REGULATING SINGLE-USE PLASTICS IN THE PHILIPPINES

A
gainst the backdrop of a global plastic concerning plastics — and in fact support the idea
pollution crisis, a growing number of of regulating SUPs — strongly suggests a window of
cities and municipalities in the Philippines opportunity to pass key legislation on plastics. This
have passed ordinances that ban shopping policy brief provides three policy recommendations
bags and other single-use plastics (SUPs). to enable legislators and decision-makers to move
These initiatives remain woefully inadequate, however, the country away from its dependence on SUPs.
in solving the problem of plastic waste. The country First, it advocates for a national law prohibiting
lacks a national plastics policy that will harmonize the production, sale, distribution, and use of SUPs.
initiatives and steer it towards a more sustainable, Second, it demands the phaseout of sachets to be
circular economy. replaced by alternative delivery systems. Finally,
it calls for policies that ensure corporations take
Exciting evidence from a nationwide survey showing responsibility for their products even after they have
that majority of Filipinos are aware of the problem been sold, used, and disposed of.
 INTRODUCTION
The plastic pollution crisis is global in scale. It is flooding and marine pollution. Therefore, it comes as
estimated that only 9% of the plastics that have no surprise that the country is tagged as one of the
ever been produced is recycled, while 79% simply major sources of land-based plastic pollution leaking
accumulates in landfills, or worse, in the natural into the ocean.5
environment.1 The continued rise in plastic production,
expected to reach the 25-billion-metric-ton mark by It cannot be emphasized enough that the
2050,2 is unsustainable. For this reason, the United consequences of plastic waste on the oceans,
Nations Environment Assembly (UNEA) — the world’s wildlife, and human health are dire. Managing plastic
highest-level decision-making body on the environment waste, however, is an expensive business. The costs
— adopted a resolution encouraging member states eat up a considerable chunk of public spending,
to reduce the discharge of plastic waste into the comprising one-fifth of annual municipal budgets —
environment.3 on average — in low-income countries.6

The Philippines plays an important role in the global To date, more than 127 countries have passed some
plastic crisis. Its markets are awash with consumer form of plastic regulation. Many of these have
products, most of which are packaged in single- focused on outright plastic bans, particularly on
use disposable plastics, ranging from sachets to shopping bags. Other regulatory approaches include
shopping bags. Filipinos use nearly 60 billion sachets, market-based instruments, such as user levies on
17.5 billion shopping bags, and 16.5 billion labo bags bags, taxes, and financial incentives.7 Extended
per year.4 These plastic residuals — wastes that can producer responsibility (EPR), which requires
neither be composted nor recycled — accumulate companies to assume responsibility for their products
in dumpsites (illegal in the country) or escape into in every stage of their product’s lifecycle, is another
water bodies, clogging waterways and exacerbating policy approach that is gaining currency.

Figure 1. Different Types of Plastics

Plastic #1 Plastic #2 Plastic #3 Plastic #4

Polyethylene High-Density Polyvinyl Low-Density
Terephthalate Polyethylene Chloride Polyethylene
(PET) (HDPE) (PVC) (LDPE)

Plastic #6 Plastic #7
Plastic #5 Polystyrene Assorted Plastic,
Polypropylene including acrylic,
or styrofoam polycarbonate,
(PP) (PS) polyactic, etc

2 REGULATING SINGLE-USE PLASTICS IN THE PHILIPPINES

 COUNTRIES AND COMMUNITIES FIGHTING SUPS:
A Look at Initiatives Across the Globe
As awareness of the menace of plastic pollution grows, packaging-free spaces. It also provides for the right
more than 127 countries have passed regulations to of consumers to purchase using their own reusable
stem the production, distribution, use, and disposal of containers, while giving establishments the right to
plastics. These include bans on certain types of plastics refuse supply should the container be dirty, thereby
— most frequently, plastic bags — as well as taxes addressing legal and safety concerns.3
and user fees.1
Similarly, local governments are taking charge and
z The European Union adopted a Single Use Plastics implementing their own ordinances.
Directive, having voted in 2018 to ban certain
SUPs (plates, cutlery, polystyrene food containers, z Jakarta’s new gubernatorial regulation not only
beverage cups) in all member states by 2021. banning plastic bags in retail establishments, but
The directive will likewise require manufacturers also promoting eco-friendly bags, which it defines
to pay for the cost of waste management and as being made from leaf, paper, cloth, polyester,
clean-up of SUPs. This signifies a watershed, since and recycled materials, will come into effect
the European Union is one of the world’s largest in June 2020.4
producers of plastic waste.
z Berkeley, California, a progressive city that banned
z Thailand opened the year 2020 with a ban on plastic polystyrene as early as three decades ago, recently
bags in department stores and convenience stores. passed an ordinance requiring food establishments
Majority of Thais strongly support the ban, which to serve diners using reusable plates and cutlery,
will be extended to all shops by 2021.2 while food for takeaway customers must be placed
in compostable foodware. Vendors are likewise
z Italy has committed to earmark EUR 20 million required to charge customers $0.25 per disposable
as incentives for businesses planning to open beverage cup.5

REFERENCES

1. Excell; Carole et al., “Legal Limits on Single-Use Plastics and Microplastics: A Global Review of National Laws and
Regulation,” UN Environment, 2018, https://wedocs.unep.org/bitstream/handle/20.500.11822/27113/plastics_limits.pdf.
2. Majority Support Ban on Single-Use Plastic Bags: Poll,” Bangkok Post, January 12, 2020, https://www.bangkokpost.com/
thailand/general/1833989/majority-support-ban-on-single-use-plastic-bags-poll.
3. Della Repubblica Italiana, Gazzetta Ufficiale Anno 160° - Numero 292, Article 7, p. 42, https://www.gazzettaufficiale.it/eli/
gu/2019/12/13/292/sg/p
4. Kharishar Kahfi, “Jakarta to Ban Single-Use Plastic Bags by June,” The Jakarta Post, January 7, 2020, https://www.
thejakartapost.com/news/2020/01/07/jakarta-to-ban-single-use-plastic-bags-by-june.html.
5. City of Berkeley Department of Public Works, “Berkeley Single Use Foodware and Litter Reduction Ordinance,” 2019,

REGULATING SINGLE-USE PLASTICS IN THE PHILIPPINES 3

 PROGRESS IN ADDRESSING
THE PLASTICS CRISIS

In the absence of a national law that specifically campaign and implemented “Plastic Regulation Day”
regulates plastic waste,8 more than 300 local Fridays. It had also imposed levies of as much as
government units (LGUs) — from barangays to Php4 per plastic bag. The gradual phaseout proved
provinces — have taken the lead and crafted instrumental to the high compliance rate of 85% among
ordinances.9 Some LGUs, such as Quezon City and residents.
the City of San Fernando, Pampanga, have used a
combination of policy instruments. There is evidence that plastic bans — coupled with
proper enforcement of course — are effective. In San
In 2012, Quezon City, Metro Manila’s top generator Fernando, where the bag ban has been in place for
of waste,10 imposed a Php2 levy per plastic shopping several years, household use of bags is down to 1.83
bag used in retail establishments. To set an example, bags a week, whereas in Quezon City, whose bag ban
the city also banned other SUPs within the city hall has only begun this 2020, usage is 12 times greater. 12
complex and selected public hospitals.11 It later updated
its ordinance with a total ban on plastic shopping bags, On the side of the private sector, local businesses are
effective January 2020. It also introduced another beginning to implement voluntary policies on SUPs.13
ordinance, effective February 2020, which prevents For example, a number of food establishments,
restaurants and hotels from using disposable products including chain restaurants, have stopped distributing
such as cutlery. SUPs such as cutlery, cups, and drinking straws
for dine-in customers. Some businesses have also
The City of San Fernando, cited as a model city for taken steps in the right direction by testing refilling
Zero Waste, passed its plastic bag ordinance in 2014, systems and offering packaging-free products. Other
giving citizens a year to prepare for a full ban. During the corporations, meanwhile, have launched community
transition period, the city launched a public awareness collection schemes — often in exchange for money,

4 REGULATING SINGLE-USE PLASTICS IN THE PHILIPPINES

rice, or sachet products — in a bid to improve recovery layer — almost 52%. Leaving these out implies that
rates at the community level. practically three-fourths (76%) of residual wastes
are neglected — a significant missed opportunity to
Such initiatives, although worthwhile, are woefully reduce mismanaged waste. As waste assessments
inadequate. They do not address the root of and brand audits (WABAs) in the country have
the problem — the continued production of SUP revealed, 55% of plastic residuals are branded. The
packaging. To illustrate, plastic shopping bags results raise concerns about the role of corporations
only make up about 15% of the plastic residual in the plastic crisis, and more importantly, concerns
waste stream. Meanwhile, plastic labo comprises about how they should be held accountable for the
almost 24% and sachets — single-layer and multi- packaging they produce.

FILIPINOS’ OPINIONS ON
SINGLE-USE PLASTICS
In 2019, the Global Alliance for Incinerator Alternatives sando bags (71%), polystyrene food containers (56%),
(GAIA) commissioned a Social Weather Stations (SWS) labo bags (54%), straws and stirrers (52%), while half
nationwide survey gathering Filipinos’ opinions on feel the same regarding sachets (Figure 4). Notably,
plastics. Filipinos showed willingness to buy products Classes D and E, comprising 95% of the respondents,
in recyclable or refillable containers rather than sachets expressed stronger support for regulation on plastic
(Figure 2). Seven of 10 Filipinos would consider more shopping bags, compared to A, B, and C.14
sustainable packaging for food condiments (e.g. oil, When respondents were asked to choose the best way
soy sauce, vinegar), while 4 of 10 would do so for to solve the problem of SUPs among three options
personal care items (e.g., shampoo, conditioner) (ban the use of plastic at all times, ask the user of
and household cleaning products (e.g., powder, plastic to pay a premium, and do nothing) — pluralities
laundry detergent). to majorities opted for bans, for example 71% for
Moreover, majority believe that the SUPs in need of sando bags; 65% for labo bags; 60% for sachets; and
regulation or reduction are, ranked by incidence: plastic 41% for plastic water bottles (Figure 3).

Figure 2. Percentage of Filipinos Willing to Buy Reusable or Refillable Container

68% 27%
Powdered
Food condiments such as drinks like
oil, soy sauce, vinegar, etc. coffee and
juices

42% 29%
Personal care products like
shampoo and conditioner. Household cleaning
Household cleaning products products like powder
like dishwashing liquid, liquid laundry detergents
detergent, fabric conditioner

Source: Social Weather Stations survey, 2019

Original Title of Table: Products that One Would Be Willing to Buy in Recyclable or Refillable Container

REGULATING SINGLE-USE PLASTICS IN THE PHILIPPINES 5

 These results are promising. They show that the Responses strongly suggest that regulation is the
majority of the Filipino public is actually open to preferred option, whereas shifting the cost burden to
regulation of certain plastics. Plastic bags should clearly consumers through levies — a market-based instrument
be a priority, since 7 of 10 Filipinos are convinced that — is the least preferred. In various degrees, Filipinos
they should be regulated or used less. Polystyrene have even expressed willingness to change their
(styrofoam) food containers and labo bags should behavior and use recyclables and refillables in lieu of
likewise be regulated. SUP packaging.

Figure 3. Percentage of Filipinos Who Believe These Specific Single

Use Plastics should be Regulated

71% 52%
Plastic straws
Plastic sando bags and stirrers

56% 50%
Styrofoam or polystyrene
food containers Sachets

54% 43%
Plastic
Plastic labo bags
drinking cups

41%
% 32%
Cutlery such
uch
ch
h as pl
p
plastic
asstiic Plastic bottles for
spoon andd fforks
ork
ks water

37% 32%
Doy pack* Plastic bottles
for juice for juice

1%
None/No answer/Don’t
know/Refused

*And other beverage packaging like milk cartons Source: Social Weather Stations survey, 2019
Original Title of Table: Materials that Should Be Regulated or Be Used Less Nationally, Philippines, September 2019

6 REGULATING SINGLE-USE PLASTICS IN THE PHILIPPINES

Figure 4. Best Thing to Do with Single-use Plastics (SUPs)

71
66 65 64
60
21
19 14 21 13 15
21
16
23
10
Plastic sando bags Plastic straws and Plastic labo bags Styrofoam or Sachets
stirrers polystyrene food
containers
59 56
54 49
34 41 28
25 28 29
15 15 17 17 18
Doy pack* Plastic drinking Cutlery such as Plastic bottles for
Plastic bottles for
or juice cups plastic spoon and juice
water
forks
LEGEND
Ban the use of Ask the user of Don’t ban the use of plastics at all times and don’t
% plastics % plastic to pay higher % impose a hifher price on plastic users

*And other beverage packaging like milk cartons Source: Social Weather Stations survey, 2019

Figure 5 shows preferred solutions on how corporations Moreover, there is significant scope for regulation
should address plastic waste in the country. For every of companies whose products use SUPs. A
10 Filipinos: plurality (41%) believes that companies should use
alternatives to plastics, while a quarter supports
z 4 thought that companies could find or use either a ban or a reduction in plastic production,
substitute materials; sale, and use. The government would do well to
z 2 believe that companies could focus on recycling strike while the iron is hot, applying pressure on
and recovery (buying or collecting plastics companies to take responsibility for the plastic
z 1 identified banning and no longer producing and waste they produce by requiring more effective
selling plastics; action than recycling and recovery initiatives —
z 1 cited reducing usage, production, and sale activities that have hitherto had little impact on
of plastics. solving the plastic crisis.

Figure 5. Opinion on How the Companies that are Responsible for Single-use
Plastics (SUPs) Could Help Lessen Plastic Waste in the Philippines

5%
Use/Find Conduct Ban/Stop Reduce the Others
Buy/Collect
alternative seminars/ selling/ usage/selling/
plastics
materials to Observe production production of Don't know/Can't
and recycle
plastic proper waste of plastics plastics say/None/No
management answer/Refused

41% 23% 4% 14% 12% 9%

Source: Social Weather Stations survey, 2019

REGULATING SINGLE-USE PLASTICS IN THE PHILIPPINES 7

 CONCLUSION AND
RECOMMENDATIONS
The national government must be responsible in moving Labo
PACKAGING
the country awayA from
plastic bag. translucent
dependence on SUPs, in full recognition of the harm that plastic
these materials inflict on
film bag without handles
its environment and its people. While solutions do not lie with government alone, is mostly
that is made of HDPE and
used as primary packaging for
but on all stakeholders, including citizens and the private sector, only government
fresh food, produce, and small
can exercise authority in impelling stakeholders through policy
amounts instruments
of grocery and
items.
enforcement mechanisms to undertake concrete measures towards plastic reduction.
Sando or shopping bag. A plastic
bag with handles or strings usually
POLICY RECOMMENDATIONS made of LDPE, PP or other SUP
material. This type of packaging is
often provided to a customer at
the point of sale.
1. Pass a national ban on the production, sale,
distribution, and use of sando andSachet.
laboA type
bags and
of small, sealed
packaging made of single or
other single-use plastics with phaseout
multi-layer schedule.
plastic intended for
single usage (by one person or
family)
The Philippines needs a comprehensive national law that will bring together
various regulations on plastics, and provide guidance, with clear timelines,
objectives, and expected outcomes with regard to thePouch.
reduction
A typeand
of sealed plastic
eventual phaseout of SUPs. GAIA, together with otherpackaging,
membersmany of thetimes bigger
than a sachet intended for use for
a few weeks or months
Figure 6. Some Types of Low Value Single-use Plastics
PACKAGING
FOODWARE
Labo plastic bag. A translucent
plastic film bag without handles
that is made of HDPE and is mostly Stirrers
used as primary packaging for
fresh food, produce, and small
amounts of grocery items.
Cups
Sando or shopping bag. A plastic
bag with handles or strings usually
made of LDPE, PP or other SUP
material. This type of packaging is Spoon and fork
often provided to a customer at
the point of sale.

Sachet. A type of small, sealed Styro food

packaging made of single or containers
multi-layer plastic intended for
single usage (by one person or
family)
Plastic-lined paper
Pouch. A type of sealed plastic cups, food containers
packaging, many times bigger
than a sachet intended for use for
a few weeks or months

FOODWARE
8 Stirrers
REGULATING SINGLE-USE PLASTICS IN THE PHILIPPINES
Figure 7. Sachet Use
in the Philippines

9sachets per person per week

164M sachets used in the
Philippines per day

59.8B sachets used in the

Philippines per year, enough to cover
the whole country in sachets, or drown
Metro Manila in one-foot sachets

Source: 2019. Global Alliance for Incinerator

Alternatives. Plastics Exposed: How Waste
Assessments and Brand Audits are Helping
Philippine Cities Fight Plastic Pollution.

Break Free From Plastic movement, recommends a total phase-out of SUPs and disposable
materials by business establishments and government offices. The national ban should:

a. Be comprehensive, close potential loopholes, and cover phaseout plan for SUPs.
For example, the regulation of one type of plastic (sando shopping bag) can be
circumvented when another type of plastic (labo) is allowed.15
ii. Within 12 months: Sando bags, labo bags, straws, stirrers, food containers,
drinking cups, and cutlery
iii. Within 36 months: Sachets, plastic bottles, plastic-lined beverage containers,
and other SUPs
b. Issue guidelines on recycling and safe disposal (to prevent pollutants from leaking
into the environment) for SUPs that are already in the market at the time the law
comes into effect.
c. Require local governments to disaggregate data on plastics, and include brand data
not only on plastics that are disposed of, but also plastics that are manufactured,
imported, and sold.
d. Determine non-environmentally acceptable products (NEAP) to be prohibited,
as mandated under RA 9003, which should include sachets and other single-use
packaging. 16
e. Reinforce the ban on incineration and other thermal waste treatment facilities as a
treatment and disposal method for plastic waste.

REGULATING SINGLE-USE PLASTICS IN THE PHILIPPINES 9

 Figure 8. Plastic Use in the Philippines

The average Filipino uses 591 pieces of

sachets, 174 shopping bags, and 163
plastic labo bags, yearly.

164 million sachets are used

daily, or 59.8 billion pieces of
sachets annually.

Every day, almost 57 million

shopping bags are used
throughout the Philippines, or
roughly 20.6 billion pieces a year.

Plastic labo bag use throughout the

Philippines is at 45.2 million pieces
per day, or 16.5 billion pieces a year.

Around three million diapers are

discarded in the Philippines daily, or
1.1 billion diapers annually.

Source: 2019. Global Alliance for Incinerator Alternatives.

Plastics Exposed: How Waste Assessments and Brand Audits
are Helping Philippine Cities Fight Plastic Pollution.

2. Phase out sachets in favor of reuse and refill

systems for product distribution within three years.
A sound policy is needed to tackle sachets, which have a low resource value and
are practically impossible to recycle.

a. Review and amend regulations that discourage refilling initiatives. A Food

and Drug Administration administrative order, for example, groups refilling
activities with the manufacturing activity “filling,” making it difficult for
packaging-free businesses to secure permits.17
b. Provide incentives for private sector refill systems. Incentives can come
in the form of tax breaks, waived payment for business permits, or
cash rewards.
c. Invest in trade and research facilities that provide technical support to
businesses transitioning to reuse and refill systems.
d. Require LGUs to allocate funds for a massive public education campaign on
the purpose and mechanics of the reuse/refill system.

10 REGULATING SINGLE-USE PLASTICS IN THE PHILIPPINES

3. Establish a program that demands greater responsibility
from companies manufacturing and using plastic, by
determining their obligations and targets, as well as
offering incentives to reduce plastic.
The government should establish an extended producer responsibility (EPR) program.
The goals of the program should include obliging companies to cover the cost of waste
management and cleanup, recovering their products after they have been safely disposed
of (“takeback”), and setting recycling targets, as well as redesign products and delivery
systems Moreover, it should set up an incentive/disincentive scheme to motivate
companies to reduce their plastic footprint. These schemes could cover:

a. Excise taxes on SUPs released from point of production or sale;

b. Business tax breaks for adopting or innovating packaging according to eco-
design principles that minimize environmental impact, as well as plastic-free
delivery systems;
c. R&D investments for environment-friendly alternative materials and closed-
loop systems;
d. Environmental fund to support community-level recovery programs.

NOTES
1. Roland Geyer, Jenna R Jambeck, and Kara Lavender Status-Report-2008-2018.pdf.
Law, “Production, Uses, and Fate of All Plastics Ever Made,” 10. Metropolitan Manila Development Authority, Solid
Science Advances 3, no. 7 (2017): 5, https://doi.org/10.1126/ Waste Management in Metro Manila 2018: Estimated
sciadv.1700782. Waste Generation in Metro Manila as of 1 January 2018,
2. Ibid. https://data.gov.ph/?q=dataset/solid-waste-management-
3. United Nations Environment Assembly of the metro-manila-2018.
United Nations Environment Programme. Resolution 11. Ordinance No. SP-2127, S-2012 - Prohibiting the use
4/9 Addressing single-use plastic pollution. 4th Session. of Plastic and Styrofoam in Quezon City Hall Complex,
March 11-15, 2019, http://wedocs.unep.org/bitstream/ Novaliches District Center, QC General Hospital and
handle/20.500.11822/28473/English.pdf. Novaliches District Hospital for efficient garbage disposal
4. Global Alliance for Incinerator Alternatives, “Plastics and to reduce risk to health and well being.
Exposed: How Waste Assessments and Brand Audits Are 12. Global Alliance for Incinerator Alternatives, “Plastics
Helping Philippine Cities Fight Plastic Pollution - Global Exposed: How Waste Assessments and Brand Audits Are
Alliance for Incinerator Alternatives,” Gaia, 2019, https:// Helping Philippine Cities Fight Plastic Pollution - Global
www.no-burn.org/waba2019/. Alliance for Incinerator Alternatives,” Gaia, 2019, https://
5. Jenna R Jambeck et al., “Plastic Waste Inputs from www.no-burn.org/waba2019/.
Land into the Ocean” 347, no. 6223 (2015). 13. Department of Environment and Natural Resources,
6. Silpa Kaza, Lisa C. Yao, Perinaz Bhada-Tata, and Frank “National Solid Waste Management Status Report
Van Woerden, What a Waste 2.0: A Global Snapshot of (2008-2018),” https://emb.gov.ph/wp-content/
Solid Waste Management to 2050 (2018). Washington, uploads/2019/08/National-Solid-Waste-Management-
DC: World Bank, https://openknowledge.worldbank.org/ Status-Report-2008-2018.pdf.
handle/10986/30317. 14. SWS estimates the Philippines’ socioeconomic
7. Excell; Carole et al., “Legal Limits on Single-Use classification as broken down into: Classes ABC (9%); D
Plastics and Microplastics: A Global Review of National (62%); and E (29%).
Laws and Regulation,” Unep, 2018, https://wedocs.unep. 15. Global Alliance for Incinerator Alternatives, “Plastics
org/bitstream/handle/20.500.11822/27113/plastics_limits. Exposed: How Waste Assessments and Brand Audits are
pdf?sequence=1&isAllowed=y. Helping Philippine Cities Fight Plastic Pollution.”
8. RA 9003 only mentions plastics once, in the context of 16. Department of Environment and Natural Resources,
ensuring proper sorting for recyclables, lumping plastics “National Solid Waste Management Status Report
together with materials like paper. This is a glaring mistake, (2008-2018).”
considering how most plastics are in fact non-recyclable. 17. Food and Drug Administration Philippines, Guidelines
9. Department of Environment and Natural Resources, on the Unified Licensing Requirements and Procedure
“National Solid Waste Management Status Report of the Food and Drug Administration (Administrative
(2008-2018),” 2018, https://emb.gov.ph/wp-content/ Order 2016-0003),https://ww2.fda.gov.ph/attachments/
uploads/2019/08/National-Solid-Waste-Management- article/328922/AO%20No.%202016-0003.pdf

REGULATING SINGLE-USE PLASTICS IN THE PHILIPPINES 11

 ©2020 Global Alliance for Incinerator Alternatives (Philippines)
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26 Matalino Street, Barangay Central
Quezon City, Philippines 1100
www.no-burn.org

Global Alliance for Incinerator Alternatives (GAIA) is a global network of more than 800 grassroots
groups, NGOs, and individuals. We envision a just, Zero Waste world built on respect for ecological
limits and community rights, where people are free from the burden of toxic pollution, and resources
are sustainably conserved, not burned or dumped. We work to catalyze a global shift towards
ecological and environmental justice by strengthening grassroots social movements that advance
solutions to waste and pollution.

This report or its parts may be reproduced for non-commercial purposes provided the source is
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