POLICIES ON THE MANAGEMENT AND CONSERVATION OF LAKE

LANAO

A Policy Paper Presented To:

PROF. MYRTHENA L. FIANZA
Department of Political Studies
College of Social Sciences and Humanities
Mindanao State University
Main Campus

In Partial Fulfillment of
the Requirement for the Course
Political Science 154 (Issues and Problems in
Philippine Public Policy and Governance)
Second Semester, A.Y. 2015-2016

GODFREY S. MORDENO
July 2017

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 I. INTRODUCTION

Background of the Study

We are on the cusp of an enormous change wherein generations of exploitation and

domination over the Earth and the gratuitous utility it offers pause for reflection. Over the years of

neglect in discourse, the concern in protection and conservation of the planet’s resources has now

resurfaced as evidences about Global Warming and Climate Change reported a dire reality. This

international issue is reflected in every levels of governance from the United Nations to the Local

Communities who are susceptible for such challenges. Actions were required to take place to

prevent or mitigate the effects of the impending worst case scenario.

Among many important resource base in the world is Lake Lanao. This too is vulnerable

to the effects of global warming and climate change but most of all to the severe anthropogenic

externalities from the communities situated in the area.1

Located in the Province of Lanao del Sur, Autonomous Region in Muslim Mindanao

(ARMM), Philippines, Lake Lanao, is the largest freshwater lake in the country. It is also one of

the seventeen (17) ancient lakes of the world.2 The existence of the like is crucial to the well-being

of the surrounding communities of its shorelines. Being the major source of power generation in

Mindanao its role in the development of the island ripples through the grid that distributes its

harnessed energy. It has six3 watersheds with rivers and major tributaries totaling 431 km. The

1
Dr. Renato S. Pacaldo, From his discussions on “Lake Lanao-Agus River Watershed and Climate Change:
Unifying Strategies and Prescriptions,” during a Seminar on Watershed Amidst Challenges of Climate
Change hosted by the National Power Corporation—Mindanao Generation Watershed Management
Division at Maria Cristina Hotel, Iligan City (June 29, 2017)
2
David G. Frey. 1974. "A Limnological Reconnaissance of Lake Lanao," cited in Pipalawan O. Naga. 2010.
“Lake Lanao Brief.” Marawi City: Save Lake Lanao Movement, Inc. p. 1.
3
Forester Samsodin B. Taha, From his discussions on “Updates on the Integrated Natural Resource and
Environmental Project (INREMP) in Lake Lanao,” during a Seminar on Watershed Amidst Challenges of
Climate Change hosted by the National Power Corporation—Mindanao Generation Watershed
Management Division at Maria Cristina Hotel, Iligan City (June 29, 2017)

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waters from these rivers and tributaries drain into the lake and goes out through only one outlet,

the Agus River in Lanao del Norte that flows southwest into Iligan Bay via two channels; Maria

Cristina Falls, and Linamon Falls. Along the Agus River, are six hydroelectric powerplants

arranged in a cascading series. The National Power Corporation (NPC) owned and operated the

powerplants. The Agus grid can generate electricity of an installed capacity of 727.1 megawatts,

supplying seventy percent (70%) of the total energy consumption of the people of Mindanao.

However, by the introduction of the coal-fired powerplants, diesel powerplants, and some other

powerplants operated by private corporations it only constitute now about fifty percent (50%) of

the total power needs of Mindanao.4

The Lake Lanao Watershed is an important biodiversity area in the Philippines. It provides

an aquatic habitat for some eighteen (18) endemic species of freshwater fish and a large number

of waterfowls. Among other species, the lake is home to the native cyprinids consisting of twenty

(20) species of the genus Barbodes and several genera of Mandibularca, Spratellicypris,

Cepahlokompsus and Capatulus. Its flora diversity has also twenty-seven (27) species of trees,

shrubs, and vines; while forty-one (41) medicinal plant species were recorded. Likewise, it was

sighted that there are six (6) bird species in the watershed. Among them are the Halikyon chloris

(white collared kingfisher), Corvus enea (slender bird crow), and the Dubulens ibis coromandus

(cattle egret).5

Other than the biotic component, the watershed also is a potent source for mineral

extraction. Mostly metallic minerals are found along the boundary of the watershed with Lanao

4
Interviewee: Forester Kharis R. Maranda. Manager of the National Power Corporation—Mindanao
Generation Watershed Management Division. NPC-MINGEN WMD Manager’s Office. June 30, 2017 at
11:00 am – 12:04pm.
5
Department of Environment and Natural Resources. 2015. “Lake Lanao Watershed (Project Site).”
Integrated Natural Resources and Environmental Management Project. (Retrieved from the DENR
website)

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del Norte and North Cotabato, while non-metallic minerals are found in the North-eastern side.

Some of these include copper, gold, chromium, manganese, silver, clay, gypsum, phosphate,

bentonite sand, gravel and feldspar.6

Besides the material and economic givens of the lake, it plays also an important role in the

socio-cultural development of the M’ranao people residing in the shores and the surrounding areas

of the lake. The word ‘Lanao’ itself is a colonial slang of the M’ranao term Ranao from which the

term originated. From the point of view of semantics Ranao (the lake) is engraved on the ethnicity

of the people ascribing their identity with the lake. That is why ‘M’ranao’ is a word which literally

means ‘from/of the lake.’ This is the reason why the tribal identity of the M’ranao can never be

divorced from the materialist perception of the lake it even goes beyond that conception.

The lake has been proclaimed watershed reserve by virtue of Proclamation No.871 issued

on February 26, 1992 and is included in the initial components of the National Protected Areas

System (NIPAS) governed under NIPAS Act of 1992 (Republic Act No. 7586). Basically, the

management of its protected areas are under the purview of the Department of Environment and

Natural Resources national level and not over the Autonomous Region in Muslim Mindanao

(ARMM).

However, amidst of the existing policies, the current condition of the surrounding

watershed in the lake and its rivers has suffered from illegal and unsustainable forestland activities.

As a result, the water flowing from the lake has been reduced and soil erosion takes place. Also

the quality of the lake was deteriorated by the agricultural run-off and the mismanagement of the

Solid-Waste disposal within the surrounding City and Municipalities near to the lake. Resulting

to the disappearance of a large count of endemic species living in the lake.7

6
Ibid.
7
Naga, Pipalawan O. 2010. “Lake Lanao Brief.” Marawi City: Save Lake Lanao Movement, Inc.

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 In lieu of the present problems described above it is the intention of this paper to review

some of the policies that is responsible for the management and conservation of Lake Lanao and

to find out other factors that dramatize the natural resource governance of the lake.

Statement of the Problem

This research will try to review some of the policies that governs Lake Lanao particularly

the management and conservation of its watershed and to inquire other factors that affects its

governance. Specifically, it aims to answer the following questions:

1. What are the laws that laid down the framework of resource management and

conservation of Lake Lanao? How are they consolidated?

2. Who are the stakeholders involved in the resource governance of Lake Lanao? What

essential roles are they playing? Is there any conflicting interest?

3. Are there any other factors which dramatize the management and conservation of Lake

Lanao resource?

4. What is the appropriate approach that can be adopted in the resource management and

conservation of Lake Lanao?

Significance of the Study

This research is deemed significant primarily to the people of the lake, the tribal

communities in the Lake Lanao—the M’ranaos. As an acknowledgement of their important role

in the protection of the resources of Lake Lanao; and the recognition of their historical and socio-

cultural identity attached to the Lake. It will also provide an awareness of the issues concerning

the lake for which they are mostly affected.

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 This study also hopes to aid the government agencies and the highest decision making body

of the land to formulate more effective and appropriate laws in the management and conservation

of Lake Lanao and to adopt programs which promote sustainable development within the area.

Lastly, this research can add to the existing literature or studies pertaining to the resource

governance in Lake Lanao and for other studies to be conducted under the same nature.

Scope and Limitations

This research dealt primarily with the laws and existing programs that is responsible in the

management and conservation of the resources within the Lake Lanao Watershed. It reviews in

particular the Presidential Proclamation 871 of the late Pres. Corazon C. Aquino establishing the

Lake Lanao Watershed reservation and the role of Republic Act 7586 or the National Integrated

Protected Areas System (NIPAS) Act. It will also try to look into the current program being

adopted in Lake Lanao Watershed Area.

Data gathering of this study is supposed to include some of the representative from the

grassroots. But because of the current instability and inaccessible field work the proponent is

limited in getting secondary scholarly resources available in the web and some information from

selected key informants.

Methodology

This study follows a qualitative and descriptive design type. The primary data gathering

method is the interview method using an interview schedule as an instrument. The proponent

interviewed the following Key informants, namely: the manager of NPC-MINGEN Watershed

Management Division; the Regional Director of Environmental Management Bureau (EMB) of

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the Department of Environment and Natural Resources (DENR) Region 10; the focal person in

Lake Lanao INREMP (Integrated Natural Resources and Environment Project); and a Ranao based

None Government Organization (The Al Mujadillah). A total of five (5) key informants were

involved in the study.

Also, archival method is used in sorting some of the secondary resources used in the study

particularly some executive directives and statutes. Scholarly documents were also extracted from

the web. There is no statistical treatment involved in this research.

Theoretical Framework

This research employed an eclectic approach in dealing with the policies involving

resource management and conservation in Lake Lanao. Generally, this paper will be working with

the Stages Approach of Policy Making as a framework of analysis giving emphasis on

implementation and the evaluation process of the policymaking process. It also used the

incremental approach to policy study as a complimentary framework.

The model of Stages Approach view policy process as a sequential steps or stages.

Basically, it follows six stages:1. Problem formation or issue formation; 2. Government agenda,

the getting of the government’s attention; 3. Policy formulation; 4. Policy adoption, the process of

getting government to choose one of the options it is considering; 5. Policy execution or

implementation; and 6. Policy evaluation.8

Policy execution or implementation follows after the fourth stage of policy process, policy

8
Hughes, Steven W. and Kenneth J. Mijeski. 1984. “Politics and Public Policy in Latin America.” Cited in
Godfrey S. Mordeno. 2014. “The Implementation of the Municipal Fisherfolk Registry of Coastal Local
Government Units (FishR) Program In Pursuant to Section 19 of Ra 8550, Otherwise Known as ‘The
Philippine Fisheries Code Of 1998’: The Case of Two Selected Fishing Communities In Iligan City.”
Undergraduate Term Paper. Mindanao State University. p. 10.

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adoption. After the government had its choice it proceeds into putting it into effect. The traditional

view of implementation adopted a top-down approach. A top-down approach conceives the task

of policy implementation as ensuring that policy execution delivers the outputs and outcomes

specified by the policy makers. It questions classical problem of bureaucracy, like how to ensure

political direction of unruly public servants. Elected government officials had to be able to secure

compliance from the department and agencies already committed to pet projects to their own.

Without vigilance from on high, sound policies would be hijacked by lower level official, thus

diluting the impact of new policy initiatives.9 By contrast, bottom-up approach considers that the

role of those who execute policy in reshaping broad objectives to fit local and changing

circumstances should be both recognized and welcomed. The plausible suggestion emerging from

the bottom-up perspective is that policy-makers should seek to engage rather than control those

who translate policy into practice. Questions related here inquire about the circumstance changed

since the policy was formulated. It also asked whether the policy is poorly designed or not.10

The stage where the policy process culminates is the Policy Evaluation. This stage

completes the policy cycle in the sense that information acquired through evaluation can be fed

back into the initiation and formulation stages. This process can throw up new policy proposals

and help to refine existing ones. The job of policy evaluation is to work out whether a policy has

achieved its goals.11

Furthermore, given the nature of the ‘sewing and tailoring’ of policies regarding the

resource management and conservation in Lake Lanao, the application of the incremental model

is deemed essential in the analysis of the existing programs and policies. Fred Frohock provided

9
Hague, Rod and Martin Harrop. 2004. “Comparative Government and Politics: An Introduction.” cited
in Mordeno. 2014. p. 11.
10
Ibid. p. 12.
11
Ibid.

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an understanding of what is incremental based in his four definition. One, that an increment is a

small departure from previous policy. Two, that an increment represents a middle range

compromise of conflicting demands. Three, that an increment is any policy that is modest in

resource and scope. And finally, an increment was defined as any policy that accords with the

more modest claims made on any policy issue. Furthermore, incrementalism has to do with the

relationship among power, conflict, the process of choosing a policy alternative, and the policy

outcome. 12

Definition of Key Terms

Lake Lanao/Lake Lanao Watershed—in this study it would take to mean the sum total of

ecologies (biotic and abiotic) within the defined topographic divide or highest ridges surrounding

Lake Lanao along with its channels (Agus River and its Tributaries) draining to the sea. This would

also mean that stakeholders are not just spatially located in the upland (Lanao del Sur) but also

with the underlying communities in the lowland areas (Iligan and some parts of Lanao del Norte).

It also refers to the expanded spatial dimension where the entire nested system of social-

environmental interaction and relation takes place.

Management—refers to the actions and initiatives towards the proper regulation of Lake Lanao

Watershed based upon defined rules or norms that are theoretically laid down by the stakeholders.

Conservation—pertains to the effort of a sustainable use of Lake Lanao resources

12
Hughes, Steven W. and Kenneth J. Mijeski. 1984. “Politics and Public Policy in Latin America.” Cited in
Federico Filipino.2014. “A Study on the Effectiveness of R.A 10351 Known as the Sin Tax Reform of 2012:
The Case of the Two Selected Barangays in The Municipality Of San Pablo, Zamboanga Del Sur.”
Undergraduate Term Paper. Mindanao State University. p. 9.

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 II. REVIEW OF RELATED LITERATURE

Foreign Studies

In his work on theoretical frameworks in political ecology and participatory nature/forest

conservation, Mohammad Tanzimuddin Khan, presented a new categorization of actors that takes

into account the nature of actors' involvement and their material interests in nature/conservation

projects. He argued that exogenous actor(s) refers to those that are not directly or formally

involved, but still have a material stake in the nature/forest conservation site where they are in a

common relationship with other actors falling within the endogenous category. The endogenous

category describes those agents entrusted with the responsibility for implementing the nature/forest

management project, with attendant conservation values. Both endogenous and exogenous actors

are useful categories to capture the multiple agendas of a normative conservation project.13

Similarly, Oliver Avramoski argued that stakeholder participation lies at the heart of the

new policy approaches to management of lakes and reservoirs. The stakeholders in lake basin

management are individuals or representatives of a group who make use of, have an impact on, or

are impacted by the issue of concern. This category is parallel to the idea of Khan in the importance

of the endogenous actors in participatory management and conservation efforts. His findings from

case studies on 28 lake regions from throughout the world shows that local communities and non-

governmental organizations (NGOs) are among those stakeholders that can significantly affect the

outcome of management efforts in lake basins. He also demonstrated that active community

13
Khan, Mohammad. 2013. “Theoretical frameworks in political ecology and participatory nature/forest
conservation: the necessity for a heterodox approach and the critical moment.” Journal of Political
Ecology. Vol.20 (2013): 460-472.

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participation is vital to sustainable development in lake basin management. Effective participation

of local communities in lake basin management depends on the degree of awareness among local

communities of the important technical and social considerations. This is why the involvement of

local communities needs to be accompanied by public awareness and information campaigns.

What he went on to say was that the involvement of local communities must be based on a sound

understanding and appreciation of the local cultural beliefs, values and norms.14

Local Studies

In his study on the “Human impacts on Laguna de Bay, Philippines and management

strategies for their mitigation”, Guerrero Rafael presented how anthropogenic intervention in the

ecology of the lake imposes threat to the state of the lake as an important common pool resource.

Because of rapid urbanization, industrial development and deforestation of its watershed, Laguna

de Bay has been stressed with sedimentation, overexploitation of its fisheries and pollution. In

order to mitigate the problems they have found out management strategies. Some have been

adopted by government to address such human impacts. Among the major programs are the

installation of a hydraulic control structure, implementation of a zoning and management plan and

the formulation of a master plan. Guerrero argued that an integrated approach for the management

of the Laguna de Bay basin is essential for its sustainable development.15

Also, in his research on the condition of the Lake Lanao, Pipalawan Naga identified various

problems that are induced by anthropogenic activities surrounding the watershed of the Lake. He

reported that the watershed around the lake and along its associated rivers has suffered from

14
Avramoski, Oliver. 2004. “The Role of Public Participation and Citizen Involvement in Lake Basin
Management.” Thematic Paper. Department of Environmental Sciences and Policy Central European
University. Budapest Hungary.
15
Guerrero III, Rafael. 1995. “Human impacts on Laguna de Bay, Philippines and management strategies
for their mitigation.” GeoJournal 40.1-2(1996): 69-72.

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rampant timber poaching and conversion to farms over the years. As a result, the water flowing

into and from the lake has been reduced drastically. Soil erosion, sewage and agricultural run-off

have also contributed greatly to the deterioration of water quality in the lake. And the reach

biodiversity in the lake with its several endemic fish species in the lake have already are starting

to disappear. Naga suggest that the most appropriate option is to push for the tri-partite co-

management agreement among DENR, Province of Lanao del Sur, and the NPC. However this

only consist of the stakeholders of the top management.16

16
Naga, Pipalawan O. 2010. “Lake Lanao: An Ancient Lake in Distress.” Marawi City: Integrated
Ecosystem Management Program Province of Lanao del Sur.

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 III. DISCUSSION OF FINDINGS

A. Policies Governing Resource Management and

Conservation in Lake Lanao

Among the identified national directives that took effect was the Presidential Proclamation

No. 871 of 1992 by the late president Corazon C. Aquino. The purpose of the proclamation was

mainly to assign Watershed Reservation Status to the Lake Lanao area. It also sought to protect,

maintain, and improve the forest cover of the said watershed which is deemed important for the

maintenance of enough water yield for the sustained operation of the Hydropowerplants situated

along the Agus river which is owned and operated by the National Power Corporation Mindanao

Generation .17

The proclamation did not explicitly exclude its jurisdiction among the concerned

municipalities and a city already striving in the said watershed since the beginning of civilization

in the Philippines. Nonetheless, it allows them to maintain their state of affairs within the area of

alienable and disposable lands (A&D). The declared timberlands on the other hand are to be

protected strictly from any access what so ever as a Watershed Forest Reserve. Within this

proclamation also the government enshrined the national agency of the Department of

Environment and Natural Resources the authority to administer and manage the reservation in

coordination with the other agencies of the Government with the objective of maintaining

usefulness of the lake as a source of water for the generation of hydro-electric power, agricultural

17
Aquino, Corazon C. 1992. Establishing As The Lake Lanao Watershed Reservation For Purposes Of
Protecting, Maintaining And Improving Its Forest Cover And Water Yield For Hydropower, Irrigation And
Domestic Use A Parcel Of Land Of The Public Domain Located In The Municipalities Of Ditsaan-Ramain,
Bubong, Buadipuso-Buntong, Molundo, Taraka, Maguing, Tamparan, Lumba-Bayabao, Poona-Bayabao,
Masiu, Buteg, Lumbatan, Lumbayanagui, Bayang, Binidayan, Ganassi, Pualas, Madalum, Madamba,
Bacolod Grande, Tugaya, Balindong, Marantao, Piagapo, Saguiaran And Marawi City All Of The Province
Of Lanao Del Sur, Island Of Mindanao, Presidential Proclamation No. 871.

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requirements and other purposes related to activities concerning Lake Lanao. The declared

Watershed Reserved is outside the purview or Jurisdiction of the Autonomous Region in Muslim

Mindanao.18

Forester Kharis Maranda opined that one of the initial inconsistency of the proclamation is

its inappropriate declaration of the entire area of Lake Lanao as watershed reserved including the

areas already settled by communities even before there was a Philippine state. According to him

technically speaking a watershed reserved per se has no or must not be intervened by any other

anthropogenic activities. He said that the proclamation is not appropriate or cannot be applied in

the case of the Lake Lanao area. Because even before there was a proclamation the community

set-up has already been there for centuries. The lake has been part of the long history and cultural

identity of the M’ranao people. In fact the first four encampments of pat-a-phangampong ko ranao

is until now recognized by the m’ranao as their root of origin.19 He suggested that there must be a

sensitive balancing of all the factors that needs to be considered within the area particularly the

settled communities. One cannot just remove them or to take them out of the place just to preserve

and conserve the area.20

Moreover, when Congress passed the National Integrated Protected Areas Act (NIPAS).

All declared watersheds were included as initial components of the protected areas system

incorporating in it the Lake Lanao Watershed Reserved.21 The proclamation came before NIPAS

18
Ibid.
19
Lindy Washburn.1977. "Our Lake for Others? The Maranao and the Agus River Hydroelectric Project."
Cited in Naga, Pipalawan O. 2010. “Lake Lanao Brief.” Marawi City: Save Lake Lanao Movement, Inc.
20
Interviewee: Forester Kharis R. Maranda. Manager of the National Power Corporation—Mindanao
Generation Watershed Management Division. NPC-MINGEN WMD Manager’s Office. June 30, 2017 at
11:00 am – 12:04pm.
21
Jose L. Atienza (Sec.). 2008. Revised Implementing Rules and Regulations Of Republic Act No. 7586 or
The National Integrated Protected Areas System (Nipas) Act Of 1992. Department of Environment and
Natural Resources Administrative Order No.2008-26.

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and therefore, Lake Lanao Watershed is technically a protected area under the NIPAS system.

Under NIPAS, Lake Lanao will continue to be governed under existing laws, rules and regulations.

No law has since been passed reaffirming the status of Lake Lanao Watershed as a NIPAS

protected area, nor has it been removed under the System.22

B. Major Stakeholders In the Resource Management

and Conservation in Lake Lanao: Their Role and Interest

B.1. Line Agency: DENR

Consequent to the proclamation of the Lake Lanao Watershed reservation, the President

created the Lake Lanao Watershed Protection and Development Council (LLWPDC).23 The

Council is chaired by the Department of Environment and Natural Resources (DENR) Secretary,

with the President of National Power Corporation (NPC) as vice-chair. It also include members

coming from the Armed Forces of the Philippines (AFP) Chief of Staff, Autonomous Region in

Muslim Mindanao (ARMM) Governor, President of the Save Lake Lanao Movement (SALLAM),

President of Mindanao State University (MSU), President of the Philippine Chamber of Commerce

and Industry (PCCI), and President of the Mindanao Association of Electric Cooperatives

(MAEC). In March 2007, the President added the following members: Governors of Lanao del Sur

and Lanao del Norte, and the Mayor of Marawi City.24

According to Dr. Abdullah Abubacar, who was once acted as the acting chairperson of the

LLWPDC and the current Regional Director of the Environmental Management Bureau (EMB) of

the DENR Region 10, the Council still operates since it is stipulated as a policy. However, their

22
Naga, Pipalawan O. 2010. “Lake Lanao Brief.” Marawi City: Save Lake Lanao Movement, Inc. p. 16
23
Memorandum Order No. 421 (1992) cited in Naga, Pipalawan O. 2010. p. 13
24
Memorandum Order No. 242 (6 Mar 2007) cited in Naga, Pipalawan O. 2010. p. 13

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function is limited only in making management plan with no exact authority to execute all of their

decisions.25 However, according to Forester Maranda the Council is not really operating quite well.

He described it as a body that “now you see, now you don’t.”26 He criticized that the Council is

very top-heavy. According to him the “Council before operates only when there is an on-going

crisis that affects Lake Lanao and the power generation in particular. For example during the 1990s

where we experienced a prolonged El Nino the Convened to talk about the issue of Lake Lanao

Watershed and how to rehabilitate the denuded areas. After the drought, they dissolved again. 27

There is also another issue in the governance of Lake Lanao Watershed Reserved. The

nearest responsible agency that is mandated by the proclamation 871 is the DENR Region 10. The

problem, however is that the National Agency has no coordination or has overlapping role with

the DENR in ARMM. Although it is stipulated clearly in the proclamation that all authority in

terms of governance is delegated to the National Agency of DENR. However DENR ARMM is

also at the same time issuing permit for logging in the reserved area contrary and in violation to

the said proclamation. That is why when issues arise about illegal logging both of the agencies are

pointing to each other blaming the other office for mismanagement.28

On the other hand, there is now an ongoing project being conducted by the DENR national

agency through CENRO of Iligan City this is called Integrated Natural Resources and

Environmental Management Project (INREMP) in which Lake Lanao Watershed Area is the

primary target. In general the INREMP will address unsustainable watershed management in four

25
Interviewee: Dr. Abdullah Abubacar. Acting chairperson of the Lake Lanao Watershed Protection and
Development Council (LLWPDC) and the current Regional Director of the Environmental Management
Bureau (EMB) of the DENR Region 10.
26
Interviewee: Forester Kharis R. Maranda. Manager of the National Power Corporation—Mindanao
Generation Watershed Management Division. NPC-MINGEN WMD Manager’s Office. June 30, 2017 at
11:00 am – 12:04pm.
27
Ibid.
28
Ibid.

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priority river basins: (i) the Chico River Basin in the Cordillera Administrative Region, Northern

Luzon; (ii) the Wahig–Inabanga River Basin on the island of Bohol; (iii) the Lake Lanao Basin in

the Autonomous Region of Muslim Mindanao; and (iv) the Upper Bukidnon River Basin in

Bukidnon, Northern Mindanao. The project focuses on indigenous peoples and resource-poor

communities, the project is aimed at reducing and reversing the degradation of watersheds and

their associated environmental services caused by forest denudation and unsustainable farming

practices. It will also provide incentives to local communities, local government units (LGUs), and

the Department of Environment and Natural Resources (DENR) for improving natural resource

management by generating sufficient and tangible economic benefits. Mechanisms to achieve

these project objectives include (i) payments for environmental services (PES) including water

regulation, soil conservation, carbon offsets, and biodiversity; (ii) income generation from

sustainable use and management and value-added processing of timber and non-timber forest

products; (iii) improved natural resource productivity; and (iv) improved climate resilience in

project watersheds.29

B.2. National Power Corporation (NPC)

Aside from being the most visible actor in the Watershed Area as power generator and

being one of the members of the LLWPDC. The NPC is also mandated under the EPIRA Law to

manage and continue their responsibility for the management and rehabilitation of watershed areas

within their concern.30 In response to this mandate the Lake Lanao-Agus River Watershed Area

Team (LLARWAT) under the Watershed Management Division, NPC-MINGEN was created.

29
Asian Development Bank. 2009. Project Administration Manual. Technical Assistance to the Republic of the
Philippines for the Integrated Natural Resources and Environmental Management Project. Manila. PDF
30
Implementing Rules and Regulations of the Electric Power Industry Reform Act (R.A. No. 9136). Section 34 (d)
cited in NPC Watershed Department. Pamphlet distributed during a Seminar on Watershed Amidst Challenges of
Climate Change hosted by the National Power Corporation—Mindanao Generation Watershed Management
Division at Maria Cristina Hotel, Iligan City (June 29, 2017)

Page | 17
LLARWAT is responsible for implementing both the structural and vegetative measures for the

rehabilitation, protection and development of the Lake Lanao-Agus Watershed reserved. There

efforts is focused in maintaining and increasing the forest cover of the Watershed Reserved. Protect

the remaining resources of the watersheds. And to rehabilitate the eroded areas and or stabilize

slopes along waterways, reservoirs. And most importantly, to enhance participation of

communities inside the watershed.31 So far the agency has achieved the following developments:

1. One-thousand (1000) hectares planted with forest trees through the NPC-PICOP Reforestation

in 1992; 2. 170 ha planted and 107 farmer beneficiaries of the Lake Lanao Watershed Development

Council Agroforestry projects in 2002; 3. Implementation of the Family Approach Contract

Reforestation and Agroforestry since 2003; 4. 1,524 ha planted and 953 families assisted through

the Universal Charge-Environmental Charge rehabilitation projects since 2006; and lastly 5.

Community-based projects supported livelihoods and organize peoples organization (POs) such as

the Agus 5/6 Linao Fishermen, Matampay Agus 4 Farmers Credit Union and Modern Farmers

Multi-Purpose Cooperative.32

In addition, For. Maranda said that they also play a role in the policing of the Lake-Lanao

Watershed however it is only limited to report on violation sightings. The DENR is the one

responsible to issue an arrest warrant.33

B.3. Grassroots Participation and Civil Society Organizations

Forester Samsodin Taha, Ecosystem Management Specialist (CENRO-Iigan) and the focal

person for INREMP, described the attitude of the people from the grassroots as being eager or

enthusiastic in project collaboration. However, according to him “There are really farmers who

31
Ibid.
32
Ibid.
33
See Interview with For. Maranda.

Page | 18
dismissed their offer for assistance. Some have cynical attitude or distrust since they have also

experienced from the past that they were used in fund raising campaign by documenting their way

of life which is below poverty but when the budget comes the agencies will just neglect or will

never return with their promised project. Some of them became critical because of these

experiences.”34 He emphasized that there must be an effective information drive prior to the

program implementation so that you one could get the full support and collaboration with the

peoples of the grassroots.35

Meanwhile Dr. Renato Pacaldo criticized this very receptive attitude. He argued that

according to his observations in the area people from the grassroots has the tendency to ask first

the monetary benefit they can get in involvement not because they sincerely want to participate in

the rehabilitation of the lake but more of the economic motivation to gain material benefits. For

him, this attitude is but normal given the poverty situation these people are facing. Nonetheless,

this attitude must be changed.36 Dr. Abubacar also added that “Unless the locals would internalize

the issue of conservation, there is no such thing as good laws or good management in Lake

Lanao.”37

On the other hand Al Mujadillah president38 opined that Civil Society organizations and

34
Interviwee: Samsodin B. Taha. Ecosystem Management Specialist (CENRO-Iigan) and the focal person
for INREMP. City Environment and Natural Resources Office, Tubod, Iligan City. June 30, 2017 at 4:56pm-
5:24pm.
35
Ibid.
36
Interviewee: Atty. Renato Pacaldo, PhD. Academic Scholar—Mindanao State University (MSU-Main)
College of Forestry and Environmental Studies; Chief consultant to the INREMP-Lanao. Maria Cristina
Hotel, Iligan City. June 29, 2017 at 2:22pm-3:00
37
Interviewee: Dr. Abdullah Abubacar. Acting chairperson of the Lake Lanao Watershed Protection and
Development Council (LLWPDC) and the current Regional Director of the Environmental Management
Bureau (EMB) of the DENR Region 10. During a Three day Workshop on My Lake Lanao Project Hosted
by Al Mujadilla Not for Profit Organization and MSU-Iigan Institute of Technology. Crystal Inn, Iligan City.
May 1, 2016 at 11:25am-11:44am.
38 Interviewee: (Informant Censored Identity). President, Al-Mujadillah a Ranao Based CSO-NGO involved
In community organizing and livelihood creation in some Municipalities around the Lake. During a Three

Page | 19
Peoples Organization (POs) are important actors in the management and conservation of the

resources in Lake Lanao. She believed that M’ranaos should take care of the Lake looking not to

the material benefits it offers like electricity but to look into the larger connectivity of things. 39

She also cited that there are also some problems arising among NGOs. She said that previously

NGOs operate individually pursuing their own interest in advocacy. Leading to some

organizational feud and the practice of “Turfing” in target communities. Wherein one NGO will

prohibit another NGO to access communities they have already organized. Or that families

involved to one NGO program is prohibited or discouraged to participate in another program of

another NGO. According to her it creates a problem for there is no integration for all the CSOs

which are supposed to be united in the call for proper governance from the bottom-top. However

she also said that as time went on CSOs and NGOs are now becoming mature in their operation.

Particularly in choosing International Partners for funding and making partners among themselves.

She also argued that according to their experience in the implementation of their programs. There

is no need for international funders, since they see it more advantageous to have partners at the

ground communities and responsible agencies like MSU or other NGOs base upon cooperation.

Because sometimes other funders are not faithful enough to sustain their programs.40

B.4. Traditional Leaders: Sultan and Ulamas

Traditional leaders are one of the major actors in the Lake Lanao governance. For. Maranda

collaborating with them is a must since one cannot go around their communities without asking

their permission. They are a means of access especially to the areas on the watershed that are

susceptible to law-less elements. They are a potential icon for the advocacy in lake Lanao. They

day Workshop on My Lake Lanao Project Hosted by Al Mujadilla Not for Profit Organization and MSU-Iigan
Institute of Technology. Crystal Inn, Iligan City at 3:00 pm-4:43pm.
39
Ibid.
40
Ibid.

Page | 20
can use their preaching and sermon to instill to the psyche of the grassroots the value of the lake

in their culture as well as their religion. However according to him, there is a challenge in

organizing this people because they are not a cohesive entity. One sultan is limited by the

jurisdiction of the other and so there must not be any meddling of the affairs of one another. If a

project needs to be organized you need to take a person to person consent to win their cooperation.

Another, problem that is also observed by Maranda is the superficial involvement of the traditional

leaders in the communities not like with other entities like NGOs and CSOs whoa were really

active in their programs.41

B.4. Government Leaders

As observed by most of the key informants Local Leaders are not very much involved in

activities concerning the Lake Lanao watershed. They are active only in strong talk but on the

ground they are not really engaged. Maranda observed that LGUs are receptive of their programs

if they see that they can profit something from the project. But if it is on the expense of their part

they are seldom seen participating. Nonetheless, he also recounted that there are also Mayors who

are really sincere in the advocacy but only few of them are on the ground.

B.5. Corporations and other Sectors who benefit from the Grid

Lake Lanao is very crucial to the development of Mindanao and the whole country itself.

The grid that taps the waters in the Agus ripples with it the significance of the lake from Lanao

Del Sur and to the rest of the people and places. Mostly, corporations have the biggest consumption

of the electricity that the powerplants are producing or generating. According to For. Maranda

Corporations like Malls, Cement Factories and other manufacturing plants have also corporate

responsibility to the community where it is situated. But that does not end their responsibility

41
See Interview For. Maranda

Page | 21
according to him if you are also a water user you must contribute for the people living in the up-

land areas where the head waters of the watershed are. The concept of Payment for Environmental

Services (PES) is a developing concept in the Resource Management and Conservation. Wherein

people in the low lying areas are indebted to the conservation and protection of the products of the

watershed they are enjoying from the people residing the upland. PES can come in terms of direct

incentive or programs for the communities in the hinterland incentivizing them so that they will

also conserve and not exploit the watershed where they are living.42

C. Other Factors Dramatizing the Resource

Management and Conservation of Lake Lanao

Lake Lanao has a very complex and unique set up. Factors such as culture, and security

plays a peculiar role in its governance politically or environmentally. For. Maranda opined that

these factors really affect the management and conservation of the Lake Lanao Watershed.

Because of the culture of Rido, or the clannish skirmishes of reprisals and counter-reprisals

cooperation in the ground is hard to organize since families are hesitant to relate with other clans

for they are afraid that they have a history of Rido. According to For. Taha when they are surveying

their target communities they really have to transfer to other communities just to get away from

threats of conflict arousal. Also, when one neighbor violated the law in logging or other related

violations, the other witnesses have the tendency to keep silent for they are afraid of creating or

starting feuds. This may not be as trivial in paper but in actuality sparks of clannish hatred could

last for decades and can sacrifice lives from both of the warring families.43

Another important factors to be considered in the area is the years of instability and

lawlessness. Because of the greater grievance of some communities against the government of the

42
See Interview with For. Maranda.
43
See interview with For. Taha.

Page | 22
day and the perceived injustice they experience from the oppressive system of the Philippine

Government. Management in the area are close to impossible. Since the proclamation 871 and the

current arrangement of ARMM. The people residing in the vicinity of the lake felt disservice on

their part for its management is not within their jurisdiction. Some of the local extremist existing

in the area at present are dramatizing more the situation for this the current program of NPC, and

INREMP have to be suspended.44

Because of these instabilities and other still to be identified factors management and

conservation over the resources in Lake Lanao is nested in a very complex system. What is

theoretically discussed in the books are not really applicable or cannot be found in the actuality.

One have to unlearn the ‘ought to be’ and make use of whatever advantages on the ground.

44
Ibid.

Page | 23
 IV. CONCLUSION, IMPLICATIONS, AND RECOMMENDATIONS

Crisis relating to resource degradation and its related issues in the macro scale—Global

Warming and Climate Change can only be solved through the effective implementation of the rules

and norms through which we use this gratuitous utilities. If this concerns remain to be at the back

of the mind issue. This problem will augment that we can reach the point of no return.

This is also true with the issue of resource management and conservation of Lake Lanao.

Though policies are being laid down by the National Government it is not enough to fit the

condition or set-up by which the Lake Lanao is characterized. A complex nested system of

interaction relation involving different actors and stakeholders, with different interest and different

roles, are further complicated by factors such as culture and instable security cannot be solved by

a plan of simple methodology. It will require the creativity to harmonize and integrate this

complexity.

Therefore it can be implied that the policies mentioned are not enough to govern the area.

Critically speaking these laws and policies are much devolved from the reality on the field. This

is expected if policies were made in the center at the expense of the periphery. Primarily the policy

is incongruent to the problem at hand. Since proclamation 871 is the endorsement of the secretary

of DENR it can be inferred that there has been no consultation of the people living the area. The

problem perceived by the national government is not consistent with the problem that can be

observed in the region. It even took the right of the M’ranao in this respect. For they decided in

behalf of them. Nowhere in the stages of policymaking are the major stakeholders took their part

or even express their opinion. No wonder that when it comes to policy implementation glitch

occurs. The evidence of this problem is reflected in the modern condition of the lake.

Page | 24
 The main problem in terms of policy revolves around the consolidation of these rules.

Problems happen when there is no clear distinction and integration of the roles and interest playing

in the area. There are so many suggestions and recommendation in order to solve this dilemma.

Among others the most appropriate to do is to establish a Lake Lanao Development Authority. For

primarily, before there will be an effective management and conservation within the area

conditions and situational infrastructure such as rule of law must be established first on the ground.

The current council operating is deemed obsolete and has minimal powers hence there is a problem

of policing the area; DENR themselves cannot do that, NPC itself cannot do that for even the LGUs

cannot mitigate the lawless elements. It requires an extensive planning on policing mechanism for

if this foundation will not be met all other items in the management plan will not be effected.

Amidst the complexity of the system in Lake Lanao Area the best management approach

so far will be co-management. This approach is different from the conception of Mr. Naga in his

recommendations of a tripartite co-management body between the ARMM, DENR and the

Province of Lanao del Sur. Co-management goes beyond this arrangement. Co-management based

conservation and management of Lake Lanao is based on the integration of management and

conservation strategies across all types of stakeholders and at all levels of governance, hence it

must be at the crossroads of all discourse and concern. From the top-managerial level of the Lake

Lanao Development Authority which involves representatives from all stake holders including the

national government, to the medium-managerial level or regional level; to the community-based

co-management level in which POs, SCOs, and NGOs operate. In this arrangement consolidation

of policies and its proper implementation must be an integrated value. Co-management based

conservation is more of a bottom-up decision making approach where policies are established from

the community based and from that a more encompassing policy will consolidate the different

Page | 25
interests of every stakeholder giving priority to sustainable proposals.

If it would be successful hypothetically, Lake Lanao will be an investment of the future.

Its potentials ranges from eco-tourism, Biodiversity products, easy transport, and livelihood

especially proper aquaculture in the lake. Though ideal it may be, this is the only way how to end

other social-externalities existing in the area like resorting to extremism or economic practices

apprehensible by law. Poverty is the bottom problem and other issues emanates from it. Thus

ending the cycle of poverty is the beginning of a sustainable Lake Lanao.

References

Avramoski, Oliver. 2004. “The Role of Public Participation and Citizen Involvement in Lake Basin
Management.” Thematic Paper. Department of Environmental Sciences and Policy Central
European University. Budapest Hungary.

Asian Development Bank. 2009. Project Administration Manual. Technical Assistance to the Republic of
the Philippines for the Integrated Natural Resources and Environmental Management Project.
Manila. PDF.

Department of Environment and Natural Resources. 2015. “Lake Lanao Watershed (Project Site).”
Integrated Natural Resources and Environmental Management Project. (Retrieved from the
DENR website)

Federico Filipino.2014. “A Study on the Effectiveness of R.A 10351 Known as the Sin Tax Reform of 2012:
The Case of the Two Selected Barangays in The Municipality Of San Pablo, Zamboanga Del Sur.”
Undergraduate Term Paper. Mindanao State University.

Guerrero III, Rafael. 1995. “Human impacts on Laguna de Bay, Philippines and management strategies
for their mitigation.” GeoJournal 40.1-2(1996): 69-72.

Interviewee: Dr. Abdullah Abubacar. Acting chairperson of the Lake Lanao Watershed Protection and
Development Council (LLWPDC) and the current Regional Director of the Environmental
Management Bureau (EMB) of the DENR Region 10.

Interviewee: Forester Kharis R. Maranda. Manager of the National Power Corporation—Mindanao

Generation Watershed Management Division. NPC-MINGEN WMD Manager’s Office. June 30,
2017 at 11:00 am – 12:04pm.

Page | 26
Interviwee: Samsodin B. Taha. Ecosystem Management Specialist (CENRO-Iigan) and the focal person for
INREMP. City Environment and Natural Resources Office, Tubod, Iligan City. June 30, 2017 at
4:56pm- 5:24pm.

Interviewee: Atty. Renato Pacaldo, PhD. Academic Scholar—Mindanao State University (MSU-Main)
College of Forestry and Environmental Studies; Chief consultant to the INREMP-Lanao. Maria
Cristina Hotel, Iligan City. June 29, 2017 at 2:22pm-3:00

Interviewee: (Informant Censored Identity). President, Al-Mujadillah a Ranao Based CSO-NGO involved
In community organizing and livelihood creation in some Municipalities around the Lake. During
a Three day Workshop on My Lake Lanao Project Hosted by Al Mujadilla Not for Profit
Organization and MSU-Iigan Institute of Technology. Crystal Inn, Iligan City at 3:00 pm-4:43pm.

Implementing Rules and Regulations of the Electric Power Industry Reform Act (R.A. No. 9136). Section
34 (d) cited in NPC Watershed Department. Pamphlet distributed during a Seminar on
Watershed Amidst Challenges of Climate Change hosted by the National Power Corporation—
Mindanao Generation Watershed Management Division at Maria Cristina Hotel, Iligan City (June
29, 2017)

Jose L. Atienza (Sec.). 2008. Revised Implementing Rules and Regulations Of Republic Act No. 7586 or
The National Integrated Protected Areas System (Nipas) Act Of 1992. Department of
Environment and Natural Resources Administrative Order No.2008-26.

Khan, Mohammad. 2013. “Theoretical frameworks in political ecology and participatory nature/forest
conservation: the necessity for a heterodox approach and the critical moment.” Journal of
Political Ecology. Vol.20 (2013): 460-472.

Naga, Pipalawan O. 2010. “Lake Lanao Brief.” Marawi City: Save Lake Lanao Movement, Inc.

Naga, Pipalawan O. 2010. “Lake Lanao: An Ancient Lake in Distress.” Marawi City: Integrated Ecosystem
Management Program Province of Lanao del Sur.

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APPENDICES

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DOCUMENTATIONS

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Page | 30