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March 2017
Introduction
Across time, the concept of development has evolved accordingly. In the context of the book written
by T. Forsyth, E. Green, and J. Lunn in 2011, “Introduction to International Development”, the word
development was determined and defined into three basic parts – as a vision, description or measure
of the state of being a desirable society, as a historical process of social change in which societies are
transformed over long periods, and as consisting of deliberate efforts aimed at improvement on the
part of various agencies, including government, all kinds of organizations and social movements
which the society looks at it through the physical lens. They pointed out modernity as the ultimate
goal in becoming a developed nation –this notion was popular in the 1800s up to the Industrial
As development has come into the picture of the society, it has brought forth numerous positive
impacts which led to the progress of the communities – through the infrastructures, industrialization,
economic development and the status of living of the members of the community. However, it has
also brought forth negative impacts and ill effects to the society, through the overexploitation of the
resources that the environment provides which led to environmental degradation – to the extent of the
effects of the unsustainable utilization of the resources from the environment. This paper analyses the
extent of participation of the government offices and various private and public stakeholders in the
policy making and implementation considering the natural and manmade risks that may hamper the
Sustainability Science
Sustainable science is a young discipline, which is haven’t embraced by everyone yet, especially in
the global academe. Well, this emerging discipline refers to a fairly well-defined subject borne out of
interdisciplinary research, especially between the interaction of ecology and the social sciences. At its
core, this field is merely based in the need to provide food, fuel, and fiber to current and the future
inhabitants of the planet earth. In other words, it’s the science behind the Brundtland Commission’s
oft-cited goals of sustainable development and hopes to understand and create long-term integrity of
Sustainability Science examines the interactions between global, social, and human systems, the
complex mechanisms that lead to degradation of these systems, and the naturally accompanying risks
to human well-being. Sustainability science as a new academic discipline and is considered a stepping
stone which can point the way to a sustainable global society by facing challenges that existing
disciplines that have not addressed. These include endeavors to simultaneously understand
phenomena and solve problems, uncertainty and application of the precautionary principle, the co-
evolution of knowledge and recognition of problems, and trade-offs between global and local problem
solving. With the existence of risk in the environment, both natural and human induced the goal for
sustainability is still at large. That is why there is a need of urgency to look and examine these
existing risks in the multi- facet of the environment to ensure that these risks will be given due
recognition as the globe transits to sustainability. However, addressing risks happening globally is a
multi-dimensional one, which means that, it will require a pure examination of the interlinkages of the
facets of the society from the ecological, economic, social and cultural. (Kates, 2015)
Awareness for sustainability is a key social concept in Sustainable Development discourse. The
associated policy objectives refer to raising public awareness of sustainability issues with a view to
and education for sustainable development (ESD) programs. These initiatives and campaigns
encourage consumers to engage in more environmentally benign behavior and to accept the
legitimacy of coercive environmental legislation (WCED, 1998). Increasing the awareness of the
people to risks present in the community, people will have the idea in framing policies that could be
regulative and cooperative. The depth and breathe of societal transformation needed for sustainable
development became an object of struggle. Thus, environmental policy should possess characteristics
Climate change is emerging as one of the major challenges facing scientific and policy communities.
The inherent complexity will require much more integrated response scientifically to better
understand multiple causes and impacts as well as at the scientific-policy interface where new forms
of engagement between scientist, policy- makers and wider stakeholder communities can make a
More mature climate strategies will require the integration of a wider range of mitigation, adaptation
Key words: sustainability, sustainability science, risk, climate, policy making, social pillars,
interdisciplinary
The Philippines being a developing country is suffering from extreme vulnerabilities and impacts due
to its location together with other countries in the Pacific Ring of Fire, which is a major area in the
basin of the Pacific Ocean where many earthquakes and volcanic eruptions occur. However, it is said
to be clear that there are not just climate factors alone that could hamper sustainability but as well as
human induced activity. To address this issue there should be policies that would regulate the actions
and consider the risks and impacts of both natural effects and human activities that could affect the
development and sustainability of the environment. This study entitled “Climate Proofing: A Risk-
Based Approach in Policy Making in Bucari Pine Forest Development” seeks to answer the following
questions:
1. What are the risks identified by the local government unit of Bucari, Leon, Iloilo, that could
a. Do the risks identified by the local government serve as the basis in policy making?
2. Are there existing policies inclined to the conservation, development and sustainability of the
Pine Forest?
a. What are the policies formulated based on the identified risks in Bucari Pine Forest?
b. What are the mandated agency responsible in the policy making and implementation?
3. Does climate proofing in policy making an efficient approach in examining the sustainability
This study entitled “Climate Proofing: A Risk-Based Approach in Policy Making at Bucari Pine
2. To identify the policies, present in Bucari Pine Forest and assess whether it follows the
3. To assess whether the government of Leon is framing their policies based on the risk
present in Bucari Pine Forest and assess whether the policies and programs are inclined
4. To examine the efficiency of climate proofing in the policy making and implementation
Climate Proofing
Climate proofing is a shorthand term for identifying risks to a development project, or any other
specified natural or human asset, as a consequence of both human and non-human induced climate
variability and change, and ensuring that those risks are reduced to acceptable levels through long-
lasting and environmentally sound, economically viable, and socially acceptable changes
implemented at one or more of the following stages in the project cycle: planning, design,
‘Risk’ is the interaction between exposure to natural hazards including the adverse effects of climate
change and the vulnerability of societies arising from their geographical location (UNU-EHS and
Alliance Development Works, p. 42). Globally, the rise of new and unexpected risks and shocks has
impacted stable and poor societies alike, and some, especially the latter, have become increasingly
dysfunctional. The Philippines is peculiarly challenged to build economic resilience as indicated by its
high-risk exposure and vulnerability. The idea is very simple: the economy should be resilient to
withstand adversities (risks and shocks) and good economic policies have a large role to play in
building the economy’s resilience. The policy challenge is the identification of policy interventions,
that is, policies, programs, and projects that lead to resilience towards sustainability. There is a
growing global awareness of the adverse impacts of exogenous shocks to economies and the
importance of identifying critical responses to enable affected economies to recover from shocks and
rebuild. Most Philippine cities and municipalities are coastal communities; many are in low-lying
areas that are very vulnerable to rising sea level, and are located along the paths most often taken by
destructive typhoons.
The consequences of rapid and substantial human induced global climate change could be far
reaching and even lead to senior commentators to label it as one of the greatest threats facing future
societies (Martens, 2009). In fact, most of the climate change policies are inclined with mitigation,
which simply says that lessening the risk and activity of human beings that could hinders the society’s
leap towards sustainability. Climate change may vary from the across the globe, as well as its effects.
(Martens,2009). Furthermore, risks identification should not just involve climate change alone, but as
Whereas, there should be mature strategies that will require the integration of a wider range of
mitigation, adaptation, resilience and vulnerabilities considerations, as well as responses that are more
closely aligned with the non-policy realms (McEvoy et al.2006; Wilbanks and Sathaye 2007). In this
regard, there is an increasing recognition that, when policy evolves, new windows of opportunity may
also emerge which allow for the articulation of integrated options for long-term policy on climate
change approaches, as well as the building of local adaptive capacity and resilience to reduce
vulnerabilities to climate change and variability in the local areas. Ultimately, a coherent response
will require consideration of all the facets of this issue (Neufeldt et al.2002).
Sustainability and Policy
Given the rapid environmental burden on a global scale, humanity is experiencing a radical change: it
is imperative to guarantee a good life for nine billion inhabitants of the globe. However, this goal
cannot be reached by continuing today’s societal development patterns. Rather, a great transformation
(WBGU,2011) of global technological, economic, societal and cultural developments is needed. New
forms of knowledge will be needed for ecological monitoring and ecological problem analysis, as well
as for the development of technological, economic and social innovations. Therefore, with the
growing importance of knowledge production, the field of science policy appears in the new light.
Science policy can be a decisive driver for sustainable development in modern knowledge societies. It
is therefore important that science policy in general is discovered and further developed as an
important policy field regarding the goals of sustainable development (Schneidewind, 2016).
Furthermore, there should be a cohesive relationship between justice and sustainability towards policy
making, such that, policy formulated in the local level should be based on just process, where there is
a definite sector that could benefit from the policy and process that that would create meaningful
participation and representation of the included sectors. Lastly, policy should evolve in a
need for the policy to consider the multiple aspects of the given problem and another central concept
within sustainability thought; considering all the facets of the society that will probably contribute risk
in the process of the development. Policy making based on the cross generational aspects, where
policy formulated should build a central concern of long term effectiveness for future human
generations and other species and ecological systems, where intergenerational equity is the central
Biodiversity
Biodiversity is defined as an ‘umbrella term’ referring to the organisms found in the living world
(Krishnamurthy, 2003; Ninan, Babu, & Ramakrishnappa, 2007). In addition, biodiversity covers many
aspects of biological variation and is assumed on a larger scale as all the life on earth (Sterling et al.,
2004).
According to Groom (2005), the root threat to biodiversity is the increasing number of human
population and increasing level of consumption. Chape et al. (as cited in Thalany, 2013, p. 1),
explains that the areas that are bare to the exposure to the threats are caused by human activities such
as infrastructure development, recreation and tourism. These threats have become a concern to both
local and global levels and the loss in biodiversity is causing a negative impact to the livelihood,
food security and resilience to disaster (Chapman & Roberts, 1997; World Bank, 2015)
Biodiversity Conservation
Biodiversity Conservation is defined as the preservation, protection, sustainable use, and enhancement
of the biological diversity (Mutia, 2009). Biodiversity loss does not only affect economic growth but
as well as the capability of the economy to sustain future development in the larger scale (Ninan et al.,
2007). Biological conservation aims to promote sustainable development. In the case of Sagarmatha
National Park in Nepal, the establishment of the national park to stimulate the recovery of the forests
from over-exploitation was able to provide employment opportunities and community development
(McNeely, 1988). Biodiversity conservation through sustainable tourism is needed for the responsible
usage and management of resources and the environment responding to economic and social needs
(Thavarasukha, n. d.).
Forested Areas
Pine forests in the Philippines have only two main species namely, Benguet Pine and Mindoro Pine.
Benguet Pine can be found in high elevations between 500 to 2700 meters while Mindoro Pine grows
in lower elevations between 150 to 300 meters. Pinewood is used as a construction material and pine
trees act as a vegetable cover and water conservation (National Statistical Coordination Board,
[NSCB], 2010). Bucari Pine Forest of Leon Iloilo is considered as one of the Philippines protected
pine forest.
Despite the importance of pine trees, the resource is under pressure and being misused through soil
brushing and forest fires (Ganzon, n.d.). There are also arguments arising that one of the factors
forests are being destroyed is due to the lack of non-forest dweller’s knowledge on the proper use of
forest when obtaining medicines, food, and other forest products (Lindberg, 1997). FAO (2015b)
estimates that the 1990’s annual global net rate of deforestation was around 129 million hectares of
total forest area. In addition, Aguda (n.d) stated that due to poor planning and execution of forest
management programs, there has been a weak enforcement of forest laws and lack of prioritization to
forest conservation. Bann (1998) suggested that in order to make sustainable forest management
decisions, the environmental, social, and economic value of the said resource should be determined.
On Environmental Issues
The top three environmental issues ranked by the study participants were solid waste (60%), pollution
(38%), and illegal logging (34%). According to the study participants, despite the actions made by
their respective barangays and the municipal government in responding to these issues, they remained
result suggests that study participants in the upland barangays had more idea of the current situation in
Bucari Pine Forest since they were located near the pine forest.
Table 1: Factors contributing in the degradation of Bucari Pine Forest as Santos and Anaquita’s
thesis identified as of 2016.
Laws and Policies Amended
House Bill No. 5072, Section 16 Article II of the Philippine Constitution (Declaration of Principles
and State Policies), stated the declaration of Bucari Pine Forest as Ecotourism Spot in Iloilo, further
declaring it as the Summer Capital of Western Visayas. In line with this, in order to promote viable
and sustainable development with the right of the people to a balanced ecology, The Bucari
Development Task Force was created by virtue of Executive Order no. 170 issued by Iloilo Provincial
In the issuance of this bill the policies and programs in the development of Bucari Pine Forest should
be framed after Republic Act. 9593 otherwise known as the Tourism Act of 2009. DENR, DOT,
DILG and LGU shall promulgate the necessary rules and regulations. Furthermore, they will also
conduct assessment of the effects of development in the safety and well- being of the place and the
DENR-DILG JOINT MEMORANDUM CIRCULAR NO. 98-01. States that, Section (1.1) The
Department of Environment and Natural Resources (DENR) shall be the primary government agency
responsible for the conservation, management, protection, proper use and sustainable development of
the country’s environment and natural resources. (1.2) The LGUs shall share with DENR the
responsibility in the sustainable management and development of the forest resources within their
territorial jurisdiction. Toward this end, the DENR and the LGUs shall endeavor to strengthen their
collaboration and partnership in forest management. (1.3) Comprehensive land use and forest land use
plans are important tools in the holistic and efficient management of forest resources. Towards this
end, the DENR and the LGUs together with other government agencies shall undertake forest land use
planning as an integral activity of comprehensive land use planning to determine the optimum and
balanced use of natural resources to support local, regional and national growth and development.
Setion 17 Article 3: “Pursuant to national policies and subject to supervision, control and review of
the DENR, implementation of community-based forestry projects, which include integrated social
forestry programs and similar projects; management and control of communal forest, establishment of
necessary for an efficient and effective municipal government, and in this connection, shall: Protect
the environment and impose appropriate penalties for acts which endanger the environment, such as
illegal logging and smuggling of logs, smuggling of natural resources products and of endangered
Under Joint Memorandum Circular 98-01, all local government units together with the Department of
Environment and Natural Resources (DENR) and Department of Interior and Local Government
(DILG) are mandated to share the responsibility of sustainable management and development of
forest resources. Thus, there is a need to strengthen the collaboration and partnership between DENR
and the LGU in forest management. The memorandum enabled the Municipality of Leon, Iloilo to
embrace the Forest Land Use Plan. FLUP will now serve as our bible in the implementation of our
environmental programs especially for Barangay Bucari. The document chart of FLUP will lead the
LGU to implement and formulate policies on how to take are and sustain the Bucari Pine Forest
through looking the possible obstacle in the process of sustainability of the place. The FLUP of the
municipality of Leon can now be integrated into their Comprehensive Land Use Plan (CLUP), both
are tools for a holistic and efficient management of forest resources, aimed at enhancing the
On the contrary, as per stated in the Local Government Code of 1991 – Section 26 (Duty of National
Government Agencies in the Maintenance of Ecological Balance) of Chapter 2: General Powers and
Attributes of Local Government Units states that “It shall be the duty of every national agency or
implementation of any project or program that may cause pollution, climatic change, depletion of
non-renewable resources, loss of cropland, range land or forest cover, and extinction of animal or
plant species, to consult with the local government units, non-governmental organizations, and other
sectors concerned and explain the goals and objectives of the project or program, its impact upon the
people and the community in terms of environmental or ecological balance, and the measures that will
sustainably manage its forest resources but also to promote the ecotourism potentials of Bucari and
attract investors that will ensure economic boom for the municipality. “The project has also given
emphasis to the role of women in the development of the area. In the formulation of FLUP, women
were consulted on how they can help in the development, the interventions used for the project to
make it more gender sensitive and responsive to women and how the project helped advance the role
of women and children towards the program,” disclosed Planning and Management Division Chief
FLUP ensures environmental stability in the area by guiding the community on how to manage their
natural resources wisely. A good FLUP provides the framework for identifying sustainable
management strategies and investment priorities; promote the sustainable production of desired goods
and services; and promote community participation in the planning and management of forest
resources. Since, Bucari is considered as protected pine forest area in Region VI, DENR Region VI is
the leading agency that mandates most of the programs and policies in the place.
With the signing of FLUP in the municipality of Leon, there is now an open participation and
coordination with the DENR RO. VI and the Local Government Unit of Leon. However, policies
followed by the municipality, in terms of Bucari development is from the national level, and is being
assessed by the DENR RO VI if they really follow the policies and environmental laws mandated by
Due to the increasing risk in the pine forest as was stated above in table 1, DENR, in partnership with
DILG, CSO’s and NGO’s conducted several programs that are inclined with the lessening of the risk
stated above. Since slash and burn is widely practice in the place it was mandate by DENR RO VI
that this activity should be stopped. To decrease the carbon footprint emission in the place the DENR
and the Society of Filipino Foresters Incorporated conducted a Carbon Neutral Program. This
program is still under FLUP; further it aims to reach the target of 5000 trees to be replanted in the
Pine Forest, this program further aims to start the mitigation in the place which are caused by the risk
stated above.
Methodology
This research on the Climate Proofing: A Risk – based Approach in Policy Making of Bucari Pine
Forest Development follows a qualitative format of research data gathering method, particularly
desktop research, archival research and data analyses on the gathered data from the various book
sources and thesis review of the previous studies conducted in line with the chosen topic. The
researchers gather the initial data through desktop and archival research of some of the online and
peer reviewed journal articles related to sustainability science, sustainable development, risks and
vulnerabilities, social pillars, policy making and implementation, and the data of current situation of
Bucari Pine Forest incorporating it with the initial key readings given to the class which were the
topics on Sustainability Science (Kates, R, 2010 and Michelsen, et.al., 2009), Sustainability and
Science Policy (Schneidewind and Klinsky, 2016), and Climate Change and Sustainable Development
(Martens, 2009). The researchers utilized the online website of the province of Iloilo
(www.iloilo.gov.ph/Leon) to be able to initially gather the general facts about the research local and
For the indepth data gathering, the researchers gathered secondary data from the recently published
thesis on Economics under the class of Dr. Alice Joan G. Ferrer, entitled “Willingness to Pay for the
Conservation of Bucari Pine Forest in Leon, Iloilo” by Argenna Anaquita and Jose Maria Paolo
Santos on June 2016. These methods of data gathering will lead to answer the initital objectives of
the study which is to identify the effects of climate proofing and the policies implemented in Bucari
Pine Forest and the community around it. Moreover, it will also identify the sustainability measures in
Conceptual Framework
This study entitled “Climate Proofing: A Risk-based Approach in Policy Making of Bucari Pine
Forest Development” identifies how the risks are identified and integrated in formulating the policies
from the multi-stakeholders to be able to identify the risks that may hamper the development of the
pine forest and through identifying these risks, it will serve as the bases in the policy that will be
implemented to be able to ensure the sustainability of the Bucari Pine Forest as an ecotourism spot at
Analysis
In analyzing the case of the sustainability of the policies for the development of Bucari Pine Forest, it
has been identified that participation among the various levels of public and private stakeholders in
the society, from the national down to the local, played a vital role in identifying the risks and the
framing of the policies to ensure the conservation and sustainability of the pine forest itself – as well
as engaging the community to become an ecotourism site that would also help in the advancement of
the economic stability of the people in Bucari, Leon, Iloilo. Moreover, in the case of Bucari Pine
Forest Development, the participation of the stakeholders was identified in a top-bottom structure
wherein the risks were identified by the government agencies, such as the DENR, through the studies
conducted in the locale. While the policies which act as safety nets in the conservation and
sustainability of the forest comes from the national government – in the form of policies and laws and
are adapted in the local ordinances at the municipal level through a collaborative effort from the
DENR-LGU-CSO collaboration.
programs
coservation 01
efforts -FLUP
Program
In the case of Bucari Pine Forest Development, the policies and programs formulate and implemented
by the Government considers the Ecological dimension of sustainability. The programs and policies
are usually incline to the environmental aspect. The FLUP and Carbon Neutral Program focuses on
the conservation of Bucari Pine Forest through establishing plans and activities that would eliminate
and lessen the risks present in the place. Furthermore, it also considers the economic dimension of
sustainability, considering the influx of tourist as a risk in the sustainability of the place is great
strategy in developmental planning of Bucari. The House bill 5072, promulgating Bucari as an
Ecotourism Spot of Western Visayas under DENR RO VI will certainly invite a lot of investors in
place and tourists, thus boosting the economic part of the Municipality. Since the proclamation of
Bucari as an Ecotourism Spot and the signing of FLUP, first in Western Visayas in Municipality of
Leon, there is now a greater participation in terms of policy and program making among the various
agency of the government. Policies and programs are being regulated and are mandate by the
Regional Office of DENR. There is also a consultation happening in terms of policy making between
the DILG, DENR and LGU. DENR also acts as a trainer to the LGU on how to monitor the efficiency
of the policies and programs. Lastly the issuance of bill no. 5072, the policies and programs in the
development of Bucari Pine Forest should be framed after Republic Act. 9593 otherwise known as the
Tourism Act of 2009. DENR, DOT, DILG and LGU shall promulgate the necessary rules and
regulations. Furthermore, they will also conduct assessment of the effects of development in the
safety and well- being of the place and the people inhabiting the place. The project has also given
emphasis to the role of women in the development of the area. In the formulation of FLUP, women
were consulted on how they can help in the development, the interventions used for the project to
make it more gender sensitive and responsive to women and how the project helped advance the role
programs
coservation 01 STRATEGIC
Program
In the case of Bucari Pine Forest Development Plan, the policies implemented were analyzed
according to the policy characteristics that it entails to identify whether these policies promote
sustainability of the the pine forest development. It has been identified that the policies are effective,
integrative, preventive, environmental protective, and collaborative for the main reason of advancing
the environmental needs of the pine forest for its conservation and the sustainable use of the
community as well; which advances both the environmental and economic agenda of the society.
These policies aims to effectuate integrative, and collaborative policies and programs to be able to
mitigate the risks that may hamper the sustainability and development of Bucari Pine Forest – through
local ordinances that safeguards the natural resources from the human infested activities that may
promote environmental degradation and deforestation in the area. However, the policies were also
identified to have unsustainable features such that – it is not strategic enough, pointing out the
planning and implementation process of the developmental plan, also the policies were not regulative
and were projected in a short-period of time wherein sustainability and long-term effectivity were not
taken into consideration because of the top-bottom approach in the policy implementation. It was seen
that as long as there is this national ordinance promoting the conservation of protected areas, there is
already a need to implement it right away to the community without even assessing its compatability
Bucari Pine -Influx of - House Bill At some point Some of the The toursim act of
coservation 01 inclined to
Program
The policies and programs inclined with climate change do not adhere to the goals of the climate
change policy which is adaptation, mitigation andd consieration of non-climate stressors. Although
there are policies and programs conducted such as the Carbon Neutral Program, which aims to plant
5000 trees, this does not mean that the place is now capable to mitigate. There is lack of surveillance
and evaluation whether they have reached the quota of 5000 trees, second, trees planted are not
verified whether they can withstand the climate type of the place, third the trees were not ensured
whether they grew or they died, and lastly after planting the tree no after care was conducted, thus we
can say that this program is for media purposes only. In considering non-climate stressors, the
consideration is at a single foci only which is the influx of tourism. Other non-climate stressors such
as the agriculture and livelihood aspects where not given much attention in promulagating policies.
Furthermore, as the FLUP focuses more on the developement and giving more stress in the influx of
tourism, the essence of Bucari as the “vegetable basket of the visayas” slowly vanishes; wherein other
case may states that not all vegetables sold in Bucari is not really from Bucari but from other places
Conclusion
The Bucari Pine Forest have undergo several stages before it was delared as tourism zone. Before it
was promulgated, there are a lot of risk present in the place because of human activities. With the
promulgation of the house bill, and the appointment of DENR RO VI as the primary agency, there are
now adoption of laws and policies as well as programs that could be beneficial in the sustainability of
the place. Furthermore, these policies and programs are patterned in accordance to the present
situation of place, wherein programs and policies are created to address the sustainability of the place
and lessening the risks present in there. There is also a full participation from the different agencies,
particularly DENR, DILG, DOT, LGU and some CSO’s. There is also a visible multiscalarity of the
process becasue of the involvement from the National, Regional, Provincial and Municipal Level in
addressing the probable cause of risks in the process of sustainability and development. Policy
making patterned from climate proofing approach is not sustainable in the case of Bucari Pine Forest
Development. In the Dimensions of sustainability, they neglected the cultural aspect. In Policy and
Governance the characteristics of sustainable policy was also undermined. Lastly, policies and
programs are only focusing on the mitigation process and less attention is given to adaptation and non
climate stressors that could possibly affect in the sustainability of development of Bucari Pine Forest.
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