GROUP 9. Policy Paper.5.Body of Paper

A POLICY ISSUE PAPER ON IMPROVING RICE PRODUCTIVITY IN
AUTONOMOUS REGION IN MUSLIM MINDANAO (ARMM)
I.
Background of the Problem
A. Description of the Problem
Introduction
One of the six regions belonging to the island of Mindanao is the Autonomous
Region in Muslim Mindanao (ARMM). It has a total land area of 26,974 sq. km1. The
geographic map2 (see Appendix 1) shows that the region is composed of five provinces
namely: Basilan, Lanao del Sur, Maguindanao, Sulu and Tawi-Tawi.
Two of the major crops grown by the farmers in ARMM are rice and corn. Among
the five provinces in the region, Maguindanao and Lanao del Sur are identified to be the
major producers of these crops. Meanwhile, the rest of the provinces are engaged in
fishing.
Figure 1. Distribution of Agricultural Lands by Crops Planted.
15%
Palay
0%
0%
5%
Corn
22%
Abaca
Coffee
4%
2%
1%
Rubber
Sugarcane
Fruits
Vegetables
Root crops
51%
Source: Facing the Challenges of Ensuring Food in ARMM, Prof. Sangkula Tindick.
1
2
www.armm.gov.ph.
www.en.wikipedia.org. See Appendix 1.

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

Provinces
2006
2007
2008
2009
2010
3,238
2,976
4,457
3,303
4,740
Lanao del Sur
144,405
174,682
190,296
175,679
177,760
Maguindanao
400,573
433,766
432,589
396,719
436,957
Sulu
3,435
3,400
3,450
3,202
2,925
Tawi-Tawi
2,619
956
899
844
961
Basilan
Source: Major Crops Statistics of the Philippines, 2006-2010 (Regional and Provincial), BAS.
The Province of Maguindanao, given its appropriate soil type and favorable
temperature, is basically an agricultural province which is capable of producing rice for
local consumption and for possible export. Similarly, the volcanic soil type of Lanao del
Sur and its location being outside of the typhoon belt resulted to the suitability of
growing rice crops in the province.
Consequently, rice is the most important crop in ARMM because it is their staple
food (see Figure 2). Theres no better way to highlight the elbow room for improvement
than through the increase of rice yield from 3.00 mt/ha to 9.00 mt/ha which was cited in
a book by Prof. Balisacan.3 From 1995 to 2009, the demand for rice increased by
19.51%.4
Securing Rice, Reducing Poverty, Balisacan, A., Sebastian, L. and Associates.

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

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

160
140
120
kg
100
80
60
40
20
0
Corn
Rice
1995
5.408
116.441
1999-2000
1.98
122.2
2008-2009
0.676
144.664
Source: Food Consumption Statistical Tables, BAS.
Nature of the Social Problem

In 2006, the average rice productivity in all ecosystems of ARMM (irrigated and
rainfed) is only 2.82 mt/ha and in 2010, it slightly increased to 3.00 mt/ha.5 The regions
rice yield is not even half of the scientifically attainable yield (see Figure 3). Thus,
ARMMs significantly low rice production can be further increased by closing the yield
gap between the actual farm yields and the maximum achievable yields.
Crops Statistics of the Philippines, 2006-2010 (National and Regional), BAS.

Figure 3. Yield Gap Analysis of Rice.

10.00
9.00
8.00
7.00
6.00
mt/ha
5.00
4.00
3.00
2.00
1.00
0.00
Maximum
attainable yield
Yield with best

nutrient and
cultural practices
Yield when
macronutrient
(NPK) and water
problems exist
7.20
9.00
5.76
7.20
4.32
5.40
Wet Season
Dry Season
Yield when
micronutrient
deficiency, pest
and management
problems exist
2.88
3.60
Source: Securing Rice, Reducing Poverty, Balisacan, A., Sebastian, L. and Associates.
Indicators of the Existence of Social Problem

Food Insufficiency
The low rice productivity of ARMM is threatening the food self-sufficiency in the
region. In support to this, the figure below clearly depicts that during the three reference
time period, the rice demand in ARMM was not achieved because of the regions low
supply of the commodity. Thus, the region is in a rice-deficit status that results to the
peoples inaccessibility to a nutritious food which provides their dietary needs for an
active healthy life.6
Facing the Challenges of Ensuring Food in ARMM, Prof. Sangkula Tindick (ppt).

Figure 4. Rice Supply and Demand of ARMM.

160
140
120
kg
100
80
60
40
20
0
Per Capita Rice
Availability
Per Capita Rice
Consumption
1995
1999 - 2000
2008 - 2009
90.757
82.236
114.619
116.441
122.200
144.664
Source: Crops Statistics of the Philippines, 1990-2003 & 2006-2010 (BAS); Food Consumption
Statistical Tables (BAS).
Insufficient Amount of Seeds for Planting Rice. Along with the food insecurity
looming in the region is the lack of seeds for planting rice. 75.29% of the rice farmers in
ARMM source their inbred seeds from the rice they directly produced. 7 Because of low
rice productivity in the region, the availability of inbred seeds for most of the farmers is
limited.
Factors Worsening the Social Problem
Rapid Increase of Population. The rice productivity of ARMM increases at a lower rate
compared to the increase of its population. Because of this, sustaining the rice
Costs and Returns Surveys of Palay Production, BAS.

consumption of the people of ARMM could not be easily achieved. As of 2007, ARMMs
total population is 4,120,795. ARMM has the highest population growth rate of 5.46%
among the regions during the reference period 2000-2007. Moreover, ARMMs
population increases thrice as fast as the national average.8
Table 2. Population and Annual Growth Rates of ARMM and its Provinces.
Population Growth
Total Population
Rate
Region/Province
1-Sep-95
1-May-00
1-Aug-07
95-00
95-07
00-07
2,362,300
2,803,045
4,120,795
3.73
4.78
5.46
Basilan (excluding City of Isabela)
227,008
259,796
408,520
2.93
5.05
6.44
Lanao del Sur
686,193
800,162
1,138,544
3.35
4.34
4.98
Maguindanao (excluding Cotabato City)
662,180
801,102
1,273,715
4.16
5.64
6.60
Sulu
536,201
619,668
849,670
3.15
3.94
4.45
Tawi-Tawi
250,718
322,317
450,346
5.53
5.03
4.72
ARMM
Source: Census of 1995, 2000, and 2007 Population, National Statistics Office.
Majority of Labor Force is Employed in Agricultural Sector. The total number of

employed persons in the agricultural sector in ARMM in 2009 was 814,000 representing
71.7% of the total employment in the region.9 Furthermore, the average yearly gain in
employment of the regions agricultural sector from 2006-2009 is 3.3% which is the
highest among other region.10 The data indicates that majority of the population in
ARMM depends in agriculture as a source of income. Thus, low rice productivity will
affect a large number of people in the region.11
Facing the Challenges of Ensuring Food in ARMM, Prof. Sangkula Tindick (ppt).
Agricultural Indicators System Report: Population and Labor Force, BAS.
10
Ibid.
11
In a table included in Prof. Sangkula Tindicks Facing the Challenges of Ensuring Food in ARMM, it
was indicated that in 2011, 83,410 of the people in ARMM are engaged in rice farming.
9

Scope and Limitations of Policy Paper

While other issues and problems are recognized as causes and solutions for low
rice productivity in ARMM, the policy issue paper is limited only to the improvement of
rice productivity in ARMM. Specifically, rice production in the provinces of Maguindanao
and Lanao del Sur will be increased because these areas are identified to be the most
suitable for producing such commodity in the region.12 Rice production in Basilan, Sulu,
Tawi-Tawi will also be increased to maximize the full potential of their rice field areas.
Thus, the policy paper will target the increase of rice productivity in the five provinces of
ARMM. The production phase of rice farming will be the only focus of the paper.
Moreover, the extent of the policy paper is limited by: (1) time constraints; (2)
confidentiality of documents of DAF-ARMM; and (3) lack of sources of empirical data.
B. Outcomes of Prior Efforts to Solve Problem

Development of ARMM Integrated Agricultural Research Center.13 Former
Department of Agriculture (DA) Secretay Senen C. Bacani issued under his
administration the Administrative Order Nos. 6 and 19, series of 1991 which integrated
stations/facilities such as crops, fisheries, livestock, and BPI stations and facilities under
the supervision of the National Research & Development Center and Regional
Integrated Agricultural Research Center (RIARC). Being an autonomous region, the
ARMM was not covered by the said Administrative Orders. In 1994, with the initiative of
former Department of Agriculture and Fisheries (DAF) Secretary Datu Haron U. Bandila,
Al-Haj and the creation of the Research and Regulatory Division, he justified the
12
13
Major Crops Statistics of the Philippines, 2006-2010 (Regional and Provincial). BAS.
Profile of ARMMIARC (doc).

necessity and significance of research and development in the region as provided for by
the section 18 of the Organic Act in Muslim Mindanao. Consequently, former Regional
Governor Lininding P. Pangandaman signed on December 12, 1994 the Executive Oder
No. 9 which established the Autonomous Region in Muslim Mindanao Integrated
Agricultural Research Center (ARMMIARC) and its satellite Research Outreach Stations
(ROSes).
Thru the initiative of former DAF-ARMM Secretary Thambeyapha J. Manjoorsa,
Al-Haj, former Regional Governor Nur P. Misuari issued the Administrative Order No. 3
which mandated ARMMIARC and ROSes to formulate the research and development
agenda and strengthen the program implementation in the region. Upon implementation
of Republic Act No. 8435 known as Agriculture and Fisheries Modernization Act
(AFMA), the role of ARMMIARC and ROSes in developing ARMMs agri-based
economy from a resource-based into a technology-based industry was strengthened.
Furthermore, former Regional Governor Parouk S. Hussin supported AFMA through the
issuance of Executive Order No. 5 by which it strengthen the structure and
management of research, development, and extension system in ARMM.
Vision and Mission of ARMMIARC.14 ARMMIARC envisions a dynamic research and

technology center responsive to the demands of time across cultures and traditions of
farming communities. Furthermore, the center aims to conduct community-driven
researches,
14
to
develop
and
promote
socially,
Profile of ARMMIARC (ppt).
economically,
culturally,
and

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

improving status of farming communities.
Functions of ARMMIARC.15 The central station of ARMMIARC serves as the main

powerhouse of the ROSes. It performs the following functions, roles and responsibilities:
(1) Provide leadership in the planning and orchestration of the implementation,
monitoring, and evaluation of an integrated research and development program within
the context of farming system approach, in coordination with the regional Training
Center; (2) Undertake mid-stream and downstream applied research of its assigned
commodity in the region; and (3) Develop and maintain a network of provincial
collaborators in undertaking the regional research, development and extension program
of its assigned commodity.
Research Outreach Stations of ARMMIARC.16 The ROSes serves as a vital link

between the regional and provincial research and development program, undertakes
applied research relevant to the province in their assigned commodities, demonstrate
new appropriate technology in agriculture for the province and serve as an educational
and training facility. Currently, there are six ROSes wherein each has a distinct function
and these are as follows: (1) ARMMIARC for Integrated Farming located in Pagalungan,
Maguindanao; (2) ARMMIARC for Lowland Irrigated / Rainfed located in Datu Odin
Sinsuat, Maguindanao; (3) ARMMIARC for Hilly Land located in Lumbatan and Bayang,
Lanao del Sur; (4) ARMMIARC for Upland Plain located in Talipao, Sulu; (5)
15
16
Profile of ARMMIARC (ppt).

Profile of ARMMIARC (doc).

ARMMIARC for Marginal Areas / Germplasm Collection and Evaluation Center located
in Bongao, Tawi-Tawi; and (6) ARMMIARC for Upland, Livestock, and Marine Water
located in Lamitan, Basilan.
Support Services Provided by ARMMIARC.17 Existing support services in
ARMMIARC which aid in the enhancement of rice farming in the region are as follows:
(1) Regional Seed Quality Control Services (RSQCS); (2) Regional Trichoderma
Laboratory Services; (3) Regional Soils Laboratory; (4) Training Center; (5) Germplasm
Nursery; and (6) Management Information System.
The RSQCS support the major objective of the DA through the provision of
quality assurance and control services for seed and planting material production,
processing, storage and distribution, seed research and training in seed quality control
towards sustainable agriculture and environment protection. Seed quality is important in
developing rice varieties that will permit farmers to produce a large crop yield that will
eventually improve the production of the region. However, the Seed Laboratory in
ARMMIARC only cater Seed Testing such as Germination Test and Purity Test since
they have no enough equipment to perform the complete procedures of Seed Testing
for Seed Certification. Moreover, the laboratory operated as satellite of NSQCS-Region
XII since the first quarter of 2009.
Through the Regional Trichoderma Laboratory Services, the Bureau of Soil and
Water Management advocates the utilization of rice straw in on-farm composting. Under
this support service, Trichoderma harzianum is produced which is a biological organic
17
Profile of ARMMIARC (ppt); 2011 Annual Report of ARMMIARC (ppt).
10

waste activator which restores the soil fertility, mitigates the effect of global warming,
and promotes the gradual adoption of organic agriculture nationwide.
DAF-ARMM implemented the Regional Soils Laboratory upon recognition of its
significant contribution to resolving agricultural issues such as production of more food
for the people of ARMM. Soil Analysis evaluates the fertility status of the soil and
measures the amount of nutrients in the soil that are available to the plants (NPK, pH,
and soil texture) which in return will help achieve maximum level of production.
ARMMIARC Training Center is a JICA-funded project of ARMM Social Fund
Project which serves as venue for the conduct of necessary trainings for the
advancement of farmers and fisher folks. It is also a comfortable accommodation for
researchers in the region. This training center will help enhance and strengthen the
services in terms of fisheries and agricultural research for the region. In 2011, the center
served as venue of the regular meeting of ARMMIARC personnel every Tuesday.
The Management Information System of ARMMIARC is primarily responsible in
the management and delivery of information in an innovative and effective manner. All
of the information managed must be spread and be readily available to the people who
need it the most the farmers. Unfortunately, the center lacks necessary tools for the
gathering, organizing, and disseminating of information. The center manages valuable
materials in printed form but they have no audio-visual equipment needed for its
production.
11

Impacts of ARMMIARC. During the beginning of 2011, the center continuously moves
on to implement and realize the research and development in the region although they
have limited resources.18 Moreover, the budget from the regional office allotted for their
Maintenance, Operating and Other Expenses (MOOE) is very limited.19 These
expenses cater to different research, development and extension activities of the center.
The statement was further supported by Mr. Tong Abas, the Planning Officer of
ARMMIARC. He stated that the region gives lesser focus and attention in the research,
development and extension which gives long-term impact to the agricultural production
especially the rice crops. He also added that some of the ROSes of ARMMIARC lacks
manpower which limits its function and operation. Finally, he disclosed that the
termination of an administration in the region greatly affects the continuous
implementation of agricultural projects and programs because the employees of the
research centers are also dismissed from service since they do not have itemized
position. They will be reemployed upon the discretion of the new regional governor of
ARMM.
18
19
2011 Accomplishment Report, ARMMIARC (ppt).

January-June 2012 Accomplishment Report, ARMMIARC (ppt).
12

II.
Scope and Severity of Problem
A. Assessment of Past Policy Performance
REPUBLIC ACT NO. 8435 also known as the AGRICULTURAL AND

FISHERIES MODERNIZATION ACT OF 1997 has the following objectives:
a. To modernize the agriculture and fisheries sectors by transforming these sectors

from a resource-based to a technology-based industry;
b. To enhance profits and incomes in the agriculture and fisheries sectors
particularly the small farmers and fisher folk, by ensuring equitable access to
assets, resources and services, and promoting higher-value crops, value-added
processing, agribusiness activities, and agro-industrialization;
c. To pursue a market-driven approach to enhance the comparative advantage of
our agriculture and fisheries sectors in the world market;
d. To induce the agriculture and fisheries sectors to ascend continuously the valueadded ladder by subjecting their traditional or new products to further processing
in order to minimize the marketing of raw, unfinished or unprocessed products;
e. To provide social and economic adjustment measures that increase productivity
and improve market efficiency while ensuring the protection and preservation of
the environment and equity for small farmers and fisher folk; and
f. To improve the quality of life of all sectors.
13

Strength of RA 8435. The objectives of AFMA are very clear and that is to improve the
agricultural and fisheries sector of the Philippines. This law envisions sweeping policy
and institutional reforms in the sector, including increasing budget support to research
and development aimed at producing scientifically produced inputs, such as highyielding varieties of rice, vegetable, and fingerlings. 20
Weakness of RA 8435. The law faulted for over-commitment and tried to do many
things with too many agencies and saddled with lack of resources. 21 In the process, it
faltered in implementation. The additional money of PhP 20 billion in the first year
(1999) and PhP 15 billion a year in the next six years (2000-2005) did not materialize
(Appendix 6). The required allocation by each component of AFMA was not followed. 22
There were relatively more funds for production support and less in marketing, research
and development, human resources and inter-agency linkages. Moreover, there was
little concern for regional priorities. The role of private investments in growth and job
creation was not clearly specified and a sound criteria for project selection was not
explicit.23
AFMA components were ranked according to national and regional priorities and
their simple average were calculated.24 The national average showed that main AFMA
priorities were irrigation, marketing, farm-to-market roads, post-harvest facilities and
credit (Appendix 7). However, AFMA priorities varied considerably across the 16
regions.
20
MTPDP for 2010-2016 Formulation Reference Documents.

Experts Review of the AFMA (2007).
22
Ibid.
23
Ibid.
24
Ibid.
21
14

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

marketing (Appendix 8). Meanwhile, important AFMA components in Visayas are
irrigation, credit and farm-to-market roads (Appendix 9). Its priorities in Mindanao
differed in some aspects; these are farm-to-market roads, marketing, and post-harvest
facilities (Appendix 10). The main components of AFMA which are prioritized by the
ARMM are farm-to-market roads, post-harvest facilities, and education. Research and
development ranked in eleventh place while the extension is ranked at 8.5.
Farm-to-market roads is the most priority sector of AFMA in ARMM but until
2005, the ratios of length of paved FMR to the total existing length of FMR of the
following provinces are: Lanao del Sur 0.43%; Maguindanao 3.33%; Basilan
4.92%; and Sulu 2.75%.25 In addition to that, irrigation only ranked at 8.5 as priority
sector of AFMA in ARMM, but it is the most priority sector of the act in the national level.
The estimated total irrigable area in ARMM was 156,720 ha.26 As of December 31,
2010, the total irrigated area in ARMM was 23,870 ha which corresponds to only 15%
irrigation development, the lowest among the 16 regions in the country.27 Accordingly, it
is evident that AFMA has failed to modernize the agricultural industry of ARMM.
REPUBLIC ACT NO. 6657 also known as the COMPREHENSIVE AGRARIAN

REFORM LAW OF 1988 has the following principles and policies:
a. The welfare of the landless farmers and farm workers will receive the highest
consideration to promote social justice and to move the nation towards sound
25
This is the only the latest available data that the policy analysts have obtained regarding the status of
FMR development in ARMM. The data was sourced in Joint Needs Assessment for Reconstruction and
Development of Conflict-Affected Areas in Mindanao.
26
This area refers to those primarily devoted to rice and corn and having slopes of up to 3%. Such data is
obtained in the 2010 Annual Report by the National Irrigation Administration.
27
Ibid.
15

rural development and industrialization, and the establishment of owner cultivator

ship of economic-sized farms as the basis of Philippine agriculture.
b. The State shall recognize the right of farmers, farm workers and landowners, as
well as cooperatives and other independent farmers' organization, to participate
in the planning, organization, and management of the program, and shall provide
support to agriculture through appropriate technology and research, and
adequate financial, production, marketing and other support services.
c. The State shall apply the principles of agrarian reform or stewardship, whenever
applicable, in accordance with law, in the disposition or utilization of other natural
resources, including lands of the public domain, under lease or concession,
suitable to agriculture, subject to prior rights, homestead rights of small settlers
and the rights of indigenous communities to their ancestral lands.
d. The State may resettle landless farmers and farm workers in its own agricultural
estates, which shall be distributed to them in the manner provided by law.
e. The State shall provide incentives to landowners to invest the proceeds of the
agrarian reform program to promote industrialization, employment and
privatization of public sector enterprises. Financial instruments used as payment
for lands shall contain features that shall enhance negotiability and acceptability
in the marketplace; and
f. The State may lease undeveloped lands of the public domain to qualified entities
for the development of capital-intensive farms, traditional and pioneering crops
especially those for exports subject to the prior rights of the beneficiaries under
this Act.
16

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

beneficiaries (ARBs) declined from 45.8 % in 2000 to 44.8% in 2006. 28 It can be said
therefore that the Comprehensive Agrarian Reform Program (CARP) was partly
successful in transferring a portion of the economic return of land from the landowners
to the ARBs.29 Moreover, results of the assessment studies of experts on the
accomplishments of CARP indicate that it has various positive socio-economic impacts
including higher farm income and yield.30
Weakness of RA 6657. Despite the clear principles that the policy imposes, it still has
drawbacks. One of the manifestations is the statement in the aforementioned policy
brief that the lack of financial support from the government was the key factor that
hampered the attainment of CARPs objectives. Furthermore, it did not complement the
land distribution program of the government in 1972. From that year to 2010, only
66.0% of the total land to be distributed to the farmers in ARMM was accomplished.31
Land distribution has reached a very sensitive juncture particularly in the
distribution of coconut and sugar lands. Delays in implementation and lack of clarity on
how to proceed heighten uncertainty, with corresponding adverse effects on investment
and growth.32
28
The data was the result of the study made by the Asia Pacific Policy Center (APPC) as cited in a
publication by the Senate Economic Planning Office entitled Policy Brief: Broadening and Reinforcing the
Benefits of Land Reform in the Philippines.
29
Ibid.
30
Policy Brief: Broadening and Reinforcing the Benefits of Land Reform in the Philippines, Senate
Economic Planning Office.
31
Agricultural Indicators System Report: Redistribution of Land, BAS.
32
MTPDP for 2010-2016 Formulation Reference Documents.
17

REPUBLIC ACT NO. 7160 also known as the LOCAL GOVERNMENT CODE
OF 1991 has the following operative principles:
a. Local government units shall share with the national government the
responsibility in the management and maintenance of ecological balance within
their territorial jurisdiction, subject to the provisions of this Code and national
policies;
b. The capabilities of local government units, especially the municipalities and
Barangays, shall been enhanced by providing them with opportunities to
participate actively in the implementation of national programs and projects;
c. The realization of local autonomy shall be facilitated through improved
coordination of national government policies and programs and extension of
adequate technical and material assistance to less develop and deserving local
government units.
Strength of RA 7160. The governments aim in devolving the national power of the DA
to Local Government Units (LGUs) was beneficial to every community. There are three
perspectives on the values of decentralization, namely: from an economic or efficiency
perspective, from a governance perspective, and from a political or distributive
perspective.33
From
an
efficiency
perspective,
decentralization
allows
local
governments greater leeway in determining local needs and preferences of their

constituents thereby making decision-making more effective in terms of the utilization of
resources. From a governance perspective, decentralization promotes greater
33
Wolman as cited in the dissertation by Buenafe F. Alinio entitled Philippine Local Government Officials
Perceptions of Decentralization and Its Effects on Local Governments Administrative Capabilities.
18

responsiveness among policy makers in addressing the needs and concerns of their
constituents. Decentralization allows for greater citizen participation, which can result in
more robust policy initiatives, more effective exercise of democracy, healthier and more
productive national-local interaction, and greater accountability of elected officials.
Lastly, from a political or distributive perspective, a decentralized arrangement can
better address the interests of the poor, the minorities, the labor sector and others
similarly situated.
Weakness of RA 7160. After 21 years from being enacted, the policys goal is hardly
realized by the LGUs. Many problems hindered the success of such code especially in
promoting agricultural development in undeveloped regions such as the ARMM. The
majority of the local chief executives (LCEs) are not totally supportive of the goals and
objectives of the latter law especially in financing agricultural projects and programs.34
Such public officials greatly rely from the agricultural funding support they receive from
the DA which is contrary to the provisions stated in the Local Government Code (LGC)
of 1991. Aside from the lack of financial support by the LGUs in their agricultural growth,
some of the LGU extension workers do not fully implement those national programs
assigned to them by the DA due to lack of commitment.35
B. Significance of Problem Situation
It is fairly known that the agricultural sector is the backbone of our society.
People, especially in rural areas, usually depend on agriculture as their primary source
34
35

Ibid.
19

of income. Several crops are cultivated in the country but in ARMM, among the most
cultivated crops are rice, corn, root crops, fruits, and vegetable. As stated earlier, rice is
the most important crop in the region because it is their staple food.
Undeniably, most of the people from ARMM are dependent on rice. In fact, below
average people can survive without other foods except rice. Comprising 77.5% of
carbohydrates, rice is a rich source of energy.36 It also contains many nutritional
benefits such as low cholesterol, low fat and high starch. Rice is a good source of
vitamins and minerals such as thiamine, niacin, iron, riboflavin, vitamin D, calcium,
potassium and fiber.37 It has low sugar and contains no gluten. It is also a fair source of
protein containing all eight amino acids. Moreover, rice is a low-sodium food which is
best for those with hypertension.38
In ARMM, farming is the major source of income, thus one of the severe
problems being combatted by its people is the low rice productivity. Since most of the
people are employed in the agricultural sector, minor economic growth among these
people arises. Moreover, based on the observation and experience of the policy
analysts, the decrease of human resources result from the negative outlook people
perceive about the farming profession. Due to minimal profit earned from the
unproductive rice farming, children of the farmers are poorly educated as well as suffer
from malnutrition and other health conditions.
Furthermore, the regions population increases three times annually against the
national average rate. However, the rice production increases in lesser degree resulting
to unavailability of enough rice that will support the large population of the region. The
36
www.sourcing.indiamart.com.
Ibid.
38
Ibid.
37
20

supply and demand remains parallel but never met making it a challenge needed to be
cracked.
This policy issue paper will put forth the issue on high demand of rice in ARMM.
Problems commonly encountered by rice farmers in the region are: (1) lack of technical
assistance on new farming technology; (2) lack of knowledge/information on various
crop management practices; (3) lack of source of quality seeds; and (4) source of
quality seeds.39 To address these problems, the ARMMIARC and its ROSes must be
strengthened. The research centers are tasked to provide advanced knowledge and
modern technologies in rice farming that will essentially help farmers through increasing
their rice yields.
C. Need for Analysis
With the large increase of rice demand in ARMM, it is necessary to urgently

increase the rice supply to meet such demand. Without sufficient supply of rice, the
region will resort into purchasing rice from other regions or importing from other
countries. This will result to the increase of price of rice commodity and decrease of
opportunity for local farmers to generate income.
Immediate intervention by the government is indispensable to address such low
rice productivity in ARMM. Strengthening research, development and extension in the
region is necessary to increase the rice production. With this, the farmers will be given
knowledge and techniques in proper rice farming which will enable them to harvest
large amount of rice.
39
Agricultural Training Institute Central Office.
21

III.
Problem Statement
A.
Definition of the problem
The problem addressed in this paper is the low rice productivity in ARMM which
greatly affects the livelihood of the farmers. Several underlying factors for the existence
of the social problem were analyzed and these are as follows: (a) insufficient knowledge
and skills in proper rice farming; (b) devolution of power of DA to the LGUs; (c) land
tenancy of farmers; and (d) low government support to agricultural research,
development and extension (RD & E). Due to the low rice productivity in ARMM, food
insecurity arises resulting to purchasing of rice from other regions. Moreover, poverty in
the region occurs as a result of low income arising from low rice productivity (see Figure
5).
Insufficient Knowledge and Skills in Proper Rice Farming. Most of the farmers in
ARMM are using the traditional method of farming. Only 60.62% of the farmers in the
region utilize the transplanting method of planting while 40.93% uses direct seeding
method through broadcasting of seeds.40 Furthermore, only 1.54% of the farmers in
ARMM reported to have three cropping in 2009 while there are more than 12% in some
other regions.41
Commitment to Service by DA and LGU Personnel. Majority of LCEs do not

financially support agricultural projects and programs which is undeniably contrary to
40
41

Ibid.
22

the provisions stipulated in the LGC of 1991.42 They greatly rely from the funding
support they receive from DA. Furthermore, the extension services by the LGUs which
are aligned with DAs national programs are not fully realized because of lack of
commitment by the extension workers.
Land Tenancy of Farmers. Most of the farmers in the region do not own the land they
till and cultivate. In 2009, 49.42% of the palay farm parcels in ARMM are tilled by the
tenant farmers while only 45.95% are fully owned.43 If only these tenant farmers could
own a piece of land, it will allow them to increase and improve their rice yield thus
contributing to the growth of rice production in ARMM. Accordingly, results of the
assessment studies of experts on the accomplishments of CARP indicate that it has
various positive socio-economic impacts including higher farm income and yield.44
Low Government Support to Agricultural Research, Development and Extension.

The ARMM government gives lesser priority and importance to research development
and research.45 Furthermore, the agricultural research centers receive lower financial
support from the government thus minimizing their full function and capacity. Moreover,
only 8.49% of ARMM farmers in 2009 reported that they benefited from palay
programs/projects.46
Upon thorough discussion among the policy analysts and implementing the
problem tree method of analysis, the various impacts of the low rice productivity in
42

44
Policy Brief: Broadening and Reinforcing the Benefits of Land Reform in the Philippines, Senate
Economic Planning Office.
45
Mr. Tong Abas, Planning Officer of ARMMIARC.
46
43
23

ARMM to the farm-family households were identified. The effects of the social problem
are as follows: (a) low supply of rice; (b) malnutrition; (c) low farm income; and (d) lack
of seeds for transplanting. When the rice produced is low in an area, consequently, the
supply of rice in that area is also low which raises the need to import rice from nearby
areas. Moreover, many farmers depend on their harvested seeds as source of planting
materials for the next cropping season. Low amount of rice produced results to the
lessening of the supply of planting materials. Some farmers do not sell their harvests in
the market, but rather uses it to sustain their daily diet. Whenever the amount of
harvested rice is low, the farmers family will benefit in a lesser intensity from the
nutrients that the rice can provide to them. Lastly, the income that the farmer gains upon
harvesting low amount of rice will slightly, or in many cases, insignificantly improve the
lives of the farmer and its family which increases the number of families lying in the
poverty line.
Figure 5. Problem Tree Analysis of the Low Rice Productivity in ARMM.
Low Supply of Rice
Causes
Insufficient
Knowledge & Skills
of Farmers
Malnutrition
Low Farm Income
Low Rice Productivity

in ARMM
Lack of Commitment
to Service by DA &
LGU Personnel
Land Tenancy of
Farmers
24
Lack of Seeds for

Transplanting
Effects
Low Government
Support on R, D, &
E

B. Major Stakeholders
1. Department of Agriculture (DA) ARMM
DA is the principal agency of the Philippine government responsible for the

promotion of agricultural and fisheries development and growth. In pursuit of this, it
provides a policy framework that directs public investments and, in partnership with the
LGUs, provides the support services necessary to make agriculture and fisheries, and
agri-based enterprises profitable and to help spread the benefits of development to the
poor, particularly those in the rural areas.
DA, including its Regional Field Unit (RFU) and attached agencies like the
Agriculture and Fishery Council (AFC), are the major stakeholders in developing the
agricultural productivity in the country.
2. Department of Agrarian Reform (DAR) ARMM
DAR is primarily responsible in leading the implementation of CARP through land

tenure improvement, agrarian justice, and coordinated delivery of essential support
services to client-beneficiaries.
For this purpose, the department aspires to lead the implementation of agrarian
reform and sustainable rural development in the countryside through land tenure
improvement and provision of integrated development services to landless farmers,
farmworkers and small landowner-cultivators, and the delivery of agrarian justice.
On the other hand, DAR coordinates the implementation of the program in the
Agrarian Reform Communities (ARCs) through the Provincial/Municipal Agrarian
25

Reform Officers (PARO and MARO). They also assist in the establishment of links
between farmers organization and agribusiness enterprises that will provide market
opportunities to farmers, and will facilitate access to production inputs, new
technologies, and credit facilities.
3. Local Government Units (LGUs) ARMM
LGUs are constitutionally bestowed of powers and functions to deliver agriculture

extension services at the local communities by virtue of the LGC of 1991. Hence,
implementation of agricultural projects and programs in the provincial and municipal
level are subject for approval of corresponding local chief executives. The LGUs of the
region are also considered to have an immense influence to the success of the
implementation of resolutions to achieve higher rice productivity in the region. Through
unity and coordination, the provincial governors down to the municipal mayors can
address the agricultural problems economically threatening their respective territory.
4. Philippines Rice Research Institute (PhilRice)
The PhilRice is one of the Philippines' rice research institutes and it collaborates
with the International Rice Research Institute (IRRI)47 which is also headquartered in the
Philippines. PhilRice plays a key role in building and sustaining a competitive rice
economy through research into farming systems, technology, and policy-making. Their
credo is "Technology today, food for tomorrow".
47
During an interview with Dr. Samarendu Mohanty, Head of the Social Sciences Division of IRRI, he
asserted that technologies developed by their institute are transferred to PhilRice and there, another
experimental testing is done before PhilRice implements and distributes the technologies to its partner
agencies.
26

PhilRice accomplishes this mission through research, technology promotion, and

policy advocacy, which are implemented through a network that includes 57 agencies
and 108 seed centers nationwide.
The institute continually develop and update packages of technologies on rice
production with emphasis on productivity and sustainability. Moreover, they produce
breeder, foundation, and registered seeds of inbreds and parentals of hybrids and
maintain seed buffer stocks of higher seed classes. They also provide technical support
to LGUs, RFUs and ATI and assist in the transfer of mature rice production
technologies. The institute also conducts policy research and advocacy in coordination
with other government agencies.
5. Bureau of Agricultural Research (BAR)
BAR is one of the staff bureaus of the DA that is established to lead and
coordinate the agriculture and fisheries R&D in the country. Specifically, the bureau is
tasked to consolidate, strengthen and develop the R&D system to improve its
effectiveness and efficiency by ensuring customer satisfaction and continuous
improvement through work excellence, teamwork and networking, accountability and
innovation and expected to support the policy.
6. Agricultural Training Institute (ATI)
ATI is the extension and training arm of DA. With 16 centers spread across the
country, ATI trains agricultural extension workers and their clientele, and lead in the
delivery of e-extension services for agriculture and fisheries. It administers training,
27

extension, and social preparation programs; and monitors and evaluates post-training
performances.
7. Bureau of Plant and Industry (BPI)
BPI is an agency under the DA that is responsible for serving and supporting the
Philippine plant industry sector. It envisions of having a vibrant crop farming
communities and the industry sector producing quality, accessible and globally
competitive agricultural crops profitable for the Filipino. It aims to conserve and develop
Philippine Plant Genetic Resources and ensure the protection and development of the
plant industry.
BPI shall be responsible for coordinating and monitoring seed production and
supervising seed testing laboratories and accelerating seed testing and certification.
Moreover, it provides technical assistance on crop protection.
8. Bureau of Soil and Water Management (BSWM)
BSWM implements modernized agriculture and fishery sector that sustains the
production and supply of high quality product efficient and adequate enough to meet the
demand for nutritious and safe food by the Filipino people and which continuously
satisfy the needs of the market without impairing the quality of the soil and water
resources. For this purpose, it aims to utilize land and water resources in the Philippines
to sustainably reduce poverty through applications of sustainable land management
practices and provide technical assistance in the implementation of the same.
28

9. State Universities and Colleges (SUCs)
SUCs with agricultural degree programs are required to include extension

services as part of their vision to promote sustainable livelihood in the community.
These SUCs include Mindanao State University (MSU) - Maguindanao, MSU - Marawi,
Cotabato City State Polytechnic College, Lanao Agricultural College and the likes.
Professors and instructors are those learned and educated people who are capable of
involving themselves to the farmers and interact with them to listen to their aspirations
increase their rice productivity. They will also impart new technologies and strategies
suited in the different farm areas in the ARMM. The SUCs serve as the advisers who
can instruct farmers on how to resolve problems encountered in rice farming.
10. Community Consumers and Farmers
Consumers externally affect the implementation of the policy. They do not have
direct influence to the outcome of the policy. However, they are greatly affected by the
benefits they acquire from it such as the low price of rice in the market. However,
farmers are the primary beneficiaries of the policy. Realization of the goals of the policy
is best achieved when they properly manage and maintain their rice fields and the
provided irrigation systems as well as the farm-to-market roads.
11. Concerned Non-Government Organizations (NGOs) / People Organizations

(POs)
The private sectors are part of the Municipal Agriculture and Fisheries Council
(AFC) which has significant role in planning and monitoring agricultural development
29

programs. The POs participation in the agricultural sector will ensure that the demands
of the farmers are being carried out. NGOs and POs are expected in the policy to
support, push and influence the legislators in the process of the policy making.
12. Donor Agencies
Donor agencies from international to national levels are expected to financially

and technically support the implementation of projects and programs that aims to
modernize the agricultural industry of the country. Such agency is the Japan
International Cooperation Agency (JICA) which is an international funding agency that
has a goal of providing support for human resources development, capacity building,
policy and institutional improvements, and provision of social and economic
infrastructure, thereby pursuing sustained poverty reduction through equitable growth.
Food and Agriculture Organization (FAO) of the United Nations is also an
international funding agency which primarily aims to achieve food security for every
people in the world by giving them the assurance that they have regular access to
enough high-quality food to lead active and healthy lives. The organization is mandated
to raise levels of nutrition, improve agricultural productivity, better the lives of rural
populations and contribute to the growth of the world economic.
C. Goals and Objectives
In general, the policy paper aims to support legislation that will help achieve
higher rice productivity in ARMM. Specifically, it aims to:
1. Reduce yield gap between the attainable and actual rice yield.
30

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

3. Encourage farmers to adopt technological advances in rice farming.
4. Maintain rapport between the farmers and the government and other concerned
stakeholders.
5. Attain food self-sufficiency in the region.
D. Measures of Effectiveness
Different measures are considered to evaluate the effectiveness of the three

policy alternatives. This includes the effectiveness and feasibility matrix and Bardachs
Typology of criteria which are employed to measure the effectiveness of each policy
alternative (see Table 4).
Availability and reduction of input costs and increased control of agricultural
systems (land, seed, and technology) increases self-sufficiency of livelihood and will
have significant effect to the rice productivity in the region in such a way that the
farmers will no longer need to pay for debts of seeds, fertilizers, pesticides and the likes.
Techniques and strategies on technology-transfer approaches to deliver R & D to
the farmers through extension services will help the farmers to increase their
productivity by imparting knowledge on proper farming methods and encouraging
farmers to adopt agricultural advances in rice farming.
One of the governments goals is to improve the living conditions of the poor
people, and to do this, there is a need to have a financial support from the government
through providing aids and grants for the farmers.
31

Unequal land distribution is one of the major factors causing differences in the
production strategies among various farmers and a crucial precondition for pro-poorgrowth. It argues that the productivity increases in agriculture and successful reduction
of poverty in China, India, and Taiwan are largely due to the equal distribution of land.
The type of seeds used as planting materials may define the amount of rice
production upon harvest. Good quality seeds may result to a higher productivity if it will
be used wisely on the field.
The nutrient content of the soil can be determined and detected by using soil
testers. Through this equipment, usage of too much fertilizer by the farmers will be
reduced because it will become known to him the amount of nutrients needed by his
rice field to support proper crop growth.
Infrastructure such as irrigation and drainage and FMRs greatly affects
production. Irrigation is needed to provide water for the rice farming but continuous
submergence of the rice crops is not advisable. Thus, drainage is fairly needed as well.
On the other hand, FMRs play an important role for the transportation of the rice
produced after harvest from farms to the post-harvest areas.
E. Potential Solutions
In solving the problem on low rice productivity in ARMM, the following are
identified as potential solutions: (1) the government should strengthen the provision of
AFMA on Research, Development and Extension through strengthening the roles and
functions of DA-ARMMIARC Central Station and its Research Outreach Stations; (2) the
government should exercise its authority to further extend the CARP and the scope of
32

recipients of its benefits; and (3) the partnership between DA and LGUs should be
improved and intensified with the establishment of agricultural projects and programs.
R&D is further defined as the continuous efforts of exploring technologies that will
lead to enhanced farm sustainability like bio-fertilizer and organic fertilizer applications,
water-saving
techniques,
enhanced
biological
control
through
natural
enemy
conservation to manage insect pests, formulation of seed varieties resistant to climate

change and farm diversification.48
Two primary components of R&D are the usage of high-quality seeds and the
integrated crop management (ICM) which respectively contributes 10% and 10% to the
increase of rice yield. ICM is the key to maximizing rice yield. It addresses the overall
health of crops by using all available methods (regulatory, physical, cultural, chemical,
and biological) collectively. It dictates that technology recommendations for the increase
of rice yield be developed and transferred to farmers as a holistic and integrated
package, and not by components, such as integrated nutrient or pest management.
Important crop management practices include good variety, healthy seeds and
seedlings, land preparation, correct spacing, nutrient management, pest management,
and water management.49
Meanwhile, certified seeds (CS) are pure, clean, full and uniform in size. On the
average, it has a minimum of 85% germination rate. The farmers can prevent the
occurrence of spaghetti rice through the aid of CS. The latter term refers to uneven
48
49
The Philippine Rice Masterplan: Enhancing Provincial Rice Self-Sufficiency (2009-2013), PhilRice.
Ibid.
33

rice plant growth differences in maturity dates. It is expected that 35% of the total yield
increase will be attributed to the use of high-quality seeds.50
The devolved power of DA to LGUs which is the agricultural extension services is
essential for the growth of the agricultural sector. The capability and proficiency of
extension workers must be enhanced since they are the primary sources of farmers
information, knowledge and technology. Their extension packages and interventions
must be research-based, thus, they must be provided with the means and needed ICT
equipment to access integrated, environment-friendly, cost-saving and high-yielding
farming technologies from national and international government, NGOs, state
universities and colleges (SUCs) and private research organizations.51
Through extension education, the farmers will realize that their farms low
productivity is a result of various factors such as their hesitance or non-adoption of
environment-friendly, cost-saving, integrated farming technologies and non-use of
hybrid, certified rice seeds, among others. They will also be equipped with analytical
tools so that they are able to relate global and national rice situations with their farms
low productivity, their low-income level, poverty, hunger, malnutrition, low education and
all other underdevelopment indicators that are adversely affecting them. Knowing all of
these benefits, the farmers will be motivated by their internal drive and aspiration for a
better and improved life.52
50
Ibid.
52
Ibid.
51
34

IV.
Policy Alternatives
A. Description of Policy Alternatives
1. Strengthen the roles and functions of DA-ARMMIARC

The knowledge and skills needed to be acquired by the farmers for improving
and increasing their rice productivity is critical. Improving rice productivity can contribute
in reducing poverty in the rural area s because it can increase the income of small
farmers and landless farm workers which primarily depend on rice production to sustain
their living.
One of the factors in rice production which is overlooked and given lesser
attention by the government is the knowledge and skills of the farmers in rice farming.
This includes the farm practices being applied by the farmers and the technological
advances in agriculture that they should adopt. A strengthened research, development,
and extension services will play a big role in attaining food self-sufficiency and
increasing rice productivity in the region. Through the DA-ARMMIARC, this constraint
could be minimized by conducting researches patterned from PhilRice and deliver it to
the farmers through extension services and technology-transfer approaches.
The key implementers of the proposed policy includes: DA which is the
government agency responsible for improving livelihood of farm households and
ensuring food security; LGUs particularly the Local Agriculture and Fisheries Council
(LAFC) which has direct supervision of the programs and projects of DA in the
municipalities; and NGOs such as CFSI, Kadtuntaya Foundation, Inc., and Kadtabanga
35

Foundation, Inc. NGOs' concern with the rural poor means that they often maintain a
field presence in remote locations, where it is difficult to keep government staff in post.
One of NGOs main concerns has been to identify the needs of the rural poor in
sustainable agricultural development. NGOs' rapport with farmers has allowed them to
draw on local knowledge systems in the design of technology options and to strengthen
such systems by ensuring that the technologies developed are reintegrated into them.
NGOs have also developed innovative dissemination methods, relying on farmer-tofarmer contact, whether on a group or individual basis.
The RD & E is expected to educate the farmers on new technologies formulated
by IRRI through PhilRice and by SUCs such as: (A) The use of quality seeds suitable to
the climate and soil requirement of the area to be cultivated such as the flood and
drought resistant seeds; (B) The use of transplanting method of planting rice seeds
instead of broadcasting to minimize inputs; (C) The use of Palay Check System to
identify and solve the problem without the presence of the experts; and (D) The use of
soil testers to check and validate the nutrient content of the farms to avoid excessive
use of fertilizers that are not needed in certain areas. Frameworks of the regions RD &
E are patterned and take advantage of existing researches that originated from the
preceding stakeholders and adapt the same to make it suitable to the area because
there are agricultural characteristics which are unique to ARMM.
Furthermore, the extension workers are anticipated to visit and teach those
farmers that are not capable of undergoing trainings and seminars due to some
constraints such as sickness during the scheduled activity. Above all, the most common
and worst scenario that the municipalities face is the family feud. The extension works
36

are expected to deliver the exact information imparted to farmers that attended during
the scheduled trainings and seminars. Moreover, such works aim to validate
implementation and conduct consultation with the farmers for further instruction.
Services must also be conducted with utmost sincerity and diplomacy during harvesting
periods. Also, the evaluation is conducted to corroborate employees attitude and
practice in rendering their services.
2. Strengthen RA 9700 also known as the Comprehensive Agrarian Reform

Program Extension with Reforms (CARPER)
The extension of CARP will benefit more farmers especially those tenants who
worked for their landlords in their entire lives and it would give them hope to own a
piece of land. The equal land distribution among beneficiaries will allow the farmers to
increase their production with the supplement of different support services by the DAR.
Close monitoring and evaluation is necessary to assure that the program is properly
disseminated and that the land is properly distributed to the ARBs. The implementation
of CARPER should not be limited to a period of 5 years as it is mandated but it should
be a continuous process through monitoring and delivering support services to the
beneficiaries to increase their production and thereby improving their lives.
3. Tighten the Relationship Between DA and LGUs in delivery of support

services to the farmers
The DA is a government agency responsible for improving the lives of the farmfamily households through delivery of support services and this support services will be
37

realized with the help of the LGU by assisting in the implementation, monitoring, and
evaluation of the projects and programs of the DA. A strengthened relationship between
the two agencies will greatly contribute to the improvement of livelihood of the farmers
through creating projects and programs on improving rice productivity in the region.
B. Comparison of Future Consequences
Since most of the farmers rely on trial and error methods of farming, the LGUs,
as part of their devolved function, should make some extension services on rural areas
and create more demo farm which will serve as a model farm that will guide the farmers
in employing proper rice farming practices. These will be easily realized through making
the MAO more functional. This is much feasible since it will only require allocation of
salary augmentation in the DA budget proposals for those agricultural extension
workers that were affected by the devolution and providing allocation for more demo
farms in every municipality. In ARMM, cases of Rido (family feud) are rampant and it
has been affecting the access of farmers to demo farms. If it will be made in each
municipality, the farmers will have an easy access to demo farms since they will not
have to cross over places where they have feuds. Its success also needs continuous
provision of support to the LGU agricultural technologists.
The formulation of the alternatives gave concerns to some interventions, as to
how some factors like infrastructure development, research and development, extension
and environmental factors could be of a great element towards achieving our goalto
improve rice self-sufficiency. The estimated contributions of different factors that affect
the growth in rice production are as follows: infrastructure, 40%; research and
38

development, 25%; extension, 15%; and environment, 20%.53 The figure clearly shows
that focusing on irrigation, seeds, ICM, and extension services will assure at least 60%
of the expected increase in rice production. It also shows that the irrigation places on
top of priority, followed by the research and development, extension and environment.
The policy paper focused on the research and development and extension since
these will provide long-term impact on farms of ARMM. Furthermore, research has
shown that the use of high-quality seeds can increase yield by 1.0 t/ha if it is
complemented by appropriate crop management techniques, efficient irrigation
systems, and good extension services,54 in the same way that it would also be futile to
just focus on irrigation while leaving the farmers with limited knowledge on farming
techniques. It is important that the investments are to be appropriated to each
contributory factors, otherwise, the expected target output will not be fully realized.
C. Spillovers and Externalities
Strengthening the ARMMIARC will not only ensure higher productivity rates
among farmers but will also encourage LGUs to give more focus on agriculture since it
contributes a lot to the welfare of the people especially among the farm households. It
would also ensure coordination among the national government, local government units
and the private sectors (corporation and the individual farmers) in their effort towards
the implementation of AFMA.
53
54
Ibid.
39

All of these efforts resulting to higher rice productivity rates would significantly
reduce, if not stop, rice importation in 2013.55 Most importantly, it would enhance
small farmers self-reliance.
D. Constraints and Political Feasibility

The budget allocated for ARMMIARCs maintenance and other operating
expenses amounts to PhP 250,000 per month56 and from this budget will the salary for
the extension workers be apportioned.57 Priorities in budget allocation of AFMA funds
are suggested to be adjusted that is to allocate budget portion from infrastructure to
salary of the extension workers.
Using an evaluation of AFMA progress conducted by DA in 2000 to 2001 as the
standard, some constraints are likely to happen. These are political intervention,
delayed releases of allowances, cash allocation, and institutional problems.
Political intervention would result to some financial portion of AFMA to be utilized
on some other projects and programs that are not within AFMPS identified strategies
and activities. There is also the probability of delayed payments which will cause
tremendous problem on seed production. Lastly, the problem with the institutionalization
is diversion of the bulk of AFMA budget for extension/training to the payment for
incentive allowances of LGU agriculture technicians instead of going to actual
production program interventions. The lack of good relationship between LGU and the
DA-RFU will also put constraints since the DA can no longer tap the LGU agriculture
55
January-June 2012 Accomplishment Report, ARMMIARC (ppt).
57
Mr. Tong Abas, Planning Officer of ARMMIARC.
56
40

staff to fully support DA program implementation. The LCEs lack of support in terms of
traveling allowances, supplies and materials to its agriculture extension workers will also
hinder the implementation and monitoring of DA programs.
41

V.
Policy Recommendations
A. Criteria for Recommending Alternatives
In recommending a policy alternative, its effectiveness and feasibility must be

identified before branding it as the best option. The effectiveness of an alternative
measures its probability to achieve its defined goals and objectives while the feasibility
refers to the possibility of the policy alternative will be enacted and implemented by the
government. The following are the three identified alternatives: (A) Strengthen the roles
and functions of DA-ARMMIARC or the policy alternative 1; (B) Strengthen RA 9700
also known as the Comprehensive Agrarian Reform Program Extension with Reforms
(CARPER) or the policy alternative 2; and (C) Tighten the Relationship Between DA and
LGUs in delivery of support services to the farmers or the policy alternative 3.
Different analytical tools have been employed to identify the best alternative in
addressing the social problem. The first tool was the Bardachs Typology to measure
the feasibility of the alternatives.58
Table 3. Measurement of Feasibility of Policy Alternatives Using Bardachs Typology.
Policy
Administrative
Financial
Political
Social
Technical
Alternative
Feasibility
Feasibility
Feasibility
Feasibility
Feasibility
4.2
4.0
4.8
4.3
4.0
4.26
2.8
3.4
3.0
2.9
3.6
2.43
3.4
2.8
3.1
4.0
3.2
3.3
Scale:
4.3-5.0 = Very High

3.4-4.2 = High
2.5-3.3 = Medium
1.6-2.4 = Low
58
Average
0-1.5 = Very Low
This is only an assumption made by the policy analysts. If full policy research will be done, the analysts
will conduct actual focus group discussions with concerned stakeholders and other data collection
procedures to obtain more objective results. With these, the analysts could conduct a more quantitative
and qualitative analysis.
42

The table below was formulated to measure the effectiveness of the alternatives
in catering the needs of the farmers with regards to the contributory factors to low rice
productivity.
Table 4. Measurement of Effectiveness of Policy Alternatives.

Contributory Factors in
Low Rice Productivity
Farm Inputs
Techniques and strategies
Governments support (subsidies)
Tenancy
Type of seeds
Needs for Soil testers
Infrastructure
AVERAGE
Alternative 1
Alternative 2
Alternative 3
5
5
5
0
5
5
0
3.57
0
0
4
5
0
0
0
1.29
5
4
5
0
4
0
5
3.29
NOTE: The rating scale is the same as presented in Table 3.
The following table was the summary of ratings given by the policy analysts to
the three policy alternatives. The alternatives were rated accordingly to its feasibility and
to its effectiveness to address the social problem.
Table 5. Effectiveness and Feasibility Matrix of the Policy Alternatives.
HIGH
EFFECTIVENESS
MEDIUM
FEASIBILITY
HIGH
MEDIUM
Policy
Policy
Alternative 1
Alternative 3
Policy
Alternative 2
LOW
Policy
Alternative 3
LOW
The ratings below were discussed in a cumulative order, starting with the
weakest to the strongest policy alternative. Feasibility was measured based on five
aspects: Administrative, Financial, Political, Social, and Technical. On the other hand,
43

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

answering the causes of the social problem.
Alternative 2 was rated medium in both feasibility and effectiveness due to the
following reasons stated by the policy analysts. Firstly, owning the land they till cannot
guarantee an increase in their productivity. Farm inputs and knowledge is still the most
significant tools in increasing the yield. Secondly, the support from the government
would be utmost needed to secure the availability of farm infrastructures and inputs
since support from the land owner would cease. Lastly, ARMM was the least recipient
of the land distribution program of the CARL. In fact, from 1972 up to 2010, only 66% of
the total land to be given to the region was distributed.59
Alternative 3 was rated high in effectiveness but medium in feasibility. With full
support from the LGUs, it is assumed that every project would be executed with utmost
dedication and proper implementation. Moreover, LGUs have direct contact with its
constituent, thus, dissemination of information and identification of farmers who need
help the most would be easier since they will be dealing with their own people.
However, it has been a fact that in each proposed projects, the DA and LGUs concern
differs, depending specifically on the implementer whether or not hes an ally of the
present administrator.
Alternative 1 was rated high in both effectiveness and feasibility because
although it is not the priority of the government, it contributes significantly in improving
the rice yield in ARMM. With proper deliberation and implementation of strategies in
farming, lesser inputs with higher farming produce would be at hand. Also, the potential
of the land could be maximized by shifting, for instance, to three cropping. Data showed
59
Agricultural Indicators System Report: Redistribution of Land, BAS.
44

that 12% in the SOCCSKSARGEN and some in Western Visayas have already tried
three cropping in 2009.60 However, only 1.54% have tried it in ARMM. These things
could also be enjoyed by the ARMM populace if functions and role of ARMMIARC
would be strengthened. In addition, 61% of the farmers demanded that the soil
testing/analysis should be improved for they believed in its capacity to improve rice
yield.61
Furthermore, alternative 1 is the only alternative that is politically neutral and is
suitable to every stakeholder for it does not require much funding and involvement from
them. It would also aid in providing some of the ARMM people in earning an extra
income by helping the farmers. Since more produce would require more manpower,
farmers would need a hand from outsiders or non-farmers.
It is evident in the matrix that the preferred policy alternative to be undertaken in
resolving the social problem in low rice productivity in ARMM is alternative 1. It has high
effectiveness and most importantly, it has high feasibility. The second best alternative is
the alternative 3 and the least preferred alternative is the alternative 2.
B. Description of Preferred Alternative
Strengthen the role and functions of DA-ARMMIARC (Policy Alternative 1)

The preferred policy alternative is to enhance DA-ARMMIARC by developing the
laboratory facilities, increasing the number of demo farms to ensure dissemination of
information, and first hand transfer of techniques from experts to farmers by the aid of
consultation hour between the rice experts and farmers. With these, problems
60
61

Ibid.
45

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

caused by the unstable government in the region will be avoided. Furthermore, Mr.
Tong Abas of ARMMIARC stated: Every time the national administration changes, the
heads of different offices were also terminated. Due to this practice, proposed projects
were mostly disapproved while the on-going one was postponed and worse thing is it
will have to be ceased. Things like this can be avoided through itemizing the
employees. Once they were permanently hired, they cannot be moved to other places
without valid reasons. Thus, projects they are handling have the chance to be
implemented on time with met requirements.
When ARMMIARC will be strengthened, it will ensure the availability and
accessibility of necessary agricultural information. Such knowledge and learnings that a
farmer could acquire are: (1) new technologies and modern strategies in rice farming;
(2) complete guidelines on the proper application of organic and inorganic fertilizers
specifically the appropriate amount and mixture suitable for the soil type of their rice
fields; (3) operational instructions of farm equipment and implements such as soil
fertility testers and sprayers and (4) resolutions to other farming problems. With such
improvements brought by the centers, it is certain that the yields of rice farmers in
ARMM will significantly increase.
With the strengthened ARMMIARC and ROSes, programs are expected to be
widespread and problems would be properly addressed since needed equipment and
implements will be available at the nearest place for better catering of services and
functions. MAO would be utilized and farmers potentials within the municipalities would
be maximized.
46

Impacts of Research, Development and Extension
Public goods such as research and development, and extension have long-term
impacts in rice productivity.62 Public goods are important because of the following
bases: (1) its benefits are shared by the community; (2) high returns on investment and
long-term impacts are attained; and (3) they are not readily provided by the private
sector, but they are important to society as a whole. However, private goods such as
subsidies on fertilizer have benefits that are limited to target groups. Moreover, it only
has short-term impacts and costs too much to the government. The impact of research
and development, infrastructure, and extension to rice production are estimated to be
25%, 40%, and 15%, respectively (Appendix 4). Moreover, the returns on investments
on different public goods are 77.1% for research and development, 80% for extension,
and 18% for irrigation.63
Furthermore, one of the key success factors of Asian agriculture and fisheries is
a well-budgeted research and development program, accompanied by human resource
development of scientists and researchers that engages universities and private
sector.64 As shown in Appendix 5, the countries of China, India, Thailand, and Vietnam
ranked the agriculture research and development as the factor which highly contributes
to the success of their agricultural production.
62
Balisacan as cited in the MTPDP for 2010-2016 Formulation Reference Documents.

Ibid.
64
63
47

Agricultural extension must also be strengthened to improve rice productivity

because good technologies, government policy and farming support and private sector
interventions will be useless if these will not reach the intended clientele the farmers.65
It is estimated that extension contributes 15% in the total increase in rice yield. In
accordance to sections 90 and 92 of the AFMA as well as section 17 of the LGC,
extension is basically a collaborative effort of national government agencies and the
LGUs. LGU officials must effect change in their extension staffs work ethics by
sincerely and consistently modelling integrity and accountability in public service.66
C. Outline of Implementation Strategy and Policy Advocacy
This policy paper advocates the issue on the high demand for rice commodity in
ARMM parallel with the low volume of rice supply in the region. Furthermore, the
objective of the advocacy is to raise awareness of the long term impacts and benefits of
RD & E and in order to prioritize the allocation of larger budget for its functionality (see
Appendix 13).
The target policy actors of the advocacy are: (1) Proceso J. Alcala (Secretary,
DA); (2) Sen. Aquilino Pimentel III; (3) District Representatives of ARMM; (4) Regional
Legislative Assemblymen; (5) Provincial Governors of ARMM; and (6) Mayors of various
municipalities of ARMM. The advocacy plan will be pursued through the following
activities:
65
66
Ibid.
48

I.
Lobbying with lawmakers

A. Identifying champions. These champions will spouse the advocacy in the
House of Representatives and Senate. They will be responsible for the
endorsement and recommendation of DA budget increase during bicameral
meeting.
B. Persuading champions. Several meetings with the identified champions will
be conducted to convince them to spouse the advocacy. The long term
impacts and benefits of RD & E will be presented to them.
C. Lobbying for DA budget increase. The champions will lobby the advocacy
to other lawmakers to gain positive support during budget plenary hearings.
D. Approving and Releasing of DA budget. This will signify that RD & E will be
allocated of adequate and sufficient budget for excellent performance of
research centers.
II.
Rehabilitation of the DA-ARMMIARC and its ROSes.

A. Re-directing of employees. In every research center, each employee must
be assessed. Their designation must be based on their qualifications.
B. Examination and inventory of available equipment. All laboratory
equipment and facilities must be inspected to guarantee functionality.
III.
Consultation with farmers. Consultation will be offered to maintain rapport

between the farmers and the agencies which would ensure better understanding
about different issues faced by both parties. The agenda of consultation will be
the following:
49

A. Identifying problems encountered by rice farmers. Conduct a meeting

with the farmers and ask each of them about the problems they encounter
during planting and the solutions they are implementing to resolve such
problems. The concerns of farmers will be directly addressed and resolved by
the experts which will lessen the occurrence of similar problems in the future.
B. Categorizing the needs of farmers. After identifying the problems, it must
be classified into its level of need to be resolved. Some problems could be
addressed within a short period of time and there are some that needed to be
resolved in a continuous manner.
C. Distinguishing the capable and incapable farmers. Farmers will be
assisted and prioritized based on their capability to provide their own farming
needs or any other assistance they need such as wider knowledge in best
crop management.
IV.
Conduct trainings, seminars and workshops. Seminars and workshops about

proper application of fertilizers, right seedling dimensions and suitability of seeds
with the soil type will be conducted prior to the operation of the demo farms. This
will supplement information to the farmers before they see how theories and facts
about farming are put into practice in the demo farms. The topics to be instilled to
the farmers are listed under the table of Provisions for Monitoring and Evaluation.
V.
Establishing Demonstration Farms. Demonstration farms will be established in

each municipality of the five provinces of ARMM to allow the farmers to see and
experience hands-on training on rice farming, adopting new technologies and
using certified and good seeds. Being personally involved from the land
50

preparation to the harvesting of rice will establish a brighter visualization on how

this thing could change their produce in positive angle. With this, farmers will be
encouraged to adopt new technologies which will improve the amount of rice they
produce.
Initially, the following activities must be accomplished before the demonstration
farms could fully operate:
A. Consulting with MAOs. The MAOs function should be maximized. He will
be accountable for the maintenance of the demonstration farm. He will also
be responsible in deciding where the farm should be situated since he is
expected to be the most knowledgeable about the land characteristics of the
area under his authority.
B. Identifying suitable area for demonstration farms. The farm should be
accessible to all of the farmers in the municipality. Moreover, it must be ideal
for rice cultivation. The security must also be considered since family feuds
are common in ARMM which might hinder the success of the production in
demonstration farm.
C. Applying knowledge learned in demonstration farms. All of the subjects
or topics that have been tackled during the seminar must be applied as much
as possible to showcase all of the farmers doubts and concerns regarding
the new technology being imparted by the lecturers to them.
The said undertaking will be handled directly by the DA-ARMM through
ARMMIARC to fully instigate the goals of the project. Staffs of ARMMIARC should
directly deliver the services to the beneficiaries as much as possible to avoid numerous
51

interventions of the LGUs and other concerned stakeholders that promote bureaucratic
practices which prolongs the implementation of projects.
VI.
Further studies and expansion plans. The RD & E Centers should not stop in
implementing projects and programs that enhances the rice productivity of
ARMMs constituents. They must also not limit their functions in only catering the
needs of the farmers. The centers should have further plans of project
expansions, expanding its services not just for the region but to the entire country
if possible. Further studies must be conducted so that the region would not be left
behind in terms of using advanced rice farming technologies and practices. In
cases of achieving excess yields, the centers are obliged to educate the farmers
on ways to process and store their products to avoid wastage and loss of profit.
D. Provisions for Monitoring and Evaluation
Monitoring and evaluation should be conducted from time to time to validate the
effectiveness and efficiency of the RD & E in resolving the social problem of low rice
productivity in ARMM. The employees of both ARMMIARC and its ROSes, together with
the farmers, shall undergo the said procedure as follows:
I.
Evaluation of participants. Each participant should be evaluated one by one

to verify if they have applied the strategies and technologies taught to them
by the experts.
52

II.
Listing/Consultation. Listing and consultation should be a continuous

process to fully assess the capability of farmers. It is also essential to list their
needs, problems encountered, necessary actions to be undertaken to resolve
such problems and the effect of the presence of RD & E in their yield.
III.
Unannounced inspection. Inspection of both the demonstration farms and

the offices should be done sometimes without prior notice to determine those
employees doing their job religiously.
IV.
Identification of problems encountered. The perceived problem during the

evaluation and consultation must be classified whether it is a long term or a
short term problem. For those short term problems, it must be resolved
urgently while the long term can be solved in the future to give time to fully
and clearly identify what causes the occurrence of the problem.
Aside from the aforementioned strategies, monitoring and evaluation will be

conducted in three facets:
1. Seminars Monitoring and Evaluation
Seminars are conducted to educate the farmers on the existence of the RD & E
Centers for their own benefit. During the seminar, the advantages they will acquire
when they consult to the experts will be discussed. Furthermore, the objectives and
goals of the seminar will also be clearly explained.
The following are the subject matters to be undertaken and activities to be done
during the seminar. While the seminar is being conducted, a monitoring and evaluation
53

team will observe and assess if the activities are not taken for granted and if the
resources are used effectively and efficiently.
The following table shows the activities
and strategies to be evaluated:
Table 6. Activities to be Monitored and Evaluated During Seminars.

SUBJECT MATTER
1.
Variety Selection and
Seedbed Management.
2.
Land Preparation
3.
Crop Establishment
4.
Nutrient Management
5.
Pest and disease
Management
ACTIVITIES and MONITORING

Proper deliberation of
information using
vernacular language if
possible.
Proper illustration of
machineries available in
the center for farmers use,
technical terms and
usage.
Audio-visual
demonstration of
transplanting quality
seeds.
Educating the farmers on
the existence of the
organic fertilizers and the
soil testers to identify the
soil needs to avoid
excessive application of
extra fertilizers.
Advising and devolving to
farmers the disadvantages
and advantages of using
pesticides and
insecticides. Also,
informing them about the
significance of
synchronized farming as
the best tool in fighting
pests.
54
EVALUATION
Question and answer
portion to check if the
farmers get the right
information.
Selected participants to
demonstrate how the
machines were operated
and right terminologies.
Random selection of
participants to
demonstrate or recap the
previous discussion.
Farmers agreed to use
organic fertilizer and
consult to the Center
regarding the nutrient
content of their individual
farms.
Open mindedness of
farmers into adopting new
options in farming.

2. Monitoring and Evaluation of Demonstration Farms

Monitoring and evaluation of the demonstration farms will start as soon as the
land to be used is located which is accessible to the farmers within the area. Thorough
evaluation of the farms will begin on the first day of sowing. During this period, proper
dimensions will be measured and seed varieties will be strictly selected. The soil
requirement to properly address the nutrient requirement of the farm will also be
determined. The picture below shows the five stages of rice farming that will be focused
during the evaluation process to ensure the increase in yields expected by the farmers.
Figure 6. Five Stages of Rice Farming.
Source: The Rice Growing and Production Processes, Rice Growers Association of Australia.
3. Monitoring and Evaluation of Project Implementation

Monitoring and evaluation will be conducted every planting and harvesting
period. Harvests will be recorded and checked if it were able to meet the expected
quality and quantity of output. The average rice yield in each area will be calculated.
Furthermore, the highest and lowest producer in each area will be identified. For the
55

case of the lowest producer, the problem that he encountered during the cropping
season will be identified so as to prevent the further occurrence of that problem.
E. Limitations and Unanticipated Consequences

The farmers full acceptance of the modern agricultural technologies and
advancements will limit the probable outcomes of the proposed policy. Certainly,
discouraging traditional farming practices in rice production will not be that easy. When
the farmers resist embracing these developments due to inconvenience of abandoning
the conventional ways of rice farming, the full potential of their lands are not achieved.
Thus, lots of opportunities are wasted such as increase in their income as well as in the
amount rice goods produced. Thorough encouragement and persuasion by the
agricultural experts to the rice farmers are foreseen to reduce the limitations in the
implementation of the proposed policy.
Moreover, unwarranted involvement of some stakeholders may result in the
delay of policy implementation. Stakeholders may make unnecessary actions for the
sake of being praised by the policy beneficiaries. It was also a consideration the kind of
government that we have; the untimely change of government within the region and our
bureaucratic system of government which makes us expects the project to take some
time to put it into reality.
56

REFERENCES
Abas, A., Bajao, E., Mangindra, S., & Panday, S. 2012. Rice Industry Profile:
Autonomous Region in Muslim Mindanao (ARMM).
Alinio, B., 2008. Philippine Local Government Officials Perceptions of Decentralization
and Its Effects on Local Governments Administrative Capabilities.
ARMMIARC, 2011. Annual Report.
ARMMIARC, 2012. Accomplishment of ARMMIARC in January-June 2012.
Autonomous Region in Muslim Mindanao, 2012. Quick Facts & Figures. [Electronic
Atlas]. Available at: http://www.armm.gov.ph/quick-facts-figures/. [July 12, 2012].
Bureau of Agricultural Statistics, 2004. Crops Statistics of the Philippines, 1990-2003.
[Electronic
Publication].
Available
at
http://www.bas.gov.ph/download_action.php?filedown=cropsstatistics90-03.pdf.
[June 27, 2012].
Bureau of Agricultural Statistics, 2009. Costs and Returns Surveys of Palay Production,
January-June and July-November 2009. [Electronic Report]. Available at
http://www.bas.gov.ph/download_action.php?filedown=crs_palay2011.pdf.
[August 4, 2012].
Bureau of Agricultural Statistics, 2010. Agricultural Indicators System Report:
Population and Labor Force.
Bureau of Agricultural Statistics, 2011. Crops Statistics of the Philippines, 2006-2010,
8th Edition (National and Regional). [Electronic Publication]. Available at:
http://www.bas.gov.ph/download_action.php?filedown=crops_stat_20062010.pdf. [June 27, 2012].
57

Bureau of Agricultural Statistics, Food Consumption Statistical Tables of Bureau of

Agricultural Statistics. [August 30, 2012].
Bureau of Agricultural Statistics, 2012. Updates on Fertilizer Prices, March 2012.
[Electronic
Report].
Available
at:
https://docs.google.com/viewer?url=http://bas.gov.ph/situationer/price2/FerPrSit
Mar2012.pdf. [June 29, 2012].
Center for Research and Communication Foundation, Inc., 2007. Experts Review of the
Agriculture and Fisheries Modernization Act (AFMA).
Cover Page Photo. http://harmoniaphilosophica.files.wordpress.com/2012/04/plain-ricep-leecher_1.jpg
Cover
Page
Photo.
http://3.bp.blogspot.com/_8OaZRcNWEq8/SWqkxw9P6yI/AAAAAAAAAKU/Z0r3_
JDv05s/s400/philippine_rice_field.jpg
Cover Page Photo. International Rice Research Institute, 2011. Rice Today. Available at
irri.org/ricetoday/.[August 7, 2012].
DAF-ARMM, n.d. ARMMIARC Profile.
Department
of
Agrarian
Reform,
2012.
Mission
and
Vision.
Available
at
http://www.dar.gov.ph/index.php?option=com_content&view=article&id=283&Ite
mid=303.
Department of Agriculture. AFMA Budget/Finance Review. [Electronic Report]. Available
at: nafc.da.gov.ph/afma/PDF/vol3-budget.pdf.
Department of Agriculture, 2012. Our Mission, Vision and Mandate. Available at
http://www.da.gov.ph/n_sub.php?pass=about/vision.html&banner=1.
58

Department of Tourism, 2009. Autonomous Region in Muslim Mindanao > Lanao Del
Sur.
Available
at
http://www.tourism.gov.ph/sitepages/interactivesitespage.aspx?siteid=101. [July
20, 2012].
International Bank for Reconstruction and Development/The World Bank, 2005. Joint
Needs Assessment for Reconstruction and Development of Conflict-Affected
Areas in Mindanao. [Electronic Publication]. Available at: http://www.internaldisplacement.org/8025708F004CE90B/(httpDocuments)/549A2370BE5377CDC
125723500504AD3/$file/JNA_Rural.pdf. [June 26, 2012].
Interview with Dr. Samarendu Mohanty, Head of the Social Sciences Division of IRRI.
Conducted on August 24, 2012 at IRRI.
Interview with Ms. Catalina Diaz, a Scientist of the Social Sciences Division of IRRI.
Conducted on August 24, 2012 at IRRI.
Interview with Tong A. Abas, Planning Officer, ARMMIARC. Conducted on July 18,
2012 at Bureau of Agricultural Research.
Mendoza, Teodoro, 2011. Agriculture During President Gloria Macapagal Arroyo: The
Challenges Under PNoy Administration. [Electronic Document].
MTPDP 2010-2016 Formulation Reference Documents
National Irrigation Administration, 2010. 2010 Annual Report of National Irrigation
Administration.
[Electronic
Report].
Available
http://www.nia.gov.ph/publications/annualreport/annualreport.pdf.
2012].
59
[June
at:
29,

National Irrigation Administration, 2012. The National Irrigation Administration. Available

at http://niaregion6.wordpress.com/about/.
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Philippine Rice Research Institute, 2011 . Philippine Rice Industry Primer Series.
[Electronic
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Available
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http://pinoyrkb.com/Rice%20Facts%20and%20Figures.pdf. [August 29, 2012].

PhilRice and Department of Agriculture, 2008. Enhancing Provincial Rice SelfSufficiency (2009-2013)..
Provincial
Government
of
Maguindanao,
2012.
Brief
Profile.
Available
at
http://www.maguindanao.gov.ph/index.php?option=com_k2&view=item&layout=it
em&id=41&Itemid=93
RA 6657 entitled Comprehensive Agrarian Reform Program (CARP).
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Senate Economic Planning Office, 2008. Policy Brief: Broadening and Reinforcing the
Benefits of Land Reform in the Philippines.
Tindick, S., n.d. Facing the Challenges of Ensuring Food in ARMM
60

APPENDICES
Appendix 1. Political map of the ARMM.
Appendix 2. Ratio of Per Capita Rice Availability to Per Capita Consumption in ARMM
Region, 2008-2009.
Average Per
Capita Palay
Availability
(kg/year)
Average Per
Capita Rice
Availability
(kg/year)
Average Per
Capita Rice
Consumption
(kg/year)
Per Capita Rice

Availability to
Consumption
Ratio
ARMM
176
115
145
0.79
Basilan
12
125
0.06
Lanao Del Sur
187
122
181
0.67
Maguindanao
401
261
140
1.86
123
0.02
Region/Province
Sulu
61

Tawi-Tawi
107
0.01
Source of basic data: Bureau of Agricultural Statistics

As cited in Abas et al. Rice Industry Profile: Autonomous Region in Muslim Mindanao
(ARMM).
Appendix 3. Sources of Yield Increases.

Grain Yield (t/ha/season)
Wet Season
Farm Conditions
Dry Season
Hybrid
Rice
Certified
Seeds
Good
Seeds
Hybrid
Rice
Certified
Seeds
Good
Seeds
Maximum attainable yield

(limited only by climate and
variety)
9.20
8.00
7.20
11.50
10.00
9.00
Yield with best nutrient and

cultural practices (limited by
lodging)
7.36
6.40
5.76
9.20
8.00
7.20
Yield when macronutrient

(NPK) and water problems
exist
5.52
4.80
4.32
6.90
6.00
5.40
Yield when micronutrient

(Zinc, Sulfur, etc.), pest, and
management problems
(crop establishment, land
preparation) exist
3.68
3.20
2.88
4.60
4.00
3.60
Source: Balisacan, Arsenio M. and Leocardio S. Sebastian, and Associates. 2006.

Securing Rice, Reducing Poverty. Philippines: SEARCA
As cited in PhilRices and DAs The Philippine Rice Masterplan 2009-2013.
62

Appendix 4. Factors Contributing to Production Growth.

Factors
Percent Contribution
1. Research and Development
25
Seeds (biotechnology, hybrid rice, certified, nutrition)
10
Integrated crop management
10
Mechanization
2. Infrastructure
40
Irrigation
25
Farm-to-market roads
Transportation
Postharvest
3. Extension
15
4. Environmental Factors
20
Source: Balisacan, Arsenio M. and Leocardio S. Sebastian, and Associates. 2006.

Securing Rice, Reducing Poverty. Philippines: SEARCA
As cited in PhilRices and DAs The Philippine Rice Masterplan 2009-2013.
Appendix 5. Impact of Research and Development on Agriculture.

China
India
Thailand
Vietnam
Item
Ranking of Returns in Agriculture Production
Agriculture Research and
Development
Education
Roads
Telecommunications
63

Irrigation
Electricity
Soil and Water Conservation
Source: Shenggen Fan (2005). The Role of Agriculture in Poverty Reduction: Evidence
from Asia. IFPRI.
As cited in the final report by the Center for Research and Communication Foundation,
Inc. entitled Experts Review of the Agriculture and Fisheries Modernization Act
(AFMA).
Appendix 6. General Appropriations of the Department of Agriculture from 19972006 (Regular/GATT or AFMP).
Year
Regular
GATT
AFMP
Total
1997
2,690,163
14,474,968
17,165,131
1998
2,838,727
12,892,205
15,730,932
1999
3,344,289
11,612,233
14,956,522
2000
4,164,823
16,635,428
20,800,251
2001
4,656,604
11,449,739
16,106,343
2002
5,599,053
14,440,018
20,039,071
2003
4,444,621
12,129,019
16,573,640
2004
4,252,089
9,361,554
13,613,643
2005
4,273,715
10,261,068
14,534,783
2006
4,353,783
11,465,850
15,819,633
Source: Department of Agriculture

As cited in the final report by the Center for Research and Communication
Foundation, Inc. entitled Experts Review of the Agriculture and Fisheries
Modernization Act (AFMA).
64

Appendix 7. Ranking of Priority Sectors of AFMA Components: Philippine

Average.
Component / Region
Average of 16 Regions
Rank
Irrigation
3.2
Credit
4.2
Marketing
3.5
2.5
Post-harvest
3.6
Other Infrastructure
3.5
2.5
Education
7.1
Information Support
7.5
Product Standards
8.1
10
Extension
9.2
11
Trade
7.4
Research and Development
8.0
As cited in the final report by the Center for Research and Communication
Foundation, Inc. entitled Experts Review of the Agriculture and Fisheries
Modernization Act (AFMA).
Appendix 8. Priority Sectors of AFMA Components: LUZON.

Component /
Region
Irrigation
Credit
Marketing
Post-harvest
CAR
4-A
4-B
Ave
Cluster
Rank
1.1
3.5
3.5
3.1
3.5
2.8
65

5.5
6.5
5.5
4.8
Education
5.5
6.5
9.5
11
10
8.2
10
Information Support
6.5
8.5
7.5
7.5
Product Standards
8.5
6.5
7.5
7.5
10
8.1
Extension
8.5
11
11
10
11
10
9.2
11
Trade
10
10
9.5
7.5
7.4
Research and
Development
11
6.5
5.5
8.5
11
11
8.0
(AFMA).
Appendix 9. Priority Sectors of AFMA Components: VISAYAS.

6
Ave
Cluster
Rank
1.3
Credit
3.5
2.5
3.7
2.5
Marketing
5.5
4.8
Post-harvest
3.5
11
5.8
3.7
2.5
Education
11
2.5
7.5
8.5
Information Support
11
9.0
9.5
Product Standards
10
10
9.0
9.5
Extension
10
7.0
Trade
6.7
5.5
7.5
8.5
Component / Region
Irrigation
Research and Development
66

(AFMA).
Appendix 10. Priority Sectors of AFMA Components: MINDANAO.

Component /
Region
10
11
12
CARAGA
ARMM
Ave
Cluster
Rank
Irrigation
11
11
8.5
6.6
Credit
11
3.5
5.3
5.5
1.5
1.5
3.3
Post-harvest
3.5
2.5
3.5
Other
Infrastructure
1.5
1.9
Education
1.5
2.5
5.5
Information
Support
8.5
6.6
Product
Standards
9.5
10
7.9
Extension
11
9.5
10
10
10
8.5
9.8
10
Trade
5.5
10
6.6
Research and
Development
10
8.5
11
7.6
Marketing
Inc. entitled Experts Review of the Agriculture and Fisheries Modernization
Act (AFMA).
67

Appendix 11. AFMA budget and allocation, by commodity/sector, 2007-2009.

2007
2008
2009
% Share
% Share
% Share
GMA Rice
15.2
14.3
25.7
Irrigation (local fund)
11.9
15.8
26.0
PhilRice
1.0
0.8
0.8
41.3
34.4
7.9
69.4
65.3
60.4
Commodity Sector
Foreign-assisted
Projects (Irrigation etc.)
Total for Rice
GMA Corn
3.6
Phil Coc0 Authority
0.3
0.8
0.9
GMA HVCC
2.9
4.8
7.0
Livestock:
3.4
2.3
4.4
Fisheries and Aquaculture
5.7
5.1
4.9
Farm to Market Roads
1.3
5.7
9.7
Allocation to LGUs
10.5
5.8
1.8
All Others
6.5
10.3
7.4
30.6
34.8
39.7
Grand Total
100.0
100.0
100.0
AFMA budget
19.76
27.78
56.81
Total Less Rice
Source of basic data: Department of Budget and Management (DBM)

As cited in the paper by Dr. Teodoro C. Mendoza entitled Agriculture During President
Gloria Macapagal Arroyo: The Challenges Under PNoy Administration.
68

Appendix 12. Palay: Production, Area Harvested and Yield per hectare, By Region,
Philippines, 2006-2010.
Region
2006
2007
2008
2009
2010
15,326,706
16,240,194
16,815,548
16,266,417
15,772,319
397,340
436,311
445,156
431,656
400,415
Ilocos Region
1,597,168
1,642,301
1,691,629
1,351,715
1,558,373
Cagayan Valley
1,953,755
2,025,245
2,080,240
2,077,036
1,745,722
Central Luzon
2,677,633
2,942,113
3,014,347
2,805,467
2,958,415
CALABARZON
358,364
391,418
428,085
383,035
390,189
MIMAROPA
829,867
877,180
863,215
930,674
857,532
Bicol Region
888,772
991,430
997,581
1,045,501
1,081,078
Western Visayas
1,987,224
1,992,426
2,117,598
2,205,071
1,789,693
Central Visayas
245,131
251,802
311,801
276,818
270,449
Eastern Visayas
830,287
948,827
1,030,621
952,220
964,145
Zamboanga
Peninsula
514,201
553,759
551,310
565,764
552,645
Northern Mindanao
461,289
501,892
551,246
583,297
586,442
Davao Region
476,411
427,184
418,954
423,825
402,811
1,146,220
1,186,688
1,234,757
1,229,040
1,185,196
Caraga
408,774
455,838
447,317
425,551
405,871
ARMM
554,270
615,780
631,691
579,747
623,343
4,159,930
4,272,889
4,459,977
4,532,310
4,354,161
CAR
104,021
118,135
119,816
119,368
117,057
Ilocos Region
376,426
377,361
388,763
389,339
394,110
Production (mt)
PHILIPPINES
CAR
SOCCSKSARGEN
Area Harvested (ha)

PHILIPPINES
69

Cagayan Valley
503,593
501,943
536,916
533,315
506,351
Central Luzon
593,033
640,913
666,309
664,121
681,901
CALABARZON
104,031
104,714
112,120
107,038
104,124
MIMAROPA
238,395
247,803
254,403
271,901
262,384
Bicol Region
281,483
286,374
290,718
313,602
316,804
Western Visayas
611,135
601,595
646,197
669,306
541,253
Central Visayas
99,484
97,507
105,154
102,927
101,875
Eastern Visayas
233,221
260,386
276,573
272,611
275,691
Zamboanga
Peninsula
141,177
148,278
145,314
153,743
145,070
Northern Mindanao
122,492
129,249
137,276
147,270
143,324
Davao Region
108,992
97,487
95,252
96,168
95,901
SOCCSKSARGEN
319,878
328,341
346,403
349,668
329,817
Caraga
126,058
133,444
138,259
137,173
130,867
ARMM
196,511
199,359
200,504
204,760
207,632
3.68
3.80
3.77
3.59
3.62
CAR
3.82
3.69
3.72
3.62
3.42
Ilocos Region
4.24
4.35
4.35
3.47
3.95
Cagayan Valley
3.88
4.03
3.87
3.89
3.45
Central Luzon
4.52
4.59
4.52
4.22
4.34
CALABARZON
3.44
3.74
3.82
3.58
3.75
MIMAROPA
3.48
3.54
3.39
3.42
3.27
Bicol Region
3.16
3.46
3.43
3.33
3.41
Western Visayas
3.25
3.31
3.28
3.29
3.31
Yield Per Hectare

(mt)
PHILIPPINES
70

Central Visayas
2.46
2.58
2.97
2.69
2.65
Eastern Visayas
3.56
3.64
3.73
3.49
3.50
Zamboanga
Peninsula
3.64
3.73
3.79
3.68
3.81
Northern Mindanao
3.77
3.88
4.02
3.96
4.09
Davao Region
4.37
4.38
4.40
4.41
4.20
SOCCSKSARGEN
3.58
3.61
3.56
3.51
3.59
Caraga
3.24
3.42
3.24
3.10
3.10
ARMM
2.82
3.09
3.15
2.83
3.00
Source: 8th Edition, Crops Statistics of the Philippines, 2006-2010 by Bureau of

Agricultural Statistics
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A POLICY ISSUE PAPER ON IMPROVING RICE PRODUCTIVITY IN

AUTONOMOUS REGION IN MUSLIM MINDANAO (ARMM)

Background of the Problem

A. Description of the Problem

A POLICY ISSUE PAPER ON IMPROVING RICE PRODUCTIVITY IN

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

Lanao del Sur

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

A POLICY ISSUE PAPER ON IMPROVING RICE PRODUCTIVITY IN

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

Source: Food Consumption Statistical Tables, BAS.

Nature of the Social Problem

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

A POLICY ISSUE PAPER ON IMPROVING RICE PRODUCTIVITY IN

Figure 3. Yield Gap Analysis of Rice.

Yield with best

Indicators of the Existence of Social Problem

A POLICY ISSUE PAPER ON IMPROVING RICE PRODUCTIVITY IN

Figure 4. Rice Supply and Demand of ARMM.

Costs and Returns Surveys of Palay Production, BAS.

A POLICY ISSUE PAPER ON IMPROVING RICE PRODUCTIVITY IN

Basilan (excluding City of Isabela)

Lanao del Sur

Maguindanao (excluding Cotabato City)

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

A POLICY ISSUE PAPER ON IMPROVING RICE PRODUCTIVITY IN

Scope and Limitations of Policy Paper

B. Outcomes of Prior Efforts to Solve Problem

A POLICY ISSUE PAPER ON IMPROVING RICE PRODUCTIVITY IN

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

Profile of ARMMIARC (ppt).

A POLICY ISSUE PAPER ON IMPROVING RICE PRODUCTIVITY IN

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

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

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

Profile of ARMMIARC (ppt).

A POLICY ISSUE PAPER ON IMPROVING RICE PRODUCTIVITY IN

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

A POLICY ISSUE PAPER ON IMPROVING RICE PRODUCTIVITY IN

A POLICY ISSUE PAPER ON IMPROVING RICE PRODUCTIVITY IN

2011 Accomplishment Report, ARMMIARC (ppt).

A POLICY ISSUE PAPER ON IMPROVING RICE PRODUCTIVITY IN

Scope and Severity of Problem

A. Assessment of Past Policy Performance

REPUBLIC ACT NO. 8435 also known as the AGRICULTURAL AND

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

A POLICY ISSUE PAPER ON IMPROVING RICE PRODUCTIVITY IN

MTPDP for 2010-2016 Formulation Reference Documents.

A POLICY ISSUE PAPER ON IMPROVING RICE PRODUCTIVITY IN

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

REPUBLIC ACT NO. 6657 also known as the COMPREHENSIVE AGRARIAN

A POLICY ISSUE PAPER ON IMPROVING RICE PRODUCTIVITY IN

rural development and industrialization, and the establishment of owner cultivator

A POLICY ISSUE PAPER ON IMPROVING RICE PRODUCTIVITY IN

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

A POLICY ISSUE PAPER ON IMPROVING RICE PRODUCTIVITY IN

governments greater leeway in determining local needs and preferences of their

A POLICY ISSUE PAPER ON IMPROVING RICE PRODUCTIVITY IN

B. Significance of Problem Situation

Experts Review of the AFMA (2007).

A POLICY ISSUE PAPER ON IMPROVING RICE PRODUCTIVITY IN

A POLICY ISSUE PAPER ON IMPROVING RICE PRODUCTIVITY IN

C. Need for Analysis

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