Local efforts for ecosystem based disaster risk reduction and resilient forest livelihoods in the mountain watersheds of the Philippines
Policy brief
This policy brief explores the willingness of local authorities to strengthen adaptation and resilience to climate change while improving social well being and economic development. It presents forest restoration and sustainable agricultural practices, institutionalized yet led by communities, as effective methods for reducing risks, improving the resilience of farmer communities and ensuring sustainable livelihoods. It builds on the experience of the Municipality of Tublay, Benguet Province, in the inclusion of ecosystem based disaster risk reduction (Eco DRR) in communal forest management through restoration and agroforestry activities that support local livelihoods.
The brief summarizes the activities carried out and the results achieved by the project Enhancing community resilience to climate change in mountain watersheds (GCP/ GLO/042/JPN), implemented by the Forestry Division of the Food and Agriculture Organization of the United Nations (FAO) and funded by the Forestry Agency of the Ministry of Agriculture, Forestry and Fisheries of Japan (MAFF). It is offered as a successful example that demonstrates the capacity to adopt disaster risk reduction (DRR) measures in the mountain watersheds of the Philippines, calling on local and regional leaders to replicate this experience in other communities and watersheds.
Box 1. The project in numbers
More than two years of activities (October 2021–April 2024);
One regional assessment: Environmental Disaster Risk Assessment for the Municipalities of Benguet Province, Cordillera Administrative Region (CAR);
One local assessment and plan: Ecological Disaster Risk Reduction and Management Plan for the Municipality of Tublay;
Five government agencies participating with local and provincial representatives;
Three municipal executive orders signed for the project;
More than 100 community members, two barangays (small municipalities), three local non governmental organizations (NGOs) and 24 local government unit (LGU) officers participating in trainings and capacity building activities;
Two communal forest management plans developed;
2 hectares of forest area restored;
2 hectares of agroforestry systems established;
790 seedlings of coffee and native trees planted;
One municipal nursery reinstated;
USD 150 000 financed by the project.
Climate hazards and disaster risk in mountainous rural areas
For rural mountain communities, maintaining healthy ecosystems and fostering climate resilient economic activities are paramount, as their livelihoods are highly susceptible to the effects of climate change, jeopardizing food security and income sources for these communities. It is in these areas, where the link between climate hazards, agricultural production and ecosystem management is most noticeable, that Eco DRR measures play a crucial role in preventing, reducing and mitigating potential disasters caused by extreme weather events. These measures also serve as strategies that preserve ecosystems, improve agricultural production, generate higher incomes and foster more resilient livelihoods.
In mountainous areas, particularly in the Cordillera Administrative Region (CAR), the impact of disasters is determined by the landscape cover: a mosaic of scattered barangays (the smallest political unit), agricultural land, and private and communal forest areas. An effective disaster risk reduction and management (DRRM) programme for this region must integrate preparedness, response and early recovery measures that respond to the complexity of these landscapes.
To enhance risk governance and effectiveness, existing DRRM programmes are practically implemented by the local government unit (LGU), which includes provincial, municipal and barangay representatives. In adherence to the National Disaster Risk Reduction and Management Framework, every LGU must establish a local disaster risk reduction and management office (LDRRMO) or barangay DRRM committee, responsible for the development of local DRRM plans covering disaster prevention and mitigation activities.
Although provisions for the integration of ecosystems in DRR programmes exist in Philippine legislation, weak implementation persists due to the poor integration and compartmentalization of agency programmes, each with a different mandate for the activities that comprise the totality of DRR. At the LGU level, LDRRMOs must ensure close collaboration with the Local Environment and Natural Resources Office, responsible for the conservation, management, development, and proper utilization of the environment and natural resources, as well as the Office of the Municipal Agriculturist, responsible for the promotion of agriculture and forestry development and growth.
With this variety of participating agencies and levels of governance, Eco DRR planning comes as an effective strategy to reduce vulnerability to climate related hazards while creating income generating community plans that promote the conservation and restoration of ecosystems as well as improve the sustainable management of natural resources.
Climate risk and ecosystems in the Municipality of Tublay
Located in the Cordillera Central mountain range in northern Luzon, the Municipality of Tublay is one of the thirteen municipalities in Benguet Province, comprising eight barangays
with a land area of 10 255 hectares, entirely designated as an ancestral domain. The combined threat of occasional high severity seismic hazards, seasonal hydrometeorological hazards and degraded ecosystems creates a high level of vulnerability to its inhabitants.
Tublay´s ecosystems are characterized by two main types of vegetation. The highest forest areas are dominated by Benguet pine (Pinus kesiya), providing local livelihoods with construction materials, fuelwood and roundwood. However, the resinous nature of the Benguet pine and the accumulation of fallen needles create a highly flammable environment, necessitating careful fire management practices. Transitioning from the pines, particularly in barangays Tuel and Ambongdolan, are secondary broadleaf rainforests. These forests represent various stages of ecological succession, with some areas recovering from selective logging activities, while others demonstrate successful regeneration following slash and burn agriculture practices.
Each barangay in Tublay, with one exception, has established a designated communal forest. These areas offer a regulated harvest of timber at predetermined intervals, promoting sustainable forestry practices. More importantly, they act as sanctuaries for a diverse array of non timber forest products (NTFPs), including
commercially valuable resources like resin and rattan, alongside bamboo, pasture, and edible and medicinal plants. These communal forests serve the dual purpose of providing essential water sources for domestic use and agricultural irrigation, while simultaneously promoting the conservation of native tree species.
Agriculture forms the cornerstone of Tublay’s economy. Roughly 70 percent of the total land area is dedicated to agricultural activities, employing almost 80 percent of the population. Highland vegetables, cut flowers and rice dominate production; agroforestry follows with bananas, lemons and coffee. Raising livestock further supplements family incomes. Products are typically traded in La Trinidad Trading Post or Baguio City, with their transportation and marketability heavily influenced by microclimate and weather patterns.
Though high yield production and cash crops provide increased profits for farmers and households, intensive agricultural techniques have brought environmental degradation and forest cover loss – and therefore a high level of vulnerability to disaster – to these communities.
Farmers are increasingly aware of the impacts of this unsustainable production, which are exacerbated by current climatic conditions, extreme precipitation events such as typhoons and droughts, and increased temperatures in these temperate ecosystems.
More and more often, barangays are returning to actively managing communal forest grounds, supporting disaster prevention and reducing risks to communities. There is also an interest in restoring these ecosystems and linking them with sustainable practices such as agroforestry to strengthen Tublay´s potential as an ecoagritourism destination.
Ecosystem based disaster risk reduction: a community based approach
Comprehensive Eco DRR approaches, combined with risk sensitive land use planning, deliver lasting benefits across economic, social and environmental spheres. Compared to traditional methods, Eco DRR adapts to the local conditions, offering a more efficient, cost effective approach in the long run.
Box 2. Preparing the Ecological Disaster Risk Reduction and Management Plan for the Municipality of Tublay, Benguet
Consultation with relevant government offices and barangays (small municipalities) on the willingness of participation and viability of implementation;
• Assessment and strengthening capacities and information needs of local governments on data acquisition, analysis and management, the use of geographic information systems (GIS) for risk assessments, and ecosystem based disaster risk reduction (Eco DRR) measures for risk mitigation;
• Elaboration of hazards maps and identification of vulnerability and exposure of Tublay;
• Local identification of natural hazards, factors and indicators for risk assessment mapping;
• Identification of ecosystem services and users in Tublay;
• Assessment of priority areas for reforestation and Eco DRR intervention options;
• Proposal of governance, implementation mechanisms, and monitoring and evaluation (M&E) of the Eco DRR Management Plan;
• Review and validation with barangays, local authorities and technicians.
By promoting livelihood diversification and protecting existing income sources, Eco DRR empowers communities to become more resilient in the face of economic shocks caused by disasters, safeguarding lives and property.
Well managed ecosystems enhance socioeconomic resilience by sustaining livelihoods and providing essential natural resources like food, water and building materials. Moreover, ecosystems can reduce secondary impacts of non climatic disasters, such as landslides triggered by earthquakes. Thus, forest areas play a crucial role in managing and diminishing disaster and climate risks.
Although national policies regarding climate resilience,agriculture,forestry,natureconservancy and economic growth are categorically distinct, community level governance offers a pragmatic, integrative approach to these policies. Grounded, community based approaches that emphasize the variability of the circumstances under which disasters occur and utilize planning tools at the local level may be useful in institutionalizing effective risk reduction strategies that pave the way towards this integrative approach.
Under the leadership of the Municipal Mayor and DRRM Office, who coordinated relevant municipal offices, and with the active participation of barangays, the preparation of the Ecological Disaster Risk Reduction and Management Plan for the Municipality of Tublay began.
The development of Tublay’s Eco DRR plan followed a structured, three phase approach: The initial phase focused on gaining a comprehensive understanding of the areas requiring intervention and planning the activities for the plan’s development. This phase also included identifying key implementation partners.
• The second phase concentrated on capacitybuilding and assessing risks. Initiatives to strengthen the LGU’s capacities in DRR were prioritized. This involved assessing their existing strengths and weaknesses to identify areas for improvement. A thorough risk andvulnerability
assessment of Tublay was then conducted to inform the strategies outlined in the plan. Leveraging the findings from these steps, the second phase culminated in the creation of a comprehensive Eco DRR management plan, validated by various municipal departments to ensure its effectiveness.
• The final phase ensured the plan’s successful execution in Tublay. This involved securing official approval for the Eco DRR plan and establishing clear governance structures for its implementation. With the plan approved and governance in place, the final step focused on putting the Eco DRR plan into action.
During this 11 month planning exercise (October 2021–July 2022), stakeholders identified four climate hazards that resulted in short-term and long term socioecological impacts: rainfall induced landslides, river overflow, drought driven forest fires and strong winds. The prioritization of intervention measures to reduce them, encompassing rural development goals of ecoagritourism, followed.
Communal forest planning and agroforestry for disaster risk reduction
Tublay’s Eco DRR management recognized the importance of arresting the decline of forest cover and the promotion of sustainable agricultural production in disaster prone areas. Business planning for NTFPs and communal forest management linked to ecoagritourism were highlighted as the best strategies to achieve this.
With these priorities in consideration, the members of both barangays identified the following measures, compatible with existing strengths and availability of resources in the locality:
1. The planting of native plants and trees that are suited to the local environmental conditions;
2. The establishment of agroforestry systems with commercially viable crops that provide risk related environmental services (erosion control, groundwater control, fire retardation);
3. The preparation of local watershed and communal forest management plans for sound forest management and protection against forest fires;
4. The identification of biodiversity and protection of ecosystems at risk that provide ecological aesthetics (beautiful landscapes that are also ecologically healthy) for the subsequent development of ecoagritourism;
5. The preparation, maintenance and promotion of facilities that promote sustainable local agricultural products (organic, fair, agroforestry-grown) for the subsequent development of ecoagritourism.
Barangays Ambongdolan and Tuel of Tublay, both vulnerable to fire damage and rain induced landslides, were selected as the pilot sites to pursue the attainment of these measures and replicate the success of previous reforestation projects in the erosion prone areas of the municipality.
This initiative focuses on ecological restoration through the cultivation of native tree seedlings and wildlings within communal forests, enhancing overall biodiversity in the area and lessening their susceptibility to forest fires and other hazards. Complementing this effort, the establishment of green firebreaks (less flammable vegetation planted along the borders of the forests) will act as a barrier against wildfires and help with soil erosion and landslide prevention. Finally, training programmes on forest fire prevention and suppression techniques are expected, along with essential firefighting equipment. This comprehensive approach will significantly increase the communities’ capacity to respond to these environmental threats.
The following actions have materialized:
• Site assessments and the planting of 2 137 native and naturalized tree saplings in the communal forests of both barangays;
• The rehabilitation of the Tublay municipal plant nursery in Ambongdolan; The inclusion of saplings for commercial gain, such as Arabian coffee (Coffea arabica), local blueberry (Vaccinum benguetense),
hauili (Ficus septica), petroleum nut or dael (Pittosporum resiniferum), deguai (Saurauia bontocensis), and Philippine oak (Lithocarpus sp.).
These activities were implemented (May 2023–April 2024) jointly with Tublay’s Local Municipal Environment and Natural Resources Unit (MENRU) and the Local Municipal Disaster Risk and Reduction Management Unit (MDRRMU). They are consistent with the promotion of sustainable forestry and environmental risk reduction at the community level. As of February 2024, the Tublay LGU is drafting a communal forest management plan (CFMP) for the project sites that would include provisions for reforestation and afforestation, preparedness for abnormal events and disasters, and a business plan that would have aspects of ecoagritourism potential in ancestral domains.
The sustainable management of the NTFP value chain, as well as the development of agroforestry based farming systems for DRR and livelihood improvement, will guide and incentivize the participation of local farmers in the implementation of the communal forest and community watershed management plans.
Pathways for the adoption of ecosystem based disaster risk reduction and communal forest management in local planning
The rapid changes and severity of climate related hazards underscore the critical need to strengthen the resilience of vulnerable communities and ecosystems, particularly in mountainous regions like Tublay. Promoting sustainable livelihoods and reducing disaster risks require the active participation of all stakeholders within the territory.
Therefore, improving government approaches, tools and implementation methods for ecosystem based solutions is essential for both DRR and climate change adaptation. Swift and effective implementation of these measures can lead to a cascade of positive outcomes: healthier ecosystems, empowered communities, increased public investment in risk prevention, and ultimately, the sustainable development of Philippine mountain regions.
Tublay’s experience can serve as a learning path to this, paving the way for a transformative approach. By creating spaces for participatory
action and response strategies, we can empower both mountain ecosystems and communities to adapt to the challenges of climate change
Strategies that can drive this change include:
• Compel community-level policymakers in adopting Eco DRR approaches to fulfil various development goals; Update DRR programmes and policy instruments to better integrate local conditions and respond to community needs;
• Integrate Eco-DRR into local and national development plans, such as comprehensive land-use plans and climate change adaptation plans;
• Provide municipal disaster risk reduction and management offices with technical guidance on Eco DRR and comprehensive training to engage communities, conduct situational analyses, enhance community-based planning and review plans;
• Enhance the role of local communities in the formulation of disaster risk plans and Eco DRR initiatives for more successful implementation and sustainability in time;
• Engage stakeholders continuously and establish processes for soliciting and incorporating community feedback; Replicate successful Eco DRR projects in high vulnerability rural communities to upscale the impact of these initiatives;
Financed by:
For more information, please contact:
Forestry Division – Natural Resources and Sustainable Production
E-mail: NFO-Publications@faoorg
Web address: wwwfaoorg/forestry/en
Food and Agriculture Organization of the United Nations
Rome, Italy Required citation: FAO
• Strengthen the meaningful role of facilitators (non governmental organizations [NGOs], environment and conservation agencies, etc) in the development of Eco-DRR measures;
• Improve the coordination among universities and other research organizations with the agencies that are responsible for implementing risk-related interventions at the community level;
Support landscape-wide actions or inter LGU alliances to formulate harmonized action plans, policies and budgets appropriately responding to risk reduction and safeguarding ecosystems;
Attract external finance and local risk informed investment programmes for stronger public-private partnerships, prioritizing digital transformation, inclusion, and monitoring and evaluation (M&E); Promote green infrastructure against droughts, floods, storms, landslides and other forms of erosion;
• Retain and support talent through enhanced training and employment opportunities;
• Raise awareness of the role of ecosystems and the benefits of Eco DRR measures for mountain livelihoods and communities dependent on natural resources in these regions;
• Strengthen leadership at all levels for coordinated administrative planning and implementation with support from stakeholders
