Asia-Pacific Social Science Review 19(4) 2019, pp. 29–43

RESEARCH ARTICLE

The Administrative Performance of the Lake Development Authority on the Small Lakes of the Region,

Bing Baltazar C. Brillo,* Rolando T. Bello, and Evelie P. Serrano University of the Philippines Los Baños *[email protected], [email protected]

Abstract: Few studies have dealt with small lakes in the Philippines, particularly aspects of their governance, which translate to information deficit on the status of administration of many lakes in the country. At the core of governance in any lake is its administrative agency, and in the eight crater lakes of San Pablo City, it is the Laguna Lake Development Authority (LLDA). Under this context, this article examines the administrative performance of the LLDA on the eight small lakes (i.e., Sampaloc Lake, Bunot Lake, Palakpakin Lake, Calibato Lake, Mohicap Lake, Pandin Lake, Yambo Lake, and Tadlac Lake) of the Laguna de Bay Region. The study evaluates the agency using four criteria deemed fundamental in managing, conserving, and developing small lakes: (1) having an approved management and development plan (MDP); (2) regulating fish pens and cages; (3) implementing the shoreline easement; and (4) conducting maintenance activities. Using data from interviews, site observations, documents, reports, and other secondary sources, the study contends that the LLDA’s performance is ambivalent because its management of the small lakes can be characterized as slow and lacking in follow-through in the MDP issue; unsatisfactory in the regulation of aquastructure and shoreline easement; but decent in water quality monitoring, clean-up operations, and fingerlings dispersal. On the whole, the assessment exemplifies the inconsistent actions of the LLDA and underscores the long-term commitment and accountability of the agency in governing the crater lakes.

Keywords: Bunot Lake, Calibato Lake, Governance, Laguna Lake Development Authority (LLDA), Mohicap Lake, Palakpakin Lake, Pandin Lake, Sampaloc Lake, Tadlac Lake, Yambo Lake

The Laguna Lake Development Authority (LLDA) and provinces). The LLDA has the largest is the custodian of the Laguna de Bay Region. Laguna administrative jurisdiction for an inland body of de Bay is the largest lake in the country and the water, and hence, considered as a leading authority in third-largest in Southeast Asia. The Laguna de Bay ecological governance and development of a lake and Region is a strategic area encompassing the two main its basin in the country. The LLDA’s administrative economic enclaves, as well as the most populous performance has been noteworthy over the years. regions in the Philippines— Metro and Among the agency’s notable undertakings are: the (, Laguna, , , Environmental User’s Fee System (EUFS) which was

Copyright © 2019 by De La Salle University 30 B. B. Brillo, R. T. Bello & E. P. Serrano launched in 1997, pioneering water pollution charge Laguna de Bay Basin Master Plan of 2016 did not give system in the country; the Laguna de Bay Institutional explicit reference to the eight small lakes despite the Strengthening and Community Participation (LISCOP) master plans’ emphasis on watershed management (see Project which was supported by the Netherlands LLDA, 2016). Even superficially, the well-circulated Government and the World Bank, institutionalizing the official map of the LLDA’s administrative jurisdiction partnership with local government units, river councils, has inadvertently failed to include the eight crater lakes and other stakeholders; and more recently, the Laguna (see Figure 2). Lakeshore Expressway Dike proposal, a multibillion Properly managing the small lakes in the Philippines peso project which intends to build a 47-kilometre- is important because the inland water resources long, six-lane flood control dike-highway and reclaim are abundant in the country, and many of them 700 hectares of Laguna de Bay (Department of Public are a potential catalyst for the development of the Works and Highways, 2014). Moreover, the LLDA surrounding impoverished communities. This rationale has also been enforcing basic regulations in Laguna is aligned with the concept of development as an de Bay such as issuing “cease and desist order” for improvement that is shared and sustainable (Global water polluters, demolishing illegal fish pens/cages Monitoring Report, 2015), which in small lake and aquastructures, and issuing “notice of violation” development simply means improving the situation on shoreline easements (see LLDA, 2009b, 2010, of the local people (making development inclusive) 2011, 2012, 2013b, 2014c, 2015). On the whole, and ensuring the conservation of the water resource these endeavors point to the LLDA as a performing (making development sustainable). administrative agency. Small lakes (together with major lakes in the However, the LLDA is not all about Laguna de Bay. country) are contemporarily ecologically threatened. Unknown to many people, the agency also manages The First National Congress on Philippine Lakes held in eight small lakes situated in the southern part of the 2003 and the Second National Congress on Philippine Laguna de Bay Region, namely, Sampaloc Lake, Bunot Lakes held in 2011 have recognized that many lakes Lake, Palakpakin Lake, Mohicap Lake, Pandin Lake, in the country, despite incremental improvements, Yambo Lake, and Calibato Lake of the seven crater remain at risk of environmental degradation due lakes system of San Pablo City, and Tadlac Lake of Los mainly to indiscriminate utilization and increasing Banos, Laguna (see Figure 1). The eight crater lakes demands of economic growth (Aralar et al., 2005; are small freshwater lakes that lie within the watershed Fernandez, 2011; Aralar et al., 2013; Global Nature system of Laguna de Bay. The LLDA’s administrative Fund, 2014). Against this backdrop, studies on jurisdiction over them took effect in 1983 by virtue Philippine lakes have been incrementally increased of Executive Order 927, which expanded the LLDA’s over the years. However, the concentration of scholarly authority provided in its original charter (i.e., The works is on the abiotic and biotic features of the Laguna lake development authority act, 1966) by major lakes in the country (Brillo, 2015a; see also granting exclusive water rights overall water bodies in Guerrero, 2001, 2005). Presently, few studies have Laguna de Bay Region. After more than three decades, dealt with small lakes, particularly on the aspects of the eight crater lakes seem to be out of the attention of their governance (see International Lake Environment the LLDA, as the agency’s focus is mainly confined to Committee, 2005; Downing, 2010; United Nations Laguna de Bay, its principal concern. Except for the Development Programme-Water Governance Facility, recent LLDA’s (2014B) Board Resolution No. 464, 2015; Brillo, 2015a, 2017a). This reality translates which established the Framework for the Formulation to information deficit in small lakes as well as in of Development and Management Plan for the Seven the status of their administration. Governance is Crater Lakes, the eight small lakes have generally been fundamental because enforcing the key regulations taking peripheral consideration from the administrative nd implementing the many scientific findings on lakes agency. The development of eight small lakes has not are contingent in it (see Nowlan & Bakker, 2007; been identified monga the key programs and projects Simms & de Loë, 2010; Melnychuk, Murray, & de by the LLDA in its annual reports (see LLDA, 2009b, Loë, 2012). At the core of governance in any lake is 2010, 2011, 2012, 2013b, 2014c, 2015). The Laguna its administrative agency, and in the eight small lakes, de Bay Master Plan of 1995, and its recent update, the it is the LLDA. The Administrative Performance of the Laguna Lake Development Authority on the Small Lakes of the Laguna de Bay Region, Philippines 31

Predicated on the preceding discussions, this The data are generated from interviews, site surveys, study addresses the literature deficit by examining the reports, and other secondary sources. The data are LLDA’s performance in managing, conserving, and then systematically analyzed using a content analysis developing the eight crater lakes under its jurisdiction. approach and outlined using administrative criteria Consistent with the gap in the literature, governance deemed basic in the sound management, development, and administration studies on the eight crater lakes are and conservation of small lakes in the Philippines; deficient, as the great majority of existing scholarly specifically: (1) having an approved management works are under limnology and aquaculture aspects and development plan (MDP); (2) regulating fish (see Brillo, 2015b, 2015c, 2016a, 2016b, 2016c, 2016d, pens and cages (i.e., enforcing the 10% area limit 2017b). Overall, the study argues that the LLDA’s rule for aquastructures pursuant to the Fisheries performance is ambivalent because its administration Code of the Philippines, 1998); (3) implementing of the eight small lakes can be characterized as slow the shoreline easement (i.e., enforcing the 20-meter and lacking in follow-through in the management easement rule pursuant to the Water Code of the and development plan (MDP) issue; unsatisfactory in Philippines, 1976); and (4) conducting maintenance regulating aquastructure and shoreline easement; but activities, specifically water quality analysis, clean-up satisfactorily in water quality monitoring, clean-up operations, and fingerlings dispersal. These criteria operations, and fingerlings dispersal. Moreover, the were developed based on the lessons learned from a findings illustrate the lack of consistency in the actions series of exploratory case studies conducted on small of the LLDA and underscore two key features— the lakes in the Philippines over the years (see Brillo, long-term commitment and accountability of the 2015b, 2015c, 2016a, 2016b, 2016c, 2016d, 2017b; agency in governing the eight crater lakes. Brillo, Anastacio, Dicolen, & Baconguis, 2017; Brillo, Quinones, & Lapitan, 2017). Unlike water governance Criteria for Analysis which has accumulated adequate scholarly discussions (e.g., Rogers & Hall, 2003; Biswas, 2004; Biswas & The study employs a case study design to look Tortajada, 2005; Nowlan & Bakker, 2007; Simms & into the administrative performance of the LLDA on de Loë, 2010; Biswas & Tortajada 2010; Melnychuk the eight crater lakes of the Laguna de Bay Region. et al., 2012), the literature in lake governance is

Figure 1. The eight crater lakes of the Laguna de Bay Region. 32 B. B. Brillo, R. T. Bello & E. P. Serrano

Figure 2. Administrative jurisdiction of the LLDA (LLDA, 2010, 2011).

scarce. This situation is in the extreme when it comes Environment Committee (ILEC) (see ILEC, 2007; to small-lake governance, which is hardly discussed Nakamura & Rast, 2011, 2012). The ILBM is based in the literature (see International Lake Environment on the lessons learned from a comprehensive study Committee, 2005; Downing, 2010; United Nations conducted by the Global Environment Facility-Lake Development Programme-Water Governance Facility, Basin Management Initiative (GEF-LBMI) of 28 2015; Brillo, 2015a). These criteria are also consistent major lakes around the world from 2003 to 2005. The with the Integrated Lake Basin Management (ILBM), study complements the ILBM approach by supplying the most recent approach for large-lake governance empirical data on the regulations, interventions, and that is globally promoted by the International Lake practices of small-lake governance in the Philippines. The Administrative Performance of the Laguna Lake Development Authority on the Small Lakes of the Laguna de Bay Region, Philippines 33

The discussion and results of the study are the Department of Environment and Natural Resources delineated as follow: firstly, the mandate of the LLDA (DENR) for administrative supervision and policy and the administration of eight crater lakes of the coordination via Executive Order 149 (1993). The Laguna de Bay Region; secondly, the status of the mandate of the LLDA was amended and strengthened eight small lakes; thirdly, the LLDA’s administrative by Presidential Decree 813 (1975) which expanded performance on the eight crater lakes; and lastly, the its powers to address environmental concerns and conclusion. As a caveat, the study is not making an conflicts over jurisdiction and control of the lake, and evaluation of LLDA’s performance on its principal by Executive Order 927 (1983) which conveyed the concern— Laguna de Bay, but on its peripheral exclusive rights over the water bodies in the Laguna responsibility— the eight small lakes under its de Bay region, including the management of the eight jurisdiction. Small lake in the study is defined as crater lakes. an inland body of water that is permanent in nature In managing the eight crater lakes, the LLDA’s (not intermittent) with a surface area of at least one administrative authority is shared by the local hectare but not more than 200 hectares (Brillo, 2015a). government units by virtue of The Local Government Moreover, the concept of lake governance is defined Code (1991). In particular, the City Government of broadly in the study as referring to the administrative San Pablo for the seven crater lakes (a lesser part arrangements (formal or informal) in place that impact of Yambo Lake and Calibato Lake are under the the small lake’s management, utilization, conservation, jurisdiction of the Municipal Government of and development. This definition is compatible with and Rizal, respectively, being transboundary lakes) the well-circulated definition of the broader concept and the Municipal Government of Los Banos for of water governance (see Rogers & Hall, 2003; Tadlac Lake also have jurisdiction to the small lakes Nowlan & Bakker; 2007; United Nations Development being municipal bodies of water. As LLDA is the main Programme-Water Governance Facility, 2015). administrative agency and the local government units have territorial dominion, in principle, the supervisory Results undertaking requires collaboration and coordination between the two government agencies. For instance, The LLDA and the Administration of the LLDA Board Resolution No. 26 (1996) sets forth a Eight Small Lakes. co-management approach in the seven crater lakes The LLDA was created by The Laguna Lake where some administrative functions were shared with Development Authority Act (1966), which gave it the local government units (LLDA, 2014a). The usual the mandate to administer Laguna de Bay Region. practice is that the LLDA lays down the comprehensive The LLDA is a quasi-government agency that leads, development framework and approves the plans/ promotes, and accelerates sustainable development programs submitted to it by the local government of Laguna de Bay and its watershed and surrounding units and the other stakeholders. Meanwhile, the local urban areas amidst the multiple political jurisdictions government units implement projects/activities (as (LLDA, 2013a). The Laguna de Bay Region includes well as legislate supporting ordinances) in line with all cities and municipalities in the provinces of Laguna the LLDA’s development agenda. On regulations, the and Rizal; Manila, Marikina, Pasig, Quezon City, usual arrangement is that the LLDA initiates and the Caloocan, Muntinlupa, Pasay, Pateros, and Taguig in local government units enforce, as they have authority the National Capital Region; Tanauan, Sto. Tomas, over the police force and the officials. and Malvar in the province of Batangas; Carmona, On the ground, the LLDA and the local government GMA, Silang, and in the province of Cavite; units tap the Fisheries and Aquatic Resources and in the province of Quezon. The agency’s Management Council (FARMC) in administering regulatory and enforcement functions are carried and organizing the residents and fisherfolk of the out with provisions on environmental management small lakes. The partnership with FARMC was first and control, preservation of the quality of life and established by Executive Order 240 (1995) and then ecological systems, and the prevention of undue institutionalized by the Philippine Fisheries Code ecological disturbance, deterioration, and pollution (1998), which requires the creation of an organization (LLDA, 2005a, 2009a). The agency was placed under to assist government agencies in the management and 34 B. B. Brillo, R. T. Bello & E. P. Serrano conservation of the water resources in the country. of augmenting the livelihood opportunities, enhancing FARMC was devolved from the Department of the economic stature of the locality, and preserving Agriculture (DA) to the LLDA in the Laguna de the water resource (LLDA, 2014c, 2015). Recently, Bay Region in recognition of the latter’s exclusive ecotourism has become more attractive in the eight jurisdiction via The Laguna Lake Development crater lakes in the light of the restriction imposed on Authority Act (1966). FARMCs are established from the lakes by the 10% area limit rule for aquastructures the national to municipality level and are mandated to and the present-day problems brought about by the be multi-representative in its composition, particularly over-expansion of commercial fish farming. community stakeholders and non-governmental organizations operating in the area of the water bodies. The Eight Crater Lakes of the In the eight crater lakes, the FARMC’s members Laguna de Bay Region are mostly fisherfolk and inhabitants in the lake. In securing the small lakes, FARMC is assisted by the The seven crater lakes and Tadlac Lake are oval- barangay officialsand the members of the Bantay Lawa shaped freshwater lakes and are part of the catchment (fish warden deputies) ofthe locality. Under the Local area of and , Government Code (1991), a barangay is the smallest respectively. All the small lakes are considered a and lowest administrative-legislative unit under the of the Laguna Volcanic Field, which formed local government unit in the country. Although Bantay through a phreatic eruption when contact between Lawa is a local volunteer organization under the Bureau shallow lava and groundwater caused an explosion of Fisheries and Aquatic Resources (BFAR) of DA, it that resulted in a crater-like depression (LLDA, 2008; usually received cash assistance (honorarium) from Philippine Institute of Volcanology and Seismology, the provincial government of Laguna. 2015). Sampaloc Lake is the largest lake among the The development of tourism-related initiatives small lakes with a surface area of 104 hectares and and projects in the eight small lakes is guided by the is the traditional tourism attraction of San Pablo, Tourism Act (2009). The law recognizes tourism as being located within the city proper (LLDA, 2005a, a key engine of the national economy, particularly 2008). Bunot Lake has a surface area of 30.5 hectares, in promoting socio-economic development. It also situated in Barangay Concepcion, and is considered the encourages ecotourism development among the many sister lake of Sampaloc Lake (LLDA, 2005b, 2008). lakes in the country. The eight crater lakes have long Palakpakin Lake has a surface area of 47.98 hectares, been identified by the community stakeholders and lies within three barangays, namely, San Buenaventura, the administrative agencies as ideal for ecotourism San Lorenzo, and Dolores, and is the shallowest among development. Ecotourism is seen as an effective means the small lakes with an average depth of only 7.7 meters

Table 1 Surface Area of the Eight Crater Lakes

Eight Small Lakes of the Laguna de Bay Region Surface Area in Hectares Sampalok Lake 104.00 Palakpakin Lake 47.98 Calibato Lake 43.00 Bunot Lake 30.50 Yambo Lake 30.50 Tadlac Lake 24.70 Pandin Lake 24.00 Mohicap Lake 22.89 The Administrative Performance of the Laguna Lake Development Authority on the Small Lakes of the Laguna de Bay Region, Philippines 35

(LLDA, 2005c, 2008). Mohicap Lake has a surface lakes and Tadlac Lake are extremely threatened by area of only 22.89 hectares, located in Barangay San pollution (Borja, 2008; LLDA, 2008), and in 2014, Buenaventura, and is the smallest among the small the Global Nature Fund tagged the seven crater lakes lakes (LLDA, 2005d, 2008). Pandin Lake has a surface as threatened lake of the year (Global Nature Fund, area of 24 hectares, located in Barangay Santo Angel, 2014). At present, Sampaloc Lake, Bunot Lake, and is considered the twin of Yambo Lake, as only a Palakpakin Lake, Calibato Lake, and Mohicap Lake narrow ridge separates the two lakes (LLDA, 2005e, continue to have a substantial number of fish pens and 2008). Yambo Lake has a surface area of 30.5 hectares, cages, minimal in Pandin Lake and Yambo Lake, and situated in Barangay Sulsugin in Nagcarlan, Barangay completely eradicated in Tadlac Lake (see Borja, 2008; in Rizal, and Barangay San Lorenzo in San LLDA, 2008; Provincial Government of Laguna 2013, Pablo City, and thus, making it is a transboundary lake Barangay Tadlac 2015). (approximately two-thirds of the small lake’s area is Ecotourism has recently become an attractive within the jurisdiction of San Pablo City; LLDA 2005f, development alternative for the small lakes in the light 2008). Calibato Lake has a surface area of 43 hectares, of the undesirable effects of and problems associated located in Barangay Sto. Angel, San Pablo City, with with commercial fish farming. Since the eight crater a small part in Barangay and Barangay Antipolo, lakes have high potential as tourist destinations, Rizal (making it also a transboundary lake), and is the ecotourism is deemed as the most feasible option in highest-located and the deepest among the small lakes expanding the livelihood opportunities of inhabitants (LLDA, 2005g, 2008). Tadlac Lake has a surface area as well as in guaranteeing the conservation of the of 24.7 hectares, found in Barangay Tadlac, Los Baños, water resources. So far, Pandin Lake and Sampaloc Laguna, and is adjacent to Laguna de Bay, is situated on Lake have made a significant advance in organizing its southern tip, with a mere 50-meter wide strip of land ecotourism. Tadlac Lake and Yambo Lake have made between them (LLDA, 2007; see Table 1). Tadlac Lake some headway, while the rest of the small lakes still is separated because it is about 30 kilometers away wanting in development. With the ongoing progress from the seven crater lakes system of San Pablo City. in Sampaloc Lake and Pandin Lake, the two lakes In the past, the eight crater lakes have been utilized have even been referred to as a beacon for advancing mainly for recreational activities and fishing. Despite ecotourism among the eight crater lakes and as a being known for their natural scenery and ideal for possible model for ecotourism development of a small fishing, ourismt was not organized, and aquaculture lake in the country. has not been established in the small lakes back then. Aquaculture, specifically commercial tilapia farming The LLDA’s Administrative Performance on in pens and cages, was introduced in the lakes in the Eight Small Lakes the early 1980s. Tilapia pen/cage farming was first launched in Bunot Lake in 1976 after the LLDA’s As mentioned, the LLDA’s performance on the successful introduction in Laguna de Bay in 1974 small lakes is assessed: firstly, based on the basic (Radan, 1977; Ministry of Natural Resources, 1982). criteria for managing small lakes, namely, facilitating By the late 1980s, fish pens and cages have become and ratifying an MDP, enforcing the 10% area limit a common feature among the eight crater lakes; and for fish pens/cages, and enforcing the 20-meter by the late 1990s, tilapia farming reached its peak, shoreline easement; and secondly, based on conducting where most lakes breached the 10% area limit rule rudimentary maintenance activities, namely, water for aquastructures. The expansion of aquaculture and quality analysis, clean-up operations, and fingerlings overcrowding of fish pens/cages have resulted in the dispersal. proliferation of illegal settlements/structures (along The foremost criterion is the existence of an MDP the shoreline and in the lake itself) and pollution in because the plan is fundamental for the effective the small lakes. In turn, these led to problems, such administration and conservation of the eight crater as water quality degradation, excessive algal blooms, lakes. An MDP operates as the overall framework and exacerbated fish kills during the natural upwelling for the policies, programs, and projects on the water or overturning of the lakes. As a consequence, in the resources. It conveys direction as well as precipitates past, the LLDA has concluded that the seven crater subsequent initiatives in the small lakes and ensures 36 B. B. Brillo, R. T. Bello & E. P. Serrano that they are systematic, coherent, and effective. with the local government units and community In addition, an MDP is a primary instrument that stakeholders. In Sampaloc Lake, the most recent and addresses the constant issue on the utilization of the decisive move to have an MDP was instigated in 2014 small lakes—the partitioning of the water resource (a year after the 2013 local elections) by the new and designating the specific areas (including the extent administration of the City Government of San Pablo. and arrangement) for aquaculture and ecotourism. The Being situated within the city proper and the traditional plan also facilitates the regulation of fish farms and the tourism emblem of San Pablo, Sampaloc Lake was establishment of ecotourism in the lakes. designated as the flagship of the new administration’s The absence of an MDP is considered as the tourism agenda and the model for the ecotourism most pressing issue in the eight crater lakes by the development of the other crater lakes. In Tadlac Lake, administrative agencies and community stakeholders after the move to formulate an MDP fizzled out in 2001, (e.g., LLDA, 2008, 2014b; Borja, 2008; City it was revived by the LLDA in 2007 after a change Government of San Pablo, 2015). Since 1983, when in its leadership. Tadlac Lake was envisioned to be the crater lakes were placed under the jurisdiction developed into a world-class ecotourism destination of the LLDA, up to the 2000s, the administration of by the LLDA, the community stakeholders, and the the small lakes has been done arbitrarily without the Local Government of Los Banos (LLDA, 2007). The basic plan (LLDA, 2014a, 2014b). Because of this, the LLDA facilitated the crafting of the MDP by releasing formulation of the MDP has been identified as the most the funds (originally allocated in 2001), allocating critical problem in the many fora on the eight crater manpower, and convening consultation meetings and lakes in the past decades. The serious move to have workshops. an MDP for each of the small lakes only came about Although Pandin Lake, Yambo Lake, Sampaloc in 2014 when the LLDA issued Board Resolution No. Lake, and Tadlac Lake all have MDPs, currently, their 464 provides the framework for the formulation of main problem is carrying out the plans, particularly MDP for the seven crater lakes (LLDA, 2014a). As a obtaining the needed funds to commence and consequence, Pandin Lake, Sampaloc Lake, and Yambo implement the MDPs. So far, the LLDA has not Lake were able to have their MDPs duly approved by taken the lead role in facilitating the generation of the the LLDA in 2015. Meanwhile, Tadlac Lake already necessary capital to finance the basic plans, which, as had an approved MDP in 2008 but was officially a consequence, left the MDPs unimplemented. For launched by the LLDA only in 2015 (see Table 2). instance, in Sampaloc Lake, the immediate concern With these, four lakes—Bunot Lake, Palakpakin is funding for the removal of remaining illegal Lake, Calibato Lake, and Mohicap Lake—remain to structures, the rearrangement of fish pens and cages, be without a basic management plan (see Table 2). and the completion of the unfinished housing project The four lakes, unlike the lakes with MDPs, are the for relocating the remaining informal settlers in the ones in more precarious conditions in terms of water lake. In Pandin Lake and Yambo Lake, the pressing quality, the number of fish pens/cages, and the presence concern is finance for the key infrastructure projects, of informal settlements. Thus, the situation entails the particularly the construction of the essential facilities immediate and resolute action from the LLDA to set needed to set up (in Yambo Lake) fully and to scale in motion the formulation of their basic plan. up (in Pandin Lake) their ecotourism enterprises. In The move to formulate an MDP for Pandin Lake Tadlac Lake, the current concern is the capital and and Yambo Lake was initiated by the LLDA, which infrastructure investments needed to launch the Tadlac was supported by the local government units and the Lake Nature Park. community stakeholders. Pandin Lake was deemed the The regulation of fish pens and cages criterion refers pilot project of the LLDA due to the well-publicized to the LLDA’s enforcement of the 10% area limit for success of its locally-initiated ecotourism enterprise. aquastructures on the eight crater lakes. This regulatory Yambo Lake was next in line in the LLDA’s agenda rule is constituted in Section 51 of the Fisheries Code because it is the most well-preserved and has the least of the Philippines, which states that: “That not over problems among the seven crater lakes. In both lakes, ten percent (10%) of the suitable water surface area the LLDA allocated funds and personnel and conducted of all lakes and rivers shall be allotted for aquaculture a series of consultation meetings and workshops purpose like fish pens, fish cages and fish traps; and the The Administrative Performance of the Laguna Lake Development Authority on the Small Lakes of the Laguna de Bay Region, Philippines 37

Table 2 LLDA’s Administrative Performance on the Eight Crater Lakes

Eight Small Lakes of the (1) Management and (2) Regulation of Fish (3) Regulation of Laguna de Bay Region Development Plan Pens/Cages Shoreline Easement

Sampalok Lake existing; still to be implemented poorly implemented partially implemented

Palakpakin Lake none poorly implemented partially implemented

Calibato Lake none poorly implemented partially implemented

Bunot Lake none poorly implemented partially implemented

Yambo Lake existing; still to be implemented few and within limit abiding

Tadlac Lake existing; still to be implemented no pens/cages partially implemented

Pandin Lake existing; still to be implemented few and within limit abiding

Mohicap Lake none poorly implemented abiding

Table 3 LLDA’s Administrative Performance on the Eight Crater Lakes

Eight Small Lakes of the (4) Maintenance Activities Laguna de Bay Region Water Quality Monitoring Clean Up Operations Fingerlings Dispersal

Sampalok Lake being done being done being done

Palakpakin Lake being done being done being done

Calibato Lake being done being done being done

Bunot Lake being done being done being done

Yambo Lake being done being done being done

Tadlac Lake being done being done being done

Pandin Lake being done being done being done

Mohicap Lake being done being done being done

stocking density and feeding requirement which shall been the frequently cited reason for the degradation be controlled and determined by its carrying capacity.” of the water quality of the small lakes (see LLDA, The limitation is critical because the utilization of the 2005a, 2005b, 2005c, 2005d, 2005e, 2005f, 2005g, eight crater lakes has been associated with commercial 2008; Barangay Tadlac, 2015). Thus, restraining the fish pens/cages farming (ever since the introduction and excessive expansion of aquaculture is crucial in the eventual boom of Tilapia farming in the small lakes conservation of the eight crater lakes. Furthermore, in the late 1980s) and their unbridled expansion has the regulation of fish pens and cages is also critical 38 B. B. Brillo, R. T. Bello & E. P. Serrano in facilitating the development of ecotourism in the easement on the banks of the eight crater lakes. The small lakes. The extent of the area for fish farming and regulatory requirement is constituted in Article 51 the arrangement of fish pens/cages are consequential of the Water Code of the Philippines (1976), which if ecotourism will have enough and suitable space to states that the shores of lakes throughout their entire take root in the crater lakes. length and within a zone of 20 meters in agricultural Among the eight crater lakes, the number of fish areas (three meters in urban areas and 40 meters in pens/cages in Tadlac Lake, Yambo Lake, and Pandin forest areas) along their margins are subject to the Lake are within the 10% area limit (see Table 2). Tadlac easement of public use (i.e., for recreation, navigation, Lake leads in this category, as fish farms were totally floatage, fishing, and salvage) wherein no structures eradicated in the lake; Yambo Lake and Pandin Lake can be built. In essence, this regulation guarantees have a nominal presence of fish pens and cages. Tadlac the public’s access to and enjoyment of the water Lake benefited from the massive and unprecedented fish resource. kill in 1999, which united the community stakeholders Among the eight crater lakes, Yambo Lake, Pandin in appealing to the fish farm owners to halt operations Lake, and Mohicap Lake can be classified as abiding to let the lake recuperate. With the availability of with the 20-meter shoreline easement regulation (see transferring fish farm operations in the adjacent Laguna Table 2). The three lakes currently have the minimal de Bay and the risk of continuing operations under poor presence of illegal structures and establishments along water conditions, the fish farm owners voluntarily left, their banks. This favorable condition is generally which culminated in the complete removal of fish pens attributable to the vigilance of the community and cages in Tadlac Lake (LLDA, 2007; Borja, 2008; stakeholders in each lake, as well as, in Yambo Lake Barangay Tadlac, 2015). Yambo Lake and Pandin Lake and Pandin Lake, to the nominal existence of fish were greatly helped by the oligotrophic nature of their farming (the twin lakes being oligotrophic), and in water, which generally translates to slower fish growth Mohicap Lake, the steep slopes in most of its banks (LLDA, 2008). This condition made fish farming (being unfavorable for settlements). Sampaloc Lake, costly; thus, less attractive to operate compared to the Palakpakin Lake, Calibato Lake, and Tadlac Lake other crater lakes, which eventually led to the decline can be categorized as partially implementing the of fish pens and cages in the two lakes. Overall, these easement regulation because portions of the lakes’ experiences reveal that the decline of fish pens and shoreline continue to be burdened with the existence cages in Tadlac Lake, Yambo Lake, and Pandin Lake of illegal establishments (see Table 2). In Sampaloc is more to the credit of circumstances than to the direct Lake, since the success of the multisectoral movement regulatory actions of the LLDA. in the 2000s in removing the illegal structures along Sampaloc Lake, Palakpakin Lake, Calibato Lake, the entry side of the lake, a third of its banks continue Bunot Lake, and Mohicap Lake continue to have to be occupied by illegal settlements and structures. a substantial presence of fish pens and cages (see In Palakpakin Lake, Calibato Lake, and Tadlac Lake, Table 2). So far, the LLDA has not taken the initiative illegal settlements and structures encroach along their to strictly enforce the 10% area limit rule on the banks: mostly on the northern tip in Palakpakin Lake, aquastructures of these lakes. Mohicap Lake has the scattered around in Calibato Lake, and by private lot least number of fish pens and cages among them, but and resort owners in Tadlac Lake. Bunot Lake shares not relative to its size as it is the smallest among the the same problem, except that illegal settlements and eight crater lakes. Palakpakin Lake, Calibato Lake, and structures proliferate around the shoreline of the lake, especially Bunot Lake are the most congested with fish making it with the most crowded shore among the eight pens and cages. Anecdotal evidence even suggests the crater lakes (see Table 2). On the whole, with easement significant presence of unregistered fish farms in these violations occurring in the majority of the crater lakes lakes. Sampaloc Lake, despite having an MDP, is still (five out of eight lakes), the LLDA’s performance in waiting for LLDA’s action to remove the excess/illegal this category is evidently inadequate. fish pens/cages and to rearrange them according to the The maintenance activities criteria refer to the zoning arrangement in the plan. LLDA’s carrying out of the common conservation The regulation of the shoreline easement criterion practices for water resources such as water quality refers to the LLDA’s enforcement of the 20-meter monitoring, clean-up operations, and fingerlings The Administrative Performance of the Laguna Lake Development Authority on the Small Lakes of the Laguna de Bay Region, Philippines 39 dispersal. These undertakings are deemed rudimentary have been launched annually in all the small lakes and routine for the preservation of the eight crater lakes. by the LLDA in partnership with BFAR (see LLDA, In the first, the practice of regularly evaluating the 2013b, 2014c, 2015; see Table 3). In 2015, a total of water quality of the small lakes in the Laguna de Bay 120,000 fingerlings were seeded in the eight crater Region is pursuant to two objectives— to accurately lakes (LLDA, 2015). assess the suitability of the lake for all its present and intended beneficial uses, and to evaluate the impacts Discussion of development activities on the lake’s water quality that will serve as important criteria for environmental The LLDA’s administrative performance on planning and management (LLDA, 2005a). It is also the eight crater lakes is ambivalent. In general, the based on the Class C Water Quality Criteria under the agency’s actions on the basic criteria for managing DENR Administrative Order 34 Series of 1990 (LLDA, small lakes is mediocre, but not in the category 2008). At present, the water quality monitoring is of rudimentary maintenance activities, which is conducted during the first (January, February, March) satisfactory. Firstly, the MDP issue is fundamental for and last quarters (October, November, and December) the effective management of the eight crater lakes, and in June and September (LLDA, 2005a, 2007, especially in the regulation of fish farms and the 2008). In the eight crater lakes, the water quality promotion of ecotourism. The LLDA performance in evaluation has been conducted since the 1980s except this criterion can be characterized as slow and lacking at certain times where the LLDA suffered problems in follow-through. The agency is slow to action because such as equipment breakdown (see Table 3). Among the small lakes have been under its jurisdiction from the local stakeholders, the issue here is not whether the 1980s onwards, and it took resolute actions only the water quality monitoring is being implemented in 2014–2015. These resulted in the least problematic but on the dissemination of the results. They have lakes (Pandin Lake and Yambo Lake) and the local often complained that the LLDA has not been keen on governments’ favored lakes (Sampaloc Lake by the promptly sharing or passing information. Currently, City Government of San Pablo and Tadlac Lake by the LLDA’s online published water quality reports the Municipal Government of Los Banos) having on the small lakes are solely on the seven crater lakes their respective MDPs. But this also bares that the (without Tadlac Lake) and are only from 1996–2005 remaining four small lakes—Bunot Lake, Palakpakin and 2006–2008. Lake, Calibato Lake, and Mohicap Lake—which In the second, the clean-up operations on the eight are relatively in more serious condition, continue crater lakes were borne under the River Rehabilitation to be managed without the basic plan. The agency Program, which was intended to clear the waterways lacks follow-through because the MDPs that have and tributaries of Laguna de Bay. In 2013, the LLDA been approved remain unimplemented. The local started to distinguish between the small lake and river stakeholders (of the small lakes with MDPs) continue clean-up operations in its annual report (see LLDA, to seek the intervention of the LLDA to facilitate the 2013b). At present, the clean-up operations are done needed funds for the operation of the basic plans; yet, annually on all the small lakes where the LLDA there is no clear resolution on the matter. Consequently, spearheads in collaboration with the local government it creates an impression that the agency is not keen on units and FARMC (see LLDA, 2013b, 2014c, 2015; further shouldering the cost of improvement in the see Table 3). Among the local stakeholders, the issue small lakes beyond the MDPs. here is the frequency of operations because the once a Secondly, the enforcement of the 10% area limit year clean-up of lakes is not enough, as they believe rule is critical in controlling the expansion of fish pens/ that it should be done several times in a year. cages, preventing further deterioration of the water In the third, the fingerlings seeding operations quality, and encouraging the development of ecotourism in the eight crater lakes are designed to improve the in the eight crater lakes. The LLDA performance in this lake productivity and to benefit the fisherfolk (LLDA, criterion is considered dismal because after decades 2014). Lake seeding has been a regular activity in under its administration, the regulation continues to Laguna de Bay and was extended to the eight small be poorly implemented in the majority of the small lakes. At present, tilapia and carp fingerlings dispersals lakes (i.e., Sampaloc Lake, Palakpakin Lake, Calibato 40 B. B. Brillo, R. T. Bello & E. P. Serrano

Lake, Bunot Lake, and Mohicap Lake), as these lakes and accountability of the LLDA in governing the continue to have considerable presence of fish pens small lakes. It must be able to extirpate the agency’s and cages. Although the three lakes complying to the lingering governance problem—inconsistent actions. A limit rule were able to do so due more to the existence key recommendation is for the LLDA to create a unit of favorable circumstances— oligotrophic nature and within its organization that is particularly dedicated to slow fish growth for Pandin Lake and Yambo Lake, administering the eight crater lakes. This will enhance availability of proximate transfer site, and high risk for accountability by clearly identifying responsible fish operations due to poor water conditions for Tadlac personnel (in case of negligence and nonfeasance). It Lake— rather than the agency’s direct regulatory will also guarantee that the small lakes get equitable actions. Thirdly, the enforcement of the 20-meter attention and resources (in the light of the agency’s shoreline easement is important in guaranteeing much devotion to Laguna de Bay). In addition, the public access to and enjoyment of the water resources. LLDA also needs to extend its maintenance activities The LLDA performance in this criterion is deemed to include the natural springs which feed water to most unsatisfactory because the regulation remains of the eight crater lakes (except for Yambo Lake and unimplemented in the eight crater lakes overall. Tadlac Lake, which have no natural springs around Only three lakes (i.e., Yambo Lake, Pandin Lake, them). So far, the agency has not taken preservation and Mohicap Lake) are substantially abiding with actions to secure and protect the surrounding natural the easement regulation with minimal presence of springs despite their direct repercussion on the illegal structures along their banks. Four lakes (i.e., conservation of the small lakes. These concerns are Sampaloc Lake, Palakpakin Lake, Calibato Lake, and essential if the eight crater lakes are to march alongside Tadlac Lake) are partially implementing the easement and not be left behind by the development in Laguna regulation as portions of the lakes’ banks remain to de Bay. be burdened with illegal establishments, whereas Bunot Lake is in the worst condition, having the most Declaration of ownership crowded shoreline. Lastly, the conduct of rudimentary maintenance activities— water quality monitoring, This report is our original work. clean-up operations, and fingerlings dispersal— is crucial and rudimentary to the conservation of the eight Conflict of interest small lakes. The LLDA performance in these categories is decent. In general, water quality evaluation has None. been regularly conducted, lake clean-up operations and tilapia and carp fingerlings dispersals have been Ethical clearance launched annually. Despite these efforts, the agency needs to address some concerns such as immediate This study was approved by the institution. sharing of the water assessment results, especially to the community stakeholders and enhancing the clean- References up operations several times in a year. The evaluation provides a glimpse of how the Aralar, M. L., Punongbayan, R., Borja, A., Castillo, small lakes have been administered over the years. L., Manalili, E., & Mendoza, M. (Eds.). (2005). The criteria are not only a catalyst for the preservation Lakecon2003: Proceedings of the first national of the eight crater lakes but an enabler of their congress on Philippine lakes. Los Baños, Philippines: governance. Thus, improving them is pivotal with SEARCA. the now universally acknowledged view that many Aralar, M. L., Borja, A., Palma, A., Mendoza, M., issues on water resources are largely associated with Ocampo, P., Manalili, E., & Darvin, L. (Eds.). (2013). failure of governance (United Nations Educational, Lakecon2011: Second national congress on Philippine lakes - Building on the pillars of integrated lake basin Scientific and Cultural Organisation, 2012; World management. Los Baños, Philippines: PCAARRD. Water Council, 2012, United Nations World Water Barangay Tadlac. (2015). Barangay profile: Tadlac Lake Assessment Programme, 2015). On the whole, the nature park. Los Baños, Philippines: Municipality of assessment underscores the long-term commitment Los Baños. The Administrative Performance of the Laguna Lake Development Authority on the Small Lakes of the Laguna de Bay Region, Philippines 41

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