RARE No Take MPA Cohort - Case Study:

Tubbataha Reefs Marine National Park

Sulu Sea, Philippines

Desk Top Study, October 2009

People & Nature Consulting
www.people-nature-consulting.com

1. Implementing partners at the site

Main Implementer: Tubbataha Management Office (TMO) of the Tubbataha Protected
Area Management Board (TPAMB).
Major Partners:
Municipal Government of Cagayancillo and Provincial Government of Palawan
Palawan Council for Sustainable Development (PCSD)
Department of Environment and Natural Resources (DENR).
Navy and Coast Guard of the Philippines.
World Wildlife Fund Philippines (WWF Philippines).
Conservation International (CI) Philippines.
2. Summary
Tubbataha has suffered from fishing pressure, just like any other rich fishing ground.
This pressure will likely continue, as other fishing areas are exhausted and the
increasing human population demands more food. The threat from intruding fishers is
presently held at bay by Tubbatahas park management. This case study shows that the
process has not been easy. Closing off a marine area initially results in disgruntled
stakeholders, due to restrictions on fisheries. A key issue in the management of a large
protected area is the equitable sharing of benefits derived and a common understanding
that overall benefits exceed the losses through foregone opportunities.
Stakeholders need to have a deep understanding and appreciation of their relationship
with an MPA in order to secure their commitment. The best insurance is stakeholders
believing that, by protecting the MPA, they are also protecting their own interests. It took
time and a lot of discussion before local fishers decided to give up fishing in Tubbataha.
What helped to tip the balance was when they learned that the MPA seeds the Sulu
Sea with fish, and therefore plays a critical part in the fish supply chain. An important
lesson was that scientific data is needed for stakeholders to make informed choices.
What Tubbataha offers is hope. Despite the odds, a management system is in effect.
Despite coral bleaching due to El Nio, Tubbataha has not only recoveredit is
flourishing. Given the theory of larval dispersal, it is at every moment feeding the
fisheries of the Sulu Sea. And while opponents may say that an absolutely-no-fishing
policy is anti-development and is only a preservationists dream, one only has to look at
the improvements this policy has already brought to the fishing villages of Cagayancillo.
Tubbataha is unique, but the management approach is not. More than hope, Tubbataha
offers proof that endangered fisheries can recover with the support of No Take MPAs.

3. Introduction

Figure 1. Location of the Tubbataha Reefs, on the Cagayan Ridge, in the middle of the
Sulu Sea, between Palawan, Visayas and Zamboanga, in the southern Philippines.

Tubbataha is an atoll coral reef ecosystem in the Sulu Sea, in the southern Philippines,
150 kilometers southeast of Puerto Princesa City in the Palawan Province. The area is
part of the Cagayancillo municipality, with local communities living on larger islands 130
kilometers to the North East of Tubbataha. On 11 August 1988, President Corazon
Aquino signed Presidential Proclamation 306, creating the Tubbataha Reef National
Park (TRNP), making it the first national marine protected area (MPA) in the country.
This proclamation transferred Tubbatahas management jurisdiction from the municipal
government of Cagayancillo to the national government through the Department of
Environment and Natural Resources (DENR). It also banned the collection and
gathering of corals, wildlife and any marine life, and outlawed the disturbance and
destruction of the habitat. The Tubbataha Reef Marine Park at this time covered 33,200
hectares of strict marine reserve, including the North and South Reefs.

Figure 2. Location of the Tubbataha Reefs, East of the Island of Palawan and to the
South West of the Islands and communities of Cagayancillo.
Therefore by law, already in 1988, Tubbataha had become a complete No Take area,
off-limits to fishing. However, the implementation of this provision took a much longer
time. By the 1990s, the unique and outstanding natural characteristics of Tubbataha
had earned enough renown to command international attention. The United Nations
Educational, Scientific and Cultural Organization (UNESCO) declared it a World
Heritage Site on 11 December 1993. It is the only purely marine World Heritage Site in
Southeast Asia today. On 19 November 1999, Tubbataha was inscribed on the List of
Wetlands of International Importance, also known as the Ramsar List.

The Tubbataha Reefs National Park was further expanded to 96,828 hectares in August
2006, when President Gloria Macapagal Arroyo signed Proclamation No. 1126 entitled
Establishing the Tubbataha Reefs National Marine Park in the Province of Palawan as
Natural Park under the National Integrated Protected Areas System (NIPAS) ACT (R.A.
No. 7586) and the Strategic Environmental Plan of Palawan (R.A. No. 7611).

Figure 3. Bird Island on the Northern Atoll of the Tubbataha Reefs.

Tubbataha lies along the Cagayan Ridge, which traverses the Sulu Sea from the
Sultana Shoal in the northeast, to the San Miguel Islands of Tawi-Tawi in the southwest.
The nearest land mass is mainland Palawan some 150 kilometers to the northwest, and
the nearest islands of Cagayancillo are 130 kilometers in the other direction, to the
northeast. The protected area comprises two atolls (Tubbataha North and South Atolls)
and a coral cay, Jessie Beazley Reef. The South Atoll is five kilometers in length and
three kilometers in width; while the North Atoll is 16 kilometers long and five kilometers
wide. Each reef has a single small islet and the atolls are separated by a deep channel
of 8 km wide. The reefs themselves are estimated to cover an area of 100 square
kilometers, with the larger north reef measuring about 16 kilometers long and 4.5
kilometers wide and the south reef measuring about 5 kilometers long and 3 kilometers
wide. Both atolls have lagoons and scattered sand cays. The islet on the north reef is
called Bird Islet, and hosts most of the seabirds. On the southern end of the north reef
there is a small sand spit, on which the current permanent ranger stations was built in
1999. The South Islet has a lighthouse that was (re-)build by the Coast Guard in 1980.

Figure 4. Popular Dive Sites visited by Liveaboard vessels on the Tubbataha Reefs.

Tubbataha has become a popular site for seasoned sports divers because of its coral
"walls" where the shallow coral reef abruptly ends giving way to great depths. These
"walls" are not only wonderful diving spots but they are also important habitats for many
species and populations of fish. There are groupers, giant trevallies, hammerhead, tiger,
and reef sharks, barracudas, manta rays, napoleon wrasse and other large and
commercially important species which are all becoming rare throughout the Philippines.
Tubbataha is also home to the hawksbill and other sea turtles which are endangered
species. Dive trips to Tubbattaha from mid-March to mid-June are all vessel-based (on
so-called Liveaboard dive vessels); the park is about twelve hours by boat from Puerto
Princesa City. Tubbataha is considered as the best dive site in the Philippines and the
diving dedicated ships that operate during the "Tubbataha Season" are usually booked
years in advance especially during the Asian holidays of Easter and "Golden Week".

Figure 5. A tiger shark on the Tubbataha Reefs.

Tubbataha lies in a unique position in the middle of the Sulu Sea and is one of the
Philippines oldest ecosystems, covering a significant portion of the critical habitats
(coral reefs, sea grass beds, and mangroves) on the Cagayan Ridge. This MPA plays a
key role in the process of reproduction, dispersal and colonization by marine organisms
in the whole Sulu Sea system, and helps support fisheries outside its boundaries. It is a
natural laboratory for the study of ecological and biological processes, displaying the
ongoing process of coral reef formation, and supporting a large number of marine

species depending on reef ecosystems. The presence of top predator species, such as
tiger and hammerhead sharks, are indicators of the current ecological balance of the
area. The area is currently free of human habitation and activities and is of a sufficient
size to maintain biological and ecological processes at scale. The No Take MPA is of an
adequate size to ensure the complete representation of the key features and processes
of the reef systems within it, although the maintenance of these values also requires
measures to be taken outside the boundaries to protect the MPA from threats that could
occur in the wider area (such as explorations for oil and gas just outside the MPA
boundaries). A key aspect of the integrity of the MPA is the low level of fishing pressure,
due to the No Take policies which are in place throughout its area.
4. Fishing communities and other users of the Tubbataha Reefs
There are no permanent inhabitants of the islets or reefs. Fishermen have visited the
area seasonally for decades, until fishing was prohibited here, establishing shelters on
the islets for prolonged stays in the past, while harvesting marine life. This is now
prohibited and the birds on the islets can finally nest in peace. Still, there are continuous
threats to the reefs from shipping, marine litter, fishing, marine pollution and oil
explorations. Illegal fishing and poaching represent by far the largest immediate threats
to the marine biodiversity in this major No Take MPA. Until comparatively recently,
Tubbataha's remote location and susceptibility to harsh weather acted as a natural
barrier against exploitation by humans. But by the 1980s, the decline of fisheries in
other parts of the Philippines forced fishermen from Palawan, Visayas, Cagayancillo,
and the Turtle Islands, to look to Tubbataha as a source of revenue. This coincided with
their increased use of motorized boats - rather than paddle or sailboats - which gave
them easier access to the reefs. Larger vessels from China and Taiwan also started to
visit Tubbataha, hauling in large catches, without any consideration for sustainability.
Many fishers resorted to using destructive fishing techniques to maximize catch during
their trips to Tubbataha. This included the use of dynamite to blast reef areas - allowing
the easy capture of all marine life - destroying entire ecosystems. Some fishers also
used cyanide solutions, a poison that dazes fish and kills corals. In 1988 Tubbataha
was declared a National Marine Park - fishing within the park boundaries was made
illegal and the reefs ceased to be under such a constant barrage of unimpeded
destruction. Even so, illegal fishing remained a problem and constant vigilance was
required to ensure the park's safety. In 1999 the present ranger station was built. Since
then the year-round presence of park rangers in Tubbataha has been of immense help
in the battle against illegal fishing. Still, each year, there are a number of apprehensions
of local or foreign fishermen trying to escape their vigilance.

Figure 6. In 1999 the present ranger station was built on a sand spit in the North Atoll.
The relative remoteness of Tubbataha itself does NOT protect the Tubbataha reefs from
fisheries related threats, as the overnight crossing from Cagayancillo or Palawan means
little to local fishers today. Fishermen are even coming from Visayas and from much
further away. Philippine fishermen in general in recent decades, have become used to
travelling hundreds to thousands of miles to find areas where they can expect catches
that are no longer possible near their own home towns.
IN THE NEWS: 42 fishermen arrested for dynamite fishing
By Redempto Anda, Inquirer Southern Luzon, 10 May, 2009.
PUERTO PRINCESA CITY--Park rangers arrested 42 fishermen from Iloilo (in Visayas)
conducting dynamite fishing at the Tubbataha Reefs National Marine Park. Angelique
Songco, park superintendent, said on Sunday the fishermen already hauled some three
tons of fish near the Jessie Beazley atoll at the northernmost portion of the marine park,
when they were caught by law enforcers on Saturday afternoon.
"They cut their anchor and tried to flee. Their boat was fast as it had two engines but our
patrol craft was faster and we intercepted them," said Songco. The fishermen were
brought to the main islet where the ranger station is located while awaiting a Coast

Guard vessel that would bring them to Puerto Princesa City to face charges of violation
of the Fisheries Code or Republic Act 8550, prohibiting the use of explosives. Songco
said they observed "extensive damage" on the reefs where the fishermen anchored.
"We inspected a 70-square-meter area that had been damaged. They were dynamiting
outside the coral wall and had caught mostly rainbow runners and fusiliers," she said.
The 96,828-hectare Tubbataha Reefs National Marine Park is the country's foremost
marine protected area and is recognized by the United Nations Education Scientific and
Cultural Organization (Unesco) as a World Heritage Site. A combined force of Coast
Guard, Navy and park personnel guard the marine park in the middle of the Sulu Sea
between Palawan and the province of Iloilo on rotating three-month tours of duty.
The name Tubbataha comes from the language of the Samal, an ancient seafaring
people of the Sulu Sea. The term refers to a long reef exposed at low tide, an accurate
description of these reefs. Although the Samals bestowed the name by which the reefs
became known, Tubbataha is more closely associated with the islands of Cagayancillo,
the nearest human settlement. The reefs were traditionally called Gusong by the
Cagayanons, the people of Cagayancillo. They, along with the Samals, Badjaos and
Tausugs, have been the traditional users of Tubbatahas resources. No humans have
settled on the islands through the ages because of the absence of fresh water.
In the beginning of the 1980s, Cagayanon fishers started to perceive the pressure of
overfishing in their immediate surroundings. Using traditional wooden sailboats called
pangko, they sailed to Gusong to fish and gather shells, turtles, seabirds and their eggs.
Trips to Tubbataha from Cagayancillo took anywhere from one week to a month,
depending on the winds. There were times when three to five pangko would sail in
fleets. The fishers would anchor their boats in the lagoons for safety and roam the reefs
and islets freely, taking as much as their boats could carry, because they never knew
when the conditions would be good enough to make another trip. In the minds of most
Cagayanons, Tubbataha was a place of plenty.
Soon after, by the mid-1980s, the traditional pangko used by the Cagayanons was
replaced by boats with motorized engines, making trips to Tubbataha faster and more
frequent. At about the same time, seaweed farming was introduced in Cagayancillo.
Seaweed farming became a good source of income for the Cagayanons, and should
have relieved fishing pressure on Tubbataha. This did not happen, however, because
fishers from Cagayancillo were replaced by those coming from the neighboring Visayan
provinces of Cebu and Iloilo. In turn, the Cebuanos and Ilonggos were pushed to
Tubbataha and other offshore reefs in the Sulu Sea by the deteriorating conditions of
the coastal and marine environment in their own provinces.

The arrival of fishers from the Visayas marked a turning point in the history of
Tubbataha, because they introduced dynamite and cyanide fishing. Thus, they inflicted
more damage in a few years than traditional Sulu seafarers did over a thousand years.
The Visayans resorted to the use of dynamite and cyanide to make their long-distance
trips pay off, ensuring big hauls in a short period of time. At first they only used
Cagayancillo as a jump-off point to replenish supplies and recruit Cagayanons as crew
or guides. But later on, some of them intermarried with Cagayanon women and settled
there, and eventually influenced local fishers to use cyanide on the reefs of
Cagayancillo and Tubbataha.
It was also in the early 1980s that local and foreign scuba-divers discovered Tubbataha,
its remoteness appealing to their adventurous spirit. The presence of dive boats during
the calm months of March to June helped to deter illegal fishing. But because of their
unregulated activities, divers, too, had a negative impact on the reefs by way of anchor
damage, the dumping of wastes and the collection of wildlife. Some divers were also
into spear fishing, and some would light bonfires on the islets, driving away nesting
seabirds and turtles. Tourism management is therefore an important part of the overall
No Take strategy for this unique MPA.

Figure 7. Typical motorized pangko fishing boat as still used in the Sulu Sea.

5. Establishment of a Management Body with Local Constituencies

As early as 1981, Tubbataha was attracting the interest of researchers, as shown by
recorded studies on corals, fishes and seabirds. Towards the end of the decade, the
results of studies, and increasing evidence of damage to the reefs and their wildlife
populations, led to efforts to place Tubbataha under protection. Ernesto Bebot Sta.
Cruz, a diver from Palawan and a member of Task Force Pawikan, a project of the
DENR aiming to save marine turtles, requested the Provincial Government of Palawan
to declare the reefs a marine sanctuary. This request became the basis for then ViceGovernor Arthur Venturas decision to sponsor Resolution 244 dated 27 September
1987, requesting DENR to declare Tubbataha a marine park, the first step towards full
protection in an effectively managed marine protected area. This was then followed by
the establishment of the Tubbataha Reef National Park (TRNP) in 1988.

Figure 8. Still visible results of dynamite fishing on the Tubbataha Reefs.

After the shaky beginnings of the 1980s, a deteriorating condition of Tubbataha
prompted private individuals, mostly scuba-divers and many foreigners, to establish the
Tubbataha Foundation. In 1990, this foundation entered into a memorandum of
agreement with the DENR for the protection of the Tubbataha Reef National Marine
Park. According to the agreement, DENR was to maintain jurisdiction and control over

the park, while the Tubbataha Foundation would assist in fund-raising, information and
education programs, and provide training to DENR employees on park management.
The primary weakness of the setup between DENR and the Tubbataha Foundation was
that the latter did not have the systems in place to implement effective management in
Tubbataha. The foundation did not have any real experience in managing marine parks.
Its financial operation was fully dependent on external funding, and there were no
systems in place to check its performance. The foundation was based in Manila, so
local stakeholders were unable to participate in management decision making. Last but
not least the partnership between DENR and the Tubbataha Foundation lacked any
substantial public constituency.
The situation was further aggravated by the persistence of fishing activities in
Tubbataha, despite the ban that had been in effect since 1988. The Tubbataha
Foundation reportedly drove away local fishers but allowed game fishing among divers,
fueling a sense of discrimination among locals. There was serious damage done by dive
boats through anchorage and dumping of waste. The foundations image and credibility
suffered, and by the end of 1994 the foundation had lost its capability to manage the
park. When funding from various sources ceased, the foundation itself became inactive.

Figure 9. Birds nesting on one of the remote little islands at the Tubbataha Reefs.

In the mean time, while park rules and operations had not yet been established, the
municipality of Cagayancillo was reportedly issuing mayors permits and police
clearances for commercial fishing boats to operate on the reefs until 1994. At that time,
Cagayancillo was a minor municipality, and the bureaucracy was operating on a meager
budget. Revenue generated from the issuance of fishing permits was a significant part
of the municipal budget. Furthermore, because of widespread poverty and lack of
alternative livelihoods among the inhabitants, the municipal government could not
hinder local fishers from fishing in the national park. There was misuse and abuse of
fishing permits issued by the municipal government and poaching was rampant.
After several more attempts to develop management bodies through various Task
Forces and Executive Committees, the late Governor Salvador Socrates, also the
chairperson of the Palawan Council for Sustainable Development (PCSD), initiated the
establishment of the Tubbataha Protected Area Management Board (TPAMB). Acting
as chairperson, Governor Socrates convened the first TPAMB meeting on 15 June
1999, and to this day, the TPAMB is responsible for the general administration and
management of the park. The TPAMB has 17 members. Represented are municipal,
provincial and national government agencies (including enforcement agencies) and
NGO members including Saguda Palawan, WWF-Philippines, Conservation
International, and Tambuli ta mga Cagayanen. Proclamation No. 1126 of 2006 assigns
membership to the TPAMB, and identifies a consultative group of stakeholders that
includes the Governor of the Province of Palawan, the Mayor of the Municipality of
Cagayancillo, the Commander of the Armed Forces of the Philippines-Western
Command, the Commander of the Naval Forces West, and the Commander of the
Philippine Coast Guard District Palawan.
Proclamation No. 1126 of 2006 also increased the total area of the park to almost 1,000
square kilometers. The proclamation protects the park from entry without the necessary
permits and any form of natural resource collection or pollution. At present, the park is
legally protected through national protected areas legislation and a range of other
environmental legislation which enable action to be taken against a wide range of
threats. Management success in Tubbataha is attributed to a management structure
that enables local stakeholders to take the lead in decision making. Management in the
has changed hands, from national bodies based in far-away Manila to the provincial
government, with participation from the national and municipal governments as well as
private organizations. Unlike previous management bodies, most participating
organizations in the TPAMB have offices based in Puerto Princesa and Cagayancillo,
enabling members to attend quarterly meetings. Decisions are made by consensus and
participating organizations base their decision making powers on local constituencies.

6. The process of change in Tubbataha

The establishment of the TRNP was not something that came after a full consensus
building with local communities. Support from local communities was gained while
establishment of the Park was proceeding. While the Park was established, major effort
was invested in explaining the value of it, during consultations on the islands and in
Puerto Princesa. While the Cagayancillo community did not really feel they had a choice
in the establishment of the MPA (according to the current park manager: if they were,
they would have said no during those early stages, anyway) meetings were held with
the most vocal antagonists, non-traditional leaders with a clear influence on other
community members. The current park manager personally sat down and chatted with
many of them, unofficially, to remove the 'official' nature of the exchanges, thereby
ensuring that they were less guarded in their responses. In the end, the communities
agreed to a package of sharing in the tourism collections (10%), priority in the hiring of
personnel, and last but not least, the assurance that the name Cagayancillo be attached
to all references to the Tubbataha Reefs (pride).
Over time, there have been numerous efforts to gain support for TRNP. Scientists
conducting studies in Cagayancillo and Tubbataha were already talking to local
communities in 1984. During the process of park establishment, apart from the one-onone discussions with informal leaders, numerous community meetings were organized
for planning and formulation of policies. There were about 12 consultations at varying
levels when the Management Plan for the Park was being discussed, some of these
with Cagayanons. In the mean time the broader community was reached with essential
information in radio plugs that popularized the MPA. Special programs were organized
with local schools through which parents of school children were also reached.
The bigger obstacles (or perceived obstacles) in the process were vocal people with
the capacity to influence the quiet ones. Engaging these people in discussions was
essential to make them feel that their views were taken seriously. The current park
manager feels that investment in explaining the benefits of MPA establishment to these
people was vital for success. One particular religious leader was very vocal and very
frank about his take on the matter. His openness actually helped to clarify how the
community felt about the MPA. Some older fishermen also engaged in discussions.
These engagements with respected leaders greatly helped the communication with
local communities. In the end these vocal informal leaders did not end up being major
obstacles to park management. Rather it is now felt that their willingness to engage in
debate was essential for success. By engaging these leaders and learning about their
views, a negotiation process was facilitated that lead to eventual agreements.

The park manager puts it like this: People know if you are sincere in what you are
doing, it is easy to read if it is merely a job for you or a real commitment. So get real.
Talking with people on a personal level makes it easier for them to realize that we are
people too and not just enforcement agents, it enables us to share our aspirations and
they their dreams for their livelihoods and families, etc. Then we become equals.
7. Development and implementation of an effective Management Plan
This is a remote area and its management is a significant logistical challenge, requiring
a well-equipped team with operational boats, well trained and well equipped staff and
sufficient operating budget for fuel, maintenance and accommodation to ensure a strong
and responsive presence. Protection against intruding fishermen requires an efficient
and effective surveillance and enforcement plan, constant presence and readiness to
engage intruders anywhere on the reef. Tourism visitation requires careful planning and
management to ensure the values of the reefs, as well as visitor safety, are maintained,
and to ensure income is returned to both site management and local communities. A
park management plan was prepared by the newly created TPAMB and approved by
the PCSD in 1999. Prior consultations with the local government and fishers from
Cagayancillo, who stood to lose park jurisdiction and access to fishing grounds
respectively, were facilitated to arrive at agreements. These agreements were essential
to securing their cooperation and support for the management plan. The management
plan was approved in November 1999, and has since become the basis of park
protection and management. In the management plan, the following programs and
strategies were identified to effectively conserve and protect the Park:

CONSERVATION MANAGEMENT The main goal of the TPAMB is to effectively

conserve and protect the marine and terrestrial resources of TRNP for the long term.
This requires prudent use of human and other resources by a competent
organization that practices the principles of adaptive management.
CONSERVATION AWARENESS This program aims to promote awareness,
generate support and achieve voluntary compliance with regulations. The outreach
plan focuses on the need for marine conservation management and aims to develop
an active public constituency for TRNP. Conservation awareness activities are
focused on local communities, government agencies, educational institutions, and
the private sector, including the dive tourism industry operating in Tubbataha.
ECOSYSTEM RESEARCH AND MONITORING A regular, uninterrupted monitoring
regime is established to provide information on trends in biological resources and in
resource use and management effectiveness. Dependable scientific analysis and
assessment of monitoring results provide inputs for adaptive management.

In June 2001, in collaboration with WWF-Philippines and co-funded by the Global

Environment Facility United Nations Development Program (GEF-UNDP) and the
David and Lucille Packard Foundation, the Tubbataha Management Office (TMO) was
established. The TMO functions as the implementing arm of the TPAMB, and is
responsible for day-to-day operations of park management. The TMO is headed by a
Park Manager. The rest of the staff was recruited from nearby areas, its rangers coming
from Cagayancillo. The creation of the TMO provided a dedicated unit for implementing
the park management plan and maintaining presence in the park. It operates according
to the park management plan, which translates into yearly work plans and budgets.

Figure 10. Park Manager Angelique Songco and the Tubbataha ranger team.
In the early years of law enforcement by the Presidential Task Force, the rangers were
housed in a canvas tent held up by wooden poles. In 1996 a wooden structure was
built, but this did not last long, because the shifting sand rendered the foundation
unstable. The current housing for the enforcement team is a styrofoam-reinforced
concrete structure erected on a sandbar in the north atoll of the TRNP. It is equipped
with two patrol boats, a utility boat, radar, radio communications, geo-positioning system
(GPS) unit, and basic research equipment.

Figure 11. One of the small patrol boats that the rangers use to protect the park.

Marine protected area management, in the case of Tubbataha, is 80% law enforcement.
This figure is based on the percentage of resources spent on safeguarding the reefs as
compared to the amount spent on other activities. The parks rich biological resources
became increasingly attractive as fisheries outside the park and in other provinces
dwindled. And the stronger the attraction of Tubbataha, the greater the effort required
for its protection. Unfortunately, this phenomenon is not limited to Philippine fishers. The
lucrative live fish trade and the demand for ornamental marine products, such as turtles
and Trochus (top shell) shells, draw fishers from as far away as Taiwan and China.

Figure 12. Park Rangers head out in a small patrol boat to inspect fishers on the reef.
When the TMO was established in 2001, the law enforcement team developed the
operational guidelines for marine park rangers, but soon it became apparent that
military and civilian personnel assigned to protect the Tubbataha Reefs had insufficient
knowledge in key areas. They did not comprehend the operational work of protecting a
marine park. There was little understanding of the marine environment, as well as of the
ecological and socio-economic significance the marine protected area. There was also
a lack of paralegal knowledge in cases of apprehensions and consequent legal suits. To
address these problems, the TMO developed and has since been conducting the
Comprehensive Training for Marine Park Rangers among the various institutions
involved in enforcement.

The training program for Marine Park Rangers includes:

Basic ecology of the marine environment,

Visitor management,
Philippine environmental laws,
Paralegal procedures,
The TRNP management plan,
Crisis management,
Equipment maintenance and trouble shooting,
Study tours, and
Briefings prior to assignment and after a tour of duty.

At present, a team of ten marine park rangers is detailed to the Tubbataha Reefs all
year round, on two-month rotations. The composite law enforcement team is composed
of four personnel from the Philippine Navy, two from the Philippine Coast Guard, two
from Cagayancillo and two from the Tubbataha Management Office. During the threemonth diving season, park rangers monitor the activities of park users and ensure
adherence to park rules. All boats are boarded for inspection. The rangers interact with
passengers by giving them information on the park, widening their perspective. In
return, dive operators and tourists assist in law enforcement by reporting the presence
of suspicious vessels and the conduct of prohibited activities within the park.
Park rangers also board fishing boats discovered within park boundaries to verify the
activities of encroachers and provide information on the protected status of the reefs.
Dissemination of information to fishers who claim to have inadvertently entered the park
is standard operating procedure for rangers. If intruders are found to have conducted
fishing activities within the park, the case progresses from monitoring to arrest. Most of
the intrusions are made by fishers on their way to pelagic fish aggregating devices
outside Tubbataha. Boat captains utilize the lighthouse on the South Islet to obtain
bearings around the area. Others seek shelter in the reefs during bad weather.
Since its adoption, the management plan for Tubbataha has been updated twice. In
2002, the TPAMB revised the management plan to incorporate systems for regulating
activities in the park, issuing entry permits, collection of conservation fees, and
implementing ecosystem research. In 2004, the management plan was again revised to
incorporate a management effectiveness monitoring and evaluation program, while
other programs were streamlined, based on experiences to date. This revision
institutionalized the monitoring and evaluation system and provided a more structured
feedback mechanism.

8. Covering Management Costs, Creating Revenue Streams and Sharing Benefits

Only about US$250,000 is required annually for the TMO, to implement the Tubbataha
management plan. Eighty percent of this goes to law enforcement and 20% to program
activities such as information and education campaigns, capability building, research,
policy and advocacy, and assistance to Cagayancillo in developing sustainable coastal
resource management strategies and alternative livelihoods. These activities were
originally funded by grants and donations from international and local donors.

Figure 13. A typical dive Liveaboard vessel moored near the lighthouse in Tubbataha.
When externally funded projects drew to a close, the TPAMB turned to revenues from
dive tourism as its major source of funding. In 2005, half of the core cost could be
covered by tourism revenues, and the other half was shared by the Philippine Navy, the
Philippine Coast Guard, WWF-Philippines and other partners. To sustain the present
level of management momentum, the park will have to continue to engage partners in
sharing the cost of park management, while developing a mix of financing mechanisms.

In 2000, conservation fees were imposed at US$50 per foreign tourist and US$25 for
Filipino tourists, and dive boats were charged between US$47 and US$113, depending
on capacity. Local tourists and repeat divers for the season were given 50% discount.
Fee collection in 2005 reached US$58,100. To cover the ever-increasing cost of
management, the TPAMB decided to increase the conservation fee in 2006 and use the
peso denomination instead of dollars to avoid fluctuations in the exchange rate.
Increased fees were set at PhP 3,000 (US$57) per tourist, regardless of nationality, and
the floor rate for dive boats was increased to PhP 3,000. The figures from the 2006
diving season indicate that the increase in fees did not deter divers from going to
Tubbataha. In fact, the number of guests also increased by 11% from 2005. Willingness
to pay has not been a problem, as long as the quality of the reefs was good.
Closing off a marine area initially results in disgruntled stakeholders, due to restrictions
on fisheries. The key to managing a park of this magnitude lies in the equitable sharing
of benefits derived and a common understanding that overall benefits exceed the losses
through foregone opportunities. Stakeholder needs to have a deep understanding and
appreciation of his or her sectors relationship with the park in order to secure their
commitment. The best insurance a park could have is the stakeholders belief that, by
protecting the park, they are also protecting their own interests. The estimated ratio of
the cost of managing the park in relation to the benefits it provides is 1:8the park
gives back to the country eight times more than it costs to maintain it. An economic
valuation done for the park estimated a net present value of US$15.8 million, taking into
consideration tourism and fisheries values. A separate study on the intrinsic value of the
park using the social willingness-to-pay method showed a range of values from
US$69.2 million to US$113.6 million.
In 1998, a stakeholders analysis and subsequent stakeholder workshops were
conducted to identify interest groups and their stakes in the Tubbataha Reefs. The
stakeholder workshops proved to be a turning point in the management of Tubbataha
for two reasons. First, the commitment of the various stakeholders to respect the notake policy was secured. Second, an agreement was reached to compensate the
fishers of Cagayancillo for their lost access by giving them a share in the conservation
fee collections. It took time and a lot of discussion before the fishers decided to give up
fishing in Tubbataha. What tipped the balance was when they learned that the park
seeds the Sulu Sea with fish, and therefore plays a critical part in the fish supply chain.
An important lesson from this negotiation process was that science-based data is
needed for stakeholders to make informed choices. Eventually, the stakeholders agreed
on how to share the conservation fees: 10% for Cagayancillo to fund livelihood
development activities; 40% for park operations; and 50% into a reserve fund.

Cagayancillos share of the conservation fees, used for their livelihood fund, is managed
by the municipal government, and has been put to good use. A section of the municipal
road, serving as a barangay-to-market road, was constructed. Loans and marketing
support for seaweed farming and for basic commodities such as rice and fuel have been
provided. Loans for educational, health and other emergency needs have been made
available. As of 2004, repayment of loans was recorded at 90%, involving about 250
beneficiaries. These beneficiaries have been made co-owners of the fund through
membership and shares in capital build-up. A mechanism for savings has likewise been
incorporated into the fund management system.
9. Management Effectiveness and Measuring Success
Recent research on ocean currents has shown that larvae of corals and fishes are
carried by currents from Tubbataha to the surrounding reefs, especially to the nearby
reefs of Cagayancillo and to the eastern side of Palawan. This larval dispersal is made
possible by the circulation pattern in the Sulu Sea, currents resulting from tidal shifts
and wind-driven surface currents. It is therefore clear, also to local communities, that
healthy fish stocks in Tubbataha mean healthy fisheries on surrounding fishing grounds.

Figure 14. Huge schools of fish swarming over Tubbataha Reefs, replenishing
surrounding fishing grounds with larvae that drift away from here with ocean currents.

In 2002, TRNP was chosen as one of 20 marine protected area pilot sites around the
world to participate in the Marine Protected Area Management Effectiveness Initiative of
the International Union for the Conservation of Nature and Natural Resources (IUCN)
World Commission on Marine Protected Areas and WWF. This facilitated the
development of a structured monitoring and evaluation system for the park. A five-year
ecosystem research and monitoring program was adopted, and annual reports on the
status of reef health and other marine-associated ecosystems in the Sulu Sea were
produced. WWF-Philippines also monitored other nearby reefs such as Jessie Beazley,
Cawili, Arena, Calusa, Cagayancillo and Basterra to compare the impact of varying
levels of management intervention.
Participation in this initiative involved demonstrating the applicability of selected
indicators of management effectiveness. The combined results from all pilot sites paved
the way for a guidebook on evaluating management effectiveness entitled How is your
MPA Doing? This guidebook recommends simple and more structured methods rather
than advanced scientific methods. The indicators selected were for the results of
biophysical, socioeconomic and governance interventions. Most of these indicators
measure tangible benefits associated with a particular marine protected area.
In November 2003, the TRNP adopted its management effectiveness monitoring and
evaluation system. The main goal for the TRNP is to preserve the globally significant
biological diversity and ecological processes of Tubbataha, and to manage it and the
surrounding areas on a sustainable basis. Because of this, the management focused on
biophysical indicators. Nevertheless, the evaluation of the socio-economic and
governance aspects of park management was also given due attention.
Surrounding communities measure management success in terms of fisheries benefits
as well as in terms of their share from conservation fees paid by visiting divers. This is
directly aligned with the dive industry focusing on healthy reefs and fish populations and
the management aiming to protect the marine biodiversity. Indicators measuring
abundance, biomass, diversity and individual sizes in fish populations are therefore
among the most important measures of success, for all stakeholders involved. Directly
related to this, reef health indicators such as live coral cover and seabird population
health are among the most important biological indicators for management success.
Resource use indicators such as compliance with No Take Regulations and visitation by
divers are among the most important human behavior indicators that measure the
effectiveness of the Tubbataha management in implementing and enforcing the
management plan. Socio-economic and governance indicators further complete the
framework that is applied to measure management success in Tubbataha.

Annual monitoring reports on the biophysical conditions in the Tubbataha Reefs showed
that the El Nio phenomenon of 1998, which caused massive bleaching worldwide,
reduced live coral cover in Tubbataha to only 30%, from 45% in the previous year. But
due to effective management and the resilience of a large coral reef under No Take
management, in 2005, hard coral cover had increased again to 46%, surpassing the
pre-bleaching level of 1997.
Fish biomass has also been on the increase, especially since 2005, with large schools
of bigger fish now common on the reefs. In 2009 it could still be observed that most fish
in these schools had not yet obtained maximum adult sizes, so a process is still under
way where biomass increases and larger numbers of smaller fish are making place for
stable numbers of much larger fish. This has a major impact on reproductive output
from these reefs, as full size adult reef fish have been shown to produce up to 200 times
more eggs then younger adults of the same species. Especially the increase in numbers
and sizes of the larger reef predators, including jacks, groupers, snappers and sharks,
economically important species as well as key species in coral reef eco-systems is
extremely encouraging. At present, the No Take MPA of Tubbataha has a much
higher fish biomass then any of the unprotected surrounding reefs.
Socio-economic information was gathered in Cagayancillo to determine any trends in
community well-being. These were the people who were directly using the resources of
the reefs before they were declared a no-take zone. To measure the changes in living
standard, selected data from a national census in 2000 and a WWF study in 2004 were
compared. The living standard showed positive change in the eight indicators used. Lot
ownership increased from 82% in 2000 to 86% in 2004. The increase was even greater
in house ownership, which jumped from 85% in 2000 to 95% in 2004. The quality of
construction materials used for homes was also shown to have improved. Through a
local participatory evaluation conducted in April 2005, review of records on income
showed an astounding 90% increase from 2002 to 2004.
One of the most direct governance-related indicators of management effectiveness in
Tubbataha is the existence of a functional management body, the TPAMB, responsible
for the implementation of the parks management plan. It has become a truly functional
organization, able to face the evolving challenges of managing the Tubbataha Reefs.
The TMO, in directly running park operations, has improved the administrative and
financial management of the park and effectively managed resource use by confidently
clarifying and enforcing park rules and regulations, including the conservation fee
collection and permit system.

Tubbatahas operations used as legal framework several existing laws, such as the
NIPAS Act, the Fisheries Code, the Strategic Environmental Plan for Palawan Act, and
the Local Government Code. The TPAMB uses these laws to its advantage, invoking
provisions that are most relevant. To further strengthen Tubbatahas legal foothold, the
TPAMB, together with other stakeholders, formulated the Tubbataha Protected Area
Bill, and subsequently submitted it to Congress for passage into law in 2006.
Management success in Tubbataha to a large extend depended on effective policies
being passed on the basis of support from major public constituencies. Stakeholder
support has resulted from an understanding of the need for and benefits from effective
No Take management of the Tubbataha reefs. The distribution of formal knowledge to
communities has played a major role in management success in Tubbataha and this
case study clearly shows the importance of the types of information disseminated to
stakeholders, as well as the level of confidence that the information is distributed with.
10. Contacts and Sources of Information
A field visit to Tubbataha Reefs and Cagayancillo communities was conducted in May of
2009 and information from various documents and internet sources was updated on the
basis of the field observations made during that visit, discussions with the Tubbataha
marine park Manager, Angelique Songco and the Tubbataha marine park rangers,
various partners like CI Philippines, WWF Philippines, fishermen and communities in
Cagayancillo and dive Liveaboard operators in the Park. The basis for this case study is
obtained from Tubbataha Reefs, A Marine Protected Area that Works, published by
WWF Philippines in 2006. Additional sources and contacts include but are not limited to:

Tubbataha Reefs Natural Park

www.tubbatahareef.org
WWF Philippines
www.wwf.org.ph/downloads/TubbatahaCaseStudy.pdf
Conservation International Philippines
www.conservation.org.ph/sss/Reports/CagayanFS.pdf
United Nations Environment Program World Conservation Monitoring Center
www.unep-wcmc.org/sites/wh/pdf/TUBBATAHA.pdf
UNESCO World Heritage Centre Tubbataha
whc.unesco.org/en/list/653
Palawan Council for Sustainable Development
www.pcsd.ph/protected_areas/tubbataha.htm