Overseas Fieldwork Report 2023:

The Municipality of Pili, Camarines Sur,the Philippines

Graduate School of International Development
Nagoya University

Overseas Fieldwork Report 2023

The Municipality of Pili, Camarines Sur,the Philippines

March 2024
Graduate School of International Development
Nagoya University
Nagoya, Japan

Overseas Fieldwork Report 2023
Los Baños, The Philippines
Copyright © GSID 2024

Graduate School of International Development, Nagoya University
Furo-cho, Chikusa-ku, Nagoya, Japan 464-8601
https://www.gsid.nagoya-u.ac.jp/index-en.html

Acknowledgments
The OFW 2023 committee wishes to extend our sincere appreciation to the individuals and institutions
who have generously supported and contributed to the success of this year’s program. First and foremost, we
express our heartfelt gratitude to the people of the Municipality of Pili, Camarines Sur, for their warm welcome
and hospitality. We are incredibly grateful to the local authorities, including the Honourable Mayor Tomas P.
Bongalonta, the Honourable Vice Mayor Francis B. Belen, the representatives of the Sangguniang Bayan, andother officials of the municipal government, for their generous assistance and cooperation during our fieldresearch. Our special thanks to the faculty and staff of Central Bicol State University of Agriculture (CBSUA)
who provided us with exceptional support and encouragement during our time in Pili. We are especiallygrateful to Dr. Alberto N. Naperi, CBSUA President; Dr. Emerson L. Bergonio, CBSUA Vice President for
Academic Affairs; and Dr. Ana E. Miraña, CBSUA professor and former Vice President for Academic Affairs.
We also would like to express our sincere gratitude to all those who kindly provided us with precious
information during interviews. We could not have accomplished the field research without their kind support.
Next, our appreciation goes to the faculty of the College of Public Affairs and Development (CPAf),
University of the Philippines Los Baños (UPLB), for co-organizing this program. Our special thanks go to Dr.
Evelie P. Serrano (co-chair of OFW 2023), Dr. Maria Luz L. Malabayabas, and Dr. Miriam Caryl DL. Carada,
for their generous guidance and mentorship to the student participants. We must acknowledge the name of Dr.
Jose V. Camacho, Jr. (Chancellor of UPLB) and Dr. Rowena DT. Baconguis (Dean of CPAf) for their invaluable
support and encouragement. Participants of OFW 2023 also received tremendous support and assistance fromULPB graduate students who also work for CBSUA. We would be greatly remiss if we did not thankImmaculate E. Falabi, Don Ramti Bendana, and Cherry Love Montales for their immense contribution throughthe joint work before and during the field research.
We must also acknowledge all the experts who have provided valuable lectures and guidance to ourparticipants during the preparatory seminars and field research. We extend our wholehearted gratitude to Dr.
Wataru Kusaka (Tokyo University of Foreign Studies), Dr. Aser B. Javier (president, Elkhorn GovernanceConsulting), Dr. Agustin L. Arcenas (CPAf UPLB) Dr. Akinari Hoshino (Nagoya University), and Dr. Takashi
Sakai (Nagoya University) for sharing their personal experiences and provided valuable insights for ourfieldwork. We would also like to thank our dedicated teaching assistants, Juliano Hansley Adriano and Gladys
Bongapat, for their dedication and active engagement in this learning experience. We thank Dr. Thomas Kabara
for the English editing of this volume.
Francis Peddie
Associate Professor
Chair of OFW 2023 Committee
Graduate School of International Development
Nagoya UniversityiIntroduction
The thirtieth Overseas Fieldwork (OFW 2023) of the Graduate School of International Development(GSID), Nagoya University, was conducted in the Municipality of Pili, Camarines Sur, Philippines, from
September 9 to 23, 2023. Each year, GSID carries out OFW in a developing country in Asia in cooperation
with a local partner university of GSID. In the Philippines, GSID has conducted eight successful OFWs since
1994. This year, GSID collaborated with the College of Public Affairs and Development (CPAf), Universityof the Philippines Los Baños (UPLB), to implement the OFW. Building on the long-standing partnership
between the two universities, the OFW 2023 provided an opportunity to strengthen further GSID’s ties foracademic exchange and collaboration with UPLB as well as Central Bicol State University of Agriculture(CBSUA) in the Municipality of Pili.
The OFW 2023 program covered a three central pillars of the GSID curriculum relating to development:
economics, education, and governance. The economics working group investigated the potential of expanding
and developing Pili’s agrotourism sector and some of the challenges faced in realizing this development goal.
The education working group examined the difficulties mainstream schools may encounter when trying toaccommodate the needs of students from indigenous communities and provided evidence-based suggestions
for how to succeed in this vital endeavour. Finally, the governance working group analysed the consultation
methods used by the municipal government regarding the renovation of the Pili public market as an exampleof accountable democratic governance. The students conducted their research in various communities in andaround Pili and focused on an integrated approach to understanding the connections between different
development actors in the area and their impact on the overall development of the municipality.
On September 20, the students presented their preliminary research findings to at CBSUA to local
authorities, resource persons and stakeholders, who provided feedback and suggestions for further
improvement. A second preliminary presentation was given at CPAf UPLB on September 22, and a final
revised version of the results was given at GSID on November 8. The invaluable advice and suggestions
received from academics and stakeholders were subsequently integrated by the three working groups into
producing this final report. All participants involved in OFW 2023 sincerely hope the results of the threeresearch projects will be of use to our friends and collaborators in the Municipality of Pili.
The OFW 2023 program was a significant milestone for GSID’s relationship with UPLB and expanded ouracademic collaboration in the Philippines to a new and valued partner, CBSUA. We at GSID are continuously
grateful for the exceptional relationship we enjoy with our partners in the Philippines and look forward to
many fruitful years of cooperation to come. On behalf of the students, faculty and staff of GSID, I reiterate our
gratitude to all the people who made OFW 2023 possible and enriched the lives and professional growth of theparticipants. Maraming, maraming salamat po!
Francis Peddie
Associate Professor
Chair of OFW 2023 Committee
Graduate School of International Development
Nagoya UniversityiiTable of Contents
Acknowledgments ............................................................................................................................ i
Introduction ..................................................................................................................................... ii
Table of Contents............................................................................................................................iii
List of Participants .......................................................................................................................... v
Program of OFW 2023................................................................................................................... vi
The Municipality of Pili .................................................................................................................. 1
Working Group 1 (Education)
Indigenous Peoples Education in Pili, Camarines Sur, Philippines: Issues, Challenges, andRecommendations ........................................................................................................................... 3
1. Introduction ................................................................................................................................................ 6
2. Literature Review ....................................................................................................................................... 8
3. Methodology............................................................................................................................................. 10
4. Findings .................................................................................................................................................... 14
5. Analysis of the Challenges and Issues in IPEd ......................................................................................... 19
6. Proposed Action Plan ............................................................................................................................... 21
7. Conclusion ................................................................................................................................................ 24
8. Limitations and Recommendations for Future Study ............................................................................... 25
References .................................................................................................................................................... 26
Acknowledgments ........................................................................................................................................ 29

Working Group 2 (Governance)
Decision-Making and the Pili Public Market Expansion: A Case Study on the Municipality of
Pili's Approach to Stakeholder Involvement .............................................................................. 31
Acknowledgments ........................................................................................................................................ 32
1. Introduction .............................................................................................................................................. 34
2. Review of Related Literature.................................................................................................................... 36
3. Case Study of the Pili Market Expansion ................................................................................................. 39
4. Methodology............................................................................................................................................. 40
5. Results and discussion .............................................................................................................................. 41
6. Summary and Conclusion......................................................................................................................... 49
7. Implications of the Study.......................................................................................................................... 50
8. References ................................................................................................................................................ 52
9. Appendices ............................................................................................................................................... 53

iii

Working Group 3 (Economics)
Potential of Agritourism Sites Development: A Case Study of Selected Farms in Pili ........... 63
1. Introduction .............................................................................................................................................. 65
2. Literature Review ..................................................................................................................................... 66
3. Research Design ....................................................................................................................................... 69
4. Findings .................................................................................................................................................... 76
5. Conclusion ................................................................................................................................................ 83
Acknowledgement ........................................................................................................................................ 84
References .................................................................................................................................................... 85
Appendix ...................................................................................................................................................... 87iv

List of Participants
Faculty Members (7)Working Group

Advisors from
GSID, Nagoya University

Advisors from
University of the Philippines Los
Banos (UPLB)

WG1: Education

ASHIDA Akemi

Evelie P. SERRANO

WG2: GovernanceFrancis PEDDIE

Miriam Caryl DL. CARADA

WG3: Economics

HIGASHIMURA Takeshi

Maria Luz L. MALABAYABAS

Logistics/Coordination

SUZUKI Shigesato

Assistants from UPLB (3)Working GroupName

WG1: Education

Cherry Love MONTALES

WG2: GovernanceImmaculate E. FALABI

WG3: Economics

Don Ramti B. BENDAÑA

GSID Students (14)Working GroupWG1: Education

WG2: Governance

Name

Country

KAWACHI Sumie

Japan

MYAT Thu Mon

Myanmar

MAEHARA Miku

Japan

SATO Yoko

Japan

YAMAMOTO Koki

Japan

YOH Motoka

Japan

CAROLINO Maria Patricia Danothe Philippines

IGARASHI Kazuki

Japan

ISTHOMBU KANKANAMGE Wasanthi Nayana
Wickramarathne

WG3: Economics

Sri Lanka

TAKEMURA HinaJapan

CORONEL MENDOZA Myrian Francisca

Paraguay

DONG Xingwei

China

LI Xiaomeng

China

SABAI Phu

Myanmarv

Program of OFW 2023
Preparatory Seminar at GSID
Date

Time

Title of the Lecture

Lecturer(s)OFW Committee

Apr. 19(Wed)

14:45-16:15

Apr. 26(Wed)

14:45-16:15

Introduction to the Philippines andMunicipality of Pili

May. 10(Wed)

14:45-16:15

Philippines 1: Education Issues

Introduction & Team-building

Dr. Evelie P. Serrano(UPLB)
Dr. Evelie P. Serrano(UPLB)
Dr. Evelie P. Serrano(UPLB)
Dr. Wataru Kusaka

May. 17(Wed)

14:45-16:15

Philippines 2: Philippine Society

May. 24(Wed)

14:45-16:15

Philippines 3: Governance in the Philippines(Tokyo University ofForeign Studies)
Dr. Evelie P. Serrano(UPLB)
Dr. Aser B. Javier (Elkhorn
Governance Consulting)
Dr. Evelie P. Serrano(UPLB)
Dr. Agustin L. Arcenas

May 31(Wed)

14:45-16:15

Philippines 4: Economic Issues

Jun. 7(Wed)

14:45-16:15

Group presentation to share research interests

14:45-16:15

Conducting fieldwork

16:30-18:00

Research ethics

14:45-16:15

Making a research proposal

14:45-16:15

Qualitative research

16:30-18:00

Quantitative research

Dr. Francis Peddie(Nagoya University)

Jun. 14(Wed)

Jun. 21(Wed)(UPLB)
Dr. Evelie P. Serrano(UPLB)OFW Committee
Faculty members fromUPLB

Dr. Isamu Okada(Nagoya University)
Dr. Francis Peddie(Nagoya University)
Dr. Francis Peddie(Nagoya University)

Jun. 28(Wed)

Dr. Okada Isamu(Nagoya University)viDr. Francis Peddie(Nagoya University)
Jul. 5(Wed)

14:45-16:15

Shigesato Suzuki

Data analysis and presenting results(Nagoya University)
Dr. Evelie P. Serrano(Nagoya University)

Jul. 12(Wed)

Jul. 26(Wed)

14:45-16:15

Group presentation on the research proposal

OFW Committee
Faculty members from
UPLB
Gladys Fusingan
Bongapat

14:45-16:15

Filipino language class(Nagoya University)
Hansley Adriano Juliano(Nagoya University)
Dr. Akinari Hoshino

Aug. 2(Wed)

14:45-16:15(Nagoya University)

Risk Management

Dr. Takashi Sakai(Nagoya University)

Schedule of Fieldwork in the Philippines
Date
Sept. 8(Fri)
Sept. 9 (Sat)Time

Schedule

13:00 - 14:00

Pre-departure Orientation

11:00

Meet at Chubu International Airport

13:25 - 17:00

Nagoya - Manila (PR 437)

11:55 - 13:15

Manila - Naga (DG 6117)

Sept. 10 (Sun)Meeting and coordination with UPLB faculty advisor and graduate
assistant
7:30 - 8:00

Sept. 11 (Mon)

8:00 - 10:00

Introduction of OFW participants at CBSUA flag-raising ceremony
Introduction to the research area at CBSUA with faculty and local
officials

10:00 - 11:30

Visit to the Municipality of Pili town hall

13:00 -

Group work (data collection)

Sept. 12 (Tue)Group work (data collection)

Sept. 13 (Wed)Group work (data collection)

Sept. 14 (Thu)Group work (data collection)

Sept. 15 (Fri)Group work (data collection)

Sept. 16 (Sat)Group visit to the Peñafrancia Festival & free timevii

Sept. 17 (Sun)Group visit to Mount Mayon & free time

Sept. 18 (Mon)Group work (data analysis)

Sept. 19 (Tue)Group work (data analysis)

Sept. 20 (Wed)Sept. 21 (Thu)

Sept. 22 (Fri)

Sept. 23 (Fri)

13:00 - 17:00

Preliminary results research presentation for local stakeholders at
CBSUA

18:30 - 21:00

Thank you party

13:40 - 15:00

Naga - Manila (DG 6118)

15:00 - 17:00

Manila - Los Baños (Van)

13:00 - 17:00

Presentation of preliminary research results at CPAf, UPLB

18:30 - 20:00

Farewell party

2:30 - 3:30

Los Baños - Manila (Van)

6:40 - 11:50

Manila - Nagoya (PR 438)

Interim Presentations of Research Findings
The first interim presentation of research findings was held in Central Bicol State University of Agriculture(CBSUA) on September 20th, 2023. Each working group presented for 20 minutes, followed by a Q&A session.
The second interim presentation of research findings was held in College of Public Affairs and Development(CPAf), University of the Philippines Los Baños (UPLB) on September 22th, 2023. Each working grouppresented for 20 minutes, followed by a Q&A session.

Presentation of Research Findings at GSID
The presentation of research findings was held at GSID by each working group to disseminate findings andcollect feedback from colleagues on November 8th, 2023.

viii

The Municipality of Pili
Evelie P. SERRANO
College of Public Affairs and Development, University of the Philippines Los Baños
An emerging center of commerce and the gateway to tourist attractions in the Bicol Region, theMunicipality of Pili serves as the capital of the Province of Camarines Sur in the Philippines. The governance,
economics, and education in this municipality stands as a testament to community participation and inclusive
development.
The name “Pili” came from either the pili nut, which is a main commodity in the area; or the Bicol word
“pinili,” which means “chosen” or “selected.” It was said that the Americans had chosen Pili to be the newprovincial urban center after establishing the town in the early 1900s, because Naga City, which wasestablished by the Spaniards, was prone to flooding.
Regardless of the etymology of its name, Pili remains the chosen place for residence, business, andeducation for many Bicolanos.
Governance
Pili is part of the third district of Camarines Sur and is politically subdivided into 26 barangays or villages.
Like other municipalities in the Philippines, Pili is governed by a municipal mayor. There is a vice mayor anda legislative council consisting of eight municipal councilors, the president of the Sangguniang Kabataan(youth council), and the president of the Association of Barangay Councils.
Governance in Pili is characterized by a commitment to transparency, accountability, and community
participation. Under the leadership of the municipal mayor and the local council, the local government works
to address the needs of its people. Moreover, it crafts policies and programs aimed at promoting participatory
governance, economic development, and social welfare. One proof of the municipality’s commitment topromoting active citizenship is the involvement of various stakeholders in the decision-making approach in
the Pili Public Market expansion.
Economics
A first class municipality, Pili is an agriculture-based economy. Its primary economic activities revolvearound agriculture, with pili nuts, coconut, rice, corn, and vegetables as major sources of income for local
farmers and entrepreneurs. Pili nuts, in particular, are in demand as an ingredient for candies andconfectioneries and have thus created economic opportunities for local producers.
Pili is strategically located along major transportation routes, thereby bolstering its economic vitality and1attracting investments in various sectors. The Naga Airport is in Pili, which makes this vibrant town a gateway
to tourism in Camarines Sur. Pili is also the location of the CamSur Watersports Complex, a popular tourist
destination for its watersports activities and resort facilities. On the other hand, an emerging tourism attractionin Pili are the different agritourism farms, which are established as travel destinations for both educational andrecreational purposes.
Education
A cornerstone of Pili’s development strategy, education remains a priority of Pili local government. Pili
has a network of public and private schools offering basic education and higher education. Pili is home to themain campus of Central Bicol State University of Agriculture (CBSUA), one of the leading agricultural
universities in the Philippines. CBSUA provides a foundation for academic excellence and lifelong learning tostudents from different parts of the Bicol Region. Furthermore, the local government also provides communitybased skills training to adults to help them secure a job.
But despite the government’s efforts to provide quality education for all, challenges remain in the education
sector. For example, remote areas in Pili that are inhabited by indigenous peoples (IP) often lack educational
facilities. Those that have schools have limited classrooms. Poverty is also rampant in IP communities, which
affects student progress and academic performance. In these marginalized communities, however, one would
meet the most dedicated educators who strive to make inclusive education able to IP children.
The Way Forward
Pili is a paragon of a rurban community in transition that is committed to achieving sustainable
development and social equity. The collaborative efforts of various stakeholders are crucial in addressing theissues and challenges in governance, economics, and education. As the municipality moves forward, its strong
commitment to good governance, economic progress, and quality education ensures a brighter future foreveryone who chooses Pili as their home.

2

Working Group 1
Education

Indigenous Peoples Education in Pili, Camarines Sur, Philippines:
Issues, Challenges, and Recommendations

Group Members:
Koki Yamamoto
Miku Maehara
Motoka YohMyat Thu Mon
Sumie Kawachi
Yoko Sato

UPLB Research Assistant:
Cherry Love B. Montales

Advisors:
Prof. Evelie P. Serrano (UPLB)
Prof. Akemi Ashida (GSID)

3

Acronyms
CBSUA

Central Bicol State University of Agriculture CSR

DepEd

Department of Education

DSWD

Department of Social Welfare and Development ICC Indigenous Cultural Communities

IKSP

Indigenous Knowledge Systems and Practices IP

IPEd

Indigenous Peoples Education

LGU

Local Government Unit

NCIP

National Commission on Indigenous Peoples NGOs Non-governmental Organizations

OECD

Organization for Economic Co-operation and Development PTA

UNESCO

United Nations Educational, Scientific and Cultural Organization

4

Corporate Social Responsibilities

Indigenous People

Parent-Teacher Association

Table of Contents
1. Introduction
1.1 Background
1.2 Problem Statement
1.3 Research Questions and Objectives
1.4 Scope of the Study
2. Literature Review
2.1 Indigenous Peoples Education
2.2 Issues and Challenges in Indigenous Peoples Education in the Philippines
3. Methodology
3.1 Research Site
3.2 Data Collection
3.3 Ethical Considerations
4. Findings
4.1 Profile of Research Participants
4.2 Current Educational Planning and Implementation for IPs
4.3 Challenges and Issues in IPEd in Pili
5. Analysis of the Challenges and Issues in IPEd
6. Proposed Action Plan
Strategy 1: Seeking Alternative Sources to Cover Limited Budgets
Strategy 2: Motivating IP Parents for their Children's Education
Strategy 3: Providing Alternative Means to Address Financial Capacity of IP Families
Strategy 4: Enhancing Cooperation Among Education Stakeholders
Strategy 5: Elevating the awareness of IP culture
7. Conclusion
8. Limitations and Recommendations for Future Study
References
Acknowledgements5

1. Introduction
The 2023 World Bank report estimates the global indigenous population at 476 million, constituting 6% of
the global populace but 19% of the impoverished. This disparity is evident in their access to quality education.
Indigenous peoples (IPs) often lack resources and culturally appropriate education, and it makes them sociallymarginalized. Enhancing their educational access is vital for sustainable community development and reducing
inequalities (UNESCO, 2019).
The Philippines has made early efforts to correct the education gap for IPs, as evidenced by the fact that it
was one of the first countries in Asia to enact a law recognizing the unique needs of indigenous peoples.
However, even today, many challenges remain in its implementation of indigenous peoples education (IPEd).
Therefore, this study sought to understand the implementation of education for IPs and the challenges
experienced in IPEd from three perspectives: students, teachers, and community. Moreover, it aimed to develop
an action plan to improve the delivery of education among IPs in Pili, Camarines Sur.
1.1 Background
The UN Declaration on the Rights of Indigenous Peoples was published in 2007, and it safeguards theeducation rights of indigenous peoples. Article 14 of the declaration asserts that indigenous communities
have the right to establish and oversee their educational systems and institutions, delivering education in theirnative languages and employing culturally appropriate teaching and learning methods (OHCHR, 2007). Prior
to the indigenous people's education rights, it is crucial to acknowledge the history of significant
international endeavors in this regard over the years. The following table shows the international movements
to protect the rights of indigenous people through legal framework.
Table 1: International Movements to Protect Indigenous Peoples’ Rights
Year

International Movements in Indigenous Rights

1948

Adoption of Universal Declaration of Human Rights by United Nations General
Assembly

1960

Enactment of the Convention and Recommendation against Discrimination in
Education by UNESCO

1982

Establishment of “Working Group on Indigenous Populations” within UN

2007

UN Declaration on the Rights of Indigenous Peoples by General Assembly

2015

Inclusion of Goal 4 in “2030 Agenda for Sustainable Development”

Recognizing historical international efforts to protect IP rights, the Philippines has implemented laws andframeworks like the Indigenous Peoples’ Rights Act of 1997 and the Enhanced Basic Education Act of 2013
to safeguard IP education rights.

6

Table 2: Philippines’ Major Policies on Indigenous Education

Year

Major Policies on Indigenous Education in Philippines

1997

Enactment of Indigenous Peoples’ Rights Act of 1997

2011

Adoption of National Indigenous Peoples (IPs) Education Policy Framework

2013

Implementation of the Enhanced Basic Education Act of 20132015

Development of Indigenous Peoples Education Curriculum Framework

Despite efforts by international organizations and the Philippine government, indigenous education faces
significant challenges. First, teachers need training to address the unique needs of indigenous students andmust be versed in both national and indigenous languages and cultures (UNESCO, 2019; King &Schielmann, 2004). The curriculum also requires adaptation to be inclusive of indigenous contexts(UNESCO, 2019). The Department of Education (DepEd) recognizes the struggle to provide culturally
relevant education (DepEd, 2020), and studies show language barriers in areas like Nueva Ecija and Aurora(Eduardo & Gabriel, 2021).
Moreover, for indigenous communities, mainstream education risks breaking intergenerational ties anddiluting indigenous knowledge and culture (The Episcopal Commission on Indigenous Peoples et al., 2007).
Community engagement in education such as involving a collaborative approach in policy and decisionmaking is crucial. Finally, the geographic remoteness of indigenous areas, often lacking basic facilities likeschools and health centers, limits educational access for indigenous children.
1.2 Problem Statement
The absence of an IP school in the municipality of Pili in the province of Camarines Sur, Philippines
represents a pressing and consequential issue that demands a thorough investigation to uncover its underlying
reasons. Consequently, indigenous students in the area are attending mainstream schools, where they are
exposed to a curriculum tailored to the majority population.
This research aims to investigate the contributing factors behind the absence of an IP school in Pili andcomprehend the resulting impact on the educational experiences of indigenous students. Additionally, thestudy seeks to gain insights into how parents and the indigenous community perceive mainstream education
for their children.
By addressing these critical aspects, the research endeavors to develop a pragmatic action plan toeffectively tackle the educational challenges faced by indigenous education in Pili, Camarines Sur,
Philippines. Ultimately, the findings of this study aspire to contribute significantly to the enhancement of
inclusive and equitable educational opportunities for indigenous communities in the municipality.
1.3 Research Questions and Objectives
While the Philippines has the distinction of being the first country in Asia to incorporate a culturally
responsive education plan for the indigenous communities into its national policy, the implementation of
education for IPs has certain limitations. In order to build upon the country's pioneering efforts to indigenous
7

education in the Philippines, this study aimed to answer this research question: What strategic educational
action plan can be employed to address the challenges in IPEd in Pili, Camarines Sur, Philippines?
Specifically, the study sought to answer the following research questions:
1) What is the profile of the research participants?
2) How is education planned and implemented for IPs?
3) What are the challenges and issues confronted by teachers, students, and the local community inthe education process?
Based on the research questions, this study generally sought to develop a strategic educational action plan
to address the challenges in IPEd in Pili, Camarines Sur, Philippines. The specific research objectives are as
follows:
1) Describe the profile of the research participants;
2) Examine how education is planned and implemented for IPs; and
3) Analyze the challenges and issues confronted by teachers, students, and the local community inthe education process.
1.4 Scope of the Study
Given the time constraints, this exploratory research focused mainly on the issues and challenges in theplanning and implementation of education among an Agta community in Pili, Camarines Sur. Accordingly,
some results of this study may not apply to other Agta communities in the municipality.
Moreover, no visit to the Agta community was conducted for this study as this requires a permit from the
National Commission on Indigenous Peoples (NCIP). Interviews with the teachers, teacher-in-charge, and the
Parent-Teacher Association (PTA) president of Jose B. Velarde Elementary School in Barangay Curry wereconducted on the school premises only. An observation of the community which could have offeredadditional insights on the way of life for the Agta was therefore not feasible.

2. Literature Review
2.1 Indigenous Peoples Education
Despite the increasing recognition of Indigenous Peoples’ Rights in international society, researchhighlights persistent issues related to language, teacher training, resources, and community relationships.
Firstly, the availability of educational materials in indigenous languages remains insufficient, leading tonotable language barriers within schools (King & Schielmann, 2004).
Moreover, teacher training programs aimed at educating indigenous students are often found to beineffective, as noted by the OECD in 2017. This inadequacy in training further exacerbates the challenges
faced by both educators and students in Indigenous communities. Additionally, insufficient resources andmaterials compound the issues. Chang (2011) contends that the educational activities and lessons designed
for indigenous learners frequently fall short in addressing their unique needs, emphasizing the pressing needfor more tailored and culturally sensitive approaches.
Lastly, building relationships with indigenous communities is important. Notably, one of the differences
between non-indigenous and indigenous communities is that for the latter, schools can often be an
8intimidating and unwelcoming environment where the parents of indigenous students have negative
memories about their school experience (Santoro, 2011). As a result, indigenous parents are often hesitant tosend their children to school, leading to low school participation rates and high drop-out rates. Thus, theteachers of indigenous students need to build relationships with the indigenous community inside and outsideof school.
2.2 Issues and Challenges in Indigenous Peoples Education in the Philippines
Despite being the first in Southeast Asia to tackle Indigenous People’s Education, the Philippines faces
significant challenges in access, teacher training, language, and materials. According to the Department of
Education, Philippines (2011), the country faces issues in access to basic services and limited opportunities
within the mainstream economy for certain IP communities, contributing to their disadvantaged position.
Furthermore, Reyes (2022) highlighted inadequate training by the local administration to familiarize
teachers with indigenous culture and language. Indigenous Peoples Education (IPEd) teachers also lackeffective training and skill development resources for localizing curriculum (Cardenas, 2018). Although
DepEd provides pre-service teacher training, seminars, and workshops to navigate through the new IPEd
curriculum, this training is insufficient or irrelevant for the IPEd teachers to address the needs of different
students adequately (Ocampo & Delgado, 2014). Most IPEd teachers have limited knowledge about
appropriate pedagogy for indigenous children and the intricacies of indigenous identity and culture despite
their sincere intention and dedicated effort in teaching (Santoro, 2011).
The language gap between teachers’ knowledge of the student’s mother tongue is another prominent issue(Cansino et al., 2022). Cardenas (2018) finds that IPEd teachers face difficulties with vocabulary, spelling,
and pronunciation of their students' mother tongue. This language barrier between teachers and learners also
raises concerns about the ability of teachers to check the welfare of their students and engagement with local
stakeholders.
In the Philippines, IPEd teachers are facing the problem of not receiving teaching materials from DepEd
for indigenous learners. The IPEd teachers reveal that there is an absence of internet, electricity, digital tools
such as computers, sound speakers, and localized teaching materials specifically designed to reflect theculture and identity of indigenous students (Cardenas, 2018; Bastida Jr et al., 2022; Cansino et al, 2022).
Without the necessary resources and materials, teachers are incapable of delivering effective lessons andcreating culturally responsive as well as inclusive learning environments. Reyteran (2021) argues thatteachers in indigenous education sometimes need to reside in IP communities to foster trust and positive
relationships. The study also shows that the teachers have difficulties accessing modes of transportation as
there is a lack of regular transportation available to travel to and from indigenous communities. This burdens
IPEd teachers in transporting and accessing resources from the central city to IP communities.
Despite challenges in indigenous education, including inadequate teacher training, insufficient materials,
and language gaps, few studies address these issues comprehensively. To offer better countermeasures, avariety of perspectives needs to be considered.

93. Methodology
3.1 Research Site
Pili, situated in the coastal province of Camarines Sur, is a landlocked municipality that holds thedistinction of serving as the provincial capital in the Bicol region since 1995. It has a land area of 122.6
square-kilometers. The population, as enumerated in the 2020 Census, stands at 99,196, representing 4.80%
of the total population of Camarines Sur and 1.63% of the broader population of Bicol (Republic of The
Philippines, n.d.).
Culturally, linguistically, and ethnically Pili is led by the Bicolano people, who speak two major varietiesof the Bicol language: Central Bikol, used in Naga, and Rinconada, predominantly spoken in the southernpart of the city. Tagalog is also used in schools, and English is used as the medium of instruction in higher
education (Nacor, 2018: Republic of The Philippines, n.d.).
Despite the Bicolano majority, tribes of indigenous people known as Agta still inhabit the mountainous
areas of Pili. Originally, the Agta people were the inhabitants of the province. However, with the arrival of
the first Bikol speakers, many Agta individuals have either moved to the forests or have assimilated into thedominant Bicolano culture (Zorc, n.d.). Agta people can be classified into three groups:

a. Agta: A pure indigenous people.
b. Tabangnon: A mixture of pure Agta and lowlanders with no indigenous blood.
c. Cimaron: A mixture of pure Agta and individuals with foreign ancestry.
Picture 1: View of Pili, Camarines Sur

3.2 Data Collection
The study used both primary and secondary data sources to explore the challenges in IP education in Pili,
Camarines Sur. Primary data included semi-structured interviews with key stakeholders, guided by research
objectives to focus on challenges faced by indigenous students, teachers, and the community (see Table 3).

10

A specific focus on a public elementary school in Pili is integral to the achievement of the research
objective of analyzing educational challenges and providing an action plan to address the issues inindigenous education within Pili municipality. Jose B. Velarde Elementary School serves as a microcosm for
Pili, having both indigenous and non-indigenous students. In classroom observations, the researchers
explored student-teacher interactions, peer dynamics, and indigenous students’ performance. Teachers andthe IP coordinator in the school and the president of the PTA were also interviewed to provide their insights
on the challenges, and their recommendations and aspirations to improve the IP education.
Focus group discussions with indigenous students from the CBSUA were also conducted to identify
education challenges from student perspectives as well as their visions for upcoming indigenous students.
The director of the Regional Center for IP in CBSUA likewise participated in an interview to provide a better
understanding of the challenges and opportunities for IP students in higher education. The interview was
conducted at the CBSUA Ladawan and Museum which houses donated artifacts from indigenous
communities.

11

Table 3: Summary of Data Collection

Participants
Municipal
Administrator of Pili
Councilor in charge of
Education
Division IP
Coordinator
Secretary of the Pili
Local School Board
IP Students from
CBSUA

No. ofParticipants111elementary school

President of ParentsTeacher Association

MethodSeptemberSemi-structured

11thinterview

Yobhel Christian

SeptemberSemi-structured

Academy, Inc.

11th

interview

Department of Education

SeptemberSemi-structured

in Pili

12th

interview

SeptemberSemi-structured

12thinterview

September

Focus group

12th

discussion

SeptemberSemi-structured

13thinterview

CBSUA

Pili Municipal Hall

4

CBSUA
Jose B. Velarde1schoolTeachers in public

Date

1

IP coordinator in
public elementary

Visited location

Elementary School in
Barangay Curry
Jose B. Velarde

7

Elementary School in
Barangay Curry
Jose B. Velarde1

Indigenous People’s

1

CenterBarangay Captain of
Barangay Curry

1

13th

(A: KG-G3, B:
G4-G6)

14th

interview

SeptemberSemi-structured

14thinterview

CBSUA Ladawan Center

SeptemberSemi-structured

and Museum

14thinterview

Elementary School in
Barangay Curry

Director of Regional

discussion

Semi-structured

Barangay Curry
1

September

September

Elementary School inJose B. Velarde

Teacher in charge

Focus group

Barangay Captain’s house September

Semi-structured

in Barangay Curryinterview

15th

For the secondary data collection, a comprehensive document review was undertaken. The study
reviewed the Basic Education Act of 2013, Indigenous Peoples Participation Framework, National
Indigenous Peoples Education Policy Framework, and other government documents to understand the legal
12

framework to protect the education rights of indigenous people in the Philippines and investigate theformulation and implementation of educational policies tailored for the indigenous population by the Pilimunicipal government.

Picture2: School Environment in Jose B. Velarde Elementary School

Picture3: A classroom in Jose B. Velarde Elementary School

13

Picture4: Exhibits at the CBSUA Ladawan Center and Museum

3.3 Ethical Considerations
In accordance with “Rules on Ethical Principles for Research Involving Human Subjects,” published by
the Graduate School of International Development of Nagoya University (2022), the researchers of this study
observed the following ethical considerations.
The researchers conducted the research in a socially and scientifically respectable manner, at the sametime adhering to the regulations and laws of the research field’s authorities, such as local councils andgovernments. Researchers prioritized collecting informed consent before any data collection of personal
information and gave ample explanation to the participants. The researchers gave a clear description on paper
specifying the content, purpose, methodology of the research, any potential harms and risks, the usage andpresentation of the collection of personal data, and other significant matters. In addition, it was clarified to
the research participants that their personal information would be used solely for the specific research if theyconsented. However, it was made clear to participants that they may withdraw from the research if there were
any complications or feelings of dissatisfaction. If a participant withdrew, researchers agreed to immediately
pause any research regarding that individual and dispose of any data gathered on him or her.
The collection of personal information was done safely and securely, and an effort was made to minimize
any physical and mental burden on the participants during data collection. Furthermore, the data was handled
carefully and not published publicly or presented without consent.
Prior to conducting this study permission was obtained from the Department of Education, emphasizing
ethical principles such as confidentiality, free and prior informed consent, and respect for cultural
sensitivities during interviews. Notably, the research refrained from gathering any content related toindigenous knowledge systems and practices, recognizing the need for specific permission from the National
Commission of Indigenous People.

4. Findings
4.1 Profile of Research Participants
The profiling of participants is important to understand their roles and responsibilities. Interviews wereconducted with government stakeholders, school stakeholders, and other stakeholders. As government
stakeholders, DepEd personnel, a member of the Local Government Unit (LGU) of Pili, and a Barangay
14Captain were interviewed. From DepEd, an IP Division Coordinator participated in this research. The role of
DepEd regarding IPEd is to implement, localize, and indigenize the basic education curriculum. From LGU,
a councilor was interviewed. The role of LGU is to set a direction for educational development that meets
local needs. From the barangay, the captain of the Curry barangay was interviewed. A barangay is thesmallest political entity, and it is a fundamental unit of political structure in the Philippines (Embassy of thePhilippines, n.d.). The role of the Barangay captain is to protect and serve the people of the Barangay.
As for school stakeholders, one public elementary school (Jose B. Velarde Elementary School) waschosen, and seven teachers and one teacher in charge participated in the interviews. A teacher in kindergarten
also holds the post of IP coordinator, who is in charge of monitoring IP attendance and making a list of IP
students to submit to the district office. She was interviewed separately as an IP coordinator at first, and later,
she joined the interview as a teacher with her colleagues. There were seven teachers from kindergarten to 6th
grade. Among them, one was male, and six were female. In addition to the seven teachers, the teacher incharge was interviewed. Her role is to administrate school activities, monitor the attendance of teachers andstudents, and link school and other stakeholders, such as LGU, Barangay, and private organizations. In IPEd,
teachers play roles as first-hand educators of IP learners.
As another stakeholder, a director of the Regional Center for IP was interviewed. The role of the Regional
Center for IP in IPEd is to achieve recognition, protection, and promotion of indigenous cultures andknowledge through research and documentation.
4.2 Current Educational Planning and Implementation for IPs
Education for IPs is planned and implemented by various stakeholders, such as governments and schools.
At the government level, educational planning is done by implementing legal and policy frameworks. There
are some major legal and policy frameworks regarding IPEd in the Philippines. They are “The Indigenous
Peoples’ Rights Act of 1997,” the “National Indigenous Peoples Education Policy Framework,” and the“Enhanced Basic Education Act of 2013.”
Through “The Indigenous Peoples’ Rights Act of 1997,” the government tries to promote the rights ofIndigenous Cultural Communities (ICCs) and Indigenous Peoples (IPs), which includes rights to ancestral
domains, rights to self-governance and empowerment, social justice and human rights, and cultural integrity(The Indigenous Peoples’ Rights Act, 1997). The Act recognizes the IPs’ rights to access education andrespects the educational system of IPs (The Indigenous Peoples’ Rights Act, 1997). Through the “National
Indigenous Peoples Education Policy Framework,” which was signed in 2011, DepEd tries to “maintain an
educational system that will recognize, protect, and promote the rights and welfare of ICCs/IPs, as well as
equip them with the knowledge and skills needed to face various social realities and challenges (National
Indigenous Peoples Education Policy Framework, 2011, 15).” “Enhanced Basic Education Act of 2013” isnot only for IPs. It includes the expansion of schooling years and promotion of the use of the local language
or mother tongue in kindergarten and from Grade 1 to Grade 3 of the elementary school (Enhanced Basic
Education Act, 2013).
The government also created a Special Education Fund (SEF) by Republic Act No. 5447, which aims to
support the goals of education financially (Republic of the Philippines, 1968). SEF is a fund LGU used forbasic education (EEF, 2023). Republic Act No. 11310, also known as the 4Ps (Pantawid Pamilyang Pilipino
15

Program), aims to eradicate poverty by providing cash transfers to eligible beneficiaries, including IPs. The
Department of Social Welfare and Development (DSWD) administers the program (Pantawid Pamilyang
Pilipino Program Act, 2019).
Furthermore, the Regional Center for IP organizes the Perendes Program to research and preserve
Indigenous Knowledge Systems and Practices (IKSP) in collaboration with DepEd and the National
Commission on Indigenous Peoples (NCIP). DepEd recruits teachers and provides them with teacher
training. Teachers in Group A (teachers in kindergarten and grade one to three) mentioned 8-week curriculum
programs in DepEd Region 5, focusing on literacy and numeracy for grades one to three. In addition,teachers in Group B (teachers in grade four to six) said that DepEd conducts Reading Literacy Assessment(RLA) for IP students. In the interview with the Division IP Coordinator from DepEd, it was mentioned that
DepEd monitors the enrollment of IPs. Although officials of DSWD were not interviewed, the IP coordinatorin the school and Barangay Captain of Curry mentioned the 4Ps program, which aims to promote social
welfare. According to the IP Coordinator in the school, some IP children go to school without food, but the
4Ps program helps to reduce the number of such students. LGU provides building materials. The teacher incharge said that “[...]sometimes LGU is supporting us in the form of building materials.” In addition, the IP
Coordinator said that LGU supports a festival where IPs present their cultures. The barangay captain said thatthe barangay organizes sports activities and feeding programs. He also shares information about education
with community members, and he visits schools and talks with teachers, mainly about students’ health andmalnourishment. In the interview, the Director of the Regional Center for IP mentioned CBSUA scholarships
covering dormitory fees, allowance, and student assistance in collaboration with partner organizations.
Interviews with school staff revealed activities in four main spheres: recognition of IP cultures, classmanagement, collaboration with parents, and supply of food and goods. According to the IP Coordinator, theschool endeavors to recognize IP culture by organizing Boy Scout activities and sending IP students to thefestivals. The teachers discussed classroom management, including dividing classes based on assessments
conducted in the first week. They also said that after the class, remedial classes, mainly one to one sessions,are conducted. The school also collaborates with parents. In the interviews, they said that when students areabsent, they visit their homes and talk with their parents. In addition, they mentioned in parent-teacher
conferences, an IP garden, and monthly cleaning activities by parents. Teachers in Group A said that most of
the IP parents attend the cleaning activities. They also said that IP parents are very good at cleaning. In
addition, the teacher in charge said that the School Governance Committee (SGC) collaborates with the PTA
and decides the school budget allocation together. Teachers in Group B mentioned the supply of food andgoods. Before COVID-19, the school provided food for everyone in collaboration with NGOs and privateorganizations. Teachers provide school materials, such as papers, to students when students cannot bring theirmaterials.
4.3 Challenges and Issues in IPEd in Pili
Through the interviews, the researchers found several challenges that teachers, students, and government
stakeholders face in IPEd. First, teachers identified the lack of training opportunities on IPEd and limited
teaching materials as a problem. DepEd provides training on IPEd to improve teachers’ instructions andteaching activities. One teacher in Group A, who doubles as the IP coordinator, said insufficient training
16

opportunities exist in Pili. While schools with more teachers are prioritized and can receive more training
opportunities, schools with fewer teachers do not get enough training from DepEd. She also has not received
an invitation to join teacher training activities yet because of the small number of IP students in her school.
Also, a teacher-in-charge of Jose B. Velarde Elementary School mentioned that the way of learning islimited, and teachers need more teaching materials from the government. She said, “[...] we are not advised
to put any posters in the walls. So, we find it a big problem. What could be the way that our learners canlearn if the visual aid is not allowed anymore? Maybe because of the laptops, of the TV, or the DVD players,
we will again hasten the learning process of our students.”
Second, IP students face lots of challenges in their schools, such as discrimination, lack of selfconfidence, language barriers, poverty, difficult commute routes, and low enrollment and learningachievement.
(1) Discrimination
Student A from CBSUA mentioned that IP students often face discrimination or bullying in education.
Opinions differed on the education level where this occurs. Student A experienced bullying in elementary
school, while the IP Division Coordinator mentioned discrimination in higher education. The president of the
PTA and teachers from Jose B. Velarde Elementary School denied discrimination in their school.
(2) Lack of self-confidence
According to the IP Division Coordinator, discrimination leads to a lack of self-confidence in IP students.
He explained the reasons for the decreased number of IP in secondary school is “[...] Discrimination. In theirelementary years, they are very much proud. [...] But when they reach adolescence, when they reach evencollege, only few will say that I am an indigenous person.” Also, lack of educational opportunities is one of
the causes of lack of self-confidence. The Barangay Captain mentioned that IPs are shy and never raise their
voices because of the lack of education opportunities. Teachers in Group A also stated that IP students are shy
and have less confidence in themselves because of their high absenteeism.
(3) Language barrier
The researchers found that each student from CBSUA had different problems with language. Student Cfrom CBSUA said that he felt it was difficult to speak Tagalog, while student A said using Tagalog in classes
is helpful for him to understand the contents of classes. Regarding English, student A said English words aretranslated into Filipino and then to his mother tongue in his elementary school, and it is easy to follow theteacher’s instructions. In contrast, student B mentioned that understanding her mother tongue at school was achallenge for her since she had been using English at home. Student D has no problems with language.
(4) Poverty
Almost all interviewees mentioned poverty as one of the problems IP students face. Government
stakeholders, such as the municipal administrator and councilor in charge of education in Pili, stated that IP
parents tend to have low incomes, and the government needs to support them with meals, goodtransportation, and accommodation. Also, according to teachers in Jose B. Velarde Elementary School,
parents’ low income leads to their children’s high absenteeism because children need to work to support theirfamily instead of attending school. Student D from CBSUA talked about her problem in elementary
education, saying, “For me, it’s about financial [...] My parents can’t afford to send me to that school. Then I
prefer to work [...] I started working since when I was a grade 3.” The president of the PTA also mentioned
17

that IP students cannot wear uniforms because their parents cannot afford to buy them. The Barangay Captainsaw education as one of the solutions to poverty. However, there are not enough scholarships, and many IP
parents do not know about it, so no IP in the Barangay is currently attending university.
(5) Difficult commute routes
Difficult commute routes are also among the problems IP students face. Students A, C, and D had
difficulties commuting, which involved crossing several rivers or walking steep and rough roads for morethan 1 hour to get to school from their communities. A translator explained Student D’s experience: “So, inthe schools in the community, with volunteer teachers, they only teach them (students) how to read and write.
And so, if you want a formal education, you have to go to the DepEd school. And that is very far from theirplace. So, she has to cross three to four rivers. And then during bad weather, [...] her father would carry her
to the other side of the river because [...] the water is high and strong.” The president of the PTA also told usthat some IP students still need to walk approximately 2 km to go to school, which takes 30 minutes to 1
hour. In addition, it costs a lot for IP students to go to school, including money for accommodations andcommuting time, since schools are often located far from their homes, or there is no college in their
Barangay.
(6) Low enrollment and learning achievement
According to teachers in Group A, most IP students in Jose B. Velarde Elementary School are slow
learners. They said, “So, the IP children, who are supposed to get grade 3, tend to be ready to read, but in thecase of IP children, many of them, they have difficulty reading at grade 3. Even in writing.” Also, because ofhigh absenteeism, IP students have low learning achievement. However, their parents also do not haveenough education opportunities and cannot follow up with their children. That is why teachers sometimes go
to IP students' homes and talk with their parents to ensure IP parents send their children to school and holdone-on-one lectures for IP students after class to improve their learning achievement.
Third, the governmental stakeholders have challenges regarding budget and identifying the actual
situation of IP students. As mentioned above, one teacher in Group A said that teachers who work in schools
with few teachers have less opportunity for teacher training on IPEd. She explained that the reason is that
there is a limited budget for teacher training, and DepEd cannot afford to provide training opportunities to allschools. The president of PTA and the barangay captain also stated there is not enough support from thegovernment for IPs to go to school, and the councilor in charge of education in Pili said there needs to be
more budget for campaign activities and incentives for IPs to encourage them to go to school. In addition tothis, the IP Division Coordinator highlighted the challenge of tracking the number of IP students due to theirreluctance to disclose their identity. Some IPs, not proud of their roots due to past discrimination, may behesitant to share ethnic information. This makes it challenging for governmental stakeholders to accurately
determine the number of IP students in Pili.
Lastly, through an interview with the director of the Regional Center for IP, the researchers found that
cultural preservation is also a problem for IPs. In a focus group discussion, student C said “[...] Me, our own
mother tongue. I find it hard sometimes because high school and elementary school usually focuses on
English and other (language). So that we can, you know, like, enter out with other people. But sometimes weforgot our own mother tongue.”. According to the director of the Regional Center for IP, even older people in
IP communities do not know much about their own culture. She stated that because of the expansion of18

inclusive education, IP students have less opportunity to learn their culture, making it difficult to pass it on to
future generations. Also, the complex requirements from NCIP for researching IP cultures make itchallenging to preserve their cultures. She said documentation is essential to preserve their culture and needs
more collaborations with NCIP for further research on IP culture.

5. Analysis of the Challenges and Issues in IPEd
The researchers analyzed the challenges and issues confronted by teachers, students, and governmental
stakeholders in the education process. This will answer the third objective of this research. Based on thediverse aspects of IPEd addressed by the target interviewees, the researchers have organized the data by firstutilizing the SWOT analysis method (figure 1). By incorporating the SWOT analysis method, researchers
were able to distinguish and categorize the internal factors, strengths and weaknesses, and the external
factors, opportunities and threats, respectively, regarding IPEd.
For example, for strengths, the researchers have picked up several positive internal aspects, such as theexistence of affirmative action policies, where universities lower the criteria and give an overall positive bias
for IP students for them to enroll in universities. On the other hand, for weaknesses, the researchers havedistinguished the issue of insufficient communication regarding scholarships; although there areopportunities for IP students to enroll in universities with much lower criteria, this information is not entirely
known to the IP community, resulting in them losing a chance for access to higher education.
As for external factors, “opportunities,” the following examples were addressed; the presence of IP
research centers, NGOs, and private entities whose work focuses on the recognition, protection, andpromotion of IPs and IPEd, such as extracurricular activities provided by NGOs to IP children. However,“threats” include financial constraints of IP students' families, discrimination and bullying, and limited
communication between LGU and the IP community.
Figure 1. Results of the SWOT analysis

19

After categorizing positive and negative and internal and external aspects of IPEd, the next step was tofocus on the “weaknesses” and “threats” category, thus giving insights into specific factors of issues andchallenges of IPEd. The Problem Tree Analysis method (Figure 2) connected all the mentioned “weaknesses”
and “threats” in order to investigate the root causes of the issues and challenges of IPEd. Thus, all the
relevant issues and challenges begin from a single source: the issues and challenges of IPEd. This singularsource would eventually branch out to the potential root causes. In order to form the problem tree, it was
crucial to first group the addressed issues/challenges by similarity in topic, using the “Why? Because”
questioning to create one branch. The following example is an extract of the questioning method
implemented.
Why is there low academic performance? Because of 1. Limited parents help in home study, and 2. Highabsence rate;
Why do students have a high absence rate? Because of 1. Needing to work and take care of their younger
siblings and 2. There is no food for them to bring to school, etc.
Thus, the root cause for the above branch concludes as the following; the overall financial constraints of
IPs.
Through this method, a total of five root causes were identified. Firstly, the limited budget allocation for
IPEd has been addressed as a prominent barrier. Secondly, the lack of education of IP parents has
demonstrated an influence on their children's education. Similarly, financial constraints of the IPs are seen asa hindrance to access to quality education. Additionally, limited cooperation among the relevant stakeholders
has a direct impact on IP education. Lastly, the limited promotion of IP culture has had a significant impact
on the IPs in general.
Based on these five root causes, the researchers developed an action plan that the prominent stakeholders
can incorporate into future plans.
Figure 2. Problem Tree Analysis

20

6. Proposed Action Plan
Strategy 1: Seeking Alternative Sources to Cover Limited Budgets
The researchers have identified that a wide range of issues on the learning experiences of indigenous
students arise from a limited budget allocation in areas related to education. To solve the issue, it can berecommended that people in the field of education seek alternative sources to cover a limited budget rather
than merely trying to increase the educational budget itself, because an attempt to increase the budget is notsustainable and relies on support from government officials in charge of budget allocation. The researchers
recommend three activities as part of the strategy, including income-generating activities, enhancement ofcollaboration with NGOs and private entities for Corporate Social Responsibility (CSR), and promotion ofvolunteer programs for extracurricular activities.
First of all, schools, namely teachers and students, could supplement their limited budgets for school
management through the sale of products of gardening or handcrafts made by students, as income-generating
activities. Some teachers in Jose B. Velarde Elementary School, where researchers visited, mentioned thatstudents, especially IP students, actively engage in such activities. Therefore, gardening and handcrafting
could be good opportunities to showcase IP students' talent and cover a limited budget at the same time. The
income generating activities have proven to be a successful manner to supplement the limited budget ofschools to improve the quality of facilities or other necessary materials (Mahmud et al., 2022).
Secondly, collaboration with NGOs and private entities for CSR could be enhanced for the problems oflimited budgets and students' malnutrition. The researchers found that a limited budget is a significant
restrictive factor for most educational activities. Moreover, some teachers in Jose B. Velarde Elementary
School mentioned that some IP students have poor nutritious situations because they cannot receive enoughfood outside of school. This situation could demotivate IP students to come to school. Considering theseissues and challenges, there are considerable needs for incorporating investments from external entities suchas private companies as their CSR, and NGOs, which have expertise in root activities, can be in charge of theimplementation of assistance. The idea of incorporating CSR into the educational field for sustainable
development is supported by Nehru (2016), stating that educational institutions can find more opportunities
through the promotion of CSR as their strategy to survive in the current competitive arena. From theperspective of the formal sector, to successfully achieve these goals, DepEd and LGU would be able toarrange and organize the entire flow of such assistance. Additionally, the municipal administrator of Pili andcounselor in charge of education in LGU answered in their interview that there is no person who canrepresent IP communities and express their concern because of the lack of budget for salary. IP communities
and governmental entities, as a result, are not communicating smoothly. Therefore, various educational
stakeholders, including NGOs, private companies, LGU, DepEd, and of course, schools, need to build a solid
partnership.
Lastly, due to the lack of teachers and personnel, who need to cover a broad scope of tasks in school,making teachers busier, it would be a good idea to outsource extracurricular activities such as soccer orbasketball, which do not generally require specific knowledge or training, to volunteer workers. The potentialof NGO in supporting activities in schools is reported by Mawela (2020), claiming that teachers view
environmental NGOs as helpful organizations because they can supplement teachers' limited time and21

capacity of teaching. Schools should express their concern to officials such as LGU to welcome moreprograms.
Strategy 2: Motivating IP Parents for their Children's Education
The researchers have concluded that the lack of parents' educational experiences and understanding about
education might harm students' learning. The aim of the activities described below is to motivate IP parents
to be involved in their children's education.
The IP coordinator in LGU said that many IP parents cannot help with their children's homework at homebecause half of them have problems with reading. Consequently, IP students will be placed in toughsituations in their learning and find it more difficult to catch up with classes in school. In fact, Silinskas &Kikas (2019) reports that less support in math homework is detrimental for students' academic achievement
and also persistence during homework.

In addition, motivating parents might lead to the positive

consequence that they would start to appreciate the value of education if they receive educational support.
Therefore, if the researchers strengthen alternative learning for parents, which is led by LGU or DepEd, theymight be motivated to be more engaged in their children's education.
The captain of the Barangay community said that IP parents never speak up in community meetings, andtherefore their specific, harsh situation as IPs is not conveyed to governmental officials. The participation ofcommunity members is crucial for achieving quality education (Ahmad & Said 2013). Moreover, several
interviewees in our research mentioned the problem of no representation for IP communities. This can be
regarded as a structural problem because, from the perspective of parents, there is no measure to express theiropinion. Hence, a spokesperson for meetings with governmental stakeholders needs to be secured so that IP
parents can start actively speaking up in community meetings, and the community members themselves
would be empowered as a result. To accomplish this, strong cooperation among the leaders of the IPcommunity, DepEd, LGU, and NCIP should be established.
Strategy 3: Providing Alternative Means to Address Financial Capacity of IP Families
Addressing the financial constraints faced by IP learners’ families emerges as an important action in
mitigating IP educational challenges. While poverty significantly imposes challenges in access to education,
it is acknowledged that financial limitations alone should not be the sole determinant of the educational
issues encountered by indigenous community in Pili. Thus, this study proposes some activities as alternativemeans aimed at continuing education despite the financial limitations of the IP families.
One notable initiative includes the provision of skills training programs designed to mitigate the financial
constraints experienced by IP families and foster skill development within the community. Training programsmust align with market needs to ensure effective skill development and avoid resource wastage. Canada has
implemented skill development initiatives for Indigenous communities through programs like the Skills andPartnership Fund, as documented by Employment and Social Development Canada (2020). This effort aims
to enhance employability and create job opportunities for indigenous individuals. Success stories highlighted
in the resource underscore the positive impact of these initiatives on empowering indigenous people withvaluable skills and fostering economic development within their communities.
22

In the case of the Philippines, the LGU emerged as a pivotal stakeholder tasked with the execution andoversight of these programs in this strategy. A focal point of the interview with the Councilor in Charge of
Education from the LGU underscores an emphasis on skill training as a cornerstone for the long-term
advancement of IPs. By emphasizing vocational skills with tangible applications, such as welding andcarpentry, the LGU endeavors to bridge the socio-economic gap within the indigenous community.
While enhancing the financial capacity of IP families, the report also recommends the additional activityof improving awareness about available scholarships and opportunities. Currently, there are scholarships
offered by CBSUA for indigenous scholars that include provisions for dormitory accommodations andallowances in higher education. However, the Barangay Captain notes that there is a lack of awareness within
the IP community regarding the availability of these scholarships. Addressing this information gap isimportant to ensure eligible individuals are informed and can access these opportunities.
Strategy 4: Enhancing Cooperation Among Education Stakeholders
Enhancing cooperation among educational stakeholders is a crucial strategy in addressing issues andchallenges of IPEd in Pili, and a proposed activity for this strategy is the advocacy or representation of the IPcommunity in decision-making processes. According to the interviews with the Barangay leader, the need for
representation is underscored by practical challenges faced by the IP community in Pili, such as thegeographical distance to municipal offices and the preference of the IP community to communicate withsomeone from their social or cultural environment rather than direct engagement with government officials.
Besides, representation for the IP population and government stakeholders is important to bring cultural
sensitivity to policy-making, avoid information gaps, tailored solutions to specific needs, and build trust
within the society (Smith, 2012).
The success of international examples in establishing indigenous community representatives in policymaking in many countries has proven to bridge the cultural and communication gaps that may exist between
indigenous communities and government officials. For instance, in Australia, the role of indigenous
community representatives, often referred to as Indigenous liaisons or advocates, has been pivotal inensuring that indigenous voices are heard in policy-making processes (Peacock & Prehn, 2021).
Strategy 5: Elevating the awareness of IP culture
Elevating awareness of IP culture in the educational setting of Pili is pivotal to address certain challenges
IP students are facing in education such as discrimination, bullying, and difficulty in socializing with theirnon-IP peers. This strategy aligns with the fundamental concept of a sense of belonging – the feeling of being
connected, accepted, and valued within a particular group or community (Allen et al., 2021). A sense of
belonging is important not just for academic achievement but also for the overall psychological well-being ofIP students in the education community. By fostering a deep connection and identification with the IP
cultural group, the strategy seeks to cultivate a sense of security, acceptance, and support for IP students from
non-IP peers.
To strengthen this strategy, it is valuable to draw on successful practices from other countries. In New
Zealand, cultural integration into the national curriculum and the establishment of immersion schools, suchas Kura Kaupapa Māori, have successfully emphasized the importance of cultural identity in education23

(Tocker, 2015). Similarly, Australia has implemented cultural awareness programs for teachers, enhancing
their understanding of indigenous cultures and contributing to a more inclusive learning environment(AITSL, 2021).
The implementation of IP culture showcases within schools is an activity designed to promote Indigenous
Peoples' (IP) culture in educational environments. The primary goal is to offer non-IP students opportunities
to actively engage with and appreciate the richness of IP cultural heritage. Through these showcases,
educators aim to foster a sense of shared identity and understanding among students, irrespective of theircultural backgrounds. Additionally, extracurricular activities can encourage interaction between IP and nonIP students since the activities take place in a more relaxed and informal environment for students to build
relationships and understanding outside the classroom setting.
Educating the general public about IP culture is as important as promoting IP culture in schools,
especially when parents within the broader community possess knowledge about and respect for thesecultures. As children observe their parents embracing and valuing cultural diversity, they are likely todevelop similar attitudes, fostering an atmosphere of respect and understanding. This, in turn, has a positive
impact on the learning environment for Indigenous students within the broader community. In addition,
Student B from CBSUA said, “[...] we want the government to educate the local leaders, the barangay
leaders so that they would know about the laws protecting the IPs and their ancestral domain so that theywould know how to deal with situations regarding the Ips.” This approach aims to enhance the understandingof the legal framework and efficiency of Barangay leaders to protect IP rights. Informed leaders are essential
for empowering indigenous communities, as they can engage in meaningful dialogue with higher authorities
and advocate for policies that respect and uphold the rights of IPs.

7. Conclusion
Ensuring the right to education remains a challenging process in many developing countries. Despite
being the first country in Southeast Asia to formally incorporate indigenous education into its national policy
framework, ensuring the right to education for indigenous communities remains a formidable challenge in
the Philippines. Recognizing indigenous education in the policy landscape signifies a crucial step towards
cultural inclusivity and preserving diverse traditional knowledge. However, implementing these policies
encounters various obstacles, hindering the effective delivery of education to indigenous populations.
Thus, this study aims to investigate the educational challenges faced by the government, teachers,
students, and indigenous communities in Pili, Philippines. The objectives include identifying the profile ofresearch participants, examining educational planning and implementation for IPs, and analyzing educational
challenges faced by government stakeholders, teachers, and students. The multifaceted challenges in IPEd
faced by teachers, IP students, and government stakeholders include limited teacher training opportunities
and teaching resources, discrimination, poverty, low learning enrollment and achievement, among otherissues.
The data analysis results employ the SWOT analysis method, identifying strengths, weaknesses,
opportunities, and threats in IPEd. The problem tree analysis uncovers five root causes, leading to thedevelopment of action plans for stakeholders to improve the state of indigenous education in Pili bycomprehensively addressing various challenges.
24

As a result of data analysis, five strategies can be proposed to address educational challenges:

1. Alternative Sources to Cover Limited Budgets: Involves income-generating activities,
collaboration with NGOs, and volunteer programs for extracurricular activities.

2. Motivating IP Parents for their Children's Education: Aims to address the lack of parental
education by providing alternative learning opportunities and establishing a spokesperson for IP
communities in meetings with governmental stakeholders.

3. Alternative Means to Address Financial Capacity of IP Families: Focuses on providing skills
training programs aligned with market needs and improving awareness about available
scholarships.

4. Enhancing Cooperation Among Education Stakeholders: Advocates for the representation of the
IP community in decision-making processes, drawing inspiration from successful international
examples.

5. Elevating Awareness of IP Culture: Aims to address challenges such as discrimination andbullying through showcasing IP culture within schools, promoting extracurricular activities, andeducating the general public about IP culture.
Implementing these strategies may enhance indigenous education in Pili, fostering a more inclusive andsupportive educational environment for all. Ultimately, the proposed strategies seek to bridge the gap
between policy intentions and practical realities, working towards a more equitable and meaningfuleducational experience for indigenous communities in the Philippines.

8. Limitations and Recommendations for Future Study
Our research, focusing on the challenges faced by educational and governmental stakeholders in Pili froma socioeconomic perspective, had inherent limitations that affected its scope. One significant constraint was
our emphasis on socioeconomic aspects, excluding an in-depth exploration of school curriculum,
instructional methods, and indigenous knowledge. This limitation hinders a holistic understanding of Pili's
educational landscape. Additionally, due to time constraints and permission issues, the IP community was not
explored, underscoring the need for future studies to address this gap and incorporate the unique challenges
faced by IP communities.
For future research, prioritizing permissions and conducting thorough investigations within Indigenous
Peoples communities is essential. A detailed analysis of the school curriculum, teaching methodologies, andinstructional practices would provide a nuanced understanding and contribute to the design and developmentof targeted interventions. Lastly, longitudinal studies would offer a dynamic perspective, tracking changes
over time for a more comprehensive view of challenges faced by stakeholders.

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28

Acknowledgements
This research stands as a testament to the collaborative spirit of various individuals and institutions, and we
extend our heartfelt gratitude for their invaluable contributions.
We deeply appreciate the guidance and support of Prof. Francis Peddie, Prof. Takeshi Higashimura, Prof. Akemi
Ashida, and Prof. Shigesato Suzuki from the Graduate School of International Development (GSID) in the Overseas
Fieldwork (OFW) committee, whose expertise shaped our research direction.
Special thanks to Prof. Evelie P. Serrano of the University of the Philippines Los Baños (UPLB) for her
indispensable guidance throughout the research process.
Our sincere gratitude goes to student assistant Cherry Montales, whose unwavering support significantly
contributed to the success of our research.
We acknowledge the Graduate School of International Development, Nagoya University, The Central Bicol
State University of Agriculture, and the College of Public Affairs and Development, University of the Philippines
Los Baños, for providing the opportunity to participate in this enriching experience.
Furthermore, we extend profound thanks to the Municipality of Pili, the Department of Education, participating
schools, teachers, and parents for their generous time and resources, crucial to the success of our study.
This research was a collective endeavor, made possible by the dedicated efforts of everyone involved.

29

30

Working Group 2
GovernanceDecision-Making and the Pili Public Market Expansion:
A Case Study on the Municipality of Pili's Approach to Stakeholder Involvement

Group Members:
CAROLINO Patricia
IGARASHI Kazuki
TAKEMURA Hina
WICKRAMARATNE Nayana

UPLB Research Assistant:
FALABI Immaculate

Advisors:
PEDDIE Francis (GSID)CARADA Miriam Caryl (UPLB)

31

Acknowledgements
We would like to convey our gratitude to several individuals and groups whose support and guidancewere instrumental in making this research possible. We extend our thanks to Dr. Francis Peddie, our Nagoya
University advisor, who mentored us throughout and provided us with insights and feedback. Our
appreciation also goes to Dr. Miriam Caryl Carada, our UP Los Baños advisor, whose advice and insights
guided us in the right direction. Likewise, we thank Ms. Immaculate Falabi for her kind support throughout
our fieldwork. We would also like to express our appreciation to Mr. Shigesato Suzuki, who patiently
assisted us in the Philippines, and Dr. Evelie Serrano, who provided us with support during our stay in thePhilippines.
Finally, we extend our gratitude to the Municipality of Pili, especially the offices and individuals we had
the honor of speaking with, for its support in our research and for extending assistance regarding our various
needs. To all the Pili Public Market federation heads, vendors, and customer participants, we appreciate yourtime, cooperativeness, and shared insights. Your contributions have greatly enriched our study. Truly, it isHigos Pili, a municipality of hardworking people!

32

Table of Contents
1. Introduction
1.1 About the Municipality of Pili
1.2 Current Pili Public Market: Overview and its Status
1.3 New Pili Public Market: Progress on Expansion Efforts
1.4 The Challenge of Relocation and Transition
1.5 Conceptual Framework: Sustainable Development Goals
2. Review of Related Literature
2.1 The Definition and Socioeconomic Relevance of a Public Market
2.2 Prospective Impact of Market Vendor Relocation
2.3 Balancing Between the Top-down and Bottom-up Approach
2.4 Understanding Collaborative Governance
2.5 Theoretical Framework on Collaborative Governance3. Case Study of the Pili Market Expansion
3.1 Problem Statement
3.2 Research Objectives and Questions
3.3 Significance of the Study
4. Methodology
4.1 Data Collection and Methodology
4.2 Scope and Limitations
5. Results and discussion
5.1 Government-led Decision-making Processes
5.2 Involvement of Vendors in Decision-making Processes
5.3 Involvement of Consumers in Decision-making Processes
5.4 Stakeholder Map: Collaborative Decision-making in the New Pili Public Market
6. Summary and Conclusion
7. Implications of the Study
8. References
9. Appendices9.1 Appendix A: Photos: The Current Pili Public Market and its Various Stalls
9.2 Appendix B: Photos: The New Pili Public Market
9.3 Appendix C: Phase 1 Temporary Relocation Areas and Primary Research Site
9.4 Appendix D: Sample Interview Questions for Government Representatives
9.5 Appendix E: Survey Questionnaire for Vendors and Federation Heads
9.6 Appendix F: Survey Questionnaire for Consumers

33

1. Introduction
Stakeholder involvement is crucial in decision-making, ensuring more comprehensive and sustainablechoices that reflect the interests of diverse parties. It is important for governments to implement mechanismsthat engage stakeholders in collaborative and transparent decision-making. In this study, how the Municipalityof Pili, Camarines Sur, Philippines, has endeavored to create an inclusive process for the Pili Public Market
expansion is explored, including how the municipal government has integrated diverse perspectives, addressed
concerns, and aligned the market's development with community needs and sustainable development goals.
1.1 About the Municipality of Pili
The Municipality of Pili is the capital of the province of Camarines Sur, situated in Region 5, or the Bicol
Region, of the Philippines. Pili has an area of 126.25 square kilometers and a population density of 786 persquare kilometer. It is a 1st class municipality with a population of 99,196 people according to the 2020
census (Pili Profile–Cities and Municipalities Competitive Index, n.d.). Pili is politically subdivided into 26
barangays, the smallest political unit in the Philippines (Pili, Camarines Sur Profile–PhilAtlas, n.d.).
1.2 Current Pili Public Market: Overview and its Status
The current Pili Public Market is located alongside the Maharlika Highway, a major thoroughfare, in
Barangay Old San Roque in Pili. It serves as an operating hub for local vendors, offering a wide range of wet
and dry goods, including fresh produce, ready-to-wear clothes, and handicrafts (See Appendix A). It
contributes significantly to the town's economic activity and is central to community commerce. The market
typically bustles with activity, especially during peak hours, with a diverse range of buyers and sellers.
However, Pili’s public market became congested, surpassing its capacity to accommodate the existing
demands of consumers and vendors adequately. Specifically, there is increased traffic along the highway
area, a lack of parking facilities, especially for customers, and insufficient hygiene facilities, contributing to
the deterioration of the overall condition of the market area. As such, the Pili municipal government decided
to build a more modern and new public market (Municipality of Pili, 2023). Their initiative began with aproposed project plan in 2016, and the budget was approved in 2020 after adjustments and negotiations.
1.3 The New Pili Public Market: Progress on Expansion Efforts
The construction of the public market expansion project commenced in April 2021 during the COVID-19
pandemic and is located right behind the current Pili Public Market (see Appendix B). The Pili Public Market
development is a three-phase project funded by the national government, mainly through the General
Appropriations Act (GAA) of the Republic of the Philippines of 2021. The phases are categorized according
to the types of products sold by vendors. Phase 1 will establish sections for fruits, souvenirs, vegetables,
eggs, pre-prepared food, eateries, ready-to-wear (RTW) clothing items, secondhand clothes, and footwear.
Phase 2 is dedicated to accommodating wet goods, including fish and meat. Phase 3 will include native
products (plasticware, glassware), dried fish, handicrafts, rice, and grocery items. These categories sum up to
15 sections, overseen by a designated section leader for the vendors, who are referred to as federation heads.
As of November 2023, the project is in Phase 1, resulting in the temporary relocation of many vendors due toconstruction (see Appendix C). As per the relocation information outlined by the Economic Enterprise Office34

(EEO) of the municipality, 107 out of a total of 290 stalls were temporarily relocated under Phase 1 to four
designated streets around the current market area (Economic Enterprise Office, n.d.). The new building will
be accessible and have modern features, which include two elevators, a ventilation system, standard hygiene
facilities, a water treatment facility, gender-sensitive toilets, a lactation room, access for people withdisabilities, a bridge connecting both the old and new market buildings. and 55 parking spots. These
measures aim to ensure improved facilities for both vendors and consumers.
The inauguration of Phase 1 of the Pili Public Market is expected by November 2023 with preparations
concluded within 2024. Meanwhile, plans for Phases 2 and 3 have not yet been finalized. The overall project
had a budget of ₱770 million, which was significantly reduced due to limited resources. Phase 1 has been
allocated ₱240 million, while Phase 2 has an initial budget of ₱37 million, pending receipt for utilization in
2024. The construction of the new Pili Public Market involves various government offices, encompassing
both national government entities, specifically the Department of Public Works and Highways (DPWH)
Region 5, and specific local authorities within the Municipality of Pili.
1.4 The Challenge of Relocation and Transition
The relocation of vendors’ stalls entails much more than physical transfer to a new location; it is acomprehensive process encompassing preparation, monitoring, and potential impact on various stakeholders,
including the local government, vendors, and consumers. However, decision-making concerning the public
can be challenging given the involvement of various stakeholders, especially when available resources arelimited. Different opinions and solutions proposed by these stakeholders may prevent making more timely
decisions, resulting in disregarded or neglected community consultation efforts.
Therefore, in the discourse of development projects such as this one, it is essential first to understand therelationship among and roles of the different stakeholders in terms of who makes the decisions, who isaccountable, who is consulted, and how much interest and influence these actors have in the finalization andimplementation of changes made.
1.5 Conceptual Framework: Sustainable Development Goals
In line with the broader developmental context, this study employs the Sustainable Development Goals(SDGs) as its conceptual framework. Specifically, the principal focus in this case study of the Pili PublicMarket expansion project aligns with SDG 16 (Peace, justice, and strong institutions), underscoring thegovernance considerations in the decision to relocate vendors through its market expansion plans. The
emphasis on inclusive democratic governance ensures that decision-making processes are transparent andfair, aligning with the principles of SDG 16. SDGs 9 (Industry, innovation, and infrastructure) and 11(Sustainable cities and communities) play crucial roles—addressing infrastructure needs and the impact oncommunity livelihoods, respectively—as secondary considerations revolving around the central theme ofgovernance embedded in SDG 16.

35

2. Review of related literature
2.1 The Definition and Socioeconomic Relevance of a Public Market
A public market is a building, place, or structure that is owned and/or managed by the local government
determined by their Sanggunian (legislative council) to provide the public with essential food items together
and other merchandise (Isolana, 2021). Various vendors rent spaces in the market to sell affordable products.
Public markets are sometimes referred to as “wet markets”, and in Filipino are commonly called palengke.
Public markets are considered the local community’s economic and sociocultural center (Isolana, 2021).
Economically, they serve a fundamental role as commercial centers that support local economic
development. The market provides an affordable and convenient space for medium and small-scale
entrepreneurs to establish and grow businesses, creating employment opportunities for residents, andsupporting their livelihood. This can encourage local people to become job creators by starting small
businesses rather than becoming job seekers amidst diminishing quality employment opportunities indeveloping countries (Weng & Kim, 2016). In the Pili Public Market context, it serves as a local economic
enterprise (LEE) with a central role in increasing revenue for the municipality.
2.2 Prospective Impact of Market Vendor Relocation
Beyond the expected positive effects of decongestion and modernization of the public market andboosted economic activity, some disadvantages may also arise depending on the effectiveness of the planningand implementation and the relocation of its vendors. Although the Pili Public Market may differ fromtypical market relocation studies, which have new locations, the researchers found similarities with othercases in terms of relevance, given similar transitions being experienced (such as stall location changes, newrental fees).
For economic impact, according to a study by Asiah et al. (2020), merchants had to deal with lower
income given fewer buyers due to relocation, especially those customers with whom they have establishedclose relations (as cited in Kusumaningrum et al., 2020). Similarly, another study conducted by Yunitasari
and Nasiwan (2019) on an Indonesian market relocation observed consequences such as lowered social
engagement between sellers and buyers; infrastructure and facilities with limited improvement andmaintenance; increased expenses for vendors in terms of electricity, transportation, and other essential
expenses; and vendors experiencing trouble saving (as cited in Kusumaningrum et al., 2020).
Lastly, Warsono et al. (2016) further cited cases of relocation failure, which they attributed to whether the
relocation program was adequately explained, if the groups involved in the relocation were engaged, and if
the government provided appropriate support or sufficient aid in relation to the relocation. In summary, theabove considerations underscore the potential impact of a market relocation on vendors' income, futurebusiness sustainability, and the continuity of their established relations with customers.
2.3 Balancing Between the Top-down and Bottom-up Approach
In terms of the bottom-up engagement and approach to governance, this can occur when interested
parties have enough influence to affect previous top-down decisions. This becomes more plausible when the
public directly interacts with decision-making bodies or engages in a two-way conversation with otherinterested parties and stakeholders to reach a decision (Reed et al., 2017). More recently, both Nunnes et al.
36

(2021) and Huttunen et al. (2022) found that community engagement in municipalities is generally
undertaken as a top-down approach involving multiple stakeholders, such as enterprises, government
agencies, and the municipal administration, with the goal of obtaining public opinion and feedback on thecity's planning and development (as cited in Anthony, 2023). However, a bottom-up decision-making
approach may have disadvantages. Both Larson and Lach (2008) and Zeitoun et al. (2011) showed that incontrast to more formalized, top-down processes where power dynamics are thought to be more effectively
controlled, bottom-up processes with significant power asymmetries are more likely to suppress the interestsof weaker actors (as cited in Reed et al., 2017). Thus, appropriate strategies must be considered for more
effective decision-making.
According to studies by Anthony Jnr (2021), Caryannis et al. (2021), and Warnke et al. (2023), taking as
an example the approach to smart cities, defined as technologically modern urban areas, due to its highly
technical nature, decision-makers are usually government experts who may not be in line with the interests ofthe community (as cited in Anthony, 2023). Bouzguenda et al. (2019) and Huttunen et al. (2022) pointed outthat having open platforms for residents to communicate their interests and co-create solutions alongside thegovernment is necessary for community involvement to be effectively implemented (as cited in Anthony,2023). Therefore, as Berntzen and Johannessen (2016) have argued, community involvement is vital for
better services and solutions, given how this capitalizes on citizen expertise and knowledge, decreasing therisk of project failure (as cited in Anthony, 2023). The residents of the city must be democratic contributors
from the start to the end of the project in order to achieve a co-creation process (Carayannis & Campbell,
2014, as cited in Anthony, 2023).
Ibrahim et al. (2017) and Choque et al. (2019) further noted that focus groups, city hall meetings, public
hearings, citizen juries, surveys, and digital platforms facilitate community involvement worldwide (as citedin Anthony, 2023). It is essential to involve all voices in the community engagement processes, including
smaller, marginalized groups (Fredericks, 2020, as cited in Anthony, 2023). This can be made possible
through strategies like communicative planning by the government, which implies interaction withstakeholders such as expressing ideas, formulating arguments, discussing differences, reachingunderstandings, and finding consensus on a course of action. This would counter tendencies toward a moredetached, expert-driven plan-making and empower the community to build a culture of trust andinterdependence (Watson, 2002). Overall, this helps the needs and concerns of involved stakeholders to bebetter addressed.
2.4 Understanding Collaborative Governance
Given these points, a collaborative approach to decision-making is deemed critical to achieving more
equitable results. Positive public perception enables a more fruitful approach with equity, comfort, andacceptable development for those affected (Kusumaningrum et al., 2020). Similarly, Cai et al. (2023) pointout that collaborative decision-making is one of the most effective and important tools decision-makers use
to make decisions through open communication and collective problem resolution.
In recent decades, collaborative governance emerged as an alternative to managerial and adversarial
techniques of policy-making and implementation due to past governance shortcomings, especially whenhigh-level decisions are implemented at the ground level (Ansell & Gash, 2008). Our study utilizes the37

definition by Ansell and Gash (2008) that collaborative governance is where one or more public agencies
actively include non-state stakeholders in a formal, consensus-driven, and deliberate collective decisionmaking process that strives to carry out public policy or administer public programs or assets. This processbrings public and private stakeholders together to participate in consensus-oriented decision-making.
Achieving consensus as an outcome is not necessary; rather, the deliberate, formal, and multilateral approach
towards achieving consensus is essential (Ansell & Gash, 2008).
2.5 Theoretical Framework on Collaborative Governance
Implementing collaborative governance entails four core building blocks. This revolves around the what(context of collaboration, enablers, barriers), why (drivers and incentives to collaborate), who (stakeholder
participation, played roles), and how (degree of collaboration to achieve outcomes, appropriate structure or
strategies) (Malekpour et al., 2021). Deciding on these building blocks is influenced by the targeted level ofimpact, which may focus on the project itself or something even wider in scope or more transformational.
Collaborative governance implies an intention to go beyond a business-as-usual approach, which may
involve more top-down decision-making (Malekpour et al., 2021).
Using the basic analytical tool designed by Malekpour et al. (2021), participating stakeholders (different
government offices and committees, vendors, and consumers) can be positioned within this matrix with thex-axis the level of influence and y-axis of interest (Figure 1). Based on their position within the diagram andkeeping the impact in mind, stakeholders can be analyzed in terms of involvement, whether they can orshould serve as partners and co-leaders, or if they can or should be further empowered and encouraged basedon the goals of Pili’s market expansion project.
Figure 1: Mapping Stakeholders by Interest and Influence

Source: Malekpour et al., 2021

Collaborative governance can be implemented on five levels. First is coordination, where the stakeholders
involved essentially act independently, with only necessary engagement conducted. Second is informal
connections, which involveunofficial discussions and information exchange through working relationships,
networks, and the like. Third is coordinated forums which is a formal approach to discuss and exchange
knowledge on the project, such as the planning, operation, and service delivery stages. Fourth is temporary
structures, which entail more ad-hoc-based structured stakeholder collaborations, such as through a task force38to help lead or support project activities to ensure proper project implementation. Lastly,ongoing structures
are established practices that are more common for large-scale transformative projects that require a mandate
to embed roles and responsibilities (Malekpour et al., 2021). Evaluating Pili's approach to the interest andinfluence framework and these diverse levels of collaborative governance can offer valuable insights for thisstudy.

3. Case Study of the Pili Market Expansion
3.1 Problem Statement
Expanding a public market may not be as straightforward as it appears. Several steps must be undertaken
due to the involvement of numerous stakeholders who may or may not contribute to decisions that will
impact the larger Pili community. Given the municipal government’s decision to expand and modernize thepublic market because of its congested state, poor hygiene and overall facilities, it is necessary to ensure thatthe impacts of this project on stakeholders are taken into account. The success of this project depends on thedecision-making processes that may or may not consider the input of key stakeholders, including the national
and local government offices involved, relocated market vendors, and customers. Thus, this research aims togenerate a more comprehensive understanding of the decision-making approach in the Pili Public Market
expansion process. Moreover, it aspires to provide helpful insights into the existing decision-making
processes within the local government, utilizing the Pili Public Market in Camarines Sur as a case study.
3.2 Research Objectives and Questions
The primary objective of this research is to provide observations and insights regarding the decisionmaking processes of three key stakeholders: involved government offices in the Pili municipality, relocatedvendors, and consumers. To achieve this objective, the study examines the relationship and interaction
between government offices involved in the market expansion decision-making process. Additionally, it
investigates the extent of involvement of vendors and consumers in the government's decision-making
process. Ultimately, the research aims to identify the extent of collaboration within the decision-making
processes concerning expanding the Pili Public Market.
To fulfill these research objectives, the researchers utilized the following primary and sub-questions:
1. What is the decision-making process in the expansion of the Pili Public Market?
■ How do the involved government offices and committees in the Pili Public Market expansion
interact and collaborate in decision-making?
■ Are the relocated vendors involved in the government’s decision-making process in relation to thePili Public Market expansion? If yes, how so?
■ Are consumers involved in the decision-making process of the government in relation to the Pili
Public Market expansion? If yes, how so?
2. How collaborative are the decision-making processes related to the Pili Public Market expansion?
3.3 Significance of the Study
This study has the potential to contribute to a better understanding of decision-making processes forurban development projects not only within Pili but also in similar cities and municipalities. By exploring the39degree of collaborative decision-making among stakeholders, the research may provide a concrete exampleof the benefits of involving non-state actors in the government’s decision-making processes and how this canbe better integrated into the planning, implementation, and evaluation of urban development projects.
Starting with a more comprehensive understanding of how these stakeholders interact, collaborate, andcontribute to the decision-making process can help identify strengths, weaknesses, and areas for
improvement in local development projects.
Additionally, the research offers observations and suggestions on how decision-making processes can beenhanced in terms of transparency, inclusion, and equity, which contribute to improved stakeholder
satisfaction and more sustainable outcomes. For instance, more collaborative strategies like communicativeplanning, coordination mechanisms, and proactive stakeholder engagement can inform government policy
and decision-making practices.

4. Methodology
4.1 Data Collection and Methodology
Through a case study approach, the study includes data from various stakeholders, specifically local
government representatives (n = 5), vendors (n = 21), federation heads (n = 6), and consumers (n = 20).
Fieldwork was conducted from September 11 to 15, 2023, through a non-probability convenience sampling
method.
The key informant interviews (KII) with the five government offices were conducted over two days using
a set of guide questions (See Appendix D). The research team visited the Municipal Administrator and theEEO on the first day and the Office of the Mayor, Municipal Planning and Development Office, andMunicipal Engineering Office on the second day. The mayor briefly accompanied the research team to therelocation site, and the EEO also willingly provided documents and reports relevant to the public market
expansion project.
The composition of vendor participants is 71% female and 29% male, ranging from 20 to 62 years old.
Their duration as stall vendors in the Pili Public Market ranged from a year to 42 years. 48% of theparticipants have been temporarily relocated for between one and 2.5 years. For federation heads, there arethree females and males between 36 to 65 years of age. They have worked as vendors in the market for 13 to
40 years, with four of them temporarily relocated. Overall, there were significantly more female participantsof diverse ages and market experience. Consumers were 70% female and 30% male. Among theseparticipants, one respondent goes to the market “every day,” 50% of them “often,” while 45% “sometimes”
go there.
For vendors and consumers, data collection utilized a short survey to gather basic information and elicit
their perceptions and opinions regarding the relocation and expansion process, utilizing open and closed
questions and Likert scale questions (with 1-Highly negative and 5-Highly positive). The researchers used
the survey to guide their discussions and conducted short one-on-one interviews with both vendors (SeeAppendix E) and consumers (See Appendix F). To confirm their participation, a standard consent form withdetailed information about the study and their rights as participants (i.e., voluntary participation,
confidentiality) was distributed in accordance with ethical guidelines.
40Filipino and English versions of the questions were prepared for the surveys and interviews. The
researchers also sought support from one local partner in Pili to help translate from English to Bikolano (thelocal dialect in Pili) during certain KIIs and one-on-one interviews. Filipino was also used for interviews as
the national language of the Philippines. For government representative interviews, English was also used forcommunication.
In addition, as secondary data, the researchers reviewed and assessed academic journals, relevant
documents, government and organizational reports, existing and upcoming policies, and initiatives,
specifically for the Pili Public Market or other market relocation or expansion studies.
4.2 Scope and Limitations
The research team recognizes the constrained time period available for data collection in Pili, which
resulted in the limited data and responses gathered. A few challenges also arose regarding the willingness andavailability of respondents to participate in the study. For instance, the EEO supported the research team inrecommending potential interviewees for the study. However, the research team recognized that this may
impact the honesty and accuracy of participants' responses. Moreover, the researchers observed a clear
hesitation from some participants to share their opinions regarding the impact of relocation, given that it will
be relayed to government leaders. The researchers assured anonymity to encourage their participation. In
contrast, other participants willingly took the opportunity to relay their opinions regarding the market
project.
Regarding the scope of this study, it specifically covers engagements and impact involving Phase 1,
given its ongoing progress. Although stakeholders’ opinions may shift after Phase 1, it aims to provide
insights not only for Phase 2 and 3 of the market but also for future urban development projects. Moreover,due to time constraints, the study only covers three groups of stakeholders: government representatives,vendors, and consumers. The consumers were specifically sourced from the researchers’ partner university.
For future research, stratified probability sampling may increase the validity of the results. In addition,
covering other stakeholders, such as unregistered vendors, producers, and transporters, may provide a more
holistic analysis of the market expansion project and its overall stakeholder engagement process.
Lastly, the researchers also reached out to set up an interview with one of the key national actors in themarket decision-making process, the DPWH; however, there was no response. A discussion with DPWH may
help provide more insight into the nature and effectiveness of the collaboration and decision-making
dynamic between the national government and the Municipality of Pili.

5. Results and discussion
5.1 Government-led Decision-making Processes
Through the KIIs, the researchers created a diagram (Figure 2) to illustrate the interaction between
different government offices and how this relates to their decision-making processes with the implementing
agency for this development project in partnership with the Municipality of Pili. The Municipality of Pili,serving as the local stakeholder, assumes a co-decision-making and monitoring role, primarily under theleadership of the Mayor's Office, from which the project proposal for the market expansion originated.
41

Under the Mayor's office, three key departments in the municipal government play pivotal roles. Firstly,
the Municipal Engineering Office (MEO) helps oversee and manage the site construction in collaboration
with the DPWH. However, in terms of procurement of materials, the DPWH oversees this entirely, given thebudget source. Secondly, the EEO is committed to managing and supporting stallholders, including guidanceand consultations regarding the transition to the new market and stall relocation processes. Thirdly, theMunicipal Planning and Development Office (MPDO) oversees all of the municipality’s urban development
projects, including the advancement of the market expansion. Additionally, the Sangguniang Bayan, orMunicipal Council, is involved in the market’s expansion in the crafting, deliberation, and approval ofordinances and other legislative guidelines to enable project progress.
Figure 2. Relationship of government actors in the decision-making process in the Pili Public Market
expansion

Source: Authors
The Municipality of Pili took certain steps to facilitate the relocation process. First, they allocated ₱5
million to set up the vendors’ temporary relocation site. Additionally, to ease certain consequences of thissetup, the municipality opted to forego collecting rent or taxes from the relocated stallholders during thistransition period.
Second, in terms of information dissemination, the EEO utilizes its established formal system withfederation heads to aid with information dissemination. EEO regularly coordinates with federation heads on
updates and concerns, who then individually conduct efforts to circulate information to the vendors fromtheir sections. EEO also sets up meetings in which both federation heads and vendors participate and share
their feedback. However, despite the existence of by-laws and regulations, EEO recognizes a gap regarding
the need for more organized formal practices amongst federation heads and how a dedicated office space
may be beneficial for them. In addition, EEO shared that it has yet to elect a new federation president, who
serves a 2-year term, which consequently may contribute to certain communication gaps.
Third, the EEO also conducted public hearings both before and during the ongoing construction process.
These hearings aimed to inform and engage the public, including vendors and consumers, in the process.
42

EEO officials disclosed receiving numerous complaints from vendors concerning reduced product sales,customers' difficulty locating them, and inconveniences related to the relocation site. The EEO officials thenrespond accordingly to address and alleviate their concerns.
In terms of adjustments to be made in the management of the new market, the Mayor mentioned that theMunicipal Treasurer’s Office will manage and centralize the rent and utilities collection from the stallholders,
while the additional collection of a “goodwill payment” required for transitioning to the new building will belimited to new occupants and does not apply to existing stallholders. The specific amount has yet to be
finalized but will also depend on stall size. Overall, the local government has taken measures to engage withstakeholders and address their concerns, focusing on improving the market's infrastructure and facilities tobenefit vendors and customers and, more broadly, the entire Pili population.
5.2 Involvement of Vendors in Decision-making Processes
The involvement of vendors and federation heads in decision-making regarding the Pili Public Market
can be further described and assessed in terms of the perceived impact on the market expansion, theirknowledge of the project details, and their means of participation and collaboration with local government.
In addition, the current impact of the temporary relocation of the vendors will be covered. Descriptive
statistics (mean, mode, standard deviation) are tabulated to differentiate between federation head and vendor
ratings for comparison.
Regarding the perceived impact of the expansion project, Table 1 indicates that vendors (n=21),
regardless of whether they have been relocated during Phase 1 or at later phases, share similar ratings, with asomewhat positively perceived impact (average=3.27 and mode=3.00) regarding the market expansion. It is
worth noting that the standard deviation of 1.35 to 1.42 reflects an observable divide, whether it is morepositive or negative. Similar ratings are found for federation heads (n=6). Upon further discussion with thevendors through follow-up questions, vendors often expressed worries related to the uncertainty regarding
their future sales, loss of previous customers due to the transfer, and a less accessible location given the
distance from the main highway and/or their previous stall. Both federation heads and vendors acknowledge
the possible benefits regarding improved stall organization and new facilities. Despite the apparent
apprehension of many respondents, the frequent response of 3.00, the midpoint response, relates to theirassessment of a challenging adjustment, especially for the initial months upon transfer, but recognizes that it
may contribute to the growth of the Municipality of Pili.
Table 1: Perceived impact of the market expansion project (1- Very negative, 5- Very positive)
Comparison table(Table 1)

Mean

Mode

Standard
deviationFederation heads(n = 6)

3.50

4.00

1.64

Relocated vendors[Phase 1]

3.30

4.00

1.42

(n = 10)43

Other vendors [Phase2, 3]

3.27

3.00

1.35

3.29

3.00

1.35

(n = 11)All vendors [Allphases](n=21)
However, at present, 10 out of the 21 vendors have been temporarily relocated, ranging a total of 1 to 2
years total. Table 2 below reflects an apparent dissatisfaction with their interim state, with relocated vendors(n=10) generating an average of 2.40 and a mode of 2.00, reflecting the negative impact of the relocation on
their livelihood. More notably, relocated federation heads (n=4) indicated “very negative” impact(average=1.00; mode=1.00), which may be reflective of their more critical attitudes as the designatedrepresentatives of their vendor category. Reasons cited by both federation heads and vendors include lower
and slower sales, loss of customers, and less accessible locations, with one stall owner noting their shop had
to close for several months due to these reasons. In addition, heavy rains are challenging for them, given theless stable set-ups of the temporary stalls, usually made from low-grade materials.
Table 2: Impact of current temporary relocation (1- Very negative, 5- Very positive)
Comparison table(Table 2)

Mean

Mode

Standard
deviationFederation heads

1.00

1.00

0.00

2.40

2.00

1.26

(n=4 out of 6 respondents)
Phase 1 Relocated Vendors(n=10 out of 21 respondents)
In terms of their knowledge regarding the market expansion project, which relates to their involvement in
the decision-making processes, Table 3 indicates a clear difference in results between federation heads andvendors. Federation heads (n=6) have more clarity regarding project details and developments, with anaverage of 3.67 and mode of 5.00 for “very clear.” In contrast, vendors (n=21) were less informed(average=2.67), with Phase 1 relocated vendors being somewhat more informed (average=2.95; mode=3.00)
than the other vendors (average=2.41; mode=4). However, when all respondents were asked about the newrental rates, many mentioned that it was still undecided or that they had no idea. Only 8 out of 27 participants
knew about rates, reflecting an observable knowledge gap. For instance, one federation head discussed how
information is disseminated:[My level of understanding regarding the expansion is] 5 because we are always consulted by themarket supervisor, EEO. Three years ago, [funds were] granted by the national government, which isused for the [new] building. We were asked to attend the meetings, showing us the rationale and thedesign, [and] I was able to consider what would be the consequences or what would be the effects.
(Personal communication with authors, September 12, 2023)
44

On the other hand, a vendor commented on how they are too preoccupied with managing their stalls tostay updated with the progress of the project:
We learned about [the market expansion] from our mayor. Some funds came from the government, andthey will have it renovated. I do not know much because we are too busy, so we do not have time for it.
Maybe [the level of my understanding about the market expansion] is 2 [because] we are not the ones
going to be relocated there. (Personal communication with authors, September 12, 2023)
Table 3: Knowledge regarding the market expansion project (1- Not clear at all; 5- Very clear)
Comparison table(Table 3)

Mean

Mode

Standard
deviationFederation heads(n = 6)

3.67

5.00

1.21

Relocated vendors[Phase 1]

2.95

3.00

0.76

2.41

2.00

0.97

2.67

3.00

0.90

(n = 10)
Other vendors [Phase 2,3](n = 11)All vendors [All phases](n=21)

Furthermore, the respondents were asked through an open-ended question to describe their participationin the consultation process, which were categorized based on similarities in response, as summarized inTable 4.
Table 4: Description of participation in the consultation process
Comparison table(Table 4)

How vendors described theirFederation heads

Vendors(n = 6)(n = 20)●

Providing●Attendedparticipation in theconsultationsuggestions on

meetings/orientation

processplanning [2]on project progress

Voicing their

[17]

●

opinions/concerns[2]●●●Voicing theirAttending

opinions/concerns thatmeetings [1]were not necessarily

Participated in asite

addressed [2]visit [1]●Uncertain as anotherfamily member was
more involved [1]45Frequency ofparticipation●●

Whenever the●

Whenever themunicipality callsfor amunicipality calls a

meeting [4]meeting [11]More than ten●

Never [1]times [2]●Around once a month[1]●

1-5 times so far [4]●6-10 times so far [5]The frequency of participation of federation heads is notably higher than vendors, with more in-depth
involvement, as captured through representative testimonies. The majority of the responses by federation
heads highlighted the efforts to gather insights and feedback from the vendors:[The municipality] is getting our opinions, and the best opinions or the best suggestions will be passed
on to the higher officials for consideration. (Personal communication with authors, September 13, 2023)
Our meeting [last month] was [held] in the basement [of the new relocation site], so we were able to go
for [a site visit]. We went around. . . saw the facility, so we were able to identify the [new] spaces for us.
After [this], we were instructed to make our [suggestions] regarding the rebuilding. . . what our[preferences] and demands are. (Personal communication with authors, September 12, 2023)
On the other hand, some vendors and a federation head shared that despite participating in meetings, their
feedback is unlikely to result in any changes, which may imply that the meetings are more informative thanconsultative in nature:
There was an invitation by the LGU. . . I attended the consultations about three times... as to what ishappening [and] if it is about to finish. (Personal communication with authors, September 12, 2023)
If there is already a plan, we cannot do anything because it is a plan of the office. It is already there.
(Personal communication with authors, September 12, 2023)[The government’s] plans are already made. That is very clear, although there were also meetings. The
only thing we can do is to agree on the planning. (Personal communication with authors, September 12,
2023)
Maybe I participated in meetings [monthly]; they did not lack doing consultations . . . To be honest,
what they have decided is set, there is no use to contradict them. They are sharing and updating thedetails. They will listen to our concerns and write it down, then nothing happens afterward. (Personalcommunication with authors, September 12, 2023)

46

The key concerns and suggestions imparted by the respondents to the municipality can be summarized asfollows: first, they express keen concern over stricter management of unauthorized or unofficially registeredvendors outside the new Pili Public Market, given how their presence, typically in more accessible areas,
contributes to lowered sales for those in their assigned stalls. Second, the rise in stall rent prices, with aproposed ₱25.00/sqm/day, was hoped to be lowered, especially during the first few months after the transfer,
given a likely two- to three-time increase, depending on stall dimensions (e.g., a 2 by 3 feet stall costing₱2,400 or $43 USD increasing to ₱4,500 or $81 USD). According to the Municipality of Pili, the current
price is outdated and based on a 2010 ordinance which is not aligned with the rise in prices to date.
Furthermore, the municipality promised that as long as the vendor is paying the rent on time, they will not be
asked to pay the goodwill payment. Third, vendors strongly support the organized division of productsections for better customer experience. Lastly, they emphasize the need for in-depth and clear consultation
regarding the location of their stalls, given how this relates to customer access and sales.
Comparing the perceptions of vendors and federation heads, vendors, who are less informed andinvolved, feel more anxiety about the impact of the expansion due to uncertainty about their livelihood,lower sales, and high rental fees. Federation heads, who are more closely involved, similarly express worry
and criticism about these matters, especially regarding the negative impact of their temporary relocation.
However, the majority recognized the importance of the market expansion project to the long-term growth ofthe municipality through a more organized and convenient public market.
5.3 Involvement of Consumers in Decision-making Processes
The impact of the market relocation, as perceived by consumers, is marked by a prevailing sense of
optimism and positive expectations. Respondents anticipate various benefits, including a more organized andspacious market, improved facilities, and increased business opportunities. Notably, some consumers
highlight specific issues with the current market, such as narrow roads and water-related problems,
expressing hope that the relocation will address these concerns.
Regarding information dissemination, respondents rely on diverse sources to stay informed about themarket relocation, including personal observations, official notices, municipality documents, social media,
and public announcements. This indicates a proactive interest among consumers in understanding thechanges associated with the relocation.
Despite the optimism, some consumers express uncertainty about what to expect from the new market,
revealing a level of doubt or ambiguity surrounding the transition. One respondent raised concerns about
potential delays in the relocation process, citing political factors as potential obstacles, which introduces anelement of skepticism among some consumers.
Financial considerations, while not explicitly mentioned in most responses, are indirectly suggested bysome consumers who foresee increased business opportunities with the market expansion. This implies that
consumers recognize potential economic implications associated with the relocation.
Regarding consumers' knowledge about the expansion plans, the average rating on the Likert scalequestion (n=20, with 1 as no knowledge and 5 as very clear) is 3.28, indicating a moderate level ofknowledge. This knowledge is primarily based on the awareness of an ongoing market expansion project.
47

In terms of consumer involvement, our findings reveal that while consumers were welcome at public
hearings facilitated by the EEO, only one out of the 20 consumers interviewed actively participated. Thissuggests a gap in the awareness or participation of consumers in the public hearings on market relocation,
underscoring the need for enhanced communication and engagement strategies to ensure the inclusion of
consumer perspectives in decision-making processes.
5.4 Stakeholder Map: Collaborative Decision-making in the New Pili Public Market
Given this study’s findings and utilizing the framework of Malekpour et al. (2021), Figure 3 below
provides the stakeholder map for the collaborative decision-making processes in the market expansion
project. The three key stakeholders—government, vendors, and consumers—have been categorized into theirrespective quadrants based on their interests and influence. Certain stakeholders are divided into separate
quadrants, given the different levels of involvement, such as vendors and federation heads, as well as thenational and local representatives, which are the DPWH and the Municipality of Pili, respectively.
Figure 3. Stakeholder map in relation to collaborative decision-making processes in the New Pili
Public Market

Firstly, the Municipality of Pili is placed in Quadrant A, indicating its high interest and influence,
allowing it to lead certain decisions. Secondly, federation heads are situated in Quadrant B, demonstrating
significant interest but lower influence given their inferior decision-making power. Thirdly, although vendors
possess a high level of interest, they are positioned in Quadrant C. This deliberate placement within thestakeholder map is based on the observation that they are primarily informed and consulted rather thanactively partnered with and empowered. Similarly, consumers are also situated in Quadrant C due to theirrelatively low interest and influence in the market’s decision-making process. Lastly, the DPWH is located in
Quadrant D, reflecting its substantial influence due to its oversight of the project implementation. However,48

its interest as a national actor is comparatively lower than that of Pili’s, given the municipality’s goal to makeits market a central economic driver for the municipality.

6. Summary and conclusion
This research aimed to scrutinize the decision-making processes related to expanding the Pili PublicMarket, centering on government offices, vendors, and consumers as key stakeholders. On the local level, thestudy identified a structured decision-making approach led by the Mayor’s Office, with the Economic
Enterprise Office overseeing the relocation process for the vendors. While government efforts were evident
in engaging stakeholders and addressing concerns, there remains room for improvement in collaboration,
especially in incorporating vendor input.
To address the first research question describing the decision-making process, this study reveals a more
top-down approach marked by information dissemination and consultation. In the current system,
information from the municipality is mainly disseminated by the EEO through the federation heads, whoaggregate and relay the feedback specific to their vendor section. However, a number of vendors pointed outthat their concerns are likely to have no impact, indicating that there is room for improvement in thecollaboration process between the city government and vendors.
Regarding the second research question on how collaborative the decision-making process is, thefindings indicate transparency but highlight a need for improvement, especially with vendors. Government
officials actively seek stakeholder input, yet some vendors perceive the plan as rigid, emphasizing the needfor increased clarity and openness to adjustments based on stakeholder insights. The collaborative
governance framework proposed by Ansell and Gash (2008) emphasizes the active inclusion of non-state
stakeholders in a formal, consensus-driven decision-making process. In the Pili Public Market expansion
case, our study reveals elements of collaborative governance but also points to areas where the deliberate,
formal, and multilateral approach to achieving consensus could be strengthened.
In summary, the decision-making processes for the Pili Public Market expansion showcase commendable
efforts initiated by the Municipality of Pili, featuring transparent communication channels and stakeholder
consultations. The study underscores the need for enhanced collaboration, particularly with vendors, toensure a more inclusive and impactful decision-making framework. Specifically, addressing identified gaps
in comprehension and encouraging vendor empowerment will contribute to more effective urban
development projects such as the market expansion.
Additionally, the study aimed to understand the dynamics of interaction among stakeholders and theoverall collaboration in the market expansion. Findings revealed a structured decision-making approachinitiated by the Municipality of Pili, with efforts to engage stakeholders, address concerns, and ensure asmooth relocation process to the new market. The involvement of vendors and federation heads was assessed
through factors such as perceived impact, knowledge levels, and participation in consultations. Despite
concerns, there was recognition of potential long-term benefits. While generally positive, consumer
perspectives indicated a moderate level of knowledge and limited involvement in public hearings.
The stakeholder map emphasized the varying degrees of interest and influence, highlighting the need fortargeted strategies in stakeholder engagement. The Municipality of Pili, with high interest and influence,49

takes a central role, while further empowerment of vendors is necessary for a smooth and organizedrelocation to the new market, and consumer insights should be more proactively sought.

7. Implications of the study
The study acknowledges Pili’s commitment to encouraging participative and empowered citizens,
especially with its recently revised vision-mission to help achieve more sustainable projects. The
municipality’s implemented setup of electing federation heads by vendor sections is commendable, ensuring
the representation of vendors' voices. The study also recognizes certain limitations in making changes to theproject due to the budget originating from the national rather than the local government, leading tocompliance with specific guidelines. However, in areas where the Municipality of Pili has more control, theresearch identifies three key issues related to stakeholder participation: the quality and manner of
information dissemination and consultation, as well as the absence of long-term impact analysis
incorporating varied stakeholder needs.
First, regarding the quality of information dissemination, the market vendors’ understanding is reliant on
their attendance at consultations. However, vendors tend to have less ability to participate due to time
constraints, resulting in increased anxiety and lack of understanding of project progress. More accessible andcentralized information dissemination processes can be explored through online channels such as Facebook
or Viber private groups. Through proper and consistent documentation and circulation of information,
vendors may access updates regarding the progress of market expansion, which can include key presentation
points and digestible minutes of meeting. This may promote increased comprehension and encourage more
involvement of vendors, who tend to be less engaged than federation heads, and even for federation heads
who may have more time constraints, given their responsibilities.
Second, regarding consultation initiatives, for them to be more collaborative, it is essential for
stakeholders to perceive that the process allows and encourages two-way communication. Apart from sharing
feedback during meetings, alternative feedback channels can be incorporated, such as suggestion boxes andonline forums with measures to actively encourage honest feedback on project updates. During meetings,
these suggestions and concerns can be covered within the agenda. Specifically, meeting facilitators can share
why their suggestions are feasible or not, and relay a concrete response to the various stakeholders’ concerns
to make them feel more heard and to provide clarity on the government’s decisions.
Lastly, given budget constraints, the municipality opted to roll out the project in phases. However, Phases
2 and 3 have unclear timelines, with only Phase 1 vendors to be relocated in 2023. Although this addresses
primary market concerns regarding increased parking spaces and improved building facilities, discontent
may eventually arise amongst vendors. For instance, Phase 1 relocated vendors may become dissatisfied withother stall owners having more accessible locations nearer to the highway, while vendors waiting to betransferred may be dissatisfied with remaining in the older location with inferior facilities. In addition,
consumers may grow confused by the fluctuating market setup and opt for other markets instead. In Pili’s
future urban development projects, it is advisable to incorporate a stakeholder impact assessment or,
preferably, a comprehensive feasibility report. This will enable a more seamless implementation, particularly
concerning the anticipated overall project timeline, given its significant impact on vendors' livelihood and,ultimately, the economic growth of the Pili community.
50

Overall, these points would help foster increased collaborative governance characteristics, as mentioned
by Malekpour et al. (2021). The first recommendation promotes a more common understanding of the
project objectives, identification of problems, and possible remedies. The second point promotes conscious
recognition of any pre-existing conflicts and tensions, with efforts to address them. Finally, the third pointpromotes more accountability through transparent progress reporting and tracking systems, providing clearer
project timelines for involved stakeholders.
Within the framework of SDG 16, while recognizing the noteworthy government initiatives in promoting
transparent information dissemination, our research underscores the inherent challenges associated with amore top-down decision-making approach. Vendors, as mentioned, have voiced concerns about theirperceived role being limited to acknowledging predetermined plans emanating from higher authorities,
despite their participation in meetings. As an implication of our study, reinforcing solutions to identified
communication gaps is essential to foster a more inclusive and participatory decision-making process. This
will also allow and encourage a sense of ownership and responsibility from stakeholders in playing theirrespective roles and cooperating to ensure a more successful market expansion project. Overall, this will
create a more collaborative environment amongst stakeholders, characterized by transparency, accountability,and participation.

51

8. References
Ansell, C., & Gash, A. (2008). Collaborative governance in theory and practice. Journal of Public
Administration Research and Theory, 18(4), 543–571. https://doi.org/10.1093/jopart/mum032
Anthony, B. (2023). The role of community engagement in urban innovation towards theco-creation of smart
sustainable cities. Journal of the Knowledge Economy. https://doi.org/10.1007/s13132-023-01176-1
Cai, Y., Jin, F., Liu, J., Zhou, L., & Tao, Z. (2023). A survey of collaborative decision-making:
Bibliometrics, preliminaries, methodologies, applications andfuturedirections.

Engineering

Applicationsof

Artificial

Intelligence,

122,106064.

https://doi.org/10.1016/j.engappai.2023.106064
Isolana, J. B. (2021). Public-Private Partnership (PPP) as an alternative model to public infrastructuredevelopment and service delivery: The case of PPP-Public marketsin the Philippines. Journal of
PublicAdministration

and11(1),

Governance,

40.

https://www.macrothink.org/journal/index.php/jpag/article/view/18213/pdf
Kusumaningrum, M. E., Juliani, T., Amri, K., Silamon, M. A., & Roshayanti, F. (2020).
Sustainable development issue in the relocation policy at Peterongan Market, Semarang City.
JournalofEnvironmental

ScienceandSustainable

Development,

3(1).

https://scholarhub.ui.ac.id/jessd/vol3/iss1/5/
Malekpour, S., Tawfik, S., & Chesterfield, C. (2021). Designing collaborative governance for naturebased

solutions.

Urban

Forestry&

Urban

Greening,

62,127177.

https://doi.org/10.1016/j.ufug.2021.127177
Municipality of Pili. (2023). Volume III ecosystem analysis and sectoral studies. Municipality of Pili:
Economic Enterprise Office. (n.d.). Proposed Relocation Site andGuidelines on the Occupancy. Powerpoint Presentation.
Pili,

Camarines

Sur

Profile–PhilAtlas.

(n.d.).

PhilAtlas.

https://www.philatlas.com/luzon/r05/camarines-sur/pili.html
Pili Profile—Cities and Municipalities Competitive Index. (n.d.). Department of Tradeand Industry (DTI).
https://cmci.dti.gov.ph/lgu-profile.php?lgu=Pili
Reed, M. S., Vella, S., Challies, E., De Vente, J., Frewer, L., Hohenwallner‐Ries, D., &van Delden, H. (2017). A theory of participation: What makes stakeholder and public engagement inenvironmental

management

work?

Restoration

ecology,26,

S7-S17.

https://doi.org/10.1111/rec.12541
Warsono, A. D., Priyanto, S. H., & Riyanto, G. (2016). The municipality’s strategy of thestreet vendors
relocation: A case study on the street vendors relocation from Monument ‘45 of Banjarsari to
Klithikan Notoharjo Market, Surakarta. American International Journal of Contemporary Research,
6 (5).
Watson, V. (2002). The usefulness of normative planning theories in the context ofsub-Saharan Africa.
SAGE Publications, 1(1), 27-52.
Weng, C. Y., & Kim, A. M. (2016). The critical role of street vendor organizations in relocating street
vendors into public markets: The case of Hsinchu City, Taiwan. Cityscape, 18(1), 47–70.
http://www.jstor.org/stable/26328240
52

9. Appendices
Appendix A
The Current Pili Public Market and its Various Stalls
Photos taken mid-September 2023
Current Pili Public Market

Market Vendors’ Stall Products

The photos show different types of stalls in the Pili Public Market, with fresh goods such as fish, fruits, andvegetables being sold. Snacks and other household goods are also available.

53

Appendix B
The New Pili Public Market
Photos taken mid-September 2023
New building under construction

Target final look of Phase 1 Market

54

Appendix C
Phase 1 Temporary Relocation Areas and Primary Research Site
Photos taken as of mid-September 2023

The photos show different temporary relocation areas in the Pili Public Market with most stalls using
tarpaulins as covers and mostly wooden support posts.

55

Appendix D
Sample Interview Questions for Government Representatives
1. What were the main factors or reasons that led to the decision to relocate the public market? What is
the government's vision for the new market relocation? Ano ang mga pangunahing dahilan sa
pagpapasya na ilipat ang pampublikong pamilihan ng Pili? Ano ang pinakalayunin o nais makamitsa paglipat ng palengkeng ito?
2. Can you provide some details about the new location chosen for the public market? What were thekey considerations in selecting this site? Maaari ka bang magbigay ng ilang detalye tungkol sabagong lokasyong napili para sa pampublikong pamilihan? Ano ang mga pangunahing
konsiderasyon sa pagpili ng lugar na ito?
3. How was the decision-making process for the public market relocation conducted? Which specificoffices (or groups, individuals) are involved in this decision-making process? Paanoang naging
proseso ng pagdedesisyon ng munisipyo para sa paglipat ng pampublikong pamilihan? Aling mga
opisina (o grupo o indibidwal) ang lumahok o napabilang sa proseso ng paggawa ng desisyon na
ito?
4. Were there initiatives to consult other market stakeholders (vendors/consumers)? If yes, how?If not,why so? Mayroon bang mga gawain para ikonsulta sa iba’t ibang grupo na maaaring maapektuhanng pagpapalawak gaya ng mga tindero/tindera at mamimimili? Kung oo, paano? Kung hindi, bakit?
5. Is there anything else you would like to share with us regarding the public market relocation
process? May iba pa ba kayong gustong ibahagi sa amin kaugnay sa paglilipat ng palengke?
*Questions adjusted based on the specific office and position of the interviewee.

56Appendix E

Survey Questionnaire for Vendors and Federation Heads
Good day! This survey is about the relocation of the Pili Public Market. We appreciate your time tocomplete this survey, which will provide valuable information for our research study on the decisionmaking processes in the Pili Public Market relocation.
Ang survey na ito ay tungkol sa pagpapalawak ng Pili Public Market. Nagpapasalamat kami sa sa inyong
oras upang makumpleto ang survey na ito na magbibigay ng mahalagang impormasyon para sa aming
pananaliksik tungkol sa proseso ng pagdedesisyon sa pagpapalawak ng Pili Public Market.
Date of the interview [Petsa]:

Interviewer:

Name (Interviewee):

Sex: Male / Female / Other

Age:
Duration (years, months) being a vendor in Pili Public Market [Tagal ng pagbenta sa Pili PublicMarket]:Duration of time in the relocated area (temporary place) [Tagal sa pansamantalang lugar]:Type of product sold by vendor [Produktong binebenta]:
Questions:I.

TEMPORARY RELOCATION
1. How has the temporary relocation impacted you (ex., your sales or business)? Rate from 1-5.
Gaano kalaki ang naging epekto sa iyo ng pansamantalang pagpapalawak ng palengke?
Imarka mula 1-5.
1 —————— 2 —————— 3 —————— 4 —————— 5 —➤No impact at all

With great impact

Walang kahit anong epekto

May malaking epekto

2. If with impact, describe the expected impact from 1 to 5.
Kung may epekto ito sa inyo, imarka ang inaasahang epekto mula 1 hanggang 5.
1 —————— 2 —————— 3 —————— 4 —————— 5 —➤Highly negative

Highly positive

Napakanegatibo

Napakapositibo

3. Based on no.2, why so? Bakit niyo nasabi?

57

II.

MARKET EXPANSION
4. Where/from whom did you first learn about the expansion of the market? Paano niyo unang
natutunan / kanino niyo nalaman ang tungkol sa paglipat ng palengke?

5. How much details do you know regarding the expansion plans for the market? Rate from 1-5.
Gaano niyo kaalam ang tungkol sa mga plano sa pagpapalawak ng palengke? Imarka mula 15.
1 —————— 2 —————— 3 —————— 4 —————— 5 —➤I do not know anything

Details are very clear

Wala akong alam

Napakalinaw ng mga detalye

6. How much do you think the expansion will impact you in the future (ex. on your sales orbusiness)? Rate from 1-5.
Sa tingin mo, gaano kalaki ang magiging epekto sa iyo (hal. sa iyong benta o negosyo) ang
pagpapalawak ng palengke? Imarka mula 1-5.
1 —————— 2 —————— 3 —————— 4 —————— 5 —➤No impact at all

With great impact

Walang kahit anong epekto

May malaking epekto

7. If with impact, in what aspect/s will it impact you? (Exs. Income, Salary, Transportation,
Basic expenses)
Kung may epekto ito sa inyo, sa anong aspeto? (Hal. Kita, Suweldo, Transportasyon, Mga
pangunahing gastos)7.1-Immediate impact (pangunahing epekto):
7.2-Long-term impact (pangmatagalang epekto):

8. If with impact, describe the expected impact from 1 to 5 of the market expansion.
Kung may epekto ito sa inyo, imarka ang inaasahang epekto mula 1 hanggang 5.
1 —————— 2 —————— 3 —————— 4 —————— 5 —➤Highly negative

Highly positive

Napakanegatibo

Napakapositibo

8.1 - Why so? Bakit niyo nasabi?

58

9. Have you been consulted (talked to/listened to) by the Pili Municipality about the relocationplans? ☐ Yes ☐ No
Nakonsulta na ba kayo ng munisipyo ng Pili tungkol sa mga plano sa pagpapalawak ng
palengke?
10. Based on no. 9, can you describe how you participated or were consulted?
Pwede mo bang ilarawan kung paano kayo lumahok o kung paano kayo kinonsulta?

11. If yes, how many times did you participate (ex. consultation, hearing)? (ex. 1, 2 times) Kungoo, gaano kadalas kayo lumahok sa konsultasyon o hearing? (1 o 2 beses)
12. How much monthly rent did you pay before in the old market (pre-temporary relocation), and do
you know how much you will pay in the future stall of the new market?
Magkano ang renta ninyo sa dating Pili Public Market at alam niyo ba ang bagong renta sa
market extension?
12.1 - Rent in the old market: ₱12.2 - Rent in new market (if known): ₱*Additional follow-up questions to ask vendors (as needed):
TEMPORARY RELOCATION
1. How was your experience like for the temporary relocation site? Kumusta ang naging inyong
karanasan nung nalipat kayo nang pansamantala?
EXPANSION
2. When you learned about the expansion, what were your thoughts? How did you feel (before vsnow)? Nang nalaman niyo ang tungkol sa pagpapalawak ng palengke, ano ang inyong
naisip? Ano ang naramdaman mo tungkol dito (dati vs ngayon)?
3. What are your suggestions or recommendations about the expansion (For thedecision-makers, and in general)? Ano ang iyong payo o rekomendasyon tungkol sa
pagpapalawak ng palengke? (Para sa mga gumagawa ng desisyon, at sa pangkalahatan)*Additional follow-up questions to ask federation heads (as needed):
TEMPORARY RELOCATION
1. What is the general view of the market vendors in your specific group (ex. Meat, fish, eatery) on
the expansion of the market?
- Whether positive or negative. (ex. complaints, concerns, worries, excitement)
2.

Were the concerns addressed, if any? Any other key suggestions from your group?

How do you prospect the business (of your specific group of vendors) to go after the
relocation/expansion of the market?

59

Appendix F

Survey Questionnaire for Consumers
Good day! This survey is about the relocation of the Pili Public Market. We appreciate your time tocomplete this survey, which will provide valuable information for our research study on the decisionmaking processes in the Pili Public Market relocation.
Magandang araw! Ang survey na ito ay tungkol sa pagpapalawak ng Pili Public Market. Nagpapasalamat
kami sa sa inyong oras upang makumpleto ang survey na ito na magbibigay ng mahalagang impormasyon
para sa aming pananaliksik tungkol sa proseso ng pagdedesisyon sa pagpapalawak ng Pili Public Market.
Questions:
1. Are you aware of the relocation of the market?

☐ Yes ☐ No

Alam niyo ba ang plano tungkol sa paglipat ng palengke?

☐ Oo ☐ Hindi

2. How much do you know about the relocation plans for the market? Rate from 1-5.
Gaano niyo kaalam ang tungkol sa mga plano sa pagpapalawak ng palengke? Imarka mula 15.
1 —————— 2 —————— 3 —————— 4 —————— 5 —➤I do not know anything

Details are very clear

Wala akong alam

Napakalinaw ng mga detalye

3. Where did you learn about the relocation of the market? Paano niyo natutunan / kanino niyo
nalaman ang tungkol sa paglipat ng palengke?
4. How much do you think the relocation will impact you (if a vendor/business owner: or yoursales or business)? Rate from 1-5.
Sa tingin mo, gaano kalaki ang magiging epekto sa iyo (kung tindero/tindera: sa iyong benta onegosyo) ang pagpapalawak ng palengke? Imarka mula 1-5.
1 —————— 2 —————— 3 —————— 4 —————— 5 —➤No impact at all

With great impact

Walang kahit anong epekto

May malaking epekto

5. If with impact, in what aspect/s will it impact you? (If vendor: Exs. Income, Salary,
Transportation, Basic expenses; If consumer: Expenses, Access, Transportation)

60

Kung may epekto ito sa inyo, sa anong aspeto? (Kung tindero/tindera: Hal. Kita, Suweldo,
Transportasyon, Mga pangunahing gastos | Kung mamimili: gastos, pag-access,transportasyon)

If no impact at all, why so? Kung walang kahit anong epekto, bakit kaya?
6. If with impact, describe the expected impact from 1 to 5.
Kung may epekto ito sa inyo, imarka ang inaasahang epekto mula 1 hanggang 5.
1 —————— 2 —————— 3 —————— 4 —————— 5 —➤Highly negative

Highly positive

Napakanegatibo

Napakapositibo

Why so? Bakit niyo nasabi?
7. Have you been consulted by the LGU about the relocation plans? ☐ Yes ☐ No
Nakonsulta na ba kayo ng munisipyo ng Pili tungkol sa mga plano sa pagpapalawak?
☐ Oo ☐ Hindi

61

62

Working Group 3
Economics

Potential of Agritourism Sites Development:
A Case Study of Selected Farms in PiliGroup Members:

Xingwei DONG *Myrian Francisca CORONEL MENDOZA
Sabai PHU
Xiaomeng LI

UPLB Research Assistant:
Don Ramti B. Bendaña

Advisors:
Takeshi HIGASHIMURA (GSID)
Maria Luz MALABAYABAS (UPLB)* Group Leader

63

Table of Contents
1

2Introduction
1.1

Background

1.2

Problem Statement

1.3

Research Questions and Objectives

Literature Review
2.1

Conceptual Framework
2.1.1 Definition of Agritourism
2.1.2 Factors Enhancing Agritourism

3

2.2

Gaps in Literature

2.3

Significance of the Research

Research Design
3.1

Methodology
3.1.1 Data Collection
3.1.2 Data Analysis

3.2

Targets/ Subjects (respondents)
3.2.1 Farm Sites
3.2.2 Government Sites

3.3
4

Limitations and further research

Findings
4.1

Process of accreditation

4.2

Objective 1: To ascertain potential agritourism sites in Pili.
4.2.1 Strengths
4.2.2 Weaknesses
4.2.3 Opportunities
4.2.4 Threats

4.3

Objective 2:

To analyze the strengths, weaknesses, opportunities, and threats (SWOT) and design

strategies for the sites for enhancing successfully on agritourism.
4.3.1 Engagement of Young Generation
4.3.2 Adaptation to Natural Environment
4.3.3 Cultivation of Financial Resources
4.3.4 Social Network Enrichment
4.3.5 Tourism Training
5

Conclusion

Acknowledgement
References
Appendix
Observation sheet (designed based on the standards of accreditation)
Questionnaire Sheet (semi-structured)64

1. Introduction
1.1

Background
The Philippines, with its vast agricultural land and abundant natural resources, is an ideal destination forfarm tourism. Its rich biological diversity and strong cultural heritage make agritourism a promising sector forcontributing to the country’s economic development, especially in rural areas. In that sense, the governmentof The Philippines has been actively working to develop the agritourism industry, recognizing its potential for
economic growth, job creation, and sustainable development (Asia Research Media, 2013). Through the Farm
Tourism Development Act of 2016, the government aims to foster, advance, and promote farm tourism
activities.
Pili, located in Camarines Sur, Philippines, is the provincial capital known as the “Agro-Industrial Centerof Bicol” due to its rich agricultural heritage and natural beauty. With a population of around 99,196 residents
as per the latest census data (2020), Pili has experienced steady growth fueled by economic opportunities andinfrastructure development. Farm destinations are becoming valuable tourism assets in the Philippines,
offering visitors a chance to experience local culture and way of life while contributing to tourist growth. Piliholds great potential for agritourism thanks to its beautiful agricultural landscapes, cultural heritage, and ecotourism attractions (DA Bicol, 2022).
Recognizing the untapped potential, the Pili Local Government Unit is earnestly working towards
transforming the city into a premier tourist destination in Camarines Sur. In line with this vision, the Pili
Tourism Culture Arts and Sports Development Office (PTCASO), a local tourism office, was established andcurrently, a significant Agro-city project is under consideration as part of the proposed Comprehensive Land
Use Plan (CLUP). This ambitious initiative entails the construction of a circumferential road, incorporating acorridor along Mt. Isarog Natural Park, and encompassing strategically chosen potential agritourism farm siteareas, including the six farm sites studied in this research.
However, Filipino farmers encounter various common challenges when it comes to implementing
agritourism activities on their farms. These challenges include a lack of essential skills, training, and capital
investment, which can restrict their ability to attract tourists. Moreover, limited access to financing, marketingand promotion skills, time constraints, and infrastructure limitations can also impede their efforts (Yamagishi,
Gantalao, & Ocampo, 2021).
1.2

Problem Statement
Food security in the Philippines relies heavily on agriculture, but the industry has been declining due to alack of interest from youths and the reluctance of older farmers to adopt new technologies (FAO, 2014).
Filipino farmers, categorized as low-income citizens, need additional income sources (Yamagishi, Gantalao,& Ocampo, 2021). To address this, the government has been promoting agritourism as a potential solution(Fresnoza, 2011). This is especially evident in the Republic Act No. 10816 or the Farm Toursim Development
Act of 2016, which establishes the rules and regulations around the promotion of Farm Tourism and recognizes
the potential between tourism and agriculture as a means of additional source of income for farmers.
The Republic Act implemented less than five years ago, has not been fully executed at the micro-level.
Even though the Department of Tourism (DOT) has accredited approximately 170 farm tourism sites acrossthe country, important issues remain unaddressed, such as the lack of widespread public awareness regarding65

farm tourism and its benefits, insufficient understanding of farm tourism among relevant government agencies
and limited marketing efforts by local government units. Additionally, the voluntary nature of DOT
accreditation leads operators to hesitate to undergo the process without a clear comprehension of theadvantages it brings to farm tourism (Yamagishi, Gantalao, & Ocampo, 2021).
Pili is not exempt from these problems. Low-income farmers are hesitant to invest in transforming theirfarms into agritourism sites, and professional customer service, standard operating procedures, financial andhuman resources, and tourist facilities are lacking (Tugade, 2020). Additionally, there is limited information
on agritourism's current status, challenges faced by local farmers, government support, and the area's potential
for agritourism. Moreover, only two accredited agritourism sites have been identified in Pili.
This research explores the potential for agritourism in Pili by analyzing the current situation and thechallenges of its promotion there. Ultimately, the study intends to contribute to the municipality by providing
strategies to enhance farmers’ successful involvement in agritourism while supporting the ongoing efforts of
the local government in promoting agritourism.
1.3

Research Questions and Objectives
Research Questions:
1. What are the strengths, weaknesses, opportunities, and threats (SWOT) of the selected agritourism sites
in Pili based on human, financial, physical, and social factors?
2. What strategies can be implemented for enhancing the development of potential agritourism sites usinga SWOT model analysis?
Research Objectives:
1. To ascertain potential agritourism sites in Pili.
2. To analyze the strengths, weaknesses, opportunities, and threats (SWOT) and design strategies for thesites for enhancing agritourism.

2. Literature Review
2.1 Conceptual Framework
2.1.1 Definition of Agritourism
Varying in its interpretations among different authors and locations, for the purpose of this research,
Agritourism will be defined by the concept provided by the Department of Tourism of the Philippines, as
follow:
Agritourism or also referred to as “farm tourism,” is a form of tourism activity conducted in a rural farmarea which may include tending to farm animals, planting, harvesting, and processing farm products. It covers
attractions, activities, services, and amenities as well as other resources of the area to promote an appreciationof the local culture, heritage, and traditions through personal contact with the local people. (Department ofTourism, 2004, p. 1).
2.1.2 Factors Enhancing Agritourism
To achieve sustainable agritourism development, it is necessary to examine the agritourism potential,
explore various approaches and strategies for development, and assess a number of factors. One of the most66

prominent analyses on agritourism in the Philippines points out that the farmers’ lack of training, skills, andcapital investment represent major potential factors in transforming farms into agritourism sites (Yamagishi,
Gantalao & Ocampo, 2020). The conceptual framework of this work is a holistic approach to these factors
when analyzing the potential transformation into agritourism sites, presenting them as follows: Human,
Financial, Physical, and Social Capital.
By analyzing these four capital factors collectively, it becomes possible to comprehensively assess thepotential for enhancing agritourism at selected sites. This analysis provides a holistic understanding of thesite's readiness regarding human expertise, financial resources, social networks, and physical infrastructure.
This holistic understanding would enable stakeholders to identify strengths, address weaknesses, andimplement strategic improvements that contribute to the successful development of agritourism offerings at
each site.
1) Human Capital:
Human capital, as part of the Sustainable Livelihood Approach (SLA), encompasses the skills, knowledge,
good health, and ability to work that enable individuals to pursue their livelihood objectives (Sayer & Campbell,2003). Previous research highlights the importance of education and training for farmers, as they often lackthe entrepreneurial skills and knowledge needed for non-agricultural enterprises (Dias et al., 2019). Ciolac etal. (2020) also emphasize the significance of understanding agritourism through awareness campaigns, training,and partnerships. Hence, when converting farms into agritourism sites, it is essential to assess the farmers'
qualifications to ensure their capacity to manage and operate the site while delivering quality services tovisitors. This includes evaluating their education level, skills, and knowledge. Additionally, the research will
analyze both the farmers' education level and the government's provision of training on agritourism,
acknowledging the importance of addressing both aspects.
2) Financial Capital:
In the Sustainable Livelihoods Approach (SLA), Financial Capital refers to the financial resources andcredit available to farmers for meeting their production objectives (Sayer & Campbell, 2003). This includes
factors like household per capita income, expenditure, income sources, and access to credit opportunities.
Government support has been recognized as crucial for agritourism development, as financial constraints canhinder tapping into agritourism potential, especially in less attractive farms (Ammirato et al., 2020). However,studies in strong economies where farmers have their own capital for initiating agritourism businesses might
not highlight funding as critical (Comen, 2017; Chase et al., 2019; Kumbhar, 2021; Fatmawati et al., 2021),
which could not be the case in developing countries where generally the access to capital may be a problem
for the farmers. (Baipai et al., 2022). Considering the significance of both perspectives, this research aims togather information on the current financial assistance provided by the government and the capital assets of the
farmers to understand the situation comprehensively.
3)

Physical Capital:

The “5 A’s” approach (Avila & Libosada, 2009) listed below will be used for a more comprehensive
analysis of the physical factors, which is the same used by the Department of Tourism of the Philippines when
encouraging the LGUs to adopt tourism strategies.
Arrival: pre-arrival marketing, air/sea/land transport, air/sea ports
Access: roads, terminals, and related infrastructure67

Accommodation: hotel, lodging, and restaurants
Attractions: natural & man-made; andActivities: rest, recreation and education
4)

Social Capital:

Social capital is one of the other assets in the framework of the SLA approach. It is defined as an importantfeature of a community, capable of influencing the stock and flow of the other capitals (Annet et. al., 2007).
Another definition as the one provided by Putman (1995) refers to it as the set of networks, social trust, andnorms that foster cooperation, collective action, and mutual benefit. In the agritourism context, authors like Li
and Barbieri (2020) refer to social capital as a setting boost of the operators' chances of success and theirentrepreneurial identity, with high chances of increasing their clientele. Thus, aspects such as networks andconnections, formal and informal groups, collective representation, shared values, and behaviors, as well as
leadership and decision-making mechanisms for participation, will be analyzed in this research.
2.2 Gaps in Literature
The literature has revealed the increasing importance of addressing obstacles, challenges, and opportunities
for enhancing agritourism activities. Some of them have already been identified by Lustre (2018), highlighting
the vulnerability to natural disasters, poor road conditions, and limited government financial support. Tugade(2020) states that further research is necessary to enhance our understanding of the essential entrepreneurial
skill set in the agritourism sector. The call for conducting case-study analyses, observations, and interviews
involving successful and unsuccessful agritourism sites to gain a deeper understanding of the industry (Phelan
et al., 2011), and the uniqueness of each farm (Caning, 2019) has also been proposed. Moreover, Hung et al.
(2015) acknowledge the importance of identifying critical entrepreneurship capabilities, management
strategies, and farm resources, among others.
Yeboah et al. (2016) highlighted that existing studies mainly focus on established large farms alreadyengaged in agritourism. Additionally, given the contextual nature of agritourism, conducting a local study
would be beneficial in understanding the specific perspectives of Filipino entrepreneurs involved inagritourism entrepreneurship.
This research addresses these gaps by conducting a field visit in Pili to explore its potential for agritourism
by analyzing the current situation and the challenges of its promotion there. Hence, human capital is among
the studied factors to understand the entrepreneurship skills of the farmers. In addition, having a qualitative
analysis as the main approach, interviewing different actors (government and farmers), and visiting a range of
non-accredited and accredited farms in Pili, as well as a successful accredited agritourism farm outside themunicipality, this study provides a comprehensive overview of Agritourism in Pili.
2.3 Significance of the ResearchThis research is considered of national relevance, aligned with the Philippine government's efforts topromote agritourism in the country. With the SWOT model as the primary analysis approach and using
qualitative evidence, this study provides specific insight related to the potential agritourism sites alreadyidentified by the government of Pili, as well as empirical and contextual evidence that has not been covered
yet in the target Municipality.
68Moreover, this research can contribute to developing strategies and interventions of the local government
units (LGUs) to support the current efforts in promoting agritourism in Pili municipality. Furthermore, thefindings will also offer valuable insights into the farm's subjects of this study.

3. Research Design
3.1 Methodology
We adopted a qualitative approach combining personal observation and semi-structured interviewing fordata collection in our research. Subsequently, data analysis involved SWOT and TOWS methods, assessing
internal and external factors to strategize agritourism development. Through these qualitative methods, we
gained a comprehensive understanding of Pili's agritourism landscape, facilitating strategic planning forsustainable growth.
3.1.1 Data Collection
The primary methods employed for data collection were personal observation and semi-structured
interviewing.
The first method was the personal observation, which involved a direct engagement widely employed
across various fields, allowing observers to immerse themselves in the natural setting under study. Thisapproach was particularly useful for evaluating the physical factors on a farm, including infrastructure,accessibility, and facilities, and allowed observers to systematically document the state of the farm's physicalelements. During our overseas fieldwork in the Philippines, we extensively recorded farmers' activities, byusing observation sheets for systematic data collection. This included arrival, access, accommodation,
attractions, and activities faced by farmers. Furthermore, this methodology guaranteed the prioritization of
objectivity by ensuring that observers remain fully engaged and free from preconceived notions or biases
throughout the process of observation. Through personal observation, observers assessed the physicalconditions of the farm and the nuances of farmers' practices.
The second method was the conducting of semi-structured interviews, which combined structured andunstructured elements to achieve a balance between obtaining reliable, comparable data and allowing
flexibility for exploring emergent ideas during the interview process. This approach involved posing a set ofopen-ended questions within a predetermined thematic framework, facilitating follow-up questions. During
our overseas fieldwork, interviewers prepared questions in advance, adjusting the order as needed. Taking into
account the four factors mentioned in our conceptual framework, interviewers conducted semi-structured
interviews with farmers from six farm sites and representatives from five local government offices. These
interviews aimed to delve into farmers' experiences, practices, and the role of the local government. The semistructured format fostered a natural, conversational flow while ensuring organized data collection. Thus, acomprehensive understanding of agritourism in Pili by allowing in-depth exploration while maintaining a
structured approach to data collection was possible. A sample of both observation and interview sheets isprovided in the Appendix.
3.1.2 Data Analysis
The main tools utilized for data analysis involved the SWOT and TOWS analysis methods. The SWOT
(Strengths, Weaknesses, Opportunities, and Threats) and TOWS (SO, WO, ST, and WT) methods are strategicplanning tools used to evaluate the internal and external factors affecting an organization or a project (Kowalik,69

2017). They were particularly useful in identifying the potential of the development of agritourism sites in Pili,
Philippines.
In the first stage of our research, the SWOT analysis was employed to examine the internal strengths andweaknesses, as well as the external opportunities and threats Pili faces. The information for the SWOT was
derived from our interviews, observations, and document analysis. This analysis provides a clear picture of thecurrent situation and potential future scenarios, which will be presented in the Findings section.
Table 1: SWOT model for analysis on potential
Internal Factors
Strengths (S)Weaknesses (W)

S1:

W1:
External Factors
Opportunities (O)Threats (T)

O1:

T1:

The second stage included the TOWS method, which is an extension of the SWOT analysis. It takes theinformation from the SWOT analysis and uses it to generate strategic options. The main purpose of a TOWS
analysis is to reduce threats, take advantage of opportunities, exploit strengths, and reduce weaknesses. It is
more of an action tool rather than an analysis one, best used as an addition to the analytical SWOT tool to help
decide what to do with the findings. In the context of our research, the TOWS served as our main tool to design
the strategies for the farms and government.
Table 2: TOWS model for Strategy Designing

Opportunities (O) +Threats (T) -Strengths (S) +Weaknesses (W) -SO: Use strengths to

WO: Reduce weaknesses tomaximize opportunities

develop opportunities

ST: Use strengths to reduce
threats

WT:

Avoid threats by

reducing weaknesses

For each combination of internal and external factors, the quadrants were built answering the following
questions:
Strengths and Opportunities (SO) – how to use the strengths to take advantage of the opportunities?
Strengths and Threats (ST) – how to take advantage of the strengths to avoid real and potential threats?
Weaknesses and Opportunities (WO) – how to use the opportunities to overcome the weaknesses?
Weaknesses and Threats (WT) – how to minimize the weaknesses and avoid threats?
In the context of agritourism in Pili, TOWS analysis might suggest strategies such as leveraging the natural
beauty of the area (a strength) to attract tourists (an opportunity), or investing in infrastructure (removing aweakness) to mitigate the other competitors (a threat) in the local agritourism market. Subsequently, 6 aspects
70

from the TOWS table were selected and considered the most relevant for the purpose of our research andstrategies proposal.
3.2 Targets/ Subjects (respondents)
Our primary criterion for selecting our research target revolves around gathering information on the current
status of agritourism development in Pili, Camarines Sur. This involves examining both the potential of theexisting farm sites and the external factors that contribute to the growth of this industry. Our focus on datacollection through interviews will include both potential agritourism locations and relevant government
departments.
3.2.1 Farm Sites
When selecting farm sites as interview targets, we adhered to the specifications outlined in the documentof Ecosystems analysis and sectorial studies (Municipality of Pili Camarines Sur, 2019). We were also assistedby Jessel Anne Rodriguez to identify farm sites as emerging businesses of agritourism.
Additionally, for a comparative baseline of a privately operated and accredited agritourism farm, we visited
Nesting Place Integrated, located outside the Pili municipality. This visit allowed us to observe and analyze
the developmental disparities between Department-of-Tourism accredited and yet-to-be-accredited farms. The
insights gained shed light on how to overcome obstacles to obtaining accreditation and offer valuable insights
for navigating the official accreditation process for the potential agritourism sites in the Pili municipality. A
short list of the farm sites is given below.
Table 3: List of the farm sites
Index

Categories

1
2

Non-accredited

7

St. Raphael Archangel Farm

ATI accredited

focus

on

production
Community & church-based,focus on tourism
focus

on

production

Carmel Agri-Learning Farm, Inc
Organic Agriculture Center CBSUADOT accredited

Family-based,

Family-based,

Miracle Leaf

5
6

Description

MCF Agro ventures (Choco Farm)

3
4

Name

ATIng UMA, ATI Bicol
Nesting Place Integrated

Family based, focus on training
Academic-based,

focus

on

training
Institution based, focus on
training
Family based, focus on tourism

Source: Created by Authors based on information obtained through fieldwork (2023).
This short introduction to the farm sites provides a comprehensive overview. It delves into the physicalcapital, addressing the overall facility situation and main activities; human capital, explaining the humanresource situation; financial capital, describing the financial status; and social capital, emphasizing the71interaction with the community and the progress of the accreditation process.
MCF Agro Ventures, also known as Choco Farm, operates with basic facilities. It primarily focuses onagriproducts and marketing. The family of the owner actively supports the farm, especially his nephew, whowill inherit the business in the future. Its income stems from a variety of agriproducts, with cocoa as arepresentative source. Choco Farm collaborates closely with the local agriculture association, which aids inproduct processes. While not accredited as one, it functions as a learning site.
Picture 1:

Access to MCF Agro Ventures (Choco Farm)

Source: Taken by authors during fieldwork (2023)
St. Raphael Farm, situated by the church, has a good facility status. However, its tourist site isinconspicuous, without proper signage. The primary activities revolve around agritourism, religious and local
education, featuring showcases of regional plant species, a mini zoo, religious activities, and farm-to-table
experiences. Notably, the site’s approach to engaging the younger generation in agritourism involves
innovating activities, such as modifying existing fictions or religious stories to align with the Bicol region'scontext. In Picture 2, a rabbit-breeding area named “Alice in Bicolandia” is shown. The wall painting, craftedby local university students with an Alice in Wonderland theme, features Bicol’s iconic Mount Mayon in the
background. In terms of human resources, a noteworthy challenge lies in the site's development after the priest's
retirement. Financially, the farm relies on income from the parish. While engaged in community development
by collaborating with the Central Bicol State University of Agriculture (CBSUA) providing training, the farmis yet to undergo the accreditation process.

72

Picture 2: “Alice in Bicolandia” in St. Raphael Farm

Source: Taken by authors during fieldwork (2023)
The Miracle Leaf facility is currently unsuitable for agritourism as its main focus is on production. Its
income is generated primarily through production and was previously supplemented by supplying processedmoringa leaf products. However, supply was interrupted when the contract with their distributor was broken
amid the challenges posed by COVID-19 disruptions. The owner actively shares the concepts of technologicalfarming with the community. The products from the moringa leaves hold organic accreditation, although thefarm itself is still in the process of obtaining official government accreditation to be an agritourism site.
Carmel Agri-Learning Farm boasts a well-designed and attractive facility, meeting the standards foroffering training and farm tours. With a primary focus on training, the farm derives its financial resources fromboth production and training contracts with the government. The farm owners, a well-educated couple withexperience in public institutions, have presented proposals for the city's agritourism development to the mayor.
They have established a partnership with Philrise for training initiatives, and the farm holds accreditation from
ATI as a learning site for agriculture.
Picture 3.

Carmel Agri-Learning Farm Tour Map

Source: Taken by authors during fieldwork (2023)
The Organic Agricultural Centre at CBSUA operates as a facility within the university, serving for researchand simple educational farm tours for students. The primary emphasis is on education, and while the center
produces agriproducts such as floral tea, they are not commercially available due to constraints in large-scale
production capacity. Training sessions are conducted by university researchers, with the budget sourced fromthe university. Notably, it is the first site in the region accredited by the Department of Tourism, predating the
mandatory processes of becoming a learning site (accredited by ATI) before an agritourism site (accredited by73DOT).
The Agricultural Training Institute (ATI) functions as a government department responsible for accrediting
learning sites, and the farm site in the institution serves as a model for agritourism by showcasing the essential
components of such sites. The facilities are well-suited for both training sessions and brief tours. As one of the
16 regional training centers, it addresses local demands for agriculture training and supports regional
agribusiness by supporting business proposals from emerging farm leaders. Primarily funded by the National
Department of Agriculture, the ATI collaborates with local universities and the Department of Science andTechnology. As a part of the training institution, the showcasing farm has earned accreditation from the
Department of Tourism as well.
Nesting Farm, situated outside Pili and accredited by the Department of Tourism (DOT), stands out for its
extensive scale and high standards. Emphasizing “healing trips,” the farm's primary income is derived fromtourism visits, supplemented by a training contract with the government. The owner, also a lecturer at CBSUA,
seized the opportunity to develop her business during the COVID-19 pandemic and successfully navigated theaccreditation process during that period. The accreditation brought along government support, enhancing heraccess to financial resources and enabling continual improvement in her business services.
3.2.2 Government Sites
When selecting government departments for interviews, our criteria revolve around three key standards.
We ensure that the chosen departments align with these criteria to gather comprehensive and relevant
information for our research.
Function Relevance: The department's functions should pertain to agriculture, tourism, local culture, or
agriculture-related training.
Local Level: The selected departments should operate at the local level, ensuring a focus on regionalsituations.
Diversity in Government Organizational Forms:

Preference is given to departments that represent

various government organizational forms. This approach aims to capture the interactions between different
governance structures.
A list of the government departments visited is given below.

74

Table 4: List of the government departments
Index

Level

Name

Description
Responsible for offering

Municipal Agriculture Office1

aid to farmers including
seeds, fertilizer, andmachinery
Responsible for

Local Government
2

Municipal Planning & Development

Unit (of Pili)

Officeformulating the tourism
master plan, planning
the agro-city andagritourism belt.

Pili Tourism, Culture, Arts and Sports

3

Development Office

Responsible for holding
cultural events, helping
attract tourists
Responsible for the

Department of Agriculture, Regional4

Field Office 5

promotion of agriculture
development by
providing policy
framework

Regional (of Bicol)

Responsible for5

Agriculture Training Institute,providing training on

Regional Training Centre V

digital and ecologicalfarming to farm leaders

Source: Created by authors based on information obtained through interviews (2023)
3.3 Limitations and Further Research
Due to time limitations, this study focused only on six agritourism sites strategically selected in alignment
with the research objectives. Although more quantitative supporting data is necessary for a morecomprehensive analysis of agritourism potential, and additional studies of the demand are required, the study
will serve as the basis for future research and understanding of the potential enhancement of transforming
current farm sites into agritourism in Pili.

75

4.Findings
4.1 Process of accreditation
Figure 1:

Process of accreditation of agritourism sites.

Source: Created by Authors based on information obtained through fieldwork (2023)
One of the main findings during the fieldwork and interviews revolves around the accreditation process,which is crucial in understanding the agritourism situation in Pili. To become an agritourism site, thoseinterested must first apply to be a “Learning site.” This accreditation is given by the Agricultural Training
Institute (ATI), which is under the scope of the Department of Agriculture (DA). Only when this process isfinished, the farmers can apply to be an accredited agritourism site, with another set of requirements set by the
Department of Tourism (DOT). In between, the farmers have the option to apply to be a “Farm School,” anaccreditation given by the Technical Education and Skills Development Authority (TESDA). Thus, in addition
to the fact that not all the farmers have the intention of turning their property into a learning site, it is often
difficult for them to comply with the accreditation process because they have to respond to different
requirements from each of the different institutions, discouraging their involvement in agritourism.
It is noteworthy to highlight that the only two accredited agritourism sites in Pili are both institutionalbased. The Organic Agricultural Center CBSUA is a part of a university and obtained accreditation prior to theimplementation of the learning site accreditation process preceding agritourism site accreditation. Similarly,
UMA, affiliated with the Agriculture Training Institution, functions as a showcase for essential components
and standards for learning sites. As a component of the government office, it enjoys convenient access to thenecessary information required for the accreditation process.
764.2 Objective 1: To ascertain potential agritourism sites in Pili.
To understand the current situation of the agritourism sector in Pili municipality, we delivered a SWOT
model analysis, as shown in Table 5, from our case studies of selected farm sites and in-depth interviews withrelated government departments. As explained in the methodology section, our analysis is based on four factors,
physical, human, financial, and social capital. Social capital is one of the factors we uncovered from conducting
fieldwork in the Philippines. Strong social networks and capital exchanges were observed in the Pilimunicipality which served the agritourism development as opportunities as well as threats (external factors in
our SWOT model). Meanwhile, there are physical, human, and financial capitals explored as internal factors
to our selected agritourism sites. The Strengths, Weaknesses, Opportunities, and Threats we discovered in theagritourism of Pili municipality are explained as follows.
Table 5: SOWT model
Strengths (S)Weakness (W)Physical Capital
S1. Strategic Location of Pili for attracting tourists (e.g., Mt. Isarog Natural Park,
airport, capital town of Bicol region)
S2. Fertile land for agriculture
S3. Unique attractions (eg. Native trees, Cocoa trees, Beautiful scenery, Alice inBicol Land, innovative fusion of IT + agriculture)
S4. Certificated organic agriproducts (sustainability)
Human Capital
S5. The educational background of the owners helps to the engagement into
agritourism
S6. High-skill trainers (in ATI-accredited sites)
S7. Strong interest in community development (eg. no one is left behind mindset)
S8. Active members of community development activities
Financial Capital
S9. Training contracts with institutions (TESDA) provide a relatively stable
income for accredited farmS10. Diversification in production as a profitable source of income (eg. highvalue products like a power bar, 3-flavored ginger tea, moringa powder tea)

Physical Capital
W1. Limited farm facilities (e.g., unavailability of the front desk, invisible
signboard and directional boards from the main road to the farm, availability ofrestroom, limited capacity of training areas)
W2. Poor road quality
W3. Accessibility (e.g., availability of public transport schedule - twice a day)
Human Capital
W4. Contractual labor caused by limited Labor supply (higher labor wage)
W5. Limited training on tourism aspects (eg. not only focus on production)
W6. Limited specialists in agritourism.
W7. Weak marketing and promotion strategies and dependence on a single
platform (Facebook)Financial Capital
W8. Limited initial financial support from the government side (use of theirpersonal savings)
W9. The process of accreditation is hard to comply for farmers and starters
W10. Agritourism is only seen as a side business
W11. Small-scale production which cannot meet the market demand.

Opportunities (O)Threats (T)Physical Capital
O1. Agro-city Project (proposal stage) to market.
O2. The proposal for the trading post by DA
O3. Farm to Market Road by DA (ongoing project)
O4. Machinery provision by DA
Financial Capital
O5. Loans: Agricultural Credit Policy Council (Kapital Access for Young
Agripreneurs (KAYA)) agricultural crops, only for service; Land Bank; ruralbanks.
O6. Expo events organized by the DA and DOT (sales on agriproducts) to
showcase their products
Human Capital
O7. Training on agricultural practices and use of machinery from the Agricultural
Training Center
O8. New Social Media channels for rapidly promoting the business and attracting
young generations (eg. YouTube, Tiktok)
O9. Several culture, art, and sports festivals in Pili that attract tourists
O10. Involvement of the young generation in the improvement of agritourism
attractions (give them a chance to create innovation)
Social Capital
O11. Existing partnership with the CBSUA for training of new technologies
O12. DOT and DA Regional Offices are located in PiliO13. Partnership with the private sector in terms of technology and investment
O14. Membership of farmers’ association for easy funding accessO15. Willingness of the Local Municipal Agricultural Office to collaborate withDOT

Physical Capital
T1. Natural disasters: Typhoons
Financial Capital
T2. Limited funds (eg. difficulties in getting loans as an entrepreneur)
T3. Limited authority over their budget (for academic-based farms)
T4. Existence of the middlemen who monopolize the prices
T5. The Mandanas Ruling, which allows more authority on budget allocation to
the Mayor (varying according to his government priorities) /LGU (Agritourism
development will solely depend on the LGU’s decision of priority)
Human Capital
T6. Young people prefer to work in other industries
T7. Public health concerns (eg. COVID-19)
Social Capital
T8. Limited cooperation between departments (DA and DOT)

Source: Created by authors based on information obtained through interviews (2023)

774.2.1 Strengths
Pili possesses robust physical, human, and financial capital, laying a solid foundation for agritourism
development. Strategically located, it boasts attractions such as Mt. Isarog, an airport, and the capital town of
the Bicol region, making it inherently appealing to tourists. Fertile lands support agricultural activities,
complemented by unique attractions like native trees, cocoa trees, beautiful scenery, and an innovative fusionof IT and agriculture such as producing value-added products using handmade-designed machinery anddisplaying the process as exemplified in one of the case study farm sites by processing moringa power used
for tea, salad and cooking, creating a distinctive charm. The presence of certified organic agri-products also
underscores a commitment to sustainability.
In terms of human capital, the educational background of owners propels engagement in agritourism,
complemented by high-skilled trainers in ATI-accredited sites. The community's strong interest in development,
coupled with active participation in community activities, reflects a collective mindset of inclusivity, ensuringthat no one is left behind.
Financially, Pili benefits from training contracts with institutions like TESDA, providing a stable income
for accredited farms. Diversification in production, focusing on high-value products such as power bars andflavored teas, further contributes to financial stability. This amalgamation of physical, human, and financial
capital positions Pili as a promising hub for agritourism, ready to harness its strengths for sustainable growth.
4.2.2 Weaknesses
On the other hand, Pili faces challenges in its physical, human, and financial capital, hindering optimal
agritourism development. Limited farm facilities, including the absence of a front desk, visible signboards,
and restrooms, coupled with poor road quality and restricted public transport schedules, compromise visitor
experience and accessibility. Human capital struggles with contractual labor due to a limited labor supply withhigher wage demands, insufficient training on tourism aspects, a scarcity of specialists in agritourism, andweak marketing strategies overly dependent on a single platform, Facebook.
Financially, Pili encounters limitations such as a dearth of initial government support, accreditation
complexities for farmers, the perception of agritourism as a secondary venture, and small-scale production
incapable of meeting market demands. Addressing these challenges is crucial to unlock Pili's full agritourism
potential and pave the way for sustainable growth.
4.2.3 Opportunities
Pili is poised for agritourism success with a wealth of opportunities in its physical, financial, human, andsocial capital. Notably, the Agro-city Project, the proposal for a trading post by the Department of Agriculture(DA), the ongoing Farm-to-Market Road project, and the machinery provision by DA create a favorable
environment for marketing and infrastructure development. Financially, loans from the Agricultural Credit
Policy Council and Land Bank, along with participation in expos organized by the DA and DOT, offer avenues
for financial growth.
Human capital is enriched through training programs from the Agricultural Training Center, the explorationof new social media channels like YouTube and TikTok, and active participation in culture, art, and sports
festivals that attract tourists. The involvement of the young generation in agritourism innovation is fostered,78

aligning with the region's dynamic potential.
Socially, Pili benefits from existing partnerships with CBSUA for technology training, the presence of
DOT and DA Regional Offices, collaboration with the private sector, farmers' association memberships forfunding access, and a willingness from the Local Municipal Agricultural Office to collaborate with DOT. Thisrobust capital framework positions Pili as a promising hub for sustainable agritourism development.
4.2.4 Threats
Pili faces various threats in its agritourism development, spanning physical, human, financial, and social
dimensions. Natural disasters, particularly the prevalence of typhoons, pose a persistent threat to the region's
physical infrastructure. Human capital is jeopardized by the inclination of young people toward alternative
industries and the ongoing public health concerns, notably the challenges posed by COVID-19. Financially,
threats emerge from limited funds, difficulties in securing loans, constrained budget authority for academicbased farms, middleman problem, and the implications of the Mandanas Ruling, allowing varied budget
allocation priorities for the Mayor or LGU.
Social capital is vulnerable due to limited cooperation between departments, exemplified by challenges incollaboration between the DA and DOT. Recognizing and effectively addressing these threats is imperative tofortify Pili's agritourism resilience and pave the way for sustained development despite these challenges.
In summary, Pili's strengths lie in its strategic location, fertile land, and commitment to sustainability.
However, challenges in infrastructure, workforce, and financial support require strategic initiatives to leverage
opportunities for growth in physical, human, financial, and social capital. Threats, such as natural disasters andlimited cooperation between government departments, must be navigated to ensure sustainable development
in agritourism.
4.3 Objective 2:

To analyze the strengths, weaknesses, opportunities, and threats (SWOT) and design

strategies for the sites for enhancing successfully on agritourism.
To formulate strategies for the development of agritourism in Pili, a comprehensive analysis was conductedemploying the above SWOT model, which identifies the current situation and potential of Pili’s agritourism
sector within the context of our selected farm sites. As explained in the methodology section, we extended the
SWOT model to the TWOS model to generate strategic options. This methodological analysis serves as afoundation for strategic planning, ensuring a thorough understanding of the internal and external dynamics
influencing the trajectory of agritourism development in the municipality.

79

80

The study proposes five main themes that synthesize the comprehensive strategies stated in the above
TOWS model: 1) engagement of the young generation, 2) adaptation to the natural environment, 3) cultivationof financial resources, 4) social network enrichment, and 5) tourism training. In confronting the challenges
hindering agritourism development in Pili, strategic recommendations are presented for both the government
and farmers.
4.3.1 Engagement of Young Generation
For the Government: As a strategic recommendation, it is advised that the government intensify efforts
to bolster the agritourism industry and enhance global communication, capitalizing on Pili's strategic location
to pique the interest of the younger demographic in local agritourism ventures. Leveraging the appeal of unique
attractions, the strategy should focus on actively adopting innovative agritourism operations tailored forindividuals with advanced skills. To fortify the workforce, our recommendation includes a targeted approachto encourage youth participation in the agricultural and agritourism sector, with special emphasis on engaging
fresh graduates. Moreover, forging strategic partnerships with educational institutions like CBSUA andfostering innovation opportunities will contribute to acquiring specialized agritourism professionals, thereby
enriching the involvement of the youth in this dynamic sector.
For farmers: As a strategic recommendation for farmers, it is advisable to encourage the younger
generation of well-educated owners to pursue higher education in agribusiness, empowering them to assume
leadership roles in the family business and drive its development. Complementing this, the implementation ofan apprenticeship or internship program can be instrumental in attracting and training local youth. Thisinitiative aims to cultivate a more reliable and skilled labor pool, ensuring the sustainability and growth of the
agricultural enterprise.
4.3.2 Adaptation to Natural Environment
For the Government: The government can employ various strategies to assist farmers in adapting to thenatural environment. Firstly, enhancing infrastructure, such as improving road access and public transportation,is crucial. Collaborative efforts on existing projects like the Farm-to-Market Road initiative by the Department
81

of Agriculture (DA) and the proposed Agro-city Project can significantly bolster accessibility and facilitate theefficient transportation of agricultural products especially in the face of extreme weather. Additionally, thegovernment can contribute to disaster readiness by partnering with research institutes to establish a dedicated
R&D facility. This facility would focus on developing innovative yet affordable technologies that address
vulnerabilities in infrastructure to make it typhoon-resistant. Such an initiative would empower farmers toconstruct resilient infrastructure capable of withstanding natural disasters. These approaches ensure that
farmers have the necessary financial resources to invest in their agritourism activities and effectively adapt tothe challenges posed by the natural environment.
For farmers: The TWOS analysis provides several strategies farmers can engage in to adapt to the naturalenvironment. For one thing, they can choose wind-resilient crops such as pili to minimize damage fromtyphoons. Furthermore, they can diversify and maximize land use by growing various crops. Farmers can also
participate in capacity-building programs to become agricultural technicians and acquire skills to address
limited specialist issues. For instance, they can visit CBSUA frequently and get technology assistance fromCBSUA. Moreover, they can leverage membership in the local community to propose collaborative
partnerships among all stakeholders, facilitating technology transfer, funding, and promotional events.
4.3.3 Cultivation of Financial Resources
For the Government: To enhance Pili's agritourism from a financial perspective, collaboration withongoing projects like the Farm-to-Market Road and Agro-city is recommended to improve infrastructure.
Furthermore, initiatives to enhance farm facilities and production scale through subsidies, loans, and training
from the Department of Agriculture have been suggested. Showcasing unique attractions and organic products
in expos is emphasized to generate alternative income and reduce dependence on middlemen. Financial
constraints can be addressed by encouraging community marketing and advocating for budget allocation.
Exploring partnerships with financial institutions and seeking alternative funding sources like grants are also
integral components of the proposed strategies.
For farmers: For the farmers, it would be important to make full use of the existing assets facing thelimited financial resources. To ensure a stable source of income regardless of the seasonal fluctuations inagriculture production, diversifying the plantation is an effective option. Expanding the sales channels for
agricultural products and transitioning from local markets and expos to online platforms, holds the potential tosignificantly boost income for farm owners. In the digital era, leveraging social media would serve as strong
way to promote regional agritourism business.
4.3.4 Social Network Enrichment
For the Government: To boost agritourism, the study suggests taking advantage of the strong social
capital present in Pili. Collaboration with DA, DOT, and ATI is suggested to improve road infrastructure aspart of the "Agro-city Project" and enhance cooperation with public transportation providers for better
accessibility. In addressing financial constraints, the study advocates for streamlined processes, partnerships
with financial institutions for loans, and the promotion of investments through business meetings with theprivate sector. These strategic actions aim to create a conducive environment for sustainable agritourism
growth in Pili.
82

For Farmers: Leveraging the owners’/trainers' expertise, partnerships with institutions like TESDA and
CBSUA will develop capacity-building programs for locals, addressing the issue of limited specialists.
Encouraging active community members to propose initiatives to the mayor fosters community involvement.
To bridge the gap between small-scale production and market demand, the study recommends exploring
partnerships with local markets and suppliers.
4.3.5 Tourism Training
For the Government: Focusing on overcoming weak marketing and limited cooperation is crucial.
Strengthening support to farmers through expanded social media and marketing channels, coupled withpartnerships with travel agencies, can amplify outreach and engage a wider audience. Simultaneously,
addressing limited training on tourism aspects and public health concerns is imperative. Enhancing training
programs to incorporate health and safety measures ensures a safer visitor experience. Collaborative training
programs involving the Department of Agriculture (DO), Department of Tourism (DOT), and CBSUA should
be intensified, with the completion of agritourism services training becoming a prerequisite for DOT
accreditation in collaboration with CBSUA.
For Farmers: Efforts should center on overcoming challenges in limited training, specialists, andcooperation. Collaborative training programs involving DOT, DA, and CBSUA should be expanded,emphasizing the promotion of agritourism. Completion of agritourism services training should be integrated
into DOT accreditation requirements in collaboration with CBSUA. Additionally, for non-accredited farms,
leveraging farmers' association memberships and proximity to DOT and DA offices can foster collaborative
partnerships. A cooperative approach in technology transfer, funding, and events can effectively address
limited cooperation issues, creating a more cohesive and supportive agritourism ecosystem in Pili.

5. Conclusion
In conclusion, the aim of our qualitative study on agritourism and agribusiness in Pili was to analyze thecurrent industry development and offer strategies for both governmental departments and farms engaged inthese businesses. Throughout our research, we identified issues and potential in the four specific capitals fordevelopment. Accordingly, our strategies encompassed engaging the younger generation, adapting to the local
natural environment, utilizing social capital, addressing the challenge of insufficient funds, and enhancing
training on tourism. Importantly, we devised several feasible strategies leveraging Pili's strategic development
status and resource endowments to address the issue of limited budget.
Our analysis of potential agritourism sites in Pili underscores the municipality's strengths, including its
strategic location, fertile land, unique attractions, and diverse agritourism offerings. These factors serve as
powerful catalysts, laying a robust foundation for attracting tourists. The human capital, characterized byeducated owners and a community-oriented mindset, further augments Pili's prospects in agritourism.
Pili is rich with opportunities for agritourism growth, with initiatives like the "Agro-city Project" and"Farm-to-market roads." The combined social and human capital, involving the younger generation andexisting partnerships, provides fertile ground for development.
However, challenges such as limited farm facilities, accessibility issues, and weak marketing practices
demand attention. There are also concerns about the industry's reliance on personal savings, accreditation83difficulties, and intricate compliance processes.
Potential threats, encompassing natural disasters, youth gravitating towards other industries, and publichealth concerns, necessitate strategic foresight. Financial challenges, including limited funds and restrictedbudget authority, pose risks, as does the need for enhanced interdepartmental cooperation.
We believe our six proposed strategies can not only elevate the agritourism sites we visited but also extend
their impact to others with a similar status. Encouraging youth involvement and fostering collaborative
partnerships, particularly with the educational and private sectors, can effectively address weaknesses andthreats. Additionally, a concerted focus on diversification and sustainability would position Pili to emerge as a
thriving and resilient agritourism destination.
Acknowledgement
We extend our deepest gratitude to our advisors, Higashimura-sensei and Malabayabas-sensei, for theirinvaluable patience, support, and expert feedback. Their extensive knowledge and guidance were indispensable
before, during, and after our fieldwork. We could also not have undertaken this fieldwork without Peddiesensei and Suzuki-sensei, whose assistance and encouragement were instrumental in our preparation andmorale.
Special thanks to our research assistant and key informant, Don Bendana and Jessel Anne Rodriguez, who
generously supported us in scheduling, coordination with stakeholders, and translations, without which our
project would not have been possible.
Lastly, we would like to extend our gratitude to all the key informants at the Municipality of Pili for theirinvaluable time, insights, and predisposition for this fieldwork.

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86Appendix
Observation sheet (designed based on the standards of accreditation)
OBSERVATION SHEET RECORD
Farm site:
Yes

No

Remarks

Type of activity (agricultural
crops, animals, etc)
Accessibility
Situated in a generally safe andpeaceful location.
Accessible

through

local

intermodal public transportation(e.g. jeepneys, tricycles, habalhabal, etc.).
Has access to facilities (e.g roads,
electricity,water,

andcommunication services.
Inclusiveness in the accessibility(for persons with disabilities).
OthersArrivalClearly visible (e.g. business
name,safetyinstructions,directions, information on crops
and

their

cultivation,

healthinformation on the nutritional
contents of the crop, animal
characteristics, if any, etc.).
Reception

or

Information

Counter
Parking Area
87

Others
Accommodation (Facilities)

Walking trails/Walkways
The dining facility or restaurant
offers farm produce.
Multi-purpose Area
Clean and well-maintained
Supplied with drinking water(Complimentary or for sale)
Restrooms
Garbage Bins
Security

andprevention

Measures(Personnel,

CCTV

cameras)Prevention Measures (fire alarm,etc)
OthersAttractions/Activities
Farm shop or mini trading post
offers farm produce (fresh orprocessed)
Camp Site (Tent platform, Picnic
tables, grill, etc)
Petting zone (Animal feeding)

Others88

Questionnaire Sheet (semi-structured)
INTERVIEW QUESTIONS SAMPLE
Introduction
We are students from Nagoya University, Japan. This is an overseas field project for us. In collaboration
with CBSUA and Bicol, we are conducting this interview to deliver a report to the local government unit
(LGU), in hope of providing some insight into the current situation on the ground for their policy implications.
We are looking specifically at the agritourism situation in Pili municipality; thus, we will be asking about
yourself, your farms and your financial information and major challenges you face with your farms. Pleasefeel free to skip any questions you feel uncomfortable with and please do share with us any challenges or help
you need from outside, so that we can report back. However, as much as we are eager to contribute to thiscommunity, we would like to inform you that this is just a student report to the LGU, with ambitious goals ofproviding insights for policy implications.
Before we begin, we would like to ask your permission to record this interview. Please note the recording
is only to help write up the notes.
FOR FARMERSGeneral information on the farm
1. Name (if you prefer)
2. Farm name. How would you like to be referred to in our report: anonymous or by name or by farmname?
3. Information about the farm: can you briefly describe, if possible,●

What is the size of the farm?

●

What kind of activities are being carried out?

●

How many workers does the farm have and need?

●

What percentage of your employees are family members?

●

Mission or vision for this farm? (Do you have any plans for this farm's future? Eg. For
improvement, for enlargement, etc.)●

How much is the income from the tourists to this farm? How much regular investment is needed
for this farm? (eg. for maintenance, investment)

Human capital factors
Related to the educational level●

Can you tell us about your age and of the family members/workers?

●

Can you tell us about your educational background and the family members/workers? And how has it
influenced your approach to agricultural practices on your farm?

●

In the context of agritourism development, how do you perceive the role of education and awarenessin attracting visitors to your farm?

Related to knowledge and skills in agritourism●

What are you doing to attract visitors and offer them a good experience?

●

Have you heard of agritourism? Can you briefly explain to us the agritourism you know of?

●

What strategies or initiatives have you implemented to promote and market your agritourism services89to potential visitors?
●

Are there any specific skills or knowledge you believe are essential for farmers engaging inagritourism? How have you acquired or developed these skills? (if needed: e.g., Trainings from LGU,
NGOs, or self-learning, or getting information from friends)●

Have you participated in any training on agritourism practices? Where and who offers that training?
Did you find it useful? What did you learn? Do you have any suggestions for improvement or is there
anything else you would want to learn more?

Financial capital factors
Regarding to income level●

What is the main source of income of your family? If you have other sources of income, could you
share with us what these are?

●Could you share your experiences regarding the income generated through agritourism activities on
your farm? Is it a significant part of your overall revenue?

Regarding to access to financial assistance●Is the local government providing any kind of financial assistance for agritourism?

●

Do you find it difficult to maintain agricultural production and incorporate agritourism activities on
your farm at the same time? How do you do it?

●

Do you have access to credits for promoting your business?

Physical capital factors (mostly through the observations sheet）
Arrival:●As a farmer considering agritourism, what are the key factors you consider when planning the arrival
experience for visitors to your farm?

●

From Pili city to your farm, how do the people get here? By bus, rental cars, taxis, etc.?

●

How many visitors usually arrive at your farm? When is the peak season?

●

What kind of visitors do you usually receive? Local, foreigner, neighbor cities, female, male, students,
etc?

●

What kind of transportation arrangements do you think would attract more visitors?

●

How do you ensure that the arrival process for tourists at your farm is welcoming and convenient,considering factors such as parking, signage, and clear directions? (Do you have any pickup service
or are you planning to have, or would you like to have?)

Access:●What measures have you taken to ensure easy access to your farm for tourists, such as improving roadconditions or providing public transportation options?

●Have you considered offering alternative modes of transportation, like bike rentals or guided walking
tours, to enhance the accessibility of your agritourism site?

Accommodations:●Have you explored the possibility of providing accommodation for tourists on your farm, such as farmstays or eco-lodges? How do you think this could enhance the overall agritourism experience? (if theowner is interested: Is there any challenges for implementing this service? What kind of help would
you like to be offered by the government and/or NGOs?)
90

●

What considerations have you given to providing amenities and facilities for visitors, such as restrooms,
picnic areas, or camping sites?

Attractions:●

What unique features or attractions do your farm offer to attract tourists, such as agricultural tours,
animal interactions, or local product tastings?

●

How do you showcase the cultural heritage and traditions of your farm through attractions andactivities to make the agritourism experience more memorable for visitors?

●

Is there an iconic farm product? Is it certified officially for food safety?

Activities:●

What types of hands-on activities do you offer to engage tourists and provide them with a deeper
understanding of farm life and agriculture, such as harvesting experiences, cooking classes, orworkshops?

●

How do you create opportunities for visitors to actively participate in the farming process, such asanimal feeding, planting, or milking, to make their agritourism experience more interactive andenjoyable?

Further complementary questions●

How much do you know about the accreditation process of agritourism sites that the government iscurrently promoting? Would you be interested in getting your agritourism site accredited?

●

How much are you willing to invest in the accreditation of your site? What would be the major
challenge for you?

●

Have you encountered any challenges or obstacles in developing agritourism sites on your farm?

●

In your opinion, what are the benefits of agritourism for you, the community and the Pili?

●

If you want to add any additional information or comment, please feel free to do so.
FOR GOVERNMENT OFFICIALS

General information
1.

Name (if you prefer)

2.

Title

3.

Responsibilities: Could you briefly tell us what are the main tasks and responsibilities of yours, especiallyin the agricultural, tourism and agritourism sectors?
4.

How would you like to be referred to in our report: anonymous or by name or by title?

General questions●

What policies are in place to encourage farmers to explore and invest in agritourism to diversify theirincome streams?

●

What measures or initiatives are being taken to support farmers in developing agritourism sites in Pili?

●

Are there specific regulatory frameworks or guidelines in place to ensure the sustainable developmentof agritourism sites while preserving the agricultural heritage and environment?

●

Could you explain the current government efforts in encourage the accreditation of agritourism sites
in Pili?

Human capital factors
91●How does the government collaborate with agricultural organizations or tourism boards to promoteagritourism opportunities in the Pili region?

●

How does the government provide assistance or resources to farmers in terms of capacity building,training, and knowledge sharing related to agritourism development?

●

What marketing and promotional support does the government offer to help farmers attract visitors totheir agritourism sites?

Financial capital factors●

What policies or incentives are in place to encourage farmers to explore and invest in agritourism
as a means of diversifying their income streams?

●

Are there any funding programs, subsidies, grants or credits available for farmers interested ininitiating or expanding their agritourism ventures? If yes, what are the eligibility criteria andapplication procedures?

Physical capital factors (mostly for the access and arrival aspects)●

Is there any ongoing or future project for improving the accessibility of the agritourism sites?

●

How does the government collaborate with the private sector or other institutions in promoting theimprovement of agritourism in terms of infrastructure?

Further complimentary questions●

What do you think are the main remaining challenges for the effective and successful, and sustainablepromotion of agritourism?

●

In your opinion, what are the potential long-term benefits of agritourism development for the local
community, economy, and sustainable agricultural practices in the Pili region, and how does thegovernment envision supporting and harnessing these benefits?

●

Could you tell us some difficulties of getting the local agritourism sites accredited?

●

If you want to add any additional information or comment, please feel free to do so.

92