Definition of a Community-Based Marine Sanctuary

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2. Models and Conceptual Framework for Community-Based

Marine Sanctuaries

2.1 Definition of a Community-Based Marine Sanctuary

There are many types of marine protected areas in the Philippines. A community-based marine sanctuary CB-MS is generally defined in the literature as a relatively small no- take zone or permanent closed area managed by the local community. Often these “sanctuaries” or core zones are surrounded by a buffer zone with limited restrictions on human use. The buffer zone is usually referred to as the reserve area and the core zone as the sanctuary. Focus group participants provided some examples of Philippine definitions. For instance, the Bolinao municipal ordinance in Annex 7 provides an example of definitions for a marine sanctuary and marine reserve, which are core and buffer zones respectively. Combined, they make up a marine rehabilitation and replenishment area. The BFAR guidelines BFAR, 1999 define fish sanctuaries as no- take zones where fishing and other activities are prohibited. In the Province of Negros Oriental, the Environment and Natural Resources Management Division uses the term marine reserves. In the case of Apo Island, there is a core sanctuary, surrounded by a marine reserve, and more recently, the entire island and surrounding waters have been declared a protected seascape and landscape see Annex 7 for examples of the Apo Island ordinances. In the Bicol region, the term marine fishery reserves are used. This proliferation of terminology can be confusing and further confusion results when these terms are translated into local dialects. For the purposes of this project and for the focus group discussions, the emphasis was on one particular type of marine protected area as typified by the Apo Island sanctuary which is the primary basis for adaptation and replication in Indonesia. A working definition was provided to the participants and discussed. The participants made some suggested changes in the initial definition. We did not add in the suggestion that they should be planned with significant community participation, since participation is a project intervention factor we want to test for in the field research as an independent variable determining success. However, most people believe this is one of the more important elements of a CB-MS. On the other hand, we did add in the suggestion that the local community through municipal or barangay institutions e.g., FARMCs or community-based peoples organizations e.g., sanctuary committee primarily manage them. The definition was modified into the final format provided below. A community-based marine sanctuary is an area of sub-tidal marine waters where the majority of the underwater area is coral reef habitat which may or may not include portions of inter-tidal waters and other habitats such as seagrass beds or mangroves that has been legally designated by local government ordinance municipal as a protected area that permanently prohibits all human extractive resource activities particularly fishing and is primarily managed by the local community through municipal or barangay institutions e.g., FARMCs, or community-based peoples organizations e.g., sanctuary committee, 14 fishers’ associations. It does not include areas with seasonal closures or limited restrictions on only some extractivefishing activities, or areas which are primarily mangrove reforestation or mangroveseagrass reserve areas, or artificial reef areas. These community-based marine sanctuaries may be referred to locally as marine sanctuaries, fish sanctuaries, marine reserves or marine protected areas. There was some discussion concerning what “community-based” means. Community- based in most cases refers to a co-management regime between local citizens or community groups working together with local government particularly municipal government in the planning and implementation phases. Participants mentioned that there are often several layers of local government involved, where the barangay, municipality and the province all have a role to play in the process of establishing and managing CB-MS. Collaborative management was considered by some participants to be an import factor in determining success. In some cases, they mentioned that CB-MS which may be successful or not do not have formal recognition by municipal ordinance, but are de-facto governance regimes which may or may not be informally supported by local government officials. In other cases, they pointed out that the community de-facto implementation might start enforcing a sanctuary site before a municipal ordinance is formally approved. Participants discussed the general process for how marine sanctuaries are formalized Typically, the community first approves the marine sanctuary through a community meeting and a barangay resolution not considered a law or an ordinance prepared by the Barangay Council. This is not legally binding. Then, the Municipal Council approves it, at which time it attains legal status. Several participants stressed that by law RA 8550, the Provincial Council must review municipal ordinances for consistency with existing laws and regulations. If there is no action at the provincial level after 15 days, the municipal ordinance stands and is legal. If the municipal ordinance is not submitted for provincial review, its legality can be contested in courts and violators freed from any sanctions called for in the municipal ordinance. Participants pointed out that some marine protected areas that are managed with some degree of local government and community involvement may not fit the definition because these sites were nationally-designated e.g., CEP sites. Additionally, some CB- MS areas are opened for extractive uses seasonally. These types would not fit the strict definition of a permanent closure described above. While the definition provided above may be clear, participants noted that political and cultural considerations often require negotiations to clarify definitions for all concerned. Some participants felt that what the area is called is not so important. However, how it is defined is important and should be determined by the community based on its understanding of what a marine sanctuary is. In Indonesia, a community-based marine sanctuary is being defined as an area of subtidal marine environment, primarily coral reef habitat, where all extractive and destructive activities are permanently prohibited, and which has been established by a formal village ordinance with widespread support and participation of the local community. This 15 definition does not include mangrove reforestation areas or areas under “sasi” sasi is a traditional form of management found in Eastern Indonesia that refers to a system of open and closed seasons, not a permanent closure or prohibition.

2.2 Benefits of a Community-Based Marine Sanctuary