.1.3 A national water resouroes board should be established to

oo-ordinate# regulate and oontrol the use of the oountry water resources by the different agenoies and to prevent their pollution.

1.2.2 Water treatment praotioe

1.2.2.1 Beoause of the inadequaoy of existing laws new legislation should be introduoed to give legal powers to looal health offioials to impose oorreotive aotion on waterworks offioials for proteotion of public health.

1.2.2.2 The use of slow sand filters for oommunity water supply should be

introduoed# intially in all systems where existing treatment of surfaoe water by plain sedimentation is not satisfactory.

1.2.2.3 In view of the high risk of oontamination of water in the distribu- tion systems, water from all souroes should be ohlorinated to the extent that residual chlorine ~s present in all parts of the system.

1.2.3 Operation and maintenanoe

1.2.3.1 Metering of water entering the system should be a standard praotioe in all water systems.

1.2.3.2 Management should give maximum attention to the teohnioal oondi- tions of equipment to prevent its untimely deterioration. 'lb.e polioy of preventive maintenanoe should be adopted by all waterworks.

1.2.3.3 All data necessary for programming the operation and maintenanoe of the water systems should be regularly reoorded. To faoilitate this.

it is reoOlllllended that simple standard forms for recording the data required be developed for nationwide use.

1.2.4 Planning and desi§P

1.2.4.1 Design criteria and standards should be established for different oategories of urban oommunities based on their aotual needs.

1.2.4.2 'lb.e use of ground water where available should be enoouraged because of its eoonomical and teohnio8.l. advantages over surfaoe water.

1.2.4.3 Distribution piping should be laid in all streets of the bullt- up areas served by water systems.

1.2.4.4 Distribution storage of adequate oapaoity and evaluation oan increase the aotual supply oapaoity of many systems with relatively low investment. It is reoommended to analyze the feasibility of introduoing or a~ng distribution storage in all existing systems and inoorporate them in all new designs.

1.2.5 Manpower

1.2.5.1 To meet present and foreoasted fUture manpower requirements, it is recommended that a detailed review of manpower and training needs on a oountry-wide basis be undertaken as a matter of urgency. Based on th1s review training programmes will be prepared and training oentres established wi thout undue delay.

1.2.6 Finanoe

1.2.6.1 The present policy of supplying free water to over 5~ of the population served should be reviewed with a view to generating sufficient funds for maintenance, replacement or even expansion.

1.2.6.2 Existing water rates should be reviewed and realistio rates to established include amortization or capital investments or loan servicing in addition to annual running oosts.

1.2.6.3 The peroentage of unaocounted-for water should be reduced by improved supervision and maintenanoe. This can boost the inoome of many systems and lower the water rates.

1.2.6.4 A revolving loan fund should be established for financing water- works construction. All government appropriations should be channeled throughth1s fund. Initial oapitalizatlon for this fund should be around

1100

million (enough to finanoe the oapital improvements in urban water supplies during the initial two years of aotivity).

1.2.7 Organization

1.2.7.1 Provincial or regional offices should be established to provide technical assistanoe on routine management, operation and maintenanoe of provincial waterworks in all provinoes with urban population exoeeding 25 000 people.

1.2.7.2 A national water supply planning agency should be establish and it should be responsible for planning and programming on a national level, establish design criteria and standards, offer technical assistanoe in planning and design to provinoial waterworks, review plans submitted to the national revolving loan fund for finanoing, study manpower and training needs and develop training prograDllles.

1.2.8 Priority seleotion

1.2.8.1 The proposed National Water Supply Planning Agenoy should establish in oonsultation with other national planning agenoies criteria for priority selection and prepare a national programme for community water supply

development.

1.2.8.2 Preliminary engineering and feasibility studies for oommunity water supply should be prepared for all proposed proJeots.

:.

2. GENERAL FJ\CKGROUND

The Philippine arohipelago oonsists of a ohain of more than 7100 islands and islets, stretohing almost 1000 miles north to south and has a total land area of about 114 800 square miles (oomparable to Italy in size).

Present population (1972) is estimated at some 39 million and Is 1ncreasing at a rate of between 3.~ to 3.~ per annum.

The olimate Is tropioal with very little seasonal variations in temperature. Four types of olimate are observed, based on rainfall distribution, and existence and length of the dry season. Rainfall is abundant with a mean annual rainfall of olose to 100 inohes.

2.1 Political subdivisions

The Philippines is a republio in whioh the oentral government exeroises direot oontrol and supervision over the entire oountry. For administrative purposes the oountry is divided into provinoes and ohartered oities.

Provinces are divided into municipalities. or munioipal districts and these are further divided into villages and barrios. In 1970 there were 67

provinoes. 62 ahartered oities. 1422 munioipalities, 21 munioipal districts and )2 098 barrios. Every oi ty. munioipali ty or barrio has its own

"poblaoion" or "oity proper" - oonfined area wherein business, social and civil aotivities are conduoted.

Eaoh provinoe is headed by an eleoted governor. It also eleots its representatives to the lower house of oongress. Senators are eleoted on a oountry-wide basis. The President is eleoted by popular vote and exercises administrative supervision over the provinoial and oity governments.

2.2 National Eoonomio Development Plan

The National Eoonomio Counoil prepared the four year eoonomio develop- ment plan (1972-1975). Aooording to this plan, the 1970 GNP (in 1967 prices) was 131 735 million oorresponding to a per oapita GNP of ;855 or

$219.

The net domestio produot for 1970 totalled 26 436 million, 33~ of this was from agriculture and fishery. It is predioted that the average annual growth rate of the NGP for the four-year period will reach 6.~.

This oorresponds to an average ~ aapkta GNP growth of 3.7~ per annum to reaoh an average per oapltaGNP of 010 in 1975.

It is antioipated that ourrent government expenditures will increase from 13.2 billion in FY 1972 to 3.6 billion in 1975 while capital

expenditure on infrastructure will expand from 0.68 billion to

11.3

billion in the same period.

The four year development programme envisages the total expenditure on water supply and sewerage to reaah ~61.3 million or some 9.~ of a total infrastructure expenditure of ~ 915.46 million. Out of the

;}61.3 mil11on# 1266.1 million are earmarked for the Metropolitan Manila water supply and sewerage development and only 95.2 million or less than

;24 million a year for provincial waterworks and wells and springs develop- ment.

2.3 Community water SUpply development

Since 1955 the development of domestio water supply in the Philippines has been in the hands of the National Water and Sewerage Authority (NWSA) created by aot of Congress on 18 June 1955. This aot transferred to the NWSA the Jurisdiotion. supervision and oontrol of all waterworks and drainage systems in the oountry. Subsequent to the enaotmen'\ of this legislation# the NWSA has operated as the sole agenoy of the national government in all matters relating to publio water supply and sewerage.

The NWSA oontrolled the provinoial water supplies through two departments - the Provinoial# City and Munioipal Department dealing with planning#

operation# maintenanoe# supervision and oonstruotion of provinoial water- works# and the Wells and Springs Department dealing with well oonstruction and springs development mainly for rural water supply.

For administrative purposes, the oountry is divided into 31 distriots.

In eaoh district, a district offioe was established headed by a distriot waterworks engineer. The oonsiderable progress in development of the provincial water supplies in the oountry can be seen in Annexes 2.1 and 2.2. Starting with 478 water supplies in 1955. serving a population of 2 850 000, the NWSA has oonstruoted in the fifteen-year period ending in 1970 additional 899 water supplies to reaah a total of 1377.

SOllIe }62 of the 478 systems in 1955 were listed as revenue produoing and 165 as non-revenue produoing. By 1970 there were

680

revenues

produoing systems and 6gr non-revenue systems. This represent a 420%

increase in the number of non-revenue systems but only some 190% in the revenue systems.

The rural water supplies showed a similarly remarkable development.

Starting in 1955 with 4513 wells and 99 developed springs serving a total population of 1

208

000 the NWSA has oonstruoted during the fifteen-year period 15 993 wells and developed 19r3 springs. The total of 20

506

wells and 2072 springs were estimated to serve a population of over 6 000 000 by 1970.

In spite of the considerable aahievements of the NWSA. the Authority failed to meet the growing need of the rapidly growing population for abundant and safe water supply. 'lb1s failure had many reasons:

(a) The primary reason - the lack of adequate government financial support and actual reduction in government expenditure on water supplies from a yearly average of US$5.2 million for the period 1955-1963 to an average of $1.44 million for the period 1964-

1970. This in turn created an inoreased pressure of dissatisfaction in the provincial population blaming and criticizing the NWSA

for failure to meet the nation's growing needs.

(b) The lack of a comprehensive nation-wide development programme that could have oonvinoed the government of the inadequacy of its finanoing policy. No attempt was made to proJeot the true pioture of the situation and the extent of the problem.

It is true that several five-year development plans and orash programmes were prepared by NWSA but these were not well supported and oonvinoing as to the urgenoy of adopting them.

( 0) The main efforts of the NWSA management were direoted towards the development of the Manila Metropolitan Waterworks and Sewerage System and its labour problems negleoting in many respeots the provinoial waterworks.

(d) The Central Offioe was mainly interested in administrative problems and oonstruotion of new systems thus gradually negleoting the not less important areas of operation and maintenance. This resulted, beoause of lack of guidance and supervision in gradual deterioration of the eXisting systems.

(e) The unfavourable image of NWSA was used by many looal govern- ments to claim the return of the local systems to their

control on ground of NWSA's ineffioienoy. Several court rulings in favour of the looal governments resulted in similar demands from many other systems, mainly the larger revenue producing systems. As the budget of the district and central offioes of the provincial department of NWSA depended on the inoome of the provincial systems under the NWSA1, the operation of these offices was further affected, while the operation of the central office was gradually paralyzed because of laok of funds.

(f) Continued public ori ticism of NWSA (both in the provinoial waterworks and the Manila Metropolitan System), together with the labour problems in the Manila Metropolitan System and the insistenoe of the International Bank for Reoonstruct- ion and Development on reorganization of the Manila Metropolitan System as a prerequisite for further loan consideration

resulted in a proposed Congressional bill to abolish the NWSA and return all provinoial systems to the local governments.

1 Each system was paying l~ of its gross inoome to the distriot office and 4% to the central offioe.

This move. initiated in 1969 took over two years to be approved. greatly affeoted the morale of provinoial employees of all ranks and their performanoe.

The NWSA was formally dissolved in mid-l97l and the transfer of local systems to corresponding local governments is now in progress. The

Metropolitan Water and Sewerage System was oreated to assume the funotions of the former NWSA in the Metropolitan Manila system. An offioe of

Provincial Servioes Staff was established wi thin the MWSS as required by the new law for providing teohnioal assistanoe to the provinoial systems that will seek this assistanoe.

The Bureau of PUblio Works is being organized now for giving assist- anoe to all government-owned non-revenue systems and also for the planning and design of all proJeots finanoed by government allocations.

The wells and springs department of the NWSA has been transferred to the Bureau of PUblio Works.

There is. however. no offioe in oharge of the overall planning and programming of the oommunity water supply in the oountry.

3. POPUIATION 3.1 Past population growth

Information on the population of the Philippines for the present oentury is provided by several oensuses sinoe 1903. The follOwing Table shows the past population growth in the Philippines from 1900 in ten- year periods.

1

Table 3-1

PAST POPULATION GROWTH - PHILIPPINES

Year 1900 1910 1920 1930 1940 1950 1960 1970

Population 1

( thousands) 7 300 8 800 10900 13 100 16 200 20600 27 400

36 700

Peroentage of Growth Rate

1.8 2.2 1.8 2.2 2.4 2.8 3.12

Population figures are interpolated from oensus of 1903. 1918, 1932, 1948, 1960 and 1970. Souroe: 1960 and 1970 population and housing census of the Philippines BCS.

As oan be seen from the above Table there has been a steady inorease in the population growth rate from 1.8 per oent. per annum in the first deoade of this oentury to over 3.1 per oent. for the period 1960-1970.

This inorease is mainly attributed to the parallel deorease in death rates during that same period due to improvement of health servioes. Life

expeotanoy at birth during the period inoreased from 12 years in 1902 to 55 in 1965.1

The present population (1972) is estimated at 39.2 million assuming 3% annual growth rate.

3.2 Urban rural population distribution

There has been a gradual but steady inorease in the peroentage of urban population in the oountry due to immigration from rural areas to the urban oentres, and an inorease in the number of urban oommunities of different sizes due to transformation of previously rural oentres into urban oommuni ties. The urban population in the Philippines has inoreased from 7.2 million in 1960 to 11.8 million in 19-{O, or from

26.5.

of the total population in 1960 to 3~ in 1970. This is equivalent to an average annual growth rate of some 5.1 ••

~ilfredo

Reyes - Population growth and health development. First Conferenoe on Population, 1965. Population Institute, University of the Philippines,

1966.

The following Table gives past and foreoasted urban rural population distribution.

Table '-2

URBAN AND RURAL POPUIATI<»f FORECAS'l' (1000)1

1960 19rO 19&>

1990

²⁰⁰⁰

Total population

zr400 .36

700 49500 66500 90 000

Rural 20 200 24900 ,0300 '5300 39000

Urban2 7 200 11 800 19 200 ,1 200 51 000

Met. Manila) 2450 3900 6400 9200 12 000

Urban exoluding 4750 7 900 ^{12800 22 000}

39

000 Met. Manila

Aocording to the above foreoast. the urban population in the oountry is expeoted to exoeed the rural population sometime around 199' (see Table 1).

The average annual. population growth is expeoted to inorease from 930 000 per year for the past decade to 1 230 000 for the period 19rO- 1980. out of this figure 740 000 people are expeoted to be added annually to the urban population.

.

Table '-3

AVERAGE ANNUAL POPULATI<»f GROWTH (1000) (TEN-YEAR PERIOD)

1960-1970 19ro-l9&> 1980-1990

Total population 930 1 280 1700

Rural population 470 540 500

Urban population 460 740 1200

Urban population 325

490

⁹²⁰

outside Met. Manila

1990-2000 2 '50

'70 1 9&>

1700

~d-year

population based on

,~

average overall annual growth rate and 5~ per annum urban growth rate.

~rban

population for 1960 baaed on 1970 definitions estimated at

26.5~ of total population (versus ~ baaed on 1960 definition). Urban population for 1970 estimated at ,~ of total based on 1970 oensus which - does not inolude the provinces of Ianao del Norte and Lanao del Sur.

'''Design population" (in rounded figures) from Black and Veatch Inter- national Master Plan for Sewerage Systems for Metropolitan Manila.

_=_. -POPU\...ATIO _ ~-,,-PROJE.cJ]6NS i -

~r---_+---r---~---~---~--I

80 --·=--=·~m~~-~il-O-r.-A-C--P·-O-p-U-C-~-~-O+·RC-_-.----~~~-:-:-_---+---r---~

---~_:2 :::RURAL-:POPULATION.---

. __ ._____ -... --- _ -~R"'-""'_ ...,.,_... o...pU· .... .,. oll ---'---"--"" -...t ., ____ . ___ ._ .... __ ..

-, I I!

-VI

. ~:.:::.~::::- @. RMN POPU\..A"lO~ J:xCt:.::::Ma'I":._t.MN I.A __ . __ . ...:{$ METRDPOUTM MAH\\..A ______ _

~ GO,~---_r---r---I

%

~ :

;0 I' _

). :

-- U

I

:J :

:..,

~;

,~

1:

!:i

~~I---r---r-~,---~---~--

.

'Or---_+---~~--r---~~---

j

O~.---l..[

^{_ _ _ _}

---:-:~---__:1

19<;;0 1970 1980

i 1930

Y Eo A R

2000

3.3

Urban communities

Annex

3-2

gives the distribution of the urban population

b.1

province and by the size of caJIIIWl1ty. 'Ih18 is sWlllllAI'ized in the following table.

Table

3-4

URBAN C<JIMUNITIES IN THE

PHILIPPINES

(1970)

(BY SIZE OF C<JIo1UNITY)

Size of

1

Met. Manila Provincial caauunities

2

'lotal oommunity

Pop. Population Average size

(1000) No •.

1000

^Number

1000

"

^{ot cc.munity Number} Population less

than

5 1105 1198 26.5 1 710 1105 1958

5 - 10 191 1 333 18.0 7 000 191 1 333

10 - 25 5 92 94 1

292

17.5 13700

99

1384

25 - 50 4 146

22

800 10.8 36400

²⁶

₉₄₆

50 -100 5 406 13

⁸⁸⁰

11.9 67700 18 1 286

OVer Total

100

^~o

3 474 6 1126 15.3 187 700 16 4600

24 4118 1 431 6629 100 -- 1 455 11 507

As shown in the above Table there

are

at present

1431

urban Qommuni ties of different sizes in the oountry. Same

1105

urban communi ties have popula- tions of less than 5000 with an average 8ize of

1710

people. Same

326

oOllllllUl'lities have populatioDs of 5000 and above. The number of caJlllunities in this category is expected to increase to

543

b7

1980

and will probabl.7 exceed

1000

by the year

2000

as shown in the follOwing Table.

1 Including new areas mainly in Cavite Province placed under the Juris- diotion: of MWSS after the reorganization of NWSA.

2 Not including the two Lanao Provinces and less the population added t to MWSS as under 1.

Table 3-5

URBAN COMMUNITIES IN THE PHILIPPINES 1 PROJECTIONS OF THE NUMBER OF COMMUNITIES BY SIZE

Size of oommunity

1970 1980 1990 2000

(1000)

5 - ¹⁰ 191 300 410 530

10 - 25 99 162 206 250

25 - 50 26 33 66 144

50 - 100 18(4)* 21(3)* 32(1)* 51

OVer 100 16 (10)* 27(13)* 41(15)* 51(16)*

Total 350 543 755 1 026

4. EXISTING WATER SUPPLY 4.1 General obsrvations

The water resouroes available for use in the Philippines are practically unl1m1 ted. The qual 1 ty of the water in most areas is good if watershed

development sites were properly looated and protected. Despite the

abundance of water in almost all parts of the oountry, it is very difficult to find a single water system providing adequate supply to the severed

population. Among the reasons for the failure to provide good water service are:

(a) inadequate government support;

(b) poor management and operation;

(0) inadequate distribution systems. Many of the distribution mains were laid in the 1930's and are in great need of strengthening, replacement and repair;

Cd) inadequate distribution storage and ineffeotive use of available storage;

1 Based on 4.2% annual population growth rate (150% for 10 years period).

The forecasted 5.0% annual growth rate for urban population will further increase the number of communities in the above categories.

*

Figures in braokets are oanmuni ties wi thin the Jurisdiotion of the

MWSS.

:--J,; !!!

\.o~o~--'---'---'·---7-1----T

~ ~

-=:-PROJECTION5

OF~f-I!;

^__

NUM8~

^•

J.;J :J :.:- 01= URB-\N QjMM~NITI€S .IN Tl-\E'

In ~ -=PI4I1.IPPINES (wrn~ POI=t.!t..Al10N

~ $ :-~~

5",000) BY G\Z.t::;. _.:._ _ .1. u

-:

,

~ ^.

; I:

. ".- 8e»

. .

^.

I .

-~i..EGEND ~ _. --- ... -

,

--- ---.- ---+---'---j

I·

~Ol---;-i :-+----:~--.,----....:.--t_---'----_t_----I ,

... - .!5(X:) r - - - /

.. 4₀₀ -

----~--I~- ! . ---,-/-77""-1- ~

i /

: 300 r - - -

---:-~---+---.--,---Ir_-~-- ... / !

/ 1 _--- -- ^~

'-7~---:--r_- ---=;;-.~

--- - - . - - - + - - - j

-2CO r: I __ ---

. I . - - -

.l---

---I ^{® ..}

---- I ~

-- I . ___ - --1/-- ^m- J---

i __ ^{~ ~} ___

---=-

i ~ - - - - - - - ,j>

I

-

^~

-==- - - ---I

^,~

:

j

.4.-_ _ _ _ _ _ _ _ _ _ _ - ' -_ _ _ _ ,.'-"

I 0..C't 0 2000 YI,.:,\\{

. ·100

I--'~~-

0 - .

10,0 1980

,

(e) a large proportion of unaccounted-for water through free service to many oustomers, public faucets and illegal connections;

(f) poorly designed and maintained pumping stations;

(g) the unoontrolled installation of private booster pumps directly connected to the distribution mains to increase pressure in individual service;

(h) lack of leak surveys and deteotion and failure to maintain oorroded mains. It was observed that GI pipes of which most of the small diameter distribution pipes and house connections are made, corrode rather rapidly, it is estimated that the average life of GI pipes will not exoeed 10 to 15 years, while many of these pipes are in service for over 30 years.

4.2 Government agenoies in community water supply

Three major government agenoies have been directly involved in community water supply:

(a) The National Water and Sewerage Authority (NWSA) which was the agency charged with the responsibility to plan, construct, operate and maintain all waterworks in the country. This agency was abolished last year and its functions are being handed over to the local governments who will own and operate all local systems. The Metropolitan Waterworks and Sewerage Systems (MWSS) was created to assume all the functions of the former NWSA in the Metropolitan Manila area. The MWSS is required by law to maintain a Provincial Services Staff to assist provincial waterworks systems in technical matters on cost basis.

(b) The Presidential Arm for Community Development (PACD) is involved in the development of community water supply in rural areas based on self-help of the local populations that contribute to the local work power with materials and equipment granted by the government.

(0) Bureau of Public Works with its water resouroes section and the wells and springs department that was transferred from the former NWSA to the Bureau of Public Works. The Water Resources Seotion is responsible for hydrologioal data oolleotion on both surface and ground water, and planning of water resources development proJeots. The Wells and Springs Department is in oharge of the oonstruction development and maintenance of springs and drilled wells for water supply 1n the rural areas.

The Health Department is also involved in small-scale water supply systems for sohools, hospitals, rural health oentres and some oomm1.U'lity water supply systems in demonstration areas. Most of these aotivities are assisted by UNICEF and WHO.

4.3 Existing water supply faoilities

Each of the above agenoies has prerr:d an inventory of existing water supply faoilities in the oountry. These inventories differ oonsiderably. This might be attributed to differenoes in definition (of what oonstitutes a water supply system) to the reporting and data oolleoting methode, eto. It 1s suspeoted that some double reporting ex1sts. 2

Table 4-1

EXISTING WA'lER SUPPLY FACILITIES

Reporting

Waterworks Artesian

Springs Comm1.U'lal (Improved)

Agenoy Wells Water Systems rug Wells

NWSA3 1 377

1 742 20 841 2081

BPW (W&S) 1 377 20 841 2 081

PACD 550 5}1 1 742 465

Department 3 204 32 6}0 12000 1}4 700

of Health

The above waterworks vary greatly in size. They range from the smallest barrio waterworks system serving a few hundred people to the largest urban water supply system outside Manila serving over }DO 000 people.

The inventory of the Department of Health lists the highest number of water supply faoilities. However, this inventory, oontrary to all the

rest, inoludes also individual domestio supplies henoe the large disorepanoy.

The existing wat&rwork systems are divided into two major oategories:

(a) Revenue producing systems - this inolude all the systems that have distribution systems, house oonneotions, some fire

hYdrants and publio fauoets. Water rates are oharged either on "flat rate" basis or on aotual metered oonsumption.4

1 The summary of these different inventories is given in Annexes 4-1 to 4-4.

2 This is because one system might be reported in two or more inventory lists under different headings. A system constructed by the wells and springs department (spring department projeot) with the assistance of PACD (which provided the pipes and some local labour) and the MWSA distriot office (whioh provided the teohnica1 assistance) might be reported three times, once as spring development once as PACD corrununity water supply pro,lect and once as a NWSA

water system.

3The differenoe between the two NWSA figures is due to additional 365 PACD ProJeots included in the bigger list.

4 As water supplied through public faucets is generally supplied free of charge, the general tendency is to reduce the number of public faucets to the bare minimum in order to out down the "unaccounted for" water.

(b) Non-revenue producing systems - these are generally small systems, supplying rural and at times also urban population in barrios or municipalities with population ranging from 200 to 2000. These systems comprise generally of a spring and a conduction main bringing the water by gravity to the centre of the barrio. Water is supplied free of charge by public faucets. In cases where pumping is involved,

operating expenses are shouldered by the barrio funds or by oontributions of the barrio residents.

Out of the above 1740 water systems, 630 were olassified as revenue- produoing and 1110 as non-revenue producing. No breakdown of the popula- tion served by the revenue-producing and non-revenue producing systems is available.

4.4 Population served

The only available estimates of population served on a countrywide basis are the NWSA and BPW estimates. However these are believed to be somewhat inflated.

Annex 4-2 gives the offioial NWSA and BPW estimates of the population served by the different oategories of existing facilities broken down by the province.

4.4.1 Population served by waterworks

The population served b.Y the existing 1377 waterworks systems is officially estimated at 7 576 200.

Analysis of available NWSA reoords or eXisting revenue producing systems indioates a tendency to over-estimate the population-served figures. l Annex 4-5 "Basio data on existing waterworks" shows that the offioial figure for the population served by the reported 293 water systems totalled 2 699 600. However, the estimates based on the aotual number of service oonnections and publio faucets, assuming 8 persons served by house connection (versus

5.8

persons per household national average) and 200 by public fauoet, total 1 254 1602 or some 48% of the offioial estimates.

No figures are available as to the number of house oonneotions or public faucets in the other revenue produoing systems, but it appears that a

1 The reported "population served" figures are often times based on the population census figures for the oity or municipality served. These figures inolude all the population in the municipal boundary, while ^~~e existing systems generally serve the "poblacion" area (town or city proper) and its immediate vioinity only. Hence the discrepancy.

2some 924 000 people are being served by 114 750 house connection and 330 000 (some 26%) by 1660 public faucets. These figures include some 30%

allowance for unregistered connections or people getting water from their neighbours.

more realistio estimate of the population served will be somewhere between 50 to 60% of the offioial figures. '!he population served by the existing waterworks is therefore estimated at some 4.5 million people. l

4.4.2 Population served ?y wells and springs

'!he estimates of population served by wells and springs seem also to

be over-estimated. '!his is beoause of two faotors that are generally not taken into oonsideration when preparing the estimates:

(a) (b)

many of the listed springs have reportedly dried up or their yield has diminished oonsiderably;2

many of the listed "existing" wells have been abandoned due to drying (lowering of water table, oorrosion of the oasings, oaving in, ologging and lack of maintenance).

There is no inventory of these wells but it is estimated that at least 10% of the existing wells are out or order.

Additional 10 to 20% of the existing wells are in need of repair every year. Offioial figures and oorreoted estimates of population served by wells and springs are given in Table

7.

4.4.3 Population served by PACD projeots

The PACD estimates the population served by its projeots at some 2.8 million (Annex 4-3) but it is believed that (a) this figure is a bit inflated and (b) a large part of the "population served" by PACD is already reported as served either under "waterworks" or "wells and springs".

It is estimated that the population aotually served by PACD projeots and not reported as served under another oategory of supply will not exceed 1.0 million.

160% of the official estimate of

7 576

000.

2This is attributed to the extensive logging operations in many watersheds.

,

The following table summarizes the two estimates of population served in the Philippines as of 1972.

Table 4-2

ESTIMATES OF POPULATION SERVED BY EXISTING WATERWORKS FACILITIES (1972)

Population served Type of Supply

Official estimates Corrected estimates Waterworks

Springs Wells PACD

Total Provincial Met. Manila

Total Philippines

7 576 210 1 321 680 5 250 800 14 148 690 3 500 000 17 648 690

Table 4-3

PER CENT. POPULATION SERVED (1972)

4 500 000 1 200 000 4 700 000 1 000 000 11 400 000 3 500 000 14 900 000

Total Pop. (1000) Population served (1000)

Official

%

^Corrected

Provincial 34 400 14 149 41 11 400

Met. Manila 3 800 3 500 92 3 500

Total 38 200 17 649 46 14 900

%

33 92 39 According to the estimates of the Department of Health. the 1970 population served in the country totalled 16 615 000 1nclud1ng 2 113 000 supplied by improved dug wells (Annex 4-6).

Waterworks systems Artesian wells Developed springs Total

Improved dug wells Total

10 690 000 2 500 000 1 312 000 14 502 000 2 113 000 16 615 000