CALLOUT: An Information Campaign For The Rehabilitation and Preservation Of Manila Bay

Moira Yap & Eunice Umali

University of The Philippines Diliman
 Abstract

The study focuses on the discussion and dissemination of the recent condition of Manila
Bay as well as the history of cleanups, projects and strategies that have been proposed to
conserve, rehabilitate, preserve and maintain the quality of the bay. The researchers have studied
the geographical, biological and economic aspects of the bay, as well as the activity that has
caused the deterioration of the water quality and further damage to the biodiversity and the
people around the bay area. The study also focuses on the damages done to the natural habitats in
the bay, as well as the relationship between the people of the bay to the bay itself. In this study, it
is revealed that the successive and successful industrialization projects as well as the presence of
informal settlements are great contributors to the deterioration of the bay itself.

In this study, the researchers have emphasized the activities undertaken by the central
government and local government units (LGUs) and what are the pre-existing provisions and
legal actions taken that are the basis for the aforementioned activities. Through research and
reading, the researchers have learned well that both the central and local governments have been
proposing strategies and taking action in regards to the the deterioration of the water quality
within the bay.

Key Words: Manila Bay, Manila Bay Watershed, Manila Bay Area, Coastal Cities and
Provinces, River Basin, Tributaries, Watershed, Local Government Units (LGUs), Ocean
Pollution, Pollution, Waste Management, Mandamus
 Review of Related Literature

In order to efficiently create a campaign on Manila Bay, background information on said

subject must be obtained—most especially on the effects of its pollution.

1.1 Definition of Terms

Manila Bay - the Bay itself, the body of water located in the southwest portion of Luzon

Manila Bay Watershed - areas whose water empties into the Manila Bay

Manila Bay Area - area within the Manila Bay Watershed; not only the coastal areas

Coastal Cities and Provinces - parts of these cities and provinces directly in contact with Manila
Bay

River Basin - an area of land drained by a river and its tributaries

Tributaries - smaller rivers flowing into a larger river

Watershed - an area of highland surrounding the river basin.

Mandamus - a judicial writ issued as a command to an inferior court or ordering a person to

perform a public or statutory duty.

1.2 Ocean Pollution

Ocean pollution, otherwise known as marine pollution, “—occurs when harmful, or

potentially harmful, effects result from the entry into the ocean of chemicals, particles, industrial,
agricultural, and residential waste, noise, or the spread of invasive organisms. Eighty percent of
marine pollution comes from land. Air pollution is also a contributing factor by carrying off
pesticides or dirt into the ocean. Land and air pollution have proven to be harmful to marine life
and its habitats.” (US Department of Commerce)

Ocean pollution has since then been a rampant issue not only in Manila Bay, but to the world’s
oceans in general. To Rinkesh and Marine Insight, ocean pollution is mainly caused by the
following:

1. Sewage and waste dumping

2. Land runoffs
3. Oil spills
4. Littering
 5. Ocean Mining

These contribute to the continual decline of marine life and ecosystems, leading to rather
unsavory results such as toxic wastes affecting the marine life, which subsequently depletes the
oxygen content in the water, contributing to the failure of reproduction with marine life, resulting
in a decline of different marine species. (Rinkesh) The disruption and destruction of natural
habitats, with the addition of solid waste on the ocean surface also take negative effects on the
marine food chain, as well as migratory birds that feed on the ocean surface, taking in plastic
instead of fish. (Marine Insight)

1.3 Manila Bay

Manila Bay is a semi-enclosed estuary facing the West Philippine Sea, and is said to be
one of the best natural harbors in the world. It has approximately 190 kilometers of of coastline,
with a gently sloping basin about 1 meter per kilometer while its average depth is 17 meters.
(PEMSEA)

The Bay is home to various natural values, and is known for its mangroves. These mangroves,
according to the Bureau of Fisheries and Aquatic Resources (or BFAR), originally has 54,000
hectares. These natural habitats provide protective buffers against tropical cyclones and storms,
as these habitats are home to various animal and plant species. Next, there are wetlands, which
cover 4600 hectares (BFAR), and these wetlands around Manila Bay contribute natural habitat as
well as help naturally improve the water quality of the bay, rivers and estuaries that empty into
the bay. (Alonzo-Pasicolan). Additionally, the bay has coral reefs and seagrass beds that also
function as natural habitats to the wildlife present in the area. The bay is also home to several
species of commercial fish, such as snappers, catfish and mackerels but have since then been in
decline. (Martinez-Goss) ushering in squids, shrimp, herrings and anchovies. (Jacinto, G.S et al
2006).

It is bordered by numerous cities and provinces, namely Manila, Pasay, Parañaque, Las Piñas
and Navotas for cities; while the provinces bordering it are Bataan, Pampanga, Bulacan and
Cavite.
The Manila Bay Watershed is the term for the areas whose water empties into the bay. The
watershed is approximately 17,000 km² of area, consists of 26 catchment areas and is bounded on
the west by the Bataan mountains, the Zambales mountains to the northwest, the Caraballo
mountains to the North, and the Sierra Madre mountains to the East. Within the watershed of
Manila Bay are several non-coastal cities and provinces. There are cities in NCR; Nueva Ecija
and Tarlac in Region 3, as well Rizal and Laguna in Region 4A.

The Bay has a number of contributory areas, Pasig River and Pampanga River Basin being the
main contributors of these areas. The Pasig River, being one of the main contributories, connects
Laguna de Bay to Manila Bay itself. In the case of the Pampanga River Basin, several other river
systems in Central Luzon provinces drain into the Pampanga River, which then empties into
Manila Bay. There are other major rivers that empty to Manila Bay; namely Talisay, Pasag,
Meycauayan, Navotas-Malabon-Tullahan-Tenejeros, and Maragondon. (PEMSEA, 2001)
The Bay’s coastal character shows the natural and economical values of the coast of Manila Bay,
as well as its conditions. Bataan has brushlands, industrial, urban, agricultural, and aquacultural
environments. Coastal Pampanga has aquacultural and agricultural environments, and it is also
the main drainage system of Central Luzon. Coastal Bulacan has agricultural, aquacultural, and
industrial environments. This area is a natural fish spawning area, and also has large tracts of fish
ponds. NCR has highly urbanized and industrialized areas. Cavite has agricultural and
aquacultural environments, and has a good tourism industry. The island of Corregidor has an
island environment, with coral reefs, seaweed, and seagrass. (PEMSEA, 2001)

The Bay’s economy is important, as it accounts for around 55% of the country’s gross domestic
product, or GDP. The GDP of NCR, Regions 3 and 4 account for almost one-third of the
country’s agriculture, fisheries, and forestry production (PEMSEA, 2001). One of the major
sources of livelihood in the Bay is fisheries and aquaculture, as the entire Bay is a fishing
ground. There are other forms of fisheries, like shell fisheries in the southern part of the Bay, and
aquaculture in numerous places, like Laguna de Bay and in inland places like Nueva Ecija,
Bulacan, Pampanga, and Tarlac. Another predominant livelihood is agriculture, which is seen in
almost the whole Bay area, except for most of NCR. They produce major crops, like rice, corn
and vegetables, as well as livestock and poultry. An average of 30,000 ships arrive and depart
from Manila Bay ports a year. These allow for trade and commerce, and transportation of raw
materials, manufactured goods, and passengers. Manufacturing industries are found inland and
coastal areas of the Bay. Manufactured items include oil, jewelry, food and beverage, textile,
pharmaceutical, electronics, and plastics (PEMSEA, 2001). Mining activities are found in
Pampanga and Tarlac for lahar mining and quarrying, in Rizal and Bulacan for rock mining, and
in Nueva Ecija and Tarlac for various minerals. Commercial areas are mostly found in NCR and
in the big cities of the province. These commercial areas have malls, businesses, and commercial
centers. Residential areas soon developed as these commercial areas grew. Most residential areas
are in the low-lying areas, stretching from the coastal areas to the inland areas. In the 1990s,
residential areas extended to the medium and high-elevation areas, like Antipolo, Rizal and
Tagaytay, Cavite.

1.4 The People of Manila Bay

As of 2015, about 30% (approx. 31,291,00) of the country’s population resides in the
Manila Bay area. About 43.56% (approx. 13,630,000) of the Manila Bay area residents are in the
coastal cities and provinces. 74.6% of the population is comprised of children (15 years old and
below) and young adults (16-35 years old). The remaining 25.4% of the population are adults
(36-59) and elderly (60 and above). ( NSO, 2016 )
Among the 16 highly urbanized cities (HUCs) comprising the region, Quezon City had the
biggest population in 2015 with 2.94 million. It was followed by the City of Manila with 1.78
million and Caloocan City with 1.58 million. The City of San Juan had the smallest population
among the HUCs with 122,000. (PEMSEA, 2001)

According to the National Statistics Office, or NSO, the population of the Manila Bay Area as of
2016 are as follows:
NCR - 12.88 million
Bataan - 761,000
Pampanga - 2,610,000
Bulacan - 3,292,000
Nueva Ecija - 2,151,000
Rizal - 2,884,000
Laguna - 3,035,000
Cavite - 3,678,000

1.5 The Condition of Manila Bay

According to PEMSEA, there have been successive successful changes in Manila Bay in
the context of industrialization. The continued and incessant building of ports and ships as well
as human activity such as livelihood and habitation contribute to the deterioration of the Bay.
Urbanization around the bay also contribute to its decline, such as the highly urbanized areas of
Manila, shipyard facilities in Cavite, and to the 2001 Manila Bay Environmental Project
(MBEMP) there are several industries in Bataan such as heavy industries, refineries and a power
plant. These areas which are heavy in industrialization contribute to the heavy liquid waste
pollution going into the bay.

Manila Bay has since been in decline due to solid and liquid waste being emptied into the bay
from the different estuaries and rivers’ pollution due to excess human activity. The main
pollutant of the bay consists of plastics and liquid wastes coming from factories. That being said,
the Philippines is said to be one of the Top 5 countries that produces plastic. A huge percentage
of the plastic waste going into the contributing water sources and into the bay are single use
packets, plastic bottle labels and straws. (Greenpeace, 2017)

In the Philippines, it is found that Nestle, Unilever, PT Torabika are the Top 3 Contributors of
plastic waste contributing to the overall 1.88 million metric tonnes of waste. (WWF, 2016) This
does not only apply to Manila Bay, but to the waters surrounding the Philippines in general.

As far as liquid waste is concerned, in 1995, there have been 12 recorded oil spills; however, an
oil spill in 1999 that had been recorded to have the highest volume of spilled oil in the Manila
South Harbor and Limay, Bataan. (Jacinto G.S et al. 2006). There also had been an increase in
oil and grease within the bay from industry discharge. Aside from the liquid waste discharge
from industries by the bay, there also have been trace metals in the water, namely copper,
cadmium and zinc. It was said that these sea-based and land-based sources helped contribute to
the further deterioration of the bay: domestic sewage, industrial effluents, land runoff,
combustion emissions and mining operations. (Jacinto G.S et al. 2006)

With all this said, it can be said that the overall condition of Manila Bay, as of the 90s and early
2000s, have been in decline in spite of the efforts and strategies undertaken to improve the water
quality. By 2017, it is revealed that one of the most recent main pollutants of the bay happen to
be plastic waste coming from local factories, and contribute to the overall 1.88 million metric
tonnes of plastic waste in the Philippine waters, not only limited in Manila Bay.
1.6 Damage on Biodiversity

According to BFAR, the mangrove that was originally comprised of 54,000 hectares,
only 794 hectares remain as of 1995. A few of these remaining swamps remain in Pampanga
Bay, and are still valued for considerable value in the context of research and conservation
education. (National Water Resources Council - NWRC). Additionally, in the context of natural
habitats, the coral reefs that have been contributing to the balanced ecosystem and function as
sanctuaries for fish, these coral reefs have been in steady decline over the past years, directly
affecting the fish yield. (ICLARM) Catfish, mackerels and snappers had once been abundant in
the waters of the bay, but have since then been in decline in spite of the ushering of other
species. There is also the mention that plastics and other solid waste on the ocean surface had
been depleting the oxygen under the surface, affecting the lifespan and overall health of the
marine life underwater. (Rinkesh) These plastics have also been ingested by fish and migratory
birds, who mistake these plastics for fish and jellyfish on occasion. (earthisland.ph).
Additionally, an article written by earthisland.ph states that these migratory birds are in fact, also
being affected by the pollution in the bay, proving that the food chain is directly affected by the
solid waste on the ocean surface. This shows to prove that the pollution from solid and liquid
waste as well as industrialization had been negatively affecting the overall condition of the bay’s
biodiversity.

1.7 Action and Progress

In 1999, concerned citizens of Manila and their representatives filed a complaint against
the following government agencies:

1. Department of Environmental and Natural Resources (DENR)

2. Department of Education, Culture and Sports (DECS), now the
Department of Education (DepEd)
3. Department of Health (DOH)
4. Department of Public Works and Highways (DPWH)
5. Department of Budget and Management (DBM)
6. Philippine Coast Guard (PCG)
7. Philippine National Police Maritime Group (PNP-MG)
8. Department of Interior and Local Government (DILG)

The complaint is as follows:

“x x x [The] reckless, wholesale, accumulated and ongoing acts of omission or commission [of
the defendants] resulting in the clear and present danger to public health and in the depletion
and contamination of the marine life of Manila Bay, [for which reason] ALL defendants must be
held jointly and/or solidarily liable and be collectively ordered to clean up Manila Bay and to
restore its water quality to class B waters fit for swimming, skin-diving, and other forms of
contact recreation.”
The complaint to the Regional Trial Court (RTC) in Imus Cavite, just as it had been stated
above, is a complaint in regards to the deterioration of water quality that had gone below the
standard quality, and that the aforementioned government agencies had failed to do their jobs in
preserving and maintaining the water quality of the bay. As a response, the Supreme Court
ordered these government agencies by mandamus to take initiative into addressing the problem
of waste management, water quality and the preservation of Manila Bay. These government
agencies were ordered to give mandatory progress reports to the Supreme Court, as well as
propose strategies to make effective cleanup programs and projects to improve the bay’s overall
quality. (Mayor-Gondove) The aforementioned complaint that had given rise to the 2008
mandamus by Supreme Court was based off the Water Quality standards stated by the Philippine
Environmental Code.

In regards to the issue of cleanups and water quality management, the Philippine Environmental
Code, otherwise known as Presidential Decree no. 1152, declared in 1977 by former President
Ferdinand Marcos, addresses the need to maintain water quality and the responsibility of the
polluter to clean up polluted water areas. In particular, TITLE II of the Environmental Code
addresses Water Quality Management. Section 14 states the purpose of Water Quality
Management.

The provisions below state the following:

TITLE II
WATER QUALITY MANAGEMENT

Section 14. Purpose. It is the purpose of this set of provisions to prescribe management
guidelines aimed to protect and improve the quality of Philippine water resources through:

(a) classification of Philippine waters;

(b) establishment of water quality standards;

(c) protection and improvement of the quality of the Philippine water resources, and

(d) responsibilities for surveillance and mitigation of pollution incidents.

Secondly, Chapter 1 Sections 15 through 18 also state the following water standards that are fit
for the people. The provisions are as follows:

Chapter I
Classification and Standards

Section 15. Classification of Philippine Waters. The National Pollution Control Commission, in
coordination with appropriate government agencies, shall classify Philippine waters, according to
their best usage. In classifying said waters, the National Pollution Control Commission shall take
into account, among others, the following:

(a) the existing quality of the body of water at the time of classification;
(b) the size, depth, surface area covered, volume, direction, rate of flow, gradient of stream; and

(c) the most beneficial uses of said bodies of water and lands bordering them for residential,
agricultural, commercial, industrial, navigational, recreational, and aesthetic purposes.

Section 16. Reclassification of Waters Based on Intended Beneficial Use. Where the public
interest so requires, the National Pollution Control Commission, in coordination with appropriate
government agencies, shall reclassify a body of water based on the intended beneficial use and
take such steps as may be necessary to upgrade the quality of said water. Other government
agencies may adopt higher standards for a particular body of water, subject to the approval of the
National Pollution Control Commission.

Section 17. Upgrading of Water Quality. Where the quality of water has deteriorated to a degree
where its state will adversely affect its best usage, the government agencies concerned shall take
such measures as may be necessary to upgrade the quality of such water to meet the prescribed
water quality standards.

Section 18. Water Quality Standards. The National Pollution Control Commission shall
prescribe quality and effluent standards consistent with the guidelines set by the National
Environmental Protection Council and the classification of waters prescribed in the preceding
sections, taking into consideration, among others, the following:

(a) the standard of water quality or purity may vary according to beneficial uses; and

(b) the technology relating to water pollution control.

Lastly, in the Philippine Environmental Code, Chapter II Sections 19 through 21 explains the
Protection and Improvement of Water Quality, and the provisions are as follows:

Chapter II
Protection and Improvement of Water Quality

Section 19. Enforcement and Coordination. The production, utilization, storage and distribution
of hazardous, toxic and other substances such as radioactive materials, heavy metals, pesticides,
fertilizers, and oils, and the disposal, discharge and dumping of untreated wastewater, mine
tailings and other substances that may pollute any body of water of the Philippines resulting from
normal operations of industries, water-borne sources, and other human activities as well as those
resulting from accidental spills and discharge shall be regulated by appropriate government
agencies pursuant to their respective charters and enabling legislations. In the performance of the
above functions, the government agencies concern shall coordinate with the National
Environmental Protection Council and furnish the latter with such information as may be
necessary to enable it to attain its objectives under Presidential Decree No. 1121.

Section 20. Clean-up Operations. It shall be the responsibility of the polluter to contain, remove
and clean up water pollution incidents at his own expense. In case of his failure to do so, the
government agencies concerned shall undertake containment, removal and clean-up operations
and expenses incurred in said operations shall be charged against the persons and/or entities
responsible for such pollution.

Section 21. Water Quality Monitoring and Surveillance. The various government agencies
concerned with environmental protection shall establish to the greatest extent practicable a water
quality surveillance and monitoring network with sufficient stations and sampling schedules to
meet the needs of the country. Said water quality surveillance network shall put to maximum use
the capabilities of such government agencies. Each agency involved in such network shall report
to the National Environmental Protection Council the results of these monitoring activities as the
need arises.

To follow PD 1152, there have been other strategies proposed to help and further the
preservation and rehabilitation of Manila Bay, such as the PEMSEA Manila Bay Coastal
Strategy. The PEMSEA Manila Bay Coastal Strategy was published in 2001. The Manila Bay
Coastal Strategy basically gives a framework of what is currently happening in Manila Bay, and
stating a series of actions that will result in possible, ideal outcomes of the actions taken in
helping preserve Manila Bay. The strategy also states the current and possible threats that may
deter the progress of the The document gives the sociological, environmental and economic
aspects of the bay as well.

From 2008 henceforth, by mandamus and decision of the Supreme Court, Local Government
Units (LGUs) have participated and initiated movements to the cleaning of the Bay,
improvement of water quality, and proposing movements in waste management. These LGUs
have held forums and seminars in relation to these coastal strategies and the implementation of
these for their coastal cleanups. These LGUs have focused their efforts on cleaning the bay, at
the same time, other efforts have been made to also clean up the contributing water areas that
empty the bay as well. There have been movements as well to clean the Pasig River, a main
contributor to the bay.

While there have been strategies and plans made for the coastal cleanup of Manila Bay, such as
the PEMSEA Manila Bay Coastal Strategy, cleanups of other waterways coming into the bay
such as Laguna De Bay and Pasig River, the influx and influence of residents and informal
settlers in the area have contributed into the lack of progress in the bay’s preservation.

In 2016, the Biodiversity Management Bureau initiated the Manila Bay Rehabilitation Project or
MBRP. The rehabilitation project was meant to continue the 2008 Mandamus by the Supreme
Court in response to the 1999 complaint about the bay’s quality. The goal of the MBRP is to
name one (1) critical habitat and to raise the awareness of Manila Bay’s condition to coastal
communities; as well as make them aware of the protection and management of the marine
resources they have.

In 2017, DENR Secretary Roy A. Cimatu presided the first meeting for CY 2017 of the Manila
Bay Coordinating Committee. The meeting focused on the re-affirmation of commitments of the
affiliated agencies for the 2017 - 2022 Operational Plan for Manila Bay Coastal Strategy or
OPMBCS. Currently, the OPMBCS has been updated and its coverage is for 2017-2022. The
updated OPMBCS is a product of series of workshops and consultations among mandamus
agencies and other stakeholders, as well as to forward all progress and efforts in order to
implement this coastal strategy. The finished product was presented to the Manila Bay Advisory
Committee (MBAC) last 05 May 2017, and was approved in principle by Justice Presbitero
Velasco, Chairman of the MBAC. (DENR - GLOBAL COLLECTIVE ACTION VS MARINE
POLLUTION SOUGHT AT MANILA WILDLIFE MEET