Philmma Making Governance Work For Marine Conservation

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION LESSONS FROM THE PHILIPPINES: ZAMBALES, BATANGAS AND ROMBLON
Researcher-Writer: Abby Mercado Philippine Locally-Managed Marine Area (PhiLMMA) Network Copyright 2011 PhiLMMA, Inc. All rights reserved No part of this publication may be reproduced in whole or in part, or stored in a retrieval system, or transmitted in any form or by any means, electronic, mechanical, including photocopying, recording or otherwise, without written permission from the publisher. The Locally-Managed Marine Area (LMMA) Network is a group of practitioners involved in various community-based marine conservation projects around the globe, primarily in the Indo-Pacific, who have joined together to learn how to improve our management efforts. We are interested in learning under what conditions using an LMMA strategy works, or does not work, and why. The Network's membership consists largely of conservation and resource management projects that are using (or planning on using) an LMMA approach, and includes: community members; land-owning groups; traditional leaders; elected decisionmakers; conservation staff; university scientists and researchers; and, donors. The Network spans the people and cultures of Southeast Asia, Melanesia, Micronesia, Polynesia and the Americas. In the Philippines, LMMA has a country network, PhiLMMA, with 30 locally-managed marine areas committed to sharing and learning best practices among local communities and community-based coastal resource management practitioners, local government units and other key stakeholders. Cover and Book Design: Marco Ruben T. Malto II Published by the Philippine Locally-Managed Marine Area Network, Inc. c/o 102-E R. L. Mendoza Buidling, Kamuning Road, Quezon City, Philippines 1103 Website: www.lmma.org Email: philmma.network@gmail.com
CONTENTS
FOREWORD INTRODUCTION CASE STORIES: ZAMBALES BATANGAS ROMBLON KEY ISSUES IN GOVERNANCE
AND MARINE CONSERVATION
1 3
7 23 35
49 57
LIST OF ACRONYMS ACKNOWLEDGEMENTS
FOREWORD
The Locally-Managed Marine Area (LMMA) Networks community-based adaptive management or CBAM approach is most effective in benefitting members of the community when it enables the people to participate actively in policy and decision-making forums concerning the management and protection of its coastal and marine resources. Unfortunately, members of the communities are often excluded from making decisions and policies affecting their marine ecosystems because they do not have the knowledge, as well as the opportunity to participate in the policymaking processes, often resulting in poor support services for their marine conservation efforts. In World Resources 2005: The Wealth of the Poor, the World Resources Institute highlights the role of governance in managing ecosystems to fight poverty. In order for poor communities to optimize the rewards of their local marine ecosystems, governance conditions must be supportive of the peoples interests. Otherwise, communities with rich marine resources can be exploited for commercial or political interests, leaving the communities with degraded marine ecosystems and poorer people. Good governance is also crucial in determining how the people can effectively, yet sustainably, tap their available coastal and marine resources for their livelihoods in cases where marine resources are not in abundance. The Learning Framework of the LMMA Network takes into account the importance of governance in LMMA management; governance refers to the particular set of institutions, rights, and rules operating within and guiding a society. The LMMA Network focuses on the governance of marine resources or resource governance, which takes place at four related levels:
MAKING GOVERNANCE WORK FOR MARINE CONSERVATION
local, provincial, national, and international. The Learning Framework identified eight governance factors, as: 1) governance institutions; 2) resource rights; 3) resource rules; 4) compliance and enforcement; 5) political system; 6) cultural values and beliefs regarding marine resources; 7) leadership; and 8) resource conflict. These are indirect threats that can influence other indirect, as well as direct, threats to marine environmental health in many ways. Manifestation of these governance factors may vary from one country to another pending on the political, cultural, social and economic contexts of a country. Taking these into account, the Philippine LMMA (PhiLMMA) Network has documented stories from its member sites in Zambales, Batangas and Romblon, in an effort to feature the prevailing resource governance practices, and challenges, in the country. The case stories of three municipalities in different provinces of the Philippines offer unique lessons on how the LMMA advocates in the country are making governance work for the protection of their marine environment, and for the benefit of their communities. This is the first of a series of PhiLMMA publications on good practices in implementing marine conservation strategies, featuring the Networks member sites in the Philippines.
INTRODUCTION
In the Philippines, the LMMA Networks approach of establishing locallymanaged marine areas and using community-based adaptive management is often viewed as part of, if not similar to the familiar community-based coastal resource management (CBCRM) approach, given the key principles behind both concepts and the history of CBCRM in the country. The Philippines is considered one of the earliest practitioners of coastal resource management (CRM), with traces of practice of the discipline in the country as early as the 1980s. Different sectors were prompted to come up with projects aimed at sustainable management and use of coastal resources as a result of warnings from the emerging environmental problems in the coastal areas. However, initial attempts were focused on preservation of resources, but unmindful of the needs of the communities that depended on them for their livelihoods. A top-down approach was being promoted in the establishment of protected areas, without involving the people in the communities. The approach did not work, but the experiences produced lessons that proved valuable in the development of CBCRM. Community-based coastal resource management quickly became popular among the NGOs and the academe, and eventually in the government sector. An enabling environment for LMMAs In the 2009 Annual Report of the LMMA Network, A New Age of CommunityBased Adaptive Management, one of the cited objectives of the international network is to develop the policy environment at local, regional, country, and international levels to support widespread adoption of LMMAs. The Network builds the communities capacity to manage resources and to engage more proactively with authorities in co-management, which they otherwise would have few opportunities to do so.
In the Philippines, local government units (LGUs) are actively engaged in the management of LMMA sites at the village (barangay) and municipal levels by providing support services, including financial assistance, for the communities marine conservation activities. The LGU also plays a vital role in providing avenues for members of the communities, through peoples organizations, to participate in making decisions and policies concerning the management of marine protected areas. Considering the devolved responsibility for CRM to the local governments, the LGUs openness and capacity to perform their mandated duties in the LMMA initiatives of participating municipalities are essential to effective community-based adaptive management. Our hope is that someday these marine conservation efforts of the communities will become a way of life for the people. And I think the communities participation in resource governance will facilitate the realization of this dream. Jovelyn Jovy Cleofe, one of PhiLMMAs Country Coordinators, believes that while the local governments involvement is important, the peoples participation in the process is equally vital. The succeeding pages of this publication feature case stories from selected LMMA sites in the Philippines, based on a research to identify good practices in governance that resulted in the much-needed policies and government support services for coastal and marine protection and management. Overall, the PhiLMMA research has been conducted to: a) identify the key emerging issues in governance and marine conservation; b) capture learnings and reflect on the LMMA members good practices and achievements, with emphasis on coastal and marine resource governance; and, c) document and promote/replicate these successful resource governance practices in other LMMA areas.
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The Coastal Management Planning Process for the Philippine Government The primary mandate for coastal management has been largely devolved to local government under the Local Government Code of 1991 (Republic Act No. 7160), and more recently defined in the Fisheries Code of 1998 (Republic Act No. 8550). Coastal management may be viewed as one of the inherent functions of local government units in accordance with their general powers for management within their territorial jurisdictions, which include municipal waters out to a distance of 15 km from the coastline. Section 16, Article I. Jurisdiction of Municipal/City Governments. The municipality/city government shall have jurisdiction over municipal waters as defined in this Code (marine waters included between two lines drawn perpendicular to the general coastline from points where the boundary lines of the municipality touch the sea at low tide and a third line parallel with the general coastline including offshore islands and fifteen kilometers from such coastline). The municipal/city government, in consultation with the Fisheries and Aquatic Resources Management Council (FARMC) shall be responsible for the management, conservation, development, protection, utilization, and disposition of all fish and fishery/aquatic resources within their respective municipal waters. Section 76, Article II. The integrated Fisheries and Aquatic Resources Management Councils shall be created in bays, gulfs, [bounded by two or more municipalities/cities to assist in the preparation of plans and fishery ordinances, and in the enforcement of fishery laws, provide advice on fishery matters, and perform other functions as required.]
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Coastal management as a basic service of local government incorporates all the local government powers and responsibilities including planning, protection, legislation, regulation, revenue generation, enforcement, inter-governmental relations, relations with people's and non-governmental organizations, and extension and technical assistance. The planning process being adapted for Philippine local government has been detailed from the perspective of local government, in particular, municipalities and cities, who are now tasked by law with the primary responsibility for the nation's coastal resources and municipal waters. It is tailored from a more generic process evolving in many parts of the world for coastal management. The steps in this process are basic and essential prerequisites to successful coastal resource management. They can be facilitated and partially supported by local governments together with their partner communities at the barangay level as well as national government agencies. The municipal or city government has an important facilitating role in the coastal management process because of their legal mandate to manage resources within municipal waters. National agencies, particularly the Department of Environment and Natural Resources (DENR) and Bureau of Fisheries and Aquatic Resources (BFAR), have key supporting roles in the coastal management process together with LGUs, including provinces. Non-governmental organizations, both national and local, are often involved in the community-level implementation process through either contracting arrangements under government agencies, or through their own projects funded externally. Academic institutions of different types have important roles in baseline assessment, information management and analysis for planning, and monitoring and evaluation of coastal management. Overall, the coastal management process is one of collaboration among various sectors and stakeholders.
(Source: OneOcean.org, http://www.oneocean.org/crm_philippines/process/national_policy.html#basis, a comprehensive web-based resource on the Philippine experience in coastal resource management, presents historical accounts of CBCRM in the country as well as how this ever-evolving approach of protecting and managing coastal and marine resources has become part of the mandated responsibilities of the LGUs.)
The beginnings of a peoples initiative What started as a seemingly sensible idea over a drinking spree between friends turned out to be the makings of a comprehensive local ordinance on fisheries, and inspiration for all other municipalities not only in the province of Zambales, but also for the rest of the coastal communities in the Philippines. We could hear non-stop blasting in the background while we were chatting over drinks, and that somehow inspired the whole idea. Ruperto Raffy Apilado and Marcos Macoy Villanueva have been great friends for years before they founded a peoples organization for their community in an effort to organize more-collective actions from the members of their community to stop the illegal fishing activities in their area, and ultimately, to improve the lives of the people in their community since many of them are still highly dependent on fishing for their livelihoods. The Sinabacan Fisherfolk Association (SFA) was formed in the early 1990s out of the members growing irritation over the constant explosions due to illegal fishing in their area and alarming concern over the fast degradation of their marine resources. Macoy headed the SFA as the president and Raffy stood by his friend as the SFA adviser. The fisherfolk organization started with 25 members, with only two women-members. Today, the 21-membered SFA is more than double this figure since the partners and other family members of each official member are also actively participating in the organizations activities.
Candelaria, ZAMBALES 8
Our initial attempts to minimize the illegal fishing activities in our area were purely voluntary on our part because no one else seems to be doing anything about the blasting even though everyone could hear it every single day. Raffy, a fisher-leader and retired radio engineer, admits that due to their limited knowledge and understanding of coastal resource management, their efforts were simply focused on protecting the Sinabacan-Malimanga Reef from fishers, who were resorting to use of dynamite and cyanide to catch fish. Many local fishers are tempted to immediate, but non-sustainable, access to resources for their livelihoods, resulting in smaller and poor fish catch for many other fishers. Members of our group started a rigid sea patrolling of the area, unequipped and even without a legal mandate or support from our local government at the time. We were just using aroma (a thorny bush), which entangles the fish net and destroys it in the process, in order to discourage fishing in the protected area. Macoy, a retired fisheries professor, shares their initial, ingenious ways to stop the illegal fishers. We were very daring and passionate since our actions were being dictated by our personal concern for our environment. Our main goal then was really just to minimize the incidents of illegal fishing. The Sinabacan Fisherfolk Associations rehabilitation efforts and a clearer, broader agenda for coastal resource management started in 2000 when Sentro para sa Ikauunlad ng Katutubong Agham at Teknolohiya (SIKAT) came to Candelaria, having learned of the organizations ongoing efforts to save their marine resources. SIKAT is a non-government organization committed to organizing interdependent communities and peoples
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organizations, and facilitating community-based coastal resource management. It also promotes appropriate fishing technologies, advocates for community-based natural resource management, gender fairness, sustainable livelihoods, good governance and genuine fishery policy reforms by direct lobbying or federation-building. Cristina Reyes, SIKAT-Zambales Field Office Program Manager, shares that their CBCRM work with the Sinabacan Fisherfolk Association was eventually turned over to the local government and the peoples organization after seven years of full support from SIKAT in order to generate more government counterpart. The turnover will sustain the peoples coastal resource management initiative. Candelarias Municipal Agriculture Officer (MAO) Dr. Richard Reglos adds that since the SFAs initiative has officially become an LGU-supported program in 2007, the groups activities have the advantage of acquiring more government financial allocation. Agriculture is the priority when it comes to budget allocation since it is the provinces major industry. In fact, fishing is subsumed under the farming component of agriculture. Fishing is only the second largest industry in the province of Zambales, and yet somehow because of the SFAs very persevering leaders and members, they are able to acquire regular, sufficient budget for their commendable work. Zambales is composed of 13 municipalities, of which Candelaria is the third largest. Although 11 of these 13 municipalities are coastal communities, very little focus is given to the fisheries concerns of these municipalities.
That is, until the SFA found its way to getting the necessary support from their local government.
Gains from local government collaborations It was through SIKATs guidance that we started coordinating with the LGUs and other government agencies for our activities. Raffy and Macoy explain that they did not always recognize the value of working with the local government and other authorities. While working with the LGUs leads to enhanced assistance to the communitys activities to protect their marine environment, participating in the policymaking processes and being able to influence local policies result in the institutionalization and legalization of the local governments support to the peoples initiatives, including the much-needed law enforcement and budget allocation. Existing national legislations as well as well as local ordinances that reinforce protection and proper management of the marine ecosystems are too broad and general, but they do provide the necessary legal basis for more-specific, local ordinances. The Philippines Local Government Code of 1991 has given the local government the directive to include coastal management as one of its basic services, while the Republic Act 8550 or The Philippine Fisheries Code of 1998 cites the specific ways by which the designated local government units, agencies and multi-sectoral representatives can fulfill this role. These laws also led to the creation of local advisory bodies apart from the
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recognized peoples organization in the area, such as the Fisheries and Aquatic Resources Management Council and Task Force Bantay Dagat (Bantay Dagat is a volunteer group of fish wardens; some of whom have been deputized to assist in law enforcement pending on fulfillment of requirements, including an examination), enabling more representatives from the communities to have a voice in local policymaking procedures. It was also through SIKAT that it became clear to the SFA members that the best way to protect and improve the condition of their SinabacanMalimanga Reef is to have it established as a marine sanctuary. Hence, in collaboration with SIKAT, a Technical Working Group (TWG) consisting of representatives from all sectors including the SFA, FARMC, Bantay Dagat, the academe, the local government, and concerned government agencies, was formed in 2001 to develop a comprehensive municipal fisheries ordinance for Candelaria that will put together all the existing local ordinances concerning fisheries and the marine ecosystems, and more importantly, that will strengthen the role of organized fisherfolks as the steward of their marine resources. The first step involved consultations with the community members or barangays; a barangay being the smallest political unit in the Philippines, composed of councilors and headed by the Barangay Chairperson. From 2000-2003, the activities of the TWG involved series of public hearings with the covered barangays of the drafted local ordinance, continuous review and revisions of the draft ordinance based on the public consultations, and unrelenting lobbying with the local government units with the necessary legislative and executive powers. In the process of lobbying for the CMFO,
six fisherfolk organizations coming from the different barangays of Candelaria, including the SFA, formed into a federation, hence strengthening the call for the fisherfolks advocacy. This marked the beginnings of the Samahan ng mga Mangingisda ng Candelaria or SAMACA. Macoy ended up leading the SAMACA as president, and Raffy took over the leadership for the SFA. In 2003, a resolution by the Office of the Sangguniang Bayan, the local government body under the Office of the Mayor with legislative power, ordained The Candelaria Fisheries Development and Management Ordinance of 2003. The eventual implementation of this ordinance, through the executive mandate of the Mayor, has resulted in the identification of two marine protected areas in Candelaria the SinabacanMalimanga Reef and the Batong Lakay Reef.
Strengthening a fisherfolk organization In 2003, when SIKAT started collaborating with the LMMA Network, through PhiLMMA, the SFAs initiative in securing a marine protected area became part of SIKATs work to promote the LMMA approach. The assistance from SIKAT through mentoring and capacity-building activities facilitated the SFAs more-strategic approach in managing their marine resources. Through SIKAT, the SFA, and later the SAMACA, became PhiLMMA Network members, while the marine protected areas of the Sinabacan-Malimanga Reef and the Batong Lakay Reef became LMMA sites.
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In selecting LMMA sites, we are conscious of the openness of the local government to get involved in coastal resource management and partner with an NGO since the LGU will have counterpart in the partnership agreement. According to Chito Dugan, SIKAT Executive Director and one of PhiLMMAs Country Coordinators, the PhiLMMA Network enters a partnership with the local government or NGO, which acts as support group to the peoples organization, as the latter assumes its role in the co-management of the LMMA site. In Candelaria, full stewardship of the marine protected areas has been awarded to the SAMACA given their capacity to do the job. Chito recalls that while the fisherfolk leaders have existing links with the LGU officials in 2000, their agenda was not yet clear, and their actions were not planned. The development of a resource management plan enabled the peoples organization to push for the establishment of marine protected areas through appropriate strategies. Meanwhile, the peoples participation in the assessment of marine resources in the covered areas exposed them to the bigger picture and raised their awareness on the deeper issues confronting them. This made them realize that it is not enough to protect their affected reefs, and that in fact, rehabilitation efforts are in order. Members of the fisherfolk organization soon became the eyes and ears of the local government regarding the state of their coastal and marine environment given the trainings that they were receiving from PhiLMMA and SIKAT, addressing the knowledge gap in coastal resource management in the municipal office. While SIKAT trainings involved more directionsetting for the organization and LGU lobbying strategies, the PhiLMMA
trainings appeared to be more technical in nature, according to the PO leaders. We learned how to conduct resource assessment and manage the data that we acquired during these activities. We were also trained on surveillance and fish identification. Macoy expounds on how being part of the PhiLMMA Network has enhanced their knowledge in coastal resource management through various trainings. Before, we only use aroma to warn off illegal fishing activities to protect our marine resources, but today, we are more aware of the latest CRM technology, and we also have some equipment and uniforms for our patrolling. Meantime, Raffy proudly shares how he was able to travel to Fiji and meet with high officials of the country through PhiLMMA. According to Salvacion Sally Ruiz, the SAMACA/SFAs secretary and chair of the Municipal FARMC, SAMACA has also played host to several study tours from other coastal municipalities of the Philippines, as well as other countries. She has also traveled to other cities and provinces in the country promoting their marine conservation efforts in Zambales. The cross-site visits are excellent opportunities for networking and sharing best practices.
Reaping the rewards In 2005, the approval of The Candelaria Fisheries Development and Management Ordinance of 2003 has mandated the local government of Candelaria to integrate and allocate budget for the marine conservation
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Candelaria Marine Protected Area Resolution No. 61-A Series of 2003 Resolution Enacting Ordinance No. 23-A: The Candelaria Fisheries Development and Management Ordinance of 2003 The town of Candelaria is endowed with rich fisheries and aquatic resources. These are rich with diverse life forms, such as fishes, invertebrates, seaweeds/ grasses and other aquatic flora and fauna. In order to prevent such degradation, a rational sustainable and equitable program was developed to regulate fishing activities and promote utilization of fish habitat (sanctuaries) and threatened species. Sinabacan-Malimanga Reef Location: Barangay Sinabacan and Barangay Malimanga, Candelaria Area: 190 hectares Batong Lakay Reef Location: Barangay Dampay, Candelaria Area: 13 hectares Management Body: Samahan ng mga Mangigisda ng Candelaria Task Force Bantay Dagat LGU-Candelaria Bureau of Fisheries and Aquatic Resource -Candelaria Philippine National Police-Candelaria Department of Agriculture-Candelaria Municipal Fisheries and Aquatic Resources Management Council Academic institutions (Candelaria School of Fisheries, Ramon Magsaysay Technology University)
projects of the SAMACA, the MFARMC, and the Bantay Dagat. It also led to other relevant initiatives, such as the Integrated Coastal Resource Management Program. The ordinance allowed the masterlisting of fisherfolks for law enforcement purposes, as well as to raise awareness on the benefits and responsibilities of licensing permit. No matter how beautiful the ordinance is if the people do not understand or support it, then it is useless. Candelarias Municipal Agriculturist shares that some members of the communities used to be against the fisheries ordinance because it restricts their fishing activities. But now, the same people are involved in protecting their coastal and marine environment because they can see the benefits of their efforts. Of course, it helps when there is funding to provide them with alternative livelihoods. And the comprehensive municipal fisheries ordinance has facilitated that, too. The SAMACA leaders noted that more and more houses in their areas are constructed with better materials. They also have TVs and DVD players. These are reportedly due to better income of the fishers, as a result of better catch. But the most evident of all changes is the silence in the area. We no longer hear explosions due to dynamite fishing, and while we used to catch two to three offenders in a week, these days, we only have to reprimand one, in a month or two. Although these positive changes are more than enough to keep the fisherfolk federation passionate about their initiative, being labeled as the role model for comprehensive municipal fisheries ordinance for others to follow is certainly another reason for them to stay inspired.
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Resource governance at work In the Philippines, the utmost priority is given to agriculture being the major industry of the country. The Bureau of Fisheries and Aquatic Resources is within the bigger Department of Agriculture. Coastal and marine protection and management efforts in the community level are part of the job description of the Municipal Agriculture Officer, who often has an agriculture or livestock background. This structure dictates the governments priority in terms of attention and budget allocation, which affects the implementation of programs and activities relating to marine and coastal environment down to the local government level. However, this prevailing institutional governance has not deterred the members of SAMACA from accessing the much-needed attention, as well as budget, from their local government. Richard explains that the local governments support to the work of SAMACA has a lot to do with the highly visible, strong conviction of the organizations leaders in their advocacy, marked by their perseverance in lobbying all the relevant local government officials for assistance to their cause. As the Municipal Agriculture Officer, Richard is one of the key focal persons of the SAMACA leaders in the municipal office. He says that Candelaria is the only municipality in the province where the fishing sector, which covers marine conservation efforts, gets a higher budget allocation than agriculture or livestock. Richard also shares that it is important to be involved in the POs activities. The presence of an LGU representative shows the concern of the municipal office in their activities. Even if it is not
within the LGUs power to act on the peoples requests, one must at least take time to listen to them to encourage them and build their motivation. Apart from the MAO, the other important people with whom the SAMACA must establish good working relations in the Municipal Office of Candelara include the: Office of the Mayor (executive), the Sangguniang Bayan (legislative), the Municipal Planning and Development Officer, the Budget Officer, the Accountant, the Tourism Officer, the provincial government and the barangay officials. The local branches of government agencies, such as the Department of Environment and Natural Resources, Department of Agriculture, Bureau of Fisheries and Aquatic Resources, are also just a few of the offices that the SAMACA leaders and members have to visit regularly to make things happen. Sally shares that she appreciates being educated on the government regulations and procedures, which makes her understand and tolerate the tedious and long processes that she has to go through in lobbying budget for the Federations activities. As Municipal FARMC chair, Sally has the advantage of not only taking part in policymaking procedures, but also in lobbying for budget for resource management activities in the municipal level. Sally shares that she became an active member of the SAMACA/SFA due to her FARMC involvements. And now her FARMC position makes it easier for her to provide her mandated LGU support to these fisherfolk organizations. Social linkages with the LGU officials can also influence the kind of support that can be acquired from local government officials. But while political
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partisan can get in the way of realizing various community initiatives, SAMACA President Macoy says that showing ones command responsibility over a committed task will get anyone the needed support even if one is not in alliance with the elected official. According to the SAMACA/SFA leaders, while the LGUs political will is crucial for gaining momentum in the fisherfolk initiative, support from all other sectors must be encouraged to increase the social acceptability of the marine protected areas and their management plans. Provision of alternative livelihoods through government and other donors funding greatly facilitates compliance as it enables the fishers to engage in a more sustainable livelihood instead of their illegal means of fishing. Other challenges in dealing with LGU officials involve law enforcement since some offenders seek assistance from elected officials. Sometimes we find ourselves in a compromise when a powerful LGU official vouches for the offender. Even though we are deputized as Bantay Dagat volunteers, we have to show our respect for authority, who still has the final say in these matters. Raffy and Macoy agree that flexibility and diplomacy are sometimes called for in order to maintain good relations with the local government. Sally, who regards their LGU partners as family, advises shouldering some expenses for the activities rather than charging it all to the allocated government budget for the project, if one can afford it. She explains, These small counterparts often lead to bigger funding allocations since the gesture shows the donors how committed you are to the cause.
Macoy adds that when the people demonstrate what they can do even without appropriate funding, then the money will come. Determination and commitment to the advocacy are certainly key to successful peoples initiatives. It is also important to learn from your mistakes and do not be afraid to admit it when youre wrong. Openness to learning is also an essential attitude in the process. Sally admits that ones economic status also plays a role in their effectiveness as PO leaders. Macoy, Raffy and I are retired and are no longer responsible for our children since they have all finished school. This allows us to spend most of our time volunteering for our various conservation activities, instead of working. Our challenge is in finding the second liners to take on our tasks, since many of our members are working as fulltime fishers and still have children to support. For Raffy, One must share learnings and train other people so they, too, can participate in the advocacy. The dedicated and hard-working leaders of Candelaria agree that networking with LGU officials, staff and other government agencies staff is as vital as getting the support from the communities. Public consultation with all stakeholders is crucial in getting an ordinance approved, and more importantly, in implementing it. But there are more lessons to be shared. Transparency and evidences of excellent management of the marine conservation projects are absolutely necessary to continue access to support from all sectors. On the one hand, the Federations accomplish21
ments to date, particularly the development of the first comprehensive municipal fisheries ordinance, have further built its credibility in lobbying for marine conservation and other fisherfolk issues through participation in policymaking and special advisory bodies in the local, and sometimes, even in the national government level. The enhanced competence of the SAMACA leaders and members due to training assistance from SIKAT and the PhiLMMA Network, on the other hand, is enabling the fisherfolk federation achieve its objectives in protecting and managing their marine resources, and ultimately its goal of improving the lives of the people of Candelaria.
From ridge to reef Divers from the Philippines and abroad come to Batangas to experience the richness of its marine ecosystems. With coastlines teeming with tropical fishes, aquatic fauna, shells, corals, virgin reefs and an underwater garden, Lobo is considered one of the most popular tourist destinations in the province. However, it was only in 2001 when the Municipality of Lobo decided to take a more proactive approach in protecting and managing their marine environment, having been introduced to the work of the PhiLMMA Network. We do not have the expertise in data management and analysis, and we wanted to show the people the importance of our conservation efforts. Rosie Egea, Lobos Municipal Agriculturist, shares how being part of PhiLMMA has broadened her knowledge in the field. Soil erosion and siltation due to flooding, lack of a proper solid waste management system in the area, fry catching, use of compressor and other unsustainable ways of fishing were some of the major threats that were slowly, yet directly affecting the municipalitys marine ecosystems. The local governments attempts to protect its priceless marine possessions were, admittedly, ad hoc in nature and lacking in technical expertise until the entry of PhiLMMA in the area. PhiLMMAs approach to protecting and managing marine resources was presented to the Lobo Municipal Office through the Earth Restoration Trust, an NGO and PhiLMMA member, which has been working in Biga, one of the
Lobo, BATANGAS 24
barangays of Lobo. The LGUs Coastal Resource Management Program had also just been launched at the time due to recent findings on the decline of fish production as a result of marine life degradation. These marked the start of collaborations between the local government of Lobo and PhiLMMA, and more-focused marine protection interventions, which eventually resulted in the identification of two full-reserve LMMA sites in Lobo, Batangas Biga (full-member) and Malabrigo (provisional). Lobo is composed of 26 barangays, 10 of which are coastal communities whose main source of livelihood is fishing. The communities of Biga and Malabrigo are among the major fish centers of Lobo. But apart from these LMMA areas, the remainder of the 26 communities of Lobo are also requiring the guidance and support of the municipal agriculturist and her two staff an aquaculturist and an agriculture technologist- when it comes to agriculture, fishing, livestock and their other sources of livelihoods. Even though I am an agriculturist by profession, I believe in the holistic approach, as they say from ridge to reef, so I treat the environment issues of the communities as being interconnected. This is Rosies simple explanation of her commitment to promoting the LMMA approach in her municipality. However, Rosie shares that given the number of communities they have to assist in their various environmental and livelihood concerns, it is vital to mobilize the members of the communities, particularly in the management of the LMMA sites.
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The LGU as LMMA support group In the Philippines, the chief executive in the municipal level is the Municipal Mayor, and the legislative arm of the municipal government is the Sangguniang Bayan (town/municipal council), composed of elected members under the leadership of the Vice Mayor. The municipality is divided into barangays, and each barangay is headed by a Barangay Chairman (also called barangay captain) assisted by the Sangguniang Barangay (village council); both the Sangguniang Bayan and Sangguniang Barangay are composed of several councilors. In the case of Lobo, the municipalitys marine conservation activities were mostly being implemented through the officials of the Sangguniang Barangay due to lack of active fisherfolk or any peoples organizations in the selected areas. Since the LMMA initiative in Lobo is LGU-led, lobbying for municipal- and barangay-level ordinances concerning the marine protected areas did not pose too many challenges as it normally does when initiated by a peoples organization. Hence, there are already existing barangay and municipal ordinances aimed at protecting the identified marine sanctuaries even before they became LMMA sites. However, a peoples organization, a sector that is separate from the LGU (since the Sangguniang Barangay is a component of the LGU), is necessary not only for check-and-balance purposes, but more importantly to encourage a multi-stakeholder participation for the effective implementation of the project. This led the municipal agriculturist and her staff to put on a different hat and start organizing the people.
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Rafael Romulus Moli Catada, the municipal agriculture technologist, shares some of his challenges in the field given their lack of community organizing skills, for which most NGOs are applauded. First, I had to establish rapport with the members of the communities before I can make them understand and take part in the advocacy. It did not help that some people had negative perceptions about being members of a peoples organization due to their previous experience, which I had to straighten out. Conflict of interests among the fishers who want to continue with their fishing practices, however wrong, was also a problem. Awareness-raising activities and close collaborations with the barangay officials facilitated the formation and formalization of the peoples organizations in each of the Lobo LMMA areas in 2009. Moli explains that he also had to make people feel more accountable for their environment, and realize that they have a role to play in protecting it. Today, the management of the LMMA sites is shared by the local government through the municipal office of Lobo and the Sangguniang Barangay, the peoples organizations, the Bantay Dagat and the Resort Owners Association. Rosie shares that the newly-formed POs are still requiring capacity-building assistance, but being a member of the PhiLMMA Network has its advantages particularly in terms of trainings and other opportunities for learning, in which the LGU staff, such as herself, and some of the PO members are able to participate.
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We have a very democratic governance system and our process of passing ordinances or legislations for municipal fisheries is different from Fiji. Based on a cross-site visit in Fiji, Rosie realized how different the governance system is in the Philippines. She shares that national, as well as international, networking is very helpful as it allows sharing of experiences and lessons within the Network, and helps the members acquire a better understanding of the different factors that are influencing the progress of their LMMA initiatives.
A fisherfolk association at last The Spanish Lighthouse in Barangay Malabrigo captures the interest of many scholars of the culture and arts, who make it a point to photograph the artistry that went into the construction of the long-standing guide for many fishing and other sea vessels for more than a hundred years now. But the attempts of the barangay officials and volunteers in Malabrigo to protect their marine sanctuary are proving themselves deserving of attention as well, and further assistance to be more effective in their advocacy. The municipal office was host to a US Peace Corps volunteer back in early 2000 and his assignment is to assist the LGU in implementing its CRM program. I was a member of the Barangay FARMC then, so he took me to Romblon to see how they are protecting their marine resources. I got so envious of what the people of Romblon are able to do when I saw the beauty of their corals. Hence, as soon as I got back in Batangas, I started
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floating the idea of a barangay ordinance with members of the community and with the concerned local government officials in order to identify a marine protected area in Malabrigo. Billosane Sonny Badal, Jr, recalls his initial involvement in the LMMA initiative of the municipality. The passing of the Barangay Ordinance of 2002 established the Malabrigo protected area, measuring more than 25 hectares, which became an LMMA site in 2006. And Sonny became the president of the Malabrigo Fisherfolks Association (MFA), one of the peoples organizations co-managing the LMMA sites in Lobo. He is now also a village councilor, which instantly enables him to include fishing and marine-related issues in the policy agenda of the Sangguniang Barangay. We formed the MFA in order to recruit more members of our community for marine protection activities. Sonny explains that many people in their village of more than 350 families share an apathetic attitude when it comes to addressing community issues. They think all of the problems in our area are the responsibility of their barangay officials. Many members of the fisherfolk organization are either barangay officials, including the barangay chairperson, or Bantay Dagat volunteers. Godofredo Fredie Evangelista and Meriam Canatuan, two active sea patrolling volunteers share what made them want to become MFA members. I had to stop from my schooling, so I thought it would be better to make myself useful while I am not doing anything with my time at the moment. Meriam says that her volunteering in the patrolling activities of Bantay
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Dagat has allowed her to gain new knowledge on the various issues surrounding their coastal and marine environment, as well as new friends. Proud to be one of the few women-members of the MFA, Meriam hopes to mobilize more women in her barangay to join the MFA and Bantay Dagat. Fredie, on the other hand, explains why it is not easy to mobilize others to volunteer. Patrolling can be risky at times, especially in our case since we do not yet have all the necessary logistical support. Fredie recalls the time when Sonny risked his life reprimanding a group of fishers from a nearby community. They asked Sonny to come with them in their boat so they can discuss the matter somewhere, but at some point during the ride, Sonny saw one of the fishers grab a suspicious gadget and this prompted Sonny to quickly jump out of the boat and swim for his life. Sonny explains that it is not easy to stop other fishers from their wrong practices because they need to be provided with alternative means to earn sufficient income in supporting their families. He adds that they cannot also blame others for not participating in their advocacy since they need to work for their families. Being a family man himself, he admits that his community obligations, as a barangay official and now as president of the Malabrigo Fisherfolks Association, are taking most of his time. He says that the all-out support they are getting from the municipal office, through Rosie and Moli, and the PhiLMMA Network are exactly what they need.
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A more-concerned community I lost my village council post in one election, and many thought that it had to do with my patrolling involvement. They said I was too strict with the regulations for our marine protected area. In the last election, Sonny was on board again as a barangay councilor and he attributes this to the increased awareness and better understanding of the members of his community about their efforts to protect their environment. Fredie shares that some members of their community now report to them when they witness fishers who are still engaging in illegal fishing practices, which shows that they are more concerned now. More tourists to their area are also interested in their ecotourism activities. The municipalitys recent exercise in data collection and analysis for the LMMA Learning Framework has also yielded indicators of progress when it comes to the health status of their marine environment. The data gathering aspect of the LMMA Learning Framework, in particular, has provided the municipality with the essential information on the state of their marine ecosystems, along with the different factors that are taken into account in monitoring the LMMA initiative. Both the LGU staff and MFA members admit that there is a lot more to do. But their experiences to date have taught them lessons that they wish to share with their fellow LMMA practitioners, particularly how different governance factors can influence their work.
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Changes in the political leadership and the elected LGU officials varying interests, which dictate their budget priorities, greatly affect the momentum of the members of the LMMA site management unit in their activities. Lobo as a third-class municipality with relatively small revenue, allocates very little budget for the fishing industry, in which activities for the marine protected areas are subsumed. While the RA 8550 or The Fisheries Code mandates the formation of the FARMC, it does not always come with the necessary government budget that would allow us to activate the advisory body. Rosie offers this explanation to some of the MFA members and barangay officials who felt that having an active FARMC would help them lobby for more financial support from the local government as in the case of the Zambales fisherfolk federation. It really has a lot to do with the budget priorities of the elected leaders, and being part of the LGU structure does not always equate to easier access to financial support. However, I think that if the Malabrigo Fisherfolks Association is able to present a clear advocacy message that comes with a concrete plan of action, then I will be in the position to market their initiative to other possible sources of funding, including the provincial government. Rosie shares that through the Batangas Marine Protected Area Network, of which Lobo is a member, they were able to tap the provincial government, the Rotary Club of Dasmarias and the Conservation International for health and insurance benefits, as well as technical and logistical support for the Bantay Dagat volunteers. Other governance challenges, according to Rosie, include identifying more able leaders for the peoples organizations in the communities covered by
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their LMMA work. Organizing and strengthening POs also take a lot of their already-limited staff time, but Rosie reiterates the importance of getting the participation of the community in sustaining their LMMA initiative. For the MFA members, law enforcement presents some difficulties for them given the political tradition of padrino system, where politicians use their influence to free some of the offenders of their penalties. According to Malabrigo Barangay Chairman Nicasio Dueas, also an active member of the MFA, The enforcement of the ordinances can be more effective if they are also promoted in the nearby areas. Otherwise, the offenders, who are usually from other villages, will always reason that the regulations of our ordinance do not apply to them for lack of information. It would be much better if our fishing ordinances are also replicated in the nearby barangays. The attitude of people in the communities due to competing interests of fisherfolks and resort owners is also an area that they are actively addressing through Information-Education-Communication (IEC) activities. Apart from individually approaching other members of their community, the MFA also holds regular talks on how to protect their marine sanctuary in the barangay hall. Apart from their IEC and patrolling activities, the MFAs immediate priority is to strengthen their organization in order to accomplish more. Sonny ends with the hope of being able to recruit more MFA members now that their organization is officially registered. As a participant in an LMMA
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cross-site visit in Zambales, Sonny says he learned a lot from the leaders of the fisherfolk federation in Candelaria and felt that he was also able to share some of his knowledge that is unknown to the other fishers there. But Sonny admits that he really needs to learn more on how the Candelaria peoples organization was able to generate so much support, including funding, for their LMMA activities. I really admire our PhiLMMA colleagues in Zambales, and I want to learn more from them so I can make the Malabrigo Fisherfolks Association as successful in marine conservation efforts. I also wish that PhiLMMA will continue its much-needed support to us, so we can also succeed.
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Shifting from marble to marine The municipality of Romblon, in the province of Romblon, has approximately 4,000 fishers distributed in 25 coastal barangays. It lies within the Sulu-Sulawesi Eco-region and Coral Triangle, endowing Romblon its rich marine biodiversity. Most of the communities are dependent on the natural resources of the area for their income and family consumption. Marble and fishing are the two major industries of the municipality. But the decline in the market demand for marble has forced the people of Romblon to turn to their marine resources for livelihood, more than they used to. The shift from marble to fishing as key industry for the municipality has resulted in increased fishing pressure in the municipal waters of Romblon. This led to proliferation of illegal fishing activities, including the intrusion of commercial fishing vessels and use of destructive fishing gears and operations. Small-scale fishers who only use traditional fishing gear, such as the hook and line, suddenly found themselves in a no-win competition with the big fishing vessels in their municipal waters. Other threats to the coastal and marine ecosystems of Romblon involved the conversion of mangrove areas into fishponds, settlement areas and beach resorts. The siltation from marble and stone quarries has also affected the fish habitats. Therefore, the reduction of fish production at an alarming rate due to degradation of coastal and marine resources has also become a major problem that the fishers of Romblon have had to face. Despite this discouraging scenario, the case of Romblon demonstrates how active collaborations between the peoples organizations, the local
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government and SIKAT have managed to transform these environment and livelihood issues into excellent examples of effective coastal and marine resource protection and management.
A family of peoples organizations KAPAMILYA is an acronym for Karagatan Alagaan ng Pederasyon at Alyansa ng Mangingisda na Itataguyod and Likas Yaman at Agrkultura ng Romblon (meaning federation of fisherfolks for the protection of natural resources and agriculture), but the term also means to be part of the family in the Filipino language. In 2006, the newly-organized KAPAMILYA ng Romblon, Inc., took the lead in advocating for the Romblon Comprehensive Municipal Fisheries Ordinance, which was passed into legislation, also in the same year. We decided to form into a federation to have a stronger voice, and therefore strengthen the impact of our advocacy. Charles Ramal, the founding chairman of KAPAMILYA and former PO president, shares the main reason behind the merging of 14 peoples organizations from the different barangays of Romblon. Furthermore, the barangay captains of the covered barangays also formed themselves into a council of elders to offer their support to the Federation in terms of direction-setting. We realized that there is strength in numbers because our local government leaders cannot easily ignore the voice of the people, representing thousands of men and women fishers wanting to protect their coastal and marine resources for a more secure livelihood. Charles explains that the convening
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of the PO leaders of different villages as a federation hastened the processes involved in their advocacy concerning all the 25 coastal villages of Romblon; this explains the very short, although very difficult, time it took them to get the CMFO approved. Through the lobbying efforts of the Federation, the CMFO was approved by the municipal council, resulting in the recognition of the rights of marginal fishers in managing their coastal and marine resources. The KAPAMILYA was also accredited by the LGU as a registered group of municipal fishers, which provided the Federation a seat in the Municipal Development Council (MDC), and later in the Provincial Development Council, enabling the fisherfolks representative to take part in the decisions of the municipality, as well as of the province, concerning development plans and their budget appropriations. The Federations strategic membership in the MDC also addresses the usual concern of POs regarding the changing of political leadership and their development inclinations. Charles recounts that their initial activities to push for the CMFO started in 2005, when many of them were still acting as individual peoples organizations, representing their own villages. Even before the formation of the Federation, the PO leaders and members have already been empowered through capacity-building activities provided by SIKAT, and our preliminary efforts involved consultations with fisherfolks and other members of the communities in drafting and reviewing the ordinance to ensure its appropriateness to the Romblon context. This is why we feel a sense of ownership for the CMFO given our participation in developing it from the beginning. In the absence of a comprehensive municipal
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ordinance, the POs can only rely on their respective barangay-level ordinances, which are often lacking in jurisdiction given the magnitude of their coastal and marine problems. Awareness-raising became the order of the day, particularly for their local government officials and staff. Through orientations, we made them understand the issues that we are fighting for, and the urgency of our efforts to save our marine environment. Charles adds that having an active and united federation, whose members were always in attendance during the public hearings on the municipal fisheries ordinance, certainly proved the peoples commitment to their advocacy. The KAPAMILYA was also able to project how having a CMFO can generate additional revenues for the municipality, which, understandably, captured the immediate interest of their municipal leaders. From being a PO leader, Charles has been elected as the Municipal Fisheries and Aquatic Resources Management Committee Chair, representing the 25 barangays of the Romblon municipality, and more recently as the Regional Fisherfolk Representative under the Bureau of Fisheries and Aquatic Resources. According to him, while his FARMC role enables him to recommend the Federations call for policies, his involvement with the KAPAMILYA gives him a good grasp of the issues on the ground, to ensure that the local policies will indeed address the issues of the people. The members of the KAPAMILYA are also united in sharing that personal sacrifice has played a significant contribution to their advocacy.
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Pedro Mesana, current chair of the KAPAMILYA, a PO president and Charles active buddy throughout their lobbying efforts, shares that he and Charles had to sacrifice some family time for their work in managing their marine sanctuaries. Since his wife works overseas, he sends her pictures of their marine conservation work to make her understand why he his spending so much time volunteering for sea patrolling among their other community awareness activities, instead of making a living. We used to have misunderstandings because I am so busy with the KAPAMILYA activities, but when she came home one day and saw for herself what we are doing for the small-scale fishers, I did not have to explain to her anymore. Pedro adds that it helps to have a small family because it reduces the pressure on him to earn more for a living, in order to support them. We have to remember that we have an obligation not only to our families, but also to others who benefit from our work. His recent trip to Mexico to represent PhiLMMA in an international gathering made him realize how different, as well as similar, their situation is in comparison with other coastal communities in many parts of the world. I thought they were getting more support from their local governments than we are, but the collaborative way of making things happen is the same everywhere. Pedro says that he also realized that some LMMA sites operate on a close and open season, which allows the fishers to catch fish on certain times of the year, while the local government provides them with alternative livelihoods during the no fishing season. Now that he is back, Pedro plans to share with the other members of the KAPAMILYA the lessons that he has brought back with him from his recent engagement representing the peoples federation.
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Women form a league of their own Not to be outdone by the men, the women community members also formed an organization that is more focused on womens issues, such as reproductive health, womens rights/gender equality, livelihood and settlement. These women are also members of the KAPAMILYA and hence involved in the coastal and resource management activities of the Federation. Apart from participating in patrolling the fish sanctuaries, we also mobilize other women whose husbands are not yet members of the Federation. Lina Rotoni, President of the village chapter of the womens organization, explains the importance of womens participation in the male-dominated federation. Also a barangay councilor, Lina believes that she is more effective as an elected official because of her exposure to community issues as an active member of KAPAMILYA and the womens organization. The womens leader also proudly shares that their campaign on violence against women has yielded positive outcomes, including a womens desk in their police station and reports of better marital relations. More men in our communities have become aware that violence is not just physical, but also involves emotional abuse. Edelyn Morada, also a village councilor and active leader of the women as former Vice Chair of the KAPAMILYA, recalls how she got involved in the peoples organization before being elected as a barangay official.
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SIKAT came to Romblon in 2004 and called for assembly meetings, where they began to orient us about the dangers of the current fishing practices in our municipal waters and how these issues can be addressed by establishing marine protected areas. Edelyn admits that she joined the meeting purely out of curiosity. But after attending more orientations as well as trainings organized by SIKAT, she was hooked to her community activities which eventually landed her a political seat in her village. I do not see much difference in what I used to do as a KAPAMILYA member and now as a barangay councilor. Also, the people of Romblon have high regard for peoples organizations, not just for elected officials, so they are supportive to the work of the POs, as well as that of the barangay officials.
Political will works Municipal Mayor Atty. Gerard Gard Montojo shares that the CMFO was already in place when he took his oath of office in 2007, but his challenge was to ensure that it is implemented effectively. I feared that one day the marine species that we see in our waters today can only be found in the books. Mayor Gard discloses what got him to commit to the approved municipal fisheries ordinance and adds, The significance of the CMFO is not only for our Coastal Resource Management Program, but more importantly for the future generations.
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The municipal mayor of Romblon says that for as long as he sees the merit of existing projects, he does not see any reason why he should not offer his own support even if such projects were initiated by his political opponents. When asked about the work of the KAPAMILYA and SIKAT on marine conservation, he shares that had he lost the recent election, he would have joined them in their work because he believes in their advocacy. He admits that among his challenges concerning the work, however, is having to deal with a candidate of his opponents party, but Mayor Gard says he soon realized that his personal sentiments must not get in the way of remarkable efforts for the welfare of the coastal people and the marine ecosystems. Municipal Councilor Jerry Mallorca traces his commitment to saving their municipal waters from illegal fishing to his grandfather who was a fisherman. Known as an active sea patroller and a brave law enforcer, Jerry first made his mark in the municipalitys marine conservation efforts when he was still a Barangay Chairman. I organized a diving activity with members of my barangay so they can see for themselves the poor state of our marine resources. This initiative led to a barangay ordinance, a fish sanctuary and other villages following suit, gaining him the support of other barangay leaders, who also established their own fish sanctuaries. I worked closely with the other village leaders, the KAPAMILYA and SIKAT in lobbying for the municipal-wide fisheries ordinance. He says that the padrino or arbor system, wherein politicians or authorities intervene to free the offenders of their penalties, is their biggest challenge in law enforcement. But SIKAT plays a huge role by providing the necessary patrol boats for monitoring, as well as the paralegal
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trainings for the volunteer patrollers so they are properly guided on the best way to approach and apprehend the offenders. Today, as Jerry holds a higher office, he continues his barangay advocacy in the municipal level by organizing the Task Force Illegal Fishing within the municipal council. Romblons Municipal Agriculture Officer Arturo Gutierrez shares that before he was approached by SIKAT, the municipalitys efforts in coastal resource management were purely concerning the provision of alternative livelihoods for the coastal people, and nothing more. As MAO, Arturo is the first point of contact of the POs and NGOs in the municipal office, but he admits that given his agriculture background, coastal resource management is not a familiar territory for him. He was also apprehensive about SIKAT in the beginning, since he has not heard of their organization until their first meeting in 2004. We had bad experiences with previous organizations offering to work with us, but SIKAT gave us a very good impression about their work, so when I met with them I became more aware and interested in CRM and the issues surrounding it. Arturo adds that given SIKATs approach of linking the different sectors, the municipal office now works more closely with the people in their communities, through the KAPAMILYA.
Promoting LMMA practices in Romblon SIKAT came to Romblon in 2004 and approached the representatives of different sectorsthe POs, the LGUs, the women, and the academe.
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SIKATs work involving the LMMA sites in Romblon is part of the Resource Management component of the organizations holistic program approach in the municipality, which goes beyond coastal resource management. The LMMA sites were formally-established as soon as the CMFO has been approved, because without the ordinance, the effective management of the MPAs is not viable. Miguel Mike Cortez, SIKATs Senior Community Organizer in Romblon shares how LMMA came to be in the area. Before we were introduced to the LMMA approach and tools, the SIKAT staff were using technology to assess and monitor the marine resources that is less suitable for non-marine experts or others members of the communities. LMMA offered new ways to allow direct community participation in conducting fish sanctuary assessments, making them more aware and involved. According to Mike, the LMMA trainings that the SIKAT staff have attended can also be easily shared with the communities, allowing transfer of skills with more LMMA advocates in Romblon. Apart from the pro-community resource management practices, Mike also highlights the significance of data gathering and management, which they also learned through PhiLMMA. Without any data to show evidences of degradation, it was very difficult to make the people understand the condition of the marine resources. Now, the members of the communities are able to do data gathering themselves and can even answer LGU officials who ask them about their conservation work, as well as where the money goes. Given their LMMA trainings, they are now able to educate their own LGU officials.
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Because of the effectiveness of the LMMA approach in the town of Romblon, its case is now being replicated in three other municipalities of the Romblon province, including the use of practices and tools which the SIKAT staff credit to LMMA. Mike shares that sustainability is now in the mindset of the PO leaders. Their focus is not only NOW, but that they must consider the future, too. Hence, Mike says that the people of Romblon are actively pushing for community-managed ecotourism as opposed to mainstream or commercial tourism, which would be detrimental to the people and their precious marine sanctuaries.
14 Marine protected areas and more To date, 14 marine protected areas have been established in Romblon nine of which are member sites of PhiLMMA; three mangrove areas have been reforested and more than 125 giant clams are being protected in four different sites. The management of these marine protected areas is led by the communities through the peoples organizations. Aside from community organizing, livelihood development and local advocacy, law enforcement is a key management component in which the communities are actively involved to ensure the sustainable management of their LMMA sites and other MPAs for the benefit of the small-scale fishers.
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With SIKAT assistance, members of the communities have been empowered to take the lead in the implementation of the CMFO, including the apprehension of violators. Some PO members, municipal fishers and Bantay Dagat volunteers have been deputized by the Bureau of Fisheries and Aquatic Resources in recognition of their commitment to protect the coastal and marine environment. The volunteer sea patrollers now also receive a small monthly honorarium from the local government as a result of their active monitoring of the sanctuaries. In order to equip the volunteers for their law enforcement function, SIKAT provided trainings on topics covering paralegal, conflict resolution, apprehension and case filing. Villages have also been clustered for joint law enforcement activities to strengthen their enforcement capabilities and support system. Meantime, government agencies committed to provide the much-needed logistical and financial support to the volunteer law enforcers, including the participation of the police force and coastguard during the patrolling activities. Before, fishers in the communities used to rally against the establishment of fish sanctuaries because it limits their fishing activities. Today, they urge their leaders to identify more marine sanctuaries having enjoyed the benefits, which include less waiting time between fishing activity (from eight hours, to two-hour fishing intervals only), and availability of commercially viable species in their traditional fishing grounds, assuring the fishers of Romblon of a good catch every time they go to the sea. With the Romblon CMFO in place, marine resource users are now also more compliant of the laws governing their municipal waters, with the 75 percent reduction in illegal fishing activities in the area. During the first year of the
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CMFO implementation in 2007, the projected revenue of the Federation has been achieved. The establishment of municipal fisherfolk registry, which requires registration of fishers, licensing of fishing gears and promotes other fishing regulations, has earned the municipality additional income, with the assistance of the Bantay Dagats 24/7 patrolling and effective implementation of the law. The total revenue from the fees for the water activities in the marine sanctuaries is divided among the barangay (30 percent), the municipal office (30 percent) and the peoples organization of the barangay (40 percent). Due to the CMFO, the KAPAMILYAs remarkable achievements, and the continuous support of the LGU, the appropriation of budget for the municipalitys coastal resource management activities is not only ensured, but has significantly increased through the years Partnerships between the KAPAMILYA, the communities, the local government of Romblon and SIKAT show that working together can indeed achieve long-lasting results. I remember the day when we marched the streets of Romblon to lobby for the approval of the CMFOit was during the Independence Day in 2006 We were clear about what we want for our marine resources and we wrote our demands in big placards Charles recalls one of their memorable challenges in the early days of their advocacy as he watches the dolphins, parrot fish and wild ducks across a marine sanctuarya few of the many thriving marine species and other living proofs of a job well done.
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Key issues in governance and marine conservation
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The case stories from Zambales, Batangas and Romblon have illustrated how different governance factors have influenced the communities initiatives to protect and manage their coastal and marine resources. Each has presented how good governance results in more effective implementation of the LMMAs community-based adaptive management approach. This research has also identified key governance issues that continue to challenge the coastal and marine conservation efforts of the featured PhiLMMA Network members, along with the governance factors that can help address these issues. 1. National priorities and budgetary support. The fishing industry often comes next to agriculture and other major industries in the Philippines, and this translates to the amount of attention and funding that the national government allocates to the fishing sector. The municipal fisheries sector, in particular, has often been marginalized in terms of budget allocation. The community-based coastal resource management initiatives are confined within the fishing component of a municipalitys development plans; fishing is further subsumed in the agriculture program of the LGUs. Since coastal resource management programs from the municipal level down to the communities have been delegated to local governments, the political system, which dictates the national government funding, influences the LGUs capacity to provide the appropriate support to community-based marine conservation efforts. The case stories have shown how the commitment and perseverance of the peoples organizations have successfully addressed this prevailing governance condition. By projecting how legislation (e.g. comprehensive
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municipal fisheries ordinance) can help generate additional revenue for the municipality, given active sea patrolling and effective law enforcement, the federations of fisherfolk initiatives were able to access the needed funding, along with other logistical support services from their local governments. Clarity of advocacy messages, which comes with concrete and realistic plan of actions, also works in getting the necessary interest of, and support from, the LGUs, and other stakeholders. 2. Attitude. Having each sector represented and involved is essential for any CBCRM program to succeed. However, these stakeholders may have diverging positions regarding the implementation of coastal and marine conservation initiatives, resulting to resource conflicts. The openness of each stakeholder is crucial in coming up with a consensus and a collaborative way of working. The political will of the people in power is also vital to the process of acquiring the highly-desired government support, particularly budget allocation. Awareness-raising activities involving representatives of different sectors can greatly contribute to making the stakeholders understand the real conditions of the marine ecosystems, as well as the urgency of addressing the CRM issues, which are causing livelihood and other poverty issues in the communities. Mobilizing and educating people from different sectors, including the LGU, to be more accountable for their coastal and marine environment have proven to be effective in the cases of the featured LMMA members in the Philippines.
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3. Capacity. The openness of the stakeholders to any development initiative is often dictated by their capacities to support it or take action. The management of an LMMA site involves different representatives from the local government, peoples organization, and other sectors, with corresponding roles. The leadership of the featured fisherfolk federations has contributed significantly to the success of their lobbying efforts for the drafting, enactment and implementation of comprehensive municipal fisheries ordinances. The commitment and competence of the PO leaders have led to their active participation in making policies and decisions concerning their coastal and marine resources in the local government level. Their stories have shown that governance starts in the individuals who are the institutional assets, well-deserving of investment through capacity-building. The LGU offices capability to take on LMMA initiatives, given their other livelihood priorities, lack of CRM background and very limited staff capacity, is often resolved by the determination of key people in the municipal offices. However, trainings and other learning opportunities are recommended to address the knowledge gap, and strengthen the interest of these vital partners from the local government. Capacity-building support to the LMMA initiatives through the PhiLMMA Network has certainly provided the necessary boost to direct the dedicated fisherfolk leaders, members of the communities and LGU staff in the right direction.
4. Political leadership. Changes in the LGU leadership or of elected officials, who have different development interests, and hence priorities, impact on the momentum of the peoples initiatives, including their coastal and marine conservation or LMMA activities. Getting the people organized, registered and accredited by the municipality or higher government offices, results in the institutionalization and membership of a peoples organization in the local governments policymaking bodies. This enables the communities representatives to participate in decision and policymaking forums, and ensures that the peoples interests are heard and promoted, regardless of the incumbent political leaders. 5. Political affiliations. Differences in political ideologies and parties during elections tend to affect future dealings between the winners and the losers. But in cases where such differences can affect the success of the peoples initiatives, including marine conservation projects, giving in for the welfare of the people, rather than to personal sentiments, can go a long way. 6. Multi-sector collaboration. Partnerships between the peoples organizations, the communities, the local governments and NGOs show that working together can indeed achieve long-lasting results. Good relations with the LGUs can lead to better law enforcement and compliance, due to the local governments provision of alternative livelihoods for the potential offenders, as well as equipment and other
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logistical support for volunteer patrolling activities. The presence of an NGO in an LMMA site often serves as the catalyst in establishing marine protected areas and proposing the necessary local ordinances to manage these MPAs effectively; this is possible when the NGO guides the fisherfolk leaders in developing a more-strategic course of action and builds their capacity to take on the job. In all cases, local fisheries ordnance, no matter how comprehensive and perfectly-drafted, can only be effective if the concerned communities are on-board in pushing for the LMMA initiative. The peoples participation, particularly as an organized group, is extremely important in making community-based adaptive management possible. 7. Compliance and enforcement. The tradition of padrino or arbor, which refers to the intervention of people in power in order to free the apprehended offenders from any penalties or punishments, is found to be the most hindering factor to effective law enforcement for the marine sanctuaries. LGU leaders are caught between getting the support of wealthy business people engaging in commercial/illegal fishing in the MPAs, and that of their voting constituents. Politicians who do decide to uphold the interests of the communities are often threatened and made to suffer the consequences of their actions. Even the PO leaders confess that recognition of resource rules is the most challenging aspect of their MPAs or LMMA site management role. A diplomatic approach to the issue and meetings aimed at awarenessraising can gain the commercial sectors interest in marine conservation efforts.
8. Levels of risk and personal sacrifices. The PO leaders and fish wardens cited the importance of trainings in proper approaches to apprehend violators of their fisheries ordinances. Otherwise, these patrolling volunteers may find themselves risking their lives as they run after offenders, without the necessary information to guide them in their law enforcement function. Legal assistance is also required where prosecutions are held. Since these volunteers are unarmed, the support of the LGU is also essential in getting members of the police force, or coastguard, to accompany them every time they go out to the sea for patrolling. All these and other measures to secure the safety of Bantay Dagat volunteers (e.g. accident insurance, medical benefits,) must be institutionalized within the LGUs. It takes time, effort, as well as money, to be involved in marine conservation activities. The PO leaders and Bantay Dagat volunteers admit to taking personal sacrifices in order to continue their active participation in their community activities. Hence, it is important to make ones family know and understand the urgency of the communitys advocacy, not only to make them aware, but also to get them involved. 9. Gender. Women are becoming more empowered and involved in acting on various social issues in their communities. This remarkable progress must also be harnessed in the efforts to protect and manage the coastal and marine ecosystems. The case stories have featured the role of women in the LMMA initiatives, as well as how women in their communities are becoming more active in addressing development issues, particularly those concerning them. Therefore, more efforts should be done to ensure that women fishers also benefit from the LMMA initiatives, including ways that
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would address their issues as women in the fishing sector, and other gender issues that hinder their involvement and participation in resource governance. 10. Tangible impacts. Whether it be a more-concerned community, better fish catch leading to increased income, passing of legislations on fisheries including law enforcement for marine protected areas, generation of additional internal revenue for LGUs allowing allocation of budget for CRM activities, preservation of marine resources, or other evidences of successful marine conservation efforts, the featured stories of Zambales, Batangas and Romblon proved that good governance can produce concrete benefits to the communities, and to the coastal and marine ecosystems. These positive evidences of change in the LMMA sites, resulting from effective resource governance, help sustain the LMMA efforts in these areas and the peoples commitment to marine conservation.
LIST OF ACRONYMS
BFAR BFARMC CBAM CBCRM CRM DA DENR FARMC IEC KAPAMILYA MAO MDC MFARMC LMMA MFA PhiLMMA PO SAMACA SIKAT SFA TWG
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Bureau of Fisheries and Aquatic Resources Barangay Fisheries and Aquatic Resources Management Council Community-Based Adaptive Management Community-Based Coastal Resource Management Coastal Resource Management Department of Agriculture Department of Environment and Natural Resources Fisheries and Aquatic Resources Management Council Information-Education-Communication Karagatan Alagaan ng Pederasyon at Alyansa ng Mangigisda na Itataguyod ang Likas Yaman at Agrikultura ng Romblon Municipal Agriculture Officer Municipal Development Council Municipal Fisheries and Aquatic Resources Management Council Locally-Managed Marine Area Malabrigo Fisherfolks Association Philippine Locally-Managed Marine Area (Network) Peoples Organization Samahan ng mga Mangingisda ng Candelaria Sentro para sa Ikauunlad ng Katutubong Agham at Teknolohiya Sinabacan Fisherfolk Association Technical Working Group
ACKNOWLEDGEMENTS
My sincerest thanks for the time, support and inspiration in completing this publication to all the interviewees: (Zambales) Raffy Apilado, Dr. Richard Reglos, Cristina Reyes, MFARMC Chair Sally Ruiz, Macoy Villanueva, (Batangas) Barangay Councilor Sonny Badal, Jr., Meriam Canatuan, Moli Catada, Barangay Chairman Nicasio Dueas, Rosie Egea, Fredie Evangelista, (Romblon) Mike Cortez, Barangay Councilor Charlie Delavega, Arturo Gutierrez, Municipal Councilor Jerry Mallorca, Pedro Mesana, Municipal Mayor Gard Montojo, Barangay Councilor Edelyn Morada, MFARMC Chair Charles Ramal, and Barangay Councilor Lina Rotoni. Special thanks are also due to the SIKAT staff: Ver Almandres, Edgar Orencio and Jhem Samaniego, for facilitating the logistics for the field research. Finally, my deepest gratitude to the Philippine Locally-Managed Marine Area Network Country Coordinators, Jovy Cleofe (Center for Empowerment and Resource Development) and Chito Dugan (SIKAT) for their valuable support in this research. Abby Mercado Researcher-Writer
Front Cover: SIKAT/Marco Ruben T. Malto II; Page 1/4/12/13/14/19/28/36/37/39/43/45/46/47/48/50/51/52/53/54/55/56: SIKAT; Page 23/24/25/26/27/29/30/32/33/34: SIKAT/Rafael Romulus Catada; Page 2/7/8/9/11/17/20/31/35/38/40/41/42/44/49/53: SIKAT/Marco Ruben T. Malto II; Page 10/15/18/21/22: SIKAT/Gerry Merriman

Philmma Making Governance Work For Marine Conservation

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MAKING GOVERNANCE WORK FOR MARINE CONSERVATION LESSONS FROM THE PHILIPPINES: ZAMBALES, BATANGAS AND ROMBLON

LIST OF ACRONYMS ACKNOWLEDGEMENTS

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

Key issues in governance and marine conservation

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

Key issues in governance and marine conservation 52

Key issues in governance and marine conservation 54

Key issues in governance and marine conservation 56

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