The Mangatarem Experience: Expansion of PA thru Critical Habitat Establishment

The Mangatarem Critical Such a conservation area is very Habitat (CH) in important not only to the municipality but to Mangatarem, Pangasinan the whole of Pangasinan because it is the was declared by the largest remaining forest in the province. The Municipal Local Mangatarem CH has an approved management plan and the management Government Unit (MLGU) structure is already in place. The MLGU has as a Wildlife CH through opted to establish this conservation area based Sangguniang Bayan on the mandate of R.A. 9147 or the Wildlife Resolution No. 49-2013 on Resources Conservation and Protection Act. August 28, 2013. The conservation area declared as a CH was originally identified under the Forest Land It has an area of 5,063.47 has., Use Plan (FLUP) of Mangatarem approved by almost thrice as large an expansion the Sangguniang Bayan in 2010. of the existing protected area in the municipality, the Manleluag Directly managing the CH is the Critical Springs Protected Landscape Habitat Management Board created under the (MSPL), which is only 1,935.17 has. FLUP Steering Committee, which was The current total conservation area mandated through the Co-Management of Mangatarem is 6,998.64 has., Agreement signed between the Mangatarem which is half of the total forestlands LGU and the Department of Environment and of the municipality. Natural Resources (DENR). The Mangatarem CH lies in the northeastern Conservation Objectives part of the Zambales mountain range, which is a Key Biodiversity Area (KBA). The Zambales The move of Mangatarem mountain range is among the few remaining LGU and DENR to declare the tropical rainforests in the Philippines that serves Mangatarem CH has been borne as a barrier against environmental disasters, out of the need to protect the particularly typhoons. This rainforest harbors remaining forest cover from critical watersheds for the provinces of further destruction brought about Pangasinan, Zambales, and Tarlac. Being a KBA, by human activities from the Zambales mountain range is the habitat of surrounding communities. some endemic, unique, and threatened species of plants and animals like the scale-feathered The forests and forestlands of malkoha (Phaenicophaeus cumingi), rufous hornbill Mangatarem have been degraded (Buceros hydrocorax), rufous paradise flycatcher with logging, land conversion, (Terpsiphone cinnamomea), whiskered pitta (Pitta mining, kaingin, tree cutting for kochi), Philippine frogmouth (Batrachostomus charcoal and fuelwood septimus), cloud rat (Phloeomys sp.), yellow-faced production, and gathering of non- horseshoe bat (Rhinolophus virgo), and common timber products for domestic tree frog (Polypedates leucomystax). consumption and trading. Commercial logging since the The Mangatarem CH is adjacent to the 1930s has converted vast tracts of existing forest protected area within the forestlands into grasslands. It municipality, the MSPL. The entire forests and may have stopped in the late 70s forestlands of Mangatarem, which covers an area but tree cutting continued for local of 13,863.61 hectares out of the total land area of use and intermittent trading. 31,011 hectares of the municipality or 44.7%, is DENR has launched reforestation the largest remaining forest in the province of programs since the 80s and has Pangasinan and in the whole Zambales issued tenurial instruments to Mountains KBA. The CH covers 5,063.47 has., several entities and individuals, thrice as large as MSPL which is 1,935.17 has. The all for the purpose of improving total area now protected for conservation vegetation and forest cover. comprises half of the entire forestlands of However, very minimal Mangatarem. The forest cover of MSPL is in fact improvement was derived from much less dense than the newly declared CH. this, outweighed by the extractive activities of forest-dependent Directly dependent on the forest resources communities that further of Mangatarem for their livelihood are residents degraded the forestlands. from seven barangays surrounding the Mangatarem CH, namely Cacaoiten, Cabaluyan As degradation continued, 2nd, Lawak Langka, Malabobo, Catarataraan, water resources for crop irrigation Calomboyan Sur, and Pacalat, having a total and domestic use diminished population of 6,758 (Municipal Planning and while flooding became common Development Council Data 2013). Utilization of as rivers easily overflowed even forest resources, however, is not limited to them with moderate rains. Soil erosion but to other communities around the entire forest from the uplands silted the rivers area, which comprise a total of 13 barangays, as and creeks. Landslide-prone well as businesses and consumers who patronize areas in Cacaoiten became more or even finance forest extractive occupations. evident and hazardous to nearby Mangatarem forest serves as a watershed that settlements. Grasslands became provides irrigation water for vast agricultural wider without productive use, not lands in the municipality and other towns within even for conventional agriculture. the province of Pangasinan and the adjacent One impact of forest degradation, towns of Tarlac. The upland communities also however, was continuously derive water from springs and rivers for their overlooked – its impact on domestic use. biodiversity. The fact that many of these species are globally threatened justifies the need for declaring the Mangatarem CH and for managing and conserving Mangatarem forest since its function as a habitat is as equally important as its watershed function. Although considerable conservation measures were done and still exist in the area, threats to the wildlife are still evident. Pressures such as logging, kaingin, and charcoal making cause rapid deterioration of the various habitats present in the forest. Hunting or collection of wildlife for food and pet trade poses a direct effect on species, thus causing their population to dwindle.

Reforestation in Mangatarem instituted in the past decades may have improved forest vegetation a bit, but it has not Batrachostomus provided protection to the remaining septimus wildlife because the trees that were planted (Philippine frogmouth) were exotic species, most of which were not compatible with the endemic flora and fauna. Results of a biophysical assessment in June 2012 showed that To address this threat to biodiversity Mangatarem forest holds significant and revive, or at least arrest, the diminishing population of flora and fauna. A total ecosystem services of Mangatarem forests, of 43 tree species was recorded, 14 of the MLGU and DENR, in partnership with which are globally threatened with 5 Haribon Foundation, formulated the FLUP that are endemic, namely tanguile of the municipality that was finally adopted (Shorea polysperma), kamagong by the Sangguniang Bayan in 2010. Through (Diospyros philippinensis), dagang the FLUP, a Co-Management Agreement was (Anisoptera aurea), palosapis (Anisoptera immediately forged between the LGU and thurifera) and white lauan (Shorea the DENR to jointly manage open access and contorta). A total of 61 bird species unclassified forests and forestlands. The Co- belonging to 29 families was recorded, Management Agreement provided for the with 3 species listed as vulnerable formation of a Steering Committee [Philippine duck (Anas luzonica), composed of multi-sectoral stakeholders flame-breasted fruit dove (Ptilonopus whose primary responsibility is to ensure marchei), and Philippine eagle-owl the implementation of the FLUP. Among (Bubo philippensis)], while two are near- the functions of the Steering Committee is threatened [Philippine scops-owl “to set aside conservation areas and develop (Otus megalotis) and Northern rufous appropriate management plans over hornbill or kalaw (Buceros hydrocorax)]. portions of Mangatarem forest that are The latest biophysical survey in known to harbor unique habitats and October 2013 recorded 47 species of threatened flora and fauna as well as over terrestrial vertebrates, 36 species of areas that deserve conservation, consistent birds, and 46 species of trees. Faunal with national policies, rules, and endemicity was high at 60% for the regulations.” The Steering Committee, bird species, with 21 of the 36 found therefore, was able to decide to push for the only in the Philippines. Three declaration of the FLUP-identified forest endemic bat species were also conservation area of 5,743 hectares, which is recorded. Fifteen of the 46 tree species part of the 9,754.61-hectare open access are categorized as globally threatened. forestlands. FLUP Steering Comm meeting

Processes Undertaken in The conservation area Establishing LCA Good Practices indicated under the FLUP was the subject of the Steering The LGU of Mangatarem is the lead actor in Committee’s decision making on establishing and managing the Mangatarem what management option to Critical Habitat. Having no Municipal adopt. This area was previously Environment and Natural Resources Office proposed by the MSPL Protected (MENRO), the Municipal Planning and Area Management Board to serve Development Office, in close coordination with the as an expansion of the protected Sangguniang Bayan Committee on Environment, area. However, under the served as the coordinating office for all National Integrated Protected environment-related activities of the municipality. Areas System, the process will The system of coordination was institutionalized take long, thus, to immediately with the creation of the FLUP Steering Committee declare the area for conservation in June 2011, mandated by a Sangguniang Bayan and protection, other options had resolution. The creation of the Steering Committee to be considered. was provided for under the Co-Management Agreement between Mangatarem LGU and DENR With guidance from the signed in May 2011. The role of DENR under this DENR provided through the New Agreement is to provide technical assistance to the Conservation Areas in the LGU, communities, and concerned stakeholders, Philippines Project (NewCAPP) particularly to the Steering Committee, in that was locally implemented by implementing the FLUP and the subsequent Haribon Foundation, the Steering management plans it will approve. Chaired by the Committee decided to pursue the Municipal Mayor and co-chaired by the DENR declaration of the conservation Regional Executive Director, the Steering area as a CH. DENR led the area Committee is composed of Pangasinan PENRO, delineation and mapping. DENR, Dagupan CENRO, Sangguniang Bayan Haribon, MLGU, Barangay LGU Chairpersons of Committees on Environment and (BLGU), and people’s Land Use, Provincial Planning and Development organizations (POs) joined in the Coordinator, Municipal Planning and conduct of the biophysical survey, Development Coordinator, MENRO, Municipal community awareness raising Agriculturist, Punong Barangays of 13 forest-edge activities on CH establishment, barangays, Supervisor of School District II, Haribon and management planning. Foundation, and PO representatives. Among the functions of the Steering Committee are to set aside The MLGU created the TWG conservation areas and to develop appropriate for CH management planning and management plans, over portions of Mangatarem provided counterpart resources forests that are known to harbor unique habitats during mapping, biophysical as well as threatened flora and fauna that are surveys, community IECs, and consistent with national rules and regulations. planning workshops. The community POs and Area Identification, Mapping, Bantay Gubat participated in all and Decision Processes aspects of management planning, having understood and The Mangatarem CH was first identified as appreciated the move for CH a conservation area under the FLUP. The basis establishment in Mangatarem. for thes were the biophysical and economic They prepared for the eventual surveys conducted in 2006 by Haribon. The strict enforcement of forestry laws estimated remaining forest cover back then was that would surely affect forest- 6,500 ha, 1,935 of which was already a protected dependent livelihoods. The area, the MSPL. To legitimize and pursue a Bantay Gubat became active in comprehensive management of the conservation community information forest, the Steering Committee proposed as early dissemination of forestry law as October 2011 for its declaration and violations and penalties, establishment as a CH. Timely enough, specifically targeting those NewCAPP was being implemented in households that are known Mangatarem by the then Protected Areas and charcoal makers and forest product Wildlife Bureau (PAWB) of the DENR together gatherers, coupled with regular with Haribon as its local resource partner, patrolling and monitoring of illegal providing the Steering Committee and the forest activities. MLGU with technical advice in selecting the best management options for the conservation area. Haribon led in the capacity This resulted in the decision of adopting the CH, building of community in accordance with R.A. 9147, otherwise known organizations and the Steering as the Wildlife Resources Conservation and Committee through trainings, Protection Act wherein declaration and seminars, and field exposures. establishment can be initiated by an LGU. Haribon accessed other resources from foreign support groups to In November 2011, the boundary support these interventions, delineation of the conservation area was done including those for livelihood and by DENR-LEP, MLGU, Haribon, and forest restoration projects. community representatives, which covered an expanse of 7,474 has. Before the end of the The schools also played an month, the Sangguniang Bayan passed a important role in IECs, which resolution asking DENR Secretary Ramon Paje became venues for forums and to declare or cause the declaration of 7,474 exhibits that drew substantial hectares of forest as a CH. However, the Steering participation of students and Committee and the MLGU decided to limit the teachers, raising their awareness on proposed site to 5,743 hectares as originally the importance of Mangatarem identified in the FLUP because the rest of the forest in biodiversity conservation area belonged to the provinces of Zambales and and in mitigating climate change. Tarlac based on present political boundaries. In the first quarter of 2012, however, the MLGU Finally, by early proposed to excise a portion of the restoration site within 2013, the area for the CH the conservation area to be used as napier plantation for and napier plantation was its Renewable Energy Project. This proposal first had to settled. The FLUP be settled by DENR given that the PAWB/Protected Area Steering Committee came Wildlife Coastal Zone and Management Services up with resolutions in (PAWCZMS) had its own counterproposal to utilize other February 2013 urging the areas for such a project. Sangguniang Bayan (SB) to legislate the necessary Given the unsettled issue, the LGU did not pursue the resolution/ordinance for CH declaration in 2012 until a final decision was rendered the declaration of the CH on the LGU proposal. That year, however, community area and for an FLUP awareness-raising continued and a biophysical survey was amendment allocating done. Focused group discussions on the socio-economic areas for napier conditions of the barangays surrounding the CH area were production excised from conducted, generating recommendations on the the forest conservation conservation and development strategies to be undertaken. area. On 28 August 2013, Likewise, community organizations in surrounding the Sangguniang Bayan barangays were given trainings on livelihood and of Mangatarem issued organizational development, which were led by Haribon. Resolution 49-2013 The Bantay Gubat organization, with its members coming declaring the CH covering from those barangays, was active in its forest patrolling 5,063.47 hectares, activities. The Municipal and Barangay LGUs provided including the buffer zone funding as well as technical and legislative support to of 100 meters separating livelihood and law enforcement activities in these it from the napier communities. plantation area. CH Management Planning Process Post-planning

Meanwhile, management planning for the CH The Sangguniang Bayan proceeded on. A TWG was formed by the FLUP approved the CHMP on Steering Committee, backed up by an Executive December 11, 2013 and issued Order issued by Mayor Teodoro Cruz on 14 August a resolution to this effect on 2012. The TWG formulated the planning modules December 23. All requirements and guidelines in January 2013 and proceeded with and documents, including a the different workshops based on the modules agreed draft Department Admistrative upon. Module 1 (Situational Analysis for Order (DAO), were forwarded Mangatarem Critical Habitat) was started by the TWG to the DENR Region 1 in in January 2013 and completed in another workshop January 2014 for endorsement in July. Module 2 (Cross Visit to established Critical to the DENR Secretary for the Habitat), however, was not undertaken because the latter’s counterpart action in original target site, the Las Pinas-Paranaque Critical declaring the Mangatarem CH. Habitat and Ecotourism Area, was a mangrove area, while the second site in Adams, Ilocos Sur was still To generate the resources in the process of declaration. Module 3 (Management needed for implementing the Planning – Vision, Mission, Goals, and Strategies CHMP from 2014 to 2018, a Formulation) was conducted in the last week of Business Planning Workshop September 2013. Module 4 (Public Consultations) was was conducted by the Steering conducted from October to November. Module 5 Committee wherein potential (CHMP Writeshop) was done in the first week of internal and external funding November 2013. sources were identified. One of the possible fund-generating Technical assistance was provided to the TWG projects identified that could be through NewCAPP. The data utilized in preparing promoted was local ecotourism the Critical Habitat Management Plan (CHMP) are outside of the CH. User fees or products of participatory processes gathered and environmental fees can be obtained by the TWG from secondary data generated charged and the income from the MLGU and DENR Region 1 and on field data derived will be used to fund that had significant contributions from the local some of the CHMP activities. communities and from actual observations during the All the resources that will be biophysical survey conducted as part of Important generated are meant to Biodiversity Area Monitoring System. Maps were complement the funding to be prepared by DENR-LEP out of the boundary allocated by the MLGU and delineation conducted in November 2011 and the BLGUs from its Internal available data that were validated in 2012 delineating Revenue Allotment (IRA)and the buffer zone, producing the thematic maps. other internal sources.

Bantay Gubat meeting with MLGU &BLGUs Community consultation on CH declaration

Innovative Mechanisms The first year of the NGP implementation in 2011 was tainted with The process of establishing and irregularities, especially because the declaring the Mangatarem CH took supply of seedlings and planting materials years, but along the way, environmental was undertaken by outside contractors. awareness and consciousness was Several negative impacts were identified, instilled not only within the LGU, but namely: (1) externally sourced seedlings more importantly, among the rural might imperil the natural characteristic of communities surrounding the forest and Mangatarem forest, including its among other institutions within the biodiversity; (2) possible contamination municipality. with viruses and other pests and diseases; (3) waste of public funds; and (4) failure to This consciousness has been attain the very essence and objective of the instrumental for the gradual NGP, which is local poverty alleviation and institutionalization of social structures forest regeneration. like the FLUP Steering Committee, which played a significant role in the decision- In 2012, the Steering Committee making process of the CH declaration initiated its own investigation on the NGP and establishment. Being multi- implementation, and therefrom, formulated stakeholder in nature, this served as guidelines for local NGP implementation. venue for in depth and participatory Afterwards, the Steering Committee had a discussions of several issues concerning dialog with DENR National, resulting in the conservation, sustainability of participation of POs in all stages of the NGP livelihoods, and forest law enforcement, implementation. With this full involvement among others. One concern the Steering from seedling propagation, plantation Committee struggled with was the local establishment, and plantation maintenance, implementation of the National local communities generated additional Greening Program (NGP), which would income for their families while a significant contribute not only to the restoration of reduction in extractive forest activities was forestlands surrounding the Mangatarem observed, particularly within the CH area. CH, but more significantly, to the The POs also generated savings from the survival of forest dependent families and NGP earnings, which were used to establish to the capacity building of local POs. new livelihood projects. Sustainability Mechanisms PO strengthening had an impact on forest management as they were able to The establishment and declaration of expand pilot livelihood projects, which the Mangatarem CH by the MLGU, are necessary to gradually wean them complete with a CHMP and a management away from forest extractive activities. To structure, are the sustainability strengthen the community and enhance mechanisms installed for the LCA. The coordination towards environmental CHMP illustrates the strategies and policy protection and sustainable livelihood, directions for the next five years. seven POs and the Bantay Gubat were organized into a federation, through The process of CH establishment Haribon’s intervention and with the provided the MLGU, BLGUs, local support of the LGU. Capacity building communities, and stakeholders with a of POs made them confident to certain level of environmental undertake forest restoration activities consciousness that has been instrumental through the NGP and other projects to the gradual institutionalization of social supported by private institutions. structures like the FLUP Steering Committee. Despite a lack of funding, the Trainings provided to BLGUs, creation of MENRO will be pursued in MLGU, and the FLUP Steering 2015, which will serve as a coordinating Committee were translated into the office to ensure the implementation of the active support of LGU in terms of FLUP and CHMP. funding for forest conservation activities of POs, the Bantay Gubat, and the The Bantay Gubat formation is another community, as well as legislation for significant sustainability mechanism forest conservation. The BLGUs have supporting forest management. Despite also allocated annual Forest Funds for the absence of deputation in its early forest management, utilization of which existence, their presence has been felt in the is for POs, Bantay Gubat operations, and community because of their active community nurseries. Environmental monitoring and patrolling operations. governance has been put into practice by Among their initiatives is the apprehension the LGU. Motivation was turned into of illegal loggers in barangay Lawak action even before the formal CH Langka. Sustained community information declaration, manifested in defining the dissemination through house-to-house conservation strategies under the CHMP, visits also contributed in deterring further which was not opposed by the illegal activities in the forest. community.

Bantay Gubat patrolling Lessons Learned At the level of the Barangay Councils, there was no difficulty in encouraging them to A. Success Factors provide support to POs and to Bantay Gubat activities. In 2010, the partnership of Mangatarem LGU with Haribon was Partnership among sectors was also already in existence and only became established. One case is with the Philippine stronger and productive through the Army wherein the local command post constant and open discussions provided active support specifically for forestry between and among key people of the law enforcement. They agreed to be part of the institutions even in between formal advisory committee of the Bantay Gubat meetings. The MLGU has been vocal organization and participated in actual in its acceptance of establishing and operations. With the academe, the schools expanding the protected area in initiated activities in support of forest Mangatarem forest ever since the conservation. With the media, activities and implementation of NewCAPP in the updates on forest conservation initiatives were municipality. The MLGU and BLGU regularly published over local newspapers. support in terms of funding to the Bantay Gubat and the POs was The partnership within the communities for provided. Necessary legislations forest restoration and protection was also were passed by the Sangguniang strengthened as POs and Bantay Gubat took Bayan to legitimize the formation of active part in forest patrolling, monitoring, and the Steering Committee and to in implementing the NGP. The POs and the mandate the Barangay Councils to Bantay Gubat had a smooth partnership with allocate funding for forest the BLGUs and MLGU, both abiding to their management activities called Forest commitment of providing funding support to Fund. The support and participation the forest patrolling and IEC activities of the of the MLGU and BLGUs in all Bantay Gubat. In lieu of the absence of activities and processes of the CH deputation from DENR, the LGU formally gave establishment continued in 2012 them recognition through a Sangguniang Bayan despite the differences in opinion over resolution. the napier plantation project. Nevertheless, in 2013, relationships Moreover, public consultations held for the became smoother with the settlement CH declaration and management planning were of this issue. The positive partnership significant in serving as avenues for dialog outlook was among the success between the LGU and the community. There factors, manifested by the immediate were no longer major disagreements between passage of resolutions from the stakeholders regarding environmental Steering Committee followed by the protection, unlike in the previous years when official declaration of the CH by the resistance coming from forest-dependent Sangguniang Bayan of Mangatarem. families had been strong. The support given by international Another issue that affected the CH institutions accessed by Haribon has declaration process was the irregularity in contributed to some crucial activities, the 2011 NGP implementation that had thereby facilitating the capacity building caused tension among stakeholders. In the in community law enforcement, public initial stage of the NGP in Mangatarem, IEC, sustainable livelihood, and PO DENR had no coordination with the LGU, capacity building. These institutions are which was supposedly done because the the Toyota Environmental Grant Program Co-Management Agreement mandated and Keidanren Nature Conservation Fund. such. The DENR should have clearly presented the details of the NGP to the B. Challenges and Issues FLUP Steering Committee, but instead of doing so, the local DENR offices started One major factor that delayed the implementing the NGP. The LGU only declaration of the Mangatarem CH was the learned about it when feedback from the differences in opinion within DENR over barangays arose that there were the proposal of the MLGU to utilize the irregularities observed. The issue was forest restoration site within the addressed by the Steering Committee, and conservation area for napier plantation in eventually, a dialog with DENR Asec its biomass-to-energy project. It took one Mendoza, who was then the NGP national year before the issue was settled. Officers coordinator, resulted in a settlement. of DENR at different divisions had no unified position over the napier project. At the level of community partners, The DENR Forest Management Service demoralization had been experienced by allowed it while PAWCZMS did not. To the Bantay Gubat due to the utter lack of come up with a win-win solution for the support from DENR. Partnerships turned CH area and the napier plantation site, the sour as the Bantay Gubat got demoralized Mangatarem LGU accepted the in 2012 when their application for recommendation of PAWCZMS to get a deputation was not acted upon by DENR. portion within the conservation area on Haribon persistently followed-up and condition that a buffer zone must be discussed with DENR the Bantay Gubat established in between. Then DENR deputation. Finally, by the 4th quarter of Region 1 delineated the proposed napier 2013, the DENR conducted the training of plantation site and the buffer zone. In Wildlife Enforcement Officers (WEOs) and February 2013, the Steering Committee then eventually issued the deputation of finally came up with a resolution for the the Bantay Gubat as WEOs early in 2014. establishment of the Mangatarem CH, Earlier in 2012, the MLGU, through an SB covering 5,063.66 ha including the 97.524- resolution in 2012, had rendered formal hectare buffer zone, which was endorsed recognition to the Bantay Gubat, in lieu of to the Sangguniang Bayan for approval of DENR deputation, and provided them the amendments to the FLUP. support funds for operation. Recommendations for Upscaling LCAs

The strategies and activities stipulated in the CHMP are meant to address the gaps in policy, institutional capacities, community livelihoods, law enforcement, etc. Local DENR offices are recommended to render close coordination and technical assistance to ensure the implementation of the CHMP. The Bantay Gubat as WEOs also need to be strongly supported in all levels – from capacity building to operations to pursuing legal actions against perpetrators.

Likewise, DENR participation in the Steering Committee must be substantial since it is a co- chairmanship body with the MLGU. Their active participation will ensure balanced decisions within the Committee, which is the appropriate venue for providing technical guidance to the LGU on forest management.

Differences in opinion between divisions within DENR hamper its position on issues and in the performance of its role in providing technical guidance to the LGU as mandated in the Co-Management Agreement. Thus, it is recommended that DENR internally settle their differences and come-up with a unified position on issues confronted in forest management so that the partnership for forest conservation will be effective.

It is not just DENR that must provide support to LGUs in environmental governance but the DILG and other agencies as well. Mangatarem LGU still needs close guidance and technical assistance to ensure the management and conservation of Mangatarem CH and the implementation of the FLUP and Co-Management Agreement.