Stories From the Field

Philippines: Hinatuan Bay Marine Sanctuary

by Daisy Flores-Salgado and Toni Parras
Special thanks to Gemma Gades, Charito Lanzaderas, Jesica Inalisan and Nida Rizalado of Nagkahiusang Mangingisda Ng Hinatuan (NAMAHIN) and Mariter Quinonez and Jovelyn T. Cleofe of Center for Empowerment and Resource Development, Inc. (CERD)
Hinatuan Project work supported by Luthern World and Swiss Catholic Lenten Fund

October 2005

Kids play in a small banca, or outrigger canoe, Mahaba Island, Hinatuan Bay. Photo by Daisy Flores-Salgado

Introduction

The surface of the water lay like a sheet of silver velvet smoothed out toward the horizon. Numerous small islands dot the vista, whispy palm fronds adding bits of greenery to the blue-gray panorama. The sheer size of the water area is impressive - Hinatuan Bay is like a small sea in itself, stretching some 360 square kilometers (roughly 140 square miles). Its 67 kilometers of shoreline is made up of fingers of land lined with mangroves and secluded coves, while its seaward boundary is marked by an imposing line of reefbreak, which separates the bay from the open ocean.

Located in Surigao Del Sur Province in the northeastern part of Mindanao, the second largest island in the Philippines (see maps next page), the municipality of Hinatuan is home to more than 40,000 people, living in 24 barangays (villages). Half of the population lives along the coast; of these, roughly 1560 are fisherfolk.

Left: Map of the Republic of the Philippines. The location of Hinatuan Bay is encircled in pink. Base map by ReefBase (www.reefbase.org). Below: Closer view of Mindanao Island. Hinatuan Bay is encircled in blue. Map by CERD

These people live against a backdrop of mangrove thickets and patch reefs, which harbor an array of marinelife, including various reef fish, clams, crabs and other shellfish, five species of marine turtles, eight seagrass species, and commercially valuable species such as sea cucumbers and rabbitfish, as well as the dugong, an endangered marine mammal (also known as a seacow). A freshwater spring seeping from a hillside cave in the village of Port Lamon draws many pleasure-seekers to swim in the crystal clear waters that form a deep pool before flowing down a scenic tree-lined river to the main bay.

Threats

The main threats to Hinatuan's natural resources include continuous mangrove cutting for building fishponds, illegal fishing practices and overfishing, and poaching inside the fish sanctuaries. Use of dynamite and triple mesh nets (multiple nets of various sizes overlaid together) has led to a decline in the health of the bay it and its available harvest. Goatfish (Arridae sp.), which had been abundant in the bay throughout the 70s-80s, has all since disappeared since 1994. In addition, commercial fishers using big boats and high-tech gear encroached into bay waters, competing with the local fishers. Also of concern is siltation of seagrass beds from limestone quarrying, and algal overgrowth due to domestic wastes.

Turning the Tide: The birth of Hinatuan Bay's Marine Reserves

Recognizing the need for intervention, in 1997 and 1998, the Center for Empowerment and Resource Development, Inc. (CERD), a local non-government organization based out of Manila, held a Participatory Learning in Action (PLA) workshop in San Juan (on the mainland) and Mahaba Island, respectively. Local fisherfolks were invited to attend in order to identify the pressing issues and problems that affect their primary source of income. They were presented with a series of sessions on coastal and marine ecosystems and the importance of conservation, protection and management in order to sustain their livelihood. Subsequently, a fisherfolk's organization was formed, which included those representatives from Mahaba Island that attended.

However, much of the training took place in San Juan. Due to the difficulties of traveling to and from the mainland - especially during rainy seasons, Mahaba residents decided to form another organization on their island, called LUMOT Development (which originally stood for "Ladies in United Movement Onward to Development"; see related story). Made up entirely of women, the 23-member group underwent capability building seminars and trainings to deepen their understanding of the coastal environment and their responsibility for managing its resources.

In 1998, 105 representatives from Hinatuarn - including island residents and members of local government and People's Organizations (POs)- went on an exposure trip to Baliangao Wetland Park, also in Mindinao. The group compared the condition of corals and seagrasses in the seven-year old marine reserve to those in Hinatuan Bay; those in Baliangao Marine Reserve were much healthier. CERD then presented historical data on fish abundance in Hinatuan from the 1970s, which was much greater than now. These two eye-openers challenged Hinatuan residents to better manage their marine resources.

After that, CERD held a fish sanctuary orientation in Mahaba for members of LUMOT.

A volunteer from the British service organization Voluntary Service Overseas (VSO) helped locate the best area to position the marine reserve. LUMOT held a raffle to raise money to buy marker buoys, and finally, the 19-hectare Mahaba fish sanctuary was declared.

Subsequently, seven other coastal villages in Hinatuan created their own sanctuaries. Now, there are eight fish sanctuaries totaling 441 hectares in Hinatuan Bay, and a 136-hectare mangrove reforestation project undertaken by the fisherfolks organizations in six villages organized by CERD.

The Case of Mahaba

The quaint homes of Mahaba Island, HInatuan Bay. Photo by Daisy Flores-Salgado

A 20-minute boat ride from the mainland, the village of Mahaba is tranquil with its soft sand dunes weaving through a maze of tall coconut palms. Modest palm-thatched homes adorned with colorful gardens line the clean walkways. Extensive mangrove forests stretch around the island. A casual stroll through the village reveals a variety of fishing gear in use; a woman and her son unravel a net in the shallows for catching reef fish; a man stows his bamboo fish traps for catching eels and other fish in a canoe; children play in front of a cylindrical fish trap; another man readies a larger fish cage for catching bigger fish in deeper waters.

A variety of fish traps used in Mahaba, Hinatuan Bay. Photos by Toni Parras.

Just offshore, there is community fish pen to raise rabbitfish (Siganid sp.) and lobster (Panularus sp.), which each sell for P1000 (roughly US$20) per kilo. In addition, residents are building a mud crab pen in the mangroves. Mud crabs can fetch as much as P180-250 per kilo, roughly US$4-5. The mangroves are so lush and beautiful that some people are even talking about ecotourism ideas.

Left: Rabbitfish (Siganid sp.)      Right: Spiny lobster (Panularus sp.)
Both raised in pens, Hinatuan Bay. Photos by Toni Parras

Gemma Gades, a mother of five and active leader in the community, became president of LUMOT in 1999. It was during her tenure that the organization was brought to new heights, primarily because members learned to better appreciate their resource management responsibilities. At first, LUMOT members were all women. Men had no time to join activities because they were busy fishing or working. When it came time to install the marker buoys for the sanctuaries, however, the women needed help and naturally turned to their husbands.

Gemma with her daughter and husband in their Mahaba home. Photos by Daisy Flores-Salgado

In 1999, three men - all husbands of female members - joined the organization, and in 2000, more followed as men saw the efforts that were being taken to protect and improve their livelihood and realized they should also be involved. LUMOT's acronym remained the same, but now stands for "Ladies in Unity with Men onwards to Development." While other villages have their own similar People's Organizations (POs), as they are called, many still separate men's and women; LUMOT is unique in this regard. In 2003, the organization was awarded "Best People's Organization in Caraga Region" by the Philippines Department of Fisheries, the World Bank, and the Community-Based Resource Management Project.

Meetings and workshops are held in the multi-purpose gathering hall in Mahaba, which also serves as a cinema to raise money, screening the latest videos available from the mainland. LUMOT secretary Veronico P. Canzoderez meticulously records attendees' names in a record book. Trainings include fish sanctuary introduction/orientation for members of the POs and new CERD staff.

Working to improve Hinatuan Bay, from left to right: Daisy Flores-Salgado (kneeling); Gemma Gades, LUMOT President (standing); Jovelyn T. Cleofe, Executive Director of CERD; Arceli C. Aguilar, Advocacy Officer, CERD; Dr. Loida C. Corpus, Board Treasurer, CERD; Mariter Quiñonez, Program Coordinator, CERD. Photo by Toni Parras

By their own account, the POs and communities benefit from LMMA Network involvement in various ways. The Learning framework is a key resource for them, listing factors to measure and methods to use in monitoring. CERD is particularly interested in LMMA for data analysis of monitoring data. Also, being affiliated with an organization such as the LMMA Network gives them more bargaining leverage with local and municipal governments due to the "credibility factor" of having international contacts, exposure and funding.

Progress

Despite the initial excitement at creating the marine reserves, the first three years after their establishment were challenging. From 1999 to 2002 there was blatant encroachment taking place. In 2001 alone, 300 fishers were apprehended. From 2003 it slowly began getting better due to patrolling and enforcement by the POs, who served as voluntary fish wardens.

In 1999, a fish survey was conducted by the University of the Philippines' Marine Science Institute (UP-MSI). Another fish survey was conducted in 2000 by VSO volunteers, doing some transects inside and some outside the protected areas. Since these two teams used different methods for their surveys, it was hard to compare the data. Today, fish surveys are conducted once a year, mostly by CERD technical staff with the help of locally-trained monitors using manta tows and fish visual census methods. In addition, CERD helps with the monitoring of coral cover, seagrass and fish diversity inside and outside the protected areas. They also handle the analyzing of collected data.

The POs oversee fish catch monitoring, keeping track of the weight, number, length and species caught, and the gear and time employed in doing so. The POs give this data to CERD, who then consolidates the information and makes recommendations to the municipal local government unit (LGU) on specific regulatory measures to take, such as banning 'active' gear like fine mesh nets, trolls and spears, and imposing minimum sizes for lobster, etc. CERD also has its own program of monitoring both POs and communities to ensure that all stakeholders are benefiting from the sanctuaries, not just a select few.

Mangrove monitoring also takes place every six months. In the Philippines, all mangroves are protected by national law. The community has the right to protect and manage any mangrove areas that sit on government or untitled land. The biggest threats to mangroves include cutting for firewood and fence building, and clearing for commercial fish pond production. Protecting mangrove areas are critical, since they are the spawning ground and nurseries for many marine species, as well as a natural means of shoreline protection from waves and storms.

Since the creation of the fish sanctuaries, at least three fish species - gizzard shad (Anodontostoma chacunda, known locally as Kabasi), rabbitfish (Siganid sp.) and seabass (Centropomidae sp.) have increased in both size and numbers, according to monitoring data. Shrimp and shellfish are more abundant as well. This has improved the livelihood of fishers on many levels - the increased income from having more fish and shellfish, compounded by the higher price fetched for larger-sized fish. In addition, there have been increased sightings of endangered dugongs and sea turtles.

Ongoing Challenges

One of the downsides to successfully restoring certain marine species is infiltration of fishers from other provinces who know the catch is good here. Another unfortunate side affect is that, due to such increases in fish and shellfish, there have been organized moves to remove the fish sanctuaries, now seen as not needed anymore. CERD and the various POs are trying to address this by conducting massive education and information campaigns; providing conflict resolution at the community level and negotiations with petitioners and fisherfolks; encouraging joint management and protection of marine resources between local groups and government units; and lobbying for a comprehensive municipal fisheries ordinance and implementation of regulatory measures, such as restrictions on fishing gears, water zonation, etc. In addition, CERD provides training in household savings generation for community members, and POs hold beach cleanups within their villages. CERD also has its own program of monitoring both POs and communities to ensure that all stakeholders are benefiting from the sanctuaries, not just a select few.

In the beginning, the POs were the only ones patrolling the reserves each night, deputized for making citizen's arrests. At first, getting people to comply was difficult. But consistency is the key. Zarena Mercado came across a husband and wife fishing in the sanctuary one night. She did not want to arrest them because she knew they were just trying to feed their family, but she did anyway, because she also knew the need to be consistent in order for people to take the consequences of breaking the law seriously. She and her associate, Mae Carla Sharon Buico, confiscated all their gear and brought them in. Initially there was a fine of only P400-500 (US$8-10) for first time offenses, now it is P2,000 (US$40) plus gear confiscation due to a new municipal ordinance. Permissible gear includes gill net, fish traps, hook and line, long line, fish corrals, lift nets, spear gun using snorkel only.

This strict adherence to the rules has lead to death threats for some PO members. Arnold Tiro, CERD Community Development and Advocacy Officer, and Mariter both have a bounty on their heads for their work in patrolling and enforcement. Violators send death threats via text messages on their cell phones, or more directly by surrounding - or even entering - their homes.

William Perolina (photo at left by Christian Encabo), president of the PO Danggit, summarizes his experience: "If you don't implement the law you have many friends. If you implement the law you have many enemies...Many threaten to kill you...I experienced it...One time there was a pair of violators that I apprehended. That night, they came to my house. They pointed a spear at me...One of them even said to kill me..."

Still, there has been a decline in violations by almost 50-70%. A lot depends on the political will of the LGU - that is, the chief of police and the mayor. The current mayor of Hinatuan, Alicia B. Momongan, is very supportive of the fish sanctuaries and tough on enforcement.

"I am more of a strict person. Nobody is excused. The moment they violate, then we have to bring these people to justice. They are apprehended by the Philippine National Police and they are brought here. By that alone, these are deterrents to them."

There is a municipal ordinance that covers all of the MPAs. Today, there are no commercial fishers allowed in the bay by law. Dynamite use is also illegal. Previously quite common, in 2004 there were only 1-2 blasts. Residents have given up the practice, but outsiders still come in using dynamite, and it is hard to catch them. Often violators have guns, and the POs aren't equipped to deal with violent confrontations.

"We are always worried that the violators may have firearms. On the other hand, we don't have anything. We don't even have a bolo [machete]. Ours is not a violent way of catching them," says Rosalito Abines, secretary of the PO NAMAHIN Federation.

So the POs lobbied their LGU for the Philippine National Police (PNP) to help with patrolling. This still doesn't ensure protection, as sometimes police are bribed, a judge turns a blind eye to a case, or there are blackmail or conspiracy incidents. Other continuing challenges include weather disturbances and siltation of the seawater.

Words of Wisdom

Do the POs have any advice to give others who are experiencing similar problems with their marine resources? Mariter Quiñonez, Program Coordinator of CERD, answers: "If you have the law to manage [your resources], you should follow it. If you see resources are being depleted, you should take action to manage them. There's no more tomorrow...Fishers from other provinces come here to fish because they know there are fish here. We say to them - 'you should manage your own resources in your own municipality so you'll have resources there.'"

Regarding a nearby marine sanctuary outside their province, the problem is that it is managed by the LGU, not the PO, and the LGU is letting commercial fishers in their municipal waters, against the community's wishes. LUMOT would offer to give a proper orientation if they asked for help. The following are some key points that Hinatuan POs and community members have learned in the course of their coastal resource management work:

• Community support and ownership of the resource management strategies are crucial factors for effectiveness and sustainability of these efforts. Other community members have to be involved and realize the importance of protecting and managing the resources.
• Management is effective if involvement of both men and women in planning, decision-making and implementation is ensured. It also facilitates positive changes in men and women's relation in the household.
• PO-LGU partnership - could happen if fisherfolks are empowered and capable of negotiating their concerns/agenda.
• Change in values and perspectives of the stakeholders - from pure exploitation towards sustainable use, protection & management - helps sustain the initiatives.
• Resource management efforts should be complimented by livelihood intervention at the household level.

The following is a brief glimpse of some of the sanctuaries in Hinatuan:

Cambatong

The Cambatong fish sanctuary is 11.29 hectares, tucked within the fingers of the coast at the north end of the Bay, which is so lush and scenic that a past attempt at an ecotourism hotel can still be seen]. Photo by Toni Parras

Milagros watches over the Cambatong community fish pen, where they are raising rabbitfish (Siganid sp.). The pens contain a total of roughly 9,000 fish, which are fed natural seaweed/algae. Stocked at P3.75 per piece (less than US10¢), they will sell in 6-8 months for 7 to 10 times that price. Photo by Toni Parras

Tiwi Municipal Fish Sanctuary

Hundreds of white marker buoys dot the 221-hectare Tiwi Municipal Fish Sanctuary. The overwhelming presence of the buoys makes it difficult for anyone to deny the boundaries of the protected area. Photo by Toni Parras

Port Lamon

The stunningly clear blue waters of Port Lamon, HInatuan Bay entice locals and tourists alike. Photo by Daisy Flores-Salgado

San Juan

Left: One of the guard huts for San Juan's mangrove preserve. Right: A child stands next to a small harvest of sea cucumbers. San Juan has 39 hectares of fish sanctuary and 410 hectares of mangrove preserves. Photos by Toni Parras