RPFP Assessment

   The succeeding discussion presents the developments in the region relative to the accomplishment of goals, objectives, the spatial development framework and sectoral policies and strategies as enunciated in the first edition of the RPFP. 

 

Assessment of Goals

 

   The goal is to achieve a sustainable land use mix thereby effecting

1. a rational distribution of the population;

2. poverty reduction;

3. a more equitable sharing of the fruits of development among sub-regional areas and among men and women;  and

4. attainment of environmental integrity

   Generally, indicators that would have clearly shown the degree of fulfillment of these goals were not complete.  First, was the absence of an existing land use map that would have shown changes in landuse over time.  Second, there was uncertainty on which set of indicators to use in assessing whether population distribution was rational or not. 

 

   On poverty reduction, the incidence of poor families decreased from 46.9 to 46.0 percent or about 40 thousand less poor families. Incidence of poor families among provinces saw increases in Camarines Norte, Catanduanes and Masbate. In terms of magnitude, Camarines Norte was the only province that had more than 4 thousand additional poor families. There is a need, therefore, to prioritize those areas in program/project implementation for them to catch up in socio-economic development. 

 

   Environmental integrity remained threatened as indicated by the deteriorating state of our forests.  Unsustainable land use is evident especially in areas falling under slopes 18 percent and above but are planted with coconut. 

 

Assessment of Objectives

 

   In terms of objectives, the following general assessment indicated that still much has to be done to fully attain them:

• Gini coefficients slightly increased in the region from 0.4370 to 0.4467; and in Cam. Norte, Cam. Sur and Catanduanes, these showed a very slight widening in the gap between the rich and the poor.

• Employment rate in 2000 of 91.6 percent was very much lower than that in 1990 (96.6 percent). There were 100 thousand more unemployed persons during the period.

• Additional facilities/ services, i.e. upgraded roads, opening of the Quirino Highway, electricity to unserved barangays, additional telephone lines, access to the internet, were provided by government and private sector across the region.  But there are many areas with no or inadequate social and economic services, facilities and opportunities.

• The agriculture sector did not grow as much as needed to encourage an industry cum agricultural mix economy. The Agriculture, Fishery, and Forestry (AFF) sectors contribution shows a downward trend, from 44 percent in 1985 to 33 percent in 2001.  Industry share, specifically manufacturing,  was almost stagnant at 1.4 percent.  In fact, its share was reduced from 1.47 in 1990 to 1.44 percent in 2000. Reduction in AFF contribution was largely absorbed by the services sector.

• Self-sufficiency in basic commodities, especially rice was not met as indicated by a 74 percent rice sufficiency level.

• The rational use of the regions natural and man-made resources need to be further promoted to provide greater family income.  Many agricultural lands are un/underutilized and most mineral resources remain untapped.

Assessment of Spatial Strategies

 

   There are a number of development gains and shortcomings in the implementation of the regions tandem spatial strategy of integrated area development  (IAD)  approach coupled with the urban functions in rural development   (UFRD) approach, to wit:

 

   Protection Land Use

    

     Protection land use policies and strategies were partially implemented

• Delineation of classified forestlands was completed in Catanduanes but only partially in Albay, specifically in Rapu-Rapu and Bacacay.

• Reforestation in permanent forestlands were mostly carried out in lower elevation areas since one of the criteria in site selection is accessibility.  The deteriorating status of Bicols forest cover could result to aggravation of drought, flood, erosion and landslide and increased emission of carbon dioxide.  A long-term effect could be the reduction in water supply for domestic use and irrigation purposes.

• Integrated Social Forestry Program, aimed at developing classified forestlands that are utilized for agricultural purposes and suitable for agroforestry, was not implemented in some 26,841 hectares.  But 23,117 hectares were developed for agroforestry.

• Though settlements are not allowed in identified environmentally-critical areas, about 1,400 families continue to live within the permanent danger zone and another 6,000 families live in high risk zones of Mayon Volcano.

• Though an Environmental Impact Assessment (EIA) is required for all proposed road sections traversing classified forestlands, portions of Maharlika Highway traversing the Bicol National Park and of Catanduanes Circumferential Road that traverse a forest area, were not assessed in terms of their environmental impact.

   Mining

• The decision of the Supreme Court, reversing the decision on the unconstitutionality of the Philippine Mining Law (Republic Act No. 7942), strongly emphasized the full protection of the environment and the provision of a sturdy umbrella of social and economic returns for host communities, especially the indigenous people. In effect, the MGB was tasked to monitor the compliance of mining companies to the Adopt A Mountain Project, which calls for the adoption and establishment of mining forests within specified mining areas. The assessment was done at the regional level. Mining companies that complied included the following: (1) United Paragon Mining Corporation; (2) Ibalong Resources and Development Corporation; (3) Johnson Gold Mining Corporation; (4) Filminera Resources Corporation. The Bicol region has a total mining forest of 67.60 hectares.

• The issuance of permits on sand and gravel extraction was devolved to the LGUs and Provincial Mining and Regulatory Board was organized to monitor the activity. Hence, the Local Government Units (LGU) have the responsibility of identifying areas suitable for sand and gravel extraction and limiting the issuance of permits, considering the impact assessment of the area.

• The policies on Critical Ecosystems for Rehabilitation (coral reefs, mangrove, wetlands, rivers, lowland forests) were not fully implemented, specifically for mangrove areas, due to conflict of policies between DENR and BFAR.  The BFAR policy is to expand the fishing area thereby reducing the area for mangroves. Conversely, the DENR policy is to disallow fishpond development within mangroves declared as reservations.

   Watersheds and Critical Watersheds

• There were eleven (11) proclaimed watershed areas in Bicol, of whom nine (9) had approved management plans. However, only eight  (8) of such management plans were implemented. In the management plans developed by the DENR, boundaries of proclaimed watersheds were defined on the ground. Watersheds should be well managed and protected in order to regulate water resource in the area. Denuded areas of existing proclaimed watersheds should be immediately reforested.

   Protected Areas

• The identification of proclaimed protected areas was done by the DENRPAWD. Lack of funds, however, was a constraint to the full implementation of the policies.  Also, insufficient funds were allocated for the patrolling activities. Resettlement of the settlers in protected areas was done by the DENR but this was not sustained due to lack of livelihood opportunities in the resettlement site.

   Pasture/Grazing Lands

• The Bicol Region had a total of 50 Forest Land Grazing Management Agreements covering a total area of 13,221 hectares. Only 215.05 hectares had improved forage i.e Napier, Guinea grass, star grass, stylo, centrusena, alabang X, Para grass and carabao grass.  Based on the reports on annual grazing submitted by the leaseholders, total area planted with forest trees was 285.35 hectares.  It should be noted that not all leaseholders have reports.  Low quality of forage grass, due to inadequate water supply for forage livestock, was also reported.

Production Land Use

 

   Generally, production policies and strategies (p/s) for agriculture, were partially implemented. A number of policies and strategies were assessed to have encountered implementation constraints,  to wit:

• Intensification of rice production promoted self -sufficiency but it aggravated pest infestation.

• In the case of open-pit mined areas, reforestation was difficult since most mining operations experienced temporary shut down due to high production cost and low market price.  Given good market conditions, mine operations may resume.

• Pasture and grazing areas shall be maintained with sufficient and high yielding varieties of forage grasses and legumes to improve soil water absorption capacity, minimize soil compaction and erosion and increase soil nutrients.  Insufficient forage covers of existing pasture and grazing lands particularly in Masbate shall be supplemented with trees or such other vegetative cover as may be deemed necessary.  Proposed and existing pastures shall undergo EIA and shall be managed under the policy of equitable access to natural resources.  These were not implemented due to the high costs to the investor.

• There were 26 identified industrial sites distributed throughout the region but these had no on-site development and locators yet.

Settlements

• The provinces/integrated area development units (IADs), as individual management units, underwent activities leading to the formulation of their respective Provincial Physical Framework Plans (PPFPs).  The provinces of Albay, Camarines Norte, Masbate and Sorsogon had their Provincial Physical Framework Plans (PPFPs) approved by the Housing and Land Use Regulatory Board (HLURB).

• Among the provinces, Masbate had a Provincial Environment Code.  These documents served as bases for preparing and approving development proposals at the provincial and regional levels.

• Sub-integrated area development (SIAD) units, which have been functional were: the Partido Development Administration (PDA) and the Metro Naga Development Council (MNDC).  These, however, did not have the same composition as provided in the RPFP since these were both created due to political considerations.

• Four of the identified growth centers of SIADs became cities, namely:  Ligao, Tabaco, Masbate and Sorsogon.  One possible result of this is the increased propensity for converting prime agricultural lands into other purposes as a result of urban expansion.

• Population growth and density increased in Ligao City due to improved road access to barangays.

• Sorsogon City was formed with the merging of the Municipalities of Sorsogon and Bacon in Sorsogon Province.

• The municipality of Mercedes, Camarines Norte was designated as the Regional Center for Fisheries and was provided with improved road access to encourage its growth.  Despite these, there were no new investments, i.e. cold storage and processing facilities. Population growth rate decreased due largely to outmigration. 

• Increase in population density was experienced in Pilar, Sorsogon as a result of an improved Pilar Port and the opening of the Pilar-Masbate sea transport route.

• The RPFP identified Bagong Silang as an emerging town. However, its growth was restrained by the opening of the Quirino Highway.  Instead, the Camarines Norte PPFP identified Tulay na Lupa as the emerging town.  Measures to mitigate the threat of encroachment in protected areas in Labo are being undertaken.

• Pioduran, which was identified as a SIAD center, has improved its wholesale trading activities.  It serves the neighboring areas of Burias, Claveria and Donsol. This contributes to the strengthening of intra-regional linkage, between Pioduran and Burias Island and the Bicol mainland with the province of Masbate, thereby improving access to basic needs and services for people in these areas.

• Improvements in the availability of basic and other services in other settlements, especially in the SIAD center improved their access to basic services, increased employment opportunities and enhanced economic activities.  These were brought about by the implementation of various infrastructure projects.  As a consequence, growth and development are encouraged outside the nearly congested urban centers. 

• One area identified for urban expansion, San Fernando-Milaor, was developed.  This is an area where the lands currently utilized are perennially inundated and have less capacity for agricultural production.  Other areas identified, i.e. Pamplona, Libmanan and Calabanga, still have lands suitable for residential purposes and other uses so that no major conversion was undertaken therein.

• On urban centers whose growth were discouraged, it was noted that:

• Tiwi, which is mostly a reservation area, was provided with additional access road through the Sangay-Tiwi road.    This, coupled with lower charges for power rate in the area, were pull factors for more settlers.

• Illegal logging activities continued to occur in proclaimed reservation areas, thus, threatening the quality of the environment that supports the production of power.

• The High Value Commercial Crop Center, a project of the Province of Albay, is situated within the Mayon Volcano danger zone. Historical data indicated that the site of the center has not been affected by lava flow.

• A total of 794 families with about 4 thousand persons are settled within the 6 kilometer radius of the permanent danger zone (PDZ)  of Mt. Mayon.

• Settlers are present in Mt. Iriga and rampant illegal logging occurs in Mt. Bulusan, both identified as active volcanoes.

• Settlers in barangays along Sorsogon Bay, which lie within historical tsunami areas, have come back.

• Protection of prime agricultural lands has been weakly monitored.  This is aggravated by a provision in the Local Government Code that allows local government units to re-classify 15 percent of prime agricultural lands.  The absence of a comprehensive land use plan for many LGUs provides no basis for re-classification of primelands.  As a result, there has been an observed reduction in prime agricultural lands, especially those located in urban centers and those along the national highway.

Infrastructure

• The infrastructure spatial policies and strategies were mostly partially implemented.  The spatial policies, particularly on land using activities of the DENR and DA, were pursued by the implementing agencies (i.e., preparing EIS and securing Enivronmental Compliance Certificate). These activities considered the protection of identified areas and followed the standards set by the National Building Code.

• Some other policies on sustainable development were not followed.  There were LGUs that implemented their projects without any approved PPFP and CLUP, which should have delineated the appropriate land using activities. Still, some LGUs implemented projects without first securing the required ECCs. In some other cases, building permits, which should have safeguarded the distribution of land use in the urban areas as defined in the land use-zoning ordinance, were not secured.

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