silvestre t. lumarda - the working mayor of the booming municipality of inopacan
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CASE STUDY
HONORABLE SILVESTRE T. LUMARDA The Working Mayor of the Booming Municipality of Inopacan, Leyte Corpez et al
Stories of leadership often come from the efforts of a man with enough knowledge and master the field
of managing his/her people.
This is the story of Mayor SILVESTRE T. LUMARDA, Mayor of the Municipality of Inopacan, a 5th class
municipality found in the Province of Leyte. Inopacan has twenty (20) barangays with a population of 23,
604. In this story, we will learn the step-by-step struggles of one who, from the depths of his humanity,
fought against the forces of change with his will and power gained from the people that surround him.
The Mayor before Joining Politics
Silvestre “Loloy” T. Lumarda was born in Jimenez, Misamis Occidental. He was born being the youngest in
a family of seven siblings, four boys and three girls. His parents were just an ordinary citizen of their
barangay without the inclination to politics and so with his siblings. In other words, Loloy was not born a
politician.
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After graduating from the University of Technical Institute in
Cebu City as Radio Telegraphic Operator in the year 1970, Loloy
met Madam Sol Compendio in Cebu City and got married through
civil rights officiated by a judge on March 20, 1970. After their
marriage Loloy planned to land a job abroad, however, his father-
in-law “Pedring” Compendio – a retired Schools Division
Superintendent was against the plan because Loloy would be
living far from his family. His father-in-law counseled him not to
go abroad because this would be the usual cause of broken family
especially that they were still very young at that time. So Loloy
and Sol supported and raised the family the best and simplest way they could. Sol started as elementary
school teacher, then became a school head teacher, a central school principal, a district school supervisor,
and retired as schools division superintendent. Loloy also worked as a janitor, a clerk, a utility man, and a
messenger at DepEd, Office of the District Supervisor for twenty-one years. It was his first and the last job
before he entered politics.
Loloy’s mix experiences in these nature of work – being a man of many errands to accomplish and a lot of
requests to perform as a janitor, utility man, clerk, and messenger proved invaluable when he eventually
entered public service. Spending twenty-one years obeying errands, doing janitorial services, etc. made
him stronger and his attitude towards dealing with people shaped him into what he is today. His nature
of work, dealing with people from different economic and social levels together with his conventional
attitude - “pakikisama” honed him to relate his people, l isten to their stories, and understand their unique
situation. Although Loloy was not born politician he acquired important traits how to handle people or
“pakikisama” from his family who molded him as he grew. He can relate much with the poor and needy
Hon. Si lvestre T. Lumarda and his Wife
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in his community as he was born from low profile family. Even while he was still a janitor receiving a daily
wage of two hundred forty pesos he still managed to help the poor and the needy. Though he is not
polished as problem-solver or "troubleshooter" but his kindness to humanity made him famous and
outstanding local chief executive.
“Wala jud koy laing estratehiya sa pagdala sa akong katagi-lungsod kundi mao ra jud ang
PAKIKISAMA nila. Ako silang estorya-estoryahan, akong agbay-agbayan, ug hangtud nga
makahibawo kos ilang sitwasyon ug mga problema. (I have no other strategy in dealing with my
countrymen but one, and it is COMRADESHIP. I put my arms around their shoulders, talked with
them until I know their situations and problems”).
Political Career
It was during the wedding of Madam Jeanette Abrantes and Francisco “Ejun” Degorio – the couple of
political engagement (before election) when two Sangguniang Bayan (SB) members Pepe Lloren and Belo
de los Santos, both his friends encouraged him to run as SB counselor and with his willingness to help his
countrymen he immediately agreed and settled with the invitation even without the knowledge of his
wife, Sol, who during that time was in Malaysia for further studies. He ran as SB member as a substi tute
of his father-in-law who was already at the last term.
He ran from the opposition since 1992 to 2001 and managed to be included as SB member even the fact
that majority voted for the SB candidates of the administration. On the first term he ranke d fifth, on the
second term he ranked second, and on the third term, he ranked eighth. Being the third termer of the
said position, he tried to run as Vice-Mayor independently in the year 2001 as his eagerness to continue
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his service to people. Again he managed to go up to the last term. In 2010, he won the position of a town
mayor considering the fact that he was mocked by opponents as “the janitor who contested a doctor”.
On his last term, nobody ran for the opposite party. He made a history of Inopacan politicians, being three-
termer SB member, three-termer Vice-Mayor, and three-termer Mayor, and when somebody asked for
his strategy… he always answered humbly that it is through comradeship or pakikisama.
When Loloy became Vice Mayor, most of the basic necessities were not available to the people of
Inopacan. Potable water was difficult to access in many parts of the municipality. Accessibility of many
barangays was cut off due to lack of passable roads, thus reducing the people’s ability to bring farm goods
to the market while the town reclamation area was left unfinished.
Loloy saw the need to devote his time and energy as Vice Mayor to putting up the needed physical
infrastructure to deliver basic necessities to the people, a priority that he continued to focus on when he
became Mayor in 2010. However, being the leader of a 5th class municipality, Loloy had one basic
problem: the municipal government did not have enough fund. Total tax revenue per year was just about
P5 Million before his management and now year 2017 the total income of the town reaches to more than
P9 Million per year. The money it received from the National Government through the Internal Revenue
Allotment was distributed to Salary 70%, Development Plan Project 20%, GAD 5%, and DRRM 5%. Given
the needs of the municipality, such funds were clearly not enough.
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Major Issues and Problems
Very impossible for a leader to come up drastic change with the lack of re sources. One of the major
problems of the municipality of Inopacan is the lack of a source of funds. He knew some solutions of the
problems but to resolve such issues would need a huge amount of money. So, slowly he started at the
very level of the people's source of income. When people already reached the stability of their income,
they could afford to educate and feed their families. People of Inopacan in the remote and mountainous
barangays previously live in
abundance of abaca where
fibers are exported to different
parts of the world. The crisis
started when plantations of
abaca were attacked by virus
locally known as “ogpong” and
eventually made this industry
down. So, to resolve such problem, the mayor with the help of the agriculturist, extension workers, etc.
of Visayas State University (VSU) conducted a seminar to all residents of the mountainous barangay with
ruin industry of abaca to shift from abaca to vegetable farming. Inopacan is one of the two municipalities
in the Philippines as the pilot project of a foreign funded project SEARCA lead by the VSU presid ent Dr.
Jose Bacusmo. This was all about reforestation and vegetable gardening, bananas, and root crops
production like “estaring”, a common name for a specie of gabi which made the town a supplier of the
abovementioned products to the neighboring towns like Hindang, Hilongos, Baybay, and even across
Cebu. SEARCA project provided free seeds, seedlings, free seminars, and technical assistance to farmers
Vegetable Plantation of the Residents of Cabulisan, Inopacan, Leyte
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promising them to enjoy the benefit of having a daily income of vegetable compared to that of abacca in
which they can only harvest abacca once a year.
The mayor established a “bagsakan or tabo-an”, a place whereby all people meet to buy and sell any goods
especially the products of the vegetable plantation of the people of Inopacan. It started with trainings and
seminars for the farmers, then construction of farm to market roads to provide accessibility of the delivery
of produce. With these, the people of Inopacan started to provide daily support to their families, since
the people at the mountainous barangays had already their daily provision for their family.
Accomplishments
One of his most visible accomplishments is the transformation of the Inopacan town hall into a splendid,
colorful, with well-lit plaza where all the community’s activities are conducted. It was started by the
previous mayor with
skeleton of
framework only, and
it was finished during
his reign with the
budget of 31 million.
Inopacan town hall’s
blessing was on
December 6, 2012 wherein all the people of Inopacan were invited to celebrate since it was also the date
of Inopacan Founding Anniversary.
Inopacan Town Hall
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The blessing marked his first remarkable accomplishment during his first term. In front of the New
Inopacan Town Hall is the newly renovated and newly landscaped Rizal Park. Behind the New Town Hall
is the two hectare reclamation area where Inopacan View Walk is located. It is his another project that
garnered praises and admirations to most of his constituents.
Loloy also organized the vendors in the municipality like for example the fried chicken stands are located
in one place. In this strategy, all vendors can offer the same prices. In like manner, the “bagsakan” or
“tabo-an” is located in one portion of the 2-hectare
reclamation area of the town. It is the project of the
previous mayor, but finished and utilized as such by
Mayor Silvestre T. Lumarda. All produce of the
municipality from vegetables, root crops, bananas, as
well as fishes and sea foods from the three islands of
Inopacan and one island of Hindang deliver their
goods in the tabo-an of Inopacan. Another products from the islands is “romblon” – locally known as
“lilas” a kind of palm used for mat weaving, sea foods (shells, salted and dried fishes, clams, squid,
octopus, etc.) are similarly delivered to tabo-an also.
The same is true to people in the mountainous
barangays. They also deliver their goods or products
to the “bagsakan” or tabo-an. Such goods are root
crops (sweet potato – locally known as camote, taro
like gabi and staring, gingers, cassava, etc.), bananas
of different species (saba, latundan, stanfilco, etc.),
and vegetables (pechay, cabbage, Chinese pechay,
carrot, ampalaya, eggplant, tomato, squash, water melon, sayote, pepper, onions, spring onion, string
Products from the four Islands
Vegetables Products from Cabul isan, Inopacan, Leyte
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beans, baguio beans, mungbean, etc., Fruits like avocado, caimito, etc.). The products from the coastal
barangays are eggs, chicken, pork, beef, etcetera. Such products are displayed at the tabo-an as the
market place whereby people from other towns buy and sell their goods. With this, the town earned
income from the taxes of businesses the constituents engaged in.
The mayor initiated the advocacy to all his
constituents regarding the said ventures till it
reaches to nearby towns. Establishment of floating
restaurants like Lil Italy, Kan-anan, and Boardwalk
which are located in the said reclamation area. These
establishments attracted people from nearby towns
due to the newly constructed View Walk like Manila
Bay Walk, people come here to
hang around, breathe the fresh
air and watch the lovely sunset
feeling safe with the friendly
people around. People love to
watch the fascinating view
along the horizon here the four
scenic beauty of the cuatro islas
are.
Floating Restaurant
Inopacan View Walk located at Inopacan Reclamation Area
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This View Walk serve as the waiting place for the local and foreign tourists in going to the cuatro islas. This
project has a total budget of 3.76 million in which half million came from the provincial budget through
Governor Jericho L. Petilla, the governor of Leyte; three millions came from the local fund, and 260
thousands came from private donations. Inopacan Bay Walk is officially known as Inopacan View Walk,
since Inopacan is not a bay, however people of the locality call it Inopacan Bay Walk as they patterned it
to Manila Bay, so now it is popularly known as “Inopacan Bay Walk”.
He also organized the terminals of multicabs, tricycles, and “habal-habal”. Multicabs and tricycles are
means of transportations along the highways and along the accessible roads, while “habal -habal”- the
two-wheeled motorcycle with extension seats are the means of transportation to people from the
mountainous part of the municipality. People from the mountains make use of this means of
transportation in delivering their products from farm to market.
Another project of the mayor during his first and second terms were the following”: repaired the dike
along the baywalk which is 4.9 million, concreting of the municipal streets, Rizal Park renovation,
Construction of Drainage Canal, Farm to market roads (Cabulisan to Marao) which is 13 kilometer,
(Esperanza to Conalum) which is used to connect people from their farm to the highway, bridge
connecting Barangay Marao and Can-angay, Box Culvert of barangay Marao, Concrete road of Marao
connecting Taotaon as another farm to market road since it will connect to the highway along Taotaon.
The mayor did not only focus on infrastructure but also the health of his constituents. He initiated the
renovation of the Health Center and constructed a public Comfort Rooms, provided Core shelter to 310
families, four units dump trucks for Disaster Risk Reduction Management (DRRM), five speed boats, and
the 2-million public cemetery of the municipality. He also assisted barangay initiated project like the
covered court of barangay Tahud, Can-angay, Esperanza, Guinsangaan, and Hinabay.
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He also created a livelihood project for the people in the islands by developing them into a tourist
destination. People in the islands had come up with a livelihood and income generating ventures by way
of passenger boat-making as well as designing and
creating souvenir items for the tourists in addition
to fishing and mat weaving.
Eco-tourism Project
Inopacan has one barangay island name Apid which
comprises the two small islets the island of Digyo
and Mahaba. These three islands possess long
sandbar and very fine white sand with the crystal-
clear blue seawaters. In addition, beautiful corals
and different colorful fishes under the sea can be
explored while snorkeling. The local government unit develop the three islands and promoted it through
social media until KMJS (Kapuso Mo Jessica Soho)
program of GMA network channel seven featured the
Cuatro Islas counting the other island of Hindang - the
Himokilan. This added popularity of the town to all
tourists throughout the world. The island of Digyo – the
smallest among the three is unoccupied by human
inhabitants. Although, Digyo is owned by a private
individual, it is developed and improved by the LGU. So,
the LGU invested for the development of this tourist
The Cuatro Islas of Inopacan and Hindang, Leyte
Sandbar of Digyo Island
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destination. Today, the island had already an electricity provided by a solar source, cottages, and toilets.
Moreover, the development of the Cuatro Islas greatly improved the livelihood of Inopacnons. Business
oriented constituents invested for passenger boats creating job opportunities to some Inopacnons.
Problems
His first problem is the source of funds to realize his plans. Being a visionary leader, Mayor Loloy had many
plans for improving the municipality. On his first term his main problem was the source of funds. He had
hard time convincing the congressman and the governor to help the municipality financially. As time went
by, he showed his best and gained the trust and confidence of the political personalities and made his
vision realized.
Now, he is continuing his struggles and happy to notify the public that the municipality has the ongoing
projects such as the three-story evacuation center worth five million, converting the old municipal hall as
lodging house for tourists worth 4.5 million, water system improvement worth twenty-eight million,
concreting the road of remote and mountainous barangays of De los Santos and Caminto worth 1.7
million, and concreting the barangay road of sitio Bijaong of Barangay Conalum worth 1.7 million.
He also publicized the incoming project of the municipality which funds are already downloaded. These
are the tourism building worth 5 million from Governor Petilla, Concreting of barangay road of Linao which
is worth 11 million, dike construction of barangay Can-angay river worth 3.7 million, levelling of the other
side of the market worth 3.5 million, and concreting of the barangay roads of Taotaon to Macagoco worth
49 million. This ongoing projects and incoming projects made him realized that source of funds is not
anymore a problem.
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Issues
Common knowledge to every Filipino, the rampant crimes of the country is mainly due to drugs. Drug is
the country’s menace. Drug dependents, drug users, drug addiction are few among drug-related issues.
Nowadays, drug problem in town has died down and became silent. When asked how he did it, he simply
answered that he approached each one and have a heart to heart talk, giving them pieces of advice like a
father or a family friend. One hundred sixty-seven drug users had approached the police station and three
drug pushers were held captive and put to jail. The imprisonment of the drug dealers made the town at
peace.
The Greatest Challenge
While it is true that at the start of his term, Mayor Loloy
recognized that the greater need of the people was the
provision of basic services and infrastructure, it is also
true that when he started as mayor, he thought that this
was the main, if not the only, responsibility of a local chief
executive. His greatest challenge is his fervor ideals of
providing a visible project which will mark the change of
the town from fifth class to third class municipality. He
managed to unite the SB members and even the unity of
all barangay captains, even the captains of the opposing
party. Here we see the key leadership approach shifting from transformational to instrumental. This is
Hon. Silvestre T. Lumarda The Municipal Mayor of Inopacan
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because of his ability to listen and debate. He does not merely listen and simply deliver ideas, but he is
always ready to engage in debate around ideas and open to listen to every suggestion.
Overcoming Problems and Issues
Mayor Loloy, when asked how he overcame all problems and issues, how he had surmounted it, he simply
reply that all because his service is not just a calling from his constituents but also a calling from God. He
also added that his decision of doing such is not coming from his own but from God. He believed that he
is a candidate chosen by the people and a vocation which he believes is from the one supreme who made
all things possible.
Learnings and Insights
He is a hands-on mayor…
As early as six in the morning everybody can see him roaming around the barangays of the municipality
even in the far-flung barangays where projects are on-going. He humbly travel using his motorcycle trying
to monitor projects. He used his motorcycle in doing this because he wanted that anybody can see and
call him anytime especially if there are problems and issues in the location he is visiting. He initiated the
segregation of garbage. Many people witness his initiative in the cleaning of the Bay Walk early in the
morning and late in the afternoon, seeing him sweep the ground himself. He and the Inopacnons are very
proud of the achievements of Inopacan under his reign being awarded as “One of the Cleanest Town in
the province of Leyte”. With his eco-friendly advocacy, he implemented the MRF (Material Recovery
Facility) and the Solid Waste Management all throughout the twenty barangays, making it a contest. He
gave award to the most outstanding implementer. The municipality of Inopacan enacted Ordinance No.
00-02, which promotes segregation and cleanliness in the entire municipal jurisdiction of Inopacan to
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ensure public health. The said ordinance is very essential to the Solid Waste Management Drive,
Cleanliness and Health Protection Program and thus should be strictly implemented all throughout the 20
barangays of Inopacan. In line with this municipal ordinance, all barangays created a resolution approving
the adoption of the municipal ordinance 00-02 to ensure and maintain a safe, healthy and clean
environment. This strategy reap a good result making Inopacan the Cleanest Municipality in the whole
Leyte.
He is such a diligent mayor who is very much willing to serve. His eagerness to serve the Inopacnons made
himself a man of virtue. He possesses the kind of leadership which can be used as best example. He
encourage others to join and expand the culture of service throughout his municipality. He has the ability
to ignite the glowing spark of every public servant to help his advocacy even to the lowest level – to the
level of every household. He inspire his people. He is an epitome of outstanding servant – the real essence
of politics.
He managed to change the outlook of his constituents which brought about by his inspiration. Though this
entails thoughtful planning and sensitive implementation, and above all, consultation with, and
involvement of, the people affected by the changes, still the desire to evolve and his desire to be the
instrument of change. Change was achieved, Mayor Lumarda considered the fact that people resist at first
if you force them to change and normally problems arise. He imposed realistic, achievable and measurable
objectives upon his campaign. These aspects were very evident in the strategy of the working mayor. He
successfully convinced the investors to established business in the municipality. With Mayor Loloy’s
strategy, he successfully encouraged the following investors during his time to establish business in the
municipality like the two gasoline stations (FIRM Fuel, and Petron), three restaurants (Lil Italy, Boardwalk,
and Kan-anan), two hotels (Jyn’s Hotel and Casa Kadijja), Four Pawnshops (Palawan Pawnshop, MLhuillier
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Pawnshop, Ormocana and Cebuana Lhuillier Pawnshop), OCCCI Bank, and seven bakeshops (Bread
Express, Via Mae, Em-em’s Bakeshop, Francis Bakeshop, Shiela’s Bakery, Tita’s Bakery and Dayka Bread).
Mayor Loloy humbly admitted that his intellectual capacity could not equate to most politicians who are
doctors, lawyers, etc. but he knew how to use his humility in delegation. He knew that if he can use it in
the right way, then it can be used to develop his people and the community. He knew that delegation is
not just a management technique for freeing up a mayor’s functions but it is rather a strategy of
empowering his people to come up of the best strategy align to the common goal. There is a right or
proper way to do it. These delegation tips and techniques are useful for him and for anyone seeking or
being delegated with responsibilities. Delegation paired with close monitoring and supervision made his
management efficient and effective. Mayor Loloy made used of his very effective skills in leadership.
Generally, Mayor Loloy is a savvy leader whose success is directly tied to his ability to focus on the interest
of his people. He is a strong and effective leader who stresses fundamentals of management like
discipline, accountability, strategic alignment, managing values and empowering employees. Even though
mayor Loloy did not pursue doctorate degree in public administration, he has mastered the six basic
functions of management: leading, planning, organizing, staffing, controlling and communicating. When
Mayor Loloy was asked how did he do it, he simply answered that his clear and effective communication
which he believed as the most important key to great leadership.
Overall, things are looking up, for Inopacan, and for Mayor Silvestre T. Lumarda. He is a focused and hands-
on mayor. He has a fuller understanding of which directions to choose on the wider sense he knew that
being in focused can improve his ability to devise strategy, innovate, and manage the municipality. His
ability, was paired with his system thinking where he looked at the whole municipality. Focusing on the
future with his capacity to imagine and articulate exciting future possibilities perhaps his one of the most
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important virtue being a leader, next to integrity and resourcefulness. Yes, honesty and integrity was
treated by the mayor and held in high regards being absolutely essential for success in all the areas of life
including the organization he leads. Having honesty and integrity not only creates value in every
communication, but it also leads to build the foundation of trust and confidence. For him, honesty does
not just imply refusal to lie, but it does to live life with fairness and straightforwardness. He also believes
that integrity is also an important virtue of a leader which implies the quality of possessing and steadfastly
adhering to high moral principles. So, with the full support of his family, especially his wife and his children,
the unity of the SB members and all the barangay captains, the full support of his friends and all
constituents of Inopacan made him transform the town into where it is today...
Case Study:
THE WORKING MAYOR OF THE BOOMING INOPACAN, LEYTE (Corpez, Perla P.; Llano, Lorna P.; and Batayola, Milagros B.)
The case assigned for our analysis was about the leadership story of Mayor SILVESTRE T. LUMARDA, Mayor
of the Municipality of Inopacan, a fifth-class municipality in the Province of Leyte in Region VIII.
Internal Factor Evaluation
In analyzing the leadership style of Mayor SILVESTRE T. LUMARDA, we come across several significant
strengths and weaknesses inherent in the individual (as case-study subject).
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Strengths:
Experience / Family Background
Undoubtedly, Mayor Lumarda’s performance as local executive of the Municipality of Inopacan was
greatly affected by his family’s cultural and philosophical background. Born into an ordinary but socially-
oriented clan, Lumarda was nurtured with his father on how to mingle with people even without an idea
of how to run a town politically but because of his incessant desire to serve his fellowmen, he manage to
go at the topmost kind of service which is beyond the expectations of his opponents.
His parental guidance and his environmental background made him comfortable wi th people, honed his
interpersonal skills, and perhaps even made him generally likable. These has proven helpful in his political
career. Mayor Lumarda also had experience as messenger, janitor, clerk, etc. in the District Office of the
Department of Education for 21 years – this developed his skills in general administrative tasks, people
management, and basic human relations. His work experience strengthened his personal will and
character.
Personality
Mayor Lumarda’s orientation toward people was clearly among his major strengths. Through his
personality, Lumarda was able to talk immediately to his constituents – knowing at once what problems
they had that affected their daily affairs.
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DM 613 Networking Leadership Strategies Page 18
Weaknesses
Mayor Lumarda is family and value oriented whereby he knew that he might cause pain and shame to his
family in case he fails the constituents through infrastructure and the delivery of basic services like
electricity and water. He has a lot of envisioned projects and being worried of the source of funding. At
first he feels like he was alone for his advocacy of transforming the town, but as the case showed, Mayor
Lumarda failed to see the importance of unity and camaraderie. He did not anticipate that if the leader
touches the heart of the people, they will unite. When the constituents unite the leader at the top may
abide. So in the case of Mayor Lumarda, as the congressman and governor learned the strong support of
Inopacnons, they immediately showed their support also to the mayor by providing funds to the
envisioned projects....