The Municipality of Silago, Southern Leyte, Philippines Case Study: A Global Bright Spot For Land Use Planning

See discussions, stats, and author profiles for this publication at: https://www.researchgate.
net/publication/273380530
The Municipality of Silago, Southern Leyte, Philippines Case Study: A Global

Bright Spot for Land Use Planning
Article · September 2012
CITATIONS READS
0 5,413
2 authors, including:
Annalisa Bianchessi
University of Texas at El Paso
5 PUBLICATIONS 28 CITATIONS
SEE PROFILE
Some of the authors of this publication are also working on these related projects:
Marine Protected Area View project
All content following this page was uploaded by Annalisa Bianchessi on 10 March 2015.
The user has requested enhancement of the downloaded file.

The Municipality of Silago, Southern Leyte, Philippines Case
Study: A Global Bright Spot for Land Use Planning
1
Silago: A global bright spot for land use planning
Text by A. Bianchessi; Photos by A. Bianchessi and V. Lumbab.
Edited by S.J. Green and the Rare Philippine team, Fel Caesar Cadiz, Joy Jakosalem-Balane, Pablo Rojas,
Jr. and Roquelito Mancao.
Table of Contents
Foreword: Honorable Manuel A. Labrador Sr., Mayor of Silago .................................................................. 3
Foreword: Dr. Walter Salzer, EnRD program ................................................................................................ 5
Acknowledgements....................................................................................................................................... 6
Introduction: ................................................................................................................................................. 7
Abbreviations ................................................................................................................................................ 8
1. Treasures and Challenges of Silago..................................................................................................... 10
2. The Strengths of Silago’s Comprehensive Land Use Plan (CLUP) ....................................................... 15
3. The planning process and legislative framework................................................................................ 17
4. Silago’s Comprehensive Land Use Plan (CLUP): a Ridge to Reef Approach ........................................ 24
Climate change adaptation and disaster risk management ............................................................... 29
Forest Protection and Restoration ..................................................................................................... 41
Water Provision Infrastructure........................................................................................................... 48
Marine and Fisheries Management ................................................................................................... 52
5. Expected Results ................................................................................................................................. 56
6. Gaining Support for CLUP Implementation ........................................................................................ 57
7. Into The Future ................................................................................................................................... 61
8. References: ......................................................................................................................................... 62
Annex: ......................................................................................................................................................... 63
About Rare .............................................................................................................................................. 63
About the Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ) GmbH .............................. 64
2
Foreword: Honorable Manuel A. Labrador Sr., Mayor of Silago
In Silago, we have long realized that our natural resources are at the heart of our wealth and
the foundation for securing the well-being and economic prosperity of our people. We are
proud to be pioneers in the Philippines in having developed a strategic and Comprehensive
Land Use Plan (CLUP) to guide us in regulating our land uses and the management of our
natural resources in a sustainable manner.
We are grateful to the invaluable support we have received from our numerous partners who
have provided technical assistance and financial support in the formulation of the Silago CLUP-
Zoning Ordinance. We would particularly like to thank the Deutsche Gesellschaft für
Internationale Zusammenarbeit (GIZ) GmbH thru the Environment and Rural Development
(EnRD) Program and REDD+ Project, the Manila Observatory, the Department of Environment
and Natural Resources (DENR), the New Conservation Areas in the Philippines Project
(NewCAPP) implemented by the Protected Areas and Wildlife Bureau (PAWB). Our thanks also
go to Rare for writing this study and for introducing us to the tools and practices of Social
Marketing. We believe these tools will serve us well in the years to come as we move into the
implementation phase of the CLUP.
We are well aware that the formulation of the CLUP-Zoning Ordinance is only the first step in
achieving affective Land Use planning in Silago and we are committed to overcoming the
challenges ahead so we may continue to represent a bright stop in Land Use Planning for the
Philippines. We hope the example of Silago will inspire other Municipalities to follow in our
foot-steps and we look forward to sharing best practices and lessons learned with all those who
wish to join us in the endeavor of achieving excellence in Land Use Planning in the Philippines.
Honorable Manuel A. Labrador Sr.
Mayor of Silago
3
4
Foreword: Dr. Walter Salzer, EnRD program
For the past 10 years, GIZ embarked into supporting environment and rural development
programs and projects, considered to be one of the most challenging and vulnerable sectors of
the Philippines. These programs and projects aim to contribute to the effective governance of
natural resources and ultimately contribute to the country’s poverty reduction.
In Silago, various programs and projects were implemented and unified strategies were
identified to contribute in achieving the vision of the municipality of securing the well being and
economic prosperity of its population. Specifically, GIZ supported the comprehensive land use
planning through application of SIMPLE or Sustainable Integrated Management and Planning
for LGUs Ecosystems (formerly Participatory Land Use and Development Planning). Moreover,
specific thematic planning exercises (e.g. forest land use planning, integrated coastal resources
management planning) and various studies were also carried out.
The foundation for sustainable governance of natural resources has been laid down… and we
need to see it grow and bear fruit.
It is in this context that GIZ commends the effort of RARE for putting on the spotlight the efforts
of the Silago Government for sustainably managing its natural resources. The Silago Case
Study: A Bright Spot in Land Use Planning in the Philippines is an excellent initiative -
documenting the various aspects of land use planning and the implementation of various
activities for ensuring sustainable management of natural resources in the municipality.
GIZ hopes that this Case Study will inspire the rest of the LGUs in the Philippines to invest in
land use planning.
5
Acknowledgements
The author is grateful to all the people who helped with the writing of this case study by giving
their time to share anecdotes, information and scientific evidence as well as providing logistical
support and a warm welcome to the Municipality of Silago. In no particular order we would like
to thank:
 The people of Silago for their warm welcome and for being an inspiration to us all
 The Silago Municipality: Hon. Manuel A. Labrador Sr. , Mayor of Silago; Leodiliin Ansale,
Municipal Nurse and MIT Lead Person; Designated MENRO Elmer Abad; Engineer
Eutiquio R. Beloy, Municipal Planning and Development Coordinator (MPDC); Lucio C.
Sumalinog, Municipal Agricultural Officer (MAO) & Officer In Charge (OIC); Chela
Torena, Agricultural Technician, Fisheries Sector.
 Barangays (village) Sodmon: Apolinar Gansis, Nestor Tomol, May Tambole, Jamie
Almosa, Barangay Kagawads (Village Councillors); Gemma Gonato (left), Sudmon
Barangay Secretary; Marcellina Padillo, Alfredo Tomol;
 Barangay (village) Laguma: Virgilio T. Tosloc, President Joint Farmers Association of
Hingatongan, San Isidro and Kaabon; Florencio Tomol, Barangay Kagawad (Village
Councilor), & Laguma MPA Management Committee Chairman; Leno Toslok
 Barangay (village) Imelda: Marlyn B. Palwa. President of the Katipunan, Imelda and
Catmon Community Forestry Association (KICCFA)
 Barangay (village) of Mercedes: Juliet Wales, Barangay Mercedes Secretary
 The Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ) GmbH: From the
EnRD Program- Dr. Walter Salzer, Program Director and Principal Advisor; Dr. Andreas
Lange, Chief Advisor, Local Governance; Senior Advisors: Dolores Nuevas, Emmanuel
Salvosa, Cecilia Quiocho-Astilla, Mary Ann Tercero; and Senior Coordinators: Vince P.
Delector, Jr., Aimee Sobrevega, and Josephine Casem, Senior Coordinators; BMU-
ACCBio, REDD Senior Advisors: Don Ignacio and Agnes Balota and from the ACCCoast
Project, Patrick Schwab, Chief Advisor.
 REDD+ Project in partnership with NewCAPP: Floradema C. Eleazar, Project Manager;
Marita Cisneros; Mary Jane Honor, NewCAPP/DENR - Expanding and Diversifying the
National System of Terrestrial Protected Areas in the Philippines /New Conservation
Areas in the Philippines Project, DENR-PAWB, GEF, UNDP.
Please note the author takes full responsibility for the content of this case study and apologizes
if there are any inaccuracies in the document.
6
Introduction:
Why the need for a case study on Land Use planning?
In a world with a rising population, limited resource and an increasingly complex web of
interactions between anthropogenic activities and natural ecosystems, there is a need for
strategic decision making over land use and resource utilization.
This case study aims to outline how effective prioritization of Land Use and land use
management can be achieved through a harmonized top to bottom and bottom-up approach to
baseline data collection and the adoption of scientific and strategic decision making tools.
At Rare, we have chosen to document the successes of Silago, Southern Leyte because it is our
hope that this case study will inspire Local Government Units (LGU) and government officials
across the Philippines and beyond to follow in the footsteps of Silago in adopting a harmonized
top to bottom and bottom-up, strategic and comprehensive approach to land use planning thru
the SIMPLE approach. SIMPLE stands for Sustainable Integrated Management and Planning for
Local Government Ecosystems: a knowledge product developed and tested by the EnRD
Program with its partner LGUs in Region 8 (16 partner municipalities of Leyte Island) and Region
VI (Negros Occidental and Antique provinces).
The study outlines the benefits of the approach adopted by the Silago Municipality in the
development of a Comprehensive Land Use Plan (CLUP) Zoning Ordinance formulation and why
it can be considered a bright spot for land use planning nationwide. The procedural framework
adopted for the creation of the plan is documented in the study together with testimonials
from a variety of stakeholders on the significance of the plan for their future and that of their
natural resources.
The document further suggests how the application of Social Marketing techniques can help
speed up the process of implementation of a Comprehensive Land Use Plan, thereby
maximizing the long term benefits to the community of strategic land use planning and
sustainable natural resource management.
7
Abbreviations
A - Attitude
ACCBio - Adaptation to Climate Change and Conservation of Biodiversity
ACCCoast - Adaptation to Climate Change in Coastal Areas
BC - Behavior Change
BDP: Barangay Development Plan
BR - Barrier Removal
CBFM - Community Based Forest Management
CCA-DRRM - Climate Change Adaptation & Disaster Risk Management plan
CDP: Comprehensive Development Plan
CEFAS - Centre for Environment, Fisheries and Aquaculture Sciences
CENRO - Community Environment and Natural Resources Office
CI:Grasp - Climate Impact: Global and Regional Adaptation Support Platform
CLUP - Comprehensive Land Use Plan
CR - Conservation Result
DAR - Department of Agrarian Reform
DENR - Department of Environment and Natural Resources
EnRD
FFI - Flora and Fauna International
FLUP - Forest Land Use Plan
GEF - Global Environment Facility
GIZ - Deutsche Gesellschaft für Internationale Zusammenarbeit GmbH
GPS - Global Positioning System
HLURB - Housing and Land Use Regulatory Board
IC - Interpersonal Communication
ICRAF - World Agroforestry Centre
IUCN - International Union for Conservation of Nature
KICCFA - Katipunan, Imelda and Catmon Community Forestry Association
LGU - Local Government Unit
MAO - Municipal Agricultural Officer
MENRO -
MERF - Marine Environment and Resource Foundation
MIT - Municipal Implementing Team
MPA - Marine protected Areas
MPDC - Municipal Planning and Development Coordinator
MPDO - Municipal Ecological Profile
MSI - Marine Science Institute
NewCAPP - New Conservation Areas in the Philippines Project
8
OIC - Officer In Charge
PANDEVC - Pacific Alliance of LGU’s and Marine Resource Development Council
PAWB - Protected Areas and Wildlife Bureau
PDPFP: Provincial Development Physical Framework Plan
PFA - Protected Forest Area
PLPEDA - Puntana Livelihood Project and Environmental Development Association
PLUDP - Participatory Land Use Development Planning
PNRPS - Philippine National REDD-plus Strategy
REDD+ - Reduced Emissions from Deforestation and Degradation (in the Philippines)
SIMPLE - Sustainable Integrated Management and Planning for Local Government
Ecosystems
SST - Sea Surface Temperature
ToC - Theory of Change
TR - Threat Reduction
ZO - Zoning Ordinance
9
1. Treasures and Challenges of Silago
The Municipality of Silago in Southern Leyte is one of the well hidden treasures of the
Philippines. Its pristine forest, rare wildlife, beautiful beaches, coral reefs, and well-tended
villages make it an attractive place to live and visit with great potential for eco-tourism. The
inhabitants of Silago take such pride in their homes and villages that for years the town has
been voted the “cleanest and greenest Municipality in Southern Leyte” under a national Clean
and Green Award program1 . The local inhabitants are able farmers and agricultural production
has been on a steady rise with coconut, rice and cassava crops constituting a primary source of
income complemented with revenue from poultry, fish and timber.
The forests of Silago are considered the most important in all of Southern Leyte, both for their
size, biodiversity value and for the ecosystem services they provide. Silago’s 12,000 hectares of
forest land still harbor 3700 hectares of closed canopy natural forest and include one of the
most extensive Dipterocarp forests in the province. About two thirds of Silago’s forests are part
of the Mt. Nacolod Forest Reserve, an area recognized as a key biodiversity area (KBA) and also
within the reducing emissions from deforestation and forest degradation (REDD+)
demonstration area of the DENR-GIZ ‘Forest Policy and REDD+’ Project, piloting measures that
contribute to reducing emissions of carbon dioxide and conserving and enhancing carbon
stocks.
Photos 1 a-b: Two new species of

frogs (Platymantis sp) discovered
in the Mount Nacolod Forest
Reserve in 2011. © Deutsche
Gesellschaft für Internationale
Zusammenarbeit (GIZ) GmbH.
In 2011, Fauna and Flora International (FFI) was commissioned by the GIZ and the NewCAPP to
conduct a biodiversity assessment. The study found that Silago’s forests host some 20 species
of mammals, 66 species of birds, 14 species of reptiles and 12 species of amphibians. Two (2)
new species of amphibians (Platymantis sp) were discovered in the forests of Sogod, a
Municipality adjacent to Silago (see photos in Section 4 on Forest Protection and Restoration).
The forests are also home to the Philippine tarsier (IUCN near-threatened), the Mindanao wild
pig (IUCN vulnerable), the silvery king fisher (IUCN vulnerable), the Tarictic hornbill (IUCN
endangered) and the Rufous Hornbill (IUCN near threatened) (Altamirano 2012, NewCaPP), and
1
The cleanest and greenest Municipality award is run by the Regional development Council. For more information see
http://neda1.net/index2.php?option=com_content&do_pdf=1&id=49
10
are part of the “highway” of the Philippine Eagle (IUCN Critically Endangered), (FFI, GIZ and
NewCAPP, 2012).
Equally important is the role Silago’s forest play in terms of ecosystem services such as
protection of the watershed and storage of carbon. The Silago Municipality includes 19 creek-
and 5 river-watersheds providing potable water for settlement areas and irrigation for
agricultural crops, and the forest has a significant importance for climate-relevant emission
reduction under REDD+.
In addition one third of Silagos’ forest land has been identified as “production forest”. Though
currently only 1% of the total land use area contains plantations such as Acacia ( Acacia
mangium) and Mahogany (Swietenia macrophylla), the production forest produces,
nevertheless, good quality non-timber products such as rattan, which could constitute the basis
for an alternative livelihood project.
Photo 2a-d: Above (a): Mt Nacolod in the distance provides the last refuge of primary forest in S. Leyte. Well
known for its biodiversity value, the Silago section of Mt Nacolod hosts some 20 species of mammals including
the Philippine tarsier (IUCN near-threatened) and the Mindanao wild pig (IUCN Vulnerable), 66 species of birds
including the silvery king fisher (IUCN vulnerable), the Tarictic hornbill (IUCN endangered) and the Rufous
Hornbill (IUCN near threatened), 12 species of frogs and 14 species of reptiles. Mt Nacolod is one of the focus
areas under the New Conservation Areas in the Philippines Project (NewCAPP) implemented by the Protected
Areas and Wildlife Bureau (PAWB) under a UNDP, DENR and GEF umbrella. Below left (b): Mountain view of
Nacolod (@ NewCAPP); Below middle (c): Philippine Eagle (IUCN Critically Endangered) (@ Klaus Nigge/National
Geographic); Below right (d): NewCAPP orientation in Nacolod (@NewCAPP).
11
Figure 1. Map of the Municipality of Silago, Southern Leyte. Map generated by ICRAF.
12
Figure 2 - Map of Southern Leyte showing the Municipality of Silago (top right, boundary marked in black), the
Mt. Nacolod reserve (blue line), the different land uses as well as the GIZ REDD pilot area (yellow line).
13
As is the case across the Philippines the natural resources of Silago have since the 70’s suffered
from a number of anthropogenic threats including logging, illegal harvesting of timber, erosion,
reef siltation, encroachment, use of destructive fishing practices, overfishing and pollution.
Forest cover loss has been estimated at a total of 1,340 ha, or a rate of about 148 ha per year
over the last decade with the forest area also patchier and giving way to islands of scrubland
and urban areas surrounded by forest.
More recently a vulnerability study by the Manila Observatory commissioned by the Deutsche
Gesellschaft für Internationale Zusammenarbeit (GIZ) GmbH and implemented in partnership
with the World Agroforestry Centre (ICRAF) has identified the Silago Municipality as an area at
high risk from the adverse effects of climate change. The study stipulates that depending on
future climate scenarios a sea-level rise of up to 2 meters can be expected along the Silago
coastline within the next 50 years with flooding of significant areas of the currently inhabited
areas. In addition climate change and the resulting variation in weather patterns are likely to
have a major impact on agricultural production and forest and coral reef health.
With 15 Barangay s (villages) and a population of over 12,300 people projected to grow to
14,470 by 2020 the management of Silago is no easy feat. The wealth of natural resources, the
range of threats and potentially contrasting activities as well as the different needs and interest
of the local communities have led to the search, by Silago’s Local Government Unit (LGU), of a
strategic approach to land use planning, development and conservation.
14
2. The Strengths of Silago’s Comprehensive Land Use Plan (CLUP)
With the support from the German Development Cooperation implemented by GIZ, the Silago
Municipality has been the first in Southern Leyte to try out an innovative approach to Land Use
Planning which builds on a bottom up approach referred to SIMPLE (Sustainable Integrated
Management and Planning for Local Government Ecosystems). The advantage of this approach
is that instead of a few Government Officials drawing up maps, boundaries and plans for an
entire municipality based on old records (often focusing only on urban areas) and assumptions
made from an office desk, all data is initially based on the Provincial Development and Physical
Framework Plan and then validated thru the input of the stakeholders living and breathing on
the ground. The baseline data upon which land use planning decisions and strategies are
developed is therefore much more accurate and comprehensive. In addition, the process allows
for government officials to understand and document the reality and needs of the citizens of
their town, and facilitates an open discussion among multi-stakeholders from ridge to reef on
the best way forward for resolving resource management and planning issues.
SIMPLE in Silago has led to the creation of a comprehensive and stakeholder vetted plan for
each barangay (village) of the Municipality.
This has constituted the basis for the development of Silago’s Comprehensive Land Use Plan
(CLUP) and Zoning Ordinance. The maps developed for each barangay has been stitched
together digitally by a team of planning officers and then reviewed for integration of
information from cross-disciplinary fields of expertise. The resulting maps served as the basis
for the development of a strategic ten year land use plan, harmonized with the assigned role of
the municipality in the overall provincial development and physical framework.
The particularity of Silago’s Comprehensive land Use Plan is that it has been the first in the
country to not only be based on data collected through SIMPLE, in itself a fairly new process,
but also to have subsequently incorporated critical information and key recommendations from
a large number of expert sources on important aspect of planning and resource management,
thereby genuinely attaining a “comprehensive” Land Use Plan (CLUP) and integrated Zoning
Ordinance in the country.
Amongst the key development needs identified in the Silago CLUP are insufficient social
services (health, education and access to safe water for household use), low income, few
livelihood opportunities, and low agricultural productivity.
15
The key strengths of the Silago Land Use Plan and associated planning process are summarized
in Table 1.
Strengths of the Silago Comprehensive Land Use Plan (CLUP)

& planning process
1. Improved governance through a bottom up approach with wide participation from

local community stakeholders and multi-sectoral groups (SIMPLE approach).
2. Integration with the government’s legislative branch through the formulation of a
Zoning Ordinance (ZO) based on a ridge to reef cross-sectoral analysis and
comprehensive landscape coverage reflected in the CLUP as basis of the ZO.
3. Creation of GIS-generated maps for easy reference and land use management
4. Capacity building of LGU staff, especially in the use of GIS software and stakeholder
engagement
5. Integration of information on disaster and climate change hot spots and necessary
adaptation measures. The latter were formulated through consensus workshops
involving the local communities and government officers and led to the agreement of
10 year action points.
6. Linkage to the government’s executive branch, especially the budget processes for
project implementation.
7. Identification of resource needs for the Municipality’s development trajectory so that
economic development can be balanced with protection and conservation of
resources, leading to long term sustainability of base resources.
8. Awareness-raising amongst stakeholders and government employees about the
issues related to land use planning and preparation of their mind-set to the
implementation and monitoring of land use regulation compliance.
In summary the strength of the Silago Comprehensive Land Use Plan lies in the vertical and
horizontal integration of the planning process resulting in a functional and spatial integration
of the various sectors.
16
3. The planning process and legislative framework
The development of a Comprehensive Land Use Plan (CLUP) is an obligation of Philippine

Municipalities under the 1992 Republic Act RA7160 (The Local Government Code of 1991,
R.A. 7160). The code states that “The Local Government Units shall, in conformity with
existing laws, continue to prepare their respective Comprehensive Land Use Plans enacted
through zoning ordinances which shall be the primary and dominant bases for the future
use of the land resources…” (Implementing Rules and Regulations of the Local Government
Code, Article 41, Section 20).
According to estimates by HLURB, 70% of all municipalities and cities in the Philippines have
outdated or no land use plan at all. Public and ancestral lands are often excluded from the
current prescribed CLUP as the three regulatory agencies, namely the Housing and Land Use
Regulatory Board (HLURB), Department of the Environment and Natural Resources (DENR)
and the National Commission on Indigenous Peoples (NCIP) require different planning
documents for the three different types of land (public, private, ancestral domains).
SIMPLE enables local governments to manage their entire territory from “ridge-to-reef” by
including all non-urban areas into their land use plans, which is not the common practice in
the past. (Figure 3)
SIMPLE stands on two pillars: Ridge-to-Reef planning and management and

implementation. For each of the two pillars, SIMPLE provides specific tools and instruments.
Each pillar is further divided into phases. Both pillars are connected with long-term capacity
building to sustain the support. Phase 1, the establishment of the trainer pool, lays the
ground for the successful use of SIMPLE and binds the two main pillars together. Phase 2 to
4 focus on the integrated eco-system planning including investment planning and budgeting
at municipal and barangay level. Management and implementation is described in Phase 5.
17
Figure 3: SIMPLE’s Framework for a Sound Territorial Governance
These five phases culminates into the formulation of the Municipal Comprehensive Land
Use Plan (CLUP). (Table 2)
18
Table 2. Phases of CLUP-ZO Formulations through the SIMPLE Approach
Phase 1 - The Trainer Pool Formation who undergo the following training modules:
Module 1 – Facilitation Skills

Module 2 – Climate-Change Adaptation
Module 3 – Disaster Risk Reduction and Management
Module 4 – Conflict Management
Module 5 – Gender Responsiveness
Module 6 – BDP Integration and Consolidation
Module 7 – Integration of Forest Land Use and Coastal Land Use Plan into the CLUP
Module 8 – Harmonized CLUP-CDP
Module 9 – Development Investment Programming and Budgeting
Module 10 – Codification
Module 11 – Geographic Information Systems (GIS)
Phase 2: Linking Provincial with Municipal or City Development Strategies
Step 1 – Review of the physical framework aspect

Step 2 – Review of the development aspect
Step 3 – Filling up of the Strategic Physical Plan matrices
Step 4 – Defining an indicative land use and development strategy
Phase 3: Comprehensive Land Use Planning
Part 1 - Preparation of the Barangay Development Plans
Step 1. Getting organized (Preparatory Phase)

Step 2. Orientation and mobilization of barangay-LGU and communities
Step 3. Barangay Resource Assessment and Analysis
Step 4. Plan Formulation and Preparation
Step 5. Plan Legitimization and Adoption
Step 6. Plan Implementation, Monitoring and Evaluation
Part 2 - Formulation of the Integrated CLUP-ZO
Step 7. BDP Consolidation and Integration

Step 8. Inventory of Ordinances Relating to ZO
Step 9. Conduct of Sectoral, Intra- and Cross Sectoral Studies
Step 10. Physical and Development Strategies Finalization through a series of write shops
Step 11. Formulation and Legitimization of ZO and CLUP
19
Phase 4 - Comprehensive Development and Investment Planning
Step 1. Review existing CDP in relation to the SP-approved CLUP

Step 2. Formulate LDIP
Step 3. Draw out AIP from the LDIP
Phase 5: Linking Plans and Budgets: Zoning Ordinance and Investment Program
Implementation and Monitoring
Step 1 – Review existing monitoring instruments

Step 2 – Formulation of an M&E Plan
Step 3 – Monitor if budgets and expenditures are linked to the CLUP, CDP and LDIP
Step 4 – Regular Monitoring of ZO Compliance
The development of a comprehensive land use plan aimed at a holistic eco-system based
management of natural resources and human activities is challenging in the Philippines not
least because of the multiplicity of pre-existing plans, frameworks and procedures, but also in
anticipation of climate change impacts and of disasters. In this Silago was no exception with
numerous initiatives having developed previous plans for forest land use, coastal zone
management, as well as pre-existing comprehensive land use and development plans (which
however focused only on the urban areas of the Municipality).
The SIMPLE approach ensured that Silago’s new CLUP has become a truly comprehensive plan
covering the entire landscape of the Municipality and accurately reflecting the reality of land
use management on the ground. To ensure that the plan incorporates critical information of
previously existing plans as well as the new information generated through SIMPLE, the first
phase of the process entailed the training of 15 trainers per province (Train the trainer
workshops) where key LGU staff acquired the skills necessary to facilitate SIMPLE. The training
had a strong Geographic Information Systems (GIS) software component and included the
updating of the Strategic Physical Framework Plan. This plan constituted the starting point for
the creation of the CLUP.
The incorporation of data from previous plans such as the Climate Change Adaptation &
Disaster Risk Management plan (CCA-DRRM) was attained through workshops, expert input
into the cross sectoral analysis and finalization of the proposed Comprehensive Land Use Plan
and land use regulations.
Whilst Table 2 outlines the theoretical framework developed by GIZ for the creation of the
CLUP through SIMPLE, the timeline below (Figure 4) illustrates how the phases were
implemented in the specific case of Silago.
20
Figure 4 - Silago’s Comprehensive Land Use Plan (CLUP) Development Timeline
PHASE 0
2007 - 2010 - Creation of a Municipal Implementing Team (MIT):
Constituted by the MPDC, MENRO, Municipal Engineer, Municipal Agricultural officer (MAO)
and a representative from the social work staff. Training for MPDC and MENRO in Geographic
Information Systems (GIS) software using digitized cadastral maps from the Department of
Environment and Natural Resources (DENR). Validation of the maps of the Silago Municipality
through a perimeter survey with Global Positioning System (GPS). (This phase should
theoretically have started prior to Phase 1, but in the case of Silago the MIT was established
after the PLUDP process had already been commenced for several years). Simultaneous with
this was a provincial process supported on the Provincial Development Physical Framework
Plan (PDPFP) formulations whereby municipalities were heavily involved in the consultative and
participatory processes, especially in the identification and finalization of the municipal roles in
the overall provincial development scenario.
PHASE 1 & 2
2007 to 2011 - Carrying out of the Barangay (village) development planning process across the
Municipality
This results in Land Use Plans for each Barangay. The process, led by the MIT Team Leader
supported by the MENRO and LGU staff, took between 10 to 25 days per Barangay and
involved community orientation and mobilization, assessment training and planning, Barangay
plan preparation, legitimization and adoption. The process resulted in stakeholder ownership of
their Barangay Plans with associated maps and agreed 5- year programs, projects and activities.
Facilitation followed a bottom up approach where cross-sectoral community representatives
were invited to provide input and everyone living in the Barangay was welcomed to attend.
PHASE 3 (2011)
 (Second quarter) - Consolidation, over 2 months, by the Municipal Implementing Team

(MIT) of all information collated through the Barangay Development Plans.
 Stitching, by GIS experts at the LGU, of the maps of each barangay into Comprehensive
Land Use planning maps.
 Drafting by the MIT/Municipal Technical Working Group of a Development Concept
Map guided by the PDPFP and consolidated Barangay Development Plan
 (BDP), barangay maps stitched into a municipality wide proposed land use plan outlining
Silago’s 10 year development strategy. Presentation of the municipality wide Land Use
Plan to the Sangguniang Bayan and Municipal Mayor for input and approval.
 Formulation by the MIT/Municipal Technical Working Group of the draft
Comprehensive Land Use Plan (CLUP) and inventory of policies in preparation of the
21
Zoning Ordinance (ZO) formulation, guided by the Development Concept Map.
 (September/October) - Integration, through a series of cross-sectoral analysis/workshop
by the MIT/Municipal Technical Working Group and Barangay Local Government Units
of climate change adaptations and disaster mitigation strategies into the CLUP.
 Finalization of the CLUP and drafting of the ZO
PHASE 4 (2012)
 (March) - Revision of the Zoning Ordinance (ZO) to clarify some grey areas in the original
version with regards to production and protected forest area specifications.
 (June) - Holding of a series of public hearings to finalize the revised Integrated Zoning
Ordinance (ZO)
 Submission of the Comprehensive Land Use Plan (CLUP) and Zoning Ordinance (ZO) to
the Provincial Land Use Committee (PLUC) for their comment and approval. (At the time
of writing, approval is expected by end of 2012).
PHASE 5 (2013-2023)
Implementation by the Local Government Unit (LGU) of the 10 year land use strategy
envisioned in the Comprehensive Land Use Plan, with support from expert partners such as the
Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ) GmbH, the Housing and Land
Use Regulatory Board (HLURB), the Regional Convergence Initiative (DADAR-DENR), other
national agencies, the Provincial Government and international/national NGOs.
Photo 2e: Perimeter survey

(Phase 0) in San Juan,
Southern Leyte with Dr.
Leo Poculan DENR CENRO
(right), MENRO Elmer Abad
(left) and the Barangay
Councilor of Barangay
Katipunan (middle) (@
Silago LGU)..
22
Photos 2 f-l: Photos taken during the Participatory Land Use and development Planning (PLUDP), which is now
known as the SIMPLE approach (@ Silago LGU).
23
4. Silago’s Comprehensive Land Use Plan (CLUP): a Ridge to Reef
Approach
The vision endorsed in Silago’s Comprehensive Land Use Plan (CLUP) is for the Municipality to
become “a leading agri-eco-tourism destination in the region with climate resilient,
empowered, peace loving, healthy, God fearing, self- reliant, and environment-friendly
Silagonhons living in a safe, clean and sustainable environment with a diversified economy
governed by competent civil servants.”
This is to be achieved through a ridge to reef approach and the pursuit of a holistic
development of the Municipality “through proactive ecosystem management, equitable access
to quality services and technological advancement” as well as the promotion of economic
opportunities and the maintenance of peace and order.
The Comprehensive Land Use Plan (CLUP) is based on an extensive and stakeholder vetted
analysis of current resources and community needs and provides a detailed record of existing
human and bio-geo-physical resources and land use distribution, as well as population,
production and resource need projections, identification of key threats and constraints,
prioritization of key issues and planned projects, culminating in a ten year action plan.
The overall guiding land use policies adopted in Silago’ Comprehensive Land Use Plan to
achieve the Plan’s Vision, Mission and Goals read as follows:
a. Settlement Areas
1. No settlement shall be allowed within the salvage area, easements and in all disaster prone areas;
2. Existing settlements within the disaster prone areas shall be relocated to a safe relocation site.
b. Production Areas
1. All idle lands shall be developed into a production forest by the LGU and the Owner;
2. No agricultural activities shall be allowed within easements of rivers, creeks. It shall only be devoted
to agro-forestry as a mitigation measure to climate change and riverbank soil erosion;
3. All mangrove areas shall be developed and protected;
4. Increase the number of Marine Protected Areas and implement proper monitoring.
5. Increase agricultural production thru Sustainable Farming Techniques like Organic Farming;
6. All agricultural lands within the Watershed Protection Areas shall be developed into Agro-Forestry.
c. Protection Areas
1. All open areas within the Critical Silago Watershed shall be devoted to Agro-Forestry;
2. All identified Springs used for Potable Water Sources shall be protected and reforested, municipal
water rights to be ensured to enable the municipality to maximize its use and from the payment of
environmental services enable LGU to have additional financial resources to be allocated for priority
climate change adaptation and disaster mitigation measures.
24
d. Infrastructures
1. All infrastructure projects must be Climate Proof during plan preparations;

2. Climate Change mitigating structures shall be given priority
Figure 5. The Zoning Map of Silago constitutes the basis for the implementation of the Zoning Ordinance and
CLUP.
25
Comprehensive Land Use Plan
Goals
 To improve land productivity and production through the adoption of modern agriculture practices
and technologies and proactive trading and commerce.
 To sustain the basic social services, intensify promotion of eco-tourism and improve the quality of life
of the people living in a well-balanced environment.
Objectives
 To properly conserve, protect the environment through the adoption of sound and sustainable
ecological management systems.
 To provide reliable and safe water supply for domestic, commercial and irrigation needs of the area.
 To promote the efficient utilization, acquisition and disposition of land and ensure the highest and
best use of land;
 To reconcile land use conflicts and proposals between and among individuals, private and government
entities relative to the present and future need for land;
 To promote desirable patterns of land uses to prevent wasteful development and minimize the cost of
public infrastructure and utilities and other social services;
 To provide guidelines for the appropriate use of natural resources;
 To allocate land for settlements, industries and other urban uses on land least suitable for agricultural
and farming uses;
 To serve as basis for reclassifying and converting land.
Figure 6. Goals and Objectives of the Silago Comprehensive Land Use Plan (2011 Silago CLUP)
Key aspects covered within the plan include human resources, socio-economic data, physical
and topographic features, hydrology, flood prone areas, soil sustainability and land use
classification maps, urbanizable land and absorptive capacity, as well as urbanization and
settlement patterns, existing land, water, coastal and marine use, health and education
facilities, utilities such as power and water supply, communication infrastructure,
transportation network, drainage and sewage systems, waste management, climate and
climate change projections, priority issues and concerns and strategies to address these.
Additionally the CLUP contains the aforementioned development concept map (Figure 4 and 9)
and a section on projected eco-tourism, agriculture and forestry developments and proposed
land, water, coastal and marine uses.
Figure 7. Land use classification in the Municipality of Silago. For consistency with official land area statistics,
land area herein reflected is from the Municipal Ecological Profile, MPDO, 2009 vegetative cover of an area
which was based on the results of SIMPLE barangay level data consolidated prior to the Comprehensive
Development Plan (CDP) formulations.
26
Figure 8. Land capability classes in the Municipality of Silago, by topographical and soil characteristics. Land area
by land capability classes and total land area presented in the table were taken from the figures in the Municipal
Ecological Profile. Source: Municipal Ecological Profile, MPDO, 2009 based on the results of SIMPLE barangay
level data consolidated prior to CDP formulations.
Figure 9. Development Concept Map of Silago’s Comprehensive Land Use Plan (CLUP). This map developed by
the Municipal Technical Working Group during Phase 3 of the planning process outlines the 10 year
development strategy for the Silago Municipality and served as a basis for the development of the Zoning
Ordinance (ZO) the key legislative tool regulating land use development in Silago. The Development Concept
Map identified two large forest protection areas as well as a forest production area, an Eco-tourism area, several
agricultural production areas, a commercial and an industrial area, the area for the relocation of the LGU offices
and coastal communities, as well as a coastal fisheries resource management zone.
27
The following sections provide a more in depth look at a selection of key aspects addressed in
the plan, complemented with information and interviews of a cross-representation of
stakeholders.
28
Climate change adaptation and disaster risk management
One of the key areas of concern for the Silago Municipality is ensuring that adequate measures
are in place for the mitigation of adverse effects from climate change. According to the Mayor
of Silago, Honorable Manuel A. Labrador Sr., over the last decade “Silago has already observed
changes in climate as it has been subject to unpredicted weather extremes that triggered
damages in the productive sectors and threatened the livelihoods and well-being of our local
communities”.
Silago is a coastal Municipality, which is very vulnerable to natural disasters like storm surge,
tsunami, typhoons, landslides and floods. In 1950’s, Silago was hit by Typhoon AME, where logs
rammed down several houses in the town proper. It was followed by Typhoon Bising in the 80’s
and Typhoon Ruping in the 90’s, with significant damage to agriculture and Municipal
structures.
A case study published by the Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ)
GmbH with the Manila Observatory in 2011 in partnership with and the World Agroforestry
Centre (ICRAF) has indeed identified Silago as particularly vulnerable to the impacts of climate
change. The study documents the predicted patterns of vulnerability and impacts of climate
change on the forestry, water, agriculture and coastal sectors of Silago using predictive
modeling and an interactive web-based platform called CI:Grasp (Climate Impact: Global and
Regional Adaptation Support Platform). The platform, developed by the Potsdam Institute for
Climate Impact Research (PIK) and GIZ, provides information on climate change, its physical and
socioeconomic impacts, and adaptation options and experiences from across the world.
The study predicts temperature rises in Silago by 2020 and 2050 as well as diminished rainfall.
Projected warming is higher inland where most of the forest lands are located, whereas the
predicted decrease in rainfall is more severe along the coastal areas where the majority of the
rice paddies are currently situated. The combined result of these two factors is an increased
likelihood of drought conditions over extended periods of time with predicted side effects of
increased probability of forest fires, less water for irrigation and reduced rice yields, as well as
an increase in sea level leading to inundation of rice paddies in proximity of the coast. The study
documents that a 4m sea level rise could lead to a 20% loss of the total rice paddy area.
Increased temperatures and reduced rainfall will also lead to changes in Sea Surface
Temperature (SST), where even small changes can have major impacts on marine life and
processes, for example resulting in coral bleaching events and associated habitat loss for reef
fish and invertebrates. Changes in rainfall can also lead to an imbalance of the fresh and salt
water ration which will affect the acidity of the water (ph) with potentially major consequences
for the marine food-web and ecosystem through reduced reef formation and productivity.
29
Projected climate changes for Silago:
a) a slight increase in mean rainfall for the dry season of 2020s and a decrease for all the other seasons.
By the 2050s, mean rainfall is projected to decrease throughout the year with up to 25% decline in the
dry season;
b) as much as 2.2 deg Celsius increase in average temperature which may be expected during the warm
dry months (of April & May) during the 2050s;
c) warmer days and warmer nights are anticipated in the 2020s and 2050s. This is indicated by the
rightward shifts, i.e. shifts into higher values, in the extremes (the lower and upper tails) of the
probability distribution functions of the daily minimum and maximum temperatures;
d) extremely high maximum and minimum temperatures (90th Percentile of the baseline period: 1961
to 1990) could last throughout the year in the 2050s; and
e) consecutive dry days can occur for more than two months with fewer instances of month-long
consecutive wet days in the future.
Fig 10. Projected climate changes for Silago (Narisma et al 2011)
Figure 11 a-b. Simulated monthly mean temperature and rainfall in Silago for the years 1961 to 1990 (baseline),
2010 to 2039 (2020s) and 2040 to 2069 (2050s). (Narisma et al 2011)
Figure 12. Frequency of extreme events for Silago Municipality for the year 2020 and 2050. The above figure
shows that the number of days with temperatures reaching more than 35 °C and with rainfall reaching more than
300mm per day are predicted to increase significantly in Silago over the next 50 years. On the other hand the
number of dry days is thought to remain more or less the same over the same time period. The prediction is
therefore for some very hot months during the dry season and very high rainfall intensity during the rainy season.
(Silago CLUP 2011)
30
Figure 13. Areas in Silago vulnerable to flooding due to increase in sea level at a) 1 meter, c) 4 meters. Flooded
areas are shaded in blue. (Map Data Sources: Shuttle Radar Topographic Mission version 4, Feb.2000, Landsat
2009. (Narisma et al 2011)
31
The study also looked at socio-economic factors to provide a measure of the capacity of
different Barangays (villages) to be able to cope with the impact of climate change. It thereby
identified six barangays at high risk from the adverse effects of climate change, namely
Hingatungan, Salvacion, Lagoma, Poblacion District 2 (Pob. Dist. 2), Poblacion District 1 (Pob
Dist 1), and Katipunan (Figure 14). Hingatungan, which is a coastal Barangay , is for example
particularly at risk because predicted impact from climate change is very high for rainfall
decrease, high for sea level rise, as well as very high for rice production combined with high
population density. Instead the relatively high risks from climate change in Poblacion. Dist. 2 is
due to exposure/vulnerability indicators such as the current very high population density and
number of cases of malnourished children. These mean that the predicted high rainfall and
associated impacts on rice production in Poblacion. Dist. 2, as well as the predicted high climate
hazards from sea level rise and rainfall decrease put the barangay at a relatively greater risk
from adverse impact of climate change compared to other villages.
Figure 14. Qualitative assessment of climate impacts, exposure and vulnerability indicators per barangay in
Silago. (Narisma et al 2011)
32
Figure 15. Assessing Adaptation Potential (@ Narisma et al 2011)
The vulnerability study outlines numerous specific recommendations for climate change
adaptation in Silago by assessing the adaptation potential of different strategies (Figure 15).
Suggested strategies include:

 The establishment of an improved distribution network and irrigation infrastructure to
maximize the use of the currently underutilized water resources by the hydro-forest
sector.
 Restoration and /protection of the ecosystems that support the supply of water.
 The adoption of alternative crops to rice that may be more resilient to climate impacts,
specifically to the decrease in rainfall. Suggested alternatives include coconut and abaca
which appear to have been less vulnerable to the effects of previous climatic events
such as the 1997-1998 El Nino drought; and cassava which is considered to be a drought
tolerant crop.
 The relocation of crop and livestock production to address the environmental
variations and economic risks associated with climate change (i.e. the relocation of rice
33
paddies from flood and or drought prone areas to areas less likely to be impacted by
climate change).
 The continuation of social and health services to increase the ability of the population to
cope with the adverse effects of climate change.
The Municipality of Silago has done the vulnerability assessment, through the assistance of
GIZ’s “Adaptation to Climate Change and Conservation of Biodiversity (ACCBio)” Project. The
integration of the findings into the sectoral and cross-sectoral analysis for CLUP and as input
into the formulation of the Integrated Zoning Ordinance was facilitated by the Municipal
Technical Working Group with technical support from the GIZ-EnRD Program. As a result of this
integration, many of the priority issues and concerns identified in the Comprehensive Land Use
Plan offer solutions which will help to mitigate the adverse effects from climate change through
environmental, infrastructural, social and economic interventions. The integration process itself
has resulted in a mind-shift among local planners from “business as usual” to becoming more
proactive in tackling projected climate changes. Below a list of some of the main priority
actions identified in the CLUP to address these issues (for a complete list see the CLUP of
Silago):
Settlements and housing

 Regulation of human settlements in the foreshore areas
 Provision of a relocation site for those houses in disaster prone areas (Photos 5a,e)
 Construction of a relocation site for the Local Government buildings as they are
currently in a flood prone area in the town proper (Photos 3a, b)
 Construction of social housing in the identified relocation sites
Water provision
 Construction of irrigation systems (Hingatungan, Sap-ang, Tubaon, Catmon)
(Photos 15a-c)
 Rehabilitation of irrigation systems (Salvacion)
 Strict implementation of the Barangay ordinance on the use of water systems to ensure
sufficient potable and irrigation water
 Installation and rehabilitation of water pipes from the source up to the connection to
counteract the currently insufficient water distribution systems for several villages
(Mercedes, Balagawan, Katipunan, Sudmon)
 Provision of a water pump during hot season (Imelda)
 Rehabilitation of canals and drainage to improve the overall drainage (town proper)
 Imposition of payment for environmental services to defray costs of projected climate
change adaptations by the locality
Flooding mitigation measures

 Proposed construction of an open and closed sea wall as well as the securing of saline
submerge seeds for rice planting to counteract salt intrusion into rice land (Salvacion)
34
 The replacement of the box “culverts” with a concrete bridge to resolve the issue of
flooding (Hingatungan)
 The allocation of funds to construct a drainage system for the village roads (Photo 8a)
Capacity building and poverty reduction

 Technical training and livelihood support for fishers
 Declaration of closed and open season and fishing regulations to protect declining fish
stocks
Improved environmental management

 Mangrove rehabilitation to counteract coastal erosion and provide storm protection
(Photo 3c)
 Information campaign for constituents on the effects of timber poaching to increase
flood and watershed protection
 Strict compliance to the EIA protocol to ensure integrity of ridge to reef ecosystems
Improved infrastructure
 Budget allocation for the installation of power supplies (circumferential road, school site
of Laguma Elementary school, Sudmon, Guinbaolan infers Road)
 Allocation of funds for day-care buildings / evacuation centers, workers and facilities
 Construction of a dike (Maag River)
Improved waste management

 Conversion of an open dumpsite to a controlled dumpsite and construction of
composting facilities
35
Photos 3 a-d - Top Left (a): The current Silago Local Government Buildings in the town proper (pictures above)
are located in a disaster and flood prone area. Their relocation has been identified as a priority project in the
Silago CLUP. Top Right (b): Lucio C. Sumalinog, Municipal Agricultural Officer (MAO) & Officer In Charge (OIC)
shows the location where the Silago Local Government Unit (LGU) Buildings are going to be relocated within the
coming ten years, 4 km from the Silago Poblacion. Bottom left (c): Mangrove restoration project on the Laguma
road. Bottom right (d): Silago’s waste disposal system includes waste bin provision and a waste collection
system.
Photos 4 a-b - Left (a): Barangay Sudmon Villagers Nestor Tomol (left), fisher & Barangay Kagawad (Village
Councillor), Marcellina Padillo, gleaner (middle) and Gemma Gonato, Barangay (Village) Secretary (right) have
been involved first hand in the Participatory Land use Development Planning (PLUDP), now referred to as
SIMPLE approach, which fed into the Silago CLUP. Amongst the issues close to their heart are the vulnerability of
Sudmon to impact from climate change (particularly flooding and tsunami); the provision of potable water to
their Barangay during dry periods and the management of their communities Marine Protected Area. Right (b):
Jamie Almosa, Barangay Kagawad (Councillor), Sudmon
36
Having been through the Comprehensive Land Use Planning process, the villagers of Sudmon
are now well aware that a large stretch of their Barangay is located in a flood and tsunami
prone area. “The benefits of having made a land use plan have been numerous” says Nestor
Tomol, Barangay Kagawad (Village Councillor) and fisher. “Since the initial planning meetings
the community has for example identified an evacuation area in case of a natural calamity
and the whole community has already been trained in what to do in case of a natural
disaster”. Other benefits have included the identification of clear land area boundaries such as
rice-land, residential areas and potential new areas to be planted. The Comprehensive Land Use
Plan also foresees that in future there will be no more structures near the shore. “This would
mean that all houses near the shore will be transferred upland” explains Nestor. According to
Nestor the residents like the idea but don’t have the budget for it so it will be difficult to
implement unless the LGU is able to finance it.
Apolinaris Gansis, Barangay Kagawad (Village Councilor) is one of the residents whose house is
on the Sudmon shoreline. As most of Silago’s residents, he is proud of his house and keeps it in
excellent condition, tending his vegetable patch, the garden and fence, and his boat which is
anchored on a beautiful little beach at the back of his house. Yet, when asked if he will mind
moving upland he confirms “it will not be a problem, it is safer upland and I will be happy to
move my house”.
Photos 5 a : Apolinar Gansis, Barangay Kagawad (Village Councillor), Sudmon in front of his house, one of the
many that will have to be moved upland to mitigate the adverse effects from climate change, as outlined in the
Silago CLUP. Top:
37
Photo 5 (b). Apolinar Gansis (left, a) and his fishing boat resting on the shore just behind his house (right, b).
Bottom: Residents that live along the Sodmon shore identified as a disaster risk prone area: two girls that live
next door to Apolinaris (left, d) and May Tambole, also a village Councilor in Sudmon (right, e).
Photo 6: It is not only the houses that will get damaged in case of a tsunami or flood. These rice paddies located
just across from Barangay Kagawad Apolinari’s house will also be inundated should there be a sea level rise in
Sudmon. Possible solutions include the adoption of saline submersion tolerant seed, the relocation of rice
paddies to less risk prone areas, or the adoption of crops less vulnerable to the impact of climate change such as
38
cassava, abaca and coconut.
Gemma Gonato, the Sudmon Barangay Secretary, was present in all of the planning meetings
and workshops leading to the CLUP development and says the process really helped raise
awareness amongst the community about the need for proper land use planning as well as the
specific risks and community needs in the Barangay of Sudmon. Through the process, the
community identified three initial priority projects: the improvement of the water distribution
system, the expansion of the Barangay offices and the improvement of the local health center.
With regards to the housing relocation, the plan is more long term as, whilst the community is
willing to move, funding will be the key factor to making it happen.
Sudmon is not the only Barangay that is at risk from flooding and tsunami. In the Barangay of
Laguma there is also a long stretch of settlements along the coastline that are at sea level. The
Barangay has already allocated a piece of land in the uplands for every citizen with a house in
the area at risk. Laguma Citizens Florencio Tomol (Village Councilor and Chairman of the
Laguma MPA Management Committee) and Leno Toslok, local fisher, say that a few citizens
have already started preparations for building a house on the new patch of land. “It is unlikely
that everybody will move straight away” says Leno “but we have all started to mentally
prepare to the idea and when new houses need to be built, it will be in the upland so that
slowly, within one or two generations the village will relocate upland”. Perhaps Leno’s trust in
a fluid and natural relocation over the years is a bit optimistic. Indeed at the time of writing a
new house was in the process of being built by one of the Lagoma citizens working abroad.
Nevertheless what is clear is that the intent of both the Municipality and the Barangay is to
make the relocation happen. It will be a question of time, money and continued political will
to secure the safety and well being of the community, as outlined in the Comprehensive Land
Use Plan.
39
Photo 7: Florencio Tomol, Barangay Kagawad (Village Councilor), & Laguma MPA Management Committee
Chairman (left) and Leno Toslok local Laguma fisher (right) have both already received a 10x10 feet patch of
land in the upland of the Barangay , where they can relocate their home to be safe from the adverse impacts of
climate change. It is in the Laguma LGU five year plan to relocate the Barangay to the upland entirely.
Photos 8 a-b - Climate change mitigation measures already implemented in Laguma, Silago include
1. A ditch built along the farm to market road in Laguma (left, a) which, will help avoid flooding and erosion of
the road. The digging of the ditch was funded by CEFAS, an alternative livelihood project where the citizens of
Laguma could earn some additional income by helping to dig the ditch
2. A robust bridge (right, b) just outside of Laguma recently built by the LGU which, will help prevent the
community being cut off from the town proper during periods of high water.
40
Forest Protection and Restoration
The forest land of Silago constitutes one of the greatest assets of the Municipality. As discussed
in Section1, Silago’s forests are considered the most important in all of Southern Leyte, both for
their size, biodiversity value and for the ecosystem services they provide. About two thirds of
Silago’s forests are part of the Mt. Nacolod Forest Reserve, an area recognized as a key
biodiversity area; Silago’s forest are host to some 20 species of mammals, 66 species of birds,
14 species of reptiles and 12 species of amphibians (Altamirano 2012; FFI, GIZ and NewCAPP,
2012).
However, since the 70’s they have been at risk from a number of human and climate induced
threats ranging from logging, encroachment, typhoons and erosion. There is for example
evidence that a logging company operating in Region 8 in 1972 had an annual allowable cut
(AAC) of 80,000 m3, and operated over an area of 26,000 hectares encompassing the towns of
Hinunangan, St. Bernard, Silago and Sogod in Southern Leyte (www.forestry.denr.gov.ph). The
AAC was thought to be far beyond the carrying capacity of the forests leading to depletion of
the forest resource. Luckily in 1993 a logging moratorium was put in place and DENR was able
to cancel the logging license.
Today 12,000 hectares of forest land remain (CLUP 2011) and a 2009 analysis of remote sensing
data by GIZ shows that Silago has 9,677 hectares of closed forests, which comprise almost half
of the total Municipality area, and 69% of the total forest cover of the province of Southern
Leyte. The same study estimated that total forest cover loss was at about 1,340 hectares, or a
rate of about 148 ha per year, over the last decade (data from 2000-2009). The study stipulates
that the forest area has been becoming patchier, giving way to islands of scrubland and
settlement areas surrounded by forest.
Photo 9: Picture taken in Silago’s planted forest area
41
According to Mary Jane Honor from NewCAPP/DENR CENRO,
the NewCAPP Project focuses on protecting the key
biodiversity area of Silago from threats such logging, land
conversion and settlements, as well as soil erosion on
denuded slopes. NewCAPP’s focus is especially important
because the watersheds in the area are the main source of
Mary Jane Honor
water for the surrounding towns, and are home to
NewCAPP/DENR CENRO
endangered wildlife species.
Since Silago is a Municipality highly dependent on spring water for both domestic use and
irrigation needs, a continuing decrease in forest cover constitutes a threat to the long-term
preservation of the aquifers and will lead to increased runoff production, erosion and siltation.
Figure 16: Percent land cover distribution of Silago, Southern Leyte, GIZ (2009) data.
42
Photos 10 (a-c). Silago’s forest provide important eco-system services such as clean water through the
rainwater catchment area and reduced carbon emissions through their carbon storage function.
To ensure adequate protection and management of Silago’s forests the Municipal

Implementing Team (MIT) of Silago developed a 5 year Forest Land Use Plan (FLUP), assisted by
the Department of Environment & Natural Resources (DENR) and the GIZ-EnRD Program within
the framework of a Community Based Forest Management (CBFM) Project.
Silago’s Forest Land Use Plan (FLUP) serves as the enabling framework by DENR, LGU, and other
critical stakeholders for effective management of forest and forestlands, seeking to emphasize
recognition of rights, acknowledgement of responsibilities and imposition of restrictions and
development controls. The framework followed two key strategies:
1) Allocation of the forest and forestlands to establish accountability and responsibility centers
in forestland management with issuance of tenure instruments and property right agreements
for open access forestlands.
2) Land use zoning and management determining the proper combination of uses in the
forestlands based on key criteria.
As explained in the FLUP, “The integration of the Silago FLUP and CLUP followed an integrated
approach which considered the interrelationship and interconnectedness of the upland and the
lowland ecosystem. The framework emphasized the needed balance for protection-oriented as
well as production oriented forest land use. Map overlays and analysis were mainly used in
resource assessment augmented by site validation. Influences in forest situation were also
looked at such as the institutional capacity of DENR, LGU and tenure holders, and other threats
and conflicts in forest management”.
43
In the case of Silago, the FLUP was developed in parallel to the SIMPLE Barangay Development
Plans. According to Emmanuel “Sonny” Salvosa, Senior Adviser of Forest Land Use Planning
under the GIZ-EnRD Community Based Forest Management (CBFM) portfolio, the integration of
the FLUP into the CLUP has added real value to the overall forest land use planning in Silago.
“The horizontal and vertical linkages in the planning process, allow for better functional and
spatial integration of various sectors” says Sonny, “and it is now possible to functionally link the
coastal and upland areas, with a coordinated policy and program development platform, that
addresses negative externalities of land use.”
Photo 11: On the right Sonny Salvosa, Senior Adviser on

Forest Land use planning under the GIZ-EnRD CBFM portfolio
at a meeting with key stakeholders discussing the integration
of the FLUP into the CLUP. @FLUP.
In Silago there are two Community Based Forest Management Projects with the objective of
protecting some 2,023.89 hectares of natural forest of the Municipality. These are located at
Barangay Puntana, referred to as the Puntana Livelihood Project and Environmental
Development Association (PLPEDA), and across the Barangay s of Katipunan, Imelda and
Catmon, where management is vested upon the Katipunan-Imelda-Catmon Community
Forestry Association (KICCFA).
According to Marlyn B. Palwa, KICCFA president since 2008, the Association was founded in
1995 to protect 1619 hectares of natural forest and stop the destruction of the forest, securing
fresh air and water for the community. She adds that Silago will get warmed if there is no
forest. Marlyn recounts that before 1995 the forest was exploited as trees were cut for
firewood and lumber for housing. However, the association has now designated a “communal
forest area” outside of the natural forest area that the community can use for livelihood needs.
The Community has also designated 9 Bantay Gubat (forest guards), 3 per village, who regularly
patrol the forest and record any signs of infractions. The system works very well, according to
Marlyn, since the guards have been deputized by the Mayor and receive a salary by the
Department of Environment and Natural Resources (DENR). Every infraction is therefore
reported both to DENR and the LGU. When asked about the last infraction Marlyn simply
answers “that was a very long time ago, I cannot remember when it was anymore”.
44
Photos 12 a-b. Left (a): Fire wood collection is one of the main threats to the natural forest of Silago. Right (b):
Signs at Imelda proclaiming it a Community Based Forest Restoration and Biodiversity protection and
Management of Lowland Dipterocarp Forest in Silago, Southern Leyte“ site.
The mood of the Association has been very good in the last few years according to Marlyn,
especially since the area is part of a pilot carbon emission reduction scheme under the
Philippine National REDD+ (Reduced Emissions from Deforestation and Forest Degradation).
The project which is being set up through the support of the German Development
Organization (GIZ)-REDD+ Project has already brought the association almost one Million Pesos
worth of fruit trees. Marlyn says “each member was given one hectare for fruit tree planting,
provided with the fruit trees and paid for planting them”. The idea is that once the trees have
grown the community will have a sustainable source of livelihood from the fruit crops and so
will have less of a need to encroach in the forest. Once the REDD+ scheme starts generating
revenue from reduced emissions, Marlyn says, the money will be available to the forestland
managers in accordance to a benefit-sharing scheme that is still being elaborated. “This would
be an added benefit to the KICCFA members and would help address our priority needs”,
Marlyn says.
When asked about the Priority Participatory Land Use & Development Planning (PLUDP)
process Marlyn recounts that the community had identified the provision of computers for the
local school and of roofing for the village gym as priority projects. Both have already been
completed. The current priority project on the table is the provision of a better water
distribution system. One of the three villages which is part of the association still has to walk
over 1 km to access the nearest water source. There is however good hope that through the
CBMS and REDD+ scheme, resources will be allocated to solve this issue in the coming years.
45
Photos 12 a-c. Top (a): Marlyn B. Palwa. President of the Katipunan, Imelda and Catmon Community Forestry
Association (KICCFA) since 2008. Bottom Left (b): Fruit tree plantation at Imelda. Through support from GIZ the
community was able to plant 960,000 PhP (21,000 USD) worth of fruit trees, including rambutan, lanzones,
durian, mango, pineapple and coconut which, once grown to maturity will provide the local community with a
sustainable income whilst they are protecting the forest. Amongst the plantation one can still see the old tree
stumps from the primary forest that once grew here and was felled during the 70’s and 80’s through reckless
logging operations. Bottom Right (c): One of the pineapple fruits growing in the plantation.
46
Table 3 - Objectives of REDD+
1. To ensure sustainable management of forests for both reduced carbon emissions and
biodiversity conservation;
2. To enhance national carbon stocks through forestry programs that deliver clear and
multiple social and ecological benefits.
3. To provide a research-based enabling environment in the implementation of the REDD-plus
programs, projects and activities;
4. To leverage REDD-plus resources and projects to deliver social benefits and contribute to
poverty alleviation;
5. To establish sustainable financing mechanisms to support REDD-plus ‘readiness’ and long-
term implementation;
6. To enhance the capability of forest managers and support groups to successfully and
equitably implement REDD-plus strategies; and
7. To develop and implement a forest carbon emissions reduction measuring, reporting and
verification system that engages local managers and is national in scope.
Table 3. Objectives of the Reduced Emissions from Deforestation and Degradation (REDD+) scheme in the
Philippines (@ Armenia et al 2012).
Photo 13 a-b: Left (a): Mountain denudation and erosion occur in those areas in Silago where the forest has been
logged in the past. Right (b): Water provision and reduced risk from flooding are two of the key benefits from
protecting the forests.
47
Water Provision Infrastructure
The protection of Silago’s forests and watershed is the first step to securing water access to the
local community, but it is not the only one. Even with plentiful water springs, the provision of
water also requires adequate water distribution systems.
A 2006 Community Based Management Survey (CBMS) established that 63% of the 2,327
households (HH) are “without access to safe water”. These are households without access to
either deep/artesian wells or the community water systems; So whilst 8 out 15 Barangays have
100% households with access to safe water, 5 out of 15 Barangays, in particular those located
in mountainous areas, have entire households without access to safe water (Narisma et al
2011).
Common problems encountered with the Municipality’s water supply are siltation in the intake
facilities, and vulnerability to enteric and waterborne diseases due to contamination of water
taken directly from the source (Municipal Health Office, 2010). According to key informants, the
Municipality has a regular number of juvenile patients who suffer from enteric waterborne
diseases, especially when rain succeeds a series of warm days. The health report is not a
surprise since areas with poor water supply infrastructure usually suffer from the
Transmission of enteric pathogens that peak in the rainy season (Narisma et al 2011).
The Barangay of Sudmon is one of the villages with problems with access to potable water.
“The distribution network is already fairly good here” explains Gemma Gonato, the Sudmon
Barangay Secretary, “but the problem is that during some periods the water pressure goes
down and so almost no water comes out of the tap”. It is therefore no surprise that one of the
first priority projects identified through the Comprehensive land Use plan is that of improving
the water distribution system. The plan is to change the size of the pipes so that the water
pressure will be maintained. The community is also hoping to connect the water system to an
additional water source, but this will depend on the funding coming through.
According to the CLUP, a total average of 954.76m3/day is consumed by all water users in Silago
including household and domestic connections, industrial consumers and commercial buildings.
Photo 14: Gemma Gonato (left) ,

Sudmon Barangay Secretary and
Nestor Tomol (right), Barangay
Kagawad (Village Councilor) say their
community has identified improvement
of the water distribution system as one
the priority issues to be addressed in
Sudmon.
48
With about 3.673% or 5,850 hectares of the municipal land classified as agricultural the other
principal need for water distribution comes from agriculture, especially for rice cultivation.
Rice production has been on a steady rise in Silago over the last decades and the Municipality
has been able to produce a rice surplus for over 10 years (Figure 17), however with population
growth this surplus has been rapidly decreasing from 500,000Kg/year in 2000 to only
200,000kg/year in 2010 and a predicted further decline in years to come. In addition rice pests
and diseases, insufficient water supply as well as flooding of rice paddies have brought rice
production to be lower than production potential. For this reason “low rice production” has
been identified as one of the key priority issues to be addressed in the Silago CLUP.
Identified solutions include the expansion of arable land for rice production through the
identification of new land for planting whilst taking into account the vulnerability of land to
climate change, the building of new irrigation systems as well as the improvement of existing
ones. The adoption of hybrid rice seed, saline tolerant seed and improved farming techniques
as well as the switching to crops less vulnerable to climate change are also included in the
Silago CLUP as solutions for bringing greater food security and income to the area.
Figure 17. Rice Production-Consumption analysis for Silago based on the data from the municipal CLUP. (Source:
Silago CLUP, 2006)
According to Engineer E.R. Beloy, the Silago LGU Municipal Planning and Development
Coordinator (MPDC), total rice irrigation projects outlined in the Comprehensive Land Use Plan
(CLUP) foresee the creation of some 200ha of additional arable land for rice production over
the coming 3 years, thought to increase annual rice production of the Municipality by about
900 Tons.
One of the major expansions of agricultural land for rice production underway since November
2011 is the construction of an improved irrigation system in the uplands of Barangay
Hingatungan. Virgilio T. Tosloc the president of the Irrigators and Farmers Association, under
ARC (Agrarian Reform Communities), who is supervising the work, says “the project will aim to
expand the current land-area suitable for rice cultivation from 64 hectares to 124 hectares,
49
thereby almost doubling rice production and income for the farmers association”. At a
production of about 5.2 Tons of rice per Hectare, a 50% recovery rate after milling, and a selling
rate of about 13 Ph. p per Kilo of rice, the new irrigation system could mean an additional total
income of about 2 M Ph. p/year (46,090 USD) for the farmers of Hingatungan. The project
funded by the Department of Agrarian Reform (DAR) is part of a nationwide project. It is as such
not a direct result of the Comprehensive Land Use Planning process. However, according to
MPDC Beloy, the location of the irrigation project is well aligned with the broader land use
development strategy of Silago as it will convert areas that had become uncultivated grassland
due to past logging, into productive agricultural land. The project is also strategically located in
the upland where rice fields will be safe from flooding by sea-level rise.
Photos 15 a-c. Top (a): The construction of an improved irrigation system in the uplands of the Barangay of
Hingatungan will aim to almost double the land irrigated for rice cultivation in Hingatungan from 64 to 124
Hectares. The project is strategically located in the upland where rice fields will be safe from flooding by sea-
level rise. Below left (b): The local community is already benefitting from the project as during construction local
workers have been employed (GIZ-EFOS Project support). Below right (c): Virgilio T. Tosloc, the president of the
joint Farmers Association of Hingatongan, San Isidro and Kaabon is supervising the irrigation infrastructure
50
construction. It was made possible through the support of a national project of the Department of Agrarian
Reform (DAR).
Photos 16 a-f: Top: Existing rice terraces in the uplands of Barangay Hingatungan (left, a) and a young farmer’s
boy transporting material for roofing (right, b). Middle: An existing rice cultivation in Hingatungan that has dried
out due to lack of irrigation water (left, c) and uncultivated land which will be re-claimed for cultivation once the
irrigation project is in place (right, d). Bottom (e & f): Local community members looking on at the construction
of the irrigation system which is scheduled to be completed by mid 2012.
51
Photo 17: MPDC Eutiquio R. Beloy (Right), together with Leodilin Ansale, Elmer Abad (left) and Chela Torena
provided the much-needed technical support to the LGU Executive and Legislative branches for the CLUP-
Integrated ZO formulations.
Marine and Fisheries Management
The marine resources of Silago identified in the CLUP include 1,232 hectares of coral reefs, 128 hectares
of mangroves as well as sea grass areas, tidal flats, estuaries and rock cliffs. The CLUP also delineates the
Marine protected Areas (MPAs), areas important for fish reproduction, fishing grounds, infrastructure
such as ports and wharves and the foreshore boundaries.
Photos 18 a-b. Left (a): fishermen coming to shore at the estuary at the town proper after a day’s fishing. Right
(b): view from the MPA guardhouse at Sodmon.
Chela Torena, the Fisheries Officer under the Agricultural Office, has been working with local fishers in
Silago since 2004 to increase their acceptance and support to the Local government Unit (LGU) Coastal
Resource Management (CRM) program.
“When I first started in 2004” says Chela” I was employed as an Agricultural Technician as there was not
yet a Fisheries Office at the LGU”. Chela remembers that “at that time acceptance for the CRM program
was very low amongst fishers, and virtually no data was available on what activities were going on at sea
and how many fishers were involved”. There has been a lot of improvement since then. In each
Barangay (village) the LGU has been able to facilitate the establishment of a Barangay Fisheries and
Aquatic Resource Management Council (BFARMC) which includes local fisher representatives and acts as
the principal mechanism for reaching agreement amongst the LGU and fishers on marine resources
52
management issues. In 2008 a Fisheries Ordinance was adopted and in 2009 a Unified Ordinance for the
Municipal MPA Network was established. With assistance from the Province and from GIZ, the LGU was
able to facilitate the creation of management plans for the 3 MPAs in existence at the time, and MPA
plans for the MPAs created subsequently are in process of being established.
“SIMPLE provided a great push in the right direction” says Chela, “as it enabled us to work with the local
community to make an inventory of all activities that are going on at sea and created a good platform
for discussing the fisher’s needs and the regulations that they have to comply to”. During the SIMPLE
process the community decided to extend their MPA network from 2 to 5 MPAs. The first MPA was
established in Hingatungan in 2000, followed by Laguma in 2001, Sugmon in 2003 and two more in
Mercedes in 2010 and 2012.
Photos 19 a-b. Left (a): Sabrina Roberts, Peace Corps volunteer working with the Fisheries Officer at the LGU.
Right (b): Chela Torena, Fisheries Officer and Lucio Sumalinog, Municipal Agricultural Officer (MAO), discussing
fisheries matters in their office.
One of the key challenges has been coastal law enforcement. The marine Protected Areas (MPAs) in
Silago are manned by Bantay Dagat(sea guards) but the lack of a dedicated patrol boat has meant that
the sea guards have to borrow a boat from the fishers when there is an incident of intrusions, a system
that is not really viable. Luckily Silago is part of an alliance of 6 Municipalities (the “Pacific Alliance of
LGU’s and Marine Resource Development Council” (PANDEVC)). The benefits of a well enforced MPA
network are going to be amplified when the network and MPA enforcement can be extended across
more than one Municipality and in this spirit the alliance has agreed to support Silago in the provision of
a patrol boat.
In the meantime the Fisheries Office has already made major progress in raising awareness and gaining
acceptance amongst the local fishers for the MPA management, in compliance with the Fisheries and
MPA Ordinances. Chela Torena has been able, over the last 2 years, to run an intensive Information
Education and Communication (IEC) Program for the over 700 local fishers in Silago. The program
entailed numerous visits and meeting with local fishers to explain what the fishing regulations entail and
their purpose, and ask fishers to register their boats and gear to be in compliance. As a special
promotion in 2011 the LGU offered all fishers who registered their boats a free accident insurance. As a
result in 2012, 600 out of the 700 fishers have registered their boats with the LGU and obtained a free
accident insurance, up from almost none in 2009. The licensing system constitutes a significant source of
53
revenue for the Fisheries Office and the first step in being able to regulate fishing activities and enforce
the Fisheries Ordinance. Through the licensing process fishers are informed of the regulations and can
therefore be held accountable of any regulation breaches. Peace Corps Volunteer Sabrina Robers
supports Chela in motivating fisherfolks.
The work of Chela and Sabrina over the last 2 years has started to build a strong constituency amongst
the local community for management of their marine resources. A testimony to this is the participation
in 2011 of over 500 fishers to the “Fisher Folk Fun Day”, an event that is to become an annual
occurrence in Silago in the years to come.
54
Photos 20 a-e. Pictures from the “Fisher Folk Fun Day” held in 2011, which saw the participation of over 500
fishers in a parade and a number of fun” hands on” activities. The event, organized by the LGU Agricultural
office is to become an annual event, fostering support by fishers for sound marine resource management in
Silago. (Photos by Ronie Torena)
55
5. Expected Results
What are to be the likely key results of the Silago Land Use Plan in the coming 10 years, if the
plan is properly implemented?
According to Dolores Nuevas, Senior Advisor of EnRD Program (NRG component), and
Emmanuel Salvosa, Senior Adviser on Forest Land Use Planning under GIZ-EnRD’s Community
Based Forest Management (CBFM) portfolio, if properly implemented the plan will bring about
the following results:
 Containment and regulation of settlement areas in places suitable and least vulnerable
to GeoHazards. Informal settlements in public domain areas (foreshore, salvage and
forestland areas) are reduced as planned communities are supported with basic
services.
 Reduction in loss of lives and property destruction, through reduced risk of adverse
impact from disasters and climate change as a result of regulation and reduction of
encroachment by informal settlers.
 Increased income among upland households that have been taught the most
appropriate agricultural technologies within forestlands, regulated through co-
management agreements between the DENR and the LGU;
 Increased Municipal income and food security resulting from the non-conversion of
primary agricultural land;
 Improved health and nutritional status, especially among preschoolers of the Barangay
(village) through implementation of climate change adaptation measures outlined in the
Local Development Plans
 A more proactive LGU both at the Barangay and Municipal level
 Greater transparency for constituents with regards to Barangay and Municipal
transactions, resulting in better governance with responsive constituents who have a
full appreciation of what is articulated in the CLUP.
 Reduced dependency by the LGU and communities on “dole outs” and national
government allotments to fund service delivery.
 Real estate development will become a real possibility, especially where tourism and
eco-tourism infrastructure development is firmly determined.
 Retention of Silago’s biodiversity and natural resources
56
6. Gaining Support for CLUP Implementation
Through the SIMPLE approach, the Silago LGU was able to raise awareness about the
importance of land use planning and gain considerable buy for the plan amongst the local
community. From interviews with stakeholders across the Municipality it is apparent that those
who were involved in the planning process have gained a good understanding of the issues
involved in land use planning and feel a sense of pride for having been consulted in the
identification of priority actions. Nevertheless, as is inevitable when working with a wide group
of people, not everybody could be involved in the planning process, and even amongst those
who were, not everybody had the same opinion with regard to how issues should be addressed
and which ones to prioritize.
Moreover, it is one thing to make a plan and another to implement it. As the Mayor of Silago,
Hon. Manuel A. Labrador says “a plan is only as good as those that are tasked to implement it”.
No doubt the challenges in the implementation of the Silago CLUP are going to be many, from
ensuring the local governance systems managing natural resources are well functioning and
people feel empowered to participate, to enforcing the Zoning Ordinance, providing training to
LGU staff, sourcing and allocating adequate funds to priority projects, resolving land use
conflicts amongst stakeholders, applying adaptive management as new information and studies
about the thresholds for sustainable land use management become available and developing a
consistent system for monitoring compliance to the Zoning Ordinance involving a bottom-up
multi-stakeholder approach.
In light of these challenges there are two things that are critical to the successful
implementation of the Comprehensive Land Use Plan Zoning Ordinance: community support
and political will. Both of these, which are inextricably linked and dependant on each other, can
be greatly augmented through the use of social marketing tools.
The term “social marketing” signifies the application of a variety of tools from the world of
marketing to achieve a social good. A social marketing campaign is therefore a marketing
campaign aimed not at selling a product, but rather an idea, a concept that requires an action
by one or more Target Audience/s to help achieve this greater social good.
Within the context of land use planning, the applications of social marketing are as vast as the
number of groups from which a specific behavior change is required.
For example, if the implementation of the CLUP-ZO requires stakeholders to report intended
changes in land use, the Local Government Unit (LGU) may want to run a campaign to raise
awareness amongst land owners and farmers about what constitutes a land-use change, the
procedure for reporting it, the importance and benefits of doing so, and the penalties if land
use is changed without the appropriate consent. Similarly, if the challenge in the
implementation of the CLUP-ZO is the continued illegal felling of wood for household
consumption by local community members within a community based forest management
project, the LGU may want to run a campaign to convince the community to stop forest
encroachment. In this case, a campaign would probably target both the illegal harvesters and
the whole community, promoting the benefits of a protected forest in terms of ecosystem
57
services such as ground-water generation and reduced erosion. As with all social marketing
campaigns the LGU would have to ensure the needs of the community to be able to carry out
the desired behavior change are well understood and taken into account in the design of the
campaign. This will entail the removal of any barriers (BR) to behavior change (BC) such as, for
example, the allocation of a plot of land as an alternative source community wood supply.
The following tables 4 &5 provide examples of how social marketing can support the
implementation of a Comprehensive Land Use Plan through:
1. A campaign to reduce illegal timber harvesting from a Protected Forest Area (PFA)
(Example 1)
2. A campaign to ensure strict implementation of the ordinance on water system usage
(Example 2)
The framework outlined in the tables is referred to as a “Theory of Change” following the Rare
methodology.
58
Table 4. Use of Social Marketing to support CLUP implementation
Example 1: Campaign to reduce illegal timber harvesting from a Protected Forest Area (PFA)
Campaign Target Audience 1: Target Audience 2:

Theory of Males and females age 15-30 (considered to be the primary The community managing the Protected Forest Area (PFA)
Change intruders into the Protected Forest Area (PFA))
Knowledge There is an increase in the % of young men and women who There is an increase in the % of community members who
(K) are aware: are aware:
1. Of the benefits that the forest provides to them in terms 1. Of the benefits that the forest provides to them in terms
of ecosystem services (spring water, reduced erosion) and of ecosystem services (spring water, reduced erosion) and
of the fines to those who harvest timber illegally. of the fines to those who harvest timber illegally.
2. That they have to stop collecting timber from the 2. That they have to stop collecting timber from the
Protected Forest Area (PFA), but can collect timber from the protected forest area, but can collect timber from the
village designated forest area instead village designated forest area instead
3. That they can get trained as forest wardens if they would 3. Of their role in helping to protect the forest by reporting
like to help restore the protected forest area and gain some anyone who collects timber from the PFA.
additional income
Attitude (A) There is an increase in the % of young men and women who There is an increase in the % of community members who
believe that: believe that:
1. It is no longer acceptable to go and harvest timber from 1. The forest is their asset to manage and protect
the PFA as it is the community’s asset. 2. They should report anyone harvesting timber from the
2. Anyone harvesting timber illegally has a high chance of PFA to the forest wardens so that they can be punished for
getting caught and punished. putting at risk the wellbeing of the community.
3. It is an honor to be able to work as a forest warden
Interpersonal There is an increase in the % of young men and women who There is an increase in the % of community members who
Communicati talk to their peers, friends and family about: talk to friends and family members about:
on (IC) 1.The need to stop collecting firewood from the PFA and 1. Their role in protecting the community forest by
instead collecting it from the designated village forest area harvesting timber only from the designated village area
2. The opportunity of training to become a forest warden. 2. Reporting any illegal harvesting of timber in the PFA.
Barrier 1. Young men and women are shown the boundaries of the 1. The community together with the LGU identifies a
Removal (BR) PFA and the location of the designated village forest. secondary forest area where community members are able
2. Young men and women are given training and a small to collect timber for personal use.
honorarium to become forest wardens. 2. The community together with the LGU allocates a budget
to train and appoint a number of forest wardens to patrol
the protected forest area.
3. The LGU together with the community set up a project
that will provide additional benefits to the community from
protecting the forest (i.e. improvement of the water
distribution system; planting of fruit trees as an alternative
livelihood project)
Behavior There is an increase in the % of young men and women There is an increase in the % of community members who:
Change (BC) who: 1. stop cutting down trees in the designated protected
1. No longer harvest timber in the protected forest area forest area
2. Work as forest wardens a few days a week. 2. Reporting illegal timber harvesting to the forest wardens
Threat There is a 100% reduction of illegal timber harvesting in the Protected Forest Area (PFA).
Reduction
(TR)
Conservation Dipterocarp trees in the protected area are able to reach full maturity and the forest ecosystem and associated watershed
Result (CR) reach an optimal state of health (forest health assessment score goes up by 2 levels within 5 years of the campaign).
59
Table 5. Use of Social Marketing to support CLUP implementation
Example 2: Campaign to ensure strict implementation of the ordinance on water system usage
Campaign Target Audience 1: Farmers Target Audience 2: Wider Community

Theory of
Change
Knowledge (K) There is an increase in the % of farmers who are aware of: There is an increase in the % of community members who
1. The issue of spring water contamination from are aware of:
agricultural waste and the associated risk from diseases in 1. The activities that can lead to contamination of the
the community. community potable water sources and the associated risks
2. The water systems ordinance and the need to be in from diseases to infants in the community.
compliance with it by following the LGU recommend 2. The simple rules that need to be followed to avoid
farming practices and regulating water consumption. contamination of the water system in relation to keeping of
3. The fines to those who are not in compliance with the animals
ordinance on water system usage. 3. The rules with regards to waste disposal and segregation.
3. The 3 rules to help minimize overall water usage in the
community.
Attitude (A) There is an increase in the % of farmers who believe they There is an increase in the % of community members who
have an important role to play in ensuring the wellbeing believe it is their and everybody’s responsibility to help
of the community by following LGU recommended protect the water resources by following simple rules
farming practices and regulating water consumption. regarding the keeping of animals, waste disposal and water
usage.
Interpersonal There is an increase in the % of farmers who talk to their There is an increase in the % of community members who
Communication peers, family and friends about the importance of talk to their friends and family about their role in supporting
(IC) following the water system ordinance and the risks in the water systems ordinance.
terms of fines for non-compliance.
Barrier The LGU provides training sessions and a consultation The LGU ensures that waste segregation systems are
Removal (BR) service to farmers who wish to ensure they are in functioning adequately.
compliance with the water systems ordinance. The LGU ensures all communities have access to potable
The LGU allocates funding for the training and water by improving the water distribution system.
appointment of a water systems ordinance officer to
inspect compliance.
Behavior There is an increase in the % of farmers who There is an increase in the % of community members who
Change (BC) 1. Follow the LGU recommended farming practices to 1. Ensure their animals are not polluting the local potable
avoid contamination of spring water. water sources.
2. Regulate water consumption on their farm. 2. Practice safe solid and liquid waste disposal and
segregation.
3. Follows the 3 rules to minimize overall water use.
Threat Incidents of water contamination and pollution are reduced to zero. Overall water consumption is reduced by 20%.
Reduction (TR)
Conservation There is a 30% improvement of the flow and water quality of selected rivers and streams (measured 2 and 5 years after
Result (CR) the campaign).
60
7. Into The Future
The Comprehensive Land Use Plan Zoning Ordinance formulation process undertaken by the
Municipality of Silago through the support of the GIZ stands out as an example of excellence and
inspiration for achieving territorial governance for local governments.
Within the next 10 years, through the implementation of the Comprehensive Land Use Plan (CLUP)
Zoning Ordinance (ZO) the citizens of Silago can bring about significant changes to their Municipality,
making it a safer and better place to live and visit, with a sustainable management and governance over
natural resources and greater food security, economic wealth, resilience to climate change and
disasters, biodiversity and quality of life.
The development of the Silago CLUP-ZO is only the first step in achieving this vision. A plan is only as
effective as its implementation and, as has been outlined in this case study, the challenges to be
overcome are not few and far between. The ability to overcome them will hinge on resource availability,
community support, policy environment that encourages local creativity and initiatives, and political will.
The citizens of Silago have already demonstrated that they are able to lead the way in adopting strategic
and innovative approaches to land use planning. We wish them well in their endeavor, knowing that the
mix of vision, ambition, strategy and hard labor that we have witnessed in Silago are what is required to
bring about positive change for a better future.
61
8. References:
DENR and CoDe REDD Philippines and partners, 2010: The Philippine National REDD-plus Strategy.
Quezon City, August 2010.
Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ) GmbH, 2012. Socio, 2012. Socio-
economic Baseline for the REDD+ Project Sites in Southern Leyte, Philippines. Deutsche Gesellschaft für
Internationale Zusammenarbeit (GIZ) GmbH, November 2011.
Narisma GT, Vicente MC, Capili-Tarroja EB, Cruz FA, Perez RT, Dayawon RS, Dado JM, Del Castillo MF,
Villafuerte II MQ, Loo LC, Olaguer DM, Loyzaga MA, Banaticla-Altamirano MR, Ramos LT, Habito CM and
Lasco RD. 2011. Patterns of Vulnerability in the Forestry, Agriculture, Water, and Coastal Sectors of
Silago, Southern Leyte, Philippines. Manila, Philippines. The Manila Observatory, the World Agroforestry
Centre, and the Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ) p132.
Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ) GmbH, FFI, NewCAPP, 2012: Final
Report: Biodiversity Assessment in Southern Leyte - Biodiversity Baseline Assessment in the REDD+
Pilot Area on Leyte lsland as an Input for the Elaboration of a MRV System for REDD+ Including
Biodiversity Co-benefits Project. Submitted by Fauna and Flora International (FFI) to New Conservation
Areas of the Philippines Project (NewCAPP) and the Deutsche Gesellschaft für Internationale
Zusammenarbeit (GIZ) GmbH.
Publications by the Municipality of Silago:
 Forest Land use Plan (FLUP), Municipality of Silago, Southern Leyte.

 Comprehensive Land Use Plan (CLUP) 2011, Municipality of Silago, Southern Leyte.
PowerPoint presentations:
 Altamirano RA 2012, NewCAPP. Presentation on Philippine Biodiversity, Assessment

Presentation and Management Planning on May 2-3 in Southern Leyte.
 Participatory Land Use & Development Planning (PLUDP), GIZ-EnRD Program
 GIZ-ACCBio Project - CIGRASP Silago Results PowerPoint 17 February 2011
 Silago Biodiversity by Beloy E R JR- MPDC; Bohol A, Puntana Capitan; Tambule, Sudmon
Capitan; Bohol PLPEDA CBFM
62
Annex:
About Rare
Rare is a non-governmental organization that works in 57 countries globally, specialized in

SOCIAL MARKETING (SM) and capacity building. Rare trains local implementing partners to
design and implement what is known as a “Pride Campaign” - a campaign that through a
carefully planned communication strategy and the use of fun marketing channels such as
festivals, mascots, songs, billboards, T-shirts, theatre performances and radio, as well as
through trusted sources such as teachers, barangay officials and religious leaders, aims to
increase the community’s pride and ownership over their natural resources in order to achieve
a behavior change. In the Philippines current campaigns focus on transforming management
and enforcement of local MPAs into a matter of local pride.
For information about Rare contact:
Rare Philippines Office,

El Portal Inn,
Door 2, Belderol Street, 6300 Tagbilaran, Bohol, Philippines,
office tel/fax : +63 384 110030
www.rareconservation.org
www.rareplanet.org
63
About the Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ)
GmbH
As a federally owned enterprise, GIZ supports the German Government in achieving its
objectives in the field of international cooperation for sustainable development.
Most of our activities in the Philippines are commissioned by the German Federal Ministry for
Economic Cooperation and Development (BMZ). GIZ also operates on behalf of the German
Federal Ministry for the Environment, Nature Conservation and Nuclear Safety (BMU) under its
International Climate Initiative; government agencies of other countries and other international
clients- such as the European Commission, United Nations agencies, and the Asian
Development Bank- as well as on behalf of private enterprises.
The Climate-relevant Modernization of Forest Policy and Piloting of Reducing Emissions from
Deforestation and Forest Degradation (REDD) Project in the Philippines, Adaptation to Climate
Change and Conservation of Biodiversity in the Philippines (ACCBio), and the Adaptation to
Climate Change in Coastal Areas (ACCCoast) are projects funded by the German Federal
Ministry for the Environment, Nature Conservation and Nuclear Safety (BMU) under its
International Climate Initiative. The BMU supports this Initiative based on a decision of the
German Parliament. For more information see http: / / www. international-climate-
initiative.com
64
65
View publication stats

The Municipality of Silago, Southern Leyte, Philippines Case Study: A Global Bright Spot For Land Use Planning

Uploaded by

Document Information

Original Title

Copyright

Available Formats

Share this document

Share or Embed Document

Sharing Options

Did you find this document useful?

Is this content inappropriate?

Copyright:

Available Formats

The Municipality of Silago, Southern Leyte, Philippines Case Study: A Global Bright Spot For Land Use Planning

Uploaded by

Copyright:

Available Formats

See discussions, stats, and author profiles for this publication at: https://www.researchgate.

The Municipality of Silago, Southern Leyte, Philippines Case Study: A Global

Article · September 2012

Marine Protected Area View project

The user has requested enhancement of the downloaded file.

Why the need for a case study on Land Use planning?

Photos 1 a-b: Two new species of

Strengths of the Silago Comprehensive Land Use Plan (CLUP)

1. Improved governance through a bottom up approach with wide participation from

The development of a Comprehensive Land Use Plan (CLUP) is an obligation of Philippine

SIMPLE stands on two pillars: Ridge-to-Reef planning and management and

Module 1 – Facilitation Skills

Phase 2: Linking Provincial with Municipal or City Development Strategies

Step 1 – Review of the physical framework aspect

Phase 3: Comprehensive Land Use Planning

Part 1 - Preparation of the Barangay Development Plans

Step 1. Getting organized (Preparatory Phase)

Part 2 - Formulation of the Integrated CLUP-ZO

Step 7. BDP Consolidation and Integration

Step 1. Review existing CDP in relation to the SP-approved CLUP

Step 1 – Review existing monitoring instruments

2007 - 2010 - Creation of a Municipal Implementing Team (MIT):

 (Second quarter) - Consolidation, over 2 months, by the Municipal Implementing Team

Photo 2e: Perimeter survey

1. All infrastructure projects must be Climate Proof during plan preparations;

Fig 10. Projected climate changes for Silago (Narisma et al 2011)

Suggested strategies include:

Settlements and housing

Flooding mitigation measures

Capacity building and poverty reduction

Improved environmental management

Improved waste management

Photo 9: Picture taken in Silago’s planted forest area

To ensure adequate protection and management of Silago’s forests the Municipal

Photo 11: On the right Sonny Salvosa, Senior Adviser on

Photo 14: Gemma Gonato (left) ,

Marine and Fisheries Management

Campaign Target Audience 1: Target Audience 2:

Campaign Target Audience 1: Farmers Target Audience 2: Wider Community

Publications by the Municipality of Silago:

 Forest Land use Plan (FLUP), Municipality of Silago, Southern Leyte.

 Altamirano RA 2012, NewCAPP. Presentation on Philippine Biodiversity, Assessment

Rare is a non-governmental organization that works in 57 countries globally, specialized in

For information about Rare contact:

Rare Philippines Office,

View publication stats

You might also like