THE DIVE FEES OF MABINI AND TINGLOY

ANILAO
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Published 2007 by WWF-Philippines

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Written by Chrisma Salao, Alya Honasan, Ricardo Sandalo

Design by Felix Mago Miguel

Photos by Wolcott Henry, Lory Tan, Marlyn Santiago, Douglas Fenner, Joel Gutierrez, Joel

Uichico, Rey Manalo. MADaboutUS winning entries by Torben Bohn, Danny Ocampo, Gigi

PAY I N G T O P L AY:
Santos, Raymond Dy, Youn Byung Ro, Yves Zeller
Special thanks to Pierre Palallos, Marlyn Santiago, Janette Dolor, Raoul Cola, Al Licuanan,

Romy Trono, Sammy Mendoza, Matias Mendoza

This publication is made possible by the support of the American people through the

United States Agency for International Development (USAID) under Agreement No. 492-

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necessarily reflect the views of USAID or the United States government.

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A DIVERS HAVEN 3

A marine biodiversity hotbed 3

A transformed economy 7

Infrastructure and income 8

FROM EXPLOITATION TO PROTECTION 10

Underwater haven under threat 11

Marine Sanctuaries 15

A second wave of conservation initiatives 18

CONSERVATION FEES: WHEN NATURES PAYS,

NATURE STAYS 22

Setting the stage 23

Falling behind 25

ANILAO
The conservation fee system 26

Loopholes 27

Fund management 29

Biggest expenses 31

Success and remanining challenges 32

PAY I N G T O P L AY:
Bantay Dagat 36
THE DIVE FEES OF MABINI AND TINGLOY
EVOLVING ROLES, CHANGING DEMANDS 38

REFERENCES 41 A Case Study on the Philippines

This case study on Anilao is the fourth in a series of analyses being undertaken by
WWF-Philippines. This series aims to communicate key issues and lessons from field
projects to fellow practitioners, program and policy staff, personnel of managed and/or
protected areas, partners, and donors. The first in the series was on the Turtle Islands in
Tawi-Tawi, which tackled the issues of entry points for conservation and how resource
management ultimately depended on governance. The second case study discussed
the establishment and operating systems of the multi-stakeholder environmental law
enforcement program of El Nido, Palawan. The third study described how Tubbataha,
a pair of offshore reefs 130 kilometers away from the nearest island, became a viable
protected area. This fourth case related the establishment of conservation fees paid by
scuba-divers in Mabini and Tingloy, Batangas, and the issues and challenges in the face
of financial success.
The goal of these case studies is to help create a stronger understanding of the issues,
and to promote further learning and sharing of successes and challenges. We welcome
feedback on this case study and any others in this series. Please e-mail Joel Palma,
Vice-President for Conservation Programmes, WWF-Philippines ([email protected]).
 A D I V E R S H AV E N I

A school of Antiasis fish is a common sight in the coral reef

of Beatrice in Tingloy.

I
t is only 127 kilometers or a 212-hour drive and especially during the Philippine summer
from Manila, but it may well be one of the months of March until May, Mabini draws visitors
most accessible pieces of paradise on the for a reason that blooms just beneath the smooth
Philippine archipelago. The municipality surface of the water: it is the nearest prime
of Mabini in the province of Batangas is a place scuba-diving destination to Manila.
of golden sunsets, green hills and valleys, and

A marine
calm blue waters embraced by a 32-kilometer
stretch of rugged coastline. With a land area of
4,296 hectares, Mabini dominates the Calumpan
Peninsula, the strip of land dividing Balayan Bay biodiversity hotbed
in the west from Batangas Bay in the east. To The area often referred to by outsiders as
the north is the town of Bauan, and on the south Anilao actually encompasses the municipalities
is Maricaban Strait, across which is the island of Bauan and Mabini in the Calumpan Peninsula as
municipality of Tingloy. well as the island of Tingloy, which sits between the
With its proximity to urban centers, Mabini is Maricaban and the Mindoro Straits. It is a place of
a popular destination for beach lovers who can extraordinary marine biodiversity. Recent studies by
come even for the day to a place that seems far marine biologists Kent Carpenter and Victor Springer
away from the noise and congestion of Luzons put Anilao in the waters of the Verde Island Passage
urban centers. From July to October, Mabini is between the provinces of Batangas and Mindoro,
hit by rains and occasional typhoons, just like a corridor that has been labeled the center of the
the rest of the country. But for most of the year, center of marine shore sh biodiversity because of

2 3
 the number of species recorded in the area.
A 2003 survey by coral taxonomist Douglas
Fenner listed a total of 319 species and
74 genera of hard corals25% more than
the average number of corals found in the
hotbed known as the Coral Triangle, rich
L U Z O N
waters shared by the countries of Malaysia,
Indonesia, and the Philippines.
In the middle and late 1970s, the
underwater attractions of Balayan Bay
were discovered by Manila-based scuba-
divers, enthusiastic about their new-found
sport. Camping was already a popular
activity then, with guides leading hikers
through yet undeveloped areas to set up
campsites. The earliest divers, however,
came loaded with a lot more equipment, weekend adventuredespite the fact that Barangay A typical boat ferrying the residents of Tingloy, this is the
only means of transport to get to the island municipality.
braving very rough roads with four-wheel- Anilao did not have a single dive site to its name. The
PA L AWA N
drive vehicles, lugging their own air tanks name would become even more ironic later, when
from Manila, and pitching tents to spend resorts would rise and better roads would be built in and industries have transformed Mabini into
the night near the water, just to be able Mabiniwhen, in fact, the larger part of the diving a second-class municipality. Electricity is only
to dive and spearsh freely in what was was to be had in the next municipality. Mabini had available for five hours a day on Tingloy, and
then truly an underwater wilderness. It its dive sites along the shoreline, recalls Boy Venus, the island is accessed through ferries from other
was really something else then, recalls owner of the resort Club Ocellaris, and one-time municipalities. In 2004, 18,000 people were living in
Roberto Abet Napeas, a former president of the Friends of Balayan Bay (FOBB), a its 15 barangays, 2,000 of them full-time fishermen.
boatman and Batangas-based dive guide rst attempt at organizing resort owners in the area. Even if there are only four resorts in Tingloy,
for 25 years now, whose father was a But most of the dive sites people perceived to be in it remains a haven for scuba-divers, being home
TAW I - TAW I
close friend of pioneering Anilao resort Mabini were actually in Tingloy. to some 30 favorite dive sites including Mapating,
owner Danny Sarmiento. Sarmiento would Roughly three quarters the size of Mabini at Sepok, Beatrice, Bahura, and Layag-layag. Dolphins
Bal ay an B ay establish the Aquaventure Reef Club, one 3,241 hectares, Tingloy, named after the thorny and whales have been spotted here, and the sites
of the rst resorts in the peninsula. local tinghoy bush, is sometimes referred to as are overowing with corals, some of them rare and
In fact, Abet recalls how other divers Mabinis poorer cousin, as it was part of Mabini probably seen nowhere else in the world. Tingloy
would leave their cars in a parking lot in until it was declared a separate municipality in also covers smaller islands like Sombrero, Bonito,
B a ta n ga s Ba y
M a b i ni
the little barangay of Anilao in Mabini, and 1955. Although fishing, agriculture, mat-weaving, Malajibongmanoc, and Caban, each of them a
take boats to the dive sites for a smoother and remittances from overseas workers are the tourist favorite. Destructive shing used to be
trip. That was how the dive destinations, main sources of income here, this one-time refuge rampant in Tingloy, but has been curbed to a certain
T i ng l oy
whether they were in Mabini, Tingloy, or for Batangueos fleeing from Spanish oppression degree by the presence of Bantay Dagat patrols.
Bauan, became collectively known as in other towns is the only remaining fifth-class One dive site, Pulangbuli, has been declared the
Anilao, after the divers rst stop on their municipality in the entire province, while resorts Batalang Bato Marine Sanctuary and is strictly off-

Location maps of east Asia, the Philippines and Mabini and Tingloy

4 5
 limits to both divers and shermen. Divers know the popular here, with two locals winning gold medals in
site as Pulangbuli because of a red buri palm facing the last South East Asian Games (SEAG). A regatta
it, but Batalang Bato is its local name, and is the held last March 2007 included some 60 participants
name used in the sanctuary ordinance. from different parts of the country.
Tales of what Anilao diving was like in the Resorts count both Filipinos and foreigners
early days is the stuff of scuba-diving legend. among their guests, in different percentages, but all
There were hammerheads in Beatrice and Mainit, agree that peak season runs through the Philippine
and whale sharks spotted in Kirbys Rock, recalls summer months of March to June, with an increase
Abet Napeas. Elmar Mendoza, another former in numbers for foreign guests picking up at the
boatman who began diving in 1985, recalls seeing onset of winter in the northern hemisphere and
thresher sharks and giant octopus in Cathedral, international holidays such as Chinese New Year.
one of Anilaos most popular dive sites, as late For the most part, diving in Anilao is a weekend
as the mid-1980s. Dolphins, turtles, mantas, and activity for locals, although foreign guests tend to
sharks were commonly sighted, and even whales stay through the week. Weekend divers commonly
made an occasional appearance in the distance. stay for one night, and make four dives.
With the changing face of the landscape due

A transformed
to resort and infrastructure development came a
corresponding change in the local economy. As a

economy coastal community with a rich coral reef ecosystem

at their doorstep, Anilao was originally a shing
As more visitors started arriving, whether to community, where sh was caught as a staple food
dive or simply frolic on the beach, resorts started as well as a means of livelihood and sold to outside
opening along the coast, especially during the markets. There was also some farming in inland
early 1980s. Divers came to indulge in a sport that communities, with 17% of land area today still planted
was growing in popularity. After weeks of Manila- with coconuts, bananas, and other fruit crops.
based lessons, the typical check-out dive would By the 1980s, however, rampant use of destructive
involve a ritual of fish-feeding at Cathedral, where shing methods like cyanide, dynamite, and
a concrete cross sat between two coral mounds compressor-assisted shing led to the degradation of
at 60 feet. By the end of the 1980s, there were 10 the ecosystem. A 2002 study of Mabini by Ateneo de
registered resorts in Anilao; by 1994, there were 23. Manila University economics students revealed that
By 2006, there were 73 resorts, more than half of shing was indeed a dying industry, as only six of 34
them with diving facilities. barangays in Mabini engaged in it. The average catch
These resorts range from fan-cooled bamboo was 12 kilos of sh per family per day, yielding a paltry
affairs and inexpensive dive camps, where guests income of P3,019 (US$60) a month. Records reveal
can opt to pitch their own tents on the resort lawn, that even in the early 1990s, shermen were bringing
to more luxurious operations with swimming pools, home as little as two kilos a day.
suites, and spa services. Some resorts offer facilities Infrastructure development and the ensuing
for other watersports like kayaking, windsurng, pollution also contributed to the decline in sh stock,

Anilao is a popular site among underwater macro-photographers. Marine species like nudibranchs, mimic octopus, shrimps, and jet-skiing. Windsurng in particular has become but the same development offered the locals an
ghostpipe fish are among their favorite subjects.

6 7
alternative livelihoodemployment in the tourism Awareness of scuba-diving increased, particularly
sector. Although the resorts are concentrated in after the 1997 Asian nancial crisis. Locals
only eight of the 20 coastal barangays in Mabini, a couldnt afford to travel abroad anymore, so they
study done in 1994 estimated that the resort industry concentrated on local tourism. For his part,
already employed 10% of the local labor force. Men Dive Solanas Joel Uichico is hoping to see the
worked as dive guides and waiters, while women industry evolve even more, so that Anilao becomes
did the housekeeping and cooking for resorts. The knownand marketedas a special destination for
Ateneo study revealed that many of these residents photographers. Truk in Micronesia has its wrecks,
found income from the dive tourism industry more Mexico has its cavesyou cant just market the
dependable than income from shing, due to the Philippines as just a general diving destination
growing uncertainty of the oceans yield. anymore. In 2006, Uichico, who also heads the
The tourism sector in Anilao has evolved over Resort Owners Association of Mabini (ROAM),
the years into something much more dynamic, spearheaded a photo competition called MAD
says Eagle Point resort manager Ton Francisco. About US, short for the Mabini Annual Digital
Underwater Shootout, which attracted both foreign

The coastline of Mabini facing Balayan Bay is lined with resorts. and local underwater photography enthusiasts and
More than 50% of 70+ resorts in Mabini cater to divers. pushed Anilao as a world-class macro-photography
destination. A successful repeat in 2007 had more Torben Bohn bagged the top prize for this photo of a squid however. In the words of Romy Banaag, diving
in the first MADaboutUS photo contest in 2006. The contest
participants signing up for the contest. operations manager of Aquaventure Reef Club and
aims to promote Anilao as a world-class underwater macro-
photography site.
a trained reef monitoring volunteer of the Coastal

Infrastructure
Conservation Educational Foundation (CCEF), There
and more diver-friendly than before, notes Boy Siojo, are few people shing nowadays. They dont want to

and income a dive instructor and part owner of the resort Balai.
There was a time when they would still use the boat
be shermentheyd rather be seamen. Some 45%
of the families in Mabini have a member remitting
The rise of the diving sector has certainly led at night for shing, so the banca would smell. Today money from abroad as an overseas contract worker,
to many other benets for its resident community. they keep it clean, cover the ladders with rubber. serving as domestic helpers in Italy, entertainers
Infrastructure and utilities have improved in Mabini, If they give good service, they know guests will in Japan, or seamen on ships traveling the world.
with better roads, cellular phone networks, and 24- ask specically for them again, and regular divers Boy Venus of Club Ocellaris recalls how he recently
hour electricity. Because of a greater demand for certainly have their favorite bangkeros. ran into a former divemaster at his resort, who was
tourist transport services, particularly boats, one Locals have also made money selling real estate, in Anilao for a month-long vacation from his job as
sector that has seen a marked increase in income is which has been prized by both prospective resort a seaman. He was driving a brand new car. The
the boatmen or bangkeros. Former shermen now owners and out-of-towners building weekend homes. Ateneo study revealed that monthly remittances
make a full-time living from operating dive bancas The construction boom has consequently resulted in from such overseas workers range from US$150 to
which charge standard and substantial rates for every a demand for construction materials, creating new US$300 a month.
diving day. Anilao boatmen have become known opportunities for laborers, retailers, and suppliers. The Thus, while the recreational sector accounted
for their skillful handling of dive gear, and for their Ateneo study estimated that the income of the then 52 for 34% of the local income in 2003 and fisheries
sharp eyes for spotting currents and nding divers resorts in Mabini exceeded P40 million in 2002. a mere 5%, the money that overseas workers sent
who surface a distance from the boat. Because of The main source of income of the people of home accounted for 38% of the income of the
maturity and competition, boats are much cleaner Mabini today is neither natural resources nor tourism, people of Mabiniover P32 million (US$640,000).

8 9
 F R O M E X P L O I T AT I O N
TO PROTECTION II

Though famous for diving, the municipal waters of Mabini

and Tingloy remain the fishing grounds of residents.

As diving became more popular

in Anilao in the 1970s, so too did
Under water haven local government that aimed to protect the coastal
marine waters of Mabini and Tingloy. Composed

dynamite, cyanide, compressor, and

under threat mostly of locally-based resort owners, it was

D
established in the mid-1980s. It sought to promote
iving and destructive fishing practices tourism and address illegal and destructive fishing,
commercial shing, threatening to
the collection of aquarium fishes using knowing these would be detrimental to their

nip the diving industry in the bud. cyanide, dynamite fishing, fishing with business. Its members supported the establishment
the use of compressors, and commercial of marine sanctuaries, setting a precedent for close
Divers are credited with being the fishingdeveloped at about the same time in ties between sanctuaries and resorts.
Anilao in the 1970s. Understandably, the sector In the mid-1990s, however, ABROAs leadership
Charismatic species such as dolphins are seen rst to express concern over the
occasionally in Anilao. most alarmed by this development was the diving kept a low profile after being linked to controversies
damages wrought by such shing industry. The first advocates for protection of surrounding a proposed, but later disapproved,
the coral reefs were scuba-divers who began to flour mill to be built near Aguila Beach Resort in
practices on their playground. frequent Mabini and Tingloy dive sites in the mid- Barangay Anilao. The association suffered from

Ironically, as the diving industry 1970s, recalls Alan White, a coastal resources internal problems, and eventually became inactive
management expert who owns a weekend house in in the late 1990s, further loosening the reins on
grew in Anilao over the next three Mabini. Together with the visiting divers, the early illegal and destructive fishing.
resorts were already concerned about the rampant Other stakeholders came in to help protect
and a half decades, conservation
illegal fishing. the already threatened coral reefs. In the late
was always a step behind, as it The Anilao Balayan Resort Owners Association 1980s, a non-government organization (NGO),
(ABROA) was the first organized group outside of the Haribon Foundation, started a community-
struggled to nd a foothold.

10 11
 based conservation project in Barangays San Barangay San Teodoro, and the Samahan ng
Teodoro and Bagalangit in Mabini. Working with Mangingisda para sa Kaunlarang Pangkapaligiran
the local government of Mabini, the group was (SMKP) in Barangay Solo. Together with the Center
instrumental in passing several ordinances to for Empowerment and Resource Development
combat fisheries abuse between 1990 and 1992. (CERD), the groups lobbied successfully for the
Spearfishing using scuba gear, the use of sodium establishment of the first-ever marine protected
cyanide, and the gathering, catching, removing, area (MPA) in the province of Batangas in 1991.
and taking of marine tropical aquarium fishes were
prohibited. Unfortunately, these ordinances were
hardly enforced, since the corresponding systems
and resources were not put in place. The Bantay
Dagat (sea patrol) was also established during the
period, but their activities were limited by lack of
resources and support.
As part of its work, Haribon organized peoples
organizations (POs) such as the Samahang
Pangkaunlaran ng San Teodoro, Inc. (SPSTI) in

Barrel sponges abound in Mabini and Tingloy (above).

Anilao is home to 319 coral species, including this rare
Enallopsammia identified by coral taxonomist Douglas
Fenner at 90 feet deep in Mabini (below).

Batok dive site near Sombrero Island

12 13
 Marine sanctuaries: A brief his tor y of
conser vation in Anilao
The conservation story of Anilao began with environmental law enforcement systems had not
the work of the Haribon Foundation. In 1991, yet been set up. Patrolling was done by barangay
Cathedral, Twin Rocks, Arthurs Rock, and White officials and peoples organizations, since the
Sand were declared marine sanctuaries. By the marine sanctuaries were visible from shore.
same ordinance, the entire shoreline until 700
meters offshore in Bagalangit and San Teodoro, User conflict
an area covering the four marine sanctuaries, While local fishers were driven away from
was declared a municipal marine reserve. Andy the sanctuaries, diving continued, as well as
Maramot, executive assistant of Mayor Rowell spearfishing by some divers, which fueled a feeling
Sandoval of Mabini, was then a member of the of discrimination among the local fishers. Some
Municipal Council and authored the ordinance, divers became overzealous, and they could not
and remembers how it took two years to pass. understand that these people had to live, recalls
Lope del Prado, barangay captain of San Teodoro, Balais Boy Siojo, who was involved in putting up
remembers how bloody the discussions mooring buoys in the early days of conservation
werethe owner of the land in front of the reefs efforts in Anilao. Divers would see fish traps and
felt threatened by the idea of limited access, and destroy them, and that resulted in a lot of conflict.
strongly opposed the ordinance. In 1999 we were constantly installing mooring
Ironically, by the late 1990s, resort owners buoys, because people were burning them.
were clamoring to have the reefs in front of their Siojo believes it was more the divers fault,
resorts declared marine sanctuaries, as it bestowed however. Mali (wrong), because there was no
a sense of exclusivitya position that Dr. Mike educational component. In any place you go where
Perez, dive instructor and member of the Coastal you have to change somebodys lifestyle, you need
Resources Management Board (CRMB), defends: community organizers going in. You dont just
It was the resorts who were becoming more shove it down their throats. Manila people fail to
responsible. They may have been protecting their recognize that its a God-given sea, agrees Planet
turf to attract more divers, but it was already a big Dives Joey Fullon. The waters belong to the people
deal to protect your own frontage. In 1993, the of Batangas by law; you cant tell them what to do.
ordinance was amended to remove White Sand In 2006, the ordinance was once again amended
from the list, as it was mostly just sandy area. to ofcially allow scuba-diving in the marine
In the 1991 ordinance, fishing was banned in sanctuaries, which was a case of the law giving
the marine sanctuaries, although hook and line in to actual practice, as diving was never really
fishing was allowed in the marine reserve. The 1993 controlled in the sanctuaries. Felix Ka Owa Sawali,
amendment included diving among the disallowed the municipal councilor who penned the amendment,

Crustaceans like helmet crab and mantis shrimp and colorful aquarium fishes are found in the dive sites of Anilao. activities in the sanctuaries. At the time, formal says that divers did not know they were not allowed

14 15
in the sanctuaries. Lope del Prado has a different indeed remain protected or become damaged
view: Divers could not be stopped from diving in under the new system.
the sanctuaries, because they knew that was where Fifteen years after Mabinis marine reserve
the reefs were beautiful. Research conducted and sanctuaries were declared, the most striking
by Silliman University supported both viewsthat change is the common perception that the
some divers did know diving was prohibited in the tension between fishers and the tourism sector is
sanctuaries but disregarded the law, while others decreasing. Al Licuanan, a marine biologist from De
really thought diving was allowed but shing was not. La Salle University in Manila who led the baseline
The amendment took even longer than the original studies of the area for WWF, describes the tension
ordinance to pass. It took three years of debate, as overrated, since local fishermen use hook and
recalls Sawali. line fishing, which is not directly related to coral
The 2006 amendment of the ordinance also destruction and is allowed in the marine reserve, if
provided for the charging of premium fees to dive not in the sanctuaries.
in the sanctuaries, on top of the conservation fee
already being paid by divers. This premium fee A dying industry
is not yet being imposed, but the Marine Reserve Riki Sandalo, project manager of WWF-
Resource Executive Committee (MRREC), a Philippines, estimates that of Mabinis population of
sub-unit of the CRMB created through the 2006 37,000, less than a thousand still engage in fishing.
amendment to manage the marine reserve, plans Although workshops and consultations were held,
to start collecting within 2007. Andy Maramot, in the end, the tension between the fishing and
author of the sanctuaries ordinance in 1991, has tourism sectors was resolved not by negotiations,
reservations about the wisdom of a multiple but by economics. Emple Isla and Zoilo Casa, feel more marginalized by conservation than by Accessibility from Manila and good visibility of its waters
fee system for the sanctuaries. It will be difficult top officials of the boat operators association, tourism. Whether fishers in Mabini are being forced draw divers to Anilao.

to implement. He also believes the municipal shifted from fishing to tourism 15 and 10 years by circumstances or voluntarily shifting to tourism
government must observe if the sanctuaries ago respectively. Fishing was difficult, both men for better income, the fact is that this opportunity is Tingloy to open the sanctuary to diving for extra
say. We stopped fishing because we earn more less available to the fishers of Tingloy. For them, the fees, an action which Rowena Manalo, BBMC
More and more fishermen in Mabini shift to tourism because
of assured income. This option is not as accessible to the from the dive boat, Tourism has been the best center of the action of the recreation sector lies on secretary, feels ambivalent about. Prior to their
fishermen of Tingloy. alternative for the economy, agrees Planet Dives the other side of Maricaban Strait. request, Manalo says, the municipal government
Joey Fullon. Locals find that, one way or another, The question now is whether Tingloys sanctuary, had pretty much left them on their own. After the
their neighbors and relatives make money from the Batalang Bato, will suffer the same fate as those in request, they were informed that they needed
tourism that comes in. But the idea of sustainability Mabini. Batalang Bato was established in 2002 with to hold an election, and she is sensing pressure
has yet to be internalized. assistance from the CCEF. The difference is that to elect a staff member of the local government
This tension between stakeholders in Anilao Batalang Bato has been effectively closed to diving as BBMC chairperson. I am worried we will be
has been a popular topic of scientific studies. A since it was declared a sanctuary, while the marine politicized, says Manaloa sentiment apparently
study published in 2005 upholds the age-old issue sanctuaries of Mabini remain open to divers. Another shared by many working in the coastal management
that the marine sanctuaries benefit divers more difference is that shing remains a dominant source system of Tingloy. Whether or not that will happen
than fishers. However, a 2007 study introduced a of livelihood for the people of Tingloy. will ultimately depend on the determination of the
new twist: while they support the idea of easing The Batalang Bato Management Council local government and the fishing community to
tensions between them and divers, fishers now (BBMC) has petitioned the Municipal Council of properly manage their coastal resources.

16 17
A seco n d w a v e associated problems that a decade later, he was

of con s e r v a t i o n
awarded the first ever lifetime dive pass in honor
of his being the biggest and most consistent

initiat i v e s
individual donor to conservation projects in Anilao.
WWFs early projects in the area focused on marine
environmental law enforcement.
After the Haribon project ended, the mid-1990s Coincidentally, the new Philippine Fisheries
saw the ebbing of conservation initiatives in Anilao. Code (RA 8550) was also passed in 1998. As
The year 1998 marked the second wave of such provided for by the Code, the Municipal Fisheries
efforts. and Aquatic Resources Management Council
The 1998 elections ushered in new leadership (MFARMC) of Mabini was established in 2001, while
in both towns. Mayor Rowell Sandoval of Mabini that of Tingloy was organized a year later. To further
was a municipal councilor before he ran for strengthen the Code, Mabini adopted an ordinance
mayor in 1998, and took part in the passage of that strongly prohibited commercial fishing and all
conservation-related ordinances in the early 1990s. forms of destructive fishing within a 15-kilometer
Mayor Antonio Atienza was also elected range of its municipal waters in 2003. Tingloy
as the new, young mayor of Tingloy. Under his followed suit the same year.
leadership, Tingloy caught up with Mabini on By 1998, it was becoming obvious that there
the municipal ordinances pertaining to coastal was a need for closer coordination between Mabini A view from the hills of San Teodoro, Mabini, overlooking
Maricaban Strait which separates Mabini and the island of
resource management. The extraction of sand and and Tingloy, considering the setup of Anilaos diving
Tingloy (above). Flutemouth fish (below).
gravel along sensitive coasts, waste disposal in industry. A sisterhood agreement between the two
water areas, the collection of aquarium fishes and towns was formalized to coordinate and jointly
sabalo or mother bangus, and cyanide, dynamite, manage their shared marine resources, paving the
and compressor fishingall were prohibited within way for the Mabini-Tingloy Coastal Area Development
the first two years of his term. Later on, Tingloy Council (MATINGCADC). Through the local
also prohibited spearfishing with the use of scuba government, this body recruited volunteers for Bantay
equipment. These legislations provided a good Dagat. Upon recruitment, WWF provided training
policy platform for the communitys environmental and logistical support. The revived Bantay Dagat of
law enforcement crusade. The ordinances were the two towns started patrolling municipal waters in
mostly sponsored by Councilor Merding de mid-2000. Unfortunately, before MATINGCADC could
Guzman, head of Tingloys Bantay Dagat team. truly reactivate the Bantay Dagat, it was beset by
It was also in 1998 that WWF-Philippines partisan politics. The local elections of 2001 led to the
started working in Mabini and Tingloy. In a way, organizations natural death.
the conservation organizations entry into the area The business sector jumped on the bandwagon
was unintentional. Romy Trono, then a member of of renewed conservation efforts as well. In 2000,
WWF-Philippines senior management, brought more than a decade after the now-defunct Anilao
Wolcott Henry, a member of the board of WWF- Balayan Resort Owners Association (ABROA) was
United States, on a diving trip to Anilao. Henry organized, the Friends of Balayan Bay (FoBB) was
was so moved by both the diving experience and established, this time composed mostly of Manila-

18 19
 based owners of resorts in Mabini. They advocated When wed bring up the environment and garbage,
for more vigorous coastal resource management in they wanted to talk about building roads.
the area. They also initiated the annual International In 2003, the dive boat owners and operators
Coastal Cleanup every third Saturday of September, servicing the diver-tourists formed the Aroma Dive
mobilizing divers from Metro Manila to join in. This Boat Association (ADBA). The dive boat owners
annual event became a popular environmental and operators were mostly former fishermen who
awareness tool and was eventually adopted and had shifted their livelihoods to tourism.
led by the municipal governments of Mabini and The latest major player in Anilao is Conservation
Tingloy. The activity has expanded to include the International (CI), another non-government
cleanup of shorelines and inland areas. Starting organization that entered the area in 2003. Its aim,
in 2004, the coastal cleanup was also adopted by over its 10-year program, is to establish a network
the provincial government of Batangas, and has of marine protected areas to effectively manage the
become a province-wide annual event. length of the Verde Passage. It seeks to establish
FoBB eventually became inactive as an partnerships and the active engagement of the
organization, and in its place was formed the business sector in conservation work.
Resort Owners Association of Mabini (ROAM), with Three decades after concern for the marine
environment was first expressed, Anilao is on its
way to an environmental rebound. Fishery problems
Tubastrea coral in full bloom looks even more
attractive at night. They are commonly seen in the in Mabini are now limited to occasional violations of
marine sanctuaries of Cathedral Rock and Twin scuba-assisted spearfishing. The bigger problem
Rocks in Mabini (above). The camouflage of this
now is the encroachment of commercial fishers
shrimp fails to shield it from the sharp eyes of a
from the neighboring towns of Bauan, Lemery, and
macro-photographer (below).Three-spot angelfish are
found even in shallow waters (right). Batangas City, even though there are still reports
of local fishers in Tingloy committing violations.
But on the upside, with the establishment of the
communitys environmental law enforcement
system, stakeholders note that fish catch and coral
reefs have improved in both towns. Charismatic
its broader membership of both local and Manila- species like marine turtles, dolphins, rays, pygmy
based resort owners. Boy Venus, former head of sperm whales, and even whale sharks have been
the FoBB, believes that the new organization has reportedly sighted, and with increasing frequency.
a greater advantage when it comes to resources The challenge lies in sustaining these initial signs
and representation, because members have more of success for the long run.
common issues now. In the beginning, when
we held FoBB meetings and invited all the resort
owners, everyone had their own ideas, and we were
a bit overwhelmed, he says. Owners of the non-
diving resorts think rather differently, and they were
less concerned about the environmental aspect.

20 21
 C O N S E R VAT I O N F E E S :
W H E N N AT U R E P AY S ,
N AT U R E S T AY S
III

Table corals are abundant in dive sites around

Sombrero Island.

The conservation fee system of Anilao is anchored on the tourist activity it is famous
for scuba-diving. Anilao had been a dive destination for two decades before the fee
Setting the stage municipal resources to coastal management.

B
Mabini was not earning very much from tourism,
y the year 2000, Anilao had seen a other than from property and business taxes
system was established. As could be expected, it met considerable resistance at first. decade of conservation projects. collected from the resorts along its western coast.
Implemented by various NGOs and Tingloy was not earning anything from tourism at
I was against the fact that they wanted to collect fees only from scuba divers, says
divers groups, these projects had come all, despite the fact that the majority of dive sites in

Dr. Mike Perez, admittedly one of the dive fees most vocal critics in the beginning. and gone in periods ranging from six months the area were in its municipal waters.
to three years. Because of this periodic nature It was under these circumstances that the idea of
of projects, conservation efforts also came in a dive fee was conceived, to make conservation pay
spurts. Although one NGO, WWF, dominated for itself. WWF-Philippines conducted a willingness-to-
The two municipal governments of Mabini and Tingloy were able to establish a system,
the conservation scene in Anilao at the time, the pay survey in 2000, interviewing more than 230 divers.
although, in Mayor Rowell Sandovals words, You only see room for improvement as relatively small funding for projects resulted in An overwhelming majority97% of Filipinos and 86%
activities that, upon hindsight, were not properly of foreignersindicated that they were willing to pay
you go along. The biggest political success here is that the two municipal governments programmed, such as various short-term research a per-visit surcharge... to maintain the state of coral

have been able to integrate their collection system. Most importantly, the general studies, the organizing of the Bantay Dagat with reefs at Mabini-Tingloy. The study recommended the
sporadic support for operations, and attempts to amount of PhP400 (US$8) to be collected per diver for
sentiment seems to be that the fee system benets all concerned. Even divers, who integrate coastal resource management among the a weekend of diving.
municipalities around Balayan Bay. The profiles of the interviewees revealed that
pay the fee, have noted a direct benet: Its good that we pay, because we can expect
The attention of the municipal governments of divers visited Anilao an average of once a month,
services. The system is far from perfect, however, and the loopholes need to be Mabini and Tingloy were on other matters. They and made four dives per visit. Less than 5% were
had neither the funds nor the inclination to devote first-time divers. When asked why they came to
addressed in order to minimize the threats that could undermine the system.

22 23
 2003; collections started in September 2003. In also collect fees on behalf of Tingloy. When it
the period between the passing of the ordinance became obvious that intense negotiations were
and the start of collection, massive information required to work out the details of the unification,
campaigns were conducted by the local government the Coastal Resource Management Boards of
and the NGOs in response to questions, issues, and both Mabini and Tingloy assigned two members
resistance coming from the diving community. each to the task. Although the unification of the
fees had been agreed upon in principle, the bone

Falling behind
of contention was the sharing of the collected
fees. When negotiations were deadlocked, Mayor
Although WWFs intention was to establish Sandoval eventually intervened and declared that
the conservation fee system concurrently on both the two municipalities would split the fees 50-50
Mabini and Tingloy, the latter fell behind in drafting after administrative expenses had been deducted.
the ordinance. Luzviminda Villas, the Municipal This agreement was reached during the WWF-
Environmental and Natural Resources Officer sponsored study tour in Gilutongan, Cebu on April
(MENRO) of Mabini, clearly remembers, Our 2005. The Memorandum of Agreement (MOA) was
agreement was to make our respective drafts of the signed in June, and implementation finally started
ordinance. However, after the public consultation two years after Tingloy passed its ordinance, in
on May 1, 2002, work on Tingloys ordinance September 2005. The unified fee is PhP100 (US$2)
ceased. Mistrust between the two municipalities per day of diving or PhP1,800 (US$36) for an
officials caused the breakdown of the planned annual pass, allowing access to any of the dive
unified fee collection. Political alliances hindered sites of both municipalities.
The conservation fee was launched in November 2003 after a Mayor Rowell Sandoval admits that Apo Island the progress of Tingloys conservation fee ordinance
series of consultations, workshops and massive information
was our guide in establishing Mabinis fees, and even further. A member of the municipal council Left to right: Mayors Rowell Sandoval of Mabini, Arleigh
campaign to gain the support of divers, resort owners and
they selected elements they liked and dispensed of Tingloy purportedly blocked the ordinance, and Sitoy of Cordova and Antonio Atienza of Tingloy during the
other sectors .
study tour in Gilutongan Marine Sanctuary conducted in
with those they did not, such as being under MENRO Villas remembers that the same councilor of
April 2005. The trip was instrumental in unifying the dive fee
Anilao repeatedly, the reasons included proximity the National Integrated Protected Areas System Tingloy criticized Mabinis ordinance. When Mabini system between Mabini and Tingloy.
to Manila, the general condition of coral reefs, and (NIPAS), under the jurisdiction of the Department of started collecting conservation fees and its financial
the diversity of underwater wildlife. Based on the Environment and Natural Resources (DENR). resources started to grow, however, the pressure on
estimated occupancy rates of the resorts, it was Municipal Councilor Felix Ka Owa Sawali Tingloy to come up with its ordinance proved too
projected that a conservation fee system could sponsored the dive fee ordinance. The Municipal great for politicking. Tingloys own ordinance on the
potentially earn for the municipalities more than Council conducted consultations and information conservation fee system was finally passed in the
PhP9 million (US$180,000) annually. campaigns on the ordinance, as required by law. last quarter of 2003.
WWF presented the results of the study to On August 2002, they consulted the stakeholders Upon approval, however, Tingloys ordinance
the local governments of Mabini and Tingloy in who would become the direct payers of the fee: once again found itself at a standstill. Since all the
September 2001. With their interest piqued, and divers, most of them based in Manila. It was during resorts and dive shops were in Mabini, there was no
perceiving the need for further information, the this fateful meeting that the divers agreed to pay means of collecting the fees from the divers, even as
local government of Mabini funded its own study PhP50 (US$1) per day of diving, with the option they ocked to the reefs in Tingloys municipal waters.
tour to Apo Island in Negros Oriental to learn of purchasing an annual dive pass at PhP1,000 The only logical solution was to integrate the
from their experiences with their protected area. (US$20). The ordinance was passed in February fees of both municipalitiesthat is, Mabini would

24 25
 Figure 1: Anilao conse r v a t i o n f e e c o l l e c t i o n s , 2 0 0 3 t o 2 0 06 charged a penalty of PhP1,000 (US$20) and faces
a suspension of his license for 15 days.

450,000
Conser vation Fee Collections
2003
Loopholes
400,000 2004 However, there are loopholes in the system.
2005 Foremost in their experience is the alleged reusing
350,000
2006
300,000
of tickets. The resort or office issuing the daily pass
should indicate the date of use. Without the date,
250,000
there is no limit to how many times a pass can be
200,000 Resource management planning and consultation
used, according to MENRO Villas, who is aware
150,000 workshops have been conducted in both municipalities.
of one resort with such a case. The resort owners
100,000
were given a warning, but popular belief indicates
50,000
inspections at sea. that the anomaly still occurs. Boat operators point
0
The collection mechanism is based on a system their fingers at the resort staff; others say that it can
Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec of incentives and disincentives. On the part of the only happen when there is connivance between
resort owners, the penalty for letting their guests resort staff and boat operators, because without the
dive without a dive pass is the conscation of air boat operators stub, the resort staff could not reuse
tanks, which can be redeemed upon payment the same ticket.

The co n s e r v a t i o n Municipal Tourism Office of Mabini, and the WWF

office in Barangay Anilao East.
of the PhP2,000 (US$40) penalty. Regular divers
usually have their own gear, with the exception of
Unfortunately, the intended check and balance
system between resorts and boat operators

fee sys t e m The dive passes are prepaid by the resorts

and sold to their customers at the same price. As
air tanks, which they rent from the resort. According
to Restituto Dalisay, Mabinis municipal agricultural
through the latters PhP10 stub is where the
second loophole lies. According to Zoilo Casa,
Conservation fee collections from September recommended by the willingness-to-pay survey, the ofcer, ROAM head Joel Uichico is advocating the chairperson of the Aroma Dive Boat Association
2003 to December 2006 amounted to a total of conservation fee is included in the resorts billing conscation of other gear to discourage divers from (ADBA), only ADBA members are authorized to
PhP5,628,130 (US$112,563). As seen in Figure 1, statement to simplify the collection system. Upon dodging the fee, as well. As it is, the conscation collect the PhP10 from the municipal government.
an annual trend has not yet been established. The boarding, the boat operator inspects the ticket of the air tank is a disincentive for the resort owner, He says there are more than a hundred dive boat
dramatic increase in figures in the last quarter of and detaches a but not for the diver who is caught without a pass. operators, only 48 of whom are members of ADBA.
2005, which seemingly runs contrary to popular portion of the Unfortunately, there is also no incentive for the
knowledge that the Philippine summer months of ticket. It is then resorts to comply with the ordinance, even if just
April and May are peak diving season, is attributed the duty of the to compensate their staff for the additional work of
to the doubling of the amount upon unification Bantay Dagat collecting the fee.
of the fees of the two municipalities. Other to conduct For the boat operator, there is both an
observations are that more divers come during long random incentive and a disincentive. Each ticket stub
weekends, and significantly fewer divers arrive ticket detached from a dive pass is redeemable for
when there are typhoons. PhP10 (US$0.20) from the fund holder, the
Daily and annual dive passes can be Municipal Environmental and Natural Resources
purchased from dive resorts, the Municipal Office of the local government. If a boat operator
Environmental and Natural Resources Office and is caught ferrying divers without passes, he is
Divers prepare to take the plunge.

26 27
 Therefore, for the non-members of ADBA, the waters to dive. This makes it difficult for the local
PhP10 incentive does not exist. governments of Mabini and Tingloy to determine
When asked why only their members are just how many divers they host in any given
authorized to collect the boat operators share, period. Resort owners are often circumspect about
Simplicio Emple Isla, president of ADBA, believes revealing information about their occupancy rates.
that the municipal government wants all dive boat Therefore, the available figures on guest arrivals
operators to become members of ADBA to simplify are only estimates, and could not serve as guides
their transactions. However, not all boat operators in determining the rate of compliance with the
want to become members of ADBA, so this loophole conservation fee ordinance.
is unlikely to be addressed in the near future. Even a resorts size could not be a determining
Isla further relates that some resorts, factor to assess compliance. A quick look at the
particularly those owned by Koreans, have their collection gures indicates that the Aquaventure
own dive boats, and therefore do not require Resort has consistently contributed about 50% of
the services of independent boat operators. He collections, although it is not the biggest resort. Eagle
had an experience with a Korean-owned resort Point is the biggest resort but, according to WWFs
that contracted his services. Upon inspection Riki Sandalo, not all of its guests are divers. The rate
of the divers tickets, he saw that the date was of compliance is therefore anybodys guess.
not indicated. He asked the resort to do so, and
Members of the Mabini CRMB and Sangguniang Bayan after

Fund management
though there is no way of confirming whether this
one of their meetings to amend the ordinance on the marine
reserve (above). A unified dive pass, amounting to PhP100 was indeed the reason, the resort never availed of
for a day of diving, is usually incorporated in the divers his services again. Both Casa and Isla are quick Corollary to the establishment of the
resort bill to simplify collection. Annual dive passes are also to point out that not all Koreans or Korean resort conservation fee was the creation of its managing
available (below).
owners have this attitude, however. body, the Coastal Resources Management
The third loophole is in the monitoring system. Board (CRMB). Each municipality has its own
The primary task of Bantay Dagat members is to CRMB, whose function is much wider than just
guard the municipal waters against illegal and fund management, encompassing planning,
destructive shing. Inspection of dive passes is implementation, monitoring, and policy formulation
merely a secondary duty, if at all, because they also in relation to the municipalities coastal resources.
perform rescue operations of both divers and marine For purposes of this case study, however,
wildlife. Because of the nature of their work, they can discussions on the CRMBs will be limited to the
hardly be expected to inspect all dive boats. management of the conservation fees, as it is the
Hence, there are gaps in the monitoring system, primary source of funding for the management
which leads to the systems fourth weakness, the bodys activities.
lack of basis for assessing compliance. Access to The CRMB of Mabini has 11 members, while
Mabini is very easy, with no single point of entry Tingloys has nine. In both municipalities, the mayor
such as a pier or airport where visitor arrivals acts as chairperson, and the vice-chair is the
can be monitored. Divers merely drive to the chairperson of the Committee on Environment of the
resorts, and even divers staying in Puerto Galera Municipal Council. The members are representatives
in Mindoro make it as far as Tingloys municipal of other ofces of the local government, the diving

28 29
 Figure 2: Mab i n i s a l l o c a t i o n o f e x p e n s e s community, resort owners, boat operators, the local government somewhat took a back seat in the
from conser vatio n f e e s p e c i a l a c c o u n t f o r 2 0 0 6 . academe, and NGOs. Both CRMBs are required heated debates, although it has constantly suffered
to meet at least once every two months, and both from what he calls a clamor for edifice, and was
municipalities admit to the difculty of nding a therefore always looking at physical investments,
0% MR-REC assistance common time among members, so this provision is such as patrol boats.
26% Banday Dagat salaries
and operations not always complied with. The trouble with having put the cart before
Tourism promotion 2% Their respective ordinances state that 85% of the horse, Licuanan says, was, How can you
Mabinis collected fees will go to a special account, be objective about the process if the money was
Marker buoys 7%
while 15% goes to Mabinis general fund; for already there? You cannot distinguish anymore

Research and consultants 3% Tingloy, 80% goes to the special account and 20% between those who cared and those who were
15% Physical assets
to the general fund. Beyond these stipulations, it there for the money. It took many meetings before
is up to the CRMB to manage the special account, the CRMB finally agreed on an expense plan.
subject to approval by the Municipal Council.

Biggest expenses
Although Mabini started collecting conservation
6% Production of dive passes
Trainings and conferences 28% fees as early as September 2003, funds were not
7% Boat operators incentive disbursed until almost a year later, in August 2004. By far the biggest expense for both

6% Meetings, communications, The problem was that they started collecting fees municipalities is the remuneration and operations
supplies and materials without a concrete plan for how to spend it. Tingloy of the Bantay Dagat. In fact, for Tingloy, this is
suffered the same problem. This was precisely just about their only expense category, other than
the argument of divers when the plan to collect administrative items. Comparisons between Mabini
dive fees was presented to them in 2002that the and Tingloy often irritate the people of Tingloy.
municipality did not even have a CRM Plan yetso Teodora Mendoza, who acts as both the agricultural
they were questioning how the funds would be used. officer and environmental and natural resources
Al Licuanan, former member of the CRMB of officer of Tingloy, complains that the comparison is
Mabini as representative of the academe, recalls unfair. Mabini is rich, so they have more resources
that, as funds in the special account exceeded for other allocations. Here, everything goes to the
the PhP1 million (US$20,000) mark and continued Bantay Dagat. Being a member of the CRMB of
to grow, discussions on how to spend it were Tingloy, she senses pressure from Mabini to spend
already getting vicious. Understandably, each the money the way they do.
member of the CRMB wanted to use the funds Mabinis other regular expense is the
according to his own interests. For example, the PhP10,000 (US$200) it pays monthly to the ADBA
Bantay Dagat wanted to use it for their patrol for maintaining 20 mooring buoys at the dive
operations. Resort owners, on the other hand, sites. Their duties include taking the buoys out
wanted to hire private security to do the patrolling and reinstalling them during typhoons. Emple Isla
for better accountability. Licuanan recalls that the almost sheepishly admits that only four ADBA
members are actually active in maintaining the
Volunteers from Mabini and Tingloy as they prepare to install
buoys on dive sites in Tingloy. Divers demand better and buoys, even though they have many members and
more visible buoys in exchange for paying the conservation all payments go to their associations account.
fee. In Mabini, a local dive boat operators association was
Special projects funded by Mabinis conservation
commissioned to install and manage buoys in 20 dive sites.

30 31
fee collections include the development of the says Zoilo Casa, chairperson of the boat operators
Coastal Resources Management Plan and plans for association. When asked if he thinks they are able
solid waste management and water use zones. to collect enough, Johnny Beloso of Bantay Dagat
Despite the initial difculty in putting together says, It seems enough; the municipal government is
its expense plan, Johnny Beloso, a member of the even building a new boat from its proceeds. Mayor
Bantay Dagat and a pioneer of coastal conservation Rowell Sandoval of Mabini disagrees. We need to
in the area, says Mabinis fund management is very collect more in order to expand our program. His
transparent. Members of the private sector, however, priorities include education and awareness-raising
express strong reservations about the way Mabinis among coastal communities, and he would like to
funds are being managed. People may still be see the municipality hire all members of the Bantay
concerned that they are not very transparent about Dagat as full-time employees.
what they do with the money, says Boy Venus. For Beyond financial gain, however, the bigger
example, they say they collected P1.7 million one success of the conservation fee is seen in the
yearthen spent P600,000 on a boat. My own boat Coastal Resources Management Board. The
costs only about P120,000. And then, they allocate CRMB is the unifying factor that has brought
only P50,000 for fuel for the entire yearit was a together the local government, NGOs, and
joke! Some question the wisdom of fund allocation, resorts. This is a far cry from the earlier situation
while others, merely the disbursement system. in Anilao, when institutions and organizations
And although Tingloys constituency does not would implement their own projects with
welcome comparisons with Mabini, the allegations absolutely no involvement of other stakeholders.
on their improper fund management are more Furthermore, the CRMB is a local organization
serious, including the claim that they have no that built itself from the myriad of other small local
transparency at all. Rey Manalo, chairperson of organizations; it has so far remained free from
their Bantay Dagat, laments that even the budget the dictates of the national government or other
allocation of their conservation fee collections top-down interventions. The CRMB is a big step
is politically motivated. Politicking is very because it enabled the creation of systems, says
strong here, he says, recalling the delay they Raoul Cola, a WWF consultant.
experienced in developing the fee system. Andy Maramot, Mayor Sandovals
executive assistant and one of the pioneering

Succes s e s a n d
conservationists in Mabini, claims to know the
secret: Working together was the key to success.

the rem a i n i n g It is a sentiment echoed by resort owners, as

expressed by Aquaventures Romy Banaag: It all

challe n g e s boils down to people helping each other. Before,

the community didnt know how to protect the
The most obvious indicator of success of environment. Any changes in how things will be run
Anilaos conservation fee is the funds raised for its must come from the barangay officials.
coastal resource management activities. The dive Despite the successes, no one thinks even for
fee is good because everyone benets from it, a second that conservation work is over in Anilao.

32 33
 plans of pursuing the integration, but it is a tourist arrivals have remained the same, while fee could spell the difference between its
cause for concern that their plans are focusing others believe they are even growing as diving continuation and its breakdown. The private
on the conservation fee model. The dive fee in becomes more popular. And besides, says sector, both the resorts and the NGOs, could
Anilao is a very signicant part of the sustainable Lope del Prado, divers say the fees are withdraw support if they think the funds are not
nancing component of the provincial ICM Plan, nothing new, because it is already practiced being managed or spent well. Divers will only
especially now that the Bantay Dagat of many in other areas they have been to. be willing to pay if they believe they are getting
municipalities need logistical and nancial There is also a widespread impression that their moneys worth in terms of where their
support, says Evelyn Estigoy, Provincial the coastal resources of Mabini have been money goes. In fact, if the coral reefs of Anilao
Government Environment and Natural Resources improving since 1998. WWF and Earthwatch deteriorate to a great extent, its entire diving
Ofcer. We look forward to replicating the Institute studies indicate that coral cover industry will be jeopardized.
Mabini-Tingloy model in other towns like and sh diversity are improving in the waters
A big challenge for the local government is to translate
its income from conservation fees by investing in coastal Calatagan, Lobo, and San Juan. of Anilao. However, Al Licuanan expresses
resource management that would produce tangible benefits The aftermath of the May 2007 elections - A reservations about the direct attribution of the Threats to the quality of marine life in Anilao include the
for the local fishermen. question that kept recurring during interviews increased sh catch to reef protection, because lack of waste management and the large vessels that ply this
route. Oil depots in neighboring Batangas Bay and their
for this case study was, What will happen after 95% of the sheries of Mabini is pelagic.
cargo vessels inherently carry the risk of oil spills.
On the contrary, the list of challenges they face is the elections? Having served three terms since Mabinis sheries have displayed peaks in sh
rather daunting. they were elected in 1998, as of this writing, both catch that have remained largely unexplained,
Physical and environmental problems - These the mayors of Mabini and Tingloy are in their last Licuanan says, with one such peak in 1994a
are among the first to come to mind for the terms of ofce. Both towns will therefore have new period when marine environmental laws were
stakeholders of Mabini and Tingloy. These leaders by the middle of 2007. Jacinto Bulaclac not being strictly enforced.
include pollution, soil erosion, siltation, and expresses his trepidation: What if this CRM in Lack of plans - While enthusiasm is an
disregard of shoreline setback, as resorts general, and conservation fee in particular, is invaluable asset, it is not good when it gets
are constructed right on, or even beyond, the not the interest of the next mayor? This has been in the way of careful planning. The marine
waterline. eight to nine years in the making. Andy Maramot sanctuaries of the early 1990s, the enforcement
Scaling up - Jacinto Bulaclac, municipal is more optimistic: It will be self-defeating for projects of the late 1990s, and once again,
administrator of Mabini, remembers an earlier the new administration not to support it, because the collection of a conservation feeall of
attempt to integrate CRM activities among the people who depend on the diving industry for a these entailed doubling back to catch up with
11 coastal municipalities along Balayan Bay. living number in the thousands. If the new mayor steps already taken by setting up systems
An Integrated Coastal Management (ICM) plan does not support the program, he will not be or developing plans necessary to operate
was developed, but the attempt to integrate did reelected. them smoothly. Doubling back requires
not prosper, and Bulaclac deems it premature, Lack of data - The lack of information on visitor more resources, and as seen in the heated
and therefore not sustained. Internal politics arrival has already been cited as a problem, negotiations over the expense plan, can
within and among the municipalities, as well because it hinders the accurate assessment be emotionally draining and detrimental to
as different interestse.g. commercial fishers of compliance with the conservation fee institutional relations. These might have been
from Batangas City, Bauan, Calatagan, and ordinance. Although people believe that the growing pains, but it will be to everyones
Lemeryare a hurdle. However, issues such resort owners initial fear that the conservation advantage if the stakeholders of Mabini and
as pollution coming from Batangas Bay clearly fee would drive away divers was ultimately Tingloy learn from their previous experiences.
indicate the need to scale up CRM efforts. unfounded, this could not be officially Transparency and accountability - Public
On the upside, the provincial government has confirmed due to lack of data. Some believe perception of the handling of the conservation

34 35
 Bantay Dagat:
When N G O a s s i s t a n c e n o l o n g e r w o rks
Despite receiving a lions share of the However, since the conservation fee is still fairly
fund allocation, or perhaps because of it, the young, having been implemented only for the last
Bantay Dagat of Mabini and Tingloy are fraught three years, the result is that majority of Bantay
with issues. Mabinis Bantay Dagat has seven Dagat members actually receive less compensation.
regular members who receive a monthly stipend. It was no surprise then when a member of Mabinis
Another 15 members are non-regular, receiving local government commented that Bantay Dagat
remuneration only for each patrol operation they members seem to be losing enthusiasm for their
join. Tingloy has 21 Bantay Dagat members, all of work. This is a common problem, says Raoul Cola.
whom would be considered non-regular based on The institutional mechanism, through the LGU,
the definition used in Mabini. This scenario has not should have been prepared rst before taking over
always been the case. the supervision of the Bantay Dagat. Transition
There was a time when the Bantay Dagat issues should be expected.
members stipend was being supplied by NGOs, As it turned out, the stipend issue was only the
first by WWF, then by Conservation International tip of the iceberg. Other reasons were cited. They
(CI). According to the Bantay Dagat members, their did not receive their remuneration right away, as they
stipends were bigger then, because they went out now follow the governments disbursement process.
on patrols more frequently. The drawback of being Their personal expenses, such as transportation agrees that the approval process takes a while, but Bantay Dagat operations are the biggest expense category for
the unified dive fee collections of Mabini and Tingloy.
on the payroll of NGOs, however, is that they were expenses from their homes and food provisions, it is only proper, to protect the fund.
hired on a per-project basis, and there would be used to be shouldered by the NGOs, whereas The delineation of functions among the to hire the Bantay Dagat at the time, he thinks it is
gaps in their employment, as one project ended the government does not operate that way. Also, government offices is another matter. When the wrong for NGOs to supply their salaries, because
and the next one had yet to begin. there are lots of extra jobs which they feel they conservation fee was established, supervision of it sows seeds of dependency. Eagle Points Ton
This sporadic employment and operations cannot refuse, since they are now employed by the Bantay Dagat was assigned to the Municipal Francisco supports this view, Yes, the Bantay Dagat
of the Bantay Dagat was one of the problems the municipality. They also have the perception Environmental and Natural Resources Office, but has helped, but they have not been completely
targeted for solution by the conservation fee. that NGOs had a greater sense of urgency when it it soon became apparent that the arrangement benecial, and their work has not been ne-tuned.
With the advent of the conservation fee, they are came to the work, so their requests were acted upon was not working. In Feb 2006, the Bantay Dagat NGOs are still providing fuel, monitoring, buoys.
assured of sustained employment, a fact that immediately. was transferred to the Municipal Agriculturist They cant do it without outside help, which is why
is not lost on Johnny Beloso, a Bantay Dagat True enough, when WWF conducted a Office. Everyone has lapsesthe MENRO, NGOs like WWF havent been able to let them go.
regular of Mabini. Aside from being assured of participatory assessment in April and May 2005, local government units and NGOs, says Marlyn The accountability of a law enforcement body is also
regular source of funds, Beloso says the biggest among the problems identified regarding the Santiago, a WWF staff member. The Bantay Dagat put into question if it is funded privately.
advantage of working for the government is conservation fee were the slow disbursement of are confused as to who to follow among the three. In the beginning of 2007, Tingloys Bantay
that there is less hassle after apprehension. If funds and the ambiguous delineation of functions They also have internal problems. Dagat acquired new leadership, and began
we conduct patrols due to a reported sighting, among local government officers. Raoul Cola, a WWF consultant, is more critical receiving their compensation from the municipal
a member of the police accompanies us and Lope del Prado, barangay captain of San of what has transpired. Although he recognizes government. It remains to be seen how their Bantay
handles the processing of the case. Teodoro, defends the slow fund disbursement. He that the municipality did not have the resources Dagat will fare after these changes.

36 37
 E V O LV I N G R O L E S ,
CHANGING DEMANDS IV

T
he first three case studies in this series a sustained basis. Although the willingness-to-pay us, Mayor Sandoval and myself, a while to Sombrero Island, a landmark in Anilao

produced by WWF-Philippineson the survey indicated that the respondents preferred learn about CRM. It was new to us, and we
Turtle Islands, El Nido, and Tubbataha that the NGOs manage the fees, this was never didnt have technical knowledge about it then, office. Especially here, chances are there are
Reefsdiscussed the importance of really an option because of the legalities involved agrees Mayor Sandoval. Research results overlapping municipal waters. That is why this
governance in conservation, and this fourth study in collecting and managing such fees. In short, opened my eyes to the fact that CRM needed model is very applicable in other towns.
on Anilao makes the same point. The difference is the conservation fee system of Anilao would not my attention. I also noticed that if I didnt give it Support from the provincial and national
that, although it is a recent development, the local be where it is today, had the local government not my personal attention, my staff members were government could not be discounted, as well.
governments of Mabini and Tingloy have become given the issue the necessary support, attention, not enthusiastic about it. He also said that the Former Philippine President Fidel Ramos dive
the driving force behind their own conservation and patience. friendship between him and Mayor Atienza was in Anilao, and his planting of the famous cement
fee system. The role played by Mayor Rowell Sandoval a strong influence in unifying their municipalities cross on the Cathedral reef, was not merely
Prior to the conservation fee, the municipal after the 2004 elections is often referred to by conservation fees. Had we not been friends, it symbolic. It was important in bringing the LGUs
governments were on the sidelines of conservation the local government staff as the strongest might not have happened. This sentiment was around to conservation, says Cola.
work. Coastal resources management used to influence in pushing forward the CRMB and not lost on Raoul Cola. This indicates that in Highlighting the importance of the local
be the domain of resorts, divers, and NGOs. At the conservation fee. Interestingly, both Mayor pushing a conservation agenda, it is not enough government, however, does not mean understating
that time, the priority, particularly of the municipal Sandoval of Mabini and Mayor Atienza of to work on the formal level. The informal level may the role of the private sector. It would be equally
government of Mabini, was industrialization, as Tingloy were on their third and last terms as be more important, and social networks can be true to say that without the resorts, divers, and
evidenced by the factories lining the road on the mayors when they began championing coastal tapped as social capital for conservation. NGOs, the municipal leaders of Mabini and
way to the Calumpan Peninsula. resource management. When asked what This collaboration is also praised by the Tingloy would not have gotten as involved in
This remained the case until the need for brought about this change of heart, from their provincial government. We consider Mabini- conservation as they have been. As related by
conservation financing became very obvious, as passive involvement to taking the lead, Mayor Tingloy a model in the province, says Evelyn Mayor Sandoval, it was the result of research and
private funding could not support conservation on Atienza was very open in his reply: It took Estigoy of the provincial governments environment education activities that led to their enlightenment.

38 39
 The key apparently lies in the respective stakeholders References
ability to recognize and respect the changing roles they must Christie, P. In press. MPAs as biological successes and social failures in Southeast Asia. In J. B. Shipley, editor. Aquatic
Protected Areas as Fisheries Management Tools: Design, Use, and Evaluation of These Fully Protected Areas.
American Fisheries Society, Bethesda, Maryland.

play. The diving community and NGOs took the lead at a time Gonzales, E.C. et al. 2002. An economic assessment of the Municipality of Mabini, Batangas (an undergraduate study
leading to a course in Economics). Ateneo de Manila University. Quezon City. Unpublished.

when the local government was not yet ready to be there for Gozun B., et. al. 2005. Philippines environment monitor 2005: coastal and marine resource management. The World
Bank. Manila, Philippines.

Kabang Kalikasan ng Pilipinas / WWF-Philippines. 2005. Participatory project review and assessment [for Mabini &
conservation. When the time came for the local government Tingloy]. Unpublished.

Majanen, T. 2007. Resource use conicts in Mabini and Tingloy, the Philippines. Marine Policy 31, 480-487.

to take center stage, the private sector provided support. The Oracion, E. 2003. The dynamics of stakeholder participation in marine protected area development: a case study in
Batangas, Philippines. Silliman Journal: integrated coastal management issue 44 (1), 95-137.

NGOs role changed from that of implementer to facilitator. Oracion, E., Miller, M. and Christie, P. 2005. Marine protected areas for whom? Fisheries, tourism, and solidarity in a
Philippine community. Ocean & Coastal Management 48, 393-410.

Rosales, R.M. 2001. Estimating appropriate entrance fees for divers at Mabini-Tingloy dive sites. A study commissioned
This evolution of roles has not been easy, and the passing by Kabang Kalikasan ng Pilipinas / WWF-Philippines. Unpublished.

White, A. and Meneses, A. 2003. Mabini and Tingloy, Batangas. Philippine coral reefs through time, workshop

of the scepter is at best a bumpy ride. The national elections proceedings, second of the atlas of Philippine coral reefs series. Marine Science Institute, University of the
Philippines, Diliman, Quezon City, Philippines.

of May 2007 also meant a changing of the guard in the local

government. With the local government now at the helm, all

eyes are on them and how they will continue to manage not

just the conservation fees, but the natural and environmental

treasures that they have sworn to protect.