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A Case Study of Ubay, Bohol on Sustainable Coastal and Fishery Resource

Management1: A Contribution to the Philippines Country Environmental Analysis

November 2008

Elmer S. Mercado, EnP2

1 The preparation of this case study was greatly facilitated by an earlier material written by Mr. Alpios Delima, CRM Coordinator of the Municipality of Ubay, Bohol province and from project documents provided by the USAID’s FISH Project. 2 World Bank Consultant. The findings, interpretations, and conclusions expressed herein are those of the author, and do not necessarily reflect the views of the World Bank and its affiliated organizations, or those of the Executive Directors of the World Bank or the governments they represent. This paper is for public comment and use. You may email the author through email address [email protected]. .

WB CEA Case Study: Ubay, Bohol Coastal Resource Management by E. Mercado, EnP, November 2008

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Summary Fishing is the lifeblood of the economy in the Municipality of Ubay in Bohol province and is a food staple in every Ubay household. Twenty of Ubay’s 44 barangays are located in the coast. More than half of its almost 65,000 population is directly engaged in fishing while as much as 70% of the population generates their income and source of livelihood from fishing-related services and enterprises. But the rapid increase in the town’s population and booming economy in the late 80s and the 1990s exerted too much pressure on Ubay’s fish habitat and resources that resulted to the decline of its fisheries. Official census office estimates showed that by 2012 Ubay’s population will increase by more than half or almost 90,000 people compared to its 2000 population. The overfishing of Ubay’s fishery and coastal resources and the use of illegal and destructive fishing methods such as dynamite and cyanide fishing, trawl fishing and use of fine mesh nets further aggravates the town’s fishing conditions. But the biggest threat in Ubay’s declining fish stocks is the intrusion of commercial fishers and illegal poaching by other fishing vessels from other places into its municipal waters that forms part of the resource-rich Danajon double barrier reef. Almost 54% of all fishers, 44% of all non-motorised and 64% of all motorised boats in the whole province of Bohol are concentrated into the 270 sq.km. or 27,000 hectares reef area of the Danajon banks. Making it the most densely fished area per kilometer of coastline in the whole of Central Visayas.

The municipality of Ubay is one of the nine coastal municipalities in northern Bohol that is critically affected by the deterioration of fishing grounds and reef areas in the Danajon Bank. At least sixty-one (61) kilometers of Ubay’s shoreline faces part of the Danajon Banks. It shares common fishing grounds within the Danajon Bank with 3 neighboring municipalities namely, Bien Unido, Carlos P. Garcia and Talibon in Bohol and Maasin in Leyte.

The continuous threats of overfishing, destructive fisheries and intrusion over its municipal

waters became a critical problem for the municipality and its local fishing community. It forced the municipality of Ubay along with its neighboring towns to finally act and defend their lifeblood against these threats in order to maintain their survival.

In 2001, the Municipality of Ubay reconfigured its coastal and fishery protection programme to a more integrative and encompassing coastal and fishery resource conservation and development programme. Ubay’s Fishery Development Conservation Program (FDCP) was envisioned by the municipality to be a vehicle for strengthening its municipal fishery law enforcement group by approaching the problem of fisheries protection in a more integrated manner. Its approach was through improved fishery governance, community participation, greater transparency and accountability, local knowledge and capacity building, strong local enforcement and coastal habitat and resource conservation and rehabilitation. The FDCP, with technical assistance and support from the USAID’s FISH Project, was the municipality’s response for a more substantive support in terms of training, manpower development, coastal habitat management and patrol assets than just plain law enforcement and coastal patrolling. One of the first steps made by the LGU in implementing its FDCP was the recruitment of capable and dedicated personnel that shall provide technical support and professional assistance on fisheries management to the LGU and the local community. A selected group of personnel were recruited from different LGU departments to serve as a technical working group (TWG) to address concerns in coastal resources and fisheries management. They were complemented by a team of field technical personnel from the Bureau of Fisheries and Aquatic Resources (BFAR), Philippine National Police (PNP), Bohol Environment Management Office (BEMO) and Department of Environment and Natural Resources (DENR) that provided expert knowledge and training on topics related to coastal resource and fishery


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management, fish habitat conservation, law enforcement and interdiction, fish species identification and technologies, among others.

The municipality also institutionalised a regular coastal resource management office (CRMO)

under the Office of the Mayor and a coastal enforcement and protection unit (CPEU), a one stop-shop office of the different local and national coastal enforcement agencies from the national police, environment and agriculture and fishery departments. These LGU coastal units served as the coordinating body for the TF Bantay Dagat and other volunteer enforces and agencies as well as for the issuances of all fish and coastal related permits, licenses and documents. The group was further complemented by local community representatives from the different coastal barangays who were recruited based on personal commitment and familiarity on marine resource conservation. These community volunteers were deputised as Bantay Dagat officers and were regularly supported by the LGUs in their coastal patrolling and habitat management services.

From 2002-2006, the LGU regularly allocated and increased the funding and resource support for the implementation of coastal and fishery protection activities to sustain the FDCP programme. Over the last five years, Ubay budgeted an average of PhP 3.2 million or US$ 73,000 (at US$1=PhP 44) per year for its coastal and fishery management activities to protect its municipal waters. In 2006, the municipality budgeted more than PhP 4.0 million or US$ 92,000 for its coastal fishery protection and conservation activities. The funds were used to support TF Bantay Dagat enforcers and its operations, honoraria for volunteers, maintenance of patrol boats and procurement of necessary equipment and instruments such GPS, binoculars, VHF radios, megaphones, water resistant camera, life jackets, navigational instruments and charts, cooking utensils, search lights, and floating assets. The municipality of Ubay, through its CRM office, forged strategic linkage and networking with other LGUs and concerned agencies of the provincial and national government and NGO’s undertaking related functions. These included an inter-LGU joint enforcement cooperation and coordination with the neighboring towns of Bien Unido, Carlos P. Garcia and Talibon for the common enforcement and protection of their “common fishing grounds” in the Danajon Bank; formation of the provincial coastal law enforcement council (CLEC) in 2004 that covered enforcement coordination among the 9 municipalities in Northern Bohol as well as with Bohol Provincial Government, Philippine Coast Guard, Philippine Navy, Philippine National Policy and other national government enforcement agencies This inter-LGU cooperation facilitated the filing of court cases against apprehended violators of local coastal ordinances, coordination in seaborne patrolling and pursuit operations, and information exchange of registration and movements of local fishing vessels. By working closely with fisherfolk organizations in the barangays and in the formation of community-managed resource councils in almost all of Ubay’s coastal barangays, the municipality’s coastal fishery management initiative gained strong local grassroots support, improved fish policy credibility among local stakeholders and enhanced local governance accountability of local fishery resource management measures. Through its interaction with local fisheries management councils, the Municipality of Ubay was able to approve in 2006 an integrated Municipal Fisheries Ordinance that provided a strong local policy framework that unified the various regulatory, jurisdictional, licensing/permitting and administrative rules for the protection and as well local community efforts such as community patrolling and on-site conservation activities of Ubay’s fishery resources. Finally, community and private sector volunteers bolstered its law enforcement work and conservation programmes with improved technical competence, training and skills provided by local professionals and community volunteers to local coastal and agriculture offices and community coastal enforcement teams.


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The most important impact and benefit of Ubay’s strong and continuous effort to increase fish stock and return of diversity of local fish species in its municipal waters after two years of implementation was the reported steady increase in fish catch per unit effort (CPUE) for manual fishing gears such as hand lines, lift nets and stationary gillnets traditionally used by municipal fishers. A recent study made by the USAID’s FISH Project last September 2008 on the economic and financial returns of Ubay’s coastal resource management programme reported that PhP 10 million (US$ 227,000) in direct fisheries revenue and between PhP 50-90 million (US$ 1.13-2.0 million) in economic returns for every Php 2 million investment/year made by the LGU on its coastal and fisheries management activities. On the other hand, destructive fishing gears such as Danish seine, bottomset gillnets and otter trawls have considerably dropped. This is largely attributed to the strength of the municipality’s coastal law enforcement initiatives on destructive fishing methods and regular seaborne patrolling.

Increases in the level of awareness of fisherfolks about their coastal environment and improved understanding on the basic concepts involving coastal and fishery habitat are transformed to increase in compliance to national laws. Additionally, their heightened participation in drafting local legislations through the B/FARMCs and public consultations on proposed bills as recommended by the M/FARMCs, were also translated in their increased willingness to participate in the implementation of local fishery ordinances.

The total number of apprehended fishery law violators after two years of implementation showed

a declining trend from a high of 140 in 2006 to a low of less than 20 arrests in 2007. This reflects substantial success in the LGU’s resource conservation advocacy programme and its strict enforcement of coastal ordinances. On the other hand, whilst there was a marked decrease in arrests fishing violators in 2007, collection of fees and penalties for the same violations of fishery and coastal management ordinances increased by more than PhP 140,000 or US$ 3,182 (at US$1=PhP44) or more than twice the collections in previous years. This does not include fees from confiscated fishing vessels that are turned over to local enforcement authorities or remanded to their owners and food expense savings from caught fishes that are donated to the municipality’s local hospital and municipal jail.

Likewise, the municipality also increased collections of registration fees of local fishing vessels.

From January –June 2008, registration fees for local fishing vessels below three (3) tons have reached some PhP 158,000 or US$ 3,590 since the application of the new regulation last year.

Whilst Ubay’s fishery protection and conservation programme have achieve moderate economic gains and improvement in fishery stocks, the greatest gain achieve by the programme was the empowerment of local fisherfolks to directly influence barangay and municipal policy and development plans by giving them opportunity to be part of barangay governance at least in the specific sector of fishery. The participation of local fisherfolks in the local village fishery resource councils, coastal resource assessments, seaborne patrols, habitat monitoring and reviews of local and community ordinances gave them the strength to have not only a stronger role and a better voice in the survival of their local fishery resources as well as their own.


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A. Overview The Danajon Bank off the northwest coast of Bohol is one of the few documented double barrier reefs in the world and one of only three such sites in the Indo-Pacific region (Pichon, 1977). It is a very rare geological formation whose reefs are believed to have been formed over the last 6,000 years. Danajon’s double barrier reef, the only one in the Philippines, comprises two sets of large coral reefs that formed offshore on a submarine ridge due to a combination of favorable tidal currents and coral growth in the area. It is a larger and better-defined structure than other known double barrier reefs in the world. Photo from Davao Divers, 2008

The entire Danajon Bank’s reef area is approximately 270 sq km or 27,000 hectares making-up

almost 1% of the country’s total reef area.3 . It spreads over the municipal waters of 17 municipalities in 4 provinces and two regions in the Visayas4. It is further covered by ten (10) protected area sites under the National Integrated Protected Area System (NIPAS) that includes seven strict nature reserves and three protected seascapes (Green, et.al. 2002). Because of its location in Central Philippines, the Danajon Bank is a most important source for biodiversity and a large breeding area for many species of finfish, shellfish and invertebrates. Its productivity has been estimated to be worth US$ 8million per year if managed well (FISH, 2008). It is thus a very important source of livelihood for the 17 coastal municipalities around the bank, especially those from the province of Bohol. It is estimated that almost 70% of all municipal and commercial fish catches in Bohol are source from the Danajon Bank (FISH, 2008). In a survey conducted by the USAID’s FISH Project5 , they estimated that about 54% out of 33,000 fishers, 44% of 11,700 non-motorized boats and 62% of 8,950 motor crafts of the entire province of Bohol are found in the 9 coastal municipalities6 bounding the Danajon Bank (See Table 1.0).

Table 1.0 Summary Table of the Number of Fisheries and Motor/Non-Motor crafts in Bohol Total Number

of Fishers Total No. of Motor Crafts

Total No. of Non-motorised boats

9 Northern Municipalities 17,693 5,557 5,083 Other 29 Municipalities 15,260 3,395 6,603 Total 32,953 8,952 11,686

Source: FISH Project, 2008.

3 The estimated total area of coral reefs in the Philippines is 27,000 sq.km. 4 The LGUs that cover the Danajon Bank in their jurisdiction are 10 municipalities in Bohol and two in Cebu for Central Visayas, and, one municipality in Leyte and four in Southern Leyte for Eastern Visayas. 5 The Fisheries Improved for Sustainable Harvest (FISH) Project is a 7-year (2003-2010) project supported by a grant from the United States Agency for International Development (USAID) implemented in partnership with the Department of Agriculture-Bureau of Fisheries and Aquatic Resources (DA-BFAR) that provides technical assistance to LGUs for the sustainable management of fisheries and aquatic resources. 6 These are the municipalities of Tubigon, Clarin, Inabanga, Buenavista, Getafe, Bien Unido, Trinidad, Ubay, Pres. Carlos P. Gracia and Talibon.


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Unfortunately, over the years, the Danajon Bank area has been subjected to extremely high fishing pressure largely due to illegal and destructive fishing methods. The use of dynamite and cyanide has severely damaged the area’s reef with current living coral reef cover standing at less than 25% in 2004 from the mean cover of 29.5% in 1996. A recent study of 28 near shore, reef fishing grounds in Danajon were also found to be in poor condition with 32% rubble, 28% sand or silt, 9% dead coral and only 12% live coral remaining. (FISH, 2008). Other factors affecting the degradation of Danajon Bank and its surrounding fishing grounds in Bohol are: a) sediment accumulation, prohibiting coral and sea grass growth; b) high population density within Danajon’s coastal communities that has led to increase pollution in the area from the conversion of more lands for settlements, agriculture and solid waste disposal; and, c) removal of mangroves and their conversion to other uses leading to loss of critical nursery habitats and shoreline and storm surge protection (FISH, 2008) Fish catch that was normally abundant in the early 1990s have dramatically dwindled because of the absence of fish and the destruction of its habitats and has largely contributed to the poverty of over 60% of coastal inhabitants of northern Bohol who live below the poverty line of P6,000 or US$136 per month7 driving them to catch smaller fish and use more efficient but destructive fishing methods (Green, et.al. 2002). Data from the National Statistics Office (NSO) showed that municipal fish catches in the whole province of Bohol have steadily decreased from 14,800 metric tons in 2000 to only 13,700 metric tons in 2003 with reports of continuing declines in succeeding years. The municipality of Ubay is one of the nine coastal municipalities in northern Bohol that is critically affected by the deterioration of fishing grounds and reef areas in the Danajon Bank. At least sixty-one (61) kilometers of Ubay’s shoreline faces part of the Danajon Banks.

Ubay is a first class municipality of the 2nd District of Bohol with a total land area of 29,205 hectares with an estimated population of 64,861. It is the biggest town in Bohol in terms of land area and the largest outside of Tagbilaran City in population8. Its annual average population rate of 3.3% over the last ten years was even higher than the national average of 2.3%. Twenty of Ubay’s 44 barangays are

located in the coast and more than half of its almost 65,000 citizens are largely dependent on fisheries for their livelihood (See Table 2.0). Ubay has a total of 1,492 fishers, 406 non-motorised boats and 380 motorised bancas operating in its municipal waters. Table 2.0 Population Profile and Distribution of the Municipality of Ubay (2004)

Type of Barangay No. of Barangay

Total Population

Coastal and Island barangays

20 33,071

Land locked barangays

24 31,790

Total 44 64,861 Source: Ubay Municipal Development Planning Office

Map Source: www.wikipedia.com, 26 August 2008

7 1 US$=PhP44.00. 8 Ubay is one of the fastest growing town in the Bohol with an annual population growth of 3.3% that is higher than the provincial and national average of around 2.6% and 2.3%, respectively.


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http://www.wikipedia.com/


B. Conserving and Protecting Ubay’s Coastal and Fishery Resources: Saving a People’s Lifeblood. 1.0 Decline of a critical community resource “I remember when I was a young boy that shrimps just jump out of the shore and we would pick them up from the beach to bring home for dinner” was how Mayor Eutiquio Bernales, Ubay’s long-time municipal mayor remembered the bounty of his town’s coastal resources in the early and mid-70s. Today, he laments along with most of his fisherfolk constituents the dwindling catch of local fishing boats even after several days of being out to sea.

Mayor Bernales relates that more than 10 years ago, Ubay supplied most of the fish and shellfish bought in the wet markets of Bohol and Cebu. Its fish catch was in such great demand because of the diverse variety and volume of fish species caught in Ubay’s municipal waters that many of their catch were even being exported to Manila and abroad, particularly Japan, Hong Kong and Taiwan. Today, the average fish catch in Ubay is barely enough to cover a day’s wage. The local coastal resource management (CRM) office estimates that the decline in Ubay’s fish catch and marine resources could be around 80-90% compared to ten years ago.

Fishing is the lifeblood of Ubay’s economy and a food staple in every Ubay household. More than half of the population is directly engaged in fishing while as much as 70% of the population generates their income and source of livelihood from fishing-related services and enterprises. But the rapid increase in the town’s population and booming economy in the late 80s and the 1990s exerted too much pressure on Ubay’s fish habitat and resources that resulted to the decline of its fisheries. Official census office estimates showed that by 2012 Ubay’s population will increase by more than half or almost 90,000 people compared to its 2000 population. The overfishing of Ubay’s fishery and coastal resources and the use of illegal and destructive fishing methods such as dynamite and cyanide fishing, trawl fishing and use of fine mesh nets further aggravates the town’s fishing conditions. But the biggest threat in Ubay’s declining fish stocks is the intrusion of commercial fishers and illegal poaching by other fishing vessels from other places into its municipal waters9. In 2004, local coastal law enforcement volunteers arrested 10 commercial fishing vessels coming from Cebu and Leyte for illegal fishing and poaching within Ubay’s municipal waters. Ubay shares common fishing grounds within the Danajon Bank with 3 neighboring municipalities namely, Bien Unido, Carlos P. Garcia and Talibon in Bohol and Maasin in Leyte. The continuous threats of overfishing, destructive fisheries and intrusion over its municipal waters became a critical problem for the municipality and its local fishing community. It forced the municipality of Ubay along with its neighboring towns to finally act and defend their lifeblood against these threats in order to maintain their survival.

The passage of RA 8550 or the new Fisheries Code of the Philippines in 1997 mandated local government units (LGUs) jurisdiction over the management, conservation, protection and utilisation of its municipal waters. Under the law, LGUs are given the powers to regulate all fishing activities including the issuance of fish licenses, imposition of local fees and charges on fishing activities and passage of fishery ordinances within their jurisdiction. It also tasked them the enforcement of national and local fishery laws as well as the conservation and protection of coastal and marine habitats adopt sustainable

9 Under Republic Act no. 8550 or the Revised Fisheries Code of the Philippines, all coastal waters within 15 kms from a town’s nearest shoreline forms part of its municipal waters and exercises jurisdiction and control over these waters.


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management practices within the 15-km municipal waters. The Fisheries Code gave coastal LGUs the mandates to protect, conserve and develop their local waters.10 2.0 Conserving and protecting the community’s fisheries and coastal resources: a battle in all fronts

Task Force Bantay Dagat was initiated by the Municipality of Ubay in 1998 to address the problem of rampant illegal and destructive means of fishing in the municipality that include dynamite fishing, fishing by use of cyanide and other noxious substances, use of inappropriate nets, illegal conversion of mangroves, structural invasion of foreshore and shoreline buffer zones, marine sand extraction and occasional intrusion of commercial fishing vessels inside its territorial waters. Task Force Bantay Dagat, Literally meaning “guardian of the sea” the Task Force was composed of volunteers coming from the ranks of fisherfolks in Ubay’s coastal barangays and was tasked to protect the approximately 203 square kilometers of municipal waters from illegal and destructive fishing practices.

Volunteer fisherfolks belonging to the Task Force initially conducted seaborne patrol operations using their own fishing boats. Later the LGU procured a patrol boat and gave the local police instructions to assist in the operations. However, despite the creation of Task Force Bantay Dagat, the problem of rampant illegal fishing persisted and the decline in fish stock was still felt by the community. Coastal communities have remained unaware of the need to conserve and protect local coastal and fish habitats to revive the municipality’s dwindling fish stock.

Moreover, most volunteer enforcers lack the technical capability to enforce fishery laws efficiently. Mishandling of evidences, improper arrests and seizures and inability to write clear affidavits were some of the reasons why cases do not reach the level of prosecution. There was a general lack of accountability on the part of volunteer enforcers for the consequences of their actions. Enforcement activities that occurred away from the scrutiny of communities and the local government became opportunities for connivance between apprehending officers and violators. The programme suffered from perceptions of graft and corrupt practices among its members losing support from the local community.

In 2001, the Municipality of Ubay reconfigured its coastal and fishery protection programme to a more integrative and encompassing coastal and fishery resource conservation and development programme. Ubay’s Fishery Development Conservation Program (FDCP)11 was envisioned by the municipality to be a vehicle for strengthening its municipal fishery law enforcement group by approaching the problem of fisheries protection in a more integrated manner. Its approach was through improved fishery governance, community participation, greater transparency and accountability, local knowledge and capacity building, strong local enforcement and coastal habitat and resource conservation and rehabilitation. The specific objectives and strategies of the FDCP are outlined as follows:

• Increase the level of awareness and participation of coastal communities in fishery governance through the conduct of information, education and communication and establishment of Fisheries and Aquatic Councils in the Barangay and Municipal Level.

• Increase the accountability of fishery laws enforcers by issuance of proper deputation papers. • Increase the competency of the fishery law enforcers by means of skills training. • Rehabilitate coastal habitats through the establishment of marine protected areas and mangroves

planting; • Prevent, apprehend and prosecute violators of fishery laws by active sea-borne patrols.

10 Because of its archipelagic character almost 60% or 800 of the more than 1,500 municipalities in the Philippines and almost 80% of all cities and provinces lie in coastal areas. 11 Ubay’s FDCP and its subsequent implementation was closely supported by the USAID’s Fisheries Innovation for Sustainable Harvest Project that provided continuingntechnical and capacity building assistance to the Municipality of Ubay.


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The FDCP, with technical assistance and support from the USAID’s FISH Project, was the

municipality’s response from the TF Bantay Dagat members for a more substantive support in terms of training, manpower development and patrol assets. But also it was the municipality’s response to address a longstanding problem that endangers its own survival. 3.0 Recruitment of capable personnel, regular budgetary support and establishment of a strong implementing structure One of the first steps made by the LGU in implementing its FDCP was the recruitment of capable and dedicated personnel that shall provide technical support and professional assistance on fisheries management to the LGU and the local community. A selected group of personnel were recruited from different LGU departments to serve as a technical working group (TWG) to address concerns in coastal resources and fisheries management.

Complementing this technical working group was a team of field technical personnel from the

Bureau of Fisheries and Aquatic Resources (BFAR), Philippine National Police (PNP), Bohol Environment Management Office (BEMO) and Department of Environment and Natural Resources (DENR) that provided expert knowledge and training on topics related to coastal resource and fishery management, fish habitat conservation, law enforcement and interdiction, fish species identification and technologies, among others.

The group was further complemented by local community representatives from the different

coastal barangays who were recruited based on personal commitment and familiarity on marine resource conservation. Though without an add-on operating budget, this select group had contributed productive output and extended voluntary work hours in an effort to halt destructive practices in coastal areas.

In 2004 despite the change of political leadership in the local government, the new administration

retained and elevated the TWG into a formal office and was institutionalised into a Coastal Resource Management Office (CRMO) under the Office of the Mayor. Its personnel were re-trained and became regular LGU employees. The CRMO has a total of 19 personnel composed of both regular and volunteer staff. A Coastal Enforcement and Protection Unit (CPEU), a one stop-shop office of the different national coastal enforcement agencies such as the Department of Environment and Natural Resources (DENR), Philippine National Police (PNP) and Bureau of Fisheries and Aquatic Resources (BFAR) was established under the CRMO and served as the coordinating body for the TF Bantay Dagat and other volunteer enforces and agencies as well as for the issuances of all fish and coastal related permits, licenses and documents.

(Photos by E. Mercado, August 2008)


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From 2002-2006, the LGU regularly allocated and increased the funding and resource support for the implementation of coastal and fishery protection activities to sustain the FDCP programme (Please see Table 3.0). Over the last five years, Ubay budgeted an average of PhP 3.2 million or US$ 73,000 (at US$1=PhP 44) per year for its coastal and fishery management activities to protect its municipal waters. In 2006, the municipality budgeted more than PhP 4.0 million or US$ 92,000 for its coastal fishery protection and conservation activities. The funds were used to support TF Bantay Dagat enforcers and its operations, honoraria for volunteers, maintenance of patrol boats and procurement of necessary equipment and instruments such GPS, binoculars, VHF radios, megaphones, water resistant camera, life jackets, navigational instruments and charts, cooking utensils, search lights, and floating assets. Table 3.0 Annual Budgetary Allocation for Coastal and Fishery Protection and Conservation Source of the fund 2002 2003 2004 2005 2006 Agriculture and Special funds

1,219,293.00 1,594,853.00 1,294,853.00 1,563.140.00 1,992,336.00

Volunteer goods and Services

1,607,800.00 1,739,520.00 1,484,920.00 1,518,320.00 2,058,320.00

Total Program Budget

2,827,093.00 3,334,374.00 2,779,773.00 3,081,460.00 4,050,656.00

Source: Municipal Coastal Resource Management Office (CRMO)

Photos from Ubay CRMO

4.0 Establishing close coordinati ies.

The municipality of Ubay, forged strategic linkage and networking with other LGUs and concerned agencies of the provi ent and NGO’s undertaking related functions. This cooperative re mplishment of targets within a shorter span of time. An exam kills training for coastal enforcement, establishm s in coastal waters, apprehension of a

in these num prehensions, 12 cases gainst recalcitrant offenders were filed in court. The CRM’s enforcement teams also established close

(i.e. “Oplan Oceanic torm”) that apprehended 233 violators.

nitiatives was the formation of the provincial coastal law nforcement council (CLEC) in 2004 that covered enforcement coordination among the 9 municipalities

on from within and with other LGUs and agenc

through its CRM office,ncial and national governm

lationship has made possible the accople of these targets were a series of 12 s

ent of three critical Marine Protected Areatotal of 200 fishery law violators, for 2005 and 2006. With bers of apapartnership with neighboring LGUs for inter-LGU seaborne enforcement operations S

In 2005, the Municipality of Ubay together with the neighboring towns of Bien Unido, Carlos P. Garcia and Talibon had an informal cooperation agreement to common share the enforcement and protection of their “common fishing grounds” in the Danajon Bank. This inter-LGU cooperation facilitated the filing of court cases against apprehended violators of local coastal ordinances, coordination in seaborne pursuit operations and information exchange of registration and movements of local fishing vessels. Other inter-LGU cooperation ie


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in Northern Bohol as well as with Bohol Provincial Government, Philippine Coast Guard, Philippine Navy, Philippine National Policy and other national government enforcement agencies. The CLEC operated based on the principle of cooperation and coordination in enforcement, apprehension, information exchange, seaborne pursuit operations and joint patrolling of common fishing grounds in the area. 5.0 No political intervention.

mentation of fishery and environmental laws are weakened by the intervention of local political aders in the apprehension of violators and conflict with vested political interests.

In the case of Ubay, local leaders led by the Mayor and members of the Municipal council strictly maintain

les for the protection and conservation of Ubay’s fishery resources. Likewise, inputs from local barangay resource assessments and plans were integrated into a 5-

es management plan (2006-2010) that was adopted and approved by the cal council.

Chairman of the M/FARMC through their respective BFARMC Chairman. These

Enforcement of local and national laws in the country has always criticised as one of the weakest

link in the country’s legal system. Oftentimes violators are able to circumvent the laws through their lawyers or by political intervention of influential persons. Such situation is more pronounced in the application of environmental laws were the aggrieved party or complainant, i.e. forests and fish resources, cannot personally file criminal charges or execute documents against violators. At the local levels, the implele

ed a ‘hands-off’ policy with regards to violators and apprehensions made by coastal enforcement teams . This is a critical factor for the high number of apprehensions registered by the TF Bantay Dagat over the last two years. It also sent a strong message even to other LGUs and fishers of other localities of the seriousness and commitment of local enforcement authorities in the implementation of local fishery and coastal ordinances in the municipality.

6.0 Local legislative initiative

The need to put in place a strong local fishery and coastal protection ordinance that addresses specific coastal resource concerns is an important element in providing a strong policy framework for sustaining coastal resource management efforts of local communities. By working closely with fisherfolk organizations in the barangays, the Municipality of Ubay was able to approve in 2006 an integrated Municipal Fisheries Ordinance. This ordinance provided an over-all policy, regulatory, jurisdictional, licensing/permitting and administrative ru

year integrated coastal resourc12lo

7.0 Participatory fishery governance at the municipal and barangay Level.

The establishment of the Municipal Fisheries and Aquatic Resource Management councils (M/FARMCs) and the Barangay Fisheries and Aquatic Resource Management Councils (B/FARMCs) in all 19 Coastal barangays and one (1) island barangay has increased not only the level of awareness of communities on the importance of sustainable fishery resource management but also increased the stake of fisherfolks in local governance. Results of monthly consultative meetings by the B/FARMCs are elevated to the

12 A 2006-2010 integrated municipal coastal resource management plan in Ubay has been approved in 2006 with technical assistance from the USAID/FISH Project. The Plan incorporates all the lessons learned in the past years implementing the FDCP and maps out policy and management interventions to be carried out in the next five years. The FISH project provided technical and training assistance over a period of six (6) months in the formulation of the plan while the LGU and other participants covered the cost of their participation, travel and other administrative expenses.


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recommendations are deliberated in plenary by all B/FARMC and translated either through project

he PCRAs likewise established baseline information of the municipality’s coastal and marine habitat

8.0 Deputation and professionalisation of volunteer coastal law enforcers

ings ndertaken by these enforcers made sure that the corrupt image of coastal enforcers in the past would be

kills and competency

to have been caught through dynamite or cyanide fishing.

d fish examiners. Only uly certified fish examiners are recognized in court to examine and testify against suspected sellers of

illegally

proposals, executive policies or local legislations.

Local fisherfolk organisation and members of community fishery councils were engaged in the conduct of participatory coastal resource assessment (PCRA) of their local waters. With technical assistance from the Bohol Environment management Office (BEMO) and with the use of simplified methods of rapid resource assessment, volunteer fisherfolks were taught by the provincial government’s marine biologists to assess the status of mangroves, corals and fish stock. Information derived from these assessments provided inputs to local community discussions on proposed fishery and coastal policies in their areas.

Tand status of fishery as they are assessed jointly by the community and scientist alike. Results of

the PCRA provided local fishing groups and communities with locally developed resource maps; inventory and conditions of resources that they used as a tools to monitor the progress of community coastal resources over time. Similarly, local community fishery groups and councils were directly involved in the monitoring of marine sanctuaries and habitat management such periodic checks of coral cover, local law enforcement implementation and coastal fishery regulations and ordinance reviews.

Fisherfolks who volunteer as fishery law enforcers are issued deputation papers by the Chief Executive only upon completion of the Fishery law Enforcement training conducted jointly by the Coastal Resource Management Office and the Bureau and Aquatic Resources (BFAR). These volunteer fishery enforcers report directly to duly appointed coordinators or Team Leaders of the sea-borne enforcement teams. These team leaders are local government employees who work beyond the normal working hours to manage the enforcement teams and ensure accountability of their enforcer’s actions. The trainureversed and corrupt individuals eliminated from its ranks.

At least one Bantay Dagat barangay officer has been deputised in each of the municipality’s coastal barangays. They are further supported by community volunteers organised in their barangays that are mobilised for local coastal enforcement operations in their respective barangay waters. The deputised Bantay Dagat barangay officers are given monthly allowances by the LGU while Bantay Dagat community volunteers are given PhP 125/day as honorariums by the LGU during their participation in law enforcement operations. 9.0 Mobilization of local talents and improvement of local s

With the increase in the level of awareness and concern for coastal resources, local volunteers from non-fishers group especially among professionals and middle-class sector of the municipality increased. Doctors, engineers, and other highly skilled workers devoted voluntary services on specific aspects of their work that impacts local fishery conservation and protection activities. For example, a medical doctor volunteered to be a technical expert for the testing of poison and noxious substances on confiscated fishes that are suspected

The municipality also spent for training two (2) of its staff to be certified

caught fish. The municipality also spent for the training of some of its staff as certified scuba divers so they can provide assistance to barangays in the conduct of PCRAs. The cross training of key


12


LGU and barangay based personnel in CRM concerns made possible the development of personnel with new skills able to undertake multitasking activities. C. Benefits and Impacts

R office in 2007 showed a steady increase in the fish atch for pelagic fish species based on the increase in CPUE (catch per unit effort) by at least 32% to

types of fishing gears from 2004 to 2006 (see Table 4.0). These included anual gears used mostly by municipal fishers such as hand lines, hand spears, lift nets, and stationary

ble 4.0 Comparison of CPUE by type of fishing gears in 2004 and 2006

1.0 Increase in fish stock and diversity and projected increase in income

The most important impact and benefit of Ubay’s fishery and coastal development programme is the increase in fish stock and return of diversity of local fish species caught in its municipal waters. Monitoring made by Ubay’s CRMO and local BFAcalmost 392% for differentmgillnets.

Results of a recent study made by the USAID’s FISH Project last September 2008 on the economic and financial returns of Ubay’s coastal resource management programme reported that PhP 10 million (US$ 227,000) in direct fisheries revenue and between PhP 50-90 million (US$ 1.13-2.0 million) in economic returns for every Php 2 million investment/year made by the LGU on its coastal and fisheries management activities. (Rosales, 2008)

Ta

Some significant observationsUBAY FISHING OPERATIONS

Comparison of CPUE

Some significant observationsUBAY FISHING OPERATIONS

Comparison of CPUE

-52.614.9066.385.7617013.45Otter trawl

-38.611.572844.212.284396.86Crab pot

-37.9114.505.82407.25Beach seine

-29.031.98283.662.37655.16Trammel ne t

-27.603.29563.322.29494.59Fish corral

-12.610.62592.260.96272.59Crab gillnet

-12.418.335814.89117.00Drift gillnet

-10.591.004452.671.186012.98Crab liftnet

-9.011.09491.861.59512.04Hook and line (simple)

-8.951.611373.402.91363.74Squid pot

-6.912.12216.506.7714017.73Danish seine

-0.594.38416.891.7236.93Bottomset gillnet

33.698.2815114.336.6719110.72Set gillnet (with plunger)

48.797.144421.576.712614.50Fish pot

68.579.87617.386.502410.31Stationary liftnet

118.205.78910.261.4854.70Barrier net

120.728.688412.082.79445.47Drive-in gillnet

181.793.8046.581.6932.33Multiple handline

391.671.3124.4310.90Handspear, spear gun, harpoon

.?%

20062004

s.dnMean (kg/day)

s.d.nMean (kg/day)

Fishing gear / operation


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Table 5.0 Monitored fishing gears by total catch landed in 2004 and 2006

0.05%4.50Beach seine0.01%0.90Handspear, spear gun, harpoon21

0.10%8.85Handspear, spear gun, harpoon0.05%7.00Multiple handline20

0.29%26.30Multiple handline0.07%10.00Drive-in net19

0.36%33.00Danish seine0.12%17.00Drift gillnet18

0.42%38.25Otter trawl0.15%20.80Bottomset gillnet17

0.57%52.10Squid gillnet0.17%23.50Barrier net16

1.00%90.93Hook and line (simple)0.32%44.50Encircling gillnet15

1.01%92.30Barrier net0.51%69.80Crab gillnet14

1.13%102.60Trammel net0.76%104.01Hook and line (simple)13

1.14%104.30Stationary liftnet0.98%134.60Squid pot12

1.25%113.55Bottomset longline1.63%224.67Fish corral11

1.46%133.30Crab gillnet1.75%240.88Drive-in gillnet10

2.04%185.90Fish corral1.80%247.50Stationary liftnet9

3.10%282.60Bottomsetgillnet2.11%289.90Beach seine8

5.12%466.40Squid pot2.44%335.60Trammel net7

9.48%863.65Drift gillnet2.74%376.90Fish pot6

10.42%949.00Fish pot13.02%1,792.76Crab liftnet5

11.14%1,014.97Drive-in gillnet14.87%2,047.24Set gillnet (with plunger)4

13.03%1,186.80Crab liftnet16.61%2,286.90Otter trawl3

13.13%1,196.34Crab pot18.02%2,481.50Danish seine2

23.75%2,163.75Set gillnet (with plunger)21.88%3,012.38Crab pot1

%Tot.Landed

Tot.Landed (kg)Gear%Tot.Landed

Tot.Landed(kg)Gear

20062004

UBAY fishing gears (monitored)ranked by total catch landed

UBAY fishing gears (monitored)ranked by total catch landed

On the other hand, destructive fishing gears such as Danish seine, bottomset gillnets and otter trawls have shown considerable drops in their fish catch over the same period. This is largely attributed to the strength of the municipality’s coastal law enforcement initiatives on destructive fishing methods and regular seaborne patrolling.

Table 4.0 shows the types of fishing gears targeting pelagics (fishing gears shown alongside

arrow showing upward trend) normally used in Ubay and their respective CPUEs. Other substantial results have been observed on the increase on fish biomass of pelagic fish species at an average of 6 to 8 % in Ubay’s 3 marine sanctuaries within a short span of time. On the other hand, fishing gears designed to capture bottom dwelling species is still reflecting a negative or downward trend due to damage in bottom marine habitat. A good reason why there is still a need for more continued enforcement activities.


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Likewise, the same joint study of the CRMO and BFAR also observed a declining catch of illegal gears due to its elimination from municipal waters that has translated into an increasing catch for other types of fishing gears in 2006 compared to 2004. Table 5.0 shows the average fish catch of illegal fishing gears such Danish seine and otter trawls that are predominantly used in the area had greatly declined from 2004 compared to 2006 while many traditional gears used by municipal fishers have reported mostly significant increases in their landed catches compared to other types of gears. This is an effect of sustained anti-illegal fishing enforcement activities on the use of banned fishing gears as well as sustained campaign for sustainable fishing methods by the LGU. 2.0 Increase in compliance of the local populace to national laws and ordinances.

Increase in the level of awareness of fisherfolks about their coastal environment and improved understanding on the basic concepts involving coastal and fishery habitat have led to increased compliance to fishery regulations. Additionally, the heightened participation of local fisherfolk in drafting local legislations through the B/FARMCs and the public consultations on proposed bills as recommended by the M/FARMCs, resulted to increased participation in the implementation of local fishery ordinances.

The total number of apprehended fishery law violators from 2000-2007 as shown in the bar chart has sho

fishing vessels. From January –June 2008, registration fees for local fishing vessels below three (3) tons have reached some PhP 158,000 or US$ 3,590 since the application of the new regulation last year.

0

20

40

60

80

100

120

140

2005 2006 2007

No. of Violators

January –March1st Quarter

Comparative Chart on the number of Apprehended Violatorsfrom Seaborne Operations

wn a declining trend from a high of 140 arrests in 2006 to a low of less than 20 arrests in 2007. This reflects a substantial success in the LGU’s resource conservation advocacy and strict enforcement of coastal ordinances and appreciation of marine resource conservation programs within coastal communities of the municipality.

Whilst there was a marked increase in fishing violations in 2007, collection of fees and penalties

for violations of fishery and coastal management ordinances increased to more than PhP 140,000 or US$ 3,182 (at US$1=PhP44) compared to less than PhP 50,000 in previous years. This does not include fees from confiscated fishing vessels that are turned over to local enforcement authorities or remanded to their owners and food expense savings from caught fishes that are donated to the municipality’s local hospital and municipal jail. Likewise, the municipality also increased collections of registration fees of local


15


Banned shells and home-made dynamite confiscated by Ubay’s multi-agency CRM-Coastal Protection and Enforcement Unit (CPEU) – Photos by E. Mercado 3.0 Fisherfolks involvement in local resource management 13

constitu

e

served as venue for other municipal and national government program mpacting the fishery sector to be discussed. Consultative meetings and hearings gives all sectors

Fisherfolk-members of the barangay fisheries and aquatic resource management councils (B/FARMC) are able to actively participate in regular discussions on issues and concerns affecting their barangays. Four Fisherfolk-leaders sit in the B/FARMC as regular members but any resident fisherfolk may participate in the deliberations and conducts of public hearings. B/FARMC meetings double as information, education and communication for new programs of the municipality and the Department of Agriculture. Deliberations, agreements and resolutions from the B/FARMC are elevated to the M/FARMC. Memberships to the B/FARMC are open to all stakeholders in the fishery sector.

Fisherfolks participating in B/FARMC meetings either are regular members or guests have

directly influenced barangay policy and fiscal management system giving them opportunity to be part of barangay governance at least in the specific sector of fishery. The participation of local fisherfolks in the local village fishery resource councils also paved the way for the enactment in 2006 by the municipal ordinance of the integrated Municipal Fisheries Ordinance for Ubay.

At the municipal level, municipal fisheries and aquatic resources management councils (M/FARMC) represents various sectoral concerns of the fishing communities with members coming fromrepresentatives of organized fisherfolk associations and local government leaders and functionaries. Discussions emanating from the B/FARMCs are tackled in the M/FARMC level apart from those raised by council members. Topics discussed on these regular meetings vary from parochial to national but they

te critical and immediate concerns of the fishing sector such as registration and permitting practices for fisherfolks and gears, budget and technical needs of proposed livelihood programs, resourcuse dispute, and resource use policies and law enforcement.

M/FARMC meetings have s i

in fishery the opportunity to recommend and/or block any program of the government deemed to contravene their needs in the same manner that the body may introduce policies or recommend amendment or repeal of policies and programs that would benefit them.

13 RA 8550 or the Fisheries Code of the Philippines mandated the creation of local special bodies called fisheries and aquatic resources management councils at the barangay and municipal levels to serve as participatory consultation and policy formulation bodies of local fisherfolks and organisations in a locality.


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D. Sustainability

through the following: 1.0 Existing municipal coastal fishery policy

The sustainability of Ubay’s fishery development and conservation programme is achieved

. The implem07, s. 06, now requires coastal resource management activities designed to marine environment, as one of the basic front line servithe approved 2006-2010 integrated coastal resource managemefishery and coastal resources management in Ubay. 2.0 Strong community and local leadership cooperation, participatio

entation of the Municipal Fisheries Ordinance protect and conserve the

ces of the LGU. This fishery ordinance along with nt plan serves as basis for the continuity of

n and commitment. One of the strongest point of Ubay’s programme is the strong cooperation and commitment reached by the local

community and LGU

coastal communities and its local municipal leaders. Their shared common vision and actual dedication has established a strong bond and unity between local leadership and its constituencies. 3.0 Continuing budget allocation and shared resources between . The highlight of

e FDCP’s accomplishment can be seen from the total amount of government savings derived from unpaid

a that is now being used for visiting LGUs and other fishery groups. Ubay has been designated as a model site for local fis of

rea, GUs in the province of Bohol,

cluding the LGUs in the Province of Cebu. The provincial government of Bohol through its Bohol environ ween

thvolunteer services of local government officials and employees and the larger community

willingly donated to be their counterpart to make the Program work. This amount when quantified is equal and at times greater than the budget appropriated by the local government14. E. Replicability

The experience of Ubay has been documented and been converted into a formal curricul

hery conservation and enforcement by the BFAR as well as by the League of Municipalitiesthe Philippines for cross-visits and exchanges.

Likewise, several of the Ubay’s CRM Staff have been trained as instructors in specific skills a

and had been invited to facilitate in coastal enforcement trainings of Lin

ment Management Office (BEMO) provides regular venue for information exchanges betand among municipal LGUs in and outside of Bohol. The exchange of information has become an opportunity for Ubay to share experiences and lessons learned with other LGUs willing to take up thetorch of coastal resource conservation.

14 In 2004 the LGU spent close to 1.07 million pesos for seaborne patrol operations. On the other hand, the number of unpaid person-hours, value of floating assets volunteered, fuel and food donated by the community for CRM activities and law enforcement operations was monetised the estimated value of the volunteers counterpart was reported to be PhP 1.3 million. (CRMO, 2008)


17


F. Reference Materials

a. Docu

anajon Bank Double Barrier Reef: A Unique Resource in Peril. (2008). Fisheries Improvement for

reen, S.J., R.D. Alexander, A.M. Gulayan, C.C. Migrino III, J. Jarantilla-Paler and C.A. Courtney, nt

of North Bohol (Philippines), pp. 261-267. In Proceedings of the Third International Coral Reef Symposium,

Case

Hon. Eu

Municipality of Ubay Ms. Aning Gulayan – Field Coordinator, FISH Project Mr. Ma

ments and Reports

D

Sustainable Harvest (FISH) Project, Pamphlet, pp.16.

DeLima A. (2008). Ubay Fisheries Development and Conservation Programme (Draft Report). Coastal Resource Management Office. Ubay, Bohol, pp. 9.

G

(2002). Bohol Island: Its Coastal Environmental Profile. Bohol Environment and ManagemeOffice (BEMO) and Coastal Resource Management Project, Cebu City, Philippines.

Pichon, M. (1977), Physiography, Morphology and Ecology of the Double Barrier Reef

Miami, pp. 261-267. Rosales, Rina P.(2008) “Developing a Framework for Economic Analysis of CRM Investments: A

Study of Ubay, Bohol,” Fisheries Improvement for Sustainable Harvest (FISH), Manila, September 2008.

b. Interviews

tiquio M. Bernales, MD – Municipal Mayor, Municipality of Ubay, Bohol Mr. Alpios B. DeLima – CRM Coordinator and Executive Assistant to the Mayor, Municipality of Ubay Mr. Alan Abad – former Chairman Committee on Environment and Executive Assistant of the Mayor Mr. Diosecito Butawan – Municipal Treasurer,

r Guidote – Coastal Law Enforcement Advisor, FISH Project Ms. Rina Rosales – Environmental Cost Accounting Consultant, FISH Project Mr. William Jatulan – Deputy Chief of Party, FISH Project c. On-line sources www.ubay.gov.phwww.wikipedia.orgwww.oneocean.org


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