Annex 1

Terms of Reference of the Evaluation Mission on the GoP-UN/Multidonor

Programme Phase 3

I. Background

In keeping with the Government’s perspective and plans on peace and development for Mindanao, the United Nations played a pivotal role in initiating the generation of development assistance to MNLF members, their families and communities in the former SZOPAD area. At present, donor governments and multilateral organizations are involved in raising new commitments to support the development assistance for Mindanao.Following the signing of the Government of the Republic of the Philippines and the Moro National Liberation Front (GRP-MNLF) Final Peace Agreement on September 1996, the United Nations in partnership with the Philippine government, undertook a multifaceted programme to assist in the peace-building efforts in Mindanao. Phases I and II of the GoP-UN/Multidonor Programme, implemented over a 40-month period from March 1997 to June 2000 contributed to the improvement of living conditions and opportunities for income generation, and assisted in enabling former MNLF members to participate more fully in the mainstream. In recognition of the need for the continuing assistance to sustain peace and development in Mindanao, Phase III of the Programme was launched in June 2001. The current Phase is considered the first of its kind in terms of initiating a joint post-conflict programme within the UN System.The Programme builds on the trust and confidence established between and amongst former combatants and their communities with institutions of government and civil society. It seeks to strengthen community-based management of productive capacities in communities that have demonstrated commitment to peace-building; expand the community scope beyond MNLF families to include Christians and Indigenous Peoples also affected by armed conflict; and reinforce the role of local government units (LGUs) as frontline institutions of governance.

II. Objectives/Purpose and Scope of the Evaluation Mission

A. Objectives

The purpose of the Mission is to evaluate the experience of the Programme, draw lessons learned, and recommend improvements on the Programme particularly on:

a. Substantive aspects of the Programme including the concept, objectives, and deliverables of each of the eight (8) components; the status of the delivery of each components; and interrelationship between and among the eight (8) components;

b. Operational aspects of the Programme including the functions, roles and responsibilities of relevant actors from management to implementation; and,

c. Mechanisms to document lessons learned.

B. Scope

The Mission will:

1. Provide an overall assessment of the results achieved by the Programme in partnership with participating donors; national, regional and local government partners; and other key stakeholders during 2001-2003 particularly on:

a. Continued relevance and responsiveness of the Programme within the context of the on-going ODA including an assessment of the programme outcomes/outputs achieved and likely to be accomplished with special attention on the support to barangay, municipal, provincial and regional development planning and investment programming activities; contribution to the achievement of national development priorities within the context of the Medium-Term Philippine Development Plan (MTPDP) relating to peace and development in Mindanao and existing government efforts on Mindanao such as the Mindanao National Initiative (Mindanao Natin) Program.1 In line, the Mission shall also assess the contribution of programme principals (Executing Agency2, NEDA, UN agencies) to support policy advice and dialogue, aid coordination, and brokerage/leverage in delivering development results;

b. Peace-building and governance. Value added of the Programme on peace-building initiatives for Mindanao;

c. UN coordination among UN agencies and with other donor agencies. Assess the effectiveness of UN’s coordination between and among UN agencies, with other donor agencies, national, regional and sub-regional government agencies/offices, local government units, and other stakeholders including ongoing government programmes and other donor-funded programmes/projects and vice-versa; as it affects the level of service delivery in terms of resources allocation, different approaches, ownership and commitment of stakeholders, changes in the GoP planning and implementation structures including Mindanao Natin, and recent growth in the development assistance for Mindanao, among others; and,

d. Operational structure and execution modalities. Assess the appropriateness and efficiency of the institutional arrangements and operational structure of the Programme.

2. Based on the analysis and key findings above, draw key lessons, and provide clear and forward-looking recommendations in order to suggest effective and realistic strategies to respond to the changing environment, and achieve intended results to strengthen the foundations of lasting peace and development in Mindanao with focus on:

1 The Mindanao Natin is the national government’s program that aims to usher the rehabilitation of Mindanao with special attention to conflict-affected and potential conflict areas. Initially covering Regions IX, X, XI, XII and ARMM, the program now covers the whole of Mindanao.

2 The Programme’s EA for Phases 1 and 2 was the SPCPD. However, a vacuum in the institutional arrangements was created due to the abolition of the SPCPD in March 2002. Thus, the Programme went into DEX modality from January 2002 to June 2003. The MEDCo concurred as EA in May 2003 and assumed the EA’s functions effective July 2003.

a. Refinement of Programme goals, outcomes and strategies including follow-through actions to effectively and strategically implement the Programme; Effective and realistic strategies and follow-through actions for the Executing and

Implementing Agencies at the management, operational, and spatial level including delivery mechanisms, coordination with local institutions, and monitoring.

Transitory institutional arrangements during the period of year 2001-2002 and provide inputs to further define an effective and strategic role for the Executing/Implementing Agencies;

Organization, recruitment, staffing pattern, terms of reference of the PCST and ACTs.

b. Strengthen government ownership, commitment, participation and sustainability of programme efforts on peace building and development in Mindanao through: Enhancing/strengthening and further define the effective and strategic role of the

Executing Agency, UN agencies, partners and implementing agencies from GoP, PCST3, and ACT4 staff; and,

Enhancing the institutional arrangements between and among UN agencies responsible for supporting the implementation of Programme components as well as further define the value added of the UN joint programme including joint initiatives.

c. Provide options and recommendations for continued response and intervention of the Programme with the EA and UN with its partners in Mindanao relative to programme formulation to include scale and design.

III. Methodology and Timeline

A. Methodology

The methodology is based on:

1. Looking at the overall achievements of the Programme in contributing to the positive change on peace and development in Mindanao, and then explaining in what manner the different development partners were involved in the achievements or non-achievement of results.

2. Taking groups of partners and projects sites, and aggregating the findings in an “additive” process that uses conventional assessment/evaluation techniques.

3 Programme Coordination and Support Team headed by a Programme Coordinator which provides support to the EA’s integrative functions and serves as the delivery mechanism for services and facilities provided to the Programme.

4 Area Coordination Team headed by an Area Coordinator which undertakes coordination work for field implementation.

In summary, the methodology process may be illustrated as follows:

Key national results, challenges, factors

Findings

Analysis (synthesis, links)

Key challengesKey issues

Case Mission Lessons learned

The main element of the Mission is the substantive analysis. To back up this analysis, the Evaluation Mission will employ a variety of methodologies including desk review, stakeholder/key informant consultation meetings, focus group interviews and selected site visits.

The Team will review national policy documents such as the MTPDP, Mindanao Natin Programme, Needs Assessment for Peace and Development in Southern Philippines, Rapid Appraisal on Relief and Rehabilitation, overall programming frameworks (i.e. Common Country Assessment-UN Development Assistance Framework, UNDP Country Cooperation Framework 1 and 2, UNDP Strategic Results Framework/Results Oriented Annual Report, UNFPA 5th Country Programme, Mid-Term Evaluation, etc.) which gives an overall picture of the basic services situation and peace and development context in Mindanao. In addition, the Team shall also refer to the regional, provincial, and municipal development plans of areas covered by the Programme, likewise, the plans prepared by the various PDCs which were expected to be integrated into the Barangay Development Plans up to the Regional Development Plans, if accomplished. The Team will also consider any policy papers, programme support documents, accomplishment reports, financial reports as well as available documentation and studies from other development partners. Statistical data will be assessed where useful.

A wide stakeholder consultation-meeting and involvement is envisaged with national government agencies, local government units, international community and beneficiary organizations. The Team will meet with key counterparts from government line agencies/offices, local government units, research institutions, NGOs and private sector representatives, peace advocates/networks, programme staff, UN Agencies, World Bank, bilateral donors, and programme clients such as Peace and Development Advocates (PDAs), Peace and Development Task Forces (PDTFs), member of the National Moro Liberation Front (MNLF), Bangsamoro Women Federation/Foundation, cooperatives/associations, and residents of organized Peace and Development Communities (PDCs).

The Team will visit field/project sites as required, as will be decided by the Team in close consultation with the Mindanao Economic Development Council (MEDCo) as the new Executing Agency of the Programme with the UN/UNDP Country Office. In addition to visits in Davao City, the Team shall meet and consult with partners, beneficiaries, stakeholders and other key informants in Regions IV-B, IX, X, XI, XII and ARMM. The field visits shall be coordinated by the respective ACTs based on prior consultation with

the Programme Coordinator and the two (2) Regional Programme Directors (RPDs)5. This is suggested based on, inter alia: (a) the strategic importance, (b) the possibility to observe a number of programme activities in the area, and (c) the selected scope areas (see above).

B. Timeline

The key milestones for the Evaluation Mission should take place over a period three (3) months: Milestones Dates Draft TOR circulated for comments to the UN Mindanao Support

Group, MEDCo, ARMM and participating donor agencies such as Embassies of Australia, Netherlands, New Zealand, and Spain

Nov-Dec 2003

Finalize Terms of Reference based on comments received 7 Nov Start of preparation: collation of relevant documents and

materials, etc. 10 Nov. -19 Dec

Invite bidders 17-21 Nov Selection and hiring of mission members and consultants

(including consultant from AUSAID)24 Nov-19 Dec

Convene meeting with the Executing Agency 16 Jan 2004 (tentatively

moved to 19 jan) Desk review and analysis of documentation, and technical

preparations21-27 Jan

Mission in Mindanao 28 Jan-19 Feb Submission of draft report by the consultants 26 Feb Circulation of draft report for feedback 1 Mar Presentation of Mission findings/ follow-up 9 Mar (Mla)

12 Mar (Davao) Submission and acceptance of final report 19 Mar

Towards the end of the Mission, the Team will discuss its preliminary findings and recommendations with the Executing Agency and participating UN and donor agencies, and present these to Programme partners and clients at a meeting with key stakeholders such as government line agencies, local government units, NGOs and academe, beneficiary organizations. The Team will use this feedback to finalize the report.

The Team Leader is responsible for submitting the final report to the Executing Agency, no later than three weeks after completion of the mission.

IV. Expected Outputs

The main expected output is the comprehensive final report on “Programme Evaluation of the GoP-UN/Multidonor Programme: Assessment of Performance and Results”, including relevant annexes with detailed data.

The final report should at the very least contain the following:

Executive Summary of Conclusions and Recommendations5 The RPDs are the heads of the PMOs in the ARMM and Non-ARMM areas and exercise programme

management oversight on behalf of their agencies, in close coordination with the PCST in terms of providing technical assistance and administrative services under the UNDP’s common services facility.

Strategic Positioning and Programme Relevance Major Findings on Programme Performance (achievements and constraints), by

component and by area Lessons Learned and good practices, by component and by area Findings and Recommendations/ Follow-up actions Annexes (TOR, abbreviations, persons met, schedule of meetings/consultations

documentation review, statistics/regional development indicators etc., details on the programme, overview of development assistance provided through the Programme, details on cost-effectiveness, overview of intended results for the Programme, etc.).

V. Management Arrangements and Budget

1. Management Arrangement

MEDCo as the Executing Agency will lead in managing and overseeing the Evaluation Mission and ensure coordination/liaison with concerned institutions/offices at the national and local level. The National Programme Director (NPD) will lead the process in close collaboration with the UN-RC Office and UNDP.

The Programme will meet all costs directly related to the conduct of the Mission. These will include costs related to participation of the Team, stakeholder workshops during the Mission as well as publication and distribution of the final report.

The Mission should be conducted by a team of qualified experts on programme evaluation and peace-building with combined expertise on decentralized governance and human development, public sector reform, participatory planning, programming. Ideally, one Evaluation Mission Leader/Coordinator should fully understand peace-building/governance and key challenges in Mindanao, and should be responsible for the overall quality of the Mission and for liaison with NPD and UN RC Office and UNDP for specific input on developing the approach to the Mission, and the analysis/Mission of the report. Other members of the Team should primarily ensure analysis of programme performance including effectiveness and cost-effectiveness for the Programme as a whole with particular attention on the performance of the programme components, i.e. reproductive health, community enterprise and enterpreneurship development including microfinance, sustainable livelihood, relief and rehabilitation, among others.

The preparatory work will be carried out by the Executing Agency with support from the PCST, ACTs and UN-RC Office and UNDP in order to provide a substantive background for the Team. This will include an analysis of achievements and challenges in peace and development. This work may entail providing a copy of available reports; collecting additional documentation; coordinating select consultation-meeting, interviews, and field visits; and analysis and brainstorming.

2. Estimated Budget

Item Content/strategy Cost Estimate

Professional Fee (including DSA)

Team Leader Estimate: 30 days @ Php 10,000 = Php 300,000 total Task: 2 days preliminary preparation and consultation

meeting, 21 day s for the Mindanao mission, 7 days for report writing

Three weeks travel in Mindanao: 21 days DSA @Php 3,600 (Davao City rate as base) =Php 75,600

375,600

National Consultants 3 Consultants (specializing on Reproductive Health,

Sustainable Agriculture and Community Enterprise, and Local Governance and Peace-Building) - Estimate 30 days @ Php 8,000= Php240,000 each consultant, Php 720,000 total

Tasks: one week preparation and consultation, three weeks in Mindanao mission, and one week report

Three weeks travel to Mindanao: 21 days DSA @ Php 3,600 x 3 consultants = Php 226,800

946,800

Sub-total of Professional Fees 1,020,00Sub-Total for Professional Fee including DSA Php

1,322,400Consultation meetings

Consultation meetings in Manila/Mindanao with the Executing Agency, key government counterparts from government line agencies and local government units; partner donor agencies; and UN agencies

Stakeholder meeting

Consultation-meetings with programme partners and stakeholders in Mindanao, i.e. Davao City, General Santos City, Zamboanga City, and Cotabato City

Local venue, per diem for participants, food etc. (50 persons/workshop, Php 500/pax, 2 days = Php 50,000 x 4 sites = Php200,000 total

200,000

Validation meeting in Manila and Davao City6

Presentation/validation of the Mission (post-mission) In Manila : 60 persons, Php 1,500/pax, 1 day =

Php90,000 total In Davao City : 60 persons, Php 800/pax, 1 day = Php

48,000 plus Transportation cost: Land/Air (60 persons x 1,500) = 90,000 Lodging (60 persons x 1,200 x 1 day) = Php 72,000

300,000

Sub-Total for Consultation-Meetings Php 500,00Publication Editing: Php60,000

Design: Php45,000 Printing: Php70,000 (200 copies, b/w inside, colorcover

@Php 350) VCD copy: Php17,000 (for 200 copies @ Php 85)

Php 192,000

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ANNEX A. Proposed Guidelines for the Evaluation Mission

6 9 Participation by EA, UN agencies, partner donors and Programme staff not budgeted here.

Strategic Positioning

1. Ascertain the bearing of the Programme in supporting the achievement of development goals/priorities, including relevance, linkages and complementation with the MTPDP7 and ongoing government/donor programmes/projects relating to contributing to the peace and development for Mindanao. This may include an analysis of the comparative strengths of the Programme, and experiences in responding to major peace and development challenges. This aims to ascertain the added value of the Programme to effectively support/influence national development results through, i.e. prioritisation, coordination, complementation/ collaboration/partnerships, selection of strategies and entry points.

2. Assess how the Programme has anticipated and responded to significant changes in the development context of Mindanao. The Mission may, for example, consider key events at national and political level that influence the development environment, risk management, any missed opportunities for MDP3 involvement and contribution, efforts on advocacy and policy advice, the Programme’s responsiveness vs. concentration of efforts, programme scale and approach, government ownership/commitment to the Programme, etc.

3. Mission the synergies and alignment of the Programme to support complementation efforts of government and donor partner agencies on emergency response and relief coordination, security management and facilities, improving reproductive health, local communities negotiating for an environment free from conflict, and among others. This may include looking at how the Programme has leveraged its resources with ongoing development efforts and initiatives towards results and the balance between upstream and downstream initiatives. The Mission may also take account the result of the harmonization and simplification mission. The exercise also aims to ascertain how UN/UNDP has leveraged other initiatives for results towards contributing to national and Mindanao peace and development initiatives.

4. The Mission should consider the influence of systemic issues, i.e. policy and operational/administrative constraints affecting the Programme as well as how the progress towards the achievement of development results and partnerships contributed to ensure the continued relevance and strategic positioning, e.g. evolving institutional arrangements in year 2001-2002.

Development Results

1. Provide an examination of the effectiveness and sustainability of the Programme by:

(a) Highlighting main achievements on the level of intended programme outcomes in the last two (2) years or so (some results have their origin in efforts prior to 2001) and programme principals (Executing Agency, NEDA, UN/UNDP) contribution to these in terms of key outputs;

(b) Ascertaining current progress made in achieving outcomes and programme principals (Executing Agency, NEDA, UN agencies) support to the Programme;

(c) Assess programme ownership, commitment and participation of stakeholders from government (national government agencies and local government units), beneficiary

7 Medium-Term Philippine Development Plan provides the over-all development framework for the country for 2001 to 2004.

organizations (MNLF, Bangsamoro NGOs, and POs, and target groups(indigenous peoples, Muslims, Christians women and men) in sustaining programme efforts.

The Evaluation should qualify the contribution to the achievement of the outcomes, and consider whether they were anticipated and unanticipated, and created positive and negative results/change. The Evaluation should assess how responsive the Programme has been to change in terms of addressing the fundamental obstacles of peace and development and should not be limited to responding the 1996 Peace Agreement with the MNLF. The Mission should also gauge the contribution to capacity development to the extent it is implicit in the intended results, as well as national ownership as a success factor.

2. Identify and analyze the main factors influencing results, including the range and quality of development partnerships forged and their contribution to outcomes, leverage for resources/complementation of efforts and approaches, ownership and commitment of stakeholders, provision of upstream assistance and how the positioning of the Programme/UN/UNDP influences its results and partnership strategy.

3. Assess the anticipated progress in achieving intended outcomes, with regard to the 2000-2004 MTPDP, Mindanao Natin, intended Programme goals/outcomes based on the logical framework, among others.

4. Assess the cost-effectiveness and efficiency of the Programme in achieving intended outcomes (“value for money”.)

5. Provide in-depth analysis and recommendations to the following, and identify the key challenges and strategies for future interventions in the following areas (related to synergies and alignment to national priorities):

(a) Analyze the achievements, efforts and strategies of UN coordination with other donors and GoP programme and vice-versa, and its impact at the delivery level in terms of packaging, implementation, monitoring, allocation of resources, differing approaches, ownership and commitment of stakeholders, etc., and the lessons to be drawn from the experience.

(b) Analyze the achievements, efforts and strategies of the Programme in contributing to strengthening the foundations of peace and development in Mindanao. This may include a review of programme appraisal/ monitoring/evaluation reports; work with national government agencies/ offices/institutions and local government units; advocacy and policy advice as well as effects and lessons from complementing local development projects of provincial/municipal/national governments efforts (such as Mindanao Natin) and donor partners; and the use of lessons for feedback into policy advice, management action, and programme policies and processes.

(c) Analyze the achievements, efforts and strategies within the peace-building sector. This may include the effects of confidence building and education; community response to management conflict and disasters; community effort to negotiate for an environment free from armed conflict; integration of Peace and Development Communities (PDC) plans into local development plans, budget and policies; interact and link with local government units/institutions, CSO/people’s organizations/peace networks/other donor-funded programmes within their locality and neighbouring areas; among others.

(d) Analyze the achievements, efforts and strategies in providing reproductive health information and services at the PDC level including:

(e) Capacity building of health personnel and volunteers; construction of barangay health stations; establishment of IEC/advocacy teams among women, men, and adolescents; mobilization of Muslim religious leaders for RH; and, assistance to internally displaced persons in evacuation centers.

(f) Integration of project within 5th CP of UNFPA and within programmes and priorities of the Mindanao Health Development Office (MHDO); inter-UN agency convergence initiatives (e.g., barangay training scheme cum construction of UNFPA and ILO) and strengthening LGU RH management and coordination capacities.

(g) Analyze the achievements, efforts and strategies in capacitating and providing opportunities for sustainable livelihood (farm and off-farm) including on microfinance at the PDC level.

(h) Assess the strategies on partnerships and ownership that includes management, implementation, monitoring and evaluation

(i) Analyze the roles and accountabilities and levels of involvement of UN agencies in the Programme vis-avis specific ILO strategy of directly involving Technical Experts in the Programme. Both international and locally-hired experts actively participate and assist the target groups of the Programme.

Annex 2

Component 1: Capacity Building and Empowerment through PDCs

1. Background

The objective of this component is to empower communities to promote sustainable human development by strengthening the capacities of target PDCs to collectively plan, mobilize internal and external resources, and organize community development activities in partnership with local governments. This project component addresses community-level needs, beginning with those identified in targeted PDCs through a participatory process. Institutional support mechanisms will enlist the support of local, barangay, and municipal governments in promoting PDCs. By 2003, at least 140 PDCs will have been assisted. Communities will be effectively mobilized for action and PDC priority needs will be addressed through the implementation of Community Action Plans. Strengthening the capacity of PDCs for planning and mobilization will provide the means for improving basic services delivery and carrying out livelihood projects.

This component will also strengthen the capacity of community leaders and active members of PDCs and enhance community participation in the decision-making process. Building the capacity of communities will allow the MNLF and non-MNLF members to plan and implement projects together. This will increase confidence and enhance the environment of peace and development.

The selection of PDCs will provide a venue for convergence planning by the communities, LGUs, agencies of the National Government, and SPCPD. The Peace and Development Task Forces/Committees established within the Local Development Councils at barangay and municipal levels will become the coordinating mechanism for programme/project implementation. These task forces/committees could be derived from the existing Peace and Order Councils and/or Disaster Coordinating Councils. Some specific capacity building activities include participatory appraisal and community diagnosis, and the preparation of community plans and project proposals.

The training of the community-appointed Peace and Development Advocates (PDAs) will provide community mobilizers/development workers, who can assist the implementing agencies in organizing communities to undertake various sectoral activities while promoting peace and development, in general. This component will also look at strengthening the existing community organizations through leadership training and helping the organization of community cooperatives, or community enterprises and other task-oriented or sectoral grouping (i.e., Barangay Water Supplt and Sanitation Association, Agricultural Cooperatives). Ultimately, the priority needs of PDCs will be provided through the implementation of Community Action Plans.

1.1 The Peace and Development Communities (PDCs)

The program document for Phase III provides the following description of PDCs:

Phase III will build on the trust and confidence established between and amongst former combatants, their communities and institutions of government and civil society. It will strengthen community-based management of productive capacities in communities that have demonstrated commitment to peace building. At lease 140 of these communities (PDCs) will be designated as models.

The Peace and Development Community (PDC) concept was recognized under Phase II to ensure sustainability and maximize benefits among stakeholders. The PDCs also serve to facilitate

complementation of various inputs from different programme components as well as other donor-assisted projects. A PDC is marked by the convergence of efforts in a particular area for greater impact.

A PDC is a conflict-affected community that has been marginalized but is now actively engaged in a process of mainstreaming with the help of development partners. It is in the process of strengthening the capacity of it's community organization, rebuilding livelihoods through sustainable agriculture and micro-enterprises, rebuilding community infrastructure, and forging linkages with local service providers, including local government units and NGOs, to secure improved access to basic services.

A PDC is a development-focused community and key production area, which serves as a “resource center” managed by an active cooperative or community association to ensure the equitable spread and distribution of resources among community members, as they build up over time from self-sustaining efforts and external assistance. Such resources may include: community organizations, trained development leaders, trained para-technicians, education facilities, health centers, household savings pools, enterprise centers, a pool of farm production equipment and farm animals, a cooperative production supply and marketing trading center. Ideally, it will have key basic social services such as trained health workers, a health clinic, an elementary and high school and others. As most of the conflict-affected communities are predominantly farming and fishing communities, the PDC will be the focal point for testing and demonstrating rural development technologies and approaches. The PDC may also serve as training site for commercial/industrial technologies, social interventions and business enterprise. PDCs will demonstrate a holistic community-based development approach.

A PDC may consist of a cluster of barangays, or a barangay and adjacent households marked by a convergence of peace building and development activities. The criteria for selection includes :

Conflict-affected, but in the peace phase and development ready; Marginalized and poor; Large proportion of Muslim and indigenous populations, with a significant number of former

combatants including MNLF members, who have demonstrated willingness to initiate change and drive development;

Recommended by SPCPD and LGUs.

2. Major Findings on Programme Performance

2.1 Coverage of PDCs

Out of the targeted 140 PDCs the program covers 160 PDCs or an accomplishment rate of 114%. However the interventions of the components are not evenly spread among the PDCs. Thus there are PDCs where there are three or four component interventions while there are PDCs with only one or two component interventions. One reason cited during the Focused Group Discussions (FGDs) is that the PDCs with lesser component interventions had already received assistance from either phase 1 or phase 2 of the UN MDP.

The 160 PDC are found in about 200 barangays in 100 municipalities and cities and 15 provinces. The list of PDCs and their corresponding interventions and projects are found in Annex 1.

2.2 Component Performance

2.2.1 Project Objective: To strengthen capacities of target PDCs to collectively plan, mobilize internal and external resources, and organize for community development in partnership with local governments

A. Performance Indicators:

140 PDCs are targeted by LGUs and line agencies for regular government programmes;

140 PDCs are represented in local development councils;

At least one people’s organization in each PDC is able to undertake participatory community planning, project identification and implementation;

At least one people’s organization in each PDC is able to secure access to basic services and livelihood assistance through organized action.

B. Actual Accomplishments:

Of the 160 PDCs currently covered by the program around 135 PDCs have projects while 25 PDCs do not have projects. Based however on the original target of 140 PDCs the component has achieved a ninety-six (96%) accomplishment rate in terms of facilitating the establishment of projects in the PDCs. According to the First Semester Report of 2003, Eighty-seven percent (87%) or 140 out of 160 BDCs and POs actively participated in mobilizing resources for community-based projects. In addition 115 POs and coops that had undergone training under the program, accessed and monitored various projects.

The projects accessed by the PDCs came from the following sources:

UN MDP3 Components;Mindanao Rural Development Program (MRDP);OXFAM;SZOPAD Social Fund of the World Bank;USAID-LEAP;AusAid-PASCAT;Asian Development Bank-DAR Project;Philippine Business for Social Progress (PBSP);Local Government Units;National Line Agencies.

In terms of representation in Local Development Councils, all the 140 PDCs are represented in Barangay Development Councils (BDCs). The Peace and Development Advocates (PDAs) and PO leaders in the PDCs sit in the councils.

The peoples organizations in the PDCs have participated in a process called Participatory Rural Appraisal- Barangay Development Planning (PRA-BDP) that have resulted in priority projects identified in the Barangay Development Plans (BDPs) being incorporated in LGU investment programming.

Capacity building activities have also been undertaken by the component to strengthen the capacity of POs to identify, implement, manage, and monitor projects. Some of these training programs include: Project Implementation, Monitoring, and Evaluation (PIME), Leadership Training,

Governance, Financial Management, Community Organizing-Community Development (CO-CD), Strategic Planning, Organizational Development Process, and Cooperative Development.

2.2.2 Planned Output: Institutional support mechanisms enlist support of local/barangay/municipal governments in promotion of PDCs

A. Performance Indicators:

PDC selection criteria and methodology adopted by provincial/municipal/barangay councils;

Peace and Development Task Forces or committees (local mechanisms in support of PDCs) are adopted by provinces and municipalities through Sanggunian resolutions;

Peace and Development Task Forces/committees in local governments organized and equipped with vision/mission and action plans supporting peace and development;

People’s organizations/cooperatives formed for collective development of PDC community in partnership with LGU.

B. Actual Accomplishments;

Capacity building activities were undertaken by the component to strengthen the capacity of Barangay Development Councils and the Peace and Development Task Forces to facilitate development activities at the community level. The thrust was to cause a paradigm shift from being merely barangay administrators to community development managers among the LGU officials. Thus to ensure this paradigm shift the component conducted the following training programs:

Governance with emphasis on accountability and transparency; Project Implementation, Monitoring, and Evaluation (PIME); Culture of Peace Awareness; Participatory planning; Fiscal accounting; Refresher course on local governance covering strategic planning, investment

programming and legislation; Facilitation and consensus building.

The Second Quarter Report of 2003 highlighted the following accomplishments in the different provinces:

In Maguindanao, four (4) plans of PDCs, namely Taviran, Bagoinged, Marquez, and Tambak were incorporated in the Municipal Development Plan of Datu Odin Sinsuat with corresponding budget support;

The Basilan Area Coordinating Council (BACC), with it's 35 members coming from various line agencies and departments, the military, and civil society groups committed to prepare an action plan for PDC development in the province;

The Sulu Area Coordinating Center, composed of 25 individual members coming from government line agencies, provincial local government, the military and civil society groups have adopted the PDC approach in developing war-torn areas;

In Wao, Lanao del Sur, the microfinance project provided by the programme to the Municipal Peace and Development Task Force has continued to support 12 small income-generating projects such as vegetable trading, pastry making, sari-sari stores, and beauty parlor services;

In Davao del Sur, the Peace and Development Task Force facilitated the implementation of 14 projects worth 830,000 pesos in 8 PDCs;

In South Cotabato, 8 BDCs were reactivated through constant participation in PDC consultation and planning activities;

The Third Quarter Report of 2003 highlighted the following accomplishments in the different provinces;

In Maguindanao, PDC plans of PDC Tuka and Boliok were adopted by the BDCs as BDPs through a resolution;

In Lanao del Sur, the PDC plan of Caramian was adopted as BDPs through a resolution of 5 cluster barangays and the PDC plan of Takub with peace plan is now supported by the municipal and provincial government, NGOs and other sectors through a peace covenant;

In Basilan, BDPs of PDC Bato and Babag were integrated into the MDPs of Lamitan and Sumisip;

In Sulu, the BDP of PDC Kasambuhan was adopted by the municipal government of Indanan;

In Cotabato province, 5 PDCs formulated an annual investment plan and 3 year Barangay Development Investment Plan for inclusion in the Municipal Development Plans and the Special Area for Agricultural Development (SAAD) Plan of the Provincial Government;

In Zamboanga del Sur, 9 POs and cooperatives from 9 PDCs are now represented in the BDCs;

In Zamboanga Sibugay, BDPs of 7 PDCs were integrated into the Municipal Development Investment Plan of Ipil and Payao.

2.2.3 Planned Output: Community effectively mobilized for action

A. Performance Indicators:

560 Volunteer Peace and Development Advocates in 280 PDCs organized and trained for community mobilization;

PDAs demonstrate capability to organize and mobilize communities;

PDAs have individual work plans and journals of activities;

PDAs document and exchange lessons learned;

CO-CD manuals developed and used by all PDAs;

Community cooperatives/associations are strengthened and networked;

Resolution by Provincial/Municipal council for formal recognition of PDC.

B. Actual Accomplishments:

According to the First Semester Report of 2003, efforts of 432 PDAs and 32 Volunteers on Information and Development Assistance (VIDA) continued to play a critical role. In the PDCs, the PDAs and VIDAs have performed vital tasks such as proposal preparation, resource mobilization, and trainer.

The PDAs and VIDAs themselves have been recipients of the capacity building activities of the component. Specifically they have undergone the following training programs:

Community Organizing-Community Development (CO-CD);Technical writing;Public speaking;Project development;Resource mobilization;Communication Skills;Peace organizing.

To effectively aid the training activities mentioned above the component has produced a number of manuals. These include: The Peace and Development Advocates’ Manual; A Manual on Participatory Rural Appraisal and Barangay Development Planning for Peace and Development Advocates; PDA Resource Mobilization Manual; and PDA Community Organizing Manual.

Local peace volunteers have also played an important role in facilitating community peace declarations of PDCs, especially those affected by the armed conflict of 2000. These PDCs include Mararapan, Pedlamberon, Manili, Lilongan, and Cadiis in Carmen, Cotabato; PDC Ilian in Matalam, PDC Imamaling in Magpet, PDC, and PDC Bolocaon in Sultan Gumander.

In PDCs Liliongan and Cadiis in Carmenr, the BDC with support from the PDCs and PDAs succeeded in negotiating with the municipal government and the 602nd brigade for the removal of a military detachment.

In Siocon, Zamboanga del Norte, a peace movement called “Abante Siocon” was organized to promote peace when tensions heightened between Muslims and Christians after the attck on Siocon by armed groups;

2.2.4 Planned Output: PDC priority needs addressed through implementation of Community Action Plans

A. Performance Indicators:

LGU programme plans and budgets include priority projects of PDCs;

Quality plans prepared and improved services available.

B. Actual Accomplishments:

According to the Second Quarter Report of 2003, more than 29 million pesos worth of projects were implemented by the POs and BDCs in 32 PDCs in the provinces of Saranggani, Davao del Sur, and South Cotabato. In Tawi-tawi, 4.6 million pesos worth of projects were implemented in 7 PDCs.

The same report cites the following accomplishments in different provinces:

Twenty-six (26) community-based projects were implemented in 5 PDCs in the municipalities of Hji Panglima Tahil and Patikul in Sulu;

In Maguindanao, 4 PDCs, namely Kiteb, Bago-inged, Nuran, and Malangit accessed 11 projects;

In Saranggani, 7 PDCs implemented 19 priority projects worth more than 25 million pesos based on their BDPs

3.0 Findings and Observations

3.1 On Barangay Development Planning

It is evident from the site visits and FGDs with members of the PDCs that the formulation of the Barangay Development Plan using a Participatory Rural Appraisal (PRA) approach played a key role in consolidating the community members. It became a uniting factor at the same time a forward thrust for the communities. One could see the sense of pride that they had for going through the exercise and coming out with a concrete output. For them it was a source of hope for something better in the future. In many ways it was a subtle form of bringing in the former combatants into the mainstream of society,

For many PDCs the BDP has become the basis for prioritizing projects. Almost everyone interviewed testified that the projects they were undertaking had been listed in the BDP. This is important because the process has taken away the arbitrariness of identifying projects prevalent during the early phases of the peace treaty and the UN MDP. In the past it was the state commander or even the datu who was given the privilege and responsibility of identifying projects. Thus as expected many of these earlier projects failed and did not survive either because the design was faulty or there was no community ownership of the project.

The PRA-BDP process has become an entry point for barangay and municipal involvement in the PDCs. The technology itself attracted the LGUs especially those that were not familiar with or oriented towards participatory processes. In effect the PRA-BDP did not only strengthen the capacity of the PDC to plan it also strengthened the capacity of the LGU to plan. It is highly probable that the previous practice of barangay and municipal officials would be to just make a “shopping” list of projects that are bereft of any logical basis.

The PRA-BDP is a social technology that has been successfully transferred. At the start the program recruited the services of NGOs and resource institutions and asked them to train the PDAs and other PDC and barangay council members in PRA-BDP. To date it is now the PDAs themselves who facilitate the planning process and train others on the technology.

Perhaps what is lacking in the BDPs of the PDCs is a peace plan. This feature would have made the PDC BDPs unique and would have distinguished them from any other BDP of any other barangay. Those interviewed reason that it was not consciously done at the start because their attention was fixed on complying with the normal structure of BDPs, i.e. having social, economic, infrastructure, and peace and order sections as content of the BDP. Some said they incorporated the peace plan in the peace and order section. Efforts are however underway, especially in PDCs in South Central Area to amend the BDPs and formulate and incorporate peace plans and peace projects in the BDPs. For example in a PDC in Cotabato province the community included a distinct peace plan that first identified sitios where clan war (rido) was most likely to occur and then developed a modus operandi and a mechanism for preventing ridos and resolving them should they occur.

Can the PRA-BDP process be sustained? At the moment the more important task is for the communities to follow through on their plans. While the BDPs have been reported to be adopted by the municipal government in the Municipal Development Plan there is no guarantee that these projects will have the necessary budget allocation thereby decreasing their chances of being implemented. It would have made strategic sense to pursue representation of PDCs in the Municipal Development Councils or better in the Sanggunian Bayan. A PDA sitting in these bodies would have at least increased the chances of projects being funded. Another tactic would be to develop a strong personal relationship with the Mayor so that he/she can champion the cause of the PDC. This route has been taken by most PDCs. For example the Mayor of Tupi in South Cotabato made PDC Bunao a showcase area. Aside from being personally involved in the development of the PDC he has made sure that their plans are incorporated in the 2004 and 2005 budget.

Another example of how the program mainstreamed the PRA-BDP process at the municipal/city level is the case of Koronadal City. Here the process has been so ingrained in the city planning process that they have even made it a seven-step process. The technology has been “bureaucratized” not in the negative sense of the word but adapted and harmonized to the standard planning process and procedures of the city. Thus beginning from the barangay assembly the process leads to the approval of the BDPs by the City Council and then incorporated in the Local Development and Investment Plan. In addition aside from the UN MDP PDCs, the city has declared and established it's own PDCs.

But even municipal budgets are limited and although a whole set of strategies can be devoted to making the municipal LGU an ally, in the end it is the strength of the PDC that matters. It is the strength of the institutions or the people’s organizations in the PDCs that will make a difference. It is the resolve of these communities to act and pursue proactively the implementation of their projects on their own and then through collective action claim, negotiate, and demand projects, services, and rights from any agency, whether government or non-government, that will bring these plans to fruition.

At this point, based on records, site visits, and interviews, the impression is that action by the PDCs has been limited to identifying and implementing projects most of which are start-up in nature. While the next section will give a more in-depth assessment of the quality of collective action it is perhaps fair to say that the capacity of the POs, with the exclusion of the PDAs, for strong collective action is still weak. This is probably where the logic of establishing municipal and provincial Peace and Development Task Forces (PDTFs) as a parallel strategy comes in. A mechanism has to be established so that development efforts can be funneled from above.

3.2 On the Peace and Development Task Force

Although not explicitly stated in any program document the Peace and Development Task Force (PDTF) is primarily a tool for stakeholder management. It was designed as a catch mechanism to make various institutions and sectors of society become stakeholders in the program. Thus the logic for the composition of PDTFs. They are composed of heads and representatives of government line agencies, local government units, the military, and members of civil society. They may not necessarily carry the same names. In Basilan it is called Basilan Area Coordinating Council (BACC), in Sulu it is the Sulu Area Coordinating Center, and in other areas just plain PDTFs.

Have the PDTFs been effective mechanisms for stakeholder management? It varies from province to province. It seems the most crucial component for becoming effective is ownership. And here lies a basic problem because at the outset the members of the PDTF, most especially the Provincial Governors, have never really been involved in the conceptualization and design of the UN MDP program. The program was handed to them as a package that had little room for maneuvering. A basic principle in securing effective participation is that major stakeholders have to be involved at the early stages of problem identification and program design. This explains the seeming indifference of some Governors to the program when interviewed. Instead they enthusiastically described their alternative peace program which they began and which they promised to sustain with or without outside funding.

Some provincial LGUs adjusted and adopted the program by establishing PDTFs either because they saw that tactically it could complement their own programs and thrusts even if no funds were dangled or because there was an opportunity for additional resources for projects. The former is longer lasting and perhaps sustainable while the latter is superficial and might have difficulty sustaining itself. An example of the former is Zamboanga del Sur and an example of the latter is Cotabato province.

The Zamboanga del Sur PDTF focused its work on developing the PDCs by influencing line agencies and other donors to realign their projects and programs in PDCs. Their collective effort has resulted in projects for PDCs amounting to more than 5 million pesos funded by the agency budgets of the Department of Science and Technology (DOST), Tesda, Department of Social Welfare and Development (DSWD), Department of Labor and Employment (DOLE), provincial and city LGUs, BAWASA, Growth and Equity in Mindanao (GEM) project of USAID, and some from the UN MDP. The monthly meetings, the leadership role of the Provincial Planning and Development Officer (PPDO) as representative of the Governor, and the active involvement of the PDAs have all combined as success factors to ensure continuing support to PDCs through the PDTF. The PDTF monitored not only the projects but also the levels of development of the PDCs. It is not inconceivable that the provincial government saw the value of supporting the program and hosting the PDTF because they saw how it could complement their own development activities in the province.

The case of Cotabato province is different. Here Component 3 of the UN MDP provided 10 million pesos as a block fund to the province for the purpose of relief and rehabilitation. Thus the PDTF met to spend the 10 million pesos. While the fund was appropriately and transparently spent for various projects in PDCs it is obvious that the involvement of the various provincial units was hinged on the resources appropriated to them. As expected, when the fund neared depletion, involvement by these units in the PDTF and even the role of the PDTF itself diminished. Meetings became less frequent. And while priority agriculture projects of the PDCs have been incorporated in the Special Area for Agricultural Development (SAAD) program of the provincial government there is a danger that the whole essence of having peace and development communities will get diluted in the process when it is mixed with the agenda of SAAD.

A corollary issue that arises from the PDTF experience of the program is one that questions the wisdom of creating parallel mechanisms in government bodies that are neither permanent nor ad hoc in nature. The lines dividing the functions of peace and order councils, provincial development councils, and peace and development task forces may be blurred and there may be a tendency to duplicate functions and tasks not to mention the added burden bestowed upon government functionaries who are members of all these bodies. It might be more prudent therefore to utilize and maximize the existing mandated councils or special bodies of government.

An initiative worth citing is the tapping of the Mindanao Communicators Network (MINDACOMNET) in Western Mindanao as a strategy for inter-agency involvement in PDC development. The MINDACOMNET is a creation of the Philippine Information Agency (PIA) that is composed of all the line agencies operating in the region. The MINDACOMNET has undertaken information caravans in different PDCs in Western Mindanao and this has resulted in bringing government services down to the communities to converge.

3.3 On the Peace and Development Advocate

The state of development or underdevelopment and the state of dependence or independence of the PDCs can be ascribed in great degree to the role the PDA has played in the PDC. Before explaining this fact in greater lengths it is appropriate to refer first to what the UN MDP prescribes the PDA to be.

Program documents state that the PDAs are originally MNLF men, women and youth or family members of the “Martyrs” or MNLF supporters or sympathizers coming from the Muslim, Christian, and Lumad. They once used arms and violence to forward their cause and aspirations- to fight for their independence, for Mindanao. Some are also non-combatants who are supporters or sympathizers who agree with the ideal of peace and development in Mindanao. They are now determined and committed towards achieving peace, unity, and development in their communities. The PDAs were organized to have people who would “champion” the 1996 Final Peace Agreement to the communities of both post-conflict and non-conflict areas.

Who can become a PDA? According to the criteria for selection he/she: should be community or PDC-based; should have undergone capacity building on core knowledge, skills, values and attitudes; should be community identified and endorsed; should have consciousness on his/her social responsibility; has appreciation for the 1996 Final Peace Agreement.

The roles PDAs play are described as that of being a facilitator, linker, information agent, translator, educator, mobilizer, coordinator, manager, catalyst, peace advocate, and mediator. The paradigm shifts and transformations being heralded include: “From arms to farms”, “From Commanders to Development Managers”, “From Armed Struggle to Peace Organizing”, and “From Politico-Military Strategy to Democratic Participatory Strategy”.

There is no doubt that the PDA has played a substantial and contributory role to the development of many PDCs. The issue is firstly whether such PDA-led development In the PDC can be sustainable and secondly whether the PDAs have in fact been effective in their work given their multiple tasks and functions.

On the surface the transformations and roles PDAs play are laudable and are arguably indicators reflecting the positive impact of the Peace Treaty and the UN MDP program. Former combatants and warriors taking the path to peace without necessarily laying down their arms and then working

for the development of communities is indeed a foundation of peace that can be built upon. It can even be said that the PDAs are a major strength of the program.

It is thus unfortunate if the efforts exerted by the PDAs for the program should be eroded by certain ambiguities in their role and the tasks given to them. At the minimum, given what is expected of them and considering that they have other full time jobs (such as farming for instance) the PDAs may tend to be overloaded with work that is monetarily uncompensated. This perhaps explains why there is an emerging clamor among PDAs for regular monthly stipends or allowances. At worst, if clarifications and adjustments are not made, the program will encounter confused and disillusioned PDAs who may even leave PDCs that have become too dependent on them.

What are the ambiguities in the role of the PDA? A basic principle in development work is that a community organizer cannot at the same time be a PO leader. The two positions have different job descriptions. The Community Organizer’s (CO) role is to let the other leaders shine. More importantly their job is to make sure that the community organization becomes self-reliant, vibrant, strong, and able to take collective action even without or especially without the presence of the CO. In fact the indicator of a CO’s success is if the community does not need him/her anymore because the community members can do things on their own Yet this runs counter to the other roles of PDAs as development managers, coordinator, and PO leader. The CO’s role is to decrease while the PO’s role is to increase.

In the site visits to the PDC and in the FGDs with the PDAs and local leaders there was no question about the dedication and commitment of the PDAs to their work. It was observed however that in some instances they had made decisions and undertaken tasks reserved for the PO leaders. For example in one PDC in Western Mindanao, while the PDC had generated a number of projects it was only the PDA who had direct links to the donors and government agencies. The community just waited for the result of the trips of the PDA to the city government. In other words the PDA was slowly gaining a position of power in the PDC and over the PDC. There were indications that the community and POs were becoming dependent on the PDA. Given these trends it is also understandable why some barangay officials would begin to suspect the intensions of the PDA.

There is a school of thought among implementers in the program that the PDAs and the PDA leagues should be a movement. This might be one reason for the ballooning number of PDAs. However movements are characterized by masses of people spontaneously driven by issues or causes working for concrete gains or changes. The PDAs may qualify for this but if it is to be a movement it cannot be exclusive or artificially induced. It cannot be composed of just a few a number of people who have received certain privileges otherwise the program is only creating another elite group or adding stratification in an already highly stratified setting.

Given the current trends in PDA mobilization therefore it is difficult to project whether the interventions in the PDCs will be sustainable unless a redefining of roles is done. For instance the Peace and Development Advocate can refer to everyone in the PDC or all the PO members in the PDC since technically anyone living in a PDC is a peace advocate. This move can make the PDA movement more inclusive and can elicit ownership for the movement among the masses of people living in the PDCs. But there is another important factor. These communities must be mobilizable. They must be able to rally around issues and take direct, radical, assertive, but peaceful action. They have to be able to pour out into the streets in great numbers if need be, If this happens then the PDCs can truly be a force to reckon with, one that has enough clout and countervailing power to promote and preserve peace.

The former PDA’s role can be confined to that of community organizer and his/her job is to focus on building vibrant self-reliant POs. He/she cannot be a PO leader. The former PDA’s title can then be appropriately changed to PDC organizer. The role of development manager must be relegated to the PO leaders because they carry the authority of their membership and are strictly accountable to them. It is them who should develop direct links with donors, government agencies, and other resource agencies so that relationships cultivated are institutional in nature.

3.4 On Community Action and Mobilization

The component has effectively mobilized resources for the community plans of PDCs. The UN MDP is admittedly constrained by lack of resources appropriated for concrete and tangible projects. The communities have expressed satisfaction with all the training that has been provided by the program. They now look forward to applying what they have learned and implementing their plans.

Community action in the PDCs has concentrated more on pursuing the projects they have prioritized. They have worked for the construction of schools, health centers, and water systems, and the start-up of livelihood projects and demonstration farms. These projects are beginning to address some of their basic needs.

A good example of effective community action was demonstrated by the members of PDC Bunao in Tupi, South Cotabato. Through the initial assistance provided by component 6 for their corn production the farmers belonging to the Bunao Farmers Cooperative, under the leadership of PDA Arsad Landasan, were able to generate savings after a series of harvests. The savings was then match by individual contributions and they were able to raise enough money to buy a lot in the barangay. The lot was then used for a housing project that they negotiated with Habitat for Humanities and the municipal government. Today forty houses stand and are now occupied by the landless members of the PDC who used to live in the riverbanks. Efforts are also underway to start a carpentry and furniture making business. For the future they are planning to build more houses to accommodate members who remain landless at the moment.

There has been lesser community action and mobilization on advocacy for human rights or peace issues. There are good examples of action taken by PDCs in Carmen Cotabato that issued peace declarations and negotiated for the removal of detachments. But these types of action have not been as widespread as expected. In one of the field visits the team came across a contingency planning exercise for relief and rehabilitation organized by the program among government agencies operating in the Liguasan Marsh area because military intelligence confirmed a possible eruption of hostilities with the MILF in a months time. What comes as a surprise is why there seems to be no howl of protest coming from the communities that will be affected by the conflict. The communities have not taken action to prevent what seems to be an inevitable event that will for certain destroy any gains they have made in developing their PDCs.

3.5 On the Stages of Development of PDCs

The component has developed six (originally four) levels of development of a PDC. The stages of PDC development and their corresponding indicators are listed below:

Stage 1 – Confidence Building

Indicators:

1. PDA/VIDA/NUNV initially equipped with the core Values. Attitudes, knowledge and skills;

2. Potential “PDC co-champons”selected and initially equipped with the core Values, attitudes, knowledge, and skills;

3. Initial working group formes;4. Community declaration to engage in peace and development formalized;5. Priority PDC issues addressed through implementation of small community projects.

Stage 2 – Peace and Development Organizing

Indicators:

1. Community organizing is based on the concept of peace and development highlighting the culture of peace, needs and rights-based approaches;

2. Core group formally organized and BDC operationalized/reactivated/strengthened;3. Core group and BDC equipped with core Values, attitudes, knowledge, and skills;4. Sectoral groups formally organized as associations and cooperatives;5. Sectoral groups equipped with core Values, attitudes, knowledge, and skills.

Stage 3 – Peace and Development Planning

Indicators:

1. Core group equipped with local development planning and investment programming skills;2. PDC plan completed and approved;3. PDC investment program completed;4. Peace concerns integrated in the PDC plan;5. Priority issues of disadvantaged/marginalized groups integrated in the PDC plan;6. Planning and budgeting cycle of LGUs is allowed to ensure PDC plan incorporation into the

LGU plans;7. Other sectoral plans completed based on the PDC plan.

Stage 4 – PDC Plan Implementation

Indicators:

1. PDC plans, programs, and projects funded;2. POs engaged as development partners;3. PDC plans integrated in the municipal, provincial, regional, and national plans;4. NGAs, POs, NGOs, LGUs, and ODAs provide funds for PDC priority programs and projects;5. Key stakeholders/core group participation manifested in program and project

implementation;6. Community monitoring and evaluation system adopted as basis for replanning and policy

support.

Stage 5 – PDC Strengthening

Indicators:

1. PO alliance established2. LGU IRA/revenues increased3. PO savings mobilization enhanced

4. Internal and external resource mobilization sustained5. PO-NGO-LGU-NGA-ODA partnerships developed and sustained;6. Basic services delivery enhanced;7. PDC development plan integration institutionalized;8. PDC adopted as model in other areas;9. PDAs replicated in other PDC and non-PDC areas.

Stage 6 – PDC Empowerment

Indicators:

1. Self-help POs sustained assistance to other PDCs and barangays;2. LGU/BDCs lead role in community peace and development planning, implementation,

monitoring and evaluation demonstrated;3. Minimum basic needs (MBN) indicators improvement sustained;4. More community members/sectors are engaged;5. PDC resource savings mobilization sustained;6. PDC as a model community development strategy mainstreamed in the development

processes in thee regional and sub0regional levels.

The PDC indicator system listed above is a social instrument to measure the progress or lack of progress of a PDC. From the lowest level of one a PDC is expected to mature and fully develop over time to reach level six, the highest level. At the moment the highest level reached by the PDCs is level five. Majority of PDCs are between levels two to four. The table below, taken from the latest component report, shows the percentage distribution of PDCs by level:

Status of PDC Development

PDC Level Number of PDCs Percentage Distribution1 3 2%2 7 4%3 46 29%4 90 56%5 14 9%6 0 0%

The following tables provide additional information on the individual PDCs by area and development after a six-month period:

Table 1: Number of PDCs by Stage of Development per Area

Area Number of PDCs as of June 2003

Number of PDCs as of December 2003

I. Autonomous Region in Muslim Mindanao

Stage 1: Confidence Building 3 3 Stage 2: Community Organizing 5 0 Stage 3: Community Planning 24 12 Stage 4: PDC Plan Implementation 19 31 Stage 5: PDC Strengthening 2 7 Stage 6: Empowered PDC 0 0

Sub-Total: 53 53

II. South Central Mindanao

Stage 1: Confidence Building 0 0 Stage 2: Community Organizing 7 0 Stage 3: Community Planning 18 19 Stage 4: PDC Plan Implementation 49 49 Stage 5: PDC Strengthening 1 7 Stage 6: Empowered PDC 0 0

Sub-Total: 75 75

III. Western Mindanao

Stage 1: Confidence Building 0 0 Stage 2: Community Organizing 21 7 Stage 3: Community Planning 8 15 Stage 4: PDC Plan Implementation 3 10 Stage 5: PDC Strengthening 0 0 Stage 6: Empowered PDC 0 0

Sub-Total: 32 32

Grand Total: 160 160

Table 2: Status of PDC based on the 6-stages of PDC Development as of June 2003

NO. NAME OF PDC STATUS AS OF JUNE 2003

STATUS AS OF

DECEMBER 2003

A. Autonomous Region in Muslim Mindanao

I. Province of Sulu1. Bangas, Brgy. Bangas 4 52. Kabucan, Brgy. Kabucan 3 4

3. Bangkal, Brgy. Bangkal 3 44. Kasambulan, Brgy. Tagbak 2 35. Batu Habah, Brgy. Duhol,

Matatal and Tanduh Patong4 4

II. Province of Basilan6. Bato, Brgy. Bato 3 47. Calang Taberlungan, Brgy.

Calang Taberlungan3 4

8. Calang Canas, Brgy. Calang Canas

3 4

9. Babag, Brgy. Babag 3 410. Pilas 1 111. Tuburan 1 1

III. Lanao del Sur12. Pagalongan, Brgy. Pagalongan 5 513. Western, Brgy. Western 4 414. Magampong, Brgy. Park Area 1 415. Manalocon, Brgy. Talub 4 416. Pagalongan, Brgy. Pagalongan 3 317. Paigoay, Brgy. Paigoay 4 418. Alog, Brgy. Alog 4 419. Lumbac, Brgy. Lumbac 3 320. Pangawalopa, Brgy.

Pangawalopa3 3

21. Tubaran Proper, Brgy. Tubaran Proper

4 4

22. Balangas, Brgy. Bolocaon 3 423. Bacayawan, Brgy. Bacayawan 3 324. Bairan, Brgy. Bairan 3 325. Ragayan, Brgy. Ragayan 3 326. Caramiah, Brgy. Caramia 2 3

IV. Province of Tawi-Tawi 27. Tubig Tanah, Brgy. Tubig

Tanah4 4

28. Sanga-Sanga, Brgy. Sanga-Sanga

4 5

29. Lapid-Lapid, Brgy. Lapid-Lapid 4 430. Sumangat, Brgy. Sumangat 4 431. Lambug, Brgy. Lambug 3 432 Bakung, Brgy. Bakung 4 533. Marang-Marang, Brgy. Marang-

Marang3 4

V. Province of Maguindanao34. Taviran, Brgy. Taviran 5 535. Bagon-Inged, Brgy. Bago-Inged 4 436. Marguez, Brgy. Marguez 3 437. Tambak, Brgy. Tambak 3 438. Kiteb, Brgy. Mapayag 3 439. Nuran, Brgy. Nuran 2 3

40. Km 21, Brgy. Alamada 3 341. Tuka, Brgy. Tuka 2 442. Tuka Maror, Brgy. Tuka Maror 4 443. Sarakan, Brgy. Sarakan 4 444. Kauran, Brgy. Kauran 3 445. Malangit, Brgy. Malangit 4 546. Poblacion, Brgy. Poblacion 4 547. Kabuling, Brgy. Kabuling 3 448. Upper D’lag, Brgy. Upper D’lag 3 449. Kayaga, Brgy. Kayaga 4 450. Maitumaig, Brgy. Maitumaig 3 451. Bulatukan, Brgy. Bulatukan 1 152. Datang, Brgy. Datang 2 353. Bagoadatu, Brgy. Damalusay 3 3

B. South Central Mindanao

I. Province of Cotabato1. Bao, Brgy. Bao 4 42. Pigkawaran, Brgy. Pigkawaran 4 43. Pagayangan, Brgy. Pagangan 4 44. Cadilis, Brgy. Cadiis 4 45. Kitulaan, Brgy. Kitulaan 4 56. Liliongan, Brgy. Liliongan 4 47. Manarapan, Brgy. Manarapan 4 48. Manili, Brgy. Manili 4 59. Malanduage, Brgy. Malanduage 4 5

10. Immamaling, Brgy. Immamaling 5 511. Ilian, Brgy. Ilian 3 512. Kilada, Brgy. Kilada 2 413. Sambolawan, Brgy.

Sambolawan4 4

14. Matilac, Brgy. Matilac 4 415. Balatican, Brgy. Balatikan 4 416. Nalapaan, Brgy. Nalapaan 4 417. Popoyon, Brgy. Popoyon 4 418. Tamontaka 3, Brgy. Tamontaka

34 4

19. Tamontaka 4, Brgy. Tamontaka 4

4 4

20. Tamontaka 5, Brgy. Tamontaka 5

4 4

21. Kakar, Brgy. Kakar, Poblacion 8 4 422. Biniruan, Brgy. Biniruan,

Poblacion 94 4

II. Province of Sultan Kudarat23. Sitio Pangulan, Kapaya, Brgy.

Kapaya4 4

24. Chua, Brgy. Chua 3 3

25. Sitio Bila, Brgy. Mayo 3 326. Brgy. Ilian 4 427. Lagandang, Brgy. Lagandang 4 428. Bual, Brgy. Bual 3 429. Basiawan (Datu Ito Andong)

Brgy. Basiawan3 3

30. Palumbe, Brgy. Palumbe 4 431 Namat, Brgy. Namat 3 332. Seneben, Brgy. Seneben 3 333. Tran, Brgy. Tran 3 334. Datu Karon, Brgy. Datu Karon 3 335. Sisiman, Brgy. Sisiman 4 436. Butril, Brgy. Butril 4 437. Sinalukay, Brgy. Sinakulay 3 438. Pedtubo, Brgy. Pedtubo 3 4

III. Province of Davao del Sur39. Tienda Aplaya, Brgy. Tienda

Aplaya3 4

40. Aplaya, Brgy. Aplaya 4 441. Sugal, Brgy. Sugal 3 342. Balas Mana, Brgy. Balas Mana 4 443. Fishing Village, Brgy. Fishing

Village3 3

44. Tikulon, Brgy. Tikulon 3 345. Dungan Pekong, Brgy. Dungan

Pekong4 4

46. Lumbang, Brgy. Lumbang 4 447. Savoy, Brgy. Savoy 4 448. Mabila, Brgy. Mabila 4 449. Lomlom Darong, Brgy. Lomlom

Darong4 4

50. Zone 1, Brgy. Zone 1 2 351. Dagandang, Brgy. Dagandang 4 4

IV. Province of Sarangani52. Baliton, Brgy. Baliton 4 453. Pangyan, Brgy. Pangyan 4 454. Cablaan, Brgy. Cablalan 2 355. Katubao, Brgy. Katubao 4 456. Datu Dani, Brgy. Datu Dani 4 457. Tuguis, Tambili, Brgy. Tambili 4 458. Lumatil, Brgy. Lumatil 4 459. Daliao, Brgy. Daliao 4 460. Kanalo, Brgy. Kanalo 4 461. Nomoh, Brgy. Nomoh 2 362. Tuyan, Brgy. Tuyan 4 463. Lun Padido, Brgy. Lun Padido 4 464. Sapo Masla, Brgy. Sapu Masla 2 365. Penol, Brgy. Penol 2 3

V. South Cotabato66. Batomelong, Brgy. Batomelong 3 367. Lote Calumpang, Brgy. Lote

Calumpang4 5

68. San Jose, Brgy. San Jose 4 469. Barangay I, Brgy. G.P. Santos 370. Saravia, Brgy. Saravia 4 471. Assumption, Brgy. Assumption 4 472. Takunel, Brgy. Takunel 4 473. Lamfugon, Brgy. Lamfugon 3 374. Koronadal Proper, Brgy. Proper 4 475. Bunao, Brgy. Bunao 4 5

C. Western MindanaoI. Province of Zamboanga del Norte

1. Caracol, Brgy. Caracol 3 42. Lanawan, Brgy. Lanawan 3 43. Munoz, Brgy. Munoz 4 44. Bucana, Brgy. Bucana 2 35. Camp Balagunan 2 36. Siay, Brgy. Siay 3 4

II. Zamboanga del Sur7. Lower Sang-an, Brgy. Lower

Sang-an3 4

8. Muricay, Brgy. Muricay 3 49. Talabaan, Brgy. Talabaan 2 3

10. Muti, Brgy. Muti 2 311. Labuan, Brgy. Labuan 2 312. Sitio Bincul, Brgy. Manguso 3 413. Tictapul, Brgy. Tictapul 3 314. Benuatan, Brgy. Benuatan 2 315. Poblacion, Brgy. Poblacion 2 3

III. Zamboanga Sibugay16. Bakalan, Brgy. Bakalan 2 317. Tenan, Brgy. Tenan 2 318. Logan, Brgy. Logan 2 319. Domondan, Brgy. Domondan 2 320. Upper Pangi, Brgy. Upper Pangi 2 321. Poblacion, Brgy. Poblacion 3 422. Katipunan, Brgy. Katipunan 2 3

IV. Province of Lanao del Norte23. Pagayawan, Brgy. Pagayawan 2 224. Manmalog, Brgy. Mandulog 2 225. Delanayan, Brgy. Delabayan 3 326. Muntay, Brgy. Muntay 4 427. Lumbac, Brgy. Lumbac 4 428. Imbornal, Brgy. Imbornal 2 229. Mentring, Brgy. Mentring 2 230. Pindulunan, Brgy. Pindulunan 2 231 Big Banisilan Pob., Brgy. 2 2

Poblacion32. Small Banisilan, Brgy. Poblacion 2 2

This tool is helpful to the communities themselves because they are aware of the gaps and areas for improvement in their PDC. All the members of the PDCs interviewed knew the level of their PDC at the beginning of the program and the current level of their PDC. Most PDCs had improved by one notch in the grading system.

The system is also an important monitoring tool for program implementers and members of the peace and development task forces. It provides the basis for programming of activities and interventions in the PDCs. Caution must be made however in making a rigid interpretation of the tool. For instance not all the stages of development follow a linear pattern. Output indicators may come out at different stages of development. The tool must be used only as a guide to managing the PDC development process.

4.0 Lessons Learned and Good Practices

The methods employed by the component in generating resources for PDCs have been mainly through participation in local governance and through extensive networking with different agencies. The local governance work has been discussed in the previous sections. The projects encountered during the field visits are relatively start-up in nature except for some infrastructure projects. One promising project that can be a model for other PDCs is the barangay enterprise project in PDC Munoz, Siayan, Zamboanga del Norte. The following is a short description of that project:

Caselet: Emerging Barangay Enterprise in PDC Munoz

Barangay Munoz is situated in the Municipality of Siayan, Zamboanga del Norte. It has an estimated 960 hectares of mostly agricultural land. This predominantly Subanen community has a total population of 984 with 161 number of households. Corn and cassava farming are the most common crops planted in Barangay Munoz because of the hilly and rolling terrain of the land.

In 2002 the community members of PDC Munoz went through a PRA-BDP process supported by Component 1 of the UN MDP. The planning process allowed them to do a situational analysis specifically on agriculture, livelihood, land development, human development, basic services, infrastructure development, and organizational development. In the SWOT (Strength, Weakness, Opportunity, Threat) analysis and strategy formulation portion the community identified cassava mass production and sustainable marketing as one of it's major strategies under Agricultural Livelihood and Land Development. Next the community mapped out its 3-year plan and annual operational and investment plan. To implement the strategy on cassava production and marketing the community first targeted the planting and marketing of 100 hectares of cassava, the production of planting material, and the setting-up of buying stations. The biggest obstacle that remained however was finding a stable and profitable market for cassava.

The National United Nations Volunteer (NUNV) who was at that time assigned to the PDC initiated contacts with San Miguel Corporation (SMC), one of the biggest food and beverage companies in the Philippines, and explored the possibility of a marketing tie-up for cassava between SMC and

PDC Munoz. The result was positive. SMC agreed to buy cassava chips and milled cassava from Munoz regardless of volume.

With this positive development the various institutions in PDC Munoz got their act together, planned, and undertook steps to begin the cassava enterprise. The municipal LGU started work on the Memorandum of Agreement cum Marketing Agreement with SMC. The Municipal Agriculture Officer (MAO) was sent to Manolo Fortich in Bukidnon to buy planting materials. The provincial LGU also contributed additional planting materials. The barangay LGU appropriated an initial working capital of 50 thousand pesos from the development fund to buy cassava chips from the farmers. The farmers, motivated by the prospects of a good market, started expanding the areas planted to cassava. And the Munoz Farmers Multipurpose Cooperative, through the assistance of Component 6 of the UN MDP, prepared for the installation and eventual operations of a cassava mill that Component 3 gave as a grant.

Assuming that operations are smooth and product quality satisfies SMC specifications the projected profit margins are reasonable. The following figures illustrate the viability of the project:

At the level of the farmer the cost of production for cassava chips is about 50 centavos per kilo, The barangay will buy a kilo of cassava chips from the farmer at P2.50 pesos per kilo. At an average net margin of P2 pesos per kilo and an average production yield of 20,000 kilos per hectare a farmer can earn an income of P40,000 pesos per hectare.

At the level of the barangay cost of goods is P2.50 per kilo for cassava chips. SMC agreed to buy the chips for P3.50 per kilo. The initial working capital of P50,000 pesos can buy 20,000 kilos which when sold at P3.50 will earn an additional P20,000 pesos. Once the cassava mill is operational the barangay will have the chips milled by the cooperative. The cooperative is projected to charge .40 centavos per kilo for milling. This brings the cost of goods up to about P2.90 pesos but SMC is willing to buy milled cassava for P5 pesos. Again using the initial 20,000 kilos gross revenues will reach P100,000 pesos effectively doubling the initial working capital of the barangay.

For enterprise governance and management the barangay shall form a project management board composed of selected barangay officials, PO leaders, and PDAs. For the moment the Barangay Captain is acting as Project Manager but once operations are in full swing a new Project Manager shall be hired along with a purchaser and a cashier.

The Municipal Planning and Development Officer (MPDO) of Siayan, the NUNV, and the PDAs are deeply involved in and are very much excited by the prospects of this project. They have been key players in spurring the development of the Munoz cassava enterprise. The MPDO has remarked that the enterprise has an immediate beneficial effect at the household level because the farmer earns cash at a time of “gutom” (hunger), the dry season when all the other crops are unproductive except for cassava.

At the time of this writing the barangay has begun buying cassava chips from the farmers. The farmers who have come even from far-flung places were delivering sacks and sacks of cassava chips on horses or tricycle. Though tired, broken, and weary their faces offered a glimmer of hope- hope for a better life from an emerging enterprise.

5.0 Recommendations

5.1 Continue mainstreaming PDCS in LGUs

Mainstream if not transfer completely the task of PDC strengthening to LGUs. This must be done at the barangay, municipal, and provincial levels. A process must be devised to motivate LGUs to completely own the program. They must also be given the freedom to innovate on any aspect of the program. At this stage more effort must be made to make the Provincial Governors adopt PDCs as their own strategy for peace and development. But the program must avoid offering block funds as an incentive. As discussed in the previous section, this type of engagement will not be sustainable. One sure way to get LGU attention is for a strong and organized alliance or federation of POs in all the PDCs in the province to seek audience with the Governor and propose a partnership with the Provincial Government for PDC Development.

A corollary recommendation is to use and maximize the mandated bodies and development councils in the LGUs. The development councils can assume the tasks and functions of the peace and development task forces.

The program must also ensure the adoption of the BDPs all the way to the PDC and RDC level. As discussed previously, most BDPs had already been incorporated in the Municipal Development Plans. It is important to monitor what projects in the BDPs have actually been funded by the municipal LGU. The next step is to ensure the endorsement of these plans in the provincial development plans. The component can choose to pursue the current practice of holding BDP integration workshops at the municipal and provincial level and consolidating them into an integrated PDC investment program.

5.2 Rationalize and modify the roles of the PDA

As discussed in the previous section is suggested that the term PDA be expanded to mean all the members of the PDCs so that each and every member of the community knows that he/she has a duty to be a peace advocate. The former PDAs can decide to be PDC organizers who can be employed by the program as such. If the program has been transferred or mainstreamed in the LGU then the LGU can support the PDC organizers. The terms of reference and the job description of the PDC organizer will emphasize his/her task of strengthening the POs for collective action.

To repeat what has been stated before, the former PDA’s role can be confined to that of community organizer and his/her job is to focus on building vibrant self-reliant POs. He/she cannot be a PO leader. The former PDA’s title can then be appropriately changed to PDC organizer. The role of development manager must be relegated to the PO leaders because they carry the authority of their membership and are strictly accountable to them. It is them who should develop direct links with donors, government agencies, and other resource agencies so that relationships cultivated are institutional in nature.

5.3 Concentrate on PO strengthening and movement building.

The fulcrum of development must evolve around the strengthening of the POs because in the end they will continue the task of PDC development. The burden of accomplishing the objectives and plans in the PDCs rests on the PO.

As mentioned in the previous recommendation on LGU mainstreaming, a strong and organized alliance or federation of POs in the PDCs is sure to get government attention and action. They can

propose partnerships or even new programs with government and donors. An organized force of people exercising collective action to pursue their own rights to development is a manifestation of a successful PDC and an indicator that the program has made serious impact. It is suggested that a tool for measuring and monitoring the stages of PO growth and development be adopted and utilized by the program. There are indicators of growth found in each stage of development. The program can choose to use existing tools or a new tool can be constructed specifically for POs in the PDCs.

The POs in the PDCs have gained experience in participatory planning, project development, resource mobilization, and project implementation. An area that needs improvement is mobilizing collective action for community issues. Mass actions that call for cessation of hostilities, negotiations with conflicting groups, declarations and enforcement of peace zones, demands for policy changes or policy implementation are just a few of the activities that POs can do show a collective will of the people. The issues do not have to be confined to peace. For example in Siocon, Zamboanga del Norte, a brewing issue is the environmental damage being inflicted on the coastal areas of the municipality by the mining operations of a Canadian mining firm. The POs in the PDCs and the LGUs not only in Siocon but including the adjacent municipalities can form an advocacy alliance that can expose and oppose the operations of the mining firm. Let all those who live in PDCs be called peace and development advocates. This policy of inclusion can start the groundswell for a community-based peace movement.

5.4 Promote and replicate more market-driven barangay enterprises in PDCs

The Munoz PDC cassava enterprise model is worth promoting and replicating in other PDCs. An important condition however is the presence of a market for whatever crop or good to be produced. The program can link up with market information and promotion programs of business groups and even donors in Mindanao. Information can be generated on possible institutional markets and product demands among companies in different areas in Mindanao. The result of the market research can then be matched with the available resources and products found in the PDCs. Where there are possibilities of a match the program can facilitate links between buyers and the PDCs and the program can develop enterprise infrastructure support assistance for the PDC.

Annex 3

Component 2: Building Partnerships and Strengthening Institutional Support Mechanisms

1. Background

The goal of the project is to strengthen the capacity of key institutions as well as institutional mechanisms of governance for sustained peace building and development in Mindanao. This will address immediate concerns defined in a common framework for implementation and promote policy dialogues with government partners at regional and sub-regional levels of the Programme. This will result in an institutional framework for inter-agency coordination, collaboration, and accountability for peace and development, including streamlined support mechanisms clearly communicated to regional and sub-regional government implementers. Inter-agency meetings and workshops at the national, regional, provincial, and municipal levels will support these mechanisms and operational policies.

This component will strengthen the capacity of SPCPD and ARMM to coordinate and monitor development plans and programmes, and promote more inclusive approaches. This will be done primarily by training officials in management and governance. Continued capacity building within SPCPD and the ARMM in governance and management skills, will facilitate the mainstreaming of objectives. Capability building activities will focus on the “learning by doing” approach. Existing coordination mechanisms and structures will be strengthened to allow the integration of peace and development concerns in the agenda for discussion.

Lessons learned and best practices in peace building will be mainstreamed into the operations of Phase III as well as the programmes and projects of national government agencies and local government units. To facilitate this, roundtable discussions and workshops will bring together national and local counterparts.

The amendment of the New Organic Act is seen as an opportunity to define an effective autonomous structure for Muslim Mindanao, given the failures and weaknesses of the current ARMM. Technical assistance may be provided to the legislature to encourage more debates on potential modalities to be explored in the amendment. The project also envisions support to a proposed amendment of the Local Government Code that accommodates autonomy requirements within the context of enhanced decentralization. International expertise will be tapped to provide advisory services.

Indicators of good local governance will be introduced for assessing the performance of LGUs as part of capability building.

2. Major Findings on Programme Performance

2.1 Project Objective: To strengthen the capacity of key institutions and institutional mechanisms of governance for sustained peace-building and development in Mindanao

A. Performance Indicators

Institutional arrangements are formalized through executive orders and memo circulars at all levels- national, regional, and sub-regional levels;

SPCPD participates actively in coordinative and decision-making structures at national, regional, and provincial levels;

1996 Peace Agreement and peace and development issues mainstreamed in RDC/RDCC/RPDC/MEDCO and other regional key bodies agenda;

PDC concept as convergence strategy adopted by NGAs and regional bodies and LGUs

2.2 Planned Output: Institutional framework for inter-agency coordination, collaboration, and accountability for peace and development, including streamlined support mechanisms clearly communicated to regional and sub-regional government implementers.

A. Performance Indicators:

Memo Circulars are issued containing agreed upon institutional framework and strategies;

Policy and operational guidelines are issued for coordination and implementation support mechanisms;

Common approaches/strategies and operational guidelines adopted in programme/project implementation e.g. community focusing. Community organizing, monitoring and evaluation, policies for credit assistance and mechanisms for cost-sharing or CO-financing.

2.3 Planned Output: Lessons learned and best practices in peace building and development mainstreamed into operations of successor programme and NGA/LGU programmes/projects.

A. Performance Indicators:

Case studies/assessments document best practices in project design and implementation of peace and development projects;

Best practices/lessons learned adopted as common approaches and strategies in NGA, LGU and donor assisted programmes/projects.

2.4 Planned Output: Peace building and development strategies incorporated into regional (including ARMMM and SPCPD) provincial and municipal development plans

A. Performance Indicator:

Regional, provincial, and municipal development plans reflect peace and development strategies, projects and activities and support arrangements.

2.5 Component Performance

The implementation of the Component on Building Partnerships and Strengthening Institutional Support Mechanisms Implementation of the GOP United Nations Multi-Donor Programme Phase 3 for Year 2003 was considered a challenge. The Programme started the year with a management handicap. Of the eight programme components, only four had full-time component managers. Among the components that suffered this handicap was the Component on Building

Partnerships and Institutional Strengthening (Component 2). It was only during the second quarter that all the component managers were on board. The initial activity that was required for the component on Partnership Building and Institutional Strengthening was to prepare the component’s framework.

As a result of this framework development and consultation, the component on Partnership Building and Institutional Strengthening (Component 2) embarked on a new thrust. While the component maintained as overall project goal “to build partnerships and strengthen institutional support mechanisms for Peace and Development” and project objective “to strengthen the capacity of key institutions and institutional mechanisms of governance for sustained peace-building and development in Mindanao” the component embarked on the following thrusts:

Adequate policy support to institutionalize and incorporate peace and development framework in the programs and mechanisms of national and regional autonomous government agencies; and

Increased capacities of local and regional government bodies to sustain peace and development initiatives.

The strategies adopted are as follows:

Enhance capacities of academic and learning institutions to enable them to effectively provide knowledge and skills training, research and extension services for local governments and autonomous government units. This shall be done in partnership with national universities and learning institutes.

Establish strong working relations or “twinning arrangements” between ARMM, and

Mindanao LGUs with critical national government bodies such as DILG for local governance; and the Civil Service Commission for public ethics and accountability and human resources development; Supreme Court and Department of Justice for access to justice reforms; Commission on Human Rights on right to development;

Engage the PDCs with national and regional counterpart civil society organizations in advocating peace and development.

The major shift was in the treatment of the PDC. During the early part of the programme, the component was PDC focused. Most of its activities were actually concentrated in the development of the PDCs that were being assisted. While there was essentially nothing wrong with this, it will also be very important to consider matters beyond the PDC so that the foundations for peace and development are truly strengthened.

In order therefore to sustain the gains of the programme, it was necessary to create an enabling environment for the PDCs as well as the institutions that interface with it. So, the plans that were prepared were modified to incorporate the new thrust of the component

The projects that were included continued to support the following required outputs of the programme.

Output 1: Establishment of institutional framework for inter-agency coordination, collaboration and accountability for peace and development, including streamlined support mechanisms clearly communicated to regional and sub-regional government implementers;

Output 2: Strengthening the capacity of SPCPD and ARMM to Coordinate and monitor development plans and programmes and promote more inclusive approaches;

Output 3: Mainstreaming lessons learned and best practices in peace building into the operations of GOP- MDP3 as well as the programmes and projects of the national government agencies and local government units;

Output 4: Incorporating peace building and development strategies into regional, provincial and municipal development plans.

Together with the UNDP Technical Adviser/Support, the component consulted with probable institutional partners that can assist in the delivery of the overall programme objective. There were a total of 13 institutions that were contracted to implement sixteen (16) projects. A matrix of the immediate results/application, specific contributions to overall governance reforms, and next steps/interventions of the outputs of these projects is shown in Annex A. These projects were mostly contracted during the last quarter of the year and are now in various stages of implementation.

A Brief Summary of Projects in 2003

The component-led activities that were initiated during the first semester 2003 were the ARMM-Civil Service Commission Group Discussion Workshop and the DILG-ARMM Congress and Coaching Workshop. The former was to draw the various experiences of the CSC officials in Mindanao to determine the actions necessary in assisting the ARMM. The DILG-ARMM Congress was essentially to build the capacity of the field offices of the DILG in the ARMM, particularly the Municipal Local Government Operations Officers (MLGOOs) and determine the needs of the DILG structure in ARMM.

The Conference on critical national and regional key issues was the first component-led project to take off during the second semester in 2003. The result of the conference and lessons learned from the various experiences shared by the participants were and will be disseminated to groups and institutions that have parallel concerns. This will give these concerned groups and institutions insights on how the concerns at hand could be addressed and given appropriate solutions.

Other projects that kicked off during the second semester were those forged with the Department of Interior and Local Government. These were the projects on “Development of LGU Capacity and Performance Indicators and Tracking Mechanisms in ARMM”; “Mobilization and Profiling of Local Resource Institutions and LGU Capacity Assessment”; “Good Practices in Local Governance Replication Administration in Mindanao”; “Strengthening the Capacity of the LGU Leagues in ARMM”; and “Localization of the Millennium Development Goals.” The activities and outputs of these projects are varied. Most are strengthening activities for the local government units and local governance in general.

One of the significant project that was contracted with the DILG is the Localization of the Millennium Development Goals (MDG). As a signatory to the Millennium Declaration (from where the MDGs were drawn) of the United Nations in the year 2000, the Philippines is committed to achieve these goals. The best way that these goals can be achieved is to involve the constituency at the local level. This is significant because this is a concrete project that attempts to bring the Millennium

Development Goals to the local level. While the MDGs are global in perspective, its application to the peace and development efforts in Mindanao is very appropriate. One of the Millennium Development Goals of reducing poverty by fifty percent (50%) by the year 2015 might as well be the goal of Mindanao. It may be worth noting that Mindanao’s poverty incidence hovers in the vicinity of fifty percent (50%) compared to the national average of thirty percent (30%).

Among the preparatory work done in localizing the MDGs is the “MDG Orientation and Planning Workshop” with the public sector employees union in Mindanao. This project provided an orientation of the Millennium Development Goals and a planning workshop to the public sector employees who were mostly from the local government units. Individual initiatives on the MDG localization may start at this level. The more important result of this activity is the awareness generated to this vital employee-sector on the MDG. The public-sector employees will be the key group that will implement the localization, as soon as the appropriate tools and institutional mechanisms are completed by DILG in the other project. The other global initiative that was included in the programme is the “Philippine Global Compact Initiative: Reaching Out to Enhance Local Development.” This is also an initiative called by Koffi Anan of the United Nations in January 1999 and became operational in July 2000. The Global Compact Initiative embraces nine principles covering human rights, labor and environment. This seeks to advance responsible corporate citizenship so that the business sector – together with the other social actors – can become part of the solution to the challenges of globalization and help the UN Secretary-General’s vision of a more sustainable and inclusive global economy. The application of the Global Compact in peace and development in Mindanao lies essentially in the participation of the business sector. As experienced by the Programme, resources for the communities are not enough. The resources at the local government level are not even enough to provide the basic requirements in the communities. The participation, therefore, of the business sector as well as the other civil society organizations becomes very important in the whole development process. While the business sector may not be the immediate solution to provide resources to the communities, their participation in the whole development process is vital.

Participation of women in building partnerships and institutional strengthening was made possible with the participation of three women groups in the program. Two national institution of women, the Center for Asia-Pacific Women in Politics and the National Commission for the Role of Filipino Women lend support to the Mindanao based United Mindanawan Federation of Bangsamoro Women Multi-Purpose Cooperative to conduct a seminar/workshop on building transformative communities. The workshop has allowed Mindanao-women to look into their role as agents of transforming communities from conflict-riddled areas to vibrant areas of development and growth.

The “Institutional Strengthening of the Sharia Court Project” was contracted with the Supreme Court in the last quarter of 2003. The project is a study on how the Sharia Court can best respond to the needs of the constituents where these are located. The study is expected to be completed in the second quarter of 2004. The study will provide the Supreme Court with a guide on how to strengthen the Sharia Court system. The strengthening of the Sharia Court system will provide a more appropriate venue for cases involving Muslims in Southern Philippines.

A parallel project that will strengthen the institution that addresses human rights concerns in Mindanao is the “Commission on Human Rights Capacity Building and Rights-Based Training.” This project takes off from an assessment on the Commission on Human Rights that was supported by UNDP. The project will look into the findings and validate these in various workshops. Systems and procedures on various mission-critical CHR functions and programs will be installed in various

regional offices in Mindanao. The installation of these systems and procedures will strengthen the capability of the CHR in addressing human rights concerns. In appropriately addressing these human rights concerns, the causes of injustice are minimized. A situation where human rights violations are minimized creates a more conducive environment for peace and development.

Sustaining peace and development initiatives through the Peace and Development Task Forces had taken a greater plateau this year through the MindaComNet in Zamboanga City. The activities designed by the network of PDTF has benefited a number of PDCs through linkages and development of networks with various government and non-government agencies/units. PDTF in Sarangani province on the other hand has come up with a concrete five-year plan to address peace and development issues and concerns in the seven (7) municipalities of the province.

Intra-component support to the PDA League and the MinSUPala PDAL was arranged with Component 1 to further strengthen programme implementation. This strategy did not only capacitate the PDAs in Community Organizing-Community Development, Development Planning through participatory approaches, Resource Mobilization and project proposal preparation but it also strengthened the PDAL as an institution. An added feature of the activity was in utilizing the League to conduct profiling of Muslim Religious Leaders per province and thereby generating initial revolving fund for the leagues. As a manifestation of its empowerment, the MinSuPala PDA League has proven its capabilities by accessing project in eco-governance with funds from the USAID in partnership with the Development Alternatives, Inc.. The project is implemented in Zamboanga City through the Zamboanga City PDA League.

The above-mentioned projects are in various stages of implementation. Mainly, these projects will be carried over for the first semester of 2004. The institutional arrangement of these projects will be strengthened to ensure that these will be completed before the end of the programme in June 2004. As some projects that are being undertaken are strategies and studies, there will be a conscious effort to turn these over to institutions that will make use of the findings and recommendations. The activities of the component during the last semester of the programme will mainly be to see to it that loose ends will be properly tied up.

Summary of Program Performance at the Component Level

A. Overall Accomplishment

As a whole, the Component (component-led) has largely achieved its target for the year. Of the total operations budget of Php 19,050,000, it has solidly contracted with institutional partners a total of Php 18,099,812 or 95% of the budget. The funds that were actually disbursed, however, was only 43.75% of the total budget.

B. Comparative Assessment of Previous Performance

The following is a matrix of the activities from 2001 to 2003. These activities are indicative of performance in the various years. As there are a lot more activities that were accomplished in 2003 than 2001 and 2002, the component has achieved a good performance in the year just past. The activities mentioned below are segregated per area and Component-led.

2001 2002 2003SOUTH CENTRAL

MINDANAOCotabato Provincial Rehabilitation Task Force facilitated complementation on relief and rehabilitation of PDCs

27 PDTF (2 regional; 5 provincial; 17 municipal & 3 city) initiated, sustained and strengthened

LGUs of Kabacan and Pikit, 4 PDTFs, Selatan Kutawato SRC and USM promoted PDc concept & supported peace initiatives in Cotabato province

PDTFs facilitated 4 PDC accreditation into people’s organization

Cotabato province PDTF spearheaded coordination with NGAs, NGOs and other service providersCotabato Provincial PDA League registered with Department of Labor and Employment PDAL of Cotabato generated “Alas Singko Na!” Peace Plan calling for GRP-MILF negotiationPDTF spearheading aid coordination in Pikit with GO and NGOLGSP-CIDA conducted social preparation and capacity building for LGUs of Midsayap and PigkawayanSKSRC & USM initiated the scholarship project for college education dubbed “Bridging Program for High School Graduates in Conflict Areas of Central Mindanao” Provincial LGU of Cotabato integrated Annual Investment Plan and 3 year BDIP of 5 PDCs in the Special Area for Agricultural Development area Provincial PDA League spearheading signatures for Appeal for Peace Advocacy campaignPDAL Cotabato formulated 3-yr STRAT PlanLGU Palimbang, Sultan Kudarat commitment to render technical assistance

to two POs in PDC Butril by providing fund for a community radio and assigning a full tine midwife in the PDCPresident Quirino LGU committed for a community radio in one of the PDCMDTF formed in LGU Pres. Quirino, LGU Lambayong and LGU Esperanza of Sultan Kudarat provinceLGU Palimbang, Sultan Kudarat commitment for providing site of BHS construction.MNLF Central Kutawato State Revolutionary Committee assisted in resolving conflict in PDC Seneben in Mariano Marcos municipalityOIDCI, MRDP, European Union, SZOPAD SF, OXFAM, USAID-LEAP, DAR-ADB and TAG supported 14 PDCs in DOS, Parang, Ampatuan, Datu Paglas, Buluan and TalitayLGU Buluan support of P 250,000 to PDCDOH, LGU Talitay, Korean Friends of Mayor Sema supported various development projects in 4 PDCsKadtabanga Foundation in Maguindanao province initiated peace and development efforts in several PDCsLGU Koronadal replicating PRA-BDP process in eight barangays and provided 150,000 pesos support to PDCs in Saravia, Assumption and Barangay

UnoPDTF South Cotabato provided technical assistance to POs in the PDCLGU South Cotabato committed P 12,000 to support warehouse/farm equipment shed construction in PDC Koronadal Proper MOA on resettlement of 40 displaced families in PDC Bunao with HABITAT, LGU Tupi, BUFAMCO and LGU BunaoLGU Koronadal contributed P 943,800.00 to support 3 PDC in the city while LGU Tupi and LGU South Cotabato contributed P 1,415,800.00 to PDC BunaoLGU Koronadal commitment to include priority needs of 9 PDCs in the City Development Plan for 2004LGU Bayang in Lanao del Sur provided counterpart fund of P 200,000.00 for the installation of a radio tower, land and building for the radio station officeMSU Extension office committed to support PDAs in project proposal preparationUSAID-GEM and LEAP and SZOPAD SF supported PDC Kalanogas, Lumbac and Ragayan in their various projectsNFA and LABUCO, Inc. in Lanao Sur pledged for technical and financial support for accessing microcredit loans

AUTONOMOUS REGION IN MUSLIM MINDANAO

PDTF Wao provided technical assistance and direct inputs for sustainable agriculture and micro-finance projects

8 PDTF intiated, sustained and strengthened (3 provincial; 5 municipal)

LGU Isabela supported conduct of area assessment in PDC Pilas

2 PDTF in Maguindanao facilitated accreditation of PDCs into People’s organization

35 members of the Basilan Area Coordinating Council committed to prepare an action plan for PDC development in the provinceSulu Area Coordinating Center committed to replicate PDC concept in 15 barangaysLGU and line agencies (DPWH & DENR) provided technical assistance to PDC initiativesLupah Sug PDAL registration with the Securities and Exchange CommissionDSWD-ARMM and ARMM Social Fund providing community based projects in 5 PDCs in Tawi-tawi worth P 500,000.00 ARMM line agencies (DPWH, DOH, DTI, DA) provided projects and assistance to 5 PDCs in Tawi-tawiARMM Social Fund, ASFAD, GEM-LEAP, DTI, DOST, DA, PBSP, DPWH supported 5 PDCs in Tawi-tawi in terms of infrastructure, basic services, livelihood projects worth P4,660,000.00Donor Agencies, DAR-IFAD, LEAP, AMORE, GAGP/Japan assisted 9 POs in 7 PDCs in terms of livelihood projects in Tawi-tawi

Provincial PDTF of Tawi-tawi generated commitment of support from national agenciesMDTF Wao conducted training of POs in PDC Provincial PDA League of Lanao Sur assisting 3 conflict affected areas of Madalum, Bacolod and Butig to access projectsUSAID-LEAP and SZOPAD Social Fund supporting development projects in PDC Alog and PDC Manalocon of Lanao Sur provinceLGUs of Masiu and Wao supported peace building through PDCsMPHO and DILG of Sultan Gumander municipality extended technical assistance in the design and conduct of Local Governance and BDP Integration WorkshopKalilintad PDA Network provided technical assistance in the preparation of POs project proposals

WESTERN MINDANAO10 PDTF initiated, sustained and strengthened (3 provincial; 7 municipal)

Barangay LGUs capacitated on Project Implementation, Monitoring and Evaluation (PIME), barangay governance and culture of peace awareness in the province of Zamboanga Sibugay7 Barangay Development Plans generated in Zamboanga Sibugay7 PDC Plans incorporated in the LGU Investment Plan of Zamboanga Sibugay LGU Siayan integrated priority plans of PDC

Munoz in its Municipal Annual Investment Plan1 provincial PDTF, 1 MNLF State Revolutionary Committee defined their roles in increasing support to PDCsLGU Training on Barangay governance

PDTF of Lanao Norte facilitated complementation on relief and rehabilitation of PDCs

BFAR XI establishment of Stilt Dryer project in PDC Poblacion of Payao

PSCT/Component-Led31 PDTF Initiated and sustained

45 PDTF Initiated, sustained and strengthened

PDTFs assisting and supporting PDCs in peace and development initiatives

Coordination linkages were established with ICRC, LGSP-CIDA

Complementation and coordination with MinCODE, Kusog Mindanao, GEM-LEAP, LGSP-CIDA, PRO-Peace-CIDA, Habitat, STARCM, PRCM-GTZ, ARMM Social Fund, ASF/WB-JBIC, DSWD-ARMM and MINLAND

Coordination and complementation with ARMM-Social Fund, DSWD, USAID-LEAP, LGSP-CIDA, HABITAT, RMN Radio Network, NDMU, NDDC

Initiatives undertaken to forge partnerships with DILG, DA, DOLE, PIA and DOH

Discussion to broker twinning and partnership programs with DILG, CSC, and DBM

MOA signed for partnership programs for peace and development with DILG, DILG-LGA, CSC, Supreme Court, CHR, NCRFW, CAPWIP, ECOP, UMFBMWMPC, CIU, LGF-PRRM, PSSA, DLSU, OMI and ADDU

At the component level the program embarked on 14 projects based on the revised Partnership Building and Institutional Framework (Annex 1) and a Governance Agenda in Mindanao (Annex 2)

The revised framework for Component 2 establishes the rationale for partnership building and institutional strengthening. It states that strengthening the foundations for a lasting peace and development in Mindanao requires a broad participation of the institutions that exist not only within it but also those that exist beyond it. The approach being adhered is to enhance the capacities of the institutions to address the glaring needs of the people of Mindanao. The approach is two-pronged. The first is to strengthen the government institutions so that it may significantly deliver its services. The second is to strengthen the mechanisms by which civil society can participate more actively in providing the appropriate needs of Mindanao.

The table below presents in summary the projects supported by Component 2:

Project Name Proponent Amount Expected Output Status1.Strengthening the State and Society: Conference on Critical National & Regional Issues

Philippine Political Science Association

794,500 Presentation of various conference papers and synopsis

Completed

2.Gender Responsive Governance at Work: Women Building Peace and Transforming Bangsamoro Communities

National Commission on the Role of Filipino Women (NCRFW), DSWD-ARMM

1,060,000 Strategy to implement transformative communities

On-going

3.Institutional Strengthening of the Shari’a Justice System

Supreme Court 1,325,000 Diagnostic study and reform program formulation

On-going

4.Commission on Human Rights Capacity Building for Mindanao; Rights-based Training

Commission on Human Rights

2,650,000 Implementation of system and procedures in the regional offices in Mindanao and Rights-based Trainors’ Training

On-going

5.Civil Service Commission-ARMM Twinning

Civil Service Commission

1.060,000 Study of gender issues in ARMM, professionalization of HRMOs, strengthening the 3rd

level Civil servants, future leaders program, study of cultural aspects & civil service principles, technical assistance in formulating responsive civil service laws

On-going

6.Enhancing Civil Society Participation in Responsible Governance

Philippine Rural Reconstruction Movement (PRRM)

1,350,000 Study on current level of participation of Ciil Society Organizations (CSOs), profile of CSOs, strategy for

On-going

enhancing CSO participation

7.Development of LGU Capacity and Performance Indicators and Tracking Mechanisms in ARMM

Department of the Interior and Local Government (DILG)

795,000 Performance/capacity indicators, Instruments /Tracking System, Trainors’ Training the use of the indicators/tracking system, Draft of MOA, Memorandum Circulars, Directives to implement the tracking system/use of the indicators

On-going

8.Mobilization and Profiling of Local Resource Institutions; and LGU Capacity Assessment

Local Government Academy and DILG

1,325,000 List of LRIs to be mobilized, Capacity Assessment Framework for LRIs, LRI Profiling, Capacity Assessment Mechanism for both LRI and LGU, Strategies to help LRIs build capacities in delivering local governance programs

On-going

9.Good Practices in Local Replication Administration in Mindanao

DILG 1,060,000 Fund Administration Manual, Promotion of Go-Far to LGUs, Donors and LRIs, Fund Administration, Knowledge Management

On-going

10.Strengthening the Capacity of the LGU Leagues

DILG 265,000 Organization of the local authorities in the ARMM as a league

On-going

11.Strengthening the capability of DILG ARMM particularly the MLGOOs on delivery of services

DILG-ARMM Congress and Coaching Workshop

On-going

12.Localization of MDG in Peace and Development Perspective, 12a)Development

DILG 3,180,000 MDG operations manual, Policy issuance, brochures and IEC material, Advocacy plan

On-going

of Institutional Mechanism in Mainstreaming MDG 12b)MDG Orientation and Planning Workshop for Public Sector Employees

Confederation of Independent Unions (CIU)

298,000 MDG Orientation, Action Plan

On-going

13.Establishment of Local Networks to advocate for Global Compact

ECOP 1,000,887 Global compact in 3 Key Cities in Mindanao, Local Compact Agreement with LGUs in the key cities, Local Compact signatories engaged actively in adopting the principles of the Global Compact, Trainors’ trained on a A.) the Labor Principles of the Global Compact and B.) Greening the Supply Chain

On-going

14.Indigenous Governance Practices, 14a) Mapping of Indigenous Governance Practices in Mindanao

Ateneo de Davao Research and Public Office

532,174.5 A map of the indigenous governance practices of ethnolinguistic groups found in Mindanao, Copies of codified tribal laws, Detailed report of each ethnolinguistic group

On-going

14b)Indigenous Governance: Dulangan-Manobo Governance Project

IPA – archdiocese of Cotabato

190,850 Research/Study on the Manobo’s Governance, Leadership Training

On-going

The outputs and of the above-mentioned projects and how they contribute to institution building of identified agencies are found in the following table:

Major Project OutputsWhat are the

Immediate

What are the

Specific Contributions to

What are the

Next

Results/Applications

of the outputs?

Overall Governance

Reforms within the Agency or

Sector?

Steps/Interventions

to sustain benefits or to realize potential benefits generated from the outputs

Project 1: Strengthening the State and Society: Conference on Critical National & Regional Issues

Major Output:

Presentation of various conference papers and synopsis

This gives an insight on why the state have constantly failed to address important issues and concerns in spite of its relatively advanced democratic processes.

This contributes to building a politically informed constituency that may influence political reform measures.

Result of conference and lessons learned should be disseminated to groups and institutions that have parallel concerns.

Project 2: Gender Responsive Governance at Work: Women Building Peace and Transforming Bangsamoro Communities

Major Output: Strategy to implement transformative communities

There will be a follow-through activity (for implementation on Feb 20-21, 2004). This will be a planning workshop among key participants for building transformative communities

This increases the potential of serving more communities and improve overall local governance participation.

Expected output of the follow-through planning workshop will be a proposal for more community development activities in the Bangsamoro areas.

Project 3: Institutional Strengthening of the Shari'a Justice System

Major Outputs: Diagnostic Study and Reform Program Formulation

These outputs will be used as guides to improve the delivery of services of the Sharia’ Courts in Muslim communities

This project will contribute to the overall justice reform.

Work closely with the Supreme Court and determine priorities to undertake.

Project 4: CHR Capacity Building for Mindanao; Rights-based Training

Major Outputs: Implementation of System and Procedures in the Regional Offices in Mindanao and Rights-Based Trainors’ Training 

 

Implementation of systems and procedures in the regional offices will make the CHR more responsive to the human rights issues and concerns in Mindanao

There will be an overall effectiveness in CHR’s delivery of their mandate to the constituents in Mindanao.

Parallel to the activities in this project is the active pursuit of setting up a CHR office in ARMM. This should be taken up with the REDPB/Governor so that the mechanism is set up.

Pilot Rights-Based training in one or two

  LGUs will be undertaken

Project 5: CSC-ARMM Twinning

Major Outputs:

Study of Gender Issues in ARMM

Professionalization of HRMOs

Strengthening the 3rd Level CS

Future Leaders Program

Study of Cultural Aspects &  

Civil Service Principles

Technical Assistance in Formulating Responsive Civil Service Laws

These outputs will initially increase awareness of the importance of civil service in ARMM.

These outputs will contribute immensely to building the capacity of the civil servants in ARMM. These may likewise contribute to streamlining the ARMM bureaucracy into a more effective one.

Follow-through activities should be undertaken by the CSC-ARMM office. More interactive processes with other ARMM offices should be undertaken.

Project 6: Enhancing Civil Society Participation in Responsible Governance

Major Output:

Study on current level of participation of CSOs

Profile of CSOs Strategy for

Enhancing CSO Participation

 

 

Share the results with appropriate institutions through publication or forum.

This will provide more focused approaches for CSO participation in governance.

Policies that need to be enhanced or developed should be taken up with the appropriate agency Systems and mechanisms should be set in place Capacity building requirements are undertaken Advocacy strategies should be undertaken

Project 7: Development of LGU Capacity and Performance Indicators and Tracking Mechanisms in ARMM

Major Outputs:

Performance/Capacity Indicators

Instruments/Tracking System

Trainors’ Training on the use of the indicators/tracking system

Draft of MOA, Memorandum Circulars, Directives to implement the tracking system/use of the indicators

The capacity and performance indicators and the tracking mechanisms will provide the necessary tools in assessing the performance of the LGUs in ARMM.

This will help identify the capacity building interventions that may be necessary for the various LGUs in ARMM.

Upon getting the outputs, DILG-ARMM should see to it that the appropriate policies/ mechanisms are in place to implement the tracking system in the performance of the LGUs.

Project 8: Mobilization & Profiling of Local Resource Institutions; and LGU Capacity Assessment

Major Outputs:

List of LRIs to be mobilized

Capacity Assessment Framework for LRIs

LRI Profiling Capacity Assessment

Mechanism for both LRI & LGU

Strategies to help LRIs build capacities in delivering local governance programs

The capability gaps of the LRIs will be identified vis-à-vis the development and delivery requirements of the LGUs.

The project will help the LGUs to appropriately deliver local governance programs. This will be done through the capable LRIs.

Capability building measures for the LRIs are addressed

Project 9: Good Practices in Local Governance Replication Administration in Mindanao

Major Outputs:

Fund Administration Manual

Promotion of Go-Far to LGUs, Donors and LRIs

Fund Administration Knowledge

Management

 

This will initially generate interest among the different LGUs in ARMM. This will stimulate LGUs to look for best local governance practices that may be applicable to them.

This is a potentially good innovation to fund adapted best practices in the various LGUs in ARMM. This can speed up the LGU development processes in ARMM.

It is essential that the project be promoted to the LGUs and generate proposals. Simultaneously, the LRIs should also be informed on how they can assist the LGUs Donors should also be invited to participate by asking them to provide additional funds to the facility

Project 10: Strengthening the Capacity of the LGU Leagues

Major Output:

Organization of the local authorities in the ARMM as a league

This provides a mechanism to ventilate, articulate and crystallize issues affecting local administration and development in ARMM.

This contributes to a better understanding of local governance approaches thus making the local authorities more equipped in implementing their respective mandates.

 

Project 11: Strengthening the capability of DILG ARMM particularly the MLGOOs on delivery of services

Major Output:

DILG-ARMM Congress and Coaching Workshop 

This will identify the capability requirements of the DILG field personnel particularly the MLGOOs.

This will contribute to the general capability building of DILG-ARMM.

Specific activities to strengthen the capacity of the DILG field personnel to be implemented.

Project 12: Localization of MDG in Peace & Development Perspective  

Project 12a: Development of Institutional Mechanism in

 

 

 

 

 

 

 

 

Implementation strategies should be

Mainstreaming MDG 

Major Output:

MDG operations manual

Policy issuance, brochures and IEC material

Advocacy plan

 

Project 12b: MDG Orientation and Planning Workshop for Public Sector Employees 

Major Output:

MDG Orientation

Action Plan

These outputs will provide the various concerned organizations with the necessary tools that can start the localization of the MDGs 

 

The MDGs can provide the overall direction in good governance at the local level.

clearly drawn or considered in the preparation of the various outputs. This should include appropriate recommendations in gathering data for the indicators.

   

This creates the initial awareness of strategic public sector employees on the MDG

 

This contributes to the preparation of the public sector in the localization process of the MDGs.

Consider implementing the action plans generated in the workshop particularly those that looks into orienting a bigger segment of the public sector employees.

Consider also tapping this group in advocacy

campaigns for the MDG.

Project 13: Establishment of Local Networks to advocate for Global Compact

Major Output:

Global Compact Fora in 3 Key Cities in Mindanao

Local Compact Agreement with LGUs in the key cities

Local compact signatories engaged actively in adopting the principles of the Global Compact

Trainors’ trained on a) the Labor Principles of the Global Compact and b) Greening the Supply Chain

This creates the initial awareness on the principles of Global Compact and the idea of Corporate Citizenship. Concepts on what it takes to become globally competitive are inculcated in the MSME participants and the responding local government unit.

This increases private sector participation in governance. The partnership arrangements between the MSMEs and the Local Government Units can spur activities that will be beneficial not only to the local economy but to the country’s economy as well.

The linkage that will be forged by the local MSMEs and the LGUs with the big business groups should be appropriately exploited.

Project 14: Indigenous Governance Practices 

Project 14a: Mapping of Indigenous Governance Practices in Mindanao

Major Outputs:

A map of the indigenous governance practices of ethno-linguistic groups found in Mindanao

Copies of codified tribal laws

Detailed report of

 

This identifies the indigenous governance practices that have already been published so far. This will also give a good idea of the indigenous governance practices of the various ethnic groups. This understanding will guide people involved in governance in Mindanao in providing appropriate interventions.

 

These projects will contribute largely to possible reforms in the local governance system/structure.

Disseminate information to partners who might be benefited by the study.

Look further into recommendations/ findings that will provide appropriate reforms.

 

each ethno-linguistic group

Project 14b: Indigenous Governance: Dulangan-Manobo Governance Project

Major Ouputs:

Research/Study on the Manobo’s Governance

Leadership Training  

This study will provide an understanding of the extent by which the traditional governance practices have accommodated the current system and look at the tensions and issues affecting the two systems.

   

3. Findings and Observations

An immediate observation after examining the accomplishment reports is that there is an overlap in the reporting of accomplishments between components 1 and 2. For instance projects generated from and committed by LGUs and other donors as facilitated by the PDCs or PDTFs are reported in Component 2 although they really belong to Component 1. The emphases of Component 2 are institutional arrangements and processes and activities that forged and strengthened these institutional support systems.

The revised component 2 framework has in a way altered some of the outputs and indicators stipulated in the original program logframe. This was probably done to adjust to certain national political developments such as the abolition of SPCPD and the designation of the Mindanao Economic Development Coordinating Office (MEDCO) as Executing Agency. The framework is helpful in putting forward key strategies and result areas and suggested activities.

In the early part of the UN MDP implementation of Component 2 was largely done by the Area Coordinating Teams. An explanation given was that there was no Component Manager on board at that time. The current Component Manager assumed his position only in the middle of 2003. It is noticeable that the accomplishment reports from the provinces on component two have been confined to the organizing of PDA leagues and the activities of the PDTFs. The PDTF has been

sufficiently discussed in component 1 where it is stipulated as one of the performance indicators. At this point it is appropriate to discuss the PDA leagues.

3.1 On the PDA Leagues

The formation of PDA leagues is part of the revised framework for component 2. The document states:

“The PDA Leagues (Provincial) will essentially have two roles. The first will be as advocates of peace and development; and the second is as community organizer/community developer initially (and as community development provider later). Once fully capacitated, the PDA league may extend its services beyond the PDCs that they are currently operating in. They may go into partnership arrangements with the LGUs in duplicating the PDC models in other barangays. They may also enter into partnership arrangements with other NGOs or donor/funding organizations in community organizing or community development in other areas. It's potential is seen in the post-conflict areas resulting from any peace agreement or ceasefire in the current MILF conflict. The PDA league members may be in the best position to assist in post-conflict areas as they have undergone the development experiences in a similar situation.”

In the provinces visited the PDA leagues have played a major role in PDC development. In Maguindanao for instance the PDA league has taken the form of a development foundation or an NGO called the Kadtabangan Foundation. Many component projects are now being coursed through the foundation. The PDAs in the province compose the General Assembly and a Board of Directors has been elected. The staff are still on a voluntary basis at the moment.

There are pros and cons to the metamorphosis of PDA leagues into development foundations. In component 1 it was argued that PDAs could not be community organizers and PO leaders at the same time. It was further suggested that all the members of PDCs become PDAs to create a groundswell and not just nurture a select group of people. PDC community organizers should be appropriately called PDC organizers. If this is the framework then PDA leagues are not groupings of individuals rather they should be confederations or alliances of all the peoples organizations in the PDCs.

The advantage of course with PDA foundations is familiarity with the territory. They know the people in the PDCs, they understand what people in the communities have been through, and they share the dreams and aspirations of the people. There is no need for confidence building anymore between the foundation and the PDCs. It is therefore easier to undertake development interventions and activities in the PDC. The capacity of the PDA foundation can be built-up. It is just a matter of time.

The disadvantage of forming PDA foundations is that they are entering an already crowded industry. There are probably more than a hundred thousand NGOs in the country today all competing for turf and scarce resources. It may even come to a point where the PDA foundations will be competing with each other for donor funding. Sustainability is the issue of the day for all NGOs. The PDA foundations may still be in luck with the program around but when the UN MDP leaves then they shall be exposed to fierce competition. Track record, a factor all donors require, cannot be established overnight.

To borrow the expression, the question is what kind of animal is the PDA league? Or what is the real nature of PDA leagues? Is the PDA league an advocacy and lobby group? Is it a union of PDC organizers? Is it a development foundation? Is it an economic enterprise unit? If it is an advocacy

group then it has to develop muscle, particularly large numbers of peace and development cadres. If it is a union then it can have the power to negotiate with the UN MDP for allowances and stipend for all PDAs. If it is a foundation it will have to do battle in the NGO arena. If it is an entity that will engage in economic activities it would be better to take the form of a PDA cooperative. The PDAs interviewed have different answers to this question. Perhaps its true form and substance are still evolving. Perhaps the PDAs have to sit down and thoroughly think this one out.

3.2 Institutions Beyond Mindanao A striking feature of the projects launched at the component level (refer to previous table) is that the program has engaged mostly national agencies. The component 2 framework provides the rationale for it, i.e., strengthening the foundations for a lasting peace and development in Mindanao requires a broad partnership of the institutions that exist not only within it but also those that exist beyond it. Furthermore the Governance Agenda in Mindanao 2003 lists the strategies and outputs that justify the project engagements with national agencies. These strategies are:

1. Enhance capacities of academic and learning institutions in Mindanao to enable them to effectively provide knowledge and skills training, research and extension services for local governments and autonomous government units. This shall be done in partnership with national universities (UP, Ateneo, LaSalle) and learning institutes suach as the Development Academy o f the Philippines (DAP), Local Government Academy (LGA(, Philippine Judicial Academy (PHILJA), together with regional and local learning institutions in Mindanao.

2. Establish strong working relations or “twinning arrangements” between ARMM, and Mindanao LGUs with critical national government bodies such as DILG for local governance, DBM for budget and fiscal management, and the Civil Service Commission and the Office of the Ombudsman for public ethics and accountability and human resource development, Supreme Court and Department of Justice for access to justice reforms, Commission on Human Rights on right to development.

3. Engage the national and regional government agencies, league of local governments, civil society organizations and private sector in mainstreaming global initiatives (Millennium Development Goals(MDG), Global Compact, Human Rights) within the framework of peace and development.

Most, if not all, of the projects are still at the start-up stage so it is difficult to assess the impact of these projects on the institutional support mechanisms for peace and development. One can however imagine the difficulty in tracking down the effects of all these projects because they are spread out among various institutions.

In the field visits there was feedback from field implementers (PDAs, VIDAs, and NUNVs) that they had little information on what component 2 program was doing and they certainly were not aware of the project engagements with national agencies. The impression is that they have no sense of ownership over the revised framework and governance agenda of component 2. These documents were presented to them fait accompli.

The issue being raised by field implementers is the relevance and connection of the national projects to their work in the PDCs. What effect can a conference on national issues, conducted by political scientists, have on the urgent need of a PDC for potable water? Or how can the localization of Millennium Development Goals help the farmers in Cotabato and Maguindanao whose crops are being ravaged by rats and are therefore facing the specter of hunger and famine? And how can the

rights-based training and the institutional reform program in the Commission on Human Rights immediately respond to refugees fleeing their homes in search of food and safety when hostilities between the MILF and the military broke out in their community?

It can be argued, and rightly so, that the projects undertaken by component 2 with national agencies are long gestating because they deal with institutional and policy reforms and capacity building activities. Thus any benefit or direct effect by the projects on the PDCs is not going to be felt immediately.

At the very least there needs to be a leveling of expectations between national project implementers and PDC-based implementers of the program. National project proponents must be made aware of PDCs needs, activities, programs, and operations so that they can factor this in their projects. In the same way PDC-based implementers must understand the goals and objectives of the national projects so that they can provide important inputs and begin to relate the projects to concrete PDC issues and problems.

4.0 Lessons Learned and Good Practices

The Department of the Interior and Local Government (DILG) intends to replicate its successful experience in promoting good governance among LGUs in the program areas of the UN MDP especially the ARMM. In their local governance framework emphasis is placed on promoting best practices among LGUs by addressing LGU performance through the Local Governance Performance Measurement System (LGPMS) and capacity building support through Local Resource Institutions (LRIs) and civil society participation.

The project on the Development of LGU Capacity and Performance Indicators and Tracking Mechanisms in ARMM will allow the adoption and replication of the LGPMS in the different LGUs in ARMM. Hopefully this will pave the way for a more transparent, effective, responsive, and accountable system of governance in the ARMM LGUs. This effort must then be translated to responsiveness of the LGUs to the needs and projects of the PDCs. In fact the inclusion of PDC development as a performance indicator in the ARMM LGPMS is not a bad idea.

The project on Good Practices in Local Governance Replication Administration in Mindanao will likewise motivate Local Chief Executives to demonstrate good governance by providing the necessary support for a practical learning environment. The establishment of a funding facility that LGUs can tap to support their proposed good governance activities will help create an atmosphere of excellence and innovation among LGUs and at the same time ensure that their plans do not remain in the drawing board but are actually put to test.

5. Recommendations

5.1 On the PDA league

There is a need to review the concept of the PDA league. Even while the PDA leagues have already been registered and some have become foundations there is a need for the PDA leadership, the component managers, the ACT and PCST staff to get together and plan

strategically and determine the trajectory the PDA leagues will take. A good environmental scan of opportunities and threats in the NGO industry and the donor community will be required.

It is also suggested that inputs and advice be solicited from the Philippine Council for NGO Certification (PCNC). This is a regulatory and accreditation body recognized by the Department of Finance that can provide a wider framework and scenario on the state of NGO work in the Philippines. They will also be able to make practical suggestions on how to improve NGO governance and service delivery. Should the PDA leagues decide to pursue the course of establishing foundations then a PCNC accreditation would serve as a seal of good house keeping thereby giving the PDA foundations an added advantage over the other foundations.

5.2 On the National Agency Projects

As mentioned earlier there is a need to level off expectations between national project implementers and PDC-based implementers of the program. National project proponents must be made aware of PDCs needs, activities, programs, and operations so that they can factor this in their projects. In the same way PDC-based implementers must understand the goals and objectives of the national projects so that they can provide important inputs and begin to relate the projects to concrete PDC issues and problems. The component can organize meetings that will allow and facilitate the exchange of ideas between both groups of implementers.

5.3 On Local Governance and Peace Building

The projects being implemented by the DILG on local governance are at a start-up stage and are projected to spill over the June timeframe for completion of projects. In fact it might even be better to start some projects after the May elections so that a clear set of newly elected local chief executives would have been proclaimed and installed. Project orientation and planning among LGU heads can then coincide with DILG’s orientation of newly elected officials.

It is also recommended that should there be a follow up phase of component 2 in the UN MDP efforts must be made to coordinate with the Local Government Support Program (LGSP) of the Canadian International Development Agency (CIDA). LGSP shall be launching a new program phase this year that will concentrate on building local governance capacity in ARMM. This will allow the component to look for areas of complementation with LGSP and in turn maximize and focus resources on good governance for peace building. There might even be room for LGSP to program some of it's activities and resources to governance projects the will benefit the PDCs. 5.4 Priority Areas for Partnership Building and Institutional Strengthening Support

While the on-going projects supported by component 2 will most likely require a follow-up phase there are certain needs expressed by the PDCs and support institutions that can be addressed by partnership building and institutional strengthening. The following projects are suggested:

5.4.1 Mainstreaming PDCs in the Agenda of the ARMM ODA Office

Executive Order No. 125, entitled “Further Enhancing the Devolution of Powers and Functions, Programs and Projects of National Government Agencies to the Autonomous Regional Government of the Autonomous Region in Muslim Mindanao”, signed by President Arroyo in November of 2002, stipulates the creation of an ARMM ODA Office under the Office of the Regional Governor of

ARMM. The ODA office shall handle all matters relating to the accessing of ODA for ARMM programs and projects.

It would be strategic for component 2 to directly establish links with the ODA office and provide the appropriate interventions to build up the capacity of the office to identify, formulate, and package programs and projects, access ODA funds, and maintain relations with donors. This will provide an entry point for the program to introduce PDCs as a flagship program of ARMM. A selling point that can be used as leverage by the ODA office is to show that PDCs have undergone sufficient social preparation and are ready to handle livelihood, enterprise, infrastructure, and basic service projects. This will address the funding gaps for projects identified in the BDPs of PDCs.

5.4.2 Convergence Planning and Investment Programming for BDPs of PDCs

The section on the main development approach contemplated in the revised framework of component 2 talks about reviewing the plans done at various local government units and prioritizing the basic services and infrastructure and economic development components of the plan. The document further suggests holding a series of coordinative forums with civil society for possible funding assistance.

It is suggested that rather than holding coordinative forums with civil society who may not have the resources anyway, the component should support the current practice in the field to hold BDP integration workshops cum convergence planning at the municipal and provincial levels. The results of these workshops can further be advanced to investment programming workshops at the Regional Development Council levels or even National Line Agency levels. The important thing is to provide the necessary logistical, administrative, financial, and management support to see this process all the way through.

5.4.3 Mainstreaming Government Agricultural Development Support in PDCs

The PDCs are predominantly agricultural areas. The livelihoods of most members of the PDCs depend on farming and fishing. The assistance provided by component 6 is not enough to address the farm and fishery production needs of the people. It is therefore imperative to link the PDCs with the agriculture agencies of government. The Municipal Agriculture Office (MAO), being a devolved structure, might not have enough resources to respond to the problems. There are better chances of getting agricultural support if the PDC projects and programs are elevated to the provincial, regional and national levels. 5.4.4 Ensuring Security of Land Tenure in the PDCs

Mayor Sema of Cotabato City said, in an interview with him, that one of the main reasons why the MNLF went to war was because of the struggle for land. It is unclear if this issue has been addressed by any component of the UN MDP program. There is no consolidated data on the land ownership status of the people living in the PDCs. Thus there is a danger that the development efforts introduced In the PDC might go to waste if the people are driven away from their lands. This type of incidence will surely be a huge setback to the peace process.

It is proposed that the component first make an assessment of the land tenure status of the people in the PDCs. Once this has been determined and PDCs with land issues identified the component can then solicit the involvement of the appropriate line agencies concerned with land tenure such as the Department of Agrarian Reform (DAR), Department of Environment and Natural Resources

(DENR), Land Registration Authority (LRA), and the National Commission on Indigenous People (NCIP). A project can be drawn up with these agencies to ensure land rights of PDCs.

5.4.5 Revisiting Partnerships with the MNLF

The abolition of SPCPD has in some way diminished the active participation of the MNLF in the program. Although they continue to sit in the Executive Committee the level and degree of authority and involvement is lesser when compared to previous phases of the UN MDP. Mayor Sema has even commented that the partnership seems not to exist anymore.

Perhaps it is important to touch base again with the MNLF leadership and evaluate the quality of their participation in the program. A successor program to MDP3 can be an opportunity to level off on expectations for partnership agreements and would be a good time to design an effective MNLF participation mechanism. The program has to remember that they were the primary partner at the beginning of the UN MDP and the basic institutional pillar on which the peace agreement rested.

Annex 4

Component 3: Special Relief and Rehabilitation

1. Context and Methodology

The Special Emergency Response and Relief component of MDP-3 addresses the need to mitigate the effects of armed conflict and other disasters, with special attention to the displaced civilian population. Component 3 assists key national government agencies (NGAs), non-government organizations (NGOs), and local government units (LGUs) in responding effectively to emergencies, at the same time engages in capacity building for special emergency response and relief. The component operates in both PDC and non-PDC areas that are affected by armed conflicts but are “development ready”, and in PDCs that are coping with the arduous demands of hosting displaced civilian population.8

The Component has three major objectives, namely: (a) to provide displaced families with emergency relief and rehabilitation packages of goods and services, (b) to provide basic services within the evacuation centers and communities under rehabilitation such as water, sanitation, and temporary shelter, educational materials, and makeshift classrooms as identified in the Strategic Action Plan (SAP) or the Program for Immediate Relief and Short Term Rehabilitation or Conflict – Affected Areas in Mindanao, and (c) to strengthen the capacities of key institutions such as the Local Disaster Coordinating Councils (LDCCs) in the areas of management and coordination; implementation of relief programmes (especially for LGUs, NGOs, and PDCs); and coordination and support (for area Disaster Coordinating Council, and regional Disaster Coordinating Council).9

In addition, the Component would also assist in catalyzing communication between the LDCCs and NGOs to achieve coordinated response to a humanitarian emergency. It will also address the strengthening of linkages among disaster coordinating councils at all levels, and make the PDCs where community-based emergency response mechanism have strengthened to serve as models.10

The method used for evaluating the performance of Component 3 consists of the review of documents related to the activities of the Component; interview of the officials of DSWD, and focused group discussion. The review of documents, FGDs and KIIs focused on determining the actual accomplishments of Component 3 compared to its targets.

The first three columns of Component 3 logframe provide the starting point of the evaluation of the its performance11. Table 1 below presents the relevant portions of Component 3’s logframe.

Table 1. Component 3 lograme (first three columns)

Project Description Key Performance Indicators Means of VerificationProject Objective 1:

8 GOP-UN/MDP, Strengthening the Foundations of Lasting Peace and Development in Southern Philippines, Third Phase, January 16, 2001, p. 119 Ibid., p. 11. The SAP covers a total package estimated at PhP 417.3 million as approved by the Mindanao Coordinating Council (MCC) on 11 September 2000. This presented by NEDA, Head and Secretariat of the Technical Committee of MCC to donors on 11 October 2000. See footnote of GOP-UN/MDP Phase 3 Programme Document, p. 11.10 Ibid., p. 1111 GoP-UN/MDP, Strengthening the Foundations of Lasting Peace and Development in Southern Philippines, Third Phase (Project Document), January 16, 2004. Annex II. Component 3 Logframe.

Emergency response: To mitigate the effects of armed conflict, with particular attention to the displacement of civilian population.

Regular coordination meeting.

Community by PDCs when responding to an emergency, as per standard sectoral indicators.

Management information systems (minutes, reports, gaps, matrix, etc.)

PDC structured and responsibilities allocated.

Planned Output 1.1:Displaced families and evacuees provided with emergency packages of goods and services.

Activities: Preparation and

distribution of emergency package of interventions to displaced families and evacuees.

Food rations per person per week.

Non-food packs per person per week

Health status and supplies adequate

Availability of play and learning materials

Self management by evacuees (community mobilization)

Situation reports Monitoring reports (DOH,

DSWD, NGO) Site monitoring visits Rapid field assessments

(household surveys, nutritional surveys)

Planned Output 1.2:Provision of basic services within the evacuation centres, e.g. water, sanitation, and temporary shelter.

Activities: Planning and construction

of water and sanitation systems

Planning and construction of temporary shelter

Subcontracting of contractors

Procurement of equipment and materials.

Liters of water per person per day

Number of families per latrine.

Number of families with adequate shelter/population density

Site monitoring visits Rapid field assessments

(household surveys, nutritional surveys)

Project Objective 2:Capacity building: To improve response to an emergency resulting from forced displacement through enhancing the capacities of organizations to:

Manage and coordinate (LGUs)

Implement relief programmes (LGUs, NGOs, PDCs)

Coordinate and support (Area DCC, Regional DCC)

Evidence of functioning LGU emergency coordination systems

Emergency response mechanism among LGUs. LDCCs, NGOs, PDCs and frontline workers established.

Understanding of NDCC calamity fund system

LGU contingency plans existing

Emergency staff “roster” Procedures and guidelines

for emergency responses formulated and utilized.

Planned Output 2.1:Level expectations, strengthen interagency coordination and validate training modules.

Agreement on consistent policies and approaches

Workshop reports Validated training module

Activities: Workshop form

management level DCC staff, senior UN/NGO staff

Planned Output 2.2:Training of trainers to enhance capacity of LGU disaster coordinating bodies and frontline workers in responding to emergencies.

Activities: Training of trainers Echo training of LDCCs,

NGOs, and PDCs in disaster-preparedness, management coordination, implementation and networking

Echo training of frontline workers in physical and psycho-social interventions to assess evacuees.

Number and categories of individuals trained

Number of health workers, social workers, teachers, and workers equipped with adequate skills for providing physical and psycho-social interventions to victims.

Provincial/municipal disaster reports

Rapid appraisal reports Training reports.

Source: GoP-UN/MDP, Strengthening the Foundations of Lasting Peace and Development in Southern Philippines, Third Phase (Project Document), January 16, 2004. Annex II. Component 3 Logframe.

It was observed that some modifications of the Component logframe took place during implementation. These modifications included specific quantification of target outputs, and the provision of shelters to evacuees at certain designated settlement areas. These shelters do not anymore carry the classification as temporary.

2. Major Findings on Component’s Performance

Component 3 has an estimated budgetary allocation of US$ 2,198,826 under MDP3 and an estimated expenditure from June 2001 to December 2003 of US$ 1,538,907.12 Component 3 has the highest allocation, accounting for 26% of the total budget of MDP3, a far second is Component 4 with 16% of the total programme budget. The expenditure of Component 3 is also the highest among the 8 components of the programme.

The are a number of factors that may have contributed to high allocation of Component 3. These factors include: (a) the in increase in the number of IDPs a result of the all-out war policy against the MILF during the Estrada administration which has a significant spill-over during the MDP3 period; (b) the intermittent encounter between the Philippine military and the MILF during MDP3 resulted to further increases in IDPs, and third, the limited resources of the LGUs and the national government to meet the needs of the IDPs over long period of time. It is therefore ironic that total actual expenditure of Components 5 and 6 which are directly concerned with increasing family income and the standard of living of beneficiaries are less than two-thirds of the total actual expenditure of Component 3 during the period June 2001 to December 2003.13

12 See Component 8 Evaluation Report table 7.13 See Component 8 Evaluation Report table 7.

Below are outputs of Component 3 by major category.

Provision of emergency packages of goods and services to displaced families and evacuees.

Component 3 has consistently surpassed its planned targets on the delivery of emergency packages of goods and services to displaced families and evacuees. Table 2 below presents the performance of Component 3 on the provision of emergency packages of goods and services for 2003.

Table 2. Target and actual delivery of packages of goods and services to displaced families and evacuees

Objective Target Output Actual OutputProvision of emergency packages of good and services to displaced families and evacuees

12,500 families provided with food/ non-food essential packages

1,222 children availed supplemental feeding

3 psychosocial sessions

medical –dental services

37,803 families provided with relief packages in 4 provinces: Cotabato, Sultan Kudarat, Maguindanao, Lanao del Norte.

9,340 children availed supplemental feeding in 2 provinces: Cotabato (Pikit, Tupi, Tulunan, Pres. Roxas) and Maguindanao (Pagalongan, Pagagawan)

3 psychosocial sessions in 3 rehabilitation sites of Maguindanao conducted to 1,176 children.

1,393 evacuees availed of medical services; 209 availed of dental services and 56 availed of circumcision services in the province of Cotabato and Maguindanao.

3 emergency medical clinics established in evacuation centers of Pikit, Cotabato.

Source: Component 3, Special Emergency Response, Relief and Rehabilitation, Annual Report 2003, GOP-UN/MDP Phase 3

Provision of basic services within evacuation centers

In addition to goods and services, Component 3 also provided basic services within the evacuation centers. These services include water supply; sanitary toilets, and livelihood projects. Table 3 presents the performance of the Component on this objective.

Table 3. Target and actual delivery of basic services to evacuation centers

Objective Target Output Actual OutputProvision of basic services within evacuation centers

78 units of core shelters with sanitary toilets.

588 units of core shelters constructed in 4 provinces: 212 for year 2003 Cotabato (Alamada, 25); Maguindanao (Buluan 133); Sultan Kudarat (Esperanza, 54) and Lanao del Norte.

103 sanitary toilets constructed

12 units of water supply systems installed.

12 livelihood projects.

213 units of sanitary toilets constructed in 2 provinces: Cotabato and Lanao del Norte.

12 units of water supply systems installed in 3 provinces: Sultan Kudarat, Cotabato, and Lanao del Norte.

19 livelihood projects established in Sultan Kudarat; Cotabato; South Cotabato; Lanao del Norte; Maguindanao and Cotabato City.

Source: Component 3, Special Emergency Response, Relief and Rehabilitation, Annual Report 2003, GOP-UN/MDP Phase 3

Capacity building: Improving response to emergency through enhancement of capacities of organizations

Component 3 works with NGOs, LGUs and other organizations to provide an effective response to emergency situations. In order to do this, it facilitates the upgrading of organizational capacities through training, networking and forging partnership agreements government and non-government bodies. Table 4 presents performance of Component 3 in these activities.

Table 4. Target output and actual performance on capacity building of government and non-government organizations

Objectives Target Output Actual OutputLevel expectations, strengthen interagency coordination and validate training modules.

Training of trainers to enhance capacity of LGU disaster coordinating bodies and frontline workers in responding to emergencies

Meetings, coordination mechanism an field monitoring

25 training of trainers conducted for disaster coordinating bodies.

30 partnership agreements were made to support project implementation an strengthen coordination with various partners.

7 training of trainers conducted for disaster coordinating bodies and 244 humanitarian workers from partner organizations trained on international standards of implementing human assistance.

9 local disaster coordinating bodies of 6 provinces (Lanao del Sur; Lanao del Norte; South Cotabato; Cotabato; Sarangani, Sultan Kudarat), 2 cities (General Santos, and Marawi), and the Municipality of Pikit trained on Disaster Preparedness and Management.

10 communities in Cotabato, Sultan Kudarat, Maguindanao, and the PDAs trained and applied their learning on disaster management and preparedness.

Source: Component 3, Special Emergency Response, Relief and Rehabilitation, Annual Report 2003, GOP-UN/MDP Phase 3

Interviews with key informants revealed the Component 3 of MDP-3 has established extensive partnership with NGAs; LGUs; NGOs, and the military in planning and implementing responses to emergency situations and at the same time providing rehabilitation services to the displaced populations. Thus, ARMM DSWD was very appreciative of the assistance given by MDP-3 Component 3 to the IDPs of ARMM.

While those interviewed appreciated the activities of Component 3, they also reported that the resources are never enough to meet the needs of the IDPs. It is the contention of DSWD ARMM, for example, that Component 3 and DSWD served only those that are in evacuation centers. They observed that those who went to the evacuation centers are only a portion of the total IDPs.

It is also observed that Component 3, once it engages into rehabilitative activities, provides services that generally belong to other components, Thus, the livelihood services provided by Component 3 should, by the terms of reference of MDP-3, belong to Components 5 and 6. This overlap could be easily avoided if there is a joint planning among the Components of MDP-3 to provide an integrated response to the rehabilitation aspects of Component 3. An inadequate integrated response to the needs of IDPs appeared to be a major concern in the third quarter Accomplishment Report of Central Mindanao ACTSOG. Thus, in the lessons learned/insights section, it stated that “MDP3 is like an orchestra with many conductors and sang in different tunes and styles all at the same time.” 14 The constraints/major issues and concerns section of same report also observed, among others, that the “Low delivery rate of MDP3 due to perceived lack of realistic operational guidelines for coordination, implementation and monitoring/ evaluation mechanism”; “Translation of coordination set-up at the provincial level between and among Components is vague”, and “Proper project monitoring is difficult when there is no clear monitoring tool.”15

3. Lessons Learned and Good Practices

It is the conclusion of this evaluation that much of the success of Component 3 in responding to the needs of the IDPs is its ability to network and organize both government and non-government bodies into a cohesive group, and to effectively combine their resources to meet their common objectives. The cohesion of Component 3 and these government and non-government bodies covers all facets of relief and rehabilitation, i.e. from planning to implementation and operation. Thus, towards the end of February 2004, Component 3 was one of the organizers of a strategic planning workshop participated by the representatives of the LGUs, local and international NGOs, and the military at Kidapawan City to formulate a detailed response to emergency situation that may arise from a possible major armed conflict between the government and the MILF in Cotabato. The lessons learned and good practices under Component 3 may be presented as follows.

Networking and partnership with NGAs, LGUs, NGOs and the Military

The main reason why Component 3 has been able to extend its reach and be able to serve a great number of IDPs is the strong partnership and networking it has established with the NGAs, LGUs, NGOs, and the Military. This partnership enabled the organizations engaged in emergency response to maximize the utilization of their resources.

The establishment of the Mindanao Emergency Response Network (MERN) a network of local and international non-government organizations in Mindanao which “pursue an effective, efficient, timely

14 Central Mindanao ACTSOG, 3rd Quarter Accomplishment Report, GoP-UN/MDP3, September 8, 2008.15 Ibid., Central Mindanao ACTSOG, 3rd Quarter Accomplishment Report.

and appropriate emergency humanitarian assistance and services, while seeking durable solutions to displacements” is due to the capability building and partnership building of Component 3.

Advanced planning for disaster or emergency preparedness

Component 3 has been a major player in formulating action plan to meet an emergency situation. The connection of Component 3 to the LGUs, the Military and other organizations enabled it to know in advance of any major encounter between the military and armed groups. Since more less advanced knowledge of these impending encounters also include the possible areas that might be affected, the action plan formulated includes the amount of supplies needed, the storage points and the location of evacuation centers.

High percentage of fund allotment for direct services

Component provides a good example of fund utilization. For CY 2003, direct cost accounts for 75% of total allotment of PhP 19,983,696.26, while administrative cost accounts for only 5% of the total allotment.

Lack of integrated component planning for rehabilitative activities

Although the provision of good and services in emergency situations may belong entirely to Component 3, the provision of rehabilitative services which include livelihood may be provided by Components 5 and 6 especially if the evacuation or settlement area is located in a PDC. Indications from the field and feedback from the manager of Component 3, however, show that this kind of inter-component collaboration is inadequate.

4. Recommendations and Follow-up Actions

In general, Component 3 has been performing well. It appears however that it is basically operating as a stand alone component. This does not provide a good image to the programme since clearly, a greater impact could be generated if other components could provide assistance also to the IDPs in the form of complementary projects. This is especially true in the case of livelihood projects where Components 5 and 6 could clearly come in as partners of Component 3. Similarly, an evacuation center full of evacuees or a new settlement of IDPs may need the services provided by Components 1 and 2, in addition of Components 5 and 6.

Component 3 has facilitated the establishment of organization, e.g. MERN and has strengthened networks related to emergency response in Mindanao. It is important that this organization and networks be sustained. One way of doing this might be to include the LGUs in both the network and the organization.

Whatever the success of Component 3, however, it is still a Component that is necessary only because of the abnormality introduced by conflict and post-conflict situation. The higher the budget of Component 3 therefore indicates the instability of the peace situation. The ultimate success of the GoP-UN/MDP is indicated when there is no need for Component 3.

Annex 5

Component 4 – Reproductive Health

1. Background

This component was originally designed to provide a basic health, nutrition and reproductive health package for the PDCs, as a joint project of the UNICEF and the UNFPA. This component was designed to expand the access of targeted PDCs to adequate, quality basic information and services in health including reproductive health and family planning, nutrition, water and sanitation as well as education and social protection for children and other vulnerable groups. The package was to include, among others, the promotion of Child-Friendly schools and the organization of Local Councils for the Protection of Children (LCPC). However, before the final project documents could be signed, UNICEF opted not to be part of the Program.

UNICEF cited the following reasons for this decision:A. UNICEF is already contributing to the peace and development in Mindanao. In fact, the projects

of UNICEF converge with MDP in some provinces. UNICEF and MDP projects however do not converge in some sites. UN/MDP-3 approach of implementing projects does not converge with UNICEF

approach. UNICEF implements projects via LGU or NGA. UNICEF has no experience working with MNLF. The standard on fund accountability not easily satisfied by MDP-3.

B. There are some unresolved issues regarding programme management, such as the question of overhead.

C. Lack of experience in working with joint programming.D. Concerns on the fund raising policy of UNICEFE. Retention of identity of agency.

Eventually, the project was modified to accommodate this new development, and to link Component 4 with the 5fth UNFPA Country Programme and shift the focus on reproductive health.

1.2 The UNFPA 5th Country Programme

The United Nations Population Fund (UNFPA) is currently implementing its 5 th Country Programme of Assistance to the Government of the Philippines for the period 2000-2004. the country Programme goal is “to have contributed to the improvement in the quality of life of all Filipinos through: a) better reproductive health; b) attainment of population outcomes that are in harmony with available resources; and c) reduction of poverty and inequalities in human development opportunities”. There are three subprogrammes: reproductive health, population and development strategies, and advocacy. The main government partner agencies are the Department of Health for reproductive health, and the Commission on Population (POPCOM) for PDS and advocacy. Six non-government organizations are implementing innovative projects in adolescent reproductive health (ARH).

The reproductive health subprogramme’s purposes are to have contributed to the increased utilization of:

A. Integrated and quality reproductive health services by women, men and adolescents; andB. Gender-sensitive RH information, knowledge and counseling services to bring about behavioral

changes towards health reproductive and sexual practices.

1.3 Linkage between the RH Component of MDP3 and the 5th UNFPA Country Programme

The RH component represents one of the basic services to be provided under Component 4 of the MDP 3. This component aims to contribute to the Government’s Poverty Reduction Strategy as spelled out in the Medium-Term Philippine Development Plan of 2001-2004 by increasing access to adequate, quality basic information and services in reproductive health through a convergence approach.

The RH package primarily consists of information, education, counseling and services for four basic elements of reproductive health: family planning, maternal health, prevention and management of STDs/RTIs/HIV/AIDS, and adolescent reproductive health. The essential elements of this package are: training and fellowships for Programme managers, service providers and volunteers; development and production of IEC/advocacy materials and conduct of IEC/advocacy activities; provision of medical equipment and supplies; construction and renovation of BHSs, operations research, and community-based initiatives. The Commission on Population (POPCOM) was the Programme’s partner agency in charge of the IEC and advocacy.

Component 5 aims to contribute to the improvement of the quality of life in 100 PDCs through better reproductive health. Specifically, it aims to have increased the utilization of integrated and quality reproductive health services by women, men and adolescents in the PDCs, and the provision of gender-sensitive RH information, knowledge and counseling services to bring about behavioral changes regarding healthy reproductive and sexual practices. The 100 PDCs are broken down as follows: 10 PDCs each in the UNFPA-assisted provinces of Maguindanao, Sultan Kudarat and Cotabato; 15 PDCs in the UNFPA-expansion areas of DOH-ARMM; 15 PDCs in the UNFPA-expansion provinces and cities of Region XII, and 40 PDCs in the UNFPA areas of Regions IX, X and XI, covered by the MHDO. The project classified the PDCs as “RH-able” based on the following criteria: 1) with more than 100 households; 2) with regular health personnel, specifically a Midwife; 3) with a “supportive” LGU; 4) accessible; and 5) with poor RH condition.

There are three types of packages similar to each other, differing only in the range of goods and services covered, and in the areas served. Package 1 was designed for the three UNFPA provinces of Sultan Kudarat, Maguindanao and Cotabato provinces; Package 2 for the UNFPA-expansion areas in Regions XII and ARMM, and Package 3 for the other SZOPAD areas of Regions IX, X and XI.

GOP-UN-MDP3 RH COMPONENTPackages of Assistance

Package A(UNFPA Areas)

Package B(UNFPA Expansion Areas-Region XII and ARMM)

Package C(UNFPA Expansion of other SZOPAD Areas)

11. RH Baseline/Final Survey 1.RH Baseline/Final Survey 1. RH Baseline/Final Survey

2. Trainings/Fellowshipsa. RH Training for Service Providers (RHMs)

2. Traininga. Training of Trainers on RH

2. Traininga. Training of Trainers on RH

b. RH Training for BHWsc. RH Training for TBAsd. CO-CBM for BHWse. RH Training for Advocatesf. Mussawarah for MRLsg. Special Training Coursesh. RH Orientation Seminar for LCEs and PDC Leaders i. Fellowships/Study Tour

b. RH Training for Service providers (MDs,PHNs,RHMs)c. RH Training for BHWsd. RH Training for TBAse. CO-CBM for BHWsf. RH Training for Advocatesg. Mussawarah for MRLsh. Orientation Seminar for LCEs and PDC Leaders

b. RH Training for Service providers (MDs,PHNs,RHMs)c. RH Training for BHWsd. RH Training fro TBAse. Mussawarah for MRLsf. Orientation Seminar for LCEs and PDC Leaders

3. IEC/Advocacy Activitiesa. Production/reproduction of IEC materialsb. Search for Outstanding PDC BHWc. Sharing of Best Practicesd. Other IEC activities planned at the PDC – organization of women’s, men’s and adolescents’ groups

3. IEC/Advocacy Activitiesa. Reproduction of IEC materialsb. Search for outstanding PDC BHWc. Sharing of Best Practicesd. Other IEC activities planned at the PDC- organization of women’s, men’s and adolescents’ groups

3. IEC/Advocacy Activitiesa. Reproduction of IEC materialsb. Other IEC activities planned at the PDC

4. Provision of medical equipment and supplies

4. Provision of medical equipment and supplies

4. Provision of medical kits and supplies

5. Construction and renovation of BHS

5. Construction and renovation of BHS

6. Community-based Initiatives

2. Planned Project Outputs:

The project has four planned outputs:

Planned Output 1: Provision of quality RH services at the PDC level for: family planning, maternal health care, prevention and management of RTIs/STDs/HIV/AIDS and adolescent reproductive health.

This is to be attained through the conduct of an RH Baseline Survey, consisting of a needs and capacities assessment through PDC visits and consultations. This will include mapping of the barangay population, and masterlisting of all women, men and adolescents including MRLs in the PDC. This also includes the construction/ renovation of fifty (50) BHSs in the provinces of Cotabato, Maguindanao and Sultan Kudarat, and in the UNFPA expansion areas of ARMM and Region XII. This also includes the provision of medical supplies and equipment for constructed and existing BHSs.

Planned Output 2: Technical capacity of service providers and community volunteers backstopping these PDCs enhanced for the provision of RH information and services

Output 2 shall be attained through the conduct of orientation sessions and basic training on RH and advocacy. This also includes fellowships, local and international study tours for selected participants, and training on integrating RH in the conduct of the Islamic sermons or homilies for MRLs.

Planned Output 3: Improved awareness and knowledge among women, men and adolescents of the PDCs on RH issues and concerns

The RH survey will provide baseline data on the knowledge, attitudes and practices of women, men and adolescents in the PDCs regarding RH issues and concerns. Based on the survey results, IEC/advocacy needs will be identified, and the communication plan, including key messages will be formulated. The plan will guide the development, production and distribution of RH IEC advocacy materials and the conduct of IEC/advocacy activities.

Planned Output 4: Enhanced institutional capacity in the planning, implementation management, monitoring and evaluation of RH programs and IEC/advocacy activities at the PDC level

This output will be achieved through the following: a) setting up of the project structures; b) orientation of the LGUs, Programme managers and staff about RH and about the project; c) conduct of strategic and operational planning; d) development of systems and procedures; and e) conduct of monitoring and evaluation and process documentation.

Objectively Verifiable Indicators: a) Infant Mortality Rate reduced by 10% by 2004 b) Maternal Mortality Rate decreased by 10% by 2004c) Contraceptive Prevalence Rate for modern methods increased by 20% by 2004d) Increased percentage of births attended by trained personnel by 2004e) 50% of obstetric complications treated in referral facilitiesf) 10% reduction in the prevalence of common STDs by 2004g) 20% increase in the attendance by male and adolescents in health facilities for

reproductive health

A total of US$3,586,505. 00 was earmarked for this component.

3. Component Performance

Project Goal: to have contributed in improving the quality of life in 100 PDCs through better reproductive health

Performance Indicators: Infant Mortality Rate reduced by 10% by 2004 Maternal Mortality Rate reduced by 10% by 2004

Actual Accomplishments

The achievement of the component’s goals is not measurable at this point because of the short period of implementation. Most of the activities and outputs have been delivered, but their effects are not yet evident. The indicators are not yet valid since the statistics on the maternal mortality and infant mortality rates for 2004 will only be available only by mid-2005. It is imperative to look beyond the construction of nutrition posts, and to look for normal body weights among majority of the PDC’s children from 0-6 years old. It is vital to look beyond the number of traditional birth attendants

(TBAs, or “hilots”) trained, and to look for a significant reduction in maternal and infant deaths, especially those due to aseptic deliveries.

Planned Output 1: Provision of Quality RH services at PDC level

Performance Indicators:In UNFPA areas”

At least 100% of midwives, 80% of BHWs and TBAs providing RH service at PDC level according to standards

At least 90% of clients are satisfied with services provided At least 90% of BHS in PDCs providing the following RH services as a package

in accordance with approved standards:a) five (5) reversible modern family planning methodsb) Maternal and Child Health and assisted deliveryc) prevention and management of Reproductive Tract Infections/Sexually Transmitted Diseases, and prevention of HIV/AIDSd) Information, education and counseling in Reproductive Health

In UNFPA Expansion areas: At least 80% of MDs, PHNs and RHMs and 50% of BHWs and TBAs are able to

provide RH services at PDC level according to approved standards At least 90% of clients are satisfied with services At least 20% of BHS in PDCs are providing RH services as a package according

to approved standards

Actual Performance

The component’s annual report for 2003 states that in the UNFPA areas, 63% of the PDCs in areas with BHS are able to provide maternal health care services and counseling. The standard of services and information provided is yet to be determined through a Quality of Care (QoC) survey which has yet to be conducted.

To date, six of the ten BHSs completed so far were constructed via the “Bayanihan Training Scheme” of the Programme. This involves the construction of BHSs by construction workers trained under Component 5. Six more BHSs are currently under construction, and fifteen (15) more are still to be bidded out.

The Project’s 2003 Annual Report stated that out of 100 PDCs, 71 have BHSs, of which ten were constructed by MDP3. It is further reported that in preparation for the installation of the Community-based management Information System (CBMIS), computers and accessories have been delivered to twenty-two provinces and cities covered by the project. The equipment are situated in the Provincial Health Office.

Planned Output 2: Technical capacity of service providers and community volunteers backstopping these PDCs enhanced for the provision of RH information and services

Performance Indicators:For UNFPa areas:

at least 100% of doctors, nurses and midwives are able to provide counseling and basic RH services in PDCs in accordance with approved standardsActual Performance

at least 80% of BHWs and TBAs providing quality services according to standards

For expansion areas: at least 50% of doctors, 80% of PHNs and RHMs are to provide counseling and

RH services (FP,MHC, STD/HIV/AIDS and ARH) at the PDC level according to approved standards

at least 70% of BHWs and TBAs providing quality services according to standards

As targeted, one hundred percent (100%) of BHWs and TBAs are reported to be able to provide counseling and referral on FP, Maternal Health and related topics. However, the levels of awareness and knowledge of these target groups regarding RH are yet to be evaluated through a KAP (Knowledge, Attitudes and Practices) Assessment, which has not been undertaken as of December 2003.

Aside from the training courses, seven (7) Programme Coordinators of the DOH were sent to Indonesia to attend a Training Course on Family Planning for Muslim Countries, eight to Thailand for a similar course, and one to Egypt to consult and collaborate with the Grand Mufti of Egypt regarding the Islamic Policy on Reproductive Health.

Operations research and case writing were not accomplished at all.

Planned Output 3: Improved awareness and knowledge among women, men and children of the PDCs on RH issues and concerns

For UNFPA and expansion areas: at least 80% of women, men and adolescents in UNFPA areas and 50% in

UNFPA-expansion areas able to identify the following:- at least three modern methods of FP- at least three signs and symptoms of pregnancy- at least three modes of transmission of STD/HIV/AIDS- service outlets providing counseling and management of RH- gender issues in RH such as male and female sexual responsibility

at least 60% of women, men and adolescents in UNFPA areas and 20% in UNFPA Extension Areas able to discuss the following:

- at least three modern methods of FP, its advantages and disadvantages

- at least three signs and symptoms of pregnancy and its complications- at least three modes of transmission and three modes of prevention of

STD/HIV/AIDS- RH services provided by midwives and/or health facilities- Gender issues in RH

Actual Performance

Among the acknowledged major obstacles to reproductive health initiatives in the Muslim areas are the widely differing stands of various Muslim religious leaders (MRLs) regarding family planning and contraceptive use. Some MRLs say the use of artificial contraceptives is taboo in Islam, while a

number of MRLs dispute this. The project insisted on conducting orientation workshops and training session for imams, ulamas, alimas and other Muslim Religious Leaders in order to encourage discussion about and to ensure a common understanding of RH and its acceptance/non-acceptance in the practice of Islam. This was done to ensure that the MRLs would endorse or advocate for RH practices in their sermons or homilies to the Muslim faithful. The project assisted in the drafting of a “fatwah” (official Islamic policy) regarding reproductive health, which has been authorized by the Grand Mufti of Egypt, and likewise assisted in the organization of convocation of MRLs to be held on March 10, 2004 to formally announce and launch the official Islamic “fatwah” (Policy) on Reproductive Health. A module on RH in the Islamic context has been drafted by the Project, and a Training of Trainers has been implemented for MRLs.

According to the Component 4 Annual Report for 2003, from 2002 to 2003, a total of ninety-three (93) MRLs have been trained on RH. MRLs who participated in the Mussawarah have been mobilized as speakers and facilitators in organizing activities at the PDCs. Twenty Muslim Solemnizing Officers were trained on the RH aspects of Pre-Marriage Counseling.

Planned Output 4: Enhanced institutional capacity in planning, implementation, management, monitoring and evaluation of RH programmes and IEC advocacy activities at the PDC level

Performance IndicatorsUNFPA and Expansion areas:

100% of PDCs able to plan, implement and integrate RH into development plans

Actual Performance

As of December 2003, a total of ninety-three (93) PDCs out of 100 had been able to organize RH Teams. There are no data as to the number of plans that have been integrated into barangay development plans.

Gaps and Challenges

The component is heavily focused on training. Some of the courses may not be necessary since most, if not all, government physicians, BHWs and RHMs have been trained on RH through the DOH’s many training courses. Different projects in the past have built-in training on RH. Most of the DOH staff is highly trained. Some trainees reported having undergone the same training several years before. ASec. Nemesio Gako of the Mindanao Health Development Office said that a probable reason for this could be that because workplan targets a specific number of participants to the training courses, some participants could have been made to undergo the training, even if they had been previously trained on the same topic. According to Dr. Gako, another probable reason for this is that previously-trained participants opt to join the courses again in the hope that updates or new information and technology will be introduced.

Some key informants said that a training course for Traditional Birth Attendants was held, but there were not enough TBA kits for all the participants.

No baseline survey was undertaken at the start of the project, so that it is difficult to measure the component’s gains.

The monitoring activities and tools are inadequate to generate information at purpose, goal and outcome levels of the component logframe. For example, there are no provisions for client

satisfaction surveys to determine the achievement of Planned Output 1, and other qualitative indicators.

3. Lessons Learned/Good Practices

The support of LGUs, particularly in the provision of facilities and medical supplies is necessary to sustain the gains of RH interventions at the PDCs;

The participation of health service providers, community health volunteers and Muslim Religious Leaders in planning, implementation, monitoring g and evaluation is critical in the delivery of quality RH services and information;

Indigenous and audience-specific IEC and advocacy campaigns are effective strategies to achieve behavioral changes among men, women and adolescents, and to generate support from community and political leaders for RH.

Sufficient time must be allotted for social preparation, since this may shorten the community development process in the end.

Good governance must be recognized and reinforced so that continued cooperation of stakeholders is encouraged.

4. Recommendations/ Follow-up actions

The component is loaded with training activities. According to some key informants, some of them had attended DOH-sponsored training courses on the same topics. A comprehensive Training Needs Analysis must be done to serve as the basis for the development of a more rational training plan for the target audience, and in order to maximize resources.

A mechanism for sustainability must be developed and applied. For example, the Botica sa Barangay could become the supply point for contraceptives in the PDCs. IN the forthcoming years, contraceptives will no longer be distributed free of charge, so it is imperative that community members are prepared to accept the idea of paying for contraceptives. Botica sa Barangay operators must be taught means of assuring sustainability of supplies, and to maintain a market-driven inventory; e.g., the most popular form of contraceptives should form the bulk of the inventory.

The next phase of the project must focus on developing the consciousness of PDCs regarding their responsibility for the facilities and services delivered by the project. PDCs should aspire for their BHSs to meet the standards of Sentrong Sigla, and to build capabilities of LGUs to sustain the Sentrong Sigla. A mechanism to sustain the Barangay Health Station must be developed. The concept of Community ownership (the BHS is owned by the community, not by the Programme or UNFPA). This is also to ensure maintenance and security of equipment and facilities, as the community’s counterpart. Some BHSs may be under-utilized due to lack of health personnel (especially the Midwife), or due to a very small population. The ideal BHW: population ratio of 1:340 must be one of the considerations for constructing BHSs. It is not enough to construct health facilities, their use must be maximized.

A minimal user’s fee may be collected, in cash or in kind, to cover maintenance expenses and at least partially recover expenses for medical supplies and medicines. This is to minimize the dole-out mentality, and to introduce gradually the concept of the cost of health care.

The documentation of products, processes, learnings and good/best practices is vital– because of the pioneering nature of the Programme. The documents may be in the form of manuals, casebooks, guidebooks, journals, etc.

Separate models must be developed for service delivery to hard to reach areas, and for those areas without RH facilities. A different set of approaches and strategies may be required to address the needs pf these communities.

Coordination with other agencies assisting the DOH must be done to ensure that there is no duplication and overlapping of activities and areas of coverage.

The Programme must have a single database for all the components, (data about the PDCs) if possible, to ensure uniformity of data, and to minimize duplication of data-gathering activities and baseline surveys.

References

Human Resource Development Programme on Leadership and Governance for MNLF/SPCPD. “Annual Programme Report”, Undated.

SPCPD-NEDA-UN Multi-donor Assistance Programme. “Terminal Report July 1998 to September 2000”. Undated

SPCPD-UN-NEDA. “Taking the Initiative. Terminal report on the APDPD-UN-NEDA Programme: FACT-Finding/Needs Assessment and Pilot Emergency Assistance for the Development of Basic Social Services, Livelihood and Job Creation for MNLF Soldiers and their Families”, Undated

NEDA, SPCPD, and UN/UNDP. “Strengthening the Foundations of Lasting Peace and Development in Southern Philippines (Third Phase of the GoP-UN/Multi-Donor Programme)”. Project Document. January 2001.

Oquist, Paul. “Mindanao and Beyond: Competing Policies, Protracted Peace Process and Human Security”. Fifth Assessment Mission Report for the Multi-Donor Programme. October 2002.

GoP-UN Multi-Donor Programme Phase 3. “Component 4: Reproductive Health”, Undated

GoP-UN Multi-Donor Programme Phase 3. “June-December 2001 Annual Report”. Undated.

GoP-UN Multi-Donor Programme Phase 3. “2002 Annual Report”. Undated.

GoP-UN Multi-Donor Programme Phase 3. “2002 2nd Quarter Report”. Undated.

GoP-UN Multi-Donor Programme Phase 3. “2003 1st Quarter Accomplishment Report”. Undated.

GoP-UN Multi-Donor Programme Phase 3. “2003 3rd Quarter Report”. Undated.

Provincial Government of Cotabato. “GoP-UN Multi-Donor Programme 3: Accomplishment Report and Expenditures as of 17 November 2003”. 2003.

Central Mindanao Area Coordination and Special Operations Group. “GoP-UN Multi-Donor Programme Phase 3 Accomplishment Report Third Quarter 2002”, Undated

Area Coordination Teams. “Accomplishment Reports Third Quarter July-September 2002”, Undated

Annex 6

Component 5: Project on Community Enterprise and Entrepreneurship Development in Non-Farm Sectors (PROCEED)

1. Background

The objective of this component is to increase income from livelihood opportunities and gainful employment of beneficiaries through community enterprises and development of entrepreneurship in on-farm sectors. In order to achieve this, the project aims to expand self-employment and wage employment opportunities. Three thousand six hundred (3,600) poor beneficiaries will receive training in non-farm skills and income generation. Three hundred of the beneficiaries are from tribal communities, and will receive training in skills necessary from wage employment through TESDA.

It will strengthen the capacity of PDCs in managing their own viable and functioning community-level enterprises/systems by offering assistance in community enterprise organization such as: cooperatives, rural workers associations and others. When an enterprise reaches the threshold where its assets are in excess of One Million Philippine Pesos, assistance in the form of linkages with the corporate/private sector will be provided through the UNIDO-supported Mindanao Business Council Support to Small and Medium Enterprises project. Through bayanihan training, enterprise centers will be established and collectively owned. Management capability assistance will be offered to new enterprises, as well as increased access to community-based and formal financial schemes. Formal linkages with the private/corporate sector through joint-venture arrangements will also be forged. A harmonized approach for developing cpommunity0based savings and micro-credit schemes for both agriculture and no-agriculture enterprises will be installed. Improved access to formal credit sources will be facilitated.

The project will endeavor to re-orient the career choices of youth toward vocational trades and entrepreneurship through vocational prep and enterprise literacy VPEL). This is intended to prevent out-of-school youth from seeking recruitment into the armed conflict, and expand their occupational horizons.

The project will enhance partnerships and the capabilities of partner agencies, government and NGOs through training and participation. Best practices and case studies will be documented, and management systems and methodologies will be manualized to institutionalize lessons learned.

Forty-seven viable community enterprises were organized in the first phase of the program. These enterprises will continue to be assisted until they become self-sustaining enterprises. Under the third phase, activities will be expanded to other PDCs. Training workshops will be established where in-house training at the community level will be conducted together with existing government implementing agencies in the area such as TESDA, DOLE and DTI.

Goals1. to increase the income of non-farm livelihood communities

2. to provide technical assistance through community-based training, community enterprise organization and development, partnership with partners and stakeholders

Project Objectivesa. to strengthen capacity for self-employment and wage employment in non-farm

economic activities in the PDCsb. to strengthen the capacity of PDCs in managing their own viable and functioning

community-level enterprise and community enterprise systemc. to re-orient career choices of out-of-school youth to vocational trades and

entrepreneurship through vocational preparation and enterprise literacy (VPEL)d. to enhance partnerships and capabilities of partner agencies, government agencies,

and non-government agencies through training and participation, and through documentation of best practices and case studies, and the manualization of management systems.

The project started officially in May 8, 2001, but the ILO staff were contracted only in May 8, 2003. Before ILO came in as technical agency, only three persons staffed the Component: one Component Manager, one Administrative Assistant and one Driver. By May 2003, three specialists were contracted, with one of them serving as Component manager.

2. Financial Performance

A total of USP3,353,070.00 was earmarked for this component. As of February 2004, only about P16M has been spent. The component manager reports that “while $ 3,353,070.00 was earmarked per your report, our records show that the donor country, Spain, only committed 900,000.00 euro for the three year operation of the project. But the initial funds released to the project is only 600,000.00 euro which is equivalent to $539,790.00. UNDP and ILO are still negotiating for the possible release of the remaining committed funds in the amount of 300,000.00 euro”16.

3. Accomplishments

It is difficult at this point to look for outcomes and impacts that the project (PROCEED, or Component 5) has had on the PDCs, since it has had less than a year of full implementation. Enterprises need several business or production cycles before success indicators can be evident. Another reason is that very little baseline data were gathered at the start of the project. Project documents indicate goals related to increasing incomes in the PDCs, but since most of the PDCs are at the training and business planning phase, no real individual or community incomes may yet be evident. Measuring impact at the enterprise level through quantitative measures like cost-benefit analysis and sales turnover growth are not possible since many of the enterprises are still on the initial stages or first cycle of production. For the same reason, qualitative measures such as job satisfaction and career development are not feasible means of measurement at this stage. Qualitative support of the indices could later be presented as case studies.

The tested ILO and TESDA models of Training cum production and Community-based Training and Enterprise Development (CBTED) are effective vehicles for enterprise training and development. The processes used are participatory, with the community identifying for themselves the enterprises that would best suit their area and the skills and resources available thereat.

16 According to Component Manager Kali Dimalen, March 25,2004.

After training, the DOLE assists the workers in registering themselves in the database of Rural Workers’ Associations so that they are in list of skilled workers available in the municipality. Hand tools and equipment awarded are after the training, with lessons on maintenance, care and simple repair of the equipment. The DOLE also assists the groups in managing the associations.

Initial success is evident in some PDCs. The Project has provided opportunities for self-employment and outside employment through skills training and toolsFor example, the Tuyan Farmers and Fishermen Multipurpose Cooperative was provided with training and basic equipment for hollow-block making. The cooperative now supplies the sand, gravel and hollow block requirements of a school building being constructed in the PDC.

One promising enterprise group is the Lote Bangsamoro Women’s Multipurpose Cooperative. The members of this cooperative in Lote, Calumpang, Gen. Santos City, were trained on bakeshop operation and given a starter set of equipment. The members’ capital build-up was used as operating capital. Eventually, income from the bakeshop was used to expand operations to include a consumer store, and the management of the “purok” water system. The Co-Fund system was introduced recently to provide micro lending services to the cooperative’s members.

Enterprise development is a very effective peace- and trust-building. The level of technical assistance required will vary from enterprise to enterprise, and from PDC to PDC, and some enterprises are slow-gestating, while some are fast-growing.

Bayanihan Training Scheme

The Bayanihan Training Scheme has been introduced and successfully implemented at least six times. This is a collaboration between Components 4 and 5. Component 5 takes the lead in training several PDC members on various construction skills like carpentry, steelworks, plumbing, electrical works, etc. The practical or “on the job” portion of the training involves the construction of a Barangay Health Station in their PDC, through Component 4. While the approach is useful, the new trainees need to be linked further to other contracted jobs beyond the components. Further linkages with other components may also be explored. There is a forthcoming tie-up with Component 1 for a set of C-5 trainees to be tapped for the repair of some school buildings.

The Co-Fund System The Project initiated the adoption of a micro finance scheme known as Community Fund. The Co-Fund system is a non-interest capital assistance (Riba-free) with a profit and loss sharing and without fixed payment schedule for short-term business ventures. The system adheres to the indigenous practices and religious tenets of Islam. In Maguindanao, the Federation of United Mindanawan Bangsamoro Women Multi-Purpose Cooperative (FUMBMWMPC) serves as the conduit of the Co-Fund system. The system was also integrated in the Tora-tora Bangsamoro Women’s Auxiliary Multipurpose Cooperative in PDC Bakong, Simunul.

Gaps and Challenges

The project’s slow start affected its subsequent activities. No baseline survey was conducted, so it is difficult to measure outcomes and impacts.

The component manager claims that coordination with TESDA is one of PROCEED’s strengths. He cites that a Planning Meeting was held with TESDA-Manila executives, TESDA Regional staff,

together with ILO and project staff; Mr. Dimalen reports that subsequent workshops have also been held, with TESDA staff in attendance. However, the partner agencies like the DTI and TESDA report that coordination with them agencies is slow, and that there is a general lack of them. Partner agencies claim that they are merely informed just before or even after activities have been conducted, and sometimes they are informed only about the tasks they have been assigned. They also learn only of the project’s progress through the Accomplishment Reports that are furnished them. The partner agencies expressed their willingness to be involved in more aspects of project management, especially in planning and monitoring.

It is possible this is the result of unclear expectations regarding the level of involvement, coordination and communication among the partner agencies at the field level (Agency Focal Persons) and the project personnel (component and ACTs).

Some people in the PDCs were not able to avail of the training courses because they were not informed about it, or because the radio announcements and flyers were in English. Some partners, who said that the information drive was not very effective, confirmed this.

Planning is program-centered and there is little flexibility in terms of the plans. The project is very strongly identified as a project of the ILO and not as a joint program, MDP-3 or as a project of the Philippine government. This was repeatedly observed in the various PDCs visited.

4. Lessons Learned and Good Practices

It is best to work with existing structures in the PDC. New groups are sometimes organized in the PDCs in order to accommodate a new project, but this is often composed of the same persons. This usually results to confusion and lukewarm participation.

When the community members and LGU officials are involved in the initial stages of planning and project development in their PDC, their participation and commitment are more likely. Framework for partnership must be very clear from the start so that all persons/agencies concerned understand their commitments and responsibilities.

The selection of the head of the enterprise is crucial. Successful enterprises are usually those led by individuals with a marked entrepreneurial spirit, or entrepreneurial competencies. They are usually the ones who are able to spot opportunities faster, and who are not afraid to take risks. However, a lack of entrepreneurial competencies should not deter an individual from going into entrepreneurship, since this need may be addressed by training.

5. Recommendations/ Follow-up actions

The project must be continued to ensure the economic development of the PDCs. The Agencia Espanol de Cooperacion Internacional (AECI) reports that a third tranche of funds is still forthcoming from the Spanish government for Component 5. The ILO has expressed the agency’s willingness to extend and expand the project.

Transition Phase

Should this project be extended, a lean interim or transition plan must be prepared and put in place to ensure the continuity of enterprise activities. This is to ensure that support is not withheld from new and gestating enterprises. Some of these enterprises are “time-sensitive” (e.g. the best time to collect for the co-fund is during harvest time or before Ramadan; the biggest sales/orders are expected during religious holidays), and technical assistance may be required at this point. Existing businesses must be evaluated for the next level of technical assistance that they may require.

Documentation

It is highly recommended that a documentation of lessons learned be made, to guide future activities and similar engagements. This must take into consideration the lessons learned, and the best practices from the first three phases of implementation.

Institutional Arrangements

To minimize/eliminate conflicts in perception and expectations, the roles and functions of each partner agency must be clarified and mutually agreed upon. This should cover aspects like level of effort, level of coordination expected, reporting and communication channels, etc. These agreed-on roles and functions must be jointly assessed periodically to determine the arrangement’s relevance to the changing needs of the Programme.

References

Technical Education and Skills Development Authority. “Community-based Training for Enterprise Development Methodology Manual”, Undated

SPCPD-NEDA-UN Multi-donor Assistance Programme. “Terminal Report July 1998 to September 2000”. Undated

SPCPD-UN-NEDA. “Taking the Initiative. Terminal report on the APDPD-UN-NEDA Programme: FACT-Finding/Needs Assessment and Pilot Emergency Assistance for the Development of Basic Social Services, Livelihood and Job Creation for MNLF Soldiers and their Families”, Undated

NEDA, SPCPD, and UN/UNDP. “Strengthening the Foundations of Lasting Peace and Development in Southern Philippines (Third Phase of the GoP-UN/Multi-Donor Programme)”. Project Document. January 2001.

Oquist, Paul. “Mindanao and Beyond: Competing Policies, Protracted Peace Process and Human Security”. Fifth Assessment Mission Report for the Multi-Donor Programme. October 2002.

GoP-UN Multi-Donor Programme Phase 3. “Component 4: Reproductive Health”, Undated

GoP-UN Multi-Donor Programme Phase 3. “June-December 2001 Annual Report”. Undated.

GoP-UN Multi-Donor Programme Phase 3. “2002 Annual Report”. Undated.

GoP-UN Multi-Donor Programme Phase 3. “2002 2nd Quarter Report”. Undated.

GoP-UN Multi-Donor Programme Phase 3. “2003 1st Quarter Accomplishment Report”. Undated.

GoP-UN Multi-Donor Programme Phase 3. “2003 3rd Quarter Report”. Undated.

Provincial Government of Cotabato. “GoP-UN Multi-Donor Programme 3: Accomplishment Report and Expenditures as of 17 November 2003”. 2003.

Central Mindanao Area Coordination and Special Operations Group. “GoP-UN Multi-Donor Programme Phase 3 Accomplishment Report Third Quarter 2002”, Undated

Area Coordination Teams. “Accomplishment Reports Third Quarter July-September 2002”, Undated

Annex 7

Component 6: Sustainable Livelihood (Agriculture, Forestry, and Fishery) Development Programme for PDCs

1. Context and Methodology

The Sustainable Livelihood and Development Programme for the Peace and Development Communities (PDCs) or Component 6 is one of the eight components of Phase III of the GOP-UN Multi-donor Programme directly concerned with increasing the incomes of the beneficiaries and the PDCs as a whole. The Component covers the agriculture, forestry and fishery sectors. The interventions contained in Component 6 include strengthening of agricultural communities/cooperatives and local institutions; effective delivery of extension services, and the provision of agricultural inputs and production technologies.17

Phase III was undertaken within the framework of the Philippine Government’s commitment to pursue the following:18

Full implementation of the 1996 GRP-MNLF FPA. The 1996 Peace Agreement provided for a 3-year transitional period that technically ended in September 1999, followed by the establishment of a new autonomous government to be determined by a plebiscite. The transition period has been extended until May 2001, to spearhead the integration, synchronization and acceleration of implementation of peace and development programs and projects in the SZOPAD (EO 288).

Socio-economic Development of SZOPAD. Pursuant to the provisions of the 1996 GRP-MNLF FPA, an Integrated Development Framework for SZOPAD was prepared in 1997 by the Special Development Planning Task Group led by NEDA Regional Office XII. The IDF, adopted by the Executive Council of SPCPD, envisioned the socio-economic development of the area. The IDF included the strategies of (1) refocusing government programmes for reconciliation and integration of soldiers and displaced people, into mainstream society, and (2) pursuing an integrated human development programme focused on the provision of basic services. The extent of implementation of the IDF is currently being assessed under the AUSAID-assisted Project for Strengthening Program Coordination, Monitoring and Evaluation System for Peace and Development Initiatives in SZOPAD of NEDA Regional Office XII.

Relief –Rehabilitation and Sustained Peace and Development in Mindanao. As Head and Secretariat of the Technical Committee of the Mindanao Coordinating Council, NEDA, in September 2002, completed the preparation of the Strategic Action Plan (SAP) or Program for Immediate Relief and Short-Term Rehabilitation of Conflict Affected Areas in Mindanao. With the assistance from the UN System, NEDA is also coordinating the formulation of the Updated Mindanao Plan which shall have two components, a Framework for Sustained Peace and Development in Mindanao and a Revised Mindanao Investment Program. These outputs shall guide investment decisions for relief, rehabilitation and sustained peace and development in Mindanao.

17 GOP-UN Multi-Donor Programme, Strengthening the Foundations of Lasting Peace and Development in Southern Philippines, PH/01/001, January 16, 2001, p. 1418 GOP-UN Multi-Donor Programme, Strengthening the Foundations of Lasting Peace and Development in Southern Philippines, PH/01/001, January 16, 2001, pp. 2-3

The UN with its vast experience in peace and development programmes could bring international expertise to bear upon the Philippines’ efforts at reconciliation and reconstruction. As an inter-governmental organization, the UN could provide the neutrality that is important to balancing the perspectives of both the government and the contending parties.19

The method used in the assessment of the outcome of Component 6 is dictated by the limited time given to the Evaluation Team. The method used was a combination of focus group discussions (with PDAs/VIDAs, NUNVs, Local Government Officials, and Officers and members of PDCs), key informant interviews (religious leaders, governors and mayors, and experts from the academe), site visits and interviews, and programme and component reports/documents. The selection of the PDCs to visit was left to the PCST and ACTs. Besides of accessibility of the PDCs to be visited, the only request of the Evaluation Team is that those PDCs should be at various stages of development.

The list of focus group discussion participants, key informants, and PDCs visited are presented in Annex 10 of this report.

2. Objectives and Outputs

The goal of Component 6 is to increase incomes in agriculture related sectors. It will give support to livelihood projects where there is a clear value added to the agricultural products of the beneficiaries.20 The means by which Component 6 goal is attained is by strengthening the capacity of “agricultural communities/cooperatives and local institutions, including the LGUs to provide effective and efficient delivery of extension services on the propagation of sustainable agriculture management and natural resources conservation and protection”.21

Strengthening the capacity of agricultural communities/cooperatives and local institutions targeted (a) 1,500 farm workers, including women, to be trained in sustainable agricultural practices including: environmental impact assessment, bio-diversity conservation, forest resource management, coastal and inland water management; (b) training of 560 eco-volunteers; (c) organization of eco-brigades in 70 PDCs and (d) strengthen newly formed linkages between LGUs, farm leaders and NGOs to improve extension services.22

Component 6 adopted crop diversification and the provision of agricultural inputs and technologies to enhance farm production. Towards this end, 560 farmer-managed demonstration cum seed farms, nursery and fish fry and multiplication farms will be identified and established to serve as technology transfer models. In addition, selected PDCs will receive seeds, planting materials, and other inputs including grains seeds, poultry, livestock, fish cages, fish farms and farm tools. The overriding framework for all economic activities is sustainable agricultural practices. This will be complemented with the implementation of community-based resource management projects in selected environmentally-at-risk areas, particularly in coastal, upland and forested areas. Protected areas of watershed will be preserved.

The Component will have the capabilities of farmers’ organizations/cooperatives to become effective and efficient conduits of production, marketing, credit and community based agro-processing. It will facilitate linkages among agricultural community/cooperatives, business enterprises and financial/credit institutions, and provide savings and micro-credit schemes indirectly 19 Ibid, p. 320 Ibid. p. 1421 Ibid., p.1422 Ibid., p. 14

through links with PDCs and NGOs that are capable of providing training on the subject, as well as, to financial intermediaries which facilitate credit arrangements.23

Also included in Component 6 are activities that promote conservation, regeneration and protection of natural resources. Select PDCs will have bio-diversity conservation and environmental protection programmes.24

The concept of sustainable livelihood carries with it the participatory approach and community-based implementation.25

3. Component Outcome and Output Indicators

The project document listed five outcomes from the component, namely: (a) increased farm and family income, (b) increased agri-related income generating activity among women, (c) reduced illegal and indiscriminate logging, (d) reduced soil erosion, and (e) reduced coastal and inland water pollution.

Additional component outcomes identified and which are considered vital toward the overall goal of the project are: (a) improved food security; (b) increased employment or a decrease in the number of unemployed people, and (c) increased community members participation in community activities indicative of a more cohesive community.

In view of the institutional effect of training and group activities attendant to the implementation of Component 6, it might be also appropriate to include (a) improved operations of the PDCs with respect to facilitating livelihood activities, (b) improved multi-ethnic and social relationship among the community members, and (c) declined or absence of conflict in the community or presence of an active and effective conflict management mechanism in the community.

Table 1 presents the first three columns the logframe of Component 6 as contained in the GoP-UN/MDP3 project document.

Table 1. Logframe of Component 6 (first 3 columns)

Narrative Summary Performance Indicators/ Objectively Verifiable Indicators

Means of Verification

Project Objective:To strengthen capacity of agricultural communities/ co-operatives and local institutions (including LGUs) to provide effective and efficient delivery of extension services on propagation of sustainable agriculture management and natural resource

Increased farm and family income

Increased agri-related income generating activity among women

Reduced illegal and indiscriminate logging; reduced soil erosion; reduced coastal and inland water pollution

Benchmark and annual sample agro-economic survey of farmers and fishermen.

23 Ibid., p. 1424 Ibid., p. 1425 Ibid., p. 14

conservation/ protection. Planned Output 1:Training of farm leaders: 1,500 farmers including women trained on sustainable agricultural practices.

Activities: Assess training needs

and/or subjects Selection of farmer

leaders and other participants

Training for selected participants/ communities on sustainable agricultural practices, environmental impact assessment, biodiversity conservation, forest resource management, and coastal and inland water resource management.

Conduct off and on site training

Conduct cross visits to successful farms

Extension kits distributed

Seedlings for reforestation and fish restocking materials distributed.

560 farmer leaders trained as para- technicians

560 Eco-volunteers trained

Eco-brigades in 70 PDCs organized.

Programme monitoring and evaluation reports

Planned Output 2:Extension services strengthened by links between LGUs, farm leaders, NGOs

Activities: Identify participants Select participants Conduct training of

trainers

70 regular extension workers from LGUs identified and trained.

Programme monitoring and evaluation reports

Planned Output 3:

To enhance production through crop diversification, and provision of agricultural inputs and production options in PDCs

Crop diversified to include: vegetables, fruit trees, and other cash crops.

Selected PDCs adopt multiple cropping schemes

Programme monitoring and evaluation reports

Planned Output 4:560 farmer-managed demonstrations cum seed, nursery, fish fry and/or multiplication farms identified and established and established as models of technology transfer.

Activities: Assessment of current

production and marketing practices in selected PDCs

Site identification for demo farms

Site identification for seed multiplication farms

Site identification for aqua-culture sites

Skills upgrading

Increase in crop yield/ hectare by 15% over prevailing yields

Increase in family income relative to livestock and aqua-culture activities

Farmer organization reports, programme monitoring and evaluation reports, co-operative monitoring reports.

Planned Output 5:Selected PDCs will receive initial seeds, planting materials, and other inputs through established seed farms and other inputs stores distributed including: grains, poultry, livestock, fish cages, fish ponds, farms tools

Activities: Identify PDcs Identify recipient

families Distribution of farm

inputs

Number of hectares of lowland, upland, hilly farms cultivated and established for 14,000 families

Fish cages culture and seaweed farms established for number of families

Livestock herd upgraded and disbursed for families

Farmer organization reports, programme monitoring and evaluation reports, co-operative monitoring reports

Planned Output 6:Protected areas with broad community-based support established in selected/ pilot areas

Activities: Broad-based

community consultations on selection of protected areas

Training in sloping agricultural land technology (SALT)

Number of hectares of watershed set aside for protection

Number of farmers trained in SALT

Programme monitoring and evaluation report

Planned Outputs 7:Market linkages and partnership agreements between agricultural communities/cooperatives, business enterprises, and credit/financial institutions

Activities: Assess products from

community cooperatives /enterprises of PDCs

Produced Directrory of Agri-based commodities buyers and suppliers

Identify potential and actual buyers and suppliers

Conduct feasibility studies

Training on leadership skills, organizational management, cooperative formation, entrepreneurial competency, gender awareness and development (GAD)

Number of farmers and/ or women’s organizations classified as community-based organizations (CBOs) formed and strengthened

Number of primary cooperatives strengthened and/ or registered with the Cooperative Development Authority (CDA)

Number of income generating projects (IGPs) established, special priority on women’s projects

IGPs gain access to credit

Individual Farmers Organization reports, project monitoring and evaluation

Cooperative monitoring report

Project monitoring and evaluation

Source: GoP-UN/MDP, Strengthening the Foundation of Lasting Peace and Development in Southern Philippines, Phase 3, January 16, 2001, Annex II: Project Component 6.4. Output Performance

Data/information related to the output performance of Component 6 appeared to be satisfactory, indicating that activities conducted and inputs provided to beneficiaries were diligently monitored

and recorded.

Reports on the performance of Component 6 are available annually, and by province. This evaluation uses the Annual Report of Component 6 for 2001, 2002 and 2003 as the main source of information for the component output performance. Because target outputs are generally specified in the project logframe, the assessment will use this as the starting point. It is noted that there had been some changes made on the logframe in the project document of January 2001 and that used by Component 6 Annual Report of 2003. Unfortunately, the changes made on the original logframe made Component 6 activity/input-focused rather than outcome-focused or even output-focused.

The period from September 17, 2001 to February 22, 2002 was reported as the period covered by the Annual Report of 2001 for Component 6 Phase 3. The starting date coincides with the date Component 6 became operational officially in spite of the fact that the Third Phase of GOP-UN Multi-donor Programme officially started in June 2001.26

The last four months of 2001 were reported to have been devoted to purely preparatory activities, including the establishment of link to LGU officials and MNLF State Chairmen; consultation with PDCs and PDC needs assessment and validation; formulation of implementing guidelines in consultation with stakeholders, and acceptance and preliminary screening of project proposals on sustainable livelihood from organized groups from several PDCs in Maguindanao Province. Tables 17, 19 and 19 present the summary of accomplishments for 2001, 2002 and 2003.

The result of performance as activity/input-focused is observed in Tables 17 to 19. Basically what can be seen is that inputs have been delivered to farmer beneficiaries or a set of activities have been conducted. In other words, Tables 17 to 19 do not present what are usually considered as outputs, e.g. increased production, increased employment, etc., as a result of activities conducted or inputs delivered. Obviously, Component 6 assumed that once those inputs were delivered or activities were conducted, farm outputs will increase and farmer beneficiaries’ income will also increase.

Similarly, although the number of famer-beneficiaries assisted is a good indicator of the coverage of an activity or activities, it would have been helpful if the areas of rice land and corn land covered by the project are also indicated. The inclusion of this indicator could provide additional information on the extent of assistance provided to farmers and facilitates the estimation of total production of the assisted area.

Promotion of diversified farming and increasing the awareness of beneficiaries on bio-diversity preservation and environmental protection are important activities conducted by Component 6. It would have been more helpful however if the Component could the number of farmers who practiced diversified farming as a result of the promotion activities and the number of hectares devoted to diversified farming in the PDCs covered by the intervention. A similar improvement is welcomed on bio-diversity preservation and environmental protection. This is so because increased awareness do not necessarily translate to actual practice.

There is no argument against the identified protected or environmentally at-risk areas. The question that may be posed however is, what could the Component do after these areas were identified or what could a PDC do to protect those identified environmentally at-risk areas. This is not to question the capability of the Component or the PDC. What the Evaluation Team would like to point out is that a more doable activity such as reforestation of a near by watershed or tree

26 Leonora P. Manero, Component 6, Sustainable Livelihood, CY 2001 Year-end Report.

planting project on a designated community forest area, or planting of trees alone the banks of rivers/creeks may be more appropriate as activities. These activities could also result to outputs that the community can easily relate and appreciate. The same is also true if the environmental protection activities are focused on community waste management.

Tables 17 to 19 show that Component 6 has accomplished a lot. The Evaluation Team however believes that improvements should be made on the successor phase to make the Component more outcome or at least output-focused.

Table 2. GOP-UN Multi-donor Programme, Phase 3, Summary of Accomplishments, September 17, 2001 to February 22, 2002

Activity Accomplishment1. Briefing and consultation of officially declared

PDCs on sustainable development

2. Pre-implementation briefing on sustainable livelihood component of MDP3 for provincial agriculturists; veterinarians, and municipal agriculturists of LGUs that are hosts to PDCs.

3. Formulated the Implementing Guidelines for Sustainable Livelihood in Consultation with participants to the Pre-implementation briefing.

4. Prepared format/guide to preparation of single project proposal to be used by community-based organization within the target PDCs.

5. Prepared criteria for evaluating project proposals for sustainable livelihood assistance in consultation with experts in project review/evaluation.

6. Organization of Project Evaluation Committee by area composed of representatives from SPCPD/MNLF, NEDA, LGU, FAO, and ACT.

7. Review and evaluation of project proposals

8. Conduct of skills training course on extension approaches and methods in coordination with ATI-RTC in Region XII

9. Prepared training designs on cooperative management with emphasis on Micro-credit Management, Bookkeeping, and another on

43 out of 67 PDCs

33 participants from Central and Southern Mindanao44 participants from Western Mindanao

1 Guidelines for Sustainable Livelihood completed.

1 Format/Guide to Preparation of a Single Project Proposal completed.

1 Criteria for Evaluating Project Proposal completed.

Evaluation committee(s) organized.

15 from Western Mindanao24 from Central Mindanao(All proposals were found out to be subject to improvement)

Participants were:5 NUNVs13 Peace and Development Advocates

1 Training design for Micro-credit Management, Bookkeeping and Record

Sustainable Agriculture.

10. Established linkage with LGUs from where target PDCs are located for implementation and convergence of services and assistance.

11. Data gathering on agricultural input traders/suppliers from Regions XII, IX and ARMM.

Keeping completed.1 Training design fro Sustainable Agriculture completed.

Linkage established (Inquire if there is a MOA or MOU)

Data collected.

Fourth Quarter Budget of Component 6Actual ExpenditureRate of Utilization

PhP 5,191,050.00PhP 596,439.59

11.49%

It is noted that the reported accomplishment of Component 6 during the fourth quarter of 2001 is considerable. What may be considered as requiring attention to Project Management is the low rate of fund utilization registered by the Component during the period reported.

The accomplishments of Component 6 for CY 2002 as contained in the Component Manager Annual Report are presented in Table 3.

Table 3. Sustainable Agri-based Livelihood Programme, Summary of Accomplishments, CY 2002

Logframe Ourput Target Output Actual Output1. Increased farm income from various agricultural activities

Selection and priori-tization of 12 PDCs (initially) to be covered: 4 PDCs per area (during the 3rd quarter the target was increased to 16 PDCs

Support/assist a minimum of 12 sustainable livelihood project proposals in 16 PDCs.

Acceptance, review and evaluation of at least 16 sustainable livelihood proposals; 1 per priority PDC.

18 PDCs were selected as priority PDCs for Sustainable Agri-based Livelihood assistance as per recommendation of the 3 ACTs to wit:

ACT-CM = 5 ACT-SM = 5 ACT-WM = 8 Assisted a total of 23

sustainable livelihood projects; 21 PDC-based organized groups’ live-lihood projects and 2 ACT/Component-complement vegetable production projects. Provided direct livelihood assistance to 19 PDCs.

Accepted, reviewed and evaluated a total of 72

project proposals (from various PDCs) in one year. Only 36 were recommended for revalidation and assistance. Of the 36, the number assisted during the year were 21, while 15 more were slated for revalidation and approval on the first quarter of 2003