United Nations UNEP/GEF South China Sea Global Environmental Department of Environment

Environment Programme Project Facility and Natural Resources

REVERSING ENVIRONMENTAL DEGRADATION TRENDS IN THE SOUTH CHINA SEA

AND GULF OF THAILAND

Mangrove National Action Plan

(Philippines)

Department of Environment and Natural Resources

2003

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 Executive Summary

Despite increasing recognition of the value of the mangrove forests and the intensified efforts toward their
conservation, the destruction of these forests in the Philippines continues. From an area covering 450,000
hectares at the start of the 20th century, the mangrove forests in the country now covers only about a third of the
aforementioned area. Reasons for the diminution in the area over the years include the conversion of
mangroves into fishponds or shrimp farms, unregulated and destructive tanbark tapping, indiscriminate cutting
for fuel and charcoal production, conversion into harbors/ports and settlement areas as more and more people
migrate into the mangrove forests for their habitats and sources of income. In the past certain policy issuances
and regulations have also tended to encourage the destruction of the rich mangrove forest resources of the
country. Obviously, unless immediate and effective actions are put in place to arrest the further degradation of
this valuable forest type, it will be gone in a matter of time.
The formulation of this Action Plan stemmed from the desire to conserve and/or preserve the remaining
mangrove forests the country has. The Technical Assistance of UNEP/GEF to the Government of the
Philippines, specifically through the project entitled, “Reversing Environmental Degradation Trends in the South
China Sea and the Gulf of Thailand” implemented by the Coastal Marine Management Office and the
Environment Management Bureau of the Department of Environment and Natural Resources has made
possible this Action Plan. The strategic and short term components of the Action Plan were based on the
Revised Philippine Master Plan for Forestry Development, specifically the sub sector on the management of the
mangrove forests of the country. The vision, objectives and strategies enunciated in the Master Plan were
validated by a select group of researchers, coastal and marine resources management specialists,
academicians, and coastal development workers during the Participatory Workshop and Action Planning for
Mangrove Conservation held back-to-back with the first meeting of the National Mangrove Committee held in
September 2003. It is the hope of the Philippine Government that this Action Plan would pave the way for the
harmonization and further intensification of all the efforts towards the sustainable development, management
and conservation of the Philippine mangrove forests.
This Action Plan recognized the following issues and concerns confronting the management of mangrove
forests in the country other than their continued degradation: non-delineation of the boundaries of the mangrove
forests, absence of firm efforts towards reversion of abandoned, undeveloped and unproductive fishponds to
production or protection mangrove forests, lack of public awareness on the importance of the mangrove forests
and their resources, overlapping functions and conflicting policies and legislation of different national
government agencies and the LGUs, the non-appropriateness of the existing CBFMA for mangrove forests, the
absence of policies to address existence of fully developed and productive illegal fishponds in mangrove timber
lands and protected areas, some institutional constraints in the management and administration of the
Philippine mangrove forests, and the lack of a comprehensive research and development program on the
production, utilization, economics, marketing and other social aspects of mangrove management.. Some
positive developments noted include the massive drive initiated by both the government and the private sector
including the NGOs, the POs and a number of LGUs on the protection of the mangroves, the declaration of vast
hectarage of mangrove forests into wilderness and protected areas, the establishment of the Pagbilao
Mangrove Genetic Resource Area, the increased participation of communities in the management and
conservation of the mangroves, and the streamlining of the regulation and administration over Philippine
mangrove forests.
The Philippine Mangroves Action Plan is premised on the goal of having the country’s mangrove forests and the
resources therein developed and managed on a sustainable basis for the economic and environmental benefits
of the people. This goal for the mangrove forests of the country is translated into the following objectives:
a. preservation of the remaining mangrove forests bringing them under effective management and
enhancing their biological productivity;
b. preservation of parts of the mangrove areas for protection of floral and faunal biodiversity;
c. expansion of mangroves through reforestation and plantation development;
d. effecting equitable access to mangroves on multiple-use, multiple-user basis;
e. provision of adequate supply of mangrove products and services to various end users while at the
same time conserving and expanding the resources;
f. promotion of economic development in areas around mangrove forests especially in ways that enhance
mangrove protection and management; and
g. strengthening of institutional arrangements for ensuring sustained management of mangrove resources
in the country.

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Recommended strategic and immediate actions to attain the above mentioned objectives are the following:

a. delineation of the mangrove permanent forest estate;

b. sustaining national resource inventory/assessment of mangrove forests in the country;
c. establishment of more genetic resources areas;
d. adoption of C & I for sustainable management of mangrove forests;
e. expansion of the existing mangrove forest areas;
f. lobbying for the amendment of RA7161 to exempt planted mangrove trees from the cutting ban
provision;
g. strict regulation of the conversion of mangroves into other land uses;
h. review and strengthening of the policy on reversion of abandoned, undeveloped and unproductive
fishponds/shrimp farms to mangrove forest estates;
i. studying and establishing appropriate models for CBFM in mangrove forests;
j. studying and formulating policy/ies to address existing productive illegal fishponds and/or shrimp farms;
k. strengthening IEC on mangrove forests/ecosystems;
l. sustaining training for LGUs and mangrove/coastal communities on the sustainable management of
mangroves;
m. promotion of additional alternative livelihood opportunities for mangrove forest resources users, and;
n. prioritization of research and development on the Philippine mangrove forests.

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 List of Acronyms
ADB Asian Development Bank
A and D Alienable and Disposable Land
AO Administrative Order
BFAR Bureau of Fisheries and Aquatic Resources
BFD Bureau of Forest Development (now the FMB)
CBFM Community Based Forest Management
CBFMA Community Based Forest Management Agreement
CENRO Community Environment and Natural Resources Office
CFMA Community Forestry Management Agreement
C&I Criteria and Indicators
CMMO Coastal Marine Management Office
CRMF Community Resources Management Framework
CSC Certificate of Stewardship Contract
DA Department of Agriculture
DAO DENR Administrative Order
DBP Development Bank of the Philippines
DENR Department of Environment and Natural Resources
EO Executive Order
FAO Food and Agriculture Office of the United Nations
FLA Fishpond Lease Agreement
FLMA Forest Land Management Agreement
FMB Forest Management Bureau, DENR
FSP Fisheries Sector Program
GEF Global Environment Facility
GRA Genetic Resources Area
ICM Integrated Coastal Management
IEC Information, Education and Communication
LGC Local Government Code
LGU Local Government Unit
LOI Letter of Instruction
MAO Ministry Administrative Order
MC Memorandum Circular
MFARMC Municipal Fisheries and Agencies Resources Management Council
MPFD Philippine Master Plan for Forestry Development
MSA Mangrove Stewardship Agreement
NAMRIA National Mapping and Resources Inventory Authority
NFP National Forestation Program
NFRI National Forest Resources Inventory
NGO Non-government Organization
NIPAS National Integrated Protected Areas System
NMC National Mangrove Committee
NTFP Non-Timber Forest Products
NWFP Non-wood Forest Products
PACBRMA Protected Area Community-Based Resource Management Agreement
PAWB Parks and Wildlife Bureau
PD Presidential Decree
PO People’s Organization
PP Presidential Proclamation
RA Republic Act
UNDP United Nations Development Programme
UNESCO United Nations Education and Scientific Commission

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List of Tables

1 – Estimates of Mangrove Forest in the Philippines (1929-2003)

2 – Distribution of Mangrove Forests in the Philippines

3 – Fishpond Lease Agreement Issued from 1973 to September 2002

4 – Distribution of Mangrove Forest Reserves Converted into Fishpond

as of 1985

5 – Timeframe and Responsibility Centers for the Implementation of

the Philippine Mangrove Action Plan

List of Appendices

1 – Classification of Philippine Mangrove Plans

2 – Land Cover and Mangrove Statistics by Province

3 – Mangrove Forest Reserve and Wilderness Area

4 – Total Number of FLAs issued from 1973 to September 2002

5 – Distribution of Degraded Mangrove Forest and Tidal Flats Potential

for Reforestation/Rehabilitation

6 – List of Mangrove Stewardship Agreements Issued

7 – Conservation Priority Areas for Mangroves in the Philippines

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 THE PHILIPPINE MANGROVE ACTION PLAN

Table of Contents

Executive Summary

List of Acronyms

1.0 Introduction

2.0 The Mangrove Ecosystem: Its ecological and Economic Significance

3.0 The Philippine Mangroves: Current State and Uses

3.1 Species composition of the Philippine mangrove forest
3.2 Area and Distribution of mangroves on the Philippines
3.3 Land uses within the mangrove forests of the Philippines
3.3.1 Mangrove reserves
3.3.2 Fishpond
3.3.3 Degraded mangrove forests
3.3.4 Other land uses within mangrove forests

4.0 Governance and Policies Relevant to the Management and Development of Mangroves in the
Philippines
4.1 The period of the 1970s
4.2 The period of the 1980s
4.3 The period of the 1990s
4.4 The period of the 2000s

5.0 Issues, Concerns and other Developments on the Management, Conservation and Development of
Mangroves in the Philippines
5.1 Continued degradation and threats of destruction
5.2 Overlapping functions and conflicting policies and legislation of different government agencies
and LGUs
5.3 Appropriateness of the existing CBFM agreement for mangrove forests
5.4 Absence of policy to address existence of fully developed and productive illegal fishponds in
mangrove timber lands and protected areas
5.5 The Pagbilao Mangrove Genetic Resources Area
5.6 Community-based Mangrove Forest Management
5.7 Streamlining the management of mangrove resources/institutionalizing mangrove resources
development
5.8 Institutional constraints in the management of mangrove forests
5.9 Research and Development on Philippine Mangrove

6.0 Action Plan for the Sustainable Development and Management of Mangrove Forest in the Philippines
6.1 Premises of the action plan
6.2 Goals and Objectives of the Development and Management of the Philippine Mangrove
6.3 Recommended Strategies and Immediate Actions
6.3.1 Delineation of mangrove permanent forest state
6.3.2 Sustain national resource inventory/assessment of mangrove of mangrove forests
in the country
6.3.3 Replicate the Pagbilao GRS to consider other environmental gradients
6.3.4 Adoption of C and I for management of mangrove forests]
6.3.5 Expand the mangrove area
6.3.6 Lobby for the amendment of RA 7161 to exempt planted mangrove trees from the
cutting ban provision
6.3.7 Regulate strictly the conversion of mangroves into other land uses
6.3.8 Review and strengthen policy on reversion of abandoned, under developed and
unproductive fishponds to mangrove forests states

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 6.3.9 Study and establish appropriate model for CBFM in mangroves
6.3.10 Study and formulate policy to address existing productive illegal fishponds and/or
shrimp farms
6.3.11 Strengthen IEC on mangrove forests/ecosystems
6.3.12 Sustain training for LGUs and mangrove/coastal communities on sustainable
management of mangroves
6.3.13 Promote additional alternative livelihood opportunities for mangrove forest resource
users
6.3.14 Prioritization of research and development on the mangrove forests

7.0 Time Frame and Responsibility Centers in the Implementation of the Action Plan

8.0 References

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THE PHILIPPINE MANGROVE ACTION PLAN

1.0 INTRODUCTION
The archipelagic nature of the Philippines has endowed it with rich mangrove forests scattered all
over its 7,100 islands. Such a wealth, however, has gradually been reduced through the years. At
the start of the previous century, the mangrove forests in the country stood at 450,000 hectares
(Brown and Fischer 1918). Almost a century later, the area covered by the mangroves is down to an
estimated 117,000 hectares or roughly less than 30% of the original extent (Melana et al. 2000).
Much of what has been left are second growth forests. Whatever old growth stands there are exist in
small and highly fragmented stands in certain parts of the country. In a rather belated manner,
attempts are now being undertaken to preserve whatever remaining mangrove forests the country
has. Despite these efforts, the destruction of the mangroves in the country still continues. Unless
immediate and effective actions are undertaken to arrest the further degradation of these valuable
forest type, they may be gone in a matter of time.
2.0 THE MANGROVE ECOSYSTEM: ITS ECOLOGICAL AND ECONOMIC SIGNIFICANCE
Mangroves are groups of trees and shrubs that grow in the shallow tidal waters of tropical and
subtropical coastlines of the world. They can also be found along rivers, streams and tributaries near
coastal areas where the water is generally brackish. Mangrove tree species possess unique
physiological characteristics that enable them to cope with a constantly changing physical
environment characterized by the presence of the drying effects of sun and wind, frequent osmotic
imbalance caused by the high salinity of seawater, and soils that are salty, always waterlogged and
oxygen deficient. The vegetation in mangrove ecosystems has to contend also with the adverse tidal
actions, exposure to freshwater at times, the destructive effects of storm surges and the diurnal and
seasonal fluctuations of temperature.

Mangrove plants have evolved adaptive mechanisms to enable them to survive, grow and perpetuate
themselves under such environmental conditions. For instance, exclusion of sodium and chloride ions
at the roots by a process called ultra filtration allows some species to remove salt from seawater as
water is absorbed for normal plant physiological processes. Some possess special salt secreting
glands in their leaves. Still, other mangrove plant species remove salt from their system by storing it
in older leaves which are eventually shed from the plant.

Some mangrove trees have pneumatophores which are specialized root structures that aerate those parts
of the mangrove plants, specifically those root structures that are buried in anaerobic soil and are deprived
of an adequate supply of oxygen.

For some species that do not have pneumatophores, oxygen exchange occurs in lenticels that are located
in the lower part of their trunks. This is a characteristic of mangrove species typically found on elevated
sites toward the landward zone where lengthy tidal inundation occurs less frequently.

Most mangrove tree species exhibit vivipary. Seeds often germinate while still attached to the mother
tree. These propagules are then shed and float with the tides and currents until a suitable substrate is
encountered. Once stranded or trapped, the seedling begins rapid development of roots and leaves in
order to establish itself within the soil before the next high tide washes it away. By this method, natural
regeneration occurs and the species is able to perpetuate itself.

The ecological importance of mangrove ecosystems has long been established. However, a lack of
understanding and awareness of this significance exists especially among the people who live within
and/or proximal to mangrove forests and who derive their means of living from gathering the resources
found within such ecosystem. Melana et. al. (2000) and Hamilton et. al. (1989) listed the following
ecological benefits derived from the mangrove ecosystems of the world:

• Support to fisheries production in coastal areas by providing breeding and nursery grounds
for fish, prawns and crabs;
• Production of leaf litter and detritus matter which are valuable sources of food for animals in
these areas;
• Protection of coastal areas and communities from storm surges, typhoons, and strong tidal
waves and currents by acting as physical barriers;
• Serving as retention basin for flood waters;
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• Providing protection against soil erosion in coastal areas and reversing the erosion process
by accelerating soil deposition in such areas;
• Acting as sinks to pollutants in coastal areas by trapping and/or absorbing such damaging
chemicals, or dissipating atmospheric pollutants making them less toxic through dispersion
and prevention of lethal concentration of the hazardous chemicals;
• Sequestration of carbon dioxide reducing the atmospheric load of the gas;
• Creation of peats, which are valuable as fuels or as substrate for planting stock production;
• Provision of aesthetics and recreational benefits (e.g. ecotourism, bird watching and
observation of other wildlife);
• Serving as mating, breeding and nesting grounds for important birds/fowls and other wildlife
species.

Last, but not the least, the mangrove forest resources of the world have been perennially the source
of certain basic needs of humans. These include timber and wood for housing materials, firewood
and charcoal, and poles for the small-scale coastal fishing enterprises in the tropics. Fruits likewise, if
certain mangrove species are edible and can be harvested for additional income. The mangroves are
also sources of tannin, alcohol and medicine. Mangrove ecosystems, too, have become favorite
areas for aquaculture ventures not to mention the mollusks and crustaceans that can be gathered
from the estuarine areas and tidal mudflats in mangrove forests. Dixon (1989) as cited by Melana et
al. (2000) valued a complete mangrove ecosystem at US$500 to 1500 per hectare per year. This
represents the minimum monetary value that would be lost when such mangroves were converted to
other land uses.
3.0 THE PHILIPPINE MANGROVES: CURRENT STATE AND USES
3.1 Species Composition of the Philippine Mangrove Forests
The species composition of the mangrove forests in the Philippines is very diverse. Vegetation in
these areas can be categorized into two, the true mangroves and the mangrove associates. In 1987,
the UNDP/UNESCO enumerated 42 species in the first category belonging to 16 families while the
second category consists of 37 species belonging to 21 families. The same project also identified 7
species of vines and 14 species of epiphytes belonging to 3 and 8 families, respectively. This
classification appears as Appendix 1 of this Action Plan. In a later date, Melana (1992) reported a
total of 93 plant species in the Philippine mangroves. These have been grouped into 36 true
mangrove species representing 17 families, 34 associated species representing 16 families; 12
species of vines under 4 families; and 11 species of epiphytes belonging to 12 families which include
a species of orchids. More recently, Melana and Gonzales (1996) mentioned that the Philippine
mangrove flora consist of 47 true mangroves and associated species belonging to 26 families.
Dominant families among the true mangroves are those of the Avicenniaceae, Bombacaceae,
Combretaceae, Meliaceae, Myrsinaceae, Rhizophoraceae, Rubiaceae and Sonneratiaceae. The
mangrove associates on the other hand are represented by members of the Acanthaceae,
Asclepiadaceae, Barringtoniaceae, Bignoniaceae, Convulvolaceae, Cyperaceae, Euphorbiaceae,
Flagellariaceae, Lythraceae, Malphigiaceae, Malvaceae, Orchidaceae and Sterculiaceae.

3.2 Area and Distribution of Mangroves in the Philippines

As stated earlier, there has been a significant reduction in the area of the mangrove forests in the
country. Table 1 provides a historical estimates of the hectarage of the forests as early as 1920.

Table 1 Estimates of the mangrove forests in the Philippines (1920 – 2003).

YEAR ESTIMATED AREA SOURCE

(hectares)
1920 450,000 Brown and Fischer1
1950 375,020 Aerial photographs2
1972 227,947 Landsat3
1988 139,100 NFRI4
1988 149,400 SPOT5
1988 170,410 SPOT6
1988 258,390 SPOT7
2003 160,265 FMB8

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Notes:
1
Brown, W. and A. Fischer. 1920. Minor Forest Products of the Philippines. Bureau of Printing, Manila.
2
Based on aerial photographs taken in the late 1940s and early 1950s. NAMRIA (Unpublished data).
3
Based on digital analysis of 1972 LANDSAT 1 data. Natural Resources Management Center, Mangrove Inventory of the
Philippines using Landsat Data (1979).
4
Philippine-German Forest Resources Inventory Project. 1988. National Forest Resources of the Philippines, Department of
Environment and Natural Resources (DENR).
5
Swedish Space Corporation, 1988. Final report on mapping of the natural conditions of the Philippines (based on 1987 SPOT
Satellite images).
6
Based on manual interpretation of 1987 SPOT satellite data by NAMRIA (unpublished data).
7
Based on manual interpretation of 1987 SPOT Satellite data by Dr. Vande Vusse (Unpublished data).
8
Forest Management Bureau, DENR.

Of the remaining mangrove forests in the country in 1989, approximately 95% were second growth
and the remaining 5% were old growth stands (PFS, 1989) which were mostly located in Palawan.
Back in 1989 based on the results of the NFRI inventory, the remaining mangroves in the Philippines
were mostly found along the seashores or brackish waters of Regions 4, 9, and 10 which altogether
account for 85% of the total mangrove forests.

Current estimates indicate that the Philippines mangroves occupy 159,967 hectares which is just
0.55% of the total land area of the country. Table 2 shows the geographical distribution of these
mangroves in the Philippine archipelago. The distribution by province appears as Appendix 2 in this
action plan.

Table 2 Distribution of mangrove forests in the Philippines (FMB, 2003).

Region Mangrove Area (ha) % of Total Mangrove Forest1

CAR - -
1 172 0.01
2 5,572 0.22
3 157 0.01
4 55,089 1.21
NCR - -
5 9,962 0.54
6 3,577 0.19
7 12,972 0.95
8 17,028 0.81
9 21,074 1.38
10 1,759 0.13
11 1,902 0.07
12 2,064 0.14
13 23,275 1.27
ARMM 5,364 0.52
TOTAL 159,967 0.55
1
Figures are ratio of mangrove area over the total land area by region/national.

Bulk of the remaining mangrove forests are located in Regions 4, 7, 8, 9 and 13. Of this area, 24,950
hectares are the mangrove forests located along the South China Sea.

3.3 Land Uses Within the Mangrove Forests of the Philippines

3.3.1 Mangrove Reserves
As early as 1981, concern has been raised already on the need to conserve the remaining mangrove
forests in the country. Back then, Presidential Proclamation (PP) 2151 declared approximately 4,236
hectares as Mangrove Wilderness Areas in the country. This issuance was followed by another PP
2152 which proclaimed an aggregate area of 74,267 hectares as Mangrove Swamp Forest Reserves.
At that time the Wilderness Areas were restricted to any form of utilization except for research and
other scientific purposes, fry gathering and recreation. The primary objective of PP 2151 was to

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preserve the existing gene pool of both mangrove flora and fauna in these areas. In the mangrove
swamp reserves, sustainable small-scale utilization of forest resources was allowed but conversion to
other land uses such as fishponds, saltponds, resettlement, and agricultural crop production were
strictly prohibited. The distribution and extent of these areas based on the said two presidential
proclamations is shown in Appendix 3. Of the total area declared as such, 35% were found in
Palawan followed by Surigao del Norte which had a coverage of 22% of the total mangrove forest
reserve. In the wilderness area category, more than 50% of the total area was found in Surigao del
Norte followed by Bohol accounting for 29% of the total area. Over the years, however, a sizable area
of these declared wilderness and reserves have been converted into fishponds and have been
continuously subjected to cutting and tanbark extraction.

A decade later, there were renewed efforts towards preservation/conservation of the remaining
mangrove forests in the country. In 1992, Republic Act (RA) No. 7586 issued which mandated the
establishment and management of the National Integrated Protected Areas System (NIPAS). This
promulgation provided teeth to the strategy of preserving the remaining mangrove forests in the
country as embodied in the Master Plan of 1990. Consequently, a number of high biodiversity
mangrove forests in the country were to become part of the protected areas system in the country and
as part of protected landscapes/seascapes, wildlife sanctuary, nature reserves, etc.

The enactment of RA No. 7586 also gave way to a number of Presidential Proclamations declaring
certain parts of the Philippine archipelago as marine protected areas. For instance, PP No. 431 dated
31 July 1994 declared the coastal area and islands within Pujada Bay in Mati, Davao Oriental as a
protected landscape/seascape. The destruction of the coastal and the marine ecosystems including
the mangroves, seagrass, and coral reefs or the conduct of activities that could destroy or disturb
those ecosystems and the resources were prohibited. Another was PP No. 447, series of 1994
designating Palaui Island and surrounding islets and marine waters in Sta. Ana, Cagayan as a marine
protected area. The same prohibitions as contained in PP No, 431 apply in this area. Recently, PP
No. 271 (23 April 2000) was issued for the Great and Little Sta. Cruz Islands Protected Landscape
and Seascape in Zamboanga City; PP No. 272 (23 April 2000) declaring the Chico Mangrove
Wilderness in Cawayan, Masbate as the Chico Island Wildlife Sanctuary; the Agoo-Damortis
Protected Landscape and Seascape by virtue of PP No. 277 (23 April 2000); Murcielagos Island as a
Protected Landscape and Seascape with PP No. 281 (23 April 2000); and the Albuquerque-Loay-
Loboc mangrove swamp into a Protected Landscape and Seascape. On May 31, 2000, several days
after the issuance of the above proclamations, there were PP Nos. 316, 317 and 319 establishing
Mabini Protected Landscape and Seascape, the Naro Island Wildlife Sanctuary, and the Bongsalay
Natural Park, respectively.

All the above proclamations served to increase the hectarage of mangrove forests in the country that
were placed under reserve status.
3.3.2.1 Fishponds
Another common land use found within the mangrove forests of the Philippines is fishpond operations.
The conversion of portions of the mangrove areas into fishponds, both legal and illegal, have
proliferated in the second half of the 20th century. Presidential Decree (PD) No. 704 (Fisheries
Reform Code) which was issued in the 1970s called for the rapid expansion and development of the
fisheries and aquaculture industries. This issuance resulted to the “fishpondification” of vast areas of
mangroves in the country. The said decree also provided incentives in the forms of loans from the
Central Bank with the Development Bank of the Philippines providing the funds for the development of
fishponds and shrimp farms. International funding agencies also infused a lot of funds into the
aquaculture industry, which all the more encouraged the conversion of mangroves into
fisheries/aquaculture endeavors. With the issuance of PD 704 was PD 705 (Forestry Reform Code of
the Philippines) which declared that mangroves not needed for shore protection and suitable for
fishpond purposes shall be released and placed under the administrative jurisdiction and
management of the Philippines’ Bureau of Fisheries and Aquatic Resources (BFAR). This all the
more provided for the rapid destruction of the country’s mangrove resources.

BFAR was given the authority to issue Fishpond Lease Agreements (FLAs) which also covered the
conversion of mangroves into fishponds. As of September 2002, there were about 4,742 FLAs issued
covering approximately 62,834 hectares (Table 3). Appendix 4 details the locations by province of
these FLAs.

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Table 3 Fishpond Lease Agreements issued from 1973 to September 2002 (BFAR, undated).

REGION No. of FLAs Total Area

(hectares)
1 210 1,280.14
2 8 78.71
3 77 560.93
4 810 12,861.31
5 476 7,145.46
6 1,587 14,238.16
7 462 4,667.80
8 216 5,708.46
9 464 9,357.42
10 45 393.40
11 140 1,508.96
12 101 2,341.53
13 146 2,692.06
TOTAL 4,742 62,834.34

The mangrove forest reserves were not spared from the proliferation of fishponds and shrimp farms in
the country. Four years after the issuance of PP 2151 and 2152 in 1981, there were approximately
9,532 hectares of mangrove forest reserves documented which has been illegally converted into
fishponds as shown in the following table.

Table 4 Distribution of mangrove forest reserves converted into fishponds as of 1985 (National
Mangrove Committee, 1985, Unpublished.)

Region/Province Area (hectares)

4 Palawan 950
Quezon 570
Marinduque 50
5 Albay 87
Camarines Norte 1,185
Camarines Sur 2,011
Sorsogon 50
Masbate 84
7 Bohol 1,234
8 Leyte 788
9 Zamboanga del Sur 1,493
10 Misamis Occidental 280
13 Surigao del Norte 750
TOTAL 9,532

3.3.3 Degraded Mangrove Forests

The Mangrove Component of the Fisheries Sector Program (FSP) under the National Forestation
Program (NFP) of the DENR together with the Asian Development Bank (ADB) – Mangrove
Development Project identified degraded mangrove forests and tidal flats within the country. The
ADB identified 103,000 hectares of these areas but proposed only 52,700 hectares for rehabilitation
within 10 years under the Mangrove Development Project. The FSP on the one hand earmarked
10,570 hectares of tidal flats for afforestation in twelve critical bays in the country. These were the
areas around Manila Bay, Calauag Bay, Tayabas Bay, Ragay Gulf, San Miguel Bay, Lagonoy Gulf,
Sorsogon Bay, and Panguil Bay. Finally, 8,830 hectares of degraded mangroves were targeted by
the DENR-NFP for contract reforestation. These are listed in Appendix 5.

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3.3.3.1 Other Land Uses Within Mangrove Forests

Other land uses that exist within the domain of the mangrove forests in the country are saltponds,
settlement areas, public infrastructures mainly maritime ports/harbors, and to a limited extent
agricultural production endeavors. There are no detailed documentation of these land uses as of this
time. Nonetheless, settlement areas are bound to expand given the increased pressure that the
mangrove forests face with the increasing population of the country. Migration into these areas are
expected owing to the proximity of the mangroves to populated centers, moreso that the mangroves
still possess the potential for providing sources of income to people, especially the marginalized
segments of the populace. Furthermore, more mangroves are expected to be opened up due to the
expansion or improvement and construction of ports/ harbors with the opening up and the
implementation of the Philippine Nautical Highway. The popularization of this alternative
transportation routes connecting the different islands of the country will mean increased traffic. Thus,
the need for the aforementioned expansion or construction of additional ports and harbors.

4.0 GOVERNANCE AND POLICIES RELEVANT TO THE MANAGEMENT AND

DEVELOPMENT OF MANGROVES IN THE PHILIPPINES

4.1 The Period of the 1970s

Mid-1970s was marked by a phase of rapid expansion and development in fisheries and aquaculture.
The scenario was prompted by the enactment of the Fisheries Decree of 1975 (PD No. 704), which
promoted the optimal exploitation and use of fisheries. This period of rapid growth also enhanced the
aquaculture sector, mainly fishpens and fishponds, with the latter having resulted in the decimation of
mangrove forest or what is known as “fishpondification”. Said decree also facilitated the conversion of
mangroves into fishponds by providing incentives in the form of loans from the Central Bank and the
Development Bank of the Philippines for pond construction. This was mainly to encourage the growth
of fishery industry, which at the time was enjoying lucrative prices for shrimps. International funding
agencies also infused large amount into the fishery sector to finance aquaculture development. The
BFAR AO No. 125 of 1979 also provided incentive for conversion of mangroves to fishponds by
extending the tenure of the Fishpond Lease Agreement (FLA) from 10 years to 25 years. The very
minimal FLA fee that was collected from the FLA holders ($2/ha/yr) did not only result to loss of
income for the government but more importantly led to inefficiency in the use of mangrove areas and
other resources. PD 704 has been effective in promoting fishery and aquaculture industry but it
defeated the role of mangroves in maintaining ecological balance.

The passage of PD No. 705 otherwise known as the Revised Forestry Code of the Philippines in the
same year is very relevant and timely as it identified mangroves along shorelines and strips of
mangroves bordering numerous islands as being needed for coastal protection. It is not effective
however, as it did not cushion the massive trend in mangrove conversion.

Jurisdiction over those areas classified and determined to be needed for forest purposes and declared
as alienable and disposable lands was transferred to the Bureau of Lands. Mangroves and other
swamps not needed for shoreline protection and suitable for fishpond purposes were released and
placed under the administrative jurisdiction and management of the Bureau of Fisheries and Aquatic
Resources (BFAR). Those still to be classified and awarded under the system continue to remain as
part of the public forest.

On July 22, 1975, Department Order No. 3 provided for the creation of Composite Land Classification
Teams to undertake the classification, survey and zoning of the remaining forestlands. The relevance
of this Order lies on the government’s thrusts to speed up the undertaking of land classification and
related activities throughout the country.

Letter of Instructions (LOI) 917 issued on August 22, 1979 declared that mangrove forests essentially
needed for foreshore protection, the maintenance of estuarine and marine life, including special
forests, which are the exclusive habitats of rare, and endangered Philippine flora and fauna are
wilderness areas. Dr. Rex Cruz, in his paper entitled “Assessment of Philippine Policies on Forest
Land-use” opined that the ideal procedure related to this policy is the requirement for proclamation
that a land-use and management plan for the area is already addressed. This will ensure that the
basis for sub-classification is properly considered and that the classification itself is appropriate.

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The 1970 era is basically exploitation/utilization of mangrove resources facilitated by the promulgation
of PD 704 (Fisheries Decree of 1975). Rapid development and expansion were given incentives to
promote the fisheries and aquaculture industries. The aquaculture sector, particularly fishpond
development contributed largely to the fast and massive depletion of the mangrove forests. PD 705
was rendered ineffective even if it identified mangroves along shorelines, as needed for forest
purposes, as it was not able to cushion the trend in mangrove conversion.

4.2 The Period of the 1980s

The concern towards the broader field of environmental management is reflected in regulatory
instruments adopted in the fisheries, forestry and environmental sectors, which prospered further in
the 1980s. Emphasis was focused on protection. PP Nos. 2151 and 2152 both issued in December
29, 1981 exemplified this. The former declared 4326 hectares of mangroves as wilderness areas
where any form of exploitation is prohibited. The latter declared 74,268 hectares as mangrove forests
reserves where small-scale utilization may be allowed provided they are under sustainable activities.

Ministry Administrative Order (MAO) No. 3, Series of 1982 prescribed revised guidelines in the
classification/zonification of forestlands for fishpond purposes. That, henceforth, lands of the public
domain, which are suitable for fishpond purposes shall no longer be classified as alienable and
disposable but shall only be zonified and delineated as areas suitable for fishpond development.
These areas were placed under the administrative jurisdiction and management of BFAR. The
processing of applications for fishpond leases was retained with the same Bureau.

PD No. 953 added emphasis on protection by requiring holders of lease agreements to plant trees
extending at least twenty (20) meters from the edge of riverbanks or creeks. PD. No. 1559 likewise
prohibited the cutting, harvesting and gathering of any timber pulpwood unless the user plants three
times the number he cut or destroyed. Any violation will warrant the cancellation of lease. The
silvicultural practice prescribed was seed tree system with additional planting when necessary.

Mangrove buffer zones were widened through MAO No. 42, Series of 1986 to effectively fortify the
protective capability of the mangrove forest in storm surge and typhoon prone areas. Mangrove forest
belt areas of 50 meters were expanded to 100 meters strip inward along shoreline fronting seas,
oceans and other water bodies. In like manner, the 20-meter strip riverbank protection mangrove
areas were also extended to 50 meters on both sides of the river.

Towards the end of the decade, jurisdictional gaps and conflicts in the institutional structure for
coastal management became more apparent. Both DENR and DA-BFAR were given mandates for
fisheries development. Under EO 192, DENR has the exclusive jurisdiction in the management and
disposition of all public lands including foreshore areas and shall continue to be the sole agency
responsible for classification, sub-classification, surveying and titling of lands in consultation with
appropriate agencies, Section 22 of said EO provides for the creation of NAMRIA by integrating the
Natural Resources Management Center, National Cartography Authority, Bureau of Coast an
Geodetic Survey and the Land Classification Teams of BFD. According to Cruz, as previously cited,
this is intended to increase the efficiency of natural resources information collection and management.
However, a truly functional system that facilitates quick access to natural resource database is yet to
be seen.

DAO No. 8, Series of 1987 reiterated the implementation of P.P No. 2152. It prohibited the further
exploitation and or destruction of mangrove swamps and other parcels of the public domain
designated as mangrove swamp forest reserve. Upon its effectivity, applications for licenses, leases
or permits of any kind involving mangrove swamps and other parcels of the public domain designated
as mangrove swamp forest reserves, whether such applications are new, renewal or extension were
no longer entertained and/or processed.

The State, likewise, closed certain mangroves or swamplands to any form of exploitation by
establishing such areas as buffer zones. DAO No. 76, Series of 1987 identified these areas which
include strips of 50 meters in all mangrove or swampland areas throughout the country fronting seas,
oceans and other bodies of water and 20 meters on both sides of river channels/banks. For areas that
have already been converted into fishpond through an approved Fishpond Lease Agreement, the

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leasee was required to afforest the tidal flats fronting their respective areas to at least 50 meters strips
and the area along river channels/banks to at least 20 meters.

Pursuant to EO 192, Section 7, DAO No. 7, Series of 1989 suspended the acceptance of applications
and issuance of prospecting permits in all government reservations under the administration of the
DENR. During the same year, the suspension was lifted by DAO No. 102 however, the suspension in
other forest reserves declared for protection purposes which included mangrove reserves continued
to be in effect.

Aware of the alarming rate of depletion of existing mangrove resources and fully cognizant of the roles
of these resources in the preservation of estuarine ecosystem including the protection of marine and
shoreline habitats, MC 15, Series of 1989 was issued providing for the immediate rehabilitation and
development of mangrove forests. The areas to be reforested were prioritized following certain criteria
giving preferential attention to inadequately stocked logged-over areas, idle and abandoned fishpond
and saltbeds, denuded and open areas inside the mangrove swamps, wilderness areas and/or
mangrove swamp forest reserves as per PP No. 2151 and 2152, respectively

Very clearly, the mangrove and mangrove related policy issuances in the 1980s focused on a single
aspect of environmental management, i.e., protection. The issuance/promulgation of these policies
was very relevant during the decade and needs urgency of implementation in view of the wanton and
massive destruction of the mangrove forests brought about by the robust expansion and development
of the fisheries and aquaculture sector in the 1970s.

4.3 The Period of the 1990s

New regulatory mechanisms access limitations and conservation initiatives in coastal management
were strengthened in the 1990s. DAO No 15, Series of 1990 banned the cutting or use of mangrove
resources in any form in the remaining mangroves that are not covered by existing FLAs and areas
outside plantations. It also disallowed the granting and or renewal of mangrove timber license and/or
permit of any kind that authorizes the cutting and/or debarking of the trees for commercial purposes in
areas outside the coverage of the FLA and mangrove plantations. The AOrder also banned the
conversion of thickly vegetated mangrove areas into fishpond in addition to mangrove reserves and
wilderness areas.

Plantation establishment is however, being encouraged continuously in denuded or sparsely

vegetated mangrove forestlands and A and D areas through an approved permit. The initial maximum
area allowed for mangrove plantation establishment is 50 hectares or more for corporations,
cooperatives and associations and ten (10) hectares for individuals. As an incentive and to promote
social equity, Section 13 of the same order provides that plantation developers are allowed to cut
(through clearcutting by strips) the planted trees within their respective plantations, whether such is
intended for personal or commercial purposes provided, they secure a permit from the immediate
office of the DENR. However, with the enactment of RA No. 7161 in 1991 banning the cutting of all
mangrove species, utilization is no longer possible. Such law did not explicitly specify that planted
mangrove species could be harvested. So unless this particular “rider” provision is amended by
Congress, harvesting mangrove species remains speculative, making it a disincentive policy on the
part of the coastal communities to engage in mangrove plantation establishment and development.

Fishpond development is allowed only in denuded areas, which have been zonified as suited for such
activity. Estuarine mangroves which are predominantly, if not totally vegetated with shrubs do not
qualify to be disposed for fishpond development. Such areas still contribute to the productivity of the
nearby marine ecosystem, hence, should also be extensively rehabilitated. Section 6 provides that a
Certificate of Stewardship Contract may be issued covering mangrove areas to individuals,
communities, associations, or cooperatives except in wilderness areas, provided that the activities are
limited to sustainable activities as indicated in the approved management plan. NAMRIA was tasked
to conduct a continuing assessment of the mangrove resources throughout the country. The
involvement of the interested NGOs was solicited in the conduct of the assessment. DAO No. 15
placed the protection, development and management of mangrove areas under the responsibility of
the concerned Regional Offices of the DENR in coordination with the Department of Agriculture.
Fishpond management and administration are lodged to DA-BFAR.

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MC No. 5, Series of 1990 prescribed guidelines on the cutting of mangrove species within approved
FLA areas. The circular required an FLA holder to apply for and be granted a permit for the removal of
any mangrove trees on land that was to be converted to fishpond. The trees cut are ordered turned
over to DENR for disposition through public bidding. It also provides that no cutting permit shall be
issued covering approved FLA area if such area has 10% or more mangrove canopy cover and/or is
capable of natural regeneration. The FLA owner was also required to plant an area equivalent to the
aggregate size where mangroves are clearcut with mangrove species. Buffer zones are to be
maintained and developed pursuant to PD 705 and MAO No. 42, Series of 1986. The Circular
reiterated the pertinent provisions of DAO No. 15 banning the conversion of thickly vegetated
mangroves into fishpond and allowing fishpond development only in denuded areas which have been
zonified. Just like DAO No. 15, MC No. 5 is, likewise, affected by the issuance of RA No. 7161
banning the cutting of all mangrove species. Both policies are henceforth, rendered irrelevant as far
as mangrove utilization is concerned.

One of the two key legislative measures that had enormous impact on the feasibility of Integrated
Coastal Management (ICM) is RA No. 7160 (Local Government Code of 1991) which delegated
mandates for environmental management from the National Government to the Local Governments.
The enactment of LGC marked the beginning of devolution of ICM responsibilities to the Local
Governments. Under this Act, the LGUs were given jurisdiction over specific aspects of mangrove
management including that of conservation, as well as implementation of community-based forestry
projects subject to the supervision, control and review of the DENR. Municipality devolved functions
include implementation of community-based forestry projects and province-devolved functions include
enforcement of forest laws limited to community-based forestry projects. RA No. 7160 also provides
that it is the duty of the DENR to consult with LGUs, NGOs and POs of any project or program that
may cause pollution, climatic change, depletion of non-renewable resources, loss of cropland,
rangeland or forest cover. According to Cruz, as previously cited, these provisions of the LGC
recognized the important role of the LGUs to enable them to play their roles well. It also provided that
the DENR would need to consult with the LGUs when it comes to the management of natural
resources within its jurisdiction.

The enactment of LGC of 1991 had a major impact in the system of governance in the country. It
represents the mode of implementation of the constitutionally enshrined principles of government
decentralization and democratization and creates a system far more complex but much more
decentralized than any other prior system used in the Philippines. Its influence in the coastal
management revolves around the key features of political autonomy and decentralization and
resource generation and mobilization.

The provision in RA No. 7161, which bans the cutting of all mangrove species does not exempt
planted mangrove species. Hence, unless this particular "rider” provision is amended by Congress,
harvesting of planted mangrove species as allowed by DAO No. 15, Series of 1990 is not possible
and valid. Following the hierarchy of policy, Republic Act is more superior and therefore, cannot be
amended by a mere Administrative Order. In like manner, the provision of MC No. 5, Series of 1990
allowing the removal of mangrove trees on areas to be converted to fishpond via a permit is also not
implementable.

DAO No. 3, Series of 1991 prescribed policy and guidelines for the award and administration of
Mangrove Stewardship Agreement. It explicitly stated that the purpose of mangrove stewardship
agreement is forest management: it requires the development and maintenance of permanent
mangrove forest on the stewardship area in return for the exclusive right to harvest from the area on a
sustainable basis.

The policy provides that in project area selection, the primary concern is rehabilitation and
management of existing mangrove forest. The reforestation of barren area is secondary. It also
encouraged NGOs/Assisting Organizations (AOs) to actively participate in the program in recognition
of their willingness to live and work in the barangay while assisting rural communities to undertake
their own development, and the limited capacity of the DENR for undertaking such activities. The
NGO/AO serves in this capacity as an extension of the DENR.

RA No. 7586, Series of 1992 established natural protected area system in high biodiversity areas. It
declared eight (8) categories of protected areas under the administration of DENR-Protected Areas

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and Wildlife Bureau (PAWB). These include (a) strict nature reserve, (b) natural park, (c) natural
monument, (d) wildlife sanctuary, (e) protected landscapes/seascape, (f) resource reserves, (g)
natural biotic areas, and (h) other categories established by law, conventions or international
agreements which the Philippine government is signatory.

DAO No. 13, Series of 1992 recognized the need to ensure the sustainability of remaining forest
resources through the establishment of buffer zones between the boundary of production forests and
areas used for agricultural and other purposes, and provision of livelihood opportunities for forest
occupants. It allowed the utilization of forest products in residual forest and protected areas buffer
zones provided that the purpose for which the buffer zones were established shall not be defeated. In
buffer zones established for the protection of riverbanks of mangroves, the gathering of forest
products is strictly regulated and tree planting is encouraged. The DAO provides that the buffer zones
are to be jointly managed and protected by the DENR and the concerned LGUs and the communities.
The products derived therefrom shall accrue to the community.

The DAO hopes to achieve socio-economic uplift of the communities and promote social equity by
providing limited access to mangrove resources. However, the utilization of mangrove resources is
again, not possible and valid due to the provision of RA No. 7161 banning the cutting of all mangrove
species. This is similar to the case of the two (2) policies mentioned earlier, DAO No. 15, Series of
1990 and MC No. 5, Series of 1990.

Through DAO No. 22, Series of 1993, the assisting role of NGOs to POs engaged in CBFM has been
institutionalized. The DAO incorporated the revised guidelines for the community forestry program
enhancing the institutional participation of local government organizations/units, educational
institutions and NGOs. It provides that all mangrove reforestations shall be conducted by communities
residing within or adjacent to the mangrove forest. Further, it provides for a twenty-five (25) years
Community Forestry Management Agreement (CFMA), renewable for another 25 years.

Cruz, as earlier cited, said that the provisions of this issuance reiterate the Importance of addressing
the basic needs of CBFM to be successful: emancipation of the local communities from extreme
poverty, provision of adequate livelihood opportunities, competent DENR personnel to provide the
necessary support activities and secure tenure. He further stated that the promotion of social equity is
a strong motivation for community to participate in this program. Technical assistance has been
guaranteed by the DENR, LGUs, NGOs/AOs and educational institutions in livelihood development,
forest conservation and resource utilization. However, the aspect of financing and market assistance
has been overlooked, utilization of residual mangrove forest is not possible due to a provision in RA
No. 7161 which prohibit the cutting of mangrove species.

Moreover, Cruz mentioned that the long-term tenure guarantees the community’s rights and privileges
to utilize and develop forest resources in a sustainable manner will be too long enough to allow
community to mismanage and even over-utilize the forest resources. This will require positive and
effective monitoring and evaluation system to determine whether to curtail or to proceed to CFMA
even at the quarter period of the term.

DAO No. 30, Series of 1994 adopted NGO-Assisted Community-based Mangrove Forest
Management (NGO-Assisted CBMFM), the primary objective of which is to transfer all existing
traditionally depended upon mangrove forests under an effective community-based management. It
provides that the biological diversity of the naturally grown mangrove forest covered by the agreement
shall be preserved. In case of the denuded areas covered by the agreement, the natural diversity of
mangroves shall be considered by planting mixed species subject to species-site matching
requirements.

The second legislative measure that had enormous impact on the feasibility of ICM was the passage
of RA No. 8550 or the Fisheries Code of 1998. This new Code incorporates ICM as one of its policy
approaches. It also reinforced the primary mandate of LGUs in the management of nearshore
municipal waters and recognized the importance of active participation of local fisherfolks and coastal
communities through the establishment of Municipal Fisheries and Aquatic Resources Management
Councils (MFARMCs). RA No. 8550 also required the BFAR, as line agency under the Department of
Agriculture, to take the lead role in providing technical assistance and training to LGUs, and assisting
organizations and local communities in establishing co-management regimes for coastal resources.

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DAO No 98-10, Series of 1998 prescribed guidelines in the establishment and management of CBFM
projects within mangrove areas in accordance with DAO No. 96-29 and other policies issued on
CBFM. In case the mangrove area is within a protected area, the management of the same is in
accordance with the pertinent provisions of RA No. 7586 and its implementing rules and regulations.

Cruz, as mentioned earlier, stated that the establishment of CBFM projects in mangrove areas
manifests DENR’s policy of providing social equity and community empowerment in the utilization,
protection, management and conservation of natural resources. Coastal communities are normally
marginalized due to limited land areas for livelihood development, relying mostly on limited fishing
activities. Providing them opportunities for sustainable utilization and management of mangrove areas
would enhance their socio-economic conditions. Sections 3 allows the cutting and/or harvesting of
mangrove species provided these are planted by the CBFMA holders themselves and that the
harvesting operations are included in the affirmed CRMF, ADMP or Protected Areas Management
Plan, as the case may be, and Annual Work Plan; provided further, that replanting of area harvested
shall be undertaken within six months after harvesting operations, and provided finally, that the
harvesting operations are closely monitored by the Community Environment and Natural Resource
Officer ond the Protected Area Supervisor (CENRO/PASU) concerned. Cutting of mangroves
however is prohibited by RA 7161, making this a disincentive to the coastal communities awarded
with CBFMAs.

The 1990 era is marked by new sets of strengthened regulatory mechanisms, access limitations and
conservation initiatives in coastal management. Several issuances focused on protecting the
remaining mangrove resources initiated in the 80s. DAO No. 15, series of 1990 banned the
cutting/debarking of mangrove trees in areas not covered by existing FLAs and areas outside
plantations. It also banned the conversion of thickly vegetated mangroves into fishponds. Fishpond
development was limited only in zonified denuded areas. It disallowed fishpond development in
estuarine mangrove predominated/vegetated with shrubs. MC No. 5, Series of 1990 banned cutting in
approved FLA area if it has 10% or more mangrove canopy cover. DAO No. 13, Series of 1992,
provided for the establishment of buffer zones.

Various tenurial instruments also prospered during this period such as the Certificate of Stewardship
Contract, Mangrove Stewardship Agreement, Community Forestry Management Agreement and the
Community-Based Forest Management Agreement. .

Two key legislative measures that had enormous impact on the feasibility of integrated coastal
management were enacted. First is the Local Government Code which delegated environmental
management from the national to the local governments and the Fisheries Code of 1998 which
reinforced the mandates of the LGUs in the management of nearshore municipal waters. It also
recognized the importance of the active participation of local fisherfolk and communities through the
establishment of the MFARMCs.

The shift towards Community-Based Forest Management and the recognition of the importance of the
role of NGOs, AOs and local communities’ participation likewise characterized the 1990s. DAO No.
30, Series of 1994 adopted an NGO-Assisted Community-Based Forest Management. DAO No. 98-
10 prescribed guidelines in the establishment and management of community-based forest
management projects within the mangrove areas. DAO No. 3, series of 1991 encouraged NGOs/AOs
participation in mangrove programs. DAO No. 22, series of 1993 institutionalized the assisting role of
NGOs. DAO No. 62, series of 1993 promoted Community Organizing as strategy for forest
conservation, development and management and further strengthened community participation. DAO
No. 98-10 manifests DENR’s policy of providing social equity and community empowerment in the
utilization, protection, management and conservation of natural resources.

4.4 The Period of the 2000s

The early part of 2000 is marked by a series of Presidential Proclamations pursuant to RA No. 7586
(NIPAS Act of 1992). P.P No. 272 (April 23, 2000) declared the Chico mangrove wilderness area
situated in the municipality of Cawayan, Masbate as a protected area and renamed as Chico Island
Wildlife Sanctuary. P.P No. 293 (April 23, 2000) declared the Alburquerque-Loay-Loboc mangrove
swamp forest reserve and its surrounding waters situated in barangays San Agustin, Bahi, Epo, Sta.
Fe and Tagbuane, all of Alburquerque, coastal areas of Loay and riverside of Loboc, in Bohol as a

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protected area and renamed Alburquerque-Loay-Loboc Protected Landscape/Seascape. P.P No. 316
(May 31, 2000) declared the Pindasan Island mangrove wilderness areas, Kopiat and surrounding
portions of Davao Gulf in Mabini, Davao del Norte as a protected area and renamed Mabini Protected
Landscape/Seascape. P.P No. 317 (May 31, 2000) declared the Naro mangrove wilderness area
situated in Cawayan, Masbate as protected area and renamed Naro Island Wildlife Sanctuary. Lastly,
P.P No. 319 (May 31, 2000) declared the Bongsanglay mangrove forest reserve situated in Batuan,
Masbate as protected area and renamed Bongsanglay Natural Park. All of these areas were placed
under the administrative jurisdiction of the DENR, the administration of which is in accordance with
the NIPAS Act of 1992.

DAO No. 2000-57, series of 2000, prescribed guidelines governing the implementation and
management of mangrove subprojects under the forestry sector project. This issuance banned the
cutting of mangrove timber species within the subproject and adjacent mangrove sites. However, it
allowed the harvesting and gathering of non-timber mangrove products on a sustainable basis. DAO
No. 2002-2 provides for the establishment and management of community-based program in
protected areas. It directed the PAWB and DENR Regional Offices to undertake the periodic
monitoring and evaluation on the implementation of the CBP. In like manner, the PAWB through the
PASU and in coordination with the concerned CENRO was also directed to monitor the compliance
with the terms and conditions of the Protected Area Community-Based Resource Management
Agreement (PACBRMA) holder.

Year 2000 manifested the government’s thrust to pursue the protection of the remaining mangrove
resources pursuant to RA No. 7586 (NIPAS Act 0f 1992) through the declaration of several mangrove
wilderness areas and mangrove swamp forest reserves as protected areas. CBFM was also pursued
in mangrove
subproject under the forestry sector project and likewise, in protected areas. The issuance of the
above-mentioned declarations was relevant during this decade considering that the country has very
little mangrove forest left. Further, these issuances are meant to ensure the sustainability of the
remaining mangrove resources through the protection, conservation, rehabilitation and withdrawal of
access to the resource. The pursuance of CBFM is a manifestation of the State’s policy for people
empowerment and participation, eradication of poverty in coastal communities, provision of adequate
livelihood opportunities and secure tenure. It further addressed the promotion of social equity and
community involvement in programs that are aimed to uplift and enhance the socio-economic
condition of the less-privilege coastal dwellers.

5.0 ISSUES, CONCERNS AND OTHER DEVELOPMENTS ON THE MANAGEMENT,

CONSERVATION AND DEVELOPMENT OF MANGROVES IN THE PHILIPPINES

5.1 Continued degradation and further threats of destruction

Despite the significant strides made in the protection of the remaining mangrove forests of the
country, there still exist a number of problems that pose serious threats to the integrity of such forests.
The conversion of mangrove areas into fishponds and shrimp farms still continues. The same is true
with the extraction of tanbarks from the mangrove forests and illegal cuttings for fuelwood and
charcoal.

The boundary delineation of mangrove protection forests is found to be still wanting in most areas in
the country. Forest protection measures, and the formulation and implementation of comprehensive
plans for the management of the same cannot be initiated unless there is a definite boundary that is
marked on the ground for these mangrove forests.

The absence of firm efforts towards the reversion of abandoned, undeveloped and unproductive
fishponds to protection and/or production forests as the need dictates is noted. Allied to this concern
is the haziness as to who has direct responsibility over such tasks, whether it is the local government
unit concerned or the DENR. The restoration of such destroyed mangrove forests need to be
hastened by the application of appropriate silvicultural interventions. But such cannot be undertaken
unless it is firmly established that such abandoned and unproductive fishponds which usually cover
large areas are no longer under the jurisdiction of the lease and that the same no longer can lay any
hold on the area once restoration and development activities have been initiated already.

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The continuing degradation of the mangrove forests in the country can also be attributed to the
insufficient or complete lack of awareness on the importance of marine, coastal and mangrove
ecosystems on the side of the public, most importantly, in the communities within or in the immediate
periphery of mangrove forests in the country. In some areas, such an awareness may have been
created already and is in fact observed to be increasing. But such areas are more of exceptions
rather than the rule at the moment. A more vigorous IEC is therefore wanting.

5.2 Overlapping functions and conflicting policies and legislation of different government
agencies and LGUs

This is an issue that may have some bearing on the preceding one discussed. The problem maybe
more pronounced between the DENR and local government units. The latter oftentimes allow more
opening up of mangrove forests for development initiatives and other projects that will generate
income for them. On the other hand, the former is expected to be more circumspect in allowing the
conversion of mangrove forests into some other uses.

5.3 Appropriateness of the existing CBFM Agreement for mangrove forests

The CBFMA is a generic agreement that has been applied across the country in all forest types. It is,
however, first implemented in the uplands. The premises with which the instrument has been
developed, and the underlying principles assumed in the operationalization of the agreement as
largely based on conditions in the upland regions of the country. Mangrove forests do have
characteristics that are unique or otherwise different from those conditions observed in the uplands.
The Community Based Resource Management Agreement for Protected Areas in mangrove forests
has been patterned after the generic CBFMA. Thus, such instrument may have failed to recognize
the unique conditions that are found in the mangroves which also defines the distinct relationship or
interactions between families/communities and the forest/forest resources.

5.4 Absence of policy to address existence of fully developed and productive illegal
fishponds in mangrove timber lands and protected areas

There have been reports of fully developed and productive large fishpond areas converted from
mangrove forests without permits or any form of authorization from the DENR. Apparently these
fishponds have been in operation for quite sometime already and the DENR nor the LGU units
concerned have not taken any move to demolish such or even issue orders for these establishments
to cease from operating.

5.5 The Pagbilao Mangrove Genetic Resources Area

DENR Administrative Order No. 56 issued on 10 December 1992 established the Pagbilao Mangrove
Swamp Experimental Forest simultaneously designating it as a Genetic Resources Area (GRA) and
National Training Center for Mangroves. This move significantly boosted the efforts of the Philippine
government towards the sound conservation of the remaining mangrove forest resources in the
country. The GRA serves as a living germplasm collection of Philippine mangroves. Through
enrichment with accessions coming from other mangrove forests in the country, the GRA contributes
to the conservation of mangrove germplasm. The GRA is also designed to showcase sustainable
management of mangrove forests including the multiplication and distribution of mangrove
germplasm. It also serves as a venue for the conduct of scientific investigations on the biology,
silviculture and management of Philippine mangroves.

The Pagbilao Mangrove Swamp Experimental Forest represents but one mangrove ecosystem in the
country. Owing to the archipelagic nature of the country, there obviously exist so much variability in
terms of species composition and association, genetic structure, and the accompanying ecological
functions and processes that occur in ecosystems. An issue here is that the Pagbilao Mangrove
Swamp Experimental Forest cannot capture these multitude of mangrove variations in terms of
genetic, species and habitat diversity. Therefore, there is clearly a need to establish and maintain
more genetic resource conservation areas across the country.

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5.6 Community Based Mangrove Forest Management

The Master Plan for Forestry Development (MPFD) has given recognition to the existence of
communities within and in the periphery of a multitude of mangrove forest areas in the country.
Pursuant to the vision of mobilizing stakeholders as effective partners in the sustainable management
of mangrove forests and resources In the country, the DENR implemented the NGO-Assisted
Community Based Mangrove Forest Management by virtue of DAO No. 30 issued on 30 September
1994. The system has for its objectives the following: training of traditional mangrove users and other
dependents on coastal resources; ineffective community based management with the assistance of
NGOs with excellent track record on natural resources management; rehabilitation of traditionally
depended upon/used mangrove forest, and; expansion and development of existing mangrove forests
to provide for the increasing demand for products derived therefrom.

To date, the DENR has executed 14 agreements with various community and peoples organizations
all over the country covering an approximately 3,952 hectares. Appendix 6 lists these agreements.

5.7 Streamlining the management of mangrove resources/ Institutionalizing mangrove

resources development

An Ad Hoc Committee on Mangroves was created in the DENR through DAO 2001-08. This
committee was tasked to effectively implement the different mangrove development programs of the
Department. Representatives from the Office of the DENR Secretary, the PSS, PAWB, FMB,
FASPO and CEPCO (now CMMO) comprise the membership of the committee.

With the increasing activities in the Coastal Environment Program of the DENR, it was further
strengthened with the creation of the Coastal and Marine Management Office (CMMO) by virtue of
DAO No. 2002-08. AS the national coordinating office for all coastal and marine environment
initiatives, the CMMO is tasked with the responsibility of formulating policies, coordinating and
integrating the development and implementation of all coastal programs and projects, as well as the
establishment and maintenance of a coastal and marine information management system. Currently,
the Office is implementing the Mangrove Component of the UNEP/GEF Project entitled, “Reversing
Environmental Degradation Trends in the South China Sea and Gulf of Thailand.” The tasks to be
undertaken under the project include the preparation of a status report on the Philippine Mangroves
along the South China Sea, the establishment of a database system for the Philippine mangroves, the
compilation of mangrove policies, conservation practices and analysis, and the formulation of a
National Mangrove Action Plan.

5.8 Institutional constraints in the management and conservation of mangrove forests

Local government units entrusted with the management and conservation of certain mangrove and
estuarine ecosystems in the country often have inadequate technical personnel to effectively and
efficiently carry out the technical rigors of the job. This situation oftentimes results to the haphazard
implementation of interventions which are usually stop gap measures only and are not meant to
insure the long term sustainable management of the forests. There is clearly a need to beef up the
manpower complement of the LGUs tasked with the management of mangrove forests or the need to
provide training for such personnel.

It is also the perception that institutional collaboration in mangrove and coastal resources
management is rather weak in the country. This problem is also aggravated by the differences in
management priorities of agencies, organizations and LGUs with regards to the mangrove forests that
fall under their jurisdiction. This concern provides evidence to the perception of relative unawareness
of the 1990 MPFD or the utter disregard of the same in implementing development and/or
conservation initiatives in the mangrove forests. The MPFD is supposed to provide direction to such
endeavor. This means that the prioritization of activities should have been guided by the provisions of
the MPFD.

5.9 Research and Development on the Philippine Mangroves

Researches on the utilization of forest resources from mangroves are quite numerous already.
However, studies on the silvics and natural silviculture of Philippine mangroves were few and isolated

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focusing only on certain limited number of species. There is as yet no comprehensive research
program that takes into the consideration the broad spectrum of biology, production, product
development and utilization, economics and marketing, conservation and policy considerations.

6.0 ACTION PLAN FOR THE SUSTAINABLE DEVELOPMENT AND MANAGEMENT OF

MANGROVE FORESTS IN THE PHILIPPINES

6.1 Premises of the Action Plan

The components of the action plan set forth here basically conforms with the stipulations set forth in
the Forest Principles as enunciated by UNCED to which the Philippine government has given its
commitment The agreement calls for a global consensus on the sustainable development,
management and conservation of the world’s forests including the mangroves. As such, the
recommendations stated here conform to one of the provisions of the Philippine Agenda 21 which
echoes those of the Agenda set forth during the Earth Summit in Rio de Janeiro. Finally, this Action
Plan for the Philippine Mangroves take off from the Philippine Master Plan for Forestry Development
(MPFD) which was formulated in 1990 and likewise on the Environment and Natural Resources
Framework Plan, in response to a long felt need for rationalizing forest development initiatives in the
country.

The Philippine Constitution of 1987 provided in the first place the necessity to put into a new order
policies, programs and actions relevant to forestry in the country as it mandated that the management
of natural resources shall be undertaken through production sharing, joint venture and co-production
from thereon. Foresters, environmentalists, government planners and decision-makers, and the
general public have also been awakened to the need to arrest the rapid destruction of the country’s
forest resources which has been the norm for the past years. The immediate years prior to the
MPFD, and well into its initial years of implementation, were periods when there was intense public
and private clamor for a more sustainable forest resources development and management. The
MPFD was clearly a response to these changing development contexts in the forestry sector whose
trends indicate more intent towards the sustainable development and management of the forest
resources of the country.

The MPFD underwent its first revision recently. The Mangrove Component of the Master Plan
likewise went through a review and assessment of the gains it made ten years after its
implementation. In the review and revision process targets specified in the Medium Term Philippine
Development Plan were also considered. The revised MPFD provisions on the mangrove forests of
the country became the springboard for this Action Plan.

6.2 Goals and Objectives of the Development and Management of the Philippine
Mangroves

In keeping with the general perspective of the revised MPFD, the Philippines looks forward to having
its mangrove resources developed and managed on a sustainable basis for the economic and
environmental benefits of the people.

This goal for the mangrove forests of the country is translated into the following objectives:

h. preservation of the remaining mangrove forests bringing them under effective management
and enhancing their biological productivity;
i. preservation of portions of the mangrove areas for protection of floral and faunal biodiversity;
j. expansion of mangroves through reforestation and plantation development;
k. effecting equitable access to mangroves on multiple-use, multiple-user basis;
l. provision of adequate supply of mangrove products and services to various end users while at
the same time conserving and expanding the resources;
m. promotion of economic development in areas around mangrove forests especially in ways
that enhance mangrove protection and management; and
n. strengthening of institutional arrangements for ensuring sustained management of mangrove
resources in the country.

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6.3 Recommended Strategic and Immediate Actions

6.3.1 Delineation of the mangrove permanent forest estate

The provisions as contained in the strategy to be adopted for the dipterocarp permanent forests shall
likewise be adopted for the permanent mangrove forest estates. To be included in the mangrove
permanent forest estate are the reverted unused forested areas released for fishpond development,
abandoned and unproductive fishponds, as well as illegally established ones which will be
rehabilitated, and the existing wilderness areas. These are to be added to those mangrove areas
earlier designated for preservation and conservation due to their ecological, educational, scientific and
recreational potentials including the Pagbilao Genetic Resources Areas and other mangrove forests to
be declared as such.

6.3.2 Sustain national resource inventory/assessment of mangrove forests in the country

The FAO-UNDP funded Forest Resources Assessment Program being undertaken by the Forest
Management Bureau should be institutionalized. The long term monitoring plots established under
the program should be maintained. Once turned over to the concerned CENROs of the DENR, these
field units must endeavor to enjoin the participation of communities as partners in the monitoring and
safekeeping of the said plots under their jurisdiction. Such kind of participatory mechanism must be
formulated and implemented with the local government units shouldering part of the expenses in the
maintenance of the plots. To insure this, adequate training on the biometrical aspects must be
transferred to the people to be involved. Furthermore, the data management system developed and
currently being operated must be made more accessible to the local government units for better
planning and implementation of projects on mangrove resources.

6.3.3 Replicate of the Pagbilao GRA to consider other environmental gradients

There are other mangrove forest ecosystems far different from the Pagbilao Genetic Resource Area in
terms of species composition, stand dynamics, ecological functions and processes. Other genetic
resource areas should be established to capture the variations occurring in these different mangrove
forests in the country. The Second Iteration of the National Biodiversity Strategy and Action Plan
(Ong et al. 2002) has identified conservation priority areas for mangroves Figure 1 and Appendix 7.
Anyone of these sites are potential candidates for these genetic resource conservation areas.

6.3.4 Adoption of C & I for management of mangrove forests

A C & I for the sustainable management of the Philippine mangroves should be developed following
the principles started with the C & I for natural forests in the country. The development of this C & I
should also be in conformity with the scheme of forest certification that will be developed and
implemented for the Philippines.

6.3.5 Expand the mangrove areas

Mangrove forest resources assessment must be made a continuing process to identify further those
that will have to be preserved and formed to be part of the permanent mangrove forest estate. The
designation of such areas through presidential proclamations should be fast tracked as much as
possible.

6.3.6 Lobby for the amendment of RA 7161 to exempt planted mangrove trees from the
cutting ban provision.

This provision of RA 7161 is clearly a disincentive to the sustainable management of the mangrove
forests in the Philippines and has to be repealed. The amendment must allow at the minimum the
conduct of salvage cutting operations in mangrove forests. In Community Based Mangrove Forest
Management endeavors, part of the income to be derived from the salvaging operations can be used
in furthering efforts towards the conservation and further development of the mangrove resources in
the said areas.

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Figure 1 Conservation Priority areas for Mangroves (Ong et.al 2002).

6.3.7 Regulate strictly the conversion of mangroves into other land uses

The further decimation of the existing mangrove forests in the country must be stopped. The
assistance of the concerned LGUs must be enlisted in this effort. In similar manner, conservation
oriented NGOs can also be tapped in this drive. In the expansion of port facilities or in the
construction of new ones all efforts must be exhausted first in finding alternative locations and or other
measures which will minimize the cutting of existing mangrove trees.

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6.3.8 Review and strengthen policy on reversion of abandoned, undeveloped and

unproductive fishponds to mangrove forest estates

The immediate reversion of abandoned, undeveloped and unproductive fishponds and shrimp farms
to mangrove forests should be pursued. The DA-BFAR and the DENR field units must be tasked to
identify and locate these areas which shall be prioritized for immediate revegetation. The LGUs will
assist in the identification of the same and suitable revegetation schemes can be initiated with their
assistance.

6.3.9 Study and establish appropriate model for CBFM in mangrove forests

Existing CBMFM areas can be subjected to studies to identify which feature of the instrument is weak
or not applicable at all. These studies may last for a time as there will also be a need to look at how
the tenurial instrument will evolve through time. Appropriate innovations can then be introduced to
make the scheme more effective and efficient. A process documentation approach can be adopted in
the course of the study. Subject areas should be selected across a number of areas/regions in the
country in consideration of the unique and differing features found in these areas.

6.3.10 Study and formulate policy to address existing productive illegal fishponds and/or
shrimp farms

The destruction of these productive illegal fish ponds and/or shrimp farms should not be pursued.
Some means of legalizing such should be undertaken. Such measures should not be taken as an
encouragement for others to venture into the same kind of operation. Therefore, this move should be
accompanied by strict regulation of conversion of mangrove for such uses as mentioned earlier.

6.3.11 Strengthen IEC on mangrove forests/ecosystems

The above recommendations are best implemented with a strong and vigorous program on IEC.
Forging a stronger institutional collaboration among various stakeholders can strengthen this resolve.
Other government agencies can also be tapped to help in this endeavor. The LGUs will also be a
potent vehicle to achieve this purpose. If necessary, some form of training on IEC can be extended to
the LGUs to enhance their capability to do IEC.

6.3.12 Sustain training for LGUs and mangrove/coastal communities on sustainable

management of mangroves

More funds should be allocated to the training of LGUs and communities. If this is not possible, more
access must be ascertained to enable wider participation in existing training programs on the
sustainable management and development of mangrove resources in the country. Trainors training
and cross visits by members of peoples organizations and staff of the LGUs should be encouraged.

6.3.13 Promote additional alternative livelihood opportunities for mangrove forest resource
users

Production systems under the mangrove canopy should be tested and introduced. Non timber and
non-wood forest products are potential candidates for these endeavors. However, care must be
exercised in such a manner that the use of the NTFP/NWFP resource species must be done in a
highly regulated manner. It is strongly recommended that the production and utilization systems must
rely heavily on propagation instead of the traditional simple extraction from the existing natural stands.
Linking the communities to various development agents, government and non-government alike, is
mandatory. The role of the business sector need not be emphasized. Product development and
marketing aspects are seriously wanting in most cases. The communities will be needing assistance
along these aspects initially.

6.3.14 Prioritization of Research and Development on the Mangrove Forests

Towards a more sustainable rehabilitation and management of mangrove forests in the country, the
following research agenda are identified:

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• Further studies on the biology and ecology of other mangrove species

• Silvics and silviculture of important mangrove species
• Seed and seedling production technologies for reforestation of mangrove forests
• Pest and disease control in planted mangrove forests (e.g. barnacle infestation, shoot borer,
etc)
• Economic utilization of non-timber forest products in mangrove
• Cost effective and environment friendly salvage and sanitation cuttings in mangrove forests
• Agroforestry systems and practices in mangrove forests
• Cost effective rehabilitation and/or conversion of abandoned fishponds
• Tree improvement of commercially and ecologically important mangrove species with emphasis
on the establishment of seed production areas and seed orchards, as well as more genetic
resource conservation areas
• Restoration ecology of key mangrove ecosystems
• Integration of economic development and ecology
• Socio-economic factors influencing mangrove development
• Pollution effects on the mangrove ecosystems
• Ecology and management of fragmented mangrove forests in the Philippines
• Valuation studies on mangrove resources
• Nutrient budget studies on mangrove forests
• Vulnerability assessment to climate change of mangrove forests and appropriate mitigation
measures
• Carbon sink potential of mangrove forests in the Philippines

Concern must also be placed on the ecosystems approach to the conduct of research in mangrove
forests. There is also a need to evolve more participatory research – initiated, planned and
implemented by mangrove users, academe and other stakeholders. To be able to achieve this, some
training and/or transfer of research skills will be necessary.

7.0 Time Frame and Responsibility Centers in the Implementation of the Action Plan

The formation of a National Mangrove Committee (NMC) is seen as the entity that will primarily be
responsible for the initial implementation and monitoring and evaluation of the recommended
strategies in this Action Plan. Drawing its membership from various organizations, government and
private, including the academe and the communities, the NMC is primarily tasked to articulate the
multitude of concerns on the Philippine mangroves and would serve as a forum that would strengthen
and rationalize all efforts, public and private, on the sustainable conservation, management and
development of the Philippine mangroves and all resources found thereat. Table 5 provides a matrix
for the implementation of this Action Plan.
8.0 LIST OF REFERENCES
Brown, W. H. and A. F. Fischer. 1918. Philippine Mangrove Swamps. Department of Agriculture and
Natural Resources. Bureau of Fishery Bulletin No. 7.

Dixon, J.A. 1989. Valuation of Mangroves. Tropical Coastal Area Management 4(3):1-6

Hamilton, L.S. and S. Snedaker. 1984. Handbook for Mangrove Area Management. United Nations
Environment Programme, East-West Center and Environment Policy Institute

MCRMFI. 2003. Progress Report on the Technical Assistance to the DENR-CMMO re: Mangrove
Sub-component of the UNEP/GEF Project “Reversing the Environmental Degradation Trends in
the South China Sea and Gulf of Thailand” – January 2003. Department of Environment and
Natural Resources - Coastal and Marine Management Office and Environmental Management
Bureau and Manglares Coastal Resources Management Foundation, Inc. Unpublished Report.

MCRMFI. 2003. Proceedings: Participatory Workshop/Action Planning for Mangrove Conservation

and 4th Meeting of the National Mangrove Committee, 8-10 September 2003, Calamba City.
Department of Environment and Natural Resources - Coastal and Marine Management Office and
Environmental Management Bureau and Manglares Coastal Resources Management Foundation,
Inc. Unpublished Report.

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Melana, E.E. and H.I. Gonzales. 1996. Field guide to the identification of some mangrove species in
the Philippines. Ecosystems Research and Development Service, Department of Environment
and Natural Resources, Region 7, Banilad, Mandaue City, Philippines. 37 pages.

Melana, D. M., J. Atchue III, C.E. Yao, R. Edwards, E.E. Melana and H.I. Gonzales. 2000. Mangrove
Management Handbook. Department of Environment and Natural Resources, Manila, Philippines
through the Coastal Resources Management Project, Cebu City, Philippines. 96 pp

Ong, P.S., L.E. Afuang and R.G. Rosell-Ambal (eds) 2002. Philippine Biodiversity Conservation
Priorities: A Second Iteration of the National Biodiversity Strategy and Action Plan. Department
of Environment and Natural Resources – Protected Areas and Wildlife Bureau, Conservation
International Philippines , Biodiversity Conservation Program – University of the Philippines
Center for Integrative and Development Studies, and Foundation for Philippine Environment,
Quezon City, Philippines.

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Table 5 Time frame and responsibility centers for the implementation of the Philippine Mangrove Action Plan.

ACTIVITIES TIME FRAME RESPONSIBLE AGENCIES

1. Creation of the National Mangrove Committee Immediate CMMO-DENR
2. Delineation of the mangrove permanent forest estate Immediate FMB-DENR, NAMRIA, BFAR
3. Sustain national resource inventory/assessment of mangrove forests in the country Immediate FMB, LGUs, concerned POs
4. Replicate of the Pagbilao GRA to consider other environmental gradients Intermediate ERDB, UPLB and other SCUs,
PCARRD
5. Adoption of C & I for management of mangrove forests Intermediate FMB, Academe
6. Expand the mangrove areas Strategic FMB, BFAR, LGUs
7. Lobby for the amendment of RA 7161 to exempt planted mangrove trees from the Intermediate DENR, LGUs, POS and LGUs
cutting ban provision.
8. Regulate strictly the conversion of mangroves into other land uses Immediate DENR, BFAR, LGUs, FDC
9. Review and strengthen policy on reversion of abandoned, undeveloped and Intermediate FMB, FDC, LGUs
unproductive fishponds to mangrove forest estates
10. Study and establish appropriate model for CBFM in mangrove forests Immediate FMB, FDC
11. Study and formulate policy to address existing productive illegal fishponds and/or Intermediate FMB, FDC
shrimp farms
12. Strenghten IEC on mangrove forests/ecosystems Continuous DENR, LGUs, Academe
13. Sustain training for LGUs and mangrove/coastal communities on sustainable Immediate DENR, LGUs, SCUs, NGOs
management of mangroves
14. Promote additional alternative livelihood opportunities for mangrove forest resource Immediate DENR, BFAR, LGUs
users
15. Prioritization of Research and Development on the Mangrove Forests Continuing PCARRD, SCUs and other Research
Institutions
Immediate – implementation needed in 1-5 years
Intermediate – implementation in 6-10 years
Strategic – implementation after 10 years
Continuing – currently being implemented and will continue on indefinitely

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Appendix 1

Classification of Philippine Mangrove Flora

Classification Family No. of Species
True Mangrove Acanthaceae 3
Aizoaceae 1
Avicenniaceae 5
Bombacaceae 1
Combretaceae 2
Euphorbiaceae 1
Graminae 1
Lythraceae 1
Malphigiaceae 1
Meliaceae 2
Merbaceae 1
Palmae 2
Pteridaceae 9
Rhizophoraceae 9
Rubiaceae 1
Sonneratiaceae 2
Mangrove Associates Apocynaceae 4
Araliaceae 1
Barringtoniaceae 2
Bignoniaceae 1
Caesalpiniaceae 3
Celastraceae 1
Compositae 1
Cyperaceae 2
Euphorbiaceae 3
Fabaceae 1
Liliaceae 1
Malvaceae 3
Meliaceae 3
Mimosaceae 2
Myrsinaceae 2
Palmae 1
Polypodiaceae 1
Rubiaceae 1
Sterculiaceae 2
Tiliaceae 1
Verbenaceae 1
Vines Asclepidiaceae 4
Caesalpiniaceae 2
Convolvolaceae 1
Epiphytes Fabaceae 2
Flagellariaceae 1
Malphigiaceae 1
Vitaceae 1
Asplaniaceae 1
Orchidaceae 5
Polypodiaceae 2
Ruliaceae 3

Source: Technical Staff, Philippine National Mangrove Committee, Country Reports. In: Mangrove of Asia and the Pacific:
Status and Management, UNDP/UNESCO (RAS/79/0020, JMC Press Incorporated, 1987.
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Appendix 2

Land Cover Statistics by Province

Region/Province Total Area (ha) Mangrove Area (ha) Percent Mangrove
Region 1
Ilocos Norte 358,525 14 .003
Ilocos Sur 236,483 6 .003
La Union 123,428 20 .02
Pangasinan 472,237 132 .03
Total 172 .01

Region 2
Cagayan 803,032 38.96 .65
Isabela 1,031,369 43.83 .03
NVA, Viscaya 384,693 34.61 .56
Total 7,712 .30

Region 3
Zambales 425,398 157 .04
Total 157 .04

Region 4
Aurora 326,000 223 .07
Batangas 300,992 52 .02
Marinduque 92,359 1,974 2.14
Mindoro Occidental 567,773 1,156 .20
Mindoro Oriental 474,749 18 .004
Palawan 1,430,279 46,445 3.25
Quezon 828,698 4,470 .54
Romblon 125,087 751 .60
Total 55,089 1.21

Region 5
Albay 251,880 732 .29
Cam. Norte 195,277 2,218 1.14
Cam. Sur 520,439 2,384 .46
Catanduanes 149,134 607 .41
Masbate 510,494 2,194 .43
Sorsogon 205,226 1,817 .89
Total 9,952 .54

Region 6
Aklan 175,765 450 .26
Antique 259,170 157 .06
Capiz 244,372 590 .24
Guimaras 57,140 316 .55
Iloilo 452,983 742 .16
Negros Occidental 723,910 1,322 .18
Total 3,577 .19

Region 7
Bohol 407,862 10,723 2.63
Cebu 447,588 1,157 .26
Negros Oriental 487,189 1,081 .22

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Siquijor 29,999 11 .04

Total 12,972 .95

Region 8
Biliran 49,753 116 .23
E. Samar 405,839 4,043 1.00
N. Leyte 597,694 3,285 .55
N. Samar 339,801 1,208 .36
S. Leyte 164,484 255 .16
W. Samar 545,388 8,121 1.49
Total 17,028 .81

Region 9
Basilan 133,900 6,200 4.63
Zamboanga N. 625,173 795 .13
Zamboanga S. 770,627 14,079 1.83
Total 21,074 1.38

Region 10
Misamis Occidental 193,040 1,759 .91
Total 1,759 .13

Region 12
Lanao del N. 321,701 964 .30
Sultan Kudarat 471,500 1,100 .23
Total 2,064 .14

Region 13
Surigao del N. 277,500 9,000 3.24
Surigao del Sur 444,706 7,803 1.75
Agusan del N. 260,500 1,500 .58
Agusan del Sur 845,146 4,972 .59
Total 23,275 1.27

ARMM
Lanao del Sur 333,696 812 .24
Maguindanao 434,581 4,622 1.06
Total 5,434 .52

TOTAL 160,265 .55

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Appendix 3

Mangrove forest reserve and wilderness areas (in hectares)

Mangrove Mangrove Forest

Region/Province Wilderness Reserves (ha)
Areas (ha) (Conservation)
(Preservation)
Region 4 (175) (33423)
Palawan 26085.9
Quezon 175 4206
Marinduque 1609
Romblon 455
Mindoro 1067

Region 5 (465) (9823)

Camarines Norte 1675
Camarines Sur 306 4604
Albay 162
Masbate 159 877
Sorsogon 1729
Ticao 318
Burias 458

Region 7 (1270) (3975)

Cebu 20 617.5
Bohol 1250 3357.5

Region 8 (1630)
Leyte 1630

Region 9 (5461)
Zamboanga del Sur 5461

Region 10 (2404) (16374)

Surigao del Norte 2404 16094
Misamis Occidental 208

Region 11 (12) (3474)

Davao 12
Davao Oriental 1646
Surigao del Sur 1828

Region 12

Lanao del Norte (108)

108
Total 4326 74268

Source: National Mangrove Committee’s Listing of Areas for Mangrove Swamp Forest Reserves and Wilderness Areas,
1981. (Unpublished).

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Appendix 4

Total Number of FLAs Issued From 1973 to September 2002

Region/Province Number of FLAs Total Area (ha)

Region 1
La Union 7 36.97
Pangasinan 203 1,243.17
Total 210 1,280.14

Region 2
Cagayan 8 78.71
Total 8 78.71

Region 3
Bataan 1 4.00
Bulacan 14 70.00
Nueva Ecija 1 39.07
Pampanga 9 79.27
Zambales 52 368.59
Total 77 560.93

Region 4
Batangas 16 161.64
Cavite 1 5.89
Marinduque 73 465.68
Mindoro Occidental 163 3,400.62
Mindoro Oriental 67 695.67
Palawan 25 1,472.41
Quezon 443 6,532.64
Romblon 22 126.77
Total 810 12,861.32

Region 5
Albay 8 186.34
Cam. Norte 109 1,473.30
Cam. Sur 79 1,212.88
Catanduanes 23 292.71
Masbate 161 2,489.91
Sorsogon 96 1,490.31
Total 476 7,145.45

Region 6
Aklan 323 3,337.22
Antique 5 150.65
Capiz 217 1,715.99
Guimaras 94 693.63
Iloilo 543 5,061.21
Negros Occidental 405 3,279.46
Total 1,587 14,238.16

Region 7
Bohol 191 2,613.70
Cebu 184 1,353.14

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Negros Oriental 86 694.73

Siquijor 1 6.23
Total 462 4,667.80

Region 8
E. Samar 19 184.60
N. Leyte 84 1,514.73
N. Samar 38 1,353.14
S. Leyte 8 113.07
W. Samar 67 2,686.81
Total 216 5,708.45

Region 9
Basilan 44 859.09
Sulu 1 159.00
Zamboanga City 143 1,914.26
Zamboanga N. 59 666.34
Zamboanga S. 217 5,758.73
Total 464 9,357.42

Region 10
Misamis Occidental 22 218.99
Misamis Oriental 23 174.41
Total 45 393.40

Region 11
Davao City 3 15.88
Davao del Norte 19 201.24
Davao del Sur 93 839.63
Davao Oriental 16 349.59
South Cotabato 9 102.63
Total 140 1,508.97

Region 12
Lanao del N. 26 1,150.55
Maguindanoa 67 970.25
Sultan Kudarat 8 220.73
Total 101 2,341.53

Region 13
Agusan del N. 52 1,233.87
Surigao del N. 35 339.76
Surigao del Sur 59 1,118.43
Total 146 2,692.06

Philippines 4,742 62,834.34

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Appendix 5

Distribution of degraded mangrove forest and tidal flats potential

for forestation/rehabilitation.

Region/Province FSP-Mangrove National Mangrove

Reforestation Forestation Development
(ha) Program Project
(ha) (ha)

Region 1
Pangasinan 790 1049

Region 2
Cagayan 201 531
Isabela 80

Region 3
Bulacan 120
Pampanga 250
Zambales 498
Bataan 350

Region 4
Palawan 1150 574
Quezon 1700 400 5895
Marinduque 100 2240
Mindoro Occidental 300
Cavite 300

NCR
Metro Manila 500

Region 5
Albay 400 560 2013
Camarines Norte 800 700 1210
Camarines Sur 950 50
Catandauanes 100
Sorsogon 1750 1149
Masbate 271 2107

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Appendix 5… con’t.

Region/Province FSP-Mangrove National Mangrove

Reforestation Forestation Development
(ha) Program Project
(ha) (ha)

Region 6
Capiz 10
Iloilo City 500

Region 7
Cebu 850 2264
Bohol 200

Region 8
Leyte 1610 1750 2529
Southern Leyte 625
Samar 65 5663
Northern Samar 200 3633
Eastern Samar 100 240

Region 9
Zamboanga City 836 990
Zamboanga Sur 450 7348
Basilan 1056
Zamboanga Norte 1857
Jolo 300

Region 10
Surigao Norte 232 5165
Agusan Norte 879
Misamis Oriental 20 200
Misamis Occidental 150 1857

Region 11
Surigao Sur 2744
Davao City 190

Region 12
Lanao del Norte 450
Maguindanao 300
______ _______ ______

TOTAL 10570 8830 52993

Source: Fisheries Sector Program, 1991 (Unpublished).

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Appendix 6

LIST OF MANGROVE STEWARDSHIP AGREEMENTS ISSUED BY THE GOVERNMENT

Region Province Municipality Tenurial Area No. of

Instrument (ha) House
Issued holds
03 Zambales Sta. Cruz MSA 7.6 103
05 Camarines Norte Jose Panganiban MSA 23.92 -
05 Camarines Norte Vinzon CSC and 81.23 -
MSA
05 Camarines Sur Garchitorena MSA 296.00 -
05 Sorsogon Juban MSA 548.44 -
05 Sorsogon Prieto Diaz MSA 500.00 -
05 Sorsogon Sorsogon MSA 137.13 -
05 Sorsogon Sorsogon MSA 70.36 -
08 Leyte Maasin MSA 95.32 117
09 Zamboanga del Siay MSA 20.00 21
Sur
09 Zamboanga del Siay MSA 28.50 5
Sur
10 Lanao del Norte Lala MSA 172.00 16
10 Lanao del Norte Lala MSA 172.00 16
12 Sultan Kudarat Lebak and MSA 1,800.00 172
Kalamansig

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Appendix 7

CONSERVATION PRIORITY AREAS FOR MANGROVES IN THE PHILIPPINES (based on the

National Biodiversity Strategy and Action Plan, Ong et al. 2002)

1. Buguey, Cagayan
2. Divilacan, isabela
3. Lingayen Gulf, Pangasinan
4. Pagbilao Bay, Quezon
5. Bongsalay
6. Western Samar
7. Siargao-Dinagat Islands
8. Palawan
9. Sarangani Bay
10. Puerto Galera Bay
11. Cablao Bay
12. Southern Leyte
13. Panguil Bay
14. Sta. Cruz, Basilan

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