Fifth International Conference on Science and

Mathematics Education
CoSMEd 2013 Penang, Malaysia
11 – 14 November 2013

FOSTERING ENVIRONMENTALISM IN A POST-NORMAL SCIENCE

CONTEXT

*Eddie FETALVERO Sherryll FETALVERO

egf94@yahoo.com srmf76@yahoo.com
College of Education College of Business and Accountancy

Arnulfo DE LUNA
afdeluna@yahoo.com
University President
Romblon State University, Odiongan, Romblon, Philippines

Abstract
This paper documents the role played by Post-Normal Science (PNS) in
addressing the polarizing issue of metallic mining in a Philippine province
alongside the University’s thrust of mainstreaming climate change adaptation
and disaster risk reduction management to the grassroots. PNS is an
emerging problem-solving framework focusing on aspects of uncertainty,
value loading and plurality of legitimate perspectives. It is employed in
conditions when risks cannot be quantified or when possible damage is
irreversible. The PNS tools which operate around diverse extended peer
communities served as democratizing techniques in drawing and evaluating
the legitimacy of various perspectives about the issue which resulted in the
strong opposition of the people and their leaders against mining and
eventually led to the mining company’s withdrawal of applications. The case
is a validation of PNS as a workable framework in fostering environmentalism
and in addressing socio-scientific issues that are high-stake and high-risk in
nature.

Keywords: environmentalism, post-normal science, climate change adaptation,

disaster risk management, extended peer communities, metallic mining

Introduction
Environment-related policies rely heavily on the authority of science. But in the
recent years, the method of science proved insufficient to manage the risks posed
partly by its own making such as the issues on climate change, global warming,
environmental degradation, and other concerns that compromised social welfare
and environmental health.

When facts given by science are diverging and inherently uncertain and the
decision-making is urgent, crucial and includes polarized interests, the traditional

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normal science becomes inappropriate (Saloranta, 2001). In response to this

dilemma, Funtowicz and Ravetz (1992, 1993) introduced a new approach they called
Post-Normal Science (PNS) which is meant to be applied whenever high stakes, risks
and/or high uncertainty are involved in policy-relevant issue. PNS is necessary for
the better quality of policy decisions (Ravetz and Funtowicz, 1994).

PNS focuses on the quality of science instead of truth establishment alone. It creates
extended peer communities when the authorities cannot see a way forward. These
may be in the form of citizen’s juries, focus groups, consensus conferences or anyone
of the great variety of other names (Funtowicz and Ravetz, 1992, 1993). The creation
of extended peer communities as a consensus building, bottom-up, participatory
model diffuses contested situations and rebuilds citizen trust to science and the
government (Marshall and Picou, 2008). Thus PNS must be viewed not as an attack
to normal science but rather as a complement in providing better uncertainty
management tools and extended peer communities for sound decision-making
(Saloranta, 2001).

PNS has been found effective in the generation of sound policy decisions on global
climate change (Saloranta, 2001), ecological economics (Funtowicz and Ravetz, 1994),
risk management and governance (Marchi and Ravetz, 1999) and forest management
(Swedeen, 2006).

In 2011, the Philippine province of Romblon confronted the issue as to whether or

not metallic mining activities be allowed in the islands. This polarized the people
and challenged the leadership of Romblon State University (RSU) which is at the
forefront of raising public awareness on climate change and of advocating
sustainable adaptive practices in the management of agriculture, environment and
natural resources to take action. The University positioned itself consistent with its
priorities and fostered environmentalism by educating and mobilizing the people to
raise their voice on the controversial issue. This paper documents how
environmentalism can be fostered in addressing a socio-scientific issue in a post-
normal science context.

Romblon’s Brief Ecological Profile

How much is to be sacrificed in favour of mining in the province of Romblon?
Galicha (2011) in his article Why mining should be opposed in the province of Romblon?
described the rich ecological profile of the Romblon group of islands. It says that
Sibuyan island, nicknamed Galapagos of Asia, is recognized as a centre of
endemism, critical plant site and a biodiversity hotspot. It is here where the world’s
densest forest is located with the National Museum identifying in a hectare 1,551
trees comprising 123 species, of which 54 were endemic. There are also species of
birds, fruit bats, mammals, reptiles, and rodents of which some are endemic. Mt.
Guiting-guiting in Sibuyan was declared as a Natural Park. The island was also
declared as a mangrove forest swamp reserve and important bird and conservation
priority areas.

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Balogo Watershed in the municipalities of Calatrava, San Andres and San Agustin in
the island of Tablas were also proclaimed as important and conservation priority
areas and watershed forest reserves. Tablas Island is also considered as a
conservation priority area for amphibians, reptiles, arthropods and Tablas Strait as
extremely high priority marine conservation area included in the Mindoro – Calavite
Tablas Triangle. The seas surrounding Sibuyan and Romblon Islands have been
considered as priority conservation area for cetaceans.

Romblon Island on the other hand has been considered as Key Biodiversity Area
with a proclaimed nesting site of the critically endangered hawksbill turtle.
Additionally, conservation of marine biodiversity of Romblon Passage by NGOs are
being implemented in order to address the poor ecosystems health of an important
corridor for migratory species including large population of economically important
marine species as yellow fin, skipjack and blue-eye tuna and also the habitat of such
threatened and endangered species as sea turtles, whale sharks, dolphins, stingray
and giant clams.

The Socio-Scientific Issue

The project Mainstreaming Climate Change Adaptation and Disaster Risk Reduction
Management is a half-million peso grant (US$12,500.00) grant from the Local
Government Academy (LGA) of the Philippines won by Romblon State University
(RSU) in 2009. It is a two-day seminar-workshop designed to be conducted in all
towns of the province that aims to capacitate the barangay (village) local government
units (LGU) in addressing the challenges of environmental governance. It has
become instrumental in bringing the expertise of the University to the communities,
building partnership with them and sharing resources among partner institutions
and agencies (Mani, et al., 2011). Through this partnership, resources have surged
eight folds with the LGUs shouldering about 63% of the total expenditures. A total of
2,905 officials were reached representing 119 barangays from all of the 17 towns in
the province. The impacts of the project were monitored through site visits and
dialogues with the local officials. Field accounts were used as inputs in determining
the readiness of the community for spin-up projects like the Bitaog (Calophyllum
inophyllum) plantation in the towns of Looc and San Andres, reforestation program
in CALSANAG watershed forest reserve, organic vegetable farming, solid waste
management, propagation of high biomass species and agricultural wastes
collection.

The project was going smoothly until mining applications approximated to about
48,000 hectares in the islands of Tablas, Romblon and Sibuyan reached public
attention and concern at the onset of 2011. Coincidentally, reports of mercury
contamination in the nearby island of Sibuyan diffused in the media and became a
growing concern. In a study conducted by Ban Toxics (2011), mercury levels on the
air reached above threshold in the mining sites and began contaminating the nearby
villages (Table 1).

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Table 1
Mercury levels in Sibuyan (Ban Toxics, 2011)
Location *Hg Level in Air (µg/m3)
Ambient Air/Baseline – Town 45
Dulangan River (Baseline) 50
Mining Area >30,000
Processing Plant 35
* Home evacuation level is 10,000 µg/m (USDHHS – Agency for Toxic Substance
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and Disease Registry)

The National Poison Management and Control Centre of UP-PGH College of

Medicine released preliminary findings of their study among 209 subjects about
mercury contamination and exposure in the town of Magdiwang in the island of
Sibuyan (Fetalvero, 2011). About 95% of the respondents were found to have
mercury levels in their blood, with nine children and 29 adults exceeding the
tolerance level. About 17% had levels of mercury in their hair that were above
normal. Some areas were found to have higher than normal mercury levels in the
water while some rivers were contaminated with mercury beyond tolerable amount.
The Centre described mercury exposure and absorption by humans in the area as
current and widespread and recommended an environmental clean-up.

While mining can stir up socio-economic progress, large-scale extraction of minerals

necessarily results in ‘depletion of non-renewable resources. Mining may also cause
pollution, climate change, loss of cropland, rangeland, forest cover and least
potentially extinction of animal or plant species (Lamchek, 2009). The map prepared
by the Mines and Geosciences Bureau (MGB) for Romblon shows the vulnerability of
the province to a number of geo-hazards. Nevertheless, the political and economic
system continues to place higher value on economic growth than the health of the
environment and its people (Ravetz, 2004).

The divisive nature of metallic mining applications and the alarming increase of
mercury levels in the air in some parts of the island was a test to the determination of
the University in pushing the project. This resulted in a series of brainstorming
sessions among the implementers giving rise to a strategic approach that brought the
mining issue in public consciousness and encouraged social participation so that
policy makers could make informed decisions. Literatures reported that this kind of
approach in problem-solving is called Post-Normal Science (Funtowicz and Ravetz,
1992, 1993).

Methodology
Post-Normal Science
The problem was approached using the Post-Normal Science framework introduced
by Funtowicz and Ravetz (1992, 1993). According to them, if the decision stakes are
high and reflect conflicting purposes between stakeholders and there are high
uncertainties in the systems and ethics is of serious concern, the problem should be
solved by means of PNS.

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Figure 1. Three problem-solving strategies (Funtowics and Ravetz, 1992)

The PNS framework is shown in Figure 1. The horizontal axis moves outward, from
low to high systems uncertainty with three levels: (1) problems can be solved at the
“technical” level, when uncertainty is managed via the standard procedures of
applied science; (2) when problems are more complex and characterized by
moderate levels of systems uncertainty, the skills and personal judgments of
professional consultants are required to solve the methodological problems of
uncertainty; and (3) when the complexity of problems force the scientist to question
the uncertainty of uncertainty and the knowability and controllability of risk, it must
be solved through post-normal science (Funtowics and Ravetz 1992).

The vertical axis in on the other hand moves upward, from low to high decision
stakes. Decision stakes are the costs and benefits of various policy decisions for all
parties that are impacted by the issue at hand. Applied science is an adequate
strategy when systems uncertainty and decision stakes are low. When systems
uncertainty and decision stakes are moderate, professional consultancy is necessary
and may supplement applied science. Taken together, applied science and
professional consultancy form what is commonly known as traditional or normal
science. Finally, the strategy of PNS becomes critical when systems uncertainty and
decision stakes are high (Marshall and Picou, 2008).

In the PNS framework, the plurality of legitimate perspectives in the issue is

admitted and in a so-called ‘Extended Peer Community (EPC),’ the various
stakeholders with various perspectives on the issue are brought into the dialogue.
Both lay-people and scientists are involved in the post-normal issues and in their
consequences. The EPC can even introduce ‘extended facts’ like products of
investigative journalism or personal or anecdotal experiences. By tolerating diversity
and by enhancing mutual understanding and trust in EPC, more efficient decision
making is expected (Saloranta, 2001). A schematic diagram of how PNS context

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worked in resolving the mining issue that ran counter with the priorities of the
University is shown in Figure 2.

Figure 2. PNS as an approach in managing high-stake high risk systems

The clash between priorities of the University and the proposed mining activity in
the province sanctioned by the Philippine Mining Act of 1995 (RA 7942) resulted in
the plurality of legitimate perspectives. Some favoured the entry of mining
companies as it would stir economic progress, others strongly opposed it citing
ecological economic reasons like the worth of biodiversity and the irreversible
damage it can cause the environment. There were groups who questioned its ethics
and morality but many were passive particularly the elected officials who had a
major take to approve or veto mining.

According to Lamchek (2009), the current provision in the Philippines on the

consultation and prior approval requirements needed by the mining companies has
been simplified. In his book Asserting Autonomy: LGU’s Right to Veto Mining,
Lamchek (2009) explained that if applicant mining companies submit copies of their
Exploration and Environmental Work Programs and these copies are stamped
‘received’ by the Secretary of the Sanggunian (Council), then that act alone
constitutes ‘consultation’ with the Sanggunian. Moreover, if applicant mining
companies make a presentation of the project, no matter how vaguely worded, like a
PowerPoint presentation to the Governor or Vice Governor, or Mayor, or Vice
Mayor, or the Secretary of Sanggunian, and any of these officials issue a Certification
that the presentation was made to them, then this act alone constitutes ‘consultation’
with the Sanggunian. This concept of consultation is against the very meaning of the
word and one of the legitimate issues addressed. But these are what the mining
companies need to secure mining permit.

The Extended Peer Communities

In order for the Sanggunians to come up with the best informed decision, the
University has become active in organizing extended peer communities which

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resulted in the rise of environmentalism, an environmental conservation and

protection movement, anchored on the following discursive frames (Brulle, 2000):
 Natural resources should be technically managed from a utilitarian perspective
to realize the greatest good for the greatest number of people over the longest
period of time;
 Nature is an important component in supporting both the physical and spiritual
life of humans. Hence the continued existence of wilderness and wildlife,
undisturbed by human action is necessary; and
 Nature is God's creation, and humanity has a moral obligation to keep and tend
the Creation. Hence, natural and unpolluted ecosystems and biodiversity needs
to be preserved.

Organization of Citizens’ Group. Citizens’ group like REFAM or the Romblon

Ecumenical Forum Against Mining and ASAM or Alliance of Students Against
Mining were formed. REFAM is composed of representatives from different
religious sectors that foster morality, sanctity of creation and precautionary principle
while ASAM, the working arm of REFAM is the one taking charge of educating the
people about mining. ASAM is mainly composed of student leaders who have their
unique perspective on the issue as a result of a survey conducted. They also acted as
consultative bodies for the Sanggunians. Likewise, REFAM and ASAM also served
as access centres to other peer communities like Alyansa Tigil Mina (Alliance Against
Mining) and ABS-CBN Bantay Kalikasan (Nature Watch). Through REFAM, some
religious groups were mobilized to integrate mining issues in their church sermons
and homilies.

Barangay Assemblies and Focus Groups. Barangay assembly also became an extended
peer community that enabled the people to look at the case from both the anti-
mining and pro-mining groups, particularly in those communities with application.
In every climate change seminar, a group was formed to address focus questions and
concerns about mining. These groups rallied for asserting the autonomy and rights
of the local governments to veto mining.

Indigenous People. The members of the indigenous people also formed a part of the
extended peer communities. Their culture, anecdotal accounts and concerns about
the issue were raised and factored into the process of making critical decision on the
issue at hand.

SK, Women and Senior Citizen’s Groups. Even the sectoral groups like the Sangguniang
Kabataan, Women’s Group and Senior Citizen’s Group freely aired their sides and
concerns on the issue. The battle cry was for sustainable development and
precautionary principle. The role of women was significant as most of those in
REFAM who stayed in the frontline are women. The stories of some of them were
published in a book called “Gentle Treasures”.

Social Networking Sites and Platforms. With the advances in information technology,
peer communities extended to the digital world like Facebook and on-line forums.

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Thoughts, comments, fears, perspectives and concerns about the issue were heavily
discussed enabling those abroad to be heard. Updates on the issue were also posted
in an account created for that purpose. It was used as on-line platform for free
debate. ‘Extended facts’ like identification of politicians and people negotiating with
the mining company and some important documents even leaked on-line. There
were those who pressured the elected leaders to make a stand, the consequence of
which determines their fate in the next elections. But it was observed that on-line
etiquettes were seriously violated due to the use of pseudonyms and false identities.

Post-Normal Science Tools

The following PNS tools helped the public understand the issue, the results of which
were presented to the Sanggunians.

Public Fora. There were two public fora organized to have this issue understood
better. People from all sorts were invited to attend and speak their take on the issue
in the presence of the Sanggunians on what could be one the largest Valentine
gatherings (about 10,000 people) of the people in 2011 for an environmental cause.
The issue on mining was viewed from the perspectives of politicians, priests,
legislators, businessmen, teachers, student leaders, senior citizens, women, children,
among others.

Dialogues with Mining Company, MGB, Scientists and Environmental Advocates. Some
members of the Climate Change Core Group and REFAM had a dialogue with the
Country Manager of the Mining Company. There were exchanges of opposing but
legitimate views but were done on a professional level.

The Director of Mines and Geoscience Bureau (MGB) and his team were also invited
to discuss the issue of mining in the presence of LGUs, NGOs and the Sanggunians.
The Director’s recommendation for approval is needed by the mining company. He
discussed the emerging concept of Responsible Mining, and the policies of granting
permit. In the open forum, MGB and the Mining Company’s perspectives were
presented to the stakeholders, who were mostly mayors and municipal councilors.

The perspective of a geologist was also consulted about the issue. The director of
Philippine Atmospheric, Geophysical and Astronomical Services Administration
(PAGASA) was sought both as being a part of the community to be affected and a
practicing geologist. This conversation helped established mining as a Post-Normal
science.

Other environmental advocates pushing for sustainable development over mining

were also consulted and asked to speak before the public and stakeholders which
includes a prominent social activist, an environmental journalist of national stature
and a representative from Mining Watch Canada and Alyansa Tigil Mina,
respectively. The Managing Director of ABS-CBN Foundation, the corporate social
responsibility arm of a leading TV station in the country, visited the province several
times and conducted dialogues with the leaders, and communities to be affected by

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the mining application which strengthened social participation in the issue. Her
column in the Philippine Star entitled From the Heart, became a venue of this crusade.

IEC/Film Showing. If a picture speaks a thousand words, multimedia speak a million!

The use of multi-media is one of the most convenient and easiest ways of bringing a
controversial issue in public. Video documentaries from mining communities where
ordinary people shared their views and experiences with mining were shown, thus
becoming ‘lay scientists’. Two flyers, translated in Filipino, were mass produced and
widely distributed. Tablas kong MINAmahal (My Dear Tablas) contained information
about the track record of the Mining Company seeking application in the province
while MINAmaltratong Karapatan (Maltreated Rights) presented accounts of human
rights abuses of mining companies in the Philippines.

Consultations, Resolutions and Signature Campaign. Consultative assemblies were done

in affected barangays since the issue was made public. In the assembly, the barangay
officials who were seemingly clueless of the simplified provisions in getting an
exploration permit asked what they needed to and not to do so that the mining
company could not comply the requirements.

Results and Discussion

Student Leaders and Metallic Mining Issue
A survey of 49 student leaders in the University on their opinions about metallic
mining issues (Table 2) revealed a significant deviation from the binomial population
from which they were drawn making this group a valid extended peer community to
be involved in resolving the issue of metallic mining in the province.

Table 2
Binomial test on student leaders’ opinions about metallic mining issues (p=1/2)
Observed Proportion p*
Opinions Yes No (2-tailed)
1. Metallic mining is environment 0.19 0.81 0.000
friendly.
2. There is better life in metallic mining. 0.19 0.81 0.000
3. People to be affected must be 0.62 0.38 0.135
consulted in making policy decisions
about metallic mining.
4. Metallic mining issues can divide 0.89 0.11 0.000
people.
5. Interests of mining companies are 0.90 0.10 0.000
protected by politicians.
6. Metallic mining be allowed in the 0.06 0.94 0.000
province of Romblon
* p value based on Z approximation

Included in these opinions were issues on metallic mining as environment friendly,

could offer better life, divisive, politicians as protectors of mining companies’

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interests and allowing metallic mining in the province. No difference was deduced
between the student leaders’ opinions and the theorized probability in the
population in the issue of consulting people to be affected in formulating policy
decisions about metallic mining.

Public Involvement
The hard and tangible proofs needed to get the pulse of the community were
resolutions from different agencies and groups and signatures which were needed
by ATM in lobbying the issue at Department of Environment and Natural Resources
(DENR), House of Congress and Malacañang. The people behind the RSU Climate
Change Project, REFAM and ASAM mobilized their resources and tapped the
services of churches, barangay officials, friends, relatives, students, parents, children
and networks established due to the climate change seminars in gathering signatures
and support. Signature campaigns for No to Mining in Romblon totalled to 127,853
while 125 anti-metallic mining resolutions were passed.

The use of PNS approach in dealing with the divisive mining issue in the province is
a collective action as a commitment to sustainable development defined by the
World Commission on Environment and Development (1987) as “meeting the needs
of the present generation without compromising the ability of the future generations
to meet their own.” With the exhaustion of the PNS tools and the participation and
mobilization of extended peer communities, heightened awareness on
environmental issues was observed putting pressures among the provincial leaders
to take action. Thus, the Governor signed Executive Order No. 1, imposing an
indefinite ban on metallic mining in the province while the Congressman filed
House Bill 4815 declaring Romblon a mining-free zone. This also led to the
formulation and approval of the Environmental Code of the province.

In the history of struggles against mining in the Philippines, Romblon is one of the
shortest and fastest advocacy campaigns considering that the one it went against is a
large Canadian mining company. At the close of 2011, the mining company
withdrew its applications citing the strong opposition of the local politicians as a
major reason. But the Congressman attributed this victory to the unity and strong
opposition of the people. The provincial verbalized it better:

“The power of the people and the political will of the leaders with
the help of the civil society and religious sector clearly manifest the
strong position of the province. We will continue to defend the right
of our people to a balanced and healthy ecology.”

Because of this victory, foundations and funding agencies like ABS-CBN

Foundation, AusAID, Foundation for the Philippine Environment, and other
agencies promoting environmentalism and sustainable development signified
interest to partner with Romblon State University in doing environment-related
projects and community works. ATM national coordinator gave this ringing
challenge: “If the province of Romblon can do it, the local government units and

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communities in other parts of the country resisting this destructive industry can now
stand up more proudly to assert their power to decide.”

Conclusion
The use of Post-Normal Science as an approach in confronting the metallic-mining in
the Philippine province of Romblon thereby promoting environmentalism has been
validated to be workable. The PNS tools which operate around diverse extended
peer communities served as democratizing techniques in drawing and evaluating
the legitimacy of various perspectives resulting in the strong opposition of the
people and their leaders which eventually led to the mining company’s withdrawal
of applications in the province thereby opening the doors of opportunities for more
environment-friendly projects coming in the province. With the challenges PNS
posed, it is important for the institutions at the forefront of environmental works to
walk what they talk and to be vigilant. They should help in educating and helping
people understand the different perspectives in a critical and polarizing socio-
scientific issue that will put their priorities, programs and projects at stake. PNS
approach can also be validated in other seemingly post-normal cases apart from
mining, like the introduction of new scientific technologies with high systems
uncertainty. With mining being recognized as a post-normal science, the
implementation of mining laws must be revisited within the PNS framework so that
the will of the local communities and their leaders will not be trampled upon and the
desired sustainable development will be attained.

References
Ban Toxics (2011). Mercury vapour test report: Sibuyan island, Romblon province.
Unpublished.
Brulle, R. J. (2000). Agency, democracy, and nature: The U.S. environmental movement
from a critical theory perspective. Cambridge, MA: MIT
Fetalvero, S. (2011). Mining Updates. Odiongan, Romblon: Unpublished.
Fetalvero, S. (2011). Teacher as an Anti-Mining Advocate: Unpublished.
Lamchek, J. (2009). Asserting Autonomy: LGU's Right to Veto Mining. Manila: LRC-
KsK.
Funtowicz , S. and Ravetz, J. R. (1992). Three types of risk assessment and the
emergence of Post- Normal Science. in Krimsky S, and Golding D (eds), Social
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Funtowicz, S. and Ravetz, J.R. (1994). The Worth of a Songbird: Ecological Economics
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Unpublished position paper.
Mani, M.C., Fetalvero, E.G, Fetalvero, S.M. and Sespeñe J.S. (2011). Mainstreaming
climate change adaptation and disaster risk reduction management capacity

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building through convergence web approach. A paper presented at the 21st

National Convention of the Philippine Association of Research Managers.
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normal science approach. Futures 31:743-757
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Olchondra, R. (2011, October 13). Ivanhoe drops mining exploration plans for
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http://business.inquirer.net/24567/ivanhoe-drops-mining-exploration-
plans-for-romblon
Ravetz, J. (2004). The post-normal science of precaution. Futures 36: 347-357.
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208.

Author(s):
Eddie FETALVERO, College of Education
Email: egf94@yahoo.com
Sherryll FETALVERO, College of Business and Accountancy
Email: srmf76@yahoo.com
Arnulfo DE LUNA, University President, Romblon State University, Odiongan,
Romblon, Philippines
Email: afdeluna@yahoo.com

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