An assessment of the CRM capabilities of three ...

WPU-Technical Report, 2007: CRM assessment: Hansen, Song, Gonzales & Becira, March 16, 2007

CRM Capabilities of Local Government Units within Palawan, Philippines: an assessment in Municipalities of Balabac, Roxas, and El Nido

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Jonathan G. Hansen,1Andrew M. Song, 2Benjamin J. Gonzales & 2Joel G. Becira 1

Western Philippines University Palawan, Philippines 2 Marine Institute, Memorial University of Newfoundland Newfoundland, Canada

Abstract The need for Coastal Resource Management (CRM) in the Philippines has grown steadily in the past few decades, as anthropogenic activities have begun to take a toll on the once pristine natural environment. Understanding this, the National Government passed legislation that empowered the Local Government Unit (LGU) with full jurisdiction over the CRM activities within the Municipality, known as the Local Government Code (RA7160) of 1991. This study aimed to assess the CRM capabilities of three municipal LGUs within Palawan: Balabac, Roxas, and El Nido. This was achieved by using a series of devised indicators which attempted to gauge technical competence, financial capability and political will of the LGUs. These indicators were placed in the form of a questionnaire and administered to selected representatives within each municipality via personal interviews. It was found that all three municipalities lacked, both, the necessary technical competence and financial capability, however it was the absence of substantial political will which ultimately governed the current deficiency of CRM programs within the municipalities.

Keywords; CRM indicators, Palawan, Local Governance

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Introduction The

need

successful

for

active

coastal

and

resource

management (CRM) programs in the Philippines has never been greater. The wide spread acceptance

of

sustainable

fishing and farming practices is no longer just desired, but required. Being an archipelago nation

comprised

individual

of

7,107

islands,

the

Philippines depends greatly on its seas for both livelihood and sustenance

(DENR

et

al.,

Figure 1. Map of Palawan and the location of Local Government Units, showing the three study municipalities.

2001). The accumulation of environmentally detrimental anthropogenic activities in recent years has placed the Philippine environment under severe stress. In order to counteract these effects, the National Government passed legislation in 1991 that would give more power and coastal management jurisdiction to the Local Government Unit (LGU) within the municipality. This piece of legislation known as the Local Government Code (LGC, RA7160) created opportunities for additional policies which would reinforce and strengthen this power, such as the Fisheries Code of the Philippines of 1998 (RA 8550). It presented the LGU with the task of managing all waters within the newly extended offshore 15 km limit. This devolution of power was intended to help mitigate socioeconomic and environmental stress by placing a greater emphasis on environmentally sustainable practices at the

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community level. The ideology behind this transfer of power was that, the LGU would claim more responsibility and ownership of CRM projects within their regions and in turn achieve greater results (Pagdilao et al., 2002). Coastal Resource Management initiatives in Palawan, which included interventions for local governments, of an academic was recorded by Salva and Gonzales (1997). This study aimed to assess the CRM capabilities of three municipal LGUs within Palawan: Balabac, Roxas and El Nido by means of indicators which attempted to gauge technical competence, financial capability and the political will of the LGUs.

Methodology The selection criterion for these specific municipalities involved geographic location, perceived level of CRM activities, unique socio-economic importance, and existing relations with the Western Philippine University (Figure 1). Balabac is an island municipality located just off the southernmost tip of mainland Palawan Philippines (Figure 1). It is home to a plethora of unique and endangered wildlife species, most of which have yet to be studied. Geographically, it sits in the middle of a highly traversed shipping corridor yet remains astonishingly rural in terms of development. Due to its relative inaccessibility and perceived reputation, Balabac is often overlooked by both national and international aid agencies (Dygico et al., 2006). Roxas is a municipality located on the Sulu Sea side of central Palawan Philippines (Figure 1). It is a region with islands that contain unique geographical features which cater to endangered species. It is relatively developed in relation to Balabac and far more accessible in terms of travel (Acedera et al., 2003). El Nido is a municipality found on the northwestern coast of Palawan, Philippines. It encompasses several islands as well as the northern tip of mainland Palawan. It has one of the most scenic landscapes and seascapes in the

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country and plays host to several endemic and endangered species. Due to its renowned tourism appeal, El Nido has been at the forefront of tourism development in Palawan (Rowthorn et al., 2006).

In order to consistently evaluate each respective municipality a series of indicators were developed (Table 1). These indicators were placed in the form of questions and administered via personal interviews, which took place in January and February of 2007. The respondents chosen for interviews were LGU officials, local Barangay officials and Non-governmental Organization (NGO) personnel. In the municipality of Balabac, five respondents were interviewed, two from the LGU; the Municipal Administrator and the Municipal Environment and Natural Resource Officer (MENRO), one Barangay Councillor from Catagupan, one Barangay Captain from Poblacion IV and one NGO representative from the World Wildlife Fund (WWF). Six respondents were interviewed in the municipality of Roxas. Three were from the LGU; the Municipal Environment and Natural Resources Officer (MENRO), the Municipal Planning & Development Coordinator (MPDO) and the Municipal Agriculture Officer (MAO), two Barangay Captains; one from Caramay and one from Poblacion II and one NGO representative from the World Wildlife Fund (WWF). Six respondents were interviewed in the municipality of El Nido. Four were from the LGU; the Vice-Mayor, the Municipal Planning & Development Officer (MPDO), the Municipal Environmental Desk Officer (MEDO) and the Municipal Aquaculture Technician (proxy for MAO), and two Barangay Captains; one from Masagana and one from Buena Suerte. A WWF representative provided literature that posed as an indication of the NGO (WWF El Nido) involvement in El Nido in lieu of a personal interview with an El Nido Foundation representative who refused to comment. The information gathered from these interviews was cataloged in order to provide insight

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as to the selected LGU’s CRM capabilities, specifically regarding technical competence, financial capability, and political will.

Indicators The indicators identified for this study were developed empirically based on preliminary literary research including Bunce and Pomeroy (2003), and an acquired understanding of local governance. Collectively, they aimed to provide a comprehensive indication of the technical competence, financial capability, and political will of the selected LGUs in relation to CRM. Each indicator was further expanded into a series of applicable questions that maintained the original theme. These questions were then subjected to three unique groups within each municipality. The questions were first directed at selected LGU officials. Applicable questions were then created and directed at Barangay officials. Finally, all relevant questions were posed to NGO personnel in order to capture the NGO’s perspective of the LGU’s CRM abilities.

Results Balabac When interviewed, the LGU representatives expressed a relatively high knowledge of current CRM projects within the municipality. When asked about the current availability and sustainability of CRM funding, one representative expressed a very low availability and in fact, a gross insufficiency of funds. When asked questions about the internal infrastructure of the LGU the representatives demonstrated a mild comprehension of departmental roles concerning CRM. In terms of law enforcement, it was expressed that the municipality currently has very low law enforcement capability. With regards to the LGU’s perceived commitment level to CRM projects, one representative rated it very high however the other regarded it as not quite high enough. When asked about the

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Local Government Code (LGC) of 1991, both respondents stated that was a positive and beneficial policy development.

The Barangay representatives both acknowledged past CRM projects within their respective Barangay. Both respondents also mentioned the presence of a Barangay resolution that corresponded with the CRM project, demonstrating a high level of CRM knowledge. It was also stated that, the LGU has a very low (minuet) role in barangay initiated CRM projects. One of the barangay representatives mentioned a complete lack of law enforcement presence, and expressed a strong desire for a Bantay Dagat in the future.

The NGO representative for Balabac declared there to be a very high CRM commitment level within the LGU and reported that rural barangays were eager to receive support and assistance. However, it was perceived that the LGU’s ability to sustain CRM projects after the NGO departs was low, noting a very low inventory of CRM equipment. When asked about the LGC of 1991, the NGO representative believed it to be a positive and beneficial policy development.

Table 1. LGU CRM Capability Indicators used in this study 1. The knowledge level of the LGU officials in CRM activities 2. The extent of CRM action 3. Legal basis enacted 4. Financial capability and sustainability 5. Institutional set-up within the LGU in handing CRM projects 6. Equipment and personnel adequacy 7. Law enforcement capability and effectiveness 8. Political will and interest 9. Support to the underlying policy development (LGC) 10. LGU’s role/contribution to NGO and Barangay CRM projects 11. Ability of the LGU to sustain the initiatives after the NGO project expires

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Roxas When interviewed, all three representatives from the LGU were highly aware of CRM projects within the municipality. Yet, the representatives made note of a low occurrence of CRM projects within the municipality. It was also expressed that there was a severe lack of both departmental organization and CRM equipment. However, the representatives ranked the LGU’s ability to continue CRM project initiatives as high. When asked about the LGC of 1991, all three LGU officials again had similar comments depicting it to be a timely and effective policy development.

The barangay representatives noted that the LGU had a relatively high political will concerning CRM. It was also mentioned that the LGU had only medium funding capability and therefore a minor role in barangay initiated CRM projects.

The NGO representative for Roxas expressed that the LGU had a high level of CRM knowledge, yet low political will. It was also mentioned that the LGU had a low level of involvement with current CRM projects within the municipality. The representative also expressed that the LGU’s ability to takeover and sustain CRM projects was low.

El Nido The LGU representatives of El Nido displayed a high level of CRM related knowledge, yet a low level of current CRM activity within the municipality. The representatives also noted a low level of CRM related equipment, but high enforcement capability. This was attributed to the LGU’s high political will to enforce existing bylaws and ordinances. All representatives of the LGU were in high agreement with the LGC of 1991.

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The barangay representatives of El Nido had a high level of CRM knowledge, as well as a high level of CRM involvement within the municipality. It was mentioned, however, that the level of CRM equipment available was low, yet enforcement capability was high.

The information provided concerning the NGO’s involvement in El Nido depicted the LGU to have a very high level of CRM knowledge as well as the political will to collaborate (Salao, 2005).

Discussion The results showed that similar themes were evident among the municipalities. Despite drastic differences in economic development and geographic location it was determined that, all three municipalities (Balabac, Roxas and El Nido) suffered from the same three complications. The complications were categorized as a lack of technical competence, financial capability, and overall political will concerning CRM.

Each municipal LGU demonstrated knowledge of, and a recognition of the need for active CRM within the municipality. Almost all the interviewees were familiar with the concept of CRM and identified the need for several large-scale and effective CRM programs. It was also found that each municipality had a strong willingness to cooperate with NGOs and other partners, if given the opportunity. Several NGOs reported successful working relationships with the LGUs when attempting to collaborate. However, it was also determined that the LGU Officials of each municipality would only show interest in CRM projects if prompted by an external agency. Reasons for this relate to a very real lack of funding available for CRM within the municipal LGU. The three LGUs commonly claimed that there was insufficient funding available for other basic services such as clean water and health facilities, let alone proper CRM programs. However, it is noteworthy, that some LGU officials disagreed and stated that there is enough funding for minor CRM projects, but the problem lies in its allocation within the municipal government. The

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confusion of funding allocation can be attributed to ambiguous departmental obligations and jurisdiction. Although collaboration between technical offices was desired, all three municipal LGUs demonstrated the need for a lead office that would take full accountability of CRM projects. Unanimously agreed among all the interviewees was the insufficient and inadequate inventory of equipment required for effective CRM. In association to the lack of equipment was the lack of competent or properly trained personnel. Compounding the situation in each municipality was the ever-present possibility of CRM project rejection or discontinuation due to political instability, as the administration tends to change with each election. It was widely expressed that active CRM projects were at the mercy of the current political leadership, and often priorities changed accordingly.

NGO involvement In each of the three municipalities examined, NGOs were present and attempted to push for a wider acceptance and establishment of CRM programs. In response, the respective LGUs were generally receptive to the NGOs’ work and willing to provide the counterpart effort. In Balabac, there were no substantial CRM projects prior to the arrival of the NGOs. At the time of the study, a large international NGO was active in Balabac, and the LGU was pleased with the project results. However, reservations were made as to the LGU’s ability to sustain the project after the NGO departs. In Roxas and El Nido, the mood was similar, and the LGUs appreciated the NGO’s contribution to the municipality, yet concerns were raised as to the LGU’s ability to sustain the project momentum after the NGO’s term expires. These concerns reinforce the notion that all three municipalities rely too heavily on NGOs to initiate, and sustain successful CRM projects.

Barangay (Village)-level CRM Several barangays included in this study, have demonstrated relative success in promoting and implementing CRM projects within their community. The information gathered from the selected

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barangay officials indicated that the reason for the mild success was due to the determination of the barangays to seek support from external agencies. Different barangays exercised different methods of obtaining NGO or academic institutional support, ranging from writing proposals to advertising unique features of their local environment. This ambitious spirit to realize successful CRM projects is a stark and refreshing contrast to that of the studied LGUs. Each of the barangays examined stated a need for this, due to the absence of support from the LGU. The barangay officials noted a severe absence of technical competence, financial capability, and political will within their respective LGU.

Recommendations The recommendations were designed with the intent of facilitating the necessary changes in technical competence, financial capability and political will within the studied municipalities. Outside agencies such as NGOs, academe, foreign and domestic donor agencies and intergovernmental organizations would play a significant role in bringing about the desired changes. The introduced programs offered by outside agencies should emphasize institutionalized and continuous CRM initiatives. Ultimately, however, it is up to the municipal LGU to demonstrate the necessary willpower and forge strategic partnerships that will contribute to successful and sustained CRM programs within the municipality. Figure 2 provides a visual interpretation of the recommendations, potential outcomes and desired impacts.

Four recommendations were made. First, the LGU should move towards creating a less ambiguous CRM hierarchy and a more obvious division of roles among the various LGU technical staff. In addition, this course of action should also encourage a stricter adherence to fund sourcing and allocation. Secondly, NGOs and other outside agencies that are operating in the municipality should intensify CRM education and information campaigns among the general public and within the LGU. Although CRM knowledge was relatively high, a potential outcome of

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increased awareness would be a more CRM conscious public, who elects LGU officials more inclined to CRM. Thirdly, NGOs and other outside agencies, including academic institutions (Salva and Gonzales, 1997), should put more focus on the capacity building and organizational structure of the LGU staff. This action should help increase the technical competence of the LGU staff and clearly define an entity that would focus on CRM. Lastly, NGOs and other outside agencies should work to increase the success of small scale CRM projects as a demonstration to help build momentum for LGU initiated CRM projects. This could be achieved by having the NGO or other external agencies work in conjunction with the LGU on short-term CRM project that obtain immediate visual and or economic results. The potential outcome should be an instilled desire amongst LGU officials to initiate and govern CRM projects.

With regards to financial capability, an increase in political will coupled with a more definite management structure should lead to the increase of sustainable and reliable CRM funding sources. In addition to technical and managerial support, NGOs and other outside agencies are key sources of CRM funding for municipal LGUs (Eisma, 2004). With increased funding support such as this, LGUs can acquire the necessary financial capability to initiate and ultimately conduct effective CRM projects.

The potential outcome of these recommendations should lead to enhanced technical competence, financial capability and an increased political will within the municipal LGU. However, it is strongly recommend that the devolution of CRM power from the Philippine National Government should be further examined and evaluated in order to accurately gauge the capacity limitations of the different municipal LGUs.

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Conclusion In spite of minor differences, each of the three municipal LGUs displayed a common vision of successfully conducting and sustaining CRM programs. As seen in the past, this desired vision needs to be accompanied by more than just supportive legislation. In order to effectively assume responsibility of CRM programs, the LGU in question must also exhibit the necessary technical competence and financial capability (Riggs, 2003). Although these stipulations are still required, this study determined that the absence of substantial political will played a major role in the observed CRM deficiency within the selected municipalities. Therefore, the results of this study have concluded that the responsibilities and legal obligations set forth by the LGC of 1991 have yet to be affirmed.

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Table 2. Summarized Results Table

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Recommendations

More Transparent Operation within LGU

Potential Outcomes

Desired Impact

Increased Reliability and Sustainability of LGU Funding / Exploit the mgnt scheme to source out funding for CRM

Clearer CRM Management Structure / Division of Roles within LGU

LGU Can Initiate & Far-reaching and Intensified CRM Education & Information Campaign to General Public

Increased Political Will of the Public and the Politicians

NGOs and Other Outside Agencies Put More Focus on Capacity Building of LGU Staff

More Trained LGU Personnel & Creation of CRM Office

Manage Own CRM Programs (with Increased Technical Competence, Financial Capability and Political Will)

NGOs and Other Outside Agencies Work To build Momentum for LGU to Continue CRM Program

Increased CRM Success and Momentum within the LGU

NGO, Academe, Foreign Donor Agencies, Inter-governmental Donor Organizations, etc

Bigger Inventory of Equipment for the Use of LGU

Augmented CRM Funds

LGU Actively Seeks Out for Assistance

Figure 2. Recommendation process diagram

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Department of Environment and Natural Resources (DENR), Bureau of Fisheries and Aquatic Resources (BFAR) of the Department of Agriculture (DA), Department of the Interior and Local Government (DILG) and Coastal Resource Management Project (CRMP). 2001. “Coastal Management Orientation and Overview.” Guidebook 1 in Philippines Coastal Management Guidebook Series. Cebu City, Philippines. Dygico, Marivel P., Jean Beth S. Jontila and Rowell C. Alarcon. 2006. Balabac Municipal Profile. 3rd draft. WWF-Philippines. Eisma, Rose-Liza V. 2004. “Local Governance for Municipal Fisheries: Can Local Government Afford to Have Coastal Resource Management as a Basic Service Responsibility?” P.180-183. In DA-BFAR (Department of Agriculture-Bureau of Fisheries and Aquatic Resources). In Turbulent Seas: The Status of Philippines Marine Fisheries. Coastal Resource Management Project. Cebu City, Philippines.

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Pagdilao, Cesario, Bernardita Germano, Glenn Ricci and Ester Zaragoza, ed. 2002. Institutional Frameworks for Community-Based Coastal Resources Management and Marine Conservation in the Eastern Visayas Region. (Proceedings of the Institutional Frameworks for CRM Workshop, March 2002, Baybay, Leyte, Philippines). Coastal Resources Center at the University of Rhode Island and Philippine Council for Aquatic and Marine Research and Development (PCAMRD). Riggs, Peter W. 2003. “Keynote Address: Coastal Management in the Context of Political Devolution”. Integrated Coastal Management Experiences in the Philippines (Proceedings of the Integrated Coastal Management Practitioners Convention in the Philippines, 10-12 November 1998, Davao City,

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Philippines).Los Baños, Laguna, Philippines: Philippine Council for Aquatic and Marine Research and Development (PCAMRD).

Rowthorn, Chris, Greg Bloom, Michael Day, Michael Grosberg, Ryan Ver Berkmoes. 2006. Lonely Planet Philippines. 9th ed. Oakland, California: Lonely Planet Publications Pty.

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