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Investment	
  Opportunities	
  in	
  an	
  Impending	
  Water	
  Crisis	
  
	
  
“Water,	
  water,	
  everywhere,	
  and	
  all	
  the	
  boards	
  did	
  shrink;	
  
Water,	
  water,	
  everywhere,	
  nor	
  any	
  drop	
  to	
  drink.”	
  
	
  
	
  	
   ―	
  Samuel	
  Taylor	
  Coleridge,	
  The	
  Rime	
  of	
  the	
  Ancient	
  Mariner	
  	
  	
  
	
  
	
  
Water	
   is	
   the	
   most	
   abused	
   natural	
   resource.	
   	
   Though	
   undervalued	
   and	
   often	
  
consumed	
  free	
  of	
  charge,	
  it	
  has	
  no	
  substitute.	
  	
  States	
  went	
  to	
  numerous	
  conflicts	
  
over	
  this	
  resource	
  and	
  those	
  with	
  greater	
  access	
  to	
  water	
  supply	
  are	
  often	
  more	
  
economically	
   developed	
   than	
   those	
   facing	
   scarcity.	
   	
   As	
   human	
   population	
   and	
  
global	
  economy	
  grows,	
  there	
  will	
  be	
  an	
  increase	
  in	
  conflict	
  on	
  the	
  use	
  of	
  fresh	
  
and	
   potable	
   water	
   and	
   this	
   will	
   not	
   only	
   be	
   among	
   nations	
   but	
   also	
   among	
  
intrastate	
   users	
   like	
   farmers	
   and	
   industry.	
   	
   Climate	
   change	
   will	
   further	
  
exacerbate	
  the	
  conflict	
  because	
  supply	
  will	
  become	
  less	
  predictable	
  with	
  altered	
  
and	
  shifting	
  precipitation	
  patterns	
  and	
  increasing	
  and	
  more	
  intense	
  evaporation	
  
giving	
  rise	
  to	
  frequent	
  and	
  extreme	
  drought	
  and	
  floods.	
  
	
  
Philippine	
  Water	
  Resource	
  –	
  Abundant	
  but	
  Under	
  Threat	
  
	
  
Early	
   Philippine	
   political	
   and	
   economic	
   history	
   has	
   been	
   linked	
   with	
   water	
  
bodies.	
  	
  Pre-­‐Spanish	
  Manila	
  flourished	
  along	
  the	
  banks	
  of	
  the	
  Pasig	
  River	
  and	
  the	
  
settlers	
  were	
  called	
  Taga-­‐ilog	
  (“from	
  the	
  river”)	
  or	
  Tagalog.	
  
	
  
In	
   the	
   Philippines,	
   water	
   is	
   used	
   for	
   agricultural	
   irrigation,	
   fisheries	
   and	
   food	
  
production,	
   energy	
   generation,	
   manufacturing	
   of	
   commercial	
   goods	
   and	
  
navigation,	
  proper	
  sanitation	
  among	
  others.	
  Agriculture	
  (irrigation	
  and	
  fisheries)	
  
consumes	
   the	
   most	
   water,	
   accounting	
   for	
   eighty-­‐eight	
   percent	
   (88%)	
   of	
   total	
  
water	
   withdrawals	
   (Philippine	
   Water	
   Supply	
   Sector	
   Roadmap,	
   2003).	
   In	
   the	
  
Philippines,	
  2010	
  data	
  from	
  the	
  National	
  Statistical	
  Coordination	
  Board	
  revealed	
  
that	
   16	
   percent	
   of	
   all	
   households	
   remain	
   without	
   access	
   to	
   clean	
   and	
   potable	
  
water.	
  The	
  country	
  is	
  completely	
  surrounded	
  by	
  numerous	
  bodies	
  of	
  water	
  that	
  
providing	
  water	
  for	
  everyone	
  should	
  not	
  be	
  a	
  problem	
  but	
  unfortunately	
  that	
  is	
  
not	
  the	
  case.	
  At	
  present,	
  the	
  country	
  is	
  experiencing	
  uneven	
  distribution	
  of	
  water	
  
supply	
  and	
  water	
  scarcity	
  especially	
  in	
  rural	
  areas.	
  
	
  
Water	
   disputes	
   arise	
   from	
   contending	
   interests	
   among	
   municipal,	
   agricultural	
  
and	
  industrial	
  users.	
  Agriculture	
  is	
  the	
  greatest	
  consumer	
  of	
  water,	
  accounting	
  
for	
  about	
  80	
  percent	
  of	
  the	
  total	
  water	
  demand	
  and	
  yet	
  it	
  has	
  a	
  lower	
  priority	
  
than	
   domestic	
   usage	
   in	
   the	
   competition	
   for	
   scarce	
   water	
   resources.	
   Major	
  
sources	
   of	
   contention	
   and	
   dispute	
   in	
   the	
   context	
   of	
   resource	
   development	
  
include:	
  	
  mining,	
  which	
  is	
  often	
  conducted	
  in	
  watershed	
  areas	
  and	
  whose	
  tailings	
  
contaminate	
  rivers	
  and	
  coastal	
  waters;	
  and	
  energy	
  development,	
  often	
  linked	
  to	
  
destruction	
   of	
   the	
   natural	
   habitat	
   of	
   marine	
   species	
   (offshore	
   petroleum),	
  
inundation	
   of	
   river	
   systems	
   (hydropower)	
   and	
   contamination/exhaustion	
   of	
  
groundwater	
  (onshore	
  petroleum	
  and	
  geothermal).	
  
	
  
The	
   continuous	
   decline	
   of	
   groundwater	
   levels	
   and	
   in	
   saltwater	
   intrusion	
   in	
  
coastal	
  areas	
  such	
  as	
  Metro	
  Manila,	
  Cavite,	
  Iloilo	
  and	
  Cebu	
  is	
  attributed	
  to	
  the	
  
uncontrolled	
  withdrawal	
  from	
  groundwater	
  aquifers.	
  All	
  rivers	
  in	
  Metro	
  Manila	
  
are	
   already	
   classified	
   as	
   biologically	
   dead	
   due	
   to	
   uncontrolled	
   industrial	
   and	
  
agricultural	
   development	
   and	
   rapid	
   population	
   growth	
   without	
   the	
   proper	
  
development	
  of	
  waste	
  disposal	
  facilities.	
  	
  
	
  
DENR	
  FACTS	
  AND	
  FIGURES	
  ON	
  PHILIPPINE	
  WATERS	
  
	
  
• 2,400	
  mm.	
  –	
  annual	
  average	
  rainfall	
  
	
  
• 1,830	
  sq.	
  km.	
  of	
  Philippine	
  rivers	
  and	
  lakes	
  cover	
  61%	
  of	
  the	
  total	
  land	
  area	
  
	
  
• 50,000	
  sq.	
  km.	
  of	
  groundwater	
  reservoir	
  is	
  recharged	
  by	
  rain	
  and	
  seepage	
  from	
  river	
  
and	
  lakes	
  	
  
	
  
• 421	
  principal	
  river	
  basins	
  of	
  which	
  18	
  are	
  considered	
  major	
  river	
  basins	
  with	
  
drainage	
  area	
  of	
  	
  >	
  1,400	
  sq.	
  km.	
  
	
  
• 53,943	
  million	
  cu.	
  m.	
  estimated	
  annual	
  discharge	
  of	
  Cagayan	
  River,	
  the	
  longest	
  and	
  
largest	
  river	
  in	
  the	
  Philippines	
  with	
  a	
  ground	
  water	
  reserve	
  of	
  47,895	
  million	
  cu.	
  m.	
  
	
  
• 79	
  lakes	
  mostly	
  utilized	
  for	
  fish	
  production	
  
	
  
• 86%	
  of	
  piped-­‐water	
  supply	
  systems	
  use	
  groundwater	
  as	
  a	
  source	
  
	
  
• 146	
  billion	
  cu.	
  m.	
  -­‐	
  estimated	
  amount	
  of	
  surface	
  water	
  and	
  groundwater	
  availability	
  	
  
	
  
• 6.1	
  million	
  liters	
  per	
  second	
  (“LPS”)	
  –	
  total	
  allocation	
  of	
  water	
  for	
  different	
  uses	
  	
  
	
  
• 1.06	
  million	
  LPS	
  –	
  surface	
  water	
  allocated	
  for	
  power	
  generation	
  in	
  Region	
  2,	
  the	
  
largest	
  in	
  the	
  country	
  	
  
	
  
• 12,	
  879	
  LPS	
  groundwater	
  allocated	
  for	
  municipal	
  use	
  in	
  Region	
  4,	
  the	
  largest	
  in	
  the	
  
country	
  	
  
	
  
• 59	
  natural	
  lakes	
  and	
  more	
  than	
  100,000	
  ha	
  of	
  freshwater	
  swamps	
  	
  
	
  
• 4	
  major	
  groundwater	
  reservoirs	
  (Cagayan,	
  10,000	
  KM2
;	
  Central	
  Luzon,	
  9,000	
  KM2
;	
  
Agusan,	
  8,500	
  KM2
;	
  Cotabato,	
  6,000	
  KM2
)	
  which	
  when	
  combined	
  with	
  smaller	
  
reservoirs	
  already	
  identified	
  would	
  aggregate	
  to	
  an	
  area	
  of	
  about	
  50,000	
  km2
	
  
	
  
• A	
  survey	
  of	
  surface	
  water	
  storage	
  potential	
  has	
  identified	
  sites	
  for	
  438	
  and	
  423	
  
major	
  and	
  smaller	
  dams	
  respectively	
  with	
  an	
  estimated	
  146,000	
  million	
  cu.	
  m.	
  total	
  
water	
  resource	
  potential	
  
	
  
	
  
The	
   World	
   Bank	
   Group	
   in	
   its	
   report,	
   Philippines:	
   Country	
   Water	
   Resources	
  
Assistance	
  Strategy	
  (2003),	
  identified	
  the	
  country’s	
  major	
  water	
  resources	
  issues	
  
as	
  localized	
  raw	
  water	
  shortages,	
  flooding,	
  water	
  pollution,	
  over-­‐exploitation	
  of	
  
groundwater	
  (particularly	
  in	
  and	
  around	
  the	
  larger	
  cities)	
  and	
  overuse	
  of	
  surface	
  
water	
   resulting	
   in	
   inadequate	
   environmental	
   flows	
   for	
   major	
   basins	
   and	
   sub-­‐
basins.	
   Dwindling	
   of	
   water	
   supply	
   can	
   be	
   attributed	
   to	
   decades	
   of	
   resource	
  
mismanagement	
   due	
   to	
   the	
   massive	
   degradation	
   of	
   the	
   watersheds	
   and	
   river	
  
basins,	
  which	
  are	
  integral	
  to	
  the	
  replenishment	
  and	
  maintenance	
  of	
  ground	
  and	
  
surface	
  water.	
  The	
  effects	
  of	
  deforestation	
  and	
  pollution	
  on	
  the	
  country’s	
  water	
  
supply	
  will	
  be	
  magnified	
  by	
  the	
  increasing	
  threat	
  of	
  climate	
  change.	
  	
  
	
  
Major	
  Issues	
  and	
  Challenges	
  
	
  
Greenpeace	
   published	
   a	
   report,	
   The	
  State	
  of	
  Water	
  Resources	
  in	
  the	
  Philippines	
  
(2007),	
  which	
  gathered	
  available	
  information	
  regarding	
  water	
  resources	
  in	
  the	
  
Philippines,	
  focusing	
  on	
  the	
  issues	
  of	
  pollution	
  and	
  water	
  scarcity.	
  Greenpeace	
  
summarized	
  the	
  major	
  problems	
  concerning	
  water	
  use	
  and	
  scarcity	
  as	
  follows:	
  
	
  
1. Water	
  supply	
  and	
  demand	
  disparity	
  where	
  distribution	
  of	
  water	
  resources	
  
varies	
  as	
  to	
  time	
  and	
  place	
  because	
  of	
  different	
  geographic	
  and	
  climate	
  
conditions	
  prevailing	
  in	
  different	
  parts	
  of	
  the	
  country;	
  
	
  
2. Lack	
  of	
  water	
  allocation	
  formula	
  as	
  there	
  is	
  increase	
  of	
  population	
  coupled	
  
with	
   worsening	
   pollution	
   of	
   water,	
   lack	
   of	
   infrastructure	
   and	
   facilities	
  
result	
  in	
  allocation	
  issues	
  and	
  conflicting	
  rights	
  over	
  limited	
  water	
  supply.	
  
Most	
   of	
   the	
   problems	
   arise	
   from	
   an	
   issue	
   of	
   conflicts	
   of	
   use	
   and	
   water	
  
allocation	
   especially	
   in	
   times	
   of	
   drought	
   or	
   emergency,	
   in	
   which	
   a	
  
national	
   policy	
   mandates	
   priority	
   of	
   domestic	
   water	
   supply	
   over	
   other	
  
water	
  rights	
  like	
  agriculture;	
  
	
  
3. Competition	
  between	
  corporations	
  and	
  individuals;	
  
	
  
4. Weak	
   water	
   use	
   regulation	
   and	
   enforcement	
   in	
   instances	
   when	
   the	
  
investigation	
  and	
  processing	
  of	
  water	
  permit	
  applications	
  constitute	
  the	
  
functions	
   for	
   which	
   government	
   regulatory	
   agencies	
   are	
   not	
   properly	
  
equipped	
  in	
  terms	
  of	
  either	
  manpower	
  or	
  resources;	
  
	
  
5. Inefficient	
   water	
   use	
   due	
   to	
   the	
   waste	
   of	
   water	
   in	
   distribution	
   lines,	
  
irrigation	
  canals,	
  leaking	
  pipes	
  and	
  illegal	
  connections;	
  
	
  
6. Depletion	
   of	
   groundwater	
   resources	
   as	
   a	
   result	
   of	
   indiscriminate	
  
groundwater	
  abstraction	
  by	
  both	
  municipal	
  and	
  industrial	
  users	
  resulting	
  
to	
  saltwater	
  intrusion;	
  and	
  
	
  
7. Fragmented	
  management,	
  one	
  of	
  the	
  most	
  critical	
  issues	
  in	
  the	
  Philippine	
  
water	
   sector	
   described	
   as	
   the	
   lack	
   of	
   an	
   appropriate	
   institutional	
  
framework	
  that	
  will	
  address	
  the	
  issues	
  of	
  development	
  and	
  management	
  
of	
  water	
  and	
  related	
  resources.	
  There	
  are	
  numerous	
  government	
  agencies	
  
and	
  departments	
  responsible	
  for	
  water	
  management,	
  causing	
  overlaps	
  of	
  
work	
  and	
  conflicts	
  among	
  the	
  agencies.	
  	
  
	
  
In	
  addition,	
  sector	
  planning	
  is	
  severely	
  constrained	
  by	
  the	
  lack	
  of	
  updated	
  local	
  
master	
   plans,	
   as	
   well	
   as	
   by	
   the	
   lack	
   of,	
   or	
   conflicting,	
   sector	
   information.	
  
Different	
   methodologies	
   used	
   in	
   monitoring	
   and	
   limitations	
   regarding	
   the	
  
accuracy	
  of	
  data	
  make	
  quantifying	
  actual	
  improvements	
  in	
  water	
  supply	
  access	
  
and	
   coverage	
   difficult.	
   These	
   issues	
   make	
   it	
   a	
   challenge	
   for	
   the	
   Philippines	
   to	
  
maintain	
   high	
   levels	
   of	
   economic	
   and	
   social	
   development	
   as	
   well	
   as	
   promote	
  
existing	
  institutions	
  better	
  to	
  support	
  water	
  resources	
  management.	
  
	
  
Fragmented	
  Legal	
  Framework	
  
	
  
In	
   accordance	
   with	
   the	
   Regalian	
   doctrine,	
   the	
   Philippine	
   national	
   government	
  
solely	
  owns	
  and	
  controls	
  the	
  country’s	
  water	
  resources.	
  Section	
  2,	
  Article	
  XII	
  of	
  
the	
  Constitution	
  states	
  that	
  “all	
  lands	
  of	
  the	
  public	
  domain,	
  waters,	
  minerals,	
  coal,	
  
petroleum,	
  and	
  other	
  mineral	
  oils,	
  all	
  forces	
  of	
  potential	
  energy,	
  fisheries,	
  forests	
  or	
  
timber,	
   wildlife,	
   flora	
   and	
   fauna,	
   and	
   other	
   natural	
   resources	
   are	
   owned	
   by	
   the	
  
State.”	
   In	
   addition,	
   “the	
   exploration,	
   development,	
   and	
   utilization	
   of	
   natural	
  
resources	
  shall	
  be	
  under	
  the	
  full	
  control	
  and	
  supervision	
  of	
  the	
  State.”	
  
	
  
Water	
   governance	
   in	
   the	
   Philippines	
   is	
   very	
   complex	
   due	
   to	
   the	
   number	
   of	
  
institutions	
   involved,	
   all	
   with	
   different	
   hierarchical	
   coverage,	
   varied	
   mandates	
  
and	
  representing	
  the	
  interests	
  of	
  diverse	
  constituencies.	
  
	
  
As	
   part	
   of	
   its	
   natural	
   resource	
   management	
   function,	
   the	
   Department	
   of	
  
Environment	
  and	
  Natural	
  Resources	
  (DENR)	
  is	
  the	
  lead	
  government	
  agency	
  in	
  
charge	
  of	
  water	
  resource	
  management.	
  However,	
  the	
  responsibility	
  of	
  planning	
  
and	
  managing	
  the	
  country’s	
  water	
  resources	
  is	
  shared	
  with	
  several	
  government	
  
departments,	
  bureaus	
  and	
  attached	
  agencies	
  concerned	
  with	
  different	
  aspects	
  of	
  
water	
  resource	
  management.	
  Also,	
  local	
  government	
  units	
  (LGUs)	
  are	
  required	
  
to	
   provide	
   water	
   supply	
   subsystems,	
   communal	
   irrigation	
   facilities,	
   and	
  
implement	
   social	
   forestry	
   and	
   local	
   flood	
   control	
   projects,	
   subject	
   to	
   the	
  
supervision	
   and	
   control	
   of	
   the	
   DENR.	
   The	
   National	
   Water	
   Resources	
   Board	
  
(NWRB)	
   has	
   the	
   legal	
   mandate	
   for	
   overseeing	
   water	
   governance,	
   but	
   has	
   a	
  
structure	
   and	
   budget	
   that	
   are	
   inadequate	
   to	
   allow	
   proper	
   exercise	
   of	
   this	
  
administrative	
  function.	
  
	
  
More	
  than	
  30	
  government	
  agencies	
  and	
  offices	
  are	
  involved	
  in	
  performing	
  the	
  
different	
   aspects	
   or	
   components	
   of	
   water	
   resources	
   management	
   and	
  
development.	
  These	
  agencies	
  function	
  separately	
  dealing	
  mainly	
  with	
  different	
  
sectors	
   of	
   water	
   supply,	
   irrigation,	
   hydropower,	
   flood	
   control,	
   pollution,	
   and	
  
watershed	
  management.	
  Fragmentation	
  among	
  water-­‐related	
  agencies	
  is	
  evident	
  
in	
  three	
  areas	
  of	
  concern:	
  water	
  supply	
  and	
  distribution,	
  economic	
  and	
  resource	
  
regulation,	
  and	
  planning	
  and	
  policy	
  formulation.	
  
	
  
	
  
Key	
  National	
  Government	
  Agencies	
  Involved	
  in	
  Water	
  Resources	
  Management	
  
Department	
   Line	
  
Agency	
  
Functions	
  
National	
  Economic	
  and	
  Development	
  
Authority	
  (NEDA)	
  
Coordinates	
  the	
  preparation	
  of	
   national/regional/sectoral	
  
development	
  policies	
  and	
  investment	
  programs.	
  
Department	
  of	
  
Environment	
  
and	
  Natural	
  
Resources	
  
(DENR)	
  
National	
  Water	
  
Resources	
  Board	
  
(NWRB)	
  
Administers/enforces	
  the	
  Water	
  Code	
  and	
  serves	
  as	
  the	
  lead	
  
coordinator	
  for	
  water	
  resources	
  management	
  programs.	
  
Forest	
  Management	
  
Bureau	
  (FMB)	
  
Formulates/implements	
  policies	
  and	
  programs	
  for	
  the	
  
protection,	
  development,	
  and	
  management	
  of	
  forestlands	
  
and	
  watershed	
  areas.	
  
Environmental	
  
Management	
  Bureau	
  
(EMB)	
  
Sets	
  and	
  enforces	
  water	
  quality	
  and	
  effluent	
  standards,	
  
criteria,	
  and	
  guidelines	
  for	
  all	
  aspects	
  of	
  water	
  quality	
  
management.	
  
Department	
  of	
  
Agriculture	
  
(DA)	
  
National	
  Irrigation	
  
Administration	
  (NIA)	
  
Undertakes	
  water	
  resource	
  projects	
  for	
  agricultural	
  
irrigation	
  and	
  other	
  purposes,	
   such	
  as	
  flood	
  control	
  and	
  
drainage,	
   hydropower	
  development,	
  etc	
  
Bureau	
  of	
  Soil	
  and	
  
Water	
  Management	
  
(BSWM)	
  
Formulates/implements	
  policies	
  and	
  programs	
  for	
  the	
  
protection	
  of	
  existing	
  and	
  potential	
  sources	
  of	
  soil	
  and	
  
water	
  for	
   agricultural	
  development	
  
Bureau	
  of	
  Fisheries	
  
and	
  Aquatic	
  
Resources	
  (BFAR)	
  
Establishes	
  plans	
  for	
  the	
  proper	
  protection	
  and	
  management	
  
of	
  the	
   country's	
  fisheries	
  and	
  aquatics	
  resources.	
  
Department	
  of	
  
Health	
  (DOH)	
  
Environmental	
  Health	
  
Service	
  (EHS)	
  
Responsible	
  for	
  water	
  supply	
  and	
   sanitation	
  programs	
  
and	
  strategies	
  to	
   forestall	
  the	
  spread	
  of	
  water-­‐borne	
  
diseases.	
  
National	
  Power	
  Corporation	
  (NPC)	
   Develops	
  and	
  manages	
  electric	
  generation	
  facilities	
  
including	
  but	
  not	
  limited	
  to	
  hydroelectric	
  dams	
  and	
  
undertakes	
  other	
  activities	
  related	
  to	
  watershed	
  
management.	
  
Metropolitan	
  Waterworks	
  and	
  Sewerage	
  
System	
  (MWSS)	
  
Regulates	
  water	
  concessionaires'	
  rates	
  and	
  service	
  
standards	
  in	
  Metro	
  Manila	
  and	
  maintains	
  existing	
  assets	
  
and	
  infrastructure.	
  
Local	
  Water	
  Utilities	
  Administration	
   (LWUA)	
   Promotes/finances/regulates	
  the	
   construction	
  and	
  
operation	
  of	
  local	
  water	
   utilities	
  outside	
  Metro	
  Manila.	
  
Source:	
  Philippine	
  Water	
  Supply	
  Sector	
  Roadmap	
  (2010)	
  
	
  
The	
   agencies	
   that	
   are	
   involved	
   in	
   water	
   supply	
   and	
   distribution	
   are	
   the	
  
following:	
  	
  (a)	
  the	
  Metropolitan	
  Waterworks	
  and	
  Sewerage	
  Services	
  (MWSS)	
  and	
  
its	
  two	
  concessionaires	
  (after	
  it	
  was	
  privatized	
  in	
  1997)	
  for	
  Metro	
  Manila;	
  (b)	
  the	
  
Local	
   Water	
   Utilities	
   Administration	
   (LWUA)	
   and	
   its	
   water	
   district	
   offices	
   for	
  
other	
   cities	
   and	
   municipalities;	
   and	
   (c)	
   the	
   Departments	
   of	
   Interior	
   and	
   Local	
  
Government	
   (DILG)	
   and	
   Public	
   Works	
   and	
   Highway	
   (DPWH)	
   and	
   local	
  
governments	
  which	
  manage	
  community	
  water	
  systems	
  (usually	
  involving	
  point	
  
sources	
  and	
  piped	
  systems	
  with	
  communal	
  faucets.	
  
	
  
On	
   the	
   other	
   hand,	
   the	
   agencies	
   that	
   function	
   as	
   resource	
   regulators	
   are:	
   (a)	
  
DENR;	
  (b)	
  the	
  Department	
  of	
  Health	
  (DOH);	
  and	
  (c)	
  LGUs.	
  Conflicts	
  with	
  respect	
  
to	
  the	
  power	
  of	
  the	
  water	
  agencies	
  vis-­‐à-­‐vis	
  the	
  local	
  governments	
  have	
  arisen	
  
because	
  of	
  certain	
  powers	
  conferred	
  to	
  LGUs	
  by	
  virtue	
  of	
  the	
  Local	
  Government	
  
Code	
  of	
  1991.	
  
	
  
As	
   for	
   planning	
   and	
   policy	
   formulation,	
   numerous	
   agencies	
   are	
   involved,	
  
including	
  the	
  National	
  Economic	
  Development	
  Authority	
  (NEDA),	
  NWRB,	
  LWUA	
  
and	
   LGUs.	
   NEDA	
   serves	
   as	
   the	
   highest	
   socio-­‐economic	
   planning	
   and	
  
policymaking	
  agency	
  of	
  government.	
  The	
  National	
  Irrigation	
  Administration,	
  the	
  
National	
  Power	
  Corporation	
  and	
  the	
  Department	
  of	
  Energy	
  are	
  also	
  involved	
  in	
  
planning	
   and	
   water	
   infrastructure	
   development	
   with	
   respect	
   to	
   the	
  
requirements	
  of	
  the	
  irrigation	
  and	
  power/energy	
  sectors.	
  
	
  
Urgently	
  Needed	
  –	
  A	
  National	
  Water	
  Policy	
  
	
  
The	
  Philippines	
  is	
  certainly	
  in	
  need	
  of	
  a	
  national	
  water	
  policy	
  that	
  will	
  address	
  
the	
  country’s	
  current	
  water	
  resource	
  problems.	
  	
  An	
  overview	
  of	
  the	
  primary	
  laws	
  
governing	
  water	
  resources	
  in	
  the	
  country	
  would	
  show	
  that	
  these	
  are	
  very	
  broad	
  
in	
  scope	
  and	
  its	
  implementation	
  is	
  very	
  lenient.	
  	
  
	
  
Selected	
  Laws	
  Relating	
  to	
  Water	
  Management	
  
Statute	
   Purpose/Mandate	
  
	
  
P.D.	
  856	
  -­‐	
  Sanitation	
  Code	
  of	
  the	
  Philippines	
  
(1975)	
  
	
  
Requires	
  cities	
  and	
  municipalities	
  to	
  provide	
  
an	
  adequate	
  and	
  efficient	
  system	
  for	
  sewage	
  
collection,	
  transport	
  and	
  disposal	
  in	
  their	
  
areas	
  of	
  jurisdiction	
  
	
  
P.D.	
  1067	
  -­‐	
  Water	
  Code	
  of	
  the	
  Philippines	
  
(1976)	
  
	
  
Consolidates	
  legislations	
  relating	
  to	
  
ownership,	
  development,	
  exploitation	
  and	
  
conservation	
  of	
  water	
  resources	
  
	
  
P.D.	
  1152	
  -­‐	
  Environment	
  Code	
  (1977)	
  
	
  
Provides	
  guidelines	
  to	
  protect	
  and	
  improve	
  
the	
  quality	
  of	
  water	
  resources	
  and	
  defines	
  
responsibilities	
  for	
  surveillance	
  and	
  
mitigation	
  of	
  pollution	
  incidents	
  
	
  
P.D.	
  1586	
  -­‐	
  Environmental	
  Impact	
  Statement	
  
System	
  (1978)	
  
	
  
Mandates	
  the	
  conduct	
  of	
  environmental	
  
impact	
  assessment	
  studies	
  for	
  all	
  
investments	
  undertaken	
  by	
  the	
  government	
  
and	
  private	
  sector	
  
	
  
R.A.	
  6716	
  -­‐	
  Rainwater	
  Harvesting	
  Act	
  (1989)	
  
	
  
Mandates	
  the	
  construction	
  of	
  water	
  wells	
  
and	
  rainwater	
  collectors	
  in	
  all	
  barangays	
  
	
  
R.A.	
  8041	
  -­‐	
  Water	
  Crisis	
  Act	
  of	
  1995	
  
	
  
Provides	
  urgent	
  and	
  effective	
  measures	
  to	
  
address	
  the	
  nationwide	
  water	
  crisis	
  relating	
  
to	
  issues	
  on	
  water	
  supply,	
  distribution,	
  
finance,	
  privatization	
  of	
  state-­‐run	
  water	
  
facilities,	
  the	
  protection	
  and	
  conservation	
  of	
  
watersheds	
  and	
  the	
  waste	
  and	
  pilferage	
  of	
  
water,	
  including	
  the	
  serious	
  matter	
  of	
  graft	
  
and	
  corruption	
  in	
  all	
  the	
  water	
  agencies	
  
	
  
R.A.	
  9275	
  -­‐	
  Clean	
  Water	
  Act	
  (2004)	
  
	
  
Provides	
  for	
  a	
  comprehensive	
  and	
  integrated	
  
strategy	
  to	
  prevent	
  and	
  minimize	
  water	
  
Source:	
  Adopted	
  from	
  the	
  Philippine	
  Environment	
  Monitor	
  2003	
  
	
  
The	
   Senate	
   Policy	
   Brief	
   entitled	
   Turning	
   The	
   Tide:	
   Improving	
   Water	
   Resource	
  
Management	
   in	
   the	
   Philippines	
   	
   (August	
   2011)	
   mentioned	
   that	
   while	
   there	
   is	
  
nothing	
   wrong	
   with	
   involving	
   a	
   number	
   of	
   institutions	
   in	
   water	
   resource	
  
management,	
  the	
  problem	
  lies	
  in	
  the	
  absence	
  of	
  a	
  single	
  institution	
  that	
  has	
  the	
  
overall	
   power	
   and	
   authority	
   to	
   manage	
   water	
   resources	
   in	
   the	
   Philippines.	
  
Different	
   agencies	
   having	
   varying	
   degrees	
   of	
   power	
   and	
   responsibility	
   over	
  
water	
  resource	
  management	
  have	
  caused	
  a	
  detrimental	
  overlap	
  in	
  functions	
  and	
  
conflicts.	
  
	
  
Unfortunately,	
  the	
  government’s	
  plan	
  to	
  announce	
  the	
  creation	
  of	
  the	
  National	
  
Water	
   Resources	
   Management	
   Office,	
   a	
   “superbody”	
   under	
   the	
   Office	
   of	
   the	
  
President,	
  which	
  will	
  absorb	
  all	
  economic	
  regulation	
  functions	
  of	
  agencies	
  in	
  the	
  
water	
  supply	
  sector,	
  did	
  not	
  push	
  through.	
  The	
  new	
  body	
  was	
  expected	
  to	
  be	
  
mainly	
   responsible	
   for	
   management	
   and	
   protection	
   of	
   the	
   country’s	
   water	
  
resources	
   for	
   domestic	
   water	
   supply;	
   sanitation;	
   irrigation;	
   hydropower;	
  
fisheries;	
   aquaculture;	
   flood	
   control;	
   navigation	
   and	
   recreation,	
   including	
  
enhancement	
   and	
   maintenance	
   of	
   water	
   quality;	
   conservation	
   of	
   watersheds;	
  
and	
   control	
   of	
   water	
   pollution	
   and	
   environmental	
   restoration;	
   without	
  
compromising	
   the	
   natural	
   ecosystems’	
   functions	
   and	
   services.	
   Similarly,	
   in	
  
October	
   2011,	
   a	
   bill	
   (commonly	
   referred	
   to	
   as	
   “the	
   Angara	
   bill”	
   after	
   its	
  
proponent)	
  was	
  filed	
  with	
  Congress,	
  that	
  sought	
  to	
  adopt	
  the	
  integrated	
  water	
  
resources	
  management	
  approach	
  to	
  water	
  supply	
  management	
  by	
  dividing	
  the	
  
country	
   into	
   provincial	
   water	
   resource	
   zones,	
   within	
   which	
   all	
   water	
   utilities	
  
would	
  be	
  synergized	
  and	
  integrated.	
  This	
  bill	
  also	
  proposed	
  strengthening	
  the	
  
NWRB,	
   renamed	
   the	
   Water	
   and	
   Sanitation	
   Regulatory	
   Authority,	
   which	
   would	
  
serve	
  as	
  the	
  lead	
  agency.	
  	
  However,	
  the	
  bill	
  did	
  not	
  become	
  law.	
  
	
  
Government	
  also	
  tried	
  to	
  attract	
  private	
  capital	
  by	
  offering	
  incentives	
  through	
  
the	
  Board	
  of	
  Investment,	
  such	
  as	
  income	
  tax	
  holidays	
  or	
  reduced	
  income	
  tax	
  for	
  
priority	
  initiatives.	
  
	
  
The	
  Senate	
  Policy	
  Brief	
  stressed	
  that	
  all	
  laws	
  will	
  not	
  be	
  of	
  use	
  if	
  they	
  are	
  not	
  
consistently	
  and	
  effectively	
  implemented	
  and	
  suggested	
  that	
  Congress	
  must	
  use	
  
its	
   significant	
   oversight	
   functions	
   to	
   regularly	
   monitor	
   water	
   agencies’	
  
performance	
  and	
  hold	
  them	
  accountable	
  for	
  their	
  actions	
  (or	
  inactions)	
  as	
  well	
  
as	
   ensure	
   that	
   these	
   agencies	
   are	
   empowered	
   with	
   the	
   appropriate	
   budget	
   to	
  
enable	
  them	
  to	
  effectively	
  perform	
  their	
  duties.	
  
	
  
Investment	
  Opportunities	
  
	
  
While	
   water	
   infrastructure	
   is	
   certainly	
   lacking,	
   major	
   investments	
   in	
   water	
  
supply	
  and	
  sanitation	
  programmes	
  are	
  not	
  a	
  priority	
  of	
  local	
  government	
  units	
  
pollution	
  from	
  land-­‐	
  based	
  sources	
  
	
  
R.A.	
  9729	
  -­‐	
  Climate	
  Change	
  Act	
   Institutionalizes	
  the	
  government’s	
  climate	
  
change	
  response	
  mechanisms	
  and	
  
harmonizes	
  existing	
  policies	
  and	
  programs	
  
because	
  of	
  the	
  huge	
  cost	
  of	
  capital	
  financing	
  which	
  may	
  require	
  huge	
  subsidies	
  
Despite	
  the	
  efforts	
  of	
  foreign-­‐assisted	
  projects	
  in	
  institutional-­‐strengthening	
  and	
  
capacity	
  building,	
  many	
  constructed	
  water	
  systems	
  cease	
  to	
  function	
  and	
  many	
  
are	
   in	
   need	
   of	
   rehabilitation	
   and	
   improvement.	
   While	
   the	
   government	
  
encourages	
  private	
  sector	
  participation,	
  the	
  absence	
  of	
  an	
  effective	
  and	
  credible	
  
regulatory	
  environment	
  was	
  given	
  as	
  the	
  main	
  reason	
  for	
  the	
  lack	
  of	
  investments	
  
in	
   this	
   sector.	
   (Hector	
   Dayrit,	
   The	
  Philippines:	
  Formulation	
  of	
  a	
  National	
  Water	
  
Vision)	
  
	
  
The	
   NEDA	
   report	
  “Philippine	
  Water	
  Supply	
  Sector	
  Roadmap	
  2nd	
  Edition	
  (2010),	
  
confirmed	
   that	
   there	
   is	
   no	
   concerted	
   effort	
   to	
   encourage	
   public-­‐private	
  
partnerships	
  (“PPP”)	
  in	
  the	
  water	
  sector.	
  Bulk	
  supply	
  or	
  distribution	
  is	
  largely	
  
private	
  sector	
  initiated	
  and	
  is	
  thus	
  episodic	
  and	
  sporadic	
  and	
  there	
  is	
  no	
  clear	
  
policy	
   on	
   incentives	
   and	
   regulation,	
   especially	
   those	
   dealing	
   with	
   LGUs.	
   NEDA	
  
made	
  the	
  following	
  recommendations	
  to	
  encourage	
  private	
  sector	
  investments	
  in	
  
water	
  infrastructure:	
  
	
  
• The	
   government	
   to	
   issue,	
   through	
   a	
   new	
   executive	
   order,	
   an	
  
investment	
  policy	
  for	
  water	
  supply	
  and	
  sanitation	
  services;	
  
• Supplement	
  investment	
  policy	
  with	
  financing	
  policies	
  with	
  categorical	
  
and	
   operating	
   policy	
   guidelines	
   and	
   implemented	
   mechanism	
   on	
  
rationalization	
  of	
  the	
  allocation	
  of	
  public	
  resources;	
  
• Identify	
  financing	
  models	
  that	
  leverage	
  public	
  with	
  private	
  resources;	
  
in	
  particular	
  develop	
  mechanisms	
  that	
  make	
  use	
  of	
  the	
  broader	
  capital	
  
market,	
  e.g.,	
  bond	
  issuance;	
  
• Ensure	
  Department	
  of	
  Finance	
  representation	
  in	
  the	
  LWUA	
  Board	
  to	
  
have	
  a	
  direct	
  venue	
  to	
  influence	
  its	
  financing	
  policies;	
  and	
  
• Develop	
  a	
  concerted	
  and	
  targeted	
  PPP	
  program.	
  
	
  
The	
  ADB	
  in	
  its	
  report	
  “Philippine	
  Water	
  Supply	
  Sector	
  Assessment,	
  Strategy	
  and	
  
Road	
  Map	
  (2013)”	
  noted	
  that	
  the	
  absence	
  of	
  a	
  common	
  methodology	
  for	
  tariff	
  
review,	
   as	
   well	
   as	
   political	
   pressure	
   to	
   keep	
   tariffs	
   low—often	
   below	
   cost-­‐
recovery	
   levels—has	
   often	
   been	
   cited	
   as	
   a	
   reason	
   why	
   water	
   utilities	
   are	
  
reluctant	
   to	
   borrow	
   to	
   finance	
   urban	
   infrastructure	
   projects.	
   For	
   the	
   same	
  
reasons,	
  many	
  of	
  those	
  who	
  seek	
  financing	
  are	
  faced	
  with	
  scarcity	
  of	
  affordable	
  
medium-­‐	
  to	
  long-­‐term	
  funding,	
  since	
  many	
  lenders,	
  such	
  as	
  commercial	
  banks,	
  
and	
   government	
   financial	
   institutions	
   remain	
   uncomfortable	
   with	
   the	
   current	
  
regulatory	
  framework	
  for	
  the	
  sector.	
  	
  Private	
  sector	
  attempts	
  at	
  working	
  with	
  
LGUs	
  have	
  not	
  been	
  so	
  successful,	
  as	
  noted	
  by	
  the	
  Local	
  Government	
  Unit	
  Urban	
  
Water	
   Supply	
   and	
   Sanitation	
   Project	
   of	
   the	
   World	
   Bank.	
   Aside	
   from	
   election-­‐
related	
   issues	
   due	
   to	
   local	
   leadership	
   uncertainties	
   brought	
   about	
   by	
   3-­‐year	
  
electoral	
  terms,	
  this	
  relative	
  lack	
  of	
  success	
  can	
  be	
  attributed	
  to	
  the	
  complexities	
  
of	
  working	
  at	
  the	
  LGU	
  level.	
  
	
  
Clearly,	
   there	
   is	
   a	
   lot	
   of	
   work	
   on	
   the	
   part	
   of	
   policy	
   makers	
   to	
   attract	
   private	
  
capital	
  to	
  the	
  water	
  sector	
  but	
  everything	
  boils	
  down	
  to	
  a	
  revamp	
  of	
  the	
  legal	
  and	
  
administrative	
  framework.	
  	
  If	
  government	
  regulators	
  are	
  able	
  to	
  rationalize	
  the	
  
institutional	
   framework	
   and	
   enhance	
   the	
   PPP	
   program	
   with	
   the	
   proper	
   policy	
  
guidelines	
   and	
   incentives,	
   then	
   the	
   water	
   sector	
   will	
   be	
   given	
   a	
   serious	
  
consideration	
   by	
   investors.	
   Investments	
   in	
   water	
   infrastructure	
   would	
   also	
   be	
  
good	
   for	
   the	
   environment	
   as	
   it	
   is	
   definitely	
   good	
   business	
   for	
   companies	
   to	
  
preserve	
   watershed	
   and	
   catchment	
   areas	
   to	
   ensure	
   adequate	
   and	
   reliable	
  
availability	
   of	
   water	
   in	
   the	
   future.	
   Also,	
   water	
   infrastructure	
   utilities	
   in	
  
coordination	
   with	
   government	
   agencies	
   will	
   be	
   able	
   to	
   conduct	
   regular	
  
assessments	
  and	
  monitoring	
  of	
  consumption	
  patterns	
  and	
  trends,	
  and	
  efficient	
  
allocation	
  of	
  existing	
  water	
  supplies.	
  
	
  
Conclusion	
  
	
  
The	
   government	
   must	
   embark	
   on	
   a	
   “national	
   water	
   security	
   assessment”	
   to	
  
determine	
   the	
   extent	
   of	
   its	
   water	
   resources	
   to	
   provide	
   the	
   framework	
   for	
   an	
  
integrated,	
   coherent	
   and	
   sustainable	
   water	
   resources	
   management	
   program.	
  
Following	
   this	
   integrated	
   approach	
   to	
   water	
   resources	
   development	
   and	
  
management,	
   the	
   government	
   can	
   proceed	
   with	
   the	
   streamlining	
   of	
   regulatory	
  
procedures	
   to	
   attract	
   investments	
   into	
   the	
   water	
   sector.	
   	
   By	
   defining	
   the	
  
responsibilities	
  of	
  the	
  various	
  agencies,	
  setting	
  up	
  a	
  comprehensive	
  data	
  base	
  for	
  
water	
  resources	
  and	
  laying	
  down	
  the	
  financial	
  incentive	
  package,	
  private	
  capital	
  
will	
  surely	
  take	
  a	
  second	
  look	
  into	
  the	
  potential	
  of	
  water	
  resource	
  investing	
  based	
  
on	
  the	
  principle	
  of	
  sustainability.	
  	
  
	
  
Fernando “Ronnie” Penarroyo is the Managing Partner of Puno and Penarroyo Law
Offices (www.punopenalaw.com). He specializes in Energy and Resources Law,
Project Finance and Business Development.
	
  
	
  
	
  
	
  

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Investment Opportunities in an Impending Water Crisis

  • 1. Investment  Opportunities  in  an  Impending  Water  Crisis     “Water,  water,  everywhere,  and  all  the  boards  did  shrink;   Water,  water,  everywhere,  nor  any  drop  to  drink.”         ―  Samuel  Taylor  Coleridge,  The  Rime  of  the  Ancient  Mariner           Water   is   the   most   abused   natural   resource.     Though   undervalued   and   often   consumed  free  of  charge,  it  has  no  substitute.    States  went  to  numerous  conflicts   over  this  resource  and  those  with  greater  access  to  water  supply  are  often  more   economically   developed   than   those   facing   scarcity.     As   human   population   and   global  economy  grows,  there  will  be  an  increase  in  conflict  on  the  use  of  fresh   and   potable   water   and   this   will   not   only   be   among   nations   but   also   among   intrastate   users   like   farmers   and   industry.     Climate   change   will   further   exacerbate  the  conflict  because  supply  will  become  less  predictable  with  altered   and  shifting  precipitation  patterns  and  increasing  and  more  intense  evaporation   giving  rise  to  frequent  and  extreme  drought  and  floods.     Philippine  Water  Resource  –  Abundant  but  Under  Threat     Early   Philippine   political   and   economic   history   has   been   linked   with   water   bodies.    Pre-­‐Spanish  Manila  flourished  along  the  banks  of  the  Pasig  River  and  the   settlers  were  called  Taga-­‐ilog  (“from  the  river”)  or  Tagalog.     In   the   Philippines,   water   is   used   for   agricultural   irrigation,   fisheries   and   food   production,   energy   generation,   manufacturing   of   commercial   goods   and   navigation,  proper  sanitation  among  others.  Agriculture  (irrigation  and  fisheries)   consumes   the   most   water,   accounting   for   eighty-­‐eight   percent   (88%)   of   total   water   withdrawals   (Philippine   Water   Supply   Sector   Roadmap,   2003).   In   the   Philippines,  2010  data  from  the  National  Statistical  Coordination  Board  revealed   that   16   percent   of   all   households   remain   without   access   to   clean   and   potable   water.  The  country  is  completely  surrounded  by  numerous  bodies  of  water  that   providing  water  for  everyone  should  not  be  a  problem  but  unfortunately  that  is   not  the  case.  At  present,  the  country  is  experiencing  uneven  distribution  of  water   supply  and  water  scarcity  especially  in  rural  areas.     Water   disputes   arise   from   contending   interests   among   municipal,   agricultural   and  industrial  users.  Agriculture  is  the  greatest  consumer  of  water,  accounting   for  about  80  percent  of  the  total  water  demand  and  yet  it  has  a  lower  priority   than   domestic   usage   in   the   competition   for   scarce   water   resources.   Major   sources   of   contention   and   dispute   in   the   context   of   resource   development   include:    mining,  which  is  often  conducted  in  watershed  areas  and  whose  tailings   contaminate  rivers  and  coastal  waters;  and  energy  development,  often  linked  to   destruction   of   the   natural   habitat   of   marine   species   (offshore   petroleum),   inundation   of   river   systems   (hydropower)   and   contamination/exhaustion   of   groundwater  (onshore  petroleum  and  geothermal).    
  • 2. The   continuous   decline   of   groundwater   levels   and   in   saltwater   intrusion   in   coastal  areas  such  as  Metro  Manila,  Cavite,  Iloilo  and  Cebu  is  attributed  to  the   uncontrolled  withdrawal  from  groundwater  aquifers.  All  rivers  in  Metro  Manila   are   already   classified   as   biologically   dead   due   to   uncontrolled   industrial   and   agricultural   development   and   rapid   population   growth   without   the   proper   development  of  waste  disposal  facilities.       DENR  FACTS  AND  FIGURES  ON  PHILIPPINE  WATERS     • 2,400  mm.  –  annual  average  rainfall     • 1,830  sq.  km.  of  Philippine  rivers  and  lakes  cover  61%  of  the  total  land  area     • 50,000  sq.  km.  of  groundwater  reservoir  is  recharged  by  rain  and  seepage  from  river   and  lakes       • 421  principal  river  basins  of  which  18  are  considered  major  river  basins  with   drainage  area  of    >  1,400  sq.  km.     • 53,943  million  cu.  m.  estimated  annual  discharge  of  Cagayan  River,  the  longest  and   largest  river  in  the  Philippines  with  a  ground  water  reserve  of  47,895  million  cu.  m.     • 79  lakes  mostly  utilized  for  fish  production     • 86%  of  piped-­‐water  supply  systems  use  groundwater  as  a  source     • 146  billion  cu.  m.  -­‐  estimated  amount  of  surface  water  and  groundwater  availability       • 6.1  million  liters  per  second  (“LPS”)  –  total  allocation  of  water  for  different  uses       • 1.06  million  LPS  –  surface  water  allocated  for  power  generation  in  Region  2,  the   largest  in  the  country       • 12,  879  LPS  groundwater  allocated  for  municipal  use  in  Region  4,  the  largest  in  the   country       • 59  natural  lakes  and  more  than  100,000  ha  of  freshwater  swamps       • 4  major  groundwater  reservoirs  (Cagayan,  10,000  KM2 ;  Central  Luzon,  9,000  KM2 ;   Agusan,  8,500  KM2 ;  Cotabato,  6,000  KM2 )  which  when  combined  with  smaller   reservoirs  already  identified  would  aggregate  to  an  area  of  about  50,000  km2     • A  survey  of  surface  water  storage  potential  has  identified  sites  for  438  and  423   major  and  smaller  dams  respectively  with  an  estimated  146,000  million  cu.  m.  total   water  resource  potential       The   World   Bank   Group   in   its   report,   Philippines:   Country   Water   Resources   Assistance  Strategy  (2003),  identified  the  country’s  major  water  resources  issues   as  localized  raw  water  shortages,  flooding,  water  pollution,  over-­‐exploitation  of   groundwater  (particularly  in  and  around  the  larger  cities)  and  overuse  of  surface  
  • 3. water   resulting   in   inadequate   environmental   flows   for   major   basins   and   sub-­‐ basins.   Dwindling   of   water   supply   can   be   attributed   to   decades   of   resource   mismanagement   due   to   the   massive   degradation   of   the   watersheds   and   river   basins,  which  are  integral  to  the  replenishment  and  maintenance  of  ground  and   surface  water.  The  effects  of  deforestation  and  pollution  on  the  country’s  water   supply  will  be  magnified  by  the  increasing  threat  of  climate  change.       Major  Issues  and  Challenges     Greenpeace   published   a   report,   The  State  of  Water  Resources  in  the  Philippines   (2007),  which  gathered  available  information  regarding  water  resources  in  the   Philippines,  focusing  on  the  issues  of  pollution  and  water  scarcity.  Greenpeace   summarized  the  major  problems  concerning  water  use  and  scarcity  as  follows:     1. Water  supply  and  demand  disparity  where  distribution  of  water  resources   varies  as  to  time  and  place  because  of  different  geographic  and  climate   conditions  prevailing  in  different  parts  of  the  country;     2. Lack  of  water  allocation  formula  as  there  is  increase  of  population  coupled   with   worsening   pollution   of   water,   lack   of   infrastructure   and   facilities   result  in  allocation  issues  and  conflicting  rights  over  limited  water  supply.   Most   of   the   problems   arise   from   an   issue   of   conflicts   of   use   and   water   allocation   especially   in   times   of   drought   or   emergency,   in   which   a   national   policy   mandates   priority   of   domestic   water   supply   over   other   water  rights  like  agriculture;     3. Competition  between  corporations  and  individuals;     4. Weak   water   use   regulation   and   enforcement   in   instances   when   the   investigation  and  processing  of  water  permit  applications  constitute  the   functions   for   which   government   regulatory   agencies   are   not   properly   equipped  in  terms  of  either  manpower  or  resources;     5. Inefficient   water   use   due   to   the   waste   of   water   in   distribution   lines,   irrigation  canals,  leaking  pipes  and  illegal  connections;     6. Depletion   of   groundwater   resources   as   a   result   of   indiscriminate   groundwater  abstraction  by  both  municipal  and  industrial  users  resulting   to  saltwater  intrusion;  and     7. Fragmented  management,  one  of  the  most  critical  issues  in  the  Philippine   water   sector   described   as   the   lack   of   an   appropriate   institutional   framework  that  will  address  the  issues  of  development  and  management   of  water  and  related  resources.  There  are  numerous  government  agencies   and  departments  responsible  for  water  management,  causing  overlaps  of   work  and  conflicts  among  the  agencies.       In  addition,  sector  planning  is  severely  constrained  by  the  lack  of  updated  local   master   plans,   as   well   as   by   the   lack   of,   or   conflicting,   sector   information.  
  • 4. Different   methodologies   used   in   monitoring   and   limitations   regarding   the   accuracy  of  data  make  quantifying  actual  improvements  in  water  supply  access   and   coverage   difficult.   These   issues   make   it   a   challenge   for   the   Philippines   to   maintain   high   levels   of   economic   and   social   development   as   well   as   promote   existing  institutions  better  to  support  water  resources  management.     Fragmented  Legal  Framework     In   accordance   with   the   Regalian   doctrine,   the   Philippine   national   government   solely  owns  and  controls  the  country’s  water  resources.  Section  2,  Article  XII  of   the  Constitution  states  that  “all  lands  of  the  public  domain,  waters,  minerals,  coal,   petroleum,  and  other  mineral  oils,  all  forces  of  potential  energy,  fisheries,  forests  or   timber,   wildlife,   flora   and   fauna,   and   other   natural   resources   are   owned   by   the   State.”   In   addition,   “the   exploration,   development,   and   utilization   of   natural   resources  shall  be  under  the  full  control  and  supervision  of  the  State.”     Water   governance   in   the   Philippines   is   very   complex   due   to   the   number   of   institutions   involved,   all   with   different   hierarchical   coverage,   varied   mandates   and  representing  the  interests  of  diverse  constituencies.     As   part   of   its   natural   resource   management   function,   the   Department   of   Environment  and  Natural  Resources  (DENR)  is  the  lead  government  agency  in   charge  of  water  resource  management.  However,  the  responsibility  of  planning   and  managing  the  country’s  water  resources  is  shared  with  several  government   departments,  bureaus  and  attached  agencies  concerned  with  different  aspects  of   water  resource  management.  Also,  local  government  units  (LGUs)  are  required   to   provide   water   supply   subsystems,   communal   irrigation   facilities,   and   implement   social   forestry   and   local   flood   control   projects,   subject   to   the   supervision   and   control   of   the   DENR.   The   National   Water   Resources   Board   (NWRB)   has   the   legal   mandate   for   overseeing   water   governance,   but   has   a   structure   and   budget   that   are   inadequate   to   allow   proper   exercise   of   this   administrative  function.     More  than  30  government  agencies  and  offices  are  involved  in  performing  the   different   aspects   or   components   of   water   resources   management   and   development.  These  agencies  function  separately  dealing  mainly  with  different   sectors   of   water   supply,   irrigation,   hydropower,   flood   control,   pollution,   and   watershed  management.  Fragmentation  among  water-­‐related  agencies  is  evident   in  three  areas  of  concern:  water  supply  and  distribution,  economic  and  resource   regulation,  and  planning  and  policy  formulation.       Key  National  Government  Agencies  Involved  in  Water  Resources  Management   Department   Line   Agency   Functions   National  Economic  and  Development   Authority  (NEDA)   Coordinates  the  preparation  of   national/regional/sectoral   development  policies  and  investment  programs.  
  • 5. Department  of   Environment   and  Natural   Resources   (DENR)   National  Water   Resources  Board   (NWRB)   Administers/enforces  the  Water  Code  and  serves  as  the  lead   coordinator  for  water  resources  management  programs.   Forest  Management   Bureau  (FMB)   Formulates/implements  policies  and  programs  for  the   protection,  development,  and  management  of  forestlands   and  watershed  areas.   Environmental   Management  Bureau   (EMB)   Sets  and  enforces  water  quality  and  effluent  standards,   criteria,  and  guidelines  for  all  aspects  of  water  quality   management.   Department  of   Agriculture   (DA)   National  Irrigation   Administration  (NIA)   Undertakes  water  resource  projects  for  agricultural   irrigation  and  other  purposes,   such  as  flood  control  and   drainage,   hydropower  development,  etc   Bureau  of  Soil  and   Water  Management   (BSWM)   Formulates/implements  policies  and  programs  for  the   protection  of  existing  and  potential  sources  of  soil  and   water  for   agricultural  development   Bureau  of  Fisheries   and  Aquatic   Resources  (BFAR)   Establishes  plans  for  the  proper  protection  and  management   of  the   country's  fisheries  and  aquatics  resources.   Department  of   Health  (DOH)   Environmental  Health   Service  (EHS)   Responsible  for  water  supply  and   sanitation  programs   and  strategies  to   forestall  the  spread  of  water-­‐borne   diseases.   National  Power  Corporation  (NPC)   Develops  and  manages  electric  generation  facilities   including  but  not  limited  to  hydroelectric  dams  and   undertakes  other  activities  related  to  watershed   management.   Metropolitan  Waterworks  and  Sewerage   System  (MWSS)   Regulates  water  concessionaires'  rates  and  service   standards  in  Metro  Manila  and  maintains  existing  assets   and  infrastructure.   Local  Water  Utilities  Administration   (LWUA)   Promotes/finances/regulates  the   construction  and   operation  of  local  water   utilities  outside  Metro  Manila.   Source:  Philippine  Water  Supply  Sector  Roadmap  (2010)     The   agencies   that   are   involved   in   water   supply   and   distribution   are   the   following:    (a)  the  Metropolitan  Waterworks  and  Sewerage  Services  (MWSS)  and   its  two  concessionaires  (after  it  was  privatized  in  1997)  for  Metro  Manila;  (b)  the   Local   Water   Utilities   Administration   (LWUA)   and   its   water   district   offices   for   other   cities   and   municipalities;   and   (c)   the   Departments   of   Interior   and   Local   Government   (DILG)   and   Public   Works   and   Highway   (DPWH)   and   local   governments  which  manage  community  water  systems  (usually  involving  point   sources  and  piped  systems  with  communal  faucets.     On   the   other   hand,   the   agencies   that   function   as   resource   regulators   are:   (a)   DENR;  (b)  the  Department  of  Health  (DOH);  and  (c)  LGUs.  Conflicts  with  respect   to  the  power  of  the  water  agencies  vis-­‐à-­‐vis  the  local  governments  have  arisen   because  of  certain  powers  conferred  to  LGUs  by  virtue  of  the  Local  Government   Code  of  1991.    
  • 6. As   for   planning   and   policy   formulation,   numerous   agencies   are   involved,   including  the  National  Economic  Development  Authority  (NEDA),  NWRB,  LWUA   and   LGUs.   NEDA   serves   as   the   highest   socio-­‐economic   planning   and   policymaking  agency  of  government.  The  National  Irrigation  Administration,  the   National  Power  Corporation  and  the  Department  of  Energy  are  also  involved  in   planning   and   water   infrastructure   development   with   respect   to   the   requirements  of  the  irrigation  and  power/energy  sectors.     Urgently  Needed  –  A  National  Water  Policy     The  Philippines  is  certainly  in  need  of  a  national  water  policy  that  will  address   the  country’s  current  water  resource  problems.    An  overview  of  the  primary  laws   governing  water  resources  in  the  country  would  show  that  these  are  very  broad   in  scope  and  its  implementation  is  very  lenient.       Selected  Laws  Relating  to  Water  Management   Statute   Purpose/Mandate     P.D.  856  -­‐  Sanitation  Code  of  the  Philippines   (1975)     Requires  cities  and  municipalities  to  provide   an  adequate  and  efficient  system  for  sewage   collection,  transport  and  disposal  in  their   areas  of  jurisdiction     P.D.  1067  -­‐  Water  Code  of  the  Philippines   (1976)     Consolidates  legislations  relating  to   ownership,  development,  exploitation  and   conservation  of  water  resources     P.D.  1152  -­‐  Environment  Code  (1977)     Provides  guidelines  to  protect  and  improve   the  quality  of  water  resources  and  defines   responsibilities  for  surveillance  and   mitigation  of  pollution  incidents     P.D.  1586  -­‐  Environmental  Impact  Statement   System  (1978)     Mandates  the  conduct  of  environmental   impact  assessment  studies  for  all   investments  undertaken  by  the  government   and  private  sector     R.A.  6716  -­‐  Rainwater  Harvesting  Act  (1989)     Mandates  the  construction  of  water  wells   and  rainwater  collectors  in  all  barangays     R.A.  8041  -­‐  Water  Crisis  Act  of  1995     Provides  urgent  and  effective  measures  to   address  the  nationwide  water  crisis  relating   to  issues  on  water  supply,  distribution,   finance,  privatization  of  state-­‐run  water   facilities,  the  protection  and  conservation  of   watersheds  and  the  waste  and  pilferage  of   water,  including  the  serious  matter  of  graft   and  corruption  in  all  the  water  agencies     R.A.  9275  -­‐  Clean  Water  Act  (2004)     Provides  for  a  comprehensive  and  integrated   strategy  to  prevent  and  minimize  water  
  • 7. Source:  Adopted  from  the  Philippine  Environment  Monitor  2003     The   Senate   Policy   Brief   entitled   Turning   The   Tide:   Improving   Water   Resource   Management   in   the   Philippines     (August   2011)   mentioned   that   while   there   is   nothing   wrong   with   involving   a   number   of   institutions   in   water   resource   management,  the  problem  lies  in  the  absence  of  a  single  institution  that  has  the   overall   power   and   authority   to   manage   water   resources   in   the   Philippines.   Different   agencies   having   varying   degrees   of   power   and   responsibility   over   water  resource  management  have  caused  a  detrimental  overlap  in  functions  and   conflicts.     Unfortunately,  the  government’s  plan  to  announce  the  creation  of  the  National   Water   Resources   Management   Office,   a   “superbody”   under   the   Office   of   the   President,  which  will  absorb  all  economic  regulation  functions  of  agencies  in  the   water  supply  sector,  did  not  push  through.  The  new  body  was  expected  to  be   mainly   responsible   for   management   and   protection   of   the   country’s   water   resources   for   domestic   water   supply;   sanitation;   irrigation;   hydropower;   fisheries;   aquaculture;   flood   control;   navigation   and   recreation,   including   enhancement   and   maintenance   of   water   quality;   conservation   of   watersheds;   and   control   of   water   pollution   and   environmental   restoration;   without   compromising   the   natural   ecosystems’   functions   and   services.   Similarly,   in   October   2011,   a   bill   (commonly   referred   to   as   “the   Angara   bill”   after   its   proponent)  was  filed  with  Congress,  that  sought  to  adopt  the  integrated  water   resources  management  approach  to  water  supply  management  by  dividing  the   country   into   provincial   water   resource   zones,   within   which   all   water   utilities   would  be  synergized  and  integrated.  This  bill  also  proposed  strengthening  the   NWRB,   renamed   the   Water   and   Sanitation   Regulatory   Authority,   which   would   serve  as  the  lead  agency.    However,  the  bill  did  not  become  law.     Government  also  tried  to  attract  private  capital  by  offering  incentives  through   the  Board  of  Investment,  such  as  income  tax  holidays  or  reduced  income  tax  for   priority  initiatives.     The  Senate  Policy  Brief  stressed  that  all  laws  will  not  be  of  use  if  they  are  not   consistently  and  effectively  implemented  and  suggested  that  Congress  must  use   its   significant   oversight   functions   to   regularly   monitor   water   agencies’   performance  and  hold  them  accountable  for  their  actions  (or  inactions)  as  well   as   ensure   that   these   agencies   are   empowered   with   the   appropriate   budget   to   enable  them  to  effectively  perform  their  duties.     Investment  Opportunities     While   water   infrastructure   is   certainly   lacking,   major   investments   in   water   supply  and  sanitation  programmes  are  not  a  priority  of  local  government  units   pollution  from  land-­‐  based  sources     R.A.  9729  -­‐  Climate  Change  Act   Institutionalizes  the  government’s  climate   change  response  mechanisms  and   harmonizes  existing  policies  and  programs  
  • 8. because  of  the  huge  cost  of  capital  financing  which  may  require  huge  subsidies   Despite  the  efforts  of  foreign-­‐assisted  projects  in  institutional-­‐strengthening  and   capacity  building,  many  constructed  water  systems  cease  to  function  and  many   are   in   need   of   rehabilitation   and   improvement.   While   the   government   encourages  private  sector  participation,  the  absence  of  an  effective  and  credible   regulatory  environment  was  given  as  the  main  reason  for  the  lack  of  investments   in   this   sector.   (Hector   Dayrit,   The  Philippines:  Formulation  of  a  National  Water   Vision)     The   NEDA   report  “Philippine  Water  Supply  Sector  Roadmap  2nd  Edition  (2010),   confirmed   that   there   is   no   concerted   effort   to   encourage   public-­‐private   partnerships  (“PPP”)  in  the  water  sector.  Bulk  supply  or  distribution  is  largely   private  sector  initiated  and  is  thus  episodic  and  sporadic  and  there  is  no  clear   policy   on   incentives   and   regulation,   especially   those   dealing   with   LGUs.   NEDA   made  the  following  recommendations  to  encourage  private  sector  investments  in   water  infrastructure:     • The   government   to   issue,   through   a   new   executive   order,   an   investment  policy  for  water  supply  and  sanitation  services;   • Supplement  investment  policy  with  financing  policies  with  categorical   and   operating   policy   guidelines   and   implemented   mechanism   on   rationalization  of  the  allocation  of  public  resources;   • Identify  financing  models  that  leverage  public  with  private  resources;   in  particular  develop  mechanisms  that  make  use  of  the  broader  capital   market,  e.g.,  bond  issuance;   • Ensure  Department  of  Finance  representation  in  the  LWUA  Board  to   have  a  direct  venue  to  influence  its  financing  policies;  and   • Develop  a  concerted  and  targeted  PPP  program.     The  ADB  in  its  report  “Philippine  Water  Supply  Sector  Assessment,  Strategy  and   Road  Map  (2013)”  noted  that  the  absence  of  a  common  methodology  for  tariff   review,   as   well   as   political   pressure   to   keep   tariffs   low—often   below   cost-­‐ recovery   levels—has   often   been   cited   as   a   reason   why   water   utilities   are   reluctant   to   borrow   to   finance   urban   infrastructure   projects.   For   the   same   reasons,  many  of  those  who  seek  financing  are  faced  with  scarcity  of  affordable   medium-­‐  to  long-­‐term  funding,  since  many  lenders,  such  as  commercial  banks,   and   government   financial   institutions   remain   uncomfortable   with   the   current   regulatory  framework  for  the  sector.    Private  sector  attempts  at  working  with   LGUs  have  not  been  so  successful,  as  noted  by  the  Local  Government  Unit  Urban   Water   Supply   and   Sanitation   Project   of   the   World   Bank.   Aside   from   election-­‐ related   issues   due   to   local   leadership   uncertainties   brought   about   by   3-­‐year   electoral  terms,  this  relative  lack  of  success  can  be  attributed  to  the  complexities   of  working  at  the  LGU  level.     Clearly,   there   is   a   lot   of   work   on   the   part   of   policy   makers   to   attract   private   capital  to  the  water  sector  but  everything  boils  down  to  a  revamp  of  the  legal  and   administrative  framework.    If  government  regulators  are  able  to  rationalize  the   institutional   framework   and   enhance   the   PPP   program   with   the   proper   policy   guidelines   and   incentives,   then   the   water   sector   will   be   given   a   serious  
  • 9. consideration   by   investors.   Investments   in   water   infrastructure   would   also   be   good   for   the   environment   as   it   is   definitely   good   business   for   companies   to   preserve   watershed   and   catchment   areas   to   ensure   adequate   and   reliable   availability   of   water   in   the   future.   Also,   water   infrastructure   utilities   in   coordination   with   government   agencies   will   be   able   to   conduct   regular   assessments  and  monitoring  of  consumption  patterns  and  trends,  and  efficient   allocation  of  existing  water  supplies.     Conclusion     The   government   must   embark   on   a   “national   water   security   assessment”   to   determine   the   extent   of   its   water   resources   to   provide   the   framework   for   an   integrated,   coherent   and   sustainable   water   resources   management   program.   Following   this   integrated   approach   to   water   resources   development   and   management,   the   government   can   proceed   with   the   streamlining   of   regulatory   procedures   to   attract   investments   into   the   water   sector.     By   defining   the   responsibilities  of  the  various  agencies,  setting  up  a  comprehensive  data  base  for   water  resources  and  laying  down  the  financial  incentive  package,  private  capital   will  surely  take  a  second  look  into  the  potential  of  water  resource  investing  based   on  the  principle  of  sustainability.       Fernando “Ronnie” Penarroyo is the Managing Partner of Puno and Penarroyo Law Offices (www.punopenalaw.com). He specializes in Energy and Resources Law, Project Finance and Business Development.