Devolving Bundles of Rights or Bundles of Responsibilities? Impacts of Forest Tenure Reform in the Philippines

Abstract

This paper examines the evolution of tenure reform in the Philippine forest lands over the last three decades which in principle has
transferred “bundles of rights” from the State to local communities. It analyzes the dynamics and impacts of tenure reform and the
associated policy and related changes in terms of livelihoods, income, forest condition, and equity (referred to as the LIFE
indicators in this study) based on literature review and four case studies representing three different types of tenure instruments.

Despite radical efforts to restructure forest management in favor of local communities, our analysis of tenure reform in forest lands
in terms of the LIFE indicators shows that the anticipated positive impacts are yet to be fully realized on the ground. The issuance
of the different tenure instruments have benefited the government more by effectively recruiting local communities to take on forest
management and protection responsibilities – tasks which the government was expected to perform before the tenure reform took
place. However, livelihood and income of forest communities have not significantly improved in most cases. The combined effects
of unstable policies and insecure use rights, over regulation and centralized issuance of resource use permit, inadequate
institutional support system, poor market access and opportunities, and limited capacities at the local level prohibit genuine tenure
reform from taking root.

Instead of bundles of rights and their corresponding benefits, we argue that what have been devolved by the State so far are bundles
of responsibilities that put more weights to the already burdened communities. This situation thwarts the accrual of benefits to the
upland poor and may impede the promotion of sustainable forest management in Community-Based Forest Management areas. The
paper distilled specific lessons and recommendations to enhance the impacts of forest tenure reform on livelihood and equity and
advance sustainable forest management that has relevance to other tropical countries of similar situation.