Administrative Order No. 2010 0021 Sustainable Sanitation As A National Policy
Administrative Order No. 2010 0021 Sustainable Sanitation As A National Policy
Administrative Order No. 2010 0021 Sustainable Sanitation As A National Policy
ADMINISTRATIVE ORDER
No. 2010- 002.1
The Philippines has made fairly significant inroads in increasing access to basic sanitation and by 2015,
the Department of Health projects that sanitation coverage will reach 88% ofthe population. However, in
spite of these gains, sanitation problems and challenges continue to pervade the country: open defecation
in pockets of low-income urban and rural communities; lack of appropriate sanitation facilities; improper
hygiene behaviors; and low levels of coverage of urban wastewater management services (collection,
treatment and disposal), which all lead to contamination of water sources and incidence of water-borne
diseases and impact negatively on environmental health.
The WB-DOH-EMB pilot project in Sustainable Sanitation in East Asia (SuSEA, 2006-2010) has
confirmed that sanitation remains a critical public health and environmental problem that needs to be
addressed in a sustainable manner. Some of these findings are:
• access to basic sanitation in specific (target) communities is much lower than the national
average, usually in low-income communities and those living on fragile environments,
such as above water bodies, on isolated islands and remote inlands
• those without toilets defecate in the open fields, shorelines or along rivers
• While many of the households with pour flush toilets use septic tanks, but only a few
have been desludged in the past 3 years
• most of the septage and wastewater flow to open canals, rivers and other water bodies
• a large number of communities do not have any visible drains
In the last 30 years, outside Metro Manila, only 9 municipal wastewater management systems throughout
the country were developed and all of them continue to serve a miniscule part of the urban centers
(between 1-3% of total population). As a result, domestic pollution is the highest contributor to the
organic pollution in our waterways, and poorer communities, which are at significantly greater risk of
sanitation-related diseases, have been systematically left out of service. Part of the slow progress in
developing municipal sanitation systems has been the prohibitive costs of constructing and maintaining
conventional centralized systems and low demand, leading to unsustainable services.
Open defecation, inconsistent hygiene practices, and low levels of investment sanitation and in
wastewater management result in high negative externalities for communities, municipalities/cities and
even, water resource basins. Acute gastroenteritis is the second leading cause of morbidity in the country,
while soil-transmitted helminthiasis (STH) continue to be endemic in a number of municipalities, making
the Philippines the country with the second highest rate of STH incidence in Asia.
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In 2004, the economic losses due to poor sanitation were estimated to be Php 77.8 billion,
which translates to 1.5% of GOP or US $16.80 per capita per year.
With the passage of the Local Government Code in 1991, the Department of Health has
focused its mandate on policy formulation and monitoring of laws and policies while the
implementation of health services is primarily under the responsibility of local government
units (LGUs). However, until today, the sanitation policies of the Department and the
programs of local public health offices have mostly continued to focus on supply-driven
distribution of toilets, which have met little success.
Given the emerging challenges and objectives of the Philippine government of sustained
growth, the Department recognizes the need for a new vision in sanitation, expressed in
clearer policy and action programs. Through SuSEA, an action-research pilot project, the
Department tested approaches to sanitation that would more effectively respond to the needs
of a modern and developing nation. These include enhancing local government and
community action aimed at adopting appropriate sanitation practices and behaviors; using
market-based principles to generate demand and supply of sanitation goods and services;
incremental planning and investments by local governments in partnership with other LGUs
and the national government to ensure cost-effectiveness and better reach of programs, such
as through the establishment Water Quality Management Area; introduction and use of
solutions and technologies that emphasize adaptiveness, practicality, functionality and
resource conservation instead of a rigid adherence to traditional design; continuing renewal of
the skills of sanitation practitioners at national and local levels; and targeted sustainable
sanitation communication and information program that is expected to effect positive long
term behavior change.
Sustainable sanitation, on the other hand, is the process of empowering families and
communities to partner with local governments and other stakeholders to address sanitation
issues and problems using affordable, appropriate and dynamic sanitation technologies and
supported by enabling legal/regulatory framework, management systems, technical assistance
from various sources and access to financing mechanisms with a system of rewards and
incentives for the protection of the environment and people's health. This definition of
sustainable sanitation emphasizes that it goes beyond self-interest and actually promotes the
greater good of society as a whole, with all members of the community and the greater society
as its primary stakeholders. Sustainable sanitation affects the individual as much as the
community and the natural environment, hence, benefits the entire society.
Sustainable sanitation, therefore, results in zero open defecation using community-led total
sanitation (CLTS) approach and other similar approaches which focus on behavior change
communication and hygiene promotion. Hence, instead of the simple mass production of
sanitary facilities, the heart of sustainable sanitation is the effective and sustainable use of
these facilities in the daily lives of community members. In contrast with the traditional a top-
down model, this bottom-up approach intends to change behavior first through community
education, participation and initiative. The provision oftechnologies shall be appropriate and
affordable, such as desludging services that are available and accessible down to the barangay
level. In terms of participants, involvement is mainly multi-sectoral, with LGUs as the lead
sector champions and implementing units.
In summary, a sustainable sanitation system protects and promotes human health, minimizes
environmental degradation and the depletion of the resource base. It is technically and
institutionally appropriate, while maintaining socially acceptability and economic viability in
the long term.
The Department of Health hereby declares sustainable sanitation as a national policy and
program priority.
This policy is anchored on the principle that sustainable sanitation is a public good and like
health is a fundamental human right, in addition to being an essential component of total
human development. In line with promoting greater social equity, the focus of sustainable
sanitation is on the poorest population groups and the poorest barangays, with sensitivity to
gender and cultural norms.
As national policy and program priority, the DOH shall provide sustainable sanitation with
adequate support in I) program planning, implementation and coordination; 2) capacity-
building 3) research & development; 4) knowledge management and advocacy; and 5)
monitoring and evaluation.
III. OBJECTIVES
It is the objective of this Administrative Order to promote sustainable sanitation for all
Filipinos. This objective includes halving by 2015 the proportion of the population without
sustainable access to safe drinking water and basic sanitation, following Millennium
Development Goal No. 7 and the commitment to ensure environmental stability through
sustainable sanitation for all Filipinos.
Specifically, the objectives of the DOH on sustainable sanitation are the following:
• By 2028, universal access to safe and adequate sanitary facilities will have been
achieved; behavioral change
• and proper hygiene practices are accepted norms within families and
communities; and mechanisms for sustainable sanitation are institutionalized.
a. All LGUs having their own local sustainable sanitation plans and budgets
in place under their Province-wide Investment Plan for Health (PIPH),
Municipal-wide Investment Plan for Health (MIPH) or City-wide
Investment Plan for Health (CIPH)
b. All barangays declared Open Defecation Free
c. Septage Management Plans in all LGUs
d. All major river systems nationwide designated as Water Quality
Management Areas
e. Achieving I 00% of the population in all cities/municipalities with sanitary
toilets ~~
f. Having reduced the incidence of Acute Gastroenteritis and Soil
Transmitted Helminthiasis attributable to poor sanitary conditions to almost
nil
• By 2015, a strong and vibrant sanitation sector shall have achieved the
Millennium Development Goal of reducing by half the proportion of Filipinos
without sustainable access to safe drinking water and basic sanitation
At the minimum, a national policy on sustainable sanitation shall have the following
components:
This Administrative Order shall apply to all units of the Department of Health, national
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partners, Local Government Units, specifically their health offices, and the Local Health
Boards.
V. STRATEGIES
The following strategies shall be utilized and implemented to achieve the goal of sustainable
sanitation for all:
The Local Government Units are the principal implementors of sanitation programs.
Considering their diverse capacities, the Department of Health, in collaboration with other
agencies, shall support the LGUs in formulating their local sustainable sanitation policies,
programs and projects, in improving local capabilities, and linking them to other sources of
technical and financial assistance
The DOH shall develop capacity development programs aimed at enhancing the capability
and competencies of regional, provincial, city/municipal officials and barangays on
sustainable sanitation. The objectives are to develop capabilities at the lowest level possible,
enable them to implement appropriate and demand-driven measures to address sanitation
problems and needs and thereby improve service delivery.
The DOH shall work actively with other agencies in achieving the goal of sustainable
sanitation from all sectors.
The DOH shall encourage major departments such as the DPWH, DepEd, DOT, DA, DOTC,
DILG, DND and DOST to incorporate sustainable sanitation in their plans, designate
corresponding personnel and appropriate the necessary funds for sanitation activities. For this
purpose, the Civil Service Commission by the DOH shall be requested to take the lead in
implementing sustainable sanitation in the various government department departments and
offices, including GOCC's.
Other stakeholders that can contribute significantly in attaining sustainable sanitation such as
community-based organizations, non-government organizations (NGOs), schools, business
enterprises, service providers, and professional societies in land use planning, civil
engineering, and sanitary engineering shall be mobilized immediately by the DOH and
included in its capacity building programs and activities.
The DOH shall initiate the expansion of the membership of the Interagency Committee on
Environmental Health to ensure wider adoption of sanitation programs within the
bureaucracy.
D. Financing and adequate infrastructure investments
Recognizing that determining the most appropriate technology and interventions and
identifying funding sources are challenges that underpin success and failure of a program, the
DOH shall identify funding sources in order to ensure that resources are available, especially
for strategic approaches and for priority areas. Innovative financing schemes including
public-private partnerships and sanitation entrepreneurships shall be developed by DOH
drawing from the experiences of other countries in similar circumstances.
Being a disaster-prone country with an average of 20 typhoons visiting the country annually
characterized by flooding, landslides and mudslides, the DOH shall formulate a sanitation
program for emergency situations which shall be integrated in disaster risk reduction and
disaster response in all levels.
This emergency sanitation program shall be designed by DOH for implementation by the
Centers for Health Development in collaboration with Local Government Units.
Following their mandates under the Local Government Code, Local Government Units shall
integrate sustainable sanitation their comprehensive development and investment plans and
annual programs and budgets. They shall make specific assignment of responsibilities among
the concerned LGU offices to carry out sanitation plans, programs and projects.
LGU's shall encourage and assist barangays in passing ordinance to address the sanitation
problems and needs of the community.
The Local Government Units shall adopt sanitation as separate program and budgetary
item, with clear targets. They shall allocate annually funds and other resources to carry
out sanitation programs, projects and targets.
The DOH shall provide assistance to the Local Government Units in identifying alternative
sources of funding for sanitation programs and projects.
The Local Government Units shall take the lead in their communities in conducting behavior
change campaign aimed at promoting improved sanitation practices. Sanitation campaigns
shall focus on safe sanitary practices and standards at the household level.
The DOH recognizes the LGUs as the main champion and sector driver for sanitation. The
Department therefore will encourage and provide support to the governors and mayors in
adopting Sustainable Sanitation as a major policy for local development and in mainstreaming
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sustainable sanitation into the formal planning process of LGUs and in their comprehensive
LGU development plans.
In the area of disease prevention and control the DOH shall assist the LGUs in planning to
reduce the incidence of Acute Gastroenteritis (AGE) and Soil Transmitted Helminthiasis
(STH).
The DOH shall help the LGUs set up and implement set up a barangay-based disease
surveillance system anchored on a team of Barangay Sanitation Volunteers/Brigades, and
strengthen the Municipal Epidemiological Surveillance Unit of the City/Municipal Health
Office through training, institutional development and systems improvement.
Sanitation is not prominently addressed in the current MTPDP for 2004-20 I 0. Consequently,
sanitation is hardly allocated the necessary investments in the Medium Term Public
Investment Program (MTPIP).
Working with NEDA and the other government agencies, the DOH shall take the lead in a
national declaration and inclusion of sustainable sanitation in the Medium Term Philippine
Development Plan (MTPDP). Being included in the MTPDP, sustainable sanitations
becomes a national priority ad investment concern. Towards this end, DOH shall also adopt
and launch a National Sustainable Sanitation Program (NSSP), developed with the
participation of various line agencies.
The DOH shall likewise create within the shortest possible time the needed program
structure, with adequately trained staff, to oversee the regular implementation, coordination,
monitoring and regular updating of the NSSP.
The DOH shall take the lead in drafting a revised Sanitation Code which shall recognize the
broad range of hygienic facilities (appropriate in rural, peri-urban, and urban areas), and
define the role of Community-Led Total Sanitation (CLTS) or other behavior change based
approaches to sanitation promotion, including clear statements on the provision of household
subsidies.
The Sanitation Code of 1975, which has been the cornerstone of sanitation legislation in the
Philippines, needs to be amended in the light of new developments in sanitation technology,
the new challenges of urbanization, and the devolution of health services to LGUs. Moreover,
there are also new laws regarding clean water, clean air, solid waste management, the natural
environment and housing and land use that had been passed which should be reviewed so that
the findings can form the bases for the amendment of the Sanitation Code.
The Department of Health, in consultation with other concerned agencies and stakeholders,
shall formulate and adopt a National Sustainable Sanitation Plan for the next 5 to 6 years.
Updating and mainstreaming of local water supply, sewerage and sanitation sector plans in
the LGU development plans and the LGU Annual Investment and Development Plans shall be
pursued. Towards this end, DOH shall hold two-pronged policy advocacy: one aimed at
provinces (which will advocate to municipalities and component cities), highly urbanized
cities, on one hand, and on the other, to housing and land use bodies (e.g., HLURB, HUDCC)
which exercise review function over provincial development and land use plans.
The DOH shall work with DILG and other concerned stakeholders for the inclusion of
sanitation indicators in LGU scorecards and in their planning and investment processes on
sanitation.
The DOH, in coordination with DILG and other concerned agencies, shall formulate incentive
programs for innovative LGUs that are implementing successful sustainable sanitation
programs.
3. Program development
The DOH shall develop programs that will demand for improved sanitation services. Program
packages shall be appropriate for different scenarios (i.e. rural, urban, peri-urban, and
mountainous) and interventions for each scenario may be developed. Community-Led Total
Sanitation (CLTS) in the context of the Primary Health Care approach using community
participation strategies will be the major pillar in sustainable sanitation program development.
a. At the national level, there are several government agencies with diverse range of
responsibilities that have clear sustainable sanitation related mandates. These
include the following:
The NSSP shall aim to build the capacity of the above institutions and
organizations towards sustainable sanitation. Major departments (DOH, DENR,
DPWH, DepEd, DOT, DA, DOTC, DILG, DND, DOST) shall have sustainable
sanitation plans with corresponding personnel and appropriate funding allocation
for 20 I I onwards.
The DOH shall develop and disseminate information toolkits on sustainable sanitation.
6. Human Resource Development and Early Childhood and Basic Education for Sustainable
Sanitation
The DOH, through the Sustainable Sanitation Education Program (SuSEP), shall utilize the
results of its human resource assessment for sustainable sanitation to initiate a dialogue with
the Commission on Higher Education (CHED) and the Technology Education and Skills
Development Authority (TESDA) on how best to address human resource development for
sustainable sanitation. One key focus shall be on the professional development of Sanitary
Inspectors conforming to the standards of the Civil Service Commission (CSC) will be a
priority.
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TESDA shall be requested to formulate skills development training for septic tank builders
and desludgers and other vocations in support of sustainable sanitation.
Early childhood and basic education on sanitary and hygiene practices and promotion shall
also be strengthened in coordination with the Department of Education (DepEd).
Behavior change for sustainable sanitation (e.g., discouraging open defecation, ensuring
compliance of households with sanitary standards) shall be pursued deliberately as part of the
DOH health education, communication and promotion mandate. This effort will entail
allocating resources for developing culturally appropriate communication materials, and
building capacity in behavior change communication for sustainable sanitation of provincial.
city and municipal health promotion and education officers, members of the national and
local media, school health nurses, public health midwives, and barangay health workers.
The DOH shall likewise engage the Department of Education (DepEd) in partnership
considering that schools are effective conveyors of health information and communication.
The basic communication messages shall include, but are not limited to the following:
a. Handwashing
b. Promotion of Open Defecation Free (ODF) communities
c. Community-led and appropriately-designed toilets and septic tanks
d. Proper disposal and treatment of septage
e. Inter-LGU action for water quality management
The DOH shall likewise assist the LGUs in developing and implementing their sustainable
sanitation promotion program.
In partnership with the LWUA and the DENR-EMB, the DOH shall advocate the joint
monitoring of sustainable sanitation indicators (which shall include water quality
management) in the country. Aside from facilitating the identification of gaps, joint
monitoring will also encourage joint problem solving and integration of efforts.
For purposes of this Order, the various DOH instrumentalities shall have the following roles
and functions:
1. Office of the Undersecretary for Policy and Standards Development for Service
Delivery
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2. National Centers for Disease Prevention and Control (NCDPC)- Environmental
and Occupational Health Office (EOHO)
a) Develop, in coordination with the other DOH departments, the 5-Yearly National
Sustainable Sanitation Plan
b) Provide technical leadership and assistance in the prevention of water borne
diseases;
c) Identify resources necessary to efficiently assist LGUs in their disease prevention
and control initiatives related to sanitation;
d) Develop service standards for sustainable sanitation interventions; and
e) Coordinate monitoring and evaluation of the implementation ofthe NSS Plan.
The Department shall allocate an initial amount of PhP 60 million for 2010 for the launching
of the NSSP nationwide and in all regions and jumpstart sustainable sanitation in priority
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areas 111 every reg1on.
For the period of 20 I I to 2016, an allocation of at least PhP I 00 million a year to a level of
PhP500 million shall be budgeted out of the Department's annual appropriations to attain the
national objectives of the NSSP
The DOH shall encourage the Local Government Units to fund their local sustainable
sanitation plans and programs by providing the necessary technical assistance.
Likewise, the DOH shall encourage the other national government agencies to implement and
fund sanitation programs in their respective offices and establishments.
The DOH supports all other sanitation-related initiatives and activities as provided by the
Clean Water Act, such as the National Sewerage and Septage Management Program, and
other initiatives under the proposed Philippine Sustainable Sanitation Roadmap.
X. REPEALING CLAUSE
The provisions from previous issuances and other related orders that are inconsistent or
contrary to this Order are amended and modified accordingly.
XI. EFFECTIVITY
Secretary of Health