Philippines - Philippine strategy for sustainable development : a conceptual framework

PHILIPPINES REPORT E 0022 NATIONAL: ENVIRONMENTAL ACTION PLAN Philippine Strategy for Sustainable Development Part 1 A Conceptual Framework January 1990 This report is property of Philippines  REPUBUC OF THE PHIUPPINES I PHILIPPINE STRATEGY FOR SUSTAINABLE DEVELOPMENT PART 1 A CONCEPTUAL FRAMEWORK i DEPARTMENT OF ENVIRONMENT OF NATURAL RESOURCES JANUARY 1990 ( 'I *.+ 5v11 29a I~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~ i  TABLE OF CONTENTS a lPage FOREWORD 1 RATIONALE: THE ECOLOGICAL IMPERAIIVES IN THE 1 PHIUPPINE CONTEXT 2 THE PHIUPPINE STRATEGY FOR SUSTAINABLE DEVELOPMENT (PSSD): THE CONCEPTUAL FRAMEWORK 4 2.1 Goals and Objectives 4 2.2 Guiding Principles 5 2.3 General Strategies 6 Inrtegration of Environmental Considerations in Decision Making 6 Proper Pricing of Natural Resources 7 Property Rights Reform 8 Establishment of an Integrated Protected 8 , ~~~~~~~Areas System Rehabilitation of Degraded Ecosystem 9 Stengthening of Residuals Management in industry (Pollution Control) 9 Integration of Population Concems and Social Welfare in Development Planning 10 Inducing Growth in Rural Areas 10 Promotion of Environmental Education 11 Strengthening of Citizens' Participation 12 and Constituency Building 3 ASSESSMENT OF MAJOR SECTORS 13 3.1 Population 13 3.2 Environment and Natural Resources 15 Forests 15 Protected Areas and Biodiversity 17  Urban Ecosystems 18 Ii |Freshwater Ecosystems 22 Coastal Resources 23 Land and Mineral Resources 25 3.3 Agriculture 26 3.4 Industry 28 3.5 Energy 31 FOOTNOTES 34 APPENDIX | ~~~~Figures ] 1. Forest Area and Population (1930-1984) 2. Correlation of Population Density and Forest Cover, 1980 3. Population Density and Poverty Incidence by Region, 1980 I. 2 ; __ _ _-  FOREWORD *The Department of Evironment and Natural Resources initiated in 1987 the process offorrnuang a Philippine Strae for Sustaiable Dewdopmet (PSSD). Through a series of consuons with the differet sectors of society, the concept took form and substance. j Jin a niona workshop held on June 6, 1988, a fomal resolduon urging the President d dithe Congress- f the Repubic of the Philippines to adopt and implement a Philppine I Strategy for Sustainable Development, was passed Folowing the natonal workshop, the draft PSSD framework went tirough a senies of regional and sectora consulatons. On June 22, 1989 it was presented to the Cabin etAssistance System (CAS) Plnaryfor comments. CAS-CRD was then tasked to inputPSSD prinples into the formuon of the Sate for Sustaiable Development in the Rural Sector. A consensus was made fo adopt the PSSD concept in a joint meeting of the CAS-CRD and the Cabiwet Cluster A on Rural Development on August 3, 1989. On November29, 1989, the Cabinet passed Cabiwet Resolution No. 37 approvng the Conceptual Frmework of the PSSD subject to the following approved modifications: 1. 7he Philippine Strategy for Sustainable Development shall address specifically the adverse impact of growth and development such as but not limited to pollution from factories and pesticide build up from agriculture; and the depletion and degradation of natural resources due mainly to misuse and over-exploitation. 2. It shall consist of a set of general strategies to resolve and reconcile the diverse ana sometimes conflicting environmental, I demographic, economic and natural resource use issues arising from the country's development efforts; and sectoral strategies identified after a review of the current efforts being undertaken in each of the identified sectors. 3. The general strategies shall include the integration of environmental considerations in decision making, proper resource pricing, property rights reform, conservation of biodiversity, rehabilitation of degraded ecosystem, strengthening of residual management (pollution control), control of I population growth and human resources development, inducing growth in rual areas, promotion of environmental education and strengthening of citizens participation. 4. The conceptual framework shall be the basis for the formulat.on of strategies for each of the identified sectors, namely: . :~~~~~~~~~~~~~~~~~~~~~~~~~~~  I population, environment and natural resources, agriculture, I industry, infrastructure and energy. The resolution also directs all the pertinent agencies to review the respective development programs and projects for consistency with the PSSDframeworkI T7his document contains the PSSD conceptual framework incorporating the relevant modications as directed in Cabinet Resolution No. 37. I Accompanying the volume are two other documents which contain the policy and instutona trefbrm measures and action progran initiated and proposed by DENR Thse documents represent the efforts undertaken by DENR to operationalize the PSSD. Pertinent sectoral agencies are now in the process of reviewing theirpoeices, progrms and projects or consistency with the PSSD fraork. Inal outputs haue been submitted to DENR and are contained in a septe document. The same process will be undertaken at the sub-national levels for more accurate focusing of the areal diensionslinplications of the strateg. *The transktion of the PSSD conceptual frwnework will have reached its final cycle wih the preparation of a GovemmentAction Program The GOP Action Prorn whie specificaily addrsing the concerns of a strtegyfor 4 sustainable development will be treated as ar; itegr component of the coy's S national deyelopfiewg ptflL I - i  THE PHILIPPINE STRATEGY FOR SUSTAINABLE DEVELOPMENT PART I CONCEPT FRAMEWORK I ~~GOAL ASSESS SUSTAINABLE OF MAJOR t ~~DEVELOPMw SECTORSJ GENERAL |GUIDING ll STRATEGIES PRINCIPLES 4 '' - g1 Ak 1~~~~~~~~~~~I ' PART 2: POLICIES/ POLICY i INSTRUMENTS PART 3: ACTION PROGRAMS/ INSTITUTIONAL REFORMS  1 RATIONALE: THE ECOLOGICAL IMPERATIVES IN THE PHIUPPINE CONTEXT One of the more revealing lessons learned during the past two decades of environmentW awakening in the Philippines is that the maintenance of the earth's delicate balance by the mere prophylactics of pollution control and other ecological mitigation measures cannot ensure sustainable development There is now a compelflng need to overhaul the traditional concepts of development, with its exclusive focus on economic principles and the political economy of natural resources. In 1979, Rafael Salas was already attuned to this emerging world view when he said: We are temiingiobally towards a more holistic view of development withisemphoasiszgnregmmiactorsopmfrzms. Pop tn growth and developmentpatterns not only affect the demand fOr resources but asogenerateenvironmentalchanges which willhave repercussions on thefutue canyng capacity of the earh. At the global level it is not only necessary to take ito amount the resources red to feed, clothe and shelter a growing populton but also the type of tedznooW which wil make this possik methout worsening the environment It is, indeed, proper to ask at ths point how far populaton and development plans are consisen with the prudent use of resourc, and do not bring about the degradadon of owenvironment"(1) Maost Firpinos stll depend on natural resource systems for their subsistence and must therefore confront the inexorable reality of ecological principles. Two thirds of the Phifippine populaton live in the rural areas and depencd on agriculture. fisheries and forestry. Soil erosion, deforestation, polluton and declining fish catch ai point to the fact tha the limits of the natural carryng capacity are already being 1 exceeded While it is true that we can extend the limits by technological fixes such as the green revouion and by industrialization, these responses take time and the galloping populaton growth extinguishes whatever little gains we make. Secretary ; Fulgenciao S. Facoran vividly describes the national situation: .^ ith a hih population growth rate the country is like a pate c z a treadmnifufiiouslyrunnis faerandfaster, each strid becoming more diffult, bu not gatting anywherm' (2) Poputa'don Pressure a Indeed, there are strong coincidences between population growth, resource depletion, environmental quality, and the incidence of poverty. These apparent linkages are graphically portrayed in Figures 1, 2, and 3 for the Philippine situation. They are the resuk of the development efforts of the past which failed to consider both population and environment as resource bases that must be nurtured and taken care of as the central assets behind the development process.(3) Figure 1 shows the increasing populaton and the decreasing forest cover during the last five decades. Since the Philippines was almost all forest in its natural state and since the country's topography and ecology appear to be significantly controlled by the ecological dynamics of the forests, the state of the forests could.serve as a quaitave surrogate of environmental quaiity. Figure 2 reinforces the observaton of the connection between population and forest cover because it exhibits a clear correlation between popuation density and forest cover as they occur in the A 1  various regions of the Philippines. The linkage between development and forest cover is shown in Figure 3. This figure exhibits the regional variations of the correlabon between the incidence of poverty and remaining forest cover. There are a host of other quantitative and qualitative indicators that could testify to the ominous decline of environmental quality such as the ravaging of fishing grounds and coral reefs, the pollution of rivers, lakes, and bays, and the clearly visible air pollution in Metro Manila.(4) Economic Costs It Is possible to get a rough estimate of the economic cost of deforestation. The conversion of one hectare of old growth forest amounts to a loss of about 100 cubic meters of commercial quality logs, not to mention its potental for sustained yield at a growth rate of about 2.4 cubic meters per hectare per year. If these are computed at the current price of about P2,900 per cubic meter, and assuming that profit amounts to 50% of gross revenue, this will represent a loss in net profit of around P145,000 per hectare. Estimates show that some 1 19,000 hectares of natural forest vegetation were destroyed in 1988. amounting to a gross loss of around P34.5 billion per year, or a loss in net profit of about P17.3 billion. Even if these areas have been logged according to recommended practices, loss of future revenues would still amount to P5.7 biflion or a total of US$12.98 million net per year. 4- - Deforestation is responsible for erosion of all uplands. Here we also have an indication of the monetary cost of the loss. In the case of Magat watershed, annual erosion rate is pegged at 219 tons per hectare for open grassland and 71 tons per hectare for other land uses. Using the above erosion rates as basis, actual economic costs of soD nutrient loss amount to P1,068 to P3,392 per hr tare per year. For the Pantabangan watershed the tota value of soil nutrient loss was esfimated at P2,541 per hectare if erosion takes place from the first 5 cm. layer of the top soil.(5) Thus, the unecological use of forests entails huge economic losses. j Development policies, without the guidance of ecological principles, could go astray. This was clearly demonstrated by the past government's policy of converting mangrove swamps into fishponds in the hope of accelerafing food production. The ultmate impact of this policy was the decimation of virgin I mangrove swamps from 500,000 hectares in the 1950's to only about 38,000 hectares of original vegetation in 1985. Studies now show that we have lost more in terms of sustainable fisheries production with the loss of spawning grounds, rich nutrient pools and the protective values provided by mangrove ecosystems. According to estimates, one hectare of a fully developed mangrove plantation could produce an annual yield of 100 kgs. of finfish, 25 kgs. of shrimp, 15 kgs. of crabmeaE, 200 kgs. of mollusks, and 40 kgs. of sea cucumber in a direct harvest.(6) The economic cost of air pollution is not yet well studied in the Philippine context Experience from the US situation, however, shows that air pollution is costly. According to the World Resources Institute in the U.S.: 2  - Agricultral losses for 1987 due to increase of ozone concentration | ~~~~~amounted to US$5.2 billion; - On the other hand, the benefit of attaining standards for particulates |and sufur dioxide is estmated to be at US$500 million per year. f ~~Costs to the Ecosystem Concern, however, should not focus mainly on economic costs. An unquantifiabte costof forest destruction is the loss of species and genetic diversity. Even estmates forthis tragic loss does not exist for the Philippines. Dr. Seymour Sohmer of the Bishop Museum of Honolulu, who has been studying Philippine flora for many years now, asserts that we have already lost about 40% of our endemic flora Philippine losses contribute to the global loss of biological diversity estimated at about 100 species per year. By the.year 2000, it is predicted that about a mirlion species would have been lost forever. In general, a decrease in the diversity of flora and fauna makes ecosystems less stable. Environmental degradation has other serious implications. According to Ganapin, "for a developing country like the Philippines, the impacts of environmental degradation are much more serious than simply erosion or polluton. In many cases, the social and political impacts are of greater dimension and are more direct. The poor become poorer. And as larger pupulabons are pushed into a desperate struggle for survival, they wrought larger damage to the environment and the cycle continues. There comes a time, however, when this vicious cycle X . reaches a limit and the fragile fabric of a stressed society starts to unravel. The gun substtutes for the plow. The fire that used to burn forests becomes fire that will consume society ." (7) 1l 1 I ...... I  2 THE PHIUPPINE STRATEGY FOR SUSTAINABLE DEVELOPMENT (PSSD): THE CONCEPTUAL FRAMEWORK The only rational way of planning the country's national progress is through sustainable development: meeting the needs of citizens of today without limiting the options of future generations to fulfill their needs. It Is development without destruction; it is the achievement of material progress without compromising the lfe-support functions of natural systems; it is the pursuit of higher levels of quality of life while preserving or even enhancing environmental quality. It is the only true development. It 2.1 GOAL AND OBJECTIVES Goal Sustainable development stresses the need to view environmental protection and economic growth as mutually compatible. This implies that growth objectives should be compatible not only to the needs of society but also to the natural dynamics and carrying capacities of ecosystems. The goal of the PSSD is to achieve economic growth with adequate protection of the country's biological resources and its diversity, vital ecosystem functions, and over-all environmental quality. j ~~~~ObjeUves The following objectives have been identified toward the attainment of the PSSD goaL 1. To ensure the sustainable utilization of the country's natural resources such as forests, croplands, marine, and freshwater ecosystems. 2. To promote social and intergenerational equity in the utilization of the country's natural resources. 3. To develop management programs to preserve the country's heritage of biological diversity. 4. To promote the technologies of sustainable lowland agriculture and upland agroforestry through the encouragement of research and development (R and D) and demonstration projects. 5. To achieve and maintain an acceptable quality of air and water. 6. To promote and encourage an exploration program for economically important minerals. 4  7. To promote R and D in environmentally-sound and economically-efficient processing of the country's mineral and energy resources. 8. To enhance the foundation for scientific decision-making through the promotion and support of education and research in ecosystems. 9. To promote and support the integration of population concern including migration variables and family welfare considerations in development programs with special emphasis in ecologically critical areas. 1O.To expand sustantially the family planning programs and responsible parenthood program. 22 GUIDING PRINCIPLES Sustainable development, as defined by the World Commission on Environment and Development iWCED), is meeting the needs and aspirations of the people wihout compromising the ability ot future generations to meet theirs". It is difficult, however, to make use of a genera definition to guide actions with regard to particular development situations. This general definition needs to be further explained in operational terms. Operationally, sustainable development can be further explained through the following principles, which form the guiding framework for actions under the PSSD: - a systems-onented and Integrated approach In the anaiysis and solution of developmentproblems; - a concem for meeting the needs of future generations, otherwise terrned as inter-generational equity: - a concem for equity of people's access to natural resources: - a concem not to exceed the canying capacity of ecosystems; -living on the interest rather than on the capital or stock of natural resources; - mnaintenance or strengthening of vital ecosystem functons in every developmentactivity; - a concem for resource use efficiency; - promotion of research on substitutes, recycling, exploration,etc. from revenues derived from the utilization of non-renewable resources; - a recogniton that poverty is both a cause and consequence of environmental degracfation; and ,r$l @~ - promotion of citizens' participation and decentralization in implementing programs. J . 5~~~~~~~~~~~ ,~~~~~~~ -  EN- V_O M NA ^FjOYC_ __ _- l _/ll)DfllEO;llO AND EVALCA'nO N ONMEOF ENVLRONMiAL IMPACT S i 1t~~~~~~ia-- ' -i~~~~~~~~~~~~~~~~~~A I 5_ *a I 1- I :A,~~~~~~~~~~~~~~~~~~~Lpi ENW"P7CA C0ND=C S~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~Sf f'.~~~~~~~~~~~fw w@wr Gruam ndbmw mmGdhh- NAUAAU~NTLALRURE \~~~~~~~~~~~~~~~. -'. =- _ 1 ~~~~~~~~~~~~~~- *r,a. 3'I, . U.. .Cfi, s,17 _r__|_w,.__ S _ ~~~~~~~~~~~~~~~~. - -L _- - - - - - ___,.SS.. 4 _ _ _ --- ___ _ _*__,_*___ __~~~~~.. 4, . . (umor Gulaw andf bawaEzd jhum aid' GraiidCiIId,wI,- I ~~~~~~~~~~~~~~~~~~~i'_1 r -S DI^.IRENT OF Lz NVIIKNMENT* AND _NATURAL RESOURI ES .. __  2.3 GENERAL STRATEGIES The PSSD has for its core a number of implementing strategies. This is aimed at resohing and reconciling the diverse and soietimes conflicfing environmental, demo~hIc, economic and natural resource use issues arising from the country's devepment efforts. Integration of Environmental Considerations In Decision-Making The underlying theme in sustainable development is that economic and environmental concerns must be addressed simultaneously in the planning/decision-making process. This is a deliberate shift from the conventional practice characterized as predominantly single sector planning exercises. The importance of pursuing a mufflisectoral approach in poDicy and plan fornulation can never be overstated. For instance, policies that conserve the quality of agricultural land and protect forests improve the long-term prospects for agricultural development Efficiency in the utilization of energy and raw materials in industrial pmcesses reduces wastes and can also reduce costs. Merging environmental and economic considerations in decision- making i involves a fundamental realignment of the overall objecies of development 4 planning in the light of a new awareness of the envirounental implications of development activies. This means that the process of development should be viewed from the outset as a multipurpose undertaking that includes an explicit and I defined concem for the quality of the environment. Within such a planning context, it Is especally important that analysis and evaluation stress the key role that 3 environmental quaflity can play in sustainable development To effectively implement this desired shit in economic decision-making, the refinement of analytical tools and methodologies is crical. For instance, to accommodate the social and environmental consequences of the misuse of the nation's natura capital in ecDnomic calculations, such tools as Nahtral Resource Accounting, Environmental Impact Assessment (EIA) and Land Use Planning must I be properly installed and strengthened.. Natural resource accounting emphasizes the productive role of natral resources in the economic systemr Natural resource assets must be valued in the same manner as man-made assets. Inasmuch as natural resources are principally the main assets upon which we depend for revenue, employment and foreign exchange, a system of national accounting and analysis must be instituted that recognizes them as such. Uke economic analysis and engineering feasibilry studies, EIA is a management I : ~~~~tool for officials, managers and'aftected ciffzens who must make important ;decisions abou major development projects. In recent years. major development ;undertkings have encountered serious difficultes becauso insuffidernt account has been taken of their impacts on the surrounding environment. Some projects have been found to be unsustainable because they caused resource depletion. Others have been abandoned because of public opposition, financial encumbrance by unforeseen costs, very high liability for damages to natural resources, and the disastrous accidents they have caused. 6 I  Given this experience, it is ciearly very risky to approve and finance a major !project without first takng into account its environmental consequences, as well as the siting and project design considerabons that will minimize, or better still, altogether remove adverse impacts. At the local/regional level, Land Use Planning is also seen as a basic tool for incorporating environmental considerations in the decision-making process. Optional land-use allocations can be determined using an environmental quality perspective, which take into account ecological principles and the impact of human acttvities on natural systems as inputs, along with other economic and social demands. Proper Pricing of Natural Resources The most widespread opportunity for improving resource management is to treat natural resources as truly scarce, not as if they were free. This is done by proper pricing based on the cost of replenishment, increasing their supply and providing appropriate substitutes. In essence, this strategy aims to correct the gross underpricing of natural resources (e.g., logs, minerals) that is substantially responsible for the wasteful extraction and utilization of these resources. The question of who pays for damages to the environment should be part of more wide-ranging policy reforms regarding the pricing of the country's natural resources. It has become obvious that natural resources such as timber and minerals are grossly underpriced. Underpriced in the sense that those given the right to exploit these resources for profit pay very litte of the significant damage costs to societ. They also share with the rest of socity very little of the Orents" they geot oof exploiting these resources Crent represents the surplus after all cost and reasonable profits are paid). The rents from the exploitation of natral resources are huge, and they have gone to only a few. The World Resources Institute, for example, has estimated that for the Philippines, only 20% of the more than P20 bilion rent from logs harvested from 1979 and 1982 went to the Philippine govemment To attain sustainability, the govemment should recover the full economic rent for natural and environmental resources. A component of the needed price reform strategy involves charging a price on those envirornmental resources (e.g., air, water) which have until now been regarded as free resources and which have thus been polluted freely and * indiscriminately. At present, polluters continue to view the environment as a mere sink, for which they pay nothing. This concept should be changed. A sociai price should be assigned to these otherwise free resources. The polluter must then learn to internalize this price within his profit-oriented decision-making process. If there is pollution, the polluter must pay for the consequent social costs. The choice can be made between cuting down on pollution by investing in poDlution control devices or cutting down directly on pollutive aspects of an actvity. In effect, the polluter regulates his own behaviour within the context of an environmental picing system. The system is based on the so- called "polluter paysg principle. 1 o In generai, price reform provides a way to intemalize environmental costs as part of decisions on how resources are used. The advantage of proper resource pricing in resource management is that, once in place, it provides a self-regulating i system. Resource users still make choices in a way that maximizes real resource costs. 7 i ~ . .- . . .  By establishing a fair valuation of natural resources and charging the users appropriately, an automatic economic restraint on the way environment and natural resources are used is created. Relevant to the successful implementation of such pricing mechanisms is the development of capabilities in environmental economics and the conduct of measures in this field. In addition, there is a need to set up support funds and incentives for those willing to shift from pollutive or destructive technologies to those that are environmentally protective. Property Rights Reform Natural resources have a tendency to be exploited as free resources by Indrividuals even though they are in effect scarce resources. This is the case for open access" resources in which there is a strong tendency for misuse and depletion. It is difficult for an individual producer such as a shifting cultivator or an artesanal fisherman to conserve an open access resource and unilaterally regulate his exploitative efforts, since from his perception anything that he conserves will only be taken up by others. This is the famous 'tragedy of the commons." Self-regulation in the exploitation of natural resources can be achieved by assigning secure access rights perhaps even private ownership over these resources to responsible individuals and communities. Through secure access rights, the individual or community establishes a lasting tie with the resource and a long- term stake in its protection for sustained productivty. The need therefore is to develop creative and secure instruments such as forest stewardship contracts, small-holder timber concessions, artificial reef licenses, community forests, community fishing grounds and mining cooperatives to ensure ' equitable access and tenurial security n the utilization of natural resources. It has to be noted, however, that an essential condition for transfemng control over resources or cistributing resource rights is for recipient individuals or comununities to demonstrate the capacity for the sustainable development of such resources. Estabilshment of An Integrated Protected Areas System The importance of the preservation of the variety of genes, species, and ecosystems cannot be overemphasized. The development of man and his civilization has always been based on the biological weafth of nature. Agricultural crops and livestock, virtually most of the country's daily food intake, were derived from wild species. From wild species have also come many of the medicines available today. In biodiversity resides the new genetic pool of information needed to adapt to various environments. It can thus well provide the answers and increased capacities for man to deal with future questions of survival and development especially in the face of the rapidly changing local and global environments. Unfortunately, this is not generally recognized. Ecosystems are composed of species, and species are composed of genes and all these are linked to one another. The stability of ecosystems ultimately depend on the diversity of genes and species. ! 8 f ._ _  Protected areas should therefore be established for the conservation of wildlife and unique ecosystems, with the end in view of conserving genetic resources for scientific, educational, cultural and historical values. The establishment of protected areas should be preceded by a reassessment of the status of parks and equivalent reserves. This will serve as the basis for developing rehabilitative strategies for degraded parks and at the same time identify new areas where conservation of genefic resources and preservation of biological diversity can be pursued. Rehabilitation of Degraded Ecosystems . Rehabilitation of degraded ecosystems is a significant strategy given the massive destruction of ecosystems that has already occurred. Under such conditions, nature's regenerative capacity is not enough. Deliberate rehabilitative efforts are needed. Rehabilitation must keep pace with the continuous degradation caused by the increasing demands for both raw materials and products that come from natural resources. As the pressures on these resources continue to intensify so must the country's commitment and capability for rehabilitative action. A concerted action, therefore, of a magnitude never tried before in the reforestation of denuded watersheds, mangrove re-plantation, dean-up and control of pollution and revival of biologically dead rivers, and seagrass transplantation should be vigorously undertaken. Natural ecosystems, however, will continue to be threatened urness a more Comprehensive program on ecosystems rehabilitation is undertaken. Rehabilitation, therefore, has to be Unked to ecosystems protection programs and to policy reforms and instutional strengthening that decisively deal with the socio- economic roots of ecosystem degradation. Strengthening of Residuals Management in lndustry(Pollution Control) The most commonly applied instrument for pollution control is "end-of-pipem control systems that treat or attempt to limit waste products with standards and limits on the permissible emissions rate. Residuals management, however, looks at the pollution problem within a more comprehensive framework of materials policy which. includes resource recovery, recycling, and appropriate by product design that save on materials and energy. A move should be made towards adopting recent innovations in industrial process designs which are aimed at reducing waste streams, especially as increasing restrictions on disposal becomes more necessary. Reformulating products, developing saleable by-products from residuals, and redesigning or combining processes are some innovations that have often been found to reduce wastes and costs as well. A U.S. plant, for example, was able to reduce wastes by 66 percent by cutting on water use by 32 percent. The use of biogas digesters to recover methane from piggery or distillery wastes is another example of poilution reduction through technological innovations. In the Philippines, resource recovery should prove highly economical because materials and energy costs are quite high relative to labor costs. Paper, glass, I~~~~~~~~~~~~~ q ~ ~ ~ ~ ~ ~ ____  On EnvironmentSl Issues i ftn h ng on=ol a9cav by manhaUlng te{ ts Our comndW and ampUy(n these wedh psonsS comnSSuneL we nmAght /g, -ENVItONMENT" ANID NAUA REXSOUCES -1' I .. . 1~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~ : a s-: I~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~ ....... .. _....,. * C ,  metals, plastics, oils and other materials could be recovered from waste streams and recycled by networks of workers. In addition to and in support of technological innovations is the strengthening of enforcement of appropriate pollution control laws. Other policy instruments such as the use of economic incentives to encourage pollutive firms to install pollution control facilities and collecfive actions such as the installation of central collection and treatment facilities for wastewaters are needed to supplement current enforcement efforts. These are especially important given,the relatively small capital base of enterprises involved. More concdiatory forms of pollution regulation involving persuasion and information dissemination aimed at altering polluter as well as end-consumer behavior should also be implemented to cause positive change in business attitudes towards the environment. Integration of Population Concerns and Social Welfare In Development Planning Population is the critical factor in any effort at sustainable development. Population and the values espoused determine the speed at which productivity can be increased or conversely the pressures on land and natural resources brought to bear by the process of development. For a developing country like the Philippines, it is important that the population factor-in all its dimensions-is turned into a real asset for building a strong industrial base, for multiplying productive forms of livelihood, and for preserving and improving fragile ecosystems and the overall natural resource environment The country's population program must not be limited to controlling numbers but must include improvements in health, education and values formation. It must be implemented as part of a comprehensive socio-economic program at the regional and community levels. The population program must be based on methods that are consistent with the cultural and religious norms of the population. Within our traditional rural society the benefits of additional labor will always outweigh the benefits of reducing family size. It is for this reason that our population policies must recognize the limiations of promobing fertility control in isolation from other incentives. To overcome social prejudices against birth control and suspicions of the motivations behind the national popdation control program, emphasis should now be placed on the benefits to each chifd and to the family of spacing births. Managing population distribution and mobility should also be considered to limit the rapid and often uncontrolled population growth in urban areas. Promotion of programs and policies that lead to balanced regional development are important. The development potential of all regions should be assessed and programrs to increase opportunities for livelihood should be implemented to encourage migration towards less densely populated and less environmentally sensitive areas. Inducing Growth In the Rural Areas Economic recovery and long-term stability depend on increasing incomes and employmernt in the rural areas, where a majority of our people reside. It should be again noted that the rural poor are linked very closely to natural resources. Their actions have a direct impact on natural resources. Conversely, any change in the actual and potential productvity of these resources have serious repercussions on their present and future welfare, even on their very survival. The sheer number of 10  rural poor already In place right on or beside fragile ecosystems make them a formidable farce either for envrronmental destruction or protection. Attention must therefore be given to rural development, as it has already been established that poverty forces the rural poor to be destroyers rather than caring stewards of the very resources that can liberate them from poverty. The economic, social and political potentials of the countryside must be hamessed to alleviate poverty and uplift the conditons of the rural poor. A rural development strategy which is characterized by the following elements must therefore be effected: - Empowerment of the rural poor through greater participation i in policy-making processes and project implementation; - Accelerated implementation of land reform to achieve equity in the distribution of wealth and boost producer incentives; - Grant of equitable access for the rural poor to natural resource use and benefits; - Removal of economic policy and public investment biases against the rural sector; - Provision of infrastructure and support services to increase rural productivity and expand markets; - Establishment and reinforcement of *growth centerso to serve as base for industrial and commercial activities that can provide alternative livelihood and increased economic opportunities for the rural poor; - Strengthening of social services such as education, health and nutrition. Promotion of Environmental Education Environrnental educabon as concieved in the PSSD has two major objectives. The first is to enable citizens to understand and appreciate the complex nature of the environment, as well as the role played by a properly managed environment in economic development and to develop social values that are strongly supportive of environmental protection and which will create the commitment and political will to deal with difficuit issues. Only a well-informed and motivated cifizenry cotud provide the mass base necessary for the continued protection of the envirorunent. Decisions are ultimately a political responsibility, but the likelihood of the best choices being made is greatly enhanced when there is widespread knowledge and I understanding of all aspects of the issues at hand. Tnis couic be acnieved b integrating environmental concepts in the elementary and secondary schools. This will equip people with the basic capability to make up their own minds in an informed way and do something about their decisions. The second objectve is to develop the local knowledge base about the local erwironment and natural resources through the development and promotion of 4.1  | ~THE NQ0/P0 CONMEC7RON * in~DI~(.._ m mpinuaam. a mld.md bblm b WaM Igidili- bAINm ~fl us am iN NIb ilmW a mb -O oW_um_aIL lwOal _..,. CM" * I R -I C . . RPA3 S ~~~~ e o iES: riGOs/POs - g ~* t.* __,. , _I _ _ ~~~~~~* Z__ ow ,_ = Tas. iG_ l =_o. bU ._ =. _- -- = - _- - * ~ ~~ ' naa -v.- -CO__ 4