Governance and Development of Tikub Lake,
Tiaong, Quezon, Philippines
CITE AS: Brillo, B.B., Anastacio, N.J., Dicolen, E. & Baconguis, R. (2017). Governance and Development of Tikub Lake, Tiaong, Quezon, Philippines. Taiwan Water Conservancy Journal, vol. 65, no. 4, pp. 1–13
Bing Baltazar C. Brillo, PhD.
UP Scientist and Associate Professor
Institute for Governance and Rural Development
College of Public Affairs and Development
University of the Philippines Los Ban͂os
email: bbbrillo@yahoo.com; bcbrillo@up.edu.ph
Nico Jayson C. Anastacio, M.S.
University Researcher
Center for Strategic Planning and Policy Studies
College of Public Affairs and Development
University of the Philippines Los Banos
Emely D. Dicolen, Ph.D.
Assistant Professor
Institute for Governance and Rural Development
College of Public Affairs and Development
University of the Philippines Los Ban͂os
Rowena DT. Baconguis, Ph.D.
UP Scientist and Director
Institute for Governance and Rural Development
College of Public Affairs and Development
University of the Philippines Los Ban͂os
Keywords
Development, Governance, Lake, Philippines,
Small Lake, Tiaong, and Tikub (or Tikob, Ticob, Ticub) Lake
Abstract
The Philippines has a plenitude of small lakes scattered all over the archipelago. Many of them are ecologically threatened due mainly to inconsiderate utilisations, unsound development, and arbitrary governance. Against this backdrop, lakes studies in the Philippines have been growing over the years. However, the scholarly works are heavily skewed towards studies on major lakes and their abiotic-biotic aspects. This literature imbalance suggests little attention has been paid to small lakes and their governance-development aspects. Ameliorating this literary deficit, the article explores the specifics of the governance and development of Tikub Lake, a little known small lake in Quezon Province. In particular, the study looks into its status, governance practice, and the tourism-oriented development using the Integrated Lake Basin Management (ILBM) criteria as well as the identified key elements for managing, conserving, and developing small lakes in the Philippines. The study elucidates the following on Tikub Lake. In institutions, a key factor is a committed local government which has consistently introduced incremental improvements on the small lake. In policies, the immediate issue is the formulation of a Master Development Plan that would guide the establishment of tourism in the small lake. In involvement, the small lake is blessed with actively participating constituents and an existing people’s organisation which serves as a platform for local participation. In interventions, scientific/technological information and actions (such as water quality assessment and fish stocks conservation) have been utilised for the maintenance of the small lake. In finance, the sourcing of funds continues to be a challenge in sustaining the conservation efforts and organising tourism in the small lake. On the whole, the study delineates the distinct praxis of local governance in Tikub Lake, identifies its critical areas for improvements, offers broad guides in managing and developing inland water bodies, extends the scholarship in lake governance and small lakes, and registers Tikub Lake on the docket of scholarly literature.
1. INTRODUCTION
The Philippines is an archipelago blessed with abundance of lakes. These inland bodies of water are considered essential but ecologically threatened natural resource in the country. In unison, the First National Congress on Philippine Lakes in 2003, the Second National Congress on Philippine Lakes in 2011, and the Global Nature Fund in 2014 have echoed that many lakes in the country are in peril of decline due mainly to inconsiderate utilisations, unsound development, and arbitrary governance (Aralar et al. 2005, Fernandez 2011, Aralar et al. 2013, LLDA 2014, GNF 2014). Against this backdrop, lakes studies in the Philippines have been steadily advancing over the years. The concentration of scholarly works, however, are on the major lakes in the country (e.g., Laguna de Bay, Taal Lake, Lanao Lake, and Buhi Lake) and their abiotic-biotic aspects (Brillo 2015a; see also Guerrero III 2001, Guerrero III 2005). This literature trajectory reveals an imbalance where small lakes and their governance-development aspects have received little attention (e.g., see ILEC 2005, Downing 2010, UNDP-WGF 2015, Brillo 2015b, Brillo 2015c, Brillo 2016a, Brillo 2016b, Brillo 2016c). As a consequence, little is known or written about many existing small lakes in the country of which many remain untapped or undeveloped. To ameliorate this literature and development deficit, it is imperative that more research is conducted on the governance and development of small lakes in the country. In essence, small lake studies would contribute significantly to broaden the knowledge base on Philippine lakes. Governance studies would complement the physical-biological studies in sustainably managing small lakes. Development studies would augment in improving the conditions of the local communities situated adjacent or dependent to small lakes. Contemporarily, the governance of small lakes in the Philippines is developmentally consequential since many of them have enormous potential as a catalyst for local development. As three out four poor Filipinos live in the countryside, local development is crucial if the economic growth being experienced by the country since the last decade would be made inclusive and equitable (NSCB 2013, GMR 2015).
Premised on the antecedent discussion, this article conducts a case study on the governance and development of Tikub Lake, a little known small lake in Quezon Province. Specifically, it assesses the status, governance practice, and tourism-oriented development in Tikub Lake using the Integrated Lake Basin Management (ILBM) categories as well as the identified key elements for managing, conserving, and developing small lakes in the Philippines. Tikub Lake is a small freshwater lake located in the Municipality of Tiaong, Quezon. It is only about 20 kilometres away from the Seven Crater Lakes of San Pablo City, Laguna and about 10 kilometres away from Gunao Lake of Dolores, Quezon (see Figure 1). Together, they comprise the small lakes of the Laguna Volcanic Field which is situated between Mount Banahaw-San Cristobal volcano complex and Mount Malepunyo range. Among the distinctions of Tikub Lake is that: it is picturesque as a natural resource; it has won the “Gawad Pangulo sa Kapaligiran” for Inland Bodies of Water Category for Lakes three times (see Executive Order 113); it has been declared as a home to endemic species restricted in Luzon (DENR-CENRO 2013b); it has been earmarked by the local government for tourism development since the early 2000s; and it has been currently elevated as the flagship tourism project of the Municipal Government. Despite these attributes, Tikub Lake is largely unknown beyond its municipality and in academic literature— the scholarly works tackling its governance and development have been largely absent. So far, only one published journal article was found in searching for Tikub Lake in Google Scholar (i.e., an article on a freshwater fish survey, see Labatos and Briones 2014). On the whole, the study aims to illustrate the specifics of the governance and development of a small lake as well as ameliorate the long existing imbalance in literature. In the study, a small lake is defined as an inland body of water that is permanent in nature (not intermittent) with a surface area of at least one hectare but not more than 200 hectares (see Brillo 2015a). Lake governance (consistent with the well-circulated definition of water governance [see Rogers and Hall 2003, Nowlan and Bakker 2007, UNDP-WGF 2015]) refers to the political-administrative systems of managing, utilising and developing the small lake. Lake development refers to the process of advancing the conservation of the small lake and bringing socio-economic improvement in its people and community.
2. METHODOLOGY AND METHODS
The study employs a case study design in looking into the governance and the tourism-oriented development of Tikub Lake. The data are generated from interviews, observations, and documentary sources. The data are analysed and delineated using the criteria identified by the ILBM as critical areas of governance. In particular, the set of criteria adopted are the following: (a) institutions (refer to the presence of effective administrative organisations), (b) policies (refer to the existence of plans, programs, and regulations), (c) involvement (refers to the support and participation of local people), (d) interventions (refers to the utilisation of scientific information and technological interventions), and (e) finance (refers to the adequacy and sustainability of funds) (see ILEC 2007; Nakamura and Rast 2012) (see Figure 2). The ILBM is the most recent approach in lake governance globally promoted by the International Lake Environment Committee (ILEC). In principle, ILBM takes a holistic perspective and is committed to integrated management of lakes and their basin through incremental and continuous improvement of governance (Nakamura and Rast 2014). The ILBM criteria are supplemented by key elements deemed basic in the management, conservation, and development of small lakes in the Philippines (see Brillo 2015b, Brillo 2015c, Brillo 2016a, Brillo 2016b, Brillo 2016c). In particular, these features consist of the following: (i) having a local association/council organised to administer the water resource; (ii) having a basic plan, particularly a management and development plan (MDP) for the lake; (iii) implementing the 10-percent-area-limit rule for aquastructures, specifically fish pens/cages, pursuant to the Fisheries Code of the Philippines or Republic Act (RA) 8550; (iv) encouraging tourism development pursuant to the Tourism Act of 2009 or RA 9593; (v) enforcing the 20-meter shoreline easement rule pursuant to the Water Code of the Philippines or Presidential Decree (PD) 1067; (vi) having adequate and stable funds; and (vii) conducting maintenance activities, specifically water quality analysis, clean up operations, and fingerlings seeding/dispersal. The results and discussion proceed as follows: firstly, a look into the status and tourism-oriented development of Tikub Lake; secondly, an evaluation of the governance in Tikub Lake; and lastly, the conclusion.
3. RESULTS AND DISCUSSION
3.1 The Status and Tourism-Oriented Development of Tikub Lake
Tikub Lake is a freshwater crater lake located in Barangay Ayusan 1 and Barangay San Pedro in the Municipality of Tiaong, Quezon (see Figure 3). About one-third of the lake is situated in Barangay San Pedro, and the remaining two-thirds (southern part of the lake) is within Barangay Ayusan 1. The primary access to Tikub Lake is via Barangay San Pedro (northern part) where a paved entryway leads to the concrete steps descending to the lake. The access in Barangay San Pedro is linked with Barangay Aquino Road, which eventually connects to the Tiaong-Lipa National Highway. Recently, the Municipal Government has reached an agreement with a landowner in Barangay Ayusan 1 which granted a 10-meter wide right of way to Tikub Lake (DENR-CENRO 2013b). As an inland body of water, Tikub Lake is oval-shaped with a surface area of 48.34 hectares (Labatos and Briones 2014) and has steep circumferential slopes with an elevation of 97 meters (PHILVOLCS 2008). Being a maar, the small lake is believed to be volcanic in origin which was formed through a phreatic eruption when contact between shallow lava and groundwater caused an explosion that resulted in a crater-like depression (LLDA 2008, PHILVOLCS 2008). Tikub Lake has no inlets nor outlets. It replenishes by rainfall and surface runoff, and discharges through seepage and evaporation.
The locals have utilised Tikub Lake for subsistence fishing and recreation in the past.
Following the trend a decade earlier in the Seven Crater Lakes, aquaculture, specifically Tilapia cage farming, was introduced in the small lake by mostly residents of Barangay San Pedro in the 1990s. Small-scale fish farmers ventured in Tikub Lake at the onset, but commercial fish farmers started arriving in the mid-1990s. Since then, Tilapia cage farms gradually increased, becoming a constant feature of the small lake. The expansion of fish farms reached its peak around 2007, then steadily declines onwards. This decrease was precipitated by a major fishkill in 2008 and financial problems which forced many fish farmers to discontinue operations. Unlike the experience in most of the Seven Crater Lakes and Gunao Lake, the total number of fish cages in Tikub Lake never breached the 10-percent-area-limit rule for aquastructures.
With the tendency of fish farming to over-expand in the small lakes of the Laguna Volcanic Field (e.g., see LLDA 2008, Provincial Government of Laguna 2013), the control over the proliferation of fish cages in Tikub Lake is a notable feat. This achievement was attributable to key decisions taken by the locals and the local government. Firstly, the locals had a customary agreement that only residents of the municipality would be allowed to operate fish farms in Tikub Lake. Secondly, the Municipal Government imposed in 2010 a moratorium limiting the maximum number of fish cages to 83 in Tikub Lake (which is the inventory of fish cages operating in the small lake at the time). And lastly, the Office of the Municipal Mayor ordered in 2015 the suspension of the issuance of permits for the application of fish cages in Tikub Lake. These actions of the local government are aligned with its vision of pursuing tourism-oriented development for the town and making Tikub Lake a major tourist destination in Southern Tagalog Region. The tourism agenda evolved in the early 2000s when the Municipal Government identified and earmarked Tikub Lake for tourism institution This decision ushered the reorientation of development in the small lake from aquaculture to tourism which was eventually adopted by the succeeding two local government’s administrations. Under this direction, the local governments have introduced incremental improvements to Tikub Lake over the years; such as paving the main roadway and entry steps to the small lake, cementing the access road linking the small lake to the national highway, establishing a wide trail around the small lake, and reforesting the vicinity of the small lake. In 2013, the Municipal Government formally declared Tikub Lake development as its flagship tourism project through Municipal Ordinance 2013-02 which made the small lake a protected area and ecotourism zone in the Municipality of Tiaong (Municipal Council of Tiaong 2014).
3.2 The Assessment of Governance in Tikub Lake
Institutions refer to the governing agencies and organisations of the small lake. Tikub Lake is under the administration of the Municipal Government of Tiaong, Quezon. This authority comes from the Local Government Code of the Philippines (RA 7160) which gives jurisdiction to the local government over the small lake being within its geographical territory. The local government offices of the Municipal Agriculturist, the Municipal Environment and Natural Resources, and the Municipal Tourism are the front line agencies responsible for the management, development, and conservation of Tikub Lake. In managing the small lake, the Municipal Government receives assistance from national agencies. In particular, the Department of the Environment and Natural Resources—Community Environment and Natural Resources Office Region IV-CALABARZON (DENR-CENRO), the Department of Agriculture—Bureau of Fisheries and Aquatic Resources (DA-BFAR), and the Office of the Provincial Agriculturist and Fisheries Division (PAFD) usually provides support to the local government. On the ground, the Municipal Government oversees Tikub Lake primarily through the Samahan ng Bantay Lawa ng Tikub (SBLT). The SBLT implements the regulations and maintenance activities in the small lake while being under the supervision of the Municipal Agricultural Officer (MAO) and the Municipal Environment and Natural Resources Officer (MENRO). Presently, a proposal is on the table to institute SBLT as the Municipal Fisheries and Aquatic Resources Management Council (MFARMC) of Tikub Lake following the mandate of the Fisheries Code of the Philippines. The Code designates an MFARMC as the principal partner of the local government in managing, conserving, developing, protecting, utilising, and disposing of all fish and fishery/aquatic resources within its respective municipal waters (see RA 8550, Section 16).
The primary factor working for Tikub Lake’s tourism development is a committed local government. Since the Municipal Government of Tiaong embraced a tourism-oriented strategy, it has made incremental but consistent steps to develop the small lake. A notable action taken by the local government is to organise SBLT in 2002 which established a necessary governance structure in Tikub Lake. At present, Tikub Lake remains in need of the essential infrastructures and facilities to set off an organised tourism. In addressing the issue, the Municipal Government would benefit from the existence of three favourable factors. Firstly, the local government has already established linkages with national and provincial agencies (e.g., DENR-CENRO and PAFD) which can assist in technical matters and sourcing of finance. Secondly, the tourism agenda enjoys a consensus of local support from the community. Lastly, Tikub Lake is in a relatively better condition vis-a-vis the other small lakes in the Laguna Volcanic Field.
Policies refer to existing plans, programs and regulations on the small lake. The local government governs Tikub Lake by virtue of the Local Government Code. The Philippine Fisheries Code and the Tourism Act also outline the regulations and development of Tikub Lake, and together with the Local Government Code, delineate the plans and programs for the small lake. Presently, the utilisation of Tikub Lake is mainly confined to aquaculture and tourism. Fish cage farming was the principal usage of the small lake in the past. The trajectory of development in Tikub Lake shifted from fish farming into tourism when the Municipal Government adopted the tourism-oriented development in the early 2000s. The transformation of the small lake into a full-fledged ecotourism destination became a key local government strategy in generating livelihood opportunities, ensuring the preservation of the water resource, and precipitating tourism development of the whole municipality.
In transforming Tikub Lake into a tourist hub, the basic step is to initiate the formulation of a Master Development Plan (MDP) that would steer the tourism establishment in the small lake. Municipal Ordinance 2013-02 underscored the urgency of having an MDP, as the municipal law established Tikub Lake as a tourism area and called for its immediate formulation (Municipal Council of Tiaong 2014, see section 6). In general, an MDP provides broad direction for actions and identifies the areas for developing the small lake. It is also the most important instrument in aligning the tourism agenda with conservation efforts in Tikub Lake. So far, all improvements in Tikub Lake have been implemented without the guidance of an MDP. The only existing plan is a management proposal (called the Tikub Lake Management Plan) which was initiated by DENR-CENRO when the agency documented in the existence of the small lake in 2011-12 (see DENR-CENRO 2013a, DENR-CENRO 2013b).
The local government through its Municipal Council has enacted tourism-related ordinances. Ordinance 2012-15 bans the construction of private toilets within the easement vicinity of the small lake. Ordinance 2012-16 regulates access to the small lake including the construction private trails and pathways. Ordinance 2012-17 forbids cutting/burning of trees and bird hunting and other similar activities within the immediate vicinity of the small lake (Municipal Council of Tiaong 2012a, Municipal Council of Tiaong 2012b, Municipal Council of Tiaong 2012c). These ordinances are aimed to support the establishment of tourism as well as enhance the conservation of Tikub Lake. Moreover, two key regulations also facilitate the groundwork for tourism development in Tikub Lake: the 10-percent-area-limit rule for aquastructures and the 20-meter shoreline easement rule. The 10-percent-area-limit rule is designed to check the over-expansion of fish farming which is a leading cause of many ecological problems among lakes in the country. The 20-meter shoreline easement rule is intended to prevent informal settlers and illegal structures along the banks of the lakes. An easement-related issue in Tikub Lake is the identification of the easement boundaries between the small lake and surrounding private lands (owned by nine families) as well as the clarification of the easement’s encumbrance on titled lands. Presently, the 10-percent-area-limit rule is complied with as there are only 50 fish cages in Tikub Lake (all of them located in the northern part at Barangay San Pedro); while the 20-meter easement rule has minor infractions as seven houses exist within the zone. With the small number of fish cages and informal settlers, Tikub Lake is in a favourable condition for tourism development compared to the other small lakes in the Laguna Volcanic Field.
Involvement refers to the participation and support of locals to initiatives/projects in the small lake. Tikub Lake has actively involved constituents and a community organisation in SBLT which serves as the primary platform for local participation. The SBLT was organised by the local government in 2002 comprising of fish cage operators, fisherfolk and lake residents. The presence of SBLT translates to better interest articulation among the locals as the community organisation serves as a forum and a principal stakeholder of the small lake. The SBLT also leads the regular clean up and maintenance operations in the small lake. In 2015, the SBLT was cited as an Outstanding Small Fisherfolks Organization by the “Gawad Saka” program of the Department of Agriculture (DA) and was slated to be officially designated as the MFARMC of Tikub Lake.
The support of the locals and civic groups is evident in their consistent involvement in the activities and projects conducted on Tikub Lake. For instance, the tree planting project under the National Greening Program and the meetings called by DENR-Environmental Management Bureau (EMB) and by CENRO to discuss the result of the water assessment and the proposed Tikub Lake Management Plan, respectively, were well participated by the locals (DENR-CENRO 2013a, DENR-CENRO 2015a, DENR-CENRO 2015b, DENR-CENRO 2015c). However, the local support continues to be defined by a top-down decision making where the initiatives emanate from or through the local government. Under this setup, the commitment of the Municipal Government remains the critical ingredient in Tikub Lake’s development endeavour, notwithstanding the involvement of the locals.
Interventions refer to the utilisation of scientific knowledge and technology in managing the small lake. Scientific/technological interventions are evident in the maintenance activities, such as water quality assessment and fish stocks conservation, carried out in Tikub Lake. DA-BFAR and PAFD have spearheaded the fish stock conservation efforts in Tikub Lake which includes re-populating the small lake with native species, providing fingerlings to fish farmers, and establishing a fish sanctuary/protective area in the small lake. In 2016, PAFD released 200,000 fingerlings and DA-BFAR set up three units brush park fish shelters in Tikub Lake. DA-BFAR also conducted water quality analysis in Tikub Lake during the occurrence of a major fishkill. The Municipal Government recently requested DENR-EMB to conduct a water quality evaluation to determine the appropriate usage of the small lake following its tourism development agenda. Based on DENR’s water usage and classification for fresh surface water, DENR-EMB reported that Tikub Lake is classified as Class B (DENR-CENRO 2013b, DA-BFAR 2016). This classification implies that the water of the small lake can meet the National Standards for Drinking Water after treatment (e.g., coagulation, sedimentation, filtration, and disinfection) (see DENR 1990). The result also confirms the top-level status of Tikub Lake (in terms of water quality) vis-a-vis the other small lakes in the Laguna Volcanic Field which are mainly classified as Class C (see LLDA 2008).
Scientific/technological information is also critical in addressing the pressing and potential ecological threats to Tikub Lake. Some information needs to be supplied on the small lake. For instance, the depth of Tikub Lake must be accurately established to assess the threat of siltation and erosion confidently. The geological markings (on the eastern side of the small lake) should be explored to ascertain its scientific value as well as tourism prospects (see Figure 4). The spewing of bubbles and kerosene smell in the northern area of the small lake must also be investigated for possible hazard or benefits (PAWD-CENRO 2013, DENR-CENRO 2013b).
Finance refers to the sufficiency and sustainability of funds for the small lakes. As in many other lakes in the country, finance is a major concern in Tikub Lake since establishing tourism in the small lake is dependent on it. Funds are needed in organising and building the facilities/infrastructures for tourism. The advantage of the Municipal Government of Tiaong is that the local government is in a healthy financial position since the town currently is experiencing an economic boom. The Municipal Government also has an established external linkage with the national and provincial agencies which can be tapped in sourcing finance and technical support.
The national agencies have already poured financial assistance to Tikub Lake. For instance, the Department of Tourism (DOT) earmarked P2 million to establish a circumferential trail and rehabilitate the entry steps to the small lake. DA-BFAR allocated around P200,000 to construct brush park fish shelters in the small lake. The Municipal Government has been providing support to fish farmers and SBLT. The local government has donated fish feeds and allowed a temporary waiver of business tax to the fish farmers, and has subsidised SBLT by giving P25,000 per year operating funds.
4. CONCLUSION
The article examined the specifics of the governance and tourism-oriented development of Tikub Lake. Guided by ILBM’s essential enablers of governance, the study elucidates the following on Tikub Lake. In institutions, a key factor is a committed Municipal Government which has introduced incremental but consistent improvements on the small lake over the years. In policies, the main issue is the formulation of an MDP that would steer the transformation and development of tourism in the small lake. In involvement, the small lake has actively participating constituents and an existing people’s organisation (i.e., the SBLT) which serves as the main forum for local participation. In interventions, scientific/technological information and actions have been utilised on maintenance activities (e.g., water quality assessment and fish stocks conservation) and in addressing ecological problems/threats to the small lake. In finance, the sourcing of funds continues to be a challenge in sustaining the conservation efforts and organising tourism in the small lake. The tourism development in Tikub Lake was an incremental but consistent furtherance of governance which encompasses three local government administrations. It was set forth by the Municipal Government in the early 2000s, adopted by the succeeding administrations, and prioritised by the present administration.
On the whole, the study delineates the distinct praxis of local governance in Tikub Lake, identifies its critical areas for improvements, and offers broad guides in managing and developing water resources in the country. It also extends the scholarship in lake governance and small lakes. These contributions are contemporarily relevant in view of, on one hand, the plenitude of small lakes in the world (see Lehner and Doll 2004, Downing et al. 2006, Oertli et al. 2009) and the valuable role they play in maintaining the global ecology (see Smith et al. 2002, Scheffer et al. 2006, Hanson et al. 2007, Downing 2010), and on the other hand, the recognition that many issues on water resources are largely rooted in failure of governance (see UNESCO 2012, World Water Council 2012, UNWWAP 2015, UNDP-WGF 2015). In closing, the article registers the existence of Tikub Lake on the docket of scholarly literature and makes a small step towards a more equitable attention to small lakes.
Acknowledgement
Many thanks to the following: Samahan ng Bantay Lawa ng Tikub, the Municipal Environment and Natural Resources Office, the Municipal Planning and Development Office, the Municipal Tourism Office, the Municipal Agriculturist Office, the Community Environment and Natural Resources Office, and the Provincial Agriculturist and Fisheries Division Office.
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