Boracay Island White Paper_R Tenefrancia_July 2010

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Boracay Island: A Case for Reversing Island Tourism Over-Development to Promote Sustainable Tourism By Roselle Tenefrancia Introduction “Hardly has a last paradise been discovered than everyone converges on it so fast that it quickly becomes a paradise lost.” – A quote about Bali Boracay Island in the province of Aklan, Panay Island, is a boot-shaped island with an area of 1,006.64 hectares (10.0664 sq km). It is an island under the political jurisdiction of the town of Malay, composed of three smaller units of government (called Barangays). It is part of the Visayan group of islands in the Central Philippines.

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According to geologists, Boracay’s physical environment comes from the uplifted remnants of an ancient reef platform which covered the shallower areas of Sibuyan Sea. As the uplifting and deposition of calcium carbonate continued, the continental shelves were formed and two islets that used to be separate were joined together, forming the shape of Boracay Island.1 Mangrove systems in the marshlands, tropical trees and plants that are habitats to endemic animal species, rock formations developed from the tides, and coastal and marine environment, comprise a biodiverse eco-system that is characteristic of the Philippine archipelagic and marine systems.

1 Dean Apistar, Roxie Diaz, Danilo Delizo, Jr., Kathryn Rosell, Anna Meneses, and Pablo Rojas. Summary Field Report: A Coral

Reef Survey of Selected Sites in Boracay Island Reef Malay, Aklan, Philippines, November 8-13, 2009. The Coastal Conservation and Education Foundation, Inc., Cebu City, 59p, citing Punongbayan, 1990.

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The beaches on the island are laden with talcum-like white sands. The texture of the sands was much finer, more powdery and whiter more than two decades ago. The marine life and flora on the island, including inland marshlands, were very rich up to the early 1980s. The pristine character of the whole island and the unique quality of the sands on its several beaches were the primary motivation for travelers to visit the natural attraction. According to long-time locals and the local indigenous people, the changes on the sands over the years began in the 1980s when tourism developments began to sprout. It was in the 1990s when the character of the general physical make-up and the culture and sub-cultures of the people changed significantly. From then on, urban development became rapid. Every inch of space, from the highest point of the island, the inland waters on the hills and marshlands down to the low tide mark of the sea have been claimed by various individuals and business owners, and eventually corporate developers from the major cities in the country. Urban development on Boracay Island became the priority for tourism for the past two decades which placed the Island on the list of the world’s top tourism destinations. The original motivation for travelers to come to the island – the white powder beaches, rich marine life and the serenity of the island – has been relegated to the sidelines in the planning process. In the meanwhile, tourism industry in the country was boosted significantly as Boracay became a brand – the best white sand beaches with the amenities and activities of a developed city. The Boracay experience is a case study for the ecotourism industry. On the aspect of ecology, with all the tourism developments existing on the island, and still counting, the natural contour and physical attributes of the island are experiencing stress. Boracay being the jewel island of Philippine tourism is rapidly depleting its resources to cater to more and more commercial tourist needs. The Boracay experience can also be considered a social experiment because a society and culture of various nationalities in a small island setting is evolving – a community of members who contribute their own cultures into a new society that is unique to Boracay. About 25,000 residents are estimated to be residing on the island – a mixture of local Aklanon, and the Filipino and non-Filipino expatriates – who have all become stewards of the island in their own right. There is a new opportunity to reflect on what Boracay used to be – nature and environment at its best – and move forward to re-branding the island as a world-class ecotourism destination and a home to the new stewards of the island, leaving a natural legacy for the future generations to cherish. The challenge for Boracay is this: Can a rapid and unregulated urban tourism development project that went wrong have the chance to reverse it through a united island community and through the power of nature’s healing hands? Impact of the national and local laws and policies on Boracay’s development In 1978, Boracay Island was one of the islands in the Philippines declared as “tourist zones and marine reserves”.2 Any development projects or construction for any purpose were not allowed without the

2Proclamation 1801, Declaring Certain Islands, Coves And Peninsulas In The Philippines As Tourist Zones And Marine Reserve

Under The Administration And Control Of The Philippine Tourism Authority. 10 November 1978. The following are the underlying principles of this proclamation: the Philippines abound with natural beauty and potentials for aquatic sports, tourism and marine life conservation; these natural marine resources offer great potential and tremendous advantage in the growing worldwide interest in aquatic sports; lack of proper government control resulted in ecological imbalance to the marine environment; said islands require the concentrated efforts of both the government and private

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approval of the Philippine President. The then Philippine Tourism Authority (PTA) was tasked to delineate well defined geographic areas within the zone with potential tourism value, promulgate rules and regulations, and coordinate the integrated development of these areas for the optimum use of natural assets and attractions as well as existing facilities.3 A 1981 proclamation would further place Boracay Island under the Environmental Impact Assessment (EIA) System having been declared a tourist zone in 1978. The fact that most parts of the island are unclassified land, meaning that most of these lands are still considered forest land, makes any development or construction project on the island an environmentally critical project.4 This implies that all projects within the zone were to undergo EIA. With the increase in number of tourists came a corresponding increase in development. PTA spearheaded the construction of the main road plying through the middle of the island, from North to South, followed by the sewerage system. Source of water was still ground water until the 90s. Public transportation on the island has not been developed until the roads main road was completed. Up until the late 90s, coming to Boracay was only via land transfer from Iloilo City, which had an airport then five hours away from the jump-off point to the Island. Boracay can also be reached by land from Kalibo (2 hours away) which had a pier for boats coming from Manila. A few pump boats, mostly fishing boats which doubled as passenger boats, carried passengers from Caticlan to the Island. The boat trip took about five to ten minutes, depending on the weather. Passengers would be brought directly to the long White Beach boat stations. According to locals, tourist arrivals in the 70s and 80s increased because of foreign expat travelers visiting the place from other Southeast Asian countries. One theory they attribute this increased popularity to was the filming in 1970 on Boracay Island of the movie “Too Late The Hero” starring Michael Caine, set in the last months of World War II. Another theory was the publication of a German travel writer’s account of his visit to the island in the 80s, which encouraged European backpackers to trek this Philippine paradise island. However, regardless of the reasons for the rising number of tourist arrivals, the President subsequently recognized the increasing number of tourists visiting Boracay Island.5 With this came the need to prevent the proliferation of activities that would degrade the ecosystem and destroy the natural

sectors in the development of their tourism potential; 3 Id.

4 Later in 1981, presidential Proclamation No. 2146, Proclaiming certain areas and types of projects as environmentally critical

and within the scope of the environmental impact statement system established under Presidential Decree No. 1586. (December 14, 1981), was issued identifying environmentally critical projects and for any development in areas declared as environmentally critical that would be subject to the environmental impact statement system. One of the underlying principles is that the national leadership mandates the establishment of such a system to regulate and minimize the environmental impacts of projects and undertakings which may significantly affect the quality of the environment. Two of the identified environmentally critical projects are: forest occupancy and extraction of mangrove products (A. [II] Resource Extractive Industries, [b] Forestry Projects, [4] and [5], while areas set aside as aesthetic potential tourist spots are identified as environmentally critical areas areas (B. [2]). 5 Letter of Instructions (LOI) No. 1298 [26 February 1983], to the Philippine Tourism Authority, the Constabulary, the

Commission of Immigration and Deportation, Philippine Coast Guard, the Aklan Provincial Health Officer, and to all concerned. The LOI recognized that the place had been frequented equally by local and foreign tourists, who are steadily increasing in number, with the consequent problems incident to influx of tourists such as drug use, prostitution, illegal gathering of shells and corals and other illicit acts; and that it had been desirable to curb these undesirable activities and to maintain the Island's pristine beauty and natural attractions.

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attractions of the Island. In 1983, The Mayor of Malay was also mandated to suspend the issuance of building permits for any structure on the Island until the Philippine Tourism Authority would promulgate a development plan.6 Apparently, the construction of more buildings became more rampant despite this directive from the President. Diving and other leisure activities were also introduced within this decade, encouraging more people to visit the island. Despite the inconvenience of traveling to the island at that time, and electricity and fresh water were still non-existent, the island was placed as one of the best beaches in the tourism map by backpacker Europeans. In 1986, a new Philippine government was installed after toppling a 20-year dictatorship. The main agenda of this new government were to re-establish democracy, agrarian reform rights and eradicating traces of the previous administration. Tourism for the country at that time was already on its ripe enviable stage in the Southeast Asian region. However, the close friends of the previous President were made to own islands that enriched them more while the dictatorship was still in place, without any direction from the government’s tourism department.7 The peace and order situation in the country and the unstable political situation in the Philippines during the period of transition were contributing factors to how tourism planning and direction have not been institutionalized.8 In the meantime, the degradation of the resources of the country has been continuing. The Department of Environment and Natural Resources initiated the drafting of the Philippine Strategy for Sustainable Development in 1987.9 The strategy aimed to address specifically the adverse impact of growth and development, and the depletion and degradation of natural resources due mainly to misuse and over exploitation. The sectors identified, however, did not include the tourism industry. Nevertheless, the tourism sector, through the Department of Tourism, recognized the impact of the tourism industry on Boracay Island and its marine and coastal environments, and the socio-cultural development of its people. In 1990, the Department of Tourism developed the Boracay Island Development Master Plan (BIDMP) to address the calls to create a master plan for the sustainable development of the island. The BIDMP dealt with tourism development policies aimed at promoting development of the island while ensuring the protection and nurturing of the natural environment, maximizing the participation of and collaboration with the private sector in planning. Development guidelines for the management and regulation of the island as a whole were formulated for these objectives while taking into consideration the conservation of the natural environment. Unfortunately, the BIDMP was not implemented and is left as an archive document in the DOT’s library. This situation was brought about by the devolution of the powers of the DOT to the various local government units (LGUs). In Boracay, these units are the Province of Aklan, the Municipality of Malay, and the Barangays of Yapak, Balabag and ManocManoc. The law that gave powers to the LGUs in 1991 was the basis for staking claim for local governance of tourism projects in the Philippines, including the island of Boracay.10 The power struggle for control over the tourist island became stronger. While local government units claimed the right to manage the island on different levels, unabated and unregulated activities on the island continuously caused stress on the resources of the island. According to a former member of the

6 Id.

7 Lito Banayo, Sunset of Tourism, Malaya newspaper, 18 June 2010.

8 Id.

9 Philippine Strategy for Sustainable Development: A Conceptual Framework. 1989.

http://www.psdn.org.ph/agenda21/pssd.htm 10

1991 Local Government Code.

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Philippine Tourism Authority, “Ramshackle lean-tos built helter-skelter by foreigners and their native cohorts dotted the landscape. Worse, the Local Government Code, enacted in the early 90’s as landmark legislation providing decentralization of central government authority, left the matter of tourism estate planning and implementation largely in the hands of local governments, with nothing else but inutile support from the DOT. Boracay was left to the tender mercies of LGU officials who had absolutely no idea about environmental safeguards or carrying capacity.”11 President Gloria Macapagal-Arroyo reinforced the 1970s policy of placing the management of Boracay Island under the Philippine Tourism Authority through a newly created group called the Eminent Persons Group-Boracay.12 The group shall be composed of various representatives from national government agencies and local residents, which ideally would have encouraged local participation in the management of the island. The focus on infrastructure development, such as road expansions and construction of new roads,13 improvement and expansion of potable water systems,14 improvement on the sewage services,15 created significant changes on the trend of tourism development on the island. With the existing hundreds of tourist establishments and thousands of households, these upgrades would surely entice more tourist operators to invest on the island. In a subsequent Order,16 President Arroyo reiterated the PTA’s control over the island including the authority to suspend the issuance of building permits in collaboration with the Malay Mayor, and upon approval by the Secretary of Tourism and Aklan Governor. Although this seemed like a new mandate, it was simply a reiteration of the instructions given to the PTA and the Mayor or Malay in 1983. The only difference was the addition of a bureaucratic process of including the Tourism Secretary and the Provincial Governor for approval before any suspension could be implemented. This Order did not achieve its objective. According to the locals, the suspension only lasted for six months. Prior to the suspension, permits for substantial developments were already issued, and the continuing development could not have been stopped.

11

Lito Banayo, Sunset of Tourism, Malaya newspaper, 18 June 2010. 12

Executive Order 377, 24 October 2004. Authorizing An Eminent Persons Group To Oversee The Sustainable Development Of Boracay Tourism Authorizing An Eminent Persons Group To Oversee The Development Of Boracay Sustainable Tourism. The functions of the EPG-Boracay are the following:

a. Formulate plans for the sustainable development of tourism in Boracay; b. Recommend to the Philippine Tourism Authority such rules and regulations as may be necessary to ensure

compliance with the requirement of the Island's sustainable development; c. Advocate to the people of Boracay, to their elected official in the barangay, municipal and provincial levels and to the

national government, the policies that will foster the sustainable development of Boracay; d. Priorities the major projects of Boracay as consistent with the plans for sustainable development; e. Coordinate enterprises within Boracay which may be necessary to the sustainable development of Boracay; f. Cause of proper land use projects and practices for Boracay and its marginal islands; g. Ensure the preservation of the natural and cultural heritage of the island.

13 Esplanade: Boracay's new road in the East Coast, Manila Bulletin, 1 May 2010.

http://findarticles.com/p/news-articles/manila-bulletin/mi_7968/is_2010_May_1/esplanade-boracays-road-east-coast/ai_n53392686/ 14

Manila Water, PTA tie up for Boracay water project By Zinnia B. Dela Peña (The Philippine Star) Updated January 18, 2010 12:00 AM. http://www.philstar.com/Article.aspx?articleid=541597 15

Lilly Ramos, Boracay undergoes water "makeover" infra program February 3, 2010 http://balita.ph/2010/02/03/boracay-undergoes-water-makeover-infra-program/ 16

Executive Order No. 706, 18 January 2008, mandating the Secretary of Tourism as PTA chair to administer and control the mandates of PTA pursuant to Proclamation 1081.

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A Proclamation by President Arroyo caused confusion among the stakeholders on the island, particularly those who are land claimants.17 In this Proclamation, the President classified Boracay Island into 400 hectares of reserved forest land for protection purposes and 628.96 hectares of agricultural land (alienable and disposable). Under the same Proclamation, a proviso for a 15-meter buffer zone on each side of the centerline of roads and trails, reserved for right-of-way and which shall form part of the area reserved for forest land protection purposes, was also mandated. The right of the President to classify lands in Boracay Island was further affirmed by a Supreme Court decision in 2008.18 As a consequence of the proclamation and the Supreme Court decision, a comprehensive land use plan for Boracay Island was initiated by the Department of Tourism, setting the limits on developments on the island.19 Resulting from these legal developments on its land status, Boracay Island is not just a tourist zone; it is now also made up of lands classified as either forestland for protection purposes and agricultural land, the parcels of which are alienable and disposable.20 To mitigate the impact on the “land crisis” involving business owners operating within the 400 hectare declared forestlands, the DENR came up with the Forest Land Use Agreement for Tourism Purposes (FLAgT).21 This, however, is still not being implemented due to the opposition of the stakeholders who are advocating for land titles to complete their full ownership of the land, despite the ruling of the Supreme Court confirming the Proclamation.22

DELINEATION OF FORESTLAND

BOUNDARY

Boracay Island, Malay, Aklan

RADT No. 36 & 46

LOCATION:

Brgys.: Balabag, Yapak &

Manoc – manoc

Municipality : Malay

Province: Aklan

Kilometers Delineated: 27

Legends:

Corner Monuments

Barangay Boundary

Delineated (km)

(Subject for Correction)

For Delineation (km)

Forestland

A and D

PROJECT No. 13-A

Block A

(Protection Purposes)

PROJECT No. 13-A

Block B

(Protection Purposes)

PROJECT No. 13-A

Block C

(Protection Purposes)

PROJECT No. 13-A

Block D

(Protection Purposes)

PROJECT No. 13-A

Block E

(Protection Purposes)

PROJECT No. 13-A

Block F

(Protection Purposes)

PROJECT No. 13-A

Block G

(Protection Purposes)

PROJECT No. 13-A

Block H

(Protection Purposes)

PROJECT No. 13-A

Block J

(Protection Purposes)

PROJECT No. 13-A

Block I

(Protection Purposes)

17

Proclamation No. 1064. Classifying Boracay Island Situated In The Municipality Of Malay, Province Of Aklan Into Forestland (Protection Purposes) And Into Agricultural Land (Alienable And Disposable) Pursuant To Presidential Decree No. 705 (Revised Forestry Reform Code Of The Philippines) 18

DENR et al, vs. Hon. Jose Yap, et al, G.R. 167707, 8 October 2008. 19

SC ruling paves way for new Boracay land use plan--DOT chief. http://www.abs-cbnnews.com/nation/regions/10/13/08/sc-ruling-paves-way-new-boracay-land-use-plan 20

Section 3.1.3.1 under Policy and Legal Framework, Comprehensive Land Use Plan for Boracay Island, Volume 1, 2009. 21

DENR DAO 2004-28 - Rules and Regulations Governing the Use of Forestlands for Tourism Purposes. 22

http://www.philstar.com/article.aspx?articleid=463340

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Another offshoot of the Proclamation 1084 is the Boracay Environmental Master Plan, covering the period 2008-2033. This Plan provides for the island’s development directions, strategies and specific programs and projects that would address the identified environmental concerns. 23 This 25-year master plan was drafted by the Department of Environment and Natural Resources. The Plan proposes the formation of the Multi-Sectoral Planning Team24, and a Multi-Sectoral Monitoring and Evaluation Team.25 The CLUP that the Department of Tourism is already a document that addresses the proposal of the Plan to develop a land use plan for the island. Enforcement and implementation mechanisms are still yet to be developed by the planning team. The legal policies and mandates vested in various government units and national agencies have complicated the management process of Boracay Island as a tourism zone and at the same time a forest and agricultural land. A saving grace to this decades-long dilemma could be the newly enacted Tourism Act of 2009.26 The discussion of the provisions of the new law shall be included in the latter part of this paper. Boracay Island as a Victim of its own Beauty Although there is no known written history of Boracay Island, it is believed among the locals that the original inhabitants of the island were from the indigenous tribe of Panay Island, called the Atis. The Atis are nomadic peoples who lived on subsistence. According to an informal interview with the Ati Mission of the Holy Rosary Parish in Boracay Island, the Atis in Boracay lived on wild root crops and fruits and vegetables that grew on the island. From what the Mission gathered from the current elders, they can only trace back three generations of Atis living on the island. This information is significant to document the history of Boracay. The Atis who used to roam the lands freely have now become beggars in their own land.27 The history of the name “Boracay” has several versions. One version claims that it came from the Inati (the Ati language) word “Borac” meaning, meaning cotton referring to the color and texture of the sands. Another version claims that it came from the Inati words “Bora,” meaning bubbles, and “Bocay” meaning white, again referring to the white sand beaches.

23

The environmental concerns identified in the Plan are as follows: a) flooding in low lying areas; b) pollution of coastal waters; c) geo-hazards threat to the environment and surrounding communities; d) salt water intrusion and its threat to the availability of ground water; e) deterioration of the state of air quality due to emission from motor vehicles; f) prevalence of noise pollution due to muffler-less tricycles and other entertainment related activities; g) solid wastes disposal; h) encroachment of easement and hampering of public access; i) illegal exploitation and destruction of caves and cave resources; j) loss of biodiversity, damage to habitat of wildlife; k) illegal reclamation and occupation of wetlands; l) illegal occupation/squatting within forestland areas by residential and commercial establishments; m) excess of load on the threshold of the physical carrying capacity of the island; n) increasing generation of toxic and hazardous wastes; and o) imposition of 15 meter buffer zone on each side from the center line of roads and trails reserved for right of way that forms part of the area reserved for forestland protection purposes. 24

This team shall translate the plan into operational level shall be done to ensure that the priority programs, projects and policies shall be effectively and efficiently implemented with proper resource allocation and distribution. The Team shall be composed of representatives from the DENR, Boracay Task Force, Provincial Government of Aklan, LGU of Malay, Business Group, and other national government agencies with direct stakes in the island. An updating and revision of the Plan to fit in to the existing and emerging demands for sustaining and enhancing the carrying capacity of the island towards achieving the dual objectives of a healthy and clean environment and economic development shall also be one of the functions of the Team. 25

This team shall take charge of monitoring, evaluating, and advising the concerned implementing organizations on the status of the plan implementation and the areas where resources and expertise should be put in place under the context of urgency and prioritization. 26

Republic Act No. 9593, An Act Declaring a National Policy Framework for Tourism as an engine of Investment, Employment, growth and National Development, and Strengthening the Department of tourism and its attached Agencies to effectively and efficiently implement that policy, and appropriating funds therefor (2009). 27

Evan Tan, The Atis of Boracay, Manila Times, Saturday, 29 May 2010.

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Later on in the 70s, tourists began to be lured to the beauty of the island. The pure white powdery sands that cover the infamous 4-km stretch of the White Beach, the palm fringed white powdery sand beaches and coves, the mangrove systems, the trees that covered most parts of the island, the flying foxes and the vast marine life of turtles, dolphins, mantas, small sharks and other diverse species of marine life, comprised the ecological make up of the island that made it most promising in attracting foreign tourists. One of the currently protected species that the government has taken notice of are the Flying Fruit Bats, known to be seed dispersers that contribute to the degeneration of the island’s forest.28 But years of political indecision as to who is in charge, or who shall control and manage the development on the island, have advanced the private interests of businessmen and tourism industry players who took the opportunity to their full advantage. This led to the proliferation of developments that did not necessarily comply with tourism standards that were set by various legal mandates, directives and local regulations. Implementation was piecemeal as these policy documents were never integrated into a single mandate for all agencies and groups involved. Boracay Island is currently carrying about 8,000 room accommodations, about 300 resorts ranging from hostel-type to 5-star luxury accommodations and 500 restaurants, and a hundred different establishments ranging from retail, transport and communication services, educational institutions, medical facilities, retail stores, supermarkets, repair shops, construction and property development companies, and many other services and establishments, catering to both tourists and local hospitality service providers (such as resort staff) as well as expatriate residents. Most of these tourism developments are concentrated in the area of Barangay Balabag, the barangay with the smallest land area of 274 hectares comprising 27.2% of the island.29 Barangay Balabag is where most of the famous 4-km stretch of White Beach is located. The residents back in the 70s were mostly the original dwellers such as the Atis and some locals from the Panay mainland who established homes and families, who catered mostly to the modest needs of the travelers who came to visit. In the 80s, an influx of tourists was experienced by the island. Aiming to please the more discriminating tourists, establishments decided to improve their standards by bringing in the comforts of an urbanized tourist destination. Without consideration to the impacts of profit-driven tourism activities on the environment, the industry players continued to entice mass tourism. With it came the increase in migrants from various parts of the country – who were originally hired construction workers and eventually their immediate families – and later on from various parts of the world. Currently, the estimated (unofficial) number of residents on the island is 25,000.30 Piecemeal policies and lack of integrated planning became a problem. The apparently conflicting legal mandates of various units and agencies of government became a major source of confusion on who is tasked to manage the developments in Boracay Island. By the late 90s and early years of the new

28

DENR requires Boracay developer to protect 'flying foxes'. http://www.thenewstoday.info/2006/02/01/denr.requires.boracay.developer.to.protect.flying.foxes.html 29

Barangay ManocManoc in the south has an area of 416 hectares (41.4%) while Barangay Yapak in the north has an area of 316 hectares (31.4%). 30

The estimated number of residents in 2008 was 16,000. In less than two years, the population of residents on the island has increased by 56%. Based on personal observation of the author and from informal interviews, around 40% are workers (regular, casual and contractual) mostly in hotels and restaurants, 15% are itinerant vendors (hawkers selling goods and wares on the beach), 40% are unemployed (these are family members of the workers and vendors), 5% are resident establishment owners and expats.

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millennium, reports of coastal and marine degradation have been circulating.31 However, no public data has been presented by any government agency on these concerns. News reports and scientific studies have been the only public sources of information on the environmental state of the island. So-called “Band-Aid” solutions have been implemented to address the problems. An improved water and sewage system that had cost millions to complete is not taken seriously by some stakeholders who refuse to pay the price for this development. According to one local newspaper article, local businesses which depend on tourism have to “realise that if resort owners want to keep attracting tourists, then they should pay the price of keeping the ecological balance of the island.”32 Everyone in Boracay wants a piece of it, but no one wants responsibility over it. That is pretty much the story of the island. Now, even the social demographics have changed considerably. From a pristine and serene beach destination that has been hailed as one of the best by various international travel and tourism groups and publications with vibrant marine life it could boast of, it is now a mass tourism destination known to the young travelers as a the best white sand beach party destination. It is obvious that the people of the Island, both from the public and the private sectors, were not prepared for the rapid urban and mass tourism development. The island’s resources were not managed properly. Manifesting in the degradation of the island’s natural resources and its natural ecosystem which various scientific groups have already studied and researched on,33 the relentless growth of tourism operations on the island is taking its toll on the environment. Even nature cannot stop these inexorable business operations.34 What could have been kept as an island nature trip became a destination marred by concrete structures, obstinate beach vendors, inconsiderate transport operators – all year round. But all is not lost.

31

In a 1997 water quality study conducted in Boracay, sewage problem was found to be the main cause of stress to the coral cover in the seas surrounding the island. Tomas Goreau, Maya Goreau, James Cervino, Water Quality and Coral Reef Health In Boracay, El Nido, Isla Verde, and Balicasag, Philippines (1997). 32

Boracay’s road to destruction, Nereo C. Lujan, Philippine Center for Investigative Journalism. http://archives.manilatimes.net/others/special/2003/jan/20/20030120spe1.html 33

Some examples of previous scientific studies: (1) Water Quality and Coral Reef Health In Boracay, El Nido, Isla Verde, and Balicasag, Philippines 1997 Thomas Goreau, Maya Goreau, James Cervino; (2) The Philippines Boracay Environmental Infrastructure Project External Evaluator: Masashi Takano (Nomura Research Institute, Ltd.) Field Survey: December 2005-January 2006 focusing on water and waste problems; (3) Thomas J. Goreau, PhD, Boracay Environmental Restoration, Water Quality, and Sustainable Energy: Current Situation and Future Prospects, 2006. President, Global Coral Reef Alliance August 20 2007 34

There are two seasons in Boracay: amihan (northeasterly winds blowing from November to June) and the habagat (southwestern winds blowing from July to October). It is within the amihan season that the peak tourist arrivals happen, where the weather is paradise-perfect. The habagat season brings about storms and strong waves. But in recent years, the Boracay community has refused to distinguish between the seasons because, according to the business owners, tourist season is all-year-round. Even the local Coast Guard was given the discretion to allow boats to cross to and from the island despite storm warnings. Hence, the island is not given time to rest even during the “cleansing” season brought by the habagat winds. It is also interesting to note that the Boracay businesses can recover quickly from a natural disaster, without letting the island rest, similar to what happened in Phuket, Thailand after the tsumami. An example of how the stakeholders of the island prioritize tourism is its fast recovery from the major storm that hit in December 2006 which caused massive destruction on the island and establishments. The incident hardly made it to national and international news despite the two-week no-power, no-water situation. Nature must have decided to give Boracay a rest from tourists. But two weeks after the storm hit the island, everything was “business as usual” for the resort operators. See http://www.enjoyphilippines.com/News/boracay-tourism-recovers-from-typhoon.html.

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Alternative Options for Boracay Island In 1986, the United Nations World Commission on Environment and Development studied the dynamics of global environmental degradation and made recommendations to ensure the long-term viability of human society.35 The Commission’s report in 198736 popularized the term “sustainable development”, which was defined as “development that meets the needs of the present without compromising the ability of future generations to meet their own needs.” Consequently, the term sustainable tourism development was coined, which was defined as “tourism development that leads to management of all resources in such a way that economic, social and aesthetic needs can be fulfilled, while maintaining cultural integrity, essential ecological processes, biological diversity and life support systems.”37 Four core elements of sustainability have been identified: economic, social, environmental38 and institutional sustainability.39 From the review of literature, tourism is said to be sustainable if it:

· Is economically viable · Promotes conservation of natural resources · Supports preservation of local culture · Takes a long-term perspective and is concerned with the well-being of future generations · Promotes equity, which means sharing the benefits and risks of tourism · Engages multi-stakeholder participation in decision-making and management · Promotes cooperation and partnerships · Promotes responsibility and accountability in behavior and relationships · Is marketed responsibly · Is integrated into planning · Upholds respect for others · Emphasizes the importance of education, research, and capability building.40

Destinations—whether cities, towns, islands, etc.—are products that are marketed for tourists to visit. Destinations have a lifecycle. A widely-accepted model of the lifecycle of a tourist destination had been developed.41 A destination begins relatively unknown and visitors initially come in small numbers restricted by lack of access, facilities and local knowledge, which is labeled as Exploration. As more people discover the destination, the word spreads about its attractions and the amenities are increased and improved, labeled as Development. Tourist arrivals then begin to grow rapidly toward some theoretical carrying capacity, labeled as Stagnation, which involves social and environmental limits. The rise from Exploration to Stagnation often happens very rapidly.

35

Reil G. Cruz, Towards Sustainable Tourism Development in the Philippines and Other Asean Countries: An Examination of Programs and Practices of National Tourism Organizations, PASCN Discussion Paper No. 2003-06. 36

Our Common Future (1987) became the benchmark for thinking about the global environment. 37

Tourism Canada (1990). 38

McVey (1993). 39

Economic sustainability refers to maintaining growth rates at manageable levels, promoting tourism while keeping an eye on capacities to handle greater demand in order to avoid consumer dissatisfaction. Social sustainability refers to society's ability to absorb increasing tourist arrivals without adversely affecting or damaging indigenous culture. Environmental sustainability relates to the capacity of the natural and built environment to handle tourism without damage. Institutional sustainability refers to a country’s commitment to sustainable development as manifested by the incorporation of sustainable principles into development planning, partnerships for sustainable development, the use of indicators for monitoring sustainability, presence of monitoring and coordinating bodies for sustainable development, and the presence of laws that promote sustainable development. 40

Supra note 36. 41

Butler’s 1980 Tourism Area Life Cycle (TALC) model

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However, there are subsets of possible outcomes beyond Stagnation. Examples of things that could cause a destination to follow trajectories A and B toward Rejuvenation are technological developments or infrastructure improvements leading to increased carrying capacity. Examples of things that could cause a destination to follow trajectories C and D are increased congestion and unsustainable development, causing the resources that originally drew visitors to the destination to become corrupted, or no longer existing. The trajectory E usually happens after a disaster or a crisis.42

Hypothetical Evolution of a Tourist Area (Adapted from Miller and Gallucci, 2004)

Where is Boracay at this point? Based on the number of visitors coming to the island, it has reached Stagnation. From 1990 to 2005, the increase in tourist arrivals has more than doubled. Beginning 2005, the numbers have steadily increased, but the percentage of the increase has constantly declined.43 The continuing marketing activities promoting the island are now geared towards a new tourist market – mostly group tourists who prefer modern tourism services and facilities. The days when independent and nature-loving (mostly European) backpackers would be hanging out on the beach quietly reading a book or sunbathing without any distraction, have been replaced by tourists walking around in groups of ten or more with a tour guide explaining to them the goods being sold at the open-air mall area, the famous restaurants at the center of the main beach, the many sailboats and motorized boats crowding

42

Id. It is also important to point out that the Law of Diminishing Returns could cause a destination to follow trajectories similar to those of C or D, and that the concepts and practices of destination recovery, as applied to destinations recovering from a disaster, could easily be applied to a destination in Decline as a result of the Law of Diminishing Returns. 43

In 2005, the percentage of increase from 2004 was 16.49%. In 2006, the percent increase went down to 10.96%. In 2007, the percentage increase went down further to 7.67%. In 2008, the percent increase came down to 6.29%. And in 2009, the percentage increase dropped to 2.41%. (Source: Department of Tourism Region 6, 2010) Although there is an increase in the actual numbers, the degree of the increase has been declining. It is also important to note that the number of foreign tourists has declined beginning 2008 by 5%, while local tourists increased in number; In 2009, the number of foreign tourists also lowered by 2%. This is not a significant number but it appears inconsistent with the fact that a significantly increasing number of Chinese and Korean tourists have been visiting the island over the past few years; the increase in the Asian tourists should have affected the level of increase in tourist arrivals, but it did not.

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the shores, the overzealous men on the beach who sell sunglasses, pearls, hats, adventure sea- and land-sports activities. Further, the increase in tourist arrivals does not reflect on local income. Although the Department of Tourism registered an 11 billion peso gross receipts from Boracay tourists in 2009, the local businesses have not benefitted significantly, according to the business owners. Also, from 11,000 residents to 25,000 in a span of less than 5 years, the island’s capacity to maintain quality social and health services has also declined. This is a manifestation that the island has reached its capacity threshold – both in economic and social terms. However, following the lifecycle of a tourist destination, Boracay is hopefully moving towards where trajectories A and B are – leading to Rejuvenation. With improved infrastructure and more controlled and monitored developments on the island, the possibility of rejuvenation becomes greater. New buildings and new property developments are still ongoing. Infrastructure developments are underway. Expansion of road networks, enhanced water pipeline systems, improvement of the sewage treatment facility and service, are some of the ongoing infrastructure activities on the island. For social services, there is a proposal to build a world class hospital with a well equipped trauma center and well trained emergency response teams. A second-point of entry – a jetty port – is underway to ease the vehicular traffic on the main road and establishing an alternative entry point to ensure safety during the rainy season. All these services, except for road expansion, are spearheaded by the private sector, corporations and private stakeholders based on the island. It is at this point of the so-called Rejuvenation stage that Boracay can instill the principles of sustainable tourism development. Is eco-tourism a future option for the island?

"Philippine society is largely maintained by the astute manipulation of strategic ties along the basis of kinship, locality or personal connection."44 In a culture of conflicting interests, with a government characterized by personalism, individuals engage in practical tactics for success. In Boracay, "socially responsible" civil society groups themselves are often members of the local elite. Despite being underpinned by strong personal religious values, Philippine society is often controlled by a powerful elite that furthers its interests – which may run contrary to environmental and social interests.45 This scenario is actually a stumbling block for a movement to bring Boracay back to its original state.

As an ecological experiment that went wrong, Boracay Island became a victim of rapid, unplanned and ungoverned mass tourism development taking toll on its environment. In 1997, a study on the carrying

44

Pertierra, 2002 45

Mulder (2001) argues that contemporary Philippine society's response to globalization seems to be closer identification to "more particularistic, more primordial bonds", such as those offered by the family, region of origin, religion and sects". Given this social structure prone to inequity and personalism, it may be difficult for local elites to allow an authentically empowered local and/or indigenous community to exist, let alone control the benefits of ecotourism. In this sense, ecotourism may become a tool for increased marginalization and authentic alienation of local communities in ecotourist destinations. See Ethics and Attitudes Towards Ecotourism in the Philippines. Mary Ann Chen Ng, MSc. Eubios Ethics Institute, Philippines.

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capacity of Boracay has been conducted.46 By establishing technical capacity numbers and answering the question of “How much is too much?”, it was the intention of the study to focus growth management issues in a way that would help address the more relevant question of “How much and what kind of change is acceptable on Boracay?” The findings of the analysis show that 40% of the 16 indicators47 were found to have exceeded the island’s carrying capacity. Using the physical parameter, three indicators (ground water quality, sewage and solid waste) exceeded the island’s carrying capacity, while two indicators (ground water quantity and marine water quality) were unsustainable. At present, these indicators have expanded through the infrastructure projects that address the issues. Water is now tapped from the mainland source (Nabaoy River in Malay). Sewage treatment is now being run by a private company that targets to complete rehabilitation of the sewage plant by end of this year or early next year. Solid waste is being addressed by the Materials Recovery Facility (MRF) in each barangay on the island. Although the land indicator has not exceeded its carrying capacity, the findings showed that it is not an expandable resource. The same with the beaches, where the parameter used is tourist perception on beach overcrowding.48

The trend of change seems to be the expansion and upgrade of infrastructure to accommodate more of the tourists’ and residents’ needs.49 The acknowledgement of the damage to the immediate environment of Boracay caused by lack of planning and governance has created an opening for more sustainable tourism development plans and projects that will minimize if not avoid adverse impact to the ecological balance.

To answer the question, is eco-tourism a future option for the island? The answer is yes, for sure. However, this brings the discussion on the more sustainable approach to rehabilitating the island without completely stopping tourist arrivals and infrastructure developments. Proposed Solutions The problem with the Boracay case is not the lack of policy or clear standards under the laws. Policy basis goes back to the 70s presidential proclamations which already laid down the basic requirements for ensuring sustainability in the tourist zones such as Boracay Island. Without these proclamations being overturned (in fact, it was recently reaffirmed in 2008 when the President instructed the PTA to suspend building permits, respecting the local government units’ power to approve and implement the same) , the policy statements remain good law. The identifiable successes in the aspect of governance on Boracay Island are the initiatives taken by the national government and the local stakeholders from the private sector to address some issues.

46

William Trousdale, Carrying Capacity Considerations: The Need For Managing Change In A Unique Tourism Destination, November 2997. 47

The 16 indicators studied using five parameters are the following: a. Physical Parameter (Ground Water Quality, Ground Water Quantity, Marine Water Quality, Land, Sewage, Solid Waste); b. Tourist perceptions (Crowding - White Beach Only, Crowding – All Beaches, General Perceptions); c. Resident Perceptions (General Perceptions); d. Transport (Air access, Boat transport from mainland, Roads and Road System on Boracay, Vehicles); e. Governance (LGU, Other -DENR, DOT, Regional Government).

48 Supra note 46.

49 The Department of Tourism (DOT) is targeting a 2.7 million tourism arrivals by 2018, but 2009 already reported a 700,000

arrivals. Further, the DOT is anticipating the increase in the number of 27,345 by 2018, but it is interesting to note that currently there are already an estimated number of 25,000 residents living on the island.

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National government initiative The Philippine Tourism Act of 2009 is a significant document. Tourism in the Philippines is considered an indispensable element of the national economy and an industry of national interest and importance, with sustainable tourism development as an integral component of national socioeconomic development.50 The establishment of Tourism Economic Zones on Boracay Island can alleviate the burden of control and management of an overdeveloped island. Local government initiative The practical approach would be for local governments to create an implementation mechanism of the national policies laid down for sustainable development of tourism zones and areas. A new law and a new plan are not necessary. The Comprehensive Land Use Plan for Boracay Island completed in 2008 already serves as a template for planning for the establishment of enforcement and implementation systems. The ordinances declaring marine protected areas51 in the seas around the island have already established the ground rules in limiting activities that are detrimental to the marine environment. Despite the clear mandate, the stumbling block has always been the lack of political will to enforce.

50

Republic Act 9593, The Tourism Act of 2009. Section 2(b). 51

In 2001, seven Fish Sanctuaries around Boracay Island were declared through the Municipal Ordinance (MO) 139. These Fish Sanctuaries are portions of the coastal area designated for the preservation of fish and marine life. Inside these sanctuaries, fishing and collection of marine life is prohibited. Ideally, at the local level, a Protected Area Management Board (PAMB) headed by the Municipal Mayor is tasked to manage these marine sanctuaries. However, management plans to sustain these sanctuaries have not been enforced. In 2002, eight snorkeling areas around Boracay Island were declared through Municipal Ordinance 162:

1. Barangay Tambisaan, Manoc-Manoc (Offshore) 2. Angol Point (Offshore) 3. Between Willy’s Place and Fridays (Fridays Reef) Ilig-Iligan Reef 4. Balinghai Reef 5. Sa-id to Sawang Reef (Sitio Bolabog) 6. Tulubhan Reef 7. Coral Garden (Off the shore of Casa Pilar)

Under the regulations, snorkeling in these areas requires a fee of twenty pesos. Prohibitions include fishing, collection of corals and other marine products, dropping of anchors, dispensing of motor oil or other pollutants, belching, and vandalism/scraping of corals. The Barangay Fisheries and Aquatic Resources Management Councils (BFARMCs) are deputized to oversee the activities and enforce the policies in these areas. In 2009, MO 139 was amended by MO 271, changing the designation of the marine protected areas (MPA) from Fish Sanctuaries to Marine Parks where some water sports such as snorkeling and diving are allowed. These include the following:

1. Angol Point Reef 2. Tambisaan and Crocodile Reef 3. Tulubhan Reef 4. Ilig-Iligan Reef 5. Balinghai Reef 6. Lapus-Lapus Reef 7. Sa-Id Point Reef 8. Punta-Bunga Reef (recently declared in 2009) 9. Bunyugan Reef (recently declared in 2009).

Currently there are 15 dive sites (see http://www.boracaydiver.com/scuba.shtml) being promoted by more than 30 dive shop operators on the island.

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Dive Sites Around Boracay Island

The CLUP was initiated by the Department of Tourism to come up with a single plan for everyone to follow. The delineation of areas for a residential, commercial, tourism and no-build zones based on the Proclamation 1064 by the President is a very important component. A product of workshops conducted early this year among stakeholders of the island, the CLUP defines strategic and specific measures on population management, education, health, housing, social welfare, protection and sports and recreation. The plan will serve as a blueprint for the development and management of Boracay in the next 15 years.52 The Boracay Environmental Master Plan would further cover other environmental issues such as flooding, air and water pollution, wetland use and other physical aspects of development. The Plan encourages all concerned stakeholders to share their respective expertise and resources under the schemes of public-private partnership, public-public partnership, joint-ventures and collaborative undertakings. Local governance includes private sector initiatives. By incorporating the CLUP into its program of action, the private sector has the potential to establish an industry initiative for sustainable tourism. Solutions to adverse tourism impacts can be found in shared interest of local communities, tourism business, and tourism consumers to maintain the natural wealth and social heritage of a destination, such as Boracay Island. Dialogue must generate reciprocal accountability among these parties with regard to future investments, practices and policies, such as the Zoning Ordinance from the CLUP; that is, reciprocal

52

The CLUP is composed of three volumes: (1) Ecological and Situational Analysis; (2) Spatial Development Strategy and Development Plans for Key Sectors to Support Implementation; and, (3) Zoning Ordinance. Volume 1 provides an initial overview of the present situation in Boracay especially of the key sectors. The sections in this Report describe the current environmental, socio-economic, land use and settlements, and infrastructure conditions within Boracay Island including institutional arrangements and structures relevant to its planning, development, and management. Volume 2 These sectoral plans cover human and social development, economic and tourism development, infrastructure and utilities development, environmental management, and institutional development. Volume 3 comprises the Zoning Ordinance that shall be enacted by the Municipality of Malay that aims to: (a) Guide, control and regulate future growth and development of Boracay Island in accordance with its Comprehensive Land Use Plan; (b) Protect the character and stability of residential, commercial, industrial, institutional, forestry, agricultural, open space and other functional areas within the island; and (c) Promote the orderly and beneficial development of the same. Promote and protect the health, safety, peace, comfort, convenience and general welfare of the inhabitants on the island.

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between individual/private interests and social/public interests.53 While both CLUP and BBMP address the land use and coastal management concerns, respectively, it is important to see the value of a common agenda for local tourism development. Any plans of action that will be a consequence of both programs should focus on achieving sustainable tourism on the island. Although local governance is key in ensuring sustainable tourism development on Boracay Island,54 the national government, through the PTA and the DOT, and the provincial government of Aklan,55 are mandated by law to provide technical assistance to the municipality of Malay, where necessary.56 As Boracay Island is of great national value for the country, its development needs an integrated approach to addressing the issues and achieving sustainable development. A tourism resource management that is broad-based, transparent, participatory, and responsive to environmental concerns and sustainability is needed to solve the environmental problems in Boracay.57 Currently, the Eminent Persons Group- Boracay under the newly-named Tourism Enterprise and Infrastructure Zone Authority, formerly the PTA, under E.O. 377 of 2004, is providing that avenue for dialogue between the private sector and the local government units.58

53

Tourism and Sustainable Development, Sustainable Development: A Local Authority Perspective, Background Paper No. 3, Commission on Sustainable Development, Department of Economic and Social Affairs, United Nations, 1999. 54

Id. Par. 2. As providers of social services, builders of economic infrastructure, regulators of economic activity, and managers of the natural environment, local authorities have many direct instruments at their disposal to influence development. Yet in addition to their direct roles in the development process, perhaps the most important role that local authorities can play in a global economy is that of facilitator among the diverse interests seeking to influence the direction of local development. Only with such a facilitator can a community of diverse interests define a shared vision and act consistent with this vision. 55

Under the Local Government Code of 1991, and the Provincial Tourism Code of 2009, the provincial government shall have the jurisdiction over tourism development and promotion programs (while municipalities shall have jurisdiction over Tourism facilities and other tourist attractions, including the acquisition of equipment, regulation and supervision of business concessions, and security services for such facilities). And even if the Local Government Code has devolved the powers to local government units, a strong support system is encouraged. According to the law, “the national government or the next higher level of local government unit may provide or augment the basic services and facilities assigned to a lower level of local government unit when such services or facilities are not made available or, if made available, are inadequate to meet the requirements of its inhabitants.” The field office of the Department of Tourism on the island shall provide monitoring and technical assistance to local government units. 56

This is supported by the Tourism Act of 2009. The State shall “enhance capability-building of local government units, in partnership with the private sector, in the management of local tourism projects and initiatives, thereby ensuring accessible and affordable destinations throughout the country…” (Sec. 3*n+) 57

Subade, R.F. and A.L. Subade. Tourism in Boracay Island: The Dilemma of Resource Utilization and Management. Danyag XI, 1: 47-68 (June 2006). 58

Executive Order 377, Authorizing An Eminent Persons Group To Oversee The Sustainable Development Of Boracay Tourism Authorizing An Eminent Persons Group To Oversee The Development Of Boracay Sustainable Tourism, 2004. The functions of the EPG, under the executive order are the following:

h. Formulate plans for the sustainable development of tourism in Boracay; Formulate plans for the sustainable development of tourism in Boracay;

i. Recommend to the Philippine Tourism Authority such rules and regulations as may be necessary to ensure compliance with the requirement of the Island's sustainable development;

j. Advocate to the people of Boracay, to their elected official in the barangay, municipal and provincial levels and to the national government, the policies that will foster the sustainable development of Boracay;

k. Priorities the major projects of Boracay as consistent with the plans for sustainable development; l. Coordinate enterprises within Boracay which may be necessary to the sustainable development of Boracay; m. Cause of proper land use projects and practices for Boracay and its marginal islands; n. Ensure the preservation of the natural and cultural heritage of the island.

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Private Sector Initiatives

The tourism development plans of the national government encourage the participation of the private sector in initiating programs. The Tourism Act of 2009 states that the government shall “strengthen the role of tourism councils and encourage the participation of nongovernment organizations, peoples’ organizations and the private sector in initiating programs for tourism development and environmental protection. This is manifest in the composition of the Eminent Persons Group-Boracay under its mandate.59 A private sector initiative for the enhancement of the coastal and marine resources of the island is known as the Boracay Beach Management Plan (BBMP).60 This project is a partnership among the various stakeholders, private sector and local government, as well as the community of fishermen and local residents. Priority programs focus on environmental management, governance and information campaigns.61 The partnership efforts are also in line with current developments on the island. For example, the water and waste water management component is already being undertaken by a private company that has a concession for 25 years with the national government through the Philippine Tourism Authority approved in 2009. The solid waste management component is coordinating with the Barangays on the island which have their materials recovery facilities62 in place. Improvements and enhancements in technology are also underway for these facilities, through the BBMP. While implementing the specific plans of each priority components of the BBMP, the integration of the existing laws on declared marine protected areas, for instance, is an important element in rejuvenating the marine life around Boracay Island, and re-establish the marine areas and mangrove forests as eco-tourism destinations. Another private sector plan is a project called “The Boracay Initiative” 63. This is a program that attempts to gather comprehensive data – through data-gathering and collection, and to document existing tourism activities and projects that impact the environment and the social order of Boracay Island. The main objective is to provide sustainable monitoring of government and private sector projects on the island, and to instill among the tourism industry players on the island the personal responsibility to contribute to sustaining an environmentally and socially viable enterprise. The project is initiated by individuals who have the passion to protect and promote the environmental future of the island, both as a tourist destination and a residential area for responsible citizens. Through volunteer programs, the project seeks to gather the technical and scientific data on the environment and socio-economic

59

Id. Sec. 7. 60

This program has a holistic approach in addressing the issues from hills to reef. Boracay Beach Management Program (BBMP) is composed of different stakeholders, organizations, academes and private sectors that are affected and responsible for what is happening in the Island. Source: Boracay Foundation, Inc. 61

Specifically, the six priority programs are: (1) Water and waste water management; (2) Hazard prevention & management: drainage/flooding; (3) Coastal resource management: mangroves, corals, seagrasses; (4) Watershed management; (5) Solid waste management; (6) Governance; and, (7) Information, education & communications (IEC) program. 62

The MRFs are facilities run by the barangays supporting the slogan “War on Waste”. The facilities undertake segregation, cleaning, recycling, and delivery of residuals to proper agencies or private groups for disposal or further recycling. 63

The Boracay Initiative© covers three stages: (1) Establishment of a volunteer-tourism program for the conduct of research (environmental, legal, and socio-economic, political, historical, and cultural research) and monitoring activities (including on-site visits) with the cooperation of the tourist operators/businesses on the Island; (2) Data gathering, analysis and reporting to the various stakeholders; and, (3) Recommendations for best practices programs to the private sector, and recommendations for policy reform and review to local and national government agencies. The monitoring and evaluation mechanisms shall become an ongoing program of the Boracay Initiative©.

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demographics existing on the island.64 Eventually, the continuing data collection and monitoring will assist the local government in enforcing the implementation plans (such as the CLUP’s Zoning Ordinance) for sustainable tourism for Boracay Island, including the active promotion of eco-tourism development in mainland Malay. For the national government, the project aims to provide basis and proposals for policy changes to national tourism plans for the island and for the municipality of Malay, including the promotion of the IP rights over their ancestral land. The realization that the huge environmental and socio-economic impact of rapid mass tourism development on Boracay Island, has triggered the members of the private sector – albeit including the local elite – to slowly gather the momentum to control and regulate development on the island. The diverse culture that is evolving on the island – being composed of businessmen who are not Filipinos, particularly advocating for more sustainable and ecologically viable tourism programs – is a significant factor in facilitating the advocacy for a change in tourism policy and governance. Nature will have a way of curing itself in any case, but the community on Boracay Island is becoming more aware of the environmental impact of development and is taking advantage of new opportunities to ensure sustainable tourism for the Island and its people. The various projects and programs that are ongoing to increase awareness and to effectively address the major environmental and social issues confronting the island and its neighboring islands need only to come into an integrated plan together with the national and local government officials, to determine the direction that the tourism development should take. Near-Future Potentials of Boracay Island Back to Nature. Properly managing the marine protected areas (marine parks) and the rehabilitation of the mangrove systems on the island are initiatives that pave the way for re-establishing Boracay Island as an eco-tourism destination, with responsible tourism industry players initiating the move towards a sustainable development through the support of integrated laws and policies. Moreover, with technical and staff support for the local government units, the development and promotion of the mainland Malay with its existing eco-tourism sites, is an expansion of the goal for an eco-tourism destination that promotes sustainable development. Currently, there are identified community-based ecotourism sites that have been established in mainland Malay. These are: the Malay Ecological Garden, Dalamuan Falls, Agnaga Falls and Cold Spring, Nabaoy River, and Naasug Limestone Cliffs, which are all community-based enterprises. Large-scale sustainable tourism development over small-scale overdevelopment. One of the problems faced by the island is overdevelopment. Not because big industry players are overdeveloping the island, but because the smaller industry players are maximizing resources, space and potentials in a small area of development.

64

The Boracay Initiative© supports the concept of carrying capacity considerations in the light of good governance. “Research in tourism destinations suggests that it is not the resource base that tends to determine carrying capacity thresholds, but rather the predominating objectives of governance. This does not mean that ecological, natural resource or infrastructure based carrying capacity thresholds to not exist, only that they must be considered within the tourist system as a whole. The objectives should address the perception and values of the visitors and the host community. In other words, besides infrastructure, ecological or natural resource constraints, carrying capacity should consider social, economic and cultural issues as well.” William Trousdale, 1997.

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The CLUP has based its zoning on the identified 40% of the island as forest land that needs protection, under the FLAgT provisions. Some of these are foreshore areas. The current concentration of businesses and residences are in Barangay Balabag, where two of its longer and more developed beaches are. Although the government land survey is not yet completed, it is already apparent that many of the businesses set up along these beaches are on forest land. Under the CLUP, the developments in the Balabag area shall be exclusively for tourism purposes. The areas in the southern tip shall be made residential areas. Finally, the one in the northern tip of the island are for high-end tourism developments.65 The Yapak development appears to be the direction for the future of Boracay. Although the more popular criteria for sustainable development revolve upon the concept of “small is beautiful”, the trend is to focus more on what is more sustainable in terms of efficiency and monitoring capabilities to lessen or mitigate impact of tourism activities within an area.66 While small-scale developments are more favored by advocates of sustainable tourism, the Boracay experience has shown that in aggregate, a number of small-scale developments had more damaging power to the island. In fact, what has happened is that the small developments have not been experiencing a favored climate given the influx of the group tourists on the island in the recent years. However, before any further critical development is conducted on the island, the governance mechanisms must be in place, and the stakeholders are prepared to address the long-term impact of such developments. In the end, efficiency, carrying capacity, and more importantly for Boracay, the integrated planning and management are the keys to sustainable tourism development.

65

For the past decade, the infrastructure development has been concentrated in the Balabag area. There was little movement in the Yapak area, which remains mostly undeveloped land, except for the bigger tourism establishments. Land ownership claims have already been staked. Plans for a huge development of a leisure estate are ongoing. Further, a plan to establish a tourism enterprise zone has already been considered, which includes mostly the large corporate developments. 66

According to a study by Sinji Yang, Lori Pennington-Gray, and Donald F. Holecek, in the article Scale Issues in Tourism Development, small-scale tourism development may in aggregate be less efficient in terms of operational efficiency on scale size. As for energy use, transporting 50 visitors to a recreational site by one bus will consume less fossil energy than if each person takes one vehicle each to go to a small-scale resort. For instance, in an area where environmental protection agencies have limited pollution detecting technology and monitoring ability, monitoring a few large-scale service providers’ performances than detecting many small scale providers’ polluting movements may be preferred. It is easier for a small scale provider to take advantage of the natural environment because their small amount of pollution is relatively hard to detect. Administrators may spend more manpower, time and resource monitoring a number of small businesses than a couple of large firms; and thus cost more.

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DELINEATION OF FORESTLAND

BOUNDARY

Boracay Island, Malay, Aklan

RADT No. 36 & 46

LOCATION:

Brgys.: Balabag, Yapak &

Manoc – manoc

Municipality : Malay

Province: Aklan

Kilometers Delineated: 27

Legends:

Corner Monuments

Barangay Boundary

Delineated (km)

(Subject for Correction)

For Delineation (km)

Forestland

A and D

PROJECT No. 13-A

Block A

(Protection Purposes)

PROJECT No. 13-A

Block B

(Protection Purposes)

PROJECT No. 13-A

Block C

(Protection Purposes)

PROJECT No. 13-A

Block D

(Protection Purposes)

PROJECT No. 13-A

Block E

(Protection Purposes)

PROJECT No. 13-A

Block F

(Protection Purposes)

PROJECT No. 13-A

Block G

(Protection Purposes)

PROJECT No. 13-A

Block H

(Protection Purposes)

PROJECT No. 13-A

Block J

(Protection Purposes)

PROJECT No. 13-A

Block I

(Protection Purposes)

Conclusion The adverse effects of unplanned mass tourism development – with the factor of small-scale overdevelopment – have been plaguing the stakeholders of Boracay Island. Mismanagement, lack of political will, conflicting personal business interests, politicking among the stakeholders, and the complacency of the residents and local communities are among the main causes of the decline of Boracay Island from what used to be a nature-destination and became an island metropolis that resembles a mini urbanized city. This experience is not unique to Boracay. But if one studies the laws and the policies that have been set in place to regulate activities and to mitigate impacts of development, Boracay would have been a very good example of a sustainable tourism success story. Sadly, this is not the case. The Tourism Act of 2009 that governs the Tourism Infrastructure and Enterprise Authority and the Tourism Enterprise Zones, the Proclamation 1064 vis-à-vis the Guidelines for the Forest Land Use Agreement for Tourism Purposes, the Boracay Environmental Master Plan, the Comprehensive Land Use Plan, the local ordinances declaring Marine Parks, and the rules and regulations being implemented by the various enforcement groups on Boracay Island should be integrated before any implementation mechanisms are drafted. The sophisticated legal structures and mandates that have always supported sustainable development on the island since the late 70s have the potential to create further confusion that may ultimately lead to non-implementation of the policies that should have been fundamental in the protection and preservation of Boracay Island. The awareness and the realization by those who have allowed the overdevelopment and mismanagement of the island of the grave implications of such have triggered some action and community support to confront the problem that the Island and its people are facing. Personal differences and political maneuverings are still playing big roles in journey towards change. But it is

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through proactive management and initiatives of the private sector, providing the proficiency in the tourism industry to the relatively young and less tourism-oriented local government of Malay, and the integration of the national laws and policies and local governance tools that Boracay Island can maintain and enhance its environment for the tourism industry and for the future generations to enjoy. --------- This paper was presented as a White Paper during the 2

nd World Ecotourism Conference held in Kuala Lumpur, Malaysia, on 8-

10 July 2010.

ROSELLE TENEFRANCIA is a resident of Boracay Island, Philippines, a member of the Boracay Foundation Inc., and a volunteer of the Eminent Persons Group of Boracay of the Philippine Department of Tourism, and editor and writer of the Boracay Sun, the only community-based newspaper on the island. She is an environmental lawyer who has worked with several Philippine NGOs that cater to communities that are confronted with legal and development issues, and worked at the Office of the General Counsel of the Asian Development Bank dealing with Environment and Indigenous Peoples studies and papers. She is also a freelance writer, writing mostly on lifestyle and travel. As an advocate for sustainable tourism development on the island, she is assisting the Boracay community by being a pro bono consultant for various groups that aim for a united Boracay to promote sustainable tourism.