ESSC - 5.3 Communities and Watershed Governance in Visayas, Philippines

5.3 Communities and Watershed Governance in Visayas, Philippines

Tuesday, 18 August 2009

GRASSLANDS IN UPSTREAM CAROOD. The Department of Agriculture runs the 3,600-hectare Ubay Stock Farm in the headwaters of Carood. Residents from Barangay were paid to plant a portion of this area with gmelina under a DENR watershed reforestation project. They had to walk two kilometers uphill and cross two of the Stock Farm's fences to get to the project's designated reforestation area. This later became a CBFM site, but so far tenure has not yet been issued to Bongbong residents.

The Carood Watershed is a basic example of the ways in which different communities, local government units, and NGOs are attempting to link initiatives to develop integrated resource management systems. Carood Watershed spans portions of six municipalities in eastern Bohol, an island province in the Central Philippines. Covering about 20,500 hectares, approximately 10% percent of which is under forests, some several thousand households live within the watershed. Over the past five years, six Community Forest Management Agreements have been issued covering nearly 2,500 hectares of land, some in the uplands and others for coastal mangrove forests.

The major challenges being faced by villages in the watershed includes unproductive lands (approximately 8,000 ha), wild grass fires in the uplands, soil erosion and downstream flooding in the plains, improper waste disposal, and mangrove cutting, illegal fishing, and coral reef destruction along the coast. Since many of the problems are linked within the watershed, it is critical for local government and communities to collaborate in addressing them. In 1998, as part of the initial implementation of the CBFM program, the Department of Environment and Natural Resources (DENR) established the Ubay-Mabini-Alicia (UMA) Sub-Project. The DENR contracted with a number of local NGOs to implement the project, especially reforestation activities. With assistance from the ESSC, the Carood Watershed Working Group (CWWG) was established to coordinate the efforts of various stakeholders. This reliance on local NGOs for DENR CF project implementation is a common practice in the Philippines, and working groups are frequently used mechanisms to facilitate DENR, NGO, private sector, university, and community interactions.

In the upland communities of Ubay Municipality in 2001, three tree planter's organizations from local barangays were awarded CFMAs and contracts to undertake reforestation. The challenge was to reforest around 500 hectares of cogon (Imperata cylindrica) which is highly prone to forest plantation fires. Over a hundred hectares is now planted to forest and agro-forestry species and even fruit trees. The organizations have developed management strategies for fire control including the establishment of fire lines and firefighting training. When the country mapped out its ongoing land use, some of the difficulties became evident. Living along the national highway, the grasslands they replanted are far away to the east and they have to pass through another government program to go there (Map 2).

Click here to enlarge Map

In the lower watershed, coastal communities have watched the mangrove forests being cleared for fish ponds and their fishery depleted through the use of explosives, which also destroys the fragile coral reefs. To stabilize the environment, local people's organizations have been awarded contracts to restore nearly 800 hectares of mangrove forest. They have also organized a system of protection to guard against illegal fishing practices. The community group is also exploring a range of income generating activities including mud crab culture, beekeeping, and eco-tourism.

FORUM ON NRM FOR POVERTY REDUCTION . The Provincial Governor expressed support of the watershed management in Bohol so that it may contribute to poverty reduction. The forum brought together 140 participants, including nine mayors from around the province.

While the CFMA program in the Carood Watershed has established agreements with six community groups, through local people's organizations, funded their reforestation and management activities, and provided some technical assistance and training programs, the program also faces a number of ongoing challenges. These issues range from political conflicts between rebel groups and the military in the uplands, to illegal economic activities such as dynamite fishing along the coast. Yet, the most critical problem is jurisdictional coordination between government agencies, as well as between local government units. Such coordination is critically important in strategic in integrating NRM project activities within a single watershed. Even in a small watershed like Carood, linking different administrative institutions and development agencies is a difficult task. Community forest management activities are also usually dependent on external project funding, and once such support ends, sustaining local initiatives can be problematic if communities are not already empowered and there are no actual benefits. Efforts by ESSC to facilitate the development of an integrated watershed management plan for the Carood through the Carood Working Group have been received well by a number of the municipal governments and people's organizations, however, the integration of community-level management systems at a watershed level have been slower to develop.

As a response to these and the concerns also raised by local government representatives, the Working Group decided to create a formal body that could effectively respond and plan proactively for the management of the watershed. Initial discussions led to the formation of the Carood Watershed Management Council created through a verbal commitment among the members and later through an Executive Order of the provincial governor. The members signed a Memorandum of Understanding to formalize their agreement and facilitate the accessing of resources for the sustainability of the management body's activities. The Council has acknowledged the need to harmonize LGUs' development plans and communities' resource management plans, and to integrate their implementation with the assistance and cooperation of all stakeholders to ensure the sustainable management of the watershed.

A recent review of CFM in Bohol, identified both strengths and weakness of CFM that are shared in many other provinces around the country. It was noted that CFM works better in areas that have comprehensive programs for poverty reduction. The convergence of non-government agencies, local government units and non-government organizations (NGA-LGU-NGO) support programs in CFM areas enhances resource management, lessens dependence on forest resources for a living, and overall, improves the quality of life of the community. CBRMP helps promotes agroforestry by distributing fruit tree seedlings and livestock.

MANGROVE RESOURCES IN LOWER CAROOD. In contrast to its resource-poor uplands with 68 hectares of secondary growth forest, downstream Carood has 291 hectares of mangrove forest. With over 30 species, the mangroves in Carood is considered a healty ecosystem able to support local livelihood.

CFM works well in areas with harmonious clan relations, where the traditional Boholano culture of voluntary cooperation still exists. CFM also works when the barangay LGU plays a frontline role. The tasks of forest protection, firefighting, and building of barangay infrastructure, is anchored on community mobilization - a voluntary collective action weaved by traditional bonds and driven by common interests. This pattern is true to many well-managed CFM areas in Bohol and reveals that the socio-cultural aspect is an important consideration in planning and implementation of community forest management. Ecotourism is an emerging strategy for resource conservation and livelihood development in Bohol's CFM areas. Many of the assessed CFM sites have potential for ecotourism and a few have operational tourism projects. Community-managed ecotourism includes recreational activities (nature trek, river cruise, bird watching and cave exploration), selling of goods and services (rowing, tour guiding, massage, etc.). Tourism boosts livelihood activities, and generates employment and income for the community. Tourism centers can be complemented with satellite ecotourism sites in CFM areas. In this way, livelihood opportunities are broadened and conservation of natural resources is reinforced.

On the other hand, it has been found that the mere processing and installation of the CBFM Agreement alone is inadequate. In most cases, the CBFMA did not undergo the process of orientation and negotiation with stakeholders. Thus the community cannot develop self-determination and self-reliance - both basic principles of CFM. The Community Resource Management Framework (CRMF) does not comply with the minimum requirements of DENR guidelines. Documents are usually prepared by DENR with insignificant participation of the community. Moreover, CRMFs are often not used or referred to by the CBFMA holder. The ill effects are now taking its toll on CFM. POs are unable to cope with day-to-day decisions needed for CFM implementation without DENR intervention. They remain dependent on external institutions such as government agencies and NGOs for leadership and management of the CBFM.

Perhaps one of the biggest challenges facing community forestry in the Philippines in coming decades is to successfully enhance livelihoods through increased forest-based income flows. After over a decade of field projects, resource management in many CFM areas has not produced the "promised" economic benefits and communities remain poor. Those contracted for reforestation projects, have long been waiting for the issuance of the Resource Use Permit which is necessary so that the community may utilize the resources. Once granted, however, the community must contend with identifying and linking up with markets.

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