PhiLMMA Making Governance Work For Marine Conservation

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

Researcher-Writer: Abby Mercado
Philippine Locally-Managed Marine Area (PhiLMMA) Network
Copyright 2011
PhiLMMA, Inc.
All rights reserved
No part of this publication may be reproduced in whole or in part, or stored in a retrieval system, or transmitted in any form or by any
means, electronic, mechanical, including photocopying, recording or otherwise, without written permission from the publisher.
The Locally-Managed Marine Area (LMMA) Network is a group of practitioners involved in various community-based marine conservation
projects around the globe, primarily in the Indo-Pacific, who have joined together to learn how to improve our management efforts.
We are interested in learning under what conditions using an LMMA strategy works, or does not work, and why. The Network's
membership consists largely of conservation and resource management projects that are using (or planning on using) an LMMA
approach, and includes: community members; land-owning groups; traditional leaders; elected decisionmakers; conservation staff;
university scientists and researchers; and, donors.
The Network spans the people and cultures of Southeast Asia, Melanesia, Micronesia, Polynesia and the Americas. In the Philippines,
LMMA has a country network, PhiLMMA, with 30 locally-managed marine areas committed to sharing and learning best practices among
local communities and community-based coastal resource management practitioners, local government units and other key stakeholders.
Cover and Book Design: Marco Ruben T. Malto II
Published by the Philippine Locally-Managed Marine Area Network, Inc.
c/o 102-E R. L. Mendoza Buidling, Kamuning Road, Quezon City, Philippines 1103
Website: www.lmma.org
Email: philmma.network@gmail.com
CONTENTS
FOREWORD
INTRODUCTION
CASE STORIES:
ZAMBALES
BATANGAS
23
ROMBLON
35
KEY ISSUES IN GOVERNANCE

AND MARINE CONSERVATION
49
LIST OF ACRONYMS
57
ACKNOWLEDGEMENTS
FOREWORD
The Locally-Managed Marine Area (LMMA) Networks community-based

adaptive management or CBAM approach is most effective in benefitting
members of the community when it enables the people to participate
actively in policy and decision-making forums concerning the management
and protection of its coastal and marine resources. Unfortunately,
members of the communities are often excluded from making decisions
and policies affecting their marine ecosystems because they do not have
the knowledge, as well as the opportunity to participate in the policymaking
processes, often resulting in poor support services for their marine
conservation efforts.
In World Resources 2005: The Wealth of the Poor, the World Resources
Institute highlights the role of governance in managing ecosystems to fight
poverty. In order for poor communities to optimize the rewards of their
local marine ecosystems, governance conditions must be supportive of the
peoples interests. Otherwise, communities with rich marine resources can
be exploited for commercial or political interests, leaving the communities
with degraded marine ecosystems and poorer people. Good governance is
also crucial in determining how the people can effectively, yet sustainably,
tap their available coastal and marine resources for their livelihoods in
cases where marine resources are not in abundance.
The Learning Framework of the LMMA Network takes into account the
importance of governance in LMMA management; governance refers to
the particular set of institutions, rights, and rules operating within and
guiding a society. The LMMA Network focuses on the governance of marine
resources or resource governance, which takes place at four related levels:
local, provincial, national, and international. The Learning Framework

identified eight governance factors, as: 1) governance institutions;
2) resource rights; 3) resource rules; 4) compliance and enforcement;
5) political system; 6) cultural values and beliefs regarding marine
resources; 7) leadership; and 8) resource conflict. These are indirect
threats that can influence other indirect, as well as direct, threats to marine
environmental health in many ways. Manifestation of these governance
factors may vary from one country to another pending on the political,
cultural, social and economic contexts of a country.
Taking these into account, the Philippine LMMA (PhiLMMA) Network has
documented stories from its member sites in Zambales, Batangas and
Romblon, in an effort to feature the prevailing resource governance
practices, and challenges, in the country. The case stories of three
municipalities in different provinces of the Philippines offer unique lessons
on how the LMMA advocates in the country are making governance work
for the protection of their marine environment, and for the benefit of their
communities. This is the first of a series of PhiLMMA publications on good
practices in implementing marine conservation strategies, featuring the
Networks member sites in the Philippines.
INTRODUCTION
In the Philippines, the LMMA Networks approach of establishing locallymanaged marine areas and using community-based adaptive management
is often viewed as part of, if not similar to the familiar community-based
coastal resource management (CBCRM) approach, given the key principles
behind both concepts and the history of CBCRM in the country.
The Philippines is considered one of the earliest practitioners of coastal
resource management (CRM), with traces of practice of the discipline in the
country as early as the 1980s. Different sectors were prompted to come up
with projects aimed at sustainable management and use of coastal resources
as a result of warnings from the emerging environmental problems in the
coastal areas. However, initial attempts were focused on preservation of
resources, but unmindful of the needs of the communities that depended on
them for their livelihoods. A top-down approach was being promoted in the
establishment of protected areas, without involving the people in the communities. The approach did not work, but the experiences produced lessons
that proved valuable in the development of CBCRM. Community-based
coastal resource management quickly became popular among the NGOs
and the academe, and eventually in the government sector.
An enabling environment for LMMAs
In the 2009 Annual Report of the LMMA Network, A New Age of CommunityBased Adaptive Management, one of the cited objectives of the international
network is to develop the policy environment at local, regional, country,
and international levels to support widespread adoption of LMMAs. The
Network builds the communities capacity to manage resources and to
engage more proactively with authorities in co-management, which they
otherwise would have few opportunities to do so.
In the Philippines, local government units (LGUs) are actively engaged in the
management of LMMA sites at the village (barangay) and municipal levels
by providing support services, including financial assistance, for the
communities marine conservation activities. The LGU also plays a vital role
in providing avenues for members of the communities, through peoples
organizations, to participate in making decisions and policies concerning
the management of marine protected areas. Considering the devolved
responsibility for CRM to the local governments, the LGUs openness and
capacity to perform their mandated duties in the LMMA initiatives of
participating municipalities are essential to effective community-based
adaptive management. Our hope is that someday these marine
conservation efforts of the communities will become a way of life for the
people. And I think the communities participation in resource governance
will facilitate the realization of this dream. Jovelyn Jovy Cleofe, one of
PhiLMMAs Country Coordinators, believes that while the local governments
involvement is important, the peoples participation in the process is equally
vital.
The succeeding pages of this publication feature case stories from selected
LMMA sites in the Philippines, based on a research to identify good practices
in governance that resulted in the much-needed policies and government
support services for coastal and marine protection and management.
Overall, the PhiLMMA research has been conducted to: a) identify the key
emerging issues in governance and marine conservation; b) capture
learnings and reflect on the LMMA members good practices and
achievements, with emphasis on coastal and marine resource governance;
and, c) document and promote/replicate these successful resource
governance practices in other LMMA areas.
4
The Coastal Management Planning Process

for the Philippine Government
The primary mandate for coastal management has been largely devolved to
local government under the Local Government Code of 1991 (Republic Act
No. 7160), and more recently defined in the Fisheries Code of 1998
(Republic Act No. 8550). Coastal management may be viewed as one of the
inherent functions of local government units in accordance with their general
powers for management within their territorial jurisdictions, which include
municipal waters out to a distance of 15 km from the coastline.
Section 16, Article I. Jurisdiction of Municipal/City Governments. The
municipality/city government shall have jurisdiction over municipal waters as
defined in this Code (marine waters included between two lines drawn
perpendicular to the general coastline from points where the boundary lines
of the municipality touch the sea at low tide and a third line parallel with the
general coastline including offshore islands and fifteen kilometers from such
coastline). The municipal/city government, in consultation with the Fisheries
and Aquatic Resources Management Council (FARMC) shall be responsible
for the management, conservation, development, protection, utilization, and
disposition of all fish and fishery/aquatic resources within their respective
municipal waters.
Section 76, Article II. The integrated Fisheries and Aquatic Resources
Management Councils shall be created in bays, gulfs, [bounded by two or
more municipalities/cities to assist in the preparation of plans and fishery
ordinances, and in the enforcement of fishery laws, provide advice on fishery
matters, and perform other functions as required.]
5
Coastal management as a basic service of local government incorporates all the local government powers and
responsibilities including planning, protection, legislation, regulation, revenue generation, enforcement,
inter-governmental relations, relations with people's and non-governmental organizations, and extension and
technical assistance. The planning process being adapted for Philippine local government has been detailed from
the perspective of local government, in particular, municipalities and cities, who are now tasked by law with the
primary responsibility for the nation's coastal resources and municipal waters. It is tailored from a more generic
process evolving in many parts of the world for coastal management. The steps in this process are basic and
essential prerequisites to successful coastal resource management. They can be facilitated and partially supported
by local governments together with their partner communities at the barangay level as well as national government
agencies.
The municipal or city government has an important facilitating role in the coastal management process because of
their legal mandate to manage resources within municipal waters. National agencies, particularly the Department
of Environment and Natural Resources (DENR) and Bureau of Fisheries and Aquatic Resources (BFAR), have key
supporting roles in the coastal management process together with LGUs, including provinces. Non-governmental
organizations, both national and local, are often involved in the community-level implementation process through
either contracting arrangements under government agencies, or through their own projects funded externally.
Academic institutions of different types have important roles in baseline assessment, information management and
analysis for planning, and monitoring and evaluation of coastal management. Overall, the coastal management
process is one of collaboration among various sectors and stakeholders.
(Source: OneOcean.org, http://www.oneocean.org/crm_philippines/process/national_policy.html#basis, a comprehensive web-based resource on
the Philippine experience in coastal resource management, presents historical accounts of CBCRM in the country as well as how this ever-evolving
approach of protecting and managing coastal and marine resources has become part of the mandated responsibilities of the LGUs.)
The beginnings of a peoples initiative

What started as a seemingly sensible idea over a drinking spree between
friends turned out to be the makings of a comprehensive local ordinance
on fisheries, and inspiration for all other municipalities not only in the
province of Zambales, but also for the rest of the coastal communities in
the Philippines.
We could hear non-stop blasting in the background while we were chatting
over drinks, and that somehow inspired the whole idea. Ruperto Raffy
Apilado and Marcos Macoy Villanueva have been great friends for years
before they founded a peoples organization for their community in an
effort to organize more-collective actions from the members of their
community to stop the illegal fishing activities in their area, and ultimately,
to improve the lives of the people in their community since many of them
are still highly dependent on fishing for their livelihoods.
The Sinabacan Fisherfolk Association (SFA) was formed in the early 1990s
out of the members growing irritation over the constant explosions due to
illegal fishing in their area and alarming concern over the fast degradation
of their marine resources. Macoy headed the SFA as the president and
Raffy stood by his friend as the SFA adviser. The fisherfolk organization
started with 25 members, with only two women-members. Today, the
21-membered SFA is more than double this figure since the partners and
other family members of each official member are also actively participating
in the organizations activities.
Candelaria, ZAMBALES 8
Our initial attempts to minimize the illegal fishing activities in our area
were purely voluntary on our part because no one else seems to be doing
anything about the blasting even though everyone could hear it every
single day. Raffy, a fisher-leader and retired radio engineer, admits that
due to their limited knowledge and understanding of coastal resource
management, their efforts were simply focused on protecting the
Sinabacan-Malimanga Reef from fishers, who were resorting to use of
dynamite and cyanide to catch fish. Many local fishers are tempted to
immediate, but non-sustainable, access to resources for their livelihoods,
resulting in smaller and poor fish catch for many other fishers.
Members of our group started a rigid sea patrolling of the area,
unequipped and even without a legal mandate or support from our local
government at the time. We were just using aroma (a thorny bush), which
entangles the fish net and destroys it in the process, in order to discourage
fishing in the protected area. Macoy, a retired fisheries professor, shares
their initial, ingenious ways to stop the illegal fishers. We were very
daring and passionate since our actions were being dictated by our
personal concern for our environment. Our main goal then was really just
to minimize the incidents of illegal fishing.
The Sinabacan Fisherfolk Associations rehabilitation efforts and a clearer,
broader agenda for coastal resource management started in 2000 when
Sentro para sa Ikauunlad ng Katutubong Agham at Teknolohiya (SIKAT)
came to Candelaria, having learned of the organizations ongoing efforts
to save their marine resources. SIKAT is a non-government organization
committed to organizing interdependent communities and peoples
9
organizations, and facilitating community-based coastal resource

management. It also promotes appropriate fishing technologies, advocates
for community-based natural resource management, gender fairness,
sustainable livelihoods, good governance and genuine fishery policy reforms
by direct lobbying or federation-building.
Cristina Reyes, SIKAT-Zambales Field Office Program Manager, shares that
their CBCRM work with the Sinabacan Fisherfolk Association was eventually
turned over to the local government and the peoples organization after
seven years of full support from SIKAT in order to generate more
government counterpart. The turnover will sustain the peoples coastal
resource management initiative.
Candelarias Municipal Agriculture Officer (MAO) Dr. Richard Reglos adds
that since the SFAs initiative has officially become an LGU-supported
program in 2007, the groups activities have the advantage of acquiring
more government financial allocation. Agriculture is the priority when it
comes to budget allocation since it is the provinces major industry.
In fact, fishing is subsumed under the farming component of agriculture.
Fishing is only the second largest industry in the province of Zambales, and
yet somehow because of the SFAs very persevering leaders and members,
they are able to acquire regular, sufficient budget for their commendable
work.
Zambales is composed of 13 municipalities, of which Candelaria is the third
largest. Although 11 of these 13 municipalities are coastal communities,
very little focus is given to the fisheries concerns of these municipalities.
That is, until the SFA found its way to getting the necessary support from
their local government.
Gains from local government collaborations

It was through SIKATs guidance that we started coordinating with the
LGUs and other government agencies for our activities. Raffy and Macoy
explain that they did not always recognize the value of working with the
local government and other authorities.
While working with the LGUs leads to enhanced assistance to the
communitys activities to protect their marine environment, participating in
the policymaking processes and being able to influence local policies result
in the institutionalization and legalization of the local governments support
to the peoples initiatives, including the much-needed law enforcement and
budget allocation. Existing national legislations as well as well as local
ordinances that reinforce protection and proper management of the marine
ecosystems are too broad and general, but they do provide the necessary
legal basis for more-specific, local ordinances.
The Philippines Local Government Code of 1991 has given the local
government the directive to include coastal management as one of its basic
services, while the Republic Act 8550 or The Philippine Fisheries Code of
1998 cites the specific ways by which the designated local government
units, agencies and multi-sectoral representatives can fulfill this role.
These laws also led to the creation of local advisory bodies apart from the
11
recognized peoples organization in the area, such as the Fisheries and

Aquatic Resources Management Council and Task Force Bantay Dagat
(Bantay Dagat is a volunteer group of fish wardens; some of whom have
been deputized to assist in law enforcement pending on fulfillment of
requirements, including an examination), enabling more representatives
from the communities to have a voice in local policymaking procedures.
It was also through SIKAT that it became clear to the SFA members that
the best way to protect and improve the condition of their SinabacanMalimanga Reef is to have it established as a marine sanctuary. Hence,
in collaboration with SIKAT, a Technical Working Group (TWG) consisting
of representatives from all sectors including the SFA, FARMC, Bantay Dagat,
the academe, the local government, and concerned government agencies,
was formed in 2001 to develop a comprehensive municipal fisheries
ordinance for Candelaria that will put together all the existing local
ordinances concerning fisheries and the marine ecosystems, and more
importantly, that will strengthen the role of organized fisherfolks as the
steward of their marine resources.
The first step involved consultations with the community members or
barangays; a barangay being the smallest political unit in the Philippines,
composed of councilors and headed by the Barangay Chairperson. From
2000-2003, the activities of the TWG involved series of public hearings with
the covered barangays of the drafted local ordinance, continuous review
and revisions of the draft ordinance based on the public consultations, and
unrelenting lobbying with the local government units with the necessary
legislative and executive powers. In the process of lobbying for the CMFO,
six fisherfolk organizations coming from the different barangays of

Candelaria, including the SFA, formed into a federation, hence strengthening the call for the fisherfolks advocacy. This marked the beginnings of the
Samahan ng mga Mangingisda ng Candelaria or SAMACA. Macoy ended up
leading the SAMACA as president, and Raffy took over the leadership for
the SFA.
In 2003, a resolution by the Office of the Sangguniang Bayan, the local
government body under the Office of the Mayor with legislative power,
ordained The Candelaria Fisheries Development and Management
Ordinance of 2003. The eventual implementation of this ordinance,
through the executive mandate of the Mayor, has resulted in the
identification of two marine protected areas in Candelaria the SinabacanMalimanga Reef and the Batong Lakay Reef.
Strengthening a fisherfolk organization

In 2003, when SIKAT started collaborating with the LMMA Network,
through PhiLMMA, the SFAs initiative in securing a marine protected area
became part of SIKATs work to promote the LMMA approach. The
assistance from SIKAT through mentoring and capacity-building activities
facilitated the SFAs more-strategic approach in managing their marine
resources. Through SIKAT, the SFA, and later the SAMACA, became
PhiLMMA Network members, while the marine protected areas of the
Sinabacan-Malimanga Reef and the Batong Lakay Reef became LMMA sites.
13
In selecting LMMA sites, we are conscious of the openness of the local

government to get involved in coastal resource management and partner
with an NGO since the LGU will have counterpart in the partnership
agreement. According to Chito Dugan, SIKAT Executive Director and one
of PhiLMMAs Country Coordinators, the PhiLMMA Network enters a partnership with the local government or NGO, which acts as support group to the
peoples organization, as the latter assumes its role in the co-management
of the LMMA site. In Candelaria, full stewardship of the marine protected
areas has been awarded to the SAMACA given their capacity to do the job.
Chito recalls that while the fisherfolk leaders have existing links with the
LGU officials in 2000, their agenda was not yet clear, and their actions were
not planned. The development of a resource management plan enabled
the peoples organization to push for the establishment of marine protected
areas through appropriate strategies. Meanwhile, the peoples participation
in the assessment of marine resources in the covered areas exposed them
to the bigger picture and raised their awareness on the deeper issues
confronting them. This made them realize that it is not enough to protect
their affected reefs, and that in fact, rehabilitation efforts are in order.
Members of the fisherfolk organization soon became the eyes and ears of
the local government regarding the state of their coastal and marine
environment given the trainings that they were receiving from PhiLMMA
and SIKAT, addressing the knowledge gap in coastal resource management
in the municipal office. While SIKAT trainings involved more directionsetting for the organization and LGU lobbying strategies, the PhiLMMA
trainings appeared to be more technical in nature, according to the PO

leaders.
We learned how to conduct resource assessment and manage the data
that we acquired during these activities. We were also trained on
surveillance and fish identification. Macoy expounds on how being part
of the PhiLMMA Network has enhanced their knowledge in coastal resource
management through various trainings. Before, we only use aroma to
warn off illegal fishing activities to protect our marine resources, but today,
we are more aware of the latest CRM technology, and we also have some
equipment and uniforms for our patrolling.
Meantime, Raffy proudly shares how he was able to travel to Fiji and meet
with high officials of the country through PhiLMMA. According to Salvacion
Sally Ruiz, the SAMACA/SFAs secretary and chair of the Municipal FARMC,
SAMACA has also played host to several study tours from other coastal
municipalities of the Philippines, as well as other countries. She has also
traveled to other cities and provinces in the country promoting their marine
conservation efforts in Zambales. The cross-site visits are excellent
opportunities for networking and sharing best practices.
Reaping the rewards

In 2005, the approval of The Candelaria Fisheries Development and
Management Ordinance of 2003 has mandated the local government of
Candelaria to integrate and allocate budget for the marine conservation
15
Candelaria Marine Protected Area

Resolution No. 61-A
Series of 2003
Resolution Enacting Ordinance No. 23-A: The Candelaria Fisheries Development
and Management Ordinance of 2003
The town of Candelaria is endowed with rich fisheries and aquatic resources. These are rich with diverse life forms, such as
fishes, invertebrates, seaweeds/ grasses and other aquatic flora and fauna. In order to prevent such degradation, a rational
sustainable and equitable program was developed to regulate fishing activities and promote utilization of fish habitat
(sanctuaries) and threatened species.
Sinabacan-Malimanga Reef
Location: Barangay Sinabacan and Barangay Malimanga, Candelaria
Area: 190 hectares
Batong Lakay Reef
Location: Barangay Dampay, Candelaria
Area: 13 hectares
Management Body:
Samahan ng mga Mangigisda ng Candelaria
Task Force Bantay Dagat
LGU-Candelaria
Bureau of Fisheries and Aquatic Resource -Candelaria
Philippine National Police-Candelaria
Department of Agriculture-Candelaria
Municipal Fisheries and Aquatic Resources Management Council
Academic institutions (Candelaria School of Fisheries, Ramon Magsaysay Technology University)
projects of the SAMACA, the MFARMC, and the Bantay Dagat. It also led to
other relevant initiatives, such as the Integrated Coastal Resource
Management Program. The ordinance allowed the masterlisting of fisherfolks for law enforcement purposes, as well as to raise awareness on the
benefits and responsibilities of licensing permit.
No matter how beautiful the ordinance is if the people do not understand
or support it, then it is useless. Candelarias Municipal Agriculturist shares
that some members of the communities used to be against the fisheries
ordinance because it restricts their fishing activities. But now, the same
people are involved in protecting their coastal and marine environment
because they can see the benefits of their efforts. Of course, it helps when
there is funding to provide them with alternative livelihoods. And the
comprehensive municipal fisheries ordinance has facilitated that, too.
The SAMACA leaders noted that more and more houses in their areas are
constructed with better materials. They also have TVs and DVD players.
These are reportedly due to better income of the fishers, as a result of
better catch. But the most evident of all changes is the silence in the area.
We no longer hear explosions due to dynamite fishing, and while we used
to catch two to three offenders in a week, these days, we only have to
reprimand one, in a month or two.
Although these positive changes are more than enough to keep the fisherfolk federation passionate about their initiative, being labeled as the role
model for comprehensive municipal fisheries ordinance for others to follow
is certainly another reason for them to stay inspired.
17
Resource governance at work

In the Philippines, the utmost priority is given to agriculture being the
major industry of the country. The Bureau of Fisheries and Aquatic
Resources is within the bigger Department of Agriculture. Coastal and
marine protection and management efforts in the community level are
part of the job description of the Municipal Agriculture Officer, who often
has an agriculture or livestock background. This structure dictates the
governments priority in terms of attention and budget allocation, which
affects the implementation of programs and activities relating to marine
and coastal environment down to the local government level. However,
this prevailing institutional governance has not deterred the members of
SAMACA from accessing the much-needed attention, as well as budget,
from their local government.
Richard explains that the local governments support to the work of
SAMACA has a lot to do with the highly visible, strong conviction of the
organizations leaders in their advocacy, marked by their perseverance in
lobbying all the relevant local government officials for assistance to their
cause. As the Municipal Agriculture Officer, Richard is one of the key focal
persons of the SAMACA leaders in the municipal office. He says that
Candelaria is the only municipality in the province where the fishing sector,
which covers marine conservation efforts, gets a higher budget allocation
than agriculture or livestock. Richard also shares that it is important to be
involved in the POs activities. The presence of an LGU representative
shows the concern of the municipal office in their activities. Even if it is not
within the LGUs power to act on the peoples requests, one must at least
take time to listen to them to encourage them and build their motivation.
Apart from the MAO, the other important people with whom the SAMACA
must establish good working relations in the Municipal Office of Candelara
include the: Office of the Mayor (executive), the Sangguniang Bayan
(legislative), the Municipal Planning and Development Officer, the Budget
Officer, the Accountant, the Tourism Officer, the provincial government and
the barangay officials. The local branches of government agencies, such as
the Department of Environment and Natural Resources, Department of
Agriculture, Bureau of Fisheries and Aquatic Resources, are also just a few
of the offices that the SAMACA leaders and members have to visit
regularly to make things happen.
Sally shares that she appreciates being educated on the government
regulations and procedures, which makes her understand and tolerate the
tedious and long processes that she has to go through in lobbying budget
for the Federations activities. As Municipal FARMC chair, Sally has the
advantage of not only taking part in policymaking procedures, but also in
lobbying for budget for resource management activities in the municipal
level. Sally shares that she became an active member of the SAMACA/SFA
due to her FARMC involvements. And now her FARMC position makes it
easier for her to provide her mandated LGU support to these fisherfolk
organizations.
Social linkages with the LGU officials can also influence the kind of support
that can be acquired from local government officials. But while political
19
partisan can get in the way of realizing various community initiatives,

SAMACA President Macoy says that showing ones command responsibility
over a committed task will get anyone the needed support even if one is
not in alliance with the elected official. According to the SAMACA/SFA
leaders, while the LGUs political will is crucial for gaining momentum in the
fisherfolk initiative, support from all other sectors must be encouraged to
increase the social acceptability of the marine protected areas and their
management plans. Provision of alternative livelihoods through government
and other donors funding greatly facilitates compliance as it enables the
fishers to engage in a more sustainable livelihood instead of their illegal
means of fishing.
Other challenges in dealing with LGU officials involve law enforcement since
some offenders seek assistance from elected officials. Sometimes we find
ourselves in a compromise when a powerful LGU official vouches for the
offender. Even though we are deputized as Bantay Dagat volunteers, we
have to show our respect for authority, who still has the final say in these
matters. Raffy and Macoy agree that flexibility and diplomacy are
sometimes called for in order to maintain good relations with the local
government.
Sally, who regards their LGU partners as family, advises shouldering some
expenses for the activities rather than charging it all to the allocated
government budget for the project, if one can afford it. She explains,
These small counterparts often lead to bigger funding allocations since the
gesture shows the donors how committed you are to the cause.
Macoy adds that when the people demonstrate what they can do even
without appropriate funding, then the money will come. Determination
and commitment to the advocacy are certainly key to successful peoples
initiatives. It is also important to learn from your mistakes and do not be
afraid to admit it when youre wrong. Openness to learning is also an
essential attitude in the process.
Sally admits that ones economic status also plays a role in their
effectiveness as PO leaders. Macoy, Raffy and I are retired and are no
longer responsible for our children since they have all finished school. This
allows us to spend most of our time volunteering for our various conservation activities, instead of working. Our challenge is in finding the second
liners to take on our tasks, since many of our members are working as fulltime fishers and still have children to support. For Raffy, One must share
learnings and train other people so they, too, can participate in the
advocacy.
The dedicated and hard-working leaders of Candelaria agree that
networking with LGU officials, staff and other government agencies
staff is as vital as getting the support from the communities. Public
consultation with all stakeholders is crucial in getting an ordinance
approved, and more importantly, in implementing it. But there are more
lessons to be shared.
Transparency and evidences of excellent management of the marine
conservation projects are absolutely necessary to continue access to
support from all sectors. On the one hand, the Federations accomplish21
ments to date, particularly the development of the first comprehensive

municipal fisheries ordinance, have further built its credibility in lobbying for
marine conservation and other fisherfolk issues through participation in
policymaking and special advisory bodies in the local, and sometimes, even
in the national government level. The enhanced competence of the
SAMACA leaders and members due to training assistance from SIKAT and
the PhiLMMA Network, on the other hand, is enabling the fisherfolk
federation achieve its objectives in protecting and managing their marine
resources, and ultimately its goal of improving the lives of the people of
Candelaria.
From ridge to reef

Divers from the Philippines and abroad come to Batangas to experience the
richness of its marine ecosystems. With coastlines teeming with tropical
fishes, aquatic fauna, shells, corals, virgin reefs and an underwater garden,
Lobo is considered one of the most popular tourist destinations in the
province. However, it was only in 2001 when the Municipality of Lobo
decided to take a more proactive approach in protecting and managing
their marine environment, having been introduced to the work of the
PhiLMMA Network.
We do not have the expertise in data management and analysis, and we
wanted to show the people the importance of our conservation efforts.
Rosie Egea, Lobos Municipal Agriculturist, shares how being part of
PhiLMMA has broadened her knowledge in the field.
Soil erosion and siltation due to flooding, lack of a proper solid waste
management system in the area, fry catching, use of compressor and other
unsustainable ways of fishing were some of the major threats that were
slowly, yet directly affecting the municipalitys marine ecosystems. The local
governments attempts to protect its priceless marine possessions were,
admittedly, ad hoc in nature and lacking in technical expertise until the
entry of PhiLMMA in the area.
PhiLMMAs approach to protecting and managing marine resources was
presented to the Lobo Municipal Office through the Earth Restoration Trust,
an NGO and PhiLMMA member, which has been working in Biga, one of the
Lobo, BATANGAS 24
barangays of Lobo. The LGUs Coastal Resource Management Program had

also just been launched at the time due to recent findings on the decline of
fish production as a result of marine life degradation. These marked the
start of collaborations between the local government of Lobo and PhiLMMA,
and more-focused marine protection interventions, which eventually
resulted in the identification of two full-reserve LMMA sites in Lobo,
Batangas Biga (full-member) and Malabrigo (provisional).
Lobo is composed of 26 barangays, 10 of which are coastal communities
whose main source of livelihood is fishing. The communities of Biga and
Malabrigo are among the major fish centers of Lobo. But apart from these
LMMA areas, the remainder of the 26 communities of Lobo are also
requiring the guidance and support of the municipal agriculturist and her
two staff an aquaculturist and an agriculture technologist- when it comes
to agriculture, fishing, livestock and their other sources of livelihoods.
Even though I am an agriculturist by profession, I believe in the holistic
approach, as they say from ridge to reef, so I treat the environment issues
of the communities as being interconnected. This is Rosies simple
explanation of her commitment to promoting the LMMA approach in her
municipality. However, Rosie shares that given the number of communities
they have to assist in their various environmental and livelihood concerns,
it is vital to mobilize the members of the communities, particularly in the
management of the LMMA sites.
25
The LGU as LMMA support group

In the Philippines, the chief executive in the municipal level is the
Municipal Mayor, and the legislative arm of the municipal government is the
Sangguniang Bayan (town/municipal council), composed of elected
members under the leadership of the Vice Mayor. The municipality is
divided into barangays, and each barangay is headed by a Barangay
Chairman (also called barangay captain) assisted by the Sangguniang
Barangay (village council); both the Sangguniang Bayan and Sangguniang
Barangay are composed of several councilors.
In the case of Lobo, the municipalitys marine conservation activities were
mostly being implemented through the officials of the Sangguniang
Barangay due to lack of active fisherfolk or any peoples organizations in
the selected areas. Since the LMMA initiative in Lobo is LGU-led, lobbying
for municipal- and barangay-level ordinances concerning the marine
protected areas did not pose too many challenges as it normally does when
initiated by a peoples organization. Hence, there are already existing
barangay and municipal ordinances aimed at protecting the identified
marine sanctuaries even before they became LMMA sites. However,
a peoples organization, a sector that is separate from the LGU (since the
Sangguniang Barangay is a component of the LGU), is necessary not only
for check-and-balance purposes, but more importantly to encourage
a multi-stakeholder participation for the effective implementation of the
project. This led the municipal agriculturist and her staff to put on a
different hat and start organizing the people.
Lobo, BATANGAS 26
Rafael Romulus Moli Catada, the municipal agriculture technologist, shares

some of his challenges in the field given their lack of community organizing
skills, for which most NGOs are applauded.
First, I had to establish rapport with the members of the communities
before I can make them understand and take part in the advocacy. It did
not help that some people had negative perceptions about being members
of a peoples organization due to their previous experience, which I had to
straighten out. Conflict of interests among the fishers who want to continue
with their fishing practices, however wrong, was also a problem.
Awareness-raising activities and close collaborations with the barangay
officials facilitated the formation and formalization of the peoples
organizations in each of the Lobo LMMA areas in 2009. Moli explains that
he also had to make people feel more accountable for their environment,
and realize that they have a role to play in protecting it.
Today, the management of the LMMA sites is shared by the local
government through the municipal office of Lobo and the Sangguniang
Barangay, the peoples organizations, the Bantay Dagat and the Resort
Owners Association. Rosie shares that the newly-formed POs are still
requiring capacity-building assistance, but being a member of the PhiLMMA
Network has its advantages particularly in terms of trainings and other
opportunities for learning, in which the LGU staff, such as herself, and
some of the PO members are able to participate.
27
We have a very democratic governance system and our process of

passing ordinances or legislations for municipal fisheries is different from
Fiji. Based on a cross-site visit in Fiji, Rosie realized how different the
governance system is in the Philippines. She shares that national, as well as
international, networking is very helpful as it allows sharing of experiences
and lessons within the Network, and helps the members acquire a better
understanding of the different factors that are influencing the progress of
their LMMA initiatives.
A fisherfolk association at last

The Spanish Lighthouse in Barangay Malabrigo captures the interest of
many scholars of the culture and arts, who make it a point to photograph
the artistry that went into the construction of the long-standing guide for
many fishing and other sea vessels for more than a hundred years now.
But the attempts of the barangay officials and volunteers in Malabrigo to
protect their marine sanctuary are proving themselves deserving of
attention as well, and further assistance to be more effective in their
advocacy.
The municipal office was host to a US Peace Corps volunteer back in early
2000 and his assignment is to assist the LGU in implementing its CRM
program. I was a member of the Barangay FARMC then, so he took me to
Romblon to see how they are protecting their marine resources. I got so
envious of what the people of Romblon are able to do when I saw the
beauty of their corals. Hence, as soon as I got back in Batangas, I started
Lobo, BATANGAS 28
floating the idea of a barangay ordinance with members of the community

and with the concerned local government officials in order to identify a
marine protected area in Malabrigo. Billosane Sonny Badal, Jr, recalls his
initial involvement in the LMMA initiative of the municipality.
The passing of the Barangay Ordinance of 2002 established the Malabrigo
protected area, measuring more than 25 hectares, which became an LMMA
site in 2006. And Sonny became the president of the Malabrigo Fisherfolks
Association (MFA), one of the peoples organizations co-managing the
LMMA sites in Lobo. He is now also a village councilor, which instantly
enables him to include fishing and marine-related issues in the policy
agenda of the Sangguniang Barangay.
We formed the MFA in order to recruit more members of our community
for marine protection activities. Sonny explains that many people in their
village of more than 350 families share an apathetic attitude when it comes
to addressing community issues. They think all of the problems in our area
are the responsibility of their barangay officials.
Many members of the fisherfolk organization are either barangay officials,
including the barangay chairperson, or Bantay Dagat volunteers. Godofredo
Fredie Evangelista and Meriam Canatuan, two active sea patrolling
volunteers share what made them want to become MFA members.
I had to stop from my schooling, so I thought it would be better to make
myself useful while I am not doing anything with my time at the moment.
Meriam says that her volunteering in the patrolling activities of Bantay
29
Dagat has allowed her to gain new knowledge on the various issues
surrounding their coastal and marine environment, as well as new friends.
Proud to be one of the few women-members of the MFA, Meriam hopes to
mobilize more women in her barangay to join the MFA and Bantay Dagat.
Fredie, on the other hand, explains why it is not easy to mobilize others to
volunteer. Patrolling can be risky at times, especially in our case since we
do not yet have all the necessary logistical support. Fredie recalls the time
when Sonny risked his life reprimanding a group of fishers from a nearby
community. They asked Sonny to come with them in their boat so they can
discuss the matter somewhere, but at some point during the ride, Sonny
saw one of the fishers grab a suspicious gadget and this prompted Sonny
to quickly jump out of the boat and swim for his life.
Sonny explains that it is not easy to stop other fishers from their wrong
practices because they need to be provided with alternative means to earn
sufficient income in supporting their families. He adds that they cannot also
blame others for not participating in their advocacy since they need to work
for their families. Being a family man himself, he admits that his community
obligations, as a barangay official and now as president of the Malabrigo
Fisherfolks Association, are taking most of his time. He says that the all-out
support they are getting from the municipal office, through Rosie and Moli,
and the PhiLMMA Network are exactly what they need.
Lobo, BATANGAS 30
A more-concerned community
I lost my village council post in one election, and many thought that it had
to do with my patrolling involvement. They said I was too strict with the
regulations for our marine protected area.
In the last election, Sonny was on board again as a barangay councilor
and he attributes this to the increased awareness and better understanding
of the members of his community about their efforts to protect their
environment.
Fredie shares that some members of their community now report to them
when they witness fishers who are still engaging in illegal fishing practices,
which shows that they are more concerned now. More tourists to their area
are also interested in their ecotourism activities. The municipalitys recent
exercise in data collection and analysis for the LMMA Learning Framework
has also yielded indicators of progress when it comes to the health status
of their marine environment. The data gathering aspect of the LMMA
Learning Framework, in particular, has provided the municipality with the
essential information on the state of their marine ecosystems, along with
the different factors that are taken into account in monitoring the LMMA
initiative.
Both the LGU staff and MFA members admit that there is a lot more to do.
But their experiences to date have taught them lessons that they wish to
share with their fellow LMMA practitioners, particularly how different
governance factors can influence their work.
31
Changes in the political leadership and the elected LGU officials varying
interests, which dictate their budget priorities, greatly affect the momentum
of the members of the LMMA site management unit in their activities. Lobo
as a third-class municipality with relatively small revenue, allocates very
little budget for the fishing industry, in which activities for the marine
protected areas are subsumed.
While the RA 8550 or The Fisheries Code mandates the formation of the
FARMC, it does not always come with the necessary government budget
that would allow us to activate the advisory body. Rosie offers this
explanation to some of the MFA members and barangay officials who felt
that having an active FARMC would help them lobby for more financial
support from the local government as in the case of the Zambales fisherfolk
federation. It really has a lot to do with the budget priorities of the elected
leaders, and being part of the LGU structure does not always equate to
easier access to financial support. However, I think that if the Malabrigo
Fisherfolks Association is able to present a clear advocacy message that
comes with a concrete plan of action, then I will be in the position to
market their initiative to other possible sources of funding, including the
provincial government. Rosie shares that through the Batangas Marine
Protected Area Network, of which Lobo is a member, they were able to
tap the provincial government, the Rotary Club of Dasmarias and the
Conservation International for health and insurance benefits, as well as
technical and logistical support for the Bantay Dagat volunteers.
Other governance challenges, according to Rosie, include identifying more
able leaders for the peoples organizations in the communities covered by
Lobo, BATANGAS 32
their LMMA work. Organizing and strengthening POs also take a lot of their
already-limited staff time, but Rosie reiterates the importance of getting the
participation of the community in sustaining their LMMA initiative.
For the MFA members, law enforcement presents some difficulties for them
given the political tradition of padrino system, where politicians use their
influence to free some of the offenders of their penalties.
According to Malabrigo Barangay Chairman Nicasio Dueas, also an active
member of the MFA, The enforcement of the ordinances can be more
effective if they are also promoted in the nearby areas. Otherwise, the
offenders, who are usually from other villages, will always reason that the
regulations of our ordinance do not apply to them for lack of information.
It would be much better if our fishing ordinances are also replicated in the
nearby barangays.
The attitude of people in the communities due to competing interests
of fisherfolks and resort owners is also an area that they are actively
addressing through Information-Education-Communication (IEC) activities.
Apart from individually approaching other members of their community,
the MFA also holds regular talks on how to protect their marine sanctuary in
the barangay hall. Apart from their IEC and patrolling activities, the MFAs
immediate priority is to strengthen their organization in order to accomplish
more.
Sonny ends with the hope of being able to recruit more MFA members now
that their organization is officially registered. As a participant in an LMMA
33
cross-site visit in Zambales, Sonny says he learned a lot from the leaders of
the fisherfolk federation in Candelaria and felt that he was also able to
share some of his knowledge that is unknown to the other fishers there.
But Sonny admits that he really needs to learn more on how the Candelaria
peoples organization was able to generate so much support, including
funding, for their LMMA activities.
I really admire our PhiLMMA colleagues in Zambales, and I want to learn
more from them so I can make the Malabrigo Fisherfolks Association as
successful in marine conservation efforts. I also wish that PhiLMMA will
continue its much-needed support to us, so we can also succeed.
Lobo, BATANGAS 34
Shifting from marble to marine

The municipality of Romblon, in the province of Romblon, has
approximately 4,000 fishers distributed in 25 coastal barangays. It lies
within the Sulu-Sulawesi Eco-region and Coral Triangle, endowing Romblon
its rich marine biodiversity. Most of the communities are dependent on the
natural resources of the area for their income and family consumption.
Marble and fishing are the two major industries of the municipality. But the
decline in the market demand for marble has forced the people of Romblon
to turn to their marine resources for livelihood, more than they used to.
The shift from marble to fishing as key industry for the municipality has
resulted in increased fishing pressure in the municipal waters of Romblon.
This led to proliferation of illegal fishing activities, including the intrusion of
commercial fishing vessels and use of destructive fishing gears and
operations. Small-scale fishers who only use traditional fishing gear, such
as the hook and line, suddenly found themselves in a no-win competition
with the big fishing vessels in their municipal waters. Other threats to the
coastal and marine ecosystems of Romblon involved the conversion of
mangrove areas into fishponds, settlement areas and beach resorts. The
siltation from marble and stone quarries has also affected the fish habitats.
Therefore, the reduction of fish production at an alarming rate due to
degradation of coastal and marine resources has also become a major
problem that the fishers of Romblon have had to face.
Despite this discouraging scenario, the case of Romblon demonstrates how
active collaborations between the peoples organizations, the local
Romblon, ROMBLON 36
government and SIKAT have managed to transform these environment and

livelihood issues into excellent examples of effective coastal and marine
resource protection and management.
A family of peoples organizations

KAPAMILYA is an acronym for Karagatan Alagaan ng Pederasyon at
Alyansa ng Mangingisda na Itataguyod and Likas Yaman at Agrkultura
ng Romblon (meaning federation of fisherfolks for the protection of natural
resources and agriculture), but the term also means to be part of the
family in the Filipino language. In 2006, the newly-organized KAPAMILYA
ng Romblon, Inc., took the lead in advocating for the Romblon
Comprehensive Municipal Fisheries Ordinance, which was passed into
legislation, also in the same year.
We decided to form into a federation to have a stronger voice, and
therefore strengthen the impact of our advocacy. Charles Ramal, the
founding chairman of KAPAMILYA and former PO president, shares the
main reason behind the merging of 14 peoples organizations from the
different barangays of Romblon. Furthermore, the barangay captains of the
covered barangays also formed themselves into a council of elders to offer
their support to the Federation in terms of direction-setting. We realized
that there is strength in numbers because our local government leaders
cannot easily ignore the voice of the people, representing thousands of
men and women fishers wanting to protect their coastal and marine
resources for a more secure livelihood. Charles explains that the convening
37
of the PO leaders of different villages as a federation hastened the

processes involved in their advocacy concerning all the 25 coastal villages
of Romblon; this explains the very short, although very difficult, time it took
them to get the CMFO approved.
Through the lobbying efforts of the Federation, the CMFO was approved by
the municipal council, resulting in the recognition of the rights of marginal
fishers in managing their coastal and marine resources. The KAPAMILYA
was also accredited by the LGU as a registered group of municipal fishers,
which provided the Federation a seat in the Municipal Development Council
(MDC), and later in the Provincial Development Council, enabling the fisherfolks representative to take part in the decisions of the municipality, as well
as of the province, concerning development plans and their budget
appropriations. The Federations strategic membership in the MDC also
addresses the usual concern of POs regarding the changing of political
leadership and their development inclinations.
Charles recounts that their initial activities to push for the CMFO started
in 2005, when many of them were still acting as individual peoples
organizations, representing their own villages. Even before the formation
of the Federation, the PO leaders and members have already been
empowered through capacity-building activities provided by SIKAT, and
our preliminary efforts involved consultations with fisherfolks and other
members of the communities in drafting and reviewing the ordinance to
ensure its appropriateness to the Romblon context. This is why we feel a
sense of ownership for the CMFO given our participation in developing it
from the beginning. In the absence of a comprehensive municipal
Romblon, ROMBLON 38
ordinance, the POs can only rely on their respective barangay-level

ordinances, which are often lacking in jurisdiction given the magnitude of
their coastal and marine problems.
Awareness-raising became the order of the day, particularly for their local
government officials and staff. Through orientations, we made them
understand the issues that we are fighting for, and the urgency of our
efforts to save our marine environment. Charles adds that having an active
and united federation, whose members were always in attendance during
the public hearings on the municipal fisheries ordinance, certainly proved
the peoples commitment to their advocacy. The KAPAMILYA was also able
to project how having a CMFO can generate additional revenues for the
municipality, which, understandably, captured the immediate interest of
their municipal leaders.
From being a PO leader, Charles has been elected as the Municipal
Fisheries and Aquatic Resources Management Committee Chair,
representing the 25 barangays of the Romblon municipality, and more
recently as the Regional Fisherfolk Representative under the Bureau of
Fisheries and Aquatic Resources. According to him, while his FARMC role
enables him to recommend the Federations call for policies, his involvement with the KAPAMILYA gives him a good grasp of the issues on the
ground, to ensure that the local policies will indeed address the issues of
the people.
The members of the KAPAMILYA are also united in sharing that personal
sacrifice has played a significant contribution to their advocacy.
39
Pedro Mesana, current chair of the KAPAMILYA, a PO president and Charles

active buddy throughout their lobbying efforts, shares that he and Charles
had to sacrifice some family time for their work in managing their marine
sanctuaries. Since his wife works overseas, he sends her pictures of their
marine conservation work to make her understand why he his spending so
much time volunteering for sea patrolling among their other community
awareness activities, instead of making a living.
We used to have misunderstandings because I am so busy with the
KAPAMILYA activities, but when she came home one day and saw for
herself what we are doing for the small-scale fishers, I did not have to
explain to her anymore. Pedro adds that it helps to have a small family
because it reduces the pressure on him to earn more for a living, in order
to support them. We have to remember that we have an obligation not
only to our families, but also to others who benefit from our work.
His recent trip to Mexico to represent PhiLMMA in an international gathering
made him realize how different, as well as similar, their situation is in
comparison with other coastal communities in many parts of the world.
I thought they were getting more support from their local governments
than we are, but the collaborative way of making things happen is the
same everywhere. Pedro says that he also realized that some LMMA sites
operate on a close and open season, which allows the fishers to catch fish
on certain times of the year, while the local government provides them with
alternative livelihoods during the no fishing season. Now that he is back,
Pedro plans to share with the other members of the KAPAMILYA the
lessons that he has brought back with him from his recent engagement
representing the peoples federation.
Romblon, ROMBLON 40
Women form a league of their own

Not to be outdone by the men, the women community members also
formed an organization that is more focused on womens issues, such as
reproductive health, womens rights/gender equality, livelihood and
settlement. These women are also members of the KAPAMILYA and hence
involved in the coastal and resource management activities of the
Federation.
Apart from participating in patrolling the fish sanctuaries, we also mobilize
other women whose husbands are not yet members of the Federation.
Lina Rotoni, President of the village chapter of the womens organization,
explains the importance of womens participation in the male-dominated
federation. Also a barangay councilor, Lina believes that she is more
effective as an elected official because of her exposure to community issues
as an active member of KAPAMILYA and the womens organization.
The womens leader also proudly shares that their campaign on violence
against women has yielded positive outcomes, including a womens desk in
their police station and reports of better marital relations. More men in
our communities have become aware that violence is not just physical,
but also involves emotional abuse.
Edelyn Morada, also a village councilor and active leader of the women as
former Vice Chair of the KAPAMILYA, recalls how she got involved in the
peoples organization before being elected as a barangay official.
41
SIKAT came to Romblon in 2004 and called for assembly meetings,

where they began to orient us about the dangers of the current fishing
practices in our municipal waters and how these issues can be addressed
by establishing marine protected areas. Edelyn admits that she joined the
meeting purely out of curiosity. But after attending more orientations as
well as trainings organized by SIKAT, she was hooked to her community
activities which eventually landed her a political seat in her village.
I do not see much difference in what I used to do as a KAPAMILYA
member and now as a barangay councilor. Also, the people of Romblon
have high regard for peoples organizations, not just for elected officials,
so they are supportive to the work of the POs, as well as that of the
barangay officials.
Political will works

Municipal Mayor Atty. Gerard Gard Montojo shares that the CMFO was
already in place when he took his oath of office in 2007, but his challenge
was to ensure that it is implemented effectively.
I feared that one day the marine species that we see in our waters today
can only be found in the books. Mayor Gard discloses what got him to
commit to the approved municipal fisheries ordinance and adds,
The significance of the CMFO is not only for our Coastal Resource
Management Program, but more importantly for the future generations.
Romblon, ROMBLON 42
The municipal mayor of Romblon says that for as long as he sees the merit
of existing projects, he does not see any reason why he should not offer his
own support even if such projects were initiated by his political opponents.
When asked about the work of the KAPAMILYA and SIKAT on marine
conservation, he shares that had he lost the recent election, he would have
joined them in their work because he believes in their advocacy. He admits
that among his challenges concerning the work, however, is having to deal
with a candidate of his opponents party, but Mayor Gard says he soon
realized that his personal sentiments must not get in the way of remarkable
efforts for the welfare of the coastal people and the marine ecosystems.
Municipal Councilor Jerry Mallorca traces his commitment to saving their
municipal waters from illegal fishing to his grandfather who was a fisherman. Known as an active sea patroller and a brave law enforcer, Jerry first
made his mark in the municipalitys marine conservation efforts when he
was still a Barangay Chairman.
I organized a diving activity with members of my barangay so they can see
for themselves the poor state of our marine resources. This initiative led to
a barangay ordinance, a fish sanctuary and other villages following suit,
gaining him the support of other barangay leaders, who also established
their own fish sanctuaries. I worked closely with the other village leaders,
the KAPAMILYA and SIKAT in lobbying for the municipal-wide fisheries
ordinance. He says that the padrino or arbor system, wherein politicians
or authorities intervene to free the offenders of their penalties, is their
biggest challenge in law enforcement. But SIKAT plays a huge role by
providing the necessary patrol boats for monitoring, as well as the paralegal
43
trainings for the volunteer patrollers so they are properly guided on the
best way to approach and apprehend the offenders. Today, as Jerry holds a
higher office, he continues his barangay advocacy in the municipal level by
organizing the Task Force Illegal Fishing within the municipal council.
Romblons Municipal Agriculture Officer Arturo Gutierrez shares that before
he was approached by SIKAT, the municipalitys efforts in coastal resource
management were purely concerning the provision of alternative livelihoods
for the coastal people, and nothing more. As MAO, Arturo is the first point
of contact of the POs and NGOs in the municipal office, but he admits that
given his agriculture background, coastal resource management is not a
familiar territory for him. He was also apprehensive about SIKAT in the
beginning, since he has not heard of their organization until their first
meeting in 2004.
We had bad experiences with previous organizations offering to work with
us, but SIKAT gave us a very good impression about their work, so when
I met with them I became more aware and interested in CRM and the
issues surrounding it. Arturo adds that given SIKATs approach of linking
the different sectors, the municipal office now works more closely with the
people in their communities, through the KAPAMILYA.
Promoting LMMA practices in Romblon

SIKAT came to Romblon in 2004 and approached the representatives of
different sectorsthe POs, the LGUs, the women, and the academe.
Romblon, ROMBLON 44
SIKATs work involving the LMMA sites in Romblon is part of the Resource
Management component of the organizations holistic program approach in
the municipality, which goes beyond coastal resource management.
The LMMA sites were formally-established as soon as the CMFO has been
approved, because without the ordinance, the effective management of the
MPAs is not viable. Miguel Mike Cortez, SIKATs Senior Community
Organizer in Romblon shares how LMMA came to be in the area.
Before we were introduced to the LMMA approach and tools, the SIKAT
staff were using technology to assess and monitor the marine resources
that is less suitable for non-marine experts or others members of the
communities. LMMA offered new ways to allow direct community
participation in conducting fish sanctuary assessments, making them more
aware and involved. According to Mike, the LMMA trainings that the SIKAT
staff have attended can also be easily shared with the communities,
allowing transfer of skills with more LMMA advocates in Romblon.
Apart from the pro-community resource management practices, Mike also
highlights the significance of data gathering and management, which they
also learned through PhiLMMA.
Without any data to show evidences of degradation, it was very difficult to
make the people understand the condition of the marine resources. Now,
the members of the communities are able to do data gathering themselves
and can even answer LGU officials who ask them about their conservation
work, as well as where the money goes. Given their LMMA trainings, they
are now able to educate their own LGU officials.
45
Because of the effectiveness of the LMMA approach in the town of

Romblon, its case is now being replicated in three other municipalities of
the Romblon province, including the use of practices and tools which the
SIKAT staff credit to LMMA.
Mike shares that sustainability is now in the mindset of the PO leaders.
Their focus is not only NOW, but that they must consider the future, too.
Hence, Mike says that the people of Romblon are actively pushing for
community-managed ecotourism as opposed to mainstream or commercial
tourism, which would be detrimental to the people and their precious
marine sanctuaries.
14 Marine protected areas and more

To date, 14 marine protected areas have been established in Romblon
nine of which are member sites of PhiLMMA; three mangrove areas have
been reforested and more than 125 giant clams are being protected in four
different sites.
The management of these marine protected areas is led by the communities through the peoples organizations. Aside from community organizing,
livelihood development and local advocacy, law enforcement is a key
management component in which the communities are actively involved to
ensure the sustainable management of their LMMA sites and other MPAs for
the benefit of the small-scale fishers.
Romblon, ROMBLON 46
With SIKAT assistance, members of the communities have been

empowered to take the lead in the implementation of the CMFO, including
the apprehension of violators. Some PO members, municipal fishers and
Bantay Dagat volunteers have been deputized by the Bureau of Fisheries
and Aquatic Resources in recognition of their commitment to protect the
coastal and marine environment. The volunteer sea patrollers now also
receive a small monthly honorarium from the local government as a result
of their active monitoring of the sanctuaries. In order to equip the
volunteers for their law enforcement function, SIKAT provided trainings on
topics covering paralegal, conflict resolution, apprehension and case filing.
Villages have also been clustered for joint law enforcement activities to
strengthen their enforcement capabilities and support system. Meantime,
government agencies committed to provide the much-needed logistical and
financial support to the volunteer law enforcers, including the participation
of the police force and coastguard during the patrolling activities.
Before, fishers in the communities used to rally against the establishment of
fish sanctuaries because it limits their fishing activities. Today, they urge
their leaders to identify more marine sanctuaries having enjoyed the
benefits, which include less waiting time between fishing activity (from
eight hours, to two-hour fishing intervals only), and availability of
commercially viable species in their traditional fishing grounds, assuring
the fishers of Romblon of a good catch every time they go to the sea.
With the Romblon CMFO in place, marine resource users are now also more
compliant of the laws governing their municipal waters, with the 75 percent
reduction in illegal fishing activities in the area. During the first year of the
47
CMFO implementation in 2007, the projected revenue of the Federation has

been achieved. The establishment of municipal fisherfolk registry, which
requires registration of fishers, licensing of fishing gears and promotes
other fishing regulations, has earned the municipality additional income,
with the assistance of the Bantay Dagats 24/7 patrolling and effective
implementation of the law. The total revenue from the fees for the water
activities in the marine sanctuaries is divided among the barangay
(30 percent), the municipal office (30 percent) and the peoples organization of the barangay (40 percent). Due to the CMFO, the KAPAMILYAs
remarkable achievements, and the continuous support of the LGU, the
appropriation of budget for the municipalitys coastal resource management
activities is not only ensured, but has significantly increased through the
years
Partnerships between the KAPAMILYA, the communities, the local
government of Romblon and SIKAT show that working together can indeed
achieve long-lasting results.
I remember the day when we marched the streets of Romblon to lobby
for the approval of the CMFOit was during the Independence Day in
2006 We were clear about what we want for our marine resources and
we wrote our demands in big placards Charles recalls one of their
memorable challenges in the early days of their advocacy as he watches
the dolphins, parrot fish and wild ducks across a marine sanctuarya few
of the many thriving marine species and other living proofs of a job well
done.
Romblon, ROMBLON 48
Key issues in governance and marine conservation
49
The case stories from Zambales, Batangas and Romblon have illustrated
how different governance factors have influenced the communities
initiatives to protect and manage their coastal and marine resources.
Each has presented how good governance results in more effective
implementation of the LMMAs community-based adaptive management
approach. This research has also identified key governance issues that
continue to challenge the coastal and marine conservation efforts of the
featured PhiLMMA Network members, along with the governance factors
that can help address these issues.
1. National priorities and budgetary support. The fishing industry
often comes next to agriculture and other major industries in the
Philippines, and this translates to the amount of attention and funding
that the national government allocates to the fishing sector. The municipal
fisheries sector, in particular, has often been marginalized in terms of
budget allocation. The community-based coastal resource management
initiatives are confined within the fishing component of a municipalitys
development plans; fishing is further subsumed in the agriculture program
of the LGUs. Since coastal resource management programs from the
municipal level down to the communities have been delegated to local
governments, the political system, which dictates the national government
funding, influences the LGUs capacity to provide the appropriate support to
community-based marine conservation efforts.
The case stories have shown how the commitment and perseverance of
the peoples organizations have successfully addressed this prevailing
governance condition. By projecting how legislation (e.g. comprehensive
Key issues in governance and marine conservation 50
municipal fisheries ordinance) can help generate additional revenue for the
municipality, given active sea patrolling and effective law enforcement, the
federations of fisherfolk initiatives were able to access the needed funding,
along with other logistical support services from their local governments.
Clarity of advocacy messages, which comes with concrete and realistic plan
of actions, also works in getting the necessary interest of, and support
from, the LGUs, and other stakeholders.
2. Attitude. Having each sector represented and involved is essential for
any CBCRM program to succeed. However, these stakeholders may have
diverging positions regarding the implementation of coastal and marine
conservation initiatives, resulting to resource conflicts. The openness of
each stakeholder is crucial in coming up with a consensus and a collaborative way of working. The political will of the people in power is also vital to
the process of acquiring the highly-desired government support, particularly
budget allocation.
Awareness-raising activities involving representatives of different sectors
can greatly contribute to making the stakeholders understand the real
conditions of the marine ecosystems, as well as the urgency of addressing
the CRM issues, which are causing livelihood and other poverty issues in
the communities. Mobilizing and educating people from different sectors,
including the LGU, to be more accountable for their coastal and marine
environment have proven to be effective in the cases of the featured LMMA
members in the Philippines.
51
3. Capacity. The openness of the stakeholders to any development

initiative is often dictated by their capacities to support it or take action.
The management of an LMMA site involves different representatives from
the local government, peoples organization, and other sectors, with
corresponding roles.
The leadership of the featured fisherfolk federations has contributed
significantly to the success of their lobbying efforts for the drafting,
enactment and implementation of comprehensive municipal fisheries
ordinances. The commitment and competence of the PO leaders have led
to their active participation in making policies and decisions concerning
their coastal and marine resources in the local government level. Their
stories have shown that governance starts in the individuals who are the
institutional assets, well-deserving of investment through capacity-building.
The LGU offices capability to take on LMMA initiatives, given their other
livelihood priorities, lack of CRM background and very limited staff capacity,
is often resolved by the determination of key people in the municipal
offices. However, trainings and other learning opportunities are
recommended to address the knowledge gap, and strengthen the
interest of these vital partners from the local government.
Capacity-building support to the LMMA initiatives through the PhiLMMA
Network has certainly provided the necessary boost to direct the dedicated
fisherfolk leaders, members of the communities and LGU staff in the right
direction.
4. Political leadership. Changes in the LGU leadership or of elected

officials, who have different development interests, and hence priorities,
impact on the momentum of the peoples initiatives, including their coastal
and marine conservation or LMMA activities.
Getting the people organized, registered and accredited by the municipality
or higher government offices, results in the institutionalization and
membership of a peoples organization in the local governments policymaking bodies. This enables the communities representatives to
participate in decision and policymaking forums, and ensures that the
peoples interests are heard and promoted, regardless of the incumbent
political leaders.
5. Political affiliations. Differences in political ideologies and parties
during elections tend to affect future dealings between the winners and
the losers. But in cases where such differences can affect the success of
the peoples initiatives, including marine conservation projects, giving in for
the welfare of the people, rather than to personal sentiments, can go a long
way.
6. Multi-sector collaboration. Partnerships between the peoples
organizations, the communities, the local governments and NGOs show that
working together can indeed achieve long-lasting results.
Good relations with the LGUs can lead to better law enforcement and
compliance, due to the local governments provision of alternative
livelihoods for the potential offenders, as well as equipment and other
53
logistical support for volunteer patrolling activities. The presence of an

NGO in an LMMA site often serves as the catalyst in establishing marine
protected areas and proposing the necessary local ordinances to manage
these MPAs effectively; this is possible when the NGO guides the fisherfolk
leaders in developing a more-strategic course of action and builds their
capacity to take on the job. In all cases, local fisheries ordnance, no matter
how comprehensive and perfectly-drafted, can only be effective if the
concerned communities are on-board in pushing for the LMMA initiative.
The peoples participation, particularly as an organized group, is extremely
important in making community-based adaptive management possible.
7. Compliance and enforcement. The tradition of padrino or arbor,
which refers to the intervention of people in power in order to free the
apprehended offenders from any penalties or punishments, is found to be
the most hindering factor to effective law enforcement for the marine
sanctuaries.
LGU leaders are caught between getting the support of wealthy business
people engaging in commercial/illegal fishing in the MPAs, and that of their
voting constituents. Politicians who do decide to uphold the interests of the
communities are often threatened and made to suffer the consequences of
their actions. Even the PO leaders confess that recognition of resource rules
is the most challenging aspect of their MPAs or LMMA site management
role. A diplomatic approach to the issue and meetings aimed at awarenessraising can gain the commercial sectors interest in marine conservation
efforts.
8. Levels of risk and personal sacrifices. The PO leaders and fish wardens cited the importance of trainings in proper approaches to apprehend
violators of their fisheries ordinances. Otherwise, these patrolling volunteers
may find themselves risking their lives as they run after offenders, without
the necessary information to guide them in their law enforcement function.
Legal assistance is also required where prosecutions are held. Since these
volunteers are unarmed, the support of the LGU is also essential in getting
members of the police force, or coastguard, to accompany them every time
they go out to the sea for patrolling. All these and other measures to
secure the safety of Bantay Dagat volunteers (e.g. accident insurance,
medical benefits,) must be institutionalized within the LGUs.
It takes time, effort, as well as money, to be involved in marine conservation activities. The PO leaders and Bantay Dagat volunteers admit to taking
personal sacrifices in order to continue their active participation in their
community activities. Hence, it is important to make ones family know and
understand the urgency of the communitys advocacy, not only to make
them aware, but also to get them involved.
9. Gender. Women are becoming more empowered and involved in acting
on various social issues in their communities. This remarkable progress
must also be harnessed in the efforts to protect and manage the coastal
and marine ecosystems. The case stories have featured the role of women
in the LMMA initiatives, as well as how women in their communities are
becoming more active in addressing development issues, particularly those
concerning them. Therefore, more efforts should be done to ensure that
women fishers also benefit from the LMMA initiatives, including ways that
55
would address their issues as women in the fishing sector, and other
gender issues that hinder their involvement and participation in resource
governance.
10. Tangible impacts. Whether it be a more-concerned community,
better fish catch leading to increased income, passing of legislations on
fisheries including law enforcement for marine protected areas, generation
of additional internal revenue for LGUs allowing allocation of budget for
CRM activities, preservation of marine resources, or other evidences of
successful marine conservation efforts, the featured stories of Zambales,
Batangas and Romblon proved that good governance can produce concrete
benefits to the communities, and to the coastal and marine ecosystems.
These positive evidences of change in the LMMA sites, resulting from
effective resource governance, help sustain the LMMA efforts in these areas
and the peoples commitment to marine conservation.
LIST OF ACRONYMS
BFAR
BFARMC
CBAM
CBCRM
CRM
DA
DENR
FARMC
IEC
KAPAMILYA
MAO
MDC
MFARMC
LMMA
MFA
PhiLMMA
PO
SAMACA
SIKAT
SFA
TWG
57
Bureau of Fisheries and Aquatic Resources

Barangay Fisheries and Aquatic Resources Management Council
Community-Based Adaptive Management
Community-Based Coastal Resource Management
Coastal Resource Management
Department of Agriculture
Department of Environment and Natural Resources
Fisheries and Aquatic Resources Management Council
Information-Education-Communication
Karagatan Alagaan ng Pederasyon at Alyansa ng Mangigisda na Itataguyod
ang Likas Yaman at Agrikultura ng Romblon
Municipal Agriculture Officer
Municipal Development Council
Municipal Fisheries and Aquatic Resources Management Council
Locally-Managed Marine Area
Malabrigo Fisherfolks Association
Philippine Locally-Managed Marine Area (Network)
Peoples Organization
Samahan ng mga Mangingisda ng Candelaria
Sentro para sa Ikauunlad ng Katutubong Agham at Teknolohiya
Sinabacan Fisherfolk Association
Technical Working Group
ACKNOWLEDGEMENTS
My sincerest thanks for the time, support and inspiration in completing this publication to all the interviewees:
(Zambales) Raffy Apilado, Dr. Richard Reglos, Cristina Reyes, MFARMC Chair Sally Ruiz, Macoy Villanueva,
(Batangas) Barangay Councilor Sonny Badal, Jr., Meriam Canatuan, Moli Catada,
Barangay Chairman Nicasio Dueas, Rosie Egea, Fredie Evangelista, (Romblon) Mike Cortez,
Barangay Councilor Charlie Delavega, Arturo Gutierrez, Municipal Councilor Jerry Mallorca, Pedro Mesana,
Municipal Mayor Gard Montojo, Barangay Councilor Edelyn Morada, MFARMC Chair Charles Ramal,
and Barangay Councilor Lina Rotoni.
Special thanks are also due to the SIKAT staff: Ver Almandres, Edgar Orencio and Jhem Samaniego,
for facilitating the logistics for the field research.
Finally, my deepest gratitude to the Philippine Locally-Managed Marine Area Network Country Coordinators,
Jovy Cleofe (Center for Empowerment and Resource Development) and Chito Dugan (SIKAT) for their valuable
support in this research.
Abby Mercado
Researcher-Writer
Front Cover: SIKAT/Marco Ruben T. Malto II;

Page 1/4/12/13/14/19/28/36/37/39/43/45/46/47/48/50/51/52/53/54/55/56: SIKAT;
Page 23/24/25/26/27/29/30/32/33/34: SIKAT/Rafael Romulus Catada;
Page 2/7/8/9/11/17/20/31/35/38/40/41/42/44/49/53: SIKAT/Marco Ruben T. Malto II;
Page 10/15/18/21/22: SIKAT/Gerry Merriman

PhiLMMA Making Governance Work For Marine Conservation

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MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

LESSONS FROM THE PHILIPPINES: ZAMBALES, BATANGAS AND ROMBLON

KEY ISSUES IN GOVERNANCE

The Locally-Managed Marine Area (LMMA) Networks community-based

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

local, provincial, national, and international. The Learning Framework

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

The Coastal Management Planning Process

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

The beginnings of a peoples initiative

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

organizations, and facilitating community-based coastal resource

Gains from local government collaborations

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

recognized peoples organization in the area, such as the Fisheries and

six fisherfolk organizations coming from the different barangays of

Strengthening a fisherfolk organization

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

In selecting LMMA sites, we are conscious of the openness of the local

trainings appeared to be more technical in nature, according to the PO

Reaping the rewards

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

Candelaria Marine Protected Area

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

Resource governance at work

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

partisan can get in the way of realizing various community initiatives,

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

ments to date, particularly the development of the first comprehensive

From ridge to reef

barangays of Lobo. The LGUs Coastal Resource Management Program had

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

The LGU as LMMA support group

Rafael Romulus Moli Catada, the municipal agriculture technologist, shares

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

We have a very democratic governance system and our process of

A fisherfolk association at last

floating the idea of a barangay ordinance with members of the community

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

Shifting from marble to marine

government and SIKAT have managed to transform these environment and

A family of peoples organizations

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

of the PO leaders of different villages as a federation hastened the

ordinance, the POs can only rely on their respective barangay-level

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

Pedro Mesana, current chair of the KAPAMILYA, a PO president and Charles

Women form a league of their own

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

SIKAT came to Romblon in 2004 and called for assembly meetings,

Political will works

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

Promoting LMMA practices in Romblon

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

Because of the effectiveness of the LMMA approach in the town of

14 Marine protected areas and more

With SIKAT assistance, members of the communities have been

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION

CMFO implementation in 2007, the projected revenue of the Federation has

Key issues in governance and marine conservation

MAKING GOVERNANCE WORK FOR MARINE CONSERVATION