Republic of the Philippines

Fisheries, Coastal Resources and Livelihood Project (FishCORAL)

Design completion report

Main report and appendices

Document Date: 22-May 2015

Project No. 1548-PH
Report No: 4163-PH
Asia and the Pacific Division
Programme Management Department
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

Table of Contents

Page

CURRENCY EQUIVALENTS iv
WEIGHTS AND MEASURES iv
ABBREVIATIONS AND ACRONYMS v
MAP OF THE PROJECT AREA vii
EXECUTIVE SUMMARY 1
LOGICAL FRAMEWORK 11
I. STRATEGIC CONTEXT AND RATIONALE 1
A. Country and Rural Development Context 1
Country background 1
Economy ............................................................................................................... 1
Poverty .................................................................................................................. 1
Agriculture and the fisheries sub-sector ............................................................ 2
Policies and development plans.......................................................................... 3
B. Rationale 5
C. Alignment with Government Priorities 6
D. IFAD Policy Alignment 7
E. IFAD’s Comparative Advantage in the Philippines 7
II. PROJECTDESCRIPTION 7
A. Project Area and Target Group 7
B. Selection of Project Areas 8
C. Project Area 8
D. Fisheries and Coastal Resource Issues in the Target Bays/Gulfs 8
E. Extent of Poverty in the Project Area 9
F. Target Groups 10
G. Targeting 10
H. Gender Mainstreaming 11
I. Project Design Framework 11
J. Development Objective and Impact Indicators 12
K. Components/Outcomes 13
Component 1: Coastal Resource Management ................................................ 13
Component 2: Livelihood Development............................................................ 17
Component 3: Project Management and Coordination.................................... 20
L. Lessons Learned and Adherence to IFAD Policies 21
III. PROJECTIMPLEMENTATION 23

i
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

A. Approach 23
Phasing of project implementation ................................................................... 23
B. Organizational Framework 24
Bureau of Fisheries and Aquatic Resources .................................................... 24
Local government units ..................................................................................... 25
Other implementing agencies............................................................................ 25
National level ...................................................................................................... 26
Regional level ..................................................................................................... 27
Bay and gulf sites ............................................................................................... 27
Memoranda of agreement .................................................................................. 28
Partnerships with the business sector ............................................................. 28
Links with other initiatives ................................................................................. 29
Capacity assessment and readiness for project implementation ................... 29
C. Policy Engagement 29
D. Planning, M&E, Learning and Knowledge Management 29
Planning .............................................................................................................. 29
Monitoring and evaluation ................................................................................. 30
Learning and knowledge management ............................................................. 31
E. Financial Management, Procurement and Governance 31
Financial management ....................................................................................... 31
Disbursement Arrangements............................................................................. 32
Procurement ....................................................................................................... 32
Audit .................................................................................................................... 32
Governance......................................................................................................... 33
F. Supervision 33
First 12-18 months.............................................................................................. 33
Annually .............................................................................................................. 33
G. Risk Identification and Mitigation 33
IV. PROJECT COSTS, FINANCING, BENEFITS AND SUSTAINABILITY 35
A. Project costs 35
B. Project Financing 35
C. Summary Benefits and Economic Analysis 36
Economic analysis ............................................................................................. 37
Non quantifiable benefits ................................................................................... 37
D. Sustainability 37
E. Innovation and Scaling-up 38

ii
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

APPENDICES
Appendix 1: Country and Rural Context Background
Appendix 2: Poverty, Targeting and Gender
Appendix 3: Country Performance and Lessons Learned
Appendix 4: Detailed Project Description
Appendix 5: Institutional Aspects and Implementation Arrangements
Appendix 6: Planning, M&E and Learning Knowledge Management
Appendix 7: Financial Management and Disbursement Arrangements
Appendix 8: Procurement
Appendix 9: Project Cost and Financing
Appendix 10: Financial and Economic Analysis
Appendix 11: Draft Project Implementation Manual
Appendix 12: Compliance with IFAD Policies
Appendix 13: Contents of the Project Life File
Appendix 14: Timetable for the IFAD Financing
Appendix 15: Good Governance Framework
Appendix 16: Preliminary List of Assurances
Appendix 17: Draft Letter to the Borrower

3
3
3
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

CURRENCY EQUIVALENTS
Currency Unit = Philippine Peso
US$1.0 = PHP 42.4462 (2013 average exchange rate)

WEIGHTS AND MEASURES

1 kilogram = 1000 g
1 000 kg = 2.204 lb.
1 kilometre (km) = 0.62 mile
1 metre = 1.09 yards
1 square metre = 10.76 square feet
1 acre = 0.405 hectare
1 hectare = 2.47 acres

4
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

ABBREVIATIONS AND ACRONYMS

AFMA Agriculture and Fisheries Modernisation Act
APP Annual Procurement Plan
ARMM Autonomous Region in Muslim Mindanao
AWPB Annual Work Plan and Budget
BAC Bids and Awards Committee
BCSC Bay Coordination and Support Committee
BFAR Bureau of Fisheries and Aquatic Resources (Department of Agriculture)
BMC Bay Management Council
CENRO Community Environment and Natural Resources Officer
CF Community Facilitator
CHARMP2 Second Cordillera Highland Agricultural Resource Management Project
CLUP Comprehensive Land Use Plan
COA Commission on Audit
COSOP Country Strategic Opportunities Programme (IFAD)
CRM Coastal Resource Management
DA Department of Agriculture
DAR Department of Agrarian Reform
DBM Department of Budget Management
DENR Department of Environment and Natural Resources
DILG Department of Interior and Local Government
DOST Department of Science and Technology
DOT Department of Tourism
DRR Disaster Risk Reduction
DTI Department of Trade and Industry
EOP End of Project
FARMCs Fisheries and Aquatic Resource Management Councils
FishCORAL Fisheries, Coastal Resources and Livelihood (Project)
FLET Fishery Law Enforcement Team (or Bantay Dagat)
FS Fish Sanctuary
GDP Gross Domestic Product
GEF Global Environment Facility
HDI Human Development Index
ICM Integrated Coastal Management
ICRMP Integrated Coastal Resources and Management Project
IEC Information, Education, and Communication
IMF International Monetary Fund
IPGN IFAD Philippines Gender Network
IRPEP Irrigated Rice Production Enhancement Project (IFAD)
LGU Local Government Unit (provincial, city or municipal)
M&E Monitoring and Evaluation
MAO Municipal Agriculture Office
MDP Municipal Development Plan
MENRO Municipal Environment and Natural Resources Officer
MFI Micro-Finance Institution
MIS Management Information System
MPA Marine Protected Areas
MPDC Municipal Planning and Development Coordinator
MPIU Municipal Project Implementing Unit (ARMM)
M/CPMO Municipal or City Project Management Office
MYPIB Multi-Year Plan and Indicative Budget
NCI National Convergence Initiative
NCIP National Council for Indigenous People

5
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

NEDA National Economic and Development Authority

NFARMC National Fisheries and Aquaculture Resources Management Council
NGAS New Government Accounting System
NGO Non-Governmental Organization
OMA Office of the Municipal Agriculturalist (ARMM)
OPIF Organizational Performance Indicator Framework (DBM)
PAO Provincial Agricultural Officer
PCG Philippine Coast Guard
PDP Philippine Development Plan (2011-2016)
PENRO Provincial Environment and Natural Resources Officer
PFO Provincial Fisheries Officer
PIM Project Implementation Manual
PN Philippine Navy
PNP Philippine National Police
PO People’s Organization PPP
Public Private Partnership PSC
Project Steering Committee
PSCO Project Support and Coordination Office
RA Republic Act
RaFPEP Rapid Food Production Enhancement Programme (IFAD)
RbME Results Based Monitoring and Evaluation
RCSC Regional Coordination and Steering Committee
RDCs Regional Development Councils
RIMS Results and Impact Management System (IFAD)
RPMES Regional Monitoring and Evaluation System
RPMO Regional Project management office
RPRSA Rapid Participatory Resource and Social Assessment
RuMEPP Rural Micro-Enterprise Promotion Programme (IFAD)
SBC Small Business Corporation
SOE Statement of Expenditure
SUMACORE Sustainable Management of Coastal Resources in the Caraga and Bicol
Regions
UFO Unified Fisheries Ordinance
WA Withdrawal Application

6
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

MAP OF THE PROJECT AREA

vii
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

EXECUTIVE SUMMARY1
Background
1. Recent growth in GDP has not translated into a reduction in the incidence of poverty.
There was little change between the first semesters of 2009 and 2012, with 22.9% and 22.3% of
families respectively living below the poverty line. Fishermen are amongst the poorest groups in
the country with a poverty incidence of 41.4% in 2009, unchanged from 2006, but higher than in
2003, 35%.
2. The following inter-related issues are the reasons why municipal fishermen2 and their
families are poor: (i) low coastal productivity because of habitat and watershed degradation; (ii)
fish stock depletion due to illegal fishing practices, pollution, and overfishing; (iii) lack of access
to basic services and institutional support; (iv) high population density in coastal areas: (v) poor
post-harvest handling and distribution systems often resulting in low fish prices; (vi) lack of
alternative income-generating activities; and (vii) weak political will on the part of local leaders to
enact and/or enforce fishery laws.
Rationale
3. The rationale for investing in the fisheries sector is very strong. The fisheries sector is
important for the fishing communities as a source of livelihoods, for the population as a whole as
the major source of dietary protein and for the national economy as a major source of foreign
exchange earnings. The proposed design includes Project investments and activities to address
the key issues that have impoverished many members of the fishing communities. Moreover, the
project will also help in rebuilding fishing communities and rehabilitation of coastal resources
that have been affected by the recent Typhoon Yolanda especially in the Eastern Visayas
Region.
4. Previous initiatives to address the sector’s issues could often not be sustained after the
end of project assistance. The proposed Project design attempts to address this issue of
sustainability in the following ways. First, the proposed Project will adopt the ecosystem
approach to fisheries and coastal resource management and a bay-wide approach to their
management. Second, the Project will assist the target municipalities and cities to make the
improved and sustainable management of their fisheries and coastal resources a priority with a
potential to provide them with an increasing future revenue stream. To support this objective the
Project will provide the supporting investment necessary to enable the municipalities and cities
to improve the productivity and sustainable management of their fishery and coastal resources.
Third, the Project will link the livelihood enterprises supported by the Project to the market
economy to help ensure the sustainability of these enterprises. Finally, the Project will finance
some investment in the facilities of the Bureau of Fisheries and Aquatic Resources needed to
support the fisheries and coastal resources sector. The Project will complement and coordinate
with other fisheries and coastal resource management programmes and projects.

1
Mr.Youqiong Wang, Country Programme Manager for the Philippines; Mr. Michael Rayner, Mission Leader;
Mr. Yolando Arban, IFAD Country Programme Officer, Institutions, M&E and Knowledge Management; Mr Edilberto
Cheng Angeles. Fiduciary Specialist; Dr. Ben Gonzales, Fisheries Development and Coastal Resources
Management; Mr Kenneth Ruddle, Human Ecologist; Eng. Ike Payumo, Rural Engineer; Nheden Amiel D. Sarne,
Economist and Financial Analyst and Ms. Virginia O. Verora, IFAD Gender Coordinator for the Philippines; Poverty,
th rd
Targeting and Gender. For the visits to the Regions, 19 -23 June, the mission was accompanied by the following
government personnel: Region 8 by Ms Jessica Muňoz, Deputy Director and Head of Project Management Office,
BFAR, Michelle Bajada –BFAR Central Office and Marianne A. Correza – PDS DA Central office: Region 13 by Rowel
del Rosario- PDS DA Central office; Region 5by Michelle Bajada, Michelle Allauigan and Angelo Jose Lumba – BFAR
Central Office; Region 4b - Mercy A. Tan and Michelle Bajada - BFAR Central Office; and ARMM by Marianne A.
Correza and Rowel del Rosario- PDS DA Central Office.
2
Those who fish within 15 km of the shore line, 12 km in the Autonomous Region of Muslim Mindanao.

1
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

Alignment with government priorities and IFAD country programme

5. The proposed Project is in line with the priorities defined in the Philippine Development
Plan (PDP) 2011-2016 for the fishery sector in areas of inclusive growth, poverty reduction,
improving the economic status of poor coastal communities, building the capacity of
communities and local administrations to manage their coastal resources better, improving the
productivity of inshore waters, exploration of the export potential of fisheries, improved food
security and nutrition and overall GDP growth. Likewise, the proposed project also contributes to
the attainment of the goals and targets of existing sectoral plans such as the AgriPinoy, the
Agricultural and Fisheries Modernisation Plan and the Fisheries Road Map. In addition, the
proposals for livelihood development support the Agribusiness Road Maps of the regions for the
fishery sector and the Regional Development Plans. Careful attention has been given to the
analysis of natural disaster risks and climate change concerns.
6. The Project is also complementary with and supportive of the government’s
Reconstruction Assistance to Yolanda (and particularly the Department of Agriculture’s
Rehabilitation Plan for the agriculture sector). As the Department will provide for the fishing
boats and fishing equipment as well as assistance to aquaculture (seaweed nurseries,
rehabilitation of mariculture parks and fingerlings distribution), the Project will provide support for
the rehabilitation of the coastal and fishery resources as well as recovery of the livelihoods of
fishing communities. The project will likewise contribute to increasing community resiliency to
natural hazards and climate-related risks.
7. The proposed Project design is consistent with IFAD’s Country Strategic Opportunities
Programme for 2010-2014. First, one of the three Strategic Objectives relates to improving
fisheries and coastal resource management and the livelihoods of the poor coastal communities.
Second, natural resource management within the context of climate change, gender
mainstreaming, policy dialogue and support for decentralisation are key cross cutting issues.
Finally, the Country Strategic Opportunities Programme also supports the Government’s policies
for the National Convergence Initiative. The proposed Project design also aligns well with IFAD’s
strategic framework (2011-2015) which includes issues covered by the Project’s design.
Project area, target group and targeting
8. The Project will target 11 bays/gulfs in Region 5 in Luzon; 8 in Visayas 3; Region 13 and the
Autonomous Region in Muslim Mindanao. The target bays are located in 14 provinces with 103
municipalities or cities bordering the bays/gulfs, with 1,098 coastal barangays.
9. The population of these 1,098 coastal barangays is an estimated 1.725 million people or
447,930 households (average size 3.85). Using the average incidence of poverty of 42% in the
103 target cities/municipalities the number of poor people living in these coastal barangays is
724,300 in 188,130 households. Of the households in the coastal barangays 90, 596 (20%) are
fishing households, with an estimated 38,050 (with 146,490 people) living below the poverty line.
These households would be the Project’s target group. Other groups living below the poverty
line are women-headed households, and out of school youth, some of whom are members of
poor fishing households.
10. Other basic data for the Project area shows that there are: (i) 202,973 registered
fishermen, 35,921 motorised fishing boats (bancas) of 3 gross tons or less and 34,697 non-
motorised bancas; and (ii) 771 registered people’s organisations4, 439 fisheries law enforcement
teams and 328 Fisheries and Aquatic Resource Management Councils.
11. The Project will target the potential beneficiaries by first targeting existing eligible
registered people’s organisations to develop further their exiting activities. In addition, the Project

3
Leyte Gulf and Matarinao Bay were affected by the typhoon. Initial assessment of the two bay/gulf and proposed
location specific interventions will be included in the pre-implementation phase of the Project as soon as detailed
damage assessment data is available.
4
A generic term used to describe various types of association, groups or cooperatives.

2
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

will establish new people’s organisations in response to the demands from the target group.
Membership of the people’s organisations will comprise members of the target group either self-
selected, based on their interest in the proposed livelihood enterprise(s), or by selection using
up-to-date lists of poor households or methods of participatory wealth ranking.
12. The provision of public goods, such as infrastructure and equipment support for coastal
resource management and livelihood development will also benefit non-poor households, some
of whom may also be members of the existing people’s organisations targeted.
Project design framework
13. First, the Project will adopt the ecosystem approach to coastal resource management and
include among its interventions, activities that will protect both the aquatic and coastal zone
habitats including mangroves, coral reefs and sea grasses. The Project’s design adopts the bay-
wide approach to the management of the coastal resources and municipal fisheries involving
contiguous municipalities that need to work together to improve law enforcement and protect,
rehabilitate and sustainably manage the shared resources within the bays/gulfs. Project design
gives careful attention to the risks of natural disasters and increased climatic variability.
14. Second, the Project’s investment in coastal resource management and the development of
alternative/supplementary livelihoods for fishing households will be in response to proposals
made by the coastal communities and included in the investment plans of the municipalities or
cities. The Project will involve the private sector when introducing alternative livelihood
enterprises to provide good market access.
15. Third, the Bureau of Fisheries and Aquatic Resources will provide technical and
managerial support to the local government units, with the participation of the other government
agencies as needed and incorporate the experience and lessons learned from the
implementation of previous initiatives. The Project will finance some investments for the Bureau
of Fisheries and Aquatic Resources so that the Bureau can support the sector and the local
government units.
16. Some potentially suitable sub-projects have already been identified by the coastal
communities and can be ready for implementation in Project Year 1. Lessons learned from
previous IFAD and other projects have been taken into account in designing the Project. Project
activities and coverage will not duplicate others programmes and projects currently assisting the
sector and will complement and coordinate with existing and planned activities.
Gender mainstreaming
17. The Project will adopt the following strategies. First, Project management will review the
“Gender Mainstreaming Strategic Focus of IFAD Projects” formulated by the IFAD-Philippine
Gender Network as a guide for mainstreaming gender considerations in the implementation of
IFAD Projects. Second, the training provided for Project staff, staff of other implementing
agencies and beneficiaries will be gender-relevant. Third, the Project will become an active
member of the IFAD-Philippine Gender Network. Fourth, Project management will identify a
gender focal person who will be a key officer in the Project Support and Coordination Office and
in each of the Regional Project Management Offices. Fifth, there will be a target that 40-50% of
the members and officers of the People’s Organizations are women. Sixth, women will account
for 40-50% of the beneficiaries of the sub-projects. Finally, there will be gender-balance in the
selection and/or recruitment of Project staff, with a target of 30% for female staff.
Development objective
18. The overall goal5 of the Project is to contribute to a reduced poverty in the target coastal

5
The reduced poverty incidence by 5% from the baseline of 42% (mean poverty incidence) is based on IFAD’s similar
projects where the project is expected to contribute to poverty incidence reduction of 5% and also based on the
expected achievements of similar poverty reduction programmes supported by the GOP and other foreign assisted
projects. There are several factors that bring about poverty reduction, and not solely the responsibility of the project.

3
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

communities of the 11 target bays in Regions 5, 8 and 13 and the Autonomous Region in Muslim
Mindanao. The Project’s development objective is that coastal communities sustainably manage
their fishery and coastal resources generating livelihood benefits for the targeted households.
The Project design contributes to the UN Millennium Development Goals, namely Poverty
Reduction (Goal1), gender equality (Goal3) and environmental sustainability (Goal7).
Components/outcomes
19. The Project will have the following three components: (i) Coastal Resource Management;
(ii) Livelihood Development; and (iii) Project Management and Coordination.
20. The expected outcomes are as follows:
 Component 1: Fishing communities adopted sustainable management of fishery and
coastal resources.
 Component 2: Income of fishing households in target coastal communities increased
through sustainable engagement in diversified livelihood activities.

Component 1: Coastal resource management

21. Governance and legislation. The Project will assess the reasons for the lack of success
of the Bay Management Councils and facilitate the formation, re-activation and management of
the operations of these councils, including the adoption of bay wide fisheries ordinances, which
bay wide management of the municipal fisheries requires. As part of the bay-wide management
approach, the project will also support interventions leading to the creation of Integrated
Fisheries and Aquatic Resource Management Councils where no such organization exists and
support their operation and that of the existing Councils, including capacity building. The role of
the Integrated Fisheries and Aquatic Resource Management Councils is to provide advice and
recommendations on fisheries management issues to the Bay Management Councils.
22. As part of the bay-wide approach the Project will support the participation of the local
fishing communities in the management of the municipal fisheries and coastal resources with the
local government units as required under RA 8550, by incorporating any pre-existing fisheries
management systems. This will complement the formal methods of law enforcement to be
supported by the Project.
23. In addition, the Project will also assist the local government units to introduce and/or
complete the following: (i) registration of municipal fishermen, their motorised and non-motorised
fishing vessels and fishing gears; and (ii) introduction of a municipal licensing system for
fishermen, fishing vessels and fishing gears and collection of associated licensing revenues and
their use to support enforcement of the Fisheries Ordinances. Institutional arrangements must
be in place to ensure that the revenues and money collected from registration fees will help the
local government units to finance fisheries and coastal resource management.
24. Overfishing is a common problem in most coastal municipalities in the country caused by
illegal fishing and high population density along the coastline and has resulted in the decrease in
municipal fishery production in most areas. However, data gaps exist especially in the
monitoring of fish landings and fishing efforts. To address overfishing, the project will support law
enforcement and regulatory activities of local government units to manage fishing efforts and at
the same time provide alternative marine and land based livelihood opportunities to contribute to
a reduction in overfishing. The Project will also examine the problem of landing, catch and effort
statistics by having fishing households record data on a regular basis. The Bureau of Fisheries
and Aquatic Resources can then propose policy measures to appropriately address overfishing

Even the revised PDP has lowered its expectation of reducing poverty (from a target of 16.6% to 20% by 2016. The
revised PDP recognized the multiple dimensions of poverty which are exacerbated by manmade and natural
disasters.

4
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

and determine the actual source of fisheries produced, based on sound, reliable and timely
information. In addition, household income data will be collected as part of the outcome surveys
and mid-term and completion impact surveys.
25. In support of the legislative aspects of this component the Project will finance through a
contract with a qualified service provider a review of the existing relevant legislation. Municipal
fishery ordinances will also be reviewed in consideration of the proposed changes in the
Fisheries Code. In addition, the Project will assess how local governments can provide
sustainable financing for the protection of coastal and fishery resources, including the costs of
law enforcement teams (honorariums, insurance, fuel, repairs, maintenance of watch towers
etc.) and the costs of Coastal Resource Management. After the Mid-term Review, the Project
could pilot proposed changes to the Codes with respect to the municipal fisheries in selected
locations.
26. Law enforcement. Local governments are mandated to ensure compliance with the
Fisheries Code and local fisheries ordinances and associated costs of the bantay dagats. To
reinforce the bantay dagat at the barangay and local government unit levels, the Bureau of
Fisheries and Aquatic Resources will organize and strengthen law enforcement teams
composed of coast guards and police personnel to apprehend violators, as has been done by
the FISH Project in Cebu. In addition, the Project will assess the types and social and economic
characteristics of illegal fishing and propose ways to address this complex issue e.g. revised
local regulations etc. The Project will strengthen the existing bantay dagats through the provision
of equipment and training.
27. The Project will assist the local government units to improve the following: coordination
functions with Bureau of Fisheries and Aquatic Resources and other relevant agencies, the
fisheries database and reporting system and revenue generation from registration fees, fines,
and fees for resource use etc. to help finance the law enforcement activities and the
management of the coastal resources.
28. Coastal resource management plans will be updated using a participatory approach,
involving the local communities, peoples’ and private sector organisations and the local
government and Bureau staff to become coastal resource management and investment plans
and part of a comprehensive land and water use plan of the local government units. These
updated Plans will consider the complexity of the environmental, biological, geophysical,
institutional and socio-economic situation and will be a part of the municipal or city development
plans, subsequently reviewed and adopted by the local government units. All sub-projects
proposed for financing and included in the municipal or city development plans will reflect the
need to address the expected impacts of climate change and to reduce to the extent possible
the risks of natural disasters e.g. typhoons. Based on the assessment of the sources of
financing, the Project will assist municipalities and cities to institutionalise the arrangements for
funding fisheries coastal resources management. As a rule, the fishing communities are advised
not to engage in marine based cultivation or farming activities where mining operations have a
negative environmental impact. Settlement of disputes on municipal boundaries disputes to
establish clear municipal waters delineation rests on the concerned LGUs. Based on past
experiences, this issue does not interfere with implementation of CRM interventions.
29. Resource rehabilitation. The Project will finance resource rehabilitation sub-projects.
Mangroves, sea-grasses, coral reefs and beaches will be managed using the ecosystem
approach. Fish Sanctuaries and other types of protected areas will be established and managed
and existing ones managed. The status of the fish sanctuaries will be assessed by the local
governments with the assistance of BFAR through the initial Rapid Participatory Resource and
Social Assessment (Component 3). The Project will support a network of protected habitats to
maximise the impact of the interventions. The Project will help protect, enhance and rehabilitate
the resources, e.g. through stock enhancement in protected areas using juveniles and adults
from hatcheries.

5
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

30. Infrastructure and equipment support. To support coastal resource management, the
Project will finance the infrastructure and equipment required, including delineation markers for
identified fish sanctuaries within the target bays. In each Bay with a Bay Management Council,
the Project will finance the construction of a Bay Management and Multi-Purpose Building with
Watch Tower to serve as both a watch tower for the bantay dagat and information centre. In
addition, the Project will provide a standalone concrete watch (look-out) tower with guard house
in each participating municipality. The LGUs will be fully responsible for the operation and
maintenance of the infrastructure and equipment provided by the project during and after the
project implementation period, with the support of IFARMCs.
Component 2: Livelihood development
31. Organizational strengthening. In line with the proposals for livelihood development,
included in the municipal/city plan, the Project will support/reactivate suitable existing People’s
Organizations (POs) and form new groups/POs as needed. In addition to the technical aspects
of the selected livelihood enterprises, key elements of the training modules will be: group
organisation and management, basic entrepreneurship, business management, value-chain
concepts and approaches, coastal resource management and gender mainstreaming.
Community facilitators, based at the local level, staff of the Bureau of Fisheries and Aquatic
Resources and staff of other agencies will provide the training.
32. Promotion of micro-enterprises. There will be no project support for increasing fishing
effort, or provision of fishing gear. The Project will promote environment-friendly livelihood
enterprises identified in the approved Coastal Resource Management plans, e.g. fisheries
related enterprises (e.g. cage culture, mariculture, seaweed culture and fish processing),
sustainable tourism and other appropriate enterprises. Mitigation measures for some identified
feasible livelihood and enterprise will be put in place to prevent further environmental
degradation, waste generation and over-exploitation of resources. These enterprises will aim to
diversify and increase the incomes of the poor fishing households and other poor households
living in the target coastal communities. Enterprises will be undertaken by the individuals or
groups of members of a people’s organization or by the people’s organization as an entity.
33. The Project will provide PHP 100,000 (around USD 2,500) per eligible activity (for an
average of 20 members) to support the initial development of individual livelihood enterprises for
members of the fishing communities. This proposed allocation is based on the estimated
average required for a group to make a profitable and sustainable investment enterprise in the
project area. The maximum amount is set to support initial development for livelihood sub-
projects in order to put a cap on the Project’s cash contribution with expected additional
contribution (cash or in-kind) from the beneficiary PO/ LGUs people’s organization and
beneficiaries will provide the remaining investment funds in cash and/or kind. The Project
financed inputs for the livelihood enterprise will be provided as a package combined with the
provision of training for the members of the people’s organizations. Training will include both
technical skills and the business development aspects of operating livelihood enterprises.
Subsequent cycles will be financed from the income earned, while successful enterprises can
access micro-finance institutions or NGO sources to finance future expansion of their
enterprises.
34. Infrastructure and equipment support. The Project will in addition finance: (i)
infrastructure facilities in support to seaweed production, e.g. rehabilitation, expansion, or
establishment of communal seaweed solar dryers on stilts with small storage facility for areas
with existing and proposed seaweed plantations; (ii) improvements to some the Bureau’s
hatcheries ;and (iii) where needed and justified, the construction of fish landing facilities, and
provision of mini ice plants with cold storage facilities (chest-type freezers and mobile ice
makers), smoke houses, store houses and dryers. The Project can also assist with the
identification of potential private investors and the preparation of the necessary feasibility
studies. The LGUs will be fully responsible for the operation and maintenance of the
infrastructure and equipment provided by the project during and after the project implementation

6
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

period, with the support of IFARMCs.

Component 3: Project management and coordination
35. To improve the services provided to the sector the Bureau of Fisheries and Aquatic
Resources has prepared a Reorganisation Plan for the provision of services needed by the
sector. Following approval of this Plan by the Department of Budget Management, the Project
will assist the Bureau to implement the Reorganization Plan in the four regions. In addition, this
Component will finance the Project management and coordination structures and associated
monitoring and evaluation mechanisms at national, regional bay wide and city/municipality
levels.
Phasing of project implementation
36. The phasing of the project implementation will be based on the readiness of the people’s
organizations, local government units, bays and regions. The livelihood development sub-
projects to be financed will be aligned with the priority commodities identified by the Bureau of
Fisheries and Aquatic Resources Regional Roadmaps. This will help ensure that the sub-
projects are suitable for the target locations and thus contribute to their sustainability. In Project
Year 1, implementation will focus on the sub-projects that have already been prepared and
where investment can start immediately. The eligible livelihood subprojects, infrastructure and
equipment should cover the three Project components. These sub-project proposals have been
prepared following the guidelines agreed with Bureau of Fisheries and Aquatic Resources during
the Project Design Mission (October/November 2012) and are fully endorsed by the local
government units and Fisheries and Aquatic Resources Management Committees in the target
municipalities/provinces. These proposals involve some of the local government units (not
necessarily all) in the bays with feasible and viable proposals. The local government units that
agree to include their required counterpart contribution in their annual investment programme for
2015 will implement these investments starting in Project Year 1.
37. In areas affected by Typhoon Yolanda, specifically Leyte Gulf and Matarinao Bay,
livelihood development activities, will be immediately implemented in these sites that are
intended to be implemented at the household levels to support recovery of fishing communities.
This will be contingent on the needs and damage assessment of the Bureau of Fisheries and
Aquatic Resources so that appropriate interventions can be immediately implemented on the
ground.
38. The annual supervision missions and implementation support missions will review the
readiness of the bays and local government units in terms of their sub-project proposals and
staffing and management resources available in consultation with the regional offices and
Bureau of Fisheries and Aquatic Resources. Based on the current status of the detailed
investment proposals already prepared in the regions, the Project financed investments are
expected to start in two bays in each region in Project Year 1, with investments starting in the
remaining bays thereafter. Each bay would receive Project support for five years.
Project implementing agencies and arrangements
39. The Bureau of Fisheries and Aquatic Resources will be the Project’s lead implementing
agency and will have full responsibility for Project administration and management. The Bureau
will use its existing structures at national, regional, and provincial levels to implement Project
activities, but has a limited and insufficient number of staff. To address the Bureau’s general lack
of capability it has prepared a Reorganization Plan which includes an increase the number of
positions and the numbers of both technical and administrative staff at all levels. It is expected
that once the Plan is approved, the plan will focus on decentralising the staffing pattern or
downloading responsibilities from the central office to the regional and provincial offices.
40. While the Bureau of Fisheries and Aquatic Resources is the agency responsible for the
development, improvement, management and conservation of the country's fisheries and
aquatic resources, the municipalities and cities are responsible for managing the municipal

7
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

waters and coastal zones.

41. Project implementation arrangements will follow the procedures of the government and the
mandates of the respective national government agencies and those at the regional, provincial
and city and municipal levels. There will be no Project implementation arrangements operating in
parallel to those of the Government. The Project will operate as part of the national convergence
initiative, with assistance from other government agencies as needed e.g. the Department of
Environment and Natural Resources, Department of Trade and Industry, Department of Science
and Technology and Department of Tourism.
42. At the national level a high level inter-agency Project Steering Committee will provide the
Project with policy guidance, approve Project implementation guidelines, work plans, budgets
and procurement plans, and resolve implementation issues that cannot be decided at the
regional level. A Project Support and Coordination Office directly accountable to the Director
of the Bureau of Fisheries and Aquatic Resources will be established at the centre and will be
responsible for supporting, coordinating and monitoring Project implementation in the Regions.
All the other implementing agencies will have a “FishCORAL” Focal Point at national level
through whom the Project will interact with that agency at national level.
43. A Regional Coordination and Support Committee will serve as a policy and institutional
advisory committee for Project implementation and facilitate convergence for the effective and
efficient delivery of the various agencies’ services to support Project implementation. Regional
Project Management Offices will be established in each of the four Regions and will report to,
and be guided by, the Project Coordination and Support Office. The Regional Project
Management Offices will be under the leadership and responsibility of the Bureau’s Regional
Directors. The main task of the Offices will be to support the municipalities and cities, and
manage the Project’s resources (including budgeting and reporting), procurement the
management information system, monitoring and evaluation, and knowledge management.
44. A Bay Coordination and Support Committee will coordinate Project activities within a
bay under the chairperson of the Bay/Gulf alliance. The Bay Management Councils will: (i)
coordinate the implementation of Project activities on a bay-wide scale; and (ii) ensure that
municipal and city Project activities are consistent with support a unified bay approach. The
municipalities and cities will finance the operations of the councils.
45. Municipal/City Project Management Offices will be based at the municipal or city level
in Regions 5, 8 and 13under the local agricultural officer (whose responsibilities include
fisheries). The Office will have the following functions: (i) assist the people’s organisations plan
sub-project proposals for inclusion in the municipal or city plan and approval at regional level; (ii)
ensure the implementation of approved investment proposals and activities; (iii) coordinate with
the other municipalities and cities in the bay to implement Project activities; (iv) monitor
implementation, and prepare and submit reports as required.
46. In the Autonomous Region in Muslim Mindanao, a Municipal Project Implementing Unit
will be based at the Bureau’s Provincial Fisheries Office under the leadership of the Provincial
Fisheries Officer. The Unit will work closely with the municipal/city planning and development
coordinators. The Unit will undertake the same tasks as the Municipal/City Project Management
Offices elsewhere.
47. The Bureau will execute a Memorandum of Agreement with each municipality and city and
other implementing agencies at the national, regional and provincial levels to specify what
services and support each will provide and how the services and support will be financed by the
Project.
Risks
48. The current lack of technical and management capacity within the Bureau of Fisheries and
Aquatic Resources is the most serious risk faced by the Project which is addressed by the
inclusion of sufficient contract staff to manage the Project together with the assigned staff of the

8
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

Bureau of Fisheries and Aquatic Resources. The implementation of the Bureau’s proposed
Reorganization Plan is essential for the provision of future support for the sector. The project will
support BFAR’s Reorganization Plan through the provision of the needed capacity development
activities that will improve the technical capacities of BFAR’s regional offices in the target regions
to carry out their CRM mandates. Temporary staff will be contracted to meet the immediate
requirements of the project implementation, while the BFAR’s Reorganization Plan is
implemented. In addition, BFAR will shift from being a direct implementer of foreign assisted
projects to being an enabler/trainer of LGUs. To do this, BFAR has to build the capacity of its
officers and staff, especially those assigned to the Project, to (i) transfer their skills on fishery
development/ coastal resources management to the officers and staff at the municipal/city
agriculture offices; and (ii) transfer their project implementing operations to the LGUs. A second
serious risk is that following the end of the Project period the Project activities prove to be
unsustainable thereby repeating the experience of many of the previous project interventions in
various bays/gulfs. The Project design tackles this issue by focusing on the generation of
sufficient sustainable sources of local revenues to finance the necessary law enforcement
activities and to provide some locally generated revenue for investment in resource
management. In this way there will no need for future interventions to repeat the activities
financed by the Project.
49. The risks associated with the national convergence initiative are at the operational level.
The agencies concerned may be unable to provide the type of coordinated approach that is
needed at the local level. The Project design counters this risk in three ways. First, through the
use of Memorandum of Agreement between the Bureau and all agencies engaged in Project
implementation, which cover the roles and responsibilities, costs and sources of finance.
Second, all the agencies with a role in Project implementation will be members of the Regional
Steering and Coordination Committee. Finally, all implementing agencies will have a
“FishCORAL Focal Point at national level.
50. An associated risk concerns the willingness of the private sector to be involved in
supporting the development of alternative livelihood enterprises for members of the fishing
communities. This risk is addressed in the Project design by involving the private sector from the
initial planning stages through to the processing and/or marketing of the products and by the
availability of some initial Project finance for livelihood development production activities to
match investments from the private sector for processing, drying and marketing.
Project costs, financing and benefits
51. The proposed Project would cost about USD 43.74 million with allocation of about USD 274
per target group household (90,596). The proposed Project financing includes IFAD (loan and
grant) USD 30.64 million (70%), with the IFAD loan on Ordinary Terms and Conditions and a
national Government counterpart contribution of around USD 6.12 million (14%) and local
government units’ counterpart contribution of around USD 5.64 (13%). Beneficiary counterpart
contributions (including participating organizations) would account for the remaining USD 1.33
million or 3%.
52. The Project’s target is to raise the incomes and quality of life of about 90,596 poor
households in the 11 target bays/gulfs. Both the financial and economic analysis show that the
projects investments should provide sound benefits to the participating households and to the
economy with an economic rate of return of 27%. The financial analysis also shows that for local
government fisheries and coastal resources management can be financially viable undertakings.
Sustainability
53. The following elements are built into the Project design to help ensure that the proposed
investments and benefits are sustainable. First, assisting the local government units to develop
sustainable sources of local revenues to finance the fisheries law enforcement teams and
provide funds for investment in the management of the municipal fisheries and coastal
resources. Second, the participation of the people’s organizations and their members in

9
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

identifying and planning the proposed livelihood activities. Third, the involvement of the private
sector on a long-term basis to enhance the sustainability of the investments in developing
alternative sources of livelihoods for members of the coastal communities and their
organisations. Fourth, requiring the beneficiaries and municipalities and cities to share in the
costs of the Project’s investments. Finally, after the mid-term review the Project will prepare an
exit strategy and sustainability plan.
Innovation and scaling up
54. Despite the relatively small investment in relation to the scale of the issues involved, the
Project could be catalyst for improving household incomes and attracting further investment for
scaling up to realise in full the potential benefits from good and sustainable management of the
city/municipal fisheries and the other coastal resources. A key innovation for scaling up will be if
the Project succeeds in developing and introducing sustainable systems of financing at the
municipal level to: (i) for effective enforcement of the fisheries ordinances for the municipal
fisheries and coastal resources; and (ii) conservation and management of the fisheries and
coastal resources.

10
 Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

LOGICAL FRAMEWORK
6
Narrative Summary Performance Indicators Means of Verification Assumptions/Risks

Goal
Contribute to reduced poverty in By end of project(EOP) in the covered municipalities/provinces:  RIMS+ Impact survey. Controlled/managed
target coastal communities of the  Decreased poverty incidence by 5% from baseline of 42%s (mean  NSCB FIES survey. calamity/disaster in the target
eleven target bays in Regions V, poverty incidence)  LPGPMS coastal communities.
7
VIII, XIII and ARMM .  CBMS
By EOP 60% of the targeted 90,596 poor households in the Project area:
8
 Increased ownership of household assets by 20% of baseline .
 Decreased child malnutrition (ages 0-5 years) by 4% from
9
baseline of 24.4% .

Development Objective
Coastal communities sustainably By EOP, in the Project area:  RIMS+ Impact survey.  Climate variability does not
manage their fishery and coastal  Annual income of participating fishing community households  Outcomes surveys. overcome the resilience of sub-
resources generating livelihood increased by 10% of baseline  LGU budget/ finance projects supported by the
benefits for the targeted  Employment of women engaged in income generating activities documents. Project.
households. increased to 40% from baseline of 20%.  LGPMS  No major financial shocks,
stable inflation rate and
purchasing power of fishing
households maintained or

6
All indicators in the logframe and in the monitoring and evaluation system for the project will be disaggregated by gender. The project management will be required to report on
the gender disaggregated data in the physical progress reports. The indicators in Italic are IFAD required RIMS indicators.
7
The reduced poverty incidence by 5% from the baseline of 42% (mean poverty incidence) is based on IFAD’s similar projects where t he project is expected to contribute to
poverty incidence reduction of 5% and also based on the expected achievements of similar p overty reduction programmes supported by the GOP and other foreign assisted
projects. There are several factors that bring about poverty reduction, and not solely the responsibility of the project. Eve n the revised PDP has lowered its expectation of
reducing poverty (from a target of 16.6% to 20% by 2016. The revised PDP recognized the multiple dimensions of poverty which are ex acerbated by manmade and natural
disasters.
8
The household asset index is used as an indicator of relative poverty (or wealth) in the project area. Malnutrition is an indicator of hunger. It is worth emphasizing that an IFAD
project does not need to have explicit “nutrition interventions” (such as nutrition education or the prevention of micronutri ent deficiencies) to influence nutrition status. The factors
determining nutrition status are multi-sectoral. Any project activities that increase household income or improve household conditions related to food, health, or c aring practices
have the potential to decrease chronic malnutrition.
9
Reduction of incidence of child malnutrition and poverty are Results and Impact Management System (RIMS) indicators of IFAD. They are the mandatory anchor indicators that
should be included in all IFAD assisted projects regardless of project type. The RIMS anchor indicators of impact are linked to the Millennium Development Goals (which have
been recognized by 189 countries and all of the United Nations agencies) and form a basis for donor harmonization on impact assessment.

11
 Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

6
Narrative Summary Performance Indicators Means of Verification Assumptions/Risks
increasing.

10
Component Outcomes and Outputs
Component 1 Outcome: By EOP, in the Project Area:  RPRSA result. LGUs, DENR and other agencies
Fishing communities adopted  Fish density in coral reefs increased by an average of 15% from  Project M&E. are vigilant in protecting and
sustainable management of baseline.  LGU annual financial rehabilitating natural resources
fishery and coastal resources.  Hard coral cover improved in selected sample protected areas where report. (ridge to reef).
scientific sampling of coral takes place by an average of 15% from
baseline.
Component 1, Output 1:  103 municipal/city FLETs and 103 M/C FARMCs formed,  Project M&E. National/local laws/ordinances
Capabilities of LGUs and fishing strengthened and sustained.  LGU records. favour the protection and
communities to enforce  11 bay management councils formed, strengthened and sustained  NAMRIA record on rehabilitation off the municipal
sustainable management of with their bay wide fishing ordinances implemented. delineation. fisheries and coastal resources.
fishery and coastal resources  103 LGUs implementing fisheries and CRM plans and ordinances.  Law enforcement
established.  103 LGUs delineated municipal waters with accompanying zoning records.
ordinances.
 103 sets of patrol boat equipment for surveillance sustainably
operated.
11
 11 climate proofed bay management, multi-purpose buildings
constructed and maintained with 103 climate proofed watch towers
constructed and maintained.

Component 1, Output 2:  103 LGUs formulated/updated multi-year CRM and fishery  Project M&E. LGU leadership support to
Municipal/city and bay-wide management/investment plans which are integrated into the  LGU records. fishery/ CRM development.
fishery and coastal resources CLUP/MDP and AIPs.  LGU Annual
management and investment  11 bay-wide multi-year CRM and fishery management/investment Investment Plans

10
At the impact level, the project will contribute to the attainment of the indicators. Attribution falls under the output and outcome levels of the pro ject indicators.
11
Coordination with the Local Disaster and Risk Reduction Management Councils (LDRRMC) of the municipalities will be forged for their involvement in the development of the
municipal and baywide CRM plans. The LDRRMC will also be consulted by the Project specialists in appropriately designing infr astructure/ support facilities that will be strong
enough to withstand a changing climate, particularly water surges, flooding, intense rainfall or extreme heat.

12
 Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

6
Narrative Summary Performance Indicators Means of Verification Assumptions/Risks
plans implemented. plans adopted by LGUs involved.
12
Component 1, Output 3 :  1,100 ha of critical mangrove areas rehabilitated and managed  Project M&E.  LGU leaderships support fishery
Habitats for fishery and coastal sustainably.  LGU records. / CRM protection and
resources rehabilitated and  21,456 ha of established and delineated or rehabilitated fish rehabilitation.
established. sanctuaries managed sustainably.  Laws/ordinances support
 3,814 ha of rehabilitated/protected sea grass beds managed protection and the sustainable
sustainably. management of the municipal
 22 marine species stock enhancement projects implemented. fisheries/coastal resources.
 5,200 units of supplemental artificial reef deployed.
 5,150 ha of fish sanctuary provided with delineation markers.
13
Component 2 Outcome By EOP, in 103 target municipalities and cities:  RIMS + Impact Survey. No major financial shocks that
Income of fishing households in  Fishing households involved in fishery enterprises increased to 30%  Outcome Survey. affect the growth of livelihood
target coastal communities from a baseline of 20%, (30% are women from a baseline of 20%).  Project M&E. enterprises.
increased through sustainable  One micro-enterprise established per coastal barangay operating.  LGU records.
engagement in diversified
livelihood activities.
Component 2, Output 1:  4,454 groups generating profit from aquaculture and marine  Project M&E.  Continued willingness of
Fishing households organized enterprises, including seaweed farms, fish culture, fish processing and  Group/cluster financial fishing and other poor HHS in
into livelihood groups. other fishery-related enterprises (50% of members are women). records. coastal communities to work
collectively in livelihood
groups/clusters.

12
Targets are based on the proposed CRM interventions per bay discussed in Working Paper 2: CRM and shown in Attachments 1-4.
13
Not all households in the covered 1,098 barangays will be engaged in enterprises, only those that are or will be members of the People’s Organizations (PO) that will qualify to
establish a livelihood sub-project. Thus, the Project will only target an increase of 50% (30% from a baseline of 20%) involvement of households in the covered barangays.
(Attachments 1-5, Working Paper 3: Livelihood Development). Increasing the target will result to commensurate increase in the number and cos t for livelihood sub-projects and
will entail additional manpower to implement (i.e. community facilitators, LGU technical staff).

13
 Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

6
Narrative Summary Performance Indicators Means of Verification Assumptions/Risks
14
Component 2, Output 2 :  1 BFAR fully operational hatchery assisted.  Project M&E.  LGU leadership continuing
Livelihood projects (fishery and  7 community based hatchery development and enhancement facilities  LGU records. support to allocate timely
non-fishery) with corresponding established. counterpart funds.
15
climate-proofed infrastructure/  515 communal seaweed solar dryer with storage constructed.
facility support implemented.  49 mobile ice makers and 294 chest freezers managed sustainably.
16
 11 fish landing facilities constructed.
 50% of the livelihood projects will be implemented by women.

14
In PY1 the Project will assess the existing BFAR hatcheries to determine their potential use as source of juveniles for the P roject’s livelihood and stock enhancement needs.
Based on the results of the assessment, RPMO will recommend to the PSCO, whether the local hatchery will be worth assisting or not in relation to becoming a supplier of
juveniles to POs.
15
Output 2 pertains to construction of 515 communal seaweed solar dryers with storage. Support to seaweed farming is part of the livelihood programme to reduce the pressure on
overfishing as well as improved income for the fishing households.
16
Please refer to Estimating Factors and Assumptions (Working Paper 4: Rural Infrastructure, pages 18-19). The assumptions are as follows: Fish Landing Facilities: Jetty– one
half of the bays per region. Timber Port - other half of the bays per region.

14
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

I. STRATEGIC CONTEXT AND RATIONALE

A. Country and Rural Development Context

Country background
1. The Philippine archipelago comprises 1,107 islands with a total land area of 300,000 km 2,
located 800 km from the Asian mainland between the islands of Taiwan and Borneo. Its territorial
water area (including its Exclusive Economic Zone) is 2.2 million km2and consists of 266,000
km2 of coastal waters and 1,934,000 km2 of oceanic waters. The length of the country’s coastline
is 36,289 km.
2. The Philippines has a range of tropical and sub-tropical climates depending on the altitude
and latitude, with Luzon and Visayas, but not Mindanao, lying within the main typhoon belt. In
the last six decades the annual mean temperature has increased by 0.57°C with many extreme
weather events recorded. The climate change predictions for the period 2020-2050 foresee a
warming in most parts of the country Projected mean seasonal temperatures are expected to
rise by 0.5-0.9°C by 2020 and 1.2-2.0°C by 2050. With higher temperatures will come the
likelihood of an increase in extreme weather events e.g. typhoons.
3. According to the 2010 National Census In May 2010, the population of the Philippines was
92.34 million and growing at 1.90 % p.a. (2000-2010). Of its 1,541 municipalities, 832 or 54%
are on the coast and 62% of the population lives in the coastal zone.

Economy
4. In the decade 2001 to 2010, the growth in Gross Domestic Product (GDP) averaged 2.3%
p.a., which compared unfavourably with the growth rates of several high performing Asian
economies. As noted by the IMF17, the Philippines is being affected along with other countries in
the region by the fragile global environment. After reaching 7.6% in 2010, annual growth in GDP
slowed to 3.7% in 2011, but increased to 6.8% in 2012 with 7.8% recorded in the first quarter of
201318.Macro-economic conditions are generally sound and the authorities’ policy management
is supporting confidence. The headline inflation rate (June 2013) was 2.8% p.a.19The key
challenge now for the Government is to navigate through the continuing period of global
uncertainty, maintain macro-economic stability and a high rate of growth while making growth
more inclusive.
5. Despite the relatively unfavourable performance in the previous decade, the economy
weathered the 2008-09 global recession better than its regional peers due to minimal exposure
to troubled international securities, lower dependence on exports, relatively resilient domestic
consumption, large remittances from four-to five-million overseas Filipino workers, and a
growing business process outsourcing industry.

Poverty
6. Recent growth in GDP did not translate into a reduction in the incidence of poverty, or the
number of poor people, both of which were higher in 2009 than in 2003. While the incidence of
poverty decreased slightly from 21.1% of families in 2006 to 20.9% in 2009, but with population
growth, the number of poor families rose from 3.67 million to 3.86 million in the same period.
Poverty incidence and the numbers of poor people were higher in 2009 than in 2003. However,
recent data shows little change between the first semesters of 2009 and 2012, with 22.9% and
22.3% of families respectively living below the poverty line. In 2008, 32% of children less than
five years old were stunted and nearly 7% were wasted.
7. The UNDP Human Development Reports place the country in the medium human

17
Information taken from the IMF staff report for the 2011 article (iv) consultation.
18
National Statistics Coordination Board
19
National Statistics Coordination Board

1
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

development category. In the 2011 Human Development Report, the Human Development Index
(HDI) for the Philippines was 0.644, an increase from 0.602 in 2000. Over the same period the
HDI for East Asia and the Pacific Region increased from 0.581 to 0.671, now placing the
Philippines below, instead of above, the Regional average. Over the last 11 years, the
improvement in the HDI Index in the Philippines has not kept pace with the improving situation
elsewhere in the Region. In terms of HDI, the Philippines now ranks 112th among 187 countries.
The country’s Gender Inequality Index (GII) improved from 0.477 in 2000 to 0.427 in 201120 and
the Philippines now ranks 75th in the world. The GII is better than the average (0.475) for
countries with a medium level of human development. The Gross National Income in Purchasing
Power Parity terms (constant 2005 USD ) was USD 3,478 per capita (2011 Human Development
Report).
8. The failure to reduce poverty during the previous decade reflects underinvestment and the
slow growth of per capita incomes. A high population growth rate, high dependency rates and
inequitable distribution of income were contributory factors. Natural disasters and inflationary
pressures, mainly from rising fuel and food prices, were also factors. Nationally income
inequality remains high with a Gini Coefficient of 0.44. Despite the recent lack of progress in
reducing the incidence of poverty, the Philippines Development Plan (PDP) 2011-2016
envisages that the country can still achieve the Millennium Development Goal (MDG) poverty
reduction targets by 2015.
9. Fishermen are amongst the poorest groups in the country with a poverty incidence of
41.4% in 2009, unchanged from 2006, but higher than the 35% recorded in 2003. In terms of
numbers there has been little overall change during the six years: 346,345 poor fishermen in
2009 compared with 355,815 in 2003, (but 400,214 in 2006).

Agriculture and the fisheries sub-sector

10. Agriculture (including livestock, fisheries and forestry sub-sectors) remains an important
sector of the economy, accounting for about 18% of GDP and employing about 35% of the total
work force (11.8 million people). Including the whole value chain, the sector’s contribution to
GDP and total employment rises to 35% and 50% respectively.
11. In 2010, fisheries contribution to GDP at current prices was 2.0% which equals around
PHP 180 billion (USD 4.29 billion). With 20.6% fisheries were the second highest contributor to
the Gross Value Added of the Agriculture, Fisheries, and Forestry sector. The fisheries sub-
sector is an important employer with over 1.37 million municipal fishermen, 16,497 commercial
fisheries workers, and 226,195 aquaculture workers21.
12. Fishery products are a major source of foreign exchange with the 2010 foreign trade
registering a net surplus of USD 616 million (exports USD 803 million and imports USD 187
million). Tuna was the top export commodity followed by seaweed, shrimps/prawns, crabs,
octopus, grouper, squid, ornamental fish, rounds cad, and sea cucumber. These 10 products
accounted for at least 80% of the total volume of fishery products exported and 84% of total their
fob value.
13. The fisheries sector consists of aquaculture (the farming of aquatic species such as fish,
shells, and seaweed), the municipal fisheries which involves fishing with or without the use of
boats of three gross tons or less within the municipal waters which extend up to 15 km from the
shore line (12 km in the Autonomous Region of Muslim Mindanao (ARMM), and commercial
fisheries which use vessels of more than three gross tons and operate outside the municipal
waters. In 2010, aquaculture accounted for 49% of total production (2,545,967 mt), followed by
municipal fisheries with 27% (1,371,390 mt), and commercial fisheries with 24% (1,242,102 mt).
The contribution of the aquaculture subsector to total fish production has been steadily
increasing from 38% in 2001 to its present share of 49%. Overall fish production increased by
average of 5% annually from 2001 to 2010 propelled primarily by aquaculture.

20
The source is the UNDP, Human Development Report, 2011.
21
The source is the 2002 Census of Fisheries, the most recent data.

2
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

14. In spite of this steady performance, the sector is faced with many complex problems that
threaten its resource base and the livelihood of millions of Filipinos dependent on fish as a
source of food and livelihood. The inter-related issues that are affecting municipal fishermen and
their families are coastal habitat and watershed degradation, illegal fishing practices, pollution,
overfishing, a rapidly growing coastal population, and weak political will to enforce fishery laws
on the part of local leaders.
15. Stock assessment studies by the Bureau of Fisheries and Aquatic Resources (BFAR)
suggest that two-thirds of the country’s 12 major fishing grounds are already overfished. Fish
stocks are also only about 10% of what they were in the 1980s (World Fish Centre, 2002). Catch
rates of reef fisheries in the Philippines are also among the lowest in the world. For the
municipal fishermen this issue has a long history; in the 1980s catch rates were only a sixth of
that in the 1950s.

Legal framework
16. Local government and fisheries codes. The legal framework defines the responsibilities
and accountability of the Local Government Units (LGUs) for coastal resources management;
namely the provisions of RA 7160 (Local Government Code) that relate to municipal fisheries
and the coastal zone and RA 8550 (Fisheries Code of the Philippines). In the Autonomous
Region in Muslim Mindanao (ARMM) coastal resource management activities will follow the
Implementing Rules and Regulations of ARMM Aquatic and Fisheries Code of 1999 (MMAA no.
86, February 2006) and the Provincial FATWA on Marine Environmental Protection and
Conservation (2006).

Policies and development plans

17. The Project’s design responds to the government’s policies and priorities as expressed in
the relevant policies and development plans as summarised below.
18. The Philippine Development Plan2011-2016 (PDP) recognises the importance of a
competitive agriculture and fisheries sector to improve food security and raise the income of
rural communities. It also stresses the need for the conservation, protection and rehabilitation of
natural resources. Among the key strategies that relate to fisheries and coastal resource
management (CRM) are: (i) increasing investments and employment across efficient value
chains; (ii) reducing climate-change risks and the vulnerability of natural ecosystems and
biodiversity through ecosystem-based management approaches, conservation efforts and
sustainable environment and natural resources-based economic initiatives; and (iii)
strengthening the capacity of communities to respond to climate risks and natural hazards.
19. The PDP identifies among its strategies the: (i) management of mangroves, sea grass,
coral reefs, and beaches as a management unit to derive maximum benefits; (ii) adoption of an
ecosystem approach to the management of fisheries and other marine resources, addressing
trans-boundary policy and regulatory concerns; (iii) conduct of an inventory of the status of
foreshore lands to identify and clarify impacts of privatisation and commercialisation on the
environment and the fishing communities; (iv) reversion of abandoned, underused, and
unproductive fishponds into mangroves; (v) integration of coastal and marine water use plans
into the comprehensive land use plans of the local government units (LGUs); (vi) delineation of
municipal waters; and (vii) improvement of coastal and marine biodiversity by safeguarding
coastal ecosystems, species, and genetic diversity.
20. The Agriculture and Fisheries Modernization Act of 1997 (Republic Act 8435) aims to
modernise the agricultural and fishery sectors by promoting a technology-based industry to
enhance profitability by ensuring equitable access to assets, resources and services, and
promoting higher-value crops, value-added processing, agribusiness activities, and agro-
industrialization. It also seeks to empower people’s organizations, cooperatives and NGOs.
21. Agri-Pinoy guides the implementation of the various services and programmes of the
Department of Agriculture (DA) for agriculture and fisheries from 2011 to 2016. Agri-Pinoy has
four guiding and interrelated principles: (i) food security and self-sufficiency and reducing

3
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

dependence on food imports by increasing productivity; (ii) sustainable agriculture and fisheries
which emphasises ecological and economic sustainability while complementing efforts to
increase productivity; (iii) natural resource management which seeks to optimise their
development; and (iv) local development which promotes an ecosystem framework for
development, particularly where governance and management of resources have been devolved
to the local level. Among the strategies under the Agri-Pinoy framework is the empowerment of
farmers and fishermen through the provision of timely and useful information on climate change
and market patterns which will enable them to adapt, diversify and reduce risks and losses and
introduce adaptive technologies.
22. As part of the development plans to support economic growth, DA and BFAR are
identifying priority commodities and preparing “commodity roadmaps” at the national and
regional levels. These roadmaps involve a value chain analysis, and include proposals for
production, value adding and export. This process is incomplete as the BFAR national level
commodity road map will not be completed until 2014. Some BFAR regional offices have
identified priorities e.g. seaweed and mussels in Regions VIII and CARAGA and most likely sea
weed in ARMM.
23. National Convergence Initiative (NCI). Proposals in the PDP for enhanced governance
include the NCI to maximise resources available and synchronise the initiatives of the three
departments engaged in rural development: DA, the Department of Environment and Natural
Resources (DENR) and the Department of Agrarian Reform (DAR), although other agencies will
participate in line with their mandates e.g. the Department of Trade and Industry (DTI). The NCI
aims to rationalise and improve the provision of services and provide a more broad-based,
efficient and effective approach to reduce rural poverty. The NCI has also adopted an ecosystem
approach to rural development and governance i.e. “from ridge, through river, to reef” realising
that development efforts must take into account the close linkage between terrestrial and aquatic
ecosystems and their impacts on the lives of agricultural and fishing communities.
24. Integrated Coastal Management. The Executive Order 553 (2006) made Integrated
Coastal Management (ICM) a national strategy for the sustainable development of the country’s
coastal and marine environment and still provides the general framework for ICM. It is the policy
of the State to secure a healthy and ecologically balanced coastal environment for the Filipino
people. The national policy framework is expected to promote effective people’s participation
and equitable sharing of resources in the sustainable development of the country’s coastal and
marine environment.
25. Agribusiness Road Maps have been prepared to identify the commodities which have
the greatest comparative advantage either for domestic or export production. These road maps
are intended to guide production planning at the regional levels and nationally. BFAR regions are
using road maps and value chain analysis prepared for some commodities to guide the selection
of livelihood investment activities e.g. crab fattening, seaweed production, and milkfish. As the
situation varies between provinces and regions, the existing road maps and value chain analysis
will need adjustment to guide investment in a specific locality and new Road Maps prepared for
commodities for which no such analysis exists. BFAR expects to complete the preparation of its
national Agribusiness Road Map early in 2014.
26. Climate change. The Philippines passed the Climate Change Act of 2009 (Republic Act
(RA) 9729) to incorporate climate change in government policy formulation and establish the
framework strategy to adapt to a changing climate. The National Framework Strategy on Climate
Change was formulated in 2010 to ensure and strengthen the adaptation of the country’s natural
ecosystems and human communities to increased climate variability, charting a cleaner
development path for the country in the process. Both BFAR and DA have responded to
impending climate change, through the Climate Change Adaptation Programme and the
Implementation Programme on Climate Change respectively as part of their current
programmes.
27. Disaster Risk Reduction. These actions are reinforced by the enactment of the Disaster
Risk Reduction and Management act RA 10121which puts in place arrangements to respond to

4
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

disasters and to mitigate their impact. By virtue of Executive Order No. 888, the Strategic Action
Plan on Disaster Risk Reduction was adopted.
28. Reconstruction Assistance on Yolanda Plan. Reconstruction Assistance on Yolanda is
the government’s strategic plan to guide the recovery and reconstruction of the economy, lives,
and livelihoods of people and communities in the areas affected by Typhoon Yolanda. The plan
aims to restore the economic and social conditions of the Yolanda affected areas at the very
least to their pre-typhoon levels and to a higher level of disaster resilience. The estimated total
investment requirements for recovery and reconstruction will require a total of PHP 361 billion in
investments that shall cover shelter and resettlement (PHP 183.3 billion), public infrastructure
(PHP 28.4billion), education and health services (PHP 37.4 billion), agriculture (PHP 18.7
billion), industry and services (PHP 70.6billion), local government (PHP 4billion) and social
protection (PHP 18.4billion).

B. Rationale
29. The Project investment will focus on the municipal waters (municipal water boundary of 12
km in ARMM and 15 km for the rest of the country). The rationale for investing in the fisheries
sector in the Philippines is very strong. The sector is important for the fishing communities as a
source of livelihoods, for the population as a whole as the major source of dietary protein and for
the national economy as a major source of foreign exchange earnings. The proposed design
includes Project investments and activities to address the key issues that have reduced fish
catches and have impoverished many members of the fishing communities, leaving fishermen
as the group (out of nine) with the highest incidence of poverty. As noted above these issues
include coastal habitat degradation, use of illegal fishing practices, overfishing, (in part due to
the lack of enforcement of the fishery ordinances), pollution and a lack of viable alternative
livelihood activities to fish capture. While in some places, previous projects and/or programmes
included the same or similar activities to those being proposed now to address these issues,
past efforts in many instances have lacked sustained impact. From the available documents, it is
clear that many of the previous initiatives were initially successful with positive results recorded
at the end of the Project period. However, it appears that many could not be sustained after the
end of the financial and technical support from the projects. The evidence for this conclusion is
the current dire state of the country’s municipal fisheries, the poverty of the fishing communities,
the number of inactive people’s organizations (POs22) in the fishing communities and the lack of
effective law enforcement activities, e.g. patrol boats that are non-operational and an absence of
adequate remuneration for the members of the law enforcement teams.
30. The key to addressing these continuing issues is to ensure that the proposed Project
activities and sub-project investments in coastal resource and fisheries management and
livelihood development can address the issues that bedevil the sector while capable of being
sustained after the end of the Project’s assistance. This is the key rationale for the proposed
Project.
31. The proposed Project will address the issue of sustainability in the following ways. First,
the proposed Project will adopt the ecosystem approach to fisheries and CRM. The Project’s
design will adopt the bay-wide approach to the management of coastal resource and municipal
fisheries involving contiguous municipalities that need to work together to protect, rehabilitate
and ultimately sustainably manage the coastal and fisheries resources of the individual bays.
This could involve providing support for existing Bay Management Councils (BMCs) (active or
dormant), the creation of new ones where necessary and/or the formulation, adoption and
implementation of Unified Fishery Ordinances.
32. Secondly, the Project will assist the target municipalities and cities to realise that making
the improved and sustainable management of their fisheries and coastal resources a priority has
the potential to provide them with an increasing future revenue stream. This approach requires
the inclusion of sustainable CRM and fisheries management plans as part of the Municipal

22
This term is used throughout to cover all of the following interest groups, associations, cooperatives whether or not
registered.

5
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

Development Plans, introduction of improved resource management practices, registration of

the municipal fishermen, boats and fishing gear and crucially the introduction of sustainable
arrangements for financing the sustainable long-term operations of the fishery law enforcement
teams. In addition, to budget allocations financing for these activities can include registration
fees, fines levied for infringements of the fisheries ordinances and fees for resource use, e.g.
from the operators of ecotourism facilities, scuba-diving operations and alternative livelihood
operations, e.g. fish and seaweed culture. The revenues can help finance the management and
improvement of the fisheries and coastal resources.
33. Thirdly, to avoid the alternative livelihood activities failing and with them the POs once the
Project assistance ends, as has frequently happened in the past, the Project will support the
development of livelihood enterprises that are linked to the BFAR regional priorities to ensure
that the livelihood enterprises supported by the Project are suitable for the target group and
respond to the requirements of the market. By adopting this approach and providing appropriate
support for POs involved for technical and management training, there is a much improved
chance that these livelihood activities will continue operating after the end of the assistance from
the Project and will subsequently be able to expand in response to market demand.
34. Fourthly, when preparing sub-project proposals for Project investments, careful attention
will be given to the analysis of natural disaster risks and climate change concerns to minimise
the risks to the investments financed by the Project.
35. Fifthly, the Project will provide the supporting investment necessary to enable the LGUs to
improve the productivity of their fishery and coastal resources and improve their management of
the resources in ways that are sustainable both financially and in terms of the use of the natural
resources.
36. Finally, the Project will finance investment in BFAR facilities (e.g. hatcheries, laboratories)
that can support the fisheries and coastal resources sector and assist the LGUs to improve the
productivity of the municipal fisheries, coastal resources and development of alternative
livelihood enterprises for the fishing communities. It was agreed with BFAR Central Office that
when the other three regions require support to their laboratories, BFAR Central Office would
provide its support from the government regular budget. The Project will not duplicate the
activities of others (e.g. Philippines Rural Development Project (World Bank) and Ecosystems
Improved for Sustainable Fisheries (ECOFISH - USAID) but will compliment and coordinate with
these activities.

C. Alignment with Government Priorities

37. The proposed Project is in line with the priorities defined in the Philippine Development
Plan (PDP) 2011-2016 for the fishery sector in areas of inclusive growth, poverty reduction,
improving the economic status of poor coastal communities, building the capacity of
communities and local administrations to manage their coastal resources better, improving the
productivity of inshore waters, exploration of the export potential of fisheries, improved food
security and nutrition and overall GDP growth. Likewise, the proposed project also contributes to
the attainment of the goals and targets of existing sectoral plans such as the Agri-Pinoy, the
Agricultural and Fisheries Modernisation Plan and the Fisheries Road Map. In addition, the
proposals for livelihood development support the Agribusiness Road Maps of the regions for the
fishery sector and the Regional Development Plans. Careful attention has been given to the
analysis of natural disaster risks and climate change concerns.
38. The Project is also complementary with and supportive of the government’s
Reconstruction Assistance to Yolanda (RAY, formerly Yolanda Recovery and Reconstruction
Plan) and particularly DA’s Rehabilitation Plan for the agriculture sector. As the DA will provide
for the fishing boats and fishing equipment as well as assistance to aquaculture (seaweed
nurseries, rehabilitation of marine culture parks and fingerlings distribution), the Project will
provide support for the rehabilitation of the coastal and fishery resources as well as recovery of
the livelihoods of fishing communities. The project will likewise contribute to increasing
community resiliency to natural hazards and climate-related risks.

6
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

D. IFAD Policy Alignment

39. The proposed Project is one of the three pipeline projects included in the IFAD Country
Strategic Opportunities Programme (COSOP) for 2010-2014 and the Project design is
consistent with the third of the Strategic Objectives of the IFAD’s Country Strategic Opportunities
Programme (COSOP) for 2010-2014. The third Strategic Objective is: “Selected marginalised
and poor communities dependent on coastal resources in Bicol, eastern Visayas, northern
Mindanao and ARMM have sustainable access to fisheries and other productive coastal
resources, use sustainable management practices and diversify livelihood opportunities to meet
their basic needs (in particular, food)”. Key crosscutting issues from the COSOP, which the
Project design will address include: (i) natural resource management within the context of
climate change; (ii) gender mainstreaming in development programmes; (iii) policy dialogues;
and (iv) support for decentralisation. The COSOP also supports the Government’s policies for
the NCI.
40. The proposed Project design aligns well with IFAD’s current strategic framework (2011-
2015) which focuses on: secure access to natural resources; climate change adaptation and
mitigation; improved agricultural technologies and effective production services; more
comprehensive financial services; integration into value chains through competitive agricultural
input and produce markets; rural enterprise development and off-farm employment
opportunities; technical and vocational education and training; and empowerment of rural poor
people through effective and sustainable rural producers’ organizations. In this context
agriculture includes fisheries.
41. The Project design is consistent with the UN Millennium Development Goals, namely
Poverty Reduction (Goal1), gender equality (Goal3) and environmental sustainability (Goal7).

E. IFAD’s Comparative Advantage in the Philippines

42. IFAD’s comparative advantage is based on the experience gained from the past and
ongoing operations that IFAD has helped finance and where IFAD has focused on helping the
Government to reduce poverty and food insecurity in rural areas. The following aspects of
IFAD’s experiences are relevant to the design of this Project. IFAD has assisted government
agencies to: (i) empower some of the poorest segments of the rural community to overcome
poverty, notably women and Indigenous Peoples (IP) living in highly fragile and vulnerable
ecosystems; (ii) reduce the incidence of rural poverty, using participatory community
empowerment as the main entry point and to ensure community ownership, development
effectiveness and sustainability of the interventions; (iii) support the development of small-scale
and micro-enterprises operated by the rural poor linked with the provision of credit; and (iv)
develop strong partnerships with government agencies (particularly recently with NEDA, DA,
DAR, DENR, the National Council for Indigenous Peoples, DTI and the Small Business
Corporation).
43. Based on experience elsewhere, IFAD support can also help introduce innovative
approaches and improved technology to address some of the pressing issues in the
management of the municipal fisheries e.g. the use of community organisations and
inclusion/adaption of pre-existing fisheries management systems in the management of small-
scale fisheries in partnership with the LGUs. All these strengths can support the proposed
Project.

II. PROJECT DESCRIPTION

A. Project Area and Target Group

44. Prior to working with the project design mission, BFAR23 carried out a series of
consultative meetings in the regions. The aim was to gather baseline information for use in
23 th th
From 24 July to 30 August 2012: the team consisted primarily of the Deputy Director Jessica Muñoz of the
BFAR-Project Management Office and Raul Roldan, a fisheries consultant. DA officers and BFAR regional
personnel joined the team during the visits to selected sites.

7
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

Project design, and to inform BFAR Regional Offices, LGUs, and POs about the proposed
Project, determine the status of fisheries and CRM in the bays visited, including issues and
potentials.

B. Selection of Project Areas

45. The selection criteria used by BFAR to select the target regions and provinces included
incidence of poverty, importance of municipal fisheries, identified as a priority for development,
staff availability, and presence of law enforcement authorities. BFAR used the flowing criteria to
select the target bays/gulfs criteria: (i) status of the fisheries and coastal resources and potential
for improvement; (ii) absence of other similar on-going projects/programmes; (iii) presence of 2-
3 target areas per region for cost effective management; (iv) no peace and order issues to
facilitate management and supervision; (v)a potential for scaling up activities supported by
previous foreign assistance; and (vi) the bays/gulfs with critical economic importance and
environmental significance.
46. The readiness criteria BFAR will use to select the LGUs for Project investment are as
follows: (i) willingness of the LGU to participate and contribute a share of the investment costs
as per the agreed cost sharing arrangements; and (ii) staff availability for Project
implementation. LGUs where the municipal waters have been delineated, where there is an
active and functioning Fisheries and Aquatic Resource Management Council (FARMC) and
where there are updated development plans (e.g. Coastal Resource Management Plan,
Municipal Development Plan, Comprehensive Land Use Plan etc.) will receive priority
assistance. Appendix 2 includes further details of the criteria used for geographical targeting.

C. Project Area
47. The Project will target 4 regions, i.e. Region5 in Luzon; 8 in Visayas; Region 13and ARMM
in Mindanao. The 11 target bays/gulfs proposed are follows: Region 5 (3 bays): Ragay Gulf
(Bicol side), Asid Gulf, Albay Gulf; Region 824 (4 bays): Leyte Gulf, Matarinao Bay; Maqueda
Bay, Silago-Cabalian Bay; Region 13 (2 bays): Butuan Bay, Lianga/Hinatuan/Bislig Bays;
ARMM (2 bays): Illana Bay and the area between Basilan and Sulu. These are the 11 priority
bays/gulfs based on the above selection criteria.
48. The 11 target bays are located in 14 provinces with 103 LGUs, either municipalities or
cities, bordering the bays/gulfs, and with 1,098 coastal barangays. The basic data for the Project
area are: (i) a population of 1,724,554 million belonging to 447,928 households (average size
3.85) living in the coastal barangays; (ii) 90,596 fishing households and 202,973 registered
fishermen; (iii) 35,921 motorised fishing boats (bancas) of 3 GT or less and 34,697 non-
motorised bancas; (iv) 771 registered people’s organisations (POs); (v) 439 Fisheries Law
Enforcement Teams (FLETs) or bantay-dagat; and (vi) 328 FARMCs. No details are available as
to the membership of the registered POs or the FARMCs or the size of the FLETs. The data
available by bay/gulf and LGU are shown in Working Paper 1 and summarised by region in
Appendix 2. The Map of Project Area shows the location of the bays/gulfs.

D. Fisheries and Coastal Resource Issues in the Target Bays/Gulfs

49. Many coastal households depend on fishing or related activities for their livelihoods.
Municipal fishermen use motorised bancas of 3 GT or less and non-motorised bancas.
Fishermen also use hook and line, fish traps and nets of standard mesh size. Some engage in
seaweed production and others in mud crab production, production of bangus fry and tilapia
production. Most of the fish catch is purchased by local traders or processed for danggit
production or as dried fish. Some of the fishermen engage in sea weed production, fish cage
culture etc. Other occupations are land based and include paddy and coconut production, pig
and chicken rearing, food vending and processing, operation of retail outlets and handicraft in

24
Leyte Gulf and Matarinao Bay were affected by Typhoon Yolanda. Initial assessment of the two bay/gulf and
proposed location specific interventions will be included in the pre-implementation phase of the Project as soon as
detailed damage assessment data is available.

8
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

ARMM.
50. There are similarities with respect to the fisheries issues and concerns among the target
bays. Over the years, the average fish catch has reportedly declined and is 2-3 kg per person
per trip (six hours) in lean months and 8-10 kg per person per trip (six hours) in peak months.
Related issues and concerns in the target bays are intrusion of commercial vessels, use of fine
mesh nets, dynamite fishing, and use of sodium cyanide, compressor fishing and degradation of
coral reefs. An additional issue concerns the mangroves due to the unsustainable cutting of
trees, conversion of mangrove forests to fishponds or settlements. Pollution, siltation and
erosion are other issues affecting the bays/gulfs. These problems have reduced the productivity
of the coastal resources and affect the livelihood of households dependent on fishing and
associated activities.
51. There has been some progress in adopting CRM interventions, e.g. delineation of the
boundaries of the municipal waters, the formation of FLETs, adoption of municipal fisheries
ordinances and establishment of fish sanctuaries and mangrove reserves. These interventions
are designed to help reduce the negative impact of overfishing and habitat destruction, and at
the same time, encourage coastal communities to participate in managing and protecting their
resources. However, these initiatives have often failed to live up to expectations and despite a
promising start and many have proved unsustainable because of a lack of resources to sustain
the activities after the end of Project assistance. Fisheries and coastal resources need to be
managed on a bay-wide basis and LGU bay-wide councils have been formed, e.g. in Lianga and
Hinatuan, Silago-Cabalian, and Matarinao. Many of these alliances are hampered by a lack of
resources and weak coordination preventing them from operating effectively. Others are
dormant. The failure to enforce the existing fisheries regulations and to manage the resources
sustainably is a major factor behind the continuing decline in the state of the coastal resources
and the inshore fisheries. The situation may now be aggravated by rising sea temperatures and
a loss of oxygen. The effects are fish kills, low fish catch, declining food supplies along the coral
reefs and poor growth of shells and corals destroying further the coastal and marine habitats.
Working Paper 2 includes a summary of the situation in each of the 11target bays.
52. The target bays/gulfs are a mix of areas that have either been the beneficiaries of past
foreign-assisted programmes, specifically the Fisheries Resource Management Project (1999-
2006), e.g. Butuan Bay and the Sustainable Management of Coastal Resources in Bicol and
Caraga Regions (SUMACORE), e.g. Lianga Bay and Hinatuan Bay, or those that will receive
significant foreign-funded assistance for the first time e.g. Silago-Cabalian Bay, Matarinao Bay,
and Illana Bay,. This situation presents BFAR with an opportunity to build on the previous
interventions, sustain the gains made, and strengthen partnerships formed with LGUs, POs,
other government agencies, NGOs, and academic institutions. Lessons learned, including best
CRM practices and useful experiences, will be adopted in the new bays.

E. Extent of Poverty in the Project Area

53. Fishing in municipal waters by small fishermen is seasonal. Fishermen fish during the
fishing seasons and engage in non-fishing activities at other times. They engage in farming,
animal raising, trading or selling labour. The average income for fishing households in the target
LGUs shown in data provided by BFAR and summarised in Appendix 2 is PHP 38,879 (USD 926
equivalent). Working Paper 1 includes the details data by LGU. The average incidence of
poverty is 42% in the 103 LGUs that border the target bays/gulfs compared with the national
average of 28%. Using the same data sources there are an estimated 188,130 poor households
living in the coastal barangays containing around 724,300 people. Of those living in the coastal
barangays, 90,596 are fishing households with an estimated 38,050 (146,495) living below the
poverty line, equal to 20% of the poor households. Of the poor fishing households an estimated
6,589 are women headed. An estimated 262,600 youth live below the poverty line in the coastal
areas, although around 57,130 belong to poor fishing households.
54. In the coastal barangays with the dependence on fishing and associated activities,
escaping poverty is even more difficult because of the absence of other livelihood opportunities
that could supplement fishing incomes. Some LGUs have small livelihood programmes, such as

9
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

pig and goat distribution, and other income generating activities (e.g. rice trading) for coastal
families. However, these are often unsuccessful because very few beneficiaries have the right
mindset and values for entrepreneurship or the necessary technical knowledge. In addition,
aquaculture sub-projects have had mixed results. A lack of technical support, failure to find
appropriate markets and typhoon damage are given as reasons for the lack of sustainability of
aquaculture projects. To be successful, aquaculture sub-projects should focus on priority
commodities for which remunerative markets have been identified, market access provided and
technical support provided. Because of their “high credit risk” status, fishermen, women and POs
cannot access loans from formal financing institutions to start or expand fishing and/or
aquaculture operations or other enterprises. Very often, they resort to moneylenders offering
high-interest loans that push them deeper into poverty.

F. Target Groups
55. The 90,596 poor households (160,572 people) living in the 1,098 coastal barangays are
the Project’s target group. Among this total are two sub-groups that would be the focus of the
Project’s interventions: (i) the estimated 38,050 poor fishing households (146,493 people); (ii)
unknown numbers of women-headed households and out of school youth, not included as
members of the fishing households; and (iii) Indigenous Peoples living in Region 13 (Hinatuan-
Bislig-Lianga Bay) and in ARMM (Illana Bay and Sulu Sea), although the numbers will have to
be determined during the baseline survey.
56. Presence of Indigenous Peoples (IP). No ancestral fishing grounds are reported in any
of the target bay/gulf sites. However, the data is incomplete in terms of identifying the tribes and
ethnic groups by barangay and it will be necessary to investigate this matter further during the
baseline survey. If there is a significant presence of IPs, a Free Prior and Informed Consent25 will
be needed by the Project in collaboration with the National Commission on Indigenous Peoples
(NCIP) when involving IP communities. A certificate of pre-condition can be facilitated so that a
Free Prior and Informed Consent will not be required in areas where IP do not dominate. The
sparse presence of IP in some places has created an environment where IPs are integrated
culturally into the mainstream of the fishing communities. Moreover, if IP are present in the
proposed coastal municipalities, the Project will obtain assistance from National Commission on
Indigenous Peoples which has a menu of programmes and project support and assistance they
can provide to the IPs.
57. The Project will also provide capacity building and training to the staff of the LGUs,
FARMCs and FLETs in the target areas and the BFAR staff in the regions and at the central
level. They need to upgrade their skills and technical knowledge on fisheries and coastal
resource management and development of alternative enterprise for the poor members of the
fishing communities.

G. Targeting
58. The main criteria for the selection of project beneficiaries will be based on the socio-
economic conditions of fishing households. The Project will target the potential beneficiaries by
first targeting eligible POs that are registered and which meet the Project’s eligibility criteria i.e.
willing to develop further their exiting activities or to introduce new ones in line with the wishes of
the membership. In addition, the Project will establish new POs in response to the demands
from the target group. Membership of the POs will comprise members of the target group either
self-selected based on their interest in the proposed livelihood enterprise(s) or by selection using
up-to-date lists of poor households from the Department of Social Welfare and Development
(DSWD) or by using participatory wealth ranking. New POs will be registered to the Department
of Labour and Employment, Securities and Exchange Commission, or Cooperative Development
Authority. These will be defined further in the project implementation manual.

25
The proponent has to identify which among the areas that need FPIC as well as the certificate of pre-condition.
BFAR has requested the BFAR Regional Offices of Caraga and ARMM to provide the information. This will be part
of the PY1 planned activities.

10
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

59. The provision of public goods, such as infrastructure and equipment support for coastal
resource management, and common service facilities will also benefit non-poor households,
some of whom may be members of the existing POs targeted. Examples are fish sanctuary
markers, equipment for the bantay dagat, watch towers and fishing jetties and access road
improvements.
60. In PY1, the focus of the Project will be on targeting the existing POs with the formation of
new POs starting in PY2. Appendix 2 has further details

H. Gender Mainstreaming
61. During the design mission’s regional visits, the women met requested that women should
account for a high percentage of the members and as leaders in the various POs supported by
the Project. To comply with the Magna Carta of Women for non-ARMM regions and the ARMM
Gender and Development Code, women should comprise 40% of the members and leaders in
the POs during Project implementation. The Project will adopt the following approaches for
mainstreaming gender considerations into Project implementation: (i) Project management will
review the “Gender Mainstreaming Strategic Focus of IFAD Projects” which was formulated by
the IFAD-Philippine Gender Network (IPGN) as a guide for the implementation of IFAD Projects;
(ii) training provided for Project staff, staff of other implementing agencies and beneficiaries will
be gender-relevant; (iii) the Project will become an active member of the IPGN in partnership
with all the on-going IFAD Projects in the country; (iv) Project management will identify gender
focal persons who will be a key officers in the central and regional Project Offices; (v) women
should account for 40-50% of the members and as officers/leaders of the POs and the
beneficiaries of the sub-projects; and (vi) there should be gender-balance in the selection and/or
recruitment of Project staff with a target of 30% women. The Social Development Service of
NEDA has the mandate for ensuring that gender is mainstreamed in foreign-assisted projects. In
ARMM, this responsibility lies with the Regional Economic and Development Office.

I. Project Design Framework

62. The proposed Project directly addresses the priorities defined in the Philippine
Development Plan (PDP) 2011-2016, Agri-Pinoy, the Agricultural and Fisheries Modernisation
Plan and the Fisheries Road Map and contribute to the national and regional priorities in the
fisheries sector under the PDP in areas of inclusive growth, poverty reduction, improving the
economic status of poor coastal communities, building the capacity of communities and local
administrations to manage their coastal resources better, improving the productivity of inshore
waters, exploration of the export potential of fisheries, improved food security and nutrition and
overall GDP growth. In addition, the proposals for livelihood development support the
Agribusiness Road Maps of the regions for the fishery sector and the Regional Development
Plans. Careful attention has been given to the analysis of natural disaster risks and climate
change concerns. The Figure below shows how the project is aligned with existing national and
sectoral plans in achieving the national goal of poverty reduction.
63. In terms of the legal framework the Project will follow the provisions of RA 7160 (Local
Government Code) that relate to municipal fisheries and the coastal zone and RA 8550
(Fisheries Code of the Philippines). Activities in ARMM will be based on the Implementing Rules
and Regulations of ARMM Aquatic and Fisheries Code of 1999 (MMAA no. 86, February 2006)
and the Provincial FATWA on Marine Environmental Protection and Conservation (2006). The
Executive Order No. 533 (2006) adopted Integrated Coastal Management as a national strategy
for the sustainable development of the country’s coastal and marine environment and resources.

11
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

Figure 1. FishCORAL Conceptual Framework

64. The proposed Project will adopt the ecosystem approach to CRM and include among its
interventions, activities that will protect both the aquatic and coastal zone habitats including
mangroves, coral reefs and sea grasses. The Project’s design adopts the bay-wide approach to
the management of the coastal resources and municipal fisheries involving contiguous
municipalities that need to work together to improve law enforcement and protect, rehabilitate
and sustainably manage the shared resources within the bays/gulfs. Project design gives careful
attention to the risks of natural disasters and increased climatic variability.
65. The Project’s investment in CRM and the development of alternative livelihoods for fishing
households will be in response to the investment plans of the LGUs and/or of their Municipal
Agriculture Offices, prepared by the LGU staff, community members and POs. In addition, the
Project will assist BFAR to support the management and development of the fisheries sector in
line with its mandate and to assist the LGUs to fulfil their mandate with respect to the
management of the municipal fisheries.
66. Project design gives careful attention to the natural disaster risks and climate change
concerns, improving law enforcement and introducing alternative livelihood activities that are
consistent with the BFAR regional commodity road maps and national priorities. Some sub-
projects have already been identified ready for implementation in PY1 and are included in this
report (Appendixes 4 and 10).
67. The Project’s design builds on the results, experience and lessons learned from past
foreign-assisted and government projects in the fisheries and coastal resource management
sector and past and ongoing IFAD projects (see below). The aim is to add value to the results
achieved by previous interventions, while not duplicating the activities of other projects currently
assisting the sector. The Project will complement and coordinate with existing and planned
projects of DA and others (e.g. Philippines Rural Development Project (the World Bank),
CONVERGE (IFAD), GROWTH (the World Bank), Integrated Environment and Natural Resource
Management Project (ADB-IFAD) and Environment and Ecosystems Improved for Sustainable
Fisheries (ECOFISH - USAID).

J. Development Objective and Impact Indicators

68. The overall goal of the Project is to contribute to reduced poverty in the target coastal
communities of the target bays/ecosystems indicated by a reduction of 5% from the mean

12
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

poverty incidence baseline of 42% of the target sites. Consequently, proxy indicators to measure
poverty reduction is a 22% increase in their household asset index from the baseline level and a
reduction in the incidence of child malnutrition (ages 0-59 months) of 5% from 24.4% for the
90,596 poor households located in the 1,098 covered coastal barangays. The Project’s
development objective is that coastal communities sustainably manage their fishery and coastal
resources generating livelihood benefits for the targeted households. The relevant indicators are
that by the end of the Project in the 103 municipalities/cities: (i) Annual income of participating
fishing households increased by 10% in real terms from the baseline; and (ii) Employment of
women engaged in income generating activities increased to 40% from baseline of 20%.26

K. Components/Outcomes
69. Based on the BFAR Concept Note and the priorities identified during the missions’ visits to
the regions, bays, municipalities and cities, the Project will have the following three components:
(i) Coastal Resource Management; (ii) Livelihood Development; and (iii) Project Management
and Coordination.
70. The expected outcomes are as follows:
 Component 1: Fishing communities adopted sustainable management of fishery and
coastal resources.
 Component 2: Income of fishing households in target coastal communities increased
through sustainable engagement in diversified livelihood activities.

71. The achievement of these outcomes will contribute to the Department of Agriculture’s
organizational outcome of “Improved conditions that is conducive for profitable, globally-
competitive and sustainable agri-fishery sector with empowered farmers, fisherfolk and other
stakeholders”. Contingent to the achievement of the outcomes are outputs and activities that
directly contribute to the Department’s major final outputs (MFOs) specifically on Technical
Support Services as the DA-BFAR is mandated to provide technical services to LGUs and
fisherfolks in the area of (i) production support; (ii) marketing support; and (iii) extension service,
education and training support. The capacity building activities that the project will provide are
aimed at improving the capacities of the BFAR in fulfilling its mandate to provide technical
services. Also, the project will provide small infrastructures and equipment that include multi-
purpose buildings with watchtower, patrol boat engines, fishery post-harvest facilities, hatcheries
and laboratories among others which fall under the Department’s MFOs on Agricultural and
Fishery Equipment and Facilities. Under the MFO on Credit Support Services, the project will
facilitate credit access of beneficiaries to financial institutions in the implementation of identified
community enterprises.
72. The Project’s logical framework includes the outcome indicators, the associated outputs
and the indicators for each of the three components. The following paragraphs describe the
three Project components and Appendix 4 has further details.

Component 1: Coastal Resource Management

73. Governance and legislation. Under the provisions of RA 7160, LGUs with a common
interest in the management of the municipal waters within a bay or gulf have formed Bay
Management Councils (BMCs) to undertake these tasks. However, in the Project area not all
these councils are active. The Project will assess the reasons for the lack of success of the
BMCs and facilitate the formation, re-activation and management of the operations of these
councils, including the adoption of bay wide fisheries ordinances, which bay wide management
of the municipal fisheries requires.

26
The inclusion of indicators in law enforcement such as decreased apprehensions and other similar types do not
accurately reflect effective law enforcement because a decrease in apprehension could also indicate decrease in
patrol activities. The Project chose indicators showing improvement in the fisheries resources (increased fish
density - indicating reduced fishing efforts, pollution, littering, etc.) and improvement of hard cover (indicating
increased patrols of dynamite fishing in the area) to reflect effective law enforcement.

13
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

74. The creation of Integrated Fisheries and Aquatic Resources Management Councils
(IFARMCs) is the legal basis for the formulation of the Integrated Fishery Development Plans (as
stated in RA 8550) and enactment of the Integrated Fishery Ordinances which are an integral
part of bay-wide management of the municipal fisheries and coastal resources. As part of the
bay-wide management approach, the project will also support interventions leading to the
creation of IFARMCs where no such organization exists and support their operation and that of
the existing IFARMCs. The role of the IFARMCs is to provide advice and recommendations on
fisheries management issues to the bay/gulf councils. In support of these initiatives, the Project
will also support FARMCs and the formation and their operation at the barangay, and municipal
levels. The Project will provide capacity building and technical and management support for the
FARMCs and IFARMCs and the enactment of Integrated Fishery Ordinances for the
management of the municipal fisheries on a bay-wide basis by the Bay Management Councils.
75. As part of the basic social inventory to be conducted (part of the baseline survey), the Project
will investigate whether any pre-existing small-scale fisheries management systems exist, since
they could enhance LGU management capacity. The Project will also assist BFAR to enhance its
capacity to analyse the components and functions of management systems for small-scale fisheries
and their communities, e.g. through workshops and seminars at the national, regional and local
levels.
76. As part of the bay-wide approach to the management of the municipal fisheries, the
Project will support the participation of the local fishing communities in the management of the
municipal fisheries and coastal resources with the LGUs as required under RA 8550, by
incorporating any pre-existing fisheries management systems. This will complement the formal
methods of law enforcement to be supported by the Project. Awareness-raising through
Information, Education and Communication (IEC) and training will be provided to the local
fishing communities to understand the importance of joint management of the local fisheries and
coastal resources together with the local governments and the impact on their livelihood.
77. In addition, the Project will also assist the LGUs to introduce and/or complete the following:
(i) registration of municipal fishermen, their motorised and non-motorised fishing vessels and
fishing gears; and (ii) introduction of a municipal licensing system for fishermen, fishing vessels
and fishing gears and collection of associated licensing revenues and their use to support
enforcement of the Fisheries Ordinances. Institutional arrangements must be in place to ensure
that the revenues and money collected from registration fees will help the LGUs to finance
fisheries and coastal resource management.
78. Overfishing is a common problem in most coastal municipalities in the country caused by
illegal fishing and high population density along the coastline and has resulted in the decrease in
municipal fishery production in most areas. However, data gaps exist especially in the
monitoring of fish landings and fishing efforts. To address overfishing, the project will support law
enforcement and regulatory activities of LGUs to manage fishing efforts and at the same time
provide alternative marine and land based livelihood opportunities to contribute to a reduced
level of overfishing.
79. Equally important in the management and governance of the coastal and fishery resources
is to have reliable, accurate and timely information on fishing efforts in the target bays for a more
informed decision-making by the BFAR and the LGUs. As data gaps exist especially in the
monitoring of fish landings and fishing efforts, the Project will also examine the problem of
landing, catch and effort statistics by having fishing households record data on a regular basis
as part of the project’s M&E system. This has been done successfully in other countries, where
the close involvement of fishermen in contributing to the solution of one of their major problems
has provided a considerable incentive to induce them to participate in the general management
of the aquatic resources. The geographical area or fishing ground in which catches are made
will be recorded based on the scientifically verified empirical knowledge of fishermen. BFAR and
the LGUs can then propose policy measures to appropriately address coastal and fishery
resource management issues such as illegal and overfishing and determine the actual source of
fisheries produced, based on sound, reliable and timely information. In addition, household
income data will be collected as part of the outcome surveys and mid-term and completion

14
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

impact surveys.
80. In support of the legislative aspects of this component, the Project will finance through a
contract with a qualified service provider27 a review of the existing relevant legislation. The
review will cover the provisions of RA 7160 (Local Government Code) that relate to municipal
fisheries and the coastal zone, RA 8550 (Fisheries Code of the Philippines) and other legislation
relevant to the municipal fisheries and coastal zone e.g. the corresponding legislation that
governs fisheries in ARMM. RA 8550 which was enacted in 1998 was due for review by 2008.
Municipal fishery ordinances will also be reviewed in consideration of the proposed changes in
the Fisheries Code. After the Mid-term Review, the Project could pilot proposed changes to the
Codes with respect to the municipal fisheries in selected locations.
81. In addition, the Project will assess how LGUs can provide sustainable financing for the
protection of coastal and fishery resources, including the costs of law enforcement teams
(honorariums, insurance, fuel, repairs, maintenance of watch towers etc.) and the costs of CRM,
e.g. valuing and paying for environmental services provided by coastal communities, ecotourism
levies, revenues from registration, licensing and apprehensions, fixed allocations from LGU
budgets. The Project will coordinate with the USAID ECOFISH which will be looking at the same
issues but in other bays/gulfs.
82. Improving the governance regime in the target bays through the strengthening of inter-
LGU coordination, improved regulatory policies at the national and local level backed-up by
reliable and timely information along with improved and sustained coastal law enforcement are
deemed important in addressing illegal and overfishing in the target areas.
83. Law enforcement. Local governments are mandated to ensure compliance with the
Fisheries Code and local fisheries ordinances and associated costs of the bantay dagats. To
reinforce the bantay dagat at the barangay and LGU levels, BFAR will organize and strengthen
law enforcement teams composed of coast guards and police personnel to apprehend violators,
as has been done by the FISH Project in Cebu. This will require a Memorandum of Agreement
(MOA) between BFAR, the police and coast guards. In addition, the Project will assess the types
and social and economic characteristics of illegal fishing and propose ways to address this
complex issue e.g. revised local regulations etc.
84. The Project will strengthen the existing FLETs through the provision of equipment and
training. The Project will provide patrol boat engines, GPS and communication equipment,
heavy duty search lights, night vision binoculars, megaphone, and other necessary
paraphernalia. The BFAR on the other hand will provide the patrol boat body under its regular
agency budget. The BFAR provincial offices will also receive a larger engine for their patrol boat
and similar equipment, including an air compressor. The existing BFAR FLET training modules
will be used in trainings to be conducted by qualified personnel from BFAR.
85. The Project will assist LGUs to improve the following: coordination functions with BFAR
and other relevant agencies, the fisheries database and reporting system and revenue
generation from registration fees, fines, and fees for resource use etc. to help finance the law
enforcement activities and the management of the coastal resources. The Project will also
finance the construction of watch towers to support the FLET and management of the FS (see
below).
86. LGU coastal resource management (CRM) plans. The general framework of the CRM
plans will follow the principles of the eco-system approach for fisheries management (EAFM).
Consequently, the whole bay will be considered as one management unit including both the
coastal, marine and land-based ecosystems. Integrated Bay-wide CRM and fisheries plans will
be formulated by the LGUs through the Bay Management Councils together with IFARMCs and
BFAR. Settlement of disputes on municipal boundaries disputes to establish clear municipal
waters delineation rests on the concerned LGUs. Based on past experiences, this issue does
not interfere with implementation of CRM interventions.

27
Financed from the IFAD grant.

15
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

87. CRM plans will be updated and further developed to become CRM Investment Plans and
to form part of a Comprehensive Land and Water Use Plan (CLWUP) of the LGUs. These
updated CRM plans will consider the complexity of environmental, biological, geophysical,
institutional and socioeconomic concerns. The Plans will be prepared in a participatory way by
the LGUs and will involve the participation of barangay officials, POs (where existing), NGOs,
and private sector organizations. These CRM plans will be integrated into the Municipal/City
Development Plans, for review, approval and subsequent implementation by the LGUs. Within
the CRM/Development Plans, sub-projects for possible Project funding will be submitted for
review and approval by the Project management. Some sub-projects are ready for
implementation in PY1 (Appendix 4).
88. The updated CRM plans will emphasise: (i) coastal marine zoning for inclusion in the
municipal zoning ordinance; and (ii) disaster risk reduction and climate change vulnerability
information and maps, especially those that will impact the location, development, and
implementation of livelihood projects (facilities and infrastructure) and identify danger zones in
the community. The CRM plans will include investment to protect and enhance the coastal
resources including protection from land-based activities, schemes for livelihood diversification
and improvement, including those involving eco-tourism and associated infrastructure
investments. Selection of livelihood enterprises will support the regional agribusiness commodity
road maps (where available). The Integrated Coastal Resources Management Project manual
for enterprise development will be reviewed and adapted for use by the Project. As a rule, the
fishing communities are advised not to engage in marine based cultivation or farming activities
where mining operations have a negative environmental impact.
89. CRM plans will contain disaster risk reduction and climate change vulnerability information
and maps and identify any danger zones in the community. The plans will contain an innovative
IEC strategy for CRM stakeholders and decision makers. The LGU/BMC-CRM plans must be in
line with the Philippine Development Plan and the Regional Development Plan, and support the
DA/BFAR Agribusiness Road Maps. The CRM plans will include strategies to implement the
convergence programme of the national government involving other agencies e.g. DSWD,
Department of Labour and Employment (DOLE), NEDA, DENR, Department of Interior and
Local Government (DILG), etc.
90. During CRM planning, issues relating to the inland upland areas which influence coastal
marine areas will be identified and assistance sought from the DENR National Greening
Programme and other relevant environmental/watershed development programmes. The Project
will finance the costs of the participatory planning sessions which will be led by Municipal
Planning and Development Officer and co-headed by Municipal Agriculture Office (MAO) with
technical support from BFAR staff and DENR. The project will provide training and capacity
building to the MAO staff. Where feasible, LGUs will be encouraged to hire additional technical
staff on job orders to complement their existing staff for project implementation. The regional
offices will be requested to provide the list of MAO personnel to be involved in the Project.
91. To enhance sustainability, the Project will assist LGUs to institutionalise the arrangements
for funding CRM (and law enforcement) after the end of Project assistance, by using an
increasing volume of internally generated funds (fees, etc.) as well as a share of their
development budgets.
92. The Project-hired Community Facilitators (CFs) (see below) will play a vital role in LGU
CRM planning, to ensure that the interventions will not damage the environment or be exposed
to unnecessary risks from natural and man-made factors e.g. pollutions, floods, erosion,
landslides, etc. The CFs will work closely with the BFAR Bay Regulatory Officers on bay wide
concerns.
93. Resource rehabilitation. The Project will finance sub-projects for resource rehabilitation
proposed in the CRM plans. Mangroves, sea-grasses, coral reefs and beaches will be managed

16
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

using the ecosystem approach28. Suitable mangrove species will be used for planting in line with
their specific purposes. Fish Sanctuaries (FS) will be established and managed, including
management of existing ones. The status of the FS and other protected areas will be assessed
by the LGUs with the assistance of BFAR through the baseline Rapid Participatory Resource
and Social Assessment (RPRSA) (Component 3). The Project will support a network of
protected habitats to maximise the impact of the interventions. Artificial coral reefs will be
provided where appropriate and there is a need. Conservation and management projects for
charismatic species (marine turtles, dugong, etc.) will be linked with proposals for eco-tourism,
networking of protected areas, and bay-wide management. The Project will help protect,
enhance and rehabilitate the municipal fisheries’ resources, e.g. through stock enhancement in
protected areas, following the BFAR principles and guidelines for stock enhancement, using
juveniles and adults from hatcheries operated by BFAR, State Universities and Colleges and the
private sector.
94. The resource rehabilitation activities of the Project will also help restore the productivity of
the coastal and fishery resources in Typhoon Yolanda affected sites in Region 8. The Project will
provide support for the rehabilitation of the coastal and fishery resources as well as recovery of
the livelihoods of affected fishing communities. The project will likewise contribute to increasing
community resiliency to natural hazards and climate-related risks.
95. Infrastructure and equipment support. The Project will provide each bay, with a BMC, a
Bay Management and Multi-Purpose Building (BMMPB): a two-storey concrete building with a
roof deck and extended watch tower serving as an observation platform with accommodation for
guards and storage for equipment including the radio base station. The ground floor will be a
learning centre with Information, Education and Communication (IEC) materials about the bay
resources and its programmes, while the second level will house the office of the BMC and
IFARMC with a meeting area. The BMMPB with Watch Tower will be built in each of the 11 bays/
gulfs to serve as satellite office for the Bay Management Council and IFARMC. It will also serve
as information center.
96. In addition, the Project will provide a standalone concrete watch (look-out) tower with
guard house in each participating municipality. The tower will be provided with surveillance and
communication equipment linked to the base at the BMC building. A Watch Tower will be
provided to all the 103 municipalities for law enforcement activities within the municipalities with
the communication equipment linked to the MPB and Watch Tower in each bay. This will be
strategically placed at the most accessible place, preferably at a central location within the bay.
97. As part of CRM plans, the Project will finance delineation markers for identified FS within
the target bays. To avoid pilferage of markers, the Project will use empty plastic drums as buoys
anchored by galvanised chains tied to concrete anchor blocks on the sea bed. While galvanized
chains may also be prone to pilferage, anchor ties made of used tyres or strands of fishing nylon
chords will be tried to eliminate possible theft. The LGUs will be fully responsible for the
operation and maintenance of the infrastructure and equipment provided by the project during
and after the project implementation period, with the support of IFARMCs. The scope, eligibility
criteria, administration and maintenance of all infrastructure and equipment support to the LGUs
are detailed in Working Paper 4: Rural Infrastructure.

Component 2: Livelihood Development

98. Organizational strengthening. As already noted, BFAR will hire CFs, preferably from the
within the municipality of assignment, to be based in the Municipal/city Agricultural Office (MAO)
with technical guidance and support provided by the regional BFAR institutions and gender
specialist. The qualified community facilitators will be assigned to target areas (5-7 barangays
per CF) The CFs will assist the POs and their members with the proposed livelihood sub-

28
Bay-wide approach is jurisdictional with the bay taken as one ecological unit, consisting of different municipalities;
part of the governance component of EAFM. Ecosystem approach to fisheries management (EAFM) refers to
governance, resource and human settlement that go beyond bay-wide approach. This FAO concept has not been
applied to previous projects.

17
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

projects as well as with CRM related activities such as resource protection and rehabilitation
where active participation of community members are deemed important.
99. In line with the proposals for livelihood development included in the CRM plan, suitable
existing POs will be supported or reactivated and new POs established following the Project’s
targeting arrangements.
100. In addition to the technical aspects of the selected livelihood enterprises, the following will
be key elements of the training modules for the POs: group organisation and management,
basic entrepreneurship, business management, value-chain concepts and approaches, coastal
resource management and gender mainstreaming. The CFs and BFAR staff will provide the
training with the assistance of other agencies (e.g. DTI, Department of Tourism (DOT), the
Department of Science and Technology (DOST), Business Development Service Providers,
Southeast Asian Fisheries Development Centre when required.
101. The project will facilitate the transformation of beneficiaries into rural entrepreneurs. As
such organizational strengthening will also facilitate the conduct of needs analysis to identify
other special assistance that will be required by project beneficiaries other than the identification
and implementation of chosen livelihood/enterprise projects. The hired CF will facilitate the
conduct of a needs analysis. The Project will finance the costs of employing the CFs (salaries,
fuel and travel allowances, training, extension materials and supplies, etc.).
102. Promotion of micro-enterprises. There will be no project support for increasing fishing
effort, or provision of fishing gear29.The Project will promote post-harvest management,
environment-friendly livelihood enterprises identified in the approved CRM plans, e.g. fisheries
related enterprises (e.g. cage culture, marine-culture, sea weed culture and fish processing),
sustainable tourism and other appropriate enterprises. These enterprises will aim to diversify
and increase the incomes of the poor fishing households and other poor households living in the
target coastal communities. Enterprises will be undertaken by the individuals or groups of PO
members or by the PO as an entity. As a rule, the fishing communities are advised not to engage
in marine based cultivation or farming activities where mining operations have a negative
environmental impact. The identification of livelihood and enterprise projects will include an
analysis of the gaps and constraints both of the resource and its market so that appropriate
project interventions can be put in place to ensure project’s sustainability. These sub-projects will
be selected with due consideration to its suitability in the specific sites as well as the availability
of the resources and its sustainability. The type of livelihood to be implemented ranges from
fishery to non-fishery which would include agriculture and fishery production, post-harvest and
processing. The POs and/or LGU counterpart is set at 10% of the project cost which can be in
cash or in kind. LGUs already expressed willingness to counterpart/ participate in the project
during project consultation/ meetings with LGUs. Sub-project proposals, including costs and
financing, have been prepared for all the bays/gulfs and were presented as the PY1 proposed
sub-projects to avoid ambiguous demand-driven budget allocation. The same will apply to the
subprojects for the PY 2 which will be subsequently prepared during PY1 and onwards for the
project financing.
103. Fisheries livelihood sub-projects should have the following characteristics: (i) a quick
turnover; (ii) will not further degrade the environment or deplete any resources (e.g. focus on the
use of juveniles of hatchery–bred species); (iii) use technology suited to the technical capacity of
the producers; (iv) focus on species with market prices that are attractive to the producers; (iv)
be able to access technical and managerial support from BFAR (national and regional levels),
with the participation of DA-ATI, DENR, DTI, DOST, DSWD and the private sector as needed; (v)
when specific enterprises and products are identified, provision of support to undertake
feasibility studies to assess demand potentials, market access, opportunities for value addition
and opportunities to secure partnership with the private sector; and (vi) include knowledge

29
The policy of not supporting any livelihood sub-projects that will increase fishing effort (such as provision of fishing
boats) and provision of fishing gear (e.g. fishnets) is to ensure the improvement of coastal resources. Regulations
on fish cages/ pens are under the jurisdiction of the LGUs which the Project will support through assistance in
updating/ further development of the municipal CRM Plans.

18
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

management and learning to ensure that the experiences and lessons learned are available to
improve Project performance and for wider dissemination.
104. Opportunities may also exist for the Project to support value adding enterprises, e.g.
rabbit-fish in Barobo, sardines in Butuan Bay, and Illana Bays, to maximize their value to the
fishing households, especially during peak seasons when prices of fresh fish can be very low.
However, Unified Fisheries Ordinances and CRM plans should be enacted prior to starting
livelihood activities in order to protect seemingly abundant species from over-exploitation, e. g.
rabbit-fish in Matarinao Bay.
105. Where market-led opportunities exist, the Project will promote non-fishery enterprises to
provide additional income for poor fishing households. Examples of possible enterprises are
rice, meat and food trading, livestock rearing, banana chips production, and handicrafts etc.
Mitigation measures for some identified feasible livelihood and enterprise will be put in place to
prevent further environmental degradation, waste generation and over-exploitation of resources.
The list of the typology of eligible and non-eligible livelihood and enterprise is provided under
Attachment 2 of Appendix 4.
106. The Project will provide PHP 100,000 (around USD 2,500) per eligible PO activity
(average of 20 members) to support the initial development of individual livelihood enterprises
for members of the fishing communities. This proposed allocation is based on the estimated
average required for a group to make a profitable and sustainable investment enterprise in the
project area. The maximum amount is set to support initial development for livelihood sub-
projects in order to put a cap on the Project’s cash contribution with expected additional
contribution (cash or in-kind) from the beneficiary PO/ LGUs POs and beneficiaries will provide
the remaining investment funds in cash and/or kind. The Project financed inputs for the
livelihood enterprise will be provided as a package combined with the provision of training for the
members of the POs. Training will include both technical skills and the business development
aspects of operating livelihood enterprises. Subsequent cycles will be financed from the income
earned, while successful enterprises can access micro-finance institutions (MFI) or NGO
sources to finance future expansion of their enterprises.
107. The Project will institutionalise the role of BFAR in assisting livelihood enterprises by
strengthening and enhancing the capabilities of their existing fish hatcheries to sustain their role
as a source of juveniles of cage culture species. Other sources of juveniles that the Project and
POs can use are the State Universities and Colleges and the private sector. Hatchery
establishment and operation could be a livelihood enterprise for some experienced POs.
108. The Project will promote and assist LGUs in the development of ecotourism and
agricultural tourism where appropriate. LGUs will promote sustainable tourism-based enterprises
especially with well-managed Fish Sanctuaries (Silago-Cabalian Bay area), where tourists will
pay to access the resources without consuming them. It is expected that women will have a
substantial role in staffing sustainable tourism projects.
109. Infrastructure and equipment support. The Project will, in addition, finance
infrastructure facilities in support to seaweed production, e.g. rehabilitation, expansion, or
establishment of communal seaweed solar dryers on stilts with small storage facility for areas
with existing and proposed seaweed plantations.
110. In locations without a sufficient length of beach, the Project will support the construction of
fish landing facilities in the form of boulder riprap jetties or small timber ports. Floating fish
landing structures or “pontoons” made out of empty plastic drums and timber planks anchored to
the sea bed can also be constructed if feasible. Fish trading (bagsakan) centres will not be
financed under the Project as there are municipal public markets which can be used by the
fishermen.
111. Mini ice plants with cold storage facilities (chest-type freezers and mobile ice makers),
smoke houses, store houses and fish/seaweed dryers may be needed if justified by the volumes
of fish available. These common service facilities can be financed by the Project but will be
managed by qualified POs under sound arrangements with the concerned LGUs.

19
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

112. Some of the regional BFAR hatcheries need improvement, expansion and equipment (e.g.
Tiwi and Bacacay hatchery in Albay) which the Project can finance. The community-based
marine hatchery as piloted by BFAR-ARMM will be expanded and this model will be adopted in
other regions if found effective and efficient rather than providing new government owned and
operated facilities. The LGUs will be fully responsible for the operation and maintenance of the
infrastructure and equipment provided by the project during and after the project implementation
period, with the support of IFARMCs. The scope, eligibility criteria, administration and
maintenance of all infrastructure and equipment support to the LGUs are detailed in Working
Paper 4: Rural Infrastructure.

Component 3: Project Management and Coordination

113. This Component will enhance the capacity of LGUs30 to manage sustainably the coastal
and fishery resources in the target bays31. Likewise, the Project will improve the technical
capacity of BFAR to effectively provide technical support to LGUs to protect and develop the
natural resources and support the fishing households in the target bays.
114. To improve the services provided to the sector for the management of the municipal
fisheries and coastal resources, BFAR prepared a Rationalisation Plan, pending final approval
by DBM, now termed the Reorganisation Plan32 for the provision of services needed by the
fishing communities and LGUs. This Plan includes the provision of additional staff with greater
numbers especially at the sub-national level. Meanwhile, DBM has approved the hiring of 400
additional contract staff by BFAR, as Bay Wide Regulatory Officers, to improve the management
of the fisheries and coastal resources nationally. The Project will include TA to assist BFAR in
implementing the Reorganisation Plan in the four target regions.
115. This component will finance the Project management and coordination structures and
associated monitoring and evaluation (M&E) mechanisms at national, regional bay wide and
city/municipality levels. The project will provide support to an assessment of training needs of
M/CPMO and financial institution staff skills required and finance required professional and
practical training through qualified service provider(s) to these groups during implementation.
The Project will finance the salary costs of hired staff and salary supplements for Project-
assigned government staff and other associated costs, e.g. office equipment, transport, training,
and operating costs. To address some technical limitations of the staff of BFAR and the LGUs,
the Project will hire consultants/service providers (individuals, private firms, academic
institutions, or NGOs) to provide the expertise required and to transfer that expertise to the
BFAR and LGU staff.
116. FishCORAL Component Inter-linkages. The implementation of the Project components
is not independent of each other but rather interlinked with each other. Figure below the process
flow that shows the relationships of the project components and activities. The process flow
indicated that results of specific project component and activities serves as a process input to
other relevant project components and activities.
117. The FishCORAL process flows show the importance of strengthening capacities of the
BFAR, LGUs and communities in the achievement of the desired project outcome of having
coastal communities sustainably manage their fishery and coastal resources generating
livelihood benefits for fishing. Strengthened capacities of LGUs and communities enhance the
implementation of CRM and livelihood development activities. For the CRM component, critical
is the formulation of an integrated CRM Plan that would outline the difference strategies that will
improve governance of coastal and marine resources (i.e. law enforcement) and resource
rehabilitation activities. Moreover CRM plan will also contains the different livelihood and
enterprise projects that will help improve the economic status of fishing communities. Reducing
30
RA 8550 states that the municipal/city government, in consultation with the FARMC shall be responsible for the
management, conservation, development, protection, utilization, and disposition of all fish and fishery/aquatic
resources within their respective municipal waters.
31
The project will not duplicate the capacity building activities envisaged under the recently launched ECOFISH
project.
32
As of October 2014, the Reorganisation Plan is not yet officially approved but discussions with DBM are on-going.

20
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

pressure on the coastal and fishery resources is addressed by the project thru a two-pronged
approach, regulation and provision of alternative economic opportunities. Also contingent to the
successful implementation of the project activities is having a strong organization at the
community level that ensures sustained resource management and enterprise activities. A
strong project coordination and management ensures that all project activities are implemented
in a timely, effective and efficient manner.

L. Lessons Learned and Adherence to IFAD Policies

118. The following important lessons based on past experience come from the implementation
of previous programmes and projects33(Asian Development Bank, World Bank, USAID, Global
Environment Fund) which the Project design takes into account as indicated below, by subject
area:
(i) Strengthening local institutions. LGUs need to strengthen their capacity to manage
sustainably their fisheries and coastal resources in line with their mandate and BFAR
should assist them by providing the technical and managerial support required. Project
design includes activities to develop the capacity of LGUs with respect to coastal
resources, including fisheries, management and supporting the development of
alternative livelihoods for marginal fishing households. The Project will also need to
assist BFAR so it has the capacity to provide the technical support required by the
LGUs and enable the delivery of other services from agencies such as DTI, DOST,
academic institutions etc.
(ii) Participatory planning. There is a need for coastal management plans to be
comprehensive. During the Project, the LGU coastal management plans, developed
and/or updated through a community participation process, will integrate a
comprehensive set of interventions in the coastal zone, in line with the issues and

33
From the Asian Development Bank Report and Recommendation of the President for ICRMP, 2006

21
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

needs of the individual LGU. Project interventions may include: (i) preparing regulations
for fisheries’ management and the use of other coastal resources; and (ii) establishing
marine sanctuaries, and foreshore and shoreline management.
(iii) Legislation. Enforcement of national and local laws for integrated CRM is essential and
Project design includes support for developing the capacity of the volunteer Fisheries
Law Enforcement Teams (FLETs), while BFAR will organize law enforcement teams
composed of coast guards and police personnel to apprehend violators, as has been
done by the FISH Project in Cebu. In addition, a mechanism is needed for determining
and delineating responsibilities between the national Government and LGUs. Project
design includes assistance for policy related studies which will include a review of both
the Fisheries Code (RA 8550) which is overdue and the fisheries provisions of the Local
Government Code (RA 7160).One issue is the potential overlap between the BMCs and
IFARMCs. Policy initiatives should be supported by information, education and
communication (IEC) campaigns and provide for adequate preparation of the local
communities. Project design supports this approach.
(iv) Income diversification. While enterprise development and alternative livelihoods for
the members of the fishing households are essential to reduce pressure on coastal
fisheries, their implementation should precede conservation initiatives, provide for
adequate social preparation of beneficiaries. The Project design adopts this approach
shown by the PY1 sub-project proposals (Appendix 4) which focus on livelihood
development, predominantly aquaculture investments.
(v) Changes to project design. The IFAD approach to the Annual Work Plan and
Budgeting process allows necessary changes/modifications to be made to the original
design based on the progress of implementation, changes to design parameters and
institutional and policy changes.
(vi) Links with other projects. Links with similar ongoing projects should be built into the
project design. Project design includes collaboration with the USAID ECOFISH project
which operates in non-target bays/gulfs but has some similar activities to those of
FishCORAL.
(vii) Institutional and financial sustainability. Project designs should emphasise
institutional and financial sustainability of conservation and management initiatives. This
is critical for the LGUs if they are to continue to finance the costs of the Project’s
conservation and management initiatives after the end of the project. Working Paper 8
includes a case study, which analyses for a typical LGU the potential costs and returns
associated with the conservation and management of the inshore fisheries and coastal
resources.
119. The Project design has also built on the following lessons learned from IFAD’s experience
in the Philippines and especially from the Rural Micro-Enterprise Promotion Programme
(RuMEPP) and the Second Cordillera Highland Agricultural Resource Management Project
(CHARMP2) during the first part of the COSOP period 2010-2014. First, the Project design is
simple with only three components and with one government agency, BFAR, with overall
responsibility for Project implementation and coordination with the supporting roles and
responsibilities of the others as specified through Memoranda of Agreements (MOAs).
120. Second, Project support will not be limited to institutional support, technology transfer and
inputs for demonstrations and trials, but will also provide initial financial support to rural
households that want to start the process of becoming entrepreneurial. Combining training with
the provision of the Project financed inputs as a package builds on the successful RuMEPP
experience.
121. Third, Project design includes the active participation by the beneficiaries and their
continuous interaction with the implementing agencies (especially BFAR and LGUs). LGU
participation is critical as under decentralisation and the fisheries code, the cities and
municipalities have the mandate for the management of the inshore fisheries. In addition, the
LGUs will be co-financiers for the rural infrastructure investments, but the LGU share must be
affordable, which was not the case prior to the suspension of the NG:LGU cost sharing policy in
2011, as illustrated by the delays experienced by the CHARMP2 infrastructure component. As

22
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

requested by DA, the Project will follow the 90:10 national, local government cost sharing
arrangement agreed among DA, DENR, the Department of Agrarian Reform and DILG (20th July
2012) which was endorsed by the DA Secretary to NEDA on 27th September 2012.
122. Fourth, the employment of NGOs is often seen as the most appropriate way to mobilise
communities, but the CHARMP2 experience does not support this assessment. Some NGOs
operated as outside contractors rather than as true community facilitators. In addition, other
projects (Fisheries Sector Programme and Fisheries Resource Management Project) found that
the availability of capable local NGOs is often overestimated. To avoid this problem, the Project
design includes community facilitators, recruited locally, and based in the LGU but employed by
BFAR. The community facilitators will have appropriate TOR, and terms and conditions of
employment and appropriate technical and managerial supervision. Locally recruited staff should
have a greater commitment to assisting the community than those from coming from outside the
community.
123. A final lesson from all recently completed and ongoing IFAD assisted projects concerns the
need for good M&E and knowledge management (KM) arrangements. The Project design
includes M&E arrangements with as few indicators as possible in the logical framework so that
the M&E system is within the capabilities of Project staff with some support. With an increasing
demand for indicators both from the Government and IFAD there is a danger of project M&E
becoming a “project on its own”, rather than primarily a management tool.
124. As described in this Project Design Report and associated Appendixes and Working
Papers, the Project design is consistent with key IFAD policies relating to targeting, gender,
Indigenous Peoples, private sector participation and rural financial services.

III. PROJECT IMPLEMENTATION

A. Approach

Phasing of project implementation

125. The phasing of the project implementation will be based on the readiness of the POs,
LGUs, bays and regions. The livelihood development sub-projects to be financed will be aligned
with the priority commodities identified by the BFAR Regional Roadmaps. This will help ensure
that the sub-projects are suitable for the target locations and thus contribute to their
sustainability. In PY1, implementation will focus on the sub-projects that have already been
prepared and where investment can start immediately. The eligible livelihood subprojects,
infrastructure and equipment should cover the three Project components. These sub-project
proposals have been prepared following the guidelines agreed with BFAR during the Project
Design Mission (October/November 2012) and are fully endorsed by the LGUs and FARMCs in
the target municipalities/provinces. These proposals involve some of the LGUs (not necessarily
all) in the bays with feasible and viable proposals. The LGUs that agree to include their required
counterpart contribution in their annual investment programme for 2014 will implement these
investments starting in PY1. In this regard, readiness criteria will be included in the revised
Project Design Report. The annual supervision missions and implementation support missions
will review the readiness of the bays and LGUs in terms of their sub-project proposals and
staffing and management resources available in consultation with the regional offices and BFAR.
Based on the current status of the detailed investment proposals already prepared in the
regions, the Project financed investments are expected to start in two bays in each region in
PY1, with investments starting in the remaining bays thereafter. Each bay would receive Project
support for five years with a total Project period of seven years.
126. Moreover, in order to assist to the needs of the communities in Typhoon Yolanda affected
areas, livelihood and enterprise development activities will be implemented in PY1 contingent
with BFAR’s assessment of the extent of impact of Typhoon Yolanda on the ecosystem and the
communities.
127. The following are key elements of the Project’s implementation approach. First the Project

23
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

will use the Ecosystem Approach for Fisheries Management. In this approach, the
bay/ecosystem is seen as a single and common resource system. The LGUs which share
common resources, and are responsible for the management of the municipal fisheries and
coastal resources, will be encouraged to coordinate with each other to manage the resources
sustainably through the Bay. Such an approach requires enforcement of the fisheries
ordinances, establishing systems to ensure sufficient financial resources in the long-term for law
enforcement and the management of the resources and improving the arrangements for
involving the fishing communities in the management of the resources, through their POs, the
FARMCs and the inclusion of pre-existing fisheries management systems. Thus, BMC will be
strengthened and/or created and IFARMCs will be a key for close collaboration among LGUs in
the management of the bay/gulfs’ ecosystems.
128. Second, the Project will finance activities that have been identified by the coastal
communities, and the municipal/city authorities and have been included in the LGU
development/investment plans. Suitable sub-projects have already been identified and prepared
by the LGUs and POs for implementation starting in PY1 so that their implementation can start
immediately after the Project is effective. Thereafter, sub-projects will continue to be identified,
prepared and submitted for approval and subsequent implementation. The first group of sub-
projects in PY1 will be implemented to draw lessons to benefit and improve the project
implementation in other areas. Attachment 7 lists the proposed sub-projects for PY1.
129. Third, Project implementation arrangements will follow the procedures of the government
and the mandates of the respective national government agencies and those at the regional,
provincial and city/municipal levels. The Project will operate within the government’s framework
for decentralisation and as part of the national convergence initiative (NCI). There will be no
Project implementation arrangements operating parallel to those of the Government. The Project
will use Public-Private Partnerships where appropriate.
130. Finally, once the baseline survey has identified the presence of IPs, consultations will be
held with NCIP. Where IPs are found to be living in any of the target coastal communities, the
Project will follow the approach and procedures prescribed by NCIP for engaging IPs in
development.

B. Organizational Framework

Bureau of Fisheries and Aquatic Resources

131. BFAR, a line bureau of DA, is the agency responsible for the development, improvement,
management and conservation of the country's fisheries and aquatic resources and will be the
Project’s lead implementing agency. BFAR will have full responsibility for Project administration
and management. BFAR will use its existing structures at national, regional, and provincial levels
to implement Project activities.
132. However, BFAR has a limited and insufficient number of staff at the national and regional
levels. Currently, BFAR has 1,492staff, but not all the positions are filled. Current staffing is 636
at the national level and 856 in the regions. Apart from an inadequate number of staff, BFAR
lacks the management capacity both at the central and regional offices to implement the
proposed Project. In addition, many of the senior staff are about to retire, thus posing a problem
of transfer of institutional memory and technical skills. To address the lack of capability to
undertake its responsibilities to the fisheries sector, BFAR has prepared a Reorganization Plan.
This Plan has been submitted to the Department of Budget Management (DBM) for approval
and includes proposals to increase the number of positions to 3,842 (1,027 at the national office
and 2,929 at the regional offices), increasing the numbers of both technical and administrative
staff at all levels. If all positions are filled, staffing levels will be 250% of the current level. It is
expected that the Plan will be approved in 2013. Prior to the implementation of the Plan, the
Project will recruit sufficient contract staff to implement the Project’s activities at the national and
provincial levels.
133. The Plan focuses on downloading responsibilities from the central office to the regional

24
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

and provincial offices. It will be critical for BFAR to hire qualified and competent personnel to fill
the new positions and to train the existing and new personnel under its Human Resource
Development Plan. These tasks will require a high level of expertise currently unavailable within
BFAR so may require some technical assistance for which the Project includes financing.
134. The project will support BFAR’s Reorganization Plan thru the provision of the needed
capacity development activities that will improve the technical capacities of BFAR’s regional
offices in the target regions to carry out their CRM mandates. A human resource and institutional
analysis will be conducted under the project to determine the needed resources and capacities
that will improve CRM service delivery in the area of CRM planning, law enforcement, habitat
and resource assessment, monitoring and rehabilitation, coastal vulnerability assessment,
among others. The result of such assessment analysis will lead to the formulation of a
competency development program for BFAR personnel.

Local government units

135. The LGUs as mandated by RA 7160 (Local Government Code) and RA 8550 (Fisheries
Code), are responsible for managing the municipal waters and coastal zones. These
responsibilities include: (i) protecting, rehabilitating and sustaining the fishery and coastal
resources; (ii) planning and implementing resource rehabilitation; and (iii) promoting
livelihood/micro-enterprises (fishery and non-fishery related) for adoption by the members of the
coastal communities. With the LGUs responsible for managing the municipal waters and coastal
resources, BFAR will shift from being a direct implementer of foreign assisted projects to being
an enabler/trainer of LGUs. To do this, BFAR has to build the capacity of its officers and staff,
especially those assigned to the Project, to (i) transfer their skills on fishery development/coastal
resources management to the officers and staff at the municipal/city agriculture offices; and (ii)
transfer their project implementing operations to the LGUs.
136. As in ARMM, the devolution of functions differs from that elsewhere in the country, the
implementation arrangements are different from those in the other three regions. For Project
funding and implementation, BFAR-ARMM will execute a MOA with BFAR Central Office.
Contracts, purchase orders and disbursements will be approved by BFAR-ARMM in accordance
with signing authority limits of the BFAR-ARMM Director, the AWPB, APP and the MOA with
BFAR Central Office. Due to the weak capacity of the LGUs in ARMM, BFAR will directly lead
and assist the LGUs to implement the Project in the coastal barangays and provide additional
support to staff training and capacity building of the LGUs and fishing communities in ARMM,
according to identified requirements. Project implementation in ARMM will follow the existing
political and institutional arrangements while further developments in Bangsamoro are on-going.
The implementing mechanism will be firmed up upon the establishment of the Bangsamoro
government.

Other implementing agencies

137. Other government agencies, as part of the NCI and supporting the development of the
fisheries sector in the target bays and municipalities will support Project implementation as part
of their ongoing activities: (i) DENR for mangrove reforestation/rehabilitation and other activities
within the domain of DENR that affect coastal and fishery resources; (ii) DTI, e.g. for product
packaging and market/private sector links and explore linkage with their Shared Service Facility
Project for the proposed livelihood sub-projects; and (iii) DOST, e.g. provision of technical
support for processing of agricultural/fishery products.
138. The Philippine National Police (PNP) and the Philippine Coast Guard (PCG) will have a
role in terms of their responsibilities for law enforcement. Other agencies with possible roles in
supporting Project activities are: (i) DOT for developing the ecotourism industry; (ii) NCIP for
handling IPs concerns in areas populated by IPs; (iii) the DSWD for identifying poor households
in target coastal barangays; and (iv) the Department of Public Works and Highways for providing
infrastructure support in the ARMM. Other government agencies and bodies (e.g. DA-ATI),
including state colleges and universities and research institutions, can also provide support for
the fisheries sector.

25
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

139. The Project will use private sector services (NGOs, private firms/companies, academic
institutions) where appropriate e.g. services to strengthen the institutional capacity of POs and
for livelihood/enterprise development under Public Private Partnerships (PPPs). Engagement of
services from the private sector will follow approved criteria and selection processes. Appendix 4
includes the criteria for selecting private sector organizations.
140. The Project will also recruit consultants to: (i) develop the technical expertise of the staff of
BFAR or DAF-ARMM, and other implementing agencies, including the LGUs to implement the
Project and to manage the coastal and fishery resources efficiently and effectively; and (ii)
establish information and knowledge-based decision-support systems for the sustainable
management of coastal and fishery resources.
141. Appendix 5 includes the management structure, the roles, responsibilities of the Project
management units, an Agency Capability and Training Needs Matrix, while Working Paper 5
includes the scope of work of key staff.

National level
142. An inter-agency Project Steering Committee (PSC) chaired by the DA Secretary or the
DA Undersecretary for Field Operations and co-chaired by the BFAR Director will be established
at the central level. The National Fisheries and Aquaculture Resources Management Council will
serve as an observer on the PSC. The membership will be as shown in Appendix 5 with IFAD as
an observer. The PSC will meet every semester or twice a year. The Project Coordination and
Support Office (PSCO) will serve as the PSC’s secretariat.
143. The PSC will provide the Project with policy guidance, approve Project implementation
guidelines, multiyear and annual work plans, budgets and procurement plans, and resolve
implementation issues that cannot be decided at the regional levels.
34
144. A Project Support and Coordination Office (PSCO) , which will be directly accountable
to the BFAR Director, will be established at the BFAR Central Office and will be responsible for
supporting, coordinating and monitoring Project implementation in Regions 5, 8, 13 and ARMM.
The PSCO will coordinate within BFAR and with government oversight agencies, LGUs, project
management teams at the regional, municipal and bay/gulf levels, as well as with IFAD. A key
role of the PSCO will be to establish and manage the M&E/KM systems and disseminate the
findings, and conduct any policy analyses and policy adjustments necessary to support the
Project. In addition, it will prepare implementation guidelines and consolidate national AWPBs,
procurement plans, physical and financial reports and withdrawal applications. It will prepare
reports for the PSC, BFAR management, government oversight agencies and IFAD and ensure
that the Project’s audit is conducted in a timely fashion. The PSCO will serve as the PSC
secretariat and the National Project Director will act as the Committee’s secretary.
145. The PSCO will be headed by a Project Director (organic to BFAR) with the assistance of a
full time experienced Project Coordinator35to be recruited under contract and will be staffed with
assigned BFAR personnel with appropriate skills and expertise (see Appendix 5). The PSCO will
be assisted by other BFAR units, e.g. the Bids and Awards Committee, the Financial and
Administrative Services Division and the Technical Services Division.
146. In addition, other national level implementing agencies will have a “FishCORAL” Focal
Point at national level through whom the Project will interact with that agency at national level.

34
Project units at all levels will be composed of Project-assigned permanent staff (full or part time) of appropriate
qualification and skills. This is to ensure institutionalization of Project expertise that will be developed. When the
expertise required and/or the availability of permanent staff cannot be secured from within BFAR, contract staff will
be hired.
35
The performance of thePSCO coordinator will be closely monitored to assess whether the incumbent project
coordinator can satisfactorily handle all project management demands. In case one coordinator is not adequate for
the project implementation, consider adding specialist staff or a second coordinator.

26
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

Regional level
36
147. Regional Coordination and Support Committee (RCSC) provides for “convergence” at
the regional level. In Regions 5, 8 and 24, the RCSC will be chaired by BFAR Regional Director.
Appendix 5 lists the membership both in Regions 5, 8 and 13, and for ARMM. The RCSC will
serve as a policy and institutional advisory committee for Project implementation and facilitate
convergence for the effective and efficient delivery of the various agencies’ services to support
Project implementation. It will ensure that the technical assistance required for Project
implementation is provided by the requisite agency as needed and review and endorse the
Regional Annual Work Plan and Budget (AWPB) and the Annual Procurement Plan (APP) prior
to submission to the PSCO.
148. Regional Project Management Offices (RPMOs) will be established in Regions 5, 8, 13
and ARMM. RPMOs will report to and be guided by the PSCO. The RPMO based at the BFAR
Regional Office will be under the leadership and responsibility of the BFAR Regional Director. Its
day to day operation will be handled by a full-time Project Manager.
149. The RPMO will be staffed with BFAR and/or contract personnel with appropriate skills and
expertise (see Appendix 5 for the details). The RPMO will be assisted by other BFAR regional
units, e.g. Finance and Bids and Awards Committee.
150. The main task of the RPMO will be to: (i) provide guidance and technical support to the
implementing agencies and LGUs; (ii) coordinate the provision of services by the various
technical agencies at the regional and bay-wide levels and regularly liaise with these agencies;
(iii) ensure timely provision of logistics for all aspects of Project implementation; (iv) review and
approve proposals submitted by implementing agencies, LGUs, FARMCs, and POs; (v) approve
and manage funds use and procurement (within limits of the Regional Director’s authority); and
(vi) maintain the MIS and oversee and supervise M&E, information and knowledge sharing
among LGUs and other Project agencies.
151. Other tasks will include consolidation and review of the AWPBs, APPs, reports,
expenditure and other reports, statements of expenditures (SOEs), etc. prepared by the
LGUs/BMCs for onward transmission to the PSCO. The RPMOs will also facilitate Project
implementation reviews and supervision missions and internal audits. The RCSC and RPMO will
provide regular reporting of accomplishments and policy and major operational issues to
Regional Development Councils (RDCs), LGUs and other stakeholders.

Bay and gulf sites

152. To achieve the EAFM approach where a bay/ecosystem is seen as a single resource
system, a Bay Coordination and Support Committee (BCSC) will be organized to coordinate
Project activities within a bay. The BCSC will be headed by the Chair of the BMC (elected by the
membership). Appendix 5 includes the membership. The roles and responsibilities of the BCSC
are to: (i) coordinate the implementation of Project activities on a bay-wide scale, including
enforcement of Unified Fisheries Ordinance; and (ii) ensure that municipal Project activities
support a unified bay CRM and fishery livelihood implementation. Funding for the BMCs will
come from the membership in cash and in kind e.g. provision of combined FLET operations.
153. Municipal/City Project Management Offices (M/CPMOs) will be based at the municipal
or city LGU in Regions V, VIII and XIII. This office will be headed by the Municipal or City
Agricultural Officer (M/CAO). The M/CAO will be assisted by the municipal or city environmental
and natural resources officer, agricultural technicians (assigned to the fishery sector) and other
LGU support departments such as the municipal/city planning and development coordinator,
municipal/city engineer, finance and the Bids and Awards Committee (BAC). The CFs will be
hired by the RPMO but will be assigned to the M/CPMO.

36
The RCSC will be chaired by the BFAR Regional Director and the RPMO will also be under the leadership and
responsibility of the BFAR Regional Director. As such, the RPMO will be reporting to the RCSC through the BFAR
Regional Director for the review and endorsement of the Regional AWPB and APP which will entail reporting of the
Regional progress of implementation. Participation of key RPMO officers to the RCSC will also be expected.

27
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

154. The M/CPMO will have the following functions: (i) assist the fishing communities and POs
prepare proposals for CRM, fisheries management and livelihood development for including in
the municipal/city plan; (i) ensure the implementation of approved investment proposals and
other Project activities; (iii) coordinate with the other LGU departments to implement Project
activities including management of funds and reporting of expenditures; (iv) monitor sub-project
implementation, and prepare and submit reports as required.
155. In ARMM, a Municipal Project Implementing Unit (MPIU) will be based at the BFAR
Provincial Fisheries Office under the leadership of the Provincial Fisheries Officer. The MPIU will
be staffed by the BFAR ARMM municipal fisheries coordinator and the CFs. The MPIU will work
closely with the municipal/city planning and development coordinator. The MPIU will have the
following responsibilities: (i) facilitate participatory preparation and submission of CRM, fisheries
and livelihood investment proposals; (ii) be responsible for the implementation of approved
investment proposals and other Project activities; (iii) coordinate with the fishing communities,
and households and the LGUs in preparing proposals for CRM and development of alternative
livelihood enterprises; (iv) coordinate with the LGUs in the implementation of Project
investments and other activities particularly with the Municipal Planning and Development
Coordinator (MPDC) and Office of Municipal Agriculture (OMA); (v) monitor Project
implementation, and prepare and submit reports as required; and (vi)assist the RPMO in Project
assessments, reviews and supervision missions. BFAR-ARMM Provincial and Municipal
Fisheries Coordinators will facilitate and monitor implementation of contracts, MOAs with the
LGUs and sub-project agreements with the POs. No funds will be downloaded to the LGUs.
Disbursements and contracting will be handled by the BFAR-ARMM. Funds will be downloaded
by BFAR-ARMM to the Trust Funds (Bank Accounts opened for the Project by the POs) or by
way of “Advance” in accordance with their MOAs.

Memoranda of agreement
156. BFAR will execute a Memorandum of Agreement (MOA) with each LGU and the other
implementing agencies (e.g. DA-ATI, DTI, DOLE, DOST, DSWD etc.) at the national, regional,
provincial and municipal levels to specify what services and support each will provide and how
the services and support will be financed by the Project. Under the CRM plan, waste
management will be included as mechanism to addressed pollutants, which will form part of the
MOA between LGUs concerned.
157. The MOA will spell out that Project implementation will be governed by the Project
Financing Agreement and follow the Project Implementation Manual (PIM) as approved by the
PSC and IFAD. The MOA will spell out the roles and responsibilities of each party including the
provision of staff, office space, institutional and implementation arrangements, sustainability
plans, and financial contributions and source of funding (e.g. from the Internal Revenue
Allocation, users fees, etc.).The LGUs counterpart funds should be secured through Local Chief
Executive Pronouncements and Sangguniang Bayan resolutions and a certification issued by
the Local Financing Committee and reflected in their respective Annual Investment Plans.
158. The LGUs may also enter into agreements with concerned national agencies such as the
Department of Public Works and Highways, among others, for the provision of technical
assistance for design and implementation of rural infrastructure sub-projects.

Partnerships with the business sector

159. It is not feasible at this stage to identify specific enterprises for engaging the private sector,
until different enterprises are developed and taken up by the local fishing communities and POs
during the project implementation, which depends on evolving and emerging market demands
and opportunities. However, nine potential livelihood and enterprise models are prepared and
analysed for implementation during the Project. Various forms of partnership with the business
sector maybe involved in the development of alternative livelihoods for the fishing communities.

28
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

Depending on the commodity, the private sector37 may act as the consolidator/integrator,
business development services provider, value chain manager or facilitator, and/or financier. The
Project will explore different partnership arrangements between the beneficiary organizations
and the private sector ensuring that such arrangements will be fair to the fishing communities.
Selection of private sector organizations involved in the implementation of the component will be
on the basis of their meeting the eligibility criteria, submission of an expression of interest and a
proposal to invest e.g. for processing, ice plants etc. or for marketing specific products.
Appendix 5 includes the criteria for selecting business enterprises, POs, NGOs and academic
institutions that wish to participate in implementing the Project.

Links with other initiatives

160. The aim is to add value to the results achieved by previous interventions. Project activities
and coverage will not duplicate or overlap with the activities of other projects currently assisting
the sector e.g. ICRMP. The Project will complement and coordinate with existing and planned
activities and programmes of DA and other agencies (e.g. Philippines Rural Development
Project, CONVERGE, GROWTH, Integrated Environment and Natural Resource Management
Project and Environment, and ECOFISH.

Capacity assessment and readiness for project implementation

161. Attachment 4 to Appendix 5 provides assessment of the readiness of BAR, LGUs,
FARMCs, FLETs and POs to implement Project activities as well as proposed capacity building
interventions needed to address the institutional issues identified. The Project will validate these
proposed interventions at Project start-up, as the basis for the Project’s proposed capacity
building plan. The Project will use the IFAD grant funds to build the capacity of BFAR and the
LGUs. At the project start up, before the start of the key initial project activities, BFAR and the
PCSO, in close cooperation with the regional offices, will make an assessment of each of the
participating implementing agencies (public/private service providers) at the national, regional,
provincial, municipal and community levels to evaluate the availability of capacity of each
agency, implementation readiness, identify additional support required for capacity building and
skills training and prepare programmes and budgets for the implementation of the required
building and skills training for each of the implementing agencies.

C. Policy Engagement
162. The Project will finance policy/case studies for policy dialogues and consultations with the
relevant national and local institutions related to the management by the LGUs of the
municipal/city fisheries and coastal resources and developing alternative livelihood enterprises
for the coastal communities. The Project will provide support to review the existing relevant
legislation. The review will cover the parts of RA 7160 (Local Government Code) that relate to
municipal fisheries and the coastal zone and RA 8550 (Fisheries Code of the Philippines) which
are overdue for review, the possible duplication between the roles and responsibilities of the
BMCs and IFARMCs. A further subject is the future management role of pre-existing fisheries
management systems. The Project will also provide support to review other relevant legislation
e.g. the Agriculture and Fisheries Management Act. After the Mid-term Review, the Project could
pilot proposed changes to the Codes with respect to the municipal fisheries in selected
locations.

D. Planning, M&E, Learning and Knowledge Management

Planning
163. At start-up, the Project will review the logical framework prepared and approved during the
Project design process and prepare a multi-year plan and indicative budget (MYPIB) for

37
The private sector includes: companies and firms, business organizations, financing institutions, non-government
organizations, state universities and colleges, and individual entrepreneurs.

29
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

achieving Project objectives and targets based on the expanded logical framework 38. Those
participating in this process will be the Project staff and representatives of the other
implementing agencies, representatives of beneficiaries, private sector agencies etc. The PSC
will approve the MYPIB.
164. Preparation of the AWPBs will be participatory and start at the community level, involving
representatives from the POs, the CPMO/MPMO/MPIU and bay/gulf alliance. The starting point
for the AWPBs will be the MYPIB, the LGU development plan and the results of the annual
Project assessments, the reports of supervision missions and the Project’s regular M&E reports.
The first AWPB will be based on the MYPIB.
165. The RPMOs will consolidate the provincial AWPBs into a Regional AWPB. Subsequently,
the PSCO will consolidate the Regional AWPBs into a National AWPB. This consolidated AWPB
will be submitted to IFAD for endorsement and no objection and subsequently to the PSC for
approval. Appendix 6 gives more details. Working Paper 6 includes appropriate formats for
planning and budgeting, which are aligned with the government’s planning and budgeting
formats, while the time table for preparing the AWPBs is aligned with the government’s annual
budgeting process.

Monitoring and evaluation

166. The Project’s Monitoring and Evaluation (M&E) will be in accordance with the
government’s harmonised national Results-based Performance Management System39 and
IFAD’s Results and Impact Management System (RIMS). A results-based participatory M&E
system will be installed, which will include feedback from the beneficiaries and the POs, a MIS
and reporting of Project implementation status and progress in terms of (i) outputs;
(ii) outcomes; and (iii) impact. M&E indicators will include those from IFAD RIMS and other
relevant indicators in the PDP results matrix and the Project’s logical framework. The project will
also follow the Regional Monitoring and Evaluation System (RPMES) guidelines when issued.
The RCSC and RPMO will provide regular reporting of accomplishments and policy and major
operational issues to Regional Development Councils (RDCs), LGUs and other stakeholders.
167. The Project will support the conduct of a baseline study, mid-term impact survey and a
project-completion impact study. Before Project start-up, a baseline impact sample survey using
IFAD’s RIMS tools, analysis and reporting will be conducted in all target bays. The study will
include further investigation into the following areas: gender and age, fishing seasonality, and
migration in the target fishing communities.
168. In each target bay, RPRSA will be carried out at the start of the Project to provide
information on the conditions of the coastal and fishery resources at Project start-up (PY1)
against which to monitor the Project’s impact. When carrying out the RPRSAs, the Project will
make use of existing Resource and Social Assessments undertaken as part of BFAR’s regular
monitoring. The baseline data/information will also be used to firm up the Project’s strategies
and targets. The Project will finance these studies using suitable service providers (e.g. State
Universities and Colleges under appropriate TOR prepared with the assistance of the LGUs).
Further RPRSAs will be conducted at the end of the Project. IFAD together with the Government
will conduct annual supervision, mid-term and project completion reviews of the Project. Working
Paper 6 includes draft TOR for the RPRSA.
169. As the Project management is mainstreamed into BFAR’s operational structure, the
Project will use BFAR’s existing staff in the Planning and M&E Divisions at the national and
regional levels. To complement them, the Project will hire M&E specialists and MIS staff. It is
expected that all the Project M&E and Knowledge Management (M&E/KM) units will be
operational within six months of the Project start-up. The PSCO and RPMOs will establish a
functional and robust database system to assist Project management in decision making and in

38
Working Paper 6 explains the contents of the expanded logical framework.
39
Based on AO 25 signed in December 2011, the underlying frameworks of RBPMS are the Organizational
Performance Indicators Framework and the Results Matrix. An Interagency Task Force headed by the Department
of Budget and Management (DBM) of which NEDA is a member has been established to create the RBPMS.

30
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

meeting the requirements of the Project, BFAR, government’s oversight agencies and IFAD. The
Project will enlist the assistance of local fishermen to improve the available data for fish catches
as an input for managing the municipal fisheries.
170. Project reporting will be on a regular basis as prescribed by the Government and IFAD.
Existing BFAR reporting templates will be used and enhanced where necessary to meet the
reporting requirements of the Government and IFAD.

Learning and knowledge management

171. The Project will generate and manage knowledge in order to improve implementation and
to contribute to BFAR’s body of knowledge and aid in raising awareness of stakeholders as well
as in future policy development and project/programme implementation. The Project will support
innovative approaches, document lessons learned and organize arrangements for knowledge
sharing among Project staff, BFAR and other implementing agencies, to improve project
efficiency and effectiveness. Similarly, the Project will share knowledge with other IFAD assisted
projects inside and outside the Philippines. Such an approach requires effective M&E and
knowledge management. Knowledge management will be an essential part of the Terms of
Reference of the ME/KM staff as well as with other Project management staff. Appendix 6 and
Working Paper 6 include further details.

E. Financial Management, Procurement and Governance

Financial management
172. The BFAR Central Office, through the PSCO will be responsible for the overall
management of the Project funds in accordance with the Financing Agreement and the
approved AWPB and APP. The PIM, prepared by BFAR prior to Project start-up, will include the
details the Project’s arrangements for financial management, audit, procurement and ensuring
good governance. Key elements of the arrangements for the Project’s financial management,
procurement and audit are summarised below, with further details in Appendixes 7 and 8 and
Working Paper 9.
173. BFAR will follow the Government’s financial systems, rules and regulations under the New
Government Accounting System (NGAS) for receipts and disbursements of proceeds from the
IFAD loan and grant and Government counterpart funds consistent with IFAD’s standard
disbursement procedures.
174. The PSCO and the RPMO with support from the BFAR Financial and Administrative
Services Division and BAC will prepare (using participatory processes involving the LGUs,
beneficiaries and POs) and implement the Project AWPB, and disburse Project funds within the
delegated authorities of their signatories. The Central and Regional Offices’ officials will exercise
their signing authorities as delegated to their respective positions under Departmental Orders,
i.e. up to PHP 10 million (USD 240,000) for the BFAR Regional Directors. Above this amount,
but less that PHP 20 million (USD 480,000) signing authority is with the Director of BFAR and
above PHP 20 million with the Secretary of the Department of Agriculture.
175. The RPMO with the support of the BFAR Regional Offices’ Finance Services will be
responsible for consolidating financial the reports from the region and (including those from the
LGUs and POs), and including the Statements of Expenditure (SOE) for submission to, and
consolidation, by the PSCO. The financial reports submitted to the PSCO from the RPMOs in
Regions V, VIII and XIII and the BFAR-ARMM will be supported by relevant documentation
(contract, proof of payment, bank statements, etc.) in line with the SOE ceilings and IFAD
disbursement procedures. This will enable BFAR Central Office to submit to IFAD complete
Withdrawal Applications and avoid disbursement delays. The RPMO will attach the Bank
Reconciliation and Bank Statement to each SOE. The PSCO in coordination with the BFAR
Central Office Finance Services will prepare and submit to IFAD the Withdrawal Applications,
Reconciliation of Designated and Project Bank Accounts and Consolidated SOEs.

31
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

Disbursement Arrangements
176. The Department of Finance through the Bureau of Treasury (BTr) will open and thereafter
maintain in the Central Bank or another bank acceptable to IFAD two Designated Accounts
denominated in USD : One to receive the IFAD loan proceeds and the second to receive the
IFAD grant proceeds to finance the agreed Project activities. The Authorised Allocation of the
Designated Accounts for the IFAD loan and grant will be respectively up to the first six months
estimated disbursement amount of IFAD’s share of the eligible project expenditures according to
the approved PY1 AWPBs.
177. The BTr will provide the BFAR through DBM Notice of Funds Availability upon receipt of
funds from IFAD as remitted to the Designated Accounts, while DBM will provide to BFAR Notice
of Cash Allocation. Funds converted to Philippine Peso will be transferred to the Project Bank
Accounts maintained at the central office and will be disbursed in line with the Government’s
systems, rules and regulations, especially the NGAS, consistent with IFAD’s disbursement
procedures. BFAR Central Office will transfer funds to the Project Accounts (including for
Government counterpart funds) of the BFAR Regional Offices as initial advances and
subsequently as replenishments against financial reports from the BFAR Regional Office
Finance Services for the expenditure incurred for the Project by the regional and provincial
offices and LGUs.
178. BFAR Regional Offices in Regions5, 8 and 13 will transfer funds to the LGUs in
accordance with the MOAs. Use of Project funds requires that they are covered by BFAR’s
budget appropriation for the year and included in the Project AWPB and APP. The LGUs will
download funds to a Project Trust Fund Bank Account opened by POs or through an “Advance”
in accordance with their MOAs with the LGUs and consistent with the requirements of the BFAR
Regional Offices.
179. In ARMM, the devolution of functions differs from that elsewhere in the country. For Project
funding and implementation, BFAR-ARMM will execute a MOA with BFAR Central Office.
Contracts, purchase orders and disbursements will be approved by BFAR-ARMM in accordance
with signing authority limits of the BFAR-ARMM Director, the AWPB, APP and the MOA with
BFAR Central Office. BFAR-ARMM Provincial and Municipal Fisheries Coordinators will facilitate
and monitor implementation of contracts, MOAs with the LGUs and sub-project agreements with
the POs. No funds will be downloaded to the LGUs. Disbursements and contracting will be
handled by the BFAR-ARMM. Funds will be downloaded by BFAR-ARMM to the Trust Funds
(Bank Accounts opened for the Project by the POs) or by way of “Advance” in accordance with
their MOAs.

Procurement
180. BFAR will undertake major procurement packages in line with the APPs through the PSCO
and RPMOs supported by their respective BAC and Finance and Administrative Services
Division. Procurement will follow the Implementing Rules and Regulations of the Philippine
Procurement Law (RA 9184) to the extent that they are consistent with IFAD’s Procurement
Guidelines.
181. The PSCO through its BAC will undertake procurement where the bulking of items can
secure the most advantageous terms e.g. for vehicles, motorcycles, computers and specialized
equipment. Other items as defined in the APPs will be procured by the Regional Offices and
processed and evaluated by the BAC. Appendix 8 includes further details.

Audit
182. The Project audit will follow the IFAD’s “Guidelines on Project Audits” and international audit
standards and will be in line with the provisions of the Financing Agreement. Annual financial
reports for the Project’s funds will be prepared following the Government’s accounting and
reporting standards, rules and regulations and generally accepted accounting principles and
standards. The COA will conduct annual audit of the Project’s financial statements and the
operations of the designated and Project bank accounts, government contributions and SOEs.

32
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

The audit report will be made available to IFAD and Government within six months of the end of
each financial year.

Governance
183. IFAD will apply a policy of zero-tolerance in respect of fraudulent, corrupt, collusive or
coercive action. Appendix15, Good Governance Framework, includes the details of the
arrangements included in the Project design to prevent corruption.

F. Supervision

First 12-18 months

184. The government will be responsible and accountable for the project implementation.
Project supervision during the first 12-18 months will focus on ensuring that there are no delays
in Project start-up and address any bottlenecks that may occur. Supervision will focus
specifically on ensuring that: (i) the MYPIB has been prepared and is approved and that the PY1
AWPB is operational; (ii) the PIM has been prepared by the PSCO and is in use; (iii) the Project
accounting and internal controls are in place at central, regional, and LGU levels; (iv) the bank
accounts have been opened and the initial deposit received from IFAD; (v) a functioning
M&E/KM system has been set up; (vi) the initial procurement of goods and services, especially
that of the Project management staff is completed in a timely fashion; and (vii) the training
relating to various aspects of Project management, e.g. financial management, procurement,
physical and financial reporting, etc. is being implemented. By concentrating on these subjects,
the delays that often affect the start-up of IFAD projects can be avoided or addressed before
they become the cause of significant delays. The implementation in PY1 of sub-projects
prepared and approved prior to project design completion mission will also help to ensure that
Project implementation in the field starts promptly.

Annually
185. Annually, IFAD and NEDA will jointly conduct a full supervision and implementation support
mission and IFAD will conduct a post-supervision mission 6-9 months later depending on
progress. Expertise required will include: (i) a fisheries and coastal resource management
specialist familiar with the target regions; (ii) a livelihood development specialist familiar with
coastal areas; (iii) an M&E/KM specialist familiar with the M&E requirements of both IFAD and
government; (iv) a fiduciary specialist familiar with both IFAD and government procedures for
financial management, loan and grant disbursement and procurement; and (v) a community
development specialist and rural engineer from time to time to review the operations of the POs
and progress with the implementation of the infrastructure investments. Staff members from
IFAD, the BFAR and NEDA will also be members of the missions.

G. Risk Identification and Mitigation

186. The current lack of technical and management capacity within BFAR is the first risk faced
by the Project. Without implementation of the proposed Reorganization Plan, BFAR will be
unable to implement the Project as currently designed. The scale of the proposed investments,
over USD 44 million spread over four dispersed regions, 11 bay/gulf sites, 14 provinces, 103
LGUs and 1,098 barangays, coupled with the decentralised nature of implementation and
involvement of several other national government agencies is beyond the current capacity of the
agency to handle successfully. In addition, under this Project the key role of BFAR will be to
assist the LGUs to fulfil their mandate for the management of the municipal/city fisheries and
coastal resources; a change from being a project implementer, as was often the case in the
past. The approval and implementation of the proposed Reorganization Plan will require the
deployment of skilled and experienced personnel and is essential for the successful
implementation of this Project. To mitigate this risk, prior to these staff being in place and able to
implement the Project, BFAR will hire sufficient contract staff to help the BFAR staff manage the
Project with the numbers adjusted as the Reorganization Plan is implemented. The project will

33
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

support BFAR’s Reorganization Plan through the provision of the needed capacity development
activities that will improve the technical capacities of BFAR’s regional offices in the target regions
to carry out their CRM mandates. Temporary staff will be contracted to meet the immediate
requirements of the project implementation, while the BFAR’s Reorganization Plan is
implemented. In addition, BFAR will shift from being a direct implementer of foreign assisted
projects to being an enabler/trainer of LGUs. To do this, BFAR has to build the capacity of its
officers and staff, especially those assigned to the Project, to (i) transfer their skills on fishery
development/ coastal resources management to the officers and staff at the municipal/city
agriculture offices; and (ii) transfer their project implementing operations to the LGUs.
187. Another risk concerns over fishing. It is recognised worldwide that it is a long term
endeavour to control and reduce over fishing. Given the concerns over fish stocks, the risk is
that even with successful Project interventions and reduction in the fishing efforts, fish stocks
may not recover significantly. The Project addresses this risk through a greater involvement of
both fishermen and LGUs in managing the fisheries and coastal resources and monitoring fish
catches to improve the availability of data on fish catches and by including any pre-existing
fisheries management organizations. Sustainability measures and plans will be included in the
MOA with the LGUs. Moreover, the CRM plan and fishery ordinance will include activities and
provisions that will help generate LGU revenues to support CRM implementation. The main
objective is to improve the fiscal capacity of the LGUs to sustain long term management of the
coastal resources. A sample calculation of the potential CRM-related revenue of LGUs is
presented in Working Paper 8.
188. Intrusion of illegal commercial fishing vessels in the municipal waters is another risk. The
project addresses this risk by (i) involvement of the local fishing communities in the management
of coastal resources; (ii) providing capacity building, awareness raising, equipment and other
support to reinforce the bantay dagat at the barangay and LGU levels; (iii) providing support to
BFAR to organize law enforcement teams composed of coast guards and police personnel to
apprehend violators; and (iv) revised local regulations to reduce and prevent illegal fishing.
189. Another risk is that following the end of the Project period, the Project activities may prove
to be unsustainable thereby repeating the experience of many of the previous interventions in
the bays/gulfs. Many of the Project’s proposed interventions have been included in previous
projects/programmes but many could not be sustained after the end of Project financing. The
Project design tackles this issue by including a focus on the generation of sufficient sustainable
sources of local revenues by the LGUs to finance the necessary law enforcement activities and
to provide locally generated revenue for investment in resource management. As presented in
Working Paper 8, revenue from law enforcement (apprehension of illegal fishing activities)
declines over time as compliance increase. However, the other potential CRM-related revenue
(i.e. permits, licenses, rentals, entrance fees) increases over time as collection efficiency
increases. These revenues are expected to be enough to cover CRM O&M costs and other
CRM-related activities and projects. A sample calculation of the potential CRM-related revenue
of LGUs is presented in Working Paper 8.
190. The Project will operate within the framework of the NCI, which seems likely to continue as
a priority government policy given the high level of political commitment to convergence,
including that in the PDP 2011-2016. The risk remains that the NCI agencies will be unable to
provide the type of coordinated approach that is needed at the local and operational levels. The
Project design counters this risk in three ways. First, by having BFAR and the agency concerned
enter into MOA that would specify the details of the support required and how it would be
financed. Second, all the agencies with a role in Project implementation will be members of the
RCSC. Finally, all implementing agencies will have a “FishCORAL Focal Point” at national level
through whom the Project will interact with the other implementing agencies at national level.
191. An associated risk concerns the willingness of the private sector to be involved in
supporting the development of alternative livelihood enterprises for members of the coastal
communities. This risk is addressed in the Project design by inviting the private sector
involvement from the initial planning stages and the identification of possible processing and
marketing opportunities, with the Project financing the feasibility studies for possible private

34
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

sector investments. In addition, the Project will support production by the members of the
coastal communities and the POs with the support of suitable key staff/consultants.
192. Recent events have reduced the risks of the NG:LGU cost sharing policy delaying Project
implementation, as has happened with other IFAD assisted projects in the recent past. The
LGUs, especially the lower income class ones, which are the major target for IFAD assistance,
had difficulty in financing their counterpart contributions. Under a joint resolution of DA, DAR,
DENR, and DILG, LGUs, regardless of income class, are now financing, 10% of the costs of
investments in civil works and reforestation sub-projects. The Project will adopt this approach.

IV. PROJECT COSTS, FINANCING, BENEFITS AND SUSTAINABILITY

A. Project costs
193. The estimated total project costs, including contingencies, are shown in the table below
and further elaborated in Appendix 9. Overall, the proposed Project would cost about USD
43.737 million over a five (5) year implementation period. This figure includes taxes and duties
estimated at USD 3.749 million or 8.5% of total costs.
194. Base costs were estimated at likely prices in 2013 with price contingencies of 3% p.a. for
Pesos and USD . Physical contingencies have been included at 3.5% of base cost to all
expenditures except staff costs. These rates were specified by NEDA. Physical contingencies
amount to USD 1.143 million and price contingencies to USD 1.431 million, giving total
contingencies of USD 2.574 million (6% of Total Baseline Costs). The estimated average cost per
target beneficiary household (i.e. 90,596 poor households in the target barangays) is USD 274
per household.
195. Component 1 Coastal Resources Management accounts for 56% of the base costs,
Component 2 Livelihood Development 35% and Component 3 Project Management and
Coordination 9%.
Components Project Cost Summary

B. Project Financing
196. The project financing comprises: (i) IFAD loan of USD 29.956 million (68.8%); and (ii) IFAD
grant of USD 0.693 million (1.6%), giving total IFAD financing of USD 30.649 million (70.4%); (iii)
National Government counterpart contribution of around USD 6.125 million (14.0%); (iv) LGU
financing of USD 5.636 million (12.9%); and (v) contributions in cash or in kind from proponents
and beneficiaries of about USD 1.328 million (3.1%). The IFAD loan will be on Ordinary
Terms and Conditions. Further details are shown in Appendix 9 and Working Paper 7.
197. BFAR will include the Project in the BFAR 2015 budget with a minimal amount of
PHP9.124 million, mostly for travel, consultations and workshop costs. The Project will also be
included in the BFAR Budget Strategy for the entire Project period 2015-2020 submitted to the
DBM which will receive approval once the Investment Coordination Committee approval process
is complete. DBM approval will be an assurance in the Project Financing Agreement.
198. Retroactive financing will be available to finance the costs of the following key
preparatory activities, after the date of the design completion mission, i.e. 2 nd July 2013: (1) up

35
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

to USD 1.0 million from the IFAD loan for: (i) preparation and finalisation of the PIM; (ii)
preparation of bidding documents for procurement in PY1; and (iii) establishment of the PSCO,
RPMOs and CPMO/MPMO/PIUO; and (2) up to USD 40 000 from the IFAD grant for: (i) Support
for Reorganisation Plan; and (ii) recruitment of a Procurement specialist. The government will
provide funds to pre-finance the costs of these activities prior to the Date of Effectiveness. These
activities and associated detailed budget should be included in the draft AWPB for 2015. All
procurement carried out under retroactive financing will be subject to provisions of IFAD’s Project
Procurement Guidelines.

C. Summary Benefits and Economic Analysis

199. The primary goal of the Project is to contribute to the reduction of poverty among the
households, and in particular poor fishing households, living in the 1,098 coastal barangays
bordering the 11 target bays. These barangays have an estimated 160,572 people belonging to
90,596 households living below the poverty line of whom and about 38,050 are poor fishing
households (146,493 people). The intervention of the Project is expected to improve the
productivity of the municipal waters and the coastal zone and generate livelihood benefits for the
members of the coastal communities.
200. Benefits from the Project are expected to be generated through: (i) effective law
enforcement and regulatory activities with respect to the municipal fisheries; (ii) improved
protection and management of coral reef, mangroves, sea grass ecosystems and other coastal
resources; and (iii) implementation of sustainable community-based livelihood enterprises.
201. Working Paper 8 describes the various sources of benefits, the associated assumptions
and the analyses carried out, while Appendix 10 summarises the results.

Financial analysis
202. The Project aims to generate livelihood benefits for coastal communities by supporting the
establishment of sustainable livelihood enterprises. These enterprises are intended as both a
supplement to, and an alternative to, fishing as a source of household income, which would
have a positive impact on the improvement of fisheries and coastal resources. The financial
analysis focused on the financial viability of nine possible enterprises that community members
and their organizations may implement with Project assistance, although others that meet the
Project’s criteria (Appendix 4) may subsequently be identified. These sub-projects are seaweed
farming, abalone and trochus pen culture, fish cage culture, fish pen culture, mussel culture,
mudcrab fattening, aquasilviculture, dried salted fish production and smoked fish production.
203. The financial analysis for each of the livelihood models covers a period of six years.
Investment costs generally consist of: (i) equipment, work sheds, cage construction etc.; (ii)
working capital required for the initial production cycle; and (iii) contingencies. The projected
revenues for each microenterprise were based on the production volume for each year
multiplied by the price of output at the point of sale. The project assumed that all investment and
production cost as well as associated revenues, are incremental and would not have occurred
without the Project given that the 2009 Family Income and Expenditure Survey of the National
Statistics Office shows that the bottom 30% income class to which the fishing households belong
have a negative annual net income.
204. All enterprises are viable using 6% discount rate as prescribed by the Bangko Sentral ng
Pilipinas (BSP)40, with B:C ratios ranging from 1.06: 1 to 1.46:1 with a minimum FIRR of 42%.
The result of the sensitivity analysis revealing that the livelihood and enterprise models are more
sensitive to changes in output price compared to changes in cost. However, the menu of
livelihood models used in the financial and economic analysis does not represent all
regions/bays/gulfs as each site may have different suitability for different livelihood/ enterprise.
These models are based on the list of proposed livelihood/enterprise proposed from specific
project sites that are deemed financially viable. Livelihood/ enterprise will be implemented based

40
Interest rate for five-year loan is based on the 5-year T-bond annual interest rate plus two percent.

36
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

on its potential and feasibility in specific sites.

205. As a case study, the financial analysis assessed the cost of management and the
revenues generated from fisheries and CRM-related activities for an LGU. The result shows that
the LGU made a financial loss in 2012, but could earn net revenues ranging from PHP 0.96 –
4.1 Million p.a. depending on the effectiveness and efficiency of the implementation of the LGUs
Basic Fishery Ordinance. This sample analysis demonstrates the potential of good CRM to
make a positive and sustainable contribution to LGU finances.

Economic analysis
206. The economic analysis assesses the likely impact of the proposed Project interventions
through a comparison of the “without” and “with” project situations.
207. Under the “without project” scenario, the productivity of the fishery and coastal resources
will continue to decline given the existing unsustainable fishery and coastal resource
management activities. Under the “with project” scenario, appropriate management interventions
will be put in place that will reduce the adverse impacts on the fishery and coastal resources and
sustainably increase the productivity of the fishery and coastal resources. These interventions
include implementation of appropriate local policies, effective coastal law enforcement,
management of fish sanctuaries, mangrove and sea grass rehabilitation, management and stock
enhancement activities and the development of fishery related and non-fishery livelihood
activities for the members of the coastal communities.
208. Based on these assumptions the Project is economically viable with an economic rate of
return of 27.68%, which is well above the prescribed NEDA hurdle rate of 15%. The Project will
have a rate of return of 19.8%, if there is both a 20% increase in costs and a 20% reduction in
benefits.
Sensitivity analysis
209. Sensitivity analysis was conducted to determine the effects of change in cost and benefit
on the economic viability of the Project. The table below presents the results of the sensitivity
analysis.
Sensitivity analysis

Decrease in Decrease in
Benefit by Benefit by
Decrease in 10%, Decrease in 20%,
Economic Benefit by Increase in Increase in Benefit by Increase in Increase in
Indicator Base Value 10% Cost by 10% Cost by 10% 20% Cost by 20% Cost by 20%
EIRR 27.7% 25.5% 26.4% 23.6% 23.1% 23.9% 19.8%
NPV 2,354.94 1,881.58 2,223.29 1,643.72 1,408.22 1,879.21 932.49

Non quantifiable benefits

210. Besides the quantifiable benefits already described, there are also potential non-
quantifiable benefits from the Project. The major non-quantifiable benefits will be: (i) stronger
CRM Institutions; (ii) greater inter-LGU cooperation for the management of the municipal
fisheries of a bay/gulf; (iii) improved coastal resource management; (iv) more effective POs;
(v) greater community welfare; and (vi) improved capacity of the national and local government
staff in coastal resource and fisheries management.

D. Sustainability
211. The following elements are built into the Project design to help ensure that the proposed
investments and benefits are sustainable. First, the Project will assist the LGUs to develop
sufficient sustainable sources of local revenues to finance the FLETs and provide funds for
investment in the management of the municipal fisheries and coastal resources to protect the

37
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report

resources and sustainably increase future production. This approach would avoid future
dependence on central government and project/programme assistance.
212. Secondly, the involvement of the private sector on a long-term basis will enhance the
sustainability of the Project’s investments in alternative sources of livelihoods for members of the
coastal communities. With private sector investment in processing, marketing etc., there is a
much greater chance of the Project’s investments in production being sustainable. The Project
will support POs that can develop the required management and financial capacity to enable
them to enter into contractual arrangements with the private sector. At the same time, the Project
will support new types of arrangements that can link fishing households with the private sector to
enable the smallholders to move up the supply chain and receive more income from greater
value addition. This approach is designed to help the POs become sustainable and significant
players in their chosen value chains. Such an approach should benefit all the members of these
various organizations.
213. Thirdly, requiring the beneficiaries and LGUs to: (i) provide counterpart funds for
investments in infrastructure and production; and (ii) be responsible for the operation and
maintenance of the Project financed investment provides a much greater chance that these
investments can continue operating long after the end of the Project period. LGUs that have not
maintained farm to roads financed under other projects will not be eligible for Project assistance;
214. Finally, 18 months before the completion date, the PSCO will work closely with all
implementing agencies and fishing communities to finalise an exit strategy and sustainability
plan for review by IFAD, which should contain (i) specific mechanisms to ensure sustainability of
the investment and activities supported by the Project after the end of the Project; (ii) a summary
of the benefits from the Project’s investment, major policy and operational issues and lessons
learned; and (iii) recommendations for technical and budgetary support from national
government agencies or LGUs)and administrative arrangements after the end of the Project.

E. Innovation and Scaling-up

215. The Project’s investment is quite small when compared to that needed to address the
widespread issues that bedevil the municipal fisheries and coastal resources and the associated
high levels of poverty among the coastal communities. However, the project will test sustainable
approaches to fisheries and coastal resource management for the government and other
agencies to learn lessons for potential scaling-up. If the Project’s investment can realise the
potential benefits from good and sustainable management of the municipal/city fisheries and
coastal resources, the Project could be a catalyst for attracting further investment in the sector.
A key innovation for potential scaling up will be if the Project succeeds in introducing
sustainable local systems for: (i) financing effective law enforcement for the municipal/city
fisheries and coastal resources; and (ii) conservation and sustainable management of these
resources by the local fishing communities together with the LGUs.

38
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendices

Appendices

Appendix 1: Country and Rural Context Background

Appendix 2: Poverty, Targeting and Gender
Appendix 3: Country Performance and Lessons Learned
Appendix 4: Detailed Project Description
Appendix 5: Institutional Aspects and Implementation Arrangements
Appendix 6: Planning, M&E and Learning Knowledge Management
Appendix 7: Financial Management and Disbursement Arrangements
Appendix 8: Procurement
Appendix 9: Project Cost and Financing
Appendix 10: Financial and Economic Analysis
Appendix 11: Draft Project Implementation Manual
Appendix 12: Compliance with IFAD Policies
Appendix 13: Contents of the Project Life File
Appendix 14: Timetable for the IFAD Financing
Appendix 15: Good Governance Framework
Appendix 16: Preliminary List of Assurances
Appendix 17: Draft Letter to the Borrower
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Design completion report
Appendix 1: Country and rural context background

APPENDIX 1: COUNTRY AND RURAL CONTEXT BACKGROUND

A. Legislation Relevant to Municipal Fisheries

1. The aquatic resources of the Philippines are managed according to the “Philippine
Fisheries Code of 1998”, or Republic Act No. 8550 (BFAR 2010). However, seven years earlier
the Local Government Code (RA 7160) of 1991 legalised the formation of Coastal Resource
Management Councils, usually known as Bay Management Councils (BMCs), as partnerships to
enable LGUs to coordinate the management fisheries and other natural resources, and to
handle environmental problems.

Fisheries Management and the Local Government Code (RA 7160) of 1991
2. Bay Management Councils (BMCs) are multi-sectoral and characterised by various
arrangements for resource sharing. The Local Government Code of 1991 decentralised
government functions to LGUs, and Section 33 enables LGUs to consolidate and coordinate
their services and resources for mutual benefit, including the resolution of boundary conflicts in
shared municipal waters, enforcement of fisheries laws, and combining their individually
inadequate resources in order to manage more effectively. Mayors of each member municipality
sign MOA, for example to share responsibility for managing and developing common fishing
grounds. LGUs are fundamental to setting up a BMC since they undertake planning and plan
implementation, and enact local regulations, such as a comprehensive fisheries management
ordinance. The organizational structure of a BMC is supposed to define roles and
responsibilities. To ensure power-sharing, the chairpersonship of the Board of Trustees of a
BMC rotates among the mayors of member LGUs. Operational costs are shared, with each
municipality making an annual financial contribution. In addition, LGU employees are seconded
to work full time for the BMC. National agencies, like BFAR, and DENR, provide technical
expertise to the BMCs.

3. In the project areas BMCs are at various stages of operation. In Region 5, “active” Bay
Management groups exist only for the Ragay Gulf (Ragay Gulf IFARMC), whereas in both Albay
Gulf and Asid Gulf management groups are in the process of formation, with consultation having
just been conducted. In Region 8, “active” alliances function for Leyte Gulf (on the Samar Island
Side the Alliance of 7 and on the Leyte Island Side the Alliance of Local Fishery and Aquatic
Resource Management and Development Council, as well as in Sillago-Cabalian Bay (the
Pacific Alliance of LGUs for Marine Development Council). On the other hand, in Maqueda Bay
the South Maqueda Bay Management Council is “dormant”. In Region 13, in both Butuan Bay
(Butuan Bay IFARMC and the Lianga-Hinatuan-Bislig (Coastal Community Alliance Unified for
Sustainable Ecosystems) are active.

Table 1: Status of Bay Management Councils

Region Bay/Gulf Council Name Status

V Albay Gulf In process Consultations held
Ragay Gulf Ragay Gulf IFARMC IFARMC inactive;
MFARMC active
Asid Gulf In process Consultation held

Samar Island Side- Alliance of Seven

Leyte Island Side-Alliance of Local Fishery and
VIII Leyte Gulf Active
Aquatic Resource Management and
Development Council.

Sillago-Cabalian The Pacific Alliance of LGUs for Marine Active

Bay Development Council
Maqueda Bay South Maqueda Bay Management Council Dormant
XIII Butuan Bay Butuan Bay IFARMC Active

1
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Design completion report
Appendix 1: Country and rural context background

Region Bay/Gulf Council Name Status

Lianga-Hinatuan- Coastal Community Alliance Unified for Active
Bislig Sustainable Ecosystems
ARMM Illana No information available
Sulu/Basilan No information available

Management based on the Fisheries Code (RA 8550) of 1998

4. The policy objectives the “Philippine Fisheries Code of 1998” include protection of the
rights of “fisherfolk”, prioritizing “municipal fisherfolk” for the exploitation of resources in
municipal waters, and providing them with appropriate technological, financial, production, and
post-harvest facilities, as well as marketing assistance and other services. (“Fisherfolk” is a term
preferred by BFAR, and defined as “people directly or personally and physically engaged in
taking and/or aquatic resources”.) For clarity, the management system “installed” by the Code of
1998 is described here using generic “design principles” (Ruddle 1994).

(i) Authority/Leadership
5. Municipal waters are under the authority of municipal/city governments that in consultation
with the FARMC are responsible for managing, conserving, developing, and protecting all
aquatic resources therein. The LGUs enforce the fishery law, rules, regulations, and
municipality/city council ordinances. In consultation with the FARMCs, LGUs establish local
management rules. Assisted by the FARMC, the LGUs maintain a registry of municipal fishing
vessels by gear type and other data.

6. The government and LGUs are advised by a national and local system of FARMCS,
established by the Code. At top of the system, the National Fisheries and Aquatic Resources
Management Council (NFARMC) advises DA/BFAR. Chaired by the Undersecretary of
Agriculture, the NFARMC consists of 15 members (the Undersecretary of the Interior and Local
Government, five members representing “fisherfolk” and fishworkers, five representing
commercial fishing and aquaculture operators and the processing sectors, two from academe,
and one representative of NGOs involved in fisheries. Apart from the undersecretary of
Agriculture and Undersecretary of the Interior and Local Government, all members are
appointed by the President, after being nominated by their respective organizations, to serve a
three year term without reappointment. The functions of the NFARMC are to help formulate
national policy for fishery and aquatic resources and assist in the preparation of the National
Fisheries and Industry Development Plan. The Code created Municipal/City Fisheries and
Aquatic Resources Management Councils (M/CFARMCs) in each the municipality and city
adjacent to municipal waters. They advise in preparing the Municipal/City Fishery Development
Plan for the Municipal/City Development Council, recommend the enactment of municipal/city
fishery ordinances to the sangguniang bayan/ sangguniang panlungsod through its Committee
on Fisheries, assist the local enforcement of fishery laws, rules and regulations, and advise the
sangguniang bayan/panlungsod on fishery matters through its Committee on Fisheries, where
one exists. Their membership consists of the Municipal/City Planning Development Officer, the
Chair of the Agriculture/Fishery Committee of the Sangguniang Bayan/Panlungsod,
representatives of the Municipal/City Development Council, NGOs, the private sector, and
DA/BFAR, and at least 11 “fisherfolk” representatives, including seven municipal “fisherfolk”, one
fishworker and three commercial fishers in each municipality/city, which include those from youth
and women. Integrated Fisheries and Aquatic Resources Management Councils (IFARMCs)
were created by the Code in bays, gulfs, lakes, and rivers and dams bounded by two or more
municipalities/cities. They assist in the preparation of the Integrated Fishery Development Plan
of the relevant Municipal Development Councils, recommend integrated fishery ordinances to
the Committee of Fisheries (where one has been created) of the relevant sangguniang
bayan/panlungsod and enforce fishery laws, rules and regulations. Membership consists of the
chairperson of the Committee on Agriculture/Fisheries of the sangguniang bayan/panlungsod,

2
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Design completion report
Appendix 1: Country and rural context background

together with the Municipal/City Fisheries officers and Municipal/City Development officers, one
representative from the NGOs, one from the private sector; and at least 9 from the “fisherfolk”
sector, including those of youth and women.

7. The Department also sets fees and other charges and issues licenses or permits for gear
and fishing accessories and other fishery activities, as determined by the LGUs in consultation
with the FARMCs.

(ii) Rights
8. Registered “fisherfolk” organizations/cooperatives or POs may be granted a use right to
demarcated areas for fish capture and aquaculture, providing that a member’s household does
not already possess a fishery right other than for fish capture. Registered POs receive
preference in the granting of fishery rights by the Municipal/City Council, pursuant to Section 149
of the Local Government Code (vide infra), and all fishery activities in municipal waters are
conducted by municipal “fisherfolk” and their cooperatives/organizations, listed in a Registry of
Municipal Fisherfolk, which, in theory at least, must be updated annually or when deemed
necessary, and posted in barangay halls or other locations for public inspection and validation.

(iii) Rules
9. Rules pertaining to fishing are designed, implemented and enforced at the local level.
However, the national fisheries law clearly states that no person shall exploit, occupy, produce,
breed, culture, capture or gather fish, fry or fingerlings of any species or fishery products, or
engage in any fishery activity without a license, lease or permit, and that it unlawful for any
person not listed in the registry of municipal fisherfolk to engage in any commercial fishing
activity in municipal waters. Municipal “fisherfolk” who commit such a violation are punished by
confiscation of the catch and a fine of 500 pesos.

10. Sections of the Code describe specific prohibitions and the punishments to be imposed on
offenders. In particular, fishing with explosives, noxious or poisonous substances and electricity
is prohibited, as is use of fine mesh nets. It is unlawful to use active gear in the municipal waters
and bays and other fishery management areas, as well as the muro-ami and other methods and
gear destructive to coral reefs and other marine habitats, “superlights” for fishing in municipal
waters, fishing in overfished areas and closed seasons, fishery reserves, refuges and
sanctuaries, as well as the taking of rare, threatened or endangered species. It is also unlawful
to obstruct defined migration paths of anadromous, catadromous and other migratory species, to
capture sabalo and other breeders/spawners, to violate catch ceilings, or engage in activities
that pollute the aquatic environment.

(iv) Monitoring, Accountability and Enforcement

11. A monitoring, control and surveillance system is specified by DA/BFAR in coordination with
LGUs, FARMCs, the private sector and other relevant agencies, to ensure that aquatic
resources are used managed sustainably.

(v) Sanctions
12. Violators of the Fisheries Code are punished by a specified period of imprisonment and/or
a fine, or both, at the discretion of the court, cancellation of their permit/license, if any, and
confiscation of gear, boat and illegal catch.

B. Policy Environment

Philippine Development Plan 2011-2016

13. National planning and policy making is based on five-year Development Plans and the

3
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Design completion report
Appendix 1: Country and rural context background

focus of the Philippine Development Plan (PDP) 2011-2016 is inclusive growth, which is defined
as “growth that is enough to matter given the country’s large population, geographical
differences and social complexity. It is substantial growth that creates jobs, draws the majority
into the economic and social mainstream and continuously reduces poverty”. Low growth, weak
employment generation and persistently high inequality are the immediate reasons for the failure
of inclusive growth in the country to date. The underlying structural causes include: (i)
inadequate infrastructure: (ii) major gaps and lapses in governance; and (iii) inadequate levels of
human development. Factors that provide a good opportunity to break out of its perennial
condition of poverty, inequity and lagging human development, include a healthy external
payments situation, years of trade reform leaving an industrial sector fairly undistorted by
subsidies and heavy protection, a stable currency and low inflation and positive political
developments.

14. The Department of Agriculture (DA) has adopted a comprehensive strategic framework,
the Agrikulturang Pinoy or Agri-Pinoy that guides the implementation of the various services and
programs of the DA for agriculture and fisheries from 2011 to 2016. Agri-Pinoy is anchored on
four guiding, and interrelated, principles:

 Food security and self-sufficiency which aims to meet the food needs of the country
and make them accessible, affordable, safe and nutritious, while reducing dependence
on food imports by increasing productivity;
 Sustainable agriculture and fisheries which emphasizes ecological and economic
sustainability and the carrying capacity of the country’s resources to complement efforts
to increase productivity;
 Natural resource management which seeks to optimize the development of natural
resources, enhance their competitive edge, and manage them so they will not be
exhausted;
 Local development which promotes an ecosystem framework of development,
particularly at the local level where governance and management of resources have
been devolved.

15. Among the strategies under the Agri-Pinoy framework are the empowerment of farmers
and fishermen through the provision of timely and useful information on climate change and
market patterns which will enable them to adapt and reduce risks and losses. They will also be
assisted in diversifying options and introduced to adaptive technologies.

National Convergence Initiatives

16. Proposals in the PDP for enhanced governance include the National Convergence
Initiative (NCI), now being implemented. The NCI aims to rationalize and improve the provision
of services to provide a more broad-based, effective and efficient approach to reduce rural
poverty. The government is pursuing the NCI to maximize resources available and synchronize
the initiatives of the three departments engaged in rural development: the DA, DENR and DAR,
although other agencies are participating in line with their mandates e.g. DTI, DOST etc. The
NCI is seen as a strategic development approach that can contribute to sustainable
development in the rural areas.

17. A Joint Memorandum Circular signed by the three agencies in December 2010 adopted a
shared Policy and Implementation Framework for the NCI. This enables the three agencies (DA,
DENR and DAR) to collectively respond to the common mandate of increasing income,
improving productivity and generating employment in rural communities through the “ridge-to-
reef” development approach towards inclusive growth and sustainable rural development. This
approach recognizes the close linkage between terrestrial and aquatic ecosystems and their
impacts on the lives of rural communities.

4
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Design completion report
Appendix 1: Country and rural context background

Agriculture and Fisheries Modernization Act and Strategic Agriculture and

Fisheries Development Zones

18. The Agriculture and Fisheries Modernization Act (AFMA) of 1997 (Republic Act 8435) aims
to modernize the agricultural and fishery sectors by promoting a technology-based industry to
enhance profitability by ensuring equitable access to assets, resources and services, and
promoting higher-value crops, value-added processing, agribusiness activities, and agro-
industrialization. It also seeks to empower people’s organizations, cooperatives and NGOs.

19. AFMA provides trade and fiscal incentives to qualified enterprises engaged in agriculture
and fisheries (including cooperatives, associations and consolidators) by granting exemption
from payment of tariff duties on all types of imported agricultural and fishery inputs, equipment
and machinery until December 2015 (RA 9281).

20. Implementation of the AFMA is now being made operational in the Strategic Agriculture
and Fisheries Development Zones (SAFDZ). DA has prepared regional and provincial SAFDZ
plans and maps delineating production, agro-processing and marketing zones within the network
of protected areas for agricultural and agro-industrial development at the regional, provincial and
municipal levels.

Coastal resources management and fisheries policies and strategies

21. According to DENR (2011a) to prepare for the Sustainable Development Strategy for the
Seas of Asia (SDS-SEA), the Philippines has:

 Set up a National Integrated Coast Management(ICM) Programme, to provide LGUs and

their agencies with capacity and technical support to improve governance and
sustainability of coastal and marine resources by more than 150 LGUs by 2015; and
 Put in place a national monitoring and reporting system covering the state of the coast in
the Philippines, to: (i) provide the government, the scientific community, the private
sector/ investors and the general public with information on trends or changes that are
occurring in the marine environment; and (ii) identify the driving force behind those
changes, the social economic and environmental implications, and the effectiveness of
the management interventions at the national and local levels.

22. The National Work Programme for SDS-SEA of the Philippine will:

 Strengthen the National Policies and Programme for Sustainable Coastal and Ocean
Governance.
 Promote ICM in the country.
 Encourage and require the use of eco-system based fisheries and coastal management
systems.
 Initiate studies on financial schemes for environmental protection and the generation of
income for LGUs, the communities and population.

23. The Philippines is also closely involved in the Coral Triangle Initiatives Project which
initiates and adopts ridge to reef approaches for coastal management, in line with ecology–
based coastal management. E.O. 797 established the Joint Secretariat for the Coral Triangle
Initiative National Plan of Action.

24. The Philippines has established Marine Protected Areas (MPAs) and institutionalized this
approach through the enactment of local government ordinances that include MPA plans.
Marine Protected Area-based resource conservation projects are also being pursued in
collaboration with the Southeast Asian Fisheries Development Centre. Initiatives on
institutionalization and funding of ICM plans by LGUs was facilitated, monitored and reported,

5
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Design completion report
Appendix 1: Country and rural context background

through the Integrated Coastal Resources Management Project (ICRMP) which is due to end in
2013. As of 2012, out of 79 target MPAs, 61 MPA plans had been completed of which 34 have
been adopted through municipal ordinances aided by the ICRM Project. MPAs cover a total area
of 31,263 ha with 5,320 ha of core or no-take zones. Some 32 resource conservation project
proposals were initially drafted.

25. The ICRMP is making efforts to institutionalize academic institutions as research and
development partners to support LGUs and communities in managing the coastal areas of the
country. The capacity to implement SDS-SEA has steadily developed.

26. The Executive Order no. 533 called for the adoption of ICM as a national strategy to
ensure the sustainable development of the country’s coastal and marine resources. The DENR
and the Partnerships in Environmental Management for the Seas of East Asia conducted the
last consultation to implement the National ICM programme under Executive Order 533. A
further initiative was the creation of the National Coastal Marine Centre for Research in Palawan
Philippines by the Coastal and Marine Management Office-Protected Areas and Wildlife Bureau.
The centre will work in partnership with the LGUs and academic institutions.

6
 Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Design completion report
Appendix 1: Country and rural context background

Philippines Country Data

1
Land area (km2 thousand) 2008 1/ 298 GNI per capita (USD) 2008 1/ 890
Total population (million) 2008 1/ 90.35 GDP per capita growth (annual %) 2008 1/ 2
Population density (people per km2) 2008 1/ 303 Inflation, consumer prices (annual %) 2008 1/ 9
Local currency Philippine Peso (PHP) Exchange rate: USD 1 = PHP 42November 2012

Social Indicators Economic Indicators

1.8
Population growth (annual %) 2008 1/ GDP (USD million) 2008 1/ 166 909
Crude birth rate (per thousand people) 2008 1/ 25 GDP growth (annual %) 1/
Crude death rate (per thousand people) 2008 1/ 5 2000 6
Infant mortality rate (per thousand live births) 2008
1/ 26 2008 3.8
Life expectancy at birth (years) 2008 1/ 72
Sector distribution of GDP 2008 1/
Total labour force (million) 2008 1/ 37.88 % agriculture 15
Female labour force as % of total 2008 1/ 38 % industry 32
% manufacturing 22
Education % services 53
School enrolment, primary (% gross) 2007 1/ 112
Adult illiteracy rate (% age 15 and above) 2008 1/ 6 Consumption 2008 1/
10
General government final consumption
expenditure (as % of GDP)
77
Household final consumption expenditure, etc.
Nutrition (as % of GDP)
Daily calorie supply per capita n/a Gross domestic savings (as % of GDP) 13
28
Malnutrition prevalence, height for age (% of
children under 5) 2008 1/
Malnutrition prevalence, weight for age (% of 28
children under 5) 2008 1/ Balance of Payments (USD million)
Merchandise exports 2008 1/ 49 025
Health Merchandise imports 2008 1/ 59 170

Health expenditure, total (as % of GDP) 2007 1/ 3.9 Balance of merchandise trade -10 145
Physicians (per thousand people) 1/ n/a
Population using improved water sources (%)
2006 1/ 93 Current account balances (USD million)
Population using adequate sanitation facilities (%)
20061/ 78 before official transfers 2008 1/ -11 884
after official transfers 2008 1/ 3 897
Agriculture and Food Foreign direct investment, net 2008 1/ 1 144
Food imports (% of merchandise imports) 2008 1/ 11
Fertilizer consumption (hundreds of grams per ha 1,412.4
of arable land) 2007 1/ Government Finance
Food production index (1999-01=100) 2007 1/ 127 Cash surplus/deficit (as % of GDP) 2008 1/ -1
a/
Cereal yield (kg per ha) 2008 1/ 3 334 Total expense (% of GDP) 2008 1/ 17
Present value of external debt (as % of GNI)
2008 1/ 37
Land Use Total debt service (% of GNI) 2008 1/ 7
Arable land as % of land area 2007 1/ 17
Forest area as % of total land area 2007 1/ 23 Lending interest rate (%) 2008 1/ 9
Agricultural irrigated land as % of total agric. land n/a Deposit interest rate (%) 2008 1/ 4.5
20071/
a/ replaces "Total expenditure" used previously.
1/ World Bank, World Development Indicators database CD ROM 2010-2011

7
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 2: Poverty, Targeting and Gender

APPENDIX 2: POVERTY, TARGETING AND GENDER

A. Incidence of Poverty in the Target Areas
1. Regional data from the National Statistics Coordination Board (NSCB), Poverty Statistics,
2009 (the latest detailed information), show ARMM as the poorest region in terms of the
incidence of poverty among families, followed by Region 5; Region 13is the 4th poorest region;
and Region 8the 6th poorest. The overall poverty incidence in the Philippines is 28.4%.

Table 1: Ranking of poverty incidence by region

Poverty
Region Rank
Incidence (%)
ARMM 57.0 1
5 49.0 2
13 42.9 4
8 37.8 6
Philippines 28.4
NSCB: Small Area Poverty Statistics, November 2009

2. Poverty in the target areas is widespread, and all of the 14 target provinces are among the
50 poorest provinces in the country (out of 80) ranked in terms of incidence of poverty among
families. All the target provinces have an incidence of poverty well in excess of the national
average.
Table 2: Ranking of poverty incidence by province
Poverty Poverty
Provinces Region
ranking incidence (%)
Lanao del Sur ARMM 2 51.4
Masbate V 4 49.8
Eastern Samar VIII 8 46.7
Surigao del Sur XIII 13 43.2
Sulu ARMM 21 37.9
Maguindanao ARMM 22 37.6
Camarines Sur V 24 37.2
Western Samar VIII 25 37.4
Basilan ARMM 25 37.4
Sorsogon V 27 34.3
Albay V 29 33.9
Agusan del Norte XIII 30 33.5
Leyte VIII 33 33.1
Southern Leyte VIII 35 28.2
NSCB: Poverty Statistics, November 2009
3. A review of poverty data, for the 103 municipalities and cities that border the bay/gulf sites
that the Project will target, reveals that 52% have a poverty incidence among families of 41% or
more. The average poverty incidence for all target municipalities and cities is 42%, well above
the national average. A breakdown of the figures shows that 2% have poverty incidence of more
than 61% and 10% 51-60%. The other figures are as follows 41% have a poverty incidence of
41- 50%; 34% 31- 40%; 13% 30% or below.
4. The average poverty incidence for the municipalities/cities bordering the 11 target
bay/gulfs is 42% with the highest poverty incidence in Matarinao Bay in Eastern Samar (Region
13), 49% followed by Ragay Gulf in Camarines Sur and Masbate (Region 5), 47% and lowest in
Butuan Bay in Agusan del Norte (Region 13), 35% (Working Paper 1 Annex 2).
5. Poverty is high in coastal communities where households lack food security as incomes

8
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 2: Poverty, Targeting and Gender

are very low and unstable. Fish catches are declining and alternative livelihood options for most
households dependent on fishing in the municipal waters are either not in place or not yet well
established. Fishing households experience hungry months every year especially during the
typhoon season, when fishing is often not possible. It has been observed that those who have
run out of livelihood alternatives tend to congregate in coastal areas as a ‘last option in life’.
When you fish for a day, at least you should have the chance of some food to eat compared with
farming where you need to provide agricultural inputs and labour before there is any produce to
harvest. In coastal communities many households only have the minimum of assets to sustain
their lives on a day-to-day basis.
6. While data for the incidence of poverty from the 2009 survey is available down to the
municipal/city level, it is not available at the barangay level. Therefore there are no direct
estimates of the numbers of poor households or poor people in the coastal barangays that
border the target bays/gulfs.

B. Causes of Poverty and Coping Mechanisms

7. The municipal fishermen are poor for the flowing reasons:
 Incomes are low, un-diversified and generally depend largely on fishing, while the
bay/gulfs are experiencing declining fish catches; the BFAR Regional Offices (2012)
reported that the average annual fishing household income was only PHP 38,879 which
is inadequate to address basic household needs and at the same time provide for
investments in fishing and/or alternative livelihood activities.
 There is inadequate provision of livelihood assistance for municipal fishermen; the only
government assistance is for the poorest households with children of 0-14 years of age
for education and health.
 There is a lack of sustained efforts to assist municipal fishermen in processing and or
marketing their fish catch.
 There are very few NGOs in coastal municipalities and barangays and efforts to organize
and strengthen the existing POs to address poverty are inadequate.
 Foreign and local commercial fishing boats compete with the municipal fishermen for fish
when fishing illegally in the municipal waters.

8. The coping mechanisms available to households dependent on the municipal fisheries are
varied and include the following:
 Reduce food intake and subsist on fish and rice once a day and sell any additional fish.
 When possible work as hired labour in the municipality, province or the larger urban
centres.
 Engage in micro-business using money borrowed from a local money lender at a high
rate of interest.
 Seek government support for food and odd jobs.
 Engage in illegal activities such e.g. dynamite fishing, selling the bark of the mangrove
trees (for those who are the poorest in coastal barangays).
C. Target Group
Numbers of households
9. The priority target group for the Project is poor fishing households and this number can be
estimated approximately using the number of fishing households and the incidence of poverty
among fishermen. The former is available from the statistics included in Annex 2 of Working
Paper 1 and was provided by BFAR, while the latter which is available at regional level from the
2009 poverty statistics and is included in Table 3 (below). Using the average household size the
number of poor people living in fishing households can be calculated.

9
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 2: Poverty, Targeting and Gender

10. Table 3 shows the calculations using the figures for fishing households and for registered
fishermen. These figures provide a rough estimate for the number of poor households linked to
fishing. The estimate is 38,050 households with 146,493 members. Table 3 also indicates that
there are on average 2.26 poor fishermen in each of the poor fishing households.
11. If the overall average incidence of poverty of 42% recorded in the target LGUs applies to
the population of the target coastal barangays of 1,724,554 there are 724,300 poor people
(Working Paper 1, Table 3 A). From this calculation the members of poor fishing households
account for about 20% of the poor in the coastal barangays.
Table 3: Numbers of poor fishing households and poor people living in fishing
households in the target coastal barangays
Poverty No. of poor
rate for Average No. of No. of poor people in No. of No. of
Region household fishing fishing registered poor
fishermen fishing
% size households households households fishermen fishermen
V 44 5.0 33,527 14,752 73,760 53,775 23,661
VIII 42 4.0 28,152 11,824 47,295 32,354 13,589
XIII 38 2.2 15,970 6,069 13,351 25,042 9,516
ARMM 43 4.7 12,947 5,567 26,166 91,802 39,475
Total 42 3.9 90,596 38,212 160,572 202,973 86,241

Women, youth and indigenous peoples

12. Women, youth and IPs are also specific target groups for this Project. As shown in Table 4
and 5 below in the Project regions both groups have an incidence of poverty higher than the
national average. Some women will have been counted as members of poor fishing households.
13. The 2008 World Bank figures showed that 16.6% of households were headed by women.
Youth account for 41% of the population in Region 5, 39% in Region 8), 30% in Region 13, and
43% in ARMM. Using these percentages Tables 4 and 5 calculate the numbers of poor women
headed households and poor youth by target region.
14. Women headed households. However, the proportion of women-headed fishing
households in ARMM (based on information from the field meeting) is probably around 25%,
because of the number of widows as a result of past armed conflict. This information will require
confirmation during the Project’s baseline survey. The estimated number of poor women-
headed fishing households is around 7% of the total fishing households.
Table 4: Poverty incidence among women
Region # Fishing # Women Women poverty # poor WHH
households headed households incidence fishing
@17% (%) households
5 33,527 5,700 43.0 2,451
8 28,152 4,786 39.6 1,866
13 15,970 2,715 45.9 1,222
ARMM 12,947 2,201 45.3 990
Total 90,596 15,401 6,589
Source: NSCB, 2009 Poverty Incidence among Basic Sectors

15. Youth. The youth population reflected in Table 5 below is based on the coastal population
determined from the regional percentages of the youth population. The youth population at
666,967 is 39% of the total coastal population of whom 262,263,equivalent to 15% of the target
total coastal population, are poor.
16. These figures are significant and justify a serious effort by the project to support poor
women-headed households and the rural youth.

10
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 2: Poverty, Targeting and Gender

Table 5: Poverty incidence among youth

Region # coastal % # coastal Youth poverty # poor coastal
population Youth youth incidence (%) youth
V 427,442 41 175,251 40.0 70,100
VIII 520,177 39 202,869 37.1 75,264
XIII 347,964 30 104,389 42.0 43,843
ARMM 428,971 43 184,458 39.8 73,414
Total 1,724,554 666,967 262,623
Source: NSCB, 2009 Poverty Incidence among Basic Sectors

17. Indigenous Peoples. There are groups of Indigenous Peoples (IP) living in the area
covered by the proposed Project, namely in Region XIII in Hinatuan-Bislig-Lianga Bays and in
ARMM in both Illana Bay and the Sulu Sea. These groups are shown in the Table 6below:
Table 6: Indigenous Peoples living in Region XIII and ARMM
Ethnic
Region Bay/Gulf Municipalities/ # of
Tribes/Gro Remarks
Sites Cities Households
ups
XIII Hinatuan- Barobo, Bayabas, Manobo The estimated The number of IPs will have to
Bislig- Bislig, Cagwait, and population in be determined during the
Lianga Hinatuan, Lianga, Mandayatri these baseline study.
Bay Lingig, Marihatag, San bes municipalities is
Agustin 95,843
ARMM Illana Bay Parang, Matanog, Tausog, The majority are The number of IPs will have to
Sultan Mastura, Sultan Maguindan the be determined during the
Kudarat, Datu Blah ao, Maguidanao, baseline study.
Sinsuat, Datu Odin Maranaw, Maranaw and
Sinsuat, Kapatagan, Iranon Tausog.
Balabagan, Malabang,
Picong
ARMM Sulu Sea Tabuan-Lasa, Maluso, Yakans, Majority are the The number of IPs will have to
Sumisip, Tausug, Tausug, Sama, be determined during the
HadjiMutamad, Bajaos, Yakans and baseline study. Most of the
Lantawan, Jolo Samal, Bangingi. ethnic groups in the Sulu Sea
Sama live in island municipalities and
live on stilts protecting them
from inundation during high
tides.

Profile of the target groups

18. Despite the overall high incidence of poverty (42%), the households of the municipal
fishermen are probably less poor than some other poor households, as they have some assets
for fishing and around 30% have agricultural land within the coastal zone. Most fishermen are
married, are in the age range of 45 – 55 years old, male household heads and not IPs (see
above). Wives of the fishermen often market and/add value to the catch through
processing/drying. This group is increasingly subsistence oriented because of declining fishing
catches.

19. A second group are the other poor households, including female-headed households, who
are not fishermen but whose livelihood depends on the coastal areas. This group has lower
incomes than the fishing households and needs assistance to develop alternative livelihoods the
most. Women may purchase the fish catch and may market and/or process these products. Poor
households, including women headed households also engage in alternative livelihood activities
including food processing (bread, cakes etc.), trading basic commodities in the coastal
communities e.g. rice and other food stuffs and rearing livestock (pigs and chickens). Most of the
household heads are married, 45-55 years old, and around 17% are in female-headed
households. Land holdings are lower than those of the municipal fishermen with around 10-20%
having access to some land. While this group is enterprising they lack funds for investment in

11
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 2: Poverty, Targeting and Gender

alternative livelihoods as well as technical and managerial knowhow. However, women-headed

households in ARMM reportedly account for an estimated 25%, higher than elsewhere because
of the frequent armed conflict which has increased the percentage of widowed women.

20. The out-of-school youth are on the lowest rung of the socio-economic ladder in coastal
communities. Most are single and there is an even gender-balance. In terms of education this
group has only reached high-school level where some were able to graduate. Most of the youth
have not received tertiary education and very few have taken vocational courses. This group is
the labour force in the coastal zones, have no access to land and lack skills.

21. The IPs are also at the bottom of the socio-economic ladder. Most IPs live in upland
riverine areas, but some may reside in target coastal areas in Regions XIII and ARMM. The IPs
residing in the coastal areas of ARMM are better off than the non-IPs, as they live in affinity
groups with a well-developed social network and support system. Most are married and like the
out of school youth, the male IP provide the labour force and work on nearby farms and in the
fish processing facilities.

22. The Project will target four groups: (i) subsistence or marginal fishing households(men and
women) who may or may not yet be members of a PO; (ii) female-headed households; (iii)out-of-
school youth; and (iv) IPs in Regions XIII and ARMM.
D. Targeting of People’s Organizations
23. The Project will target these groups of poor households from the target coastal barangays
and provide assistance through two types of POs.

 Existing registered POs which may or may not be dormant and which new members may
wish to join and where 40-50% of the members are women and 40-50% of the officers
are women: these POs must be willing to up-scale/adapt previous intervention and be
willing to provide local counterpart/contributions (cash or kind).
 New POs which will be formed and registered/accredited and will engage in CRM-based
and/or non-capture fishery based activities/sub-projects. They should also be willing to
provide local counterpart/ contribution (cash or kind) and 40-50% of the members and
40-50% of the officers should be women.

24. As a popular saying goes “start where the people are”, the first two years of the project will
concentrate on supporting the existing 771 POs and in the third year, assist and support 327
new POs. The project area data shows that of the 1,098 coastal barangays to be covered, there
are 771 existing POs and the project assumes that these are located in 771 coastal barangays.
This leaves around 327 barangays where there are no registered Fisherfolk-POs. The first two
years will concentrate on organizing and developing the new POs first in barangays where there
are none.

Group Target Description

Existing POs PY1: 336 existing POs For PY1, 336 existing POs will be assisted subject to their
meeting the eligibility criteria. Only one PO per coastal barangay
will be assisted. If there are two or more POs the community will
decide which will be the conduit for the Project’s development
interventions to the community. PO selection/readiness criteria
are attached to guide the Project in selecting POs eligible to
receive project assistance. These existing POs must be ready
to implement sub-projects in PY1.

Existing POs PY2: 435 existing POs For PY2, 435 existing POs will be assisted as above

New POs PY3: 327 new POs (to cover For PY3, 327 new POs will be assisted, with target group

12
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 2: Poverty, Targeting and Gender

barangays where there are members. New POs will be located in coastal barangays where
no registered POs) no registered PO exists and these will meet the readiness
criteria to determine their eligibility to receive project assistance.

st
Women, Youth, PY1: groups of women/ Coastal community help groups will be organized in the 1 year
and IPs female headed households; in the same coastal barangays where there are existing POs.
youth groups; IP or other The POs will help form 2-3 groups of (women, youth, IPs) per
groups in the coastal coastal barangay. In PY1, this will involve the existing 336 POs
barangays, where there are to be assisted by the project.
existing POs at a target of 2
to 3 coastal community help
groups per barangay

PY2: coastal community A second set of coastal community help groups will be formed in
help groups as above in 435 PY2, where the 435 POs to be assisted by the project are
barangays where there are located.
existing POs

PY3: coastal community The last set of coastal community help groups will be formed
help groups as above in 327 and assisted in PY3, in barangays where 327 new POs have
barangays where POs will been organized and registered.
be formed

13
 Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 2: Poverty, Targeting and Gender

Table 7: Summary of Basic Information of Proposed Bays/Gulfs

Region No. No. of No. Poverty Municipal No. of No. of Coastal No. of No. of Average Motorised Non- Banta FARMC PO
of Bays/ LGU rate population coastal coastal populatio fishing reg. annual bancas motorised y-
Prov. gulfs s % hhs barangay n hhs fishermen fishing hh (3 GT or bancas dagat/
** s income less) FLET
PHP
V 4 3 24 44 1,620,774 83,832 272 427,442 33,527 53,775 26,588 8,045 5,986 248 132 157
VIII 4 4 38 42 1,167,328 119,417 500 520,177 28,152 32,354 47,820 13,519 11,381 74 38 249
XIII 2 2 18 39 894,346 154,332 146 347,964 15,970 25,042 40,231 7,457 8,446 38 135 190
ARMM 4 2 23 43 1,064,986 90,347 180 428,971 12,947 91,802 40,876 6,900 8,884 79 23 175
Total 14 11 103 42 4,747,434 447,928 1,098 1,724,55 90,596 202,973 38,879 35,921 34,697 439 328 771
4

** Two LGUs border two bays/gulfs.

14
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 2: Poverty, Targeting and Gender

Geographical targeting criteria

Originally proposed – inception mission May Additional investment-based criteria- design

2012 mission November 2012
1. Criteria used to select target regions and provinces
(i) Poverty: poverty incidence greater than the (v) Law and Legal Enforcement: pro-active
national average presence of law enforcement authorities and
(ii) Importance of municipal fisheries: (a) legal offices for apprehension and
production from municipal fisheries greater prosecution of illegal fishing activities,
than the national average; and (b) number of encroachment and poaching and not
bancas greater than the national average hampered by any government offices
(iii) Government priority for development:
presence of more than one bay with a
potential for improved management of
coastal resources and development of
municipal fisheries (BFAR Assessment)
(iv) Staff availability: sufficient competent
BFAR staff at regional and provincial levels
to manage Project activities in addition to
staff assigned for other on-going and/or
planned interventions
2. Criteria used to select target bays and gulfs
(i) Status of resources and potential for (v) Previous foreign-assistance: bays which
improvement: areas of degraded coastal were covered by previous foreign-assisted
resources; (a) fish biomass or density is projects will be prioritized for scaling-up of
assessed as “fair or less”; and/or (b) live new interventions
coral cover is assessed as “fair or less” (vi) Critical economic importance: bays which
(ii) Other projects: target bays should: (a) not are assessed by BFAR as having critical
part of the ICRMP or other similar on-going economic importance for investment will
or planned activities; and (b) not included be targeted
under the National Integrated Protected (vii) Environmental significance: bays which
Areas System are environmentally significant in
(iii) Coordination and Management: 2-3 relation to disaster risk reduction and climate
bays/gulfs change will be targeted
should be targeted in each region
(iv) Peace and Order: no hindrance to the
interaction of Project and IFAD staff and
consultants with the potential beneficiaries
3. Readiness Criteria for the selection of LGUs in the target bay/gulf areas for investment
(i) Importance of Marine Fisheries. A (vi) Coastal Resource Management Plans,
minimum of 200-300 registered municipal Municipal Development Plans (MDP),
fishermen Comprehensive Land Use Plan (CLUP)
(ii) Willingness of LGU to participate: (a) and Investment Plans: LGUs with updated
management and development of municipal plans and who can identify and submit sub-
fisheries and coastal resources is a LGU projects complete with the necessary Project
priority, as indicated by the Municipal documents will be the priority for investment
Investment and Development Plan; (b) LGU (especially in PY1)
prepared to contribute 10% of the (vii) Presence of the FARMC. A Municipal/City
investment costs; and (c) ordinances in Fisheries and Aquatic Resources
place for the municipal fisheries Management Council (M/CFARMC) is
(iii) Delineation of boundaries of municipal organized in the covered municipality/city
waters: The municipalities with a completed with composition as mandated in section 75
and accepted delineation of boundaries of of RA 8550.
municipal waters will be a priority for Project
investment
(iv) Staff availability: Competent MAO fisheries
staff can be allocated to manage Project

15
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 2: Poverty, Targeting and Gender

Originally proposed – inception mission May Additional investment-based criteria- design

2012 mission November 2012
implementation
(v) Access to services: Community organizing,
business development, and micro-finance
services, input supplies, fish traders, etc.
available

16
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 3: Country Performance and Lessons Learned

APPENDIX 3: COUNTRY PERFORMANCE AND LESSONS

LEARNED
A. Country Programme
1. IFAD started its operations in the Philippines in 1978. As of June 30th 2013, IFAD had
provided loans and grants to assist the financing of 13 government projects, of which nine have
closed, four are ongoing. The total IFAD commitment (loans and grants) to the government is
about USD 175.9 million. A further project (CONVERGE) is in the final stages of the government
review and approval process with presentation to the IFAD Executive Board expected in March
2014.

2. The four ongoing projects are: Rural Micro Enterprise Promotion Programme (RuMEPP
– IFAD Loan No. 661-PH and IFAD Grant No. 782-PH); the Second Cordillera Highland
Agricultural Resource Management Project (CHARMP-2 IFAD Loan No. 749-PH and IFAD Grant
No. 1030-PH); Rapid Food Production Enhancement Programme (RaFPEP - IFAD Loan No.
767-PH and EC Contribution Agreement DCI-FOOD/2009/209-973); and the Integrated Natural
Resources and Environment Management Project (INREMP – IFAD Loan No. 890-PH).
B. Project Performance – Ongoing Projects
th
3. RuMEPP. By 18 July 2013, IFAD has disbursed USD 18.2 million of the loan and USD
0.508 million grant. At 31st August 2012 (data available at the time of the most recent
Supervision and Implementation mission, the total disbursement of counterpart funds (DTI,
Small Business Corporation (SBC) and MFIs combined) was USD 4.946 million or 115% of the
commitment and reflects an increase in the government’s share (taxes) and significant
contributions from SBC and the MFIs for loans to the micro-entrepreneurs. The 2010 outcome
survey carried out prior to the MTR and using data from nearly 300 micro-entrepreneurs (from
the original sample of 550), reported an average increase in assets of 55% and an increase in
profits of 62%. The Programme has already had an impact on government policy. DTI is
planning to “out-scale RuMEPP” in 2014 into a new DTI programme called the Micro-Enterprise
Development Programme, which will combine support for business development services with the
provision of credit for micro-entrepreneur development, following the RuMEPP model.
4. The programme has already achieved or exceeded almost all of the output targets and
the overall implementation progress was rated as satisfactory by the 2012 Supervision and
Implementation Support Mission. The programme should achieve the remaining key output
target namely for convergence i.e. the number of micro-entrepreneurs receiving both micro-
finance loans and business development services by the end of the Programme. This
performance is a commendable achievement, especially after the delayed start to programme
implementation. There are two major areas where action is required. First, there is a need to
obtain information on programme outcomes to assess the extent to which the outputs achieved
have led to the desired outcomes and to assess what approaches the programme has used
have been more or less successful. This data is needed to guide programme implementation for
the remainder of the Programme and for preparing the Programme’s sustainability plan or exit
strategy. The only data available on Programme outcomes comes from the outcome survey
carried out in 2010, just before the MTR. Secondly, and linked to this is the need to prepare the
programme’s sustainability plan.
5. Second Cordillera Highland Agricultural Resource Management Project
(CHARMP2):The MTR carried out at the beginning of 2012 after three years of implementation
rated the Project’s implementation progress as unsatisfactory, with few key appraisal targets
met. The third Supervision and Implementation Support Mission was carried out in February
2013 and reported that after 51 months of the Project implementation (out of a total of 86
months), the total cumulative disbursements were USD 6.768 million or 10.2% of the total
Project costs of USD 66.44 million compared with the target of 59.3% based on the time

17
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 3: Country Performance and Lessons Learned

elapsed, a gap of nearly 48%. If the ADB Loan is excluded, there was no financing agreement
then, the disbursement rate would have been 12.0%. This performance reflects a 18% decline in
the disbursement performance compared to that recorded by the MTR

6. Project implementation has suffered for reasons which included the delayed Project start-
up due to coordination problems between agencies, demands from the regular work
assignments of the staff assigned to the Project, the lack of counterpart funds for rural
infrastructure investment due NG:LGU cost sharing policy (outside the control of the Project),
delays in procurement, the geographically wide area covered by the Project, remote and difficult
travel conditions and a lack of coordination between components. Some recent achievements
include the following:

 A lot of preparatory work for the proposed infrastructure investments, the start of
construction at a number of locations, and the completion of a few small schemes
following the agreed reduction in LGU counterpart contribution following the suspension
of the policy for cost sharing between the national and local governments.
 Rationalisation of the value chain approach, as agreed during the MTR.
 Some decentralisation of the implementation, although delays still exist because of a lack
of staff posted to the provinces and the continuing centralisation of the processes for
approval, procurement and financing.
 Direct hiring of community Mobilisation Officers and the Provincial Supervisors following
the end of the NGO contracts.
 Improved implementation by the National Commission on Indigenous Peoples.
 An evaluation using NEDA Gender and Development guidelines which classified Project
implementation (project management and monitoring and evaluation or M&E) as gender
responsive, the highest category.

7. Major Issues remain. Approval by the NEDA Board of the agreed MTR actions took one
year, delaying the following: (i) the implementation of the Livelihood Assistance Fund (LAF), a
key element of Component 3; and (ii) the approval of the necessary revisions to the IFAD
Financing Agreement, which is still outstanding. The closing date (July 31st 2013) for the OFID
loan has been extended to 31st July 2014. Major and immediate improvements in Project
implementation performance are still necessary to achieve the Project’s objective, and the
outcomes and outputs as revised during the MTR. It is especially urgent now that the Project
addresses the decentralisation issue to avoid the bottlenecks at the Project Support Office that
delayed implementation in 2012. These delays are reducing the beneficiaries’ enthusiasm for
participating in Project activities and, if left unaddressed, risk seriously damaging the credibility
of CHARMP2 in the Project area
8. RaFPEP.By18th July 2013, IFAD has disbursed a total of USD 26.6million (IFAD loan
USD 15.6 million and EU grant USD 11.0 million), over 90% of the total financing. At the time of
the last supervision mission in September 2012 the financial status of the Irrigated Rice
Production Enhancement Project (IRPEP) showed a total expenditure of USD 4.19 million or
23.10 % of the USD18.12 million allocated funds including all the counterpart contributions
(government, LGUs, and farmers’ equity). IFAD has approved an additional USD 3.66 million
(USD 1.30 million as a grant and USD 2.36 million as a loan) for IRPEP to finance the
rehabilitation of two irrigation schemes damaged in December 2012 by the typhoon Sendong
(international name Washi). Overall, the performance of RaFPEP is satisfactory. The Rapid
Seed Supply Financing Project (RaSSFiP) has exceeded its target output acquiring and
distributing 803,750 bags of certified paddy seed upon completion in December 2011. This seed
was used by 428,221 paddy farmers. Studies carried out by the Bureau of Agricultural Statistics
in RaSSFiP areas, show that 47% of the beneficiaries reported higher paddy yields compared
with before the Project. The increase is attributed to the use of certified seed. According to the
2012 Supervision Mission, the recent performance of the Irrigated Rice Production
Enhancement Project (IRPEP) was moderately satisfactory. There was a strong indication of

18
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 3: Country Performance and Lessons Learned

IRPEP sustainability as Project interventions are being mainstreamed into the implementing
agencies’ regular functions, and are focused on strengthening the Irrigators’ Associations. Focus
group discussions have reported increases in yields, income and assets following irrigation
improvements. In addition to completing some actions agreed in 2011,there were three major
areas that required action by the IRPEP management: (i) timely completion of the rehabilitation
of the communal irrigation schemes; (ii) providing the irrigators’ associations, especially those
where rehabilitation works are complete, with the required capacity to manage the irrigation
systems including policy formulation and implementation, water distribution, and operation and
maintenance; and (iii) strengthening the capability of IRPEP’s M&E system. A MTR is scheduled
for September 2013.
C. Grant Programme
9. In addition, six IFAD grants were being implemented within the country at the time of the
COSOP MTR review (July 2012). The grant programmes seem to have contributed little as yet
to the achievements of the ongoing projects, or towards the achievement of the Sons, thereby
casting doubts as to their value to the country programme.

10. IFAD is also cooperating with NEDA through a grant funded - IFAD Technical Assistance
for Institutional Strengthening of Results-based Monitoring and Evaluation for NEDA and
Implementing Agencies in the Philippines. These funds enable NEDA staff to gain experience by
participating in IFAD Supervision and Implementation Support and other missions.
D. Lessons Learned from IFAD Experience in the Philippines
11. Project interventions should give special emphasis to developing technical and
managerial know-how, providing market access and access to production capital for poor
households. Therefore, project support should not be limited only to institutional support,
technology and inputs for demonstrations and trials. In communities where there is a strong
sense of ownership technologies are replicated and expanded and infrastructure is properly
maintained. As a result, the Project will involve the target beneficiaries from the
identification/planning phase and throughout the whole Project cycle. Regular community
planning, review and updating will enable the communities to continuously update and address
their development priorities.

12. LGUs involvement in past project implementation have contributed to greater efficiency
and effectiveness of the project interventions. Their involvement will continue in the proposed
Project as co-financiers for the rural infrastructure and other investments. This practice provides
a promise for sustainability of the Project benefits after the end of the Project since the LGUs will
then be responsible for the operation and maintenance of the sub-projects.

13. Functional coordinating mechanisms will facilitate project implementation, which will be a
feature of the proposed Project. The Bay Development Councils will play a key role in
coordination in CRM related matters and the existing Barangay Development Teams and the
Project’s proposed coordination arrangements at central, regional, bay/gulf and LGU levels are
mechanisms for sharing knowledge, providing feedback to the implementers and for resolving
problems. In addition, it also facilitates the participation of stakeholders at various levels.

14. Supporting farming households to become entrepreneurial requires funding subsidies.

The self-help approach has limitations when it comes to providing the larger amounts of capital
needed for entrepreneurial activities. As a result, the Project design focuses on providing grants
for investments as part of a package that includes capacity building and technical and
managerial support, along the lines of the RuMEPP approach and helping this group to become
good potential clients of MFIs and the formal banking sector.

15. The COSOP (2009-2014) MTR highlighted the following additional lessons from the
recent country programme experience. The first is the negative experience of the NG:LG cost

19
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 3: Country Performance and Lessons Learned

sharing arrangement (suspended in September 2011), which has delayed implementation of

CHARMP2. The LGU share of the Project costs must be affordable, which was not previously
the case. IFAD must ensure through continuing policy dialogue that any new policy enables the
poorer municipalities (5th and 6th Class LGUs), usually targeted by IFAD projects and
programmes, to provide the financial contribution required.

16. The second lesson concerns the desirability of having simple project designs with few
components and only one government implementing agency. The coordination problems
associated with several agencies can be beyond the capacity of the project management to
overcome as the CHARMP2 experience shows. RuMEPP initially had problems in coordinating
DTI activities with those of SBC but these two institutions are now working well together, with
highly competent and well-motivated staff with clear roles and responsibilities.

17. The third lesson learned is the need for the government to eliminate the delays caused
by the current over complex approval process, which has already delayed the approval of the
INREMP Project by nearly four years and the Project CONVERGE by 20 months so far.

18. The fourth lesson concerns community mobilisation. The employment of NGOs is often
seen as the most appropriate way to mobilise communities, but this has not always proved to be
correct. Experience has shown that contracted NGOs may just operate as contractors carrying
out a series of discrete tasks rather than acting as true community facilitators. The lesson
learned is that community mobilisation whether by NGOs or using directly hired staff must be
well managed. Staff recruited locally should have a greater commitment to assisting the
community than those from outside the community. Staff must have appropriate TOR and terms
and conditions of employment, while adequate technical and managerial supervision is
essential. The latter has often been lacking with NGOs.

19. The fifth lesson learned is the need for an alternative to formal sources of credit to
provide some initial financial support to rural households that want to start the process of
becoming entrepreneurial. The Northern Mindanao Community Initiatives and Resource
Management Project successfully introduced the revolving fund approach, the Poverty
Alleviation Fund, and CHARMP2 is now introducing a similar type of fund, the Livelihood
Assistance Fund, to provide revolving funds in the barangays.

20. A final lesson concerns the need to ensure that the M&E and knowledge management
arrangements can disseminate information on best practices for replication elsewhere and that,
where appropriate, the lessons learned can be incorporated into future development
programmes and policies. However, project design must ensure that the M&E arrangements are
within the capabilities of project staff. With an increasing demand for indicators both from the
Government and IFAD there is a danger of project M&E becoming a “project on its own”, rather
than primarily a management tool.
E. Effectiveness of the IFAD Philippines Country Programme
21. According to the 2012 Client Survey, the perception is that the effectiveness of the IFAD
Philippines country programme has shown a marked improvement over the past two years,
perhaps the result of IFAD’s close alignment with NEDA. However, the area where the
Philippines ranks below the average is in terms of the impact. A possible explanation is the lack
of progress with the implementation of the CHARMP2 Project and the delays in the design and
approval of the INREMP, foreseen as a major element of the 2010-2014 country programme, for
which the IFAD Executive Board approval was only received in December 2012despite project
appraisal in 2008.
F. Impact of IFAD Assisted Projects
22. From the data available it is not possible to make an assessment of the impact of the
current country programme in terms of progress towards achieving the COSOP’s Strategic

20
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 3: Country Performance and Lessons Learned

Objectives; no data on the impact of the three ongoing projects was included in the RIMS
reports for 31st December 2012. Two projects (RuMEPP and RaFPEP), have appropriate
baseline data, whileCHARMP2 undertook a baseline survey in 2010 (effective in November
2008). There was no impact data from the time of the RuMEPP Mid-Term Review (MTR) and no
MTR impact survey for CHARMP2) as the baseline survey was carried less than two years
before the MTR.

21
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 4: Detailed Project Description

APPENDIX 4: DETAILED PROJECT DESCRIPTION

A. Governance - Legislation and Law Enforcement
Co-management

1. The vague but nevertheless still unfortunately over-used term “co-management” is not
used in this document. A fundamental problem is that the term is applied to too wide a variety of
arrangements as to now be almost meaningless, which “… undermines understanding,
meaning, and its usefulness to redesign management (Davis and Ruddle 2012:245). Indeed, as
Pinkerton (2003:69), a leading early advocate of “co-management” now avers, “the term
‘fisheries co-management’ has now become so broadly used in applied settings and in social
science that it risks losing important aspects of its original thrust.” “However, “co-management”
is particularly promoted, it’s widely asserted benefits being a more inclusive and equitable form
of resource governance that directly engages and, thus, empowers “users” and “stakeholders.”
In ways generally not clearly specified, it is implicitly assumed that this would enhance
ecological and livelihood sustainability, while fostering “user/stakeholder” regulatory compliance”
(Davis and Ruddle 2012:245).

Legislation
2. Appendix 1 provides a summary of the legislative framework that governs the municipal
fisheries. The two key documents are the Local Government Code RA No.7160 and the
Fisheries Code RA No. 8550. By promoting an “integrated management” concept among LGUs
surrounding bays and gulfs through the creation of Integrated Fisheries and Aquatic Resources
Management Councils (IFARMCs) section 76 of the Fisheries Code duplicates the Coastal
Resource Management Councils, or as more commonly known, Bay Management Councils
(BMCs) established under the Local Government Code. According to BFAR, the purpose of the
IFARMCs is to provide fisheries management and policy advice to the BMCs rather than
duplicate the functions of the BMC. However, with the two entities there is scope for overlapping
responsibilities and conflicts. As part of the policy work the Project will review this situation and
recommend ways and means of eliminating any wasteful and confusing duplication.

3. The inability or disinclination of many the LGUs to date to work cooperatively in multi-
jurisdictional management, as indicated by the BMC’s lack of success to date, hobbles effective
coastal resource development and management. As a result, the Project will identify the causes
of such a situation and recommend appropriate countermeasures. The Project will include the
following when assessing the situation in the target bays/gulfs:

 Identify factors that cause conflicting interests and facilitate the emergence of dominant
individuals and/or sectors, and recommend appropriate countermeasures.
 Ascertain whether development efforts concentrate on the LGU of the incumbent
Chairperson, and if so whether this has a negative effect on the commitment of other
member-LGUs who have not benefited similarly.
 Identify the factors that promote a robust organizational structure in a BMC, and as part
of the process simplify the parameters of authority and accountability by
reducing/eliminating overlapping functions and poorly defined roles of operational units.
 Ascertain the level of formalisation and institutionalisation of partnership agreements,
and formulate clear organizational structures that delineate the roles of each sector.
 Ascertain for each BMC whether or not there exists a full-time staff and an adequately
equipped and dedicated office space for administering programmes.
 Affirm that planning is a participatory process that integrates the full range of community
concerns of the social different and occupational groups, and shall reinforce community

22
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 4: Detailed Project Description

participation in fisheries management in line with the Local Government Code.

4. In the text of the RA 8550 it is stated that the Philippines Fisheries Code must be reviewed
in the decade after its enactment. This was not done. This review which the Project will finance
will include the following elements:

 Seek to ascertain whether implementation of the Fisheries Code has raised the
standard of living of small “fisherfolk” and protected marine environments from
corporate interests, as well as to ensure that it is has not become a tool of privatisation
that is undermining the communal character and ways of life in fisherfolk communities
(Davis and Ruddle, 2012).
 Examine the devolution of implementation, management, and enforcement
responsibilities to local governments as mandated under the Local Government Code,
since these may be inadequate without national level funding and related support.
 Ascertain the management roles of local communities, supported by both government
and local organizations. Local authority, roles and management structures, together
with strategies for allocation of fishing rights, should all be specified clearly in policy
guidelines. Thus this Project should clarify and render unambiguous the legal
framework of the Fisheries Code, with mandates and responsibilities specified for the
management authorities at central, intermediate and local levels.
 As an integral component of that understanding, the Project will ascertain the existence
of any pre-existing small-scale fisheries management systems since these either
are or were used widely throughout the Asia-Pacific Region to manage coastal fisheries
(Ruddle1994; Ruddle and Satria 2010).

Law enforcement
5. Fishery law enforcers’ base their actions on the laws of the land which are written and in
which, fish and other marine organisms, subject for regulation, are identified by their scientific
names. Similarly, fish examiners/enforcers will have to examine the organs of fish caught
through blast fishing. Hence law enforcers must be familiar with these names and also with the
basic fish science and these subjects will be one of the topics included in the training of the
FLETs. The training will enable the law enforcers to fully-understand what are they protecting
and why are they protecting it.

Illegal Fishing

6. The complex relationship between small-scale “fisherfolk” and commercial fishing has an
important bearing on illegal fishing. However, usually it is described just in terms of resource
competition, whereas there may be a reciprocal and interdependent relationship between them,
based on routine socio-economic and socio-political interactions that involve a variety of
interests. The Project will assess the types and social and economic characteristics of illegal
fishing, and recommend local regulations and national policy changes, if deemed appropriate, in
the light of any new practical evidence thereby uncovered.

7. Other relevant issues to be studied could be: (i) varying penalties for fisheries violations
according to LGU, thus focusing illegal fishing in a municipality where penalties are less severe;
(ii) the lack of clear LGU boundaries, where undocumented traditional community boundaries
based on local customary rules regarding eligibility of entrants may exist; (iii) protection of large-
scale commercial operators fishing illegally in municipal waters by powerful high level interests.
The BMCs would an appropriate vehicle to address issues (i) and (ii), while in the interests of
social justice the Project must address issue (iii) if found to exist, which must be overcome if
“fisherfolk” are expected to conform to the law. The Addendum to Working Paper 2 has further
details.

23
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 4: Detailed Project Description

Regulating Overfishing

8. Overfishing is a common sense and readily apparent assertion regarding tropical small-scale
fisheries. However, its characteristics need more precise definition for each fishery. In general,
small-scale fisheries are characterized by data problems, such that precise and reliable
quantitative data are lacking. Thus it is extremely difficult to measure accurately a claim of over-
fishing in any specific locality. Such data problems arise because collection of reliable statistics
is physically and logistically difficult in most tropical and developing countries, where fish
catches are unloaded at myriads of points scattered along vast and often remote rural
coastlines. Further, because many small-scale fishers both sell their products locally and
consume their catches in their own household, their landings are usually under-represented in
official statistics.

9. An important contribution could be made to the problem of landing and catch and effort
data by having fishing households record data on a regular basis. The Project will incorporate a
methodology by which the geographical area or fishing ground in which caches are made is
recorded based on the scientifically verified Local Ecological Knowledge (LEK) of fishermen.

10. The choice of which regulatory technique to employ to control overfishing must depend on
local circumstances. This Project will contribute to a better understanding of this issue by including
the LEK of “fisherfolk” in assessment exercises, because inevitably the decision will be coloured by
the local political environment. To ensure a reasonable likelihood of successful implementation, the
main factors governing the choice of technique to control overfishing that should be considered are:
(i) those which have the support of most fishermen; (ii) those amenable to gradual implementation
and flexible enough to adjust to changing circumstances; (iii) those that encourage operations at
minimum cost, (iv) those that account fully for all costs of research, monitoring, and enforcement,
and (v) those which take full consideration of the allocation and employment generation aspects of
the fishing sector.

11. Sedentary species can be managed effectively by the allocation of use rights. Management
measures based on area and seasonal closure and size limits can be used. Sedentary species are
particularly vulnerable to fisheries using mobile gear that damages or destroys their habitat, and
should be protected from them by zoning. The Project will incorporate “fisherfolk’s” LEK in providing
local data to assess this issue for vulnerable areas.

12. A large and recent literature based on worldwide research demonstrates the efficaciousness
of an approach of closely involving “fisherfolk” and their LEK in data collection for the design of
measures to counter overfishing, the design process, and implementation of the measures. The
Project will ensure that the scientifically verified LEK of fisherfolk is used routinely as a basic source
of practical data for planning and the day-to-day management of local resources. The addendum to
Working Paper 2 has further details.

Mechanisms for Reinforcing Community Participation in Municipal Fisheries Management

13. The Fisheries Code prioritised the rights of “fisherfolk”. However, without an unbiased
assessment of its effectiveness, there is no way of knowing how far this has been achieved. On
the other hand, there is little reason for optimism, given the “command and control” predilection
manifested in the general management approach of BFAR. Therefore the Project will study and
implement mechanisms, where practicable, for reinforcing community and “fisherfolk”
participation in municipal fisheries management.

14. That implies that the Project will contribute to a clear redefinition of the objectives of
fisheries management and governance, since they likely differ between local communities and
the State, with the objective of the State being conservation to maintain sustainable levels of

24
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 4: Detailed Project Description

resource use, whereas local communities need rational economic performance to serve their
livelihood interests. To this end, local objectives of fisheries management in the areas covered
by the Project will be clearly defined, and a decision made in each case about whether the
objective is improving sustainability of a given fishery or enhancing rural livelihoods.

15. Generally the latter ought to be the more pertinent for a small-scale fishery, and should be
reflected in higher level policy. This requires that first, the process by which “fisherfolk”
representatives are selected to serve on the FARMCS will be analysed. It should be established
if these representatives are the most knowledgeable persons, or whether other selection criteria
were prioritised. The most efficacious way to identify such people is through systematically
gathered peer recommendations, using a straightforward structured sampling technique to ask
all “fisherfolk” in a community whom they consider to be the persons who know most about
municipal fishing. The results can then be used to see if the “fisherfolk” representatives of the
FARMC are the most knowledgeable “fisherfolk”. The Addendum to Working Paper 2 provides
further details and an example of a well-functioning mechanism for incorporating “fisherfolk” at
the local level of a hierarchical management structure.

B. Coastal Resource Management Plans

16. The CRM/development plans will emphasise and include coastal marine zoning in the
municipal zoning ordinance of the Comprehensive Land and Water Use Plan (CLWUP), and be
integrated in to the Comprehensive Municipal Development Plan. This Plan will include
investment to protect and enhance the coastal resources, incentives and disincentives, Public
Private Partnership schemes for livelihood diversification and improvement and associated
infrastructure needs and where appropriate proposals for ecotourism. Based on the assessment
of the sources of financing, the Project will assist LGUs to institutionalise the arrangements for
funding CRM.

Plans and planning

17. The Project Support and Coordination Office (PSCO) will decide on the standard format,
outline and processes for the municipal/bay wide CRM plans, which will be provided at the start
of the Project. Seminars for LGU and BFAR staff will be held regarding the standardisation of
plan format and outlines, including contents of each section, and data to be used. All the basic
data to be used will be provided to LGUs and barangay officials, and others (POs, FARMC
private sector organizations etc.) during the planning sessions, preferably in electronic form.
Regional Project Management Office (RPMO) staff will also be trained to support the CRM
planning sessions. The planning process will allow time for analysis and to identify the real
issues, and the detailed action/strategies, time frame, costs and implementation responsibilities.
The draft plans must serve as effective instruments to implement strategies and activities
towards sustainable development of the coastal areas.

18. The results from the Rapid Participatory Resource and Social Assessment (RPRSA) will
be analysed and used by BFAR and LGUs in planning. In bays where a Resource and Social
Assessment was recently conducted, the results will be used as secondary data by the planners.
The RPRSA will give information on the location of the resources and their conditions for the
purposes of zoning, including gender and age disaggregated socio-economic information. Other
relevant study or survey results can also be used. Working Paper 6 includes draft TOR for the
RPRSA.

19. The management section of the plan will be prepared jointly by the following: Municipal
Planning and Development Officer (MPDO), Municipal Agriculture Office (MAO), Municipal
Environment and Natural Resources Officer (MENRO), Tourism Office, etc. and assisted by
BFAR. Project criteria for selecting investments in CRM and livelihood development will be
provided to the participants of the CRM planning sessions. Community members will participate

25
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 4: Detailed Project Description

actively in the planning process, and a core group representing the different sectors will write the
plan at the end of planning session.

C. Implementation of CRM Plans

Financing plan implementation
20. The LGUs will adopt their plans and allocate funds to execute them. The CRM plans will
be funded from the LGUs’ 20% Development Fund or Annual Development Fund, General
Funds, registration and users’ fees, and penalties. The latter will be legally supported by the
municipal and bay Fisheries Ordinances. The execution of the CRM plan has to deal with
poverty among the coastal communities and their dependence on the wild resources and the
need for community involvement.

21. Partnership will be promoted between LGUs and the business/private sector e.g. dive
shops, hatcheries, and traders. Where fish sanctuaries/MPAs can generate user fees, the
Project will assist POs-LGU to manage the leasing arrangements with the private sector.

22. Barangays, BFAR and LGUs will define proper incentive schemes for those responsible for
guarding protected areas or other resources generating user fees. At the start of the Project the
Incentive-disincentive schemes in use across the country will be studied, and replicated where
found applicable in the Project LGUs.

Resource rehabilitation
23. A protected area will not be limited to coral reefs only, but will comprise also biologically
interconnected coastal habitats such as coral reefs, seagrass beds and mangrove forest
considering them as a single large management area, carrying-out an ecosystem approach in
fisheries management. The status of the FS and other protected areas will be assessed by the
LGUs with the assistance of BFAR through the RPRSA. Results of RPRSA will be used as basis
for site selection and establishment of FS, and also as baseline data for future monitoring of
impact as required in the project log frame.

24. Artificial coral reefs can be provided where there is a need and with approval from BFAR.
Artificial reefs will be supported only by the project if there are manifestations that it will be
effectively managed as a fisheries management tool for recovery of population of fish species in
the area, and not as a fish aggregating and capture devise.

25. The Project will help protect, enhance and rehabilitate the resources, e.g. through stock
enhancement in protected areas, following BFAR’s existing principles and guidelines for stock
enhancement, and using juveniles and adults from hatcheries operated by BFAR, State
Universities and Colleges and the private sector. The guidebook for stock enhancement will be
updated and reproduced as needed. The guidebook gives directions on how to operate FS–
based resource conservation projects, including criteria for Project proposal evaluation in
selecting and screening proposals coming from the field.

26. Stock enhancement is a proactive conservation effort that while waiting for the spill over
effect from the FS, POs can have specific areas for stock enhancement, which they can
manage, harvest, and from which they can derive income. In this way, while protecting and
enhancing biodiversity, POs can have a short-term benefit from protecting areas. Stock
enhancement will restore marine resources faster than just watching over the FS. This
intervention will be an integral part of managing the protected areas.

26
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 4: Detailed Project Description

D. Identification of Alternative Livelihood Sub-Projects

27. The choice of commodities for the Project’s investments in livelihood sub-projects will be
aligned with the PDP, the RDP, the LGU CRM plan as well as the Agribusiness Road Maps of
the region. In developing livelihood sub-projects, proposed investments will take into account the
standard components of small business viability. Beneficiaries of livelihood sub-projects will be
the members of a registered PO. Implementation will follow the BFAR Integrated Coastal
Resource Management Project Manual - Enterprise Development and Income Diversification.
The POs and/or LGU counterpart is set at 10% of the project cost which can be in cash or in
kind. Sub-project proposals, including costs and financing, have been prepared for all the
bays/gulfs and were presented as the PY1 proposed sub-projects to avoid ambiguous demand-
driven budget allocation. The same will apply to the subprojects for the PY 2 which will be
subsequently prepared during PY1 and onwards for the project financing.

Beneficiary selection
28. The Community Facilitator will closely work and assists the POs, LGUs, and BFAR in the
selection of beneficiaries. When selecting beneficiaries the Project will obtain information as to
which households are the members of the fishing communities from DSWD’s Sustainable
Livelihood Programme and DOLE’s Livelihood Programme.
Community facilitators
29. BFAR will hire qualified and experienced Community Facilitators (CF), preferably from the
within LGU of assignment, to be based in the LGU -Municipal Agriculture Office (LGU-MAO)
under the technical guidance of the regional BFAR institutions and gender specialist. The CFs
will be assigned to target areas (5-7 barangays per CF), depending on the geographical spread
of the LGU and number of coastal barangays. The CFs will act as the linking between the fishing
communities, the MAO and the Project.

30. The CF will have a vital role in LGU CRM planning, in ensuring that the proposed
livelihood interventions will not damage the environment or be exposed to unnecessary risks
from natural and man-made factors e.g. pollutions, floods, erosion, landslides, etc. He/she will
give particular attention to the integration of Disaster Risk Reduction Management and Climate
Change Adaptation plans into the zoning of the CLWUPs, to detect possible overlaps between
livelihood sub-project sites and high risk areas.

31. The CFs will mobilise the POs, provide group management and livelihood training, assist
the POs with the development of business plans, marketing plans, etc. feasibility studies for
POs, support the POs and the members with sub-project implementation and monitor the
livelihood sub-projects. The CFs will also work with the Bay Regulatory Officer of BFAR re- bay
wide concerns. Working Paper 5 has draft terms of reference for the CFs.

E. Implementation of Livelihood Sub-Projects

Livelihood development
32. The commodities to be produced by the livelihood sub-projects selected must have a
ready market locally or internationally and be popular with the fishing communities and the POs
around the bay, and be consistent with the priorities of the PDP, RDP, and Agribusiness Road
Map of the region.

33. The microenterprises will promote legal and sustainable mariculture practices. Possible
non-fish capture livelihoods are: fish cage (siganids and grouper), abalone cage culture, crab
fattening in mangroves, sea cucumber cage, sea urchin cage, seaweeds, and smoked and dried
fish production

34. As an element of convergence, the Project will have a MOA with DSWD - Sustainable

27
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 4: Detailed Project Description

Livelihood Programme and Pantawid Pamilya Pilipno Programme, to collaborate over training
for livelihood sub-projects. At the barangay level the Project will avoid duplication of
beneficiaries and types of livelihood sub-project to be implemented with other interventions e.g.
those of DSWD and DOLE. The Project can also complement DOLE’s Integrated Livelihood
Project by providing infrastructure (e.g. seaweed store, drying facilities etc.).

Business plan development

35. BFAR will provide information on the priorities of the PDP, RDP, and Agribusiness Road
Maps to the CFs and POs to align the proposed livelihood sub-projects with the government’s
priorities. Representatives from DSWD and DOLE will explain their respective livelihood
programmes so the Project can benefit from their experience. BFAR and the LGUs will conduct
training on business plan development for the POs and their members and where necessary use
the expertise of Universities or research institutions to conduct the training.

36. Without a visible market for the product, a livelihood sub-project proposal cannot be
supported. Factors to be considered are the identification of buyers and the corresponding
outlets; determination of prices that will be acceptable; presence of road access to market and
distance to the market and associated transport costs; and assessment of capability to supply
the demand.

37. Other aspects are: technical, financial and management. The technical aspects of the
sub-project proposal will cover whether the sub-project will have any negative impact on the
environment or the reverse: whether the sub-project is suitable for the proposed site
(community), the availability of technical know-how and qualified labour, existence of sufficient
raw materials (preferably locally), availability of equipment or facilities for production and the
ability to produce quality products. The Project will assess the financial viability of the sub-
projects, and the capability of the PO to sustainably manage their funds. In terms of
management key aspects include the management track record with previous livelihood projects
of the POs and, where relevant, the private sector organizations with whom the POs are
proposing to collaborate.

Organizational strengthening of POs and training beneficiaries

38. BFAR with the assistance of the CFs will conduct a training-needs assessment aimed
specifically at the livelihood participants to identify what kind of training will be needed by the
POs and their membership to make their likelihood enterprises successful.

39. In addition to the technical aspects of the selected livelihood enterprises, the following will
be key elements of the training modules for the members and officials of the POs: group
organisation and management, basic entrepreneurship, business management, value-chain
concepts and approaches, coastal resource management and gender mainstreaming.

Operational Aspects
40. The CF together with the RPMO will assist MAO staff of the LGU. LGU-MAO will hire or
designate two suitably qualified and experienced staff, one to take charge of non-fishery
livelihood sub-projects, and the other for fishery-based livelihood sub-projects. The MAO will
provide office space for these staff, while the Project will supply the office equipment needed. A
motorcycle will be provided to increase mobility. The RPMO and the local DTI office will advise
the MAO staff.

41. The MAO staff will assist the POs to identify the most appropriate livelihood sub-project for
inclusion in the LGU investment plan and subsequent submission to the RPMO for approval.
The MAO staff will also: (i) conduct feasibility and market studies; (ii) provide counselling and
management assistance to the POs; (iii) assist the POs prepare product and business

28
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 4: Detailed Project Description

development plans; and (iv) help market matching and linking between POs and private sector
organizations.

42. When necessary the LGU will be assisted by national agencies e.g. DA, DOT, DOLE,
DOST and DTI, who will provide inputs and advisory services for Project implementation under
their MOA with BFAR as part of the NCI.

Financing and credit facilities

43. The Project will provide financial support only for the first cycle of the livelihood sub-
projects. Thereafter the groups are expected to use their earnings to finance subsequent cycles
and later to access micro-finance institutions (MFI) or NGO sources to finance future expansion
of their enterprises. The Project will assist POs and their members to gain access to the formal
banking system e.g. Land Bank of the Philippines, Development Bank of the Philippines, other
rural and thrift banks, cooperatives and NGOs, or other existing and programmed credit
facilities.

44. The target is that the Project will link at least 50% of the Project beneficiaries to
financial/credit institutions. The RPMO will plan and organize training for the POs and their
members from relevant credit and financing institutions to establish and maintain links between
the POs (and their members) and sources of finance. In addition, the RPMO will assist also
provide training to help the beneficiaries to become self-reliant micro-enterprises and where
appropriate organise links with the Sustainable Livelihood Programme of DSWD and the
Integrated Livelihood Programme of DOLE.

Partnerships with business sector

45. It is not feasible at this stage to identify specific enterprises for engaging the private sector,
until different enterprises are developed and taken up by the local fishing communities and POs
during the project implementation, which depends on evolving and emerging market demands
and opportunities. However, nine potential livelihood and enterprise models are prepared and
analysed for implementation during the Project. The Project will also facilitate private sector
investment by helping to identify potential investment opportunities in the Project bays/gulfs. The
Project will promote partnerships with business/private sector for the operation of livelihood sub-
projects. POs with the help of BFAR will forge partnerships with University-owned hatcheries
and or privately operated hatcheries to sustain their sources of juveniles for cage culture and
stock enhancement projects. For cold storage/ice plants etc., the private sector will put up the
facilities, with BFAR conducting the necessary feasibility study and assisting in making the links
between the private sector and the beneficiaries and POs. The MOAs will facilitate this process.
Operators of tourist resorts in the target bays/gulfs will be encouraged to become partners of the
existing MPA stakeholders and to use the MPAs to generate tourism revenues which can help
finance habitat conservation. This will not only forge partnerships with the private sector, but
also generate income for Municipal LGU, barangay, and POs.

46. Investment opportunities with potential for business/private sector support will be
packaged for dissemination to prospective investors. Investment opportunities will be examined
for the entire spectrum of the supply chain – from input supply to production through processing
to marketing. To further facilitate private sector investment, POs and LGUs will participate in
agricultural-fisheries, business and science fairs organised by DOST, DTI, BFAR and others.
The RPMO, LGU and POs will work together to produce IEC materials to promote the
partnership programme.

F. Sustainable Tourism
47. The tourism sector has great capacity to improve the socio-economic conditions within the
target bays/gulfs. The Project will promote, and assist sustainable and eco-tourism-based

29
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 4: Detailed Project Description

livelihood enterprises where appropriate. Proposals will be treated as livelihood sub-projects

whose potential viability and suitability will be assessed by the RPMO.

48. LGUs will promote non-consumptive enterprises, where tourists will pay to see the
resources e.g. giant clam gardens, coral reefs ecosystems, coral gardens, healthy mangrove
and seagrass ecosystems, etc. Agricultural tourism, where it is applicable will also be
considered by the project.

49. The Project will assist POs to enter into agreements with private sector enterprises that will
support the operation of ecotourism enterprises in the area. This type of development will
generate employment for community members and especially women e.g. as tourism
employees including tour guides, boatmen, and cultural entertainment performances well as
opportunities for small livelihood sub-projects e.g. souvenir shops and t-shirt production. Resorts
and tourists will prioritise buying locally produced fish, vegetables, and other food items,
preferably also from POs. The RPRSA will identify any unique species which can attract tourists.

G. Support for BFAR facilities

50. The Project will institutionalise the role of BFAR in assisting LGU in developing livelihood
sub-projects by strengthening and enhancing the capabilities of their existing hatcheries to
sustain their services as a source of juveniles of cage culture species in their respective areas.
Other sources of juveniles that the Project can use are the State Universities and Colleges and
the private sector. Hatchery establishment and operation could be a livelihood enterprise for
some experienced POs.

51. In PY1 the Project will assess, the existing BFAR hatcheries to determine their potential
use as source of juveniles for the Project’s livelihood and stock enhancement needs. Based on
the results of the assessment, RPMO will recommend to the PSCO, whether the local hatchery
will be worth assisting or not in relation to becoming a supplier of juveniles to POs. In the event
that the RPMO recommends that the hatchery is worth enhancing, the Project will assist by
financing additional infrastructure e.g. additional tanks, roofing, flooring, water system, etc. Such
materials and equipment as generator sets, compressors, microscopes, pumps, pipes, ultra
violet lights, etc. will be also supplied.

30
 Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 4: Detailed Project Description

Attachment 1: Technical information on some fishery-related livelihood enterprises

Rearing
Inputs Net income Source of
Commodity No. of head/area period Risk
(PHP’000) (PHP’ 000) technology
(days)
Tiger/Brown
4; 4x4m cages Centre for
marbled Pollution, climate
First (yr.) 1,020 kg 349.2 109.8 240 Sustainability/
grouper cage change, siltation
harvest Univ./BFAR
culture
Pollution, siltation,
Siganid cage 10x10x6m cage; 2
209.0 107.2 150 BFAR climate change,
culture harvests
predator, thief
Pollution, siltation,
Abalone cage 4x4x3m cage; 3 *WPU,
27.8 14.95 150 climate change,
culture crops SEAFDEC
predator, thief
Sea urchin
2x1.5x.5m cage 1.83 2.37 180 BFAR Predator, thief, pollution
cage culture
5.9
Talaba
Monthly Flood, climate change,
(Oyster) 54 sq m farm 3.1 7 BFAR
after 7 pollutants, algal bloom
culture months
Backyard 30 sq m tilapia Tilapia Centre-
1.45 1.9 180 Disease, thief, floods
tilapia raising pond BFAR
Mudcrab 5x5m pen, 150 No available crablets;
15.23 20.77 30 BFAR
fattening crablets floods
Dried squid 120 kg of dried No available fresh squid;
18.79 41.21 30 WPU/BFAR
production squid prolonged rainy days
40 kg of smoked
Smoked fish
fish per day at 101.8 114.2 30 WPU/DA No supply of fresh fish
making PHP200
Seasonal demand, no or
Salted fish
60 kg fresh fish 59.83 10.17 7 WPU/DA limited supply of fresh
drying fish
Depleted resource;
Sea cucumber Sale of 310kg
Flood, natural
gathering and processed sea 30.0 7.5 120 BFAR calamity/climate change;
processing cucumber many rainy days
Pollution/siltation, El
Seaweed
1 ha 7.4 19.6 90 BFAR Nino, many rainy days,
Culture storm and surges
Use of fuel wood;
3.4Mx1.5m x 5cm 29.51/ DOST;
Salt making 36.5 90 manual harvest result to
cooking pan annum **TLRC;DTI
wastage
* WPU- Western Philippines University; **TLRC-Technology and Livelihood Resource Centre;

31
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 4: Detailed Project Description

Attachment 2: Criteria for sub-project selection

(i) Must not further degrade the environment or (viii) Sub-projects should be located within the
deplete a resource. Any negative impact/s coastal zones of the targeted bay/gulf sites
must be minimal or within acceptable level. (1 km inland from the shoreline to 15 km
(ii) Must be financially and technically viable; (12km in ARMM) out to sea from the
(iii) Fast turn-over sub-projects (short production shoreline).
and culture period) so several cycles can be (ix) Sub-projects must not adopt any illegal
implemented within a year. methods or practices.
(iv) Technology must be simple to use and (x) Must observe good agricultural and fisheries
available and suited to the PO’s and target practices.
groups’ technical capacity. (xi) Sub-projects maybe group-managed but
(v) Production must have a ready and stable individual household-implemented whenever
market(s) is appropriate.
(vi) Technology is simple to use and suitable for (xii) If proponents are recipients of previous
the target groups. foreign-assisted projects, the sub-projects
(vii) Sub-projects are included in the CRM and should be a scaling-up of previous
MDP of the LGU and the Annual W ork Plans interventions or a new enterprise.
of the MAO.
Sub-projects
Examples of Eligible sub-projects Ineligible sub-projects/negative list
(i) CRM and fisheries-based (i) Purchase of land.
(ii) Any activity requiring the displacement of
 Resource rehabilitation. people.
 Conservation e.g. conservation of marine (iii) Purchase of firearms, ammunition and
turtle nesting sites. explosives.
 Protection of resources e.g. FS. (iv) Construction of social infrastructure (potable
 Production e.g. seaweed farming, milkfish water supply, health station, school building,
cage culture (using fingerlings), mudcrab multi-purpose buildings including
fattening, boneless vacuum-sealed danggit government offices, etc.).
production, fish processing or value-adding, (v) Construction of religious buildings
others that maybe identified in future. (churches, mosques, chapels and other
worship facilities).
(ii) Infrastructure sub-projects must be (vi) Purchase of fishing boats, commercial
designed in support to a CRM-based transport boat, fishing gears, fish
initiative/intervention or livelihood- based aggregating devices.
sub-projects. (vii) Purchase of harmful chemicals.
(viii) Vending of gasoline and other fuels.
(ix) Sub-projects which involve illegal acts and
practices of trade.
(x) Sub-projects located outside the coastal
zones of target bays (1 km inland from the
shoreline to 15 km (12km in ARMM out to
sea from the shoreline).
(xi) Construction that would mangrove and/or
corals as building materials.
(xii) Others may be identified in future.
Requirements for sub-project proposals
A simple sub-project proposal has to be prepared containing the following information:
 Number of beneficiaries (by gender) that will benefit when the sub-project is implemented.
 Whether or not the activity will require infrastructure support, if so what?
 An implementation schedule, mechanics for implementation; technology to be adopted and
arrangements for making the proposals operational.
 Project costs and financing.
 Cost and returns and/or projected incomes.
 Sources of raw materials indicating estimate of its abundance and other inputs.
 Market to be supplied, the buyers and the range of prices expected.
* WPU- Western Philippines University

32
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 4: Detailed Project Description

Attachment 3: Eligibility requirements for private sector agencies

1. Eligibility criteria for sub-project service providers will include, but not be limited to:

(i) Relevant and demonstrated expertise required by the sub-project.

(ii) Familiarity with the use of gender-sensitive approaches.
(iii) Proven capacity in the delivery of assigned tasks.
(iv) Consideration of gender-balance in selecting staff for assigned tasks.
(v) Familiarity with the sub-project sites.

2. Eligibility criteria for private firms will include, among others:

(i) Company type: agriculture/fisheries production, processing of agriculture/fishery-

origin materials.
(ii) Minimum of five years of operations, with products or services directly related to
agriculture/ fisheries.
(iii) Sufficient, reliable, and well maintained machinery and equipment to sustain
present production outputs.
(iv) Sound financial position as reflected in its balance sheets and profit and loss
accounts over the last five years, with up-to-date audit statements available.
(v) Reputation for fair dealing and empathy with smallholders and the poor.
(vi) Sound and well recognized company management with established procedures for
quality control and marketing and with qualified and experienced individuals in key
managerial positions.
(vii) Company is compliant with relevant environmental regulations as required by the
government and recognised international control bodies.

3. Eligibility criteria for non-government organizations(NGO) will include, among

others:

(i) Registration with the Philippine government securities and exchange commission
or another recognised government registration agency.
(ii) Services offered are related to fishery and coastal resources
management/livelihood development.
(iii) Minimum of five years of operations in areas directly related to fishery and coastal
resources management/livelihood development, and work experience with coastal
communities, fishing households, indigenous peoples and women.
(iv) Sound operations and financial management as reflected in the financial
statements for the last five years and from the list of current personnel.
(v) Certification from previous employers (projects/programmes/government agencies)
of a satisfactory contract performance.

4. Eligibility criteria for academic institutions will include, among others:

(i) Registration with the appropriate government authority/body.

(ii) Services offered are related to fishery and coastal resources
management/livelihood development.
(iii) Previous (last five years) and current research and training activities that are
related to fishery and coastal resources management/livelihood development.
(iv) Presence of a faculty and/or researchers with applied knowledge and practice
related to fisheries/coastal resources management and enterprise development,
and with experiences of working with fishermen, fishing communities and the poor.

33
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 4: Detailed Project Description

Attachment 4: Proposed CRM interventions per region

No. of Seagrass Mangrove Fish Artificial No. of Stock

Region BAY Cities/ Rehab. Rehab. Sanctuary Reef Enhancement
Muns. (has) (has) (has) (units) Project
V Albay 7 20 80 468 2
Ragay 12 27.5 110 965 200 2
Asid 5 11 55 661 2
Sub-Total 24 58.5 245 2,094 200 6
VIII Matarinao 4 29 40 468 2
Maqueda 11 23 90 1,053 2
Silago-Cabalian 7 18 70 819 200 2
Leyte 16 45 160 2,106 2
Sub-Total 38 115 360 4,446 200 8
XIII Butuan 8 60 80 1,678 1,400 2
Lianga-
10 3,301 100 1,565 3,400 2
Hinatuan- Bislig
Sub-Total 18 3,361 180 13,243 4,800 4
ARMM Illana 10 200 155 802 2
Sulu Sea 13 80 160 871 2
Sub-Total 23 280 315 1,673 4
TOTAL 103 3,814.5 1,100 21,456 5,200 22

34
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 4: Detailed Project Description

Attachment 5: Proposed livelihood interventions

Seaweed Fish Aquasil- Pen/ Process- 3

Reg. Bay/Gulf Province 1 2 Others TOTAL
Farming Culture viculture Pond ing
Ragay Camarines Sur 11 24 5 6 46
Asid Masbate 5 11 10 2 5 33
V Albay Albay 6 12 3 5 26
Sorsogon 2 5 1 3 11
Sub-Total 24 52 19 2 19 116
Matarinao Eastern Samar 200 21 250 6 8 3 488
Maqueda Western Samar 60 - 200 9 9 4 282
Silago-
Southern Leyte 200 90 1 16 14 4 325
Cabalian
VIII
Leyte
Leyte Eastern Samar 300 360 1 1 19 7 688
Western Samar
Sub-Total 760 471 452 32 50 18 1,783
Butuan Agusan Norte 12 51 25 7 8 15 118
Lianga-
XIII Surigao del Sur 100 71 6 128 2 9 316
Hinatuan-
Bislig Sub-Total 112 122 31 135 10 24 434
Lanao del Sur 300 13 1 4 5 323
Illana
Maguindanao 500 17 7 6 530
ARMM Sulu 800 26 8 6 840
Sulu Sea
Basilan 400 20 3 5 428
Sub-Total 2,000 76 - 12 11 22 2,121
TOTAL 14 Provinces 2,896 721 502 179 73 83 4,454

1/ Fish Cage Culture include fish pot and fish species such as bangus, siganid, mussel, prawn, tilapia,
lapu-lapu, pen/pond culture such as abalone, trochus shell, bangus, tilapia, etc.
2/ Marine Product Processing includes drying, salting, smoking deboning, bottling, etc
3/ . Other Enterprises such as fish pot, etc.

Attachment 6: PY1 Sub-Projects

Livelihood Sub-Project Reg. V Reg. VIII Reg. XIII ARMM TOTAL

1. Seaweed Farming 8 50 25 104 187
2. Fish Culture 20 20 15 15 70
2. Mudcrab Fattening 3 30 5 12 50
3. Aquasilviculture 2 3 2 3 10
4. Oyster/ Mussel Culture 1 1 1 1 4
5. Fish Processing 20 20 20 20 80
6. Others 45 45 45 45 180
99 169 113 200 581

35
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 5: Institutional Aspects and Implementation Arrangements

APPENDIX 5: INSTITUTIONAL ASPECTS AND IMPLEMENTATION

ARRANGEMENTS
A. Implementation Arrangements
1. The Bureau of Fisheries and Aquatic Resources (BFAR) as a line bureau of the
Department of Agriculture (DA) will be the Project’s lead implementing agency and will have full
responsibility for Project administration and management. BFAR will use its existing structures
at national, regional, and provincial levels to implement Project activities.

2. Other government agencies supporting the development of the fisheries sector in the
target bays and municipalities are the following: (i) the Department of Environment and Natural
Resources (DENR) for mangrove reforestation/rehabilitation and other activities within the
domain of DENR that affect coastal and fishery resources; (ii) DTI, e.g. for product packaging
and market/private sector links; (iii) DOST, e.g. provision of technical support for processing of
agricultural/fishery products; (iv) the PNP, the Philippine Navy (PN) and the PCG for law
enforcement; (v) DOT for developing the ecotourism industry; (vi) NCIP, for handling IP
concerns in areas populated by IPs; (vii) the Department of Social Welfare and Development for
identifying poor households in target coastal barangays; (viii) the Department of Public Works
and Highways for providing infrastructure support in ARMM. Other government agencies and
bodies, including state colleges and universities and research stations, can also provide support
for the fisheries sector, and undertake specific assignments as required under contract to BFAR.

3. In the coastal communities and coastal barangays, LGUs will implement Project activities
in accordance with RA 9176 and RA 8550. Attachment 4 has an analysis of the readiness of
BFAR and the LGUs to implement the Project in Regions V, VIII and XIII and in ARMM.

B. Framework for Selection of Project Implementing Agencies

4. This Project requires a comprehensive approach to address the issues related to the
sustainable management of the fisheries and coastal resources. Project implementation will
involve those engaged in the fisheries sector. Convergence and partnership will be the main
approaches for implementing the Project. The Enhanced National Convergence Initiative (NCI)
prescribes a “Ridge to Reef” approach (from the upland and forest areas, to the middle and
lowland areas, down to the coast). To implement the NCI Framework, a joint Administrative
Order was drafted in 2012, involving DA, DAR, DENR and DILG, which created implementing
mechanisms and organizational structures. A Technical Working Group for Coastal and Marine
Resources’ Management was created and BFAR is a member of this Group. The Project will
work closely with the Technical Working Group to seek the convergence of the efforts of NCI
agencies in the target areas.

5. Convergence will be expanded to include other government agencies e.g. those

mentioned in the implementation arrangements above. Participation of these agencies/entities
will be based on: (i) their ability to provide support for the development of municipal fisheries
and bay ecosystems; (ii) availability of expertise and resources required at the regional and
municipal levels; and (iii) a signed MOA between BFAR and the concerned agency covering the
support to be provided.

6. As mandated by RA 9176 and RA 8550, the Project will work with LGUs which are
responsible for the management, conservation, development, protection, use, and disposition of
all fish and fishery/aquatic resources within their respective municipal waters.

7. BFAR will have a signed Memorandum of Agreement (MOA) with each participating LGU.
The MOA will spell out the roles and responsibilities of each party, including the provision of
staff, office space and other logistical and financial counterparts. All MOAs will also spell out that
Project implementation will be governed by the Project Financing Agreement and by the PIM.

36
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 5: Institutional Aspects and Implementation Arrangements

The latter will be approved by the PSC with a no objection letter issued by IFAD.
8. This Project will be guided by a public-private partnership framework for implementing the
investment sub-projects and other activities as summarized in Appendix 4.

C. Organizational Structure, Management Responsibilities And Capacity Building

9. Attachments 1 and 2 show the Project’s organizational structure, composition and location,
roles and responsibilities. Working Paper 5 includes the staff TOR. There is a separate
organizational structure for ARMM and the three Regions. Attachment 3 shows the staffing
requirements for Project management and coordination.

10. For ARMM, BFAR will enter into a memorandum of agreement with the Office of the
Regional Governor (ORG-ARMM). This arrangement respects the autonomous nature of the
government services in ARMM.

11. Attachment 4 assesses the readiness of BAR, LGUs, FARMCs, FLETs and POs to
implement Project activities as well as proposed capacity building interventions needed to
address the institutional issues identified. The Project will validate these proposed interventions
at Project start-up, as the basis for the Project’s proposed capacity building plan. The Project will
use the IFAD grant funds to build the capacity of BFAR and the LGUs.

12. At the project start up, before the start of the key initial project activities, BFAR and the
PCSO, in close cooperation with the regional offices, will make an assessment of each of the
participating implementing agencies (public/private service providers) at the national, regional,
provincial, municipal and community levels to evaluate the availability of capacity of each
agency, implementation readiness, identify additional support required for capacity building and
skills training and prepare programmes and budgets for the implementation of the required
building and skills training for each of the implementing agencies.

37
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 5: Institutional Aspects and Implementation Arrangements

Attachment 1 (a): Organizational structure - Regions V, VIII and XIII

DA Secretary
BFAR Director
BAR Project Management Office (1)
Project Support and Coordination
Office (PSCO) Project Steering Committee (PSC)
Project Director Chair: DA, Co-Chair: BFAR
Staff: Project Coordinator, Accountant, Budget Members: DA., DENR, NFARMC, DILG, NEDA,
Officer, NlFinance Officer, Procurement Specialist, DBM, LMP,MinDA, ARMM Governor;
M&E/KM, MIS, BAC, Short Term Consultants,etc. Observer: IFAD
Secretariat: PSCO

BFAR Regional Director

BFAR Regional Offices (3) Regional

Project Management Office (RPMO) Regional Coordination and
Project Implementing Project Manager Support Committee (RCSC)
Agencies Staff: Specialists: CRM, Livelihood,
Co-Chair: DA-RFU, BFAR
Government Agencies, State Universities Institutions/Gender, and Rural Infrastructure: Bay Members: DENR, IFARMC, NEDA, DBM,
and Colleges, Technical Research Coordinators, M&E/KM, MIS, Finance,
NCIP*, DTI, DOST, DOT,DSWD, DILG, PLGU,
Administration etc. and BAC,
Stations, Private Sector Service Providers PNP/PN/PCG

Municipal, City Local Government Units Bay Coordination and Support

Project Implementing Municipal/City Project Management Committee (BCSC)/IFARMC
Agencies Office (M/CPMO) (80) Head: Chair of Bay Management Council
Government Agencies, State Universities Head: MAO/CAO Members: PFO, PAO, PENRO/CENRO,
and Colleges, Technical Research Membership: MENRO/CENRO,AT, Community IFARMC, MFARMCs. M/CAOs, PNP/PN/PCG
Stations, Private Sector Service Providers Facilitator(s)** and LGU support departments:
MPDC, ME, Finance, BAC

FISHING COMMUNITIES/BARANGAYS

FARMCs, BantayDagat, People’s Organizations, Fishing

Household Beneficiaries

Line Function Technical Assistance, Advisory and Coordination

Function

* When coastal barangays in the covered bay are populated with indigenous peoples.
** Community facilitators based in the M/CPMOs are under the technical guidance of the
institutional/gender specialist at the RPMO.

38
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 5: Institutional Aspects and Implementation Arrangements

Attachment 1 (b): Organizational structure for ARMM

DA Secretary
BFAR Director
BFAR Project Management Office (1)
Project Support and Coordination
Office (PSCO) Project Steering Committee (PSC)
Chair: DA, Co-Chair: BFAR
Project Director
Staff: Project Coordinator Accountant, Budget Members: DA., DENR, NFARMC, DILG, NEDA,
OfficeFinanceOfficer, Procurement Specialist, DBM, LMP,MinDA, ARMM Governor;
M&E/KM, MIS, BAC, Short Term Consultants, etc. Observer: IFAD
Secretariat: PSCO

BFAR ARMM Director Regional Coordination and

Support Committee (RCSC) Chair:
Regional Project Management Office DAF ARMM Secretary/BFAR ARMM, Co- Chair:
Project Implementing (RPMO) RPDO
Project Manager Staff: Specialists: CRM, Members: DENR, IFARMC, RBMO, OSCC,
Agencies Livelihood,Institutions/Gender, and Rural ORT, TMS, DTI, DOST, DOT, DSWD, DPWH,
Government Agencies, State Universities Infrastructure: DILG, PLGU, PNP/PN/PCG
and Colleges, Technical Research Bay Coordinators, Finance, MIS, M&E/KM, MIS
Stations, Private Sector Service Providers Administration etc. and BAC

Bay Coordination and Support

Project Implementing Committee (BCSC)/IFARMC
BFAR Provincial Fisheries Officer
Agencies Head: Chair of Bay Management Council
Government Agencies, State Universities Members: IFARMC, PFO, PAO,
and Colleges, Technical Research
Municipal Project Implementation Unit PENRO/CENRO, MAOs, PNP/PN/PCG,
Stations, Private Sector Service Providers (MPIU) (23) MFARMCs
BFAR ARMM Municipal Fisheries Coordinator,
Community Facilitator(s)**

Municipal Local Government

Units (LGUs)

FISHING COMMUNITIES/BARANGAYS

FARMCs, BantayDagat, People’s Organizations, Fishing

Households Beneficiaries

Line Function Technical Assistance, Advisory and Coordination

Function

* When coastal barangays in the covered bay are populated with indigenous peoples.
** Community facilitators based in the M/CPMOs are under the technical guidance of the
institutional/gender specialist at the RPMO.

39
 Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 5: Institutional Aspects and Implementation Arrangements

Attachment 2 (a): Key management responsibilities of organizational units - Regions V,

VIII, and XIII

Organizational
Composition and Location Management Key Responsibilities
Units
BFAR as the DA Secretary/BFAR Director • Provide over-all supervision and administration of the
lead agency Project.
Project Steering Chair: DA, Co-Chair: BFAR • Provide policy guidance for the smooth implementation
Committee Members: DENR, NFARMC, DILG, of the Project.
(PSC) NEDA, DBM, LMP, MinDA, ARMM • Approve Project implementation guidelines, global and
Governor annual work plans, budgets and procurement plans.
Advisory: NFARMC • Resolve implementation issues that cannot be decided
Observer: IFAD at the regional level.
Secretariat: PSCO
Project Support The PSCO will be under the leadership • Coordinate across BFAR’s technical divisions and other
and Coordination of the BFAR Director. operating units in support of Project implementation.
Office (PSCO) • Coordinate with government oversight agencies and
It will be based in the BFAR Central IFAD.
Office and day to day operation will be • Establish a knowledge-based decision-support systems
handled by a Project Director with the and information infrastructure for coastal resources and
assistance of a full time Project fishery development.
Coordinator. • Finalise Project implementation guidelines.
• Conduct of policy analyses and propose policy
adjustments needed to support the Project.
The PSCO will be staffed with Project- • Consolidate and submit annual the AWPB and APP for
assigned BFAR personnel with approval by the PSC and no objection from IFAD.
appropriate expertise: Accountant, • Oversee and supervise M&E, information and
knowledge sharing among Regions and bays.
Finance Officer, Finance Assistant,
• Prepare reports for PSC, BFAR management, oversight
Procurement Specialist, M&E/KM
agencies and IFAD.
Officer, MIS Specialist and Admin staff,
• Prepare and submit the Project’s annual budget
among others.
proposals and requests for release of Allotment
If needed, the Project will hire Advices and Notices of Cash Allocations to DBM.
consultants or contract staff to provide • Review proposals above the BFAR Regional Director’s
specific expertise not available in authority and endorse such to BFAR Director/DA
BFAR. The Project will use the BAC. Secretary for approval.
• Consolidate expenditure reports supported by relevant
documentation (contract, proof of payment, bank
statements, etc.) in line with the SOE ceilings and IFAD
disbursement proceduresand prepare SOEs and
submit WAs to IFAD.
• Ensure timely Project audits.

Regional In Regions V, VIII and XIII: • Act as an advisory committee for Project
Coordination and Chair: DA-RFU/ BFAR implementation.
Support Members: DENR, IFARMC, NEDA, • Act as convergence body for effective and efficient
Committee DBM, NCIP, DTI, DOST, DOT, DSWD, delivery of agencies’ services in support to Project
(RCSC) DILG, PLGU, PNP/PN/PCG implementation.
• Review and endorse the Regional AWPBs and APPs.
• Provide technical assistance for Project implementation
as needed.

Regional Project The RPMO will be based in the BFAR • Report to the RCSC for the review and endorsement of
Management Regional Offices under the leadership the Regional AWPB and APP.
Office (RPMO) of the BFAR Regional Director. • Provide guidance and technical support for the
implementing agencies and LGUs.
Day to day operations will be handled • Coordinate and liaise with other agencies at the
by a Project Manager. regional and bay-wide levels.
• Ensure timely provision of logistics for all aspects of
The RPMO will be staffed with Project- Project implementation.
assigned BFAR personnel with • Review and approve proposals submitted by LGUs,
appropriate expertise: CRM Specialist, FARMCs, and beneficiary organisations.
Livelihood Specialist, Institutions/ • Consolidate AWPBs and APPs prepared by the
Gender Specialist, Rural Infrastructure LGUs/Bay Management Councils.
Specialist, Procurement Specialist, Bay • Approve and manage use of funds and procurement

40
 Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 5: Institutional Aspects and Implementation Arrangements

Organizational
Composition and Location Management Key Responsibilities
Units
Coordinators, Finance Officer, M&E/KM (within the limits of the Regional Director’s authority).
Specialist, and other staff e.g. MIS, • Prepare expenditure reports and SOEs.
Finance, Admin staff etc. • Oversee and supervise M&E, information and
knowledge sharing among LGUs and other Project
If the required expertise is not available, agencies and beneficiaries.
the RPMO will hire consultants and/or • Maintain a management information system related to
contract staff. The Project will use the coastal resources and fishery development.
BAC. • Facilitate Project implementation reviews and
supervision missions.
• Facilitate internal audit.

Bay Coordination Head: Chair of Bay Management • Coordinate the implementation of Project activities bay-
and Support Council wide.
Committee Members: PFO, PENRO/CENRO, • Ensure that municipal Project activities support a
, unified bay CRM and fisheries based livelihood
(BCSC) IFARMCs, PAO , M/CAOs, MFARMCs,
PNP/PN/PGC development.

Municipal/City This will be based at the Municipal or • Assist fishing households and POs to prepare
Project City Agriculture Office (MAO/CAO) investment proposals for CRM and livelihood
Management which will be headed by the Municipal development.
Office or City Agriculturist. • Responsible for the implementation of approved
(MPMO/CPMO) investment proposals and other Project activities.
The M/CAO will be assisted by the • Coordinate with other LGU departments in Project
MENRO/CENRO, AT, Community implementation including management of funds and
Facilitator(s) and other LGU reporting of expenditures.
departments: MPDC, ME, Finance, and • Monitor Project implementation and prepare and
BAC submit the required reports.
• Assist the RPMOs with Project assessments, reviews
and supervision missions.

Other Project Government agencies, state • Provide technical services required to implement
Implementing universities and colleges, technical Project investment proposals and other activities.
Agencies research stations, private sector service
providers

41
 Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 5: Institutional Aspects and Implementation Arrangements

Attachment 2 (b): Key management responsibilities of organizational units for ARMM

Project
Management Composition and Location Management Key Roles and Responsibilities
Organization
BFAR as the lead DA Secretary/BFAR Director • Provide over-all supervision and administration of the
agency Project.
Project Steering Chair: DA, Co-Chair: BFAR • Provide policy guidance for the smooth implementation
Committee (PSC) Members: DENR, NFARMC, DILG, of the Project.
NEDA, DBM, LMP, MinDA, ARMM • Approve Project implementation guidelines, global and
Governor annual work plans, budgets and procurement plans.
Advisory: NFARMC • Resolve implementation issues that cannot be decided
Observer: IFAD at the regional level.
Secretariat: PSCO

Project Support and The PSCO will be under the • Coordinate across BFAR’s technical divisions and other
Coordination Office leadership of the BFAR Director. operating units in support of Project implementation.
(PSCO) • Coordinate with government oversight agencies and
It will be based in the BFAR Central IFAD.
Office and day to day operation will • Establish a knowledge-based decision-support systems
be handled by a Project Director and information infrastructure for coastal resources and
with the assistance of a full time fishery development.
Project Coordinator. • Finalise Project implementation guidelines.
• Conduct of policy analyses and propose policy
adjustments needed to support the Project.
The PSCO will be staffed with • Consolidate and submit annual the AWPB and APP for
Project-assigned BFAR personnel approval by the PSC and no objection from IFAD.
with appropriate expertise: • Prepare reports for PSC, BFAR management, oversight
Accountant, Finance Officer, agencies and IFAD.
Finance Assistant, Procurement • Prepare and submit the Project’s annual budget
Specialist, M&E/KM Officer, MIS proposals and requests for release of Allotment
Specialist and Admin staff, among Advices and Notices of Cash Allocations to DBM.
others. • Review proposals above the BFAR Regional Director’s
authority and endorse such to BFAR Director/DA
If needed, the Project will hire
Secretary for approval.
consultants or contract staff to
• Consolidate expenditure reports and prepare SOEs and
provide specific expertise not submit WAs to IFAD.
available in BFAR. The Project will • Ensure timely Project audits.
use the BAC.
Regional Chair: DAF ARMM Secretary/BFAR • Act as an advisory committee for Project
Coordination and ARMM, Co-Chair: RPDO implementation.
Support Committee Members: DENR, IFARMC, RBMO, • Act as convergence body for effective and efficient
(RCSC) OSCC, ORT, TMS, DTI, DOST, delivery of agencies’ services in support to Project
DOT, DSWD, DPWH, DILG, PLGU, implementation.
PNP/PN/PCG • Review and endorse the Regional AWPBs and APPs.
• Provide technical assistance for Project implementation
as needed.

Regional Project The RPMO will be based at the • Report to the RCSC for the review and endorsement of
Management Office BFAR ARMM Regional Office under the Regional AWPB and APP.
(RPMO) the leadership of the BFAR ARMM • Provide guidance and technical support for the
Regional Director implementing agencies and LGUs.
• Coordinate and liaise with other agencies at the
Its day to day operation will be regional and bay-wide levels.
handled by a Project Manager • Ensure timely provision of logistics for all aspects of
Project implementation.
The RPMO will be staffed with • Review and approve proposals submitted by LGUs,
Project-assigned DAF-ARMM FARMCs, and beneficiary organisations (within BFAR
personnel with appropriate ARMM’s approving authority.
expertise: CRM Specialist, • Consolidate AWPBs and APPs prepared by the
Livelihood Specialist, LGUs/Bay Management Councils.
Institutions/Gender Specialist, Rural • Approve and manage use of funds and procurement
Infrastructure Specialist, Bay (within the limits of the Regional Director’s authority).
Coordinators, Finance Officer, • Prepare expenditure reports and SOEs.
M&E/KM Specialist, MIS Staff, • Oversee and supervise M&E, information and
knowledge sharing among LGUs and other Project
Finance Assistant, Admin Assistant
agencies and beneficiaries.
and Driver

42
 Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 5: Institutional Aspects and Implementation Arrangements

Project
Management Composition and Location Management Key Roles and Responsibilities
Organization
• Maintain a management information system related to
If required expertise is not available, coastal resources and fishery development.
the RPMO will hire consultants • Facilitate Project implementation reviews and
and/or contract staff supervision missions.
• Facilitate internal audit.
Bay Coordination Head: Chair of Bay Management • Coordinate the implementation of Project activities bay-
and Support Council wide.
Committee (BCSC) Members: PFOs, PENRO/CENRO, • Ensure that municipal Project activities support a
IFARMC, PAO, MAOs unified bay CRM and fisheries based livelihood
PNP/PN/PCG, MFARMCs development.

Municipal Project This will be based at the BFAR PFO • Assist fishing households and POs to prepare
Implementation Unit under the leadership of the PFO investment proposals for CRM and livelihood
(MPIU) development.
The MPIU will be staffed by the • Implement approved investment proposals and other
Municipal BFAR Municipal Fisheries Project activities.
Coordinator, and Community • Coordinate with the LGU in implementing the Project
Facilitator(s) particularly with the MPDC and OMA.
• Monitor Project implementation and prepare and submit
The MPIU will be assisted by the the required reports.
MENRO/CENRO, AT, and other • Assist the RPMOs with Project assessments, reviews
LGU departments: MPDC, ME, and supervision missions.
Finance, and BAC
Other Project Government agencies, state • Provide technical services required to implement
Implementing universities and colleges, technical Project investment proposals and other activities.
Agencies research stations, private service
providers

43
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 5: Institutional Aspects and Implementation Arrangements

Attachment 3: Project management staffing1

No. of DA/BFAR/LGU No. of

Management
Staffing Requirement DA/BFAR/ Staff Contractual Total
Unit
LGU staff % of Time Staff
Project Support PMO Director 1 50% 1
and Project Coordinator 1 1
Coordination Planning Officer 1 1
Office Accountant 1 50% 1
Budget Officer 1 30% 1
Finance Officer 1 1
Admin/Procurement Officer 1 1
Finance Assistant 1 1
Administration Assistant 1 1
M&E/KM Officer 1 1
MIS Staff 1 1
Driver 1 1
Subtotal 3 9 12
Regional Regional Director 4 50% 4
Project Regional Manager 4 4
Management CRM Specialist 4 90% 4
Office (RPMO CRM Assistant 1* 100% 1
Livelihood Specialist 4 4
Livelihood Assistant 1* 1
Institutions/Gender Specialist 4 4
Rural Infrastructure Specialist 4 4
Cluster Bay Coordinator 12 70% 12
(Provincial Fishery Officer
(including ARMM)
Regional Finance Officer 4 4
Budget Officer 4 30% 4
Regional Accountant 4 50% 4
M&E/KM Officer 4 90% 4
MIS staff 4 4
Finance Assistant 4 4
Administration Assistant 4 90% 4 8
Driver 4 90% 4 8
Subtotal 41 37 78
Municipal/City Municipal/City Agricultural Officer 80 50% 80
Project Municipal/City Fishery Extension 184 70% 184
Management Worker**
Office – Non- Community Facilitator (max)*** 184 184
ARMM Areas Other support LGU staff: MPDC, Time input in months p.a. equal to that of the MAO/CAOs
MENRO, Finance/Admin, BAC
Municipal BFAR Municipal Fisheries 23 100% 23
Project Coordinator
Implementation Community Facilitator (max)*** 36 36
Unit (MPIU) –
ARMM Areas
Subtotal 287 220 507
Total 331 266 597
* For Region 8 with 45% of the Project barangays, these staff will be hired/deployed as the Project coverage
expands.
** It is assumed that the municipality/city will assign 1 full time extension worker to 5 barangays.
*** For PY1 1 community facilitator is assigned to 5 adjacent barangays, thereafter to 7-10 adjacent barangays.

1
Excludes technical assistance staff.

44
 Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 5: Institutional Aspects and Imlementation Arrangements

Attachment 4: Readiness assessment and recommended capacity building activities

Recommended Shifts/ Capacity

Organization Existing Mandate/Capability Issues/Challenges
Intervention
BFAR  Government agency responsible for the  Conflicting internal mandates: RA 8550 (Fishery Code)  With Project (or Ecofish assistance) BFAR
development, improvement, management and vis-à-vis RA 8435 (Agriculture and Fisheries will conduct a policy review to ensure that
conservation of the country's fisheries and aquatic Modernization Act or AFMA) which may endanger the consistent policies and programmes are
resources. It was reconstituted as a line bureau by sustainability of fisheries and coastal resources. being promoted at the local level in line
virtue of Republic Act No. 8550 (Philippine RA 8550 covers the development, management and with sustainable fisheries management.
Fisheries Code of 1998) and has specialist conservation of the fisheries, whereas AFMA  Shift BFAR’s orientation from project
divisions and a regional structure summarised encourages use and exploitation of resources rather “implementer” to LGU” enabler”.
below. than their protection and conservation.  Build the capacity of BFAR officers and
 Nine functional divisions: the Fisheries Policy  BFAR provides no direct support to LGUs, but staff, especially those involved with the
Research and Economics Division, Fishery technical assistance and training for fishing households Project to:
Resources Administration Division, Fisheries dependent on the municipal waters by establishing  Transfer their skills on fishery
Development and Support Services Division, MFARMCs, organizing fish warders, and providing development/coastal resources
th
livelihood support. From 10 May 2012, BFAR is management to LGU fishery extension
Aquaculture Division, Fisheries Resources
assisting LGUs’ capacity for fisheries management and workers.
Research Division, Exclusive Economic Zone
Fisheries and Allied Services Division, Fishing
protection by financing the salary for two years of one  Transfer implementation of
fishery staff per LGU. fishery/coastal resources investment
Technology Division, Fisheries Regulation and
 Limited experience of direct involvement with LGUs sub-projects/activities to LGUs.
Quarantine Division, and Post-Harvest
implementing investment sub-projects or activities  Establish a database for the Project and
Technology Division. during BFAR’s previous foreign assisted fishery/CRM ensure that BFAR has a database
 The fisheries technology centres include: National projects. Project activities and investments were covering the fisheries and CRM sector to
Marine Fisheries Development Centre, National directly handled by BFAR. guide future policies and strategies.
Brackish-water Aquaculture Technology Research  Limited capability (numbers and expertise) and poor  Strengthen coordination among the BFAR
Centre, Fisheries Biological Station Complex, coordination within BFAR are serious constraints to divisions to maximise in-house
National Fisheries Research and Development Project implementation. resources/technical expertise for the
Centre, National Seaweeds Technology and  Limited database covering the fishery sector and the Project by creating Technical Working
Development Centre. state of coastal resources. Groups in BFAR to support the Project.
 A central office and regional offices in the target
regions capable of administering the Project with
assistance. The regional offices assign a provincial
fishery officer (PFO) to every province.
 Workforce of 1,247 personnel nationwide, and
2
under the Reorganization Plan , BFAR proposes
to increase the staff numbers to 3,842 in 2013.
BFAR ARMM  The Regional BFAR (RBFAR) was created and is  RBFAR is either a line or staff bureau of the  The MOA to be executed between BFAR

2
Previously the Rationalisation Plan

45
 Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 5: Institutional Aspects and Imlementation Arrangements

Recommended Shifts/ Capacity

Organization Existing Mandate/Capability Issues/Challenges
Intervention

guided by the Muslim Mindanao Autonomy Act no. Department of Agriculture and Fisheries. and RBFAR to for the Project will ensure
86 and Administrative Order No. 1, s 2006;  Limited RBFAR staff in Basilan Province. that the Project can continue to be carried
 There a provincial fisheries offices in ARMM  Bangsamoro Framework Agreement will create a new out despite a change of governance.
provinces and municipal fisheries offices in most political entity named Bangsamoro to replace ARMM,  BFAR ARMM will need similar capacity
ARMM municipalities. supposedly in 2016. intervention to those proposed for BFAR
elsewhere.
LGU – Regions  Under RA 7160 and RA 8550, LGUs have the  Most LGUs lack a willingness and readiness to take on  A shift from CRM plans to CRM investment
V, VIII and XIII primary responsibility for managing coastal coastal resources/fishery management as a basic local plans as part of the municipal development
resources and municipal waters. RA 7160 government service. plan to encourage LGUs to engage in the
provides LGUs with the authority for planning,  In many LGUs CRM/fishery plans are either absent or sustainable management of fisheries and
protection, legislation, regulation, enforcement, are not part of the LGU municipal development plans. coastal resources that will bring long-term
and technical assistance. RA 8550 reconfirms that  Lack of continuity in the implementation of any CRM revenues to the LGUs.
municipal and city governments “shall be plans when LGU administrations and priorities change.  LGUs that pass the readiness filters
responsible for the management, conservation,  Limited or no technical staff to develop and sustain (Section B of Appendix 5) will be a priority
development, protection, utilization, and CRM/fishery plans, programmes and projects. for the initial sub-project investments and
disposition of all fish and fishery /aquatic  Poor law enforcement capability; there is a shortage of other activities.
resources within their respective municipal trained local coastal law enforcement units and the  Provide technical knowledge and skills to
waters.” equipment required. the MAO staff, particularly the fishery
 LGUs which have received assistance from  Municipal waters are not delineated or are in the extension workers.
previous foreign assisted projects have CRM plans process of delineation.  Provide training and equipment to MAOs to
or have included the CRM/fishery sector in the  The absence of a database and monitoring system for establish municipal databases and
municipal development plan. the fisheries sector and coastal resources. monitoring system for the fisheries sector
 LGUs have some skills and mandates for local and municipal coastal resources.
programme and enterprise management.
LGUs ARMM  In ARMM LGUs are accountable to the ARMM  Governance structure is likely to change with the  A MOA will be executed between RBFAR
governor. establishment of Bangsamoro. and target LGUs to ensure that the Project
 ARMM LGUs have limited experience of  Lack of capacity for fisheries and CRM as there are can continue despite the expected change
governance. LGUs with no Municipal Agriculture Office and if the of governance.
office exists there may be no fisheries staff.  Prioritise Project support for improving the
LGUs’ capacity for fisheries management
and protection by BFAR financing the
salary for 2-years (or longer) of one fishery
staff in the LGUs covered by the Project.
FARMCs  Under RA 8550 and Fisheries Administrative Order  Lack of understanding of some FARMCs as to their  Reorient FARMCs as to their roles,
(FAO) 196, FARMCs were created to functions, roles and responsibilities. As observed some functions and responsibilities based on RA
institutionalise the major role of the fisherfolk and FARMCs see themselves as POs. 8550 and FAO 196.
other resource users in the formulation of policies  Lack of acknowledgement by some LGUs of the  One of the eligibility criteria for Project

46
 Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 5: Institutional Aspects and Imlementation Arrangements

Recommended Shifts/ Capacity

Organization Existing Mandate/Capability Issues/Challenges
Intervention

and programmes for managing, conserving, and existence, functions, and operations of the FARMC and intervention to a specific LGU will be the
the sustainable development of fisheries and a subsequent lack of support from LGUs. presence of the M/CFARMCs in line with
aquatic resources.  Terms of office of the members of the M/CFARMCs are the requirement of RA 8550/ FAO 196.
 Fisherfolks/Fishworkers are represented in the not defined; thus leading to incomplete membership in Further, the municipal CRM plan and the
national FARMC, 33% of the membership; at the some FARMCs and absence of arrangements for subsequent Annual Investment Plans will
municipal/city FARMC, 47% of the membership, changing those members who are not making a include support for FARMCs including the
and at Integrated (or bay-wide) FARMC, 64% of the contribution. costs of meetings.
membership.  Revisit the selection process of FARMC
 Barangay level FARMCs (Section 7, FAO 196) can members (barangay, municipal, bay-wide)
be created by LGUs. and correct the gaps/flaws based on the
 Integrated FARMC (Section 12, FAO 196) will requirements of RA 8550 and FAO 196.
serve as a vehicle for close collaboration among  Ensure that IFARMCs provide policy and
LGUs in the management of the contiguous waters management advice to the BMCs and do
in bays/gulfs. not duplicate the role of the BMCs.
FLETs/Bantay  According to Section 127, RA 8550 members of  Capacity building for BantayDagat is not continuous.  Regular training should be provided for the
Dagat fisherfolk associations who have undergone Some of trained BantayDagat manpower are changed members of the BantayDagat (e.g. annual
training on law enforcement may be designated in when the LGU’s leadership changes. orientation/reorientation).
writing by BFAR as deputy fish wardens in the  Legal support is not provided to the Bantay Dagat  BantayDagat should be seen as a support
enforcement of this Code and other fishery laws, when they apprehend illegal fishermen. for law enforcement agencies: the
rules and regulations. Philippine Navy, Philippine Coast Guard,
 BantayDagat members are usually volunteers, but Philippine National Police (PNP) - Maritime
some of them are hired by LGUs as contract Command, LGU law enforcement officers;
personnel (job orders). the law enforcement agencies and the
 Some Bantay Dagat have been effective in judiciary should receive regular orientation
minimising illegal fishing activities in their areas of on RA 8550 with the law enforcement
coverage. agencies responsible for filing cases
against those contravening RA 8550.
POs  RA8550 has recognised POs’ role and  Not all of the target coastal barangays have POs.  Hire community facilitators to assist in the
contribution in implementing this law.  POs that were previously organized are inactive formation or strengthening of POs.
 POs provide a vehicle for fisherfolk to collectively because they do not have activities that can benefit the  Develop and use maturity assessment tools
express their voices. membership on a continuous basis. (other IFAD projects in the Philippines have
 Some POs have shown an ability to be effective in  Most of the existing POs in coastal barangays lack developed such tools) to assess the POs
mobilising fishing households for the sustainable capacity: both financial, managerial and have no legal when reviewing their capacity. Capacity
management of the fisheries and coastal status. building (e.g. training, coaching, mentoring
resources and in developing sustainable etc.) can then be based on the result of the
livelihoods enterprises. maturity assessment.

47
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 6: Planning, M&E, and Learning and Knowledge Management

APPENDIX 6: PLANNING, M&E AND LEARNING AND KNOWLEDGE

MANAGEMENT
A. Planning Framework, Processes and Tools
1. The Project’s approach to planning will be both results-oriented and participatory. The
Government of the Philippine’s commitment to the Paris Declaration of Aid Effectiveness to
“managing for results” is reflected in the Philippine Development Plan (PDP) 2011-2016. To
achieve the PDP goal of “inclusive growth and poverty reduction” the PDP identified sector
results to guide government planning. Likewise, IFAD has developed overtime performance
planning tools to achieve results-oriented planning. These tools include the Project’s logical
framework, AWPB and APP.

2. The logical framework developed during Project design phase will be used as the
framework for planning. At Project start-up, the Project’s logical framework together with the
Project Design Report will be reviewed by the Project implementing agencies and beneficiary
organizations to ensure that there is: (i) a common understanding on what the Project should
achieve from the development goal (outcomes and impact) down to specific activities and their
corresponding outputs; (ii) an understanding and agreement as to the indicators of performance;
and (iii) a clear identification of the assumptions behind the logic of how Project activities will
eventually contribute to the goal, including the associated risks. During this exercise the Project
will prepare a multi-year plan which will outline the yearly targets, key activities, and indicative
budgets. Working Paper 6 includes a format for the multi-year plan with indicative budget
(MYPIB). Appendix 8 includes the format for a procurement plan for the first 18-monthswith
targets for the first year of Project implementation (PY1). Thus, there is no need for a separate
PYI AWPB and APP.

3. For PY2, the Project will prepare an AWPB and APP using IFAD’s templates (Working
Paper 6) which are aligned with the government’s planning and budgeting formats. The AWPB
and APP for PY2 will take into account the following:

 The Rapid Participatory Resource and Socio-Economic Assessments (RPRSAs) which will
be an input in the municipal CRM investment plans which every participating municipality
will prepare, as there will be no investments in LGUs without CRM investment plans; and
 Assessment of previous implementation performance against the targets set in the Project
Development Report, MYPIB and the Project’s logical framework.

4. Key in planning for PY2 and succeeding years will be the LGUs, the bay-wide
management councils, and BFAR’s RPMOs. The LGU planning staff together with the BFAR
planning staff will take the lead in the planning activities. These planning officers should be
familiar with the IFAD’s and Government’s planning templates. Below is a matrix that shows the
key players in the planning process3:

Level Activity Outputs Participants Facilitator

Municipal/ Review of existing CRM plans, RPRSA CRM FARMC, PO M/CPMO/
City results, Community Land Use Plan, if any Investment Plan representatives, MPIU
MAO, MPDC
Bay-wide Review of existing bay-wide plans, CRM Bay-wide BCSC members RPMO
plans Priority Plan
Regional Review and consolidation of municipal Regional RCSC members RPMO
and bay-wide investment and priority AWPB/APP
plans, and endorsement of regional
AWPB and APP
National Consolidation of regional AWPBs/APPs, Project PSC members PSCO
and approval of Project AWPB/APP AWPB/APP

3
In ARMM, participants and facilitators will follow the implementation arrangement described in Appendix 5.

48
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 6: Planning, M&E, and Learning and Knowledge Management

5. The PSC will approve the Project’s MYPIB, AWPBs and APPs. The PSCO will submit the
approved documents to IFAD for review and issuance of a no objection letter 45 days before the
start of the calendar year of implementation.

6. As the Project will need a government budget allocation for BFAR, as well as counterpart
funds from the LGUs, the timing for the preparation of AWPBs and APPs will follow the
government’s budget calendar. By the second quarter of the preceding year the government
agencies start preparing a budget for the following year for approval by the government’s
legislative branches. Budget preparation and approval by the LGUs follows the same process as
for the central government agencies. Budget approval by LGUs usually occurs during the last
quarter of the preceding year. For PY1 planning, the Project will take activities and the budget
figures from the MYPIB which, when revised as necessary, will be incorporated into BFAR’s
plan, and once approved, will be the basis for the Project’s budget appropriations for the
succeeding year.

B. Monitoring and Evaluation Framework, Systems and Organization

Framework
7. The Project will have a results-based M&E system which will include a management
information system (MIS) and will report the status of the Project’s implementation progress in
terms of: (i) outputs, (ii) outcomes, and (iii) impact. This system will be aligned with the DBM’s
Organizational Performance Indicator Framework (OPIF), NEDA’s Results-based M&E (RbME)
and IFAD’s Results and Impact Management System (RIMS). The RCSC and RPMO will
provide regular reporting of accomplishments and policy and major operational issues to
Regional Development Councils (RDCs), LGUs and other stakeholders.

8. The DBM uses OPIF4in the context of public expenditure management, which covers all
levels of the public sector from the national government down to the LGU level. The DBM uses
the budget as an instrument for ensuring the desired results. NEDA, as an oversight agency,
monitors and evaluates the contribution of foreign assisted projects to achieving the objectives
of the government’s medium term development plans, currently the PDP 2011-2016. NEDA
uses RbME5 for this M&E function. Every foreign-assisted project is required to submit Official
Development Aid reports quarterly (10 forms).

9. The IFAD RIMS requires reporting of results at three-levels: level 1 (outputs), level 2
(outcomes) and level 3 (impact). The IFAD RIMS Levels 1and 2 Handbook and IFAD RIMS
Measuring and Reporting 3rd Level Results have further details. Level 1 and level 2 results are
reported annually, while Level 3 results are reported at the start (baseline) and end of the
Project.

System and process

10. At Project start-up, the Project has to review and agree the indicators6 in the logical
framework (columns 2 and 3) and prepare an M&E plan. The M&E plan will include the
following: (i) performance indicators; (ii) data to be collected; (iii) methods of collection; (iv) data
collection responsibilities; (v) frequency of data collection; and(vi) responsibility for data analysis
and reporting. In the M&E planning, the Project will ensure that there are gender-responsive
indicators (Working Paper 6 has further details).

11. A baseline sample survey using IFAD’s RIMS tools, analysis and reporting will be

4
DBM. 2007. http://www.dbm.gov.ph/OPIF_2007/OPIF.pdf
5
RbME is being implemented in line with NEDA Board Resolutions Nos. 3 & 7, Series of 1999. It is an instrument for managers at
the project-level, as well as at the implementing and oversight agencies, to monitor and evaluate project performance based on
results/outcome/impact of project performance.
6
It should be noted that the Project’s indicators need not be limited to the logical framework. While the indicators of the logical
framework are most useful for assessing results agreed by the project participants, there may be other indicators which the
government requires. Thus, in developing the M&E plan, the need for other indicators should be taken into account.

49
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 6: Planning, M&E, and Learning and Knowledge Management

conducted in all 11 target bays before Project start-up. The survey will be coupled with further
investigation into the following areas: presence of IP, gender and age roles in fisheries, fishing
seasonality, and out-migration from the target fishing communities. IFAD will contribute a grant
of USD 30,000 towards the costs of this baseline survey with the remaining funds coming from
BFAR’s 2013 budget. Working Paper 6 includes draft terms of reference (TOR).

12. Within six months of Project start-up, a Rapid Participatory Resource and Socio-Economic
Assessment (RPRSA) will be carried out in the target bays. The RPRSA will cover an
assessment of the bay’s resources, habitats, species, water quality, fisheries profile and socio-
economic conditions of the fishing households in the bay, the presence or absence of pre-
existing fisheries organizations and associated resource management arrangements. Maximum
use will be made of existing data. The RPRSA data will serve as baseline profiles for each bay
as basis for refinement of target deliverables, strategies and M&E. To provide for standard
execution of the RPRSA and data and reports, the PSCO will draft the TOR for use in all bays
which BFAR and IFAD will review. Each RPMO will execute the RPRSA of a bay according to
the TOR (Working Paper 6).Working Paper 6 includes draft terms of reference (TOR).

13. During implementation, the Project will monitor and report results regularly. Indicators to
be monitored will include those in the Project’s logical framework, IFAD RIMS, and other
relevant indicators as required by the DBM’s OPIF and NEDA’s RbME. The Project will adhere
to the reporting requirements set by the government such as the prescribed procedures and
forms instituted by NEDA and by the Regional Project Monitoring and Evaluation System (of the
Regional Development Council as well as those prescribed by IFAD. IFAD requires the following
reports: (i) annual RIMS reports; and (ii) annual and semi-annual progress reports. To capture
the data/information needed, the Project will use or enhance the existing BFAR M&E forms.

14. The regular M&E forms which capture and report quantitative data/information will be
supplemented by qualitative methodologies e.g. focus group discussions and case studies.
From PY3, the Project will monitor outcomes using annual outcome surveys. At the end of the
Project, a RIMS+ study, similar to that undertaken as part of the baseline survey, will be
conducted to determine Project impact. In addition, before the Project ends, a coastal resource
assessment will be conducted in each bay ecosystem to assess the changes in the marine and
coastal resources brought about by the Project.

15. The Project will have an M&E Implementation Manual which will include the M&E plan, the
capture and consolidating templates, and guides for analysis, reporting, RIMS+ impact studies,
the annual outcome surveys, the coastal resource assessments, and M&E organization.

Organization
16. The Project will promote a participatory M&E process. Though the M&E functions will be
mainly carried out by the Project implementing units, other participants such as the FARMCs
and POs will be involved in the collection and use of data/information. Working Paper 6 has
further details of the organizational structure, and the roles and responsibilities.

17. At the municipal level, one LGU staff will be designated as the M&E focal point. At the
RPMOs and PSCO, M&E/KM officers will be responsible for M&E. Working Paper 5includes the
TOR for these staff.

18. The Project will recruit consultancy firms or individual consultants to design the results-
based monitoring system, MIS system, RPRSA and the RIMS+ baseline and impact surveys.
To develop the in-house capacity of BFAR, staff with designated M&E functions will work in
tandem with the consultants.

C. Learning and Knowledge Management

19. Being the first IFAD assisted project involving fisheries and coastal resources

50
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Appendix 6: Planning, M&E, and Learning and Knowledge Management

management in the Philippines, generating and sharing lessons and knowledge in this Project is
of prime importance. Knowledge management will be incorporated into the implementation cycle
and the organizational structure.

20. In addition to their regular M&E functions, the Project’s Monitoring and
Evaluation/Knowledge Management units will also take charge of knowledge management.
Knowledge management will be an essential part of the TOR of the staff responsible for M&E
(Working Paper 5). Project knowledge will be generated primarily through the M&E system.
Regular reports, especially six-monthly and annual progress reports, will include details of the
problems encountered, solutions implemented, lessons learned and the way forward. These
reports will be important for Project management when making implementation decisions.

21. To generate lessons learned regular M&E activities will be complemented with studies on
the special features of the Project e.g. case studies, documentation of systems, photo and video
documentation, field stories, etc. Thus, other Project staff will be also involved in generating,
capturing and sharing knowledge which will improve the efficiency and effectiveness of Project
implementation, and provide information that will help develop appropriate policies for the
management of the municipal fisheries and coastal resources, including the roles and
responsibilities of BFAR (as a national agency) and the LGUs.

22. The Project will ensure that there are mechanisms and platforms for generating, capturing
and sharing of knowledge within the Project. Knowledge sharing will be undertaken by the
Project during the annual assessments and planning activities, through publications, via the
Project website and other appropriate forms of communication. In this respect, the Project will
prepare a Knowledge Management Plan or Communication Plan as part of the M&E plan.
Working Paper 6 includes further details.

23. At the country programme level, the Project will participate in two knowledge sharing
platforms managed by the IFAD Philippines Country Office. First is the face-to-face interaction
through the: (i) Annual Country Programme Review which shares project implementation
problems, solutions and lessons learnt between the IFAD projects in the Philippines; and (ii)
Knowledge and Learning Market, which is a national gathering for agencies implementing IFAD
projects and other national development agencies with a focus on specific issues and concerns.
Second is virtual information sharing through the IFAD Country Programme Facebook page and
the IFAD Asia Portal.

51
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Design completion report
Appendix 7: Financial Management and Disbursement Arrangements

APPENDIX 7: FINANCIAL MANAGEMENT AND DISBURSEMENT

ARRANGEMENTS
A. Assessment of the Financial Management Capacity of BFAR and LGUs
1. BFAR implemented foreign assisted projects during the period from 1990 to 2011
through its Project Management Office (PMO) with the support of its finance, administrative and
technical services divisions. The focus of these projects was more on the provision of technical
assistance than investment and their scale was much smaller than the proposed Project, which
will include both technical assistance and major investments in CRM and livelihood development
activities, and involve a large volume of funds from IFAD and the Philippine Government.

2. Observations and discussions conducted during the project design and project design
completion missions identified the need to strengthen the financial management capability of
BFAR, the participating LGUs and POs through staff training, close supervision and guidance.
The following points illustrate why there is a need to strengthen the financial management
capacity of the participating entities:

 The recent orientation of the BFAR PMO staff has been on technical assistance projects
including the recently such completed Sustainable Management Coastal Resources
(SUMACORE) in Bicol and CARAGA regions and the ongoing ICRMP, although BFAR
did implement some activities some under the Fisheries Sector Programme and the
Fisheries Resource Management Project, both supported by the Asian Development
Bank.
 The Project will include both technical assistance and investments in four regions and
involving 103 municipalities. It will require extensive monitoring, proper systems for
disbursement and accounting for funds.
 Procurement of equipment by the BFAR Central Office in previous projects did not meet
the needs of many coastal LGUs. Patrol boats provided under the Fisheries Resource
Management Project were not fully used or have been non-operational due to the high
fuel consumption (and hence operating cost) of the large engines provided.
 In Region XIII the POs lack the necessary financial literacy to handle, and be
accountable, for substantial volumes of funds and to comply with the reporting
requirements.
 The experience of the LGUs is variable. In Region 8, the BFAR Regional office has
provided PHP 250,000 to Quinapondan Municipality for a project and these funds have
never been liquidated. However, the Hinunangan Municipality in the same region,
through the MAO, has implemented some foreign assisted projects e.g. the German
Agency for International Cooperation Costal Fisheries Resource Management, the
Japan International Cooperation Agency Agrarian Resource Project III, and the RARE
(an US international environmental organization) Costal Resource Social Marketing
Project. Other LGUs (municipalities) have no experience of implementing a foreign
assisted project.
 Most of the LGUs provide some, but insufficient, funds for the FLETs e.g. to pay
allowances to the volunteers that make up the teams, maintenance of fish sanctuaries,
provisions for delineating the boundaries of the municipal’s coastal waters, planting and
maintenance of mangroves and coral reefs.
 Some LGUs have already implemented projects through organized POs under sub-
project agreements. The LGUs have provided funds to separate sub-project bank
accounts opened by the POs.
 In ARMM, a BFAR Region was created by the Muslim Mindanao Act No. 86 and the
BFAR regional office directly implements projects in the Region. No funds are
downloaded to the LGUs.

52
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Design completion report
Appendix 7: Financial Management and Disbursement Arrangements

B. Financial Management
3. A PSCO will be created in the BFAR Central Office. With the support from BFAR
Financial and Administrative Services Division, the BAC and the Technical Services Division, the
PSCO will be responsible for the overall management of the Project’s funds in accordance with
the IFAD Financing Agreement, the approved AWPBs, and APPs, and the PIM. The PIM
prepared by BFAR prior to Project start-up will include details of the Project’s arrangements for
financial management including the preparation and implementation of the AWPBs and
procurement plans; preparation of financial reports; supporting documentation required for
financial transactions; recording of receipts and disbursements, accounting and safekeeping of
records; preparation and submission of withdrawal applications, reconciliation of designated and
Project bank accounts and Project audit. Such financial guidelines will be consistent with the
New Government Accounting System (NGAS) and IFAD policies, systems and procedures.
C. Disbursement Arrangements
Accounts and flow of funds

4. The BTr will provide BFAR through DBM a Notice of Funds Availability upon receipt of
funds from IFAD as remitted to the Designated Accounts, while DBM will provide to BFAR
Notice of Cash Allocation. As requested by BFAR, funds converted to Philippine Peso will be
transferred by the BTr from the Designated Accounts to two Project Bank Accounts (Account A
for the IFAD Loan and Account B for the IFAD Grant) maintained by the PSCO. Disbursement
will follow the Government’s systems, rules and regulations, particularly the NGAS, consistent
with IFAD’s disbursement procedures. The PSCO will transfer these funds to the Project
Accounts, also Account A for the IFAD Loan and Account B for the IFAD Grant, (including the
Government counterpart funds), to the BFAR RPMOs as initial advances and subsequently as
replenishments against financial reports from each RPMO for the expenditure incurred for the
Project by the regional and provincial offices, LGUs and POs.

5. The three BFAR RPMOs (Region 5, Region 8 and 13) will download funds to the LGUs in
accordance with the MOAs when LGUs can comply with the criteria defined in the Administrative
Order No. 05, series of 2013 of the DA for implementing the Bottom-Up Budgeting Projects, viz:

 Technical capacity exists to implement the project with knowledgeable staff, the
equipment is functional and there is a good project implementation track record;
 Recipient of the DILG Seal of Good Housekeeping (FY 2011 or FY 2012);
 Completed assessment of the Public Financial Management System as required by
the DBM; and
 No un-liquidated cash advances from DA.

6. The LGUs (with downloaded funds from the RPMO) will disburse the funds to Trust
Funds (Bank Accounts opened for the Project by the POs7) or by way of “Advance” in
accordance with their sub-project agreements or directly to contractors and suppliers. POs are
those registered with Department of Labour and Employment (or other government agency) that
have been functioning as such for at least a year.

7. When LGUs are not eligible to receive downloaded funds, the BFAR RPMO will disburse
funds in accordance with the MOA with the LGU. Included in the MOA will be details of project
implementation, including required financial reports, supporting documentation on
disbursements and post audit by the COA.

8. In ARMM, the devolution of functions differs from that in the rest of the country. For
Project funding and implementation, BFAR-ARMM will execute a MOA with BFAR Central

7
This tem covers all types of organized associations, cooperatives etc.

53
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Design completion report
Appendix 7: Financial Management and Disbursement Arrangements

Office. Contracts, purchase orders and disbursements will be approved by BFAR-ARMM in

accordance with signing authority limits of the BFAR-ARMM Director, the AWPB, APP and the
MOA with BFAR Central Office. BFAR-ARMM Provincial and Municipal Fisheries Coordinators
will facilitate and monitor implementation of contracts, MOAs with the LGUs and sub-project
agreements with POs. No funds will be downloaded to the LGUs. Disbursements and
contracting will be handled by the BFAR-ARMM. Funds will be downloaded by BFAR-ARMM to
the Trust Funds (Bank Accounts opened for the Project by the POs) or by way of “Advance” in
accordance with their sub-project agreements or directly to contractors and suppliers.

9. In summary, there will be: (i) one Designated Account in USD for the IFAD Loan
proceeds, one Designated Account in USD for the IFAD Grant proceeds and three Project
Accounts in PHP (one for IFAD Loan proceeds, one for IFAD Grant proceeds and one for the
Government counterpart funds) for the PSCO; (ii) four Project accounts for IFAD Loan, four
Project accounts for the IFAD grant and four Project accounts for Government counterpart funds
for the three RPMOs and for BFAR ARMM; and (iii) in accordance with the MOA between BFAR
and LGUs in Regions, V, VIII and XIII, two Project accounts for each participating LGU in these
regions, one for the funds from the IFAD Loan the other for the Government counterpart funds.
The LGUs funds’ will be replenished against submission of the necessary periodic financial
reportssupported by relevant documentation (contract, proof of payment, bank statements, etc.)
in line with the SOE ceilings and IFAD disbursement procedures. This will enable BFAR Central
Office to submit to IFAD complete Withdrawal Applications and avoid disbursement delays.
SOEs, bank reconciliations and bank statements. A Project bank account will be opened by
registered POs as provided for in their sub-project agreements with the LGUs or with the three
RPMOs (where funds are not downloaded to LGUs (because the LGUs do not meet the
qualifying criteria of the Bottom-up Budgeting Projects) and BFAR ARMM. No Project bank
accounts will be opened by the ARMM LGUs. Charts for the flow of funds are included in
Section E of this Appendix.

10. Each disbursing entity in the regions: LGUs and POs will be responsible in disbursing the
funds in line with the provisions of the PIM and MOA, and provide the necessary monthly
financial reports, copy of bank statement and bank reconciliation. The RPMO will provide the
PIM and training to each disbursing entity. Use of Project funds requires that they are covered
by BFAR’s budget appropriation for the year and included in the Project AWPB and APP.

11. The Project will use and maintain IFAD’s Designated Account following the guidelines
and procedures in the IFAD Loan Disbursement Handbook for Directly Supervised Projects, and
reflected as necessary in the PIM. The Handbook also specifies the procedures and
documentation for the disbursement and replenishment of the loan and grant proceeds in the
Designated Accounts. For direct payments, the corresponding national procedures for such
disbursements will be followed, i.e. the issuance of Non-cash Availment Authority by DBM.

Disbursement methods

12. The Project can use the following disbursement methods under the transaction based
disbursement procedures:

 Reimbursement: IFAD may reimburse BFAR for expenditures eligible for financing in
accordance with the Financing Agreement (eligible expenditures), as retroactive
financing, that BFAR has pre-financed from its own resources for the Project Start-up
Costs.
 Advance: IFAD may advance loan proceeds to a Designated Account operated by
BFAR to finance eligible expenditures as they are incurred and for which supporting
documents will be provided at a later date. Replenishment of the Designated Account
will be by way of withdrawal applications (WAs) submitted regularly by BFAR.
 Direct Payment: IFAD may make payments at BFAR’s request, directly to a third

54
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Design completion report
Appendix 7: Financial Management and Disbursement Arrangements

party e.g. supplier, contractor or consultant for eligible expenditures.

 Special commitment: This modality is used for eligible Project expenditures related
to items imported by Project implementing agencies under a letter of credit requiring
the issuance of guarantees for reimbursement to negotiating banks by IFAD.

13. Disbursements relating to activities undertaken by, or at, the BFAR central level will be
the concern and responsibility of the PSCO. Disbursements for local activities will be
administered by the concerned RPMO provided that the amounts are within the limits of their
authority.

Statements of Expenditure and withdrawal applications

14. Statements of Expenditure (SOEs) will cover all categories of expenditure, for amounts
not exceeding USD 50 000 at the initial stage of the project implementation. SOEs will be
prepared by the disbursing offices. The RPMOs will submit regional SOEs to the PSCO for
consolidation for onward submission to IFAD together with the WA and Reconciliation of the
Designated Accounts. The PSCO and RPMOs will:

 Make payments from their respective accounts for all eligible Project expenditure
according to the approved Project AWPBs.
 Obtain and keep receipts for all Project expenditure.
 Prepare and maintain accounts and records of all Project expenditure, reflecting all Project
expenditures by component/activity and disbursement category.
 Consolidate and process, on a timely basis, records of eligible Project expenditure and
WAs for forwarding to IFAD in coordination with the BFAR Finance Services for
reimbursement or replenishment of the Designated Accounts.
 Record properly and keep safely details of all transactions relating to the Project to be
made available to the supervision missions and independent auditors.

15. Was based on the disbursement reports will be prepared and submitted by the finance
staff of each of RPMO and the PSCO and consolidated by the finance staff of PSCO and
submitted to the BFAR Finance Services for the final signature and onward submission to IFAD.
For reporting eligible expenditure paid from the designated account and requesting for
reimbursement, the following Supporting Documents for Disbursement will be required:

 For SOE withdrawals, the relevant supporting documents need not be submitted to
IFAD, but will be retained by BFAR for inspection and review by representatives of IFAD
during supervision missions, who will report their findings in the Supervision Report
following such an inspection. All original records providing evidence of the expenditures
will be retained by BFAR and/or the implementing agencies until ten years after the
closing date for withdrawals.
 Full documentation including records of eligible expenditure (e.g. signed contracts,
invoices) is required for any expenditure amounting to USD 50,000 or more.
 WAs for direct payments. Purchase records providing evidence of eligible expenditure
(such as copies of contracts, purchase orders, supplier’s invoice and receipts, etc.) will be
submitted together with WAs setting out clear payment instructions.
 The minimum size of each WA is USD 20,000 for the Loan and USD 20,000 for the Grant
or its equivalent.

16. In Regions, V, VIII and XIII, where funds are downloaded by way of fund transfer and/or
cheque to the LGUs and POs in accordance with the MOA, the concerned LGUs and POs will
be required to submit SOEs for consolidation by the RPMO. The RPMO has to provide the
necessary training for the preparation of SOEs. The MOA will contain conditions for the funds

55
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Design completion report
Appendix 7: Financial Management and Disbursement Arrangements

released including the documentation and financial reports required to liquidate the advance.

Replenishment of the designated accounts

17. BFAR should apply for replenishment of the Designated Accounts on a quarterly basis or
when the amount withdrawn reaches at least one third of the amount advanced, if this occurs
sooner. The WAs should be submitted promptly once the monthly and/or quarterly bank
statement has been received from the bank where the Designated Accounts are held and bank
fund balances reconciled. The replenishment applications documenting the expenditures from
the Designated Accounts must be submitted regularly and any ineligible amounts must be
promptly refunded to the Designated Account, or justified through the submission of evidence
that other eligible expenditures have been financed from BFAR’s own resources.

19. The initial deposit transfer of IFAD to the Designated Accounts will be considered as an
advance against the loan and/or grant account and thereafter, the releases will be based on the
WAs submitted by BFAR supported by SOEs. Release of funds from the PSCO to the RPMOs
through fund transfer and/or cheque, as applicable will follow the prescribed national accounting
and auditing regulations.

20. The PSCO will monitor the receipt of funds by the Designated Accounts and accordingly
advise BTr to notify DBM to facilitate issuing the required Certification of Funds Availability for
the release of funds by DBM.

Control of soft expenditure

21. The control of soft expenditures is related to how controls for expenditure on fuel,
training, per diems etc. should operate. The purpose is to ensure that all such expenses are
properly authorised and that appropriate documentary evidence is available to support the
expenditure. The controls related to soft expenditure will include, but not be limited to:

 Procedures and controls for budgeting and expenditure on workshops will include, for
example, selection criteria for participants, controls on attendance, controls against
budgeted expenditures, with the Finance Section undertaking verification (including where
applicable spot checks).
 Procedures for control of fuel use and vehicle log books.
 Maintenance and monitoring of records for advances.

22. Expense items under the various components of the Project will be incurred and
disbursed as follows:

No. Component/Sub-component/Items of Office Concerned Conditions/Remarks

Expenditures
Investment Costs
1. Participatory CRM analysis and planning
1.a Technical assistance and related expenses PSCO As per AWPB and signing authority
1.b Regional workshops RPMO As per AWPB and signing authority
1.c Local surveys/interviews/meetings RPMO/LGU/PO As per AWPB and MOA
1.d Special studies PSCO/RPMO As per AWPB and signing authorities
2. Coastal Resources Management
2.a Coastal fisheries infrastructure PSCO/RPMO As per AWPB and within authorities,
subject to RA 9184
2.b Coastal law enforcement RPMO/LGU As per AWPB and MOA
2.c Equipment for small patrol boats and for ICT RPMO/LGU As per AWPB and MOA, subject to RA
9184
2.d Technical assistance (national/regional) PSCO/RPMO As per AWPB and signing authorities
2.e Coastal maintenance and operations RPMO/LGU As per AWPB and MOA
2.f Information materials RPMO/LGU/POs As per AWPB and MOA
2.g Gender Strategic Activities RPMO As per AWPB and signing authority
3. Livelihood Development

56
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Design completion report
Appendix 7: Financial Management and Disbursement Arrangements

No. Component/Sub-component/Items of Office Concerned Conditions/Remarks

Expenditures
3.a Investments in related Rural infrastructure and RPMO/LGU As per AWPB and MOA, subject to RA
Equipment 9184
3.b Organizational Strengthening RPMO/LGU/POs As per AWPB and MOA
3.c Microenterprise promotions Sub-projects RPMO/LGU/POs As per AWPB and MOA
3.d Information, education, communication RPMO/LGU/POs As per AWPB and MOA
4. Project Management and Coordination
3.a Policy studies and development PSCO As per AWPB approved by the Steering
Committee
3.b Project staff training and capacity building PSCO/RPMO Approved by the Steering Committee
(assessment and activities), meetings
Recurrent Costs: Salaries and Operating
Expenses
A. National Project staff and related operating PSCO As per AWPB
expenses
B. Regional Project staff and related operating RPMO As per AWPB
expenses

D. Audit
24. The Project audit will follow IFAD’s “Guidelines on Project Audits”, generally accepted
international auditing standards and will be in line with the provisions of the Financing Agreement.
Annual financial reports for the use of Project funds will be prepared following the Government’s
accounting and reporting standards, rules and regulations and the generally accepted
accounting principles and standards.

25. COA as the only Independent Audit Institution of the Government of the Philippines will
be the external auditor of the Project. The COA Auditors assigned to the disbursing offices will
conduct the audit of Project accounts and transactions as prescribed by the auditing rules or as
may be specified in the financing agreement or required by IFAD. The COA validates the SOEs
and conducts annual audits of the Project’s financial statements, designated and Project bank
accounts and SOEs.

26. A draft TOR for the annual audit is attached to this Appendix. The PSCO will finalise the
TOR for the audit in consultation with COA and the Controller's and Financial Services Division
of IFAD and submit the final TOR to IFAD for its review and no objection.

57
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Design completion report
Appendix 7: Financial Management and Disbursement Arrangements

E. Funds Flow Charts

Funds Downloaded to BFAR Regions (except ARMM)

National IFAD Loan IFAD Grant Local
Government Proceeds* 27.Proceeds** Government
Counterpart Designated Designated Counterpart -
Fund*- PHP Account - USD Account - USD PHP

Project Project Project

Account in Account in Account in
BFAR HQ BFAR HQ BFAR HQ
Government Loan Account Grant
Fund Account - PHP Account -
- PHP PHP

Project Project
Project Project
Account Account
Account Accounts
Loan Fund Grant Fund
Government LGU Fund(s)
for each of for each of
Fund for each (IFAD Loan
the BFAR the BFAR and Govt.
of the BFAR
Region Region Funds)
Region
RPMO - PHP RPMO - PHP
RPMO - PHP PHP***

Advances
and/or Fund
Taxes &
Release to
Duties
POs****

Government Boats, Vehicles, Consultancy Project

Computers Direct Payments
Staff Services, Hired
Motorcycles Workshops, Goods
Training, Staff
Service Providers/
* Through the Bureau of Treasury and Department of Budget Management
Suppliers
** The Grant will be used to finance costs of Business Service Providers for the Livelihood
Component
*** The LGU bank account could be established under MOA with BFAR
****The Qualified Registered PO could be downloaded funds by LGUs. The PO with project
funds could make direct payments for workshops and materials and supplies and goods

58
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Design completion report
Appendix 7: Financial Management and Disbursement Arrangements

Funds Downloaded to BFAR-ARMM

National IFAD Loan IFAD Grant Local
Government Proceeds* Proceeds** Government
Counterpart Designated Designated Counterpart -
Fund* - PHP Account - USD Account - USD PHP

Project Project Project

Account in Account in Account in
BFAR HQ BFAR HQ BFAR HQ
Government Loan Account Grant Account
Fund Account PHP PHP
PHP

Project Project
Project
Account Account LGU
Account
Project Grant Fund Fund
Government
Account for each of (Counterpart
Fund for
Loan Fund the BFAR Funds)
BFAR
for BFAR Region maintained by
ARMM
ARMM RPMO - PHP BFAR Region
RPMO - PHP
RPMO - PHP - PHP***

Advances
and/or Fund
Taxes &
Release to
Duties
POs****

Government Boats, Vehicles, Consultancy Project Direct Payments

Computers Services, Hired Workshops,
Staff
Motorcycles
Training, Staff Goods, Service
Providers
* Through Bureau of Treasury and Department of Budget Management /Suppliers
** The Grant will be used to finance costs of Business Service Providers for the Livelihood
Component
*** The LGU bank account could be established under MOA with BFAR
****The Qualified Registered PO could be downloaded funds by BFAR. The PO with project
funds could make direct payments for workshops and materials and supplies and goods

59
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Design completion report
Appendix 7: Financial Management and Disbursement Arrangements

Attachment 1

Draft TOR for an audit of the FishCORAL Project

The following are the draft terms of reference (TOR) on which the Project Support and
Coordination Office (PSCO) agrees to engage the Commission on Audit (COA) ‘the Auditor’ to
perform an Audit and to report in connection with the Agreement with IFAD concerning IFAD
Loan No. ... and IFAD Grant No. ...., where in these TOR, IFAD has signed the Agreement with
the Philippine Government represented by the Department of Finance and finances the Audit
services. IFAD is not a party to this engagement.

Responsibilities of the parties to the engagement

The PSCO refers to the entity that executes the Project on behalf of the borrower/recipient that
has signed the Agreement with IFAD.
 The PSCO is responsible for providing a Financial Statements for the activities and
services financed by the Loan and for ensuring that these Financial Statements can be
properly reconciled to the PSCO records and accounts in respect of these services.
 The PSCO accepts that the ability of the Auditor to perform the procedures required by
this engagement effectively depends upon the PSCO providing full and free access to its
staff and records and accounts.
 The PSCO will provide the auditors with all the necessary documentation to perform the
assignment properly; in particular the following information shall be provided to the
auditors before the beginning of the assignment:
 Project Financing Agreement;
 Annual Progress Report;
 Project Implementation Manual;
 Organizational charts along with names and titles of senior managers;
 Names and qualifications of officers responsible for financial management,
accounting and internal audit; and
 Description of information technology facilities and computer systems in use; and
copies of the minutes of negotiations, Letter to the Borrower, IFAD Disbursement
Handbook, IFAD Procurement Guidelines and Handbook, IFAD General Conditions
for Agriculture Financing, project design completion report, annual work plan and
budget and annual procurement plan.
‘The Auditor’ refers to the Auditor who is responsible for performing the agreed-upon procedures
as specified in these TOR, and for submitting a report of factual findings to the PSCO.
The Auditor shall provide:
 A separate opinion on Project Consolidated Financial Statements (PFS)and minimum
content of the PFS:
 Yearly and cumulative statements of sources and application of funds, which should
disclose separately IFAD’s funds, other donors funds, government funds, LGU funds
and community beneficiaries funds;
 Yearly and cumulative SOEs by withdrawal application and category of expenditures;
reconciliation of the SA;
 Reconciliation between the amounts shown as received by the Project and those
shown as being disbursed by IFAD should be attached as an annex to the PFS. As
part of that reconciliation the auditor will indicate the procedure used for
disbursement (Designated Account (DA) funds, letters of credit, special
commitments, reimbursement or direct payment) and indicate whether the
expenditure is fully documented or uses the Summary of Expenditures format;
 Cumulative status of funds by category;
 Designated account statement-reconciliation;

60
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Design completion report
Appendix 7: Financial Management and Disbursement Arrangements

 A statement of comparison between actual expenditures and budget estimates; and

 Notes accompanying the Financial statements.

 A separate opinion on the use of the Designated Accounts for Loan and Grant (DA); The
auditor is also required to audit the activities of the DA associated with the Project
including the initial advance, replenishments, interest that may accrue on the outstanding
balances, and the year-end balances. The auditor must form an opinion as to the degree
of compliance with IFAD procedures and the balance of the DA at year end. The audit
should examine: (i) the eligibility of withdrawals from the two DAs during the period under
review; (ii) the operation of the two DAs in accordance with the relevant financing
agreement; (iii) the adequacy of internal controls within the Project appropriate for this
disbursement mechanism; and (iv) the use of correct exchange rate(s) to convert local
currency expenditures to United States dollars.

 A separate opinion on the WAs and SOEs; the audit will include a review of SOEs used
as the basis for submitting withdrawal applications. The auditor will carry out tests and
reviews as necessary and relevant to the circumstances. SOE expenditures will be
carefully compared for eligibility with relevant financial agreements, and the IFAD
Disbursement Handbook, AWPB, and with reference to the project design completion
report for guidance when necessary. Where ineligible expenditures are identified as
having been included in a WA and reimbursed, auditors will note these separately. A
schedule listing individual SOEs, WAs by reference number and amount should be
attached to the PFS. The total withdrawals under the SOE procedure should be part of
the overall reconciliation of IFAD disbursements described above. The auditor’s opinion
should deal with the adequacy of the procedures used by the Project for preparing SOEs
and should include a statement that amounts withdrawn from the Project account on the
basis of such SOEs were used for the purposes intended under the agreement.

 A separate management letter addressing the adequacy of the accounting and internal
control systems of the Project, including compliance with IFAD’s Procurement Guidelines
and such other matters as IFAD may notify the PSCO to include in the audit.

The auditor is requested to:

 Comment on economy, efficiency and effectiveness in the use of project resources;

 Comment on achievement of planned project results;
 Comment on legal and financial obligations and commitments of the project and the
extent of compliance or non-compliance thereof;
 Comment on systems and procedures such as improvements in accounting,
information technology or computer systems, and operations that may be under
development, on which the auditor’s comments are necessary to ensure effective
controls;
 Comment on other activities on which an auditor may consider it appropriate to
report.

 Auditors shall certify :

 Whether the PFS are drawn up in conformity with accepted accounting standards
(IFRS, IPSAS, or national financial standards);
 Whether the PFS are accurate and are drawn up from the books of accounts
maintained by the Project;
 Whether the provisions of the Project Agreement are adhered to;
 Whether Procurement has been undertaken by the Project in accordance with
applicable procurement procedures and IFAD’s Procurement Guidelines;
 Carry out a physical verification of any significant assets purchased and confirm their
existence and use for Project purposes.

61
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Design completion report
Appendix 7: Financial Management and Disbursement Arrangements

 Whether the Project has an effective system of financial supervision or internal audit
at all levels; and
 Whether the expenditure claimed through SOEs are properly approved, classified
and supported by adequate documentation.

Subject of the engagement

The subject of this engagement is the financial statements dated D/M/Y in connection with the
Agreement for the period covering D/M/Y to D/M/Y. The information, both financial and non-
financial, which is subject to verification by the Auditor, is all the information which makes it
possible to verify that the expenditures claimed by the PSCO in the Financial Statements have
occurred, and are accurate and eligible. These TOR contain an overview of key information
about the Agreement and the services concerned.
Reason for the engagement
The PSCO is required to submit to IFAD an Audit report produced by an external auditor under
Article IX of the General Conditions for Agricultural Development Financing.
Engagement type and objective
This constitutes an engagement to perform specific agreed-upon procedures following the IFAD
Guidelines on Project Audits (to be provided to the Auditors by the PSCO as Annex 2 of the final
TOR). The objective of this audit is for the Auditor to verify that the expenditures claimed by the
PSCO in the financial statements for the services covered by the Agreement have occurred
(‘reality’), are accurate (‘exact’) and eligible and to submit to the PSCO a report of factual
findings with regard to the agreed-upon procedures performed. Eligibility means that expenditure
has been incurred in accordance with the terms and conditions of the Agreement.
Scope of work
The Auditor shall undertake this engagement in accordance with these TOR and:
 In accordance with the International Standard on Audit (ISA) to perform Agreed-upon
Procedures regarding Financial Information as promulgated by the IFAC;
 In compliance with the Code of Ethics for Professional Accountants issued by the IFAC.
Although ISRS 4400 provides that independence is not a requirement for agreed-upon
procedures engagements, IFAD requires that the auditor also complies with the
independence requirements of the Code of Ethics for Professional Accountants.
 In accordance with International Standards on Auditing (ISA) and in line with IFAD’s
Guidelines for Project Audits.
The Auditor verifies that the funds provided by the Agreement were spent in accordance with the
terms and conditions of the Agreement.
The Auditor should plan the work so that effective audit can be performed. For this purpose he
performs the procedures specified the IFAD Guidelines on Project Audits and he uses the
evidence obtained from these procedures as the basis for the report of factual findings. The
Auditor should document matters which are important in providing evidence to support the report
of factual findings, and evidence that the work was carried out in accordance with ISA and these
TOR.
Reporting
The report on this audit should describe the purpose and the agreed-upon procedures of the
engagement in sufficient detail in order to enable the PSCO and IFAD to understand the nature
and extent of the procedures performed by the Auditor.

62
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Design completion report
Appendix 7: Financial Management and Disbursement Arrangements

Other terms (as necessary)

Information about the subject of the Audit

The table below will be completed by the PSCO and be attached as Annex 1 to the Terms of
Reference for use by the Auditor.
Information about the Subject of the Audit
Reference number and date of the agreement
Service agreement title
Country
Consultant
Legal basis for the agreement
Start date of the Agreement
End date of the Agreement
Maximum agreement value
Total amount of the invoice and invoice date
Total amount invoiced to IFAD to date
Total amount received to date by the service
provider from contracting authority
Contracting authority
IFAD
Auditor

IFAD Guidelines on Project Audit can be accessed at http://ifad.org/

63
 Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Design completion report
Appendix 7: Financial Management and Disbursement Arrangements
Attachment 2
Summary of Project Fiduciary Risk Assessment at Design8

Risk Initial Risk Proposed Mitigation Final Risk

Assessment Assessment
Inherent Risk
1. Transparency 3.1 The Philippines ranked no. 105 out of 176 countries a jump from 2.6 in M
International 2011, due to improved government services and cutting of red tape.
Corruption Need to constantly provide training, dialogue and workshops for
Perceptions government staff for strict adherence to internal controls and following
Index rules and regulations of the New Government Accounting System and
the RA 9184 Procurement Reform Act
2. Rural Sector 4.47 The Philippines has one of the highest scores in the Asia and Pacific L
Performance Division, showing particularly well in the area of Accountability,
Score Transparency and Corruption and rated at ... in 2012 as there is less
corruption in terms of fund disbursements in the rural areas. No
proposed mitigation.
Control Risks
3. Organization and M Reorganization of BFAR particularly the finance and administrative M
Staffing services should be implemented soon with DA providing BEFAR with
the necessary staff positions; a reassessment of staff capacity,
experience and qualifications should be undertaken when filling up the
positions.
4. Budgeting M Training needs to be provided on IFAD budget formats, process and M
analysis.
5. Funds flow and M While the New Government Accounting System is complete and being M
Disbursement used by BFAR and the LGUs, there is a need to orient and train the
Arrangements finance and administrative staff in BFAR, LGUs, NGOs and POs
receiving Project funds on the IFAD financial and administrative
(procurement) regulations, records, processes, and reporting.
6. Internal Controls M Training required for IFAD financial and administrative (procurement) M
policies and regulations.
7. Accounting L With the Government using the New Government Accounting System, L
Systems, there is a need for training on IFAD financial and administrative
Policies and policies, records and reporting especially for the NGOs and POs.
Procedures
8. Reporting and L Training is required on the IFAD reporting process, formats and L
Monitoring analysis.
9. Internal Audit H There is a need to establish an Internal Audit office in BFAR, manned H
with qualified and experienced staff
10. External Audit L Commission on Audit is the Philippine Government’s only Independent L
Auditor and audits all government offices and agencies in accordance
with the international audit standards
Project Fiduciary M Completion of the proposed BFAR reorganization is necessary, M
Risk at Design otherwise additional Project financed staff will be needed to handle
the financial management of the project.

Mission Staff’s Name: EDILBERTO C. ANGELES Date: 1stJuly 2013

8
This is a summary of the FMAQ in Working Paper 9.

64
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Design completion report
Appendix 8: Procurement

APPENDIX 8: PROCUREMENT
I. INTRODUCTION

1. The Philippine Government Republic Act 9184 or the Government Procurement Reformed
Act enacted by the Senate and House of Representative on 10th January 2003 is the act that
provides for the modernisation, standardisation and regulation of the government’s procurement
activities.

2. Article 1, Section 3 of the act provides that: All procurement of the national government, its
departments, bureaus, offices and agencies, including state universities and colleges,
government -owned and/or-controlled corporations, government financial institutions and local
government units, shall, in all cases, be governed by these principles:

 Transparency in the procurement process and in the implementation of procurement

contracts.
 Competitiveness by extending equal opportunity to enable private contracting parties who
are eligible and qualified to participate in public bidding.
 Streamlined procurement process that will uniformly apply to all government procurement.
The procurement process shall be simple and made adaptable to advances in modern
technology in order to ensure an effective and efficient method.
 System of accountability where both the public officials directly or indirectly involved in the
procurement process as well as in the implementation of procurement contracts and the
private parties that deal with government are, when warranted by circumstances,
investigated and held liable for their actions relative thereto.
 Public monitoring of the procurement process and the implementation of awarded
contracts with the end in view of guaranteeing that these contracts are awarded pursuant
to the provisions of this Act and its implementing rules and regulations, and that all these
contracts are performed strictly according to specifications.

3. In line with Section 75 of the Act, the Government Procurement Policy Board formulated
rules and regulations (known as the Implementing Rules and Regulation) for the proper
implementation of the provisions of the Act. The Implementing Rules and Regulation govern
and apply to the procurement of: (i) infrastructure projects; (ii) goods; and (iii) consulting
services, by any branch, agency, department, bureau, office, or instrumentality of the
Government, including government-owned and/or controlled corporations, government financial
institutions, state, universities and colleges, and LGUs.

4. All procurement will be through competitive public bidding as the standard method of
procurement. However for procurement of PHP 500,000 (USD 12,000) or less, the National
Government Agencies can procure goods and services through shopping or small value
procurement under certain circumstances and conditions. Such procurement may be through
alternative methods, which include the following: (i) limited source bidding; (ii) direct contracting;
(iii) repeat order; (iv) shopping; or (v) negotiated procurement.

5. RA 9184 and its Implementing Rules and Regulations have been harmonised with the
procurement procedures of foreign funding institutions such as the World Bank and Asian
Development Bank. The IFAD Procurement Guidelines however require International
Competitive Bidding (ICB) for procurement of more that USD 200,000 for goods; USD 1,000,000
for civil works; and USD 100,000 for consulting and other services. World Bank ICB
procurement procedures would be applied for procurement of any international bids.

II. PROJECT PROCUREMENT

6. Accordingly, the project will follow RA 9184 and its Implementing Rules and Regulations

65
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Design completion report
Appendix 8: Procurement

to the extent that they are consistent with IFAD’s Procurement Guidelines.

A. Procurement of Goods and Works

7. Procurement of Goods and Works. Each contract for goods and works estimated to
cost USD 15,000 or more will be procured through competitive bidding, based on the
implementing rules and regulation as established by RA 9184. For contracts for goods and
works to cost less than USD 15,000, the procurement may be undertaken in accordance with
the following methods and established implementing rules and regulations as prescribed by RA
9184 such as (i) limited source bidding; (ii) direct contracting; (iii) repeat order; (iv) shopping; or
(v) negotiated procurement.

8. Direct Contracting. Procurement valued USD 15,000 and above will be limited to the
following scenarios and subject to IFAD’s prior review and concurrence for each case:

 Where an extension to an existing contract for goods or works is required under 25% of
the existing contract in value.
 Where the equipment required is proprietary, there is only one source and no alternative
exists.
 Where there is a need to standardise upon existing equipment and to achieve
compatibility in terms of spare parts.
 In cases of emergency, where urgent delivery is required.

9. Procurement involving community participation. In accordance with the IFAD

Procurement Guidelines, procurement with community participation is not a distinct method of
procurement and it would be undertaken in accordance with procedures and processes to be
established in the Project Implementation Manual. The PCSO will ensure the following:

 Define the relationships, roles and responsibilities between the BFAR RPMO, LGU and
the community through participatory processes which include considerations and
application of environmental, gender and other social safeguards.
 Proper handover and ownership of assets to the community.
 Translate documents and records into English (the Philippine official language) as may be
required for purposes of audit and review.
 Provide appropriate procedures for regular monitoring and audit of community
procurement activities, including the retention of relevant records by BFAR PSCO, BFAR
RPMO and the LGU

B. Procurement of Services

10. The methods which are permitted for the procurement of consulting services and
services are the following:

 Quality and Cost-Based Selection.

 Selection under a Fixed Budget.
 Least-Cost Selection.
 Selection Based on Consultants’ Qualifications.
 Single-Source Selection.

11. Contracts for consultancy and services estimated to cost USD 15,000 equivalent or more
the procurement shall be undertaken through the following competitive selection methods:

a. Quality and Cost-Based Selection.

b. Selection under a Fixed Budget.

66
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Design completion report
Appendix 8: Procurement

c. Least-Cost Selection.
d. Selection Based on Consultants’ Qualifications

12. Consultancy and service contracts estimated to cost less than USD 15,000 equivalent
procurement may be undertaken through sole or single source selection.

13. Sole or single source selection for contracts estimated to cost USD 15,000 equivalent or
above will be limited to the following scenarios and subject to IFAD’s prior review and concurrence
for each case:

a. for tasks that are a natural continuation of previous work carried out by the consultant;
b. where rapid selection is essential (for example, in an emergency situation);
c. when only one entity is qualified or has the necessary experience for the assignment.

14. Individual consultants would be selected in accordance with the provision of RA 9184
and its Implementing Rules and Regulations. The details of the selection procedures would be
detailed and described in the Project Implementation Manual.

C. Review of Procurement Decisions

15. The award of any contract for goods and works estimated to cost more than
USD 250 000 and the award for consultancy and services estimated to cost more than USD
100,000 will be subject to prior review by IFAD. The following documents as applicable shall
submitted for IFAD prior review and concurrence:

Procurement of goods and civil works:

(i) Prequalification documents and shortlist when prequalification is undertaken;

(ii) Bid Documents for goods and civil works;
(iii) Evaluation Reports and Recommendations for Award; and
(iv) Draft contracts and contract amendments.

Procurement of consultancy services and other services:

(i) Prequalification documents and shortlist when prequalification is undertaken;

(ii) Request for Proposal (RFP);
(iii) Technical Evaluation Report;
(iv) Combined (technical and financial) evaluation report and the recommendation for
award; and
(v) Draft contracts and contract amendments.

D. Contracts and Contract Amendments

16. In the implementation of the Project, IFAD funds, loan and grant, will be used to finance
procurement of patrol boats, vehicles and equipment , infrastructure investments, fisheries and
livelihood materials and inputs, hire contract staff, procure consultancy services and service
providers for training and workshops. The Government Counterpart Funds will be used to
finance taxes and duties and honoraria for the government staff working for the project by way of
Executive Order issued by BFAR.

17. BFAR will implement the procurement activities of the project through the PSCO and
RPMOs supported by BFAR BAC, Finance and Administrative Services in line with the
Procurement Plan and following the Implementing Rules and Regulations of the Philippine
Procurement Law (RA 9184) to the extent that they are consistent with IFAD’s Procurement

67
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Design completion report
Appendix 8: Procurement

Guidelines. The Project’s APP for the first 18 months will be completed by the PSCO.
18. A Procurement Register will be maintained by the PSCO and RPMOs to monitor
procurement processes. Contract Payment Registers will also be maintained by the same
offices to monitor payments to contractors.
19. In order to mitigate against delays the Project will rationalise its procurement schedule
prioritising the purchase of, vehicles, motorcycles, and computers in the first year of
implementation. These items may be procured by the PSCO or the BFAR based uniformity in
specifications and the relative cost. Other items such as services, infrastructure and supplies
e.g. NGO, RPRSA, technical trainings, coastal and livelihood infrastructures, fisheries and
livelihood materials and equipment can be contracted out by the BFAR Regional Offices
(including ARMM) because the signing authority of BFAR Regional Directors has been
increased to PHP 10 million. Those LGUs in Region 5, 8 and 13where funds will be downloaded
by BFAR Regional Offices under the MOA to be executed between the LGU and BFAR,
procurement of CRM and livelihood infrastructures and supplies will be undertaken by the LGUs
in accordance with RA 9184.

20. Coastal rehabilitation and infrastructure support for livelihood projects will be undertaken
by the LGUs using Project funds. With the suspension of the National Government/Local
Government cost sharing policy and in the absence of any firm rules on LGU cost sharing, the
project financing proposals for infrastructure investments will be IFAD 80% and the government
including LGU contributions 20%.

21. The tables below provide a summary of the project’s proposed procurement.

Procurement Arrangements
(PHP Million)

68
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL) Design completion report
Design completion report
Appendix 8: Procurement

Procurement Accounts by Year

(PHP Million)

69
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 8: Procurement

70
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 9: Project Costs and Financing

APPENDIX 9: PROJECT COSTS AND FINANCING

1. The total Project costs estimate, including duties and taxes and provisions for physical and price
contingencies, are estimated at USD43.737 million (PHP1,857 million) spread over an implementation
period of five (5) years starting in 2016. A summary of the costs by category of expenditure is shown in the
table below. Working Paper 7 gives more details of how project costs were estimated and includes
additional summary cost tables and the detailed cost tables for each component.
Expenditure Account Project Cost Summary
2.
3.
4.
5.
6.

7. Project financing. The Project will be financed through a loan and a grant from IFAD, and
counterpart contributions from the national Government, LGUs and the communities. The IFAD loan,
estimated at USD29.956 million, will cover 68.8% of the total estimated Project cost, while the IFAD grant
of USD 0.693 million will cover 1.6%. The Government contribution will finance 12.8% of the total project
costs. Contributions from the LGUs and community beneficiaries together are estimated at 16.8% of the
overall cost of the Project. The table below gives a summary of the Project cost by category of expenditure
by financier.
8. The IFAD loan will finance the non-tax elements of all investment cost categories, except for the
percentages financed by the LGUs and beneficiaries. The IFAD loan will also finance the cost of
employing some of the contract staff, including the community mobilisers. The IFAD grant will finance
service providers to undertake the proposed policy studies and capacity development activities.
9. The Government will finance the duties and taxes related to the identifiable taxable expenditures
and the honorariums for the government personnel at national, regional and provincial levels involved in
project implementation. The government will also finance some of the contract staff positions and all
the recurrent operations and maintenance expenditures at the national, regional and provincial levels.
10. The LGUs and community members/beneficiaries are expected to provide counterpart resources in
line with their role in project implementation. The LGUs will finance 10% of the costs (excluding duties and
taxes) of the investments in civil works for CRM and livelihood development in line with the joint resolution
of the DA, DAR, DENR, and DILG related to NG:LGU cost sharing. Excluding duties and taxes the LGUs
will finance 10% of the investment costs for law enforcement (equipment etc.), 5% of the investment costs
for resource rehabilitation, and 10% the costs of the micro-enterprise equipment and materials. In
addition, the LGUs will finance 100% of the recurrent costs of operation and maintenance at the bay level
and honorariums for LGU staff. The communities will finance 10% of the costs of the micro-enterprise
equipment and materials and 5% of the costs of resource rehabilitation, (both less duties and taxes).
Community contributions will be in cash and/or in kind.

71
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 9: Project Costs and Financing

Expenditure Accounts by Financier

(USD ‘000)
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 10: Financial and Economic Analysis

APPENDIX 10: FINANCIAL AND ECONOMIC ANALYSIS

1. Financial analysis. The financial analysis focused on the financial viability of LGU CRM
investments and activities and well as possible livelihood enterprises that the fishing communities may
implement during the Project. The financial analysis for LGU CRM activities assessed the actual and
future management cost and potential revenues that an LGU can generate from CRM. The financial
viability of 13 potential livelihood enterprise models was assessed. These models include both fisheries-
related and non-fishery related activities deemed useful for providing both supplementary and alternative
sources of income while sustainably managing the fishery and coastal resources.
2. As a case study, the financial analysis assessed the cost of management and the revenues
generated from CRM-related activities for the LGU of Guian, Eastern Samar. The result shows a financial
loss in 2012. The cost of CRM intervention for the years 2014-2020 was estimated based on the LGU’s
existing multi-year CRM plan, but adjusted to include the cost of CRM intervention expected as a result of
the implementation of the Project. Potential revenues were calculated based on the LGU’s existing fishery
data and the LGUs Basic Municipal Fishery Ordinance. Based on the study, the potential net revenue of
the LGU ranges from PHP 0.96 – 4.1 Million depending on the effectiveness and efficiency of the
implementation of the LGUs Basic Fishery Ordinance.
3. The financial analysis for each of the livelihood models covers a period of six years. Investment
costs generally consist of: (i) equipment, work sheds, cage construction etc.; (ii) working capital required
for the initial production cycle; and (iii) contingencies. The projected revenues for each microenterprise
were based on the production volume for each year multiplied by the price of output at the point of sale.
The cost (i.e., investment, production/operation costs, and revenues) were based from available data for
livelihood and enterprise models from the Bureau of Fisheries and Aquaculture, the Department of
Agriculture, the Department of Trade and Industry and State Universities and Colleges as well as project
proposals submitted from the project sites. The without project scenario used to determine the impact of
the sample livelihood/enterprise model was based on the sectoral poverty incidence of 2009. The project
assumed that all investment and production cost as well as associated revenues, are incremental and
would not have occurred without the Project. Based on the incidence of poverty in 2009, fishing
households are the poorest basic sector group with a poverty incidence nationally of 44%. The 2009
Family Income and Expenditure Survey of the National Statistics Office shows that the bottom 30%
income class to which the fishing households belong have a negative annual net income. The average
annual household income in the proposed sites is PHP 38,879 with 8 sites having the highest average of
PHP 47,820 and the Region 5the lowest with PHP 26,588 way below the PHP 62,000 national average
income of the bottom 30% income class.
4. Table 1 presents the computed financial rates of return (FIRR) and benefit-cost ratio (BCR) of each
enterprise. All enterprises are viable using 6% discount rate as prescribe in Appendix 55 of the Manual of
1
Regulations for Banks by the Banko Sentral ng Pilipinas (BSP) .However, the menu of livelihood models
used does not represent all regions/bays/gulfs as each site may have different suitability for different
livelihood/ enterprise. These models are based on the list of proposed livelihood/enterprise proposed from
specific project sites that are deemed financially viable. Livelihood/ enterprise will be implemented based
on its potential and feasibility in specific sites.
Table 1: Summary of financial indicators for livelihood enterprise models – PHP
Ave. Gross Ave. Ave. Net
Initial Capital
Microenterprise Revenues Operating Income FIRR NPV BCR
(Php)
(Php/Yr) Cost (Php/Yr) (Php/Yr)
1 Seaweed Farming 82,568 212,365 145,638 39,905 60% 161,769 1.27
2 Mudcrab Fattening 47,395 266,673 236,006 27,267 42% 74,425 1.11
3 Abalone and Trochus Pe 290,850 444,658 277,983 131,275 48% 428,448 1.35
4 Aquasilviculture 194,852 735,846 614,172 96,294 50% 302,306 1.15
5 Siganid Cage Culture 249,871 430,040 249,922 143,388 64% 525,158 1.46
6 Bangus Pen Culture 155,031 495,023 372,434 109,671 59% 365,082 1.26
7 Mussel Culture 57,874 153,136 101,121 39,064 49% 137,653 1.32
8 Dried Salted Fish 69,687 756,870 712,296 40,526 51% 115,959 1.08
9 Smoke Fish 78,534 1,513,741 1,463,329 46,841 47% 128,230 1.06

5. Sensitivity analysis was carried out to determine the effect of changes in output and cost. The

1
Interest rate for five-year loan is based on the 5-year T-bond interest rate plus two percent.

73
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 10: Financial and Economic Analysis

sensitivity analysis reveals that the livelihood and enterprise models are more sensitive to changes in
output price compared to changes in cost.
6. Economic Analysis. The Project has an implementation period of seven years while economic life
of the project interventions is assumed to be 20 years. All costs were included in 2011 prices. The values
of coastal resources and the products from livelihood resources activities were valued at the border price
levels and were adjusted using the shadow exchange rate factor (SERF) of 1.2, while labour costs were
shadow priced at 0.60 to take account unemployment and underemployment. The values of the SERF and
shadow wage are those proscribed by NEDA.
7. The identified quantifiable benefits that are attributable to the Project are the following: (i)
Increased Municipal Marine Fishery Production refers to municipal marine fisheries production less
production from coral reefs and mangroves; (ii) Fishery values refer to the net values of sustainably
managed coral reef, mangrove and sea grass fisheries which include catch on the reef, mangrove and
sea grass areas as well as the value supported outside of these areas but dependent on it (e.g., through
spawning, aggregation); (iii) Local uses refer to the myriad of marketed and non-marketed uses from
coral reefs, mangroves and sea grass that are not associated with the commercial fishery; (iv)Erosion
control function refers to the ability of a given ecosystem to prevent coastal erosion or flooding; (v)
Global biodiversity values are values which often motivate foreign assistance to attempt to conserve
biodiversity; and (vi) Livelihood and microenterprise projects refer to the development of viable
livelihood and microenterprise activities as means of alternate income.
8. The Project is economically viable as shown by the two viability indicators, the economic rate of
return (EIRR) and net present value NPV. The Project analysis generated an EIRR of 27.68%, above the
prescribed hurdle rate of 15%. The computed NPV of the whole project was PHP 2,354.94million using
the 15% discount rate proscribed by NEDA. Table 2 shows the results of the analysis.
9. Sensitivity analysis was conducted to determine the effects of change in cost and benefit to the
economic viability of the project. Table 3 presents the results of the sensitivity analysis for the project.
10. Besides the quantifiable benefits already described, there are also potential non-quantifiable
benefits from the Project. The major non-quantifiable benefits will be: (i) stronger CRM Institutions; (ii)
better inter-LGU cooperation; (iii) improved coastal resource management; (iv) more effective POs; (v)
greater community welfare; and (vi) improved capacity of the national and local government staff in
coastal resource and fisheries management.
11. Working Paper 8 has the detailed financial and economic analysis.

74
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 10: Financial and Economic Analysis

Table 2: Economic rate of return and net present value calculations

Without Project With Project

Years Project Costs Net O&M Net Cash Flow
Cash Flow Cash Flow

1 621.84 166.53 7,350.49 7,350.49 (788.37)

2 516.29 167.36 7,205.00 7,314.21 (574.44)
3 346.98 168.30 7,062.40 7,302.78 (274.90)
4 178.71 168.72 6,922.62 7,306.23 36.17
5 110.78 168.72 6,785.62 7,302.14 237.02
6 - 171.91 6,651.33 7,328.46 505.22
7 - 171.91 6,519.71 7,330.46 638.84
8 - 171.91 6,390.70 7,326.76 764.16
9 - 171.91 6,264.24 7,330.45 894.31
10 - 171.91 6,140.29 7,344.75 1,032.55
11 - 171.91 6,018.80 7,386.44 1,195.74
12 - 171.91 5,899.72 7,444.74 1,373.11
13 - 171.91 5,783.00 7,519.19 1,564.28
14 - 171.91 5,668.59 7,594.38 1,753.88
15 - 171.91 5,556.46 7,670.32 1,941.96
16 - 171.91 5,446.54 7,769.26 2,150.81
17 - 171.91 5,338.80 7,885.52 2,374.81
18 - 171.91 5,233.20 8,003.53 2,598.42
19 - 171.91 5,129.70 8,123.30 2,821.70
20 - 171.91 5,028.24 8,244.88 3,044.73
Economic Internal Rate of Return (%) 27.68%
Economic Net Present Value at a Discount Rate of 15% (PhP million) 2,354.94

Table 3: Sensitivity analysis

Decrease in Decrease in
Benefit by Benefit by
Decrease in 10%, Decrease in 20%,
Economic Benefit by Increase in Increase in Benefit by Increase in Increase in
Indicator Base Value 10% Cost by 10% Cost by 10% 20% Cost by 20% Cost by 20%
EIRR 27.7% 25.5% 26.4% 23.6% 23.1% 23.9% 19.8%
NPV 2,354.94 1,881.58 2,223.29 1,643.72 1,408.22 1,879.21 932.49

75
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 11: Draft Project Implementation Manual

APPENDIX 11: DRAFT PROJECT IMPLEMENTATION MANUAL

A. Introduction
1. To ensure smooth start-up and implementation of the Project, BFAR (with consultancy assistance)
will prepare the Project Implementation Manual (PIM) which will be reviewed by IFAD, before the start of
PY1 and before any withdrawal applications can be submitted to IFAD. IFAD’s review of the Project
Implementation Manual (PIM) will be a pre-condition for disbursement. The guidelines in the PIM will be
consistent with the Government’s and IFAD policies, systems and procedures. Preparation of the PIM will
start following the project design completion mission, with the final modifications made following the
financing negotiations between IFAD and the Government. The PIM will be discussed during the start-up
workshops. The PIM should be simple, but sufficiently informative so that the users can easily follow the
procedures. The use of diagrams and flow charts will make the contents easier to understand.

2. A proposed outline is shown below which has been adapted from the PIM for an ongoing project,
namely the Rapid Food Production Enhancement Programme.

B. Table ofcontents

Acronyms

Introduction
A. Rationale
B. Objectives
C. Statement of policies
D. Logical framework
E. Social and environmental considerations

Projectmanagement and coordination

A. Organizationalstructure
B. Staffing arrangements
C. Administration and communication flow
D. Equipment provision
E. Planning and budgeting
F. Financialmanagement and disbursement
G. Procurement arrangements
H. Reportingprocedures
I. Monitoringandevaluation
J. Project reviews and supervision arrangements
K. Mid-Term and project completion reports
L. Handling of complaints

Coastal resources management

A. Coverageandtargets
B. Eligible Investments and selection criteria
C. Implementation roles and responsibilities
D. Mechanicsofimplementation and guidelines
E. Implementation schedule
F. Monitoring forms

Livelihood development
A. Coverageandtargets
B. Eligible investments and selection criteria
C. Implementation roles and responsibilities
D. Mechanicsofimplementation and guidelines
E. Implementation schedule
F. Monitoring forms

76
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 11: Draft Project Implementation Manual

Tables
Table 1: S u m m a r y o f project costs by category of expenditure by financier
Table 2: S u m m a r y o f project costs by component by financier
Table 3: IFAD loan and grant financing - categories of expenditure with financing percentages
Table 4: Procurement arrangements
Tables: D e t a i l e d project costs by year – current prices (COSTAB generated)

Figures
Figure 1: Project organization structure
Figure 2: Communicationflow
Figure 3: Flow of fundsandfinancialreports
Figure 4: Monitoringandevaluationsystemframework-resultsflow

Appendices
Appendix Administrative Order No. ..
Appendix Draft memoranda of agreement (BFAR/LGU)
Appendix Draft sub-project agreement (LGU/PO)

Annexes
Annex 1: List of eligible LGUs and coastal barangays
Annex 2: Process for preparing programmes of work for rural infrastructure investment
Annex 3: Execution oflocalminorcontract-procurementandimplementation
Annex 4: Standardmonthlyprogressreportguidelines
Annex 5: Pro-Formacontractagreement
Annex 6: Financial management form

77
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 12: Compliance with IFAD Policies

APPENDIX 12: COMPLIANCE WITH IFAD POLICIES

A. Compliance with IFAD policies
1. As described in the Main Report and the preceding Appendixes, the Project design is consistent
with key IFAD policies relating to targeting, gender, Indigenous Peoples, private sector participation and
rural financial services.

B. Environmental Screening and Scoping Note

Brief description of project and components
2. The Project will have three components namely: (i) Coastal Resource Management; (ii);
Livelihood Development; and (iii) Project Management and Coordination. Adaptation to climate change,
capacity building and gender mainstreaming will be an integral part of all the Project-financed activities in
the communities of the target bays.

3. The Project will adopt the ecosystem approach to CRM and include among its interventions,
activities that will protect both the aquatic and coastal zone habitats including mangroves, coral reefs and
sea grasses. The Project’s design adopts a bay-wide approach to the management of coastal resource
and municipal fisheries involving contiguous municipalities that need to work together to protect and
rehabilitate and sustainably manage the coastal and fisheries resources of the individual bays , with
support from BFAR and other relevant government agencies as part of the NCI. The details are included
in the Main Report and in Appendix 4.

Major site characteristics

4. Under the FishCORAL Project, 11 bays and gulfs were selected as Project sites located in 14
provinces of 4 regions and covering about 1,098 coastal barangays in 97 municipalities and 6 cities.
These are Region 5: Ragay Gulf (Bicol-side), Asid Gulf and Albay Gulf; Region 8: Matarinao Bay, Leyte
Gulf, Silago-Cabalian Bays, and Maqueda Bay; Region 13 (Caraga): Butuan Bay, and
Lianga/Hinatuan/Bislig Bays; and ARMM: Illana Bay and Sulu Sea. Working Papers 1 and 2 include
details of the resources of the bays/gulfs

Issues in natural resources management

5. The target groups experience the effect of over fishing which is common. According to the
available data the average fish catch has declined and is now 2-3 kg per person per trip (six hours) in lean
months and 8-10 kg per person per trip (six hours) in peak months. Related issues and concerns in the
target bays are intrusion of commercial vessels, dynamite fishing, use of sodium cyanide, compressor
fishing, use of fine mesh nets, degradation of coral reefs and mangroves, the latter due to unsustainable
practices of cutting trees, conversion of mangrove forests to fishponds or settlements, pollution, siltation
and erosion. These problems have reduced the productivity of the coastal resources and affect the
livelihood of households dependent on the municipal fisheries and living in the coastal barangays. Most of
these issues relate to: (i) the failure to enforce the existing regulations and manage the resources
sustainably; (ii) a lack of alternative sources of livelihoods to reduce the incidence of poverty among the
fishing communities; and (iii) inadequate technical assistance to develop the capacity of local communities
and government units to improve coastal resource use and management. Specific examples are
described in the following paragraphs.

6. The households living in the coastal zones are vulnerable to an increasing number of extreme
weather events e.g. typhoons, and an increase in sea water temperatures and a depletion of the oxygen
levels, which is resulting in declining fish populations. The latter is contributing to reduced catches of key
fish species and lower household incomes.

7. Region 5. Bicol has one of the highest risk environments in the country, with about 20 tropical
cyclones a year. Mayon and Bulusan volcanoes threaten residents in Albay and Sorsogon. The regional
development plan’s objective is to ‘achieve zero casualty and minimum damage to property during
emergencies and disasters and includes CRM strategies that the Project will be promoting e.g. mangrove
reforestation.

8. Region 8. The Project bays/gulfs face environmental risks including earthquakes, volcanic
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 12: Compliance with IFAD Policies

eruptions, tsunamis, liquefaction and landslides. One of the strategic development objectives of the region
is the promotion of an ecosystem-based management approaches, conservation efforts, and sustainable
environment to reduce climate change risks and vulnerability of natural ecosystems.

9. In Silago-Cabalian Bay of Southern Leyte, Region 8, coral reefs are endangered by the invasive
“Crown of Thorns”, a predator of live coral, and so destroying the bay’s fish spawning grounds and the fish
sanctuary. In Maqueda Bay, particularly in the Municipality of Jiabong, the mussel industry is in decline
because of heavy pollution, depletion of oxygen and increasing sea water temperature.

10. In Matarinao Bay, a seaweed farming area is seriously affected by heavy siltation due to
unregulated small-scale mining upstream of a river flowing into the bay. Seaweed farmers have
experienced damage to their enterprises incurring losses and discouraging them from continuing further
with this livelihood enterprise.

11. Region 13. The depletion of coastal and marine resources can be associated with siltation of
major river systems and coastal areas; mining of corals for landfill; blast fishing and other unsustainable
fishing practices; and slow but continued destruction of mangroves and lowland forests for agricultural
purposes, resettlement, tourism development, and firewood making. The Regional Development Plan
includes strategies to address these issues that are consistent with the Project proposals e.g.
establishment of fish sanctuaries, enforcement of fishery laws, aquaculture development, mangrove
rehabilitation and other CRM initiatives, investment in fish ports and processing facilities.

12. ARMM. Decades of logging and pollution pose a threat to the natural resources of the ARMM
region, yet the fishing industry with rich marine resources – offers an excellent opportunity for improving
the economic wellbeing of the people. The seaweed culture in Illana Bay is subject to
strong winds from March to September each year affecting production during those months. The region is
currently preparing their Two-Year Regional Development Plan.

Potential environmental impact and risks

13. Rural infrastructure support - Rural infrastructure required by this Project will primarily be to
support sustainable fisheries and enterprise development for members of the fishing communities in the
target bays as well improving the management of the coastal resources. It will also improve the
coordination capability of BFAR, the participating LGUs and the coastal communities by providing the
necessary facilities and equipment to effectively and efficiently safeguard the fragile resources of the
target bays/gulfs.

14. The rural infrastructure proposed is basically small-scale and would not have any substantial
impact on the environment. However, minor impacts during construction are expected and these could
readily be mitigated through proper implementation procedures. Enumerated below are potential issues
and impacts for each type of rural infrastructure with the corresponding recommended mitigation
measures.

15. Building structures: (e.g. Watch tower, processing building and community-based multi-species
hatchery). The environmental and social impacts of building these structures may include entry of an
external workforce that may trigger interpersonal conflicts and possible illegal or unauthorised sourcing of
construction materials from private property or prohibited areas during construction. It is therefore
necessary to give a preference to hiring qualified members of the local community, including women and
IP (if any), and to limit the employment of external workers to highly specialised skills unavailable locally
and ensure these workers are briefed as to what is proper behaviour while on site. Procurement of
construction materials will be from sources with valid environmental clearances, i.e. for sand and gravel,
from those with DENR- Mines and Geosciences Bureau/Environmental Management Bureau permits; for
timber resources, from those with valid DENR- Forest Management Bureau/Environmental Management
Bureau permit. The use of mangrove and coral as building materials will be strictly prohibited and
monitored and is included on the Project’s negative list. Buildings may generate garbage and this can be
mitigated with the provision of rubbish bins for proper segregation and disposal of biodegradables and
non-biodegradable materials and by assigning janitors when the building is operational.

16. Livelihood support facilities: (e.g. solar dryer on stilts with storage area, fish cages, fish dryers,
and eco-tourism boardwalk). The majority of the materials necessary for these facilities would be
indigenous to the locality such as bamboo and hardwood timbers from local suppliers. However, since
mangroves are also ideal for this purpose and available in coastal areas, a possible adverse impact would

79
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 12: Compliance with IFAD Policies

be the illegal sourcing of these materials from areas with a substantial area of mangroves. It is therefore
imperative that the barangay officials and the community members keep a close watch for illegal sourcing
of these construction materials. Opening up mangrove areas by constructing eco-tourism boardwalks will
also expose the area to possible resource exploitation with the easy access provided. Constant monitoring
of illegal activities will help in preventing this from happening.

17. Access infrastructure: (e.g. fish landing facilities - jetty or timber type, and access road
improvements).The biggest potential adverse environmental impact for these types of facilities during
construction is the use of coral as a building material. It must be stated beforehand that using dead coral
for construction is strictly prohibited by law as is the use of mangroves for timber. Access road
rehabilitation will also possibly cause obstruction to traffic, expose the children to traffic accidents, and
increase the amount of suspended dust particulates causing air pollution. However, these impacts are
temporary in nature and can be readily mitigated through proper implementation procedures such as
using traffic enforcers and regular wetting of dusty roads especially on sunny days.

18. Delineation markers and artificial coral reefs may pose a danger to those diving to observe the
fish, if they get tangled up with the nylon cords and concrete blocks (supplementary artificial coral
reefs).Warning signs need to be installed at strategic places above and below the water surface.

19. To mitigate the impact of rising sea levels and violent storms, the location of rural infrastructure
sub-projects will avoid areas prone to rough seas and be constructed in areas beyond the reach of high
tides. Structural members of each sub-project will be made of reinforced concrete and designed to
withstand the latest observed maximum wind velocities during tropical storms. For sea-based structures
like fish landing facilities, careful selection of sites will ensure that these are the least affected areas by
rough seas and the structures will have a freeboard allowance of at least 1.00 metre above the highest
observed sea level.

20. Mitigation measures. Given these potential adverse environmental impacts and to safeguard the
interest of the community and visitors alike, procedures for including mitigating measures will be
established during construction and subsequent operation of the completed facilities. The Project will use
recommended safeguards for each sub-project contract and incorporate construction Best Management
Practices guidance in the design of each type of rural infrastructure financed by the Project. Project will
strictly comply with ECC/CNC in its implementing guidelines. The CNC for the project has been issued by
the DENR-EMB.As advised by EMB, ECC for sub-projects will be issued by the concerned DENR regional
offices.

21. Impact of mining operations on marine based farming. As a rule, the fishing communities are
advised not to engage in marine based cultivation or farming activities, e.g. seaweed farming or fish cage
cultivation, where mining operations have a negative environmental impact.

Potential social impact and risks

22. The Project will finance coastal resource management and livelihood development proposals that
have been proposed by the communities and POs and included in municipal/city development plans. One
potential risk is that some individuals may become over involved e.g. as a leader of the PO, member of
the FARMC, a FLET volunteer and a Barangay Official. A careful matching of roles, interests, needs, and
skills is necessary and will be more sustainable in the long run than an overconcentration of the same
people in multiple positions.

23. In terms of site selection the following considerations will be taken into account: (i) the
infrastructure would not obstruct any navigational routes; (ii) it complies with any zoning ordinances; (iii)
does not disturb any fishing grounds; (iv) is not located in an IP domain (unless operated by IPs); (v) is not
located in a MPA or FS or would adversely affect a MPA or FS by affecting the water flows; and (vi) the
fish cages would not be located on the coral reef or seagrass beds, while any loose anchors cannot
damage the coral reef or seagrass beds. In terms of management the use of fresh fish as a feed stuff
must not compete with the use of fish for human consumption or adversely impact on the ecosystem (e.g.
unconsumed fish), while the over use of artificial feeds would be avoided to prevent an adverse impact on
water quality.

24. To address the issue of overfishing and law enforcement issues, the Project will support LGUs to:
(i) develop their capacity to manage the municipal fisheries, including the registration of municipal
fishermen, boats and gear; (ii) raise awareness among the local communities concerning the issues of

80
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 12: Compliance with IFAD Policies

overfishing and environmental issues e.g. impact of an increase in extreme weather events; and (iii)
educate the municipal prosecutors and judges in fisheries and environmental law. In addition, the Project
will develop the capacity of the FLETs and include any pre-existing fisheries management systems as part
of the approach to the management of the municipal fisheries. The Project will also assist BFAR to work
with the civilian law enforcement agencies to implement the fisheries law. Finally, the Project will support
the monitoring by BFAR of sea temperatures and acidification, including the provision of laboratory
equipment for BFAR in ARMM, as an addition to the regular BFAR monitoring that focuses on red tides
and algal blooms. It was agreed with BFAR Central Office that when other three regions require support to
their laboratories, BFAR Central Office would provide its support from the government regular budget. The
project will link this monitoring to the Early Warning System (Nationwide Operational Assessment of
Hazards) for disaster risk reduction, introduced earlier in 2013 by the Department of Science and
Technology.

Environmental category
25. Under the Philippine Environmental Impact Statement System, the Project is classified both as
Category “C” and Category “D” for the following reasons:

 Category “C” since the Project is intended to directly enhance the quality of the environment or
address existing environmental problems in coastal areas; and
 Category “D” since the rural infrastructure components are small-scale and do not fall under
other categories i.e. Category “A” are Environmentally Critical Projects –with significant potential
to cause negative environmental impact and Category “B” are not environmentally critical in
nature, but which may cause negative environmental impacts because they are located in
Environmentally Critical Areas, and unlikely to cause adverse environmental impacts.

26. Given this classification, no further data collection or assessment is necessary. Category “C”
projects are required to submit Project Description for issuance of Certificate of Non-Coverage and a
Category “D” project is considered to be outside the purview of the Philippine Environmental Impact
Statement System, and will be issued Certificate of Non-Coverage upon request by BFAR. However,
DENR-EMB may require such projects to provide some additional environmental safeguards as it may
deem necessary.

27. The Project’s emphasis will be on capacity building of poor coastal communities and on improving
their livelihoods and incomes by improving product quality and market links. Neither of these directly
impinges upon the environment. The Project’s awareness raising activities will increase community
consciousness of the need to follow sustainable production practices.

28. Finally, avoiding interventions to increase fish capture, while advocating fish culture and other
marine related livelihood activities will hopefully reduce the pressure on the fisheries resources and allow
fish capture volumes to increase in the near future. However, more direct efforts to reduce the fishing
effort may be necessary to avoid a collapse of some fish stocks.

Environmental and social safeguard policies

29. Environmental and social safeguard policies are an integral part of the Project’s overall design.
Selection criteria that ensure full involvement of women and IPs and protecting the environment from the
adverse effects of construction and operation and maintenance of completed rural infrastructure facilities
will be established as the basis for Project financing. The design of rural infrastructure sub-projects to
support both CRM and livelihood activities will consider the effects of extreme climate events and ensure
that climate proofing measures are in place (see above).

30. Each type of proposed infrastructure sub-project will incorporate an Environmental Impact
Assessment and Management and Monitoring Plan to ensure that any potential adverse impact, although
small and temporary in nature will be addressed and mitigated appropriately and monitored accordingly.
The Environmental Impact Assessment and Management and Monitoring Plan will include a forecast of
potential impacts, when and what will possibly happen through all stages from pre-construction,
construction, to operation and maintenance, what are the recommended mitigating measures, who will be
responsible for complying with the measures, and who will be monitoring compliance with the plan.

31. Sustainability of completed rural infrastructure facilities will be ensured through the establishments
of Operation and Maintenance (O&M) Committees and Associations with the full involvement of the
barangay officials. These organizations will be trained and will be involved from the identification stage

81
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 12: Compliance with IFAD Policies

until completion to build up a sense of ownership. Local ordinances for proper use of facilities with
sanctions for erring users will be legislated and enforced accordingly.

32. During the community consultations, a significant number of women from the communities
attended and stated that their fishermen-spouses need to focus on improving their fishing activities, while
the women require assistance with fish processing and trading and in managing the POs. It will be
important for the Project to ensure that women participate in these POs as members and as leaders, but
not just a token participation, but through a significant involvement e.g. as 40-50% of both the
membership and leaders.

33. It will be important to refer to the Magna Carta for Women, ARMM GAD Code, Magna Carta for
the fishermen and the Fatwa for the Coastal Resource Use in the ARMM for guidance on the involvement
of men and women in the Muslim fishing communities.

Environmental monitoring
34. The Project will adopt a community-based approach to implementation, including aspects of
participatory monitoring. Environmental protection and social safeguard monitoring will be part of the
Project’s M&E system. Capacity building interventions will be provided for organized O&M committees,
associations, and organizations including barangay officials for each type of rural infrastructure
interventions financed under the Project (Working Paper 4).

35. Gender-sensitive monitoring and evaluation needs to be adopted to ensure that measures to
address poverty and increase incomes include data on the environment, and the effects and benefits to
both women and men. The IFAD Gender Policy and the NEDA’s Harmonized GAD Guidelines will be an
important input in designing the M&E system.

Consultations with beneficiaries

36. The IFAD Design Mission conducted beneficiary consultations in eight bays in 10 provinces in five
th st
regions from 17 -31 October, 2012 and the mission, divided into two teams, and visited selected
communities (see table below).The purpose was to validate the Project Concept Paper prepared
previously by BFAR and to gather first-hand information on the current issues and concerns that beset the
target sample bays/gulfs to serve as inputs to the initial Project design, and inspect the proposed Project
areas.

37. Consultations were held with representatives from the BFAR Regional and Provincial Offices and
the municipal LGUs represented by the MPDCs and the MAOs, representatives from the FARMC, team
members of the FLET and some barangay officials. A few other members of the community also joined
the consultations. The participants were a mix of fishing households, other community members, NGOs
and LGU representatives. About 40% were women and 60% men with 15 to 60 attending each
consultation. Separate discussions were also held with the women’s groups, the MAOs and MPDCs.

38. Depending on those present, the consultations revolved around current livelihood activities,
existing issues and problems, suggestions and recommendations for future development, validation of
data and data collection, possible Project roles, gender issues and suggestions from community women.
For the rural infrastructure, a site inspection to look at their pressing infrastructure needs was also
conducted.
Region Province Date Participants
rd
IV-B • Quezon, Palawan 23 October 2012 20 (women); 30 (men)
V • Calabanga, Camarines Sur 26th October 2012 30 (women); 30 (men)
th
• Casiguran, Sorsogon 27 October 2012 15 (women); 20 (men)
VIII • Hernani, Eastern Samar 23rd October 2012 9 (women); 21 (men)
• Hinunangan,Southern Leyte th
24 October 2012 12 (women): 28 (men)
XIII • Cabadbaran City, Agusan del Norte 18th October2012 8 (women); 20 (men)
th
• San Agustin, Surigao del Sur 19 October 2012 13 (women); 30 (men)
th
ARMM • Kapatagan, Lanao del Sur 29 October 2012 15 Muslim women only
Total 8 consultations 122 (women); 179 (men)

39. These consultations exclude those undertaken during the preparation of the BFAR concept note.

82
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 12: Compliance with IFAD Policies

References
1. Procedural Manual for DENR DAO 2003-30
2. Magna Carta for Women
3. ARMM GAD Code
4. Fatwa for Resource Use in Region ARMM
5. IFAD Gender Policy
6. NEDA’s Harmonized GAD Guidelines
7. Region5, NEDA Regional Development Plan (2011-2016)
8. Region8, NEDA Regional Plan (2011-2916)
9. Region13, NEDA Regional Development Plan (2011-2016)
10. Striking the Balance: Ownership and Accountability in Social and Environmental Safeguards,
Gaia Larsen and Athena Ballesteros, World Resources Institute, April, 2013
11. World Bank Safeguard Policies
12. FAO and IFAD Environmental Safeguards.
Targeting and Gender
Targeting checklist for project design
Targeting Checklist Design
1. Does the main target group - those expected to benefit most- The design targets the fisher folk and the
correspond to IFAD’s target group as defined by the Targeting women and men fishers in coastal
Policy (poorer households and food insecure)? communities.

2. Have target sub-groups been identified and described according to Sub-groups have been identified also such as
their different socio-economic characteristics, assets and women-headed households, out-of-school and
livelihoods - with attention to gender and youth differences? the indigenous peoples in coastal
(matrix on target group characteristics completed?) communities. The matrix of sub-groups has
been completed also.
3. Is evidence provided of interest in and likely uptake of the The sub-projects that have been incorporated
proposed activities by the identified target sub-groups? What is the have been generated from the coastal
evidence? (matrix on analysis of project components and activities communities and the poor fisher organizations
by principal beneficiary groups completed?) in consultation with the poor women and men
fishers in the coastal communities. These were
confirmed and validated during the
consultations with the fisher folk during the
appraisal and design missions conducted. The
matrix of components and analysis have been
discussed and completed also in the various
working papers.
4. Does the design document describe a feasible and operational
targeting strategy in line with the Targeting Policy, involving some
or all of the following measures and methods:
4.1 Geographic targeting – based on poverty data or proxy Geographic targeting conducted based on
indicators to identify, for area-based projects or programmes, poverty data of the proposed bay/gulf sites
geographic areas (and within these, communities) with high with high concentration of poor households
concentrations of poor people where poverty indices were collected.

4.2 Direct targeting - when services or resources are to be Direct targeting has been incorporated in terms
channelled to specific individuals or households of the poor women-headed households, out-of-
school youth and indigenous peoples living in
coastal communities.
4.3 Self targeting – when goods and services respond to the priority Self-targeting has been incorporated in terms
needs, resource endowments and livelihood strategies of target of the fisher folk organizations who comply to
groups the eligibility criteria and compliance to the
requirements for eligibility
4.4 Empowering measures - including information and The design calls for a 40% participation rate of
communication, focused capacity- and confidence-building women as members and leaders of the fisher
measures, organisational support, in order to empower and folk organizations. Strategies for the
encourage the more active participation and inclusion in strengthening of fisher folk organizations have
planning and decision making of people who traditionally have been incorporated likewise. Likewise their
less voice and power participation in decision-making bodies has
been encouraged for greater participation in
planning and implementation.

83
 Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 12: Compliance with IFAD Policies

4.5 Enabling measures –to strengthen stakeholders’ and partners’ These measures were also incorporated to
attitude and commitment to poverty targeting, gender equality ensure targeting of poor people (women and
and women’s empowerment, including policy dialogue, men). Strategies for women empowerment and
awareness-raising and capacity-building pro-active gender mainstreaming have been
incorporated likewise. Policy-related actions
have also been included.
4.6 Attention to procedural measures - that could militate against Measures have been incorporated that the
participation by the intended target groups target groups who have registered as fishers
are prioritized and strongly considered for
project assistance. The presence of their
registration certificates demonstrate their
interest in participating in this project.
4.7 Operational measures - appropriate project/programme Management arrangements, staffing and
management arrangements, staffing, selection of selection have been clarified. Partners and
implementation partners and service providers service providers will have to be procured
following procurement guidelines of the IFAD
and the Philippine Government and
transparency in procurement has been
encouraged.
5. Monitoring targeting performance. Does the design document The monitoring of targeting performance have
specify that targeting performance will be monitored using been likewise incorporated using participatory
participatory M&E, and also be assessed at mid-term review? m&e and assessed at mid-term review. Sex
Does the M&E framework allow for the collection/analysis of sex- disaggregation will also be collected and
disaggregated data and are there gender-sensitive indicators gender sensitive indicators have been included
against which to monitor/evaluate outputs, outcomes and to be monitored/evaluated in terms of outputs,
impacts? outcomes and impacts.

84
 Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 12: Compliance with IFAD Policies

Gender checklist for project design

 Strengthen women’s decision-making role in the
household and community, and their representation
in membership and leadership of local institutions;
1. The project design report describes the key
elements for operationalizing the gender strategy,
with respect to the relevant project components.
2. The design document describes - and the project
implements - operational measures to ensure
gender- equitable participation in, and benefit from,
project activities. These will generally include:
2.1 Allocating adequate human and financial resources Allocation has been incorporated to implement the gender
to implement the gender strategy strategy
2.2 Ensuring and supporting women’s active Women’s active participation has been targeted where 40%
participation in project-related activities, decision- participation rate of women as members and as leaders have
making bodies and committees, including setting been incorporated.
specific targets for participation
2.3 Ensuring that project/programme management Program management, staff and partners have been ensure
arrangements (composition of the project that attention to gender consideration is promoted; gender
management unit/programme coordination unit, balance recruitment of staff and partners to be ensured that
project terms of reference for staff and implementing these are gender-aware and supportive at procurement
partners, etc.) reflect attention to gender equality stages to ensure that those procured or tapped for
and women’s empowerment concerns collaboration are gender-aware and supportive.
2.4 Ensuring direct project/programme outreach to Staff recruitment is to be gender-balanced and women field
women (for example through appropriate numbers staff is encouraged. In a review of the gender of current
and qualification of field staff), especially where extension workers, there was gender balance.
women’s mobility is limited
2.5 Identifying opportunities to support strategic Partners have been identified and the project is encouraged
partnerships with government and others to expand these partnerships. Government gender-sensitive
development organizations for networking and policy structures and gender focal persons are also to be mobilized
dialogue and the project to become an active member of the FAD-
Philippine Gender Network. Gender Focal Person of the
project has also to be identified.
3. The project’s logical framework, M&E, MIS and The logical framework of the project will collect sex
learning systems specify in design – and project disaggregated data and gender-relevant information and
M&E unit collects, analyses and interprets sex- and other specific indicators on gender equality and women’s
age-disaggregated performance and impact data, empowerment.
including specific indicators on gender equality and
women’s empowerment.

85
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 13: Contents of Project Life File

APPENDIX 13: CONTENTS OF THE PROJECT LIFE FILE

A. Documents
1. The following project design related documents are available in the Project Life File:
 Concept note, September 2012.

th
Aide-mémoire of the project design mission, 6 November 2012.

st
Aide-mémoire of the project design completion mission, 1 July 2013.
 Revised draft project design report (including 17Appendixes).
 Working Papers 1-8 prepared by the project design mission, have been used to help prepare
the project proposals described in the project design report and the appendixes. These
working papers include much background material but more details than is possible to
include in the appendixes where there the page numbers are restricted. Not all the proposal
included in the W orking Papers has been included in the final Project design.
 Working Paper 1: Poverty, targeting and gender mainstreaming.
 Working Paper 2: Coastal resource management.
 Working Paper 3: Livelihood development.
 Working Paper 4: Rural infrastructure.
 Working Paper 5: Institutions and implementation arrangements.
 Working Paper 6: Monitoring and evaluation, learning and knowledge management.
 Working Paper 7: Project costs and financing.
 Working Paper 8: Financial and economic analysis.
 Working Paper 9: Financial management assessment.
2. Other relevant documents are:
 IFAD Country Strategic Opportunities Programme (COSOP) for the Republic of the
Philippines 2010-2014

86
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 14: Timetable for the IFAD Financing

APPENDIX 14: TIMETABLE FOR THE IFAD FINANCING

Task/Activity Responsible Agency Outputs Actual
Project Design Review and Approval Process
Wrap-up meeting for BFAR (Central and Aide-Mémoire agreed by all parties, with 1st July 2013 in
Design Completion Regions V, VIII, XIII three Annexes: Action Plan and Timetable Manila
Mission and ARMM), DA, for IFAD Financing; a Preliminary List of
NEDA, DOF and IFAD Assurances for Negotiations; and a Draft
mission Letter to the Borrower
Confirmation of IFAD and BFAR in Letters of confirmation of agreement to the By 31st July
2
agreement to the Aide- consultation with Aide-Mémoire exchanged between the 2013
Mémoire NEDA, DBM Government and IFAD
Preparation of the Project Design Revised Project Design Report submitted Early August
Revised Project Design Completion Mission to IFAD 2013
Report
Distribute Revised Project IFAD and BFAR Revised Project Design Report submitted Early
Design Report to government for the DA clearing house September
review and to prepare the documents for 2013
the NEDA/ICC review
Review of Revised Project DA - EXCOM and DA- Revised Project Design Report complies September
Design Report TECHCOM with DA readiness criteria of the DA 2013
clearing house prior to NEDA/ICC
submission
rd
Quality Assurance Review IFAD Any substantive changes agreed during 23 September
th
the Review will be incorporated into the to 5 October
Project Design Report with the changes 2013
communicated to the government
Prepare documents BFAR Project Submission of draft Project Design Report Mid- October
needed for the NEDA/ICC Management Office plus documents required by NEDA to 2013
review with oversight NEDA
assistance of an IFAD
consultant
Recruit the Project BFAR and IFAD Project Coordinator recruited with TOR October 2013
Coordinator as PSCO based on Appendix 5.
head
Carry out the RIMS + BFAR and IFAD RIMS baseline survey undertaken by a February 2014
baseline survey in the service provider in all target bays on a
target bays sample basis. IFAD will provide the TOR
th
(by 15 July)
Government review NEDA/ICC Government review of the Revised Project March 2014 –
process Design Report and documents required by May 2015
NEDA and prepared by BFAR

2
If no confirmation received by the deadline, it means that the government or IFAD agrees to the contents of the signed
aide memoire.

87
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 14: Timetable for the IFAD Financing

Task/Activity Responsible Agency Outputs Schedule

Project Design Review and Approval Process
Preparation of Report and IFAD Report and Recommendation of the May 2015
Recommendation of the President submitted to IFAD Executive
President Board members
Government approval NEDA Board and DOF Project design approved by May 2015
process Government and proposed financing
by IFAD
Submit draft Project IFAD Draft Project Financing Agreement January 2015
Financing Agreement and invitation to negotiations sent to
the Government for review and
preparation for Negotiations.
Negotiations in Manila or Government and IFAD Negotiated Text of Project Financing June 2015
Rome Agreement and Minutes of
Negotiations initialled and signed
Finalise Project Design IFAD Project Design Report finalised based June 2015
Report to incorporate on the results of the financing
changes agreed during the negotiations
negotiations
Submission of Duly Cleared IFAD Translation and Dispatch of Report June 2015
President’s Report to IFAD
Secretary
Present the project to the IFAD Approval by the EB of IFAD, and DOF, September
Executive Board of IFAD for BFAR, NEDA and DBM informed of 2015
approval the decision
Signing of Project Financing DOF and IFAD Project Financing Agreement September
Agreement countersigned by President of IFAD
and authorised representative of the
Borrower
Preparation and Approval of the Project Implementation Manual (PIM)
Prepare Draft Project BFAR Project A draft of the Manual based on the February 2015
Implementation Manual Management Office with outline in the Draft Project Design
the assistance of a Report, including formats for the
BFAR recruited Memoranda of Agreement (MOA) and
consultant submitted to IFAD for review and
comment
Review of the draft PIM IFAD PIM reviewed with comments from May 2015
IFAD submitted to BFAR
Finalisation of the PIM BFAR Final version of the PIM prepared with May 2015
IFAD comments reflected in the final
PIM
Conditions Precedent to Withdrawals
Fulfilling Conditions BFAR, DOF/BTr, DBM, All Conditions precedent to withdrawal
precedent to withdrawal of IFAD as provided in the revised Project
the IFAD Financing, as Design Report and the Project
provided in the Project Financing Agreement met and
Financing Agreement evidence submitted to IFAD and
accepted
Submit the PY1 AWPB and BFAR PY1 AWPB and APP submitted to
APP to IFAD for review and IFAD for review and comment
comment
Start Up Workshop IFAD, BFAR Clear understanding of project
strategy, approaches, activities,
management structure, and
implementation arrangements,
planning and budgeting procedures,
financial management, procurement
and loan disbursement procedures,
reporting and M&E/KM (including the
RIMS). Project implementation
strategy and schedule agreed.

88
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 14: Timetable for the IFAD Financing

Task/Activity Responsible Agency Outputs Schedule

Project Management Staffing and Systems

Establish the Project BFAR The PSC will have representatives
Steering Committee (PSC) from all national agencies involved in
project implementation and chaired by
DA Secretary or Undersecretary for
Fisheries, with BFAR Director or
Assistant Director as Co-Chair
Establish the Project support BFAR Office established under the BFAR
and Coordination Office Project Management Office with staff
(PSCO) designated and contracted by BFAR
(including a full-time contract Project
Coordinator), and TA as indicated in
the Project Design Report. Designated
staff to stay in position until the Mid-
Term Review
Establish the Regional BFAR in Regions V, VIII, Committees established with a
Coordination and Support XIII and ARMM membership from all regional agencies
Committees with a role in project implementation,
and including beneficiary
representatives. Chaired by the BFAR
Regional Director, but in ARMM co-
chaired by DAF ARMM Secretary and
BFAR Regional Director
Establish the Regional BFAR in Regions V, VIII, Offices established under the BFAR
Project Management Offices XIII and ARMM Regional Directors with staff
(RPMOs) designated and contracted by BFAR
as indicated in the Project Design
Report. Designated staff to stay in
position until the Mid-Term Review
Establish the Municipal/City LGUs with PY1 Sub- Offices headed by the Municipal/City
Project Management Offices Projects in Regions, V, Agriculturalist with the Fisheries
(MPMOs/CPMOs) VIII and XIII Technicians and community
facilitators; assisted by the
municipal/city natural resources officer
and other LGU departments (e.g.
planning and coordination,
engineering, finance and the Bids and
Awards Committee)
Establish the Municipal Provinces with PY1 Sub- Offices established in each BFAR
Project Implementing Units Projects in ARMM Provincial Office under the Provincial
(MPIUs) Fisheries Officer and staffed by a
BFAR ARMM municipal fisheries
coordinators and community
facilitators
Setting up the financial BFAR Sound financial management system,
management system including fund flow procedures,
disbursements, internal controls,
accounting procedures and physical
and financial reporting procedures
established at central, regional,
municipal levels
Setting up the systems for BFAR with IFAD An effective and functioning system of
M&E, reporting and impact assistance M&E, physical and financial reporting
assessment and impact assessment (including the
RIMS) set up with clear procedures
and formats; training in the M&E
operations provided to the concerned
staff

89
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 14: Timetable for the IFAD Financing

Task/Activity Responsible Agency Outputs Schedule

Procurement of Goods, Services and Civil Works
Prepare the assessment of BFAR PSCO, RPMOs Government approves the
existing vehicle inventories and DBM, procurement of the proposed vehicles
for approval and and final specifications prepared and
specifications for vehicles approved at regional and central levels
and major purchases of for review by IFAD
office equipment

Prepare bidding documents BFAR PSCO and All bidding documents ready for
for major PY1 procurement RPMOs tendering following the procurement
of goods and services procedures in the Project Financing
Agreement and submitted to IFAD for
prior review and approval
Advertising, tendering of BFAR PSCO and Procurement process is completed up
procurement of goods, RPMOs to the stage of completion of
services and negotiation of negotiation of contracts
contracts

Award of negotiated BFAR PSCO and Contracts awarded After Loan

contracts RPMOs Effectiveness

Other Pre-project Activities

Prepare a proposal for BFAR A proposal for the retroactive financing
retroactive financing of key from the IFAD loan for key activities
project start-up activities e.g. preparation and finalisation of the
PIM, preparation of bidding documents
etc. for procurement in PY1,
establishment of the PSCO, RPMOs
etc. submitted to IFAD for inclusion in
the Project Design Report
Ensure that the LGUs with BFAR Regions All LGUs with sub-projects starting in
PY1 sub-projects include PY1 have included their counterpart
their counterpart contribution contributions in the their Annual
in the their Annual Investment Programme for 2016
Investment Programme for
2016

90
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 15: Good Governance Framework

APPENDIX 15: GOOD GOVERNANCE FRAMEWORK

1. In all instances, the Project Financing Agreements will be the overriding legal document.
The Government procurement policies, procedures and documentary requirements under
Philippine Republic Act 9184 will be applicable to the extent there is no discrepancy with the
Financing Agreements or the Procurement Guidelines of the IFAD. In the event there is a
discrepancy, then the Financing Agreements and the Procurement Guidelines of the IFAD
will apply.

91
 Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 15: Good Governance Framework

No. Issues/Risks Action to Mitigate Risks/ Responsible Entity Targets/Frequency

1 Risks of corruption BFAR as the lead agency will use its BAC at the Centre and in the four Regional Offices (Centre and Throughout the duration of the Project for
and fraud Regions, 5, 8, 13 and ARMM), and likewise in the implementing LGUs, in Regions 5, 8 and 13, where funds every procurement which requires
• Collusion during are provided as per MOAs between the BFAR RPMO and LGU to ensure that the procurement process is submission to the BAC for review,
bidding process. in accordance with the Government’s Standard Operating Procedure and Procurement Guidelines of RA evaluation and award.
• Biased bid 9184. The BAC in coordination with the BFAR PSCO will, in all stages of the procurement process, invite, in
evaluation. addition to the representative of the COA, at least two observers to sit in on its proceedings, one from a
• Suppliers and recognised private group in a sector or discipline relevant to the procurement at hand, and the other from a
contractors offering NGO: provided, however, that they do not have any direct or indirect interest in the contract to be bid. The
incentives for observers will ensure the propriety of the procurement process including documentation and will report to
favourable the BFAR PSCO any deviation and/or irregularities from procurement rules and regulations. Procurement
treatment. policy and procedures will be included in the PIM.

1b Ensure transparent Procurement financed by Project funds will be undertaken by the PSCO, RPMOs and as applicable LGUs Throughout the duration of the Project.
and efficient within the authority limits of officials of each office.
procurement. For procurement funded by Project funds, each office BAC will prepare bidding documents, advertise, call Based on Procurement Plan, PSCO will
and evaluate bids and approve the award. request NOL from IFAD for procurement of
No Objection Letter (NOL) will be obtained by the PSCO from IFAD for procurement of goods and works of goods and works valued at USD 250,000or
USD 250,000 or more and for consultants’ services of USD 100,000 or more. more and of consultants services valued at
Procurement: the Project will be subject to a higher level and expanded scope of ex-post reviews by IFAD USD 100,000 or more for any procurement
to include checks for indicators of collusion, end-use deliveries, and procedural compliance, among other reaching this threshold.
measures.
At least once a year.
1c Strengthen staff The PSCO will ensure that: (i) the BAC officials and supporting organic staff are provided with adequate BAC officials involved are appointed under
capacity at all levels guidance and training in procurement in line with RA 9184; (ii) officials involved in the Project are appointed an executive order at the date when the
and avoid inadequate by an Executive Order; (iii) contractual staff are hired on time to implement the Procurement Plan. financing agreement becomes effective.
or delayed All project implementation personnel will receive hands-on training and assistance from the consultants Contracting of a specialist for the
Procurement Plans recruited by the Project. development of the PIM sections on
Prepare and implement procurement training programme for the BFAR Regional and concerned LGU of Procurement and Financial management for
Region 5, 8 and 13 in line with the provisions of the PIM. submission to IFAD.
Project to closely monitor and review procurement processes, and where necessary, take measures to Upon receipt of NOL from IFAD for the PIM,
improve procurement procedures based on lessons learnt from each successive procurement activity. PSCO to conduct training to staff and
officials involved in procurement.
PSCO will arrange procurement training for
the BFAR Regional and LGU staff at the
start of the Project.

92
 Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 15: Good Governance Framework

No. Issues/Risks Action to Mitigate Risks/ Responsible Entity Targets/Frequency

1d Reduce risk of All contractors, suppliers and consultants – firms or individuals – bidding for contracts under the Project will At all levels during the procurement and
informal payments by submit a sworn statement attesting compliance to the responsibilities of a Prospective or Eligible Bidder as payment processes throughout the Project
contractors, suppliers provided in Section 17.7 of the Implementing Rules and Regulations - Responsibility of Prospective or period.
and consultants. Eligible Bidder.
Sections 17.7.1; 17.7.2; 17.7.3 (details in IRR)
17.7.4. Before submitting their bids, the bidders are deemed to have become familiar with all existing laws,
decrees, ordinances, acts and regulations of the Philippines which may affect the contract in any way.
However, in cases where the cost of the awarded contract is affected by any applicable new laws,
ordinances, regulations or other acts of Government promulgated after the date of bidding, a contract price
adjustment shall be made or appropriate relief shall be applied on a no loss-no gain basis, provided such is
not covered by the contract provisions on price adjustment.
Procurement personnel caught for soliciting and/or accepting bribes can be criminally and administratively
penalised under any or all of the following laws: (i) PD No. 46 – Prohibition against Gifts; (ii) RA No. 9184 –
Government Procurement Reform Act (Sections 65-71); (iii) RA No. 3019 -Anti-Graft and Corrupt Practices
Act (Section 9); (iv) RA No. 6713 – Code of Conduct and Ethical Standards (Section 11); (v) RA No. 7080 –
Plunder Law (Section 2, as amended by R.A. No. 7659); (vi) Revised Penal Code (Articles 210, 211, 211-A,
212); and (vii) RA No. 1379 – Law on Unexplained Wealth (Section 2).
RA No. 9184 also provides for the imposition of civil liabilities upon conviction that may either consist of
restitution for the damage done or the forfeiture in favour of the government of any unwarranted benefit
derived from the act or acts in question or both at the discretion of the courts. All procurement contracts
covered by the said law requires the inclusion of a provision for liquidated damages which shall be payable
in case of breach thereof.

1e Insufficient The PSCO, RPMOs and concerned LGU officials are to adhere strictly to the procedures and guidelines set Throughout the Project period.
procedures forth in the Financing Agreement, the Procurement Guidelines and PIM that covers competitive bidding and
national shopping.
1f Procurement Plan Preparation of realistic initial 18 month Procurement Plan as guided by the Procurement Guidelines, tied to An initial 18 month procurement plan
the AWPB for PY1. prepared by BFAR PSCO to be submitted to
Preparation of APP tied to the AWPB. IFAD as a condition for the withdrawal of
funds.
APP is prepared, thereafter 60 days prior to
the beginning of the following calendar year.

93
 Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 15: Good Governance Framework

No. Issues/Risks Action to Mitigate Risks/ Responsible Entity Targets/Frequency

2a Ensure strong internal Apply detailed procedures in the PIM, which will cover: Throughout the Project period.
controls at central, • financial policies and standards;
regional and LGU • elements of internal control;
levels. • financial accounting system, ledgers, journals;
• bank accounts and credit/grant withdrawals;
• Project expenditure, payroll, petty cash, advances; and
• Financial Management reports, audit, counterpart funds withdrawals.

BFAR to recruit required staff to strengthen Financial Management and Procurement capacity at the
Central and Regional levels.

2b Strengthen financial Staff at all levels to receive hands-on training and technical assistance from consultants recruited by the At Project start-up staff at PSCO, RPMO
management capacity Project. The Government and IFAD Procurement Guidelines will be used as well as relevant provisions of and LGU levels.
the Financing Agreement.
Throughout the Project period and twice a
PSCO to monitor closely and review the financial management and make necessary improvements as year during the supervision and
required. implementation support missions and the
There will be intensive IFAD supervision in the initial years to ensure the successful implementation of the post-supervision missions.
financial management arrangements and at least one on-site financial management visit, either as part of
the annual supervision mission, or through a separate monitoring mission complemented by desk-based
review of interim financial reports.

2c Provide internal audit The Internal Audit is part of the Government system and will be installed at the Project start-up for the PSCO, RPMO and LGU levels throughout
capacity at central, conduct of pre-audit or prior review of financial documentation and adherence to financial policies and the Project period.
regional and procedures.
provincial levels. The Internal Auditors’ Office will likewise provide guidance and training of internal audit staff and assist in
internal auditing at all levels.

2d External audit. Adopt the Terms of Reference (TOR) for external audit as provided in the PIM. PSCO will enter into a MOU with the COA
as the supreme audit institution of the
Government.
2e Minimise cash All progress payments to contractors, suppliers and consultants – firms, individuals, national and PSCO, RPMO and LGU levels throughout
transactions. international – to be made by cheque or bank transfer. Retain evidence for audit and IFAD supervision and the Project period.
post review missions.
Projects will be permitted to open Project accounts in commercial banks for Project disbursements.

94
 Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 15: Good Governance Framework

No. Issues/Risks Action to Mitigate Risks/ Responsible Entity Targets/Frequency

2f Planning of training, Establish Annual Training and Workshop Plans and ensure their inclusion in the AWPB. The Plans should PSCO with RPMO and LGU once a year to
workshops and study include: be reflected in the AWPB.
tours. 1. Detailed costs estimates;
2. Eligibility rules for attending training, workshops and study tours. Attendees must:
 Be engaged in work relevant to the training;
 Be competent in the language used; and
 On return, report on, and share their experiences for the benefit of the Project.
3. Evidence that training, workshops, study tours and other similar activities:
 Are in line with Project aims and objectives;
 Meet identified needs within the sub-component plans; and
 Have a budget in line with planned expenditure.
4. Cost guidelines to be established for selected training/workshop activities:
 Venue rental with refreshments/meals;
 Sound and projection equipment hire;
 Stationery/hand-outs ;
 Project-specific training and workshop materials;
 Simultaneous translation; and
 Photocopying, reproduction, translation.
5. Define evidence to be submitted by attendees for reimbursement of expenses which may include:
 Proof of attendance for period claimed with signed statement by the workshop, training or study
tour organizer or host;
 Proof of travel by air – ticket stubs, travel agent’s receipt, airline boarding passes;
 Receipted hotel bills (for proof of stay);
 Receipts for incidental travelling expenses;
 Receipted invoices for venue rental, food and beverage, sound/projection equipment, hire of
simultaneous translator, stationery and hand-outs, use of photocopying facilities.
 Evidence of payment for attendees’ per diem and allowances.

2g Delayed or non- Project to reconcile operating expenses of staff or field offices within one week of the end of each month. Finance staff in BFAR Central PSCO,
existent reconciliation No further advances to be paid until the previous advance reconciled and cleared against documentary RPMOs and LGUs, once a month
of advances for evidence. throughout the Project period.
operating costs and
expenses

95
 Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 15: Good Governance Framework

No. Issues/Risks Action to Mitigate Risks/ Responsible Entity Targets/Frequency

3a Minimise possible Project staff to disclose in writing any private and public affiliations or personal interest before becoming PSCO to ask for and retain written
conflict of interest involved in any Project-related transaction, such as contract award or decision making. disclosures from the staff.
among Project staff.
3b Enhance A sworn affidavit to be submitted by the bidder of compliance with the Disclosure Provision under Section BAC to include in the required bid
transparency through 47 of the Procurement RA 9184 in relation to other provisions of RA3019 documents. For every procurement
greater public Section47Disclosure of Relations throughout the Project period.
disclosure of Project In addition to the proposed contents of the Invitation to Apply for Eligibility and to Bid as mentioned under
information. Section 21 of the internal rules and regulations, all bids will be accompanied by a sworn affidavit of the PSCO and RPMOs as well as LGUs to
bidder that it is not related to the head of the procuring entity by consanguinity or affinity up to the third civil arrange disclosure of procurement
degree. Failure to comply with the aforementioned provision will be grounds for the automatic information on Phil GEPS.
disqualification of the bid in consonance with Section 30 of this IRR-A. For this reason, relation to the head
of the procuring entity within the third civil degree of consanguinity or affinity will automatically disqualify the
bidder from participating in the procurement of contracts of the procuring entity. On the part of the procuring
entity, this provision will also apply to any of its officers or employees having direct access to information
that may substantially affect the result of the bidding, such as, but not limited to, the members of the BAC,
the Technical Working Group, the BAC Secretariat, the members of the PSCO, RPMO and concerned LGU
and the designers of the Project. On the part of the bidder, this provision shall apply to the following
persons:
(i) If the bidder is an individual or a sole proprietorship, to the bidder himself;
(ii) If the bidder is a partnership, to all its officers and members;
(iii) If the bidder is a corporation, to all its officers, directors, and controlling stockholders; and
(iv) If the bidder is a joint venture, the provisions of items (i), (ii) or (iii) will correspondingly apply to each
of the members of the said joint venture, as may be appropriate.

4 Provide overall To be included in the PIM, a well-defined complaints handling mechanism and procedures with staff of PSCO and RPMOs, throughout the Project
complaints and BFAR and the provinces designated to handle complaints and inquiries which will be systematically period.
grievances recorded and responded to properly in a timely manner.
mechanism covering Complaints handling mechanism (and the use of sanctions), whereby the fishermen beneficiaries,
all aspects of the households and others can channel complaints or inquiries e.g. through the use of mobile phone text
Project. messaging. Complaints and inquiries will be systematically recorded and answered. The Project will also
post complaints on the Project’s website so that case processing will be more transparent. Designated staff
at BFAR PSCO and RPMO will handle complaints and respond in a timely fashion.

5 Require all Project Project to provide copies of the relevant laws and articles on Code of Ethical Standards for Government Extend to PSCO, RPMO and LGU levels.
staff to adhere to a Officials and Employees (RA 6713) to all Project staff, including contracted staff. Project will maintain
Code of Ethical signed declaration of receipt of these documents by all Project staff, including contracted staff.
Conduct.
6 Reinforce Code of IFAD to apply sanctions available in its general and project-specific legal agreements, including the IFAD PSCO, RPMO and LGU levels to
Ethical Conduct with Policy for preventing fraud and corruption adopted in December 2005. Sanctions against unintended disseminate sanctions with Code of Ethical

96
 Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 15: Good Governance Framework

No. Issues/Risks Action to Mitigate Risks/ Responsible Entity Targets/Frequency

sanctions for recipients of loan/credit/grant proceeds may include: Conduct.
fraudulent and corrupt  Letter of reprimand, debarment, conditional non-debarment, debarment with conditional release and
activity by Project restitution;
staff, contractors,  Ineligibility, either indefinitely or for a period of time, to receive IFAD loan/grant proceeds or otherwise IFAD throughout the Project period.
suppliers and participate in any IFAD funded projects;
consultants.  Suspension or cancellation of un-disbursed loan amount, or repayment of misused amounts, if a
recipient has failed to take timely action to redress fraudulent, corrupt, collusive, coercive or obstructive
practices.

7 Monitoring of Results The Project will establish and implement an operational M&E system from the municipal level to the PSCO throughout the Project period.
Framework. national level to proactively monitor and report on Project activities and performance (including financial
and physical progress).

97
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 16: Preliminary List of Assurances

APPENDIX 16: PRELIMINARY LIST OF ASSURANCES

The following assurances, among others, will be sought from the Republic of the Philippines through the
Department of Finance as the Representative of the Borrower during the Negotiations of the Project
Financing Agreement:

1) The Borrower shall ensure that the Project will be implemented within the framework of the agreed
project objectives, approaches and strategy.
2) The Borrower shall ensure that the Project activities will be financed in accordance with the agreed
financing plan.
3) The Borrower shall ensure that the proposed targeting criteria, eligibility criteria and financing criteria
provided in the Project Documents will be strictly adhered to during project implementation.
4) The Borrower shall ensure that due consideration is given to gender issues in Project implementation,
both with respect to project beneficiaries and to recruitment of project staff and ensure, among other
things, that:
(a) Women are encouraged to apply for Project posts and equally-qualified women candidates
are given preference in the recruitment and selection of Project staff; and
(b) Over the project period 40-50% of the members and leaders of the People’s Organisations in
Project assisted activities are women.
5) The Bureau of Fisheries and Aquatic Resources shall establish and maintain in Manila until
completion of the project a Project Support and Coordination Office with a full time contracted Project
Coordinator, and staff designated and/or contracted by BFAR as required by Project implementation
including, finance/budget, accountant, monitoring, evaluation and knowledge management, MIS and
support staff.
6) In each of the Regions V, VIII, XIII and ARMM, the Bureau of Fisheries and Aquatic Resources shall
establish and maintain until completion of the project a Regional Project Management Office under the
Regional Director and staffed with, a full time contracted Regional Manager and staff designated
and/or contracted by BFAR as required by Project implementation including the following technical
specialists: Coastal Resources Management, Livelihoods, Engineering and Institutions and Gender;
and the following staff: bay coordinators (the Provincial Fisheries Officers), finance/budget,
accountant, monitoring, evaluation and knowledge management, MIS and support staff.
7) No project-financed activities shall start in a region, bay or municipality or city until all the agreed
positions in the Central, Regional and Provincial Project Management Offices are staffed with suitably
qualified staff.
8) In the municipalities in each of the 11 target bays/gulfs in Regions V, VIII and XIII, where project
interventions are proposed, the local government units shall establish Municipal/City Project
Management Offices under the Agricultural Officers with designated fisheries technicians, hired
Community Facilitators, and assisted by other relevant staff from the municipality/city.
9) In the target provinces in ARMM, the Bureau of Fisheries and Aquatic Resources shall establish and
maintain until completion of the project an office in each BFAR Provincial Office under the Provincial
Fisheries Officer and staffed by BFAR ARMM municipal fisheries coordinators and community
facilitators.
10) Key Government staff designated to the Project, inter alia, the Project Director of the Project Support
and Coordination Office, the Regional Directors, and the Finance and Budget Officers at national and
regional levels shall remain in their positions until the completion of the Mid-Term Review, except in
the case of unsatisfactory job performance. The Borrower shall consult the IFAD three months before
any planned transfer.
11) The Department of Budget Management shall make available the government counterpart contribution
as required for Project implementation during the entire project period, annually as part of the budget
to the Bureau for Fisheries and Aquatic Resources, to finance the agreed Project activities.
12) The Bureau for Fisheries and Aquatic Resources shall provide IFAD with a draft Annual W ork Plan
th
and Budget for Project activities for review and approval, not later than 15 November in each Fiscal
th
Year, commencing 15 November 2014 and until completion of the project.

98
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 16: Preliminary List of Assurances

13) The Department of Budget Management shall open and maintain two Designated Accounts, one for
the IFAD loan and one for the IFAD grant at the Central Bank in the currency of United States of
America for the Project.
14) The Department of Budget Management shall make available the required proceeds of the IFAD
Financing to the Bureau for Fisheries and Aquatic Resources in the annual national budget.
15) The Bureau for Fisheries and Aquatic Resources shall ensure that the Project accounts at central,
regional and local government levels shall be maintained and consolidated in accordance with sound
accounting practices and government accounting procedures to reflect the progress of the Project and
to identify its resources, operations and expenditures. The Project accounts shall reflect all financial
transactions during the project implementation period for the IFAD financing and by project
component and by standard expenditure categories. The Project accounts shall be maintained
separately from any routine budget accounts or other externally funded project or project accounts.
16) Starting from the Date of Effectiveness, the Bureau for Fisheries and Aquatic Resources shall prepare
st
consolidated financial statements for the entire project, on an annual basis, ending on 31 December
of each year, and submit the detailed statement of the project expenditures during the period under
review to the Government and IFAD no later than three months after the end of each fiscal year.
17) Starting from the fiscal year of 2014, the Commission on Audit of the Borrower shall audit the
consolidated project financial statements annually, including the IFAD and government counterpart
contributions to the project in accordance with the International Standards on Auditing. The audited
financial statements, in a format agreed with IFAD, and including a separate opinion on the statement of
expenditure, the operation of the Designated Accounts, and government counterpart contribution, shall
be submitted to IFAD no later than six months after the end of each government fiscal year, until closing
of the IFAD Financing. The audit report shall be a Long-Form Audit and shall contain a separate
management letter. The reply of the Project to the management letter shall be submitted to IFAD within
one month of the receipt of the audited accounts.
18) The Borrower shall ensure that the Bureau for Fisheries and Aquatic Resources shall establish a
project monitoring and evaluation system at all levels (local government unit, regional and central),
satisfactory to IFAD and including monitoring of and reporting on the Results Impact Monitoring
System indicators, not later than three months after the Date of Effectiveness.
19) The Bureau for Fisheries and Aquatic Resources shall make effective arrangements to coordinate
with other development projects or programmes operating in the target bays to ensure that: (i) uniform
policies are adopted for the same sector or activity, such as beneficiary contribution in labour and/or
kind for the development of livelihood activities; (ii) other project activities in the target bays are
carefully phased to avoid constraints on the available human and financial resources; and (iii)
particular care is taken to supervise and coordinate Project implementation and take prompt actions to
resolve any emerging constraints.
20) The Borrower shall ensure that legislation remains in place to provide the necessary legal basis to
allow People’s Organizations, to establish themselves, and to operate and maintain their activities.
21) As part of maintaining sound environmental practices, Government shall ensure, among other things,
that:
(a) The project parties shall maintain appropriate pest management practices under the project
and ensure that pesticides procured under the project do not include any pesticide either
proscribed by the International Code of Conduct on the Distribution and Use of Pesticides of the
Food and Agriculture Organisation of the United Nations (FAO), as amended from time to time,
or listed in Tables 1 (Extremely Hazardous) and 2 (Highly Hazardous) of the WHO
Recommended Classification of Pesticides by Hazard and Classification 1996-1997, as
amended from time to time;
(b) Effective policies and measures are enforced to safeguard forest and fishery resources and
endangered species in the 11target bays;
22) Under the National Convergence Initiative and where appropriate, the Bureau for Fisheries and
Aquatic Resources, as the lead project agency, shall effectively coordinate with other government
agencies in Project implementation, including the Department of Environment and Natural Resources,
Department of Science and Technology, the Department of Trade and Industry and the National
Commission on Indigenous Peoples and individual Municipalities in the ..bays/gulfs.

99
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 16: Preliminary List of Assurances

23) For the Project’s enterprise development, the Bureau for Fisheries and Aquatic Resources shall work
closely with eligible People’s Organisations, NGOs, academic institutions and private sector companies.
24) The Bureau for Fisheries and Aquatic Resources shall finance proposals for coastal resources
management and support for marginal fishing households to develop alternative/supplemental sources
of livelihoods that meet the agreed eligibility criteria.
25) Following agreed procedures, the Bureau for Fisheries and Aquatic Resources shall prepare
Memoranda of Agreement with the other government agencies implementing project activities and with
Municipalities, NGOs and private sector service providers and investors, based on the Project design
report. The Memoranda of Agreement shall include, among other things, the procedures for planning,
budgeting, financing, reporting, procurement, disbursement of funds, provision of support services and
operation of accounts and auditing.
26) The Borrower shall pay from its counterpart funds for the project, or exempt from duties and taxes on all
equipment and vehicles, and materials and exempt from income tax the fees of national and
international consultants financed by the IFAD Financing.
27) The Borrower shall: (a) undertake necessary measures to create and sustain a corruption-free
environment for activities under the Project; (b) institute, maintain and ensure compliance with internal
procedures and controls for activities under the Project, following international best practices to
prevent corruption, money laundering and the financing of terrorists; all relevant ministries and
agencies to refrain from engaging in any such activities; (c) comply with the requirements of IFAD’s
Policy on Preventing Fraud and Corruption in its Activities and Operations (2005, as amended to
date); and (d) ensure that the Project’s Good Governance Framework is implemented in a timely
manner.
28) The Borrower shall also ensure: (i) allowing potential Project beneficiaries and other stakeholders to
channel and address any complaints they may have concerning the implementation of the Project;
and (ii) after conducting any necessary investigation, immediately reporting to the Fund any
malfeasance or maladministration that has occurred under the Project.
The following are proposed as conditions precedent to withdrawal of the IFAD Financing:
(a) The Bureau for Fisheries and Aquatic Resources shall have duly established the Project
Support and Coordination Office within the Project Management Office and four Regional
Project Management Offices under the Regional Directors.
(b) The Bureau for Fisheries and Aquatic Resources shall have hired full-time: (i) a Project
Coordinator; and four Regional Managers.
(c) The Bureau for Fisheries and Aquatic Resources shall have designated or hired the following
staff for the Project Support and Coordination Office; Finance/Budget Officer, a Chief
Accountant, Finance Assistant, Administration Assistant, Monitoring, Evaluation and
Knowledge Management Officer, and a Management Information System Staff.
(d) In each of the four regions the Bureau for Fisheries and Aquatic Resources shall have
designated or hired the following staff for each of the Regional Project Management Offices the
following: (i) technical specialists; Coastal Resources Management, Livelihoods,
Institutions/Gender and Infrastructure; (ii) Bay Coordinators (Provincial Fisheries Officers); and
(iii) Finance/Budget Officer, an Accountant, Finance Assistant, Administration Assistant,
Monitoring, Evaluation and Knowledge Management Officer, and a Management Information
System Staff.
(e) The Borrower shall have duly opened the Designated Accounts.
(f) The Annual Work Plan and Budget for the first Project Year with a procurement plan for the
initial 18 months shall have been duly reviewed by the Fund and approved by the Project
Steering Committee.
(g) The Project Implementation Manual shall have been duly approved by the Fund and Bureau
for Fisheries and Aquatic Resources.
(h) The Borrower, through the Department of Budget and Management, shall have confirmed to the
Fund: (i) the availability of counterpart funds in the national budget for financing the first twelve
months of project implementation; and (ii) the inclusion of the Project in the BFAR Budget
Strategy for 2014-2020.

100
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 17: Draft Letter to the Borrower

APPENDIX 17: DRAFT LETTER TO THE BORROWER

Honourable Cesar V. Purisima
The Secretary for Finance
Department of Finance
Fifth Floor DOF Building
BSP Complex
Roxas Boulevard
1004 Manila
Philippines
.. .... 2014

Mr Secretary,

Letter to the Borrower

Country: Republic of the Philippines

IFAD Financing: Loan N. and Grant N.
Project: Fisheries, Coastal Resource and Livelihood Improvement Project

1. Reference is made to the Financing Agreement between the Government of the Republic of the
Philippines (hereinafter the Borrower) and the International Fund for Agricultural Development (IFAD),
which entered into effect on .
3
2. IFAD’s Loan Disbursement Handbook (LDH), as may be amended from time to time, is enclosed.
It is intended to facilitate the withdrawal of financing proceeds and the maintenance of appropriate
programme records. In the event of any conflict between the provisions of the LDH and the Financing
Agreement, the provisions of the latter will prevail.

3. The Loan Account has been credited with Special Drawing

Rights (SDR ) and the Grant Account has been credited
with Special Drawing Rights (SDR_ _) as of the
date of entry into force of the Financing Agreement.

Disbursement Procedures

4. Four standard disbursement procedures may be used for withdrawal of financing:

(i) Advance withdrawal
(ii) Direct payment
(iii) Special commitment
(iv) Reimbursement

5. The forms, instructions, information and explanatory notes on their preparation and operation are
provided in Section 3 and in Annexes 2 and 3 of the LDH.
Taxes

6. The proceeds of the financing may not be used to pay taxes. However, in Schedule 2 Allocation
and Withdrawal of Loan and Grant proceeds, the alternative lower percentage has been included to assist
processing of withdrawal applications in those cases where the tax element is not easily identifiable.
Designated Account

7. The Borrower shall open and thereafter maintain in the BSP, or another bank proposed by the

3
Copy available on IFAD’s website, www.ifad.org/pub/manual/disbursement/english.pdf

101
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 17: Draft Letter to the Borrower

Borrower and accepted by the Fund the following Designated Accounts:

 Designated Account denominated in USD, for the purpose of receiving Loan proceeds to
finance the FishCORAL Project (the “Special Account A”);
 Designated Account denominated in USD, for the purpose of receiving Grant proceeds to
finance the FishCORAL Project (the “Special Account B”);

8. In accordance with Section 3.1 of the Loan Disbursement Handbook, the Designated Account will
be administered following Imprest Account arrangements.
9. The Authorised Allocation of the Designated Accounts for the IFAD loan and grant will be
respectively up to the first six months estimated disbursement amount of IFAD’s share of the eligible
project expenditures according to the approved PY1 AWPBs.
10. Documentation evidencing the opening of the bank account(s) designated to receive loan/grant
resources in advance, with advice of the persons/titles authorized to operate this/these account(s), must
reach IFAD before withdrawal can begin.
Instructions for Withdrawal
11. Explanatory notes and forms to be used for the preparation of the withdrawal application under
IFAD disbursement procedures are provided in Section 2 and in Annex 2 of the LDH.
12. Before withdrawal can begin, IFAD needs to receive from the Secretary of the Borrower
responsible for Finance a letter designating the name(s) of official(s) authorised to sign withdrawal
applications, which includes their authenticated specimen signature(s).

Statement of Expenditure
13. Section 4 of the LDH provides details regarding the use of the Statement of Expenditure (SOE)
facility for withdrawals covering certain expenditure from the Loan and/or Grant Account.
14. SOE threshold for all items of expenditure is up to USD 50,000 equivalent. Beyond USD 50,000
equivalent single disbursement, full documentation is required.
15. The SOE threshold above may be amended by the Fund during the course of programme
implementation.
16. The financial reports submitted to the PSCO from the RPMOs in Regions V, VIII and XIIIand the
BFAR-ARMM will be supported by relevant documentation (contract, proof of payment, bank statements,
etc.) in line with the SOE ceilings and IFAD disbursement procedures.

Allocation of Financing Proceeds

17. Paragraph 1 of schedule 2 of the Financing Agreement provides details of the IFAD financing.

Procurement, Procurement Plan and Applicability

18. Procurement under this Project shall be undertaken in accordance with The Philippine
Government Republic Act 9184 and its rules and regulations (known as the Implementing Rules and
Regulation) formulated by the Government Procurement Policy Board as mandated by Section 75 of RA
9184. The Implementing Rules and Regulation govern and apply to the procurement of: (i) infrastructure
projects; (ii) goods; and (iii) consulting services, by any branch, agency, department, bureau, office, or
instrumentality of the Government, including government-owned and/or controlled corporations,
government financial institutions, state, universities and colleges, and LGUs as as long it is consistent with
IFAD Procurement Guidelines.

19. As provided in appendix I, paragraph 1 of IFAD’s Procurement Guidelines, IFAD review of and no
objection to the Recipient’s procurement plans is compulsory and the 18 month procurement plans
submitted by the Borrower/Recipient must include as a minimum:

a. A brief description of each procurement activity to be undertaken during the period and name
of the implementing agency responsible for the procurement.;
b. The estimate value of each procurement activity;
c. The method of procurement to be adopted for each procurement activity and;

102
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 17: Draft Letter to the Borrower

d. The method of review IFAD will undertake for each procurement activity indicating either post
review or prior review.

20. Any amendments to the Procurement Plan shall be subject to the Fund’s no objection.
21. International Competitive Bidding (ICB) shall be the mandatory method of procurement for
contracts above the following values:
a. Goods: above USD 200,000 equivalent;
b. Civil works: above USD 1,000,000 equivalent; and
c. Services: above USD 100,000 equivalent.

22. Procurement of Goods and Works. Each contract for goods and works estimated to cost USD
15,000 or more will be procured through competitive bidding, based on the implementing rules and
regulation as established by RA 9184. For contracts for goods and works to cost less than USD 15,000,
the procurement may be undertaken in accordance with the following methods and established
implementing rules and regulations as prescribed by RA 9184 such as (i) limited source bidding; (ii) direct
contracting; (iii) repeat order; (iv) shopping; or (v) negotiated procurement.

23. Direct Contracting. Procurement valued USD 15,000 and above will be limited to the following
scenarios and subject to IFAD’s prior review and concurrence for each case:
 Where an extension to an existing contract for goods or works is required under 25% of the
existing contract in value.
 Where the equipment required is proprietary, there is only one source and no alternative
exists.
 Where there is a need to standardise upon existing equipment and to achieve compatibility in
terms of spare parts.
 In cases of emergency, where urgent delivery is required.

24. Procurement involving community participation. In accordance with the IFAD Procurement
Guidelines, procurement with community participation is not a distinct method of procurement and it would
be undertaken in accordance with procedures and processes to be established in the Project
Implementation Manual. The PCSO will ensure the following:
 Define the relationships, roles and responsibilities between the BFAR RPMO, LGU and the
community through participatory processes which include considerations and application of
environmental, gender and other social safeguards.
 Proper handover and ownership of assets to the community.
 Translate documents and records into English (the Philippine official language) as may be
required for purposes of audit and review.
 Provide appropriate procedures for regular monitoring and audit of community procurement
activities, including the retention of relevant records by BFAR PSCO, BFAR RPMO and the
LGU.

25. Procurement of Services. The methods which are permitted for the procurement of consulting
services and services are the following:
 Quality and Cost-Based Selection.
 Selection under a Fixed Budget.
 Least-Cost Selection.
 Selection Based on Consultants’ Qualifications.
 Single-Source Selection.

26. Contracts for consultancy and services estimated to cost USD 15,000 equivalent or more the
procurement shall be undertaken through the following competitive selection methods:
a. Quality and Cost-Based Selection.
b. Selection under a Fixed Budget.
c. Least-Cost Selection.
d. Selection Based on Consultants’ Qualifications.

103
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 17: Draft Letter to the Borrower

27. Consultancy and service contracts estimated to cost less than USD 15,000 equivalent procurement
may be undertaken through sole or single source selection.

28. Sole or single source selection for contracts estimated to cost USD 15,000 equivalent or above
will be limited to the following scenarios and subject to IFAD’s prior review and concurrence for each case:
a. for tasks that are a natural continuation of previous work carried out by the consultant;
b. where rapid selection is essential (for example, in an emergency situation);
c. when only one entity is qualified or has the necessary experience for the assignment.

29. Individual consultants would be selected in accordance with the provision of RA 9184 and its
Implementing Rules and Regulations. The details of the selection procedures would be detailed and
described in the Project Implementation Manual.

30. Review of Procurement Decisions. The award of any contract for goods and works estimated to
cost more than USD 250 000 and the award for consultancy and services estimated to cost more than
USD 100,000 will be subject to prior review by IFAD. The following documents as applicable shall
submitted for IFAD prior review and concurrence:

A. Procurement of goods and civil works:

(i) Prequalification documents and shortlist when prequalification is undertaken;
(ii) Bid Documents for goods and civil works;
(iii) Evaluation Reports and Recommendations for Award; and
(iv) Draft contracts and contract amendments.

B. Procurement of consultancy services and other services:

(i) Prequalification documents and shortlist when prequalification is undertaken;
(ii) Request for Proposal (RFP);
(iii) Technical Evaluation Report;
(iv) Combined (technical and financial) evaluation report and the recommendation for
award; and
(v) Draft contracts and contract amendments.

31. A Procurement Register will be maintained by the PSCO and RPMOs to monitor procurement
processes. Contract Payment Registers will also be maintained by the same offices to monitor payments
to contractors.
32. Coastal rehabilitation and infrastructure support for livelihood projects will be undertaken by the
LGUs using Project funds. W ith the suspension of the National Government/Local Government cost
sharing policy and in the absence of any firm rules on LGU cost sharing, the project financing proposals
for infrastructure investments will be IFAD 80% and the government including LGU contributions 20%.
33. All contracts, with or without prior IFAD approval, should be listed in the Register of Contracts with
the dates of approval as provided by IFAD. As this report facilitates the review and approval of payment
requests on contracts, please ensure that the Register is updated and submitted to the IFAD country
programme manager on a monthly basis. The sample form to be used and instructions are detailed in
annex 6 of the LDH.

Financial Reporting and Auditing

34. Article IX of the General Conditions applies to Financial Reporting and Information, inclusive of
time frames for delivery of financial statements to the Fund.

35. Within 90 days of the Effective Date, the Borrower shall appoint, with the prior approval of the
Fund, independent auditors, selected by the Borrower in accordance with the procedures and criteria set
forth in the IFAD Guidelines on Project Audits (for Borrowers’ Use) as may be amended from time to time,
to audit the Financial Statements relating to the programme for the first fiscal year. Thereafter, as soon as
practicable but in no event later than 90 days after the beginning of each succeeding fiscal year, the
Borrower, with the prior approval of the Fund, shall confirm such auditors’ appointment or so appoint new

104
Republic of the Philippines
Fisheries, Coastal Resources and Livelihood Project (FishCORAL)
Design completion report
Appendix 17: Draft Letter to the Borrower

independent auditors for such fiscal year in accordance with this subsection (a).

36. Annex 8 of the LDH includes a template for the Log of Audit Observations, which should be
maintained and updated regularly. A copy of this Log is to be included as part of supervision and mid-term
review reports.

37. Detailed requirements are provided in the IFAD Guidelines on Project Audits (for Borrower’s Use) 4
5
and the IFAD Operational Procedures for Project Audits, as both may be amended from time to time.

Programme Completion/Financing Closure

38. Details pertaining to information and actions to satisfy programme completion requirements and
closure of the Loan and/or Grant Account(s) are detailed in Section 1.3 of the LDH.

Authorised Representatives
39. In accordance with Section 15.03 of the General Conditions, the following persons are designated
as the authorized representatives of the Fund for the purpose of supervising the Programme and
administering the Financing:
Mr. Hoonae Kim, Division Director Asia and the Pacific Division (APR)
Mr. Benoit Thierry, Country Programme Manager (APR)
Ms. Ruth Farrant, Director, Controller’s and Financial Services Division (CFS)
Mr. Dario Rimedio, Loans and Grants Officer (CFS)

40. The persons named above have the authority to take action with respect to the matters set out
herein and other matters related to the implementation of the Programme.

Other
41. A copy of this letter is being sent for information to the Implementing Agencies and concerned
government offices. If you have any queries regarding matters detailed in the foregoing, please do not
hesitate to contact us.

Accept, Mr. Secretary, the assurances of our highest consideration.

Kanayo F. Nwanze
President
Cc:

Honourable Proceso J. Alcala

Secretary for Agriculture
Department of Agriculture
Elliptical Road
Diliman, Quezon City
Philippines 1100
Fax No.: (63-2) 929 8183
Fax No.: (63-2) 925 2151

Mr. Benoit Thierry, Country Programme Manager

Asia and the Pacific Division
IFAD

Mr Dario Rimedio , Loans and Grants Officer

Loans and Grants Section
Controller’s and Financial Services Division
IFAD

4
Copy available on IFAD’s website at www.ifad.org/pub/basic/audit/borrower_e.pdf.
5
Copy available on IFAD’s website at www.ifad.org/pub/basic/audit/operational_e.pdf.

105