GROUP 9. Policy Paper.5.Body of Paper

1

A POLICY ISSUE PAPER ON IMPROVING RICE PRODUCTIVITY IN

AUTONOMOUS REGION IN MUSLIM MINDANAO (ARMM)

I. Background of the Problem

A. Description of the Problem

Introduction

One of the six regions belonging to the island of Mindanao is the Autonomous

Region in Muslim Mindanao (ARMM). It has a total land area of 26,974 sq. km1. The

geographic map2 (see Appendix 1) shows that the region is composed of five provinces

namely: Basilan, Lanao del Sur, Maguindanao, Sulu and Tawi-Tawi.

Two of the major crops grown by the farmers in ARMM are rice and corn. Among

the five provinces in the region, Maguindanao and Lanao del Sur are identified to be the

major producers of these crops. Meanwhile, the rest of the provinces are engaged in

fishing.

Figure 1. Distribution of Agricultural Lands by Crops Planted.

Source: Facing the Challenges of Ensuring Food in ARMM, Prof. Sangkula Tindick.

1 www.armm.gov.ph.

2 www.en.wikipedia.org. See Appendix 1.

22%

51%

1%

2% 4%

0% 5%

0% 15% Palay

Corn

Abaca

Coffee

Rubber

Sugarcane

Fruits

Vegetables

Root crops

2



Table 1. Annual Volume of Palay Produced in Provinces of ARMM from 2006-2010.

Provinces 2006 2007 2008 2009 2010

Basilan 3,238 2,976 4,457 3,303 4,740

Lanao del Sur 144,405 174,682 190,296 175,679 177,760

Maguindanao 400,573 433,766 432,589 396,719 436,957

Sulu 3,435 3,400 3,450 3,202 2,925

Tawi-Tawi 2,619 956 899 844 961

Source: Major Crops Statistics of the Philippines, 2006-2010 (Regional and Provincial), BAS.

The Province of Maguindanao, given its appropriate soil type and favorable

temperature, is basically an agricultural province which is capable of producing rice for

local consumption and for possible export. Similarly, the volcanic soil type of Lanao del

Sur and its location being outside of the typhoon belt resulted to the suitability of

growing rice crops in the province.

Consequently, rice is the most important crop in ARMM because it is their staple

food (see Figure 2). Theres no better way to highlight the elbow room for improvement

than through the increase of rice yield from 3.00 mt/ha to 9.00 mt/ha which was cited in

a book by Prof. Balisacan.3 From 1995 to 2009, the demand for rice increased by

19.51%.4

3 Securing Rice, Reducing Poverty, Balisacan, A., Sebastian, L. and Associates.

4 These were the results of computation of the policy analysts based on the data gathered at BASs online

database.

3



Figure 2. Annual Per Capita Consumption of Rice and Corn in ARMM.

Source: Food Consumption Statistical Tables, BAS.

Nature of the Social Problem

In 2006, the average rice productivity in all ecosystems of ARMM (irrigated and

rainfed) is only 2.82 mt/ha and in 2010, it slightly increased to 3.00 mt/ha.5 The regions

rice yield is not even half of the scientifically attainable yield (see Figure 3). Thus,

ARMMs significantly low rice production can be further increased by closing the yield

gap between the actual farm yields and the maximum achievable yields.

5 Crops Statistics of the Philippines, 2006-2010 (National and Regional), BAS.

1995 1999-2000 2008-2009

Corn 5.408 1.98 0.676

Rice 116.441 122.2 144.664

0

20

40

60

80

100

120

140

160k

g

4



Figure 3. Yield Gap Analysis of Rice.

Source: Securing Rice, Reducing Poverty, Balisacan, A., Sebastian, L. and Associates.

Indicators of the Existence of Social Problem

Food Insufficiency

The low rice productivity of ARMM is threatening the food self-sufficiency in the

region. In support to this, the figure below clearly depicts that during the three reference

time period, the rice demand in ARMM was not achieved because of the regions low

supply of the commodity. Thus, the region is in a rice-deficit status that results to the

peoples inaccessibility to a nutritious food which provides their dietary needs for an

active healthy life.6

6 Facing the Challenges of Ensuring Food in ARMM, Prof. Sangkula Tindick (ppt).

Maximumattainable yield

Yield with bestnutrient and

cultural practices

Yield whenmacronutrient

(NPK) and waterproblems exist

Yield whenmicronutrient

deficiency, pestand management

problems exist

Wet Season 7.20 5.76 4.32 2.88

Dry Season 9.00 7.20 5.40 3.60

0.00

1.00

2.00

3.00

4.00

5.00

6.00

7.00

8.00

9.00

10.00m

t/h

a

5



Figure 4. Rice Supply and Demand of ARMM.

Source: Crops Statistics of the Philippines, 1990-2003 & 2006-2010 (BAS); Food Consumption

Statistical Tables (BAS).

Insufficient Amount of Seeds for Planting Rice. Along with the food insecurity

looming in the region is the lack of seeds for planting rice. 75.29% of the rice farmers in

ARMM source their inbred seeds from the rice they directly produced.7 Because of low

rice productivity in the region, the availability of inbred seeds for most of the farmers is

limited.

Factors Worsening the Social Problem

Rapid Increase of Population. The rice productivity of ARMM increases at a lower rate

compared to the increase of its population. Because of this, sustaining the rice

7 Costs and Returns Surveys of Palay Production, BAS.

1995 1999 - 2000 2008 - 2009

Per Capita RiceAvailability

90.757 82.236 114.619

Per Capita RiceConsumption

116.441 122.200 144.664

0

20

40

60

80

100

120

140

160

kg

6



consumption of the people of ARMM could not be easily achieved. As of 2007, ARMMs

total population is 4,120,795. ARMM has the highest population growth rate of 5.46%

among the regions during the reference period 2000-2007. Moreover, ARMMs

population increases thrice as fast as the national average.8

Table 2. Population and Annual Growth Rates of ARMM and its Provinces.

Region/Province Total Population

Population Growth

Rate

1-Sep-95 1-May-00 1-Aug-07 95-00 95-07 00-07

ARMM 2,362,300 2,803,045 4,120,795 3.73 4.78 5.46

Basilan (excluding City of Isabela) 227,008 259,796 408,520 2.93 5.05 6.44

Lanao del Sur 686,193 800,162 1,138,544 3.35 4.34 4.98

Maguindanao (excluding Cotabato City) 662,180 801,102 1,273,715 4.16 5.64 6.60

Sulu 536,201 619,668 849,670 3.15 3.94 4.45

Tawi-Tawi 250,718 322,317 450,346 5.53 5.03 4.72

Source: Census of 1995, 2000, and 2007 Population, National Statistics Office.

Majority of Labor Force is Employed in Agricultural Sector. The total number of

employed persons in the agricultural sector in ARMM in 2009 was 814,000 representing

71.7% of the total employment in the region.9 Furthermore, the average yearly gain in

employment of the regions agricultural sector from 2006-2009 is 3.3% which is the

highest among other region.10 The data indicates that majority of the population in

ARMM depends in agriculture as a source of income. Thus, low rice productivity will

affect a large number of people in the region.11

8 Facing the Challenges of Ensuring Food in ARMM, Prof. Sangkula Tindick (ppt).

9 Agricultural Indicators System Report: Population and Labor Force, BAS.

10 Ibid.

11 In a table included in Prof. Sangkula Tindicks Facing the Challenges of Ensuring Food in ARMM, it

was indicated that in 2011, 83,410 of the people in ARMM are engaged in rice farming.

7



Scope and Limitations of Policy Paper

While other issues and problems are recognized as causes and solutions for low

rice productivity in ARMM, the policy issue paper is limited only to the improvement of

rice productivity in ARMM. Specifically, rice production in the provinces of Maguindanao

and Lanao del Sur will be increased because these areas are identified to be the most

suitable for producing such commodity in the region.12 Rice production in Basilan, Sulu,

Tawi-Tawi will also be increased to maximize the full potential of their rice field areas.

Thus, the policy paper will target the increase of rice productivity in the five provinces of

ARMM. The production phase of rice farming will be the only focus of the paper.

Moreover, the extent of the policy paper is limited by: (1) time constraints; (2)

confidentiality of documents of DAF-ARMM; and (3) lack of sources of empirical data.

B. Outcomes of Prior Efforts to Solve Problem

Development of ARMM Integrated Agricultural Research Center.13 Former

Department of Agriculture (DA) Secretay Senen C. Bacani issued under his

administration the Administrative Order Nos. 6 and 19, series of 1991 which integrated

stations/facilities such as crops, fisheries, livestock, and BPI stations and facilities under

the supervision of the National Research & Development Center and Regional

Integrated Agricultural Research Center (RIARC). Being an autonomous region, the

ARMM was not covered by the said Administrative Orders. In 1994, with the initiative of

former Department of Agriculture and Fisheries (DAF) Secretary Datu Haron U. Bandila,

Al-Haj and the creation of the Research and Regulatory Division, he justified the

12

Major Crops Statistics of the Philippines, 2006-2010 (Regional and Provincial). BAS. 13

Profile of ARMMIARC (doc).

8



necessity and significance of research and development in the region as provided for by

the section 18 of the Organic Act in Muslim Mindanao. Consequently, former Regional

Governor Lininding P. Pangandaman signed on December 12, 1994 the Executive Oder

No. 9 which established the Autonomous Region in Muslim Mindanao Integrated

Agricultural Research Center (ARMMIARC) and its satellite Research Outreach Stations

(ROSes).

Thru the initiative of former DAF-ARMM Secretary Thambeyapha J. Manjoorsa,

Al-Haj, former Regional Governor Nur P. Misuari issued the Administrative Order No. 3

which mandated ARMMIARC and ROSes to formulate the research and development

agenda and strengthen the program implementation in the region. Upon implementation

of Republic Act No. 8435 known as Agriculture and Fisheries Modernization Act

(AFMA), the role of ARMMIARC and ROSes in developing ARMMs agri-based

economy from a resource-based into a technology-based industry was strengthened.

Furthermore, former Regional Governor Parouk S. Hussin supported AFMA through the

issuance of Executive Order No. 5 by which it strengthen the structure and

management of research, development, and extension system in ARMM.

Vision and Mission of ARMMIARC.14 ARMMIARC envisions a dynamic research and

technology center responsive to the demands of time across cultures and traditions of

farming communities. Furthermore, the center aims to conduct community-driven

researches, to develop and promote socially, economically, culturally, and

14

Profile of ARMMIARC (ppt).

9



environmentally-safe technologies, and to strengthen networking and partnerships in

improving status of farming communities.

Functions of ARMMIARC.15 The central station of ARMMIARC serves as the main

powerhouse of the ROSes. It performs the following functions, roles and responsibilities:

(1) Provide leadership in the planning and orchestration of the implementation,

monitoring, and evaluation of an integrated research and development program within

the context of farming system approach, in coordination with the regional Training

Center; (2) Undertake mid-stream and downstream applied research of its assigned

commodity in the region; and (3) Develop and maintain a network of provincial

collaborators in undertaking the regional research, development and extension program

of its assigned commodity.

Research Outreach Stations of ARMMIARC.16 The ROSes serves as a vital link

between the regional and provincial research and development program, undertakes

applied research relevant to the province in their assigned commodities, demonstrate

new appropriate technology in agriculture for the province and serve as an educational

and training facility. Currently, there are six ROSes wherein each has a distinct function

and these are as follows: (1) ARMMIARC for Integrated Farming located in Pagalungan,

Maguindanao; (2) ARMMIARC for Lowland Irrigated / Rainfed located in Datu Odin

Sinsuat, Maguindanao; (3) ARMMIARC for Hilly Land located in Lumbatan and Bayang,

Lanao del Sur; (4) ARMMIARC for Upland Plain located in Talipao, Sulu; (5)

15

Profile of ARMMIARC (ppt). 16

Profile of ARMMIARC (doc).

10



ARMMIARC for Marginal Areas / Germplasm Collection and Evaluation Center located

in Bongao, Tawi-Tawi; and (6) ARMMIARC for Upland, Livestock, and Marine Water

located in Lamitan, Basilan.

Support Services Provided by ARMMIARC.17 Existing support services in

ARMMIARC which aid in the enhancement of rice farming in the region are as follows:

(1) Regional Seed Quality Control Services (RSQCS); (2) Regional Trichoderma

Laboratory Services; (3) Regional Soils Laboratory; (4) Training Center; (5) Germplasm

Nursery; and (6) Management Information System.

The RSQCS support the major objective of the DA through the provision of

quality assurance and control services for seed and planting material production,

processing, storage and distribution, seed research and training in seed quality control

towards sustainable agriculture and environment protection. Seed quality is important in

developing rice varieties that will permit farmers to produce a large crop yield that will

eventually improve the production of the region. However, the Seed Laboratory in

ARMMIARC only cater Seed Testing such as Germination Test and Purity Test since

they have no enough equipment to perform the complete procedures of Seed Testing

for Seed Certification. Moreover, the laboratory operated as satellite of NSQCS-Region

XII since the first quarter of 2009.

Through the Regional Trichoderma Laboratory Services, the Bureau of Soil and

Water Management advocates the utilization of rice straw in on-farm composting. Under

this support service, Trichoderma harzianum is produced which is a biological organic

17

Profile of ARMMIARC (ppt); 2011 Annual Report of ARMMIARC (ppt).

11



waste activator which restores the soil fertility, mitigates the effect of global warming,

and promotes the gradual adoption of organic agriculture nationwide.

DAF-ARMM implemented the Regional Soils Laboratory upon recognition of its

significant contribution to resolving agricultural issues such as production of more food

for the people of ARMM. Soil Analysis evaluates the fertility status of the soil and

measures the amount of nutrients in the soil that are available to the plants (NPK, pH,

and soil texture) which in return will help achieve maximum level of production.

ARMMIARC Training Center is a JICA-funded project of ARMM Social Fund

Project which serves as venue for the conduct of necessary trainings for the

advancement of farmers and fisher folks. It is also a comfortable accommodation for

researchers in the region. This training center will help enhance and strengthen the

services in terms of fisheries and agricultural research for the region. In 2011, the center

served as venue of the regular meeting of ARMMIARC personnel every Tuesday.

The Management Information System of ARMMIARC is primarily responsible in

the management and delivery of information in an innovative and effective manner. All

of the information managed must be spread and be readily available to the people who

need it the most the farmers. Unfortunately, the center lacks necessary tools for the

gathering, organizing, and disseminating of information. The center manages valuable

materials in printed form but they have no audio-visual equipment needed for its

production.

12



Impacts of ARMMIARC. During the beginning of 2011, the center continuously moves

on to implement and realize the research and development in the region although they

have limited resources.18 Moreover, the budget from the regional office allotted for their

Maintenance, Operating and Other Expenses (MOOE) is very limited.19 These

expenses cater to different research, development and extension activities of the center.

The statement was further supported by Mr. Tong Abas, the Planning Officer of

ARMMIARC. He stated that the region gives lesser focus and attention in the research,

development and extension which gives long-term impact to the agricultural production

especially the rice crops. He also added that some of the ROSes of ARMMIARC lacks

manpower which limits its function and operation. Finally, he disclosed that the

termination of an administration in the region greatly affects the continuous

implementation of agricultural projects and programs because the employees of the

research centers are also dismissed from service since they do not have itemized

position. They will be reemployed upon the discretion of the new regional governor of

ARMM.

18

2011 Accomplishment Report, ARMMIARC (ppt). 19

January-June 2012 Accomplishment Report, ARMMIARC (ppt).

13



II. Scope and Severity of Problem

A. Assessment of Past Policy Performance

REPUBLIC ACT NO. 8435 also known as the AGRICULTURAL AND

FISHERIES MODERNIZATION ACT OF 1997 has the following objectives:

a. To modernize the agriculture and fisheries sectors by transforming these sectors

from a resource-based to a technology-based industry;

b. To enhance profits and incomes in the agriculture and fisheries sectors

particularly the small farmers and fisher folk, by ensuring equitable access to

assets, resources and services, and promoting higher-value crops, value-added

processing, agribusiness activities, and agro-industrialization;

c. To pursue a market-driven approach to enhance the comparative advantage of

our agriculture and fisheries sectors in the world market;

d. To induce the agriculture and fisheries sectors to ascend continuously the value-

added ladder by subjecting their traditional or new products to further processing

in order to minimize the marketing of raw, unfinished or unprocessed products;

e. To provide social and economic adjustment measures that increase productivity

and improve market efficiency while ensuring the protection and preservation of

the environment and equity for small farmers and fisher folk; and

f. To improve the quality of life of all sectors.

14



Strength of RA 8435. The objectives of AFMA are very clear and that is to improve the

agricultural and fisheries sector of the Philippines. This law envisions sweeping policy

and institutional reforms in the sector, including increasing budget support to research

and development aimed at producing scientifically produced inputs, such as high-

yielding varieties of rice, vegetable, and fingerlings.20

Weakness of RA 8435. The law faulted for over-commitment and tried to do many

things with too many agencies and saddled with lack of resources.21 In the process, it

faltered in implementation. The additional money of PhP 20 billion in the first year

(1999) and PhP 15 billion a year in the next six years (2000-2005) did not materialize

(Appendix 6). The required allocation by each component of AFMA was not followed.22

There were relatively more funds for production support and less in marketing, research

and development, human resources and inter-agency linkages. Moreover, there was

little concern for regional priorities. The role of private investments in growth and job

creation was not clearly specified and a sound criteria for project selection was not

explicit.23

AFMA components were ranked according to national and regional priorities and

their simple average were calculated.24 The national average showed that main AFMA

priorities were irrigation, marketing, farm-to-market roads, post-harvest facilities and

credit (Appendix 7). However, AFMA priorities varied considerably across the 16

regions.

20

MTPDP for 2010-2016 Formulation Reference Documents. 21

Experts Review of the AFMA (2007). 22

Ibid. 23

Ibid. 24

Ibid.

15



Major AFMA priorities in Luzon are irrigation, post-harvest facilities and

marketing (Appendix 8). Meanwhile, important AFMA components in Visayas are

irrigation, credit and farm-to-market roads (Appendix 9). Its priorities in Mindanao

differed in some aspects; these are farm-to-market roads, marketing, and post-harvest

facilities (Appendix 10). The main components of AFMA which are prioritized by the

ARMM are farm-to-market roads, post-harvest facilities, and education. Research and

development ranked in eleventh place while the extension is ranked at 8.5.

Farm-to-market roads is the most priority sector of AFMA in ARMM but until

2005, the ratios of length of paved FMR to the total existing length of FMR of the

following provinces are: Lanao del Sur 0.43%; Maguindanao 3.33%; Basilan

4.92%; and Sulu 2.75%.25 In addition to that, irrigation only ranked at 8.5 as priority

sector of AFMA in ARMM, but it is the most priority sector of the act in the national level.

The estimated total irrigable area in ARMM was 156,720 ha.26 As of December 31,

2010, the total irrigated area in ARMM was 23,870 ha which corresponds to only 15%

irrigation development, the lowest among the 16 regions in the country.27 Accordingly, it

is evident that AFMA has failed to modernize the agricultural industry of ARMM.

REPUBLIC ACT NO. 6657 also known as the COMPREHENSIVE AGRARIAN

REFORM LAW OF 1988 has the following principles and policies:

a. The welfare of the landless farmers and farm workers will receive the highest

consideration to promote social justice and to move the nation towards sound

25

This is the only the latest available data that the policy analysts have obtained regarding the status of FMR development in ARMM. The data was sourced in Joint Needs Assessment for Reconstruction and Development of Conflict-Affected Areas in Mindanao. 26

This area refers to those primarily devoted to rice and corn and having slopes of up to 3%. Such data is obtained in the 2010 Annual Report by the National Irrigation Administration. 27

Ibid.

16



rural development and industrialization, and the establishment of owner cultivator

ship of economic-sized farms as the basis of Philippine agriculture.

b. The State shall recognize the right of farmers, farm workers and landowners, as

well as cooperatives and other independent farmers' organization, to participate

in the planning, organization, and management of the program, and shall provide

support to agriculture through appropriate technology and research, and

adequate financial, production, marketing and other support services.

c. The State shall apply the principles of agrarian reform or stewardship, whenever

applicable, in accordance with law, in the disposition or utilization of other natural

resources, including lands of the public domain, under lease or concession,

suitable to agriculture, subject to prior rights, homestead rights of small settlers

and the rights of indigenous communities to their ancestral lands.

d. The State may resettle landless farmers and farm workers in its own agricultural

estates, which shall be distributed to them in the manner provided by law.

e. The State shall provide incentives to landowners to invest the proceeds of the

agrarian reform program to promote industrialization, employment and

privatization of public sector enterprises. Financial instruments used as payment

for lands shall contain features that shall enhance negotiability and acceptability

in the marketplace; and

f. The State may lease undeveloped lands of the public domain to qualified entities

for the development of capital-intensive farms, traditional and pioneering crops

especially those for exports subject to the prior rights of the beneficiaries under

this Act.

17



Strength of RA 6657. The poverty incidence among the agricultural reform

beneficiaries (ARBs) declined from 45.8 % in 2000 to 44.8% in 2006.28 It can be said

therefore that the Comprehensive Agrarian Reform Program (CARP) was partly

successful in transferring a portion of the economic return of land from the landowners

to the ARBs.29 Moreover, results of the assessment studies of experts on the

accomplishments of CARP indicate that it has various positive socio-economic impacts

including higher farm income and yield.30

Weakness of RA 6657. Despite the clear principles that the policy imposes, it still has

drawbacks. One of the manifestations is the statement in the aforementioned policy

brief that the lack of financial support from the government was the key factor that

hampered the attainment of CARPs objectives. Furthermore, it did not complement the

land distribution program of the government in 1972. From that year to 2010, only

66.0% of the total land to be distributed to the farmers in ARMM was accomplished.31

Land distribution has reached a very sensitive juncture particularly in the

distribution of coconut and sugar lands. Delays in implementation and lack of clarity on

how to proceed heighten uncertainty, with corresponding adverse effects on investment

and growth.32

28

The data was the result of the study made by the Asia Pacific Policy Center (APPC) as cited in a publication by the Senate Economic Planning Office entitled Policy Brief: Broadening and Reinforcing the Benefits of Land Reform in the Philippines. 29

Ibid. 30

Policy Brief: Broadening and Reinforcing the Benefits of Land Reform in the Philippines, Senate Economic Planning Office. 31

Agricultural Indicators System Report: Redistribution of Land, BAS. 32

MTPDP for 2010-2016 Formulation Reference Documents.

18



REPUBLIC ACT NO. 7160 also known as the LOCAL GOVERNMENT CODE

OF 1991 has the following operative principles:

a. Local government units shall share with the national government the

responsibility in the management and maintenance of ecological balance within

their territorial jurisdiction, subject to the provisions of this Code and national

policies;

b. The capabilities of local government units, especially the municipalities and

Barangays, shall been enhanced by providing them with opportunities to

participate actively in the implementation of national programs and projects;

c. The realization of local autonomy shall be facilitated through improved

coordination of national government policies and programs and extension of

adequate technical and material assistance to less develop and deserving local

government units.

Strength of RA 7160. The governments aim in devolving the national power of the DA

to Local Government Units (LGUs) was beneficial to every community. There are three

perspectives on the values of decentralization, namely: from an economic or efficiency

perspective, from a governance perspective, and from a political or distributive

perspective.33 From an efficiency perspective, decentralization allows local

governments greater leeway in determining local needs and preferences of their

constituents thereby making decision-making more effective in terms of the utilization of

resources. From a governance perspective, decentralization promotes greater

33

Wolman as cited in the dissertation by Buenafe F. Alinio entitled Philippine Local Government Officials Perceptions of Decentralization and Its Effects on Local Governments Administrative Capabilities.

19



responsiveness among policy makers in addressing the needs and concerns of their

constituents. Decentralization allows for greater citizen participation, which can result in

more robust policy initiatives, more effective exercise of democracy, healthier and more

productive national-local interaction, and greater accountability of elected officials.

Lastly, from a political or distributive perspective, a decentralized arrangement can

better address the interests of the poor, the minorities, the labor sector and others

similarly situated.

Weakness of RA 7160. After 21 years from being enacted, the policys goal is hardly

realized by the LGUs. Many problems hindered the success of such code especially in

promoting agricultural development in undeveloped regions such as the ARMM. The

majority of the local chief executives (LCEs) are not totally supportive of the goals and

objectives of the latter law especially in financing agricultural projects and programs.34

Such public officials greatly rely from the agricultural funding support they receive from

the DA which is contrary to the provisions stated in the Local Government Code (LGC)

of 1991. Aside from the lack of financial support by the LGUs in their agricultural growth,

some of the LGU extension workers do not fully implement those national programs

assigned to them by the DA due to lack of commitment.35

B. Significance of Problem Situation

It is fairly known that the agricultural sector is the backbone of our society.

People, especially in rural areas, usually depend on agriculture as their primary source

34


Ibid.

20



of income. Several crops are cultivated in the country but in ARMM, among the most

cultivated crops are rice, corn, root crops, fruits, and vegetable. As stated earlier, rice is

the most important crop in the region because it is their staple food.

Undeniably, most of the people from ARMM are dependent on rice. In fact, below

average people can survive without other foods except rice. Comprising 77.5% of

carbohydrates, rice is a rich source of energy.36 It also contains many nutritional

benefits such as low cholesterol, low fat and high starch. Rice is a good source of

vitamins and minerals such as thiamine, niacin, iron, riboflavin, vitamin D, calcium,

potassium and fiber.37 It has low sugar and contains no gluten. It is also a fair source of

protein containing all eight amino acids. Moreover, rice is a low-sodium food which is

best for those with hypertension.38

In ARMM, farming is the major source of income, thus one of the severe

problems being combatted by its people is the low rice productivity. Since most of the

people are employed in the agricultural sector, minor economic growth among these

people arises. Moreover, based on the observation and experience of the policy

analysts, the decrease of human resources result from the negative outlook people

perceive about the farming profession. Due to minimal profit earned from the

unproductive rice farming, children of the farmers are poorly educated as well as suffer

from malnutrition and other health conditions.

Furthermore, the regions population increases three times annually against the

national average rate. However, the rice production increases in lesser degree resulting

to unavailability of enough rice that will support the large population of the region. The

36

www.sourcing.indiamart.com. 37

Ibid. 38

Ibid.

21



supply and demand remains parallel but never met making it a challenge needed to be

cracked.

This policy issue paper will put forth the issue on high demand of rice in ARMM.

Problems commonly encountered by rice farmers in the region are: (1) lack of technical

assistance on new farming technology; (2) lack of knowledge/information on various

crop management practices; (3) lack of source of quality seeds; and (4) source of

quality seeds.39 To address these problems, the ARMMIARC and its ROSes must be

strengthened. The research centers are tasked to provide advanced knowledge and

modern technologies in rice farming that will essentially help farmers through increasing

their rice yields.

C. Need for Analysis

With the large increase of rice demand in ARMM, it is necessary to urgently

increase the rice supply to meet such demand. Without sufficient supply of rice, the

region will resort into purchasing rice from other regions or importing from other

countries. This will result to the increase of price of rice commodity and decrease of

opportunity for local farmers to generate income.

Immediate intervention by the government is indispensable to address such low

rice productivity in ARMM. Strengthening research, development and extension in the

region is necessary to increase the rice production. With this, the farmers will be given

knowledge and techniques in proper rice farming which will enable them to harvest

large amount of rice.

39

Agricultural Training Institute Central Office.

22



III. Problem Statement

A. Definition of the problem

The problem addressed in this paper is the low rice productivity in ARMM which

greatly affects the livelihood of the farmers. Several underlying factors for the existence

of the social problem were analyzed and these are as follows: (a) insufficient knowledge

and skills in proper rice farming; (b) devolution of power of DA to the LGUs; (c) land

tenancy of farmers; and (d) low government support to agricultural research,

development and extension (RD & E). Due to the low rice productivity in ARMM, food

insecurity arises resulting to purchasing of rice from other regions. Moreover, poverty in

the region occurs as a result of low income arising from low rice productivity (see Figure

5).

Insufficient Knowledge and Skills in Proper Rice Farming. Most of the farmers in

ARMM are using the traditional method of farming. Only 60.62% of the farmers in the

region utilize the transplanting method of planting while 40.93% uses direct seeding

method through broadcasting of seeds.40 Furthermore, only 1.54% of the farmers in

ARMM reported to have three cropping in 2009 while there are more than 12% in some

other regions.41

Commitment to Service by DA and LGU Personnel. Majority of LCEs do not

financially support agricultural projects and programs which is undeniably contrary to

40

Costs and Returns Surveys of Palay Production, BAS. 41

Ibid.

23



the provisions stipulated in the LGC of 1991.42 They greatly rely from the funding

support they receive from DA. Furthermore, the extension services by the LGUs which

are aligned with DAs national programs are not fully realized because of lack of

commitment by the extension workers.

Land Tenancy of Farmers. Most of the farmers in the region do not own the land they

till and cultivate. In 2009, 49.42% of the palay farm parcels in ARMM are tilled by the

tenant farmers while only 45.95% are fully owned.43 If only these tenant farmers could

own a piece of land, it will allow them to increase and improve their rice yield thus

contributing to the growth of rice production in ARMM. Accordingly, results of the

assessment studies of experts on the accomplishments of CARP indicate that it has

various positive socio-economic impacts including higher farm income and yield.44

Low Government Support to Agricultural Research, Development and Extension.

The ARMM government gives lesser priority and importance to research development

and research.45 Furthermore, the agricultural research centers receive lower financial

support from the government thus minimizing their full function and capacity. Moreover,

only 8.49% of ARMM farmers in 2009 reported that they benefited from palay

programs/projects.46

Upon thorough discussion among the policy analysts and implementing the

problem tree method of analysis, the various impacts of the low rice productivity in 42



Policy Brief: Broadening and Reinforcing the Benefits of Land Reform in the Philippines, Senate Economic Planning Office. 45

Mr. Tong Abas, Planning Officer of ARMMIARC. 46

Costs and Returns Surveys of Palay Production, BAS.

24



ARMM to the farm-family households were identified. The effects of the social problem

are as follows: (a) low supply of rice; (b) malnutrition; (c) low farm income; and (d) lack

of seeds for transplanting. When the rice produced is low in an area, consequently, the

supply of rice in that area is also low which raises the need to import rice from nearby

areas. Moreover, many farmers depend on their harvested seeds as source of planting

materials for the next cropping season. Low amount of rice produced results to the

lessening of the supply of planting materials. Some farmers do not sell their harvests in

the market, but rather uses it to sustain their daily diet. Whenever the amount of

harvested rice is low, the farmers family will benefit in a lesser intensity from the

nutrients that the rice can provide to them. Lastly, the income that the farmer gains upon

harvesting low amount of rice will slightly, or in many cases, insignificantly improve the

lives of the farmer and its family which increases the number of families lying in the

poverty line.

Figure 5. Problem Tree Analysis of the Low Rice Productivity in ARMM.

Lack of Seeds for Transplanting Low Farm Income Low Supply of Rice Malnutrition

Low Government

Support on R, D, &

E

Land Tenancy of Farmers

Insufficient

Knowledge & Skills

of Farmers

Lack of Commitment to Service by DA &

LGU Personnel

Low Rice Productivity in ARMM

Causes Effects

25



B. Major Stakeholders

1. Department of Agriculture (DA) ARMM

DA is the principal agency of the Philippine government responsible for the

promotion of agricultural and fisheries development and growth. In pursuit of this, it

provides a policy framework that directs public investments and, in partnership with the

LGUs, provides the support services necessary to make agriculture and fisheries, and

agri-based enterprises profitable and to help spread the benefits of development to the

poor, particularly those in the rural areas.

DA, including its Regional Field Unit (RFU) and attached agencies like the

Agriculture and Fishery Council (AFC), are the major stakeholders in developing the

agricultural productivity in the country.

2. Department of Agrarian Reform (DAR) ARMM

DAR is primarily responsible in leading the implementation of CARP through land

tenure improvement, agrarian justice, and coordinated delivery of essential support

services to client-beneficiaries.

For this purpose, the department aspires to lead the implementation of agrarian

reform and sustainable rural development in the countryside through land tenure

improvement and provision of integrated development services to landless farmers,

farmworkers and small landowner-cultivators, and the delivery of agrarian justice.

On the other hand, DAR coordinates the implementation of the program in the

Agrarian Reform Communities (ARCs) through the Provincial/Municipal Agrarian

26



Reform Officers (PARO and MARO). They also assist in the establishment of links

between farmers organization and agribusiness enterprises that will provide market

opportunities to farmers, and will facilitate access to production inputs, new

technologies, and credit facilities.

3. Local Government Units (LGUs) ARMM

LGUs are constitutionally bestowed of powers and functions to deliver agriculture

extension services at the local communities by virtue of the LGC of 1991. Hence,

implementation of agricultural projects and programs in the provincial and municipal

level are subject for approval of corresponding local chief executives. The LGUs of the

region are also considered to have an immense influence to the success of the

implementation of resolutions to achieve higher rice productivity in the region. Through

unity and coordination, the provincial governors down to the municipal mayors can

address the agricultural problems economically threatening their respective territory.

4. Philippines Rice Research Institute (PhilRice)

The PhilRice is one of the Philippines' rice research institutes and it collaborates

with the International Rice Research Institute (IRRI)47 which is also headquartered in the

Philippines. PhilRice plays a key role in building and sustaining a competitive rice

economy through research into farming systems, technology, and policy-making. Their

credo is "Technology today, food for tomorrow".

47

During an interview with Dr. Samarendu Mohanty, Head of the Social Sciences Division of IRRI, he asserted that technologies developed by their institute are transferred to PhilRice and there, another experimental testing is done before PhilRice implements and distributes the technologies to its partner agencies.

27



PhilRice accomplishes this mission through research, technology promotion, and

policy advocacy, which are implemented through a network that includes 57 agencies

and 108 seed centers nationwide.

The institute continually develop and update packages of technologies on rice

production with emphasis on productivity and sustainability. Moreover, they produce

breeder, foundation, and registered seeds of inbreds and parentals of hybrids and

maintain seed buffer stocks of higher seed classes. They also provide technical support

to LGUs, RFUs and ATI and assist in the transfer of mature rice production

technologies. The institute also conducts policy research and advocacy in coordination

with other government agencies.

5. Bureau of Agricultural Research (BAR)

BAR is one of the staff bureaus of the DA that is established to lead and

coordinate the agriculture and fisheries R&D in the country. Specifically, the bureau is

tasked to consolidate, strengthen and develop the R&D system to improve its

effectiveness and efficiency by ensuring customer satisfaction and continuous

improvement through work excellence, teamwork and networking, accountability and

innovation and expected to support the policy.

6. Agricultural Training Institute (ATI)

ATI is the extension and training arm of DA. With 16 centers spread across the

country, ATI trains agricultural extension workers and their clientele, and lead in the

delivery of e-extension services for agriculture and fisheries. It administers training,

28



extension, and social preparation programs; and monitors and evaluates post-training

performances.

7. Bureau of Plant and Industry (BPI)

BPI is an agency under the DA that is responsible for serving and supporting the

Philippine plant industry sector. It envisions of having a vibrant crop farming

communities and the industry sector producing quality, accessible and globally

competitive agricultural crops profitable for the Filipino. It aims to conserve and develop

Philippine Plant Genetic Resources and ensure the protection and development of the

plant industry.

BPI shall be responsible for coordinating and monitoring seed production and

supervising seed testing laboratories and accelerating seed testing and certification.

Moreover, it provides technical assistance on crop protection.

8. Bureau of Soil and Water Management (BSWM)

BSWM implements modernized agriculture and fishery sector that sustains the

production and supply of high quality product efficient and adequate enough to meet the

demand for nutritious and safe food by the Filipino people and which continuously

satisfy the needs of the market without impairing the quality of the soil and water

resources. For this purpose, it aims to utilize land and water resources in the Philippines

to sustainably reduce poverty through applications of sustainable land management

practices and provide technical assistance in the implementation of the same.

29



9. State Universities and Colleges (SUCs)

SUCs with agricultural degree programs are required to include extension

services as part of their vision to promote sustainable livelihood in the community.

These SUCs include Mindanao State University (MSU) - Maguindanao, MSU - Marawi,

Cotabato City State Polytechnic College, Lanao Agricultural College and the likes.

Professors and instructors are those learned and educated people who are capable of

involving themselves to the farmers and interact with them to listen to their aspirations

increase their rice productivity. They will also impart new technologies and strategies

suited in the different farm areas in the ARMM. The SUCs serve as the advisers who

can instruct farmers on how to resolve problems encountered in rice farming.

10. Community Consumers and Farmers

Consumers externally affect the implementation of the policy. They do not have

direct influence to the outcome of the policy. However, they are greatly affected by the

benefits they acquire from it such as the low price of rice in the market. However,

farmers are the primary beneficiaries of the policy. Realization of the goals of the policy

is best achieved when they properly manage and maintain their rice fields and the

provided irrigation systems as well as the farm-to-market roads.

11. Concerned Non-Government Organizations (NGOs) / People Organizations

(POs)

The private sectors are part of the Municipal Agriculture and Fisheries Council

(AFC) which has significant role in planning and monitoring agricultural development

30



programs. The POs participation in the agricultural sector will ensure that the demands

of the farmers are being carried out. NGOs and POs are expected in the policy to

support, push and influence the legislators in the process of the policy making.

12. Donor Agencies

Donor agencies from international to national levels are expected to financially

and technically support the implementation of projects and programs that aims to

modernize the agricultural industry of the country. Such agency is the Japan

International Cooperation Agency (JICA) which is an international funding agency that

has a goal of providing support for human resources development, capacity building,

policy and institutional improvements, and provision of social and economic

infrastructure, thereby pursuing sustained poverty reduction through equitable growth.

Food and Agriculture Organization (FAO) of the United Nations is also an

international funding agency which primarily aims to achieve food security for every

people in the world by giving them the assurance that they have regular access to

enough high-quality food to lead active and healthy lives. The organization is mandated

to raise levels of nutrition, improve agricultural productivity, better the lives of rural

populations and contribute to the growth of the world economic.

C. Goals and Objectives

In general, the policy paper aims to support legislation that will help achieve

higher rice productivity in ARMM. Specifically, it aims to:

1. Reduce yield gap between the attainable and actual rice yield.

31



2. Improve living conditions of the farm-family households.

3. Encourage farmers to adopt technological advances in rice farming.

4. Maintain rapport between the farmers and the government and other concerned

stakeholders.

5. Attain food self-sufficiency in the region.

D. Measures of Effectiveness

Different measures are considered to evaluate the effectiveness of the three

policy alternatives. This includes the effectiveness and feasibility matrix and Bardachs

Typology of criteria which are employed to measure the effectiveness of each policy

alternative (see Table 4).

Availability and reduction of input costs and increased control of agricultural

systems (land, seed, and technology) increases self-sufficiency of livelihood and will

have significant effect to the rice productivity in the region in such a way that the

farmers will no longer need to pay for debts of seeds, fertilizers, pesticides and the likes.

Techniques and strategies on technology-transfer approaches to deliver R & D to

the farmers through extension services will help the farmers to increase their

productivity by imparting knowledge on proper farming methods and encouraging

farmers to adopt agricultural advances in rice farming.

One of the governments goals is to improve the living conditions of the poor

people, and to do this, there is a need to have a financial support from the government

through providing aids and grants for the farmers.

32



Unequal land distribution is one of the major factors causing differences in the

production strategies among various farmers and a crucial precondition for pro-poor-

growth. It argues that the productivity increases in agriculture and successful reduction

of poverty in China, India, and Taiwan are largely due to the equal distribution of land.

The type of seeds used as planting materials may define the amount of rice

production upon harvest. Good quality seeds may result to a higher productivity if it will

be used wisely on the field.

The nutrient content of the soil can be determined and detected by using soil

testers. Through this equipment, usage of too much fertilizer by the farmers will be

reduced because it will become known to him the amount of nutrients needed by his

rice field to support proper crop growth.

Infrastructure such as irrigation and drainage and FMRs greatly affects

production. Irrigation is needed to provide water for the rice farming but continuous

submergence of the rice crops is not advisable. Thus, drainage is fairly needed as well.

On the other hand, FMRs play an important role for the transportation of the rice

produced after harvest from farms to the post-harvest areas.

E. Potential Solutions

In solving the problem on low rice productivity in ARMM, the following are

identified as potential solutions: (1) the government should strengthen the provision of

AFMA on Research, Development and Extension through strengthening the roles and

functions of DA-ARMMIARC Central Station and its Research Outreach Stations; (2) the

government should exercise its authority to further extend the CARP and the scope of

33



recipients of its benefits; and (3) the partnership between DA and LGUs should be

improved and intensified with the establishment of agricultural projects and programs.

R&D is further defined as the continuous efforts of exploring technologies that will

lead to enhanced farm sustainability like bio-fertilizer and organic fertilizer applications,

water-saving techniques, enhanced biological control through natural enemy

conservation to manage insect pests, formulation of seed varieties resistant to climate

change and farm diversification.48

Two primary components of R&D are the usage of high-quality seeds and the

integrated crop management (ICM) which respectively contributes 10% and 10% to the

increase of rice yield. ICM is the key to maximizing rice yield. It addresses the overall

health of crops by using all available methods (regulatory, physical, cultural, chemical,

and biological) collectively. It dictates that technology recommendations for the increase

of rice yield be developed and transferred to farmers as a holistic and integrated

package, and not by components, such as integrated nutrient or pest management.

Important crop management practices include good variety, healthy seeds and

seedlings, land preparation, correct spacing, nutrient management, pest management,

and water management.49

Meanwhile, certified seeds (CS) are pure, clean, full and uniform in size. On the

average, it has a minimum of 85% germination rate. The farmers can prevent the

occurrence of spaghetti rice through the aid of CS. The latter term refers to uneven

48

The Philippine Rice Masterplan: Enhancing Provincial Rice Self-Sufficiency (2009-2013), PhilRice. 49

Ibid.

34



rice plant growth differences in maturity dates. It is expected that 35% of the total yield

increase will be attributed to the use of high-quality seeds.50

The devolved power of DA to LGUs which is the agricultural extension services is

essential for the growth of the agricultural sector. The capability and proficiency of

extension workers must be enhanced since they are the primary sources of farmers

information, knowledge and technology. Their extension packages and interventions

must be research-based, thus, they must be provided with the means and needed ICT

equipment to access integrated, environment-friendly, cost-saving and high-yielding

farming technologies from national and international government, NGOs, state

universities and colleges (SUCs) and private research organizations.51

Through extension education, the farmers will realize that their farms low

productivity is a result of various factors such as their hesitance or non-adoption of

environment-friendly, cost-saving, integrated farming technologies and non-use of

hybrid, certified rice seeds, among others. They will also be equipped with analytical

tools so that they are able to relate global and national rice situations with their farms

low productivity, their low-income level, poverty, hunger, malnutrition, low education and

all other underdevelopment indicators that are adversely affecting them. Knowing all of

these benefits, the farmers will be motivated by their internal drive and aspiration for a

better and improved life.52

50


Ibid. 52

Ibid.

35



IV. Policy Alternatives

A. Description of Policy Alternatives

1. Strengthen the roles and functions of DA-ARMMIARC

The knowledge and skills needed to be acquired by the farmers for improving

and increasing their rice productivity is critical. Improving rice productivity can contribute

in reducing poverty in the rural area s because it can increase the income of small

farmers and landless farm workers which primarily depend on rice production to sustain

their living.

One of the factors in rice production which is overlooked and given lesser

attention by the government is the knowledge and skills of the farmers in rice farming.

This includes the farm practices being applied by the farmers and the technological

advances in agriculture that they should adopt. A strengthened research, development,

and extension services will play a big role in attaining food self-sufficiency and

increasing rice productivity in the region. Through the DA-ARMMIARC, this constraint

could be minimized by conducting researches patterned from PhilRice and deliver it to

the farmers through extension services and technology-transfer approaches.

The key implementers of the proposed policy includes: DA which is the

government agency responsible for improving livelihood of farm households and

ensuring food security; LGUs particularly the Local Agriculture and Fisheries Council

(LAFC) which has direct supervision of the programs and projects of DA in the

municipalities; and NGOs such as CFSI, Kadtuntaya Foundation, Inc., and Kadtabanga

36



Foundation, Inc. NGOs' concern with the rural poor means that they often maintain a

field presence in remote locations, where it is difficult to keep government staff in post.

One of NGOs main concerns has been to identify the needs of the rural poor in

sustainable agricultural development. NGOs' rapport with farmers has allowed them to

draw on local knowledge systems in the design of technology options and to strengthen

such systems by ensuring that the technologies developed are reintegrated into them.

NGOs have also developed innovative dissemination methods, relying on farmer-to-

farmer contact, whether on a group or individual basis.

The RD & E is expected to educate the farmers on new technologies formulated

by IRRI through PhilRice and by SUCs such as: (A) The use of quality seeds suitable to

the climate and soil requirement of the area to be cultivated such as the flood and

drought resistant seeds; (B) The use of transplanting method of planting rice seeds

instead of broadcasting to minimize inputs; (C) The use of Palay Check System to

identify and solve the problem without the presence of the experts; and (D) The use of

soil testers to check and validate the nutrient content of the farms to avoid excessive

use of fertilizers that are not needed in certain areas. Frameworks of the regions RD &

E are patterned and take advantage of existing researches that originated from the

preceding stakeholders and adapt the same to make it suitable to the area because

there are agricultural characteristics which are unique to ARMM.

Furthermore, the extension workers are anticipated to visit and teach those

farmers that are not capable of undergoing trainings and seminars due to some

constraints such as sickness during the scheduled activity. Above all, the most common

and worst scenario that the municipalities face is the family feud. The extension works

37



are expected to deliver the exact information imparted to farmers that attended during

the scheduled trainings and seminars. Moreover, such works aim to validate

implementation and conduct consultation with the farmers for further instruction.

Services must also be conducted with utmost sincerity and diplomacy during harvesting

periods. Also, the evaluation is conducted to corroborate employees attitude and

practice in rendering their services.

2. Strengthen RA 9700 also known as the Comprehensive Agrarian Reform

Program Extension with Reforms (CARPER)

The extension of CARP will benefit more farmers especially those tenants who

worked for their landlords in their entire lives and it would give them hope to own a

piece of land. The equal land distribution among beneficiaries will allow the farmers to

increase their production with the supplement of different support services by the DAR.

Close monitoring and evaluation is necessary to assure that the program is properly

disseminated and that the land is properly distributed to the ARBs. The implementation

of CARPER should not be limited to a period of 5 years as it is mandated but it should

be a continuous process through monitoring and delivering support services to the

beneficiaries to increase their production and thereby improving their lives.

3. Tighten the Relationship Between DA and LGUs in delivery of support

services to the farmers

The DA is a government agency responsible for improving the lives of the farm-

family households through delivery of support services and this support services will be

38



realized with the help of the LGU by assisting in the implementation, monitoring, and

evaluation of the projects and programs of the DA. A strengthened relationship between

the two agencies will greatly contribute to the improvement of livelihood of the farmers

through creating projects and programs on improving rice productivity in the region.

B. Comparison of Future Consequences

Since most of the farmers rely on trial and error methods of farming, the LGUs,

as part of their devolved function, should make some extension services on rural areas

and create more demo farm which will serve as a model farm that will guide the farmers

in employing proper rice farming practices. These will be easily realized through making

the MAO more functional. This is much feasible since it will only require allocation of

salary augmentation in the DA budget proposals for those agricultural extension

workers that were affected by the devolution and providing allocation for more demo

farms in every municipality. In ARMM, cases of Rido (family feud) are rampant and it

has been affecting the access of farmers to demo farms. If it will be made in each

municipality, the farmers will have an easy access to demo farms since they will not

have to cross over places where they have feuds. Its success also needs continuous

provision of support to the LGU agricultural technologists.

The formulation of the alternatives gave concerns to some interventions, as to

how some factors like infrastructure development, research and development, extension

and environmental factors could be of a great element towards achieving our goalto

improve rice self-sufficiency. The estimated contributions of different factors that affect

the growth in rice production are as follows: infrastructure, 40%; research and

39



development, 25%; extension, 15%; and environment, 20%.53 The figure clearly shows

that focusing on irrigation, seeds, ICM, and extension services will assure at least 60%

of the expected increase in rice production. It also shows that the irrigation places on

top of priority, followed by the research and development, extension and environment.

The policy paper focused on the research and development and extension since

these will provide long-term impact on farms of ARMM. Furthermore, research has

shown that the use of high-quality seeds can increase yield by 1.0 t/ha if it is

complemented by appropriate crop management techniques, efficient irrigation

systems, and good extension services,54 in the same way that it would also be futile to

just focus on irrigation while leaving the farmers with limited knowledge on farming

techniques. It is important that the investments are to be appropriated to each

contributory factors, otherwise, the expected target output will not be fully realized.

C. Spillovers and Externalities

Strengthening the ARMMIARC will not only ensure higher productivity rates

among farmers but will also encourage LGUs to give more focus on agriculture since it

contributes a lot to the welfare of the people especially among the farm households. It

would also ensure coordination among the national government, local government units

and the private sectors (corporation and the individual farmers) in their effort towards

the implementation of AFMA.

53


Ibid.

40



All of these efforts resulting to higher rice productivity rates would significantly

reduce, if not stop, rice importation in 2013.55 Most importantly, it would enhance

small farmers self-reliance.

D. Constraints and Political Feasibility

The budget allocated for ARMMIARCs maintenance and other operating

expenses amounts to PhP 250,000 per month56 and from this budget will the salary for

the extension workers be apportioned.57 Priorities in budget allocation of AFMA funds

are suggested to be adjusted that is to allocate budget portion from infrastructure to

salary of the extension workers.

Using an evaluation of AFMA progress conducted by DA in 2000 to 2001 as the

standard, some constraints are likely to happen. These are political intervention,

delayed releases of allowances, cash allocation, and institutional problems.

Political intervention would result to some financial portion of AFMA to be utilized

on some other projects and programs that are not within AFMPS identified strategies

and activities. There is also the probability of delayed payments which will cause

tremendous problem on seed production. Lastly, the problem with the institutionalization

is diversion of the bulk of AFMA budget for extension/training to the payment for

incentive allowances of LGU agriculture technicians instead of going to actual

production program interventions. The lack of good relationship between LGU and the

DA-RFU will also put constraints since the DA can no longer tap the LGU agriculture

55


January-June 2012 Accomplishment Report, ARMMIARC (ppt). 57

Mr. Tong Abas, Planning Officer of ARMMIARC.

41



staff to fully support DA program implementation. The LCEs lack of support in terms of

traveling allowances, supplies and materials to its agriculture extension workers will also

hinder the implementation and monitoring of DA programs.

42



V. Policy Recommendations

A. Criteria for Recommending Alternatives

In recommending a policy alternative, its effectiveness and feasibility must be

identified before branding it as the best option. The effectiveness of an alternative

measures its probability to achieve its defined goals and objectives while the feasibility

refers to the possibility of the policy alternative will be enacted and implemented by the

government. The following are the three identified alternatives: (A) Strengthen the roles

and functions of DA-ARMMIARC or the policy alternative 1; (B) Strengthen RA 9700

also known as the Comprehensive Agrarian Reform Program Extension with Reforms

(CARPER) or the policy alternative 2; and (C) Tighten the Relationship Between DA and

LGUs in delivery of support services to the farmers or the policy alternative 3.

Different analytical tools have been employed to identify the best alternative in

addressing the social problem. The first tool was the Bardachs Typology to measure

the feasibility of the alternatives.58

Table 3. Measurement of Feasibility of Policy Alternatives Using Bardachs Typology.

Policy

Alternative

Administrative

Feasibility

Financial

Feasibility

Political

Feasibility

Social

Feasibility

Technical

Feasibility Average

1 4.2 4.0 4.8 4.3 4.0 4.26

2 2.8 3.4 3.0 2.9 3.6 2.43

3 3.4 2.8 3.1 4.0 3.2 3.3

Scale: 4.3-5.0 = Very High 2.5-3.3 = Medium 0-1.5 = Very Low 3.4-4.2 = High 1.6-2.4 = Low

58

This is only an assumption made by the policy analysts. If full policy research will be done, the analysts will conduct actual focus group discussions with concerned stakeholders and other data collection procedures to obtain more objective results. With these, the analysts could conduct a more quantitative and qualitative analysis.

43



The table below was formulated to measure the effectiveness of the alternatives

in catering the needs of the farmers with regards to the contributory factors to low rice

productivity.

Table 4. Measurement of Effectiveness of Policy Alternatives.

Contributory Factors in

Low Rice Productivity Alternative 1 Alternative 2 Alternative 3

Farm Inputs 5 0 5

Techniques and strategies 5 0 4

Governments support (subsidies) 5 4 5

Tenancy 0 5 0

Type of seeds 5 0 4

Needs for Soil testers 5 0 0

Infrastructure 0 0 5

AVERAGE 3.57 1.29 3.29

NOTE: The rating scale is the same as presented in Table 3.

The following table was the summary of ratings given by the policy analysts to

the three policy alternatives. The alternatives were rated accordingly to its feasibility and

to its effectiveness to address the social problem.

Table 5. Effectiveness and Feasibility Matrix of the Policy Alternatives.

EFFECTIVENESS

FEASIBILITY

HIGH MEDIUM LOW

HIGH Policy

Alternative 1

Policy

Alternative 3

MEDIUM Policy

Alternative 2

LOW Policy

Alternative 3

The ratings below were discussed in a cumulative order, starting with the

weakest to the strongest policy alternative. Feasibility was measured based on five

aspects: Administrative, Financial, Political, Social, and Technical. On the other hand,

44



the effectiveness was based on the consideration of the alternatives efficacy in

answering the causes of the social problem.

Alternative 2 was rated medium in both feasibility and effectiveness due to the

following reasons stated by the policy analysts. Firstly, owning the land they till cannot

guarantee an increase in their productivity. Farm inputs and knowledge is still the most

significant tools in increasing the yield. Secondly, the support from the government

would be utmost needed to secure the availability of farm infrastructures and inputs

since support from the land owner would cease. Lastly, ARMM was the least recipient

of the land distribution program of the CARL. In fact, from 1972 up to 2010, only 66% of

the total land to be given to the region was distributed.59

Alternative 3 was rated high in effectiveness but medium in feasibility. With full

support from the LGUs, it is assumed that every project would be executed with utmost

dedication and proper implementation. Moreover, LGUs have direct contact with its

constituent, thus, dissemination of information and identification of farmers who need

help the most would be easier since they will be dealing with their own people.

However, it has been a fact that in each proposed projects, the DA and LGUs concern

differs, depending specifically on the implementer whether or not hes an ally of the

present administrator.

Alternative 1 was rated high in both effectiveness and feasibility because

although it is not the priority of the government, it contributes significantly in improving

the rice yield in ARMM. With proper deliberation and implementation of strategies in

farming, lesser inputs with higher farming produce would be at hand. Also, the potential

of the land could be maximized by shifting, for instance, to three cropping. Data showed

59

Agricultural Indicators System Report: Redistribution of Land, BAS.

45



that 12% in the SOCCSKSARGEN and some in Western Visayas have already tried

three cropping in 2009.60 However, only 1.54% have tried it in ARMM. These things

could also be enjoyed by the ARMM populace if functions and role of ARMMIARC

would be strengthened. In addition, 61% of the farmers demanded that the soil

testing/analysis should be improved for they believed in its capacity to improve rice

yield.61

Furthermore, alternative 1 is the only alternative that is politically neutral and is

suitable to every stakeholder for it does not require much funding and involvement from

them. It would also aid in providing some of the ARMM people in earning an extra

income by helping the farmers. Since more produce would require more manpower,

farmers would need a hand from outsiders or non-farmers.

It is evident in the matrix that the preferred policy alternative to be undertaken in

resolving the social problem in low rice productivity in ARMM is alternative 1. It has high

effectiveness and most importantly, it has high feasibility. The second best alternative is

the alternative 3 and the least preferred alternative is the alternative 2.

B. Description of Preferred Alternative

Strengthen the role and functions of DA-ARMMIARC (Policy Alternative 1)

The preferred policy alternative is to enhance DA-ARMMIARC by developing the

laboratory facilities, increasing the number of demo farms to ensure dissemination of

information, and first hand transfer of techniques from experts to farmers by the aid of

consultation hour between the rice experts and farmers. With these, problems

60


Ibid.

46



encountered due to absence of personnel in the center in addressing farmers dilemmas

caused by the unstable government in the region will be avoided. Furthermore, Mr.

Tong Abas of ARMMIARC stated: Every time the national administration changes, the

heads of different offices were also terminated. Due to this practice, proposed projects

were mostly disapproved while the on-going one was postponed and worse thing is it

will have to be ceased. Things like this can be avoided through itemizing the

employees. Once they were permanently hired, they cannot be moved to other places

without valid reasons. Thus, projects they are handling have the chance to be

implemented on time with met requirements.

When ARMMIARC will be strengthened, it will ensure the availability and

accessibility of necessary agricultural information. Such knowledge and learnings that a

farmer could acquire are: (1) new technologies and modern strategies in rice farming;

(2) complete guidelines on the proper application of organic and inorganic fertilizers

specifically the appropriate amount and mixture suitable for the soil type of their rice

fields; (3) operational instructions of farm equipment and implements such as soil

fertility testers and sprayers and (4) resolutions to other farming problems. With such

improvements brought by the centers, it is certain that the yields of rice farmers in

ARMM will significantly increase.

With the strengthened ARMMIARC and ROSes, programs are expected to be

widespread and problems would be properly addressed since needed equipment and

implements will be available at the nearest place for better catering of services and

functions. MAO would be utilized and farmers potentials within the municipalities would

be maximized.

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Impacts of Research, Development and Extension

Public goods such as research and development, and extension have long-term

impacts in rice productivity.62 Public goods are important because of the following

bases: (1) its benefits are shared by the community; (2) high returns on investment and

long-term impacts are attained; and (3) they are not readily provided by the private

sector, but they are important to society as a whole. However, private goods such as

subsidies on fertilizer have benefits that are limited to target groups. Moreover, it only

has short-term impacts and costs too much to the government. The impact of research

and development, infrastructure, and extension to rice production are estimated to be

25%, 40%, and 15%, respectively (Appendix 4). Moreover, the returns on investments

on different public goods are 77.1% for research and development, 80% for extension,

and 18% for irrigation.63

Furthermore, one of the key success factors of Asian agriculture and fisheries is

a well-budgeted research and development program, accompanied by human resource

development of scientists and researchers that engages universities and private

sector.64 As shown in Appendix 5, the countries of China, India, Thailand, and Vietnam

ranked the agriculture research and development as the factor which highly contributes

to the success of their agricultural production.

62

Balisacan as cited in the MTPDP for 2010-2016 Formulation Reference Documents. 63

Ibid. 64

Experts Review of the AFMA (2007).

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Agricultural extension must also be strengthened to improve rice productivity

because good technologies, government policy and farming support and private sector

interventions will be useless if these will not reach the intended clientele the farmers.65

It is estimated that extension contributes 15% in the total increase in rice yield. In

accordance to sections 90 and 92 of the AFMA as well as section 17 of the LGC,

extension is basically a collaborative effort of national government agencies and the

LGUs. LGU officials must effect change in their extension staffs work ethics by

sincerely and consistently modelling integrity and accountability in public service.66

C. Outline of Implementation Strategy and Policy Advocacy

This policy paper advocates the issue on the high demand for rice commodity in

ARMM parallel with the low volume of rice supply in the region. Furthermore, the

objective of the advocacy is to raise awareness of the long term impacts and benefits of

RD & E and in order to prioritize the allocation of larger budget for its functionality (see

Appendix 13).

The target policy actors of the advocacy are: (1) Proceso J. Alcala (Secretary,

DA); (2) Sen. Aquilino Pimentel III; (3) District Representatives of ARMM; (4) Regional

Legislative Assemblymen; (5) Provincial Governors of ARMM; and (6) Mayors of various

municipalities of ARMM. The advocacy plan will be pursued through the following

activities:

65


Ibid.

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I. Lobbying with lawmakers

A. Identifying champions. These champions will spouse the advocacy in the

House of Representatives and Senate. They will be responsible for the

endorsement and recommendation of DA budget increase during bicameral

meeting.

B. Persuading champions. Several meetings with the identified champions