Devolving bundles of right or bundles of responsibilities? Impacts of forest tenure reform in the Philippines

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, the authors' 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, the authors argue that what have been devolved by the state so far are bundles of responsibilities that put more weight 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.