Securing the Future through ICM: The Case of the Batangas...

Securing the Future through ICM:The Case of the Batangas Bay Region

Securing the Future through ICM:

GEF/UNDP/IMO Regional Programme on Partnerships in Environmental Management for the Seas of East Asia

(PEMSEA)

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GEF/UNDP/IMO Regional Programme on Building Partnerships inEnvironmental Management for the Seas of East Asia (PEMSEA)

Securing the Future through ICM:The Case of Batangas Bay Region

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June 2006

This publication may be reproduced in whole or in part and in any form for educational or non-profitpurposes or to provide wider dissemination for public response, provided prior written permission is obtainedfrom the Regional Programme Director, acknowledgment of the source is made and no commercial usage orsale of the material occurs. PEMSEA would appreciate receiving a copy of any publication that uses thispublication as a source.

No use of this publication may be made for resale or any purpose other than those given above without theprior written approval of PEMSEA.

Published by the GEF/UNDP/IMO Regional Programme on Building Partnerships in EnvironmentalManagement for the Seas of East Asia (PEMSEA).

Printed in Quezon City, Philippines

PEMSEA. 2006. Securing the Future through ICM: The Case of the Batangas Bay Region. PEMSEA TechnicalReport No. 19, 84 p. Global Environment Facility/United Nations Development Programme/InternationalMaritime Organization Regional Programme on Building Partnerships in Environmental Managementfor the Seas of East Asia (PEMSEA), Quezon City, Philippines.

ISBN 978-971-812-016-3

A GEF Project Implemented by UNDP and Executed by IMO

The contents of this publication do not necessarily reflect the views or policies of theGlobal Environment Facility (GEF), the United Nations Development Programme (UNDP),the International Maritime Organization (IMO), and the other participating organizations.The designation employed and the presentation do not imply expression of opinion,whatsoever on the part of GEF, UNDP, IMO, or the Regional Programme on BuildingPartnerships in Environmental Management for the Seas of East Asia (PEMSEA) concerningthe legal status of any country or territory, or its authority or concerning the delimitationof its territory or boundaries.


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MISSION STATEMENT

The Global Environment Facility/United Nations Development Programme/International MaritimeOrganization Regional Programme on Building Partnerships in Environmental Management for the Seasof East Asia (PEMSEA) aims to promote a shared vision for the Seas of East Asia:

“The resource systems of the Seas of East Asia are a natural heritage, safeguardingsustainable and healthy food supplies, livelihood, properties and investments,and social, cultural and ecological values for the people of the region, whilecontributing to economic prosperity and global markets through safe and efficientmaritime trade, thereby promoting a peaceful and harmonious co-existence forpresent and future generations.”

PEMSEA focuses on building intergovernmental, interagency and inter-sectoral partnerships tostrengthen environmental management capabilities at the local, national and regional levels, and developthe collective capacity to implement appropriate strategies and environmental action programs on self-reliant basis. Specifically, PEMSEA will carry out the following:

• build national and regional capacity to implement integrated coastal managementprograms;

• promote multi-country initiatives in addressing priority transboundary environmentissues in subregional sea areas and pollution hotspots;

• reinforce and establish a range of functional networks to support environmentalmanagement;

• identify environmental investment and financing opportunities and promotemechanisms, such as public-private partnerships, environmental projects for financingand other forms of developmental assistance;

• advance scientific and technical inputs to support decisionmaking;• develop integrated information management systems linking selected sites into a

regional network for data sharing and technical support;• establish the enabling environment to reinforce delivery capabilities and advance the

concerns of nongovernmental and community-based organizations, environmentaljournalists, religious groups and other stakeholders;

• strengthen national capacities for developing integrated coastal and marine policiesas part of state policies for sustainable socioeconomic development; and

• promote regional commitment for implementing international conventions, andstrengthening regional and subregional cooperation and collaboration using asustainable regional mechanism.

The 12 participating countries are: Brunei Darussalam, Cambodia, Democratic People’s Republic ofKorea, Indonesia, Japan, Malaysia, People’s Republic of China, Philippines, Republic of Korea, Singapore,Thailand and Vietnam. The collective efforts of these countries in implementing the strategies andactivities will result in effective policy and management interventions, and in cumulative globalenvironmental benefits, thereby contributing towards the achievement of the ultimate goal of protectingand sustaining the life-support systems in the coastal and international waters over the long term.

Dr. Chua Thia-EngRegional Programme Director

PEMSEA

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Table of Contents

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List of FiguresList of Boxes ixList of Abbreviations and AcronymsAcknowledgmentsIntroduction

BACKGROUND OF BATANGAS PROVINCE AND NATURAL SETTING OF BATANGAS BAY

THE PRICE OF DEVELOPMENT

MAKING A DIFFERENCE

Charting the FutureFORMING THE CORE TEAM

WORKING TOGETHER: INTERAGENCY COOPERATION

INVOLVING THE POLITICAL LEADERS AND THE PEOPLE

TAPPING SCIENTISTS’ SUPPORT

THE PLANNING PROCESS

PLANNING FOR A BETTER FUTURE

GAINING SUPPORT AND ACTIVE PARTICIPATION THROUGH PUBLIC AWARENESS CAMPAIGNS

SHARING THE COSTS

STRENGTHENING EXISTING REGULATIONS

MONITORING CHANGES IN ENVIRONMENTAL QUALITY

SUMMARY OF LESSONS

Executing the PlanINSTITUTIONALIZING THE ORGANIZATION

BATANGAS BAY REGION ENVIRONMENTAL PROTECTION COUNCIL (BBREPC)PROVINCIAL GOVERNMENT-ENVIRONMENT AND NATURAL RESOURCES OFFICE (PG-ENRO)ESTABLISHING ENFORCEMENT TEAMS

JOINT EFFORTS TO MONITOR ENVIRONMENTAL CHANGES

MANAGING MULTIPLE-USE CONFLICTS

GETTING RID OF WASTES

MONITORING CHANGES

SUMMARY OF LESSONS

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Moving On Amidst ChallengesCHALLENGES

FOUNDATIONS FOR CHANGE

PROGRAM REPLICATION

UNDERSTANDING THE VALUE OF ENVIRONMENTAL MANAGEMENT

SUMMARY OF LESSONS

The Story ContinuesMEASURING PROGRAM PERFORMANCE

GARNERING RECOGNITION

PROGRAM REFINEMENTS

NEW PROGRAMS

RUBIK’S CUBE AND SUSTAINABLE DEVELOPMENT

SHARING LESSONS AND BUILDING CAPACITY

References

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List of Figures

Figure 1. Map of Batangas ProvinceFigure 2. Management Area of the Batangas Bay RegionFigure 3. Annual Shipcalls in Batangas Port, 1998–2004Figure 4. Sampling Stations in Batangas BayFigure 5. Composition of the Batangas Bay Environmental Protection CouncilFigure 6. Organizational Chart of PG-ENROFigure 7. Multisectoral Monitoring Program in BatangasFigure 8. Zonation Scheme for the Batangas Bay RegionFigure 9. Proposed Three-Tiered Organizational Structure for the Batangas

Environmental Protection CouncilFigure 10. Map of Balayan Bay

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Box 1. Batangas Coastal Resources Management FoundationBox 2. Budget Allocation for ICM in BatangasBox 3. City and Municipal OrdinancesBox 4. Duties and Responsibilities of the BBREPCBox 5. Experiences of the Enforcement TeamBox 6. Commitments of Public and Private PartnersBox 7. Environmental Scoping in Ibaan, BatangasBox 8. Batangas City Waste Redemption CenterBox 9. Activities of UWEP in the BBR

List of Boxes

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List of Abbreviations and Acronyms

BABR - Balayan and Adjacent Bays RegionBBDP - Batangas Bay Demonstration ProjectBBR - Batangas Bay RegionBBREPC - Batangas Bay Region Environment Protection CouncilBBW - Batangas Bay WatchBCRMF - Batangas Coastal Resources Management FoundationBEPC - Batangas Environmental Protection CouncilBOD - biochemical oxygen demandCENRO - Community Environment and Natural Resources OfficeCEP - Coastal Environmental ProfileCOD - chemical oxygen demandDENR - Department of Environment and Natural ResourcesDO - dissolved oxygenEIA - environmental impact assessmentFAO - Food and Agriculture OrganizationGEF - Global Environment FacilityGIS - geographic information systemICM - integrated coastal managementIEC - information-education-communicationIIMS - Integrated Information Management SystemIMO - International Maritime OrganizationIWMAP - Integrated Waste Management Action PlanKKK - Kilos Kabayan para sa Kalikasan (Citizens Action for Nature)LGU - Local Government UnitMENROs - Municipal environment and natural resources officesMOU - Memorandum of UnderstandingMPP-EAS - GEF/UNDP/IMO Regional Programme for the Prevention

and Management of Marine Pollution in the East Asian SeasNGO - nongovernmental organizationPAO - Provincial Agricultural OfficePCG - Philippine Coast GuardPEMSEA - GEF/UNDP/IMO Regional Programme on Building

Partnerships in Environmental Management for the Seas ofEast Asia

PENRO - Provincial Environment and Natural Resources Office

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PG-ENRO - Provincial Government-Environment and Natural ResourcesOffice

PMO - Project Management OfficePO - people’s organizationPPA - Philippine Ports AuthorityPPP - Public-Private PartnershipsRPO - Regional Programme OfficeSEMP - Strategic Environmental Management PlanSMEs - small and medium enterprisesSWM - solid waste managementTWG - Technical Working GroupUNCED - United Nations Conference on Environment and DevelopmentUNDP - United Nations Development ProgrammeUP - University of the PhilippinesUP-MSI - Marine Science Institute - University of the PhilippinesUWEP - Urban Waste Expertise ProgrammeWWF - World Wild Fund for Nature

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Acknowledgments

The GEF/UNDP/IMO Regional Programme on Partnerships in Environmental Management for theSeas of East Asia (PEMSEA) produced this material as part of its efforts to share knowledge and practicalexperiences in integrated coastal management. The initial draft of this document was prepared by XCEEDManagement Consulting Services, Inc., in fulfillment of a contract with PEMSEA, with input from thestakeholders of the Batangas Bay Region, the Batangas Bay Environmental Protection Council, and theProvincial Government of Batangas.

The final output benefited from the technical refinements of Mr. Alexander Guintu, PEMSEA TechnicalAssistant; Ms. Bresilda Gervacio, PEMSEA Technical Officer for Integrated Information ManagementSystem; with input from Dr. Chua Thia-Eng, PEMSEA Regional Programme Director; and Mr. S. AdrianRoss, Dr. Huming Yu and Dr. Jihyun Lee, PEMSEA Senior Programme Officers.

Editorial and layouting support by Ms. Cristine Ingrid Narcise, Mr. Leo Rex Cayaban, Mr. Nogel Viyarand Mr. Jonel Dulay of the PEMSEA Regional Programme Office are likewise appreciated.

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Securing the Future through ICM:The Case of Batangas Bay Region

Introduction

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Securing the Future through ICM: The Case of the Batangas Bay Region

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Introduction

Introduction

BACKGROUND OF BATANGAS PROVINCE AND NATURAL

SETTING OF BATANGAS BAY

Batangas Province is located along thesouthwestern edge of Luzon Island. The provincefaces the South China Sea on its western flank andthe Verde Island Passage to the south. BatangasProvince is bordered by the provinces of Caviteto the north, Laguna to the northeast and Quezonto the east. The province has a land area ofapproximately 3,166 km2 and consists of 34 cities

and municipalities with a combined population of1,905,348 as of 2002. Population density for theprovince is placed at 602/km2. The provincialpopulation growth rate is 3.02 percent, a littlehigher than the national growth rate of 2.3 percent.

Batangas became a province in 1581. Prior tothis, it was grouped with the Mindoro andMarinduque islands along with parts of Lagunaand Ambos, Camarines, collectively known asBonbon or Balayan. Since 1754, the provincial

Figure 1. Map of Batangas Province.

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capital has been Batangas City, which bordersBatangas Bay. The province has three major baysnamely: Batangas Bay, Balayan Bay and TayabasBay.

The Batangas Bay Region (BBR) is located inthe southern part of Batangas Province. It coversthe Batangas Bay itself and includes areas whosecatchments drain into the Bay (Fig. 2). The BBRhas a total land area of 1,461 km2 and comprisesthe cities and municipalities of Batangas, Lipa,Alitagtag, Bauan, Cuenca, Ibaan, Mabini, PadreGarcia, Rosario, San Jose, San Pascual, Taysan,Lobo and Tingloy. Batangas Bay forms a semi-enclosed body of water connected to theoligotrophic tropical South China Sea and isseparated by a deep trench from the island ofMindoro. The Bay has a total area of 220 km2 anda coastline of 92 km. With an average depth of 55m, the Bay is rendered ideal for international portand harbor development.

The coastal resources and habitats in the regioninclude mangroves, coral reefs and fisheries.Mangrove areas are limited and very patchy, mostof which are found in the islands. At present, mostof the mangrove areas found in coastal towns wereestablished only through the initiatives of localstakeholders. Coral reefs occur in the western andsouthern part of Batangas Bay and in the MaricabanStraits where strong currents prevent heavysiltation (MTE, 1996). Fish production in the Bayis declining due to a decrease in the bay’s fishingarea and because all three bays in the provinceare overfished.

The bay region as a whole is predominantlymade up of terrace residual slopes and volcanichill types of landforms, respectively comprisingabout 43 percent and 21 percent of the region’stotal land area. Coastal municipalities, however,have broader alluvial plains of approximately 40.33

km2 making them more suitable for agricultureand urban development than those of the interiormunicipalities which only have 1,135 ha.

The bay region falls under Climate Type I ofthe modified Corona Classification of Philippineclimate and is characterized by two pronouncedseasons — wet and dry.

THE PRICE OF DEVELOPMENT

Economic Sectors and Their Relative Importanceto the Economy of the Batangas Bay Region

Being at the heart of the country’s majoreconomic growth project, the Calabarzon, BatangasProvince is at the forefront of nationalsocioeconomic development. Project Calabarzon(referring to the five adjacent provinces of Cavite,Laguna, Batangas, Rizal and Quezon), envisagesagricultural intensification and modernization astwo key strategies, with industry, trade andtourism as major drivers of rapid economicgrowth.

Batangas plays a major role as the region’sindustrial heartland owing to the presence ofmajor industries within the province. Batangashosts several industries including key petroleum-based corporations like Shell Philippines, CaltexPhilippines and Petron Corporation; major power-generating plants such as the Batangas Coal FiredThermal Power Plant and First Gas Corporation;and large industrial firms engaged in chemical andtextile manufacturing, shipyard and steelfabrication, engineering works and foodprocessing. All these industries are found alongthe Batangas Bay.

The province boasts of a robust agriculture andan active municipal and commercial fishery. Some

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Introduction

61 percent of the province’s total area is devotedto agriculture, dominated by coconut andsugarcane. Intermixed with the differentagricultural land uses is the commercial andbackyard raising of livestock, especially poultryand pig farming. Forest areas occupyapproximately 23 percent of all nonagriculturalareas, with the bay region holding 12 percent ofthe province’s forests.

Fishing is an important economic activity inBatangas with more than 3,000 fishers dependingon fishing for their livelihood. In addition totraditional fishing activities, the collection of reeffish and invertebrates for the ornamental fishexport industry is also significant.

Batangas Bay has been classified by thePhilippine Department of Environment andNatural Resources (DENR) as having Class SCwaters, a class suitable for recreational and fishingactivities. A number of resorts, dive sites,restaurants, and other recreational centers arelikewise found as an offshoot of the area’s tourismindustry.

As Batangas optimizes its potential as a trans-shipment point for the region, the province isgearing-up to become a major business hub andvacation spot for the Southern Tagalog Region.Batangas City hosts the Batangas InternationalPort, which serves as an alternate port to the Portof Manila. The port also provides support to

Figure 2. Management Area of the Batangas Bay Region.

6


industries and companies operating both withinand outside Batangas.

Multiple–Use Conflicts and Its Impact on NaturalResources and the Environment

Batangas is endowed with natural resourcesoffering various opportunities for development.These resources are a public good with commonproperty characteristics creating a diversity ofperspectives among the different resource usersand stakeholders. Different groups have differentneeds and priorities. This diversity translates tovaried interests and methods of resource use,which in turn leads to competition and conflictingresource uses.

Heavy industries are the more conspicuoususers of the bay. Aside from their extensivefacilities that claim a significant portion of theshoreline, some heavy industries maintain theirown port or berthing facilities. These industriesuse the bay for mooring, anchorage or for coolingtheir facilities. This extensive industrial use hasled to increased vessel traffic over the years, andhas rendered adjacent areas unsuitable for fishingand recreational activities.

Navigation is a significant economic activityin the BBR in view of the natural attributes of thebay. Shipping statistics taken in 1995 showed thata total of 1,323 ships docked in Batangas Bay, 94percent of which were domestic vessels. More than80 percent of the ships docked in public ports,while about 20 percent docked in the private portsof industrial firms. In passenger traffic, there are27 companies offering services with 68 operatingvessels. Since Batangas Port’s upgrade as aninternational port and alternate port to Manila,the number of ships docking at the port hassignificantly increased (Fig. 3). This will potentiallycause resource–use conflicts and pollution, andincrease the risk of oil spills and ship accidents.

Port construction and development contribute significantlyto the economic development of Batangas.

Source: Philippine Port Authority, 2006.

Figure 3. Annual Shipcalls in Batangas Port, 1998–2004.

7

Introduction

Over time, the relative importance of fishingin the BBR has gradually decreased with theintensification of industrial, port and shippingactivities in the region. Within the fishing sectoritself, commercial fishers have often encroachedinto the operational areas of municipal fisheries,generating conflicts between the two groups andintensifying exploitation of fish stocks.

While economic development opportunitiesare promising, BBR has become a bedlam ofconflicting activities. Impacts on resources and theenvironment are now being felt because the bay’smultiple uses are being pursued without a senseof interdependence and a lack of awareness of itsconsequences.

The influx of industries has acceleratedpopulation growth in the coastal areas. In 1990,the population of coastal communities wasestimated at 324,761 (MTE, 1996). With a growthrate of 2.5 percent, the population is projected toincrease to 714,022 by 2020. The proliferation ofcoastal settlements has aggravated the problemof domestic waste collection and disposal,sustainable utilization of marine resources andmarine pollution prevention.

In a setting where domestic, industrial andagricultural wastes find their way freely intowaterways, rivers and coastlines, Batangas Bayhas become a virtual sink for all kinds of refuseand unwanted by-products of modern living.These refuse contain pollutants which accumulatenot only in the bay but in the food chain as well,thus creating both ecosystem and human healthrisks.

The coastal and marine habitats are in variousstates of degradation through heavy fishing andthe use of illegal fishing methods. The destructionof coral reefs, mangroves and other marine

habitats are due to the continuous increase inpopulation and the high tendency for in-migrationdue to the lack of alternative livelihood options.Erosion and siltation from denuded watershedshave caused heavy sediment impact on seagrassesand reefs. These complex environmental problemsand impacts are occurring in the land and seainterface and often have transboundary and cross-sectoral characteristics.

The root of all the bay’s problems and issueslie in the weak local management capacity tomanage coastal and marine resources. Thisweakness is manifested by: the lack of soundscientific information; low awareness; incorrectperceptions on the value of environmentalresources; inadequate policies and regulations;and a lack of coordination among variousmanagement sectors. The sectoral approach toresource management did not allow much roomfor integration. As a result, decisions made in onesector of the local government sometimes haddetrimental effects on other sectors.

The future development of Batangas Bay needsreliable, integrated environmental managementsystems to ensure the sustainability of bothexisting and planned programs. The requiredintegrated systems should be able to: manage, andat the same time, reduce wastes from land- andwater-based sources; mitigate water and air

Increased efforts are required in fishing due to the decreasein fishing area and the overfished environment.

8


pollution; conserve special ecosystems; promotetourism development; improve agricultural andfishing productivity; and maintain theenvironment’s carrying capacity.

MAKING A DIFFERENCE

Introduction of MPP-EAS

The concerns and sentiments of the people andorganizations in Batangas who believe thatsomething concrete and sustainable must be donein order to conserve and properly utilize theprovince’s natural resources are widely dispersedand confined to their own circumstances. Still thereare people and organizations who are unaware,unsure and skeptical. The different localgovernment units have been undertaking sectoralenvironmental activities. However, these areisolated, widely dispersed and done on a limitedscale owing to inadequate resources as well as anumber of other pressing socioeconomic concernsthat these units face.

Recognizing the intractable problems andfrustrations of sectoral solutions, the ProvincialGovernment of Batangas sought the assistance ofthe United Nations Development Programme(UNDP) and lobbied for the selection of BatangasBay as demonstration site of its integrated coastalmanagement (ICM) program under the GlobalEnvironment Facility (GEF)/UNDP/InternationalMaritime Organization (IMO) RegionalProgramme for the Prevention and Managementof Marine Pollution in the East Asian Seas (MPP-EAS). The MPP-EAS framework was built uponinnovative and effective schemes for marinepollution management, technical assistance in themost strategic marine sector of the region, andthe provision of opportunities to attract otheragencies and the private sector for funding andinvestment.

MPP-EAS provided a significant opportunityand challenge for Batangas to promote thesustainable development of its coastal areas. ICMwas introduced as a viable approach to resolvemulti-dimensional management issues affectingcoastal areas. Since the environmental problemsfaced by the BBR are common to the majority ofcoastal areas in East Asia, the Batangas experiencecan therefore serve as a working model of ICMapplication in regions with similar social andpolitical settings.

Obtaining Political Commitment

The selection of Batangas as an ICMdemonstration site was not done overnight. TheProvincial Government had to meet the fourcriteria for selecting ICM demonstration sites(Chua and Ross, 1996), namely:

1. there must be environmental andresource–use issues across jurisdictionaland administrative boundaries, requiringconsensus building among stakeholders;

2. the identified issues and the size of thecoastal area should be manageable withinmobilized resources (e.g., human, financialand materials) and expertise (e.g., scientificand technological);

3. adequate political will to apply innovativeapproaches to coastal area management;and

4. the types and levels of environmentalproblems and socioeconomic andecological conditions must be reflective ofmost coastal areas in the country or region,the resolution of which can be used asworking models for replication andextension.

Batangas Bay met the foregoing requirements.In addition to the environmental issues and risksfaced by the area and the opportunities foreffective intervention, two factors were highly

9

Introduction

considered in the selection: 1) the governmenthas shown an understanding of the problem andthe willingness to pursue the necessary remedies;and 2) there is a strong private sector,represented by the Batangas Coastal ResourcesManagement Foundation (BCRMF) ready toprovide support. The objectives of the BCRMFare shown in Box 1.

The political, economic, and social climate inBatangas thus provides the ideal setting to:1) illustrate the value of planning and publicconsultation in the prevention of marinepollution, particularly by consideringenvironmental issues in the overall planning ofcoastal development and the reduction of multi-sectoral conflicts; 2) confirm the economic benefitof investments in pollution prevention andmitigation programs; and 3) highlight the

The BCRMF was established in 1991 through the initiatives of the Governor of Batangas andfive of the largest companies in the province consisting of Pilipinas Shell Petroleum Corporation,Caltex Philippines Inc., Chemphil Albright Philippines Inc., AG&P Inc., and General Milling Corporation.The Foundation has the following mandates:

• promoting and enhancing the sustainable development of the Batangas coastal resources;• encouraging the development and implementation of integrated, interdisciplinary and

comprehensive coastal resources management plans;• strengthening management capabilities of governmental and nongovernmental

organizations responsible for the management of coastal resources; and• exploring ways and means by which the public and private sectors can cooperate and

thereby benefit from efforts to sustain and develop the Batangas coastal resources.

Initially, the foundation carried out public awareness events, but had no clear strategy or programto contribute to, or influence more broadly, coastal resources management. The selection ofBatangas Bay as a demonstration site for the East Asian Seas Project provided the opportunity torevitalize the Foundation and to serve as a channel for private sector contributions to pollutionprevention and management issues in the region.

The participation of BCRMF is significant since it showed the private sector’s strong commitmentin helping protect and conserve the natural resources of Batangas Bay.

importance of a multi-sectoral approach,particularly the forging of strong partnershipsbetween the public and private sectors (Chua,1998).

The partnership between MPP-EAS and theProvincial Government of Batangas provides aneffective framework and processes for localimplementation of several environment andnatural resource related international instrumentssuch as Agenda 21 of the United NationsConference on Environment and Development(UNCED). More significantly, it highlighted aworking relationship in dealing with a pressingenvironmental issue. In the ICM implementationin the BBR, it has been agreed that MPP-EASwould provide the BBR with the technical-scientific support necessary in dealing with theproblem. On the other hand, the Provincial

Source: Contreras, 1998; La Viña, 1996; Chua and Ross, 1996.

Box 1. Batangas Coastal Resources Management Foundation.

10


Government of Batangas would complement itwith counterpart provisions in the form ofadditional funding, office and human resources,the enactment of appropriate policies, and ensuringsustainability after the demonstration phase. Inthis way, the region, although a recipient ofassistance, would develop a more meaningfulownership of the program and, in the process,greater sensitivity to the issues involved.

Lessons point to the fact that political will foran ICM program is strong if economicdevelopment in the region is tied to the coastalenvironment. There are conflicts and problemsrelated to the coastal environment that can beaddressed by an ICM program if the ICM program

is made an integral part of the government’soverall plan. It is also worth noting that thepotential for cooperation is greatest where thereare no or minimal histories of conflict. Pastexperiences of antagonistic relations can hinderintersectoral cooperation, although these situationsstill do not completely close off the possibility.Likewise, it is important to have a catalyst in theform of an external entity such as the MPP-EAS toserve as a bridging organization, bringingunaware, unsure or skeptical actors to the tableto explore the possibilities for cooperation. It is abalanced party that will facilitate interactionsamong the actors without distortions or bias, andin a way that encourages growing trust andcomfort among parties.

Charting the Future

12


13

Charting the Future

Charting the Future

The ICM program was introduced in theBatangas Bay Region in response to the need toconserve its resources while responding to theneed for economic development and an improvedquality of life for its people. The challenge was toput up a framework and develop a plan to integratestrategies and action towards harmonizingconservation and economic development.

The initial steps focused on issue identification,definition of goals and objectives, selection ofstrategies, and development of an implementingstructure. Emphasis was put on promotingstakeholder cooperation and on fosteringperception and attitude changes.

FORMING THE CORE TEAM

In order to successfully launch a multisectoralinitiative, it is important to have a core team whorepresents the interests of all stakeholders.Environmental problems can be too complex andunwieldy for any one sector to successfully tackle.

These problems are dispersed among varioussectors and encompass political, economic andsocial dimensions which may require variousresources such as: information and technicalexpertise; legislative mandates; access tocommunities; and funding. Convening a core teamfacilitates framing the general issue so that mutualinterests are reflected in the initiatives, balances

power differences that are likely to exist andinvests in building relationships.

The Batangas Bay Demonstration Project(BBDP) was officially launched on 28 April 1994with the signing of the Memorandum ofUnderstanding (MOU) between UNDP, IMO, theProvincial Government of Batangas, the MunicipalGovernments of San Pascual, Bauan and Mabini,the City Government of Batangas City, andBCRMF. Immediately after the launch, the coreteam was formed and convened to begin work.

The core team consisted of planning officersfrom the city and municipal governments, relevantprovincial offices such as those involved inplanning, agriculture and health, and local DENRoffices such as the Provincial Environment andNatural Resources Office (PENRO) andCommunity Environment and Natural ResourcesOffice (CENRO), Philippine Ports Authority (PPA),Philippine Coast Guard (PCG) and the BCRMF.

The core team in action.

2

14


MPP-EAS assigned a Project Manager to the sitewhile the Provincial Government seconded staffto constitute a skeletal project managementoffice. The BBDP formally began operation inlate 1994 with the Project Management Office(PMO) space provided by the ProvincialGovernment of Batangas.

WORKING TOGETHER: INTERAGENCY COOPERATION

Working together was not quick and easyfor the members of the core team. Theyrepresented diverse stakeholders with differinginterests. However, the project chose to focuson the need to identify core competencies andthe comparative advantage of agencies bylooking at multisectoral cooperation as a strategythat optimizes the respective strengths of thesectors while limiting the impact of theirindividual weaknesses. The project found thatwhen properly carried out, the roles played byinvolved actors and the resources brought to theproblem-solving process were defined accordingto their sectoral backgrounds and strengths.

Joint diagnosis was a guiding rule adoptedby the core team and was seen as an effectiveway of establishing a joint learning process andfor building local ownership of the project. Theprocess of finding out educates and informs allstakeholders, strengthening their consensusbuilding process despite competing priorities.The learning process through working together,made it easier for each agency or sector toemphasize the aspects relevant to their ownmandate, operations and strengths, whiledrawing support from others to neutralize itsweaknesses. Commitment and motivation werealso enhanced by the awareness of the problem’surgency and the acknowledgment of itsrelevance to their own work rather than it beingperceived as an additional burden.

INVOLVING THE POLITICAL LEADERS AND THE PEOPLE

Local governments should be maderesponsible for supporting, promoting andmanaging projects and for cooperating with otherlocal governments. Some externalities can fallbeyond the limits of administrative boundariesmaking cooperation necessary. Likewise, localgovernments have the knowledge and capacity topool together local coalitions of both public andprivate agents capable of implementing projects,to monitor their work in progress, and to enactinstitution-building activities. Engaging the activesupport and cooperation of local governmentstherefore, depends significantly on the recognitionof the urgency of the problem by local politicalleaders and their appreciation of the feasibilityand rationality of the solutions.

When ICM was introduced in the BBR, localleaders and their stakeholders did not havesufficient knowledge and awareness of the conceptalthough they believe that something must be donein order to secure the future. In some municipalitiesinitiatives were being undertaken, which couldbe enhanced by integrating their actions. Severaldialogues with political leaders were undertaken.MPP-EAS facilitated a study tour that providedthe leaders with actual exposure to the ICM processand its results. Mayors of the coastal municipalitiesin the Bay Region and elected officials of theprovince were thus sent on a study tour of Xiamen,People’s Republic of China, to observe theinitiatives taken on the application of the ICMframework in Xiamen, and to interact and learnfrom their counterparts. They were also invitedto participate in meetings and roundtablediscussions where programs proposed by the BBRcore team were presented.

Representatives from the province werelikewise sent to different training anddevelopment programs such as the Regional

15

Charting the Future

Training Course on the Application of ICM Systemin Marine Pollution Prevention and Management,conducted annually from 1995 to 1999. The MPP-EAS also provided in-service training through staffattachments to advanced laboratories in the regionand through training courses offered incollaboration with the University of the Philippines(UP). Emphasis was given on building institutionalcapacity to plan and manage their own coastalresources.

The training and exposure provided by MPP-EAS helped the administrators to betterunderstand the problems confronting the Bay andhow they could respond. In this way, they startedto appreciate ICM and developed a sense ofownership. This helped cross the barrier ofpolitical affiliations which usually affect theeffective implementation of governmentprograms.

TAPPING SCIENTISTS’ SUPPORT

The capacities to initiate and sustainmultisectoral cooperation and initiatives may notbe widely distributed among key actors andstakeholders at the outset. Donors can redressthis initial gap by providing scientists andconsultants, and training and capacity buildingsupport to the multisectoral initiatives. The longterm focus should be on creating local resourcesthat can continue to foster other multisectoralinitiatives. It is important for science to have aclearly defined role as a partner in the planningand management process such as providingmanagement technical advice and results ofresearches in useful formats. Quality technicalexpertise is a key determinant of success as itfacilitates the planning process.

In the BBR, there was a shortage of suitablytrained coastal resource managers with knowledge

and technical skills to implement ICM. Thus, theMPP-EAS tapped the expertise of scientists fromthe Marine Science Institute (UP-MSI) and theSchool of Urban and Regional Planning of theUniversity of the Philippines. These scientistsworked with the concerned national and localgovernment officials in collecting and interpretingscientific data, preparing technical reports,establishing environmental monitoringmechanisms, and training and development.Involving the local experts from the academe suchas the De La Salle University–Lipa, Batangas StateUniversity and the University of Batangas alsoinitiated the mechanism for the pooling of talentsand experts in the BBR.

The outputs of the scientists include: theCoastal Environmental Profile (CEP) (MTE, 1996),risk assessment for pesticides (MPP-EAS and FAO,1998), fisheries stock assessment (Aliño, et al.1998), hydrodynamics study of Batangas Bay(Villanoy, 1998), agricultural waste study(Stewart, 1999), and integrated environmentalmonitoring. These were used in the developmentof Strategic Environmental Management Plan(SEMP) (PG-ENRO, 1996), water-use zonationscheme (MPP-EAS, 1999), integrated wastemanagement action plan (IWMAP) (MPP-EAS,1996) and other activities.

THE PLANNING PROCESS

Putting Together the Relevant Information

Information is essential to planning anddecisionmaking. Relevant and timely dataprovides a holistic view and a better grasp of thestatus of the environment leading to a betterunderstanding of relevant issues. However, accessto information can prove difficult with data eitherunavailable or scattered among diversegatekeepers. It is important therefore to compile

16


all relevant information in a form that wouldprovide an understanding of the relationshipsamong the different components of the existingenvironment which could lead to the properidentification and prioritization of managementissues. It is equally important to know thedifferent agencies, institutions and groups whoserve as gatekeepers of information. Lastly, thecompilation should speak of a common languagethat guides the scientists and researchers instructuring information from the differentdisciplines.

Coastal Environmental Profile

In the BBR, there was no compilation ofrelevant information on social, economic andecological aspects. Different agencies kept data.The BBDP commissioned a multidisciplinary teamto compile a CEP with all available information,and conduct a preliminary analysis of the issuesand determine data gaps needed in the formulationof a plan.

The team consisted of an environmentalplanner, a fishery specialist, an oceanography andwater quality expert, an economist, a geographer,and a project development specialist. The CEPpresents important characterisits of the BBR suchas: physical and biological resources; the state ofthe marine environment; and socioeconomic andinstitutional characteristics. It also contains apreliminary analysis of the issues confronting theBBR.

The CEP provided a valuable venue forpromoting and integrating interdisciplinaryteamwork, and for involving stakeholders in theprocess. A series of meetings among the expertsand consultation with stakeholders were held todevelop the scheme and guidelines for thepreparation of the CEP and to validate theinformation presented.

Attention was then directed on the status ofthe BBR’s ecological, social and economicconditions. Specifically, the team examined thefollowing parameters deemed important in thepreparation of the profile: land resources and use;fishery resources and critical habitats;oceanography and inland water bodies; waterquality; socioeconomic conditions; institutionaland legal aspects in the management of the bay;and natural hazards. The team also assessed thestatus of environmental parameters, the utilizationand development of coastal resources, andmanagement of the bay. Moreover, it identifiedand defined the problems and issues currently andpotentially affecting the bay.

Interviews of key resource persons fromreconnaissance field surveys supplemented thesecondary data gathered by the team. The teamlikewise identified the data gaps requiring furtherresearch.

The draft profile was presented to amultisectoral audience for validation andagreement on the identified issues and problems.

17

Charting the Future

The profile was further refined, based on thecomments and suggestions made by the workshopparticipants.

The CEP served as the source of informationin the course of developing the SEMP, and thesucceeding activities of the project. To someagencies and institutions, including the privatesector, the CEP became useful in developing theirprojects and action plans.

Geographic Information System Database of theBatangas Bay Region

Spatial information is essential in planningespecially when identifying the location of theprojects vis-à-vis the characteristics of the area.As support to the planning exercise, animplementation of the project activities of BBDP,a geographic information system (GIS) databasewas established at the Provincial GovernmentEnvironment and Natural Resources Office (PG-ENRO), with heavy support from MPP-EAS andDENR, due to the lack of available expertise. Thedatabase was established to support usefulapplications such as (Paw et al, 1998):

• Environmental evaluation of developmentprograms and projects in the bay region,especially for environmental impactassessment (EIA);

• Resource allocation and suitabilityassessment of alternative sites for coastalactivities;

• Environmental monitoring of land- andsea-based sources of marine pollution;

• Water-use zoning and management,including harmonization with land-useplans;

• Determination of the spatial extent ofcoastal resources and area-based humanactivities; and

• Identification of management issues andgaps.

The GIS database is a collection of differentmaps and their corresponding attributes requiredin the above applications. To enable access of databy the local governments and users who cannotafford the cost of GIS facilities and lack therequired technical skills in operating a GIS, theGIS database was compressed to an abridgedversion and stored in a CD-ROM entitled“Environmental Management Spatial Database ofthe Batangas Bay Region”. By using the abridgedversion, one can generate printed maps of any partof Batangas, especially in the BBR. The system canalso create maps by overlaying different layersthat are available in the database. Analysis throughthe CD-ROM is limited, however, the maps canbe printed and manual overlays can be done topermit further analysis. Although the system wasnot comprehensive and did not contain all thefeatures of a GIS, the system was able to bring tothe local government units (LGUs), planners andICM practitioners essential information fordeveloping management plans.

The maintenance of the GIS database, howeverwas difficult for the PG-ENRO due to insufficientexpertise; a fast turnover rate of trained staff; andthe upgrading of SPANS, the software used, intoanother software that proved too expensive for

This database helps local government planners andmanager conduct spatial analysis of the BBR.

18


the Provincial Government to acquire.Nevertheless, the Provincial Government initiatedto use other more affordable software. Staff arebeing trained and are expected to reestablish theGIS database at PG-ENRO.

PLANNING FOR A BETTER FUTURE

The SEMP was designed to prescribe themanner by which development should proceedwithout compromising the environment andnatural resources (PG-ENRO, 1996). The widerange of management issues and the potentialimpacts they pose on the environment and peopleagainst the existing limited resources andinstitutional capacities of local governmentunderscored the need to determine meaningfulpriority issues or factors which the LGUs cantackle. Issues in Batangas were thereforecategorized into three: 1) critical priority; 2) highpriority; and 3) low priority. The prioritization ofmanagement issues allowed project managementto focus on solvable issues that were of the mostintermediate concern.

The SEMP encompasses the entire BBR but ithad an immediate focus on the coastalmunicipalities bordering Batangas Bay. Its centraltheme was sustainable development ensuringcompatibility of management actions between theoverall development of the BBR — within the ICMframework — and its environment.

The preparation of the SEMP was coordinatedby the Provincial Government of Batangas. MPP-EAS provided major technical and financialsupport. The plan was completed in less than twoyears through the combined efforts of local andnational government officials, private sectorrepresentatives and nongovernmentalorganizations (NGOs). The first draft of the planwas circulated to selected local executives andindustry leaders for review, then, it was formallypresented to key stakeholders for validation. Thefinal draft was adopted by the Batangas BayRegion Environmental Protection Council(BBREPC) during its meeting in July 1996.

As a local planning initiative, the SEMP waslinked with macro socioeconomic andenvironmental plans and programs such as theMedium-Term Philippine Development Plan 1993–1998, Project Calabarzon Master Plan, and theMultisectoral Development Plan of BatangasProvince 1995–2000.

Two issues were emphasized related to thetranslation of the SEMP into detailed action plans,these were: 1) the identification of sources forfunding; and 2) the passage of an ordinance bythe Provincial Government of Batangas declaringthe SEMP as a major LGU administrative guide inthe formulation of future development,environment policies, plans and programs.

Lessons distilled from the development of thestrategic plan emphasized the need for a moresystematic assessment of the vulnerability of themarine environment, making it easier to identify

19

Charting the Future

more appropriate entry points. Projects that failedto undertake a holistic analysis of the environmentprior to project design often adopted irrelevantstrategies and entry points. The holistic analysisleads to more focused interventions, but alsoprovides for other avenues of improvement. Oncethe holistic analysis is completed, a decision canbe made on the scope of the entry point and theintegrated movement into these areas. In short,the success of cooperative ventures often dependsgreatly on best efforts to establish and maintainmutual influence over the definition of problemsand issues and their prioritization, the planningof solutions, and the mobilization of resources toimplement those solutions.

It is vital that all parties agree on a process forframing the issues that best articulate their interest,recognize the critical resources they bring andprovide them with some influence over the courseof the cooperation. It is also important that thedeveloped plan be validated and accepted by allstakeholders.

GAINING SUPPORT AND ACTIVE PARTICIPATION

THROUGH PUBLIC AWARENESS CAMPAIGNS

Raising stakeholder awareness on theimportance of managing the environment andresources of the BBR, and on the importance ofpartnerships to solve issues, can lead to changesin perception and attitudes. It must be noted thatstakeholder actions towards the environment andnatural resources are dictated by their awareness.Once they are convinced and their perception andattitude changed, their active involvement andsupport will follow. This was a challenge for thePMO and the core team in the early part of theproject.

Adequate publicity should be made on theidentified issues and generated information so thatthese may be made known to the public. A high

level of public awareness is necessary to facilitatethe take-off and development of interventionprograms. An educated public plays the dual roleof support and involvement in projectimplementation, and contributes to the monitoringof progress and impact of managementinterventions.

Public awareness activities must be sustained,not limited to one-time publicity and organizedcampaigns. The involvement of the media isimportant to bring the message not only to thegeneral public but also to those participating inthe activities and to foster a supportive attitudetowards the programs. Provision should also bemade to answer the public’s inquiries that willsoon follow. Opportunities for creating publicawareness must be maximized.

Coastal cleanup sponsored by the private sectorthrough the Kilos Kabayan Para sa Kalikasan

In the BBR, the first general awarenessprogram on the environment was the Kilos Kabayanpara sa Kalikasan or KKK (Citizens Action forNature) launched by LGUs in cooperation withthe BCRMF. KKK sought to organize an

Coastal cleanup sponsored by the private sectorthrough the Kilos Kabayan Para sa Kalikasan raisedawareness and changed behaviors of stakeholderswith regard to the environment.

20


environmental movement which fosters thereorientation of values and practices necessaryfor the sustainable development of theenvironment. For its first activity, theorganizers held a contest in search of thecleanest barangay. It was participated in by thefour municipalities along Batangas Bay. As anoffshoot of this activity, Batangas City, Lipa Cityand the coastal municipalities likewiseconducted their own cleanest barangay contestsand selected their own pilot villages.

Other public awareness activities followed,such as the Batangas Bay Watch (BBW)movement. BBW is a public awareness programwhich mobilized various sectors including theyouth as active partners in the protection andmanagement of Batangas Bay. Some 1,000students from the higher education institutionsin Batangas City pledged to assist in protectingthe environment. They were likewise deputizedas environmental agents, reporting violationsof environmental laws and ordinances.Members of BBW were issued identificationcards and were provided access to the PG-ENRO library and the Batangas Bay MarineLaboratory.

As the project progressed, these activitieswere complemented with an array of otherpublic information programs. These included thepublication of a quarterly ENRO bulletin,production of a BBDP brochure, circulation ofa Techno Comics on ecological wastemanagement, putting up of billboards instrategic areas, and issuances of press releasesto media establishments. The two radio stationsin Batangas City — DWAM and DZBR — werehelpful in disseminating information aboutBBDP. The stations broadcast news about theprogram, covered special events and featureddiscussions on important environmental issues.

In order to ensure responsible disseminationof news and information concerning theenvironment, members of the media were likewiseinvolved in education and training programsconducted by the BBDP and the PG-ENRO. In thiscase, factual data were disseminated to the people,providing accurate information on sensitive issuessuch as oil spills and fish kills. It helped that someof BBDP’s partner journalists were affiliated withorganizations directly involved with theprotection of Batangas Bay.

The BBDP and PG-ENRO were able to comeup with a number of laudable public awarenessand information programs. However, not all ofthese initiatives were successful in deeplypenetrating every household in the BBR. Peoplein the area, as elsewhere in the province, are moreinclined to Metro Manila-based media and,therefore, are more familiar with national issues.Unfortunately, only a few of these media focuson environmental concerns, except for occasionalsensationalized treatment of tragedies or scandalsrelated to environment and natural resources.Instead, these media are more inclined on sportsand the entertainment industry which are theprogramming genres usually patronized by thepublic. Thus, in order to have a wider reach of itsconstituency, the BBDP should have also stronglyutilized the national media. This was not madepossible, however, since such would translate tohigher operational costs.

SHARING THE COSTS

Stakeholders need to be aware that poolingof resources is necessary to solve the problem aswell as realize the likely benefits that will accruefrom the cooperative activities. Donors cancatalyze the actions by committing resources toensure a successful project take-off and provide

21

Charting the Future

Budget Year Budget Allocation MPP-EAS PG-ENRO BBREPC US Dollars Philippine Pesos Philippine Pesos

1996 3,651,896 500,000 1997 5,560,483 500,000 1998 7,014,684 500,000 1999 7,235,908 500,000

PEMSEA 2000 8,332,741 500,000 2001 8,732,942 500,000 2002 9,469,942 500,000 2003 11,700,522 500,000

713,800

70,000

Box 2. Budget Allocation for ICM in Batangas.

agencies and the local government units and taxesimposed on garbage collection and disposal,fishing, and mining. These funds werecomplemented by assistance provided by theBCRMF and other concerned industries. Staff time,office space, equipment and other logistic supporthave been pledged and provided to add to theresource base.

STRENGTHENING EXISTING REGULATIONS

While the SEMP was accepted and resourcesto implement the plan were provided, theregulatory environment under which the plan isto be implemented should be formulated.Although existing regulations and practicesprovide a good framework for defining theoperations, they are often sufficiently broad andfail to address the issues adequately. Also, asregulations expand, overlap, and generallybecome complex, the need to collate, rationalizeand elaborate on their content and applicabilitygrows. Assessment of existing regulations relevantto ICM is suggested so that strengthening can befacilitated or the initial steps towards a new actcan be pursued. The role of LGUs takes centerstage in this regard as they can provide the legal

seed funding for initial explorations of how toapply the integrated approach. However,stakeholders should also demonstrate theircommitment to the project by providing some formof cost-sharing. This can come in the form of realmoney or in the form of other resources that canbenefit the project but which cannot be directlyquantified. Each sector or stakeholder possessesdistinctive assets that can be combined in aproductive manner to meet cost-sharingrequirements in a relatively affordable way.Either way, stakeholders are given theresponsibility and opportunity to share or provideequity which somehow instills a sense of jointownership.

In the BBR, MPP-EAS provided funds forinitiating the pilot phase in the amount ofUS$713,800. The contribution of the ProvincialGovernment of Batangas during this phase (1996–1999) totaled PHP 25,462,971. From 2000-2005,GEF contributed US$70,000 as support to ICMwhile the Provincial Government of Batangasallocated PHP 30,236,147 during this period. Box2 shows the financial resources allocated for theimplementation of ICM in the BBR from 1996 to2003. Other sources of funds are the regularannual budgetary allocation of line government

22


mandate or enact legislation to provide theenabling environment for ICM implementation.

There were a number of other environment-related legislation passed in the BBR after 1993.The majority of these legislations were noticeablyfocused, however, on issues such as littering,collection of garbage fees, prohibition of cuttingof certain trees, and prohibition of dynamitefishing (see Box 3). These legislations were ableto address sectoral concerns but there were noregulations that attempted to address the

multiplicity of issues and integrate multisectoralconcerns. Coordination among the coastalmunicipalities for the protection of the bay waslikewise weak.

Although the number of government agenciesassigned the tasks of protecting the BBR appearssufficient and the laws and regulations necessaryto protect and conserve the bay’s resources seemedadequate, these do not guarantee the bay’ssuccessful management. There are other equallyimportant factors to reinforce the institutional and

Ordinances on comprehensive waste disposal and management system

• LGUs: Batangas City, Bauan and Lipa City• Description: Institutes a comprehensive waste disposal and management system

prescribing the rates of garbage collection fees by type of establishments; providesinstructions on the manner of disposing wastes and the time of collection; stipulatespenalties for violators

Fishery ordinances

• LGU: Mabini• Description: Provides zoning regulations; identifies covered barangays and minimum

bids for acquiring fishery rights or user rights; requires fishing boats to get licensefrom the Mayor

• LGU: Bauan• Description: Prohibits the use of cyanide in fishing in the municipal waters; prohibits

the use of spearfishing

Anti-littering ordinances

• LGUs: Mabini, Bauan, San Pascual, Alitagtag, Padre Garcia, Rosario and Ibaan• Description: Prohibits the indiscriminate throwing and dumping of garbage in the

streets and public places; requires traders and public utility vehicles to provide theirown garbage cans

Box 3. City and Municipal Ordinances.

23

Charting the Future

legal framework of the Batangas Bay’smanagement structure, these include: bettercoordination among stakeholders; greaterawareness and participation by the localgovernments and local communities; increasedcooperation, involvement and support from theprivate sector; competent planning and allocationof the bay’s resources; adequate publicinvestment; improved enforcement of laws andregulations; enhanced capacity building; and closemonitoring of activities significantly affecting thebay.

Decisions to strengthen existing regulationsand those that require actions were presented tothe Strategic Planning Committee for approval.This was the modality adopted while theformation of the multisectoral BBREPC was stillin process. For example, the implementation ofEIA-related functions was a key area of interest,as a consequence of the enactment of the LocalGovernment Code which devolves responsibilityfrom the central government to the localgovernments. The stakeholders, through theStrategic Planning Committee, agreed that thisprovision of the Code could be pursued. InFebruary 1999, after several years of discussion,an MOU was signed for this purpose by theProvincial Government of Batangas and theDENR.

MONITORING CHANGES IN ENVIRONMENTAL QUALITY

At the outset, it is important that the projectdesign pays particular attention to how resultsand impacts will be monitored and measured.Water quality is one area of interest and a pre-project baseline survey provided the startingpoint. The baseline information generatedfacilitated the establishment of benchmarks uponwhich succeeding information were compared.

When there are a large number of factorsaffecting the baseline information, establishingthe baseline is much more difficult and requiresconsiderable research and analytical skills.

In the BBR, baseline water qualityinformation proved limited mainly because therehas been no consistent monitoring effort in thearea. With the assistance of experts from the UP-MSI, collection of baseline data was conductedby the PG-ENRO. This involved actualmeasurement of water quality parameters andserved as bases in setting benchmarks andreferences.

Twenty sampling stations in Batangas Bayand two stations in Calumpang River in BatangasCity, the largest tributary entering the bay, weredesignated as survey sites. Water sampling inthese stations was done every quarter. Watersamples were analyzed for basic parameters suchas biochemical oxygen demand (BOD), chemicaloxygen demand (COD), dissolved oxygen (DO),total and fecal coliform counts, nutrients, oil andgrease, transparency, chlorophyll, salinity,temperature and pH.

The baseline results, although not conclusive,suggested a potential health risk. Furtherinvestigation of pollutant sources and theircontrol is warranted. A related managementissue that emerged from the baseline studies isthat while Batangas Bay is classified primarilyfor the propagation and growth of fish and otheraquatic life and not for contact recreation, thereare swimming beaches on the western side ofthe bay. Continued use of this area for swimmingwill need to be complemented with regularmonitoring of coliform counts and the issuanceof health advisories. This will require, on theother hand, the provision of adequate equipmentand qualified personnel.

24


Figure 4. Sampling Stations in Batangas Bay.

25

Charting the Future

Given the baseline information, a pollutionmonitoring program was developed to targetselected critical issues, problems and parametersat specific sites; provide input into the formulationof cost-effective strategies to addressenvironmental concerns; and involve the varioususers and custodians of the marine environmentin the monitoring, safeguarding and managementintervention processes.

SUMMARY OF LESSONS

Several useful lessons were learned from thedifferent activities initially undertaken for theplanning and preparation of ICM in the BBR.These include the following:

1. Stakeholder participation is vital during theplanning and preparation phase. A cross-disciplinary management team andprofessionals representing thestakeholders must be formed as early aspossible. The ICM project managementteam must have a clear understanding ofthe ICM concept and awareness of the localneeds necessary to develop the appropriateapproaches to problems. Likewise, theremust be an ability to build a critical massof stakeholders with commitment andinterest in developing solutions toperceived problems and issues. Anintegrated planning process is essential tobring together the divergent efforts ofvarious government units, NGOs andother organizations involved inmanagement.

2. Making scientific advice available at thelocal level through integrated planning andmanagement improves efficiency andeffectiveness of management

interventions. Effective integrationbetween science and management requiresa sound foundation and practical methodsfor resolving conflicts, strengtheninginstitutional arrangements and humanresources for management and planningof ICM activities. Quality technicalexpertise is a key determinant of successas it facilitates the planning process.

3. Political leadership is always required tostart and sustain successful ICM programsthrough the provision of resources, legalmandate, moral support and overalldirection for local stakeholders. Theinvolvement of political leaders and peopleis crucial in developing a broad base ofpublic support for ICM. Study tours forpolicy and decisionmakers improveperception and attitude and promotestronger commitment. Public involvementcreates a constituency which can applypressure to elected officials anddecisionmakers. The involvement ofpeople builds confidence to manage theirown resources and encourages outcomesthat are long-lasting.

4. A CEP created early in the project scheduleis a useful tool for encouragingstakeholder involvement by collectingrelevant existing information on the statusof the environment, priority issues and theapplicable institutional arrangements. Theproject should use best availableinformation to address urgentmanagement issues.

5. A heightened public awareness on thenecessity of managing the marineenvironment helps to strengthen thedetermination of the government to

26


undertake pragmatic solutions. Pressreleases and public information materialsshould be used to advertise the projectpresence and accomplishments and tobuild a constituency for support.Opportunities for projects to shareexperiences and to develop linkages andsupport system should be provided.

6. Move to strategic action planning once theproject is launched and enoughinformation and awareness have beengenerated. Develop a plan that builds ongood information that evolves with theplanning process, identifies roles,responsibilities and resources. Becausemultisectoral cooperation brings togetherparties with their own interests, goals andways of working, it is important that plansand roles are jointly developed and agreedto. Developing agreements onimplementation is essential to holding eachother accountable for programperformance. Not all disagreements canbe foreseen but negotiating action plansand division of responsibilities at theoutset can reduce the potential formisunderstanding and conflicts that couldlater undermine the partnership.

7. While an ICM initiative might be triggeredthru external donor’s funding anddeveloped by external support, effortsshould be made by local government andother stakeholders to share in the costs.Local government commitment to projectmanagement and implementation areindispensable for project success. Thecommitment is couched not only in publicpronouncement of support but also in theallocation of financial, human and materialresources in cash or in kind, for projectimplementation.

8. Clear legal mandates will enhance effortsto integrate the activities of diverse sectorsand institutions. It is important to startearly with activities to clarify andharmonize the legal framework. Laterpolicy successes will depend upon theproject’s early ability to understand itsauthorizing environment.

9. It is important that the project design paysparticular attention to how results andimpacts will be monitored and measured.Environmental quality criteria should beset at the outset and baseline informationsecured as basis for comparison.

Executing the Plan

28


29

Executing the Plan

Executing the Plan

This section highlights the importance of twomajor elements in the implementation of ICMprograms, the institutionalization of ICM and theinvolvement of stakeholders in all plannedactivities. The first section pinpoints theorganizational structure and the processes thatenable all parties to actively participate. Thesucceeding sections emphasize how joint effortswere harnessed and transformed into productiveand effective actions throughout all stages of theimplementation phase. Such mix of efforts canonly be achieved over time, with patience andcollaboration among the various concernedagencies and sectors.

INSTITUTIONALIZING THE ORGANIZATION

The establishment of a legal and institutionalmechanism is a prerequisite to translate the SEMPfor the BBR into actions putting the principles ofICM into full application. Initially, it would be bestto look at alternative structures and choose themost appropriate structure which could adequatelyrepresent all stakeholders and ensure sustainabilityregardless of political transition. It is better to avoidthe establishment of a new institutional body sincethis is a time-consuming activity, needingappropriate manpower and financial resources andcould even be misinterpreted as a threat by existingagencies. It would be better for existing agenciesto retain their line functions with functionalintegration to be achieved thru the ICMframework. The roles and responsibilities of

participating organizations or groups, including theareas of accountabilities for implementation had tobe defined in the process (La Viña, 1996).

The legal and institutional mechanisms for ICMimplementation in the BBR sought to establish themost appropriate multisectoral organization andoperation modalities which will harmonize sectoralpolicies, plans and programs in the BBR; makepriority directions for environmental management;and then mobilize stakeholders participation andcoordinate the use of resources for effectiveprogram implementation. A corresponding studywas conducted, and among the differentalternatives analyzed, the establishment of a multi-sectoral council, with the PG-ENRO as the technicalsecretariat was recommended (La Viña, 1996).

BATANGAS BAY REGION ENVIRONMENTAL PROTECTION

COUNCIL (BBREPC)

Recognizing the importance of a legal mandate,the mechanism adopted in the BBR was madelegitimate through a provincial ordinance andserved as the framework for the multisectoralcoordination of SEMP implementation in the BBR.Eventually, such institution paved the way not onlyfor the sustainability of the ICM system in the BBRbut also provided the necessary support to replicatethe program.

In January 1996, the BBREPC was created byvirtue of Provincial Ordinance 001, series of 1996.

3

30


The BBREPC was established to supervise andcontrol the formulation, adoption, governance,implementation and policy direction of the SEMPand subsequent environmental action plans for theBBR. It was vested with the power to developpolicies and programs to ensure and promote thesustainable development of the BBR’s naturalresources through conservation and utilizationpolicies. In addition, it was mandated tocoordinate with national agencies and localgovernments to ensure that their programs,projects and activities are aligned with theBBREPC plans, programs and policies. The Councilalso undertook appropriate information andeducation activities to promote and encourage theinvolvement of all sectors of society and mobilizepeople participation in the environmentalmanagement of the BBR.

The BBREPC is composed of the governor ofBatangas; the mayors of cities and municipalities

located within the BBR; the head of DENR’sPENRO; the local manager of the PPA; the districtcommander of the PCG; the head of the MaritimeIndustry Authority; the head of the local office ofthe Department of Agriculture; the President ofBCRMF to represent industry; a representativefrom an NGO; and the Chair of the Committee onEnvironment of the Provincial Board. The headof the PG-ENRO is an ex-officio member. Figure 5shows the composition of the BBREPC.

The BBREPC provided an important multi-sectoral forum where information can beexchanged, differences can be explored and trustcan be built to enhance the formation of productivecross-sectoral relations. This forum broughtbusiness, government, academic and grassrootsactors into systematic contact with one another,whereas previously such interaction used to besporadic at best, thereby allowing them to jointlydiscuss ideas and focus on strengthening linkages.

Figure 5. Composition of the Batangas Bay Environmental Protection Council.

Governor of BatangasProvince

BATANGAS BAY REGIONENVIRONMENTAL PROTECTION

COUNCIL

SecretariatPG-ENRO

Department of Environmentand Natural Resources

Philippine Coast GuardPhilippine Ports AuthorityMaritime Industry AuthorityDepartment of Agriculture

National Agencies

Batangas Coastal ResourcesManagement Foundation

Private Sector

Representative ofSmall-scale Fishers in

Batangas Bay

Non-GovernmentOrganization

Mayor of LipaMayor of BatangasMayor of San PascualMayor of BauanMayor of MabiniMayor of TingloyMayor of AlitagtagMayor of San JoseMayor of CuencaMayor of Padre GarciaMayor of IbaanMayor of RosarioMayor of LoboMayor of Taysan

Chair, Committee onEnvironmental Protection

Provincial LegislativeBoard

Print and Broadcast MediaRepresentative

Media

Municipal Government

Source: Estigoy, 1998.

31

Executing the Plan

The Council was given authority to overseethe formulation, adoption, implementation, andpolicy direction of the SEMP for the BBR andrelated actions. It was not just an informal oradvisory body, it was empowered to makedecisions. Doing so and managing multisectoralrelationships and moving it towards agreed-upongoals requires carving out arrangements thatclearly apportion roles and responsibilities, enablemutual influence and problem-solving and assessmutual gains.

A structure with a process that enables allparties to participate in shaping outcomes iscritical. Membership on the Council wasparticularly crucial to private sector involvement.It provided an avenue for industry participationin pollution management other than being a

regulated entity or a polluter, and for industryand government to work together rather than toview each other as adversaries. Another incentivein encouraging the participation of privatecompanies in the project was the opportunity tonegotiate voluntary agreements with the nationalDENR and the PG-ENRO. These agreementsprovided industries a grace period beforepollution emission standards are strictly enforced.In return, each industry agreed to a targetedreduction in hazardous waste, to implement apollution management audit, and to develop andimplement by the year 2000 a follow-on work planand schedule for achieving identified goals.

Unlike other voluntary agreements in theregion, the Batangas Bay initiative was not justfocused on an industry’s role but also on the rolesand responsibilities of both the public and privatesectors in addressing a common environmentalproblem, voluntarily and in partnership with eachother. Each signatory must fulfill its identified roleand action in order to allow others to implementtheirs.

Furthermore, BBREPC gave the private sectoran opportunity to be involved in the program as agroup. This reduced the appearances that a singlecompany may be receiving special treatment. Italso provided a means for the broader concernsof the private sector to be expressed and for theprivate sector’s positions to gain legitimacy.

Experience in Batangas has demonstrated thatthe private sector found its direction, role andfunctions within a well-defined ICM frameworkand waste management program. ICM practicesfacilitated balanced multiple resource uses, ahealthy functioning of market mechanisms and thesustainability of the resource base. These arecompatible with long-term interests of the privatesector and thus provide incentives for public-

• Delineation of policies regarding theprotection and preservation of theecological balance.

• Coordination with government, NGOs andthe private sector regarding issues onenvironment protection.

• Initiate legislation that seeks to minimizethe risks of pollution within the BBR.

• Monitor compliance of national and locallaws pertaining to pollution control.

• Promote public awareness on andparticipation in abatement of pollution inthe BBR.

• Undertake projects that will encouragemarine pollution reduction, prevention andrisk management.

Box 4. Duties and Responsibilitiesof the BBREPC.

Source: Provincial Ordinance No. 1 Series of 1996.

32


private partnerships (PPP). The success of theBBREPC carries a strong potential to be carriedinto other infrastructure programs and possiblyother developmental areas. BBREPC promotesextensive authority, equal opportunity and sharedresponsibility and builds partners not adversaries.

PROVINCIAL GOVERNMENT-ENVIRONMENT AND

NATURAL RESOURCES OFFICE (PG-ENRO)

Integration and coordination among thedifferent sectors, national and local governmentagencies and other stakeholders for the propermanagement of the coastal environment are theessence of ICM programs. There is a need for alocal office to serve as a clearing house and centralcoordinating agency, a focal point for multisectoralactivities. A permanent coordinating agency withinthe framework of the local government is aneffective way to coordinate various sectors andmanage an ICM program.

The Provincial Government of Batangasestablished the PG-ENRO through ProvincialOrdinance No. 03-95 in December 1995 to serve

as the technical secretariat of the BBREPC and toperform the devolved functions of the DENR(Provincial Ordinance No. 3 Series of 1995). PG-ENRO was tasked to coordinate theimplementation of the SEMP. Its general mandateincluded: taking the lead in coordinating theimplementation of environmental managementprograms in Batangas; developing operationalplans and strategies for implementation ofenvironment and natural resources programs andprojects; enforcing pollution control andenvironmental protection laws, rules andregulations; and coordinating the actualimplementation of the ICM by the concernedsectors.

The establishment of the PG-ENRO thusprovided a lead agency with the appropriatemandate and the capacity for integration andcoordination among the different sectors, nationaland local government agencies, and otherstakeholders for the proper management ofBatangas Bay.

The organizational chart of PG-ENRO is givenin Figure 6.

PROVINCIAL GOVERNMENT ENVIRONMENT & NATURAL RESOURCES OFFICE

ENR Planning & MIS Section Administrative Section

Monitoring&

LaboratorySection

Environment& Waste

ManagementSection

Parks, ProtectedAreas

& WildlifeSection

ForestManagement

Section

Mines &Geo-Sciences

Section

Assistant Department Head

Department Head

Figure 6. Organizational Chart of PG-ENRO.

33

Executing the Plan

ESTABLISHING ENFORCEMENT TEAMS

Strengthening enforcement is at the heart ofimproving the Philippine environment given thedeficiencies in compliance and awareness ofPhilippine environmental laws as well as DENR’svery limited resources. In the BBR, it wasrecognized that local law enforcement officials inspecific jurisdictions lack the training, specializedequipment and resources to adequately enforceexisting laws. Through the coordinative effortsof the PG-ENRO, a team was organized composedof individuals from relevant agencies to workcooperatively and expeditiously provideenforcement in preventive, detective and recoverymeasures. This is an informal team that spansseveral organizations such as the PCG, PPA, DENRand its provincial offices, PNP Maritime Police andthe PG-ENRO.

The PCG implements measures to managepollution from ships and ports and harbors withintheir jurisdiction and supervise operations againstvessels contributing to marine pollution.

On the other hand, the Marine Section underthe Port Services Division of the PPA monitors,supervises and controls all vessels’ activities andother marine service operations, enforcesprescribed rules and regulations pertaining tonavigation, operational safety, marine pollutioncontrol, and anchorage operation. It coordinateswith other offices regarding harbor maintenance,installation of navigational aids and properoperation of available communication.

The provincial and local offices of the DENRparticipate in the monitoring, evaluation andinvestigations of violations done by the industriesin the operation/implementation of their projects.For its part, the PG-ENRO, supported by data

generated by its water quality monitoring team,recommends the issuance of temporary closure andcease and desist orders to erring factories andenterprises. This showed the public that thegovernment is not selective in implementingappropriate regulations.

The team established a joint emergencyresponse mechanism and covered preventive,detective and recovery activities. A Batangas BayMarine Pollution Control Contingency Programdeveloped by the 5th Coast Guard District aimedto protect Batangas Bay and its rivers andtributaries from the damaging effects of oil spillsand the spread of noxious substances. Theprogram provided a coordinated responsemechanism for combating oil spills using thecombined resources of the private sector and thegovernment. This is complemented by acoordinated local response mechanism for oil spillsput in place through the combined efforts of theProvincial Government, the PCG, Pilipinas Shell,and Caltex Philippines.

“I caught an old man dumping waste into thesea. I ordered him to dive and retrieveeverything that he threw. Those who witnessedthe incident thought that I was cruel. But I stoodby my decision. Later, I approached the oldman and explained to him why dumping wasteinto the sea is not a good practice. Heapologized to me. The old man and any otherresidents of that community were never againreported to have polluted the sea.”

Ponciano Angeles MARPOL Inspector, Port of Batangas

Box 5. Experiences of the EnforcementTeam.

34


Interagency coordination in law enforcementmade some positive results. The PCG, noted howthe people’s consciousness on environmentalprotection changed when they saw that thegovernment was serious in enforcingenvironmental laws and standards. Working as ateam has improved the speed in which an incidentcan be recognized, analyzed, deterred andresponded to, thereby limiting the damage andlowering the cost of recovery.

Lessons in enforcement point to bringingtogether a team to analyze and solve complexissues. The team should have the ability tocoordinate a response, work proactively and tocreate a liaison to deal with institutional barriers,enabling the team to exert more authority. It isalso important for the team members to obtainmanagement support from their respective officesand buy-in for human resources and costs, andcommunicate their objectives and operational planto management and others who need to know andunderstand the team’s operations. Periodicmeetings should be held to provide informationand discussion on important enforcement issues.In short, an integrated law enforcement groupwithin the coordinating body can successfullyresolve use conflicts. Integrated law enforcementcan be effective when legislation and regulationare integrated and do not conflict with each other.

JOINT EFFORTS TO MONITOR ENVIRONMENTAL CHANGES

A pollution monitoring program wasdeveloped which addressed selected critical issues,problems and parameters at specific sites. Themonitoring program was expected to providepolicymakers with useful information on the stateof the marine environment, such that appropriatestrategies and actions may be undertaken for thesustained use of the marine resources.

The program identified sustainableenvironmental parameters for monitoring,enumerated equipment and supplies needed in thelaboratories and provided direction on samplingand analytical methodologies. A monitoringprogram was set up utilizing multisectoralinvolvement and following the principle of sharedresponsibility to ensure that the process ofenvironmental monitoring and assessment can besustained.

MPP-EAS provided technical support and basicsampling and field equipment, handled trainingprograms and conducted baseline studies. PG-ENRO provided the staff, office space, andoperating expenses. It likewise attended tosampling and field measurements and analyses ofbasic parameters. The Provincial Government ofBatangas refurbished a small building to house alaboratory, hired two chemists, and provided abudget for the maintenance and operatingexpenses of the laboratory. MPP-EAS providedthe equipment needed for the laboratory. A moreequipped Batangas Environment Laboratory(BEL) was established in 2004 through theassistance extended by the National PowerCorporation.

In case of analysis of more difficultparameters, the line agencies provide technicalsupport to the PG-ENRO. For example, theBatangas Water District focused on sampling andanalysis of fecal coliform. Other governmentoffices in Batangas provided technical or logisticalsupport in monitoring as exemplified by the PCGwhich provided boats and additional manpower.

The local government units providedassistance in pinpointing “impacted” sites andpollution incidents which they are duty-bound toimmediately report to PG-ENRO. It likewisehelped in the field during the monitoring activity,

35

Executing the Plan

if needed. On the other hand, the NGOs organizedpeople’s organizations (POs) for community-basedmonitoring and assessment.

The private sector contributed to themaintenance of the field office and providedlogistical support in sampling and analysis.Sakamoto Chemicals Inc., United CoconutChemicals Inc., AG&P and Pilipinas Shell, forinstance, conducted sampling twice a month. Moreimportantly, they served as role models ofeffective compliance and pollution controlinitiatives.

The academe, specifically the Batangas StateUniversity initiated periodic inter-laboratorycomparisons for parameters being measured,contributed in the evaluation and assessment ofsampling protocols and data generated, and

participated in sampling and analysis for variousparameters.

The extent of involvement of the participantsin the program is illustrated in Figure 7.

The monitoring program constantly providesthe local governments with information on waterquality. Information is also provided whenproblems or issues arise such as the occurrence ofred tides, fish kills and others. This informationis essential not only for the management offisheries and aquaculture in the coastal waters butalso for marine recreational activities and tourismas well.

It was recognized that joint monitoringeliminates bias, encourages objectivity and enablesthe team to exercise quality assurance and control.

Figure 7. Multisectoral Monitoring Program in Batangas.

36


Lessons point to the importance of constant andclose coordination among the members and theadoption of uniform and standard sampling andanalytical methods. Proper documentation andexchange of results among members of the teamshould also be maximized. Members should bekept informed of the status and progress of themonitoring efforts so that interest and enthusiasmwill be sustained.

MANAGING MULTIPLE–USE CONFLICTS

Few multisectoral cooperation initiativescontinue in the long run without having to dealwith conflicts and differences. Disagreements inthe course of implementation are highly likely.These challenges can emerge from differences onhow parties organize themselves or carry outprogram activities, to unanticipatedimplementation questions or issues raised bychanging circumstances. Given the likelihood ofconflicts arising in the case of multisectoralcooperation, it is critical to have mechanisms formanaging conflicts between involved parties.

In the BBR, an example of such mechanism isthe BBREPC which is a multisectoral forum for

airing concerns and resolving multiple useconflicts. Lessons point to the importance ofidentifying the present and likely future users ofthe bay and involving them in the process ofavoiding and resolving conflicts as early aspossible. New and emerging uses should beanticipated and addressed as early as possible withthe involvement of participants. Users should beable to identify the specific tangible cause of anyconflict. When conflict situations are tackled headon and openly they become an opportunity to buildand strengthen constituencies and enhanceopportunities for all users.

Sea-space zoning and risk assessment becametwo notable examples of cases where multiple useconflicts were recognized and dealt with usingthe BBREPC.

Zoning the Sea Space

Batangas Bay is increasingly being used byboth domestic and foreign vessels resulting inincreased vessel traffic over the years. Thiscondition raises three interrelated issues for themanagement of the bay resources: the congestionin sea vessel traffic; the potential of oil spill andship collision; and marine pollution. PPA is

Monitoring team conducting sampling in the bay. PG-ENRO chemists doing water quality analysisinside the laboratory.

37

Executing the Plan

implementing a vessel routing system but this maybe inadequate considering the expected volumeof traffic.

With the objective of rationalizing navigationaltraffic and consequently, reducing risks ofaccidents and spills, PG-ENRO, PPA, MaritimeIndustry Authority, PCG, and the shippingcompanies and industries located in the BatangasBay area initiated steps towards the establishmentof a vessel routing system with overallcoordination and support from the BBDP (MPP-EAS, 1998a). A technical study was conductedleading to a recommendation on the optimalvessel routing system for the bay. Unfortunately,the vessel traffic system proposed has yet to beimplemented since certain recommendationsrequire the acquisition and installation ofequipment and facilities.

Another example is the water–use zonationscheme for Batangas Bay, developed to classify

ecosystem function-based development zonesthrough evaluation of environmental andsocioeconomic features of coastal/marine areas.Three water-use zones were determined for theBBR: 1) restricted–use zone for activities thatdepend on the maintenance of a certain quality ofwater; 2) exclusive–use zone for activities thatrequire unhampered access to their area ofoperation; and 3) multiple–use zone for activitiesthat require movement and hence, can share thesame place at different times (MPP-EAS, 1999).

Water–use zoning was applied in managingmultiple–use conflicts among fishing, diving,tourism, and navigation activities as shown by theclosing of Maricaban Strait for inbound andoutbound shipping vessels. This decision wasformalized by the BBREPC in Resolution No. 2Series of 2001, and has therefore helped inmitigating the problems of incompatibilities of useand crowding. In the BBR, coastal LGUs are oftenoverwhelmed by the scale and dominance of some

Figure 8. Zonation Scheme for the Batangas Bay Region.

Restricted Fishing ZoneDiving AreaMultiple Use ZoneShip Operating AreasMarina or Boat RampFish Port or Fish LandingIndustrial Influence

Fishermen’s Village/Urban Renewal AreasWaterfront Park/Promenade

Proposed Mabini-Tingloy Ferry Routes

Malampaya Gas Pipelines

Existing Major Roads

Proposed Tingloy Circumferential Road

Municipal Wharf

Mabini-Tingloy Ferry RoutesAlternate Sea LanesBatangas Bay VTSS & Port ZoneBatangas Bay Rail TransitVerde Island VTSS

L E G E N D :

Water-Use Zonation Schemefor Batangas Bay

BATANGASCITY

SAN PASCUALBAUAN

MABINI

TINGLOY

B a l a y a n B a y

B a t a n g a s B a y

V e r d e I s l a n d P a s s a g e

V e r d e I s l a n d

Source: MPP-EAS, 1999.

38


users of the bay such as shipping and portoperations and the location of strategic industrieslike power plants and oil refineries. The bay usersare sanctioned by and are responsible only to thenational government and the host city/municipality is put in a quandary on how to dealwith them. Collectively, through the BBREPC, theconcerned LGUs dealt with the situation moreeffectively.

Assessing Risks

The risks posed by oil spills were assessedthrough the use of a three-dimensional circulationmodel which analyzed the water movementprocesses that control the transport of pollutants,providing information needed for environmentalcontingency planning and pollution riskmanagement. An oil spill trajectory model was alsoapplied to simulate hypothetical oil spills from oilrefinery locations in Batangas Bay.

Risks associated with agricultural wastes comemainly from runoff and the leaching of fertilizersand pesticides/herbicides. Although pesticides areconsidered to be a step towards food sufficiency,the environmental cost of increased pesticide usestill raises significant concerns. Even withextremely small amounts of pesticides applied ona given area, less than 0.1percent of manyinsecticides actually reach the target organism,hence the remainder becomes environmentalcontaminants. Common pesticides/herbicidesused by farmers in Batangas Bay were MethylParathion and Azinphos Ethyl. Despite the banon these, a fair amount is apparently still beingused in the area. Inevitably, some of thesepesticides end up in Batangas Bay. Recognizingthis issue, a Memorandum of Agreement wasreached between MPP-EAS and the Food andAgriculture Organization (FAO) in December 1996,to conduct a pesticide risk assessment in BatangasBay. The study was conducted to aid agricultural

waste management at the demonstration site andto transfer the risk assessment capacity to the localprofessionals. The study noted early warning signsappearing from the initial risk assessment and thatthe consumption of some pesticides such ascarbaryl should be reduced (MPP-EAS and FAO,1998). This result was presented to the BBREPCfor close follow-up and monitoring of implicationsby the Provincial Agricultural Office (PAO)/Municipal Agricultural Office, and the fieldworkers of the fisheries office.

GETTING RID OF WASTES

A cross-sector and cross-media approach towaste management requires the formulation of acomprehensive waste management plan that willaddress the waste problem in both the short andlong term. In the BBR, an IWMAP was developedafter a series of public consultations in order toprovide a framework by which waste managementand disposal can be effectively carried out,consistent with national, regional and provincialpolicies, and in accordance with developmental

39

Executing the Plan

goals and environmental standards set in the BBR.IWMAP utilizes the combined resources andcapacities of both the public and the private sectors.It constitutes a comprehensive package of actionsdesigned to address the multi-dimensional natureof waste management problems while, at the sametime, focuses the limited resources and capacitiesof major waste streams that are critical to thesustainable development of the BBR. IWMAPinitially concentrated on four major waste streams— municipal solid waste, industrial hazardouswaste, ship and port waste, and municipal sewage— and agricultural waste as a fifth waste stream(MPP-EAS, 1996). Successful implementation of theplan required acceptance and adoption by thestakeholders and this was facilitated throughBBREPC Resolution No. 2 Series of 1996.

Voluntary participation of industries is animportant complement to regulatory measures andis critical in the management of industrial wastes.Through the BCRMF, industries entered into avoluntary agreement with the government to bethe implementing group for several measuresidentified in the IWMAP specifically in the

management of industrial and ship/port wastes.These measures and activities included:1) inventory of hazardous waste sources, storage,treatment, recycling and disposal facilities;2) implementation of an industrial hazardous wasteminimization program; 3) development of a poolof expertise among industries through training onpollution management appraisals; 4) conduct ofpollution management audit; 5) identification andevaluation of transitional technologies, practicesand facilities for off-site hazardous wasteprocessing and disposal; and 6) preparation of aproposal concerning the hazardous waste storage,treatment and disposal facility for the region and,eventually, joint ventures for these facilities andservices (Contreras, 1999). Experience in theimplementation of the IWMAP with industrypartners highlights the importance of a regularcollaboration with and active participation of aprivate group or NGO in improving the chancesfor a successful and sustainable outcome and increating a broad social and political base of supportto sustain the initiatives even if support bygovernment institutions lessens due to changes ineconomic and political leadership.

Signing of the voluntary agreements by industries (top left), the Provincial Government of Batangas (bottomleft) and DENR and port agencies (right).

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While short–term activities are beingimplemented to generate concrete demonstrableexperiences, transitions for long–term options haveto be prepared at the same time. In the BBR, fourprojects dealing with municipal solid waste,agricultural waste, ship and port waste andindustrial hazardous waste were identified whilewaste reduction options were being carried out.Technical studies on these projects were conductedunder the direction and coordination of the localmultisectoral technical working groups. Technicaloptions, and financial and economic analyses werecompleted and promoted among the sectors. Thegovernment did not have the financial means ortechnical capability to solve problems of wastehandling and disposal. For example, the Leagueof Municipalities of the Philippines — the umbrellaorganization of all municipal government chiefexecutives — recognized that insofar as solidwastes were concerned, individual municipalitiescould not afford the waste management servicesrequired by the Local Government Code.Collectively, however, it was demonstrated thatthe quantities and types of waste available acrossthe province could be of commercial interest. Ajoint undertaking, which would keep the publicsector involved as a facilitator, regulator and partowner, was preferred. As a result, in October 1998,an agreement was reached among localstakeholders in the public and private sectors toproceed to the next stage of the developmentprocess — packaging and promoting opportunities(Ross, et. al, 1999; Ross, 1999).

Investment opportunity briefs were preparedjointly by the local public and private sectors. Theopportunity briefs were then presented at theInvestors’ Round Table on Public-PrivatePartnerships to enable the international businessand investment community to assess opportunitiesfor environment investment in the BBR throughthe development and implementation of PPP. Four

opportunity briefs were presented on near-to-market projects and opportunities in Batangas,these were: Animal Waste Management and By-Product Marketing; Regional Municipal WasteManagement Facility; Hazardous WasteManagement System; and Shore Reception Facilityand Used Oil Recovery/Recycling for the Ports ofBatangas and Manila. As a result, six companiessubmitted expressions of interests for the fourBatangas Projects while local stakeholders initiatedthe process of selecting partners. A consortium ofcompanies from New Zealand — Waste SystemsNew Zealand Ltd. — was eventually selected inMarch 1999 as the private partner for an integratedwaste management facility.

A PPP in waste management should combinethe strengths of both government and the privatesector towards a rational solution to the wasteproblems. In the BBR, an MOU was signed bythe local government and its private sectorpartners, recognizing that for the PPP to succeed,the integrated solid waste management systemneeded to be financially viable, environmentallysustainable, socially acceptable, and affordable.Under the MOU, both partners explicitly madetheir commitments to the project. Eighteen monthsafter the signing of the agreement, the followingwere accomplished: 1) the technical studies andwaste surveys have been completed; 2) siteinvestigations have identified a technically feasiblefinal disposal site; 3) transportation and recyclingconcept studies have been undertaken; and 4) themechanism to ensure income stream has beenidentified. The MOU was extended untilDecember 2001 to allow the completion of thefeasibility study as well as related developmentactivities. In the commercial model for PPP, aproject operating company will be eventually putup to operate and manage the integrated wastemanagement facility, which shall be a joint venturebetween the public sector corporation and the

41

Executing the Plan

private sector consortium (Estigoy and Perez,2001).

The political will and leadership displayed bylocal chief executives and legislative bodies topursue the PPP scheme on waste management ledto the passage of enabling ordinances whichbecame the basis for the formation of the publicsector corporation, the Batangas EnvironmentalServices, Inc. (BESI) and its registration with theSecurities and Exchange Commission. The PPPapproach was significant since it enabled the publicand private sectors to share costs, risks, andbenefits. Public interest – especially thecommunity’s – became an integral part of theprogram (Estigoy and Perez, 2001).

Transparency, trust and confidence are basiccharacteristics of a successful PPP. Flexibility islikewise needed since the success or failure of theproject depends on both partners. When onepartner is experiencing setbacks or constraints in

attaining project objectives due to basicdifferences, the other partner should fill upwhat is lacking (Estigoy and Perez, 2001).

People’s awareness and readiness to supportthe waste management projects initiated underthe sustainable financing component should alsobe an area of concern for a successfulimplementation of an IWMAP. In the BBR, acontingent choice survey was conducted inselected coastal and interior municipalities, togenerate some benchmark information onpeople’s willingness to pay for environmentalservices (Abansi, 1999; Tejam and Ross, 1997).

The above experience in managing wasteshighlights the importance of a comprehensiveaction plan developed through intensiveconsultations and accepted by stakeholders. Itis crucial that while planning and preparationfor long-term options are on-going, short-termactivities that generate visible socioeconomic

Public sector commitment

• Ensure that all activities comply with Philippine laws.• Clarify government’s permit and approval

processes and facilitate timely and cost effectivesubmissions to the process.

• Assist the private sector to access sites forinvestigative field studies.

• Provide available reports and support informationconcerning waste generation and management inBatangas.

• Valuate public properties, facilities and services asequity in the operating company.

• Develop, adopt and implement regulations controlsaffecting waste generation and illegal waste disposaloperations.

Box 6. Commitments of Public and Private Partners.

Private sector commitment

• Finance and conduct the feasibilitystudy.

• Develop a bankable projectdocument for submission toinvestors and lending institutions.

• Prepare plan and schedule forconstructing and commissioningthe facilities.

Source: Ross, et. al, 1999.

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and ecological benefits are being done to improveperception and attitude. Likewise, voluntary andactive participation of industry should be soughtand maximized in the management of industrialand hazardous wastes. The enormous amount ofmitigating measures to manage wastes couldcreate investment opportunities that couldencourage the formation of PPP in wastemanagement using the combined strengths of bothgovernment and the private sector towards arational solution to the waste problem.

MONITORING CHANGES

Monitoring efforts are carried out toguarantee the quality of project outputs. Themonitoring activities should be comprehensive inorder to determine not only whether the goalswere being met but also if they were not, whathas gone wrong with the assumptions ormethodology so that appropriate mid-coursecorrections could be made. In the BBR, progressmade by the BBDP was documented in quarterlyreports prepared by the PMO and submitted tothe Regional Programme Office (RPO). Thequarterly reports presented in detail the progressof the activities conducted, the consultations heldto support the activities and participating sectors,problems encountered and solutions made. Thesereports provided important inputs in makingadjustments in planned activities. Annual reportssummarizing the different accomplishments,shortcomings and problems were prepared andthe actions to be taken for the succeeding yearswere outlined.

The evaluation of the ICM program should bederived from the outcomes of the program. It isimportant for problems and issues garnered fromthe ICM initiatives be made known. A mid-termevaluation workshop was conducted by the BBDP

in 1997 to review the project activities, evaluatetheir results, assess their impacts and makerecommendations on measures for improvementand extension of demonstrable experience (MPP-EAS, 1997). Likewise, the workshop provided anassessment of the performance of all projectactivities, both individually and as a whole. Eachactivity was presented with focus on:1) achievements and progress in terms ofimplications and benefits for application of ICM;2) experiences and lessons learned that could beextended or demonstrated to other parts of theregion/country; 3) recommendations on theimprovement of performance and follow-upactivities upon completion of the project; and4) processes such as consultations conducted.

ICM projects should have both reportingexercises and an outside evaluation preferably atmidterm and near the end of the project.Hopefully, the project can be flexible enough tomodify its interventions as new information isobtained from experience. It would be best toextend monitoring and evaluation of projectsbeyond the completion of a project to determineactual long-term impacts and sustainability ofinstitutions. External monitoring and evaluationwere conducted by two evaluation teams whocame to Batangas in separate occasions. Theevaluation generated lesson notes whichemphasized the success of partnership with theprivate sector. The ICM project introduced inBatangas created a forum or framework whichbrought private sector into the managementstructure, thereby promoting dialogue with otherstakeholders, particularly with different levels ofgovernment.

A terminal report served as a consolidationof inputs, products, problems and lessons of a five-year project of which the BBDP is a significantpart. This report stressed that the BBDP is

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Executing the Plan

successful in implementing a comprehensive ICMprogram. Over the life of the project, it was ableto establish and operationalize interagency andmultisectoral coordinating mechanisms whichincluded all relevant government agencies. Inaddition, it developed a prioritized agenda,undertook capacity building to strengthen localplanning and management capabilities, developedenvironmental quality monitoring programs,established mechanisms to ensure sustainabilityof the programs and promulgated needed locallaws to legitimize institutional arrangements andpermit systems (MPP-EAS, 1998b).

SUMMARY OF LESSONS

The experiences encountered in theimplementation phase of ICM provided a numberof useful lessons:

1. It is crucial to have a structure backed byappropriate legislation and whoseprocesses enable all parties to shareinformation, explore differences and buildtrust to enhance the formation ofproductive cross-sectoral relations andparticipate in shaping outcomes. Likewise,the mechanism should be complementedby a permanent coordinating office/agency within the framework of the localgovernment to coordinate various sectorsand implement the ICM program.

2. More effective enforcement requirescoordinated teamwork that wouldproactively, cooperatively andexpeditiously provide enforcement inpreventive, detective and recoverymeasures. An integrated law enforcementgroup within the coordinating mechanism

can successfully resolve conflicts whenlegislation and regulation are integratedand do not conflict with each other.

3. A mechanism should be developed formanaging conflicts and making availablea venue or forum for airing concerns,discussion and resolution and whereconflicts can be tackled directly and openly.The mechanism becomes an opportunityto build and strengthen constituencies,enhance opportunity for all users, andbuild relationships that are based on trustand nourished by shared experiences,achievements and values.

4. An environmental quality monitoringprogram should be put in place to providepolicymakers with useful information onthe state of the marine environment suchthat appropriate strategy and actions maybe undertaken for the sustained use of themarine resources. The monitoringprogram should utilize multisectoralinvolvement and follow the principle ofshared responsibility to ensure objectivityand encourage quality assurance andcontrol.

5. It is important to demonstrate as early aspossible the socioeconomic and ecologicalbenefits of ICM program implementation.Such benefits normally change theperception and attitude of policymakersand economic managers as well as thepeople’s support to continue the currentenvironmental management efforts. Wastemanagement is a component that cansatisfy short-term expectations of benefitsand at the same time, provide for long-term sustainable management

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interventions. A comprehensive actionplan should be developed throughintensive consultations, accepted bystakeholders and implemented with thevoluntary and active participation ofindustries and other sectors. Investmentopportunities should be created toencourage PPP that combines the strengthsof both the government and the privatesector towards a rational solution to thewaste problem.

6. Periodic monitoring and evaluation isimportant to define and refine strategicfocus. Regular reporting exercises in theform of reports should be complementedwith external evaluation at the midtermand end of the project. The project shouldbe flexible enough to modify, refine andimprove its interventions as newinformation is generated from experience.

Moving On Amidst Challenges

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Few multisectoral cooperation initiativescontinue for long without having to deal withsome uncertainties and unexpected outcomes thatmay somehow constrain the smoothimplementation and expansion of activities. Asshown in this section, these challenges can emergefrom differences on how parties organizethemselves or carry out program activities andfrom unanticipated implementation questions orissues raised by changing circumstances. Thischapter describes these uncertainties, the lessonsderived in dealing with them and the foundationsfor change to neutralize possible setbacks broughtabout by these uncertainties.

CHALLENGES

The Air of Uncertainty

Reforms and Reorganization

In 1999, MPP-EAS officially ended. Asecond program — Partnerships inEnvironmental Management for the Seas ofEast Asia (PEMSEA) — was launched inOctober 1999 as a follow-on phase of theGEF/UNDP/IMO Regional Programme(MPP-EAS). PEMSEA assists localgovernments in eight ICM demonstrationsites (including Batangas) in the region todevelop and implement ICM. Batangas wasstill supported by PEMSEA at a limited scaleto document the lessons learned, refine the

plans/SEMP and develop a new project/program cycle and establish a training center.

The closing of MPP-EAS resulted in a changein project personnel at the BBR. PG-ENRO tookthe full responsibility of managing ICM activities.The integration of the project within PG-ENROeased the difficulties associated with such atransition. This integration model allowed directand faster transmission of managementdecisions and strategies from PMO to PG-ENROpersonnel. Likewise, it gave ample time for thelocal office to prepare appropriate staff positionsthat allow its structure to absorb the PMO staff.

The above experience highlights theimportance of having an office with people whowill continue programs beyond the project’s life,even without project support and funding.Likewise, it is vital that an organizational culturethat will facilitate the shift of projectresponsibilities to the local administrator andstaff and other key focal points be nurtured atan early juncture to allow sufficient time forstaff to learn the job and to obtain follow-upsupport under the auspices of the project.

People’s Apathy

Despite the existence of an institutionalmechanism that provided direction in theimplementation of activities provided for in theSEMP and IWMAP, some activities were notcarried out as envisioned because of people’s

4

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apathy and indifference. A good example isthe case of the identification and developmentof a regional sanitary landfill through the PPPapproach. Several stages in the PPP processhave been successfully completed, such as theformation of the joint venture company andthe conduct of the feasibility study. Thefinalization of the site for the landfill posed aproblem because people misunderstood theobjectives and the nature of the project.

People’s apathy posed difficulties in thesustainable financing component of the wastemanagement action plan for Batangas. Thesedifficulties could either be due to a lack of trustand confidence within and among the publicand private stakeholders at the local levelregarding an environmental programdeveloped and implemented throughinteragency and intersectoral partnerships; orto the inexperience of the public and privatesectors to the institutional, social, political andeconomic considerations of developing,negotiating, constructing and operating amixed-ownership environment facility. PPP isa relatively new concept and as such, it isessential to build confidence and

understanding of the process in both the publicand private sectors.

Lessons point to the fact that the extent ofsuccess is contingent on how people respondto ICM initiatives. Planning, implementationand leadership must be inclusive of theresponse of people. In spite of efforts toinstitutionalize a mechanism for peopleparticipation, response has not metexpectations. The mismatch betweenexpectations and aspirations and theirfulfillment has in some cases led to alienation,apathy and discontent so that the quest forrelative gains has become less driven andinconsistent. This underscores the need toeducate the public adequately to improve theirlevels of awareness, perception and attitudetowards environmental efforts. Parallelinformation-education-communication (IEC)activities, in addition to more seriouscommunity organizing activities, are neededto catalyze the immediate development of aninformed socioeconomic base of the coastalcommunities.

Can Integration Really Work?

The Water-Use Zonation Plan of BatangasBay approved by the BBREPC is the first ofits kind developed in the Philippines. However,its implementation significantly depends on itsintegration with existing land use plans. Sincewater uses are related to land-based activities,water-use zonation is seen as a logicalextension and an integral part of land-useplanning and zoning.

PG-ENRO made efforts to coordinate withthe Provincial Planning and DevelopmentOffice of Batangas regarding the integrationof the water-use zonation plan to the

The local government of Ibaan agreed to have asanitary landfill developed within the municipality.However, when the initial environmental scopingwas held in the municipality, people protested inthe streets and reacted violently to the decision.This posed a significant setback to the PPP teamwho had devoted so much time and effort to thedevelopment of agreements for the setting-up ofthe sanitary landfill.

Box 7. Environmental Scoping in Ibaan,Batangas.

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Provincial Comprehensive Land Use Plan.Some municipalities, such as Mabini andTingloy, have recognized the usefulness ofthe plan and adopted in part therecommended water zones. The case ofMabini and Tingloy are isolated cases,however. There is a need for a widerapplication. Recently, in the updating of theprovincial physical framework plan, thewater-use zoning scheme has beenincorporated into the Provincial PhysicalFramework Plan after years of discussionand deliberation. The Physical FrameworkPlan will guide the municipalities/cities inupdating or developing their land and water-use plans.

The above case emphasizes thatintegration of plans requires effectivecoordination with concerned stakeholders,including educating them on the importanceand benefits of integration. It is alsoimportant to provide guidance to developsuch an integrated land and water use plan.A pilot area to demonstrate the integrationin one of the coastal municipalities willprovide insights to other coastalmunicipalities. For example, the municipalityof Tingloy was a good pilot site consideringthat it had no existing comprehensive land-use plan or zoning ordinance.

It is also critical that the public does notonly accept the rationale behind the newintegrated zoning policy but the localgovernment be consistent and thorough inthe administration and enforcement of thenewly adopted integrated zoning plan.Above all, implementation should be viewedas a cooperative effort in which stakeholdersdo their part to make the zoningimplementation a success.

Scientific Research Versus Management

Scientifically sound information is essentialin strengthening coastal and marine policiesand management interventions. The applicationof the scientific method is necessary in thegeneration of reliable socioeconomic, ecologicaland technological information fordecisionmakers. However, reliance in theelements of science should not take a large partof the financial and time resources of projects.In Batangas, preparation of the CEP and theSEMP was confined to less than two years inorder to give time for their implementation.The assistance of experienced coastalmanagement experts from UP and otherinstitutions made this possible.

Likewise, the applicability of borrowedtechnology has to be subjected to carefulverification. For instance, BBDP installed awave monitoring device in Batangas Bay toregularly monitor wave and tide data and feedinto the hydrodynamic modeling of the bay.The device was developed by experts from theKorean Oceanographic Research andDevelopment Institute. However, mechanicalmalfunctioning occurred and use of the devicewas not sustained resulting in losses frominstallation and set-up costs, but withoutcorresponding benefits in the form of usefulscientific information. The transfer oftechnology should have been adequatelymatched by capacity.

A Fisheries Assessment Study (Alino, et. al,1998) was conducted by BBDP in partnershipwith local professionals in Batangas andscientists from UP-MSI. This was in recognitionof the limited capacity of the ProvincialAgriculture Office (PAO) which performs the

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devolved function of fisheries monitoring,evaluation and management as provided forin the Local Government Code. The provincialfisheries team worked on the technicalcomponent of the fisheries resourcesassessment study while De La Salle Lipa tookcharge of the socioeconomic component. Theresults of the fisheries study were presentedin several stakeholder consultations inBatangas. It was a good research work ingeneral, but it did not contain significantinputs for management.

This experience points out that scienceshould have a clearly defined role as a partnerin the management process. The outputs ofresearch and the various technical tools mustbe used in a constructive manner thatstrategically contributes to thedecisionmaking process. Scientists andmanagers must work closely together duringproject formulation and implementation.Several projects have original designs thatemphasize natural science research butprovide very little guidance on how todevelop the policy and institutional linkagesthat will use this information to affect policy.There is a need for scientists to presentinformation in a format that could be readilyused by planners and decisionmakers.

Lessons also emphasize on theimportance of linking scientific andmanagement information to public awarenessand environmental education programs. ICMprograms should take this into considerationwhen supporting management-orientedresearch by incorporating informationdissemination as part of the research program.Scientists and researchers should have theincentive to translate their research resultsinto information and educational materials.

In short, the success of ICM lies, amongothers, in the integration of science andmanagement and the communication betweendecisionmakers and scientists. Participationand environmental education are key elementsthat can link technical science with the legaland institutional management anddevelopment components. Methods on howto effectively combine science andmanagement must be explored.

Government Priority in EnvironmentalManagement

There is no doubt that the governmentrecognizes the importance of environmentalmanagement. This is evident in the sector’sinclusion among the different LGUs 10-pointdevelopment agenda. However, as reflectedon budgetary allocations, priority is stillplaced on direct human services to people suchas health, education, peace and order, andsocial welfare. Furthermore, budgetaryallocations on the environment areconcentrated only on solid wastemanagement. Other environment-relatedactivities such as coastal cleanup, riverrehabilitation and protection, reforestation andsoil erosion prevention do not enjoy regularbudget allocations even if these are usuallyundertaken by local governments inpartnership with schools and civicorganizations who pool manpower andfinancial resources.

There are times when politicians could notafford to consider long-term environmentalissues. Local government’s lack of priority onsustainable environmental management maybe attributed to the political leaders’ tendencyto favor programs that generate quick and

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visible results. Local government officials inthe Philippines serve for a term of three years.Within this period, an elected public officialmust therefore be able to present highly visibleactivities that will immediately be ‘felt’ by thepeople.

Lessons underscore the need for educationand continued exposure on environmentalissues and concerns by local leaders. Readinessto accept and use ICM as a managementstrategy for sustainable development will thenfollow. Likewise, positive socioeconomic andpolitical benefits as a result of sustainingnatural resource bases can facilitatecommunication with politicians whose agendaare usually driven by the economic interestsof their constituencies.

It is important that government agenciesshould be made responsible for seeing thatenvironmental considerations play a prominentpart in planning, development andimplementation of programs. This is requiredby the Local Government Code. As a checkthat each sector fulfills its environmentalresponsibilities, it is suggested thatgovernment departments should present andquantify in their annual budgets theenvironmental measures they have decided toput into effect. The method for registering,describing and monitoring the government’stotal contribution towards ensuringsustainable development has proven to havea stimulating effect on the publicadministration and has prompted cooperationon environmental matters among the varioussectors. For example, a government effort tobuild up environmental expertise in thecountry’s municipalities is expected to lead tofirmer environmental commitment on the partof local government.

Economic resources invested inenvironmental improvements should be usedin a cost-effective manner and be directedtowards areas that are likely to give thegreatest environmental gain.

Priority should be given to a gradualincrease in the use of economic measures suchas environmental taxes, in addition to theadministrative and legal expedients alreadyemployed in the cause of environmentalprotection.

FOUNDATIONS FOR CHANGE

Despite uncertainties and setbacks, it isimportant to persevere, to rally to close the gap,to maintain a tireless advocacy and vigilance forthe bay region. Legislations, scientific support,plans and IEC activities continue to evolve asstakeholders seek and search for better ways tosustain and expand the ICM programs initiated.

Legislations

As rapid growth and development continuesto occur in Batangas Province, more environmentalissues and new challenges have to be addressednot only for the BBR but also for the wholeprovince especially in the management areas oftwo other major bays in Batangas Province –Balayan Bay and Tayabas Bay. This requiresamending Provincial Ordinance No. 01 Series of1996 to expand the authority of the BBREPC overthe management areas of the three bays, therebyensuring the systematic, sustainable and balancedsocioeconomic development of the whole provinceof Batangas. This will generate a general, unifiedlaw for the province and will allow the institutionalmechanism to draw support from local andnational legislations

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The enactment of an amended ordinance isexpected to have the following outcomes:

1. Consolidation and coordination of efforts,services and resources of LGUs and theprivate sector in implementing the SEMPof Batangas and its complementary bayregion and ICM plans in accordance withthe provisions on cooperativeundertakings of the Local GovernmentCode.

2. Strengthening of the existing BBREPCwhich would be renamed BatangasEnvironmental Protection Council (BEPC)and would be delegated by the ProvincialGovernment to develop and recommendintegrated environmental policies,formulate multi-bay region action plans,and set guidelines for the implementationof these policies and action plans.

3. Establishment of three-bay region ICMboards (the Batangas Bay IntegratedCoastal Management Board, the BalayanBay Region Integrated CoastalManagement Board and the Tayabas BayIntegrated Coastal Management Board)and delegation of relevant LGU functions,including bay-wide policymaking, inter-municipal action plan development and thesetting of guidelines for theimplementation of these policies and actionplans.

4. Enjoining the different municipalities toeach establish ICM Boards as a multi-stakeholder body mandated to developintegrated environmental policies,municipal-wide action plans and setguidelines for the implementation of thesepolicies and action plans.

5. Provision of incentives for localgovernments and the private sector,including NGOs, POs, civil society, and

private businesses to consolidate orcoordinate environmental managementefforts in accordance to the SEMP and toalign independent initiatives to theintegrated plans.

The above legislation is expected to support athree-tiered organizational structure as shown inFigure 9.

Strategic Environmental Management Plan

The SEMP forms the base upon which furtherimprovements can be anchored upon. As such,the SEMP likewise needs updating to addressemerging critical issues not covered by the originalplan. Some gaps exist in the light of recentdevelopments in terms of changing policies at boththe national and the local levels. The updatedSEMP will prescribe how to overcome the gapsand introduce refinements that will ultimately leadto the widespread adoption of the ICM model inthe whole province. In this regard, the PG-ENROhas organized a technical working group (TWG)that discussed in several workshops theimprovements and updates for the SEMP. TheTWG, together with a local planning expert,constitutes the planning task team that updatesthe SEMP and works towards its adoption by theCouncil. The updating also includes a SEMP forthe two bay-areas in the province: Balayan Bayand Tayabas Bay.

Action Plan

The continued implementation of the IWMAPwas given additional boost especially in the areaof solid waste management by the passage andimplementation of RA 9003, the NationalEcological Solid Waste Management Act. Localgovernments are mandated to develop

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community-based waste management systems andestablish material recovery facilities. Thecommunity organization approach at thegrassroots level will ensure the promotion ofpublic participation and the building of self-supporting and sustaining operations of solidwaste management (SWM) by the LGUs. Theaction plan should set specific targets for wastereduction and should promote increased resourcerecycling and recovery through waste segregationat the households. It should emphasize on“learning by doing” to demonstrate a practicalway of engaging LGUs and the people in SWMand at the same time comply with RA 9003. It isimportant that the plan encompasses the followingstages: 1) establishing infrastructure according tothe community’s needs, design of a collectionmechanism and establishment of an institutionalmechanism to facilitate the program; 2) emphasison capability-building with the aim of increasingthe community’s ability to manage solid wastes;

and 3) formulation of SWM models to illustrateand institute concrete management approaches tosolid waste which are sustainable and can be easilyreplicated.

The action plan should provide for the settingup of a catalytic community-based waste recyclingsystem, increase the capabilities of LGUs anddevelop enabling tools for policy development.It is also crucial to incorporate the use of applicablemarket-based instruments for the sustainablefinancing of waste management activities.

Enforcement

Enforcement mechanisms were expanded asmore groups joined the integrated lawenforcement team in order to better meet theobjectives of the program. The formation of Bantay-Dagat (Sea Patrol) as a volunteer people’s

Figure 9. Proposed Three-tiered Organizational Structure for the BatangasEnvironmental Protection Council.

MunicipalDevelopment Council

- - - - - - - - - - - - - - - - -Municipal Board

Municipal ICM BoardsChair: Mayor

Secretariat: MENRO/MPDC


- - - - - - - - - - - - - - - - -Municipal Board




- - - - - - - - - - - - - - - - -Municipal Board



SecretariatTechnical Working

Group


Group


Group


Group

SecretariatPG-ENRO

Batangas EnvironmentalProtection CouncilChair: Governor

ProvincialDevelopment Council

- - - - - - - - - - - - - - - - -Sangguniang Panlalawigan

(Provincial Board)

Batangas BayICM Board

Balayan BayICM Board

Tayabas BayICM Board

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organization in enforcing environmental laws is astrong addition to the team.

Bantay-Dagat is a civilian fisheries patrol forcemade up of volunteers that try to keep a 24-hourwatch on Philippine coastal waters up to 15 kmfrom shore. Funding for the patrol boats comesfrom a variety of sources including the Bureau ofFisheries and Aquatic Resources, American NGOs,and the Japanese Government among others.

Bantay-Dagat was relatively successful in theprovince. Residents of coastal communitiesvolunteered as members of the sea patrol teamsand this helped lessen cases of illegal fishing and,at the same time, heightened the people’sconsciousness on environmental issues. Thisexperience highlights the importance of mobilizingthe community in enforcement and consequentlymaking them co-owners and partners of coastalmanagement projects. As the mechanism forenforcement expands and stabilizes, theopportunity can be extended to combineenforcement/regulations with financing schemesthrough market-based instruments. Those whowish to use the bay for aquaculture, reclamationand transportation activities must obtain a permitfrom PG-ENRO. A user fee system can beestablished.

Public Awareness and Stakeholder Involvement

Implementing the SEMP requires acomprehensive and holistic approach tocommunication at the community level. Theremust be a process through which information isimparted to the public and to all the stakeholdersto increase their awareness, understanding andappreciation of ICM activities and their relevance.Considering that the environmental issues inBatangas are generally complex, an integrated IECprogram should be provided to develop broadsupport for ICM implementation. In the BBR, allpublic awareness activities for ICM wererationalized and packaged in a comprehensivecommunication plan. The objective is to createawareness about the SEMP and promote adoptionof action programs using various approaches andmodes of communication either singly or incombination to influence the various stakeholdersand provide a better understanding of theobjectives. IEC can be used to help people becomeaware of the consequences of their actions, takeownership of planned interventions and assumeresponsibility for living within the bounds ofnatural resource use and development constraints.

The implementation of the plan needs to bestrengthened and must cover a wider audiencebase. Efforts should be developed towardscreating awareness and educating the grassrootcommunities, and in this regard, active mediasupport and participation is important. In orderto make media a strong partner of ICM, the PG-ENRO conducts media tours along Batangas Bayand requires media representation in the TWG.The PG-ENRO noted that the participation of themedia is a sign that environmental issues andactivities concern media practitioners who can helpin program promotion, information dissemination,and public awareness. A more involved media isevident in the regular publication of Balikas, a localtabloid devoted to environmental issues. In

Bantay-Dagat during regular patrol activities.

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addition to AM radio stations, FM stations havealso devoted time on environmental issues. Anexample is the morning program “Taghoy ngKalikasan” (Cry of Nature) aired at GV99.1 FM.

Aside from creating awareness, it is crucial thatIEC materials and strategies be used primarily tohelp ensure the mobilization of resources availablefrom various sectors — LGUs, nationalgovernment agencies, NGOs which have plannedprograms and projects supportive of the SEMP.The IEC should introduce concepts and principlesrelated to identified environmental issuesexperienced by the community to increase theirlevel of understanding and create an environmentconducive to behavioral changes that enables themto take appropriate actions in line with theobjectives of the SEMP. Only when environment-friendly behaviors and practices are widespreadthroughout the community can resource use andmanagement be sustainable. IEC should befocused on building a constituency for ICM, acritical mass of the population who areenvironmentally literate, imbued withenvironmental ethics, shared responsibilities andshared actions. The IEC plan should include theuse of media, the development of education toolsand the utilization of community organizationnetworks. It should involve all stakeholders fromdifferent sectors and focus efforts on sectors andkey players that can help the community to activelyparticipate thus leading to the greatest possibleimpact in the shortest possible time.

Government Action Programs

In 1998, the Philippine Fisheries Code wasenacted. The Code establishes coastal resourcemanagement as a national strategy. It likewisereinforces the constitutional mandate forpreferential use of municipal waters by marginaland municipal fishers and the mandate of local

government units in the management of coastalresources and municipal waters.

Likewise, the Local Government Coderecognizes that local government units (LGUs)have considerable control in matters related toenvironmental protection. The Code provides thatnational government agencies must consult theLGUs prior to implementation of any project orprogram. The need to consult is especially enjoinedwhen the project or program has significantenvironmental impacts.

Much more than consultation, LGUs have tobe empowered to initiate and sustainenvironmental programs at the grassroots level.Thus, the setting up of respective MunicipalEnvironment and Natural Resources Offices(MENROs) was encouraged in the differentmunicipalities in the Province of Batangas. Initially,the LGUs designated certain personnel to act asenvironment and natural resources officers. Lateron, however, the more capable municipalities suchas Batangas City, Lipa City, Bauan, Mabini,Lemery, Balayan and Nasugbu put up separateoffices to exclusively handle environmentalconcerns.

While enjoying the richness of marine resources, diversalso partake in marine conservation activities such asthe case in Mabini.

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ICM has been integrated in the provincialgovernment’s tourism program. The tourismindustry in Batangas is dominated by water-based activities and is therefore largelydependent on the quality of the marineenvironment. Dive resorts will flourish if thecoral reef remains intact and attractive.Meanwhile, beach resorts are viable if the beachesare clean and free from waste and pollution. Thus,the Provincial Tourism Office was later includedin the membership of the BBREPC.

The Provincial Tourism Office noted thatefforts to conserve natural resources along theBatangas Bay have helped promote tourism inthe province. Foreign and domestic tourists comeinto the province both to enjoy the delight ofnature and to provide their share in organizedenvironmental activities such as the regularcoastal cleanups. Several media networks havealso featured the richness of Batangas’ naturalresources and culture in different publicationsand programs. On the other hand, movie andtelevision productions have been constantlyusing several locations in the province, includingthe BBR, as shooting locations.

In order to sustain these activities, theProvincial Tourism Office has been working withthe BBREPC in several environmentalinformation and education campaigns. It haslikewise organized and helped promote anumber of activities and festivals that blendenvironmental consciousness with theindigenous culture.

It is important that government actionprograms are designed and carried out allowingthe integration of ICM initiatives. Policies andprocedures should be supportive of the SEMPand should provide a complementingenvironment for the ICM initiatives to flourish.

PROGRAM REPLICATION

The ICM model demonstrated in the BBR wasreplicated in Balayan and Adjacent Bays Region(BABR) in 2000. Balayan Bay is located in thewestern side of the Province, north of BatangasBay. It is separated from Batangas Bay by a landmass known as Calumpang Peninsula.

Balayan Bay was selected as programreplication area since it is the second largest bayin the province and has a rich biodiversity.Furthermore, the presence of multi-stakeholderinvolvement is evident, and includes NGOs andPOs.

The Balayan Bay Project is divided into threecomponents namely: preparation of the ICM plan;support for the enforcement crusade; andinstitutional development. The first componentcovers the conduct of consultation workshops andrelated capability-building programs from whichthe final plan will be based. The second componentdeals with the provision of support mechanismsto enforcement teams such as the Bantay-Dagatnetwork which is present in six municipalities inthe area. Initial successes along this area werenoted, citing that cases of illegal fishing in BalayanBay decreased by some 80 percent due to the activeinvolvement in law enforcement of the Bantay-Dagat network. The third component focuses ontraining and other capacity-building programs,including the replication of the ICM Council inBatangas Bay.

Lessons in program replication show that asuccessful program does not automatically containthe seeds of its own replication. Instead, programsthat are replicated have extensive evaluations.These evaluations provide clear information onthe internal processes of the program as well asclear evidences that the demonstration projectachieved the desired objectives in its original site.

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A replicable program should have anidentifiable, coherent and interrelated set ofprogram elements. The ICM implementation in theBBR was guided by the SEMP which served as theframework for replication in the BABR. Althoughthe priority issues are not identical between thetwo sites and the replication differs in specific intentand target population, BABR would do well bylooking at the experiences of BBR and reflect onhow their assets and opportunities are alike ordifferent. Common threads or experiences maybecome apparent. The SEMP is used to maximizesituational strengths, minimize weaknesses andtake advantage of available opportunities. It is alsocrucial that there be a central entity pushing andguiding expansion.

Replication challenge requires the developmentof a wide range of strategic partnershipsthroughout the process. The World Wide Fund forNature - Philippines or WWF (Kabang Kalikasan ngPilipinas Foundation, Inc.) initially forged apartnership with the Provincial Government tosupport the ICM replication in the BABR. WWFbelieves that the mechanism developed for ICM inthe BBR has been effective and therefore must besupported and expanded.

UNDERSTANDING THE VALUE OF ENVIRONMENTAL

MANAGEMENT

As ICM continues to be carried out in Batangas,various sectors slowly understood the value of theenvironment and joined in the effort. POs andvolunteers, on their own undertook projects whileother groups manifested their desire to work withlocal governments. A good example of these groupsinclude the Boy Scouts (representing the youth),the Rotary Club International (a civic organization),and the scuba divers who have sponsored coastalcleanup activities in both Batangas and Balayan Bayareas.

Even the small and medium enterprises (SMEs)and micro industries have expressed interest tobe partners of ICM by following the model set byBCRMF. SMEs represent the backbone of theBatangas economy because of their number andcontribution to the gross domestic product of theprovince.

Two major documents produced by stakeholders ofBABR which will guide them in implementing ICM.

Figure 10. Map of Balayan Bay.

BALAYAN BAYCalatagan

CalacaLemeryBalayan

Nasugbu

San Luis

Taal

Lian

Tingloy

Bauan

Mabini

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POs assist enforcement by pinpointingimpacted sites and reporting pollutive activities.For example, the 3-9 September 2004 issue ofBalikas reported an incident where the Samahanng Maliliit na Mangingisda, a fishers’ organizationin Barangay Gulod, Calatagan Town, reportedillegal dumping of untreated wastes in their areato the LGU. This led to an investigation whichidentified the culprit to be a garbage hauling andtransfer company operating in Manila, whichbrought the wastes from a waste treatment plantin Manila.

SUMMARY OF LESSONS

This chapter’s discussions highlight a numberof useful lessons in the implementation of an ICMprogram:

1. It is important to have an office with peoplewho will continue the programs beyondthe project life and even without donorproject support and funding. Likewise, itis vital that an organizational culture benurtured that will facilitate the shift ofproject responsibilities to the localadministrator and staff and other key focal

points at an early juncture so that there issufficient time for them to learn the joband to obtain follow-up support under theauspices of the project;

2. The extent of success of an ICM programis contingent on how people respond toICM initiatives. Planning, implementationand leadership must be inclusive of theresponse of the people. This underscoresthe need to educate the public adequatelyto improve their levels of awareness,perception and attitude towardsenvironmental efforts. Parallel IECactivities, in addition to more seriouscommunity organizing activities, areneeded to catalyze the immediatedevelopment of an informedsocioeconomic base of coastal communities;

3. The integration of the water-use zonationscheme into the comprehensive use plans,requires effective coordination with thestakeholders and institutions. Educatingthem on the benefits of integration can helphasten the process. Providing guidance isalso necessary. Pilot testing the process in

Mobilizing stakeholders to play an active role in coastal and marine management makes them co-owners and partners inmanagement projects.

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a municipality would provide othermunicipalities insights on how to integrateor harmonize land and sea-use plans;

4. There is a need for education andcontinued exposure on environmentalissues and concerns for local leaders.Readiness to accept and use ICM as amanagement strategy for sustainabledevelopment will then follow. Likewise,positive socioeconomic and politicalbenefits as a result of sustaining naturalresource bases can facilitate communicationwith politicians whose agenda are usuallydriven by the economic interests of theirconstituencies. It is also important thatagencies of public administration shouldbe made responsible for seeing thatenvironmental considerations play aprominent part in planning, developmentand implementation of programs;

5. It is important to mobilize the communityin enforcement and consequently makethem co-owners and partners of coastalmanagement projects. As the mechanismfor enforcement expands and stabilizes, theopportunity can be extended to combineenforcement/regulations with financingschemes through market-basedinstruments;

6. IEC can be used to help people becomeaware of the consequences of their actions,take ownership of planned interventionsand assume responsibility for living within

the bounds of natural resource use anddevelopment constraints. Aside fromcreating awareness, it is crucial that IECmaterials and strategies be used primarilyto help ensure the mobilization ofresources available from various sectors— LGUs, national government agencies,and NGOs that have planned programs andprojects supportive of the SEMP. Onlywhen environment-friendly behaviors andpractices are widespread throughout thecommunity can resource use andmanagement be sustainable. IEC shouldbe focused on building a constituency forICM, a critical mass of the population whoare environment-literate, imbued withenvironmental ethics, sharedresponsibilities and shared actions; and

7. A successful program does notautomatically contain the seeds of its ownreplication. Instead, programs that arereplicated have extensive evaluations thatprovide clear information on the internalprocesses of the program as well as clearevidences that the demonstration projectachieved the desired objectives in itsoriginal site. Likewise, a replicableprogram should have an identifiable andcoherent set of interrelated programelements. Common threads or experiencesmay become apparent and the SEMP isused to maximize situational strengths,minimize weaknesses and take advantageof available opportunities. It is also crucialthat there is a central entity pushing andguiding expansion.

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This section describes the performance of theICM program in Batangas in terms of majorperformance indicators that capture the impact ofefforts and resources and the refinements neededto enhance ICM in the area. Emphasis is given onthe enabling role of the ICM framework insupporting the possibilities and requirements fornew programs, replication and scaling up. The lastpart highlights the sharing of lessons and capacitybuilding for long-term sustainability.

MEASURING PROGRAM PERFORMANCE

A set of indicators was developed in order toevaluate whether the results of the BBDP projectmet its objectives. The development of applicableindicators underwent a process of consultationwith major stakeholder groups in Batangascomprising of implementers, beneficiaries andindustries. Through small group discussions, theindicators were analyzed in terms of theirapplicability in the Batangas’ setting and theavailability of concrete documents and informationto support and confirm the indicators. Validationwas carried out in a large group gathering ofstakeholders and project participants.

Three groups of major indicators were usedto assess performance: process indicators, whichmeasure the effectiveness and the sustainabilityof a selected set of actions; stress indicators, whichmeasure the degree to which program activitieshave contributed to changes in the sectoral

activities or reducing the human behaviors thatare known to contribute to the degradation ofthe coastal ecosystem and resources; and status/impact indicators, which measure changes in thestate of environment and socioeconomiccharacteristics. Changes in the environment,socioeconomic characteristics and governancewhich are attributable to programmeimplementation can represent the impact ofprogramme activities.

Process Indicators

Performance was analyzed using processindicators consisting of: 1) program formulationand implementation; and 2) program sustainabilityand replicability.

In terms of program formulation andimplementation, BBDP has successfullyestablished a PMO and convened a core groupcomposed of representatives from LGUs, nationalgovernment agencies and the private sector whosat together to set the direction for the initiationand implementation of the project and to drawout the SEMP. Consensus building amongstakeholders on ICM implementation wasadequately done through intensive consultationsto solicit views and support from different sectorson ICM implementation. Capacity-buildingactivities were conducted for a core group of localofficials and stakeholders to make themknowledgeable on ICM program development andmanagement.

5

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With regards to initiation of ICM activities,BBDP was able to organize data and use scientificdata and information related to specificmanagement issues. A good example is the CEPwhich was prepared by a multidisciplinary teamof experts in order to have a clear knowledge ofthe socioeconomic, political, and cultural dynamicsof the region. The definition of the managementboundary was likewise completed. BBDPdelineated both landward and seawardmanagement boundaries in recognition of itsimportance in determining the geographical scopecovered by the action plans. Significant progresshas been made in creating public awareness, giventhe development of a comprehensivecommunication plan that maximizes the use ofmultimedia tools. “Cleanest Village” contests andregular coastal cleanups are attempts to createawareness among communities. Thedevelopment of an area-specific plan wascompleted by the BBDP with the formulation ofthe SEMP through intensive consultation,validation with key stakeholders, and approvalby the BBREPC, before it was disseminated tothe public.

In terms of ICM program development,protocols for project monitoring, evaluation andreporting were developed by the project. Internalmonitoring is facilitated by quarterly and annualreports. In addition to regular reporting exercises,external monitoring and evaluation wereconducted at the middle and end of the project.

In terms of sustainability, there wassignificant progress in initial efforts toinstitutionalize ICM implementation. The PG-ENRO expanded from a skeletal staff to a divisioncomposed of several units addressing issue-specific environmental concerns. Its annualbudget likewise increased from PHP 3,651,896 in1996 to PHP 11,700,522 in 2003. Aside from

financial support from the Provincial Governmentand the GEF, additional sources of financing forICM program implementation were identified. AProvincial Solid Waste Management Board wasestablished with an annual fund appropriation ofPHP 500,000. The development of a jointenvironmental monitoring program addressingpriority environmental risks showed significantprogress while the establishment of an informationmanagement system has been initiated.

The establishment of the BBREPC, which hasbeen functional as a venue of multistakeholderpartnerships in resolving issues and implementingappropriate actions is an indication ofsustainability. The BBREPC receives an annualbudget of PHP 500,000.

Legislation for strengthening existingregulations for ICM has been initiated throughthe passage of Provincial Ordinance No. 7 Seriesof 2002 creating a Provincial Solid WasteManagement Board to provide the legalenvironment for the implementation of RA 9003(Solid Waste Management Act) in the province.Likewise, a law enforcement mechanism is beingcontinuously strengthened in a sectoral/integratedmanner. The PG-ENRO coordinates with the PCGand the PNP Maritime Police in coastalenvironment monitoring and law enforcementand for legal and technical support. Residentsand people’s organizations such as the Bantay-Dagat are also involved in enforcement.

Efforts were exerted in generating asustainable financing mechanism to support ICMactivities. The legislative bodies of the differentLGUs in the region passed ordinances that providefor environmental fees such as the diver’s fee andgarbage fees. Significantly, the different LGUs andother government offices initiated measures tointegrate ICM into their respective development

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programs. MENROs were established in somemunicipalities while other municipalities whichcould not immediately establish their ownMENRO strengthened their respective MunicipalPlanning and Development Offices. Mechanismsfor knowledge generation, sharing and extensionwere established through continuous capacity-building programs. From May 1996 to December2002, for instance, the PG-ENRO conducted a totalof 22 training events that involved more than 300multisectoral participants, some of which includedvisitors from other East Asian countries.

With regards to local governance, the visionand perception of local leaders and stakeholderson sustainable development has beenstrengthened as shown in the increased supportin the financial, logistical and legal aspects of ICMimplementation. Local elections in the Philippinesare held every three years, however, changes inpolitical administration in the province did notadversely affect ICM implementation. The publicparticipation mechanism was likewisestrengthened through the BBREPC, whichfacilitates public consultations to enablestakeholders to be more involved with theprogram. The PG-ENRO maintains a website anda library for a continuous flow of informationamong the different sectors. With the closecoordination among the different law enforcementunits and the private sector, increased vigilanceon coastal protection among different sectors hasbeen maintained. The PCG and the PNP MaritimePolice apprehend and bring to court violators ofenvironmental laws while the PG-ENRO providesthe technical support to prove violations. Forimproved efficiency, the administrative processesinvolved in the resolution of environmental caseshave been simplified and the number of days fordecisionmaking reduced to 15 days.

The program has been replicated in BalayanBay. Replication in Tayabas Bay is underway. In

addition, ICM parallel sites such as Bataan andCavite learned from the experience of Batangasin adopting and implementing the ICMframework. Some local governments in thecountry like that of Southern Samar is beingassisted by Batangas in developing its ICMprogram.

Stress Indicators

Results for environmental indicators showedthat two parameters, dissolved oxygen andnitrates, which were used to represent keypollutants in the bay did not significantly changefrom 1997–2004.

A study on “Waste Identification andCharacterization on the Coastal Barangays ofBatangas City” conducted by the LyceumInternational Maritime Academy, showed thatexcept during summer when tourists abound,solid wastes in beaches have relatively lessened.A random survey of respondents also confirmedthat solid wastes in beaches are decreasing.People perceived the presence of solid waste inthe beach to be significantly high before the ICMprogram development, moderately high threeyears after and relatively lesser five to ten yearsafter the ICM program development. This maybe attributed to a number of factors such as anincrease in the level of environmentalconsciousness among the people, strictenforcement of environmental laws and localordinances, coastal tourism programs, and theconduct of different environmental activities suchas the periodic coastal cleanup and wastemanagement measures as described in Box 9.

With the implementation of the ICM programin the province by the concerned stakeholdersthe use of illegal fishing methods has beencontained; intrusion of commercial fishing boats(outsiders) minimized if not controlled; and the

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use of commercial fishing boats which are morethan 3 G.T. was also minimized. The nearshorewater — which is the most productive ecosystembut is the most degraded in terms of fish habitatand the most overfished in terms of fish stock —is being rehabilitated and protected through theestablishment of an artificial reef project inBatangas Bay (Batangas City), Balayan Bay(Balayan and Calaca) and marine protected areaslike the fish sanctuary in Batangas City, Mabini,Tingloy and a Marine Reserve in Calatagan.

Status/Impact Indicators

Analysis of performance using socioeconomicindicators showed that populations which increaseat an average rate of 2.3 percent exert significantpressure. The average annual household incomein the region increased by an average of 29 percentafter the introduction of the ICM program. Theincrease in income may be attributed to morebenefits from environmental goods and theintroduction of more employment opportunities

as a result of the continuous development of theBBR and the changes in the value of thePhilippine Peso. As to what extent ICMcontributed in this change needs to be furtherstudied.

The efforts of the program have resulted inthe simultaneous generation of a number ofpotential employment opportunities in additionto successfully identifying alternative livelihoodschemes. Activities based on waste managementrevealed significant opportunities forentrepreneurship on the part of local residents.A waste redemption center was established inBatangas City and home associations practicesorting, recycling and reuse. Local residents areable to supplement their income from thedecorative and household products they generateout of wastes. Likewise, the junkshop operatorspooled themselves and formed an environmentalcooperative which is called the Batangas BayRegion Environmental Cooperative. This is thefirst of its kind in Batangas and is the operators’

Box 8. Batangas City Waste Redemption Center.

As part of Batangas City’s Clean and Green Project, a zero-waste management campaign waslaunched in 1995. An offshoot of this campaign was the selection of some villages to serve as pilotsites for the practice of waste segragation, reuse and recycling. Satellite waste redemption centersare located in strategic sites where households can sell their sorted wastes. A mother redemptioncenter was established in the compound of the City Veterinarian’s Office to serve as the collectionsite for all wastes from the satellite centers and from other sources.

The City Government initially set aside a seed fund of PHP 5,000 to operate the waste redemptioncenters. Wastes purchased and collected include bottles, cans, paper/cardboard, metals, Styrofoamand plastics. These are either delivered to or picked up by big junkshop operators and wastebuyers from Manila. The mother redemption center is self-liquidating and its budget has grown tomillions of pesos.

The operations of the redemption centers is headed by the city veterinarians and assisted bythree regular staff and laborers. The center also engages in composting towards the production oforganic fertilizers. Fertilizer trials have been conducted in coordination with the City AgricultureOffice to establish the technical and economic feasibility of using these organic fertilizers.

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way of strengthening themselves towards a moreprofitable business with solid wastes.

It was recognized that there was a change inthe level of awareness as a result of BBDP’sintensive public information-education programsas well as the gradual shift of commitment of keystakeholders. The participatory nature of ICM hashelped change the public’s level of awareness sincethey became major players in the program insteadof simply serving as recipients. There was amarked improvement in capacity as more localpersonnel received training and education on thescientific/technical components of the program.

The change in perception of municipal leadersin the BBR have rippling effects on the neighboringmunicipalities particularly those around BalayanBay. Towards the end of the ICM project, thespectrum of participants expanded from the coregroup of selected LGUs and industries to otherNGOs, POs, civic organizations, the academe andthe youth. Enforcement of coastal environmentpolicies and regulations likewise improved afterthe introduction of the ICM program. This maybe attributed to joint efforts to solve multiple-useconflicts through teamwork and throughimproved legislation, coordination and theadoption of a zonation scheme, albeit on a selectivescale. The establishment of the PG-ENRO and theBBREPC helped develop interagency and cross-sectoral partnerships and coordinatingmechanisms.

Perception changes among politicians and theprivate sector are reflected in the establishmentof the PG-ENRO and the BBREPC as well ascitizens environment advocacy groups like Bantay-Dagat and the Batangas Bay Watch. In theindustry sector, the model shown by the BCRMFhas encouraged other industries to supportprojects such as mangrove rehabilitation andseeding of giant clams. The Batangas Chamber of

Commerce and Industry has also expressedintention to follow the lead set by the BCRMF toinvolve the small and micro enterprises in ICMactivities. Perception and attitude changes are alsoevident in the academic community. Whereasbefore, research and extension activities of schoolsfocused more on the arts, technology andbusiness, participation in the ICM has widenedthe schools’ research and extension thrusts toinclude environmental concerns

In addition, economic and social activitiesintensified. There was a 29 percent averageincrease in the number of establishments from 1998to 2002. Navigational traffic also shows an uphilltrend as shown in shipcalls (12 percent), cargotraffic (20 percent), and passenger traffic (47percent). There are 27 companies and 68 vesselsproviding passenger and cargo services in the BBR.Furthermore, tourism activities, especially water-based activities, intensified given increases in localand foreign tourists from 46,414 in 1995 to 124,036in 2002.

There was an increased consciousness oncorporate responsibility among the differentindustries in the region not only in the area ofhuman resource development but in communityaffairs as well, including environmental concerns.The different industries along the bay haveinitiated efforts to increase investment inenvironmental facilities and services. For example,Pilipinas Shell Petroleum Corporation, First GasPower Corporation, JG Summit PetrochemCorporation, United Coconut Chemicals, PetronCorporation, Caltex (Phil) Refineries, and FirstPhilippine Industrial Corporation all worked forISO 14000 certification.

Observable changes, in terms of environmentalindicators, proved minimal. The integratedenvironmental monitoring will play a major rolein tracking the changes in the environment. For

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biological resources, an assessment study shouldbe conducted to assess the changes.

GARNERING RECOGNITION

The impressive institutionalization of ICM inthe BBR has been recognized by other institutionsand has encouraged the use of the framework tocarry out their own programs. A good example isthe inclusion of Batangas among the pilot sites ofthe Urban Waste Expertise Programme (UWEP),a six-year research and pilot project on urbanwaste, funded by the Government of Netherlandsand is being implemented in Asia, Africa and LatinAmerica. The project aims to generate increasedemployment and income in small and microenterprises and to improve the living environmentof low-income communities. UWEP’s pilot projectfocused on several activities under the short-termoptions provided in the IWMAP (Palmares, 1999).

Likewise, the replication of ICM in Balayanand Tayabas bays is solid proof that the ProvincialGovernment recognizes the workability of theICM framework in attaining its own mandate andexpresses its confidence in PG-ENRO’s ability topush, guide and carry out the project given thelessons learned from the BBDP.

The SEMP provides a base for the possibilityof a much more dispersed and deeper diffusionof the ICM model. The Pansipit RiverRehabilitation Program was led by PG-ENRO incoordination with concerned LGUs, NGOs,theIntegrated Fisheries and Aquatic ResourcesManagement Council, and relevant provincialdepartments, taking the SEMP as the basis. Theprogram completed the clearing of PansipitRiver, provided livelihood assistance, conductedan IEC campaign and monitored water quality.The project was recognized as one of the ten mostoutstanding LGU programs in the Philippines bythe Galing Pook Foundation in December 2003.Batangas also won second runner-up honors inthe regional category of the Gawad Pangulo Parasa Kapaligiran (President’s Award for theEnvironment) in the same year in view of theICM initiatives taken in the province.

It is important that the performance of theICM project be widely held up as an example ofsignificant and positive effects. Providingconvincing evidences is more vital thanidentifying modalities for the way policies andprocedures could be implemented. Lessonslearned should be reused so that other locationscan move forward more quickly and emergingopportunities and prospects can be identifiedand integrated in the framework.

Box 9. Activities of UWEP in the BBR.

• Inventory and mobilization of local initiatives by communities and SMEs• Development of an integrated sustainable waste management system• Assessment of training needs• Education and awareness campaign• Business opportunities• Pilot project implementation

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PROGRAM REFINEMENTS

Over the ten-year period of ICMimplementation in Batangas, major achievementsin institutional arrangements, management toolsand techniques, multisectoral environmentalmonitoring, PPP, scientific information servicesand capacity building have been reported.However, the refinement of project strategies isstill deemed necessary and appropriate by theinstitutional mechanisms that were put in place inorder to sustain and expand the achievementsgained. New issues arise and the relatively shortertimeframe did not allow the project to address allthe critical issues facing the BBR. These createdsome gaps particularly in the changing policies atboth the national and the local levels. Theseapparent gaps need to be overcome andrefinements that would ultimately lead to thewidespread adoption of the ICM model shouldbe introduced.

Refinements generally emphasize oninstitutional strengthening necessary forreplication and scaling-up and these include thefollowing:

1. The BBREPC must be strengthened byexpanding its membership to other sectors,such as the academe and other NGOs/POss and local communities, to promotemultistakeholder participation and tocombine the expertise and inputs fromthese groups. Likewise, the mandate,power and scope of activities of the Councilneed to be expanded to allow it to respondfully to the environmental issues not onlyin the BBR but in the whole province aswell.

2. The SEMP must be updated regularly toreflect emerging environmental issues,concerns and new challenges.

3. Local environmental management unitsor MENROs must be created in allmunicipalities in cognizance of thedifferent devolved environmentalfunctions of the LGUs.

4. Sustainable financing mechanism and theapplication of the PPP approach must bestrongly pursued, culminating in theestablishment of a waste facility. The useof market-based instruments to sustainthe funding of environmental projectsmust be explored in combination withtraditional approaches, including thecreation of a policy climate conducive toenvironmental investment opportunities.

5. Local stakeholder participation in EIAshould be enhanced subject to creationof MENROs. With functional localenvironment and natural resource offices,the LGUs could have greater engagementin the existing EIA process to make surethat both private and public developmentprojects proposed are consistent with theSEMP and other pertinent ordinancesrelated to the water use zonation scheme.With the MOA executed by DENR andthe PG-ENRO as a starting point, LGUswill have full involvement in the scoping,consultation and review process for EIAapplications inside the boundaries of theBBR.

6. Capability building and the developmentof a core of local experts from the varioussectors in the BBR should be a continuingactivity and is very critical to ensuresustainability of activities. Improvedcapability within each LGU shouldcomplement the creation of the localenvironment and natural resources officeto render them truly effective.

7. The Integrated Information ManagementSystems (IIMS) must be sustained to

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support planning, management anddecisionmaking. The IIMS storesinformation on biological aspects,socioeconomic characteristics,physiography, institutions andenvironmental quality.

It is important to recognize that the ICMframework continues to evolve as better ways aresought to maximize the potential benefits fromthe model in various settings and contexts.

NEW PROGRAMS

A new project called the Batangas CoastalManagement and Biodiversity ConservationProject was proposed in recognition of continuedinterests in identifying a follow-up on the coastaland marine biodiversity conservation project. Theproposed project will have three componentsunder consideration: ICM; coastal, marine andfreshwater biodiversity conservation; and privatesector engagement in solid waste managementthat would include renewable energy production.The project would be funded by GEF andimplemented by the Provincial Government ofBatangas.

It is worth noting that the development of newprojects becomes relatively easier and faster inBatangas because the SEMP has already provideda blueprint for possible replication, scaling-up andthe creation of new projects. Likewise, the BBDPdid not operate in an institutional vacuum. Theinstitutional mechanism established facilitated thecreation of a road map to integrate transfer ofknowledge and best practices into theimprovement methodologies of new programs.The versatility of the SEMP allows the applicationof the ICM framework in a variety of settings,with the core elements spanning various settings

and contexts but ensuring that application willtake root and grow.

RUBIK’S CUBE AND SUSTAINABLE DEVELOPMENT

The main purpose of ICM is to allowmultisectoral development to progress with thefewest unintended setbacks and the least possibleimposition of long-term social costs. In this sense,ICM can be seen as a system with three mutuallysupporting dimensions, graphically representedas a cube.

The dimensions of the cube are managementprocess, identified management issues, andmanagement actions. Management processincludes planning, implementation, andmonitoring and evaluation. Management issuesinclude pollution, overfishing and multiple-useconflicts. Management actions includeinstitutional and organizational arrangements,incentives/regulations to change behavior, anddirect public involvement/investment (Chua,1996).

The cube is actually made up of a number ofblocks fitted together. The base of the cube isformed by the planning blocks, which have bothmanagement issue and management actiondimensions. The next layer of the managementsystem cube is formed by the implementationblocks, and the final layer by the monitoring andevaluation blocks, both of which also havemanagement issue and action dimensions. Allthree dimensions of the management system areessential. If any of the dimensions are ignored,the system will eventually collapse or be renderedineffective.

The Rubik’s Cube framework, as applied inthe BBDP, indicates a high success rate in

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implementation. Introduction of the ICMprogram in the Batangas Bay Region hasresulted in coordinated efforts in protecting theenvironment, sustainable use of resources,minimization of resource-use conflicts, and animproved quality of life.

SHARING LESSONS AND BUILDING CAPACITY

BBDP offers valuable and practical lessonson ICM program implementation. The projectis young but there are emerging lessons fromits systematic and effective preparation,implementation and evaluation of activities.Many practical insights direct attention toimportant issues involved in multisectoralcooperation and partnerships. Richness ofdetails will be available from more long-termprocesses.

ICM Concept

The concept of ICM is new and there areno proven practices that can be applied orreplicated. ICM was introduced in Batangasas a demonstration in the hope that the Batangasexperience can be shared with rapidly growingregions. The approach was initiated through theefforts of international organizations such asthe GEF, UNDP and IMO, with the local projectofficials of Batangas not yet conceptuallyprepared and technically capable in developingand executing ICM, thus, there is a learningcurve. Recognizing this, MPP-EAS providedsupport staff to the Provincial Government. Anintegration model was adopted where thesupport staff worked directly with the PG-ENRO from the start of project such that theexpertise of the former is gradually andeffectively transferred to the local projectofficials, ensuring sustainability of activitieseven after the project’s life.

The learning-based approach also requiresthat the principles, processes and strategies ofICM are fully understood not only by those whoinitiate and implement them, but also by thestakeholders whose participation is the key tocoastal management. In Batangas, both thepublic and private sectors were involved rightfrom the beginning of the BBDP and are fullyrepresented in the BBREPC.

The desired impacts from ICM initiatives donot come immediately. Realization of expectedresults depends upon the geographical scope ofthe initiative, severity of environmental issues,complexity of management issues and theinstitutional and financial capacity of the localgovernment. It is important that the requiredtimeframe for ICM be discussed and understoodby all concerned stakeholders so as to avoidunrealistic expectations.

Project Timeframe

BBDP has a five-year timeframe, which isobviously insufficient for the implementation ofan extensive ICM program. Since scientificinformation was inadequate during the project’sintroduction, much time was consumed onundertaking relevant technical studies. To avoidthe loss of confidence and commitment ofdecisionmakers and stakeholders from failure toimplement proposed action plans, efforts weremade to implement at least some of the SEMPcomponents, particularly the institutionalmechanisms required. The second year of theproject coincided with a change in the politicaladministration of the province. Fortunately,however, the new administration gave itssupport and commitment in pursuing theprogram. A second cycle gave Batangas thechance to put into realization all the componentsof the SEMP and to replicate the ICM frameworkin the BBR.

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Performance Monitoring

Performance monitoring protocols should beinstalled right at the beginning of the project inorder to gauge the progress of the program andto determine the areas for successes and failures.In Batangas, emphasis was given on thedevelopment of a set of indicators tailored for anobjective comparison of the project results withstated goals. The development of applicableindicators underwent a process of consultationwith major stakeholder groups in Batangascomprising of implementers and beneficiaries.Through small group discussions, the indicatorswere analyzed in terms of their applicability inthe Batangas setting and the availability of concretedocuments and information to support and confirmthe indicators. Validation was carried out in alarge group gathering of stakeholders and projectparticipants. Six groups of major indicators —state, pressure, process, response, sustainabilityand impact indicators — were used to assess theperformance of the project.

An assessment of BBDP’s performance showedthat the project was able to satisfy to some extent,the requirements of three major performanceindicators. The socioeconomic benefits of ICM inBatangas are not yet very obvious but it isrecognized that significant opportunities exist interms of business and livelihood activities.

Project Design

The design of the BBDP highlighted a strongfoundation with clear requirements forinstitutional arrangements and planning processes.The activities were rationalized in such a way thatthey were interrelated and interconnectedtowards the attainment of project objectives.Milestones were identified for each activity andindicators of success were set.

BBDP was designed to ensure that itstimeframe fell within the terms of the localgovernment, hence allowing sufficient time tomake the necessary institutional arrangements.The establishment of the BBREPC and the PG-ENRO ensured that commitment to implementagreed project activities were met despite a changein political administration.

Selection and Prioritization of ManagementIssues

An effective ICM program should be builtaround existing issues and problems which areidentified through a participatory process. TheSEMP for Batangas identified complexenvironmental problems and managementissues. The wide range of management issuesand the potential impacts they pose on theenvironment and people against the existinglimited resources and institutional capacitiesof local governments underscored the needto set meaningful priority issues which theLGUs can tackle in the short and long term.Issues in Batangas were therefore categorizedinto three: critical priority, high priority, andlow priority. In general, the issues or factorswith a critical priority ranking were those inwhich perceived significance is high and whichcould be dealt with at relatively low cost.Issues with high-priority ranking were thoseperceived to be significant, but wouldnormally imply a relatively high cost ofmitigation. Low-priority ranking is assignedto those issues or factors with the lowestperceived significance and with relativelyhigher remedial cost. This allowed the projectmanagement to focus on solvable issues thatwere of most immediate concern. Specificefforts were focused on putting up the muchneeded institutional mechanism because of itsstrong implications to sustainability. BBDP

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avoided tackling too many issues at thesame time in recognition of the fact thatmany of the issues inherent in the political,cultural or socioeconomic systems usuallytake much longer time to resolve. Theprecautionary approach to developmentwas adopted. This means that developmentshould not proceed if there is insufficientinformation on the possible social, economicand environmental effects. This will preventor minimize use conflicts, adverse impactsand irreversible loss of future developmentoptions.

Management Boundary

BBDP delineated both landward andseaward management boundaries inrecognition of their importance indetermining the geographical scope coveredby the action plans. The establishment ofthe management boundary appeared moreof a planning requirement rather than foractual application since the scope of activitiesis still confined to planning. While it isnecessary to provide wider geographicalscope covering the watershed and theexclusive economic zone, it is more practicalto determine a management area that ismanageable. With the ICM framework inplace and experience at hand, the projectwill be better equipped to extend the scopeof management over the entire watershed.

Research and Studies

The project should use the best availableinformation to address urgent managementissues. Research studies should be clearlylinked with information requirements of theSEMP, action plans and other managementactivities. Efforts were made to link science

with decisionmaking in the BBDP through thefollowing mechanisms and processes:

1. Promoting a common understanding ofmanagement problems through ateamwork approach in completingenvironmental profiles, strategicmanagement plans, functional zoning, etc.;

2. Upgrading technical capacities ofenvironmental management agenciessuch as the PG-ENRO and theircounterparts in the different LGUs;

3. Establishing legal requirements forpublic consultation and scientific input,especially EIA;

4. Enhancing scientific understanding ofthe general public, local communities,NGOs and representatives in thelegislative organs;

5. Maximizing the application of scientificresults through stakeholder participationin the review and adoption of majorcoastal projects; and

6. Making information available to andusable by managers.

The timeframe for the preparation of the CEPand the SEMP for Batangas was confined to lessthan two years to give time for theirimplementation. This was made possible throughthe assistance of experienced coastalmanagement experts. To maximize inputs fromthe natural and social sciences, problem-orientedresearch was encouraged for providing theinformation required for management actions.

ICM Program Development andImplementation Cycle

ICM is a dynamic and flexible process, butin order to achieve a sustainable ICM program,actions generally must occur following a

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fundamental cycle. The ICM programdevelopment and implementation cycle inBatangas took five years, with the cyclecovering the six processes of preparing,initiating, developing, adopting,implementing, and refining and consolidatinga program of actions. Preparatory activitiesincluded: 1) the installation of a projectmanagement mechanism; 2) preparation ofwork plans and budget; 3) consultation withstakeholders; and 4) training of project staff.Sequencing of activities is important. Manyof the early actions which consolidatestakeholder support and trust begin duringthe preparatory phase before the actual projectis implemented. Sufficient time and energyneeds to be dedicated to this work.

Initiating the program required thepreparation of an environmental profile inorder to have a clear knowledge of thesocioeconomic, political, economic and culturaldynamics of the region. Throughenvironmental profiling and consultation withstakeholders, the different environmental andmanagement concerns were identified andprioritized. An initial public awarenesscampaign was also launched in collaborationwith the private sector. The SEMP wasdeveloped to address the risks and issuesgiven priority in the initiation stage. Thisprovided the general framework and long-term action program within which moredetailed issue-specific and area-specific actionplans were developed. Data gathering waslimited to those that were needed formanagement interventions directed at riskmanagement. Surveys and technical studieswere likewise conducted as special activitiessuch as the willingness-to-pay survey using thecontingent valuation method, which wasconducted as input to the establishment ofsustainable financing mechanisms.

The institutional mechanism in the formof the BBREPC, with the PG-ENRO as itsdesignated technical secretariat was adopted.Program implementation initially started withthe BBREPC at work and the PG-ENROalready operational. The efforts focused on theactivities recommended by the SEMP. Theshort timeframe required that only selectedactions be implemented to gain confidenceamong stakeholders. The implementation ofthe IWMAP was one of these priority actions.A joint environmental monitoring programwas also developed, supported by theestablishment of an analytical laboratory. Theparticipation of stakeholders was enjoined inthis activity through the formation ofpartnerships in water quality monitoring.

Upon completion of one cycle, a new cyclestarts by using past experiences,accomplishments and lessons learned as thebasis. A successful program may then broadenits objectives and scope of issues for the newcycle. A lengthy and sustained process isnecessary to achieve coastal managementsuccess through an integrated managementframework.

Local Government Commitment

The Provincial Government, through thePG-ENRO, took the lead and directly executedthe activities and actions required in the SEMP.Direct involvement of the LGUs had its setbackin terms of technical know-how and experiencebut the difficulties encountered in theexecution of activities due to a lack ofadequate technical preparations of the localstaff were addressed through intensivecapacity-building programs. Experienceshows that ICM programs developed throughlocal government participation areimplemented more readily, despite weakness

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in capacity, than programs prepared byoutside experts.

It is important that the institution arrangefor a sustainable source of funding to continueits work. When the project ends, the LGUwill have embraced the new managementparadigm and adopted its policies andrecommendations, developed staff expertiseand provided the necessary funding andmanpower resources to carry on. Likewise,the LGU’s existing procedure, policy anddecisionmaking must be assessed and mustallow integration of ICM initiatives intoexisting government programs. LGUcommitment to project management andimplementation are indispensable for projectsuccess.

Institutional Arrangement

Developing institutional mechanismswhich facilitate integration and coordinationof the ICM program is highly necessary.Integration brings about the harmonization ofpolicies and legislation between national,regional, provincial and local governments;closer management linkages between resourcesystems; and better functional coordinationamong concerned resources and governanceand management agencies. Coordination, onthe other hand, plays a central role in fosteringunderstanding and cooperation amongstakeholders, line agencies, researchers,policymakers and resource managers.

The need for an appropriate institutionalarrangement has been recognized by theproject given that Batangas Bay transcendspolitical boundaries. The BBREPC wasestablished to serve as an interagency andmultisectoral coordinating body. The PG-ENRO was likewise created to oversee

environmental concerns in the province. Later,the different cities and municipalities startedestablishing their respective environment andnatural resources offices. Efforts were alsoinitiated by the province to strengthen andinstitutionalize the administration of EIAwhich is legally a mandate of the DENR. AMOU was signed in 1999 between theProvincial Government and the DENR toenable the devolution of functions related toEIA.

Private Sector Participation

An important aspect of theinstitutionalization of the ICM at the local levelis the development of partnerships betweenthe public and private sectors. PPP is analternative to the traditional approach thatplaces the government solely responsible forenvironmental management. Its purpose is tobreak away from the situation where theprivate sector waits for the public sector todevelop a service or to enforce a regulation.The partnership is built on the foundation ofmutual benefit. The public sector gains accessto required technical and business skills, whilethe private sector benefits from involvementin defining a long-term management program.

Three lessons learned about ways to buildpartnerships with the private sector stand out:

1. Projects need to create a forum to bringthe private sector into the managementstructure. The BBREPC provided animportant forum for dialogue betweenand among levels of government,government agencies and privateindustry on the need for and utilizationof monitoring information.

2. The private sector needs a range ofincentives and enabling conditions to

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participate actively. Their involvementin the BBREPC gave the private sectoran active stake in finding solutions toenvironmental problems and, at thesame time, allowed them to influencethe long term, rather than to leave itto the regulatory system to setcompliance schedules and goals.

3. The private sector needs a vehiclethrough which to channel itsparticipation in project managementstructures. The BCRMF gave theprivate sector the opportunity tobecome involved in the project as agroup. Government prefers to workwith an association of privateindustries rather than with individualbusinesses. This reduced thespeculations that a single companymay be receiving special treatment. Itprovided a means for the broaderconcerns of the private sector to beexpressed and for the private sector’sposition to gain legitimacy.

Experience in Batangas has demonstratedthat the private sector found its direction, roleand functions within a well-defined ICMframework and waste management program.ICM practices facilitate balanced multipleresource uses, the healthy functioning ofmarket mechanisms and the sustainability ofthe resource base. These are compatible withthe long-term interests of the private sectorand thus provide incentives for PPP.

Public Awareness

Implementing an ICM program requires aprocess through which information is impartedto the public and to all stakeholders to increasetheir awareness, understanding and

appreciation of ICM activities and theirrelevance. To develop broad support for ICM,all public awareness activities for ICM wererationalized and packaged in a comprehensivecommunication plan. Active media support washarnessed to create awareness especially at thecommunity level. Aside from awareness-raising and educating the public, IEC materialsand strategies must be used primarily to helpin the mobilization of available resources fromvarious sectors which have planned programsand projects supportive of the SEMP. IECshould be focused on building a constituencyfor ICM, a critical mass of the population whoare environment-literate and imbued withenvironmental ethics, shared responsibilitiesand shared actions.

Building Local Capacity

A major constraint in ICM programs is thelack of technical and management capacities,especially at the local level. ICM requirescoastal managers with broad-basedenvironmental management training to leadand coordinate program development andimplementation. However, coastal managerswith interpersonal skills to coordinateinteragency activities, to mobilize human andfinancial resources, and to direct management-oriented research and informationdevelopment are not readily available. Unlesssuch capability is established, ICM programformulation and implementation will bedifficult.

Capacity building was thus integrated intoall components of the ICM programme. TheRegional Programme implemented both formaland specialized short-term training programsto develop the capabilities of the major players.The formal training programs included

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internships, short-term technical training, in-service training, staff exchange and studytours. On the other hand, specialized short-term training courses included application ofICM for marine pollution and prevention; oilpollution preparedness, response andcooperation; and integrated environmentalimpact assessment.

In Batangas, emphasis was given tobuilding local institutional capacity to plan andmanage their own resources. Representativesfrom various sectors were thus sent to variousnational and international capacity-buildingprograms. Mayors of four coastalmunicipalities within the BBR were sent, forinstance, on a study tour of Xiamen, China, toget a feel of the coastal management initiativesin the site and to have better appreciation ofthe BBDP. Experts from local institutions werelikewise tapped to provide the BBDP withtechnical training and guidance. An ICMtraining center is being developed in Batangas

to provide the venue for the sharing ofexperiences and best practices.

It is recognized that in addition tocapacity-building activities, demonstrationprojects also build local expertise andnetworking through direct and activeinvolvement in activities and disseminatinginformation during workshops, conferencesand through publications and reports. Lessonspoint to the fact that project activities may berendered irrelevant unless there are initiativeswhich enhance local capacity to sustain ICMactivities after the end of the project. Anintegrated strategy to incorporate capacity-building, therefore, is a vital part of the processfor achieving a sustainable ICM program. Acommitment to methodically build human andinstitutional capacity for coastal managementis required. This may be reflected by a higherlevel of effort required for training andtransfering technical skills early in the project,and longer project timeframes.

ICM trainees and delegates of study tours visiting Batangas.

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References

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