1& A CoIt?ction of Case StitThes ai Community-Based Coastal Resources Management in the

Elmer Magsanoc Ferrer Lenore Pol6tan dela Cruz. ARCHIV Manfe Agoncfflo Domiflgo 104783 Ediors SEEDS OF HOPE Copyright @ 1996

Published by

College of Social Work and Communfty Development University of the Philippines Diliman, Cfty, Philippines in association with

'- NGO Technical Working Group for Fisheries Reform and Advocacy (NGO TWG) , Philippines

Editors: Elmer M. Ferrer Lenore P. dela Cruz Marife A. Domingo

Editorial Board: Evelina Parigalangan (Chairperson) Gary Newkirk Liana Mcmanus Carlito Añonuevo

Cover Design: Ega Carreon

Artwork/Illustrations: Ronald Rasay/Boy Dominguez

Design and Layout: Marife Domingo

Printed in the Philippines ISBN 971-9171 6-O-X

This workwas carried out with the aid of a grant from OXFAM UK/I, HELVETAS and IDRC. /oLl? IDRCLib. SEEDS OF HOPE

A Collection of Case Studies on CommunityBased Coastal Resources Management in the Philippines

ELMER MAGSANOC FERRER

LENORE POLOTANDELA CRUZ

MARIFE AGONCILLOODMINGO Editors

College of Social Work and Community Development (CSWCD) University of the Philippines Quezon City

in association with

NGO Technical Working Group for Fisheries Reform and Advocacy (NOD 1WG) Quezon City

July 1996 Table of Contents

Foreword Acknowledgement Introduction v

Part I: Case Studies

Marine Sanctuary Establishment: The Case of Wetland Park in Danao Bay Arjan Heinen and Aida Laranjo 2

Fishery Sector Program - Community-Based Coastal Resource Management in , Mindanao Dante T. Gauran 23

Reactions to Case Presentation Roger Rica fort and Samuel Formilleza 39

Part II: Case Studies

Mangrove Rehabilitation and Coastal Resource Management in Cogtong Bay: Addressing Mangrove Management Issues Through Community Participation Eutiquio S. Janiola, Jr. 49

The Fishers of Talangban: Women's Roles and Gender Issues in Community-Based Coastal Resources Management Luz Lopez-Rodriguez 67

The Sustainable Coastal Area Development Program in Barili, Joel S. Gutierrez, Rebecca A. Rivera and L. Dela Cruz 83

Coastal Resource Management: The Experience from Eastern Jose Eleazar R. Bersales 99

Reaction to Case Presentation Alt redo Isidro 111 Part Ill: Case Studies

The Formation of Coastal Resource Management Council for the CBCRM of Pagapas Bay Mar/quit Melgar and Mania Rodriguez 115

The Coastal Resource Management Experience in San Salvador Island Jose Car!os Albert M. Dizon and Gloria C. Miranda 129

The Bolinao Community-Based Coastal Resource Management Project (Initial Phase): Towards an Interdisciplinary Approach Elmer M. Ferrer, LianaT. Mcmanus, Lenore Polotan-Dela Cruz and Allan G. Cadavos 159

Reactions to Case Presentation Mar/v/c Abello, Efren Flores and Willie Quizon 187

Synthesis Gary F. Newkirk and Rebecca A. Rivera 195

Appendices 203

Welcome Speech Gen. Valenio Perez (Ret.)

Opening Remarks Prof. Jocelyn T. Caragay

Keynote Address Hon. Oscar M. Orbos

List of Participants FOREWORD

Community-based resource management has been practiced by rural community developers prior to the 1 970s. However, it was not applied to the conservation and management of coastal resources until the mid-1970s. At this time, conservationists were beginning to see unmistakable signs of degradation of coastal environments and depletion of fishery stocks.

By coincidence, the 1970s marked the rise in the popularity of the self-contained underwater breathing apparatus (SCUBA) as a tool which allowed marine scientists and other professional groups to observe at first hand the underwater world. A substantial amount of information gathered by these observers tended to link decreased levels of fishery production to environmental degradation brought about by suth human activies as upland deforestation, mangnwe cutting, and coral reef destruction.

Government's initial response to the deterioration of coastal environments followed traditional lines of action. The Natural Resources Management Center (NRMC), for example, attempted to address the issue by promoting the establishment of 'protected areas' regulated and controlled by the government (top-down approach), with practically no community involvement. This approach did not work, and coral reef areas proclaimed as marine parks continued to be ravaged by fishers and users of destructive fishing methods.

In the mid-i 970s, efforts toward the protection of coastal resources (primarily coral reefs) began with the establishment of Sumilon Island, Central Visayas as a research facility, by Silliman University.The research program of Sumilon, which included some elements of community participation, established the concept of marine reserves in the protective management of coral reefs. Recently, the concept has been extended to include the idea of networks of marine reserves to ensure fishery security. Marine reserves are a key element of today's community-based coastal resource management (CBCRM) projects in the country and are now generally accepted as a management tool by coastal resource managers throughout the world.

The 1980s saw the rapid acceptance of CBCRM as an effective approach to ensure sustainable management of coastal ecosystems, including coral reefs, mangroves and seagrass beds, primarily by non-government organizations (NGOs) and academic institutions.Through CBCRM, several protected areas in the Visayas and Luzon were established and maintained by organized communities, notably on the small islands of Apo (), Balicasag and Pamilacan (), and San Salvador (). Apo Island has attracted many visitors wishing to learn more about the CBCRM approach.

Inthe 1990s, NGOs employing the CBCRM strategy have continued to establish more protected areas.Some of these projects have received support from the Foundation for the Philippine Environment (FPE).

Government agencies, in contrast, were slow to recognize and adopt the CBCRM strategy. The first government-led project to incorporate community organizing was the Central Visayas Regional Project in the 1 980s.In the early 1 990s, two major coastal resource management programs of government, the Fisheries Sector Program of the Department of Agriculture and the Coastal Environment Program of the Department of Environment and Natural Resources have incorporated community participation.

The apparent superiority of CBCRM over other approaches is indicated by the fact that most successful programs on coastal resource management are community-based. The key to understanding why this is so lies in the nature of coastal resources. Unlike most land resources, whose legal ownership is covered by appropriate tenurial instruments, coastal resources, such as fisheries, are open-access resources.Under this condition, there are no property rights, only possession or actual use. This situation has been blamed for unrestricted exploitation resulting in environmental damage and resource depletion. What CBCRM provides to resource-users, through full participation, cooperation and empowerment of the stakeholders, is the sense of being proprietors and claimants of the resources. The organized fishertolk or communities are the de facto day-to-day managers of resources.Such conditions are conducive to protection and proper management of coastal resources.

It is understandable, therefore, why earlier government attempts to manage coastal re- sources using the de jure regime did not succeed.

It is in the light of the foregoing discussion that this book, "Seeds of Hope: A Collection of Case Studies on Community-Based Coastal Resources Management in the Philippines," acquires importance and relevance at this time. For indeed organized coastal communities, the primary stakeholders of coastal resources, are the key players that will help ensure the sustainability of these resources.

The book, which is the result of the proceedings of three workshops attended by project representatives of non-government organizationss, people's organizations, government agencies and the academe in Luzon, the Visayas and Mindanao, provides a balanced sectoral and geographical sampling of the activities carried out in CBCRM projects.

It is hoped that community developers will find the book, which contains case studies and documented concepts, methods and experiences in CBCRM projects, useful in avoiding past mistakes and improving those elements which tend to ensure success.

The Community-Based Coastal Resources Management Resource Center of the University of the Philippines College of Social Work and Community Development and the NGO Technical Working Group for Fisheries Reform and Advocacy deserve a word of commendation for this fine work. Likewise, we congratulate Professors Elmer Ferrer and Lenore Polotan-Dela Cruz, Ms. Marife Domingo and the members of the editorial board for their efforts in ensuring the publication of this book.

ANGEL C. ALCALA, Ph.D. Chair, Commission on Higher Education DAP, Pasig City, Philippines ACKNOWLEDGEMENT

This book,as wellas the Festival-Workshop on Community-Based Coastal Resources Management in the Philippines, would not have been possible without the participation and material, technical and moral support of the following:

the people's organizations and agencies who shared their experiences in the case studies;

the case study writers;

the workshop participants;

the workshop secretariat (Mira, Lyn, Robby, Marife);

the resource persons and reactors;

members of the Editorial Board;

Ms. Heidi T. Cruz for copy editing;

Prof. Milagros C. Laurel for editorial assistance;

members of GAPAS, WALING-WALING, Fredo Lazarte, Allan Forte and Norma Dollaga whose artistry and spirituality made the workshop a real celebration;

Dean Evelina A. Pangalangan and the faculty and staff of the University of the Philippines of the College of Social Work and Community Development;

Dr. Helen Yap and the staff of the U.P. Marine Science Laboratory in Bolinao, ;

Pangasinan Oscar M. Orbos;

General Valerlo Perez and the Gulf Coastal Area Management Commission staff;

Mayor Jesus Celeste of Bolinao, Pangasinan;

Ms Margie Celeste for providing us the energy to sustain ourselves through the workshop;

the religious who assisted in the opening ceremony (Rev. Hanson Caasi, Srs. Sofia Timajo and Milagros Goyena, and the Anda United Methodist Church choir);

the teachers and students of Cape Bolinao High School and Bolinao School of Fisheries;

the staff of Bolinao Community-Based Coastal Resources Management Project;

Oxtam UK/I, Helvetas and the International Development Research Center.

To them we express our sincerest gratftude.

III INTRODUCTION

Seeds of Hope: Lessons from Community-Based Coastal Resource Management Experiences

In early 1 986I delivered a Professorial Chair Lecture entitled "Learning and Working Together: Towards A Community-Based Coastal Resources Management." At that time I describedthe "fragile structureand degraded condition of the life systems of the Philippines" particularly in the Lingayen Gulf.I warned of the seeds of ecological disaster that have been sown in the marine environment and called for the undertaking of "effective community-initiated, run and controlled social organizations as essential instruments in giving meaningful expressions to the views, interests and demands of the rural poor ...".In other words, I proposed a community-based approach to coastal resources management.

A decade hence, the marine environment of the Philippines continues to be degraded and the resources are over-exploited. However, a ray of hope beacons in the horizon as moreand more coastal resourcesmanagement initiatives are undertaken by non- government organizations (NGOs), people's organizations (POs), and local government units (LGUs) either singly or in cooperation with each other.

This book documents the experiences and lessons learned in the implementation of nine Community-Based Coastal Resources Management (CBCRM) programs in Mindanao, Visayas and Luzon.

Our Coastal Areas Continue to be at Risk

The 18,000 kilometers of coastline that surround the Philippines' more than 7,000 islands continue to be at risk.Coastal habitats are degraded and the resources therein depleted both directly (i.e. through destructive fishing practices) and indirectly by massive siltation from deforested upland areas and poor agricultural practices and inappropriate land use activities in coastal watersheds.

Most nearshore fisheries are overfished with extraction rates two to three times above sustainable levels. Of the three to tour million hectares of coral reefs, about 70 percent are in poor to fair condition due to destructive fishing practices and siltation. Mangroves have been reduced to about 450,000 hectares representing about forty percent of the original cover, as a result of conversion to aquaculture ponds and other uses.

This situation is of grave concern to coastal communities and coastal managers as the coast is where the majority of the people live and work.More than 80 percent of the country's population resides within 50 km of the coast of the main islands.

v The fisheries sector contributes significantly to the Philippine economy.It employs over one million people, or about five percent of the national labor force. Approximately 825,000 fishers (part-time or full-time) are in capture fisheries, more than 770,000 of whom are municipal or small scale. An estimated 250,000 are in aquaculture. In addition, another 50,000 people are employed in the service industries - post-harvest handling, processing and marketing, boat-building and equipment manufacture and distribution.

Another cause for concern is the fact that locally captured fish accounts for about 60 percent of the national protein consumption, making itsecond only to rice as a staple. A recent Food and Agriculture Organization (FAO) report indicates that the consumption of fish has dropped from 31 kilos per capita in 1 987 to 28.5 kilos in 1994. Unless urgent coastal resource management efforts are instituted, FAO predicts that the country's fish supply will drop to 940,000 metric tons from the present level of 1 .95 M metric tons, and the per capita consumption of fish will plunge to 10.45 kilos by the year 2010 when the population is expected to reach 94 M.

Overexploitation of the coastal areas is aggravated by rapid population increase. In 1990 the Philippines had a population of 60.7 M, the ninth highest in Asia and the thirteenth highest in the world.It is generally believed that a disproportionate population growth is happening in coastal areas. Many of them are landless agricultural workers who migrate to the coast because access to coastal resources is open and at least guarantees survival.

Moreover, legal and institutional weaknesses handicap the implementation of coastal resources management projects. For instance, it is noted that the Philippines has the most comprehensive set of environmental laws in Asia, but few of these laws are adequately implemented. Most of the environmental and resource utilization issues in the coastal zone are partly caused by non-enforcement of laws,Also, weak coordination and lack of complementation among related national government agencies mandated to implement CAM projects persist.In some cases, government agencies actually pursue conflicting policies. An example is the management of the country's remaining mangroves, where the conservation thrusts of the Department of Environment and Natural Resources (DENR) is in conflict with thDepartment of Agriculture's (DA) aquaculture production orientation.

This continuing pattern of decline, degradation and mismanagement of the coastal zone calls for urgent and effective intervention.

Review of CRM Activities in the Philippines

Within the last 25 years, non-government organizations, people's organizations, academic and research institutions, government agencies and international lending institutions have conceptualized and implemented a wide array of coastal resources management programs in the Philippines.Artificial reefs were laid, marine reserves were established, mangrove rehabilitation was initiated, fisheries management CBCRM projects were undertaken.

vi A review of CRM activities in the Philippines since the early '70s shows that they followed a similar pattern as synthesized by Sorensen in his review of coastal resources management efforts in the world. They went through an eight-stage process:

Stage 1 Incipient Awareness: the need for an integrated coastal management program usually requires either evident signs of coastal resource degradation or extensive destruction from coastal hazards;

Stage 2 Growing Awareness: the need for integrated coastal management program is heightened by the holding of national conferences, workshops or hearings convened by government officials, academic institutions, environmental groups and sometimes by industry interest groups;

Stage 3 National Study: heightened awareness as a result of conferences, workshops or visits by international assistance missions often lead to the preparation of a national studyor conference proceedings analyzingcoastalresources, institutional arrangements and management options;

Stage 4 New Program Creation:studies on the coastal zone lead to pioneering new programs in coastal resources management;

Stage 5- 8 Program Development, Implementation and Evaluation: after pioneering efforts have been undertaken national programs are developed, implemented and evaluated.

In the 1 970s, problems in the coastal zone reached a level where they could no longer be ignored - fisheries declined, coral reefs were battered, mangrove swamps were devastated and coastal communities became impoverished. This initial awareness was heightened through national conferences and workshops on coastal zone management and was given impetus in 1978 with the holding of the "Planning Workshop for Coastal Zone Management".

As early as 1974, Silliman University in cooperation with the town of Oslob in Cebu (Central Visayas), pioneered coastal management in the Philippines by declaring and managing a municipal marine reserve in the waters of Sumilon Island. After ten years of effective management and maintenance of the coral reef of Sumilon, there were very evident benefits for the coral reef ecosystem and the island fishery and in turn for the fishers dependent on the area.

After this initial success Silliman University initiated the Marine Conservation and Development Program (MCDP) in 1984 to organize community-based marine resource management in three small islands in the Visayas. The two-year program proved that it is possible to engage local fishers in the sustainable management of their resources it they are given responsibility in the process.

vii The idea of coastal zone management was eventually picked up by international agencies. In November 1981 US AID sponsored a coastal zone management workshop in where it was suggested that fisheries could be better managed if we moved away from common property and centralized management to local management and property ownership.

The pioneering efforts on coastal management by academic and research institutions were followed by government initiatives.In 1984, the Central Visayas Regional Project-i (CVRP-1) was initiated. The CVRP-1 was a pilot project in regional rural development founded on the principles of devolution and community-based resource management. In 1986, the six member - states of the Association of Southeast Asian Nations (ASEAN) - Darussalam, , , the Philippines, and - began a collaborative effort to develop integrated Coastal Resource Management plans in their respective countries.A direct result of this program was heightened interest at the government policy level and among non-government organizations to address coastal resources management issues. In 1990, the Department of Agriculture launched the five- year Fisheries Sector Program (FSP), which implemented coastal resources management projects in twelve (12) priority bays nationwide.

During the middle 1980s several NGOs piloted CBCRM projects. These NGOs were relatively successful in setting-up marine reserves and sanctuaries (e.g. artificial reef) and in addressing livelihood needs of the local people.

Since 1987, the Department of Environment and Natural Resources (DENR) has committed itself to the immediate rehabilitation and development of mangroves at defined priority sites.In 1992, DENR established the Coastal Environment Program (CEP).

In 1994 DENR began implementing Republic Act No. 7584, otherwise known as the "National Integrated Protected Areas System Act of 1992" in cooperation with NGOs and international institutions.The program is supported through the Global Environment Facility of the World Bank and is being implemented in 10 protected sites.

The Need for Documentation and Synthesizing Lessons Learned

After more than two decades, a wealth of knowledge, experiences and lessons have been gained and learned. However, no systematic documentation, synthesis, evaluation and drawing of lessons have been undertaken. These valuable knowledge and experiences need to be recorded and disseminated in order to help create a critical mass of individuals who share a common perspective, methods and skills for effective coastal resource management.

With this concern in mind, the CBCRM Resource Center (UP CSWCD) developed a proposal for a Festival-Workshop on CBCRM in the Philippines. The project's main aim was

viii to synthesize and document the concepts, methods and experiences in CBCRM and disseminate these among selected NGOs, POs, academic and research institutions and government agencies and international lending institutions to serve as a framework and guideline for advocating and replicating the resource management strategy in other parts of the country. Recognizing the same need, the NGO Technical Working Group on Fisheries Reform and Advocacy later decided to jointly undertake the case writing project with the CBCRM Resource Center.

Learning from Development Workers

While a few case studies on fisheries management have been written, most of these were authored by project consultants and experts. The main challenge for this project was to get the frontline development workers - the community organizers, the environmental educators, the livelihood and resource management extension workers - to synthesize and record their experiences. The goal was to encourage practitioners to draw lessons from the many years of experimentation and innovation in search of effective coastal resource management schemes. The dream was to inspire them to tell their own stories.

The sponsoring organizations realized that in order to meet the challenge capability- building training exercises must be undertaken. Thus, two preparatory workshops were conducted in May 1995. The first was devoted to developing a case study framework and guidelines together with the writers. The second was a training-exercise on case study writing to enhance the writing skills of NGO representatives. At the end of the workshops, the case writers already had a case study guide, a case study outline and a workplan. Participants represented eight NGOs and POs from Mindanao, Visayas and Luzon who have implemented CBCRM projects for at least three years. Subsequently, two regional consultation meetings were organized in (for case writers from Visayas and Miridanao) and Quezori City (for writers from Luzon) to follow-up and monitor the progress of the case studies. Writing the case studies was a painstaking but rewarding experience. Initial drafts were edited and revised by the authors and the editors. A third draft was reviewed by the editorial board.

The third and final workshop was conducted at the Bolinao Marine Laboratory of the U.P. Marine Science Institute in Bolinao, Pangasinan on November 16-18, 1995. Its highlight was the presentation of the following case studies:

MINDANAO

Title/Organization Case Writer

1. Marine Sanctuary Establishment: The Case Arjan Heinen of Ba/ian gao Wetland Park in Danao Bay Aida Laranjo (PIPULI Foundation, Inc., Katipunan, Occidental)

ix 2. Fisheries Sector Program - Coastal Resource Dante Gauran Management in Pan guil Bay, Western Mindanao (The Network Foundation, Inc., Cebu City)

VISAYAS

Title/Organization Case Writer

3. Addressing Mangrove Management Issues Eutiquio S. Janiola, Jr. Through Comm unity Participation (The Network Foundation, Inc., Cebu City)

4. The Fishers of Talangban: Women's Roles Luz Lopez-Rodriquez and Gender Issues in Community-Based Coastal Resources Management (University of the Philippines in the Visayas, City)

5. Sustainable Coastal Area Development Joel S. Gutierrez (SCAD) Program in Barili, Cebu Rebecca A. Rivera (Tambuyog Development Center, Inc.) Quirino L. dela Cruz

6. Building People's Movement for Coastal Junie Ballesteros Resource Management (LABRADOR, Inc. , )

LUZON

Title/Organization Case Writer

The Formation of Coastal Resource Mariquit Melgar Management Council for the Community- Marita Rodriquez Based Coastal Resource Management Program of Pagapas Bay, Western Batan gas (Community Extension and Research for Development, Inc.)

The Coastal Resource Management Albert M. Dizon Experience in San Salvador Island, Gloria C. Miranda Zambales (Haribon Foundation, Inc.)

x 9. Bolinao Community-Based Coastal Elmer M. Ferrer Resource Management Project: An Liana 1. Mcmanus Interdisciplinary Approach Lenore P. Dela Cruz (University of the Philippines Marine Allan G. Cadavos Science Institute/University of the Philippines College of Social Work and Community Development/Haribon Foundation for the Conservation of Natural Resources, Inc.)

The final workshop was punctuated by a festival which featured an ecumenical mass and a concert. Hon. Oscar Orbos, Governor of Pangasinan gave the keynote address during the ecumenical service. The concert showcased the rich maritime heritage of our coastal communities through songs, dances, community theater and visual arts.

The two-day presentation of case studies was capped with group discussions to deepen sharing and analysis of the participants' experiences. Highlights of the small group discussions were presented in a plenary session. The reports were synthesized by Dr. Gary Newkirk and Ms. Rebecca Rivera.

More than 70 participants representing the NGO5, POs, academe, and government agencies attended the Festival-Workshop. Of these, 12 were foreign volunteer and foreign participants from , Canada, U.S.A., Japan and Netherlands.An additional 16 people from the cast of the cultural groups and band were in attendance.

Of the nine case studies presented in the Bolinao workshop, one had not been finalized and did not meet the deadline for publication. In its place, the editors managed to get the Guluan Development Foundation, Inc. to prepare a case study on their CRM experiences which is included in this volume.

This volume has three parts corresponding to the three Philippine island groups - Mindanao, Visayas and Luzon - where the nine QBCRM projects are located.

Part Icontains two cases studies from Mindanao followed by two reaction papers. Heinen and Laranjo discuss how the positive results of establishing a 70-hectare marine sanctuary in Baliangao wetland park in Danao Bay under the four-pronged leadership of a fisher and lay leader, a local priest, a former municipal mayor, and the ecology-oriented PIPULI Foundation came about. They point out that while fast track, "enlightened leadership" approach can bring about positive results in the short-term, only a community-based and process-oriented approach can sustain the program. Gauran's study details the community organizing efforts of The Network Foundation, Inc. in implementing the government initiated fisheries sector program in Western Panguil Bay in Mindanao. He draws some lessorts on the NGO-GO partnership in implementing CBCRM.

xi Ricafort's reaction to the case studies captures the essential points of variation and cohvergence between the two experiences while raising the principle of "obsolescence", among other issues related to CBCRM. Form illeza, commenting on the Danao Bay project, underscores the importance of empowering the people and developing an attitude of partnership with them in attaining a successful CBCRM program.

Four case studies with varied emphases comprise Part II:Visayas Case Studies. Janiola's study of the Cogtong Bay project illustrates how conflicting government resource use policies (e.g. mangrove management) jeopardizes its resource management programs. The study shows how community organizing overcomes this initial problem and transform the community from mere resource users to resource managers. Lopez-Rodriquez analyzes women's role in the coastal community of Talangban and examines the gender issues as it pertains to a community-based coastal resource management. Her study points to the multiple and strategic roles worren play in community livelihood and resource management.

Director lsidro of the Fisheries Sector Program makes a general comment on the practice and prospects of CBCRM in the Philippines.

The collaborative paper of Gutierrez, Rivera and dela Cruz describes the effective partnership between the Tambuyog Development Center and the San Rafael - Cabacungan Fishermen'sAssociation intheimplementation of the former's core program, the Sustainable Coastal Area Development. The study emphasizes the importance of capacity- building in setting-up a CBCRM project.Bersales narrates how initial failures in project implementation did not stop the Guivan Development Foundation from learning its lessons and proceeded to experiment with other methods that eventually gave life to the project. Thesemethodsrevolve around the establishment and enhancement of community organizations, setting up of marine reserves and conducting of income generating activities and research.

Three case studies make up Part Ill: Luzon Case Studies. Dizon and Miranda narrate the experience of Haribon Foundation in establishing the San Salvador Island Municipal Marine Reserve and sanctuary in collaboration with the Department of Agriculture. This paper details the process and elements of what it takes to set up one of the first successful marine reserves in the Philippines. Melgar and Rodriquez traces the development in the formation of Coastal Resource Management Council (CRMC) in the towns of Nasugbu, Lian and Calatagan in provinc.It narrates the initial enthusiasm of the trisectoral partners as they laid down the structures for managing the coastal resources of Pagapas Bay and the early demise of the CRMC as the NGO and the POs battled over differences in perspective.

The last case study in this volume by Ferrer, McManus, Polotan-dela Cruz and Cadavos traces the evolution of a tripartite partnership between two academic institutions, an NGO and the coastal communities to pursue a CBCRM program in Bolinao, Pangasinan.

xl' This study illustrates the difficult yet enriching process of building and nurturing a inter- disciplinary team that learns not only from each other but with the communities as well in order to address the complex social, bio-physical and legal-institutional problems in coastal areas.

Together with these case studies are comments and questions made by Ms. Marivic Abello of the Philippine Business for Social Progress, Dr. Efren Flores, of the Southeast Asian Fisheries Development Center (SEAFDEC) and Mr. Willie Quizon of the Lingayen Gulf Coastal Area Management Commission.

This book is the product of an arduous participatory process of case writing. It involved identifying the CBCRM projects to be featured; identifying the case writers; developing a case study framework and guidelines; enhancing the writing skills of case writers; conducting regional consultation for follow-up and monitoring; and writing, editing and rewriting.But, if we are to empower our local communities to manage their marine environment and other resources, we must have patience to similarly empower our frontline development workers to produce knowledge to assist our local communities implement their coastal resources management activities.

Withthepublicationof these case studies, who can now say that frontline development workers, especially COs 'cannot write'? It is our hope that with this pioneering effort at getting the frontline development workers to tell their own stories that more would be inspired to take time to 'conserve' the lessons of the past so that we could have more seeds' to plant for the future generation.

ELMER MAGSANOC FERRER College of Social Work and Community Development University of the Philippines Diliman, Quezon City

xl" PROJECT SITES OF CBCRMIN THE PHILIPPINES

9

xiv Part One vyvyvyvyvy Mindanao Case Studies Marine Sanctuary Establishment: The Case of Baliangao Wetland Park in Danao Bay

ARJAN HEINEN, SNV Marine Biologist AIDA LARANJO, BWP Staff Member PIPUL! Foundation Katipunan, , Philippines

Using the fast-track "enlightened leadership" Site Profile approach (the enlightened leaders being Iglorioso Agodolo, afisher and layleader, Danao Bay is located on the Northern Father Quarisma, local parish priest,A gap/to shore of Mindanao inthe provinceof Yap Jr., former Baliangao mayor, and PIPULI), Misamis Occidental (see Figure 1). Ninety the.PIPULI Foundation, with funding aid from the percentofthebayislocatedinthe Foundation for the Philippine Environment (FPE), physically established a 70-hectare sanctuary municipality of Baliangao while the inBaliangao within a one-year period.After remaining 10% belongs to the municipality three years of defending and maintaining the sanc- of Plaridel.It encompasses anareaof tuary, positive results are evident, forming the 2000 hectares.The fisheries resources of bases for a sustainable "community-main- the bay are heavily exploited by some 400 tained" sanctuary which serves as a symbol of resident fishers.Like in other coastal a strictly enforced marine management measire. areas in the Philippines, fish catch in Building on this symbol, the PIPULI Foundation Danao Bay has been decreasing. is now engaged/n establishing community-based coastal resource management (CBCRM) for Danao Bay is shallow with a large the whole of Danao Bay. intertidaizone. About54%of the bay area is composed of mangroves, mud flats, reefs and seagrass beds - considered to be among themostproductive ecosystems in the world (see Table 1 and Figure 2).

3 FIGURE I

MAP OF OANAO BAY IN NORTHERN SHORE OF MISAMIS

MI NDANAO

C A MI GUI N

o7 BALLANGAO MARINE PARK 0 U M AG U E T E

BALIANGAO

I 0 DE ORO

0 CITY CITY

OZAMIZ CITY 0 °KOLAM8UGAN

4 FIGURE 2 BALIANGAQ PROTECTED LANDSCAPE & SEASCAPE AND DIFFERENT ECOSYSTEMS

SE4

RE E CR S

TUGA -

SIN IAN 0

MISOM 0 LANDING 0 REEFFLAT

FISH PONDS

,'.o. ; .. ,.. MANG ROVES

5 Table 1: The ecosyEms in Dlnao Bay afld their relative 'Size

Ecosystem Area in Percentage H'tares

rivers.(3, with, a total.of 8 km length) 1 0 mangn'v.es 218 10 fishponds (including abandoned) "25 reet flat (sand with little seagrass) 603 28 reel flat (mud wtth seagrass) 320 14 corals (estimated 100 m wide x 5 km) 50 2 open sea (1 km Seaward from the reef slope) 500. 21

Total 2279

$ourcè: Landsátdafa June 29, 1992' (CourtesV thfN4PiRIA)

Danao Bay is surrounded by five the picture of Baliangao as a society of coastal barangays namely Tugas, Misom, immigrants, it can be stated that Filipinos Landing and Sinian, all in the from Spanish and Chinese origin are the main municipality of Baliangao; and Danao in political and economic actors in Baliangao. Plaridel town. These villages have a total of Descendants of the original Subanen population around 1,300 households, or a population of can no longer be found in the area. 6,000 persons. Aside from fishing, other sources of income are agriculture (, Economic andSocialConditions rice, cattle, mango) salt making, dried fish trading, and some local tourism. Fisheries play a major role inthe municipality of Baliangao. The municipality Migration is surrounded by the sea on three sides: the Visayan Sea in the north, Danao Bay in the The population of Baliangao consists East and Mercialagos Bay in the west. of a large majority of Visayan settlers who arrived in the early part of this century. Baliangao has no large industries More than half of the immigrants came from and is nota major trading centersincethe , an island within sight of Baliangao. highway connecting the cities of The other immigrants came from Bohol and Dipolog runs 12 kilometers southof (22%), Cebu (5%),andother parts of this municipality. The rural character of the Visayas (5%). The descendants of Baliangao is also reflected in the rather these people form themajority ofthe feudal relationships that govern its agrarian farmers and fishers in Baliangao. To complete sector. The sharing system in coconut farms

6 is still 1/3 - 2/3, one part for the tenant and The intertidal zone and the nearstiore two parts for the landowner, with the tenant areas (from the lowest low tide mark to paying for the costs of production. Also in seven kilometers offshore) are exploited by politics, a lot of people follow their leaders most fishers. Majority of them (67%) are instead of taking initiatives by themselves. engaged in part-timefishing.A smaller groupof fishers (called strikers) comes Majority of the people in Baliarigao from the neighboring municipality of Lopez areRomanCatholic, although there are Jaena to fish in Danao Bay. other religious groups like the United Church of Christ in the Philippines, Iglesia ni Kristo Fishing on the seaside of the reef and Seventh Day Adventists. crest (nearshore and offshore fishing) is seasonal. During the months of Am/han (or There are several small non-political the northern moonsoon, from December to organizations in the area.Recently, the April),fishinginthe open sea istoo Department of Agriculture (DA) and the dangerous for small, non-motorized boats. NationalIrrigationAdministration(N IA) Only a few fishersinDanao Bay own organized some cooperatives connected to the motorized boats (wooden boats with 4-16 new irrigation network in the municipality. HP built-in engines), and even these boats have to stay on shore for most of the time World Vision provides a savings and during Amihan. The intertidal zone and the scholarship program which ensures the mangrove areas are exploited year-round. future schooling of the members' children.As of now, these organizations The destruction of the mangroves, the are still very weak.In recent years,the heavy damage wrought on the reef and the churchhas been activein organizing increase in fishing pressure brought about ecological ministries, something very helpful to bymorefishersandthe use of more the resource management program. efficient technologies have contributed to the decrease in catches, as observed by the Though the barangaexerdse certaii pcvers fishers.Ninety-four out of 100 fishers as a local government unit, most political interviewed from Danao Bay experienced a decisions are made at the municipal level. decrease in catch.

Fisheries in Danao Bay The fishers catch various fish species, butone species is especially important. In 1994, PIPULI conducted a survey This is the rabbit fish or danggit (Siganid to determine the number of fishers who use .pj.To protect this species from parts of Danao Bay as their fishing ground. overt ishing,the municipal government Table 2 shows the results of the survey. A introduced a banperiod on harvestingin total of 763 fishers were counted. There is 1988 (see "Resource Management Measures" a possibility that some fishers were counted for further explanation). twicesincea fisher may utilize several fishing gears on a part-time basis. A better estimate is probably 400 full-time and part- time fishers.

7 Table 2: ComposItion of the Fishers Sector in Danao Bay

Ecosystem No. of No. of No of StrikersTotal Fishing Full-time Part-time Techniques Fishers Fishers Used

Mangroves 3 32 42 55 129 Intertidal Zone 9 57 191 55 303 Nearshore 12 101 152 44 297 Offshore 4 5 17 13 35

Total 28 194 402 167 763

Most of the fish caught in Danao Bay During theSecond WorldWar, are sold to fish buyers in Landing. Japanese soldiers introduced blast fishing They, in turn, bring the fish to Calamba in the area.In 1960, people from Bohol town. Onlybigmangrove crabs, and came to Baliangao to harvest the tungog, occasional live lobsters, groupers and the bark of a mangrove tree (Ceriops tagaf), maming (Cheilinus undulatus) are transported which they used for coloring and preserving to Manila. Dried sea cucumbers reach the tuba (local coconut wine). The bark was international market throirgh traders based harvested in such a way that the trees died. in . However, extensive This was also the time when Union Carbide harvesting ofthe high-priced sea cucumbers acquired a mangrove concession.All big resulted in the collapse of the stocks. trees were cut and processed into charcoal. After the logging and bark-gathering Declining Fish Catch activities by outsiders, the local population was left with a denuded forest. A big part Fisheries were abundant in the early has now been converted to fishponds and part of this century. The name Baliangao only 218 hectares of the original 800-hectare mangrove forest isleft. Most of thisis was derived from the Cebuano phrase balay secondary growth of only three tree species sa langawmeaning "houseof flies". which are widely spaced. An exception is a According to folk tales, the place was called seven-hectare area in Barangay Misom, as such because of the multitude of flies where only small-scale harvesting was living off the decomposing fish which just practiced by the "owner".Thisarea still lay on the beach. Old residents claim that harbors 17 speciesofmangrovetrees Baliangao used to have mangrove forests and is nowincluded in the Baliangao so thick that "even dogs found it difficult to Wetland Park. get in and out of the forests".

8 The PIPULI Foundation havebeenreplanted, blast fishinghas diminished and the catch of the fishers has The PIPULI Foundation grew out of increased. an agro-socio-torestry program with the Subanen tribal people of , PIPULF chose for its approach the early the watershed of three provinces. The term establishment of a sanctuary, with secondary PIPULI is a Subanen word meaning "put it focus on organizing ihefishers. Thesuccessof the back". This program started in 1988. project merits a closer look at the approach used.

PIPULI Foundation was officially The Project formed in 1989 for funding requirements, and in an effort to broaden support for its The Misom Sea Sanctuaryis one of ecological thrust.At present, PIPULI is the many sanctuaries established in active in the creation and operation of the thel99Os toaddresstheproblemof Mount Malindang National Park, protecting environmental degradation. The project offers the watershed and the wildlife of one of the a uniqueapproach in termsof last remaining primary forests in the Philippines. conceptualization and implementation. Besides this biodiversity conservation program, PIPULI continues to assist the Subanen One of PIPULI's regular activities was in transforming their lifestyle from a slash- a two-week seminar on ecological awareness and-burn farming system to one that will with participants coming from all over the enable them to live within the capacity of the Philippines.In 1990,a lay-leader from ecological system which God created.At Baliangao attended this seminar. A part of the same time, PIPULI encourages them to the seminar was a visit to a mangrove area keep the positive aspects of their culture near Ozamis City. The lay leader observed and be proud of it.This work involves the that the mangrove areas near Ozamis are in development of organic farming systems, verypoorcondition compared to a real basiceducation, and organizationbuilding. mangroveforest,stillintact, near his Its goal pf working for the protection of nature and residence in Misom, Baliangao. sustainable use of the earth's resources in the mountains of Misamis Occidental led PIPULI The PIP(JLI staff later paid a visit to to also get involved in the protection and Baliangao and were impressed,with the management of Baliangao's coastal resources. beauty not only of the mangrove area but also of the beaches, seagrass beds and In 1991 the PIPULI Foundation chose coral reef.In the succeeding training, Danao Bay as the site for a marine ecosystem PIPULI made Baliangao an exposure site protectionprogram.Through the joint for participants where they helped replant efforts of the foundation, some local fishers, mangroves in some of the deforested areas.In the church and the local government, a 74- 1990, a workshop on mangrove ecosystems, hectare sanctuary was established in 1991. jointlysponsoredbytheNetherlands The set-up of the sanctuary has improved Development Organization (SNV) and the fisheries in Danao Bay. Mangroves theBritish Volunteer Services Overseas

9 (VSO) was held in Misom.Observations A sanctuary keeping the different from the experiences in other coastal areas ecosystems intact could help improve as well as sharing sessions with some of the the fish stocks in the whole bay. fishers and the SNVNSO fisheries development workers helpedconcretizethe idea of To remindthe people within and designinga sanctuaryarea in Misom. outsidetheproject area to live in Meetings were held with fishers from the harmony withnature. PIPULI four barangays closest to the sanctuary believes that only if humans live in area. Half of them thought that the sanctuary is harmony with nature and see themselves a good idea but the other half was against as part of can they survive and enjoy the it.Although community support was not beauty of the earth. very high, the PIPULI Board decided to go on with the implementation phase and garner The specific objectives are: community support in the process. It helped that the Mayor of Baliangao was very much To establish a marine sanctuary in infavoroftheproject. On 3lJuly 1991 coordination with government a municipalresolutionwaspassed agencies,local officialsandthe declaring a 150-hectare sanctuary in community; BarangayMisom. Thus began the Misom Sea Sanctuary project. To effectively implement sanctuary rules through rigorous guarding; and Project Objectives To organize the local communities Together with lay leader Dodong aroundthe issues of coastal Agodolo and Baliangao parish priest Father resource protection and Quarisma, PIPULI formulated the objectives management. forits program in the municipality. Project Implementation The overall objectives of the program are: Initial Steps

To protect the unique mangrove forest Before its entry to the area, PIPULI had in Barangay Misom from small-scale limited contact with the community and the local logging. The area could become a government. The parish priest helped introduce majorsource of seedlingsfor the non-government organization (NGO) to deforested mangttve areas in the tgbn. concerned groups and individuals. Through the church lay leaders, PIPULI started working To restore the reef flat and coral reef in the barangays and established its own as sources of life. lintensive fishing contacts. The local government welcomed fishingwithexplosives, poison, and PlPULls presence, facilitated the public compressors left the fisheries in Danao hearings in the barangays and later approved a Bay with no place to spawn and grow. resolution declaring the Misom Sea Sanctuary.

10 Sanctuary Establishment To demarcate the sanctuary,the bamboo stakes are anchored in the ground There were 11 fishers who operated a and placed 1.25 meters apart.A few bun gsod (fish corral), withinthe area centimeters above the high tide mark,a targeted for the sanctuary. These bun gsods horizontally placed bamboo pole ties these had to be moved outside the area. PIPULI stakes together.This pole serves as an negotiated with the fishers for this purpose. effective fence against outrigger boats Nine of them agreed with the conditions that since they cannot pass in between two they would be hiredto put up bamboo stakes. markers demarcating the boundary of the sanctuary, they would be hired as guards Alsoin 1991, five local project staff and they would get P150.00 for the work and several guards werehired. These involvedintransferringthe bun gsods people underwent seminars on ecological outside the boundary of the sanctuary. The awareness (two weeks), marine ecosystems other two bun gsod owners were not willing (two weeks), and training facilitation. to cooperate.They received P3,000.00 as compensation and eventually also Guarding the area became a difficult moved outside the area. job at the start of the implementation of the sanctuary law.Anyone who entered the In 1991theboundariesof the area had to be confronted, informed about sanctuary, officially called the Misom Sea the ordinance, persuaded to respect the Sanctuary, were demarcated by bamboo vital role of the sanctuary. This demanded stakes. Some fishers and barangay officials a lot of patience from the guards.Still, from Barangay Landing,afterbeing after several attempts atexplainingthe confronted with this new reality, approached sanctuary's function and ordering people to the mayor, claiming that the area occupied leave the area, there were a few stubborn by the sanctuary was much too big.The fishers who continued violating the Mayor himself conducted an ocular visit municipal ordinance. These violations were after which a new agreement was made reported to thepolice and the town resulting in a 70-hectare sanctuary and a 25 mayor.They handled these cases in such hectare buffer zone. No fishing is allowed a way that the violators no longer repeated inside the sanctuary while onlyreef gleaning their actions. during daytime is permitted inside the buffer zone.

Two core areas were created within the sanctuary, one in the mangrove swamp and the other at a natural depression inside the intertidal zone. This place was called by the locals as lum/umay, which literally means hatchery. This place served as a place for fish to hide during low tide. The core areas are off-limits to all human beings, including the project staff.

11 Towards Organizational Sustainability During this seminar ecologicalissues were explained further andrelated with With the sanctuary legally established one's own personal lifestyle and ambitions. and protected by hired guards, Pt PULl next concentrated more on organizational Funds were made available for local sustainability. Forthispurposefour groups who were interested to put their strategies were followed: knowledge into practice. These were used for the establishment of a mini-sanctuary in Gaining more community supportto Barangay Tugas, a pottery project in Misom facilitateguarding and recruiting and a seaweed and oyster culture project in volunteer guards. Sinian. One group engaged inmangrove reforestation without any financial assistance Formation of a sanctuary management from outside. The seaweed and oyster culture board consisting of concerned citizens. area also served as a mini-sanctuary since fishing is prohibited inside. Formal recognition of the Baliangao WetlandParkby the national Towards the latter part of 1993 the government as an Integrated Misom, Tugas, Sinian and Landing Multi- Protected Area System (IPAS). Purpose Cooperative (MITUSILA) was formed with assistance from PIPULI. Establishment of income-generating MITUSILAisstill in theprocessof projects from which the people who registration but a lot of its members are now looked after the sanctuary engaged in voluntary guarding ofthe maintenance could gain a living. sanctuary.

Gaining More Community Support Formation of a Sanctuary Board

With the help of PIPULI, the church of Intheinitialstage,the PIPULI Baliangao organized groups of lay leaders Foundationplayed a majorrole in and church members actively involved in managing the sanctuary. But from the start environmental rehabilitation in the four it already had a vision that in the long run barangays around thebay. PIPULI the management of the sanctuary would conducted three-day seminars on ecology have to be placedin the hands of the in these barangays, discussing the different community. Hence, a sanctuary management ecosystems in the bay, the interrelationship board was eventually formed in March 1994 betweenallcreatures,theroleand to operationalize this vision.The board place of humansintheseecosystems, consistedof15people,namely the problems related to the over exploitation of MunicipalMayor, one Departmentof the marine animals and possible solutions Environment and Natural Resources to these problems. The leaders of these (DENR)representative, onecommunity groups also attended a two-week seminar representative, four guards, four barangay on Ecological Awareness at the Bukagan captains, one staff of PtPULI Foundation, Ecological Association (BEA) in Ozamis City. one church parish representative and one

12 representative of the Batiangao School of Income-Generating Projects Fisheries.During a five-day workshop in April 1994 this board developed their own A fourthstrategy to ensure vision, mission and goals.(In 1995 the organizational sustainability is developing number of board members was reduced to income-generating projects related to the nine, with the number of guards reduced to sanctuary.This is particularly important one, and the number of barangay captains after external funding ended in March 1995. to two). Four former PIPULI staff formed a The sanctuary-board members meet working collective which manages various once a month and guide the four persons in income-generating projects that include: chargeofthedailyoperations ofthe sanctuary.The board members are also Collecting fees from BWP visitors active in bringing sanctuary-related issues (Since June 1991, more than 5,200 totheattention of the municipal people have visited the BWP.) government. Recently, the board members began soliciting support for the sanctuary Crab fattening project from private individuals. Fish marketing project (still to start) Recognition of the Sanctuary by the National Government Ecotou rism

Realizingthat theMisomSea The ecotourism project is envisioned Sanctuary will gain further protection and to become the mainincome-generating generate neededfundingfrom national activity.Tourists will be guided through government,PIPULIapplied for the the mangrove. They can ride a boat and recognition of the project as an Integrated snorkel inside the sanctuary, accompany ProtectedArea Systems (IPAS), The fisherson theirfishing trip,stay Department ofEnvironment and Natural overnightin anice cottage insidethe Resources (DENR) facilitated this request. mangrove and experience the tranquillity Upon DENR'ssuggestion a mangrove- of nature around them. lined river close to the sanctuary was included in the proposed IPAS. A new name, the Resource Management Measures Baliangao Wetland Park, wasalsogiven to the project.Upon approval by Even prior to the introduction of the Congress, the IPAS area will again change sanctuarytworesource management itsnameintoBaliangao Seascape and measures were already being implemented Landscape but presently the name in the municipality. One management Baliangao Wetland Park (BWP) is used. measure prohibited the cutting of mangrove trees without permission from the mayor. As a result, harvesting of mangrove trees was only allowed for construction of local houses, no longerforselling outside the

13 municipality. The ordinance prohibiting the suspension of the management measures. cuttingof mangroves wasinstigated by Blast fishers can also be pardoned by the new DENR administrative orders covering mayor, out of "compassion for their families". mangroves. With the arrival of the PIPULI program A second management measure was in Baliangao, new management measures specifically intended to protect the rabbit were introduced in the form of a marine fish(Siganid sp.)ordanggit. This fish sanctuary and mangrove reforestation. constitutes half of the catch of the fishers These measures were enforced by the from Danao Bay. In the week following new PIPULI staff with the help of the sanctuary moon this fish is caught in great numbers. guards and cooperating community In 1988, the catch of rabbit fish was almost members. PIPULI believedthat a nil for two consecutive months. The fishers community-based approach might achieve and the government believed that this was better results than a government approach. due to the overfishing of danggit, notably Through community organizing and during its spawning time (recruitment exposures,the fishers are able to gain overfishing). Hence they thought that im- confidence so they can start working on a posing a fishing ban (locally known as ban truly community-based coastal resource period) would help solve this problem. management (CBCRM). PIPULI recruited a fisher- organizer who worked with the staff To protect the rabbit fish, a fishing- in the communities. Through their efforts, a ban period was introduced in 1988.The coastal resource management (CAM) ban period starts at 8 a.m. of the third day seminar and a general management after new moon and ends 48 hours later. planning seminar were conducted in the It protects the danggit during its spawning barangays in which the participants period when this fishis most vulnerable formulated a Danao Bay management plan. since it migrates over big distances to and A cooperative and a Citizens Crime Watch from spawning areas. Absolutelyno group were also formed. An exposure trip to fishing (even of other fish species)is Apo Islandnear DumagueteCity was allowed within this period. This arrangedfor the graduates of the CRM management measure is enforced in the seminar. Here theylearnedmore municipalities of Baliangao and Plaridel. No management measures to regulate the harvesting is permitted even inside the fish fisheries, like mesh size regulations and corrals during the ban period.Rabbit fish agreements on the kind of nets to be used that gets inside the bun gsod will still spawn and fishing intensity. before being harvested.

Unfortunately, these management measures are all in the hands of the mayor who sometimesrevokes the measures without prior notice. Although this seldom happens, a fiesta (village celebration), tax payments or elections can be a reason for a

14 Table 3:The Number of Species, Number of Individuals and Length Size of Fishes Encountered During DJving Surveys In 1993 1994 and 1995 (Silfiman University Marine Laboratory)

Criteria 1993 1994 1995

Number of Fish Species 48 75 85 Number of IndMduals per 400 m2 364 617 692 Length Size of the Fishes (cm) 31 6 236 ma. Macrolauna (shells, seacucumbers, seaurohins, 28 48 74 etc.), number of species

Present Situation Based on observations of the fish corral users in 1995, their catches have As ofMarch 1995, guarding the doubled and species they have not caught sanctuaryis done on a voluntary basis. within the last 10 years have reappeared. Until now, six fish corral owners are engaged in guarding for two nights a week. They are Besides improved catches, the effect assisted by a group of 40 volunteers who of the sanctuary on the self-esteem of the havecommitted to guard the sanctuary fishers involved is very positive. The guards once or twice a month. During nights have become active community members when the tide is lowest and a lot of fishers and the sanctuary has given them new hope. are out fishing these guards are assisted Before the establishment of the sanctuary by the fourS BWP staff (formerly PIPULI some fishers saw their catches dwindling staff). and the environment degrading. Withthe sanctuary they see a restored environment Impact of the Sanctuary and an increase in catch. Also, visitors to the project site see it as a sign of hope and The Marine Laboratory ofSilliman theideaof a santuary has been duplicated University undertook a resource assessment in several other municipalities in the province. of the BWP in March 1993, May 1994 and March 1995.The results of the surveys Fishing with explosives has decreased show an increase in the number of in Danao Bay. Before the establishment of species encountered during a diving the sanctuary, several explosions could be survey, an increase in number of individuals heard on a calm day. Now, blasts are heard and a threefoldincrease inmacrofauna only once in a while. Several blast fishers species found inside the BWP (see Table have been arrested by the BWP-guards and 3). All these indicatethatthe sanctuary their cases forwarded to the mayor. hasbeen effectiveinrestoring the coastal environment.

15 Limitations of the Sanctuary violators had to be handled by the municipal government and after a talk with the Mayor, Equity of Benefits they no longer repeated their actions.

Asthefisheries increased in the Sincethe municipal ordinance sanctuary it also increased the catch of the creating the BWP did not have provisions on bun gsod owners who have their traps close penalties for violation, the guards did not to the sanctuary. However, the effects and have any power.Still the sanctuary could benefits towards the fishers in the whole of be maintained through "talking" people out Danao Bay are minimal. Dynamite fishing of the area. The fact that the mayor was has decreased but beginning 1992, trammel supportive of the project was essential in net fishing, locally known as triply, which thiscase. InAugust 1995 a Municipal uses verysmallmesh-sized inner nets Ordinance specifying penalties for violation dramatically increased. These fishers often of rules regulating the sanctuary has been fish close to the sanctuary boundaries, promulgated and approved by the Municipal catching a lot of juvenile fish. These activities Council.This will hopefully facilitate the might very well negate the positive effects guarding of the sanctuary. of the sanctuary on the fish catch further out in the bay. Long-term Sustainability

Fishers who do not use trammel nets At the moment, the BWP is not yet are now asking for regulations on the use of self-sustaining.The income from the these nets.It is the fishers themselves who projects is still too small to pay for a staff of clearlyexpress the need for improved four.Congress has not yet approved the management (see Table 5). They, however, IPAS status of the BWP and the board of the look up to government to manage the coastal BWP is not yet very assertive in protecting resources. the sanctuary although monthly meetings are regularly attended. Law Enforcement Income may increasewith the At thestart,the project experienced establishment of ecotourism facilities. The difficulties inkeepingfishers outof the numberof staffmay still haveto be sanctuary area. Community consultations decreased. The crab fattening project will had not been veryextensiveand some generate more income once the supply of organizing only took place in Barangay mangrove crabs increases. Misom, the barangay in which the sanctuary is located. Due to the efforts of the guards Voluntary guarding will continue. In a and especially the BWP-manager, individual sense guarding has become easier in the violators were warned and as a result they last few years, since more and more fishers left the area. Several times during the first (90%) accept and appreciate the sanctuary. year, groupsof violatorsentered the Guarding, however, will always be needed. sanctuary. They could not be handled by The value of fish and shellfish in the area is theBWP-manager and guards.These so high that the temptation to harvest the

17 fisheries will always be there.With the would set the example for the other guards. integration of the BWP into a management Being rather strict and straightforward, the plan for the whole of Danao Bay, the guarding of main person-in-charge set theright example the sanctuary and enforcement of resource in dealing with violators. management agreements in the bay could be done simultaneously, reducing the costs Outside funding for 3-5 years. The for guarding the sanctuary. fishers are not in the position to spend money on organizing themselves, even if the need A small budget will be allotted in the is felt. Given the approach used, guarding 1996 Baliangao municipal budget of the of the sanctuary has to be done by paid Department of Agriculture (DA). guards. Voluntary guarding as experienced by other programs is probably easier in the Critical Factors for the case ofisland communities and small Success of the Program sanctuaries and even then it takes a lot of time before the sanctuary actually functios. In the case of easily accessible, mainland Local government support in law coastal areaswith no experience in enforcement,andmoral support for sanctuary maintenance(speciallybig rallying popularcommunity support sanctuaries), guarding by paid guards could isvery important.The guards of the be a solution. Like in the case of the BWP, sanctuary have as their only weapon their voluntary guarding can be done after an ability to explain the role of the sanctuary to initial two or three years of outside assistance. fishers fishing inside the sanctuary. When, The results of the sanctuaryinterms of however,faced by armed fishers or increased catch couldbe the bases for groups of violators refusing to leave the future voluntary guarding. area, there is nothing left to do but to report the violators to the municipal authorities. And of course these should support the Remaining Question guards and punish the violators. Because of the rather feudal relations in the The fishers themselves now see the community, projectsinitiated with the need for fisheries management as shown in consent of the mayor are easily accepted by the answers given to the question:"If you the community. experienced a decrease in catch, what would be the reason for this decrease?" (see Committedleadershipofthe Table 4). Althoughonlysixfishers people in-charge. WithoUt theefforts mentioned specifically "no management exerted by the manager of the sanctuary, system" as a reason for the dwindling IgloriosoAgodolo,thesanctuarywould catches, the other reasons given like: "too already have collapsed under the pressure many fishers", "use of destructive gears", of the fishers looking for a bountiful catch. and "intrusion of large-scale fishing boats", Work for the sanctuary is oftentimes is a 24- can also very well be grouped under 'no hour a day job, requiring real commitment management system'. from those in charge. In case of violations, the actions of the main person in-charge

18 Table 4: Reasons Mention ed by the Flshers for the Decrease in Catch

Reasons for Dimiflished Catch es Number of Respondents

Too many fishers 32 Use of explosives and Øolson 18 Gearwith small mesh sizes 16 Large-scale fishermen 14 No management system 6 Other reasons 10

Total 94

Source: Fishers' responses to a questionnaire handed out during a management seminar in December 1994.

Table 5. Suggestions Made by the Fishers to Improve the Fisheries Situation

Suggestions for Improvement of the Situation Number of Respondents

Stopping of fishing with dynamite and poison 51 Mangrove reforestation and protection 24 Banning the use of smaUmeshed nets 18 Organizing and uniting fishers 13 Banning fishing by outsiders 13 Artificial reef and coral reef protection 6 Making other sanctuaries 6

Stopping of harvesting of shells in mangrove areas 1

Fishing farther into the ocean 1

Continuing ban period 1

New fisheries laws 1 Others 5

Total 140

Source: Fishers responses to a questionnaire handed out during a management seminar in December 1994.

19 Also thesuggestionsmade on how to Reference: improve the fisheries situation show a clear questfor improved management of the Silliman University. "Report on the Conduct resources (see Table 5). of the First, Second and Third Resource Assessment of Baliangao Wetland Park, Baliangao, Misamis Occidental. Silliman This request for improved management University Marine Laboratory, Silliman seems to be in contradiction with an existing University, City. notion that fishers are concerned only with what they are going to eat today, and do not worry about tomorrow's catch.

One explanation for this contradiction might be that thefishers' quest for management is directed at the other fishers, not at themselves. Another explanation is that a section of the fishers see the need for improvedmanagement but, sincethe governmentisnotcapableofstrictly implementing management measures, they see noauthority which can provide this management. Without this authority, there is not much more they can do than to struggle for their daily catch.

If the second explanation is correct then it would be enough for the intermediary organization (PIPULI)to provide an authority(community-based) that is capable of implementing management measures. This task isdifficult enough.In case the first explanation is correct, a cultural change would be needed. We believe that a good portion of the fishers, workingclose to nature, see thelong-term effects of short-term decisions on the future fish catch. In Baliangao, a shift from an outside authority to a community-based authority would require a major and even difficult change, but one thatis not impossible to make.

20 Testimony Iglorioso Agodolo Coastal Manager, Baliangao Wetland Park (BWP) Katipunan, Misamis Occidental

Not so long ago, Baliangao was called Balay sa Langaw, which means "house of flies". Baliangao was called this way because of the multitude of flies living off the decomposing dead fish on its beachesIn 1956 fish was still very abundant and the mangrove was still intact. In 1958 people from Bohol came in sail ships or boats to buy the bark of the baknaw, a major mangrove species, for the coloring of the coconut wine called tuba.In 1960 Union Carbide started to buy charcoal made of mangrove trees. In 1964, the whole mangrove area in Baliangao was already barren of trees except for a small area which is now part of the sanctuary. Emiliana Pagasi-an did not want this part of the mangroves destroyed since she reasoned that this was not hers but her children's heritage. Because of the degraded mangroves, fish and shells became scarce.In 1990, the Baliangao Parish sent two of its Iay"Ieaders to the "Ecological Awareness Seminar" of the :;PIPULI Foundation. These were Bibi Mijos and I.During this seminar we were exposed to the uplands mangroves and the seaDuring the sharing at the end of the seminar we :suggested that an exposure should be done in Baliangaoin the future because of its intact sea and mangroves. This suggestion was picked up and since that time a lot of people have been visiting the sea and mangrove area in Barangay Misom, Balingao. In their visits, the visitors always expressed hopes that this part of the natural environment be protected.In 1991, the Board of PIPULI, headed by Bishop Dosado, suggested that sincePIPULI is protecting the forest, thenit should also be involved in the protection of the sea.Neil Fraser, the director of PIPULI, started a dialogue with Mayor Yap of Baliangao Municipality, who suggested that PIPULI should draft a resolutionwhich would be discussed in the Sanggwiiang BayanOn July 22 1991 the resolution declaring a marine sanctuary in Barangay Misom passed the Sanggunian Initially, three people started to work on'the sanctuary.Yak-Yak, a community organizer from PIPULI and Iwere in charge of the community work to explain the project to the people of the four barangays around the project area One other staff started with the mangrove reforestationA meeting took place with the group of fish corral owners who had their fish trapinside the proposed sanctuary areaThey agreed to move their traps in exchange for the assurance that they would be employed as workers and would function as guards. Thus, PIPULI started in Baliangao with five staff and seven guards. During the first year of the project we encountered a lot of problems and difficulties We even had to jump for our lives when we were shot at by a group of fishers who robbed the sanctuary. However, we never lost hope since the municipality, the different churches and PIPULI supported the project. The Mount Carmel Parish Church conducted a lof of seminars as part of its ecological ministry and the P1 PULl staff gave seminars on marine life and coastal resource management By 1992 the number of fishers who had to be talked out of the sanctuary became lessIn 1993 PIPULI conducted a seminar for the newly established Board of the Baliangao Wetland Park The Board was composed of the mayor, four barangay captains a representative each from the DENR the Baliangao School of Fisheries the church and the community and two sanctuary staff They have monthly meetings In March 1995 the funding from FPE ended and guarding of the sanctuary became voluntary This was done by the old guards and the members of the staff together with members of the newly formed MITLIS1LA Fisherfolk Cooperative We believe that this will be sustainable since we see the positive effects of the sanctuary

21

The Fishery Sector Program- Community-Based Coastal Resource Management in Panguil Bay, Mindanao

DANTE T. GAURAN, Training Specialist The NetwoikFoundation, Inco,porated(TNFI) Cebu City, Philippines

Thisstudydiscussesthe community activities such as micro-lending and cooperative organizing experience of The Network Foundation, stores.Land-based economic activities were Inc. (TNFI) implementing the coastal resources also started which in some ways reduced the management component of the Fishery Sector fishing pressure in the bay. Program (FSP) in Pan guil Bay, northwestern Mindanao. The casestudyalso highlights the challenges inforging a working relationship Community organizing effortsfocused on between government organizations (GOs), non- capability-buildingoffishers/s take holders as government organizations (NGOs) and participating partners in coastal resources management. coastal communities as they organized themselves Knowledge and skills in planning,organization towardscoastal habitatrehabilitation and building, mobilization, value formation, and management in Panguil Bay. cooperativism were enhanced through a series of training, education-information campaigns, The experiencedemonstratesthat cross-site visitations, seminars and workshops with organized coastal communitiescaninitiate fishers and local officials. developmentof a community-basedmarine resource management system.It is clear that Communityorganizing resulted in the these fishers who once were blamed for much formation of 57fishers'associations in 57coastaf of the coastal resource degradation could be barangays which were latertransformed into transformed tobecome effectiveresource cooperatives undertaking small-scale economic managers

23 Site Profile development has penetrated this area. This is happening partkularly in the munidpaldies of Panguil Bay in northwestern Mindanao and in province. is sharedbythe three provinces of Zamboanga del Sur, del Norte and There are over6,000 fishers who Misamis Occidental. Because of its size, the exploit the bay as their fishing ground. The bay falls under three administrative regions continuing use of non-selective gears and covering two chartered cities ,10 municipalities destructive fishing methods like sanggab and 76 coastal barangays. The bay has an area (filter mesh nets), mechanized sudsud (push of approximately 18,405 hectares with a tooth like nets), blast fishing, cyanide fishing and illegal shape and a coastline extending 116 kilometers construction of fish corrals are the main causes from end to end. The narrowest point in the of overtishing in the bay. Siltation due to soil bay is 1 .7 kilometers located in the channel erosionfromthe uplands is also very betweenSilanga, City and the apparent near the mouth of the 32 major rivers municipality of Tubod in and 22 minor tributaries and creeks of Panguil (see Figure 1).It gradually slopes longitudinally Bay, thus significantly contributing to the destniction from 5 meters at the mouth of Lintugop river of marine habitat in the coastal areas. to a depth of 20 meters just before the Clarin- boundary. Panguil Bay falls under climatic The Fishery Sector Program (FSP) condition type 4, characterized by an even distribution of rainfall throughout the year. The Fishery Sector Program (FSP) is a government program funded by the Asian The bay - the richest shallow-water Development Bank (ADB) and the Overseas fishing ground in Mindanao - has been a Economic Cooperation Fund (OECF) of Japan. natural spawning ground and nursery of Its main goals and objectives are to:1) penaid shrimps and other crustaceans, mol- rehabilitate the country's coastal resources; luscs, other invertebrates species and marine 2) undertakefishery policy reforms which finfish.Its hydrological characteristics and limit further exploitation of the fishery so as confined waters makeitidealfor not to affect the environmental status of aquaculture. coastalresources; 3) strengthenthe capabilities of the fishery agencies concerned; In 1950, mangrove cover was estimated 4) alleviate the extensive prevalence of poverty at 12,590 hectares. Rapid development of among fishing communities; and 5)increase fishponds within the bay has now left only aquacullure production within ecological limits. about3,623 hectares of mangrove cover, which is not solidly compact.It includes The five-year program began in 1990. secondary growth of nipa.A total of 93 It has six components namely: resource hectares of coral reef areas are located at and ecological assessment, coastal resource Hulaw-tiulaw between the stretch of Clarin management,lawenforcement,credit, and Ozamis City area. Its estuarine waters research and extension, infrastructure, and are heavily silted and expansion of fishpond community organizing.

24 FIGURE 1 MAP OF

PANGUIL BAY QU DUMAG TE ciiiI' GUIN

k

MISAMIS OCCIDENTAL

LANAO DEL SUR

B C L AR IN MISAMIS. OCCIDENTAL

OZAMIZ CITY

ICOLAMBUGAN TANOUP CITY BONIFACIO TUBOD -4

BA ROY C, LANAO DEL NORTE IC A PATAOAN

LALA

25 Fishery Resources and Ecological Credit. This is to support the income Assessment. This component involved the diversificationprojectsfor small-scale conduct of scientific studies on the status of fishers and the intensification of aquaculture Philippine fisheries that could provide national production. A seed fund was provided to government sound bases for fisheries management supplement the government's Integrated and development. The studies form part of Rural Financing Program (IRFP).Alternative the National Fisheries Information System financing schemes have been studied to which continuallymonitorsfishstocks, incorporate NOOs and fishers' cooperatives habitats, ecological parameters and socio- asfinancialintermediaries.Moreover, economic indicators. Aquacuure areas were private banks were identified and accredited to surveyedsothatthe Fishpond Lease extend more credit to the sector through a Agreements of unproductive ponds could guarantee fund scheme. be cancelled and those that would not be suitable for further developmentcould be Infrastructure. Through this component, reconverted into mangrove areas. post-harvest facilities such as fish landing, cold storage and processing centers were Researchand Extension. This made available for the sector.Research component included the following: 1) preparation was undertaken to develop and promote of acomprehensiveNational Fisheries technologies which would reduce spoilage Research Program;2) networking and and upgrade the quality of fishery products. upgrading of existing research facilities; 3) provision of scholarships and training programs Coastal Resource Management to meet long-term research and extension (CRM), the centerpiece of the program, has the staffingneeds; 4)expansion qf fishery following objectives: 1) rehabilate, regenerate, extension services; and 5) conduct of specific and manage on a sustainable basis the priority studies such as sea ranching and fishery resources of the coastal zone (which fish farming; impact evaluation of artificial include fish stocks as well as their habitats); reefs; red tide investigation and monitoring; 2) reduce and eliminate destructive and and tuna and cephalopod exploratory fishing. polluting factors which degenerate coastal resources; and 3) lessen overfishingby Law Enforcement.Successful law assisting municipal fishers in goinginto enforcementand etfective protection of diversified income-generating activities. marine resources in the Philippines require decentralized efforts, organized and based Panguil Bay is one of the 12 priority on individual fishing communities. Thus, bays underthe FSP where coastal resources assistance in terms of training and logistic management is tobe implemented. support were given to community-based task Community Organizing (CO) was identified forces composed not only ofthelocal as the main strategyfor achieving CRM police and government personnel, but also objectives, Implementation of the CO component of the fishers themselves. wascoursedthroughnon-government organizations (NGOs) with expertise and

26 track record in this field.Thus, in April Assist in organizing,trainingand 1991, The Network Foundation, Inc. (TNFI) facilitating the formation of CBCRM entered into a two-year contract with the committees atthe barangay and Department of Agriculture to undertake GO- municipallevelsthat wouldplan, CRM activities in Panguil Bay. implement, coordinate, monitor and evaluate CBCRM strategies (like marine TheCOprocessbeganin 1991 buldid reserves, mangrove rehabilitation, not continuously push through due to delays etc.) and resolve conflicts arising from in the renewal of contracts between the the implementation of these strategies; Department of Agriculture (DA) and TNFI. Organize and train fishers'organizations/ Underthetwo-year contract, the cooperatives to: a) improvefishing Network Foundation was tasked to assist 57 operations through the use of appropate fishing communities/barangays around andecologically soundharvest Panguil Bay and their local government units technologies,monitor and regulate to develop their capability to plan and implement theirfishingpractices,carry out CBCRM that will: 1) rehabilitate the coastal resource enhancement projects, fisheries, 2) ensure equable access to resource; reduce post-harvest loss, introduce! 3)) control illegal and destructive fishing; 4) improve product quality, operate and reduce fishing effort to sustainable harvest manage post-harvestfacilities and level and, 5) alleviate poverty through income improve/strengthen marketing strategies; diversification. b)develop, operate and manage income diversification projects in order to reduce In facilitating the community organizing fishingpressureand supplement process for CBCRM in Panguil Bay, the income; c) make decisions regarding NetworkFoundationhadthe following fisheries management, collectively objectives: consult their sector, exercise democratically preferential use rights, Involve the fishing communities and settle disputes, present their interest, local government inidentifying and and influence policies; and d) analyzing resource management advocate resource management prthlems as well as plannhg, implementHig, regulations and related policies to LGUs monitoring and evaluating strategies and other mandated agencies. and actions to deal with the problems; To achievethese objectives, the Conduct public education among all sectors of community organizer of TNFI acted as a the communityto raiselevelof catalyst in the learning and organizing awareness, concern, knowledge, process, and served as a unifying agent who supportandparticipationin the facilitated consolidation of the community implementation of program actions as managers of their coastal resources.It and strategies; was envisioned that the process would help

27 thecommunity(particularly the fishers) The implementation was thus done through realize that they have the capability to be theregionalgovernment offices,non- resource managers if they think and act as government organizations, and the community a single community. groups.

CBCRM Philosophy and Principles Hence, the underlying theme of CRM was always the interconnection of the various The philosophy of CBCRM under this resource systems and the activities of people in program is founded on the principle that relation with the environment.First, this well-organizedsustenancefishers! interconnection was considered in designing stakeholders are in the best position to the technical aspect of the plan. Second, manage the coastal and marine resources. there was an integration of the various actors in To this end, the FSP-CBCRM underscores the management of sites. The actors were the importance of fishers' participation in both the resource users and their respective the decision-making process and their interest groups, and themanaging agencies attitudinal transformation from mere users such as the municipal governments, regional to resource managers. This, however, must offices, law enforcement officers, NGOs, and emanate from a clear understanding of the the community groups.It considered the interactions between the physical environment economic sustainability of the resources and and the human organizations involved in a universally accepted management plan. managing the coastal areas. This was the people's guide in sustaining the benefits of A basic principle of CBCRM is the the environment they depend on. interconnectedness of the environment, the ecosystems, and the human resource users. Implementing Mechanisms Besides fisheries and resource use, it includes various aspects of community life such as Overall coordination and monitoring of human settlements, recreation, water quality, the FSP was donethrough a Program local pdlitics, among others. The coastal Management Office (PMO) based in Manila, zone and its resources make up a dynamic established by the lead executing agency, system with many interactions and requires the Department of Agriculture (DA).Effective other management considerations besides technical assistance was provided to facilitate fisheries and resource use. Moreover, interest initial implementation. This ensured that the DA groups often play an important role in decision- and other concerned agencies were adequately making about how to manage coastal resources. assisted in their conduct of the various activities. Another major principle of FSP's CRM The program also designated Special istheinvolvement of communities and Assistants for Fisheries Development (SAFDs) municipal and provincial governments. FSP to provide managerial!technical guidance and intends to design CBCRM plans which are site- specific and generated from the participation of administrative/logistics support to Provincial people residing and working in the sites. Fishery Management Units (PFMUs). The three

28 SAFDs for Panguil Bay were mostly Assistant Program Activities Regional Directors and Division Chiefs of the Regbnal DA, duly designated i crxcurrent capafties. The activities of the program were carried out through theimprovement of marine The Program established PFMUs in all resources administration by LGUs and concerned six provinces covering the 12 priority bays and the agencies. Likewise, more effective coordination regons. The PFMUS were under the ninistiative of research activities and proper enforcement jurisdiction of the Provincial Agricuural Officers of existing laws were done. Decreasing fishing c DA(ncwdevclvedto bcalgcwernment units (LGUs). efforts in heavily exploited areas as well as rehabilitating the coastal environment were The program, which commenced in 1990, seen as necessary while establishing alternative operated for five years with full anticipation livelihood activities for fishers. that the program's functions would be fully integrated into the participating agencies. The general approach employed for field management wasto involve thecoastaI Theagencies and/or institutions communitiesinthe decision-making and involved in the implementation of one or implementation process. Regulatory functions more aspects of the program were: were encouraged at the municipal level to complement national laws affecting coastal Department of Agriculture (DA) resources.Decisions made involved the Bureau of Fisheries and Aquatic participation of the communities, municipal! Resources (BFAR) city governments, Department of Agriculture Philippine Fisheries Development (DA), DENA regional offices and non- Authority (PFDA) government agencies working in the areas. Agriculture Credit Policy Council (ACPC) To ensure the viability and sustainability Department of Environment and Natural of the community organizations, continuous Resources (DENR) Environment organizational &rengthening, institutional Management Bureau (EMB) support, networking and fostering of a bay-wide fisherfolk movement were undertaken towards the Philippine Crop Insurance federation otthese cooperatives atthe provincial level. Corporation (PCIC) One of theaccomplishments of the Land Bank of the Philippines (LBP) community organizations for them to manage their own resources wasto acquirejuridical Guarantee Fund for Small and personality. This led to the transformation of the Medium Enterprise (GFSME) organized fishers' associations into full- fedged primary cooperatives. Adequate train- Non-Government Organizations (NGOs) ing in cooperativism,conflict resolution, law enforcement and regulation, and CBCRM was Local Government Units (LGUs) conducted in each barangay. Towarristheend

29 of the Year 2 Phase Ii project implementation, TNFJ's Experience in the formulation of a CRM planby the fishers' Implementing CO-CRM cooperatives and the community members had evolved. The Network Foundation, for its part, It was in April 1991 when The Network formulated the cooniinatkn and linlge framework Foundation,Inc. (TNFI) began its for the institutional linkages that were forged preparatory activitiesin organizing after it between andamong local government entered into a contract with the Department units, national government agencies, non- of Agriculture (DA) to undertake the Phase I government organizatkns, and other partkipating Year 1 (April 1991-May 1992) ofthe sectors.The Network Foundation, being the program. Phase I focused on the formation contracted NGO, was tasked to initiate community of community organizations. A total of 28 entry, facilitate the organizing and training coastalbarangaysalong Panguil Bay process, and provide support by encouraging (covering three provinces and three the community, LGUs and concerned agencies administrative regions) were pre-identified tocontinuously coordinate and establish by the respective provincial offices of the linkages. This mainly emphasized that The Department of Agriculture in the three provinces. Network Foundation's community organizers Of the 28 of this total, 11 coastal barangays would eventually get out of the area after are in Lanao del Norte,12in Misamis three to four years.It also made sure that Occidental and three in Zamboanga del Sur. thesectorsconcernedcould relate effectively with each other even during post- In November 1992, after almost a seven- project implementation. month gap in project implementation, another contract for TNFI to undertake the Phase II Year This initial effort generated commitment 2 (November 1992-October 1 993)of the program for technical and financial support by virtue took effect. Community organizing was done of a Memorandum of Agreement (MOA) executed in a total of 28 existing barangays covered by the concerned sectors. Further revisions during Year 1 Phase 1 and another29coastal and validations of the plan at the municipal level communities were added as expansion barangays. were likewise conducted to consider resuits of From the total, 24 are in the province of studies conducted by research institutions on Misamis Occidental and five in Zamboanga CBCRM and livelihood diversification programs. del Sur. The expansion to baran gays in Lanao del Norte province was implemented by another The partner NGO therefore assisted NGO. After two years of project implementation, targeted groups in the actualization o a total of 57 coastal barangays in Panguil Bay CBCRM plans through community werecoveredbyTNFl.In the middle part organizing and did not impose its perspective of Year 2 implementation, these organizations in achieving the expected outputs. Initially, were transformedinto cooperatives and during this process, the NGO staff acted as a registered With the Cooperative Development facilitator orgo-between continuously Authority (CDA). Each cooperative should bridging communication lines between the alsohaveitsowncoastalresource community leaders and government agencies. management plan by this time.

30 The Community Organizing Process revision of the annual work program of every target barangay. To signify their commitment to In preparation for program implementation, support the program activities, municipal TNFI hired qualified local people to perform mayors and barangay chairpersons of the community work in addition to its existing project sites became co-signatories in the staff. Of the total personnel that were finally annual work program document. hired, 67% were community development organizers and the rest were technical and Results of organizational assessment administrative support staff.Prior to the conducted among the existing fishers' deployment of field personnel, a week-long associations became the field personnel orientationwas conducted to enhance guidein deciding whether to strengthen knowledge and skills of project staff about existing organizations or form a new one. the program. The training was conducted by staff from the Project Management Office Formal orientationmeetings on the (PMO) in Manila and a composite training FSP-CBCRM program were conducted team from the TNFI Head Office with the among officials and members of the LGUs assistanceofrepresentatives from the from the barangayto the municipal level. RegionalOffices ofthe Department of Support and acceptance of the project were Agriculture (DA).Annual provincial work indicated throughBarangay Council programswere jointly formulated and Resolutionsandissuance of Letters of finalized by the project staff and DA personnel Acceptance from the Municipal Mayors. involved inthe FSP implementation. Presentation and validation process of work Barangay-level general assemblies programs with LGUs at the barangay and explaining the program were facilitated by municipallevelshelped raise the local the respective barangay councils with the officials' awareness of the FSP-CBCRM assistance of TNFI staff. Fishers and other programs and strengthened their support interestgroups wereencouraged to during implementation. participate. Formal training on FSP-CBCRM, as well as OrganizationalDevelopment, A data-gatheringinstrumentto was conducted for key leaders/core groups prepare barangay profiles was used. Also, andall leaders who eventually became an organizational assessment instrument serious in forming themselves into fishers' was developed to determine the strengths associations. andweaknesses of the existing fishers' associations.These two important activities At the end of the two-year contract, TNFI served as one of the bases for validating field staff successfully facilitated the formation and planning with the communities. of 56 new fishers' cooperatives in the project sites. The 57th was an existing cooperative Community Entry both during Year 1 formed under the SamahangNayon project and Year 2 started with the presentation, which TNFI helped strengthen through a validationand in some instances the series of organizational development activities.

31 CO-CRM Components Cooperative Development.Since majority of the fishers'association TNFIidentified major elements members are poor, and using the DA policy necessary to ensure sustainability of GO- mandateaspremise, the TNFI staff CRM. These include: proposed an option to the fishers' associations to save the budget for meals Institutional Capability Building. and snacks.Thus, savings accumulated Members of the Training and Education from every training conducted by TNFI was Committee and selected members of the used for organizational operations instead. cooperativeswerefurthertrainedto This seed money helped a lot to defray enhance their skills and knowledge on expenses in the registration of their CBCRM and in preparing training associationsinto cooperatives.Audited proposals and modules. This would prepare financial statements revealed that the funds them to function as the training management generated from these training were placed unit of the cooperative. under general funds.

Orientation and awareness-building on Cooperative members also continued coastal resource management among school paying their paid-up capital over time. The children were also conducted in all elementary TNFI staffconductedPre-Membership schools within the project sites. A student Education Seminar (PMES) for the new from one of the barangays even emerged as members of the cooperatives. This happened a national winner in a DA-sponsored short story after the contract was terminated in October and painting contestduring theannual 1993. celebration of Fish Conservation Week. IdentificationofLivelihood The conduct of monthly regular board Projects Consistent toprogram of directors (BOD) meetings and Fishers' objectives, the TNFI staff helped prepare Cooperative (FC) meetings was encouraged. project proposals for the livelihood projects Minutes of the meetings were well- recorded identified by the cooperatives. Most ot them and prepared by the Secretary.Issues and had already availed of financial assistance conflicts arising from project implementation through short-term loans from the Department were tackled during monthly FC meetings, of Social Welfare and Development which led to their immediate resolution. (DSWD). The credit component of FSP was activated only in October 1993 after the termination of the contract for Year 2 Phase II.Only a few cooperatives with economicactivity and whict hadreally prospered werequalifiedforfinancial assistance. Majority of the thriving cooperatives didnot quality evenforaccreditation because ofthe stiff requirements of the

32 Land Bank of the Philippines (LBP), the official Monitoring and Evaluation. Three depository of the seed money for FSP. monitoring instruments were introduced and Meanwhile, it was realized that livelihood used by the cooperatives. One instrument was projects should be labor-intensive to generate used to monitor CBCRM activies. This helped employment for members of the cooperatives. the TNFI staff identify and strategize activfties to support the programs of the cooperatives. CBCRM Interventions. Until the Another form showed the issues and problems end of the contract,full implementation of encountemd by the FC and the recommendations theapproved technicalinterventions identified.The last intrument was used to identified by the fishers' cooperatives was monitorthedailyfish catch. This was not yet realized. The Department of Agriculture regulrlyaccomplished by one full-time isexpected to provide the technical and fisherrepresentativeper cooperative. materialinputsto theseinterventions. The results of this activity helped the TNFI Construction and installation of concrete monitor the increase in catch and fish stocks artificial reefs by members of the Fishers' once management interventions were Cooperatives (FCs)withthe assistance implemented by the project participants. The and supervision of DA had just started. This aforementionedactivitieswere done by was done by two fishers' cooperatives in the cooperatives themselves and lasted until Clarin, Misàmis Occidental and two fishers' August1994, ten (10) months after the cooperatives in Maigo, Lanao del Norte. project termination in October 1993.

Law Enforcement. In the province Changes Brought About of Misamis Occidental, members of the by the Program cooperative,regardless of gender, were deputized as fish wardens. They conducted Attitudinal Transformation patrols withintheir respective municipal waters and apprehended fishers engaged in The various training and organizing destructive forms of fishing. Filing of activitiesconducted forand with the charges against the violators deterred other beneficiaries not only helped them acquire fishers from using illegal fishing practices. knowledge and skills in CBCRM but also Othersvolunteered to demolish their resultedinattitudinaltransformation of the submarine filter fish nets (locally called stakeholders. They no longer saw themselves sanggab), particularly the organized fishers' as mere resource users or exploiters but as cooperatives, upon the insistent demand resource managers as well. The collaborative by the barangay residents, the local government efforts in project implementation between units,and the DA. Itis envisaged that IN Fl, the coastal communities, and concerned CBCRM committeeswould persistently agencies helped assure sustainabilityof FSP initiate the CBCRM movements in their CRM. Thisis evidenced by the fact that respective areas and eventually the whole members of the cooperative, by themselves, cooperativewouldcarefully watch and discouragethepractice ofdestructive effectively manage the coastal areas. fishing methods.

33 Membership in the associations, and Problems, Issues and later the cooperatives, brought the people Lessons Learned closertogetherand allowed them to gain confidence in their own capabilities. The Network Foundation's implementatk)n of the CO-CRM component of FSP was beset Membersof the cooperativesbenefited by several problems and issues, among from the availability of basic commodities which are the following: sold in their consumer store, while providential loans weremade available to cooperatives On Community Organizing engaged in micro-lending. For two years now, interests on capital and patronage refund In implementing CO activities of the have been declared at the end of the year. FSP-CRM, TNFI had to follow an agreed Different mechanisms for sharing the gains workprogramwhichtranslated the were established by each cooperative. For conditions under the Terms of Reference the first year, however, patronage refunds with the Department of Agriculture. Though and interest on capital were returned to the the DA allowed INFI to innovate in CO

cooperatives to increase their investment approaches and strategies,the NGO had to capital. After the closing of 1994 transactions, strictly follow the timetable contained in the most of the fishers' cooperatives declared contract. gains anddistributed these to members according to the principle of cooperativism. Outputs, be they quarterly or annual, Cooperatives have gained toppriority to had lobe delivered as programmed. Hence, receive governmentassistance,particularly there was a strong pressure to cut short livelihoodandotherforms of income- important organizing processes, just so that generating activities. the NGO could comply with the contracting agreements. Use of the sudsud(mechanized pushed nets) has been regulated, and this One example was the insistence of has contributed to the regeneration of some some DA officials and LGUs to federate the bivalves (mostly brown mussels) along the newly-formed cooperatives.Although an coastline, particularly those found near the attempttodo so was actually made, bottom of the bay area.Individual fishers guidelines from the CDA prevented primary collect and sell them to fishpond operators cooperatives from federating unless they as supplemental feeds to prawns, thus complied with the criteria set by CDA. providing them with additional income. Moreover, the CRM plans and The removal of most units of sanggab livelihoodactivitiesprepared by the (submarine filter nets) also contributed to cooperativescould not be implemented the increase in volume and sizes of marine accordingly due to lack of capital funds. products caught by fishers. This is according to FSP-accredited banks had very high interest observations of fisher-beneficiaries. ratesbeyond the capacity of the newly- 34 formed cooperatives. The non-implementation organizing and strengthening cooperatives, of CBCRM plans in some areas was due whose members are mainly poor fishers, partlyto inadequate provision of technical take time because they always give priority assistance from the concerned agencies. to their means of livelihood to ensure their families' daily survival. The gap of seven months between the termination of TNFI's Year 1 Phase 1 The slow generation of the required contractand the official start of Year 2 capitalbuild-up also delayed the Phase IIactivities created mistrust and cooperatives' registration with the CDA. negative perception among some fishers Preparationofvoluminousdocuments from some barangays covered during Year required by the CDA for registration also 1. Hence, upon their return to the sites, the added to the delay.These documents field staff had to regain the people's trust needed detailed review before submission. and re-establish rapport. Itis therefore Oncethe papersreachedtheCDA, advisable for the community organizer not background investigation is doneinthe to leave the community for a long period field as basis for appropriate action. especiallywhenfishers are just newly organized, to avoid repetition of earlier Because of the intensified training and phases in the organizing process. capital build-up formation coupled with the unpleasant experience wfth previous government A lessonlearned by the NGO in projects,especiallythosewithcredit community organizingisthatthe FCs components, some fishers declined to become effectively/cohesively respond to programmed members of the cooperatives . Only those activities when the community development who werereallyinterested despite the organizers (CDOs) totally immerse themselves previousexperiencefinallydecided to in their assigned barangays.In so doing, become members. they could truly determine the real development needs of the community, thus becoming Another reason for some who decided more effective in addressing its needs. not to become members of the cooperatives was their expectation on the availability of On Cooperative Development and Official speedy loans. This is due largely to Registration of Fishers' Cooperatives (FCs) misinformation from other people (mostly field-level government officials) using loans Not all of those who participated in the as come-on" to form cooperatives without series of training and community organizing thoroughly knowing the adverse effects on activities decided to become members of the community organizing process. the cooperatives. Those who initially did notjoin thecooperatives gavevaried reasons such as not having funds for the membership fee and individual contributions forcapital build-up. Itis apparent that

35 As Regards Linkaging cross-sitevisitstosuccessful CBCRM and Coordination projects and established cooperatives were considered as one effective trainingand In the early part of project implementation, institution-strengthening strategy. Members of coordination with local government units and the FCs who joined these cross-site visits national government agencies at barangay, became very aggressive in replicating applicable municipal, and provincial levels was established. activities in their respective areas. Coordination with the Regional DA through the FSP's Special Assistant for Fisheries Users' Right to Access to Development (SAFD) was likewise established. Resources in the Coastal Area In target barangays,extensivecoordination with local officials, the community and the Part of the programmed activities in targetfisher- participantswasalways FSP-CRM is to provide Territorial Use Rights maintained. Coordination efforts resulted in inFisheries (TURF) to marginalfishers widespreadawareness of FSP-CRM's so thatthe management of coastal ongoing activities in the area.Required resources will be effective and sustainable. servicesand assistance from concerned Such would only be realized if the zoning NGAs and LGUs were delivered although plan of themunicipalwatersin each thereported degreeofeffects varies. municipality is well-established. Coordination and linkages withProvincial Unfortunately, such plans were not given Development Councils (PDCs), Barangay priority. It is therefore anticipated that in the DevelopmentCouncils (BDCs), tri-DA, event the FC-initiated CBCRM plans will be financing institutions, other NGOs, and the fully implemented, some problems may be private sector were practiced regularly. encountered as to specific coastal areas that shouldbe designated according to On Education and Training appropriate usage. The lesson here is that although the concept and plans of TURFs Requiredtraining and education are good operationally, they are not progressing. inputswerebasedon assessments If this continues, incentives to fishers to be conductedwiththe prospective fisher- the real community-based resource managers participants during community entry. Each are more remote than forthcoming because fisher-group (FAIFC) underwent an average local people have no precisesecurity of of 12 formal training sessions with several tenure onspecific territorial rights to manage rounds of informal training. It was observed the open-access status inthe coastal areas that the participants who always considered covering municipal waters. their personal interest first ahead of group cooperation did not join the cooperative. Thisindicates that most of the present cooperative members are the interested ones and those who have fully understood the cooperative movement.In addition,

36 References:

IntegratedManagement Planj Panguil Second Edition. April 1991.

Project Management Office, Orientation Course IQL NGO n.Fisheries Sector Program CoastalResourceManagement. Manila: Project Management Office, 1991.

"Socio-Economic/Investment Opportunities Studies: Panguil Bay Leverage International (Consultants) Inc., October 1991.

"TNFI Terminal Report, FSP-CRM Component Year 2 Phase II". NGO Services, Panguil Bay, November 1992-October 1993.

37 Testimony

Ricardo Cabrera Malanoy Fisherfolks Multipurpose Cooperative (MAFIMCO) Don Consuelo, Ozamis City

The Malanoy Fishertoiks Multipurpose Cooperative (MAFIMCO) in Dona Consuelo, Ozamis City was organized and registered with the Cooperative Development Authority (CDA) with community-based coastal resource management (CBCRM) as its main concern.

Based on our actual experience, several government programs such as the BiyayangDa gal, KilusarigKabuhayan alKaunlaran, and DA-Lead Projects, among others,proved unsuccessful and unsustainable.This failure was due to the following reasons: a) lack of knowledge and understanding about the program; b) dole-out mentality by project beneficiaries; and C) inadequate technical assistance.

However, at the onset of CBCRM implementation in our barangay in November 1992, through the facilities of The Network Foundation, Inc. (TNFI) and the Department of Agriculture (DA), the fisher-members of MAFIMCO realized the benefits of the program. They were very happy and encouraged to see the following initial indicators of the effects -of the program through people's participation: 1) there was a decline in the occurrence of rampant illegal fishing practices like trawl, filter nets (sanggab) and dynamite fishing in the bay area; 2) there was continued planting of mangroves through people's initiatives; and 3) continuous conduct of meetings and planning sessions by MAFIMCO.

Our knowledge and interest were renewed through a series of meetings, seminars andothertralning made possible by INFI, DA andlaw enforcers. Some of thetraining courses attended by MAFIMCO members were Human Resource Development, Coastal Resource Management, Leadership, Pre-Memberstiip Seminar on Cooperatives, CRM Fishery Laws, Financial Management,Project Development and Management, Mangrove Management, Monitoring and Evaluation, Deputization of Fish Wardens, among others.

On the other hand, we tried to develop our knowledge, talents, and skills i an effort to he the members of the cooperative and the fishers to protect and preserve our coastal area. The immersion of TNFI organizers enabled them to teach us a lot of lessons on why we should organize. We maximized our capability-building efforts by helping other fisher-members enhance their knowledge and skills in coastal resource management. The CO from TNFI helped us a lot: facilitating our organizing efforts as well as solving some organizational p,vblems. But most of all, cooperaon and support afforded by ourt isher-members contributed much to the successof the organization. The big challenge that Ilesahead of usas a cooperative isto sustain the organization so that the management of PanguM Bay can be improved through the years.

38 ROGER RICAFORT Philippine Programme Officer, Helvetas Makati,

Introduction

Ihave been askedto reacttoto experiences in comm unity-based coastalresource management. These projects are the marine sanctuary establishment in Danao Bay and the Ashery Sector Program-Coastal Resource Management in Panguil Bay.I would like to state at the outset that the following thoughts eactions are based on the draft documentation on the two projects; these reactions will therefore have some limitations as I will, probably, miss the other interesting details - and the passion - of the oral presentations of the two experiences. to ase Allow me to summarizethetwo experiences: * The marine sanctuaiy establishment in Baliangao Wetland Park in Danao Bay in Misamis Occidental was an offshoot of a small project among the Subanens which started in 1988. The rention NGO involvedin the project,the P1 PULl Foundation, was established in 1 989 mandated with the important task of ensuring the continuity of funding for the project.The project essentially involved the establishment of a 74- hectaremarine sanctuary;other project components being community organization and environmental awareness, mangrove protection and reforestation, reef flat restoration and coral reef protection, alternative livelihoods and cooperatives formation, and 'ocal legislationand enforcement.The projectalso features the interface between the local fisherfolk, local government uns, the chutth sector, and the NGO sector.

39 The second project, the Fishery Sector Contrasis Program-Coastal Resouive Management in Panguil Bay, Mindanao is actually What immediately strikes us is the about the role of NGOsin the contrast between the two experiences. The implementation of the community Danao Bay project started smallit actually organizing component of the government's grew out of small initiatives of a local NGO FSP. The project was implemented in a and concerned individual tishertolk. It bayapproximately 12,405 hectares startedwitha verynarrow focus, the which is shared by 76 barangays in preservationofmangrovesand coral ten municipalities, two chartered cities, resources, and evolved into a much broader three provinces, within three regional sanctuary establishment, and much later, jurisdictions. Aseverybody knows, the into the wetland park management, with FSP addressed issues of production communityorganizingand livelihood components. and conservation, as well as poverty The Panguil Bay project, on the other hand, alleviation issues, within the subsectors started with a rather ambitious, national of coastal fisheries, aquacuilure, offshore blueprint for fisheries sector development.It and deep-sea tishlig. Spe* ilenienlions started, so to speak, as a prescription from included fishery resourtes and ecological the top.The first project was a simple assessments, research and extension, undertaking;the second project a more local legislation and enforcement, and complex enterprise with more complicated alternative livelihoods. NGOs were stakeholder relationships. engaged to undertake the soft technology, i.e., community organizing and value The two projects also started differently formation. in terms of the resources the proponents had to work with at the start of the project. The main institutional mechanism for The Danao Bay project started practically implementation of the project was the Panguil from scratchthe PIPULI Foundation having Bay DevelopmentCouncil composed of been formed precisely to seek funds for the , mayors, regional line agencies, project. On the other hand, the Panguil Bay NGOs,and the PAFC.Community project had a substantial funding support to organizations were encouraged to acquire begin with. legal personalities. After the termination of the project, former project personnel have There is also a contrast in terms of the constituted themselves into NGOs with the role of the NGOs involved in the respective intentionotcontinuingprocesses and projects. In the case of Danao Bay, PIPULI preserving gains of the FSP. Foundation had more control over major aspects/components of the project.In the second case, the government was the main implementor of the project. The NGOs came at a later stage and were "contracted" for a specific component of the project, i.e., social preparation, and therefore had no significant control over the components of the program.

40 Itis interesting to note, though, that the development prOgram. What is now called governmentpeople involved in the FSP community-based coastal resources implementationdeemed it necessary to managementincludesthe spatial (i.e., constitutethemselvesinto an NGO in resource, unit and/or scope), technical recognition of the need to address continuing sectoral(i.e.,fisheries, aquaculture, concerns after the programme has been agriculture,alternative livelihoods), and officially terminated. institutional (communityorganizations, government units/agencies, NGOs, other The main thing that the contrasts tell stakeholders) dimensions of integration. us is that the phenomenon we call community- based coastal resources management has The basic issue of territorial use rights come of age. Assuming various forms and (otherwise referred to as property rights or mixtures, it has become mainstreamed- to access rights) is, of course, unquestionably use a current termand has permeated recognized as a very important element, different levels of development interventions among the fisherfolk and coastal communities. The two experiences converge on the The amount of money pouring into projects basic components ingredients of a community- labelled as CBCRM, especially from bilateral based coastal resources management, andmultilateral aid sources, has grown or what a big project inIndia calls significantly in the last few years. biosocioeconomicapproachto coastal resources management.A successful Convergence CBCRM programappears to require interventions in the following areas: The two experiences, however, converge on a basic message about development * communityorganizingand value work: genuine development is a long, formation (also institutional development); arduous process.It is evolutionary, iterative, andrequires adaptive strategies.We biophysical or technical; cannot cut development into neat little chunks ofthree-year,orfive-yeardevelopment human resource development and programmes. Ultimately, this is at the core alternative livelihoods, linkage with of the recognition of the centrality of the other technical sectors, particularly community - of the primary users - in the agriculture and enterprise development; management of coastal resources. and

* The two presentations come from different advocacy, legislation, and enforcement. starting points: one started simply and the otherstarted on a more complex, more ambftious platform (fisheries sectordevelopment). Butthey convergeat a basic concept! understanding of the complexity of the coastal zone and arrive at the understanding of the "integratedness' of a basic coastal zone

41 We can throw in various regulatory about gains ki oilier aspects (e.g., economk gakis, and non-regulatory management interventions. legislative and law enforcement gains, etc.). The mix of these ingredients vary according to However, as one of the project documents states, the specificity of the particular locus of "it is difficult to organize people around development. abstract ideas of coastal resource management".

At least at the level of formal objectives, It is therefore important to establish a both projects look at empowerment as a set of development indicators - at various key concern. Empowerment is expressed programme levels -- which are negotiated in two ways - political (participation and among the various stakeholders. decision-making) and economic (resource control and equity). For me, the main and most eloquent indicatorof a successful project is the Celebration and Other Issues spontaneous replication that the project spawns, specially in the adjacent communities. However, these components are not This is only possible if we are able to show new. This technology package, so to concrete gains. speak, is similar to and validated by numerous other experiences in many parts of the country. Finally, I would like to enumerate This festival, this fiesta, however, is not so other specific issues or concerns which I muchthe reiteration of these elements, think should be continuously addressed. principlesandobjectives; itis not the * confirmation or validation of these elements. One, in the light of the centrality of Our celebration rather is to demonstrate theroleofthecommunity in that this technology package, this approach coastal resource management, the to coastal resources development, actually issue of enhancing participation in works - that this approach actually results its various modes and dimensions is in concrete, palpable, all-sided gains for very importanthow do we encourage the coastal communities or the fisherfolk. genuine participation? How do we enable/empower the I isherlolk to At this point,I would want to blame strengthen their position to benefit bashfulness and/or basic modesty for a from resource gains? rather short celebration on actual gains of * the two projects.The documentations, I Two, there are various kinds of conflicts, would tend to believe and hope, probably class conflicts included, and power do not give justice to the extent of successes of re!ations in communities and these the projects. Both projects, while recognizing should not be glossed over- how do the many-sided objectives of coastal resources we addressthiswhileensuring management programs, point to the social significant participation of stakeholders? gains (i.e., self-esteem, self-confidence) How do we contribute bringing about and modest biophysical resource rehabilitation appropriate attitudinal changes, the as the key accomplishments. The project reports enhancement of the competence and appear to be ambivalent or not confident accountability of government?

42 * Three, gender issues: as they say, SAMUEL FORMILLEZA women fishers comprise half (or is it a Faculty Member, U.P. College of Social majority) of the fisherfolk population; Work and Community Development Diliman, Quezon City * Four, the importance of a conducive policy environment and thus the Let me begin my presentation by offering need to link micro and macro initiatives - a word of recognition to the people and the need for advocacy at various levels; organization behind the Baliangao Wetland and Park for taking a significant collective action toward the regeneration and preservation of * Five, defining the role of the NGO our natural resources. With the vast coastal vis-a-vis community organizations -- resources of our country constantly under I prefer to call this the principle of threat of extinction, their coastal resource obsolescence-- NGOs should be management (CRM) initiative in Danao Bay prepared to render themselves obsolete represents a ray of hope for other groups atan appropriate timewithin the and communities struggling to create an development process. ecological awareness towards sustainable development. In the end, this festival is really a celebration of the creativity, imagination, Honestly, I feel a bit uncomfortable in energy, knowledge, expertise, passion and making a reaction to a community experience commitment that lie within the people of our that had been dynamic and meaningful. I coastal communities and those who work recognize that this could not be captured with them. fullyandcomprehensively in a written document. Once these experiences are put Thank you very much. into words, particularly through a foreign language, they somehow lose the dynamism and meaningfulness peculiar to the community's struggle for total human development.

As acommunity development practitioner, my comments on the case study may dwell more on the community organizing! developmentaspect of theprogram, particularly on how it provides opportunities for the people to be empowered and be self- reliant in their development efforts.I firmly believethat,in adapting a community- based approach to CAM, we are and should becommittedtothegoal of people empowerment and an attitude of partnership with them in the improvement of their quality of life. This is because the problems that we

43 face in relation to environment, particularly expected bythe people to lead in the to coastal resources, are not only problems management of coastal resources. Considering of management or technological inadequacies the crucial role of the local government units but, more importantly, the problem of poverty (LGUs) under the Local Government Code that besets people who are heavily dependent in determining what orientation or perspective on marine resources for their survival. The to take in relation to CAM, the support of condition of poverty forces many of the poor local leaderscan greatlyfacilitate the fishers to overexploit or overuse the coastal establishmentof management measures resource base of our community in order to toward sustainable development. feed their families. On the other hand, they are most receptive arid cooperative when it However, I would like to point out that, comes to efforts to protect and preserve the as the Foundation has also recognized,local remaining resources once they are made leaders' support does not ensure success aware of the effects of environmental destruction. unless people, especially those who will be affected by the program, are made aware of Let me proceed with my comments the situation and the problems brought about about the establishment of the Misom Sea by the overuse of coastal resources and the Sanctuary, initiated by the PIPULI Foundation. necessity/urgency of changing values and methods of drawing in life's sustenance from On the Establishment of the Sanctuary nature. As seen by the project implementors, there was not much difficulty in putting up The Foundation acknowledged the fact the sanctuary.It was in the implementation that the sanctuary was established before of the measures set to protect and maintain community organizing was undertaken. Two it that it encountered many problems. In reasons were cited why this approach was other words, action from the top does not done: change one's values and perspective towards effective use of coastal resources, especially The feudal character of relationship for those who have so much to lose when which puts more reliance on traditional policies and guidelines are instituted to prevent authority to have things done; and overutilization of existing resources.

* The necessity of having something I agree with the Foundation that in concrete for people to see in terms of instances like this, education and organizing what PIPULI would like to mean by CRM. should be vigorously pursued to gain support for and commitment to the CAM program, in The mayor's approval and support to this case, the sanctuary project. the project paved the way for the Foundation to carry out the establishment of the sanctuary. This kind of action from local officials is somehow initially advantageous to groups or organizations wanting to introduce new resource management measures, particularly in communities where local authorities are

44 On the Role of the Church recognize the importance and urgency of developing a strong linkaging/networking In terms of building people's awareness program. Opposition to CBCRM programs and support for the project, it is important to in many areas is formidable, and it is therefore note how the Foundation linkedwith the necessary for people to join hands and create church institution in the area. It could not be a critical mass that would effect change in denied that the church exercises substantial traditional centers of power, whether national or influence on people's lives.Therefore, its local, relative to the sustainable and effective support forissues like this and its active management of coastal resources. In many involvementindevelopmentprograms instances, CBCRM practitioners encounter contribute a lot in helping people realize the many problems/difficulties when it comes to effects of environmental degradation. This policy reforms and/or effective implementation becomes more apparent when education! oflaws related to the protection of our awareness building activities are closely environment.It becomes doubly difficult linked with the demand of their Christian faith. when people's organizations and NGOs car- Based on my past experience in community rying out CBCRM programs have to con- organizing, the church's active support for tend with limited power and resources in development programs, while initially meeting doing their jobs. Under this condition the opposition from the community, helps a lot development of a strong people's organization in convincing people to be open to new ways that would be actively involved in CBCRM of making use of our natural resources. programs is an absolute necessity.

Asaffirmed bytheFoundation's On the Multidisciplinary experience in helping carry out the Misom Approach to CBCRM Sea Sanctuary, "wider community support and involvement has to be generated for The Foundation realized that the sanctuary the sanctuary to become sustainable." project had some limitations in providing a comprehensive solution to the problem of On the Role of the People's Organization access to and control over coastal resources, particularly to those who have given time Given the reality that law enforcement and labor to the regeneration efforts.To encounters so many obstacles particularly me, this is an affirmation of the fact that no in a country where power/interest groups single program can provide a complete solution prevail, the implementation of a program to the prevailing environment issue.Rather, that aims to change the destructive ways! this helps us recognize the importance of methods of extracting the fruits of nature, in constant evaluation of existing programs and this case the sanctuary,will surely meet improving them in order to help create an stiff opposition. This situation demands a integrated/comprehensive approach. Even it we strong organization and a leadership that is may be successful in providing sanctuary to the fullycommittedtothe protection and fishes and other living things to regenerate and preservation of ecosystems that will sustain be productive, the issue of how people can the lives of the present and future generations. have equitable access to and control over In this context, CBCRM projects should these resources isan equally important one.

45 On Alternative Source of Livelihood

The establishment of alternative resource management programs designed to provide enough time tor coastal resources to regenerate and recover its productive capacity necessitates the provision of alternative means of livelihood. In this instance, the Foundation helped in the development of livelihood programs to complement the sanctuary project.It was successful in providing immediate employment to those affected by the establishment of the project considering that its effect may be seen only in the long run. Ills important, however, to explore other alternative ways, particularly land- based livelihood projects to complement the primary source of living which is marine- based. The possibility of developing appropriate technologies in processing marine products to increase their value may also be feasible. Considering the seasonality of products from the sea, II could be helpful to look into food preseivaticn technologies that enable one to meet the market demands even during lean seasons.

In conclusion, CBCRM programs like the Misom Sea Sanctuary represent a radical concept in resource management that demands a change in perspective and in approaches that greatly contribute to the destruction of the environment and the unequal distribution of the fruits of nature. In this context, it is important to recognize that such community initiatives should encompass all aspects of people's lives at all levels. CBCRM represents an alternative vision, mission and goal that seeks to provide new concepts and methods of preserving, caring for, and using the coastal resources for the sustenance of life now and in the future. Any and all actions for the protection of the environment and preservation of its productive capacity demand simultaneous action in the politico-legal and socio-cultural arena.

46 Part Two vyvyvyvyvy Visayas Case Studies Mangrove Rehabilitation and Coastal Resource Management in Cogtong Bay: Addressing Mangrove Management Issues Through Community Participation

EUTIQUIO S. JANIOLA, JR., Project Supervisor The Network Foundation, Inc. (TNFI) Cebu City, Philippines

The implementation of the Cogtong Bay The people were the key players in the Project required aneffective management program, redefining their roles in the utilization approach such as CBCRMto overcome the ofthe bay's resources. Thirteen people's problems brought about by the open-access organizations and two fishers' federations were nature of resource use prevailing in the bay. established in 11 barangays. They became the Mangrove management in the area began in backbone of CBCRM in Cogtong Bay. 1985 when the Department of Environment and Natural Resources (DENR) implementedthe Integrated Social Forestry (1SF) project in Introduction Baran gay Cogtong. The project, however, covered only a limitedarea of mangroves, leaving behind a vast portion in a free-for-all use. Community-based resource management focuses on people's empowerment specifically This nature of resource use has led to the conversion o mangrove areas into fishponds, the control over and ability to manage productive the uncontrolled cutting of man groves for resources in the interests of one's own family firewoodon a commercial scale, and the and community.It invokes the basic principle transformation of the bay into a haven for illegal of control and accountability, where "the control fishers. over an action rests with the people who will The role of Rain fed Resource Development bear its consequences" (Ferrer, 1994). Project (RRDP )was to facilitate the transformation of the community from mere resource users to In the Visayas, pioneering activities in resource managers andbeneficiariesof coastal resource management were initiated by coastalresources. The processinvolved equipping people with the capacity to undertake academic andresearch institutions.As environmental rehabilitation and protection and early as 1974, Silliman University, in cooperation the introduction of coastal resource management with the town of Oslob in Cebu, pioneered (CRM) interventions, as well as addressing the coastal management in the Philippines by issue of property rights. declaring and managing a municipal marine 49 reserve in the waters of Sumiton (stand, with Fourteen coastal barangays border the cooperation and active participation of Cogtong Bay, tour in Candijay and 10 in 100 tishers. After this initial success, Silliman Mabini. The national highway bypasses the Universityinitiatedthe Marine Conservation bay proper but passable secondary roads Program (MC P) in 1984 to organize community- extend along the edge of the mangrove based resource management (Ferrer, 1994). areas nearly to the two points which mark the south and north points of the bay. The pioneering efforts by the academic and resea institutions were folked by gemment The bay is bounded on the north by initiatives when the Central Visayas Regional Cabulao point and on the south by Lumanok Project (C yR P-I) piloted projects in regional rural point. The outer portions are bordered by development in 1984. CVRP-1 was founded limestone hills and a thin fringe of mangroves. on the principles of devolution and community- The inner portion of the bay has extensive based resource management (Ferrer, 1994). mangrove stands bordered by irrigated rice fields and coconut lands. Three rivers empty The Rainfed Resources Development intothe inner portion of the bay which is very Project (RRDP) of the Department of Environment shatlow and contains 3,000 hectares of and Natural Resources (DENR) implemented seagrass beds.Four mangrove islands the Cycle II phase of itsplan for Calendar (Lumislis, Cati-il, Tabundio and Years 1987-1991, employing the community- Calanggaman)totalling an area of275 based approach for its upland and nearshore hectares are found at the outer edge of the mangrove areas.In 1989, the Candijay- seag rass beds. The islands have been declared Mabini Mangrove Rehabilitation and Coastal mangrovewildernessbythe national Resource Management was implemented in government. Sparse coral formations fringe Cogtong Bay in Bohot. the outer edges of the seagrass beds north of Lumislis Island.Coral forms a barrier Lessons from the C4ong Bay ccmmunity- reef to the southeast of Lumislis island. The based coastal resource management outer edge of the bay is delineated by (CBCRM) experience confirm that resource Tagaytay reef, a large (0.6 x 7 km) sand and management issues are best addressed with coral structurefoundtwotothree kilometers community participation. This is the focus east of the seagrass beds. of this case study. Fishers and other dependents on mangrove Site Profile resources constitute about 15 % of the workforce in these two towns, with a total Cogtong Bay is located in Southeastern population of 52,500 perscns k 9,300 households. Bohol in the Central Visayas Region (see Fishing is almost entirely small-scale, with Figure 1). Two municipalities, Mabini on the hand lines, gill nets, spears, cast nets, fish north and Candi jay on the south, share the corals and fish traps being the dominant bay's 10,000 hectares of municipal waters gear. One commercial fishing gear called which include 2,000 hectares of mangrove forest. bag net (basnigan) is based in Candijay and Of these, 1,400 hectares are still intact and five Danish seine (hulbot-hulbot) are based the rest have been converted to fishpond. in Northern Mabini, just outside the project site.

50 FIGURE 1 MAP OF COGIONG BAY

LEVI E

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0 BOHOL 0 a:

LU

0 ALICIA

51 Mud crabs (al/mango) and mangrove Two basic issues arose from this incident. clams (imbao) are important mangrove fisheries The first related to CBCRM project credibility. while shrimps and prawns are caught commonly Area residents started asking why they were in the rivers. Rabbit fish (danggit), mullet, expected to plantnewmangroves and blue crabs, sea cucumber and seaweed refrain from cutting the existing trees wheh (Qracilaria ) are taken from the seagrass outsiders were allowedto come in and beds. Small pelagic fishes, including sardines destroy 60 hectares of good quality forest. and mackerel, dominate the offshore catch. Their point was well taken. The government needed to be consistent in its resource use N/pa shingle making is a major income policies if projects like .Rainfed Resources generating activity, particularly in the inner Development Project (RRDP) were to succeed. portion of the bay.On the other hand, As the RRDP staff were the DENR's de facto firewood gathering is the primary source of front line troops in this case, it is their credibility income forfew families in large (200 or more with the people and that of the project which hectares)mangrove areas.Agriculture were at stake. dominates the economy in both municipalities. In 1985, average family income was reported to The second issue was the government's be P5,000.00 annually. policy on fishpond development. The Department of Agriculture (DA) provincial staff had been Key Issues strongly encouraging fishpond development even to the extent of appearing in court in Conflicting Government Policies behalf of the Fishpond Lease Agreement (FLA) holders who failed to be present at A conflict in resource use arose in two separate court hearings.At the same Candijay in April 1989 when workmen from time, the DENR had been refusing to issue outside the community began clearingthe a clearing permit necessary to begin fishpond 60-hectare area in Barangay Panas for fishpond development.As a result of the DENR's development.. Barangay residents stopped stance and other factors, some 250 hectares the development of the area after a few declared available for fishpond development hundred square meters had been cleared in 1982 in the municipality of Candijay has because they considered the mangroves as remained intact. "Should development be a valuable community resource they have allowed to proceed considering the new DA utilized for generations. The community sought policy which calls for 'no new fishpond in and received a temporary court injunction mangrove areas'? The government needs prohibiting further development. to speak with a single, rational voice (Vande Vusse, personal communication)." Subsequent investigation revealed that the area was released for fishpond development in 1982 despite its being well-stocked with mangrove trees. The developers have fishpond lease agreements (FLAs) issued in 1985 but they did not have a valid cutting permit from DENR to clear the area.

52 Fishpond Development in to the government in 1986 when this dike Apparent Timberland was constructed and were promised action. The DA and the Department of Public Works As far as records within the region and Highways had done no more than point show, areas in the municipality of Mabini fingers at each other while the illegal activity have been recommended for release for persisted and 100 families were deprived of fishpond development as early as 1979 their water supply. (again despite their being stocked with mangrove The credibility of the entire government trees) but have never been approved and is at stake in this case.This 15-hectare formally released. Several persons began fishpond development also lies within the fishpond development and one is currently mangrove forest preserve declared in 1981. attempting to expand his area by clear cutting mangrove trees. Site staff have been drawn Issues on Illegal Fishing into the struggle because they represented the DENR(forthis project) in mangrove The adverse effects of illegal fishing, management, and to tolerate clear-cutting especially dynamite fishing, have contributed in mangrove forests within the site would to the degradation of the fishery resources definitely affect the credibility of the project. of Cogtong Bay.Blast fishers reportedly TheCommunity Environmentand Natural came from Tintinan, an island off the coast Resources Officer(CENRO)however, of Ubay, an adjacent town to the north of respondedby filing charges against the Mabini. Mostexplosivesusedwere offenders. Status of the 10-year-old obtained from another island called Bilang- proposal for release needs to be clarified. Bilangan in Talibon. Apprehended blast fishers, Giventhenew DA policy, it was however, refused to identify their supplier. recommended that the said area be retained as mangroveforest and that any illegal Another type of fishing gear widely fishpond development be dealt with promptly denounced by small fishers is the Danish and firmly. seine known locally as the liba-liba or hulbot- hulbot. The gear is efficient in catching fish and Fishpond Dike Blocking a usually uses illegal fine-mesh nets.The Natural Waterway method is destructive to seagrass and soft bottom habitats. An existing (and probably illegal) fishpond in Barangay Panas included construction of Addressing Property Rights a special dike to tap a freshwater stream and divert the water into the pond area. This Cogtong Bay has a large mangrove action flooded springs used as a source of area. Nearly 2,000 hectares were classified drinking water for over 100 families in the as timberlands. About 700 hectares have adjacent areas.It also eliminated the free been released for fishpond development or ebb and flow of the tide and prevented marginal illegally cleared for that purpose. The fishers from reaching their usual landing for remaining 1,300 hectares remained intact their bancas. This alone was a clear violation of butneededa management program to P.D. No. 704. Barangay residents appealed sustain them.

53 In 1984, portions of the bay's mangroves Social Forestry (1SF) program of the DENR, were declared Mangrove Wilderness and theproject reforested 110 hectares, and Mangrove Swamp Forest Preserve under delineated 108 hectares as enrichment areas Presidential Proclamations 2151 and 2152 and 25hectaresfor AssistedNatural respectively. Wilderness areas were found Regeneration.Parcellary survey covered in tour islands, namely Lumislis, Cati-il, 349 hectares. Two hundred sixty-five (265) Tabundio and Calanggaman, totalling 275 beneficiaries were awarded the Certificate hectares. About 330 hectares of mangrove of StewardshipContracts through the swamp forest preserve extended six to seven smallholder mangrove management system. kilometers from Barangay Panas to Lamanok Point in Anda. Assigning property rights to a defined community of 'users is the backbone of Mangrove management in the project CBCRM under RRDP.It means that certain site began in 1985 when the DENR through communities effectively become the primary theBureauofForest Development (BFD) managers andbeneficiaries of coastal implemented the Integrated Social Forestry resources (Rivera, 1995). (1SF) program in Barangay Cogtong in Candijay. The rest of the mangrove areas The Candijay-Mabini Mangrove remained under an open-access or a free- RehabHitation and Coastal for-all arrangement of resource use. Resource Management Program

In open access, which is actually no The Rainfed Resources Development management regime at all, property rights Project (RRDP) is a resource management are absent and access is free and open to program of the DENR for its upland and all. Theoretically and legally, coastal resources nearshore mangrove areas nationwide. The are state property. Yet, although the state project is financed through a grant from the claims ownership, it has inadequate control UnitedStates Agencyfor International over.these resources. This inadequacy has Development (USAtD). in fact led to the de facto open access nature of property rights over coastal resources There are two phases of program (Rivera, 1995). The open-access character implementation, Cycle I and Cycle II. Cycle has led to the uncontrolled destruction of I (approved in 1 982) focused on pilot testing mangroveresourcesthrough extensive of agroforestry technology, strengthening of cuttingfor firewood orfor fishpond institutional capabilities, and establishing a policy development. framework for implementing community-based management of land and water resources. The RRDP program wanted to shift Cycle IIis an extension of CycleI and the community's traditional role asmere covered calendaryears (CY) 1987-1991. It resource users to managers as well.To emphasized implementation of broad-based achieve the desired transformation, the RRDP field projects applying lessons learned in program addressed the resource use issue Cycle I. It also continued project field of property rights overthe coastal resources. testing and exploring with new In close coordination with the Integrated management systems and technology.

54 The Candijay-Mabini Mangrove Program Objectives Rehabilitation andCoastal Resource Management Project was the lone coastal RRDP's general objective is to rehabilitate resource management project of RRDP. The 360hectaresof mangrovearea under a rest were upland projects. community-planned approach which will provide 480 families with Certificate of The project was implemented under Stewardship Contracts (CSCs).It also aims to contract by ACIPHIL, Inc. for a duration of install approximately 240 artificial reef clusters two years (January 1989 to September in coastal waters adjacent to mangrove 1991). Upon the expiration of the contract, rehabilitation areas in order to increase fish ACIPHIL, Inc. entered into a joint memorandum population. of agreement with The Network Foundation, Inc. (TN Fl) to sustain the project until December The program's strategyis people's 1991, with a grant from the World Wildlife mobilization asthe "means" and the "end" Fund (WWF-US). The project was finally to project success.It is also an effective turned over to the DENA on 22 March 1995. strategyfornationwide projects in the upland and mangrove areas. The Network Foundation, Inc. The RRDP's resource management The Network Foundation, Incorporated principles are: (TNFI) is a non-stock, non-profit corporation organized in 1985 by a group of development Community-planned and implemented practitioners in Cebu, Philippines. It is composed project. The communities as social of people with a wide variety of expertise units take center stage in the planning and experiences in countryside development and implementation processes. Their work. TNFI provides its partners with the development is a matter of choice and opportunities for combining their talents in thereby aright,rather thana order to address developmental problems privilege. In thesame vein, the such as poverty and resource degradation. practice of this right entails the choice to accept the corresponding TNFI isa development-oriented responsibilities of sustainable organization primarily concerned with poverty development. Communities and their alleviation and environmental protection. individual members arethereby Through its expertise and services, TNFI empowered in a participatory process seeks to improve the quality of life of impoverished of planning and implementation. families who rely on communal resources for their livelihood and, at the same time, People-centered. The residents are promote the protection and conservation, assisted in seeing and understanding rehabilitation and regeneration, and proper their realsituation, planning how to management and sustainable use of these deal withit,and defining objectives communal resources. according to their own positive values.

55 Resource-based. The main substance, more barangays upon request by residents theeconomic base of the project, is who saw the benefits of the program. thenatural resourcepresent in the location and not transported from the These coastal communities would outside.It attempts to improve the manage and develop mangrove areas under a existing resource towards its efficient smallholder mangrove management system. and equitable utilization. Underthis system, tenurial instruments such as the Certificate of Stewardship Contract Locally-implemented. Indigenous (CSC) would be issued by the DENR to the production tools, instruments, materials, program beneficiaries. Mangrove management forces, expertise and distribution systems would also cover dedicated mangrove areas take precedence over alien and imported including 330 hectares of mangrove swamp ones as the basis for development. forest preserve and 275 hectares of mangrove wilderness. Social ForestryOfficer (SF0)- catalyzed.The social forestry officers The project has five major components. and extension workers serve as These are: facilitators through whom the community residents can see themselves and their situation. The SFOs initially help establish Community Organizing; the pircesses thatenlighten understanding, Mangrove Management; develop consensus, focus implementation, Artificial Reef; enable technobgy refinement and encourage Mariculture; and intentional reflection on life's meaning Infrastructure Building. among the farmers they work with. Community Organizing Government-assisted. The cumulative capital base and public services of the The project's community organizing duly constituted government units (GO) component took the lead role in the line up to effectively supportlocal site overall program implementation.This implementation.Thus, R RDP program component, through the projectcatalysts sites are fundamentally local community (community organizers), established the projects assisted by the government. community organizing processes including the establishment of people's organizations, awareness drive, and capacity building Scope of the Program towardsinstitutionalization.Duringthe initial stage of project implementation, eight The project targeted eight (8) coastal barangays were covered as originally barangays. These included Panas and planned.Later, the project expanded its Cogtong in Candijay; and PoblacionI, coverage tofivemore barangays upon Cawayanan, Minol, Banlas, Tambo and request of barangay residents who saw the Marcelo in Mabini. The project, however, benefits of the program. eventually expanded its coverage to five The CO component had two phases: officials and the clients themselves. Areas social preparation and organization building. used for boat lanes or passageways and beaches were not planted. Mangrove Management Beforeproceedingwithplanting This component is one of the main activities, each applicant for stewardship coastalresource management interventions. contract was required to develop a farm plan. Three major activities were incorporated in The plan should state in detailareasfor this component. These are smaliholder new and enrichment planting, planting species mangrove reforestation and management, to be used, and maintenance procedures. sea farming beneath the mangrove canopy, and the management of large mangrove Sea farming beneath the mangrove areassuch as mangrove swamp forest canopy was conducted in Barangay preserve, wilderness and communal forest. Sagumay Daku. Participants in this activity experimented with "brush holes" - small 3m One of the key elements in the smaI- x lOm x im deep holes filled with brush. hoider system is the security of tenure. The Local fishers called it amatong. The brush project addressed the question of property holes or amatong were located in open rights of the project beneficiaries through places withinthemangrove areas (not the issuance of the Certificate of Stewardship necessarily plantations) which were exposed Contract (CSC). However, CSC as applied during low tides.Fry of valuable species to mangrove areas had many flaws. A more such as kitong find the hole and use it as appropriatetenurial instrument, the their base during low tide. During high tide, Mangrove Stewardship Agreement (MSA) theyforagein the food-rich mangrove was formulated by the DENR later on. shallows. They grow to marketable size in nine to 10 months. Reforestation activities included areas at the outer edge of existing mangrove stands Cogtong Bayalso boasts of large extending 50 to 100 meters seaward and to areas of mangrove forest dedicated to specific some areas illegally cleared for fishpond purposes.These included mangrove swamp development.In this case, reforestation forest preserve extending from Barangay efforts were done through the initiatives of Panas to Lamanok Point in the southern the Barangay Council officials. portion of the bay and mangrove wilderness located in four islands of Lumislis, Cati-il, The primary species for reforestation Tabundio and Calanggaman. In the wilderness is the baka wan(Rhizophora spp.) Other areas, management system such as the species were also considered such as tabigi Assisted Natural Regeneration (ANR) was used. (XylocarDus Granatum) and api-api (Avicennia spp.). Areas technically suitable Artificial Reef to mangrove reforestation and management were delineated for project clients. Specific Concrete artificial reef "X" modules areas for planting were earlier agreed upon developed by the project consultants were throughpublicmeetings with barangay deployed in the site. These were constructed

57 bythe fisher-participants with materials tow the flatboat carrying the artificial reefs. provided by the project. The concrete artificial It was also used when program participants reef modules were less expensive per cubic gatheredmangrove seeds from offshore meter of reef volume than the commonly islands. used bamboo. They were also considered to be more practical because they were Part of the infrastructure activity was relatively longer lasting. the reconstruction of the old public market in Cogtong. The building was partially destroyed by An extensive area along the 10 fathom a storm sometime in 1986. The municipal depth contour across the mouth of the bay government of Candijay provided the galvanized has been designated as artificial reef zone iron (G.l.) sheets and some lumber from its of the project. The concrete "X' modules demolished old municipal hall.Barangay were dropped individually to form a cluster residents provided laborwhile RRDP of 265 modules.The installation of the provided counterpart fund.The building artificialreef wasdone by the fishers housed the RRDP office and a portion served themselves. as staff dormitory.

Mariculture Addressing Mangrove Management Issues Through The shallow water of Cogtong Bay Community Participation presents the fishers with opportunity for small scale sea farming and ranching. To Project Strategies complement the mangrove rehabilitation and management activity,mariculture was The project utilized the community- incorporated in the program. based coastal resource management (CBCRM) strategy in its implementation.It Selected fishers' associations cultured involved both a program of interventions green mussel or tahong in shallow areas of and a process of empowering communities the bay, and oyster culture or ta/aba was to undertake their own development and undertaken at the mouth of Sagumay River manage their renewable resources. in Barangay Cogtong. Community-based coastal resource Infrastructure Building managemert recognizes that the coastal residents are the real day-by-day managers The project's infrastructure corriponent of their resources. They are the ones who involved the construction of pumpboat and decide each day whether to exploit their flatboat. These were essential equipment renewable resourcesmindlesslyorto in carrying out the activities in the resource manage it for long-term, sustainable yields. management interventions particularly the artificial reef. The transport of the artificial Community-based approach is a people- reeffromtheconstruction site to the centered approach. If the coastal residents placement site was best done with the use are the real day-by-day resource managers, of the flatboat. The pumpboat was used to they must also be the implementors of any

58 program which seeks tomanage those accomplishments, strategies, status of resources. The community-based approach project operations and problems and issues involved a number of specific activities which encountered.This manner of personnel include: assignment hastened the community study, integration and identification of potential Community organizing to catalyze leaders. people to begin to work together on problems of mutual concern. This The scheme alsorecognized the involved formation of groups with common difficulties of working in coastal communities. interestsand workingwiththe The need for constant and active contact local government planning unit, i.e., with the community became evident to overcome the baran gay development council. the problem of low government credibility among most coastal communities. It was Education whichheightenedthe necessary to regain the people's trust in people's awareness of the forces, both government to successfully effect innovations natural and social, which affect their lives. introduced in the community.

Situational analysis, a process Community Organizing Process facilitated by site-basedstaff, which allowed the community to collectively A Call to People's Participation identify constraints to their development, prioritize needs and plan projects to Resource useinCogtong Bay was meet those needs. After implementation unabatedover the yearsbecause offree of a project cycle,the process was access.In 1984,the Bureau ofForest repeated and the new situation was Development (BFD)initiatedmangrove analyzed. management within the project site with the introduction of the Integrated Social Forestry Identification and training of local (1SF) program on a mangrove area in Barangay leaders within the community who can Cogtong in Candijay.The program has assist inthe community organizing generated interest and participation among process aswell as the transfer of the barangayresidentsand catalyzed technology. potentialforfurtherdevelopmentofthe resources in Cogtong Bay. Project Management The development initiatives of RRDP The project established a se management for the coastal resources of Cogtong Bay office in Barangay Cogtong in Candijay. All came at a time when mangrove destruction the members of the project management was already evident due to the influx of non- team resided full-time in the project area. coastal residents and outsiders, particularly Other members of the project team assigned thefishponddevelopersfromthe in the other barangays covered by the project neighboring provinces of Cebu and Leyte. also resided in their respective sites. On a weeklybasis,the team met to discuss

59 While some government agencies These were prerequisites to their registration were too slow to respondto therapid with the Bureau of Rural Workers (BRW) of destructionof mangrove,otherseven the Department of Labor and Employment encouraged fish pond development to increase (DOLE). fish production. The situation demanded a collective responsefrom the affected Legitimizing people's organizations communities to thwart the inevitable mangrove was a necessity in the empowerment of the destruction. people.It gave them the necessary legal personality in addressing resource management The awakening phase of the program's issues. community organizing process challenged many ot the coastal residents to get their The project generated the participation of act together to prevent further destruction some 405 legitimate participant/beneficiaries. ofthemangroves and otherfishery The participants were marginal fishers, shell resources.Part of this awakening phase gatherers,riipashingle makers and included convincing coastal communities of mangrove firewood cutters. the importance of the bay's resources to their daily needs. The project also noted less participation by women than by men. Of the total 405 During the initial stage of community participants, only 60 or 15% were women, organizing, the project staff identied prospective compared with 345, or 85% men. Most participants to address management concerns women participatedonlyin mangrove of the program. Following project criteria, activities. All other CRM interventions were participants must be coastal residents dependent dominated by men. (totally or partly) on the resources of the bay. From the prospective participants, potential Community Protection Efforts leaders were identified who later served as a core group, preparatory to the establishment Community-based coastal resource of a full-fledged people's organization. management is anchored on the formation of a strong, sustainable and legitimate fishers The process gave birth to 13 people's organization. In Cogtong Bay, the emergence organizations in 11 barangays and subs. of an empowered community as deterrents The first that was organized was the toactivitiesthatdegrade the coastal Panaghiusa sa mga Gamaying Managat sa resourceshighlighted the community's Cogtong (PAGAMACO) which consisted of participation in the program. 41 members. The Iwokey issues of conflicting The formation of people's organizations government policies and illegal fishing were was institutionalized with the formulation of the biggest constraints to the program. The constitution and by-laws by each organized project relied heavily on the community's people's organization(P0).The by-laws participation to prevent any further efforts to state, among other things, the organizational degrade the resources of the bay. structure, membership, set of officers, etc.

60 Fishpond development in the mangrove complement weak responses from concerned areas of Cogtong Bay started many years back government agencies. The project requested and were mostly illegal. During that time, the formal deputization of legitimate FA officers fishpond developers did not meet any resistance and members as forest rangers to bolster from the affected coastal residents, not until the the program'è protective role.However, RRDP. program was implemented in the area. until the project was terminated, DENR had not taken any action regarding the request. Citing an incident on April 6, 1989, Fisher's Association (FA) members from The federation of fishers' associations Barangay Panas trooped to the RRDP site in the two municipalities addressed the issue of office in Cogtong early in the morning, 10 illegal fishing as well.During their regular report the arrival of fishpond developers in monthly meetings, issues on illegal fishing the area. Upon their arrival at the scene, the were discussed, and in some instances, RRDP staft were surprised to see placards they agreed to conductroutine seaborne denouncing the cutting activity displayed on patrols. The activityresulted in the the mangrove stands. The fishpond workers, confiscation of illegal fishing gears from after cutting only a few stands, were already illegalfishers,and the driving away of nowhere to be found. The people stopped dynamite fishers. To make the activity more the activity. People power loomed. effective, the Mabini federation requested for fastsailingboatsfrom the provincial The struggle continued, finding its way government. The request was considered to a legal battle. Fishpond developers by a member of the provincial board but no insisted on developing the fishpond on the boat was issued. solid ground that they have the legal document, an approved Fishpond Lease Agreement Phases of Community Organizing (FLA). On the other hand, the DENR stood firm that the developers should be equipped The community organizing process with valid cutting permits. A case was filed involved twophases, namely social in court by a prominent Cogtong lawyer in preparation and institutionalization. behalf of the people of Panas. The court later issued an injunction prohibiting any Existing fishers' or mixed fishers and further development in the mangrove areas. farmers groups were utilized wherever they FA members and barangay officials stood existed.There was no need to form new witnesses to the case. groups. These groups were strengthened through training and hands-on experience. A similar incident happened in Networking activities were also undertaken Barangay Tambo in Mabini. The people's to link them withlocal government units resistance could no longer be ignored by the (LGUs) and regional line agencies (ALAs). DENR. The DENR again responded by filing a case against the fishpond developers. During the social preparation phase, the project sought to develop a sense of The project, on the other hand, had to awareness and commitment among the expandits, role toinclude protection to beneficiaries through the following activities:

61 1. Holding ofinformation drive among 1. Deputization of leaders offishers' prospectiveparticipantsinforming associations as fish wardensor them about the project, its goals and Bantay-Dagat by the Department of objectives,technology interventions Agriculture. Deputization seminar was and the environmental situation in the conducted on September 17-19, 1991 locality; jointly sponsored by the DA Regulatory Division of Bohol and RRDP. Holding of consultation meetings among localgovernmentunits, attending The federation of fishers' associations barangay and municipal council sessions for Candijay and Mabini. In Candijay, to generate their support; five associations were federated into the Pederasyon sa mga Gagmaying Formation offishers' associations, Mananagat sa Candijay. In Mabini, includingtheirregistrationswith thefederation was named "Mabini appropriate government agencies; and Small Fishermen's Federation'. Both federations were duly registered with Conduct oftraining on leadership, the Bureau of Aural Workers ofthe valueformation and basic resource Department of Labor and Employment. management technologies and hands- on experience. Introduction of alternative livelihood pn,jectsto fishers' associations including Coastal resource management (CAM) project proposal preparation and fund interventions were introduced at this phase sourcing. Six FAs in Mabini availed of of community organizing when the project theMicro-EnterpriseDevelopment participants had already developed the Program (MEDP) of the Department awareness and commitment to the project. ofTrade andIndustry (DTI). The It was also at this stage when the coastal MEDP's credit program entitled each residents realized that the continuous destruction FAtoavailof credit amounting to of the remaining mangrove and other fishery P50,000.00 with an interestof resources would be detrimental to their future. 7% per annum, payableinthree years. The Department of Social Work Some problems and issues in project and Development (DSWD) also extended implementation were addressed at this phase. livelihoodassistanceto an FAin The conversion of mangrove areas into fish ponds Barangay Minol,alsoin Mabini, and the illegal fishing grounds were amqng amounting to P50,000.00. FAs the resource management problem. Coastal in Candijayopted not to borrow residents were drawn into struggle to stop since they were the project's beneficiary these and any further abuse of the resources. for mariculture.

The institutionalization phase on the Linking the fishers' associations with other hand, was designed to sustain the other rural workers' organizations in etforts after the project ended. The following the region. The project staff, in its effort activities were carried out in this phase: toinstitutionalize theFAs, attended

62 the Regional Rural Workers Conference awarded tobeneficiaries under the accompanied by the FA leaders from smallholder mangrove management the two munkal tederatkiis. The cniferBnce system. A total of 265 beneficiaries held in Cebu City from 11-13 were awarded the CSCs or MSAs by September1991 ,was a forum for leaders theDepartment of Environment and ofruralworkers organizations to Natural Resources (DENR)alter establish networks in Region 7, pompliance withtherequirements Central Visayas. stated in the contract.

Conducting training on basic financial Throughout the institutionalization management, strategic planning and process,the people became the project cooperative orientation. Part of the implementors, the local government units institutionalization process was to provide coordinated,and thegovernmentsline FAs with trainingon financial agencies provided the technical support. management and development planning. These training courses were conducted in Lessons/Recommendations cooperation with the Department of Trade andIndustry (DTI) andthe Theexperiencesduring project Bol-anonFoundation, Inc. After implementation have generated several thetraining,thetwo municipal Iearnings that provide good lessons to improve federations came up with a three-year similar project activities in the future. development plan that started in 1992 upon the phasing out of the RRDP. On fishpond development within mangrove rehabilitationareas. Cooperative formation. The project Fishpond development, both legal and had encouraged the FA5 to convert iIIegaI,whin the mangroves discouraged themselves into cooperatives by providing people's participation in undertaking cooperative orientation and training, reforestation and other activities. considering that some FAs have already engaged in economic activities using On government's resource their loans. Cooperative formations, management policies. Conflicting however,were options leftto FAs. government policies on resource use Only two FAs converted themselves came to surface when an empowered into cooperatives. These were the cmimunity prwented fishpond devekpmerit Lunsodaan Nipa and Bakawan Producers in athickly forested mangrove area. Associationin Candijay andthe Bonbon Two government agencies, the DA and Small Fishermen's Association in Mabini. the DENR, were at odds as to whetherthe fishpond should be developed or not,It Awarding of Certificateof Stewardship is recommended that government policies Contract for smallholder mangrove on resource management should have management. The Certitkate ci Stewarth a common perspective and conflicting Contract (CSC) and Mangrove Stewardship policies should be reconciled. Agreement (MSA) were tenurial instruments

63 On alternativelivelihood. The Postscript identificationof alternativelivelihood thatwillalleviate poverty and at the The Candijay-Mabini Mangrove same time reduce communit/s dependence Rehabilitation and CoastalResource on the coastal resources should be built Management Project started implementation intotheprogram. Land-based with USAID funding in January 1989 and projects are best recommended as alternative ended in September 1991. The project was liveWiood to beimplemented by the extended to December 1991 through a grant people's organizations, which will have from the World Wildlife Fund (WWF). More toensure organizational sustainability. thanthreeyears after the project was completed, it was formally turned over to the On property rights. The degradation DENR on 22 March 1995 by The Network ofthe coastal resources of Cogtong Foundation, Inc. Bay has been attributedmainly to theopen- access character ofthe Writing a case study of a CBCRM coastal resources. This situation experience based on the project started on has attractedresource users even 28 May1995 during a brief visit to the project. from outside the province.A coastal management scheme must be Fishers' associations were still intact initiated by the localgovernment but were not as vibrant as when the project units,inthe absenceofa well- staff were still around. In Mabini, the DENR funded resource management implemented the Coastal Environmental program fromthe government or Project (CEP) through the RRDP's organized other development agencies. communities that started in 1994.Some fishers' associations which obtained loans On expanding the coverage of the from the DTI and DSWD have compieted project. There are barangays outside of payments, andsomehaveextended project area with thick mangrove areas payment schedules up to 1995. that need management. Those areas havebecome haven formangrove The community protection efforts were cutters and refuge forillegal fishers; still effective on the mangroves, especially efforts must beundertaken to reach among CSC beneficiaries who are maintaining these areas before they are destroyed. their areas. The efforts to eliminate illegal fishing, which went into high gear during the On redefining the coastal zone. project implementation, have waned when local Watershed development adjacent to government officials who were supportive the bay should be considered in the of the project were replaced during the 1992 future. InCogtong Bay,four large elections. Blast fishermen were again reported rivers empty into the bay. During rainy to have intruded into the management areas season, flood waters from the mountains of the bay. cause siltations in the shallow portions of the bay. Where possible, the watershed With the implementation of the Local must be included in the coastal Government Code, local government units resources management. have intensified their tax collection efforts, 64 including collecting fines only on confiscated illegal fishing gear from illegal fishers. Such penalties allowillegal fishers to retrieve their fishing gear and go back to their trade. The scheme has demoralizedactive FA members involved in the protection efforts and the whole community as well.

The mariculture project initiated by RRDP was notsustained. Maricullure beneficiaries from Barangay Cogtong complained of the high cost of maintaining the project particularly the cost of materials for replacing materials like bamboos.

The project had a great impact on the community especially that the community was successful inpreventingfishpond development in mangrove areas.Moreover, ref orestation activities and other management activities were still sustained by the beneficiaries. The municipal government of CandijayandMabini had an ordinance banning the sale of mangrove firewood outside their respective municipalities.

References:

Ferrer, E. M. "People'sParticipation in CBCRM: Generating Social Energy for Community Management." UPCSWCD, Quezon City. 1993.

Rivera,ft A. "ApproachingCoastal Resource Management Through Community Property Rig hts Arrangement." Tambuyog Development Center, Quezon City, 1995.

Vande Vusse, F. J. Progress Report. ACIPHIL. INC., 1989.

65

The Fishers of Talangban: Women's Roles and Gender rI ___- - Issues in Community-Based Coastal Resources Management

LUZ LOPEZRODRIGIJEZ, Associate Professor University of the Philippines in the Visa yas , Philippines

Thispaper analyzes the Filipino women's Social and Gender Analysis in situation in coastal communities, particularly Fishing Communities those engaged in fisheries. Itemploys social and gender analysis as an important framework Gender is often left out as a variable for a holistic understanding of the issues in in development programs, including those community-based resource management on environmental resource management. particularly in the coastal zone. The author Mostliteraturefocus onthe bio-physical draws her ideas from her direct experiencein components of ecosystems and the technical assisting the establishment of a community- aspects of production efficiency, ecological based coastal resource management program conservation and rehabilitation. Recently, there in Batan, ; from a review of literature on is growing attention to the unequal access the subject; and from exchanges with colleagues to fishery resources in fishing communities who have been working with women in fisheries and an advocacy for the empowerment of poor and coastal communities. fishers. However, most researches and development programs still generally regard fishers as men and remain oblivious to women's direct participation in fishing and their contribution to the fishing industry.

67 Social and gender analysis recognizes men's domain is public production or paid that the processes of resource and surplus work outside the home which is highly valued extraction in fisheries create marginalized more than women's reproductive work. and oppressed sectors, fishers both men Therefore, women directly involved in fishing and women, among them. Fishery technology are more likely to be referred to as helpers and development programs promoting such or auxiliary fishers assisting their husband- technology have varying effects on men and fishers in handling simple fishing equipment women in a coastal community. or are relegated to shallow-water fishing and gleaning,fish processing, trading, and Mabunay (1995) noted the bias of research mending of nets. Illo and Polo (1990) emphasize procedures in some studies of fishing villages in how the women are socialized into, and Asia which undervalue the role of women in interact along, work roles more associated the economic process. Research projects withthe homethan fishery.They are employed male field workers who depended socialized into being female, with roles and on male informants who also tend to designate responsibilitres revolving around the home men as immediate beneficiaries of rural and/ and housework; on the other hand, they or fishery development projects. were taught to be more than female, to work alongside men. Recent studies (Davis & Nadel-Klein, 1988; lIlo & PolIo, 1990; Tungpalan, et. al. Thenuances of women's role in 1987; Sobritchea, 1993) however indicate coastal zone management is better illustrated that oftentimes the "fisherman" is also a through a case study ofthe Batan Bay woman. Women appear as commercialfishers, coastal communities focusing on the fish plant laborers, proletarian processors, Talangban Fisherfolk Organization or the subsistence or artisanal fishers, processors Katibyugan it Mangingisda sa Ta/an gban of and marketers, political agents, financial Barangay , Batan, Aklan. managers,dependent housewives, and Talangban is located in an inner river tributary of complementary partners in a wide variety of Batan Bay, southeast of Aklan province. ecological, cultural, politicaland economic arena (Davis & Nadel-Klein, 1988). The Satan Bay Environment

Fishing as a way of life depends on Batan Bay is located in the central women's unpaid as well as waged work. Philippine island of Panay in the province of Thepatriarchal view of work created a Aklan.It lies on the eastern side facing the reproduction and production hierarchy in Visayan Sea near the boundary with the the sexual division of labor.In Philippine province of (see Figure 1). society, women are primarily expected to do reproduction work.This is often unpaid, Batan Bay and the adjacent Banga confined to the home, routinary and just as Bay, more popularly called Tinagong Dagat physically and emotionally taxing as paid by the locals, comprise a semi-enclosed work outside the home. On the other hand, estuarine with a 2.4 kilometer-wide opening

68 FIGUREi MAP OF BATAN BAY, AKIAN

'I

PAL INALANGKA

ASINAN UMEOG AGSAM CROSSIN6 CALAMAY 0 TALANGBAN I) MALABAGO J 1/cBUCOT PANES/, / R,t SENTRO MOTO CAPI Z r PUNTAV'?

69 between Batan and Dumaguit points. E3atan The sitio, being almost entirely by a Bay has a total area of 765 hectares, 40% of winding river system, resembles an islet which is utilized by fishers with passive (see Figure 2).The highest elevation is gears. Banga Bay has a total area of 668 only about 80 meters above sea level. The hectares, 60% of which is also used by sitio's feeder road is flanked by mudflats, much fishers with passive gears. of which have been developed into fishponds or fishf arms. Batan Bay and its tributaries are sharedbyfive municipalities withthe Around 80% of the area is agricultural municipality of Batan having jurisdiction over land. Besides homelots and gardens, there 60% of the water area. Both bays support are small fields planted with rice, coconut, a wide range of species of fish and invertebrates nipa as well as patches of banana and bamboo and host a range of fishing, aquaculture, groves. The physical and social environment is and water navigation activities.Total fishery intimately tied up with the riverine setting production (excluding mussels and oysters) that surrounds most of the village. is estimated at 654 tons per year, 46% of which comes from Batan Bay, 30% from Most proximate is the Hae-o (Jal-o) Tinagong Dagat and 24% from the tributaries. River, essentially a brackish water body, The estimated area of fishponds is about the salinity of which increases towards the 2,400 hectares which is equivalent to the mouth of the Batan Bay.The others are total area of mangrove swamps. Balete River, Kil-ohan and Agsam. There are only muddy bottoms throughout this river A sharp decline of catch has been system; there is no grassy vegetation nor observed in recent years. Among the major any coral reefs, although some banks still problems in the area is heavy siltation of about abound with the oysters at Talangban. 17.5 centimeters per year. This is caused by denuded mountains around the bays, the loss of Most households engage in fishing by mangroves, and the congestion of stationary operating stationery gears such as fish cor- gears which impede water circulation. Pollution als,lift nets, filter nets, barrier nets and from housing settlements, fishponds, and farms, using simple implements such as handlines and oilandgarbage spill from ships and and crab pots. They also glean oyster and navigational vessels also compound the problem. other edible shells around the mangrove areas. Others work as seasonal laborers in Sitlo Talangban, Camaligan, Ba tan fishponds. Averageannual income is estimated at P17,000 or just a little more Talangban is one of the five sitios of than P1,000 monthly. Barangay Camaligan in the town of Batan, Aklan. It has a population of 607 distributed A gender-disaggregated activity profile in 116 households, or about 31% of Barangay of Talangban reveals the following division Camaligan's total population. of labor in various activities:

70 FIGURE 2VICINITY MAP OFISITIO TALANGBAN

WASH J NGTO N

PAL NA- OCHANDO LAN6KA OUMAGUIT

SAN LZO BAYANG MIYERKOSAN MAGPAG-ONG

) ARANAS PNAMUNIT SATAN t / / /L A LA B HMBIS TABON \HUEATON\ MAEOBONG AMBULONO

S I

MACAWIWILI I/ CABUGAO LU PIT AL L r E MAN-UP

MORALES A LTAVAS

71 Activity Profile: Camaligan, Lalab, Magpag-ong, 1993 (based on the fieldwork records, Alabado, Dionisio and Patriarca)

Activity Adult Male Young Male Adult Female Young Female

A. Household

Cooking Washing Clothes Washing Dishes *** House Cleaning Fuel Gathering Water Gathering

B. Farming

Land Preparation Plowing Harrowing Dike repair

Planting Seedling preparation Transplanting

Maintenance Fertilizing * ** Pesticide application Herbicide application Weeding

Harvesting Cutting Threshing *** *** *** Drying

Poultry/Livestock Raising * **

Home Gardening

C. Aqua Culture Production

Pond Preparation Cleaning of pond * ** Drainage/drying Fertilizing Filling of pond

Releasing of Fingerlings

Harvesting * ** *** 72 Activity Adult Male Young Male Adult Female Young Female

D. Marine Fisheries Production

Letting Down the Nets Raising of Nets Mending of Nets * ** Processing of Catch * ** Selling of Catch *** Shell Gathering * ** * **

E. Copra Gathering

Gathering of Halving of Nuts Preliminary Drying *** Extraction of Meat *** *** Drying of Meat

F. Nipa Thatching

Cutting of Nipa Stalks Slicing Leaves from Stalks Bundling * ** Transporting *** "Pipis" (Sewing) Selling

Daet Weaving

Acquisition of Buntal Fiber Extraction *** "Pagkiskis° Combing Washing *** *** Boiling * ** * ** Solar Drying *** Connecting Fibers "Sabu n gon" *** "Su gponon" *** "Eikison" *** * ** Weaving

Community Activities

Local Government Church Activities *** Social Dances *** * ** Market Days Cockfights Athletics *** *** * ** 73 Women's Contribution in Women are traders offish,other Environmental Resource locally produced petty commodities Management and consumer goods retailed in sari- sari, stores. As soon as the catch is The women of Talangban play multiple landed, women bring these to their and strategic roles in community livelihood suki (regular customer or wholesaler) and environmental resource management. or peddlethe fish around the Recognizing these important roles is necessary village. They also peddle vegetables in designing sustainable community-based and home-cooked food. This activity coastal resources management (CBCRM) is particularlysignificant in keeping programs. the local economy going.

Women are primary food producers Women are consumers and in farming and in fishing.Most resource users.Women gather coastal communitiesare farming- plants and collect marine products for fishing households due to the food consumption and for the market. seasonalityofactivities and income They collect ta/aba (oysters), tahong from both types of livelihood and due to (mussels) and other edible shellfish the need to diversify income sources. along river banks. They cut nipa and coconut palms and weave them into Women are farme,s accomplishing thatches for their own use or for sale. They important stagesinriceproduction, weave baskets from bun(RaDhia specifically planting, weeding, harvesting, pedunculata)for storing grains or strip post-harvest and marketing. Women tend bun stalks and weave them into raffia home gardens and raise livestock and cloth.Lesspractised nowadays is poultry which are sources both of food at weaving fine piña cloth from pineapple the family table as well as of cash income. leaves.

Women are fishersespecially Women gatherfodderfor in shallow waters along rivers or beaches. animal feeds and wood for fuel. Together with children, they catch fish Women do the laundryusingwell and collect edible shellfish for home water and fetch water for the family's consumption or for the market. They use at home. row bancas,install fishing gear, and haul nets with their husbands and other Women areresource managers. male members ofthe family. They They plan and allocate their meager mend nets and maintain the fishing income andtheresources at their gears.They salt and dry fish and disposal for the multiple needs of the process food to store it for lean days or family. They transact credit when to generate more income. resources are inadequate and advise the family members on their 74 consumption patterns when resources Pangita comes from the root "kita" are scarce.Theytrain the young by (literally, "to see" or "a find"). In the contexts in example on conserving and recycling which it is used, it insinuates a form of gain, resources such as water, fuel and food. as reward or profit.Pan gita signifies diverse aspects of production specifically in terms Women are housewivesand of work and livelihood.'Kitaisclosely caregivers. They are mostly associated with a source or 'ginnabuoean' occupied with childbearing, child (literally, "where one gets something"). The rearing, housekeeping and other so- reference is often for a specific expense calledreproductivetaskswhich item and indicates a monetization of the kita. nurture the health and general well- being of their husbands and other economic Juxtaposed with pan gabuhi, pan gita producers in the family or household. reflectsthe narrowerand conventional conception of production for a "livelihood", Women are community volunteers as a means of sustaining life, maintenance and development workers. As an of living and synonymous with sustenance extension oftheir caregiving role in the or subsistence. In combination, as family, women take on unpaid community "gapangita' it pangabuhian", the terms denote management work such as being day active pursuit of ways and means by which to care workers, barangay heatth workers, live or succinctly "working for life". It implies barangay nutrition scholars, Parents the cormectedness of various aspects of and Teachers Associatbn (PTA) members women's work as one aspect of their living. and officers, and church volunteers. Mabunay (1995) proposes the following Women's View of Work and Uvelihood schema in delineating pangabuhiand pangita as viewed by the women of Women's interrelated functions in Talangban: reproductive work at home and in productive work outside the home is succinctly cap- tured in the themes "pangabuhi" and PANGABUHI PANG ITA "pangita"whichis documented in Ma. Luisa Mabunay's study of Talangban women Reproduction Production (1995). Life Livelihood Sexuality Work Pan gabuhirefers toreproduction Self-ProvisioningCommoditized involving life/sexuality.It stems from the Home Society root word 'buhi' (literally "life", "to live" or Private Public "being alive"). Figuratively, it also means to Family Household survive, and is often used in general and Strategic Practical ambiguous ways. Women Men

75 Women articulatethe delineation of men's technology,with less effort and less and women's pan gita or pan gabuhL Women time. Now that mangroves are gone, describe their occupation as 'sa sueod baea/ and fishponds have appropriated most (withinthe house)or as housekeeper, of the fishing ground, women fish less homemaker or housewife. Men's work is 'sa and are confinedtoedible shell I/wan' (outside or beyond the home). gathering or work more as fish traders on consignment from the produce of The connectedness of pan gabuhi and fishponds. Younger women, unable pangitaare key concepts and principles to proceedwith higher education, from which we can learn in setting the vision leave thevillagesto work as and strategies of CBCRM. domestic helpers and factory workers in the cities and town centers. Gender Issues in CBCRM Men undertakemost of the fishing activities with increasingly expensive Women are most negatively affected technology that would sometimes by environmental degradation and resource require venturing farther out to the sea. depletion. The changing environmental and social conditionsaffecting the local fishery 2. The culturally constructed gender resources and activities contribute to the division of labor restricts most women shaping of women's work and lives at to reproductive work in the home and Talangban.At the same time, changing regard them as secondary or auxiliary circumstances push women into situations economic producers outside the home. which open new avenues and opportunities. Men are generally regarded as "the Most of their undertakings indicate deliberate fishermen" indeed because they efforts to contribute more actively to their seldom partake of or do onlylittle households' pan gabuhi and pan gita. How- reproductive work, in terms of child ever, there are several factors which im- rearingand housekeeping.This pede women's full participation in a sustain- gender divisionoflaborimplies able development process. gender stereotyping which results in theinvisibility ofwomen's work as Among the key problems and its effects economic producers and the on women are: "devaluation" of women's reproductivework. It implies a 1. A degraded and depleted environmental hierarchy of work and values where resource base breeds poverty, results in "fishing for income" is more valuable the further overexploitationof such than "housework for the nurturance resources and the marginalization of and well-being of family". women. In the past when the rivers and bay were accessibletoall, women, alongside men, activelyfished alongtheshoreswith simpler

76 The stereotyped gender division of Strategies in Gender-Responsive labortranslates into development Development work, intermsof research, technology development and The Kat!byugan it Mangingisda organizing. Researchers are blind to Talangban (KMT) or the Fisherlolk Association of women's issues. Research methodologies Talangban was organized in July 1992 by the Food treat men and women as respondents. Systems Development Project (FSDP) of the Technology development focuses on University of the Philippines in the Visayas (UPV). capital-intensive and expert-dependent The FSDP is a rural development project projects.Organizing on production assisted bytheCanadian International andenvironmental projectstarget Development Agency (CIDA). The KMT's mostly the male head of households. Constitution and By-Laws was eventually ratified Access to training,technology and on September27, 1993 with the foIk,iing objectives: credit has mostly been channeled through the men. To protect Batan Bay and its tributaries as a source of aquatk and mane products;

Women are usually organized To establish a livelihood project that around child welfare, health, nutrition would address the needs of members and foodprocessingprojects.In for additional income as well as food mixed-gender organizations where supply to the community; the bulk of membership may be women, women officers are assigned To act as a voice of the marginal to serve as secretary and treasurer. fisherfolk in the area; and

To cooperate with other line agencies Poverty and environmental issues inbringing about change through aggravate women's multiple burden livelihood projects. whilethereis onlyverylimited support services for reproductive work Joint Participation of Men and Women Deforestation causes the drying up of in the Fishers' Association water wells which makes fetching and housework more difficult and time In recognition of gender equality, the consuming. Mangrove deforestation association welcomed participation of both women and fishpond construction result in salt and men in the association. Membership water intrusioninto waterwells. in the assocon ricluded 13 households, deliberately Pollution of potable water sources involving both husband and wife to represent poses serious healthrisks. When their respective households. The majority of the family members get sick, women as households are marinalfhers wtio operate statbnaly caregivers must painstakingly revive gears along the river.They also engage in them back to health while performing occasional wage work in the fishponds around the other work at home and outside. ama. Afew are small ner-cuftivators with an average of one hectare cocal and rainfed rice land.

-77 Community Organizing and The KMT organized themselves in Education Program the hands-on training on cage culture - the feeding, sampling, monitoring and cage At the start, a community organizer spent maintenance tasks. They also met at least considerable time on informal discussions, monthly for organizational meetings, especially individually and in small groups, evoking on financial and organizational management. environmental and economic issues affecting Households tookturns in management. Men, them. The women underwent gender sensitivity women and children helped in the feeding, training. Follow-up discussions were also sampling,andcleaningof cages and conducted on group building, leadership, eventually in the harvest. and community organizing. Evolving a Marketing System Technology Validation as Alternative Livelihood After three months, the tilapia were ready for harvest at three to four pieces a The community organizer and fisherfolk leaders realized that they have to kilo which were sold at a farm gate price of address the economic needs of the people P45 per kilo. Marketing was no problem alongside their involvement in advocating because there was a good demand for the environmental issues, hence they turned to hybrid tilapia whose taste and texture was tilapia cage culture.Cage culture is less comparable to highly priced fish. They decided capital-intensive than fishpond operation where thattheselling of produce will be thesmall fishers have no access.The exclusivelydoneby the members technology was made available with themselves so that they can earn P5 to P10 voluntary technical assistance from U.P. mark-upfor every kilo.Except for this Visayas. financial benefit, they decided that the net income will be plowed back to production, The U.P. Visayas team introduced until such time that they have expanded them to cage culture of sex-reversed hybrid their production and gained enough profit to Thistechnology was tilapia (nilotica). declare individual dividends. Women were developed by Dr. Lourdes Dureza of the mostly assignedthe tasks offinancial UPV College of Fisheries from the thesis recording and record keeping. experiment of her graduate students. She trainedthe KMT members in tilapia cage culture, as part of participatorytechnology After one year of four cycles of produc- validation and development strategy. The KMT tion, they earned a profit of more than members were enthusiastic about thenew P11,000.This was meager and did not knowledgeaswell as potential source of solve the economic and environmental prob- additional income. An initial capital of P67,000 lems of the members and the community but was borrowed from the FSDP. The cage it helped them in small but significant ways. culture project started operation in December 1993. The members rendered free labor during the construction of the cage.

78 Outcomes of the Experience Women have been recognized as partners at work and at home. Men have Both women and men found the startedto appreciate women's roles and tilapiacage culturetechnology easy to contributions outside of the home and have learn and handle.Even the children assisted gradually taken share in household chores. as well,henceit became a family-based enterprise. However, commercial feeds take up more than half of the production expenses. At the moment, the KMT members are in Community-based productionof feeds was the process of expanding to hatchery of tilapia considered but there is not enough volume cage culture project. Other fisher-groups are also of fish cage culture ongoing at presentto interested in adopting the technology which makethiscost-effective.Notallthe can be managed by a people's organization, for necessary materials forthefeeds are both men and women. It contributes to food readily and regularly available. security by supplying the food needs of the local community and by serving as a profitable source The project provided KMT members with of income. When further expanded and a ready source of viand for their family and developed, this can become an alternative thecommunityespeciallyduring lean socio-economic activity to partially relieve times.Tilapia of reasonable size can be the exploitative fishing activities in the river selectively scooped out any time for their and bay. consumption. This is an important source of proteintopreventmalnutrftion. The KMT However, this technology could not members still have to diversify their sources of successfully stand on its own without the food especiallyin termsofvegetable support of equally important activities: production. However, the limited supply of water for year-round home gardening is still Gender-disaggregated baseline data a constraint. and women-specific studies employing participatory research. Selling the tilapia at P5 to PlO mark-up Earlier researches were more statistical per kilo has provided additional income to women than qualitative in nature.Participatory and their families.Women's entrepreneurship reseaith usig focused-group discussions is reinforced by vending the fish and being facilftated reflections on environmental quickly compensated in cash to buy other and gender issues. necessities for the family. 2. Communfty organizing and continuing The experience of collective action in education on environmental, economic managing a project has fostered camaraderie and gender issues.This aspect was and unity among the members,trained relatively unsustained wfth the pull-out of them inleadership, organizational, and ccrwnunity organizers in mid-1994. Ensuing entrepreneurial skills, especiallythe women. monthly visits mostly dealt with technical Earlier, many scoffed at their initial venture. inputs on fisheries and did not allow much input on organizational development. 79 Networking and advocacy with LGUs, Organizations such as the KMT have NGOs and POs. Though theU.P. to struggle constantly with the individualistic Visayas wasitsmajor supporter, tendencies of some of their members: the KMTalso linked up wlth municipal and occasionallackofenthusiasm among provincial agencies for follow-up on members in undertaking their organizational environmental advocacy issues. tasks, and the complacency of other fishers in the community in protecting the environment. Gender awareness, equal sharing Follow-up consciousness-raising and training of responsibilities and decision- in organizational and financial management making in the home, in production, are still needed to improve the system of and in organizational activities. reporting and check-and-balances. Continuing education sessions on organizational and Limitations and Continuing socialissues havetobe regularized Challenge for CBCRM alongside technology development.

The KMT members are constantly reminded Althoughtherehas been a basic that tilapia cage culture per se is not the gender sensitivity training, other gender issues solution to their problems. They have to in the community have to be proved and work with other groups in protecting the responded to such as on issues of domestic river and conserving the marine resources violence and reproductive health and rights. in the bigger ecosystem. The group is affiliated Women's health is poor due to frequent with the Intermunicipal Coastal Resource childbearing, poor nutrition, and multiple ManagementCouncil (ICRMC) which is burden. Some women cannot easily decide composedof localgovernmentofficials, on going out of the house to attend meet- governmentagencies,non-government ings, especially if out-of-the-village, without organizations, and people's organizations, their husband's consent. mainly fishers' organizations. It is admitted that the KMT still has a Once,theypetitioned against the long way to go in terms of achieving its goals constxuction of a fishpond dike obstructing of sustainable development. At least, it has a natural waterway in theirvicinity. Despite their taken the initial steps. repeated follow-up with various government agencies, their petition has not yet been adequatelyattended to. The ICRMC, they noted, has not been active recently because of the political factionalism among local government leaders durlig ihe electkns. Fishers' paitkipatkn in the ICRMC isstill relatively weak, and the fishers still have to consolidate their ranks across the various barangays around the bay. Women are not represented in the ICRMC.

80 References:

Davis, Donna Lee and Jane Nadel-Klein. "Terra Cognita: A Review of the Literature" In To Work and To Weep: Women in Fishing Economies, pp. 18-50.Edited by Jane Nadel Klein and Donna Lee Davis. St. Johns: Institute of Social and Economic Research, Memorial University of Newfoundland, 1988.

Illo, Jeanne Frances I. Polo, Jaime. Fishers. Traders. Farmers. Wives: The Life Stories of Ten Womenina Fishing Village. Quezon City: InstituteofPhilippine Culture, Ateneo deManila University, 1990.

Ingles, Jose, et al."A Study of Fisheries in Batan Bay."lIoiIo City: Food Systems Development Project, U.P. in the Visayas, 1992.

Mabunay,Ma.Luisa. "GenderRoles in Women'sLives: A Study of Fishing Householdsina Central Philippine Community", Ph. D. dissertation, McGill University,Montreal, Canada: June 1995.

Sobritchea,Carolyn. "Gender Roles and Economic Change in a Fishing Community in Central Visayas." In Fishers i the Visayas pp. 279-304. Edited by lwaoUshijima andCynthiaZayas. Quezon City: CSSP Publications and the University of the Philippines Press, 1994.

81

The Sustainable Coastal Area Development (SCAD) Program in Barili, Cebu

JOEL S. GUTIERREZ, Area Coordinator REBECCA A. RIVERA, Deputy Executive Director QUIRINO L. DELA CRUZ, Research Officer Tambuyog Development Center Quezon City, Philippines

This paper synthesizes the experience of Thelambuyog Development Center (TDC) Tambuyog Development Center in implementing its Sustainable Coastal Area Development (SCAD) Tambuyog Development Center Program in four baran gays in the municipality of (TDC) began implementing community- Barili in Cebu.The SCAD is tTambuyog's core based programs in several coastal communities programthatputs emphasis on community in the Philippines over a decade ago.Its property rights as the key to community-based organizing work was complemented by a coastal resource management (CBCRM). It three-year research on community-based shows howa strong partnership between a non- coastal resource management (CBCRM) which government organization (NGO) and a people's was implemented in 1992. The research, which organization (PD)canfacilitateprogram was conducted natbnwkie, provided a more in-depth implementation.The paper also emphasizes analysis of the conditions of coastal communities. howthe SCAD program works within the By July 1993, Tambuyog held a sector-wide general framework of building the capacities of consolidation conference to summarize its thecommunity,withreference to specific strategies and approaches in CBCRM. Finally, long years of community work and define a the paper also shows how several economic and unified theoretical framework on CBCRM. politicalfactors in the community affect the conduct andcontinuityofdevelopment The framework emphasizes how poverty programs. andresource degradationin coastal communities are linked in a vicious cycle. Resource degradation aggravates poverty and povertyinturn leads to more destructive 83 extraction practices. The twin problems of poverty Equity. This means that a few cannot and resource degradation can be attributed to appropriateforthemselves a particular unclear property rights assignments over coastal resource.To achievethis, entire coastal resources. The situatol leads to poorly controlled communies and instead a few individuals and poorly managed utilization ot resources. should have access to resources.

Resolving these problems requires an Sustainability. To ensure sustainability, integrated approach towards clearly defining development efforts should consider the limits property rights arrangements. Tambuyog of the resources - their carrying and assimilative believes that coastal communities are potentially capacity. The sustainable use of resources the best resource managers, having the ensures intergenerational equity or equity biggest stake in coastal resources. Thus, between the present and future generations. efforts towards the sustainable use of resources, ecological balance, biodiversity conservation Systems Orientation. This principle and poverty alleviation should be grounded gives recognition to the dynamics of relations. on the empowerment of coastal communities to The community is not set apart from other have access and control over resources. communities justas their resources are ecologically linked to bigger ecosystems. The Sustainable Coastal Area Development Program (SCAD) Gender-Fairness. Development efforts should recognize the crucial roles women play Tambuyog envisions organized and in the household and in community management. self-sustained coastal communities that control Wcmen have distinct characteristks and needs so and manage coastal resources for sustainable development should pay special attention to the national development.This vision has been practical and strategic roles of women. translated into a five-year core program called the Sustainable Coastal Area Development The SCAD program aims to facilitate the (SCAD). The SCAD program is being establishment of community structures and implemented in Cebu, Bicol, and organizations of men and women that pursue (see Figure 1). area-based integrated sustainable development agenda to address the lack of access and The SCAD Program espouses the follcming control of the local community people over basic principles: their resources (both land and water) and the benefits that come from them.It also Empowerment. This means the actual intends to mitigate poverty through cooperation, transfer of economic and political power self-help and shared responsibility. Finally, from a few to the impoverished majority. By the SCAD program aims to lessen the conflicts so doing, an active and healthy civil society between and among resource users and is ensured and the community exercises its facilitate the community's active participation in power in the so-called "subsidiary" levels. decision-making processes and development efforts in the community.

84 FIGURE 1 a SUSTAINABLE COASTAL AREA 0 DEVELOPMENT ( SCAD ) PROGRAM SITES

PRIETO DIAZ, PHI L SEA (WEST PACIFIC) TAYTAY, PALAWAN MALAMPAYA SOUND AND TAYTAY BAY GO * 7'

CRITERIA FOR PROGRAM SITE SELECTION POPULATION SIZE AND DENSITY OF FISHERS PROXIMITY OF PROGRAM SITE TO ECONOMIC AND POLITICAL CENTERS MARGINALIZED COMMUNITIES DIVERSITY OF RESOURCES THE RECEPTIVITY OF THE PEOPLE TO THE PROGRAM PEACE AND ORDER AND MANAGEABILITY.

85 In late 1993, Tambuyog consulted the Farming and livestock raising are the Kahugpugan sa Gagmaynpa Mananagatsa dominant sources of livelihood in the upland Sugbu (KAMAS), the province-wide federation barangays of Barili while fishing and farming of small fisherfolk in Cebu, on the possibility are the major sources of income in the ofimplementing the former's capability- coastal areas.The major crops include building project in a KAMAS member-site in corn, coconut, banana and mangoes. The the province. The municipality of Barili was average annual production per hectare is selected, given 1) the presence of a functional estimated at 20 cavans for corn, 1 .5 metric KAMAS member organization, the San tons for coconut, 2 metric tons for bananas Rafael-Cabacun gan Fishermen Association and 3 metric tons for mangoes. (SANRACA); 2) the pressing need to assist the community due to the advanced state of The Fisheries Condition resourcedegradation;and 3) the relative poverty of the people. This capability-build- Barili has a total of 205 full-time and ing project later evolved into a full-blown 495 part-time municipal fishers. About 90% SCAD program for Barili with SANRACA as of the boats are non-motorized, using only the partner fishers' organization. sails and paddles. The major fishing gears include hook-and-line, squid jiggers and gill Site Profile nets. The majorspeciescaught are composed of small pelagic fish locally known The municipality of Barili is located at as bodloy, anduhaw, tamarong, baga and the southwestern side of the island of Cebu, Iumayagan. Municipal fishery production about three hours from the provincial capital, reached 645.52 metric tons in 1990. Cebu City. Barili is bounded on the east by the municipalities of Carcar and Sibonga, on In contrast,thereareonly10 the north by Alonguinsan and on the south commercial fishing boats in Barili and these by Dumanjug. It has a generally hilly terrain are all based in Barangay Japitan. They use with steep slopes in the eastern narrow only one type of gear, the ring net, which is plains along the coasts.On the western locally called kubkob. The kubkob employs. side lie Barili Bay and Ta?Ion Strait, serving a total of 164 fishworkers.The average as the main fishing grounds in the area (see gross tonnage of these vessels is estimated Figure 2 for a map of Barili). at 16.6 metric tons. In 1990, total commercial fishery production reached 282.24 metric tons. Barili has 42 barangays, 10 of which Aside from the kubkob, an average of 20 are located along the coasts. Its total population commercial fishing boats from Negros Oriental reached 48,959 in 1990. Coastal population and the southern municipalities of Cebu also totalled 13,137 or 27% of the total population. operate in Barili Bay. Barili has 7,331 households with an average family size of seven. Finally,the fishponds in Barili are concentrated in baran gays Japitan and San Rafael. These fishponds have been operating

86 FIGURE 2 MAP OF BARILI, CEBU

IQLUZON

PINAMANGAJAN

OCARCAR

RONDA0 o SIBONGA 0 ALCANTAR 0 ARGAO MINDAN' 0 RADIAN DALAGUETE ALCOY

B 01 J OON GIN AT IL AN 0 ONLOB NEGROS ORIENTAL

BREEDING BAR ILl STAT ION BAY

HILAS- GASAN

GILOCTOC

87 since the late 1970s when vast tracks of * Low agricultural productivity due mangrove, swamps were converted to to poor soil quality. Poor soil qualityin the aquaculture ponds for prawns and milkfish. area leading to low agricultural produce is In 1990, the Department of Agriculture (DA) brought about by improper land use. The reported a total of 8 hectares of prawn ponds sloping hills in the area, planted with corn, and 2.5 hectares of bangus ponds.In the are easily eroded. Land erosion is further same year, a total of 20 metric tons of prawns aggravated by the absence of trees which and 0.40 metric tons of bangus were produced. could stabilize the soil. Corn rapidly depletes the soil of its nutrients, particularly nitrogen. The SCAD program is being implemented Since corn is planted three to four times a year, in four barangays in Barili, namely: Japitan, the crop yields tend to decrease each time. Candugay, Giloctog and Hilasgasan. Based on a rapid coastal systems appraisal (RCSA) * Poverty and lack of alternative conducted by Tambuyog in 1994, the problems sourcesoflivelihood. Fishing is and issues in these communities include: seasonal and the land is not a stable source of income of the people in the area. During * Community's lack of control and the lean fishing months of August to February, access to marine-based resources. A the people of Barili usually seek employment municipal ordinance clearly stipulates that outside of their communities. The men are the first three kilometers from the shoreline usually employed as construction workers and of Barili Bay is part of the municipal waters the women work as household helpers in of Barili, thus giving preferential use to the Cebu City and Manila. small-scale fisherfolk in the area. However, the kubkob continues to operate in these * Inadequate provision of social areas, resulting in conflicts with the small-scale services. Water is too insufficient to meet the users.The continuedencroachment of needs of the people. The main source of water these commercial fishing vessels is a clear is a gravity-type well but it dries up during the violation of the municipal ordinance prohibiting summer months.Even during the rainy them from operating in waters within 15 season when the water table is supposed to kilometers from the shoreline. As a result, have steady water supply, the well cannot the commercial fishers deprive the small-scale provide an adequate supply of water to the users of a big portion of their potential catch. communities. This situation forcesthewomen and children to walk several kilometers and stay * Degradation of the Marine Systems up late at night just to collect enough water Leads to Low Fish Catch.The marine for their household needs. Health services ecosystems, particularly the mangroves and are also irregular and insufficient.Rural the corals, are in poor ecological conditions. This physicians rarely visft the area except during situation is mainly a result of human-induced nationwide campaigns for vaccinations. The local stresses which include the use of dynamite and peopie normally go to the district hospital for cyanide. Mangrove areas have also been health problems, butmedicinesare so converted into fishponds since the 1970s. expensive they could hardly afford them.

88 The San Rafael-Cabacungan to any project implementation. The trag program Fishermen Association (SANRACA) included livestock raising,sloping agricuure land technology(SALT),and leadership Tambuyog's main partner is the San training, among others. PH also encouraged Ratael-Cabacungan Fishermen Association the people to form their own organizations. (SANRACA). The organization traces its origin from the formation of a unit of households The Birth of SANRACA who became beneficiaries of Plan International, Inc., a welfare NGO known for providing From among the core of SU 10, the financial support to poor communities in the fishers from Sitio Cabacungan and Barangay rural areas. These households are located San Rafael initiated the formation of a small- in Barangay Japitan. scale fishers' organization. A proposal for this organization was submitted to PPI.In In May 1991,the Philippine Peasant April 1991, a group of 22 fishers attended a Institute (PPI) organizers conducted a house- training on human resource development hold survey which served as the basis for facilitated by PPI in coordination with the selecting 600 families who would eventually be Department of Agriculture.Majorityof the beneficiaries of livelihood projects.One participants to this training acted as the standard unit (SU) comprisedabout 60 founding members of SANRACA. families. Each SU has a leader, an assistant leader, a secretary and a treasurer. SANRACA was officially initiated in July 1991 with 18 founding members. As Several livelihood projects were implemented their initial project, SANRACA set up artificial including dispersals of fishing boats, net, reefs (ARs) and payaws or fish aggregating gas lamps, pigs and goats. PPI also supported devices (FADs). The actual setting up was the education of a number of school-aged delayed for almost a year because of the delay children in Japitan.A school building, a in funding. Nonetheless, the artificial reefs gravity-type well and community latrines and the fish aggregating devices were were also established.In 1984, PPI financed eventually set up in March 1992. fhe German small-scale enterprises like sari-sari stores. Development Services (GDS) supported the Unfortunately, most, if not all, of the livelihood installation of more payaws and the maintenance projects failed mainly because the fishers of SANRACA's cooperative store through a were unable to pay back the loans provided grant.The GDS also conducted technical by PPI. A program evaluation conducted by studies in the area. PPI in 1985 showedthatonly one SU remained relatively stable:SU 10 which is Additionally,SANRACA went after the composed of families from Sitio Cabacungan commercial fishing vessels that encroach in in Japitan and Barangay San Rafael. the municipal waters of Barili.In one instance, a SANRACA member confiscated a light In 1986,PPI shifted to conducting boat of a commercial fishing operator who happened extensive training and education work prior to be the of Japitan.

89 SANRACA sought the aid of the local police Thus, in the context of capability building, and also reported the incident to the provincial Tambuyog's efforts are focused cn ccnsolidating government. They even held a rally in front the gains of SANRACA and expanding the success of the municipal government office. Upon of community-initiated CBCRM in the area. the intervention of the governor himself, the barangay captain of Japitan was forced to In structure, Tambuyog is working towards sign a memorandum of agreement (MOA) the formationand strengthening of three declaring a three-kilometer ban from the key types of organizations: shoreline to commercial fishing vessels. Subsequently, a municipal ordinance was Formal and In formal Structures passed in May 1993 declaring the waters 15 of Men and Women kilometers from the shoreline of all coastal barangays of Barili as "reservation area for These structures are composed of fishers, marginal or subsistence fishers".Violators farmers, wcmen and other groups in the community. of the ordinance willhave a penalty of They would also consist of local volunteer imprisonment of not more than 30 days, a organizers (LVO5) from SANRACA and other fine of not more than P5,000.00 or both. ad hoc formations in the three barangays. At present, there is an established core of LVOs By May 1992, SANRACA formally who are assigned the tasks of consolidating and adopted a cooperative-style of formation as strengthening the fishers in the other barangays. a result of training on cooperatives conducted TheLVOs comefromSANRACA(see by PPI. Its membership bythis period reached 35. succeedingsection on the LVO scheme discussion). The LVOs and members of the The SCAD Program Strategy ad-hoc formations participate in several in Barili training and education activities that include leadership formation and skills, paralegal Tambuyog believes thatits role in training, environmental awareness management of development work should be facilitative. socio-economic projects, among many others. This means that the work of Tambuyog is focused on building the capabilities of A women's group was also formed in sitio coastal communities so they can become Cabacungan. Its members are mostly affiliated efficient and effective resource managers. with SANRACA. Some are the wives of SANRACA members. The women's group In Barili, SANRACA possesses a initiated a clean-up drive they called the Linis wealthof experiences on resource Baybay-Dagat (coastal clean-up). They also management. It has shown its organizational conducted a study oh indigenous herbal strengththrough the implementation of medicine which can be used in the community. several rehabilitation programs. The passing of Additionally, the women are actively involved a municipal ordinance effectively making in a proposed water supply project. The group the small fishersthe "owners" of municipal undergoes extensive education work on waters is a political gain for SANFACA. gender awareness and sensitivity training.

90 Resource Management Cooperative(RMC) Partnership Between Tambuyog and SANRACA Primary and secondary cooperative formations are envisioned to undertake the At the onset of project implementation, two-pronged tasks of resource management there was recognition of thewealth of and socio-economic work. They are envisioned experiences and gains already achieved by to focus on resource rehabilitation projects SANRACA. What was needed at that point and income-generating activities. was to consolidate these gains and expand SANRACA is being developed into a full- its reach to influence adjacent barangays blown resource management cooperative who were notdoing wellwiththeir (RMC) through continuous education work, resource management efforts. project implmentation, monitoring and evaluation activities. These needs were recognized by both Tambuyog and SANRACA and formed the Stakeholder's Forum basis of their partnership. A memorandum of agreement (MOA) was drafted and signed An equally significant component of by both organizations stipulating the support of the SCAD program is the community's active the formerin further strengtheningthe participation through coalition building and organizational capability and project handling advocacy work in the formation of a GO- expertise of SANRACA through the conduct NGO-PO tripartite body. This formation is of training, research and organizing support. called the stakeholder's forum. It is a forum The two organizations further agreed to whereinthestakeholders can unite on jointly undertake activities to extend the resource use in terms of agenda, interests, success of SANRACA to the three other roles and functions. The forum is a policy adjacent barangays and to jointly implement body where resource use conflicts are addressed. the SCAD project in the site.Later, the partners refined and agreed on SCAD and Partnership with Various Groups for the SANRACA Integrated Sustainable Resource Management Coastal Area Development Program (SISCAD), SANRACA's own development Another crucial aspect that the SCAD- program, was conceived. Barili focuses on is the establishment and strengthening of partnerships with various A set-up was formed wherein organizers groups to generate much wider support for and trainors from Tambuyog will be resource management efforts in the area. complemented by local volunteer organizers At the core of these partnerships is the one (LVO5) comingfrom the leadership and between Tambuyog and SAN RACA. Consequently, rank-and-file of SANRACA who will initiate this is complemented by a partnership being expansion activities in other barangays and developed with GO and other NGOs consolidation activities within SANRACA. strengthening ties with formal leaders in the community.

911 Linkaging with Government and Other Maintaining Good Relations with Non-Government Organizations Formal Leaders in the Community

Another level of partnership which is Formal leaders simply refer to the either being established or sustained is that barangay captains, council members and with GOs and other NGOs to generate outside the barangay development council members in support for the project.Establishing good the four barangays. There is a recognition linkages with local government units and of their power and influence in the community officials is necessary as the cooperation or and sufficient courtesy is extended to these non-cooperation of these people to lend in1ividuals and to the positions they occupy. credibility to the project may determine the Maintaining good relations with these people ease of project implementation or pose as a can mean not only support for the project threat toits success. Thegravity of but also the possibility that initiatives can be resource use conflicts may also necessitate coursed through them so as to have legal the legalbacking of coastal resource credibility and wider community cooperation. management initiatives which these institutions and individuals can provide. The SCAD-Barili Program Indicators

The support of other government agencies The points of intervention in the SCAD involved in resource management iniatives, on program for Barili is translated into key result the other band, can xintrlbute hi pnMding kgistics areas or program indicators. The nine indicators, andtechnk2! knhow. Inthecase of the Department with an acronym of COOP-BREED, were of Environment and Natural Resources (DENR), developed to be attained within a five-year for example, fts upland and mangrove reforestatkn time frame. The first four - COOP - are the projects had been tapped in the efforts to main concerns while the second group - rehabilitate the upland areas in the site. BREED - are the five development aspects.

The non-governmental organizations, Community-Oriented Values and whether local or international, can complement Critical Consciousness Development project initiatives with their expertise in other fields.The German Development Service The development of community-oriented (GDS), as an example, continues to assist in values and the raising of critical consciousness funding the projects of SAN RACA and their consists primarily of training and seminars soon-to-be launched upland project which being extended to the people's organization can be tapped to complement the coastal (P0) leaders, members and communityfolks. managementefforts. Other organizations In terms of attitudinalknowledge and with expertise in tapping water for domestic development, orientational training on use, paralegal questions, and organizing CBCRM, environmental awareness, gender are also being tapped by SANRACA and sensitivity and value formation are provided Tambuyogtoattain unity in the coastal to people's organizations. management efforts in Barili. 92 More specific skills are developed People's Active Participation Through through the expansion of the training program Coalition Building and Advocacy Work with courses on community organg, laaciersh, P0 management, cooperative management, This entails the formation of a tripartite feasibility study, instructors'/faci litators' group or forum between LGUs, NGOs, and training, andconflict management. In POs and all stakeholders that will unite on a addition, the program also provides exposure coastal resource use plan in terms of interest, programs for P0 leaders and members agenda, role and function. Presently, this is through participation in conferences and site being worked out through the barangay and visits to the areas of partner organizations. the municipal development councils and other available and appropriate fora. Organizational Structure and Development Basic Social Services Accessing

Under this indicator falls the One of the findings of the previous strengtheningand consolidationof studies in the site is the inadequacy of basic SANRACA as a primary cooperative. Sufficient social services. Basicsocial services pre-cooperative activities will be undertaken accessing is then targeted to equip the community to further refine the capability of the partner with the capacity to make claims on responsible P0 to become a full-blown cooperative. Likewise, agencies for them to deliver these services. with the recognition of the role of women in On the other hand, self-help initiatives will the community, it is planned that there will simultaneously be conducted, such as the be a merging of both women and men into establishment of a project on rainfall harvesting one cooperative with a special committee on and spring development to be managed by women within that cooperative to tackle women- the women's group, and the conductof specific issues. Pre-cooperative formations are medical services through the support of the also targeted in the three other barangays which LGUs and other concerned agencies. will later evolve into tulbkin pilmary cooperstives. Resource Tenure Improvement Overcoming Gender and Other Biases One of the primary targets of the project Activities under this include strengthening is the formulation and implementation of a informal support structure for women and the coastal resource use plan that will ensure implementation of seit-heip and income supplemental resource rehabilitation and sustainable use. projects .with women as the core implementors. Under this plan are measures for guaranteeing Presently, women -implemented activities in the site equitable access and control over coastal include the conduct offeasibilitystudy and resources.Another possibility for tenure inplementatbnofthesmall-scalewatersupplyprtject, improvement is the conduct of an in-depth Linis Baybay-Dagat (coastal clean-up) and study on territorial use rights from which possibly livestock raising. possible recommendations can be gleaned.

93 In terms of the land resources, the will provide inputs in the formulation and issue of tenure is also important given that adoption of an alternative development most of the residents in the four barangays agendaappliedbyall sectors of the do not own the land in which they reside and community. The SCAD program of which they farm, and that absentee landlords SAN RACA provides the initial frame for this arethe legal owners. The SCAD project alternative agenda. envisions that the community will be able to internalize the agrarian reform principle and The Local Volunteer possibly initiate activities to solve the land Organizers (LVOs) tenure issue. A new approach incorporated within Ecological Nurturing and the SCAD program in Barili is the formation Agricultural Production of a group of local volunteer organizers (LVO5) who will play an active role in the The formulation and implementation implementation of the SCAD.Part of the of a resource use plan for the marine and MOA between Tambuyog and SAN RACA is land resources are the primary target under the stipulation that some SAN RACA leaders this indicator. Specifically, this means the and members will act as volunteer organizers adoption of sustainable marine and agricultural forproject implementation. This gives technology, production and practices assurance that a core group of individuals through the establishment of demonstration will be given more intensive training and farms and the expansion of the present actual experience in project implementation. In marine breeding reserve area. addition, this group of leaders can ease the task of organizing given theirfamiliarity Economic Strengthening with the community and its way of life. The and Self-Reliance development of the LVOs is a core strategy for sustaining the initiatives under SCAD. It Another expectedoutcome of the is also a tong-term plan for the eventual project is that the community is able to phase-out from Tambuyog in Barili. engage in supplementary income-generating activities based onfeasibility studies to These LVOs not only help in structure supplement household incomes. Also, it is formation and organizing support for SAN RACA expected that community members and leaders and the three other barangays, but are also aretrained in project development and equipped to provide training, conduct researches management. and advocacy work. The volunteers are provided with allowances in order to compensate for the Decentralization and Local time they lose from their economic endeavors as Democratic Governance they devote it to the implementation of the project.The area coordinator from This entails the conduct of community Tambuyog acts as their head personnel and legal and institutional studies (CLIS) which is in charge of their supervision and training.

94 Among the methods being employed In this project, the LVOs are provided to develop the LVOs are: with lectures on CRM and participate in the discussions of the Formal training, which includes basic various concepts, approaches and and advanced coursein CBCRM, methodologies on CRM. environmental awareness, leadership, conflict management, community The LVOs are alsotrainedin organizing, research, trainor's documenting minutes ofmeetings, training, advocacy and organizational! day-to-day activities and proceedings. cooperative management. Specifically,they are trainedand actuallyprepare monthlyactivity Informal discussions among the group reports, diaries, minutes of meetings of LVOs and the area coordinator in and assessments. thearea onthe approaches and methodologies to be employed in their Another area where LVOs are being day-to-day activities. equipped is in self-confidence building for networking and advocacy. On-the-job training such as facilitation This entails participation in meetings in actual training, trouble-shooting of with different agencies, negotiations organizational and other community and dialogues within the community issues, and the facilitation of group and even with government officials, and organizational meetings. and participation and paper presentation in conferences. Cross-visits of P0 leaders and membersin otherareas with 8. Regular meetings are also held in ongoing CRM initiatives and exposure order to assess, plan, and undertake of the P0 leaders and members to criticism/self-criticism.These sessions partner NGO program sites. are held to check project progress and introduce and build capability on these Attendance in seminars and methods/activities. workshopsextended byvarious agencies - both GO and NGO. These 9. Lastly,asidefrom work-related seminars are on disaster activities and as part of continuous preparedness, socio-economic work team-buildingexercises, personal and broadcast communication Two relationship-buildingactivitiesare LVOs arecurrentlyenrolled in the being undertaken to ensure CBCRM School project being enthusiasm and camaraderie among implemented by Tambuyog in the group. coordination withanother NGO, the Community Extension and Research for Development (CERD).

95 Learnings continuity of development programs. The different people's organizations Effects of local politics on program became confused as to what they implementation. The two distinct should do tohave the continued and powerful political blocs in Cebu support of the local government. province are those identified with two prominent government officials. This 2. The limits imposed by the lack political factionalism ismanifested of stable sources of income in even at the municipal and barangay the community. Dwindlingfish levels.In Barili, majority of the local catch, combined with low productivity politicians are affiliated with the mayor. of agricuftural lands, resulls in widespread The mayor of Barili has held power for poverty in the coastal communities of several years and has made a solid Barili.The lack of income sources due to political basein the different the continued degradation of coastal barangays in Barili. resources isdramatically manifested duringthe leanmonths for fishing. During the term of the former Durkig this period, fishers usually search for Cebu governor from 1992-95, he fully jobs outside of Barili. Most of them work supported the formation offisher- in construction sites orfactories in Cebu. farmer organizations through the Cebu The wxnen usualrkas household helpers Development Outreach Project in places as far as Manila. Securing (CDOP). The CDOP organized the temporary jobs outside the municipality farmers and fisherfolk of Giloctog and during the lean season is a regular Hilasgasan, naming them the Giloctog pattern observed in Barili. Farmers-Fishers Association (GIFFA) and the Hilasgasan Farmers-Fishers This situation poses limits to Association (HUFFA). Both organizations organizingwork inBarili. The lean were oriented towards protecting the months for fishing are usually considered marine waters and eventually forming the ideal periodfor conducting training groups like the Bantay- Dagat (Fish and other education work. This period is Warden)). However, both GIFFA and also the time when they can devote HUFFA are inactive and there are longer hours to activities related to allegationsthatthe Bantay-Dagat their organization. When they return groupisactually composed of only to the community during peak season, one person. the fishers are normallyvery busy that they can hardly find time Even it the newly-elected for organizational work. The peak months governmentofficials continued the are very critical to sustaining the household work of the former governor, squabbling economy, leaving very minimal time between the two polical factions ccntinued. for any other kind of endeavor. This affected the implementation and

96 3. Conflicthig rather than complementing Conclusion development initiatives in the area.

There are several development programs The,developmentand continuing being implemented in Barili byNGOs, implementation of theSCADProgram in the Catholicchurch and the local Barili rely heavily on the experiences of government. There is very little coordination SANRACA.The strength of the program among these groups at present and this lies in thestrength ofthe partnership results to confusion among the people between Tambuyog andSANRACA. Asan aswell as duplicationof efforts. NGO,Tambuyog works within the framework of Tambuyog attempted to coordinate building the capacities ofSANRACAand withthe other groups but there are facilitating its organizational expansion in some basic differences in methods of and the adjacent coastal communities. approaches to community development. One group is oriented towards providing It is very easy forNGOsto lose sight livelihood projects atthe onset of of the fact that the people on their own can organizing work thus effectively using manage their own affairs.It is the role of socio-economic work asanentry NGOsto facilitate and hasten the process point to organizing. Tambuyog and of learning and development. But it is not SANRACAespouse a somewhatforNGOsalone to decide what should and different approach by requiring some should not be done in community development. level of organization among the POs It is only whenNGOsbecome obsolete that before implementing a livelihood project. one can really say that the work has indeed been accomplished. There is nothing wrong with having several development programs inone community because the bottomline of all programs is the economic and political empowerment of the people. The problem begins when developmental groups fail to coordinate their efforts and harmonize their programs, when they start "competing' with each other as to who among them has the "better" or more popular program. When this happens, development groups start pushing for their own organizational agenda and lose sight of the importance of respecting the initiates and dynamks of the local community organizations.

97 Testimony

Luciano Inslk Chairperson, San Rafael-Cabacungan Fishermen Association (SANRACA) Barili, Cebu

In 1994,theTambuyogDevelopmentCenter (TDC) joined hands with our organization the San Pafeel-Cabacungan Fishermen Association (SANRACA) -a people's organization in the Municipality of Barili, in addressing the problems and issues faced by the residents of the coastal communities in our municipality. The rapid coastal systems appraisal (RCSA) conducted by TDC disclosed that Barangays Japitan, Candujay, Giloctoc and Hilasgasan in Barili share the common problems of lack of control and acce to marine-based reources,degradationofthe marine systems, low agricultural productivity, poverty and inadequate social services

In this partnership, TDC introduced the Sustainable Coastal Area Development (SCAD) program which envisioned to respond to the problems of SANRACA members. Looking back, we were able to see our strengths and weaknesses and made these as basis for planning future programs. Thus, in December 1994, TDC and SAN RACA entered into a formal agreement to jointly undertake the SCAD program in other coastal barangays and gave birth to the SANRACA Integrated Sustainable Coastal Area Development (SISCAD) SISCAD's first activity was to reach out to the people in the adjacent coastal communities.

In organizing the fishers, the women were also encouraged to join and organize themselves and to help in creating programs that respond to the families' daily needs. It was recognized that women, together with men, have a vital role to play in coastal resource management.

As part of capabilitybuilding, SANRACA organized and trained leaders from other barangays who help in organizing work and training activities of the organization. These organizers are called the Local Volunteer Organizers (LVOs) who have been actively working with TOC in our expansion activities in the three other barangays.

That is the experience of SANRACA. Coastal Resources Management: The Experience From

JOSE ELEAZAR R. BERSALES, Assistant Professor University of San Carlos (USC) Cebu City, Philippines

The useof a sustainable community- Introduction based strategy for managing coastal resources is currently being tested by a non-government organization in Eastern Samar. Since 1988, the There is a growing body of literature Guivan Development Foundation, Inc. (GDFI) worldwide addressing strategies to manage hasbeenactively working with coastal local marine resources (Pomeroy, 1994). communities in seven municipalities around the This appeared as a result of the alarming province. Learning from early unsuccessful decline of fish catch pointed out by the Food attempts of introducing cooperatives, artificial and Agriculture Organization (FAO) and fish shelters and seaweed culture, GDF/ has other numerous independent studies developed a three-pronged strategy to manage (McGoodwin, 1990).At the close of the theprovince'smarine resources. These millennium, we are seeing the effects of revolve around the establishment and enhancement decades of unregulated fishing in so many of community organizations, the delineation and parts of the world. The Philippines has not development of marine resetves and replenishment areas and the pursuit of research and development been spared and suffers from the combined activities. effects of overfishing and the use of illegal fishing gears and techniques.There is, however, a great deal of effort going on in many parts of the country discussing and actually implementing participatory strategies in coastal resources management.

99 In Eastern Samar, the Guivan of dynamite and cyanide. Lately, mangrove DevelopmentFoundation, Inc. (GDFI) is reforestation has been pursued at the concentratingits efforts to implement a barangay level (GDFI, 1995). With the entry community-based management strategy for of the GDFI, a strong tripartite (i.e, a coastal area ecosystem. This ecosystem nongovernment,government, and local is characterized in a 1990 study undertaken community) initiative began addressing by the Philippine Council for Aquaticand some of the problemsconfrontingthe Marine Research and Development fishersof Eastern Samar and providing (PCAMRD) as exhibiting the following main alternative livelihood to local stakeholders. features: It underscores lessons learned thus far. Discussions are based on secondary data low fish density and abundant species as well as actual interviews with local indicating depauperation of reef fish stakeholders and project management staff pop u tat ions; and beneficiaries in Guivan and its outlying islands. live coral cover of only 20%; and Site Profile productive areas limited eitherto deep waters or to reef areas far away from Physical and Demographic Setting the main islands (FPE, 1992). Eastern Samar is one of the three The bleak picture has been brought provinces that make up the island of Samar, about by extensive habitat destruction and the easternmost island of the Philippines. It heavy fishing pressure. The use of dynamite, has 16 municipalities and is bounded on the sodium, and cyanide to increase fish catch, east by the Philippine Sea, which joins the as well as the destruction of mangrove forests Pacific Ocean; on the north by the province for fuelwood use, have largelytontributed of ; on the west by the province to this prevailing condition. This has been of Samar; and on the south by the Leyte Gulf. exacerbated by the wanton use of small- mesh seine fishing, a widely-practised fishing Of the 16 municipalities of the province, method which catches even juvenile reef GDFI operates in seven contiguous coastal fish. Aggravatingthesituation is the towns located at the southernmost tip of unsuitability of most of the soil in the area Samar Island (see Figure 1). Moving from forcommercialagriculturalproduction west to southeast, these are the towns of forcing the population (especially for Guivan Lawa-an,Balangiga, Giporlos, Quinapundan, andSalcedotowns) to concentrate on Salcedo, Mercedes and Guivan. About 30% fishing as the primary source of livelihood. of the totalnumber of barangays in the entire province are located in these seven For over a decade now, government municipalities, withGuivan having the response to correct the situation has been largest number at 60. Tables 1 and 2 (ASI, limited to the installation of artificial reefs, 1995) outline the geographic and demographic occasional arrests of illegal fishers, seizure characteristics of these municipalities. of fishing boats, all aimed at ending the use

100 FIGURE 1PROJECT SITE OF GUIUANDEVELOPMENT FG1}NDATON. INC.

oCATARMAN LUZON NORTHERN SAM AR CALBAVOG 0

A CATBALOGA 0 VI SAY

C AT B A LOG AN 0

BORONGAN° EASTERN SAMAR

MAYDO LONG 0 0 B AL ANGKAYA N

BAS0, EV GEN.MAC ARTHUR°

QUINA- 0 0 SALCEQO LAWAAN PONOAN bIPORLOSO 0 ERCEDES LEYTE

101 Table 1: Geographic and Demographic Characteristics by Municipality

Municipality Land Area (sq' km.) Income Class

(a) (b) (C)

Guluan 109.3 5th

Mercedes 27.3 6th (4)

Salcedo 166.6 6th

Oulnapundan 67.7 6th (9)

Giporlos 109.3 6th (14)

alangiga 192.6 6th (25)

Lawa-an 137.9 6th (18)

Sub-total 760.7 (18)

Total 4,340

E. Samar (100)

N.B.: Figures in parentheses represent percentage of sub-total

Sources: NCSO, Provincial Profile of Eastern Sarnar 1990 NC$Q, 1990 Census of Population and Housing

102 Table 2: Geographic and Demographic Characteristics by Municipality

Municipality Total Total (d)I(e)Population Urban Rural Male Female Fishing Populationpercent Population (sq/kin) (e)/(b)

(a) (d) (e) (f) (g) (h) (i) (1) (m)

Guivari 7,888 30,689 26 30913,360 20,128 17,257 16,501 (41) (35) (40) (60) (51) (49)

Mercedes 570 4,848 12 165 918 3,586 2,3112,193 (3) (6) (20) (80) (51) (49)

Salcedo 6,495 16,597 39 142 3,032 13,557 8,596 7,993 (34) (16) (18) (82) (52) (48)

Quinapundan1,254 11,355 11 162 2,134 8,8495,6785,305 (7) (13) (19) (81) (52) (48)

Giporlos 971 10,128 10 101 5,5995,402 5,6905,311 (5) (12) (51) (49) (52) (48)

Balangiga 989 9,559 10 50 4,776 4,784 5,0314,529 (5) (11) (50) (50) (53) (47)

Lawa-an 931 7,275 13 57 3,4034,389 4,1283,664 (5) (8) (44) (56) (53) (47)

Sub-total 19,098 90,451 21 124 33,492 60,69548,691 45,496 (27) (27) (36) (64) (52) (48)

Total 71,560 320,637 22 128,259 200,434 168,706 159,987

E. Samar (100) (100) (39) (61) (51) (49)

N.: Figures in parentheses represent percentage of sub-total

Sources: NCSO, Provincial Profile of Eastern Sarnar 1990 NCSO, 1990 Census of Population and Housing

103 Eastern Samar, like the rest of Samar number (39 percent) of households involved island, lies in the path of devastating typhoons. in fishing.The non-fishing population is As a result of its geographic location and mostly involved in coconut farming and proximity to the Pacific Ocean, it receives cop ra-making. maximum rainf all throughout mostoftheyear. The province is characterized by a rugged To reach the GDFI towns, one either mountainous terrain mostly covered with travels by bus through Tacloban via Borongan vast patches of dipterocarp forests. Bolinao route or one can take the overnight motor clay and limestone are the main soil types of launch in Tacloban, which docks at the port the province, ranging in depth between 24 of Guivan. The town, incidentally, boasts of to 50 centimeters (Guivan, 1994). These anairportbuilt duringtheAmerican have been planted, where feasible,with liberation, ,vell-preserved but barely used at coconut and occasional mangoes and other the moment except for rare flights chartered fruit trees. AU towns, except for Maslog and by traders and tourists from Manila. Jipapad, face the coastal waters of either the Philippine Sea or Leyte Gulf. The GDFI and its CBCRM Program

The townof Guivan isrelatively The Guluan Development Foundation, prosperous when the income and class of Inc. (GDFI) is a non-governmentorganization each municipality are considered. In terms that aims to contribute to the upliftment of of land area, however, Balangiga ranks first the socio-economic condition of the fishers (192.6 square kilometers), followed by in the province of Eastern Samar. Established Salcedo (116.6 square kilometers) and then in 1988, it also commits itself to the by Lawaan (137.9 square kilometers). On rehabilitation of the parts of the province's the other hand, Mercedes, which was once marine environment as well as the development part of Guivan, has an area of 27.3 square of the area's fishing industry. All these are kilometers and is the smallest. The seven geared towards the realization of its vision: towns have a combined area of 761 square that of developing politically,socially and kilometers or 18 % of the total for the province. economically empowered fishing communities committed to the development and protection of The combined population of 94,187 is the fragile environment. 28 % of the total Eastern Samar population. About 70 % of the total population of these Armed with the above mision, GDFI towns is found in the rural barangays. The has been concretizing its objectives with towns of Salcedo and Mercedes, for example, support from government agencies like the have over 80 % of its population in the rural Philippine Council for Aquatic and Marine areas. Males appear predominant with the Research and Development (PCAMRD) and sex ratio for all seven towns at 107.02 the Department of Environment and Natural (number of males per 100 females). Resources' (DENR) Coastal Environment Programaswellasnon-government The fishing population of the seven institutionslikethe Foundation for the townsaccounts for 27% of the total for PhilippineEnvironment(FPE)and the Eastern Samar. Salcedo has the highest Philippine Business for Social Progress (PBSP).

104 The Early CBCRM Experience The Guivan Marine Resource Development and Management Project Duringitsfirst three years, GDFI embarked on aresourcemanagement Armed with lessons learned during program that revolvedaround livelihood theearlyyears, the GDFI refinedits activities carried out with funding from the operations and, in 1992, established a new Philippine Business for Social Progress CBCRM program called the Guivan Marine (PBSP). Seaweed culture using the Resource Development and Management Euchema species was introducedtogether Project. Funded by the FPE during its first withoffshore fishingusing payaos (fish three years (1992-95), the project has taken aggregating devices). A number of fishers' on a life of its own and continued the pursuit cooperatives were also established for credit of implementing a management program lending. Women's groups even established a incorporating three CBCRM strategies. commodity storeprojectfunded bythe These are the: National Confederation of Cooperatives (NATCCO). Establishment and enhancement of community organizations,resource Most of these projects failed miserably, management councils and federations; however, with some cooperatives unable to pay back their loans,. The cooperative model Delineation and development of marine became a much abused idea among the reserve and replenishment areas; and fishers who joined organizations established by GDFI with the hope that loans would be Conduct of research and development offered. When these were not forthcoming, activities geared toward both coastal the membership drastically decreased.In resource conservation/rehabilitation interviews in Manicani, for instance, fisher andcommunity progressthrough leaderslamentedthatmanyof their income-generating activities. members left their organizations because theloansthey were expecting did not Community Organizing materialize. ln one group in Jamor-awon, for example, only four out of 25 members From 1993to 1994, community were still active at the time of the interview. organizing efforts resulted in strengthening 25 community groups.Of these, 21 are In terms of environmental conservation located in Guivan and two each in Mercedes andrehabilitation,however, GDFI was and Salcedo.In 1995, 13 groups coming successful. With the help of PCAMRD, a from the municipalities of Quinapundan, marine reserve was establishedin Giporlos,Balangigaand Lawaan were Bagongbanua Island. The reserve proved organized. This year, the GDFI intends to successful enough to warrant replication in add 12 more groups to the project. These the other municipalities. groups have gone beyond the cooperative frameworkand have beentasked with inculcatingecological awareness,,, among fellowfisherswhile advocating for and

105 establishing marine reserve areas. Prior to Paralegaltraining sessions have been community organizing activities, a survey conducted among Bantay-Dagat members was undertaken to assess the communities' who are also deputized as coastal zone understandingof the marine ecosystem. wardens. These wardens, some of whom Socioeconomic baseline surveys were also are women, are tasked with patrolling and conducted to investigate the conditions occurring apprehending fishers who resort to illegal in the communities prior to intervention. fishing in the coastal waters.In Guivan, a patrol boat provided by the FPE has been A key intervention strategy applied by used in Bantay-Dagat activities, with fuel GDFI among these groups is the holding of supplied by the municipal government. Ecological Awareness Seminars which are Meanwhile, advocacy work by the Federation aimed at generating interest and commitment has resulted in its membership in the to protect,conserve and regenerate the Municipal Development Councils of the marine resource base. A training module seven towns. Itis also currently busy has been developed bythe GDFI staff lobbying for the declaration of hulbot-hu/bot precisely for these seminars. Each seminar (trawl fishing) and aquarium reef fishing culminates in the formulation of resolutions illegal in the waters off Guivan, Mercedes or action plans by the partkipating organizations! and Salcedo. groups.All groups consist of fisherfolk families numbering between 20 to 50 or more. Aside The makingof payaos has been from the said seminar, all have undergone pursued as an alternative livelihood activity. training in Leadership, Group-Building, and The risks involved, however, have prevented Organizational Management. A Community most membersfromfollowing suit. In Guivan Organizing Volunteer (COV) training seminar for example, one group funded by was also cOnducted among participants selected PhilGerFund got two motorized boats and from among the group members. There are materials for the construction of two payaos, now some barangays in the seven towns but their efforts were in vain when one of the which have at least one active COy. boats and were destroyed by typhoon. The other payao was later stolen. In April 1993, the Southern Samar As a result, GDFI has began reseeding clams Federation for theProtection and with some ofthe groups totesttheir Rehabilitation of Natural Resources commercial viability as an alternative source (SSFPRNR) was established by 14 of the of livelihood. original 25 groups under the GDFI.The number has since increased and included Resource regeneration activities of the all active organized groups. The activities federation revolve around the reseeding, of the federation revolve around four areas: monitoring and protection of giant clams (Tridacna .), which were produced at the * Bantay-Et operatbns and advoca' dc hatcherystation oftheGDFI and the Department of Agriculture (discussed later * Payao and other livelihood projects; and in this paper). As earlier mentioned, these clams constitute part of the income-generating * Coastal resources regeneration. activities that are being tried by GDFI.

106 Marine Reserves and the Coastal of Lawaan and Balangiga, with another four Zone Management Councils soon to be developed inGiporlos, Quinapundan, Salcedoand Mercedes. In November 1991, GDFI began Apart from municipal marine reserves, there establishing a marine resource replenishment are four established barangay reserves in area or reserve around the island of Lawaan and Balangiga. The identification Bagongbanua, off the coast of Guivan, with of reserve areas have been done largely by funding from the PBSP/USAID. Bagongbanua community residents themselves, pointing is an uninhabited island composed of only to a widespread acceptance of the concept. about 100 square meters of land at high tide. The reserve, however covers about 50 To facilitate the monitoring of marine hectares. The site was chosen, despite a reserves, both planned and existing, a coral reef cover of only 20%, due toits Coastal Zone Management Council (CZMC) manageability and the presence of mangroves, has been formed in each of the seven towns. seagrasses and corals.It is also home to Multisectoral in membership,these numerous species of marine birds. councilsaretasked with formulating, reviewing and lobbying for certain fishery To enhance the poor resource base of ordinances in their respective municipalities. the reserve, GDFI seeded giant clams, wing The fishery ordinance in Guivan, passed by oysters, sea cucumbers, abalone, tronchus the municipal council with the assistance of and other gastropods, together with mangrove the CZMC, has served as a model for the propagules in certain parts of the islands other towns to follow.The CZMCs were and the 50-hectare reserve zone surrounding created after an Area Planning Workshop it. The reserve is managed by two caretakers was conducted by the GDFI.All councils employed bythe GDF1.By 1997,itis have already formulated concrete plans for expected to be turned over to the DENR the management of the coastal environment. under its ProtectedArea Management Board (PAMB). Research and Development

A subsequentresource appraisal Research activities coverthe assessment undertaken bythe PCAMRDin 1993 of marine resources in the project sites, both indicated that coral cover has increased by before and after project implementation. These 25% since the declaration of the marine assessments are undertaken by teams of reserve. Certain marine vertebrate and marine biologists.A total of three more invertebrate species have also increased in resource assessment studies have been number. The success has been attributed undertaken since the first one done by the largelytothe fishing ban in the area. PCAMRD iii 1990.This year, the USC Communities nearby have been reportedly Marine Biology Section team with a GDFI active in protecting the reserve. representative undertook a series of tests around Guivan and Homonhon Island. The This experience has led further to the data collectedprimarilycorrespondto declarationofcertain coastal areas as topography,and physico-chemicaVbiological marine reserves by the municipal councils aspects of the coastal waters.

107 Studies of similar nature have also addition, a collaborative effort with the U.P. been undertaken in other potential marine Marine Science Institute has resulted in the reserves. Itis imperative that resource transfer of some clam species to the GDFI assessments and rapid resource appraisals hatchery from U.P. Meanwhile, a blister pearl are undertaken prior to the declaration of production project in Bagongbanua using reserves in order to quantify and determine wing oyster has already begun production the diversity of resources. These activities fortesting and technology verification. will prove useful in gathering information for ecological management decisions as well Conclusion: Lessons, as in determining changes toward the Recommendations and phasing out of a project. A sample of the data gathered in one of these studies is Prospects for Sustainability presented in Table 3, which outlines the live coralcoverandreef condition of the The early years of GDFI resulted in southern Samar coastal waters. This was meaningful but painful learning experiences in undertaken by the PCAMRD in 1993. pursuing participatory management strategies. The long history of dole outs, a practice not The PCAMRD has long been at all unrelated to Philippine political life, recommending that the only way to reduce has developed an undesirable attitude fishing pressure in the area would be to among many.For instance, fishers who introduce sea-ranching activities since land- planned to join GDFI organizations in their based resources are hard to come by. As community backed out when they learned part of GDFI'sdevelopment strategy, a that GDFI was not there to offer them loans. marine hatchery and research station began Nevertheless, fishers who stayed on and operation in August 1993. Located at the continued to work on a voluntary basis with Department of Agriculture Fishery Complex GDFI have provided an army of committed inGuivan, the hatchery/research station people. Today, the people's organizations has successfully spawned three giant clam (POs) established by GDFI are sustained by species (squamosa, crucea and deraza). the spirit of volunteerism. As a joint undertaking between the GDFI and DA, the research station is designed to One strength pointed out by ASI in its develop and test new breeding technologies process documentation report for GDFI is that can be transferred to fisher groups if worth noting. Some P0 members are also found viable for commercial production. The officers in the local government units. They hatchery is expected to supply fishers with are looked upon as authority figures in their juvenile marine organisms for seafarming local communities and exert tremendous and restocking of overexploited reefs. influenceontheirfellow community members. This allows for greater capacity The commercial impact of the hatchery to mobilize resources for the environment. has not yet been fully realized but GDFI has One of these is the marine reserve concept, already sold clams produced there.The which has been established in many parts funds generated from the, sale have been oftheseven town thus resulting in a used to expand the hatchery's facilities., In widespread acceptance of the idea.

108 Table 3: Live Coral Covers Reef Condition in the Survey Sites

Site Live Coral Cover (%) Reef Condition

Bagongbanua 25.8 Poor Balangiga (Magtolobo) 5OO Fair Cablagan 49.6 Fair Lawa-an A 44.4 Fair Lawa-an B 57.9 Good Manicani 27£ Fair

Source AS! 1995

There is, however, a perceived Bantay-Dagat boats.Fishers revealed in problem with regard to income-generating interviews that they face the reality and activities to reducefishing pressure. It difficulty of arresting dynamite fishers who appears that much still needs to be done to practice their trade in broad daylight and respond to the needs of the local communities threaten defenseless fishers with bodily who are deprived of fishing grounds which harm.iWorse, the network of buyers and have been turned into marine reserves. A sellers of fish caught by dynamite continues to GDFI strategy being developed is to clothe operate even beyond Tacloban City.2 people's organizations with legal personality to enable them to avail of loans for livelihood projects. This has to be studied thoroughly, taking into considerationthedata on unsuccessfulexperiences of loan-based income-generating projects. GDFI will have to innovate and learn from the experiences 1 Interviews with fishers pointed to a small of others in this regard. GDFI is nevertheless island full of migrants from Bohol as the haven awarethatthe success of its CBCRM of dynamite fishers. When asked why people programme hinges on the economic well- resort to blastfishing even though the destructive being of fisher communities. effect it entails on marine habitats is well- documented, the fisher leaders revealed that Another issue that has to be addressed these were non-Warays who had no love for the is the growing impatience and frustrations Samar habitat because they were Bol-anons. exhibited by P0 members regarding the 2lt futility of patrolling the coastal waters unarmed. is believed that aquarium reef fish caught with the use of sodium cyanide has I appears that sodium cyanide users and stopped in Guivan because the market for it has blastfishers have become adept at identifying moved elsewhere in Samar.

109 These issues, though they appear to All these are designed to prepare local put sustainability of the project in doubt, are communities for the eventual transfer of nonetheless balanced by certain plus factors. responsibility to them in the management of First is the commitment of the GDFI to the their coastal resources. GDFI intends to disappear development of Eastern Samar. GDFI is run by from the picture but only at the time when a devoted cadre of development workers who local communities have been fully capacitated have designed a sound project even if limited in and empowered to assert their stake over funds and has demonstrated limited success. As local resourcessomething that has gradually part of its plans to sustain its CBCRM program, entered the picture with the help of GDFI. GDFI have come up wilh four schemes. These are: Ref erenôes: The training of local stakeholders to monitor and evaluate their marine Asian Social Institute. "GuivanMarine reserves to prepare them to take over Development and Management Program: once scientists and technical personnel A Process Documentation Report pull out from the project; (Draft)." QuezonCity: Asian Social Institute,1995. (Unpublished Laserpinted Manuscript). The holdingofcoastal resources management seminar-workshops Foundationfor the PhilippineEnvironment. among the various sectors of each "Guivan Marine Development and municipalityto plan and implement Management Program." 1992. (Unpublished programs beyond marinereserve Laserprinted Manuscript). protection and introduce participants to management options/modelsof Guivan Development Foundation, Inc. resource management; "CEP Year End Report." Guivan: GDFI, 1995. (Unpublished Typescript). The expansion of marine hatchery Guivan Development Foundation, Inc. operations toward the breeding of "Guivan Marine Resource Development other commercial species like abalone; and ManagementProject(Year Ill) Executive Summary."Guivan:GDFI, The development of a multidisciplinary n.d. (Unpublished Typescript). and multi-agency marine resources development and management program Guivan Municipal Planning and Development (composed of the DENR, DA, UP-MSI, Office."Guivan Socio-Economic Profile UP Tacloban) to produce a comprehensive 1994."Guivan:Guivan MPDC, 1994. development and management plan (Unpublished Typescript). for the marine resources of the seven McGoodwin, J.R. Crisis in the World's Fisheries. towns; and California, USA: StanfordUniversity Press, 1990. The establishmentofa financial mobilization fund aimed at reproducing Pomeroy, R.S. (ed.).Community Management institutional materials for distribution and Common Property of Coastal Fisheries to potential funding agencies and in Asia and the Pacific: Concepts, Methods individual donors. and Experiences. Makati: ICLARM, 1994 110 ALFREDO ISIDRO Director, Fisheries Sector Program Department of Agriculture , Quezon City

On the Fisheries Sector Program

The Fisheries Sector Program (FSP) is the flagship program of the Department of Agriculture.It is being implemented in the 12 priority bays that vary in sizes from small to medium and large-sized bays or gulfs. In the Visayas, the FSP operates in the four eaction bays of Carigara, Ormoc, San Pedro and Sogod.

FSP's major components focus on resourceandecological assessment, research and extension, law enforcement, credit, and infrastructure. As regards gender to e issues, FSPrecognizes the important role playedby women not onlyin coastal resourcemanagement but also in major social, cultural, and economic endeavors. In FSP, harnessing women's capabilities in running their own organizations and their rention participation in CRM campaigns and alternativelivelihood projects has been successful. Unlike in other countries which have cultures biased against women, Filipino women are given equal, if not preferential, treatment with men.

On Mangrove Reforestation and Rehabilitation

Mangrove reforestation under FSP started withcontract reforestation,modified later on to a community-based approach. Workingthenwiththe Department of Environment and Natural Resources, the major problem that was encountered by FSP ill was the unattractiveness of the amount and Even though the spirit of volunteerism scheme of the community-based approach. may be the NGOsI reason for existence as Thus, thetarget of 30,000 hectaresfor non-profit organizations, our FSP experience mangrove reforestation and rehabilitation shows that NGOs could not effectively and was not fully attained. efficiently operate withoutsufficient financial resources. On Community-Based Coastal Resource Management On the Future and Prospects of CBCRM Community-based coastal resource management (CBCRM) can be best The Asian Development Bank (ADB) implemented through the participation of hasformulated the Project Preparation the fishers and other stakeholders in the TechnicalAssistance(PPTA)forthe program. The need to work closely together Fisheries Sector Development Project with local government units (LGUs), from (FSDP) that will serve as a sequel to the the barangay level to the provincial level, in current FSP. This FSDP may still maintain the formulation and implementation of CAM as its core project based on the CBCRM projects is indeed essential. In achievements of FSP in this area. FSP, co-management of the resources has beenactivelypursued among the bay areas, particularly in the preparation and implementation of CRM plans.In the case of DA, Memoranda of Agreement (MOA5) have been entered into with the LGUs to strengthen government-community partnership.

On Community Organizing

The delayin fund releases is one major factor which affects the organizing work of the program.This problem was attributedtothedelayalso inthe submission of accomplishment reports by the non-goverment organizations (NGO5) contracted by the FSP. elementcaused by various factors such as sanizations (NGO5) contracted byFSP, the inefficient system of budget releases, and the lack of personnel who wouldmonitorand supervise the activities of NGOs.

112 Part Three yyyvyyyyvyvy Luzon Case Studies The Formation of Coastal Resource Management Council for the CBCRM Program of Pagapas Bay

MARIQUIT MELGAR, Program Coordinator MARITA RODRIGUEZ, TechnkaI Supjxxt Cxxdiiator Community Extension and Research for Development (CERD), Inc. Quezon City, Philippines

This study traces the development in the Site Profile formation of Coastal Resource Management Council (CRMC) in the towns of Nasugbu, Lian Pagapas Bay covers an area of 2,930 Calatagan in Batangas Province. It and heclares.It is located in the southwestern describes thepartnership between the non- portion of Batangas province in southwest government organization (NGO), the Community Luzon. The bay is bounded on the east by the Extension and Research for Development (CERD), Inc. and the people's organizations barangays of Bagong Silang, Tanagan, Sta. Ana, (POs) as they conceptualized, negotiated with Sambungan, Bucal, Encarnacion, and the local government units, set-up and Hukay, all in the town of Calatagan.An operationalized t he CRMC.It narrates the almost continuous fringing reef surrounds the initial enthusiasm of the trisectoral partners as bay to the north and to the west. The coral cover they laid down the structures for managing the can be generally classified as degraded with an coastal resources of Pagapas Bay and the early average of 1-10% live cover (see Figure 1). demise of the CRMC as the NGO and the POs battled over differences in perspective. Approximately 365 hectares of the bay is 0-10 meters deep andthe remaining The study concludes with a synthesis of 1,770 hectares is over 50 meters deep.In the lessons learned and recommendations in some parts, the bay reaches over 200 meters setting up a CRMC. in depth. The whole area is enclosed within seven kilometers of the coast so therefore, commercial fishing is banned.

115 FIGUREi MAP OF PAGAPAS BAY I

$ PAMPANOA p

STAANA BGONG S1LANG0

116 The present area of mangroves in average catch per day is 2.5 kilograms. Pagapas Bay is 26.3 hectares compared to Hence, the estimated monthly income of the 132.8 hectares in the 1950s. All remaining fishers along the bay ranges from P500.00 - areas of mangrove are dominated b.y P2,000.00. kalapinay/a p1-api (Avicen iapj, pagatpat (Soneratia caseolaris) and bakawan Social services available to coastal (Rhisophora spp.). communities include education and health. Schools areusually located along the The Pagapas Bay watershed is dominated highway,causing problems for coastline by the Santiago River in the north. Despite its residents who have to use rough roads to relatively small size, it feeds the rice fields reach the highways.Coastline residents of barangay Lucsuhiri. Other seasonal usuallyhave verylow educational rivers of the bay are not as reliable. attainment, finishing elementary level, but seldom going beyond secondary level. In coastal areas surrounding Pagapas Bay, 35.5% of the total land area is planted Most of the areas have health centers to sugar,andriceland constitutes only but these are also often located along the 3.1%. Degraded forest (scrub) covers 26.6% highway and aretherefore relatively and the remaining forestarea accounts inaccessible. Occasional medical missions for 5.7%. are conducted in the barangayby the government andsome private institutions. The whole of Calatagan (the municipality covering Pagapas Bay) has a Community Problems and Issues population of 35,543 (1992 NCSO). Of this figure, 58% or 20,639 are found in coastal CERD's partnership with the fishers in communities. The numberof fishers is 1,937, Pagapas Bay identified the following problems which accounts for 22% of the coastal labor force. and issues regarding resource use:

Most of the people are engaged in Foreshore Land/Demolition of fishingand/orfarming. Some are also Coastal Communities engaged in livestock raising. Majority of the foreshore land where The fishers are generally engaged in the fishersresideis being claimed by the traditional method of catching fish using privateindividuals as titled,despitethe hook and line, drift nets, and bottom-set government law that it is part of the public nets. Artisanal fishers using non-motorized domain. Particularly in Bagong Silang and bancas venture only up to five kilometers Hukay, cases ofevictionand demolition from the shore, while those on motorized are prevalent. This had been traced to the bancas go farther than seven kilometers, case of 2,000 hectares excess land of the sometimes even reaching Mindoro.Based Ayalas and the Zobels. According to Supreme on the FishStock Assessment (FSA) Court Decision No. L-30240, dated 25 March conducted by the Community Research and 1988,theAyalas and the Zobels were Extension for Development (CERD), a fisher's ordered to revert back the said property to

117 the public domain because these are part of Industrialization the territorial sea, foreshore land and navigable waters. However, the Ayalas and the Zobels were The industrialization of CALABARZON able to block the implemenlatbn of the decislon. (i.e. the provinces of , , Batangas, and Quezon) poses a strategic threat Quarrying of Corals and Sand, totheconservation,rehabilitation and Illegal Cutting of Man groves maintenance of the marine environment and its optimum utilization. Project plans show Despite the ban issued by the gaemment, thatthe baywould be transformed into wanton destruction of corals through quarrying recreational and tourist areas and the adjacent and illegal cutting of mangroves continues to Balayan Bay would be converted into an prevail. Thisis beingdone togive way industrial zone thereby causing pollution to the construction of resorts and fishponds. which would affect the productivity of the bay.

Unfair Competition from Commercial The Community Extension and Fishers and Capitalists' Ventures Encroaching Research for Development (CERD), Inc. on the Traditional Fishing Ground History Trawlers, purse seines, fishponds and prawn farms have encroached into what were formerly In 1978, an. informal group of professionals the exiusive fishing grounds of subsistence embarked on a community-based health fishers. Thesemethods and ventures practkally program ina farming community in leave thefishing groundsoverexploited Pangasinan, using it as an entry point for and no fish for thesmall fishers to catch. organizing the people towards solving their various problems. Subsequent action-research Non-ownership of the Means of Production projects on fishing communities led the group to focus its effort on fishing communities where A large number of fishers do not own the only a few non-government organizations banca or the gears needed in the pursuit of (NGOs) have been involved. their livelihood. Hence, they become workers of those who own the means of production In 1983, the Community Extension and and receive only a fraction of the produce. ReseaithforDevebpment(CERD), Inc. wasorganized and was registersd with the Securtties and Exchange Dependence of Fishers on Middlemen for Commission in September of the same year. the Marketing of Their Catch In 1986, CERD sponsored a National The fluctuating daily catch and the Ccnsuftation of Small Fishers during which the key perishability of the produce make the fishers issues and problems affecting the fisheries sector in dependent on the middlemen. This system the different regions of the country were makes the fishers vulnerable to the whims identitied and discussed. The consuRation paved the of the middlemen. The lack of control of the marketing system and lack of access to way forthe formation of a national fishers' association, the PambansangLakasngKilusangMarnamalakaya credit facilities aggravate their economic ng Pi!ipinas (PAMALAKAYA-Pilipinas). status.

118 CERD's Vision CERD's coreprogram,the Fishery IntegratedResource Management for CERD envisions coastal communities EcOnomicDevelopment (FIRMED) is an where there isequitable and sustained attempt at operationalizing the concept of economic development; where the people, CBCRM. FIRMED's approachto development particularly the fishers, are entrusted with recognizes that the problems of fishers can the control, use and management of the sea only be addressedthroughanintegrated anditsresources. Towards the building approach, which undertakeslivelihood of a Philippine society that is free, democratic, projects and alsotakes steps to protect just, humane, and gender-fair, CERD engages and rehabilitate productive land and in sustainable development programs, marine/aquatic resources and utilize them at particularly organizing, education, capability optimum levels. building, research,coastalresource management, and socio-economicand Itscorestrategy is community cooperatives development. CERD also seeks organizing whichfocuses on the fishers to cooperate with non-government organizations sector in adjacent coastal communities of a ( NGO)s, people's organizations (PO)s, given/selected bay area and inter-related government organizations (GOs), and other resource units. entities for the promotion of its programs. In pursuing its development work in a Project Objectives and Components coastal community, FIRMED seeks to tap the organized strength of the fishers and Pagapas Bay was selected as a community- other sectors through their local people's based coastal resource management organizations and the cooperation of local (CBCRM) program site for the following reasons: government units, government agencies, and other non-government organizations. * Presence of fishers' organizations which By linking with these sectors, FIRMED hopes have hadexperience incollective to promote a multi-disciplinary approach to undertaking or, where there are no fishers' solving the fishers' problems. organizations yet, the willingness of the community to be organized and to FIRMED aims at sustainable resource collectively work towards the management of the coastal resources resolution of their community problems; at the bay level through community organizing, participatory research and resource Relative concentration of fishers that monitoring, resource rehabilitation, setting the program would address; up of socio-economic projects and support services (i.e., market credit, etc.), and the Absence or lack of development programs establishment of linkageswith both to avoid duplication of efforts; and governmentandprivate institutions for .technical support and advocacy. Strategic locationofcommunities intermsofinfluencingadjacent fishing communities.

119 To effectively implement CBCRM, facilities to attain economic and political FIRMED employs the following strategies: empowerment for the marginalized sectors. The sustainable fisheries development Formulatingalternative livelihood is geared towards theprotection and sources that are appropriate, viable, rehabilitation of the resources in order to sustainable,replicable and gender- achieve productivity and sustainability at sensitive; optimum level. Throughadvocacy and networking, development efforts are to be Conducting awareness campaigns coordinated and integrated into and activities for stricter enforcement of complementary and parallel efforts to fishery and environmental laws; achieve effectiveness and efficiency.

Enhancingthe organizingand capability-buildingskills of people's The Formation of Coastal organizations, leaders and Resource Management Council development workers; CERD - Batangas started implementing Strengthening the linkages between its FiRMEDprogram in 1992.In the other NGOs and localgovernment beginning a rapid rural systems appraisal units; and, (RRSA) was conductedtoassess the resources and identify the problems in the Developingand refining CBCRM community.The most common problem practices andmethodologies, e.g., identified among the fishers was declining monitoring of rehabilitation efforts and catch due to the deterioration of the marine promulgating appropriate ordinances. resources brought about by, among others, illegal fishing activities.This problem in The FIRMED program has five basic return has resulted in decreasing income components. The core component is the among fishers. coastal community organizing, which aims at building viable and functional organizations. The findings of the RRSA were validated Itensures the participation of the in a workshop attended by fishers and local community in theplanning and government officials.Realizing their common implementation of the programs/projects. plightand the urgency to address their The human resource development problems, the fishers decided to organize component aims to develop and train key themselves. In the municipality of leadersand members of people's Calatagan they named their organization organizations at the sio, barangay, municipal, Samahan ng Mali/ut na mga Mangingisda and provincial level. Along with this effort is 88 Calatagan (SAM MACA) or Organization the training of its own program staff and of Small Fishermen in Calatagan). other NGOs in order to meet the human resource needs of the program. The socio- United in the principle of organizing the coastal economic program development aims to communities, CERD-Batangas establish cooperatives, savings and credit and SAMMACA joined hands in launching the FIRMED program. The program aimed 120 atmakingthe coastal communities the From February to May 1993, a series implementor-advocates of CBCRM through an of dialogues and workshops was held to integrated approach. The program advocated discuss the P0's proposal to set up a for a CBCRM and initially demanded the passing "trisectoral consultative body" (TSCB) for of a resolution declaring Pagapas Bay a marine resource management.In the beginning, reserve. Some municipal officials opposed this the local government units (LGUs) were quite move but since the pecple's organization's demands ambivalent to the idea of TSCB. The first were substantiated by the results of the RRSA, three months of negotiation were difficult the fishers were able to prevail upon the butfinally, on May 9, an agreement was Municipal Council of Calatagan to approve the reachedto set up a trisectoral consultative resolution.The approved resolution even body. This was named the Nasugbu, Lian extended the scope of the marine reserve to and Calatagan (NALICA) Coastal Resource cover the whole municipal waters of Calatagan. Management Council (CRMC).

In January 1993, the government, TheCouncilis composed of the through the Philippine Maritime Command mayors of the three municipalities, and a and the Office of the Congressman of the representative eachofthePhilippine First District of Batangas, offered the Bantay- National Police (PNP) Maritime Command, Dagat (Fish Warden) asanalternative , Bureau of Fisheries resourcemanagementprogram. The and Aquatic Reform (BFAR), San ggunian/ organized fishers did not readily accept the Habagat, and CERD. The Congressman proposed program but instead consulted from the First District of Batangas served as their own ranks and CERD as well. adviser. The respective municipal mayors of Nasugbu, Lian and Calatagan tookturns every CERD facilitated the setting up of a four months to preside over the CRMC. study group composed of fisher leaders and CERD staffto review the Bantay-Dagat In addition, a secretariat was formed proposal. During these study meetings the to ensure the effective coordination with member idea of trisectoral approach was presented municipalities in the CRMC. The secretariat anddiscussed.Unlike the government is composed of the information officers of proposal, the trisectoral approach will place the three municipalities, the secretary-general the POs and NGOs on equal footing with the ofthe P0, and the advocacy officer/CO local government units in a formal structure. supervisor of CERD. The formation of the Moreover, the tri-sectoral approach will not CRMC was followed by a commitment from be limited to the anti-illegal fishing practices the Office of the Congressman of the First and anti-commercial fishing thrust of the District of Batangas to put up an initial fund Bantay-Dagat program but will be broadened of P300,000.00 fiom Iis countlyskie devebpment to include coastal resources protection and fund (CDF). Each municipality was allocated rehabilitation. The trisectoral approach was P100,000.00. presentedas a counter-proposal to the respective government agencies including the Office of the Congressman of the First District, of Batan gas.

121 Memorandum of Agreement and The Coastal Resource Management Body Initial Operations (CRMB) Formation

The Memorandum of Agreement (MOA) was signed on May 28, 1993 in Lian, CRMC Batangas. It was entered into by the munici- palities of Nasugbu, Lian, and Calatagan, by the PNP Maritime Command, Philippine Secretariat Coast Guard, B FAR,SanggunianlHabagat, and CERD. The MOA statedthe objectives of CRMC as follows: CRM CRMB CRMB NALICA 1. To rehabilitate the municipal waters Nasugbu Lian Calatagan AIFG of NALICA;

To address the problems of iflegal fishing and poverty ofallsectors in the Structurally, the Coastal Resource coastal communities; Management Bodies (CRMBs) are the municipal counterparts of CRMC. This is To strengthen the partnership between where the specific details of municipal government organizations (G Os) and coastal issues arebeing discussed and people's organizations (POs); and resolved.Afterthe CRMC Executive Committee formalized its composition and To promote theprotection and initially set its target for the succeeding sustainability of the municipal waters months, it called for simultaneous meetings of NALICA. of the CRMBs to discuss the submission to theSangguniang Bayanof the following: The functions of the different committees the proposedordinance for a 15-kilometer were also stipulated in the MOA. limit of municipal waters, allocation of the P100,000 fund for each CAMB, and a The first two months of the CRMC requestfor a "Fish Wardens' Training." were devoted mainly to organizational and institutional matters.It was also during this During the 5 October 1993 meeting period that the representatives of the POs of the Executive Committee, the emerging and NGOs consciously levelled off with the consensus was to pass a uniform ordinance members of the Council, especially with onthe 15-kilometerlimit ofmunicipal those coming from the LGUs. This was done waters.Duringthis meeting, they also through groundworking and reiteration of the decided to include a budget for CRMB in principles contained in the MOA. their respectivemunicipalbudgetsfor 1994. According to them, this is to provide forthe continuity of CRMB program and plans for the coming year.

122 Operationalization of the CRMC went ahead and endorsed the proposal for an ordinance extending the limit of municipal On 9 November 1993, the presiding waters from 7 to 15 kilometers. officer of CRMC (the mayor of Lian) called for a joint session of CRMC, One Year After the respective Sangguniang Bayans of Nasugbu, Lian and Calatagan to legislate a The Coastal Resource Management uniform ordinance declaring a 15-kilometer Council (CRMC)celebrated its first limit of municipal waters. In order to broaden anniversary on 17 June 1994 with a day- the discussion and get the opinion of the tong meeting. The day's activities included general public on the proposed ordinance, a a summing up ofthe CRMC's year-long technical committee was formed, consisting experiences, presentationof fishers' ofthree representatives each fromthe perspective on CRMC, overview presentation respectiveSangguniang Bayans.The of CBCRM models,andinspirational committee was tasked to conduct meetings messages from the mayors of the three and public hearings with fisher organizations municipalities and other guests. and the general public to gather their views and suggestions on the proposed ordinance. The NALICA-CRMC's experience was presented by the incumbent chairperson, The debate on the proposed ordinance the mayor of Calatagan. He narrated that focused on two points: 1) the penalty of before the formation of the CRMC, POs P5,000.00 for the violation of the proposed always appealed to the municipal government ordinance (this amount exceeds the limit for assistance in protecting their source of stipulated in the Local Government Code livelihoodespecially the sea.But most which is only P2,500.00); and 2) amendments often their requests were not acted upon. proposed by one of the SangguniangBayans After the CRMC was formed and the MOA to exclude titled lands from the coverage of was signed, CRMBs were formed in each the ordinance. member-municipality to allow forbroader participation of POs in the management of After conducting public hearings, the the coastal resources in Pagapas Bay. technical committee submitted its report in February 1994.It was the opinion of the The CRMC was chaired by the respective committee that the proposed ordinance was no mayors of NALICA on a rotation basis. The longer necessary as the prohibition against following were the highlights of accomplishments commercial fishing within the seven under the respective chairmanship: kilometer municipal waters limit is already provided for in Presidential Decree No. 704. The committee also pointed out that the extension from seven tol 5 kilometers of municipal waters is also provided for in the Local Government Code.

In spite of the findings of the technical committee, the CRMCExecutive Committee

123 Mayor of Nasugbu The mayors replied to the allegations of the P0 representatives, saying that the * Validation of the findings of the rapid CRMCwas just one year old and it was too rural systems appraisal (RRSA) in early to declare it a failure. Nevertheless, they District I; and expressedbelief that, contrary towhatthe P0 representatives think, the CRMC had * Conduct of regular monthly meetings. been able to come up with a program. They assertedthat they had implemented the Mayor of Lian provisions of PD 704 and that they had apprehended violators of the law.They * Conduct of training forfish wardens, also made it known that aside from the with the assistance of BFAR; and P100,000.00 that the Congressman from the First District has contributed to each of * FormationofAnti-Illegal Fishing the CRMBs, they have also allotted funds Group (AIFG) composed of 80 fish from theirrespectivemunicipal budget. warden-members, who assisted in Finally, they urged that problems encountered the implementation of fishery laws. bymembersof the CRMC shouldbe discussed during meetings. They pointed Mayor of Calatagan outthat differencesbetween thefish wardens and the Coast Guard should be * Conduct ofan assessment of the threshed outindialogues between the accomplishments of CRMC for the agencies involved. past year; and Lastly, CERD made a presentation of * Planning for the following year. CBCRM models (see illustration below).

After the presentation of NALICA- CRMC's experience by the mayor of LGU' NGO P0 Calatagan, an open forum followed. Representatives ofPOs from Lian and Nasugbu read a statement expressing their views on the status of CRMC. They alleged CRMC that the CRMC had failed to come up with a program of action and that only the fishers were seriousin apprehending commercial Resource Appraisal fishing vessels intruding into the municipal waters.They believedthatthe Coast Planning Guard was coopted by the owners of the commercial fishingvessels.In conclusion, they expressed the belief that the CRMC Implementation was a failure.

Rehabilitation

124 The Early Demise of the CRMC campaigning, the CRMB was not able to convene during the campaign period. There On its second year, the CRMC suffered was a resurgence of illegal fishing activities a setback when the differences in program in Pagapas Bay andthe approval of the perspective between CERD and the people's implementing guidelinesforthe marine organizations in Lian and Nasugbu came to reserve was delayed. a head. The POs looked at coastal resource management as anissue to be raised The election of anew mayorfurtherplaced against government for its failure to protect the fate of the CRMC in jeopardy. As resource the resources and undertake programs to management operations continued to grow in rehabilitate it.On the other hand, CERD Pagapas Bay, the fish wardens called for a believed that coastal resources management dialogue with the new leadership of the municipal was a program that should be implemented government. They called the attention of the with the broadest participation of all new mayor to continuing illegal activities stakeholders including the local government like mangrove conversion, quarrying,and units. While they admitted that government dynamite fishing. They urged the new mayor for was the main protector of the environment, it the continuity of the CRMCandtheapproval of the had limitations andii was only the implementing guidelines for the marine reserve. stakeholders,the fishers, who could be effective managers of their coastal resources. The new mayor expressed his willingness to help in whatever way he could but pleaded This difference in program perspective for understanding as he was still familiarizing led to the termination of CERD's program in himself wh his new tasks as mayor. He promised Lian.This situation was made difficult by to study the proposals, particularly the CRMC. the resignation of CERD's advocacy officer He called on the POs in Calatagan to get themselves who was CERD's representative to the accreditedand possibly serve as sectoral CRMC. Since no immediate replacement rpresentathies in the MunalDevekpmentCouncil. was available, CERD's program coordinator took over the post. This arrangement was far from ideal and led to the declineof Lessons Learned contact with POs in Lian and Nasugbu. 1. Policy and implementing guidelines But despite of weakening of the CRMC, are important to a Memorandum of CRMB-Calatagan continued its operation. Agreement. The setting up of the Meetings and discussions with the Sangguniang CR MC wad delayed for several months Bayan on the implementing guidelines for the due tothelack ofimplementing marine reserve continued.Also,problems guidelines.The initial months were encounteredregarding apprehensions of devoted to groundworking, clarifying illegal fishers were acted upon by the the basis of CRMC, and setting up of Sangguniang Bayan. However, during the systems and procedures. A MOA should not holding oftheMay 1995 elections, the only contain a statement of objectives operations of CRMB Calatagan slowed but also include policy and implementing down. As the presiding officers were busy guidelines.

12, Participation during the Recommendations conceptualizationstageof the CRMC was narrow.Majority of the Implementing guidelines should be members of the CRMBs and secretariat part of the Memorandum of Agreement werenotparticipantsduringthe (MOA).This is to avoid delays and early stage of dialogues and negotiations spending extra effort in levelling off for the setting up of the CRMC. Thus, and groundworking while setting up during the formal setting up of the systemsintheformation ofthe CRMC, levelling off was still undertaken CRMC. This should also take into tostrengthentheunity ofthe considerationthe dynamics of the respective bodies. bureaucracy in the local government units, like turn-over of functions. Almost all members of the secretariat were key staff of the respective mayors LGUs only respond to public pressure. which made itdifficult for them to If local government is to perform its perform their duties. work,constant follow-upmust be undertaken by the POs and NGOs. Lack of institutionalization of CRMC lead to its early demise. The MOA Participation must be broadened did not provide for the institutionalization from the beginning.In the setting of the CRMC/CRMB in the respective up of a CRMC, efforts to broaden municipalities. Thus, when a new participation must be undertaken from local government official is elected, no the beginning. Thiswill allow for formal turnover of responsibilities is levelling off and developing stronger unity undertaken, resulting in meetings not of participantsin the program and will being called. Continuity of the program prevent the need for repetition of oentation at suffers. the later stages of the project.

Participation of a strong and active The people's organizations should be people's organization is vital to the afforded greater technical assistance operation of a CRMC. The CRMC through orientation seminars and skills was supposed to be a venue for tn- training. To enhance active participation sectoral participation of the LGUs, of the POs in the CRMC they must be POs and the NGOs towards the equipped with skills to assert and protection and rehabilitation of the articulate their interests. municipal waters.The absence of one party especially the POs, and the CRMC must be institutionalized to lack of unity of understanding in the ensure its continuity.To ensure concept of CRMC can lead to its early the continuity of the CRMC beyond demise. theoriginalsignatories to the Memorandumof Agreement, legal measures mustbe undertaken to institutionalize the CRMC. Provisions

126 must be outlined, particularly on the turnover andorientationbetween incoming and outgoing officials.

References:

CERD. A Report on th.Rapid Rural Systems Appraisal Pagapas Bay, 1992

FIRMED-Batangas."TripartismUnder th Community-Based Coastal Resource Management:ji.Case ..! Coastal Resource Management jfl. Western Batangas," 1995.

Dela Cruz, Quirino."Community-Based Coastal Resource Management: A Response to an Open-Access Situation in the Fisheries," 1992.

Tan, Juju. "Restoring the Sustainability and Economic Viabilityofthe Philippine Fisheries," 1992.

127 Testimony

Ruperto A!eroza Chairperson, Samahan ng mga MaIi!iit na Mangingisda sa Calatagan (SAMMACA) Calatagan, Batan gas

Theformation ofCoastal Resource Management Council (CRMC) had positive effects on the small fishers. These were manifested by the strong unity of the people's organizations (POs) from the three municipalities in Western Batangas from the time the council was formed up to the present. This was also seen as a venue to express/discuss important matters and demands based on the conditions of the small fishersHaving a venue for the P0 to assert its agenda regarding the issues it faces is an indication of Initial positive response to its vision of attaining equal rights. The action of the different groups which led to the decrease in the use of blast fishing ordinance, and the allotment by a Congressman of P100,000.00 which was used for the purchase of a patrol boat encouraged other small fishers to unite towards the management of the environment.

However, in spite of these, negative effects of CRMC were also observed. Regular meetings of the Council as well as cooperation of POs in Lian and Calatagan were not sustainedandled to the disfunctioning of their respective Coastal Resource Management Bodies (CRMBs). This is mainly due to the insincerity of the government to perform CRMC functions while relying only onthe initiatives of people'sorganizations(POs)and non-government organizations (NGO)s, Particularly in Calatagan, the CRMB held its last meeting in February 1995. With the defeat of the former mayor in the last election and the lack of proper turn-over to the incumbent mayor, the regular meetings of CRMB Calatagan ceased.The Samahan ng ma Mali/fit na Man gingisda sa Calatagan (SAMMACA) attempted to revive CRMB through meetings with fish wardens and representatives of different agencies but to no avail.

In this condition, SAMMACA continued with the rehabilitation work in Calatagan by launching artificial reef project, mangrove reforestation, and pushing for the implementation of fishery laws.

SAMMACA believes that the management and preservation of the coastal resources should be done bytho smalifishers because they are the main stakeholdrs in the use of these resources.

128 The Coastal Resource Management Experience in San Salvador Island

JOSE CARLOS ALBERT M. DIZON Community Organizing and Development Program Coordinator GLORIA C. MIRANDA Community Organizing and Development Program Assistant Coordinator Haribon Foundation for the Conservation of Natural Resources, Inc. San Juan, Metro Manila, Philippines

The coastal resource management endeavor reefsthus,resuscitating the dwindlingfish in San Salvador Island typifies a rusource- biomass and enhancing what was oncean dependentcommunity that has struggled to abundant fishing ground. The people, through a conserveand developits remainingmarine localorganization called Samahang conservation project responsive to the worsening Pangkaunlaran sa San Salvador (SPSS), have condition of the island's fishing ground. The marine taken a stewardship responsibility for preserving sanctuary, complemented by other auxilia,y resource the natural environment, Inspired by a desire to management activities, has been conceptualized in pay homage to God's creation and to meet accordance with the resource-based problems and sustainably the present and future needs of the unique features of the island.It aimed to address not island's populace, SPSS has endeavored to just the most visible problems of sodium cyanide apply a holistic approach to resource management. and explosives which are often blamed as factors The marine sanctuary has been an important leading to resources degradation, but also quiescent landmarkthat put in place a community-based issues i.e., lack of livelihood alternatives and social resource management program in the island.This service, as equally alarming problems that are has, in fact, led to equally relevant activities like contributors to further environmental exploitation. restoration of natural resources and cooperative development, among others. The coastal management experience in San Salvador was provoked by unabated depletion of the The paper is,therefore, an attempt to put natural resources. This has left the people with no across learnings and realizations out of the other alternative but to succumb to sacrifices by resource management experience in tie island of San givingupa significant portion of their fishing ground Salvador.It likewise hopes to provide a vicarious .n favor of a marine sanctuary. In reaping sustainable learningexperience toresource management bounties from the resources, the marine sanctuary practitioners concerning the arduous yet rewarding has been perceived as a necessary option capable task of resource management and development. of restoring and rehabilitating the damagedcoral

129 Introduction them to employ more efficient, even destructive, fishing methods such as blast fishing to Theexploitation of marine resources increase their catch. is a critical issue plaguing the country, where approximately 85% of the total population The government's ability to arrest the lives in the coastal areas and 5% relies practice of illegal fishing proved to be inadequate solely on fishing as their means of subsistence. despite the existence of numerous fisheries and environmental laws, as well as bodies Destruction of coral reef habitats and charged with enforcing these laws. overfishing lead to declining fish catch. Floods and soil erosion due to heavy rains Various coastal management projects cause extreme siltation and degradation of commenced efforts to address these problems. marine resources. Almost all parts of the So far, there have been successful small- country's marine areas have suffered from scale and site-specific models/experiences these problems. involvingcoastalcommunitiesin the managementof coral reefs and fishery The small fishers are often blamed for resources. the degraded state of the coastal areas, mainly because of their use of dynamite, Conceptual Framework poisonand destructive fishing gear.A signicant number of fishers from San Salvador, Central to development efforts is the Masinloc, Zambales as an example, once principlethat organizations are rational engaged inillegal fishing methods. They instrumentsfor achieving goals.Social used sodium cyanide and dynamite to catch organizationsareneeded to effectively fish with seemingly no concern for the long- promote development.In fact, development term effects of the practice on the marine can be viewed as the way in which resources, resources. The use of destructive fishing ideas, and organizations are combined to methods reached an alarming state when bring about something that will count as thefisheries showed significant signs of improvement. Broadly, the self-strengthening depletion. or self-reinforcing character of stable social systems comes about when resources, Illegal fishing by small fishers, at the ideas, and organizations are combined in scale itis conducted, is not the principal such a way that resources are renewed or cause of depletion of nearshore fisheries. increased;ideasare reinforced and,if Rather, artisanal fishers resort to use of necessary, corrected or adjusted in use; destructive methods of fishing to cope with and organizations formedare preserved the loss of coastal productivity. Recent and/or improved (Leaf, 1991) studies have shown that lack of adequate management of these rich natural resources Community-Based Resource Management leadsto overexploitation and consistent (CBCRM) is defined as a process by which decline in fish production, especially within thepeople themselves are given the the mun icipal waters. As a result, income of opportunity and/or responsibility to manage small fishers remains inadequate, leading available resources; define their needs,

130 goals, and aspirations; and make decisions Haribon Strategy: Community- affecting well-being (Fellizar, 1993). Based Resource Management CBCRM implies both the mobilization and use of available resources by the community to The marine sanctuary in San Salvador achievetheir avowed purposes and the Island was set up through the painstaking community'sabilityto manage existing efforts of non-government organizations natural resources in their locality by employing (NGOs), the local government unit (LGU) "other resources or inputs available to them". and the 'local residents. The marine conservation program in this sanctuary now reflects the Whether in natural resources management people's recognition of the need to conserve the or in social development, CBCRM operates on the immediate marine habitat. premise that resources are managed best when the people affected by decisions participate in Haribon Foundation has been one of the design and implementation of these decisions. CBCRM seeks to improve these decision- the first Philippine environment groups to recognize the key role of the community in making capacities by broadening options and ensuring the sustainability of conservation by utilizing collective and democratic processes. projects through a combination of community Organizing for a community-based development strategiesandresource conservation activities. resource management largely differs from The community- based resource management program also the traditionalviewpointofcommunity known as CBCRM thus effects a broader organizing. CBCRMrequiresa more participation from the marginalized sectors comprehensive approach because it entails the need to recognize and consequently of society towards achieving a genuine change and sustainable development unify interest and sectoral groupings towards a througheducation common purpose - that of managing natural andtraining of the resource managers of the community. resources within the community. It not only focuses on the traditional issues of livelihood The intervention of Haribon Foundation's enterprise and community projects, but also extends people's attention towards resource community-based resource management projects in selected fishing communities in conservation and sustainable development. the province of Zambales started as early as 1987. The foundation, as a non-government The objective of community organizing organization, entered into an agreement with for CBCRM does not end in the formation of groups alone. In the end, CBCRM becomes the Dutch Embassy to implement a Marine Conservation Project in collaboration with the a venue where conflicts on resource utilization are resolved. Competing interests and uses Department of Agriculture on December 1988. The project gave birth to the establishment ultimately become the focal points.Thus, of the San Salvador Island Municipal Marine its goal is the formation of an organization which duly represents sectional interests, Reserve and Sanctuary which has been maintained since then under a community and whoseactivitiesimpingeon the management system. deteriorationorenhancementand sustainability of a certain community resource.

131 The said project also paved the way for The Haribon CBCRM program operates the implementation of various projects under its op the premise that the community perceives Community-Based Management Program such the need to protect the resources and that as the Philippine Netsman Profect, a training the people are interested to work together project aimed to teach aquarium fish collectors towards sustaining the resource base to the use of environmentally-sound fine-meshed further improve their economic, socio- cultural, nets instead of the deadly sodium cyanide. political and ecological well-being. Ultimately, Other projectsincludethe Community- the local community is seen as the effective Resource Management Manager's Training, manager who can best protect and develop an organizational development training, the the natural resources. objective of which is to build, strengthen, and equip the community organizations with Major Components the necessary skills and knowledge that will enable them to assume all other initiatives Resource Management and Planning - and projects on resource management. include the identification of a site idealforsanctuary andreserve The CBCRM project sites cover several establishment, passage of a barangay municipalities of Subic, Palauig, Masinloc resolution and municipal ordinance, and Sta. Cruz, all in the province of Zambales development of managementmechanisrns, in Central Luzon; municipalities of Intanta, acquisition of necessary equipment Real, Burgos and Patnanungan in the Province and facilities, and clarification of work of Quezon; Mabini town in the Province of relationsamong other concerned Batangas; and in Palawan. authorities in the locality.

Premise of the CBCRM Approach Research and Monitoring - include the collection of baseline environmental The destruction of aquatic resources, and socio-economic data; and monitoring particularly the exploitation of coastal habitats, of project results and impacts through has reached an alarming level.In the Masinloc surveys of substrate and fish population and Oyon bays, for example, resource depletion among other data. can be traced to illegal fishing and destructive fishing methods such as the use of sodium Community Organizing - identifies cyanide, blast fishing, fine-meshednets, the community's needs and objectives, overt ishing, and poor enforcement of law develops the people's confidence and prohibiting such practices (Christie,et al., 1990). will to worktoward meeting and achieving them; elicits the community's appropriate In addressing the foregoing problems, action; andin sodoing,extends community involvement and participation play a and develops cocperative and collabolBtive key role in institutionalizing change. The people attitudes and practices. need to be corivnced to accept that their eocncmk base, the fishery resource in particular, is being Community Education- provides depleted and is in cjtical condition, It needs to informationand raises community be replenished and restored to its former condition. awareness about key topics/issues.

132 Support activities - include facilitation Implementinga marineresource of construction of physical structures management plan, however, could not be and development of alternative livelihood. forced/imposed on the residents.Hence, one of the objectives of the MCPSS was to Linkages and support of outside strengthen the capability of the local fishers agencies and groups - include through education and community organizing. activities designed to encourage active participationin project activities and Realizing this objective meant that a to build responsible roles for concerned slow but productive effort to gain maximum NGOs and government. results in the community's socio-economic, environmental and political life is necessary The Marine Conservation Project to convince the people that they can be in San Salvador Island (MCPSS) effective managers of their resources. An encouraging move was the Memorandum of Agreement(MOA) signed April 4, 1989 Brief History between the Jaime V. Ongpin Foundation lnc.,the Municipal Government of Masinloc, In the late 1980s, the fishing community the Department of Agriculture - Masinloc, ofSan Salvador Island faced the same Haribon Foundationandthe Marine problems and challenges typical to similar Conservation Project Staff, and the Lupon communities in other parts of the Philippines: ng Tagapan gas/wa ng Kapa/igiran (LTK). rampant use of destructive fishing methods, declining fish yields and disappearing corals. Strengthening this MOA was the local The condition of the coral reef of San Salvador government's issuance of Municipal Resolution Island, in particular, correlates wfth an assessment of No. 56, Series of 1989, supporting and the Lingayen Gulf coral reefs. The studies allowingthe establishment of a Marine by McManus (1988) showed 37% living coral ConservationProjectat Barangay San cover.Gomez and Yap (1982) indicated Salvador. The said resolution was approved that out of 12 reef sample stations in the by the local Municipal Council on June province of Zambales, two were in good 19,1989. condition (50-74.9% living coral cover), three in fair condition (25-49.9%) and seven in poor condition (0-24.9%). Included in the last category was San Salvador's coral reef. 0 Given ts backdrtp, the Mariie Conservatbn Project in San Salvador (MCPSS) aimed to raise the absolute number of fishes on the island's fringing reef and increase the fish yields of local fishers through the establishment of a fish sanctuary and a surrounding traditional fishing reserve area. The fish sanctuary was declared completely off-Iims to any form of fishing.

133 Site Profile Marinebiodiversity was ultimately affected as coral reef destruction proceeded The Environment unabatedly. Organisms like sea turtles and giant clams became extinct locally. Worse, San Salvador is an island barangay wh an fish density dramatically declined, driving small fishers to go beyond their traditional area of 380 hectares.Itis about two kilometers west of Masinloc, Zambales in the fishing ground. Ineffective law enforcement, or the total lack of it, has equally contributed South China Sea. Except forthe east coast, which was once lined with mangroves, the island to the sorry state of the coastal resources. shoreline is white-sand beach. Thehilly With 60% of its total population deriving interior is approximately 30% secondary growth their livelihood solely from fishing and about forest, 60% rice fields and 10% mangotrees. 36% switching between farming and fishing, the continued destruction of marine living Off the western, northern, and southern resources has become a matter of survival coasts are wide reef flats dominated by sea for the poor. grass beds with various species of algae. The crest of the fringing reef where most The People coral growth occurs shows the effect of a strong wave current with deep spur and The residents of San Salvador Island groove formations dominated by massive may be categorized into three distinct and encrusting coral types.Those areas cultural groups, i.e., the native Zambals who with the more delicate branching corals have reside in the northwest and southeastern been heavily damaged by dynamite and portions of the island; the Ilocanos and sodium cyanide use.Substrate survey Pangasinenses who reside in the northeastern ranges from 5% to 50% living coral cover portion of the island; and the who with a mean of 20.7% (Ridao et al., 1990). inhabit the southwestern part of the island. An estimated 1,519 people belonging to 395 The residents of San Salvador Island families resided in San Salvador in 1992, have long been suffering from the effects of with the Zambals comprising about 50% of depleted coastal resources. An unfavorable thepopulation,theIlocanosand offshootis poverty from which emanates Pangasinenses about 20%, and the relatedproblemssuch as malnutrition, Visayans, 30%. Zambal is the main dialect illiteracy, poor education, lack of sanitary used in the island. facilities, inaccessibility of basic health services, and absence of alternative livelihood. Most people live along the coastline Declining catches have led a good number of the barangay which is distinctly divided of residents to resort to overharvesting and into sitios. Occupation, cultural background, illegal fishing through the use of explosives, and family linkages are fairly homogeneous sodium cyanide and fine-mesh nets.These within each sitio. Striking differences among practices, coupled with heavy siltation from sitios are observed and manifested. A sitio the denuded forest of Zambales and agricultural called Cabangun is inhabited mostly by people run-offs, have led to further decline in fish engaged in aquarium fishing.Many of its catch. residents came from the Visayan region.

134 FIGURE 1 CORAL REEF FEATURES, RESERVE BOUNDARIES. SURVEY LOCATIONS AND POLITICAL DI- ViSIONS, SAN SALVADOR ISLAND

RESERVE BOUNDARY MANGROVES

ROAD 1-_I (125)HEcTAIES

TIIDACNA SAND BREEDING

N 1 SPUR AND GROOVE CLI FE I 'J FORMATIONS ON REEF EDGE CURRENT SE AG RASS

SNORKEL SUBSTRATE I- ii FOREST TRANSECTS(20) SCURA FISH ABUN- 0 DANCE SURVEY SITES (4)

135 FIGURE 2 RESOURCE MAP OF SAN SALVADOR ISLAND SAGONG BUHAY V V.f _%. ,.s_o DALOLOC 1_-...... °HABANG 0BALAIIIGA V ElRESERVE BOUNDARY 0PANAYUNAN PAG-A$ SANDCLIFF AJI1 BANGUS FRIES FISHING6ROUND E3SANCTUARYTRIDACNABREEDING 0 WATERSIT tOTANK MANGOFISHTREPOND ES SE CORALAGR ASS COVER / / / RICEFI ELD I SAY L.JI1I TREES FIREWOOD PAL M/COCO ROADMAN6ROVES SOuTH / CURRENTARTIFICIALTALTREESREEF SWAMPSPRINGGROVESNUT WI TREES FIGURE 3 HOUSEHOLD MAP OF SAN SALVADOR ISLAND L TAG PAG-ASAI RESERVE BOUNDARY ' \ b--I SANCTUARYS HOUSEHOLDS j / ) !I .vyiJ CORAL COVER SANDSITiO BOUNDARY SOUTHW d WI' SITOROAD They started to migrate to San Salvador The Community-Based Coastal Island inthe 1960sbut had difficulty Management (CBCRM) Approach integrating with the Zambal community. This was rooted in part to culturaldifferences in San Salvador Island and to resentment among Zambals against the use of sodium cyanide in catching Community Entry aquarium fishes, a practice which gave the Visayans a higher average monthly income The first community worker arrived in compared to those who use traditional and the island of San Salvador in 1987. At that legal fishing methods (Buhat, 1994). time, most people in San Salvador were too pessimistic to believe that positive changes However, the introduction of nets in in both social and environmental order of aquarium fish gathering led many families the community would come about.The to shift from sodium cyanide use to fishing barangay was even cited as being poorly with nets.This pavedthe way for the organized and underdeveloped compared partnership of all island residents in managing to the mainland barangays of Masinloc their coastal resources. The people, through (Cristie,1988 ). theSamahang Pan gkaunlaransa San Salvador (SPSS) and the power vested on A barangay councilman who was also them to perform cizen arrest, boldly protected then connected with the Bureau of Fisheries and managed the coastal resources in San and Aquatic Resources (BFAR) gave his Salvador (Haribon, 1994). unwavering assistance to the community worker. He was instrumental in providing Practically all of the household heads the historical litany of resource degradation fish fortheirfamilies' sustenance, with each in San Salvador and how the use of illegal household owning at least one motorized or fishing devices was brought to the island manually-operated banca.Many of them and thrived through the years. support their dwindling income from fish ing/ aquarium fish gathering with inland farming Preliminary Resource-Based Activities of rice, cocorut, mango, and other crops; and through other jobs in Masinloc, such as Development activities commenced by fish vending,tricycle driving, and other the usual integration and familiarization of occasional odd jobs. the community dynamics. Intervention was initially aimed at restoring the abundance and aesthetic value of the coastal resources. Auxiliaryactivities like fish census and snorkel surveys ensued, aimed at gaining an initial understanding of the resources' current status. This greatly helped in the formulation of future undertakings. Surveys conducted showed that live Exposure Trips substrate cover ranges from 5 to 50% with a mean of 23% for the whole island. Table 1 To concretely elucidate the potentials shows the findings of the subtrate survey in and benefits of a marine sanctuary, a cross- the least damaged area which was declared visit to Apo Island in Negros Oriental was a sanctuary and the surrounding traditional conducted. Core group members went with fishing reserve area. the community workers to study painstakingly the processesundertaken by the people in The condition of the resources called setting up a marine reserve. The visit was in for drastic but well-grounded action.The itself a venue to see a concrete example of fast deteriorating coral reef situation (as how a community meaningfully addresses shown by the surveys conducted) inspired resource-based problems. the worker to suggest the idea of establishing a marine sanctuary, reminiscent of the experience The trip was an unforgettable experience of Silliman University in Apo Island.This for those who joined it. Members of the core was the best possible management scheme group were encouraged to come up with conceived at that time and it was brought to the same strategy especially in line with the the people for consultation. purposeofresourcerestoration and enhancement. Unknown to those who joined Identifying People for the exposure visit, the trip would be a trail- Core Group Formation blazing eventleading to a broad-based integrated coastal resource management The formation of the core group occurred plan for the whole Masinloc and Oyon bays. spontaneously in the island.Experiences on the drastic decline of fish catch and the Environmental Education foreseeable positive impact of a marine sanctuaryin preventingfurther marine Environmental education played a key resource depletion, convinced some people role in the establishment of the sanctuary. oftheneedtopursue such project. After the trip to Apo Island, the core group Consequently, five people decided to bond evolved intoa committee called Lupong together in order to translate the existing TagapangasiwangKalikasanor LTK discontenton the currentstate of the (Environmental Management Committee). resources into both preventive and curative The members themselves (fresh from the actions. They later on composed the "core Apo Island trip) shared with other members group". of the community the role of marine sanctuary in coral rehabilitation and enhancement of The arrival of another community dwindling fish resources.Information on worker in 1988helped put greatersocial marine biodiversity and ecology shared dimension on the proposedmarine during formal and informal studies to core conservation project. The core group was group members was in turn relayed to the empowered through environmental education island residents. usingboththeformalandinformal approaches.

139 Table 1: Coral Reef Substrate Cover and Topography San Salvador Island, Zambales

Parameters Sanctuary (ST* mean) Traditional Fishing Reserve %(n2O) (STmean)%(n=20)

Sand 8(13)** 13(16)

Rubble 12(16) 16(18)

Blocks 36(23) 9(14)

Dead standing coral 9 (14) 29 (22)

Marine plants 9 (14) 13 (16)

Live hard corals 20 (19) 4 ( 9)

Live soft corals 6(11) 16 (18)

Totalcoral cover 26(21) 20(19)

Tàpography (m)*** 2.8

* ST= snorkel transect

** Nurvibers in parentheses signify 95%con fidene intervals

*** Meters of additionalsurgace area per horizon fal 10 in (a measure of surface contour)

140 With the MCPSS in mind, the LTK classified kunay in the same category with drafted a resolution for the establishment of dynamite and sodium cyanide for the simple a 127-hectare marinesanctuary which reason thatit posed equal threat to the would be off limits to fishing. This was submitted marine environment. to the municipal council in July 1989. The proposed Marine Conservation Project in For the proponents of kunay, it was San Salvador Island (MCPSS), however, noteasyto give up the gear sinceit initially drew strong opposition from the locals. represented a sizeable amount of investment Resistance came from all corners of the and had appeared to yield lucrative profits. island vehemently rejecting the proposed Theissuewent as far as the kunay marine sanctuary. The LTK and community proponents working for the abolition of the workers reaped cynical remarks and the MCPSS. They drafted a resolution on this mere sight of them disgusted the people. end and went around to convince people to sign it. These people were once the active The solution was to set up an information advocates of the project but turned oppositors drive and environmental education campaign. when their interests went in conflict with that of The LTK members had taken the cudgel of the MCPSS.Their efforts however, was pushingforthe MCPSS by incessantly rendered fruitless as people simply rejected conducting day and night visits to convince the resolution. In a nutshell, the use of project oppositors.Fortunately, the unwavering kunay was disallowed in the reservation supportand commitment of the few but area and its users were forced to move to dedicated people paid off. Although a few neighboring coastalbarangays where people remained opposed to the project, restrictions do not exist. majority eventually became convinced of the benefits of the marine sanctuary. The Installation of a Livelihood Arm

LTK had boldly taken the challenge of Theneedto introduce enterprise explaining to the municipal officials the bio- development activities along with coastal physicalviabilityof the project and its resource management (CRM) was a major importance in upgradingthecoastal concern next to the establishment of the resources of the barangay.A municipal MCPSS. Parallel actIvities that respond to ordinance was passed providing legal and thelivelihoodneedsespecially of the political back up for the MCPSS. displaced fishers demanded equal attention. Consequently,thealternative income An adaptive mechanism for the sanctuary's committee, better known as Tulay sa management was introduced soonafter Kauniaran (TSK), was formed. the enforcement of MCPSS ordinance. The rampant use of kunay (beach-seine type) had Two activities were undertaken by the invited sharp criticism and contentions from TSK: the loan assistance program and swine the community. For many people, the gear fattening/raising project. The fund came from was potentially harmful to the resources for the Jaime V. Ongpin Foundation, Inc. channelled it indiscriminately caught big and small fishes through the barangay council.At least 10 alike.A huge segment of the community families received piglets, and a number of

141 people availed of the loan assistance program. Keeping the CBCRM Fire Burning To upgrade organizational development skills, leadership and planning workshops were A lull period of roughly eight months conducted. These were geared at enabling saw the work at a standstill in Zambales. A the committees to meet the demands and feeling of apathy gripped the members, who requirements of their roles and functions. exhibited greater indifference. The formation of a local organization free from the clout of the Commendable intentions and ends do not barangay council remained a primary concern always lead to a happy ending though. Conflicts in the island.If and only if an organization cropped up especially when the management of exhibited a strong representation of all sectors the projects was placed in the hands of the people. and independently pursued developmental This situation worsened when the community activities could the ideals of CBCRM be realized. workers were recalled at the time that the project Such wasthe resounding theme all throughout was on the verge of ditticulty and TSK members the evolution of the island populace into a were still building their competencies. As a collaborative coastal manager. result, pigs were either butchered during specialoccasionsor soldprematurely The committees were not ready for the because of pressing financial needs. changes that swiftly overtook the community. Illegal encroachment in the marine sanctuary The same situation befell the loan was becoming a serious problem. A ruined assistance program. Those who borrowed training center and other issues were simply were not able to pay back. The TSK sought toomuchfor the committees to bear. the intervention of the barangay council to Members of the ISK were astounded to run after people with unpaid debts. Since have encountered violators armed with guns. the long-overdue opening of the consumer's Adding insult to inlury was the fact that the cooperativestorehad been repeatedly organization remained subservient to the postponed, the TSK chairperson decided to barangay council. Breaking free from the use the remaining grant to supplement the tatter's shadows was the only way to be capital build-up of the members to pursue recognizedas an independentlocal the opening of the cooperative store. organizationpursuing its own programs and plans. In essence, previous livelihood initiatives were seemingly a fiasco. The projects did Although quite willing to police the not flourish mainly because of TSK members' sanctuary even to the extent ot losing their limdedskills ii handling enterpñse devekpment. own lives, members of the LTK were forced The TSK members were overwhelmed by the to get the assistance of the municipal officials, immense responsibility of sustaining and particularly the Mayor, because of the growing developing the activities, in the face of their theats from the violators.As a result, a inadequate capabilities which did not match the Philippine National Police (PNP) detachment actual work requirements. The lack of proper was deployed at the interior of the island.It orientation and appropriate values and foresight was later on decided by the barangay council toward livelihood activities accounted for that the PNP along with the local guards why the aforesaid projects fizzled out. could better man the MCPSS if the detachment

142 is posted right in front of thesanctuary. The CBCRM Framework However, the PNP detachment did not last that long. Connivance of some members of Ifthere was one activity capable of the PNP with the violators worsened the unifying people, it was the MCPSS. It served situation and accounts of illegal encroachments as a symbol of commitment that reckoned in the sanctuary alarmingly went up. Members of people to begin with what they have started the Samahang Pangkaunlaran ng San Salvador together regardless of how unfavorable the (SPSS) agreed to bang the matter to the authorities present circumstances were. The marine which led to the detachment's pull-out. sanctuaryreminded the people of their effortstopreserveand conserve the A local organization called Samahang environment. The MCPSS was an essential Pangkaunlaran ng San Salvador (SPSS)or hallmark that enabled the organization to Association for Development in San Salvadorwas regain the spirit that once spurred them to eventually formed. It came out as a result of establish a Marine Conservation Park. It a leadership training. This was a response was formerly the instrument that put people to the need for setting a clear- cut boundary together towards an agenda on resource between a local organization and the management; it was again used to awaken barangay council. The organization's activities asense of unity in the organization to were geared towards increasing the people's continue its campaign for sound resource foothold on the resources increasing not just utilization and management. their access to it but also their role as stewards and managers of the environment. Sustaining the program required a strengthened organization. CBCRM methanisms Strengthening of SPSS were installed to be able to spot right on target the precise areas of the organization The newly-formed organization was which needed development. The mechanisms initially dormant. In fact, little or no trace of were rootedin a solid environmental the organization could be found in the community. orientation expressed through a framework. Only the MCPSS was the visible project This framework graphically described the constantly taken care of by people, whose components that respond to the common commitment to resource conservation and issues and problems typical of a resource- development appeared unwavering. Aside dependent community. Thefacilitating from the name SPSS, no sign of vitality for mechanisms/components were built-in the organization could be felt.The meetings framework to operationalize the goals into conductedwere poorly attended with a realistic and achievable targets. maximum of only 10 appearing in meetings.

Attempts to formalize and mobilize a local organization was always derailed by resentment and bitterness specially within the leadership of TSK and LTK. Political and cultural schisms not to mention the iitemal biokerings among menters reinforced the rift within the community.

143 Figure 4 CBCRM Implementation Arms

Resource Development

Community Organizing Resource Management

People's Empowerment Economic/Livelihood Development

Enterprise Development

The CBCRM Implementation Arms of actions. An organized group equipped with the proper mindset, values, and principles Community Organizing was sure to move forward to empowerment, self-reliance and responsible management Communityorganizing (CO) in the of their resources. This was the underlying resource management setting underscores principle that set the trend and premises of the bonding between peopleinspired by communfty organizing in San Salvador Island. the need to enhance the degraded resources. CoastaV resources made up the livelihood A new breed of leaders was highly base in San Salvador. Further exploitation called forin reviving an organization from of the resource base would end in starvation its downward trend. Community organizing and non-access to life's necessities (e.g., had to prioritize identification of a new decent stielter, proper education, etc.) for set of leaders and reconceptualization of its residents.This perception drove the approaches and strategies in project members of SPSS to act concertedly and implementation. The bases for selecting the collectivelyto set desired changes and second set of leaders of the organization development goals into the right context were the following criteria: and perspective. Shows keen interestin and passion CO was in itself a significant stride for coastal resource management; towards empowerment.It was where people broke away from apathy in order to articulate Regularly attends meetings and actMties their desire for change. The act of bonding of the organization; provided a liberating experience through whichpeople discoveredtheirtalents, Exhibits leadership potentials and at opportunities, and theresources at their the same time was respected in the disposal, heightened collective awareness community; which inspired them to take relevant courses

144 Is willing to learn and share learnings activities.It was a source of strengthening as well; and and opportunity for the expansion of the SPSS as the organization eventually took Possesses a strong desire to change bigger issues and concerns. and is willing to be an instrument of development both for the organization A network bonding all the people's and the community. organizations in Masinloc was facilitated.It was referred to as the Federation of Envi- Correspondingly, the structure of ronmental Managers in Masinloc. The for- SPSS was set up. This was derived from mation of the said federation was greatly the vision, mission, and goals formulated influencedbytheongoing resource during the planning workshop ofSPSS. management projects in San Salvador. The Electionofofficers also followed. New federation aimed to translate the experience in officers were added in the roster of SPSS the island into a larger scale-the Masinloc leadership, and quite a number of former and Oyon bays. The federation envisioned committteeheads still gained a vote of its role as the principal managers that will be confidence from the general membership. primarily responsible for policing, manning, and implementing the policies and regulations Advocacy and Networking for the entire two bays. These functions were to be done along with the support and Advocacy and networking were the assistance from the local government units means of taking local issues to a wider (LGUs), non-government organizations scope either for alliance-building or for (NGOs), and government agencies (GAs). ventilating specific concerns to the public for common scrutiny. This was used to elicit Sound Resource Management support and foster partnership with groups upholding similar concerns and interests. Management of the resources was primarily viewed in terms of giving value out The coal plant issue in Masinloc, for of its receding fertility. Thereby, the setting up instance,hasopened athreshold of of MCPSS was aimed at enhancing both the communicatingtheirconcern for the food and cash security of the people. 5 P55, environment and for airing out hostilities on being a staunch advocate of proper resource environmentally unsound projects. The people supervision, valued nature as possessing a in San Salvador witnessed the changes in lifeof itsown. This recognition was their fish catch and its increase was attributed to nourished by in-depth attachment-building the fish sanctuary. There is, therefore, no exercises aimed at commanding a deeper iota of chance that projects such as the coal homage to and recognition of to the resources. plant will be implemented without resistance Thus, environmentaleducation sessions from the island's residents. were underscored to reiterate stewardship principles and proper values on resource Advocacy and networking enabled the management. people to understand organizations advocating similar agenda and the same development

145 Symbiotic and cooperative relationships to go into livelihood projects. For one thing, betweenspecies on land and sea were there has been an established resource vividly depicted in the environmental education management regime in the island through sessions, which were supplemented by the the on-going marine conservation project. people's own experiences as fishers and Relievingthepressureon the marine farmers. Consequently, a comprehensive resources entailed parallel in-land activities management plan was formulated as part of that could either supplement the livelihood the organization's expression of their renewed of the people or provide economic aflernatives relationship to nature. to them.

Restoration of the coastal resources It was thereby appropriate to temper through tree planting, mangrove rehabilitation theexisting resource management activities and restocking of giant clams was initiated with concrete viable economic enterprise. by SPSS. A regular boat and foot patrolling The past experience provided the lessons team complemented resource management, while the vision and mission set the realistic andmost members of LTKvoluntarily goals. The workers, however, decided; that underwentwarden training in the bid to any activities done within the livelihood police the whole ot Masinloc and Oyon bays. premisesmust bewell-considered and executed with great care and accountability. SPSS reconstructed a training center which they referred to later on as "home for This required that value clarification development". The training and education and formation must go together and that any activities on the use of nets for catching possible livelihood activity should meet the aquarium fish also contributed to the dramatic following: obliteration of sodium cyanide. The resource management theme of SPSS was "sound Started from and within the people's resource management equals sustainable available resources; livelihood". At least a good number of members Enterprise Development have knowledge of, skills and experience in the project; Enterprise development is a bottleneck in any development endeavor.Nottoo Must betransferrable, viable and many groups could claim total victory when marketable if the project is introduced comes to a successful livelihood enterprise by outside institutions; down to the community level.The same difficulty is expected to be met in San Salvador Premised on the people's needs and especiallywiththerecenthistory of problems; and unsuccessful livelihood projects in the island. Environmentally sound. In spiteof perceived difficulties in implementing enterprise development, the current phase, of work revealed timeliness

146 A list of possible livelihood activities SPSS ventured into palay buying were deliberated upon based on the said after the coop expansion. With a very limited criteria. Proposals ranging from swine raising, capital amounting to only P65,000.00, enterprise poultry,handicraft, loan assistance, development activities were designed in a cooperative expansion, palay (unhusked way that these would bring sure gains and grain) buying, mushroom culture, to mention a returns to the organization while servicing few, have all been considered and thoroughly the needs of the community. The concept of studied. These were narrowed down to only palay buying came from the experience of two livelihood options: cooperative expansion fisher-farmers with very minimal income, and and palay buying. The selection process often incurred losses after selling their grain to subscribed to the criteria and was believed the local traders in the town proper. On the to be beneficial not only to members of other hand, local traders chiefly dictate the SPSS but also to the community in general. A price of grain and on the other, the prices of feasibility study was prepared by the SPSS capital input invested by farmers are dictated illustrating the mechanisms and flow of by the capitalists.A sizeable amount is project implementation. The feasibility study invested bythefarmers in planting until harvesting was presented to and defended in a meeting and transporting the unhusked grain to the with Haribon program coordinators. mainland. This investment is hardly recovered due to existing lopsided systems. The cooperative expansion was soon undertaken after the fund was released to On the other hand, this has rendered SPSS. Two stores were constructed other many people in the island unable to cope than the existing store of SPSS in one of the with the said rapid increase. As such, palay sitios in the island. The existing store was buying was proposed by most members and however buttressed through the supplemental studiedpainstakinglyby the livelihood fund given to the store. At that time, the committee. A flow chart was prepared to storewas assailed by problemslike show how thelivelihood committee would increasing uncollectible debts and internal implement the project. The committee pegged conflicts among themembers. The fund the buying price of grain in the island at an gave the members the impetus to regroup amount appropriating the prevailing price in andassess theareaswhich required the town proper. Farmers were spared from improvements. The cooperative stores were expenses on gasoline, porters, and tricycle managed by volunteer members who acted fares. Palay screeners were posted in four as store caretakers. They did not receive sitios in the island, and unhusked grain was allowance nor privileges except for a 10 gathered at the central cooperative store. percent share from the annual gross income of the store. Preliminarytraining and Eventually, the husked grain was retailed education activities were provided prior to at the cooperative stores at a reasonable the release of funds. Refresher course on price. SPSS members made itclearamong cooperativemanagement was given to themselves that price of rice should never members backed up by two consecutive be influenced by the price increases in the exposure visits to the successful cooperatives town proper. The price of husked grain must in Central Luzon. always be subject to the decision of the general

147 assembly and must never depart from the real encourage other livelihood options out of intention of providing service to the poor and the the product. Thereby, mango processing marginalized. Profits from the project was was seen as a promising and viable economic re-invested into the cooperative to sustain the enterprise in the island. supply of affordable rice for the island's populace. Training and Education The organization bought a carabao to be used in transporting merchandise to and Three basic stages characterized the from the stores and the port where goods work in the island: organizational formation areunloaded. This particularly applies to and strengthening, capability building, and the store at the center, located at the hilly actual implementation of development plans. interior of the island where members had to carry up the merchandise especially during Training and education sessions were the rainy season. Besides, expenses for basic to all stages.In fact, these were hiring porters would exceed the price of the designedat the outset to provide skills carabao three times in a span of one year. upgrading and enhancement opportunities Hence, SPSS decided to buy the carabao, and atthe same time serve as a which was also useful in fund raising projects momentum-building initiative. of the organization, especially during the planting and harvesting seasons. To ensure that any intervention in educationand trainingcoincideswith The organization also tried mango actual community needs, a training needs processing. The Department ofScience analysis was conducted through meetings, and Technology sent a team that taught the informal discussions, and house visits. members of SPSS the ways and techniques of fruft processing. The project was undoubtedly Values clarification and formation were lucrative. However, since the members still introduced and underscored in the training lackedknowhowin quality control and and in related community education. These packaging,theproposedproject was were translated into "attachment-building" subject to further studies. exercises aimed at presenting the environment as possessing a lifaof its own and vulnerable to Given the skills and capital to support destruction and death. Attachment-building the enterprise,itis deemed as a reliable was integrated in the seminars and training. supplemental activity that will help stabilize the price of mango and avoid possible waste Attachment-building actually came out especially during its peak season. The market of the need to deepen the commitment to price of mango usually plunges during the resource management. The recognition of peak season. Furthermore, boxes of mangoes resources as God-endowed and of the intended for export are rejected because of stewardshipgiven to mankind over the failure to passinternational standards. resources was emphasized time and again These are seldom consumed in the local to make it part of people's day-to-day life. market. If excess or rejected mango can be processed, this will regulate its price and

148 The envisioned expansion of a cooperative efforts must not be detached from the concept through the satellite stores in key areas of of stewardship, values, and culture other the island led to cross-visits to successful than its usual character as a livelihood base. cooperatives in Central Luzon. Training and education sessions covered environmental The position taken by the local organization awareness to actual skills enhancement to put up a marine conservation project, which capacitated SPSS to smoothly move even if it meant giving up a sizeable fishing towards theimplementation of enterprise ground, reflected a renewed understanding development and resource management oftheir relationship with nature. The activities. commitment to incessantly protect and soundly manage the project was a translation of Learnings, Recommendations their knowledge and practical understanding of and Conclusion the environment as their livelihood, as well as its cultural, recreational, and spiritual The coastal resource management values. experience in the island of San Salvador has borne fruitful results in terms of people Community organizing as a strategy taking directresponsibility for their own in facilitating a community-based coastal development. Most importantly, the people resource management program could not have learned the importance of unity through have been that effective without the equally thelocalorganizationas an essential important components: training and education, prerequisite to change and genuine development. enterprise development, resource management, The coastal resource management initiative andnetworkingandadvocacy. These in the island has deepened the appreciation components formed the whole essence of of natural resources by the people. The CBCRM agenda in the island. It helped the marine resources for instance, were viewed people realize and recognize the state of not just as a source livelihood but also as a the local environment and, at the same time, gift endowed by God and as a heritage from it encouragedthem to respond to the the previous generations. Thus, the resources encompassing problems usually at play in weretaken care of by the people with resource-dependent communities. homage and responsible management. The CBCRM components have effectively The whole community organizing initiative enhanced the local organization'scapability in the island was directed towards resource for resource management and its skills to restoration and development. Its concrete come up with equally relevant undertakings. In- end goal was biodiversity conservation. The house or organizational strengthening, resource management experience, on the whichincludedawareness-building and other hand, was a classic struggle that typified valuesformation, was underscored. The a community endeaVouring to save the sea ongoing resource management activity has as its only major source of livelihood, from actually included inland resources. Livelihood furtherdegradation. It was, however, realized in options were derived from either the natural almostfive yearsof coastalresource resources or the collective material resources management experience thatconservation of the people as in the case of cooperative,

149 palay buying, and the pending mango The untimely provision of funds did processing enterprise.The principle was not actually help SPSS. The livelihood fund plain and simple: " start where the people was given in good faithand intended to are and build on what they already have'. enable theorganizationto balance the ongoing resource management activities The rapid depletion of resources can with viable economic enterprise. Because be attributed to cash and food security the livelihood committee does not have the issues. It was thusappropriate that required project and financial management economic or livelihood options stemmed skills as well as the foresight on how to from the resources. The question of control develop the project,it was almost certain that over the resources must be underscored in the activity was bound for failure. The case the island in order to impress among the ofthe loan assistance and swine raising members their intrinsic responsibility of program nearly created a dichotomy among drawing up blueprints with reference to the the people in the island.The barangay normative methodsof managingthe council in fact was the one going after the resources. The experience of establishing people with unpaid debts. This could have the marine sanctuary must evoke greater been avoided had the formation and participation from the people especially in strengthening of a local organization been the formulation of policies and plans for prioritized before any livelihood undertaking. resource management.This way, more people can articulate their experiences and For resource management activities conditions as a jump-off point in mapping to further thrive and be replicated in other out relevant coastal development plans. coastal barangays in Masinloc and in the neighboring coastal towns, initiatives ought Lessons were drawn from the five-year to be persistently in line with the principles wealth of CRM experience.For one thing, it of empowerment, self-reliance and sound entails a personal commitment and a clear resource management. Empowerment in the foresight on the part of the worker to be able to sense that people should have the foothold settle in the area without the usual comforts of to formulate the development processes electricity and water supply, among others. from conceptualization, to implementation, Moreover, the swift turnover of staff often bogged and finally evaluation. Laws on environmental down the activities in the island. Nevertheless, protection and management must reflect itis difficult to establish whether this has a the will of the people, as they are the ones correlation with the geographical location of San largely dependenton the resources for Salvador.Its implicatkyi, however, tremendously subsistence. SPSS has to pro-actively go affected the activities and in fact, placed the into policy advocacy in order to lobby for organization in a precarious condition.It was laws and policies reflective ofthe small the same reason why the committees, namely farmers' and fishers' interests in implementing the Tulay sa Kaunlaran (TSK) and Lupon ng and pursuing ways to safeguard the environment. Tagapan gas/wa ngKapaligiran (LTK) remained subservient to the barangay council and took quite some time before they finally evolved into legitimate local organizations.

150 Self-reliance meant that small fishers! Community Organizing farmers must be afforded constantly the means and capabilities of breaking away Community organizing is a recognized from their dependence on those possessing prerequisite to any community endeavor. the political and economic power. SPSS has CO is a vital approach to contextualization to supplement constantly the assistance it of development interventions.Consultations receivesfrom assisting institutions! do not tap sufficiently the people's involvement organizations withthe members' own in designing appropriate resource management indigenous skills and resources for schemes. Therelationship between people sustainability and self-sufficiency. and the environment and the proper use of its bounties will only live up to its truest The organization'sintensity and meaning and essence if marginalized people aggressiveness in theactivities it has are given the free hand to determine their undertaken will eventually taper off. Some symbiotic relationship with nature and their membersmightbecome apathetic, and responsibility to take care of it. This is well- internal conflicts might be revived.Itis delineatedin the CO activity as people thereby vital that the organization obtain a learn of their inherent right to protect and full grasp of these issues to avoid reacting manage the resources as their stewards. tomeresymptoms,and apply lasting To make this happen, the marginalized sectors, solutions by getting into the roots of the particularly the fishers and farmers have to problems. Thereare three suggested reassess their condition taking into account propositionstomaintain and further strengthen thestateof theirresources and how the coastal resource management endeavour inequitable distribution of nature's beauty in the island: evolved. Awareness-raising is an essntial element in organizing. This will enable the Extension of community organizing to stakeholders to be more critical, analytical othercoastalmunicipalities and of the current conditions, and expressive of barangays in Zambales; desired changes.

Continuous capability building; and Basically, this braces the commitment of the people as they are involved in the A comprehensive livelihood program. entire process; from issue/problem scanning to coming upwith activities and projects congruent to the identified needs. The call for SPSS is always to go back to the basics. What consolidated them into an organization must be constantly renewed if this is to bind themcontinually.Replicating the CAM experience, however,needs the community organizing skills of some leaders to diffuse the CAM initiatives.

151 Continued Capability-Building Enterprise Development

Continued capability-building is an A resource management regime is essential component in enabling the local already in place in the island. The Haribon organizations to achieve self-reliance and has resolved thatcould embark on livelihood empowerment, and learn proper resource development only when a resource management management and utilization skills. Conscious aftemative is already established and operating effortmust be exertedto identifythe in the community. In the case of San Salvador, organizational needs and skills needed by resource management can be considered SPSS to further equip the members with one of the strongest components of the CBCRM capabilities tantamount to its growing task. framework.Needless to say, SPSS has Capability-building through both formal and responded remarkably to the challenges of informal methods should include sharpening maintaining anddeveloping the marine social analysis, strengthening relationships, sanctuary. and prioritizing values. These have to be done in the framework of CBCRM with due Enterprise development, however, emphasis on the sustainable development remaineda component of CBCRM that perspective. requires further development. The cooperative has definitely improved. Gauging from the Value Formation increase in annual earnings, and the capability to put up its own concrete cooperative store Justas systems and methods are and to expand basic services, SPSS has a important in CRM,soare right values growing cooperative enterprise. However, required for a successful undertaking. The resources that can provide supplementary SPSS has to clarify its values and relate income remained unexplored or improperly thesewiththeway it perceives the studied. The case of mango processing is environment must be treated and managed. an example of a business enterprise with so much potential but failed to materialize Degradation and exploation of resources mainly because this was thought of only can be attributed also to erroneous values when the project was about to terminate. motivated by greed and misconceptions on Up to the present time, the organization is the environment. In this light, collective still grappling with the real concept and values are to be honed and centered on meaning of enterprise development.The team building, responsible stewardship, and need to start with a more concrete small- appropriate resource management orientation. scale enterprise must be given more emphasis Itis high time that the members of SPSS and time especially if the organization is to themselves share their values with other develop itsskills in economic/livelihood communities. In so doing, the organization development. has to study and institutionalize the values possessed and developed by the members A comprehensive enterprise development in the years they have been involied in program ought to be designed in order to resource conservation. supplement the livelihood derived from fishing. A community like San Salvador that could

152 actually boast ofrich and diverse coastal Institutional Profile resources, should realty pay serious attention to the ways and means the resources could The Haribon Foundation: be translated into viable economic activities.If Taking on the Challenge ever San Salvador would receive another funding, it is highly recommended that its The HaribonFoundationfor the thrust be focused on enterprise development. Conservation of Natural Resources, Inc. is After all, what is called for right now in the a non-profit, non-stock, non-government island is an alternative economic base that organization that pioneered environmental could go alongside resource management and wildlife protection and conservation in activities. the Philippines. Thecoastal resource management It is a member of the World Conservation experience in the island has uniquely mirrored Unionof the IUCN and has institutional the people's commitment in bringing about linkageswith a number of international desired changes in the coastal resources. The environmental groups like the World Wildlife problemsand needs encountered and Fund-USA, World Wide Fund for Nature- experienced by the island's populace were Switzerland, Wild Bird Society of Japan, the very factors that translated these into GreenpeaceInternational,andBirdlife organizational vision, mission and goals. To International, among others. raise the resource management agenda to a municipal and provincial scale is to put the Locally, Haribon is also represented whole CBCRM framework in operation. This at the Philippine Council for Sustainable connotes that the activities in San Salvador Development (PCSD). should convincingly set a precedent worthy enoughtoserve as a model to other Vision communities. Support from all institutions whether private or government, should be welcomed to be able to effect immediate Haribon's vision is sustainable development for the Philippines.This means ensuring but substantive transformation to the fast- deterioriating natural resources. that "the needs for the present are met without compromising the ability of future generations to meet their own needs" (World Lastly, SPSS ought to focus its foresight Commission on Environment and Development). ongivingservices to other resource - dependent communities. Mere testimonies of members on how they came up with a Addressing poverty, Haribon envisions the need for the management of natural resource management alternative and their resources to be community-based, socially dedication to spur an island-wide development is already a story where people can draw equitable and scientifically sound. Haribon's visionis life-centered, natu re-promoting learnings and inspiration. and pro-Filipino.

153 Mission economic information have been generated to support the direct conservation projects The Haribon Foundation seeks to otHaribonand its goal of sustainable actively work and contribute by: development.

* Conducting scientific and socio-economic Environmental Defense-Legal Program researches on natural ecosystems for (EDLP) -Through TanggolKalikasan the benefit of Filipino communities and program, Haribon offers environmental promoting sustainable approaches to paralegal training, legal advice, research, development; as well as representation of members of indigenouscommunities, community Promoting and undertaking community- organizations and individuals who have fallen based resource management strategies victims to environmental law violations. in specific sites; and Advocacy and Networking Program * Raising the national consciousness (ANP) - The Advocacyand Networking on sustainable development to promote Programconductsresearch and policy a constituency for environmental issues, studies with a view towards influencing policy and membership for Haribon. formulations. The process is largely participatoryand consultative. Public Programs and Services awareness campaignson relevant issues are also undertaken to inform and educate Community Organizing and Development the public. Program (COOP) -Haribon believes that members of communities should actively Membership and Chapter Development manage the productive resources.This Program (MCDP) - This aims to mobilize, program involves a process of empowering organize and educate the Filipino, the various communities to undertake their own development sectors and non-sectors in environmental through education, organizing and applied conservation. It also undertakes the task of research, and cooperative development. organizing and strengtheninga national Environmental education, resource management network of Haribon chapters throughout the training, and research are integral parts of country that shall pursue the vision of sustainable the organizing strategies from the beginning development.Fora are available to chapters of a CODP pilot project. CODP projects include and members to keep them abreast of communityforestmanagement, marine environmental issues and development. conservation and marinesanctuary establishments.

Science and Research Development Program (SRDP) - Haribon aims to systematize Philippine natural resources information, particularlythroughHaribons in-house research activities.Scientific and soclo-

154 Ref ere nces:

Buhat, D.Community-Based Coral Reef Fisheries Management, ji Salvador Island, Philippines. 1994.

Christie, P.; White, A.; and Buhat, D.Community- Based Coral Reef Managementaa Salvador Island, Philippines. 1994.

Fellizar, F.P. Jr. Community-Based Resource Management: Perspectives Experiences Policy Issues. ERMP Report No. 6. Environment Resource Management Project.Philippines, 1993.

Fox, J. and Fisher, R. J.International Irrigatiort Management with Farmers Participation: Gettinq th.. Process Right Ia Community Organization Government Bureaucracies Ia Social Forestry. Hawaii, 1990.

Gomez, E. 0. and Yap, H. T.Coral Reef Degradation Pollutionin.the East jn Region. Quezon City: Marine Sciences Center, Universityof the Philippines, 1982.

Haribon.Accomplishment Report tQ.L Coastal Environment Project.1994.

Leaf, M. J."Elements of Sustainability of Local Development." Paper presented at the Commemorative Programme for the 20th Anniversary of the United Nations Centre for Regional Development, Japan, 1991.

McManus, L.T. "The Coral Reefs of the Lingayen Gulf: Challenge to Resource Management." In Tropical Coast Area Management. 1988.

Ridao, A. R.; Cura, R. T.; Christie, P.; and White, A. T. "Evaluation of the Marine Conservation Project in San Salvador Island, Masinloc, Zambales". 1991.

Romero, G. "The San Salvador Marine Sanctuary: A Case Study." 1991. (Unpublished Manuscript).

155 Testimony

Fernando Tiburc!o Head, Samahang Pan gkaunlaran sa San Salvador (SPSS) San Salvador, Masinloc

In the I 960s, illegal fishing was very rampant in San Salvador. We were so helpless, and could not do anything but watch what was happening. When Patrick Christie of HARIBON came, the marine conservation project was introduced to us We consulted the people from the community in conceptualizing the project. The consultation underwent a difficult process. There were times when we were branded as communists and members of the New People's Army. Some even accused us of depriving the people of their source of living.

What we did was choose credible people from each sitio who could help us explain the benefits of the project We had an exposure visit to Apo Island to see how marine sanctuaries work. We were successful in the preparatory activities of the project. There were ten of us who worked as volunteers in this preparatory stage. As a barangay official, I believed that p'eople can work together towards success. Sowe worked together, we passed a resolution toihe Sangguniang Bayan seeking the officiaflpromulgation of the Marine Conservation Project in San Salvador (MCPSS). With our patience and sacrifice, we were able to have the marine conservation project officially proclaimed by the government. The Office of the Mayor, the Department of Agriculture, and other government agencies were with us in promulgating the project. The mayor was very supportivef the project.

They say that the implementation stage is the most difficult phase of a project. But I believe that it is the preparatory stage which is more difficult.It is because, once the essential legal mechanisms are put in place (te., ordinances), project implementation is much easier. That is why I can proudly say that in our marine sanctuary, if ever there are violators, they are usually outsiders who are tempted to practice illegal fishing due to the abundance of fish in our place.

Besides our marine conservation project, we also engaged ourselves in other projects like tree planting and cooperative formation to respond to the other needs of the people The need for a cooperative was seen so we set up a multipurpose cooperative in every sitio. Now we have three multipurpose cooperatives in our barangay, These were set up from the members' capital build-up and from the P1O,OOOOO contribution from the Samaharig Pan gkaunlaran ng San Salvador or SPS$ (Association for Development in San Salvador) for each cooperative to build a satellite store. Every yearend as we close our financial accounts, the members are happy to receive their share in the income of the cooperative Last December, a member got P1 ,400.00 as dividend (balik-tangkillk) from his cooperative.

156 Since we do not have fence in our marine sanctuary, fishes can go outside the sanctuary. Some officials from other coastal barangays affirmed that fishes coming from the sanctuary were becoming prey to cyanide fishing in theirbarangays.This was disappointing to us who had rio control over such practices We thought it was useless guarding the sanctuary when illegal fishing was being done beyond the sanctuary.

We talked about this problem and we decided to formBantayDagat We coordinated this with the DA which facilitated the deputization of fish wardens from other coastal barangays We started with 14 fish wardens from our barangay until we reached 35, including other deputized fish wardens from Barangays Baluganon, Poblacion, and Mataldig. We eventually formed a federation of fish wardens which apprehends illegal fishers not just in San Salvador but in the whole municipality of Masinloc as well. We were very successful in seizing illegal fishers such that they could escape the Coast Guard but not the federation's fish wardensSince 1994, the federation was able to arrest no less than 20 illegal fishers

Our organization did not stop at just protecting the sanctuary and halting illegal fishing practices.Through advocacy, we encouraged other coastal barangays to preserve the coastal zone and its resources; to regard it as a sacred gift from God that had to be protectedAt present, our efforts are rewarded with the formation of an ad hoc federation of organizations in Masinloc where Isit as the chairperson

They say that our organization is a very successful one We believe we have been a very strong organization but we know there is still roam for further growth and improvement for us in what we are doing. To all the institutions who have been with us in each step of the way, we extend our deep gratitude and appreciation. Thank you very much

157 The Bolinao Community-Based Coastal Resource Management Project (Initial Phase): Towards an Interdisciplinary Approach

ELMER M. FERRER Co-coordinator, Liveithood Component LIANA 1. MCMANLJS Project Coordinator LENORE POLOTAN-DELACRUZ Co-coordinator, Liveithood Component ALLAN C. CADAVOS Livelihood Project Staff U.P. Marine Science Institute/UP. College of Social Work & Community Development/ Haribon Foundation for the Conservation of Natural Resources, Inc. Metro Manila, Philippines

Thecomplex nature of problems and This case study presents the evolution of issues found in the coastal zone calls for an a tripartite partnership between two academic interdisciplinary and integrated approach if we institutions, an NGO and the coastal communities are to realize the sustainable development of to pursue a CBCRM program in Bolinao, the coastal zone. Community-based coastal Pangasinan. It explores what are considered to resourcesmanagement (CBCRM) requires be the essential compon.ents of CBCRM as well the fusion of knowledge and skills in the social, as strategies for harnessing active participation physical,biological, and legal-institutional of local communities and concerned government sciences to address the problems of resource units. The case study illustrates the difficult yet depletion, environmentaldegradationand enriching process of building and nurturing a increasingpovertyof coastal communities. multi-disciplinary team that learns not only from This interdisciplinary character helps develop each other but with the communities as well. the power and capability of local communities to play a central role in sustainable resource management.

159 Introduction Beginning Institutional Partnership

Unlike similar projects oriented towards The UP. Marine Science Institute coastal resources management, the Bolinao Comm unity-Based CoastalResources Theresearchprogram of the UP Management (CBCRM) Project stands out Marine Science Institute (UPMSI), specicalIy in terms of evolution, conceptualization, and those studies which pertain to resource and implementation.It was borne out of the habitat assessment for coralreefs, independent research initiatives and seagrasses and mangroves, andthose development-orientedcommunity interaction which focus on technology development for of its collaborating institutions. The subsequent coastal aquaculture (e.g., seaweed farming tripartite partnership between the Marine and giant clam and sea urchin culture) provides Science Institute (University of the Philippines), themilieu for its involvement in coastal the College of Social Work and Community resource management. Beginning 1 976, it Development (University of the Philippines), has embarked on the systematic suryey of and the Haribon Foundation has provided a the status of coral reefs, which, to date, has unique matrix of perspectives, experiences included the assessment of over 600 sites in and expertise which now determines the the country. Starting in 1985, through the manner in which the project evolves. ASEAN-Australia Living Coastal Resources Cognizant of the institutional and disciplinary Management Project, additional sites for filters which influence the interactions within habitat assessment included those of and between the project and the Bolinao seagrass and mangrove systems. In 1986, fishing communities, a conceptual framework MSI participated in the ASEAN-US Coastal has been articulated in an attempt to forge a Resources Management Project, which holistic perspective and a broad framework broadened its research interests to include for thought and action. This framework is resource management of the Lingayen Gulf, continually refined by insights emerging from with special emphasis on the gulf's coral interactions internal to the project and with reefs located in the Bolinao-Anda shelf. the local communities and institutions along various scales of governance.With this Research on habitat and resource case study, the writers hope to provide an assessment indicated the grave need for empiricalmodelof CBCRM which can mitigating technologies which would allow significantly contribute towards a generic reseeding of grossly depleted populations Philippine model in definingbasic and theproductionofcommercially components and strategic approaches for harvested organisms through coastal the sustainable implementation of resource aquaculture.In the early 1980s, a project management atrelevant hierarchies of on the biology and culture of giant clams governance. began and continued for eight years under the sponsorship of the Australian Center for International Agricultural Research (AC IAR). Through this project, a hatchery and an 160 ocean-based nursery forgiant clams were The U.P. College of Social Work established. The biology of extant species was and Community Development studied and cufture protocols were established. The Universityof the Philippines In 1987, the Seaweeds Project was College of Social Work andCommunity approved by the International Development Development(UP CSWCD)is a major Research Centre -Canada (IDRC) and was research institutionin the ASEAN-US aimed primarily atproviding information CoastalResources Management Project essential to the expansion and diversification of coordinated by the International Center for the seaweed industry and the management Living Aquatic Resources Management of seaweed resources in the country. (ICLARM) from 1986to 1989. It was Seaweeds including Eucheuma, responsible forthe socio-economic and Kappaphycus, Caulerpa, Gelidiella and legal-institutional studies among municipal Sargassum were included in this four-year fishers in the Lingayen Gulf. The results of research program. the above studies and other bio-physical studies became, among others, the bases In 1991, a follow-upprojectwas for the formulation of the Lingayen Gulf approved to include not only seaweeds but Coastal Area Management Plan (LG-CAMP), also invertebrates in research and technology which has since been adoptedbythe development. The project was approved for RegionalDevelopmentCouncil ofthe three year-funding by the IDRC.For the National EconomicandDevelopment seaweeds component, the major emphasis Authority (NEDA-Region I). was on the refinement and transfer of the sea- weed culture, and the development of man- In early 1992, a team from the CSWCD agement strategies for natural stocks of in consultation with MSI worked together Gracilaria.For the invertebrates component, toward the conceptualization of a proposal refinement and transfer of the giant clam on participatory action research for CBCRM culture, andthe development of culture which was later funded by IDRC. The team technologies for other macroinvertebrates initially selected three barangays in the (e.g. Tripneustes), were the prime foci. coastal town of Bolinao (Arnedo, Luciente I and Dewey) as preliminary study sites. The limited success of the 1987-1991 These were selected on the basis of the Seaweed Project in transferringand following criteria: 1) the diversity of resource and sustainingseaweedfarmingactivities economic base, 2) community support for underscored the need for a socio-economic CBCRM, 3) resource use conflicts, 4) and study to complement the research of MSI. accessibility and size of the community. Initialattempts attransferring seaweed culture technology were met with apathy by A majorobjectiveof the IDRC- local fishers, perhaps because of the lack of supported research project was to develop socialpreparation priortotechnology aparticipatoryprocessof generating development and transfer. knqwledge and understanding of the coastal

161 communities' resources and social system The Haribon Foundation, Inc. Complementary to this was the objective "to develop, use and validate the application of Although efforts to build an researchtechniquesand methods e.g., interdisciplinary working relationship began participatory rural appraisal or PRA, in in 1992,the development of a functional coastal communities in understanding the common workplan for the two institutions resource system and socialsystem." did not materialize until the second half of 1993 since most of the MSI research activities To operationalize the objectives, a have already already programmed. For its training exercise on PRA was conducted on part, the CSWCD needed time to set up its November 13-15, 1992 at the UPMSI Bolinao program,trainfield staff, and conduct Marine Laboratory and at the project site in research on the application of participatory Barangay Arnedo. The training was a hands- action research in coastal communities. on experience to allow the participants to Among the team building measures adopted apply and adapt the principles, methods were cross-discipline orientation sessions and tools of PRA to coastal communities. to develop mutual understanding of natural The training was facilitated by consultants and social science approachesto re- from the Institute of Environmental Studies sources and communities. and Management (IESAM) of University of the Philippines-Los Bal'Ios (UPLB) and the By mid-i 993, the importance of doing Tambuyog Development Center, an NGO more intensive community organizing and with experience in applying Rapid Rural mobilization has been identified by the two Appraisal (RRA). institutions. Hence,in October 1993, the Haribon Foundation for the Conservation of The research team adapted and refined Natural Resources, Inc. (an environmental the methodology as they worked later in NGO), joined the project primarily to carry Arnedo. Cycles of theoretical inputs, field out community organizing in the project sites. practice, group discussions, and synthesis A multi-institutional and multi-disciplinary were undertaken as the research progressed base was then formed for the development during the two months ofdata gathering. of CBCRM in Bolinao. Needless to say, the After an initial write-up and popularization participants from the three institutions had of the resufts, a community validation workshop different orientations and work experiences. was held. Subsequently, PRA was undertaken in Thus,a staff workshop was conducted to barangays Luciente I and Dewey. allow some "levelling off" of expectations and to begin the arduous task of working Simultaneous with community towards an interdisciplinary framework that organizingand capability building, the all would internalize. research team undertook in-depth studies ofthecultural,legal/institutionaland marketing/technology aspects ofcoastal resource management systems.

162 Site Profile the economy of Bolinao, and is the source of livelihood to about 3,000 small-scale fishers. At The town of Bolinao is located on a the scale of the Lingayen Gulf, the Bolinao cape of the northwestern tip of Pangasinan. reef system provides the floating propagules Itis on the western edge of the Lingayen of fish and invertebrates for the whole gulf, Gulf, facing the South China Sea.The and functions as a critical support system for Municipality of Bolinao is bounded by the the associated shelf systems in the provinces South China Sea on the north and west, and of Pangasinan, and , where about on the east by the Caquiputan Strait. This 7,500 fishers live. strait separates Bolinao from the town of Anda, the only island municipality of A five-year study (McManus, 1991) Pangasinan. To the south, Bolinao is revealed that the reefs were overexploited bounded by the rolling hills and plateaus of and deteriorating because of destructive Bani. Bolinao is approximately 40 kilometers fishing methods and other man-made northwest of Alaminos, the center of trade causes.Blast fishing occurs on both the and commerce in western Pangasinan; 79 reef flat and reef slope. It is usually targeted kilometers away from Lingayen, the capital at clusters of coral but it is also used to town of Pangasinan; and 274 kilometers harvest schools of pelagic fish.The blasting away north of Manila via Camiling, . devices are generally prepared by locals from readily available materials. Blast fishing is The town of Bolinao is made up of 20 far more destructive than other methods villages or barangays, 14 of which have because it directly reduces the area to which coastlines. It has a total land area of 23,320 coral reef fish can recruit. hectares. Its topography varies from flat to rolling wfth some steep areas near the seashores Another destructive method is the use in the western and eastern portion. of sodium cyanide in aquarium fish gathering. The chemical is used to stun the fish and it As of 1992, Bolinao had a total population is destructive to corals. of 52,701 or 9,944 households. The CBCRM project is being implementedin four The degradation of the ecosystem has barangays: Arnedo and Balingasay in the greatly contributed to the depletion of the mainland and Biriabalian and Pilar in San- resources in the waters of Bolinao. tiago Island.Around 20% of the town's population lives in these four villages. The project is being undertaken in Barangays Arnedo and Balingasay in the Boljnao has the most extensive coral mainland, and in Barangays Binabalian reef formation in Pangasinan covering about (labas) and Pilar in Santiago Island (see 8,000 hectares on the northern side of Santiago Figure 1). and Dewey Island and along the northwestern coast of the mainland. The highly diverse multi-speciescoralreef-based fishery fuels

163 FIGURE 1 PROJECT SITE OF BOLINAO CBCRM

HUNDRED ISLANDS

LUCERO 7DEWEY SANTIAGO

CONcORDA PILAR ARNEDO

164 Program Framework and Objectives this close interaction with the community, obtain objective benchmark to determine The Bolinao CBCRM project sets into how best to initiate community organizing, motion an iterative and interactive research to prioritize what concepts need to be intro- process of conceptualization, implementation, duced in environmental education seminars, documentation and evaluation involving both and to identify what resources and skills are the community and researchers in a dynamic important to livelihood development which partnership to realize coastal resource community members have or need. management. The project has five major components, namely: community organizing, Based on priority problems, the community environmental education, resource management, thenidentifiesinitial activities for livelihood development, and networking and implementation. The researchers use this advocacy.Throughout this process, the as a basis for developing their workplans, community and the researchers teach and which also address strategies that better learn from one another, giving room for the enable a community to undertake the identified expression of the community's collective activities. A key preparatory strategy and wisdom which is focused, enhanced, and one frequently used in community organizing is enriched within the framework of coastal conflict management with respect to resource resource management (CRM). Indicative of utilization.The community's problem-solving the community'slevelofmaturity and skills are enhanced together wdh complementaty commitment is the extent to which it can environmental education seminars to sustain this process on its own. The degree deepen the community's understanding of towhichresearchers can facilitate the how living resources respond to harvest and community'sattainmentof self-reliance habitat degradation.Leadership training becomes the major index of their success. seminars develop community leaders and lead to stronger community groups. At each The first step of this iterative approach step of the way, the researchers explain the is the conceptualization of issues, needs purpose of capability-building strategies and solutions pertinent to CAM. The conduct of withinthecontext of coastal resource participatoryruralappraisal allows the management. During this process, needs community and researchers to interact in for management strategies or options for systematically gathering and analyzing data technology, development are evaluated and about the former's environment and resources. lead to research and development plans. Together, they identify critical problems and begin to formulate solutions.In this way, Identified activities address the needs for the community begins to focus on CAM IiveIdood development, resource management and issues and potential solutions as a collective netwoiking and advocacy. Each activity is subjected body, gaining insights from their research to evaluation by the community groups affected. partners about natural and social processes Activities are also anticipated based on PRAs which they themselves have knowledge and as well as previous knowledge on the resource experience on. The researchers, through and environment situation in Bolinao.

165 The interest of a coastal community in 1. Develop interactive means to mobilize CAM as a framework for addressing its coastal communities toward collective environmental and livelihood problems is coastal resource management through sustained with each small success achieved community organizing and environmental in conceptualizing and implementing activities, education; all of which build its capability as a collective coastal resource manager! An evaluation of Establish participatory mechanisms each activity is done as a learning step and through which people's organizations asan occasion for consolidation of the at variouslevelsarelegitimized, community. Assessing both the emerging institutionalized and strengthened, by strengths and remaining weaknesses of the society and by law; group to implement collective action allows for redefining initial perceptions about goals Determine and evaluate appropriate and strategies to realize them. For communities, coastal resource and environmental a meaningful assessment of their status as management strategies whichwill managers of their coastal resources deter- ensure a sustainable base of living mines the degree of commitment and level resources in the coastal area; of decisive participation in subsequent ac- tivities. For researchers, an examination of Identify and develop cuRuralty appropriate, the impact of activities in reorienting values, gender-responsive and environment- in skills training, and in focusing indigenous friendly sustainable livelihoods that knowledge allows for better facilitation of will address the need for food and the CBCRM process. cash, and which will alleviate direct harvestpressure on livingcoastal The strength of the general approach resources; of thisproject is the partnership forged between the community and the research Devise networking mechanisms partners.The partnership seeks to propel through which efforts on coastal resource the communities into self-reliance through managementatthe barangay and capacity-building in the crucial aspects of municipal levels are linked to provincial, coastal resource management.Project regional and national levels of governance phase-out is built into the process so that to achieve maximum viability and the communities are made aware of this impact of the management program; and phase-out from the inception of the partnership. 6. Document the process of evolution Project Objectives kvard a community-based coastal resource management program through an interactive In sum, the Bolinao CBCRM project learning process between the community framework is operationalized in. the following and rsearth program, for use in evaluation, objectives: training, networking, and application to other coastal communities.

166 Program Components The Community Organizing Process

Community Organizing Community organizing in the project sites is undertaken in identifiable phases Philippine experience in development viewed in a continuum, but not necessarily work confirms the strategic role of community as ladder-like distinct steps. These phases organizing in enhancing people's capability are 1) site selection;2) community entry for self-governance: in empowering the and integration; 3) community study through people to manage their resources productively, ParticipatoryRuralAppraisal;4) issue equitably, and sustainably.Previous studies selection and prioritization; 5) contact building strongly support the view that local organizations and spotting of potential local leaders;6) are a crucial factor in development work formation and strengthening of a core group; (Uphoff, et al. 1979: 33). It is important that 7) education and mobilization; and 8) setting up people have to be organized in order to andconsolidation of a community participateon a substantive basis in organization. development projects. Organization is essential in mobilizing and coordinating the Site Selection.Many development humanandmaterialresources of the agencies, when preparing plans for development community and in fostering participation on projects, rarely have any idea of the particular a collective basis such that all members of community where the project is going to be the community can have equal access to implemented. But, for a community-based decision-making and project benefits. coastal resources management which is site- specific, the selection of the project site is a Community organizing is a prcblem-soMng crucial phase. It mayspell the initial process whereby the community is empowered success or failure of the project. with the knowledge and skills to identify and prioritize their needs and problems, harness For the Bolinao CBCRM Project, six and mobilize their human and material resources variables were taken into consideration in to deal with these problems, and take action identifying the project sites. These are: collectively.It stresses leadership formation andcapability-building, hence it has also been 1. Diversity of resource base (in relation referred to as a "learning process" approach. to available economic opportunities). Mostcoastalvillages have hardly As the most basic component of enough land for agricultural production. CBCRM, community organizing lays the Aside from fishing and other marine- foundation for the other four components of based actMties, many coastal ccmmunies theprogram. Itis complemented by seem to have very few livelihood options; environmental education so that the community thus, diversity of resource base is an can begin to think about their economic and important consideration. socialneeds and problems within an environmental framework. 167 Willingness of the community to Having these criteriain mind, the cooperateinlaying down the project team proceeded to select Barangay foundationfor CBCRM. The Arnedo together with Barangays Dewey and community itselfis considered the Binabalian as one of the first sites for community main player in resource management. organizing.Later, the project staff pulled Thus,onlywiththecommunity's out of Dewey and moved to Barangays participationand cooperation can Balingasay and Pilar. the CBCRM process proceed. EntryandIntegrationinto the Relative urgency to initiate CBCRM Community. In order to gain the confidence of as a result of rapid environmental the people and first-hand knowledge of the degradation and resource depletion. community, it is important to immerse oneself Fisheries in Bolinao and the Lingayen amongthepeople.As outsiders, the Gulf are threatened by degrdation researchers/development workers can only and stock depletion. The rapid rate at which learn of the local situation from the local these are taking place calls for immediate peo5le themselves.It is only the latter who intervention to avert further damag can supply the most revealing picture of themselves and their community. However, the Accessibility and manageability of local people cannot be expected to reveal the community in terms of population their problems and opinions to complete size and geographicalarea. strangers. This can only take place after a Maximum impact of intervention is an process of integration. important consideration.Thus, the program has to be implemented in Barangay Arnedo is one of the most communities which hold more potential populous barangays in Bolinao. in 1992 it for rehabilitation, development and had a population of 2,591 belonging to 543 management. households.It has a total land area of 361 hectares, of which 60% is agricultural land, Peace and order situation. Where 30% is residential and the remaining 10% is crime is prevalent the community and institutional, pasture and forest land. Arnedo the development workers are distracted. is bounded by the South China Sea in the The CBCRM process could be enhanced north and northwest, by barangays when the development workers do not Concordia and Liwa-liwa in the east, and by have to worry about their security. barangay Balingasay in the south.

Presence of development programs. About 25% of Arnedo's population is To avbid duplication of efforts which dependent on the sea for livelihood. Most may only lead to confusion and inefficiency, of them are located in the seaside sitios of new programs should avoid operatg Bareg, San Miguel, and Tinumrong. A 1994 in communities where other programs survey shows Arnedo has 80 fisher families are already operating. distributed as follows:

1 68 Sitio No. of Fishers The initial community study was done through Participatory Rural Appraisal (PRA). Bareg 49 artisanal fishers, The PRAevolvedfrom RapidRural 10 deep sea fishers Appraisal(RRA),a research technique San Miguel: 21 artisanal fishers developed in the tate 1 970s and early 1 980s Tinumrong 8 artisanal fishers by researchers in rural development work Quintin 10 artisanal fishers as analternativeandcomplement to conventional survey research.PRA is a Aside from fishers, Arnedo has farmers way of learning from and with community and livestock raisers (50%), constituting the members how to investigate, analyze, and majQrity of the population, employees and evaluate; and to make informed and timely wage-earners (10%); business persons decisions regarding development projects. (7%); and laborers (8%). PRA's approach borrows from anthropology and ethnographic research methods, and Entry into Barangay Arnedo began as such gives emphasis to understanding with a courtesy call on the barangay captain "the people's own point of view." - a retired woman-elementary school principal. This was followed by a formal meeting with The PRA in Arnedo was an initial the barangay council where the nature of efforttowards understandingthe rapid the program, its objectives, components and environmental change and degradation and process were elaborated. During this meeting the increasing deprivation of the people in the endorsement and support of the the area. The research activity was meant barangay leaders through the barangay to achieve a better understanding of the council was sought. status ofthecoastalresources,the economic activities of the people, and the After the project obtained the endorsement existing dynamics between the two. of the barangay council, the researchers! community workers conducted house-to- During the initial stage of the PRA the house visits to.establish rapport with the project staff conducted "walkthroughs" to community and develop contacts for the familiarize themselves with the community community study. and develop contacts. They also gathered secondarydata.Apart from the formal Community Study through Participatory structures of leadership, non-formal leaders like Rural Appraisl. Before any organizing can be school teachers, andreligious and civic done, an initial study of the community and its leaders were also tapped as research partners. resources should first be undertaken. Such a study is necessary to guide the efforts of the The project staff initially engaged in organizer in identifying the resources and patanong-tanong or casual conversations. potentials of the community, the issues and The team later on conducted semi-structured problems tvards determining the type of approach! interviews (SSI) and focused group discussions method to start the people moving. (FGD) using the guidelines they formulated.

169 The latter were conducted among farmers, generating discussions regarding the status fishers and women. They gathered data on of community resources, problems, and the status of the resources, livelihood and needs.The discussions generated may be income source, past and present development directed toward making the people conscious itiaflves,issues and problems, and opportunies. ofthe need for an organization that will To verifythe data they were gathering, serve as their venue for solving their problems. direct observations were also made. In the face of so many problems, To provide feedback and validate the prioritizationis needed.The degree of PRA results, a community validation workshop complexity of the problem and the project's was conducted. Through this activity, the capability have to be taken into consideration. community members and the project staff Simple problems are easier tackled first to collectively analyzed the data and determined ensure success of initial efforts. This way, causes ofproblemsprevailingin the the project helps build the people's confidence community. On the basis of the analysis in their ability to act collectively. andcollective understanding, a plan of action was proposed and prioritized. In Barangay Arnedo, participants in the Community Validation Workshop formulated The PRA process proved helpful in a set of criteria for prioritizing the issues constructing a comprehensive picture of the they raised. The criteria included: resource status and of the people's socio- economic conditions,It also generated Urgency of the problem awareness of the various possibilities and Gravity and seriousness of the problem challenges for coastal resources management Number of people affected and served as initial focus for mobilizing the Willingness of the people to act on the issue/s leaders and members of the community. On Solvability of the problem the whole, the PRA became the stepping stone for subsequent capability-building Using these criteria, they prioritized activities for CBCRM. the following issues to be addressed by the barangay council: Issue Selection and Prioritization. After the initial community study, a presentation Organizing of fishers in Sitio Bareg on barangay's situation in a synthesized Resource rehabilitation (e.g., mangroves) and popular form was made to the people Development of livelihood activities for validation,issue selection, and Revival and strengthening of the prioritization. This activity usually came in maguey and cashew industry the form of a community validation workshop. Strict enforcement of ordinances against illegal fishing The community resource profile can serve as their mirror in understanding their community situation and may be used for

170 Spotting of Potential Local Leaders Beginningin mid-1994, the project and Core Group Building. The core group focused its organizing efforts on the sitios is the basic building block of any organization. where majority of the fishers reside. The The core group is formed from the initial goal was to establish a local organization of contacts who have shown great interest and fishers who will take the lead in resource concern by taking time to attend regularly managementalong theprinciple of and participate actively in meetings and who "resource-user-as-manager". Coupled with are credible to other members of the one-on-one discussion, small group and baran gay purok-level discussions on the environment and leadership development, these efforts In Arnedo, the initial core group was led to the formation of the San Miguel organized around the introduction of seaweed Neighborhood Association and the Bareg (Eucheuma) farming as a form of supplemental Neighborhood Core Group. livelihood. Fivefarmingandfishing households were organized into a techno- By December 1994, several members livelihood cell who then underwent leadership of the techno-economic cells have joined development sessions and technical training. the exposure trips to two relatively successful marine reserves in San Teodoro, Batangas The seaweed farming was envisioned and San Salvador Island, Masinloc, to be economically viable and self-sustaining. Zambales. These cross visits proved very However, after three planting cycles, effective in convincing the participants from shortcomings in the technical, economic and Arnedo about the effectiveness of marine social aspects of the project prevented it reservesasa resourcemanagement from flourishing as an economic activity. option. They came home totally convinced that it was possible to rehabilitate the Education and Mobilization. Educational degraded coastal resources in Arnedo. They and mobilizing activities should be undertaken proclaimed, "it could be done". at every phaseoforganizing. Direct observation through fishers' exposure trips Environmental education modules to other successful project sites effectively formulated under the FAQ-supported Integrated concretize abstract principles. Coastal Fisheries Management Project of HARIBON were used as basis for environmental The failure of the seaweed project did education sessionswiththe community not prevent the project staff from learning organizations, local government officials and lessons from it and utilizing the techno- agencies, and school groups. An advanced economic cells as a springboard for the course was designed for potential trainers transition from simple aquaculture to commu- atthelocal level including training for nity-wideprogramofcoastal resources environmental, paralegal community management. education and alternative fisheries harvest and production methods.

171 The environmental education and organization.The target was a broad trainingprogramwasintegratedwith barangay-level organization with fishers as communityorganizinganda resource leaders.The working committee assisted specialist with training in environment was by the team began its work by conducting assigned to be part of the field team in each house-to-house calls on all the contacts it barangay.In addition to the programmed had made in the barangay during the last activities the resource specialists were able two years. It also began drafting a constitution to identify other needs and opportunities and by-laws. and worked with the project scientists to respondwith appropriatetrainingand On June 25, 1995, the working demonstration materials. These specialists committee called for a general assembly. It also worked with community groups as they was attended by 64 people, out of around 80 developednewlivelihoodoptions and old contacts of the program. Only 35 of management strategies, which incorporated these attended the general assembly, and environmental monitoring. the rest of the 29 participants were new contacts.The people's organization Setting Up the Organization - Samahang Pan gkalikasan ng Arnedo or Samahang Pan gkalikasan ng Arnedo SAPA (Environmental Organization of (SAPA). Beginning January 1995, the team Arnedo) was born at this assembly. in Arnedo has formulated a more integrated program includingsetting upa people's At the first assembly, 11 leaders were organization, installing a marine protected elected.Theyweretaskedtolaythe areaandpilottinga community-based groundworkforresourcemanagement, enterprise (i.e., seaweed farming). including the analysis of the bio-physical, socio-economic and practical factors in During the first few months of the year, Arnedo, the identification of resource the community organizing process was management options, and the installation rather slow and got sidetracked bythe ofa legal/institutionalinstrument that proposedsetting up ofa cement plant entrusts collectivemanagement tothe complex in Bolinao. Employing one-on-one organization. The leaders were also mandated education and information sharing proved to finalize the constitution and by-laws of helpful in raisingtheenvironmental the organization, to prepare its registration consciousness of the core group, but did not papers with the government, and to seek immediately contribute to the program's recognitionfrom nationalgovernment thrust to attain a critical mass of CBCRM agencies (NGAs), local government units advocates. (LGUs), non-government organizations (NGOs), and other local organizations. Several monthslater, a working committee composed of representatives of the neighborhood clusters was formed to preparethe establishment of a people's

172 Organizational Consolidation and Resources Management Institutionalization. Social acceptance provided a sustainable basis for legal The resource management component recognition. Previous work of CSWCD has is responsible for developing and evaluating analyzed the local ordinances and legal resource use and management options structure for fisheries resource management whichhavebeen identified through as means to allocate fishing concessions. participatory research in the project sites. HARIBON has had previous experience in These options include (but are not limited working with municipalities in gazetting to)community- based management of marine reserves. Based on these experiences fisheries resources, aquaculture technologies, work was initiated with the local government to land-based production systems and other passvillage or municipal ordinances to community initiated land and coastal endorse or legalize the status of the new development plans. This component works organization and the management measures closely with the Livelihood Development they proposed. component in the evaluation of options and in their implementation. To evaluate the extent of legal and social institutionalization of newly formed Themanagement ofthecoastal groups, the community and their research resources of Bolinao can best be done partners assessed the following features: through the formation of resource management councils at the barangay level which are Cohesion within the new organization represented in the municipal councils as and among its members and leaders; provided by the Local Government Code. This component also assists in designing Cohesion between the new organization the scope of management areas and the and the larger community; management plansfor specific areas or resources. The project strengthens these Ability of the new organization to identify councils through various capability-building resource management issues and to activities including environmental education. formulate viable solutions; As partners in themanagement of the coastal resources of Bolinao, the project Ability of the new group to network staff continue to provide technical assistance beyond the confines of its community; fortheamendment and formulation of and municipal ordinances that regulate entry into the fishery, implement resource-specific Ability of the new group to upgrade the management schemes and in general, develop skills of its members and leaders. a coastal zone development plan compatible with the principles of sustainable development.

173 In line with this components function the project. Hence, pilot farms were of providing technical assistance, biophysical launched in two communities where some research projects geared towards marine local groups had expressed interest. resources development management and enhancement are continuously undertaken. In Barangay Arnedo, Eucheuma farming These studies address needs identified by was introduced as a potential source of the people's organizations as well as those supplemental income.Unfortunately, results identified in previous research projects as were not encouraging. In Barangay Dewey, data gaps.Among the priority research three fishers took part in an experimental areas are: giant clam farming which, at the end of six months,provided them very modest Development of coastal aquaculture supplemental income.The experience systems to enhance fishery production; proved more valuable from an educational and ecological point of view. Integration of Inventory and assessment of selected, local fishers' and researchers' knowledge locally important fishery resources and was a principle that guided the entire process. resource management strategies for Fishers helped identify the ideal site based these resources; and on theirindigenous knowledge. The researchers helped deepen their scientific Monoring of the impacts of management understandingof the organism - its and other development interventions populationdynamics,feeding practices, (i.e.fishery regulations, introduced reproduction, etc.- through the technical alternative livelihoods, etc.). training conducted. Also in Dewey, culture of sea urchins in cages was conducted with The actie participation of local cooperators local fisher collaborators. inthese activities is an important feature in all phases of the research program. Such To expand these aquaculture initiatives, activities are initiated by the project staff integrated aquaculture technologies are and short-term studies are subcontracted to being developed and tested. A model for appropriate experts as the need arises.In the integration of fisheries management and addition to these activities,the gathering of aquacülture is being developed in the pertinent technicalinformation toaddress Coastal ResourcesResearch (CoRR) resource management issues that may arise Network. This may result in the enhancement (e.g., impact of particular gear) is also facilitated. of nutrient recycling, controlling pests and directing more energy and nutrients towards Coastal Aquaculture. The potential harvestablefoodproducts. Integrated of some aquaculture activities (e.g., seaweed, systemsunderlocalcontrolforthe giant clam and sea urchin farming) in generating production of food and products primarily much needed supplemental livelihood for for local markets are more sustainable from coastal communities and enhancing natural an ecological and social point of view. resource management was recognized by

174 The CBCRM project is working with activities wereraDDittisli,coral reef fish, the CoRR Network to develop components Strombus Anadara, Caulerpa Lentilifera, of an integrated system in cooperation with Gracilaria, and Sargassum. collaborators in Bolinao.Fish culture is focused on food production rather than on Reforestation of mangroves in areas producingmarketablespecies.This is previously identified by local communities compatiblewith suggestionsfrom local hasbeenstarted.Evaluation of coral cooperatorsto explore other options to transplantationand artificial seagrass to expand their aquaculture efforts. Indigenous enhance fishery production will be conducted knowledge and marine science knowledge based on the results of ongoing UPMSt are being combined to design an expedmental projects.If deemed ecologically appropriate, plan to test species interactions in field units. expansion oftheseactivities may be This becomes the marine equivalent of undertaken in the future. kitchengardens in which small-scale productionismaintained for household Development of rapid environmental consumption. As this effort is focused on appraisal systems is being undertaken with indigenousspecies, especially those of the primary goal of developing "local experts" local food value, there is little risk for participants. who can undertake the regular monitoring of the status of the fishery resources in the The appropriateness of coastal culture area and monitor the impact of resource technologies must be assessed using the management and other development activities. criteria of social acceptability, economic! marketing feasibility and the potential for In subsequent years, project activities instituting an acceptable limited use rights will contribute to the determination of the system favorable to coastal aquaculture for recruitmentdynamics oftargetfishery local food production as well as cash (e.g., species and simulation of larval dispersal export products). patterns in the Bolinao reef flat with hydrographic modelling using various Resource Assessment and Habitat methodology in which MSI researchers have Rehabilitation. Stockassessment of extensive experience. This understanding selected fishery resources (finfish, willbe criticalin the design of marine invertebrates, seaweeds) and integration of reserve systems (e.g. location of entrainment availabletechnical information on these systems) in the area and the region in general. resources is being conducted to fill gaps in previous studies. Based on these, conceptual Theintegrationof culture and modelsforthemanagement of these management contributes to resource resources can then be developed with the enhancement through the establishment of municipal resource management council. mini-reserves which, in the short term, Among the priority target species identified serve as reproductive reserves to enhance from boththe results of previous MSl local recruitment. In the longer term these investigationsand community validation help demonstrate impact oflarger, more

175 comprehensive reserves.An example is residents in the barangays visited helped to local sea urchin enhancementwhich is broaden their understanding of the resource initially justifiedas a culture activity. situationand howtheintroduction of However, since the sea urchin larval period reserves might be done. is relativelyshort and larvaemaybe attracted to the presence of adults, strategic The Resource Management Component placement of these populations, based on brought together available information on local hydrography,could contributeto the resources and the areas to determine "natural"recruitment.The potential for from a biological and ecological perspective other species is also being considered. what the best approach was. The Livelihood Component examinedthevalue of the Marine Reserves. One of the potential resources involved, in terms of both market interventionsand possiblemeans of value and family food impact, as well as the resource management which has already legal !mp!ictionsof the rserves. Since the beenaccepted in principle resource users have been involved in all of community groups is the establishment of these analyses it also served as a learning marinereserves,which will serve as processforthem in evaluating and protected areas and provide seedstock for developing such a management intervention. surrounding marine areas. There has been some success with these in the Philippines Though a marine reserve in a large but not in an area as large a community as area of Bolinao has been proposed by some Bolinao. Therefore, a different approach is researchers based on biological analysis of needed to reach consensus on the objectives reef fish recruitment, the implementation and implementation of marine reserves. was considered too difficult because of the difficulty of monitoring the proposed site, Reserves have been discussed as a which is far from the island barangays. The possible management tool in some of the current plan is to start with smaller reserves barangays. The initiative either follows up more accessible to smallcommunities' on interest expressed by community groups management. Modelsforsmall-scale or started with researchers evaluating the reserves are now being developed. resource use by various fishing groups. Existing informal fishers' organizations Trials are being designed with user based on the type of fishing gear they used group involvementintheaffected were tapped in the discussions. Starting point baran gay(s). The rules for management of for these discussions was the fishing gear used the reserve will be agreed upon by the users by each fisher. A series of exposure visits to anda means for monitoring compliance the marine sanctuaries in San Salvador Island and established. Resource monitoring by Mabini, Batangas, cxplemented by envnmen researchers and later by resource users will education activities helped draw the fishers' beconductedtoassessthe starting attention to the role reserves have played in situation and means to evaluate effectiveness other places. Discussions with leaders and of the reserve. The impact of the reserve

176 will be evaluated based on the status of the Studies show that sustenance fisher resource (species) within the reserve and families are indeed among the poorest of the impact of fishery landings. the poor.Not only are they deprived of productive resources - their children are Livelihood Development also severely malnourished, prone to disease, and unschooled. If their children are to The rationale of livelihood development growupthis way, the vicious cycle of within the context of CBCRM isto reduce poverty and environmental decaywould harvest pressure while the resource base is perpetuate itself in more disastrous forms. being allowed to regenerate, and to implement Livelihood within CBCRM has to ultimately a management scheme that respects the aim for a quality of life that affords education desirable level of "sustainable rent." In relation and other basic social services for all. toartisanal and subsistence fishers who are often unfairly blamed for the tremen- For these reasons, "food security" and dous pressure on the sea, "reducing extrac- "cash security" are the logical goals of a tive pressure" means lessening their total sustainable livelihood program worthy of its dependence on marine resources and on name. The former has to make sure that particularproductive activities.This is added income from any new activity is spent attained by1) diversifying thelivelihood on basic needs while the latter goal aims for optionsof marginalized families so that a level of sufficiency that can provide for their basic needs are met through varied education, health services, transportation, sources of income; and 2) facilitating their electricity, and other needs. access to basic social services that can widen the range of socio-economic opportunities Food security can be attained through available to them. food production that upgrades the quality of nutrition at the household level, and cash If CBCRM is to break the total dependence securitycan be attainedif a culture of of fisherfamilies on their already-degraded savings and austerity is fostered among resource base, facilitating their access to basic fisher families.A livelihood project that social services is mostimportant, especially successfully increases household incomes regarding theirability to put theirchildren through but does not catalyze the formation of sav- school so that poverty andthe abuse of the ings will still be unable to lift coastal families natural environment can be addressed at above poverty. their roots. Only sustained capability-building and the livelihood opportunities that go with Certain types of livelihood programs it can empower poor families to break free are apt to meet both goals of food security and from theirdependence on their resource cash security. Such is the case with integrated base andto participatemeaningfully in aquaculture still being developed in Bolinao, economically productive endeavors.Only making use of scientific studies done by the through education can the poor acquire capital UP Marine Science Institute on sea urchin that can never be taken away from them. ranching, seaweed farming, the rehabilita-

177 tion of coral reefs, and the culture of giant Eucheuma is grown on rafts made of clams, Sargassum and others as starting bamboo measuring 5 x 8 meters. There are point.Such concept integrates resource two methods used:the long line method management and livelihood development and the raft method.Each raft can be in a single scheme that is close to the experience planted with 300 seedlings weighing 100 and desires of coastal families. grams each and can produce as much as one (1) ton of fresh Eucheuma (1,000 kilos) Beginning in 1993,theproject after two months. initiated pilot farming of a seaweed variety locally known as tamsaw(Eucheuma/ Earlierin 1991-92, the Bolinao Kappaphycus alvarezii) in Barangay Arnedo. Farmersand Fishermen's Multi-Purpose Amedo was chosen as a suitable site because Cooperative (BFFMPC) ventured into of its good water quality and the people's Eucheumaproductionwith technical previous experience in seaweed farming. assistance from UP-MSI. The project did not last long, principally because the level The seaweedhasbeen studied of production could not meet the actual extensively by UP-MSI for almost 10 years. rarket demand.For big-time buyers to Eucheumais a red algae that grows on purchase Eucheuma at the farm-gate, the coral reefs and sandy bottoms of marine harvest has to be eight tons of dried waters in intertidal and subtidal zones where Eucheuma, meaning 80 tons of fresh the water is very salty, clear and fast mov- Eucheuma (80,000 kilos). This could only ing. Eucheuma is source of processed be attained if there are 96 rafts tended by carageenan, a gelling, thickening, stabilizing, about 16 families, with each family taking and emulsifyingagent in both food and care of six rafts and producing six tons of industrial products. Eucheuma is farmed fresh seaweed. extensively by around 50,000 fishers in the Visayas, the archipelago and Palawan. The failure of the earlier project was also attributed to the fact that the Bolinao Seaweed farming can be considered Multi-Purpose Cooperative lacked social a form of resource management and livelihood preparation prior to the technology transfer development.It contributes to enhancement from MSI, plus the fact that many of the people ofmarine habitats,for seaweed areas involved in the project were not even fishers. often serve as shelter, grazing and nursing But the root problems were really those of grounds for various reef fishes,It is also a marketing and the lack of capital necessary profitableactivity. Dried Eucheuma is to expand to a commercially-viable scale. purchased at P6.00 - P7.00 a kilo (1994 price level). About 10 kilos of fresh Eucheuma The new attempt at seaweed farming make up a kilo of dried Eucheuma with 38% in 1993-94 integrated a few lessons from moisture content. Growing Eucheuma takes the previous experiment. The project con- only about 1 to 1.5 months. Thus, multiple cept was for five cooperator families to pilot harvests can be done in a single year. seaweed culture using the raft method.

178 Threemorecooperators - all artisanal Organizational mechanisms put in place in fishers - were to follow suit using the long cluded periodic and collective planning, linemethod. A total of 17 rafts would updating, monitoring and evaluation. initially be set up, to be increased to 40 rafts Complementationfromthe professional per hectare once successful. There would staffwas undertaken by one community be five croppings in a year, with the produce organizer, one livelihood specialist and one packed into 50-kilo sacks for marketing. resource manager. The feasibility study of a 40-raft hectare of seaweed farm expects an annual yield of Because of the project's philosophy almost eight tons of dried Eucheuma, or of self-reliance, financing relied heavily on P54,521.00 worth of sales annually, which the resources of the techno-cell. Since only translates into a net profit of P 5,663.00 one of the cooperators was relatively well- after materials, labor cost, and marketing off, his family volunteered to finance the expenses have been fully paid.If proven acquisition of materials, to be paid from the successful, more families would subsequently sales of the first harvest. The seedstocks be involved in the project. for plantingwas lent byUP-MSI to be returnedafterthe cooperatorshave Selection of pilot cooperators was produced enough seedstock. The overall based on the following criteria: a) the family sharing scheme was that 50% of harvest must come from the fishing and/or farming would be the cooperators' share and the sectors; b) they must come from the rela- other 50% will be returned to UP-MSI as tively lower income groups; and c) must be payment for seedstock, until the original interested and willing to try the technology. quantity is fully repaid. No interest would be Of the five cooperators, two were full-time charged on all loans (in kind).It the crops fishers and three were part-time fishers! are destroyed, the cooperators are under farmers. no obligation to pay back.

The cooperative underwent orientation The harvest of the seaweed farm did and capability-building.The training focused not turn out well as expected.The first onthe situation of the environment, the cropping from December 1 993 to April 1994 development of leadership skills, and team- was harvested prematurely because of a building. Emphasis was placed on systems series of typhoons causing 30% loss of orientation by relating the seaweed project seedstocks. Diseasealsostruck the to the concept of resource management, Eucheuma, such as "ice-ice" or white spots and relating the techno-cell to an envisioned resulting from too much heat and intensity broad CBCRMorganization. Lines of ofsunlight. Growth was poor, largely responsibility andaccountability were because of the grazing done by Siganids, clarified. Individual tasking was done at all the effect of Epiphytes, the appearance of phases of the project, from construction of balu-balulang(Hydroclathrus clathratus) raft, planting of seedlings, weeding, crop and nutritional deficiency due to the close monitoring, cleaning, drying, etc. placement of rafts that affected distribution

179 of nutrients among the plants.It was later projects to be profitable, the scale at which concluded that the fact that the seedlings they can viably operate has to be ascertained were imported from Cebu and Bohol may first. A project that aspires to enterthe have partly contributed to their failure to exportmarketcannotbut operate on a adapt to numerous biophysical factors. commercially-viable manner withthe implicit commercial-level capitalization and investment. Despite the poor production output of the first trial, the cooperators pushed on Even though CBCRM often stresses with the farming. The results of the second self-helpandself-reliance on local harvest in early November 1994 were resources, externalinputsfrom outside better.It netted 10,195 kilos fxom 10 rafts, cannot be ruled out in all cases. Outside or approximately one ton per raft. help is at times necessary to spur growth and multiply gains. The question therefore A third cropping from November 1994 is not whether outside inputs should be used to February 1995 was also dismal because at all, but whether these inputs are wisely of disease, grazing and fluctuations in water andefficiently usedto generatenew temperature. Onlyfour cooperators resources that can then substitute for the participated in this last effort. infusion of outside capital. Self-reliance is not an issue of whether outside help is used After a thorough evaluation in early at all, but whether such use has created a 1995, Eucheuma farming was discontinued relationship of dependency. beginning March 1995. The original investment has not been fully recovered, Eucheuma farming in Arnedo was not andttie cooperators remain indebted to UP- devoid of any gain.Organizationally, the MSI andtotheirvolunteerfinancieralthough pilot techno-cells later became building both have presumably written off the losses. blocks of a broader CBCRM organization in thebarangay. The pilotcooperators The failure of Eucheuma farming was became key persons in the dissemination of not only due to biophysical factors. Many environmentalawarenessand in the past lessons were not taken advantage of, promotion of the CBCRM vision. Eucheuma particularly in the economic and social aspects. farmers,becauseof theirintensive Productionwas not consistent with the interaction with a three-memberprofessional specificationsofmarket demand.The team, were well-equippedfor organizational desired volume of marketable production work, such that they were easily spotted and was not attained. Very micro-scale projects hailed as leaders when the baran gay-wide wouldnotbecompetitiveand viable CBCRM organization was set up in June especially if their market is a broad one.It 1995. To date, they remain the most reliable they remain micro, they are limited to the local partners of the CBCRM program. local market, which does not offer prices commensurate to the production cost for certain products.Thus, for particular

180 Networking and Advocacy Thus, in all the components of the research program,the local government has been Networking is the establishment of identified as one of the major research partners. linkages with other groups and agencies Adialoguebetween the Municipal Council, working for a common goal such as coastal local community leaders and the researchers resources management.Advocacy is a has been initiated and will be sustained mechanism through which organized groups throughput the duration of the project.Major and communities institutionalize their goals points of deliberation included coastal zone in policies and laws of other groups and use planning, legal infrastructure for utilization, higher levels of governance such as the processinganddistributionof coastal national government. Networking is therefore a resources, livelihood development for fishers, prerequisite of advocacy.In both phases, and a comprehensive development plan for an organized community reaches beyond the town, among others.Specific issues its confines to help and learn from other which have been identified and analyzed communitiesand groups and together include the use of illegal fishing gear, the effect significant policy changes as an ultimate use of fishing gear considered potentially expression of a collective evolution toward destructive, the current and potential fishing self-determination.In the case of coastal andtrading monopolies, and access of resources management, the Local Government fishers organizations to fishing grounds and Code already provides for the legal rights of fishing rights. municipalitiesto managetheircoastal resources. The Code also recognizes the role Becausetheconcerns of coastal of people's and non-government organizations resourcemanagementgo beyond local as key partners in the development of local communitiesandtownships, working cOmmunies. However, a major lack of policy relationships with provincial and regional with respect to conflicts between national development councils have been established. development initiatives and natural resource- Currently, representatives from both levels based economies on the matter of pollutive have participated in two coastal resources industries, among other policy gaps, remains management fora which were held in 1992 an important target of networking and advocacy. and 1994, which provided opportunities for a loose network to be formed among GOs, As indicated earlier, the community POs, and development-oriented NGOs in has begun establishing linkages with other Bolinao.At the national level, interaction groupseven intheearlyphase of with the Philippine Council for Sustainable community organizing. The first major link Development has been initiated.Along the to be established and strengthened was Three levels of development councils, a major between the community and the municipal theme for interaction and idea exchange is government. The CBCRMresearch appropriate development paradigm/s for program considers the municipal government coastal resource management at all levels of as a priority group to be trained in the concepts governance. Such development models are and tools of coastal resources management. needed to provide a broader context for

181 coastal resource management at all levels Project Organization of governance.As the network tightens, thesedevelopmentparadigmswill be The organizational structure of the expressed in comprehensive policies with Bolinao CBCRM Programme was designed sufficient legal and financial support in order to tooperationalizethe participatory and be effectively implemented. interactive nature of the research process within and among the five components of While the network is driven by major the project.Majority of the research staff advocacy issues, information exchange for reside in the four study sites. Each site has environmental education is also important. a communityorganizeras a full-time Among communities, exchange of teaching resident (20 days each month), a resource materials and personnel, inter-site visits, specialist,and a livelihood specialist. and conferences are conducted to disseminate Thus, a total of 12 field personnel (four COs, lessons in coastal resource management. four RS, four LS) are on-site residents in the Experiences in conflict resolution, and capital four study areas to directly facilitate community and personnel mobilization for livelihood organizing, environmental education,resource development, among many examples, are management, livelihood development, and shared usngpppular media. In the end, the networking and advocacy. The community impact of networking shall be gauged by organizers act as the site team leaders and the commitment of coastal communities to the two site specialists coordinate with these collectively manage their resources as they persons. learn from and teach one another.For advocacy, a major impact will be the level of To facilitate and conduct technical political will at each level of governance studies, four resource and four livelihood (village,town, province, region, and nation) specialists are based in Bolinao. All of the that implements coastal resource management time of these eight people (for schematic as a major component ofa development research and on-site community work) are paradigm for coastal communities. supervisedbythe coordinators ofthe Resource Management and the Livelihood Development components. As the research progresses, and with the development of participatory method in resource assessment and livelihood development, community members who could serve as resource and livelihooddevelopmentspecialistsare identifiedto assistin carrying out the technical studies.

182 Overallresearch coordination is periodthat the CBCRM project is provided by a Management Committee being implemented in Bolinao, we headedby a Project Coordinator.The have seen how the people's confidence Management Committee is composed of grew, eventuallytakingon more the three research component coordinators responsibilities in strengthening their and the Project Coordinator.To provide organization as their main instrument external evaluation to the research staff, an for managing their coastal resources. Advisory Council was formed and is composed of heads of participating institutions, advisors 2. While asserting the principal role of of funding agency/ies, and external experts. communities in resource management, On the side of communities, evaluation is we recognized, on the other hand, the provided through the Coastal Resource limitation and inadequacy of vesting Management Network,which includes the main responsibility in resource members from various POs, NGOs and GOs management onthegovernment. with development and resource management Evidently, government has always to interests in Bolinao. be remindedofitsresponsibilities and prodded to do the right thing. Learnings 3. An kiedsdpliiaryappnach pooling together TheBolinao community-based the expertise of bio-physical scientists, coastal resources management project is social scientists, and NGO practitioners still in its early phase of project implementation can work. Such effort entails a lot of yet it already offers valuable lessons. Lessons hard work and must begin with an are learned during the process of implementation appreciationand respect for each and not apart from it.Lessons can be others background and expertise. There learned fromproject's success as well as from must be levelling-off of perspectives its errors. Shortcomings can be as useful as and expectations and integration in successes, if not greater, in teaching relevant the community is also a must. lessons. Interdisciplinary work takes place in 1. Communities can play the main role many levels. For instance, environmental in managing their resources. Community- education and training was integrated based coastal resource management with community organizing and a resource starts from the basic premise that specialist wfth training in natural sciences community members have the capacity was assigned to the field team in each capacityto understand and take barangay. At another level, the resource actions on the problems they confront specialist workedclosely with the through their own efforts with initial livelihood specialist in evaluating and initial support from non-government vekprg resource use and management organizations in cooperation with local options (e.g., aquaculture technologies, government units. During the short land-based production system, etc.).

183 Community organizing (CO) is crucial electricity, and other needs. One way the in enhancing prople's capability to project addresses Ihegoalof food security manage theirresources. CO is a is through the promotion of aquaculture problem-solving process which stresses products that are consumed by the leadership formation and capability- local people instead of exporting them. building. While cash security is addressed by generating capital through savings. Education and training is an important element in capabllity-buUding. Education Early success is critical in establishing was essential inthe early stages the credibility and accpetance of a project. of the project.In the project sites, Accomplishing concrete gains was education has been best undertaken also necessary for the CBCRM project. by field staff on a one-on-one basis It is only when people see and experience or through smallinformal groups. that they begin to believe and act. In Bolinao, appropriate and creative methods such as direct observations The project in Bolinao took a little through snorkelingand useof while to produce concrete gains. Its microscopes; small group or community- initial effort to introduce the farming wide presentations using slides, videos, of seaweed as a form of supplemental comics, dramatization, role plays and livelihood failed.It took sometime other audio-visual forms have been used. before economic concrete gains were made in the production of homemade paper Cross visits and field exposures to and burl weaving. successful project sites like the Marine Conservation Project of San Salvador The failure of the seaweed project in Masinloc, Zambales have proven did not prevent the project staff from to be very effective in demonstrating embracing its error and learn from it. theviabilityof comm unity-based coastal resource mangement schemes. Networking and advocacy are two other important elements of capability- CBCRM must seek to identify and building. Networking is the establishment promote opportunities to increase the oflinkages with other groups and social and economic benefits derived agencies working for a comon goal such from the use and management of as coastal -resource management. coastal areas. In Bolinao, the project Advocacy is a mechanism through which aims to provide both "food security" organized groups and communities and "cash security". The former goal institutionalize their goals in policies and aims to make sure that added income laws at various levels, e.g., within the from any new activity isspent on basic organization, and even in higher levels needs while the latter goal aims for a of governance suchas provincial, level of sufficiency that can provide for regional and national bodies. education, health services, transportation,

184 Through the project's efforts at advocacy and networking, CBCRM as a strategy was popularized and accepted in the Lingayen Gulf area through the regional office of the National Economic and Development Authority (NEDA) and theLingayen GulfCoastal Area Management Commission (LGCAMC) The acceptability of the CBCRM concept rtheLngayen Gulf area hasmade thexk easier forthe program staff and management and created a conducive atmosphere. This condudive enviroment will help sustain the project's momentum towards achieving its goal of sustainable management of Bolinao's coastal zone.

References:

Mcmanus, John; NaioIa C.L. Jr.; Reyes, R.B. Jr.; and Kesner, R.N. Resource Ecoloay 1th..Bolinao CoralReef System. International Center for Living Aquatic Resource Management (ICLARM), Makati, 1992.

Uphoff,Norman 1.;Cohen, John M.;and Goldsmith,Arthur A. "Feasiblity and Application of Rural Development Participation: A State of the Art Paper." Ithaca: Rural Development Committee, Center for International Studies. Cornell University. 1979.

185 Testimony

Jetro Caagusan Head Samahan ng Mangingisda at Mamamayan sa Binabalian, Inc.(SAMMABI) Bofinao, Pangasinan

The mmunilybased eoastl resource management (CBCRM) project in Bolinao initiafly focused on the problem of catching aquarium fishes using soditirn cyanide.It is recognized that before the CBGRM projects we were all stone-blind in the sense that we were sightless of the destructive effects of what we were doing.This lack of vision on the part of thepeople may beattributed tothey immediate need for survivaL considering the impoverished situation of the community.

Upon the introduction of CBCRM, educational activities were initiated.A training course on the use of fishnets for aquarium fishing and a seminar on the environmental situation, particularly the coastal environment, were conducted.More than 100 fishers attended these sessions,Just like seedlings sown in the field,some of these fishers symbolically sprouted, some were pecked by the birds, and others, withered and died. Not every fisfier who participated in these educational activities preserving coastal resources voluntarily withdrew from destructive fishing methods.

Our organization, the Samahan ng Mangingisda at Mamamayan sa Binabalian, Inc. or SAMMA1 (Association of Fishers and Citizens of Binabalian, lnc), is trying to monitorthese harmful fishing practices.In fact, we see toit that aquarium fishes pass through the screening process of the Cyanide Detection Center (CDC) to determine whether they are caught using injurious ways or resourcefriendly methods.

Besides giving training on organizational building and leadership seminars for its members SAMMABI is also proposing the establishment of a marine sanctuary in our barangay. Discussions on alternative sources of livelihood are also in progress. We can say that the CBCFM project has been very helpful in facilitating all these actwities initiated by the organization.

A lot of members have learned many things from the project and have been actively involved Many of us have realized that people play a vital role in protecting and saving the environment.

At present, we are one in our principle that we are in the best position to effect change. Our credo is: if we wilt riot take action% who else will?If not now, then when?

186 MARl VIC ABELLO Senior Project Officer, Philippine Business for Social Progress Intramuros, Manila

On Delivery Structure

The case of Bolinao demonstrated what a combination of different fields of expertise and groups can do towards the promotion ofcommunity-basedcoastal resource management. The development of a common framework of action for coastal resource management was also shown in eactions the case presented. The Bolinao study also showed the need for a very strong delivery structure during the organizing phase of the program. The San Salvador study showed that there is a needforstaffcapability-building to ase because of a lag in project implementation when a new staff came in. This is also true in the Batangas study when gaps in project implementation occurred after the proponent organization left the area.

resention Butthisdoes not mean that the implementing organization should stay in the area permanently. Although there is a need for a clear program direction, there is likewise a need to develop a timeframe for the phase-out of the organization. It seems that in San Salvador, phase out was completed after five or six years of organizing. Participation of people's organization is thus essential in planning as shown by the experience of Pagapas Bay.

187 On the Delivery System the barangay level but not at the municipal level. But if we do not have this municipal- The cases showed the importance of level institutionalization,in the long run, developing an information system within the policies may be implemented counter to our organization. The participation of people's resource management agenda. organizations should betapped in the development of this information system. This On the Promotion of basic process operationalizes the participatory Alternative Livelihood Projects approach which provides the take-off point for the organization to determine what their The first thing to be considered here is problems are and what directions they would the appropriateness of the technology. Haribon want to follow. So it validates the principle that presents the criteria for identifying alternative when the people themselves take part in the livelihood: resource base, knowledge and skills- decision-making, they take responsibility for base, transferability, marketability, people's needs the program becausethey feel that the and problems, and environmental soundness. program is theirs, not the implementing agencies' nor the NGOs'. One of the issues when we talk about resource base is: what will you do in a situation Inoperationalizingtheparticipatory where the resource base is depleted (i.e., approach, the formation of a strong leadership overtished, polluted)? Dowe implement resource- structure is also needed. However, there is a based livelihood ventures? Do we focus on the need to identify and train second-line leaders. resources?In an island like San Salvador, it As in the case of San Salvador, Mang Andoy is could be applicable.But in an overpopulated the epitomy of a good leader. But his leadership area, like Islang Puting Bato, it is not applicable. extends to the whole structure of the community: the cooperative, the organization, and the Alternative livelihood should be fitted barangay council. So there may be a need, for also to the knowledge and skills of the fishers. Mang Andoy, to develop second-line leaders to In an area which is overfished, or has no fish encourage the growth of the organization. at all, do we promote the exploitation of the fishing area?It we have to promote that, The promotion of a strong policy base how much capital is needed for fishers to go for CRM is likewise needed. A lot of CRM out to sea? The smallest amount needed is issues revolve around the lack ornon- around P1 .5 million. enforcement of policies which promote coastal resource management. Like in the In the promotion of alternative livehood case of the CRMC of Batangas, there was project, there is also a need for micro- and still no policy base when CERD phased out macro-analysis of the environment. Technology of the area. Thus, the LGU was not able to is not enough. The enterprise plan should sustain the CRM efforts. be based on a thorough study of the environment: the market, economic environment, government Institutionalizing CRM as part of the policy (i.e., GATT), and other factors. Usually, local development agenda is also necessary. the goverment gives services in support of In Masinloc, CRM was institutionalized at the promotion of GAIT products, butnot all

188 fishery products are included, exceptfor prawns. the cases presented. One is the community- Are our communities capable of going into this based organization whose primary functions type of venture? What if we make use of another are resource management and advocacy of resource base, like land, in order to propagate resource management concerns, and promotion this type of venture? Are the municipal waters ofalternative livelihood projects.These large enough to accommodate a large percentage organizations may also act as a unifying of fishers? If it is, is it environmentally sound to force for a mul'ti-sectoral movement which crowd a bay with fishers? promotes CRM. The other structure is the multi-sectoral partnership like the Resource On the issue of risk-sharing in the Management Council, composed of POs, NGOs, promotion of alternative livelihood, who LGUs. The primary function of the council bears the burden of the risk?For example, is to formulate policies that promote CRM. if we extend credit, will the community bear the burden of the risk? Does the proponent From these types of structures, we organization have a policy on how it can can conclude that there is a very strong share the risk?There is a suggestion that synergy between a strong people's organization we should include in the project design, advocating for resource management and within the time frame, a period for technol- doing other support activities, and a strong ogy testing and technology transfer. LGU supportive of efforts to enhance the achievement of the resource management On Resource and Internal Capital Generation agenda. We cannot do away with the LGU support because the Local Government In the three cases, I could not see how Code mandates the LGUs to manage the the generation of internal capital would be municipal waters. implemented. Our experiences show that there really is a need to generate internal On Program Sustainability capital within the organization. What is the time frame for our intervention? Resource generation is one component What isthe time framefor community that should be emphasized. It only shows that organizing? How long does it take to set up the formation of a CBCRM plan is an effective tool a self-reliant people's organization? What for implementing CBCRM. In terms of mechanisms, is thetime frame for technology development in there should also be a clear phase out plan. terms of livelihood sytems, and what is the time frame for actually implementing livelihood On Gender and Development projects? What is the time frame also for resource generation? What is the extent of There is a need to promote gender our intervention? How much intervention issues among fishers. should an interim organization do at the

start of the program? I think this should On Structures to Leave Behind relate also to the phase-out scheme. And again, the development of second-line leaders What structures do we leave behind? is needed. There are clearly two types of structures in

189 EFREN FLORES So that is one grouping.And the Chief, Aquaculture Department other grouping would be the Pagapas Bay Southeast Asian Fisheries CBCRM. You have a non-government Development Center (SEAFDEC) organization (NGO), the local government 110110, Philippines units (LGUs)and the people's organization (P0). Inoticed that where the CBCRM program covers a large area, it is corollary The Bolinao Community-Based that LGUs and local government officials Coastal Resource Management (CBCRM) become involved. It has become characteristic program is not really new to me.It is of CBCRM covering wide areas. similar to that ofSilliman University. It startedas a research project, so there was This is similar to the presentation of involvement of the academe. The researchers CBCRM in the Visayas wherein the Fishery found out that transfer of technology was Sector Program (FSP) came in with local difficult without the participation of a local government units and covered the whole peoples organization. The involvement of area.Another grouping which is not so people's organization graduated the project common is when you have a strong NGO into a CBCRM. and a P0. This is reflected in the presentation of San Salvador CBCRM wherein the NGO The Silliman University had a marine is very strong. Of course, the local government biological station, and another unit within unit came, in but not as the main player. the university helped them out in the social science aspect. They also had an NGO, So I think this will also facilitate the the Ilaw Foundation, which accomplished discussion for the workshop this afternoon the community organizing aspect.In the covering the issue on which is the better case of Bolinao, it is the Haribon Foundation. CBCRM: concentrating on a small area or And there is the people's organization, and working on a big area.It is clear now that here ills KAPPA. with people working in small areas (where you have the academe, the NGO, and the This project would be similar to what P0, or you have a strong NGO and a P0), SEAFDEC is doing in Malalison Island. the LGUs have minor role. And when huge There is the academe, SEAFDEC is there, areasarecovered,there is a strong it has researchers for the marine biological participation of the local government unit. component. We also have our socio- With this, it would then be easier for us to economic sectionthat is now working in evaluate which is the better approach. Malalison. And then we also have a strong NGO, the PROCESS, and we have devel- I will go to another item which can be oped a strong people's organization in the applied to other CBCRM projects. In all the community and that is the FAMI or the presentations, the objective of CBCRM is, Fisherman Association of Malalison Island. first, to rehabilitate, manage, and conserve the natural resources.

190 The Bolinao CBCRM used the words was health services. And then I asked how 'food security" and "cash security".With much the salary of a midwife just to provide proper management of resources you will basic services to the community. And they have food security. And then if you have said about P4,000 a month.There are cash security, this means that you will about 200 families there, so I told them, if haveexcess money later on.What the one family contributes P30 a month for 200 CBCRM presently has not gone into is to families, they would have P6,000. And I tell the people how to use excess money. said that they can have a midwife there This came into mind because historically supported by the whole community. Because when we interview fishermen, they would P30 a month is P1 a day which is just more say, "In the fifties, in the sixties, we caught than a cost of one stick of Philip Morris. a lot. You just go down there, you just drop down your net and you have so much fish." So I think we should also go into that: self-sufficiency not only in food but also in It tells us that they had earned more other activities in the municipality.I told the then. But if you look at their way of life or Apo Island residents that they are a very quality of life, it does not reflect this fact. small island and it would be very hard, even They use the gun powder from the sunken for the national or provincial government to vessels (the Japanese-Filipino vessels during dispatch a midwife to their island to provide the second World War) for dynamite fishing. health services. And I said they really have Dynamite fishing is very indigenous. They to do it themselves.They are protecting were catching so many fish so they should their environment because the government have increased income then. But it seems cannot protect it for them, so I said, why not that they were not able to properly utilize extend it to the other activities in the community? their income to improfe the quality of their And this is where the excess cash can be lives. used.

In my hometown, an ethnic Chinese I am glad that the Bolinao CBCRM started a business selling opium.It was, mentioned education of the children.I think and still is, illegal.But now he has a big this is where excess cash can easily be enterprise, he is now into general marketing channeled, too, to secure the future generations and has the newest building in my hometown. of the community.Unlike in the sixties, The cash he earned from selling opium families then would welcome having more went into legal business. Perhaps we children because they have enough land to should have learned from this illegal example. till, enough waterto drink. But that is not the situation at present.This must be made clear to them because there is very little I think everybody is familiar with Apo migration from small fishing communities. Island.Their CBCRM is very successful. There will be more fishing pressures as the

People go there for site visits. I also went population increases. So this is one venue there.I saw that they have food security wherein you can teachthe fishers how to and cash security. But then I asked them, use excess money, education "What is your problem now?" They saidit

191 Finally,I would like to touch on the WIWE QUIZON uniqueness of MSI-Bolinao CBCRM. MSI Consultant, Lingayen Gulf Coastal Area is permanently, I hope, stationed here, and Management Commission (LGCAMC) permanently intending to extend assistance Lingayen, Pan gasinan tothe local community. That is why proponents are able to come out with a 29-page report, because they are continuously thinking of new project activities, due to the fact that My reaction is more of posing questions. they are permanently stationed here.Unlike What would be the future of the livelihood the others,such as Siliman University, the programs? of the community development researchers have left the project sites. They program? how are the plans going to be just go to the island for monitoring or additional implemented? How will we handle the inputs in terms of technology. SEAFDEC, establishment of a port here, which I think for one, is slowly phasing out of the Ramos is pushing for? What will happen if Malalison project. an industrial city is set up here? What will be the end result of this festival-workshop? I believe that MSI has to decide whether it intends to go on working with the We have to address these because local POs, and if not, it has to decide when the President isaggressively pursuing to phase out. Ifit does stay permanently, Philippines2000. I know thatthe other CBCRM implementors may not want Philippines, which was once a sick country, to use the Bolinao project as a model. In figuratively, is in the processof CBCRM, all the players except the POs are recovering.Industrialization, especially in transient. On one day or another, we have this vicinity, is being talked about.I think to pull out and leave the POs to manage thatthe questions I posed sum up the their affairs. That is people empowerment. challenge before us: how we will use the studies presented to address these issues. Those are the main reactions I would like to share, and I hope I have given some additional things for the organizers to work on. Thank you very much.

192 SYNTHESIS vyyyyyyyyvvyyvyyyyvvyv * Community participation is crucial to CBCRM.

Synthesis The need to involve the community in resoutce management is clearly illustrated in all case studies. The case of the Baliangao Wetland Park (BWP) provides a good example. GARY F. NEWKIRK, Professor In the early establishment of the sanctuary, Daihousie University PIPULI Foundation opted to put community Nova Scotia, Canada organizing as a "secondary" approach. In a year's time, a municipal resolution was REBECCA A. RIVERA, Deputy Executive Director passed declaring a 150-hectare sanctuary Tambuyog Development Center in barangay Misom. However, putting up the Quezon. City, Philippines sanctuary, as reported by PIPULI, was no guarantee that the people understood its significance and, indeed, there was not much community support. PIPULI Foundation reports that "it is very hard to organize the people around an abstract idea of CRM or a Community Based Coastal Resource sanctuary."Hence, the approach was to Management (CBCRM) has become a hot initially work towards the physical set-up of the topic among policy makers, development sanctuary. Organizing and education became a workers, and academicians for the last 10 "bigger' component of the program at a later stage. years. CBCRM has been used to suggest a The Baliangao experience shows that onlywhen number of meanings, layers and dimensions community organizing was considered of pnmary but the common denominator is placing a importance that communities understood, premium on communities and the central accepted and respected the concepts and roles they play in resource management. implementation of the marine sanctuary. The value and wisdom of CBCRM lies in its recognition that communities, by whatever It has been demonstrated that communities, definition we use, are potentially the best as direct resource users, are involved in the resource managers since they have the biggest daily management of natural resources. In stake in the sustainabilily of natural resources. the Fishers of Talangban case study, it was shown that women plan and allocate re- The case studies presented at the sources, transact credit and train young Festival-Workshop on Community-Based people in conserving and recycling resources. Coastal Resources Management show the They are, in a raw and basic sense, resource complexities of the problems and issues managers. In other case studies,it was found in the coastal zone. The following is a through local community commment to resource listingof themes and trends in CBCRM management that new interventions worked presented in the case studies during the as seen in San Salvador and Baliangao. Thus, Festival-Workshop. local level participation and grassroots inftiatives are key elements in any CBCRM effort.

195 * CBCRM is holistic and integrated. hate" relationship with the LGU in Barili. All of these situations emphasize the importance of CBCRM is an integrated approach to building relationships between government and area development. It is holistic in the sense communities. CERD calls this the tri-sectoral that it responds to resolving conflicts over approach. In recent years this has been multiple resource use. CBCRM attempts to called co-management which is essentially integrate the socio-political and the economic a partnership where government and community aspects with the bio-physical elements. Its share authority. integration is clearly reflected in the various program components mentioned in the case Two things can be emphasized as studies including: research, organizing, regards co-management vis-a-vis the roles training, advocacy, and socio-economic or communities play in resource management. enterprise development.Additionally, gender First, it is maintained that co-management perspectives are also being slowly integrated. has a better chance of "success" in the In the case of Bolinao, socialscience Philippines because of the passage of the researchers team up with marine biologists Local Government Code (LGC). As shown to come up with comprehensive research in in the case studies and in many other the communities. The UP-CSWCD reports experiences of NGOs in the Philippines, the that there was a need for the research team LGC is a powerful tool for communities to: a) toarrive at a "mutual understanding of participatein local governance; b) promote disciplinary approaches to resources and local accountability; and c) be involved in communities." In addition, both the Bolinao the local development process. The CERD and Barilicasestudies emphasize the experience provides some insights on this formation and strengthening of partnerships aspect, yet, it would be a mistake to consider between the researchers and the community. the LGC as the only instrument to effect Finally, as an integrated approach, CBCRM development. It would also be naive to emphasizes the fact that environmental assume that government is more than willing to problems have both social and technological "share authority" in a smooth fashion. In components. some cases, in fact, government would not be willing to share power. * Local communities work in partnership with government. As in many partnerships, the issue of co-management will always be an issue of Allthecase studies explored the power. The case studies illustrate some of relationships NGOs and other local implementors the difficulties of the evolving partnership have with government. In the case of andpowerrelationship needed for co- Cogtong, Panguil and San Pedro Bays, the management. NGOs become involved to local government unit (LGU) and various facilitate the development of the partnership but government line agencies (GLAs) play key theyaresometimesatthe mercy of roles in program implementation and in government, for example in the FSP, for Baliangao, the LGU was supportive of the funding. The NGOs are weak partners in the idea of setting up a marine sanctuary. In "tri-sectoral approach" and their job is to contrast, Tambuyog appears to have a "love- strengthen an even weaker partner, and

196 people's organizations (POs). The complexity with respect to resource management. At best, of the local social political situations put the they became more powerful in their influence on POs at a disadvantage in implementing the local government. It is understood that this will LGC and only time will tell what is needed to oftenbe a slow process of empowering establish sustainable co-management systems. community organizations and the progress shown in some of the case studies of building Secondly, co-management proceeds confidence and capability in POs will lead to with the assumption that despite the advantages their ability to assume more powerful roles of CBCRM, it is unlikely for communities to in resource management. successfully implement fisheries management on their own. One dangerous consequence * Will CBCRM be institutionalized? of statements like this is that they can lead to giving lessimportance to grassroots An issue which was not directly addressed initiativesandautonomouslocal level in the case studies is the institutionalization management. Peoples' initiatives have been of CBCRM, either within co-management or elaborately discussed in the various case in other forms. However, it may be too early studies. A better premise for co-management is to identity the means to prescribe the role of that communities need to Unk with external communityorganizations in resource systemsandgroups precisely because management. Alternatives being tried must community systems are intrinsically linked be evaluated and the context of each situation and connected to larger systems. As James analyzed. In many of the case studies, success Acheson puts it: "even traditional societies was dependent on carefully orchestrated are systems within systems" (Acheson, or, at times, fortuitous good relations with 1989). local political figures. The danger of dependence on particular individuals is the potential Unlike land-based ecosystems, marine replacement of such individuals at election ecosystems are open and have no demarcation time. In some cases, like San Salvador, to separate one area from another. Consequently, conflictswere reso'ved within the local resource use by people flows from one place community resulting in little political upheaval at to another and efforts to control resource the municipal level. If CBCRM is to become utilization entail difficulties of conflict and institutionalized, it mustmaintain the political negotiation for rights. An idealistic adaptive character which the early trials view of a community being able to effectively have demonstrated to meet changes to the managemarine resourceswithoutthe social andpolitical environment. legitimization of local and regional governments is ill placed in most places. The question is * The outside agent playsa role in the degree of control. capacity building.

Co-management should involve the In all case studies the task of capacity sharing of power with the community of building has been taken by NGOs, government users and stakeholders. In the case studies organizations and other external development presented there was limited direct involvement agencieswhich facilitate community of peoples' organizations in decisionmaking developmentand, thus, 9ntervene" with

197 their projects. We may have different names The timing and role of the NGO in the for our programs - CERD has FIRMED, process of intervention can be crucial in Tambuyog has SCAD, FSP has fts own approach, determining the success of the effort. As a as do others. However, it appears that we all partner in the process, the NGO must have work within the framework of capacity building, a share in the planning and the initiation of but there is a need to clearly define what we the intervention. Though there are only a mean by capacity building. What capabilities do few case studies presented here, it is clear we want to enhance? How are we going to that in the case of the FSP program the do it? What is our time frame? There is merit NGOs were brought in late in the process in the reaction of Roger Ricafort of Helvetas and were a weak partner in the team. Their whenhewroteabout the principle of impact on community organization and the "obsolescence". For it is only when communities promotionof communitiesin resource cease to need the outsiders that we can management were thereby reduced. claim to have builtor enhanced their capabilities and the job of the external agent * Education is crucial in CBCRM. has been accomplished. As Albert Dizon of Haribon said: "We should be prepared to The fashionable thing these days is to kiss our program goodbye." be involved in "knowledge-based" activities. Certainly, CBCRM is a knowledge based This need for obsolescence has been endeavor.Virtually all the case studies recognized in the local communities where identified education as essential in successful external agents have worked. However, implementation of CBCRM but in the time when one considers the number of coastal available it has not been possible to provide communities in the Philippines and the cost details of the educational activities in the of even the mostlimited intervention of CBCRM projects. external agents, itis clear thatitwill be impossible to provide externally funded and The case studies illustrate the important staffed projects for all communities. In short, role of NGOs in developing awareness and we have to question the sustainability of the providing education on the alternatives to current model of promoting CBCRM. There current practices which are not sustainable. is a need to identify ways in which PO-to-PO Most resource users already know that their activities will be the driving force in spreading over-exploitation of natural resources is successful CBCRM approaches. There are leading to continual decline of productivity. some indications of (sea)grassroot spread What they usually find difficult is understanding of ideas in Bolinao. In their community work, how to change their practices to restore the Tambuyog adopts the formation of a group resource without leading to unacceptable of local volunteer organizers (LVOs), who economiàhardship in the process. A play an active role in program implementation. number of the case studies showed how The LVOs participate in more intensive training environmentaleducationwas useful in and educational activities and work closely building consensus on the nature of problems with the program organizers. The development which led to consensus on the necessity for of the LVOs is Tambuyog's core strategy for change. sustaining program initiatives.

198 The approach to environmental education often perceived as "man's work" and the in CBCRM projects has included not only knowledge of women is ignored. However, outsiders providing information about ecology fishing is an integral part ot the more impor- and the adverse effects of some polluting or tant concern for sustainable livelihoods in habitat-destroying activities, but includes coastal communities. It would have been organizinglocalknowledge of ecology, interesting to see more explicit discussion resources andresource utilization. By of how the NGOs incorporated women's respecting local people'sknowledge, the knowledge in their CBCRM work. outsider is helping them find ways of applying suchknowledgeto better management As CBCRM becomes more sophisticated, practices. it is important to be cautions in approaching knowledge generation and utilization. However, little has been said in the CBCRM is not simply about environmental case studies specifically about indigenous protection and biodiversity preservation. Nor or traditional knowledge. This may be due in isit simply a mechanismfor economic part to the complexities of the coastal com- empowerment or an alternative development munities in the Philippines. Migration of strategy. It is these things and much more. coastal people has been common and was As a knowledge-based activity, CBCRM is a cited specifically in the Baliangao and San means for increasing knowledge and utilization Salvador case studies. With many communities of that knowledge to improve the human having expanded through migration within condition.As such itis important to be the last generation, the "traditional" knowledge concerned about what, and whose, knowledge of local conditions may have been overwhelmed is valued. by people with different traditions. Changing fishing methods and economic forces promoting * Demonstration of impact is essential. new species may also have contributed to shifts in fishing practices. Accomplishing concrete gains in a project is the most effective mechanism to Only the case study on the fishers of convince people about the relevance ot Talangban focused specifically on women's CRM. It is only when people believe in, and roles, although even in this case study there are able to practice CAM, that it will spread. was little said about the incorporation of This has been clearly illustrated in the case women's knowledge, perhaps because the studies of Baliangao and San Pedro Bay. focus was on the introduction of a non- traditional technology. However, in most Two key tools used by several of the cases, women's knowledge would be crucial as projects are artificial reefs (ARs) and sanctuaries. women are usually the ones responsible for The case studies presented here have not marketing the catch and preparing the used AR5 very much (except CERD) but tamilyls food. CBCRM requires information others have (Malalison project by SEAFDEC, about motivations and, thus, markets and CVRP). The effectiveness of AR5 toenhance uses of the resources, as well as the ecological fish production has been questioned by some and technical knowledge of fishing. As has scientists but they can serve as a useful been emphasized many times, "fishing" is entry point for CBCRM because they act as

199 "monuments" or markers that can be used to livelihood would include other aspects of identify a sanctuary as done by SEAFDEC day-to-daylifewhich gobeyond the (Agbayani and Siar, 1994). economically accountable activities.

Marine sanctuaries, or protected areas, Livelihoodisa means to provide have proven to be extremely important tools sustenance, shelter, health and satisfaction, in resource rehabilitation. In spite of the but the activities are all carried out in socially problems in maintaining continuity at some legitimized ways. In short, livelihood is not sites(Sumilon) sanctuaries have proven independent of culture. The discussions effective in enhancing fish production, not have been about economic activities but only in the sanctuary itself, but in surrounding mostly male and market-oented or environmental in areas (White and Russ). Another advantage the context of a "resource". Little mention is that they are usually equitable in that all has been made of people's perceptions of users are excluded from the sanctuary and resources or the activities, or of values and most, if not all, community members can humanrelationships. At the start of the benefit by the spillover fish production in workshop, we were reminded by Prof. Elmer surrounding areas. Ferrer that not only nature, but also culture, has been degraded. We could interpret this During the workshop discussions we asa result of the essential and mutual were reminded that although sanctuaries interdependence of nature and culture. work and are important, there is still a much larger areaoutsidethe sanctuaries.If In the case studies and other CBCRM "business as usual" continues in the surrounding projects, it always seems that the provision areas,thefull benefits of careful and of alternative source of livelihood is the controlled resource management will never responsibility of the outside agent. Artificial be achieved. The next step is to control reefs and sanctuaries are two examples. extraction in the surrounding areas to wisely One must be concerned with the question of conserve the resources and the habitat. The who really makes the choice. In a number of training of aquarium fishers to use nets instead cases, it was apparently the P0 that "decided" of cyanide is an excellent example of what is to establish a sanctuary, but the outcome needed (San Salvador case study). was likely predetermined by the exposure trips and educational efforts of the outsider. * CBCRM should improvelivelihoods. This involvement of the outsider is indeed positive but we look forward to the evolution "Livelihood" is a very popular term ofmethodswhichwillpromote more and has been used frequently in planning participation of community groups in the CBCRM projects. The application is often development of innovative means to solve with the objective of introducing "alternative local problems. sources of livelihood" which will allow people to withdraw from the local fishery and, thus, The reason why alternative sources reduce fishing pressure. Such uses of the of livelihood are needed seems to be based word "livelihood"emphasize people's economic on the premise that the sea's resources are activities, but a broader consideration of limited, It is indubitable that there are limits

200 but further studies need to consider what the problems of coastal communities. Thus, these limits are, rather than assume that livelihood options as means of providing food current production levels indicate the limit. and income are needed but they need not be During the workshop Efren Flores reminded "alternatives" but enhancement of the already us of times when fish catch in the Philippines complex economic lives of coastal communities. producedvery large excesses. Did this excess production indicate the result of "mining" * CBCRM needsa clear and the fish stocks in unsustainable ways? Or conducive policy environment. wasthe sea intrinsically so much more productive during the time when the bio-physical The confusion and conflicts over policy environment had not been heavily damaged interpretation and implementation is clearly by pollution, destructive fishing practices demonstrated in the Cotong Bay case. This and overf ishing of particular species? It may is further exemplified by the conflict between be that the changes in the environment have the Local Government Code of 1991 (LGC) undercut the potential productivity of many and P.D.704, which is still in effect. CERD fishing grounds. Over-fishing of selected reports that they still had to push for the species may shift the ecology and move passage of an ordinance even if the LGC productivity away from desirable species. If provides that municipal waters cover up to questions of access and conflict can be 15 kms from the shore. resolved and we can stabilize and enhance livelihood in coastal communities, it may be At the national level, the Non-Government possible to increase the potential of local Organization Technical Writing Group (NGO habitats to provide food. TWG) for Fisheries Reform and Advocacy is spearheading advocacy efforts to adopt a clear The reliance on providing alternative and comprehensive fisheries law which will sources of livelihood as a means of drawning spur the adoption of policy initiatives directed at people away from fishing may just be an addressing the open access problems in illusion.It could provide a useful partial fisheries. solution to the problem of community residents, but other fishers may move into the fishery. * Power against poverty. It appears that many coastal communities in the case studies are made up of migrant Finally, two factors should be stressed, families who arrived a generation ago. Access which have been both explicitly and implicitly will have to be controlled and, in a broader stated in the case studies: 1) the highly perspective, ways are needed to reduce the unequal distribution of power and power pressure on others to undertake such economic relations; and 2) poverty. CBCRM, at its migrations. core, should not merely be oriented towards resource protection and rehabilitation. CB-CRM On the other hand,ifthe focus is should address equity issues between and exclusively on the fishery, other aspects of among classes and genders. Two approaches people's lives may be ignored. Most people to better local management of coastal resources depend on a multiplicity of income and food have developed in parallel. CBCRM has its sources, which must be considered in solving starting point in local POs while co-management

201 appears, in many places, to be top-down. References: The model for institutionalizing CBCRM may end up as a combination of the two with Acheson, J. Management j Common-Property variations depending on the local socio- Resources, in "Economic Anthropology." Stanford University Press,California, political situation. One concern is the sharing of 1989. Edited by S. Plattmer. power and the distribution of the benefits among the traditional holders of economic Agbayani, R. F.and Siar, A. V. Problems and political power, and the poor. Encountered La the. Implementation of a Community-Based FisheryResource CBCRM must continue to work towards Management Project,in"Community the reduction, if not the eradication, of poverLy. Management and Common Property of The approach demonstrated by the case Coastal Fisheries in Asia and the Pacific: studies is that of empowering the poor Concepts, Methods and Experiences." through formation of organizations. The difficult ICLARM Conference Proceedings45. Edited by R.S. Pomeroy, Manila: ICLARM, partis having those POs accepted and legitimized by the broader society which 1994. perceives these organizations as threats to traditional attitudes of gender and class and, thus, established power.

The way forward is indicated in the slogan for the Festival-Workshop: "The seeds of our hope are nurtured by our past." This speaks of the past and the future, but wemust rememberthatthose seeds are presently in our hands. Our generation must ensurethatwe have the right tools to cultivate those seeds, to protect the culture, embedded in our past, which nourishes the seeds and to allow the seeds to be shared by all and to grow in an evolving culture. We may not yet have all the tools but we are learning and making progress in transforming attitudes. In the Philippines, CBCRM as a process implemented by NGOs is part of thetransformation of communities. Each initiative has very local meaning and impact but collectively will lead to sustainable livelihood immersed in an enriched cultural and bio- physical environment.

202 APPENDICES vyyyvyyyvyyyyyyyyyyyyyyyv WELCOME SPEECH*

GEN. VALERIO PEREZ (Ret.) Executive Director, Lingayen Gulf Coastal Area Management Commission (LGCAMC) Lingayen, Pan gasinan

In behalf of the Lingayen Gulf Coastal Area Management Commission (LGCAMC), we would like to join the UP-CS WCD and the NGO-TWG and the people of Bolinao in extending our welcome to our guests and participants. You came at a time when the LGCAMC and Bolinao are virtually in the center of a storm, probably as strong as typhoon Rosing or even stronger.I refer to the ongoing controversy on what to do with the gulf and with the resources of the coastal area. So we are happy that you are here because your expertise, your advise will be very helpful to the decision-makers LGCAMC and eventually of the President.

We are aware that, during your trip here, papers will come in that are perhaps critical of what we have been doing or possibly supportive of some of our actions.I would like you to know that three years ago, the President himself said that the Lingayen Gult is now a critical environment and therefore must be protected, conserved, and developed in a rational way. To give meaning to what he said, we created the LGCAMC and our excuse for being is precisely to protect, conserve, develop, and manage the resources of the gulf.

We are happy that you have organized this festival-workshop on community- based coastal resources management.I brought with me some of my staff and they will be with you for the next three days. With the permission of the organizers, they will gather information and disseminate it to the people of Lingayen Gulf. And so let me share again, this is an opportunity that will be very beneficial to the LGCAMC, to the administration of Bolinao and La Union and more particularly to the staff of the Commission.

We hope that during your stay in this part of our province, you will enjoy and appreciate the beauty that nature has given us, and possibly find time to see other places in other prcMnces that are worth appreciating. This is precisely why we are here: we would like to preserve this beautiful gift of nature, so that it will not only be this generation who will enjoy this gift of nature but also the next generation to come. We do not want to be condemned and cursed by the next generation.

We look upon UP-CSWCD and NGO-TWG and your group to help us in evaluating the programs and the measures we have been adopting. In fact, at this point, I am happy to announce that in the last regular meeting of the Commission, it was decided unanimously that U.P. will be our basic resource and consuftant-institution in helping us fdrmulate principal decisions. So we hope that we will get the cooperation and support from U.P. Thank you very much and welcome again.

* Speech delivered during the Opening Program of the Festival-Workshopon Community- Based Coastal Resources Management held last November 16-18, 1995 in Bolinao, Pan gasinan. 205 OPENING REMARKS*

JOCELYN T. CARAGAY Faculty Member, College of Social Work and Community Development UP. Diliman, Quezon City

Warm greetings from the Dean of the CSWCD!

For this grand celebration, Dean Pangalangan extends her deepest congratulations to the workshop organizers, the workshop participants, our special guests, and the case writers/presentors who have labored it through the casewriting workshops last summer.Grateful appreciation is also extended to our partners in the program especially our hosts in Bolinao, the Barangay Council, our local government officials, NGOs, and private citizens for their untiring participation and support in coastal resource management endeavors. She regrets that she could not come personally as this day coincides with her departure for another conference.

In line with the CSWCD's vision of a just and humane society, the College shares the spirit and objectives of the festival towards an effective sharing of insights, lessons, and experiences in coastal resource management that can be translated into meaningful action by planners, policy makers, advocates, fishers, and concerned citizens.It is our fervent wish that while new areas for collaboration are explored, current collaborative ties are likewise strengthened by these activities.

We know for one that the Marine Science Institute (MSl), College of Social Work and Community Development (CSWCD), and Haribon Foundation for the Conservation of Natural Resources, Inc. have embarked on a community-based coastal resource management program. At the moment, the MSI and CSWCD are also exploring a joint curricular offering on coastal resource management.

The success of this festival lies in all of us and the greater challenges lie in viewing this conference as a learning experience with an open mind, body, heart, and soul where insights and resolutions are sincerely, patiently, and effectively translated into meaningful action.

There is no doubt that the concerns of coastal resource management is for all of us to confront. As it has been said, coastal environments are the primary habitat of human species and estimates show that about 50% to 75% of human population live along coastlines.As we may also know, the current pressure on coastal resources is still milder than what we would expect by year 2,050.And, as I remember, participatory development conferences in the late '80s and early '90s used to point out that where resources are depleted, there is nothing around which to organize

206 As we already know, the multidimensional nature of issues confronting coastal resource management calls for an integrated action from various sectors, making this meeting very timely and relevant. Each one needs every one here and probably even more. Fieldworkers, practitioners, researchers, academicians, planners, policy markers, and concerned people themselves have their stake and roles in addressing coastal resource management issues.

Our attempt for the moment is to draw lessons and insights, theorize and conceptualize from existing literature and from actual experiences that will be shared in the case presentations covering initiatives and programs in Luzon, Visayas, and Mindanao. This is a very significant move, as "learning through experience" remains an effective strategy.It is also surprising that little or not enough is known or written about actual experiences, theories, conceptualizations, and syntheses, despite over two decades of coastal resource management efforts in the Philippines.

As a word of caution, however, I would like to highlight that experience alone is no indicator that we have learned, especially when we continue to make mistakes. Just as we are doing now, we must work closely with one another to facilitate learning from experience, help others learn from experience, and pursue means of drawing lessons from a growing body of knowledge and experiences.

I am optimistic that the case presentations are going to draw us to the sites, get to the real problems, and make direct applications easier.Approaches, conceptualizations, philosophies will be formulated or learned. But what is important is: HOW TO MAKE THINGS WORK.

This is the challenge for all of us! For instance, it the future means changes in our coastal resources and environment, population, technology, or societyIs way of life, are we ready and are we willing to change and facilitate change as part of an operating environment?Morever, how prepared and how convinced are we for people-centered, community-based coastal resource management endeavors, enough to forge the festival theme: Uphold Communities Rights to Manage their Maritime Heritage.

Again, in behalf of the Dean of CSWCD, my best wishes for a fruitful and productive conference.

*pre pared and delivered by Prof. Jocelyn T. Cara gay inbehalf of Dean Evelina A. Parigalangan for the opening program of the Festival-Workshop on Community-Based Coastal Resouces Management held on November 16-18, 1995 in Bolinao, Pangasinan.

207 KEYNOTE ADDRESS*

OSCAR M. ORBOS Governor, Pangasinan

A good morning to everyone.

I am honored to be here and be part of this festival-workhop on coastal resource management. Let me welcome you to Bolinao.I myself grew up here, in a sense, and I would be in much light to see that it remains as it was before. I guess the message we have this morning is that nature, being a gift of God to his people, must be preserved for our own sake and for that of the future generations.

Let me just mention a good message Dr. Yap has sent to my office about a month ago.I was telling her at that time that perhaps there is only a small degree of faith in government as many of you may still have.I am a government official but sometimes Ilose faith in government myself.It is a bigger problem than anything

else, in many cases.I said,maybe we are in for a surprise, we might come out with a winning decision.I believe that this cement plant, this facility, should never be our neighbor here at the institute.

I talked to Dr. Helen Yap about my discussions with the President. In fairness, he said that he was going to respect my own position and decision since he knew I was against it from the start. He did for there was no pressure on me to change my opinion.I felt that the people's decision on the matter will ultimately be the most important but at that time we had to consider that there was going to be a process in government that would actual'y resolve the issue independently of other deciding factors.

I also informed Dr. Yap of my discussion with Secretary Vic Ramos of the Department of Environment and Natural Resources on the matter.I believed that the issue should not be resolved in an emotional way but in a very real and truthful way, which is to say no. He said, "You know me, partner, and I am going to come out with something, considering what you pointed out."

Earlier, I discussed this issue with former Secretary Factoran.I told him the issues and problems that I saw and he said these will be reflected in his recommen- dations on the study.This morning, my pess officer told me that my office just received a fax message from the office of Secretary Ramos, upholding the denial of the Environmental Management Bureau of the issuance of the required certificate for the facility to be established here.

208 Maybe there is a message tor all of us here. First, there is no greater force or authority in a nation than the authority of the people themselves.It you look at all the arguments my dear friends, this is not the short circuit, the whole process. Second, the whole process is not all right. But the people, in a sense, have spoken. They want to preserve their place. They want this gitt to remain as gift to them and to the people of future generations. And government must actually recognize it. As man can be greedy, he can also be good. And sometimes in promoting causes that are somewhat adversarial to the interest of other sectors, we tend to forget in many ways that even on the other side of the fence, there can be some glimmer of hope and of good that in the end would bring us together.I hope I am right.

Insofar as the provincial government and the people of Bolinao, of which I consider myself a part, are concerned,I think the lessonsare very clear.If we talk about our stakeholdings in the future, andthe sustainability of the resources to continue to nurture all of us and the future generations is to be assured, decisions cannot be made on the basis of what is right from my side but on the basis of what is right for all.I am happy that the Institute was established here fifteen years ago; maybe it was destined to be, because at some point fifteen years hence, there was going to be some proposal that would endanger the gulf, and the Institute had to play its role as a vanguard to preserve what we have here in Bolinao.

The stakes here are much really higher than what many of us think. And this I have seen with my own eyes. I have relatives all the way to La Union. I grew up in this place. It is probably only in this place that we have certain kinds of fishes, certain kinds of marine life and corals which I cannot find on the other side of the gulf. Which means that we have something here that many other places do not have. As I understand it from Dr. Yap and from my own sister who, as a biology student years back at the Universy, used to explain itto me, it is only in this place, my dearfriends, that we have still a live coral reef ecosystem.

In fact, I looked at the whole map. This is the most northern part, I think, that we still haVe at this time. I am happy that I was ordered to come here at six o'clock in the morning.I was able to see the baby clams project and the coral regeneration project. This means that, indeed, man can destroy and he does; he can be abusive but he can, intact, also be a builder. And this is the reason whyl think we all are he, for this confe,nce, the Festival-Workshop on community- based coastal resource management.

I think the number one lesson here is that government must not be an adversary. Sometimes people in government make themselves the adversary and the enemy. And I suppose this is the way we are going to do it. Because in the end, my deartriends, the cynic will always come out and say that the biggest problem in this country really is government. So it is now up to us, the people, to remind government officials every now and then that they are supposed to be there as friends, not as adversaries, but as servants of the people.

209 There are many things we have to do here in Pangasinan. A lot of work remains to be done. And I was just saying that this is my fourth month in office. We have started a lot of things. But one of the first things I said when I took over is let us just do the doables. My term is this:I cannot hope to bring heaven here, but at least I can lay the building blocks of the foundation that will allow us some sustainability in our efforts to develop.I said I cannot promise you the moon and the stars and that everything will be done. Development and progress will come, but it we cannot address what is illegal, then I don't think we have any business saying anything else.

So I said, let us have a doable program on illegal and dynamite fishing. Because we can have all the plans, we can have all the studies, I can come everyday and talk to you and agree with you on everthing you say. But if we cannot even address what is illegal (and that is actually destroying our environment), then I guess we are not capable of doing anything else. So we have done this and above this way, I think we have put our best toot forward in this work. It is more difficult to sustain it, but we are ready to do that and we are now in our second phase which is to address the program of those who are engaged in this kind of activity.

As we always say, instituting alternative sources of livelihood is as much a part of the effort to stop illegal fishing as are apprehension and arrest of illegal fishers. But that is easier said than done. Sometimes government comes in, the government teaches. To me, I have always taken the opposite approach. There is much to be learned from the people, believe me. Sometimes itis really government which should learn from the people. I suppose we have not yet succeeded one hundred percent. There are still incidents of illegal fishing. But compared to what we had before, I guess we have made a lot of headway and improved the whole situation.

My dear friends, it is sad that you are trying to regenerate the corals while they practice blast fishing at the same time. You are planting clams, and they just blow it up the next moment. Everything that we are doing will be useless if government does not do s share.

Let me just give you a very good example.It is difficult to police the whole place. And it is more difficult to come up with an educational program that will educate and inform our people on what they have as a gift and convince them not to destroy it. We have found a remedy that has worked so far, which is to keep them in the market. That is why those who are trading by truckload end up with fish that are spoiled because of thrice being sold and resold in the market.It has worked better than chasing people, because we have no more illegal fishers to chase - they often escape before the authorities can apprehend them. The most important of all is that we have gone around this; we have shown that will and determination really get the upper hand.

210 There must be an alternative, and this is what the people in the Marine Science Institute have stood for for a long time.Insofar as development is concerned, as to that proposed facility, there is in fact a better alternative to the kind of development proposed by them and to be pursued by the people of this town and by the province.

I hope thatI have sent my message across.The instruction to me this morning was to come early at six o'clock so that I could see the baby clams being grown and the corals being regenerated.I can tell you that it made my day.I really should visit the Institute more often, if only for the fact that you can plant clams and regenerate corals, which I saw with my own eyes. I am very happy that we can make Lingayen Gulf alive again.

Thank you and good morning.

*Keynote speech delivered during the Opening Program of the Festival-Workshop on Community-Based Coastal Resources Management held on November 16-18, 1995 in Bolinao, Pan gasinan.

211 LIST OF PARTICIPANTS

to the

FESTIVAL-WORKSHOP ON COMMUNITY-BASED COASTAL RESOURCES MANAGEMENT Bolinao, Marine Laboratory U.P. MSI, Bolinao, Pangasinan November 1618, 1995

Organized by the

Community-Based Coastal Resources Management (CBCRM) Resource Center College of Social Work and Community Development University of the Philippines, Diliman, Quezon City

and

NGOTechnicaI Working Group (NGO TWG) on Fisheries Reform and Advocacy Quezon City, Philippines

In collaboration with

Marine Science Institute (MSI) University of the Philippines, Diliman, Quezon City

212 NAME ORGANIZATION ADDRESS/TEL/FAX NO.

ABESAMIS, Vinia Volunteer Service Unit 1, 53, 14th Street Organization (VSO) New Manila, Quezon City Tel. No. 722-60-33 Fax No. 721 -64-36

ABELLO, Marivic Philippine Business 3rd Floor, PSTC Building for Social Progress Magallanes cor. Real Streets (PBSP) Intramuros, Manila Tel. No. 527-77-41

AGRIPA, Fernando Institute of Social Ateneo Campus Order (ISO) Loyola Heights, Quezon City Tel. Nos. 924-47-51 924-45-17 Fax No. (632) 924-43-69

AGUDOLO, IgloriosoPIPULI Foundation, Inc. Barangay Misom, Baliangao Misamis Occidental 7211

ALABADO, Roberto UP College of Social University of the Philippines Work and Community Diliman, Quezon City Development Tel. No. 929-24-77 Fax No. 929-84-38

BALDESCO, Elmer Leyte Samar Rural 17-A Kalipayan Road Development Workers Sagkahan, Tacloban City Association, Inc. Tel. No. 321 -29-47

BALLESTEROS, Junie - do - - do -

BANGI, Helen GraceBolinao Community-Based Bolinao Marine Laboratory Coastal Resources U.P. Marine Science Institute Management Project Guiguiwanen, Bolinao Pangasinan

BOJOS, Rafael Jr. The Network Foundation, Binamira and Sons Building Inc. (TNFI) Gorordo Avenue, Cebu City Tel. No. 231-51-51

213 BOOTH, Bette United States Agency for Tel. No. 522-44-11 International Development (USAID)

BORILLO, Rafaela Bolinao Community-Based Bolinao Marine Laboratory Coastal Resources U.P. Marine Science Institute Management Project Guiguiwanen, Bolinao Pangasinan

BROWN, Geoff Volunteer Service Unit 1, 53, 14th Street Organization (VSO) New Manila, Quezon City Tel. No. 722-60-33 Fax No. 721 -64-36

B RZESKI, Veronika International Development Hue University of Agriculture Research Center/VISED and Forestry, Phurig Gung Hue City, Vietnam

BUSTEED, Gary Lingayen Gulf Coastal LGCAMC, Lingayen Area Management Pangasinan Commission (LGCAMC) Tel. No. (075) 542-65-47

CABRERA, Ricardo The Network Foundation, Binamira and Sons Building Inc. (TNFI) Gorordo Avenue, Cebu City Tel. No. 231-51-51

CADAVOS, Ian Bolinao Community-Based Bolinao Marine Laboratory Coastal Resources U.P. Marine Science Institute Management Project Guiguiwanen, Lingayeri Pan gasinan

CARAGAY, Jocelyn College of Social Work University of the Philippines and Community Diliman, Quezon City Development (CSWCD) Tel. No. 929-24-77 Fax No. 929-84-38

CEPE, Marilyn BATAS/NGO Technical Tel. No. 98-75-38 Working Group (NGO TWG) for Fisheries Reform and Advocacy

214 CERILLA, Marilou Bolinao Community-Based Bolinao Marine Laboratory Coastal Resources U.P. Marine Science Institute Management Project Guiguiwanen, Lingayen Pangasinan

CONSING, Ingrid HAYUMA Foundation Room 8, Maya Building 678 EDSA, Cubao, Quezon City Tel. No. 912-36-08/912-34-79

CRUZ, Cynthia College of Social Work University of the Philippines and Community Diliman, Quezon City Development (CSWCD) Tel. No. 929-24-77 Fax No. 929-84-38

DELA CALZADA, El Nido Foundation, Inc. A. Soriano Aviation Hanear Rene Jay City, Metro Manila Tel. No. 831 -99-41

DELFINO, Nora G. Bolinao Community-Based Bolinao Marine Laboratory Coastal Resources U.P. Marine Science Institute Management Project Guiguiwanen, Bolinao Pangasinan

DIZON, Albert Haribon Foundation for the 340 VIllamor Street Conservation of NaturaI San Juan, Metro Manila Resources, Inc. Tel. No. (02) 78-41 -79 Fax No. (02) 70-43-16

DOMINGO, Marife College of Social Work University of the Philippines and Community Development Quezon City (CSWCD) Tel. No. 920-53-01 to 99 bc. 5871 Fax No. 929-84-38

ESCOTON, Service Bureau for Small National Road near Victory Ferdinand Fisherfoiks (SBSF) Liner, Pabangin, bba Zambales

ESTEPA, Norberto Bolinao Community-Based Bolinao Marine Laboratory Based Coastal Resources U.P. Marine Science Institute Management Project Guiguiwanen, Bolinao Pangasinan

215 FERRER, Elmer M. College of Social Work University of the Philippines and Community Diliman, Quezon City Development Tel. Nos. 929-24-77 920-53-01 to 99 bc. 5443 Fax No. 929-84-38

FLORES, Efren Southeast Asian Tigbauan, Iloibo Fisheries Development Center (SEAFDEC)

FORM ILLEZA, College of Social Work University of the Philippines Samuel Work and Community Diliman, Quezon City Development (CSWCD) Tel. Nos. 929-24-77 920-53-01 to 99 bc. 5443 Fax No. 929-84-38

GAPY, Juju Lingayen Gulf Coastal LGCAMC, Lingayen Area Management Pangasinan Commission Tel. No. (075) 542-65-47

GAURAN, Dante The Network Foundation Binamira and Sons Building (TNFI) Inc. Gorordo Avenue, Cebu City Tel. No. 231-51-51

G EVERS, .lngrid Western Samar P.O. Box 42 Agricultural Resources 6700 Catbabogan, Samar Development Programme Tel. No. 451-21-09/451-23-81 (WESAMAR) Fax No. (057) 756-01-79

GOMEZ, Edgardo U.P. Marine Science University of the Philippine Institute (MSI) Diliman, Quezon City Tel. No. 920-53-01 to 99 bc. 7412

GONZALES, Community Extension 24 San Pablo Road Minerva and Research for Philam Homes,Quezon City Development (CERD)/ Quezon City NGO-Technical Working Tel. No. 99-77-75 Group for Fisheries Reform and Advocacy (NGO TWG)

216 GUARIN, Flordeliz DAMES and MOORE Adamson Center Building 121 Alfaro Street Salcedo Village, Makati Tel. No. 892-80-26 to 28 bc. 6808

GUTIERREZ, Joel Tambuyog Development SCAD Program Center (TDC) Barili, Cebu

HEINEN, Arjan PIPULI Foundation, Inc. Barangay Tugar, Baliangao Misamis Occidental 7211

INSIK, Luciano SANRACA Fishermen SCAD Program Association Barili, Cebu

ISIDRO, Alt redo Fisheries Sector Program- 2nd Floor, Estuar Building Department of Agriculture 880 Quezon Avenue, Q.C. (FSP-DA) Tel. Nos. 96-54-98 98-85-74

JANIOLA, Eutiquio The Network Foundation, Binamira and Sons Building Inc. (TNFI) Gorordo Avenue, Cebu City Tel. No. 231-51-51

JUMAMIL, Fausto Jr.National Coalition of 4 Manigo Street Fisherfolk for Aquatic U.P. Village, Quezon City Reform (NACFAR) Tel. No. 922-81-14

LACSON, Brenda Tambuyog Development Room 108-A Philippine Social Center (TDC) Science Center Building Commonwealth Avenue Tel. No. 922-96-21 bc. 342 96-44-15

LARANJO, Aida PIPULI Foundation, Inc. Baliangao Wetland Park Misom, Baliangao Misamis Occidental 7211

LICUANAN, SuzanneU.P. Marine Science University of the Philippines Institute (MSI) Diliman, Quezon City Tel. No. 920-53-01 to 99 bc. 7430

217 MACAWARIS, Natalia U.P. Marine Science University of the Philippines Institute (MSI) Diliman, Quezon City Tel. No. 920-53-01 to 99 bc. 7430

MANALO, Fermin Organizing for Training 48 Tindalo Street Research and Development Project 3, Quezon City (OTRADEV)/NGO Technical Working Group for Fisheries Reform and Advocacy (NGO TWG)

MICLAT, Ramon Pacific Rim Innovation 502 Manila Luxury and Management Condominium, Pearl Drive Exponents, Inc. Pasig, Metro Manila (PRIMEX) Tel. Nos. 633-90-52 Fax No. 634-73-40

MORALES, Conie HAYUMA Foundation Room 8, Maya Building 678 EDSA, Cubao Tel. No. 912-36-08 Fax No. 912-34-79

MORON, Marissa Bolinao Community-Based Bolinao Marine Laboratory Coastal Resources U.P. Marine Science Institute Management Project Guiguiwanen, Bolinao Pangasinan

MY, Tran Al College of Social Work University of the Philippines Community Development Diliman, Quezon City (CSWCD) Tel. No. 929-24-77

NAVATA, Renato Lingayen Gulf Coastal LGCAMC, Lirigayen Area Management Pangasinan Commission (LGCAMC)

NEWKIRK, Gary IDRC/Coastal Resources 1321 Edward Street Research Network (CRRN) Halifax, Nova Scotia Canada, B3H3H5 Tel. Nos. (902) 494-22-84 (902) 494-37-36

218 NIGHTINGALE, Service Bureau for Small National Road near Victory Maeve Fisherfolks (SBSF)/ Liner, Palanginan, Iba Volunteer Service Zambales Overseas (VSO) Tel. No. (047) 811-13-94

NISHIDA, Koji College of Social Work University of the Philippines Work and Community Diliman, Quezon City (CSWCD)

ORLI NA, Santiago Pambansang Kilusan Ateneo de Manila University ng mga Samahang Quezon City Magsasaka (PAKISAMA) Tel. No. 98-69-44

ORILLA, Lydia DZWM Alaminos, Pangasinan Tel. No. 522-70-10

PANDELA, Miraf (or Community-Based University of the Philippines Coastal Resources Diliman, Quezon City Management Resource Tel. Nos. 929-24-77 Center, CSWCD 920-53-0 1 bc. 5443/5945 Fax No. 929-84-38

PHAP, Ton That Hue University of Science 27 Nguyen, Hue, Vietnam

RIVERA Rebecca Tambuyog Development PSSC Building Center (TDC) Don Mariano Marcos Avenue Diliman, Quezon City Tel. No. 96-44-15

ROA, Hilly Ann U. P. Marine Science Bolinao Marine Laboratory Institute (MSI) U.P. Marine Science Institute Guiguiwanen, Lingayen Pangasinan

RODRIGUEZ, Luz University of the Ugyanan ng Pahinungod Philippines - Visayas U.P. Visayas, (bibCity (UPV) Tel. No. 785-91

219 RODRIGUEZ, Community Extension Palikpikan St. Marita and Research for Balayan, Batangas Development (CERD)

SALMO, Severino Bolinao Community-Based Bolinao Marine Laboratory Coastal Resources U.P. Marine Science Institute Management Project Guiguiwanen, Lingayen Pangasinan

SAN JUAN, Haribon Foundatio.n, Inc. 340 Villamor St. Bernadette San Juan, Metro Manila Tel. Nos. 70-43-16 78-4 1 -79

TANCHULING, College of Social Work University of the Philippines Ma. Linnea and Community Diliman, Quezon City Development (CSWCD) Tel. No. 929-24-77 Fax No. 929-84-38

TUYEN, Truong Van Hue University of Science 21 Phung Hung, Hue City Vietnam

TIBURCIO, do Haribon 340 Villamor St. Fernando Foundation, Inc. San Juan, Metro Manila

VERA, Allan Sentro para sa Ikauunlad 67 del Pilar Street, AHV ng Katutubong Agham Quezon City at Teknolohiya (SIKAT) Tel. No. 931 -97-03

YAMBAO, Alexis Bolinao Community-Based Bolinao Marine Laboratory Coastal Resources U.P. Marine Science Institute Management Project Guiguiwanen, Lingayen Pangasinan

220 About the Authors

Jose Eleazar R. Bersales is an assistant professor at the at the Department of Sociology- Anthropology, University of San Carlos (USC). He is also head of the Rudolf Rahmann Research Center, the research unit of the Sociology-Anthropology Department at USC. Mr. Bersales is active in coastal resource management as field supervisor for community organizing activities and one of the study leaders of the Bantayan Island Integrated Seabark development Program, a DOST-USC funded coastal resource management project in northern Cebu. He graduated with a B.A. Anthropology at the same university. He holds an M.A. degree in Philippine Studies from U.P. Diliman.

Allan G. Cadavos was a project staff of the Livelihood Component of the Bolinao Community- Based Coastal Resource Management Project. He was assigned in Barangay Arnedo. He has a masters degree in Community Development from the U.P. College of Social Work and Community Development. Before joining the project, he had previous experiences working with other NGOs working in urban poor areas.

Lenore Polotan-Dela Cruz has been a faculty of community development at the College of Social Work and Community Development, University of the Philippines since 1988. Her involvement in community-based coastal resource management began in 1992, as one of the study leaders of the CBCRM project in Bolinao, Pangasinan. She edited the books "Our Sea, Our Life" (1992) and "Making Environmental Sustainability Economicatty Viable" (1994). Both are publications of the Volunteer Service Overseas. She has also written papers on Integrated gender perspectives in CBCRM, harnessing community participation in CBCRM, popular education, among others. Her current research interest is developing indicators of CBCRM sustainability.

Quirino L. Dela Cruz heads the Research Support Group for Area Operations in Tambuyog Development Center. He coordinates with the area team in Cebu for the implementation of the research component of the program. For a brief period, he was also the assigned researcher in that area.

Jose Carlos Albert M. Dizon works as the coordinator of the Community Organizing and Development Program of Haribon Foundation for the Conservation of Natural Resources, Inc. He was the last community organizerto stay in the island of San Salvador after Haribon turnedthe project over to the local organization.He has been invited by various organizations to give talks on Integrated Coastal Resource Management, Community Organizing and Development, and Environmental Education, among others.

221 Elmer M. Ferrer is an associate professor at the College of Social Work and Community Development, University of the Philippines.He is a co-coordinator of the Livelihood Component of the Bollnao CBCRM Project. He was the project leader of the "Participatory Action Research for Community-Based Coastal Resources Management" (PAR-CBCRM) Project (1 993-94) and was one of the project leaders of the ASEAN-US Coastal Resource Management Project (1986-88). He has published several books and articles on coastal resource management and participatory research.

Dante T. Gauran is a training specialist of The Network Foundation, Inc. He presently conceptualizes training programs for the fishers' cooperatives of Panguil Bay, particularly in the coverage area of Misamis Occidental and Zamboanga del Sur, under the FSP.

Joel S. Gutierrez is the area coordinator of Tambuyog Development Center's SCAD program inBarili, Cebu. Being the area coordinator, he supervises the implementation of the entire program, including community organizing, research, training, gender sensitivity, and advocacy work. Prior to this, he was a member of the organizing team in the Mindoro project of Tambuyog.

Arjan Heinen is a marine biologist working for the SNV. He is currently assigned to the PIPULI Foundation which is now engaged in establishinga community-based coastal resource mangement in Danao Bay.

Eutiquio S. Janiola, Jr. began involvement in the development work when he joined the ACIPHIL, Inc. in 1989 in the implementation of the Rainfed Resources Development Project in Cogtong Bay in Bohol as Process Documentation (PRODOC) Specialist.He later assumed the position of Community Organizing Specialist until the Network Foundation took over the project in 1991. In 1992, he accepted a new assignment from the TNFI as Municipal Development Office for the implementation of the NGO Services of the Fisheries Sector Program (FSP) Year II, Phase IIin Panguil Bay in Mindanao.In 1994, he was assigned as project supervisor for Year III of the said project. In 1995, he joined the UNDP Water and Sanitation Project (Community Organizing component) in Zamboanga del Sur.

Aida Laranjo works as a staff member of the Baliangao Wetland Park, a project of the PIPULI Foundation. She has been very active in helping forthe establishment of the marine sanctuary project in Barangay Misom, Baliangao, Misamis Occidental.

222 Luz Lopez-Rodriguez is an associate professor of community development at the Division of Social Sciences, College of Arts and Sciences, University of the Philippines in the Visayas, Iloilo. She completed her B.A. and M.A. in Social Work at the U.P. CSWCD. She also took her M.A. in Development Studies, major in Women and Development, from the Institute of Social Sciences in The Hague, Netherlands. In 1992, she was project coordinator for U.P.Visayas of the Food Systems Development Project in Batan, Aklan in collaboration with McGill University of Canada and the Canadian International Development Agency.It was during the implementation of this program that she organized the Local Government Cooperation for the Coastal Resources Management of Altabas, Batan, and New Washington, which was suppported by the Aklan Provincial Government and the Local Government Support Program of CIDA for Region VI.She now serves as part-time Women-In- Development advisor for local goverment capability-building programs for Region VI. Liana T. Mcmanus is an associate professor at the Marine Science Institute, University of the Philippines. She is the project coordinator of the Bolinao Community-Based Coastal Resource Management. She was one of the project leaders of the ASEAN-US Coastal Resource Management Project (1986-88). She has published a number of articles on marine biology and coastal resources management. Mariquit S. Melgar worked as a program coordinator for Fishery Integrated Resource Management for Economic Development- Batangas Program from July 1994 to August 1995. She is currently connected with Kaisahan Tungo sa Kaunlaran ng Kanayunan at Repormang Pansakahan as project development unit coordinator. She is also working on her Masters in Public Administration at U.P. Diliman.

Gloria Cervantes-Miranda is a project leader and assistant community organizing coordinator of the Community Organizing and Development Program of the Haribon Foundation for the Conservation of Natural Resources, Inc. She started as a community organizer and training specialist for Haribon's program in San Salvador under the net training project for two years. She works with the local fishers strengthening their organizations which are engaged in sustainable aquarium fish collection. She is also involved in the Community-Based Coastal Resource Management Project in Bohnao, Pangasinan, a multi-discipline project implemented by U.P. MSI, U.P. CSWCD, and Hribon Foundation as a community organizer coordinator.

Rebecca A. Rivera is currently the Deputy Executive Director for National Operations of the Tambuyog Development Center. She holds a Diploma in Environmental Studies from the University of Adelaide in Australia.Previously, she was the coordinator of the Research Department of Tambuyog.

Marita S. Rodriguez is the technical support coordinator of the Community Extension and Research for Development (CERD) Inc. She served as co-writer of the District I Rapid Rural Systems Appraisal coordinated by CERD, which was presented in the Conference on Coastal Zone Management sponsored by the CRMC in 1993.She also assisted the Samahan ng Mali/lit na Mangingisda sa Calatagan in their mangrove reforestation project as part of the Sustainable Fisheries Developmet Program. 223 SEEDS OF HOPE A Collection of Case Studies in Community-Based Coastal Resources Management in the Philippines

The festival-workshop on Community-Based Coastal Resources Management (CBCRM) in the Philippines provided an opportunity to exchange valuable experiences and insights on CBCRM.

For three days, representatives of Philippine NGOs, coastal communities, academic and research institutions, some government agencies and other invited guests reflected on their work, identified strengths and weaknesses, and gleaned lessons for advancing the practice of CBCRM. Through rituals, music and other cultural forms, we celebrated as a community of CBCRM practitioners and advocates.

In the Philippines, community-based coastal resources management is developing in many forms but much of the work facilitated by NGOs has gone unreported until recently. The focus of the festival-workshop was the CBCRM activities of nine NGOs in different regions in the Philippines. The case studies presented then are now contained in this book. What makes this volume particularly interesting is the fact that each case was written not by an expert but by the project implementors themselves.

These case studies reveal the diversity of approaches, both successful and not, in the search for 'Seeds of Hope" which will lead to a restoration of the beauty of coastal communities and promote sustainable livelihoods nurtured by the prolific resources of our seas and grounded in a wealth of indigenous culture.

ISBN 971-91716-O-X