Enhancing Local Governance Participation: The PDI Experience in LGU-NGO Partnership, by Aurea G. Miclat-Teves

8/14/2019 Enhancing Local Governance Participation: The PDI Experience in LGU-NGO Partnership, by Aurea G. Miclat-Teves

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ENHANCING LOCAL GOVERNANCE PARTICIPATION:THE PDI EXPERIENCE IN LGU-NGO PARTNERSHIP

Aurea G. Miclat-TevesProject Development Institute44 Segundo Street, Heroes Hill

Quezon City

I. Introduction

The Project Development Institute was established in 1989 with the vision ofbuildingself reliant communities through peoples initiatives.

It is committed to the pursuit of genuine land reform and rural development of peasantsand indigenous peoples. The strength of PDI lies in its participatory approach not onlytoward development programming but also in transforming these development initiativesat the ground level into policy for advocacy at the regional and national levels. Its

strength also lies in its negotiating strategy that obliges the government to provide landand other resources as well as resolve issues in favor of the peasants and indigenouspeople.

PDI has been active in the marginal areas of Central Luzon and Northern Palawan.Gains have been achieved in empowering the marginalized people in the countryside bytransforming landless peasants to small-owner cultivators, and turning the indigenouspeoples into successful claimants of their ancestral domain and actively participating inlocal governance.

The vision of PDI provides a guide for a people-centered approach to genuine and

sustainable development anchored on good local governance. We adhere to the followingprinciples:

The primacy of developing the full human potentialin which people are atthe core of development initiatives.

Holistic science and appropriate technology. The search for solutions inthe complex milieu of development problems has to be undertaken with theperspective that situates specic problems in the larger social and ecologicalcontext. This approach facilitates the use of sustainable agriculture andappropriate technology.

Cultural, moral and spiritual sensitivitythat nurtures the inherent strengths oflocal and indigenous knowledge, practices, and beliefs while respecting the culturaldiversity, moral norms and spiritual essence of Filipino society.

Self-determination that respects the right of the people to decide on the courseof their own development and relying on the inherent capacity to achieve this.

Gender sensitivitythat recognizes the importance and complementary roles andthe empowerment of both men and women in development.


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Institutional viabilitythat acknowledges that sustainable development isa shared, collective and indivisible responsibility which calls for institutionalstructures that are build around the spirit of solidarity, convergence andpartnership between and among different stakeholders.

Ecological soundness that upholds nature as our common heritage and thusrespecting the limited carrying capacity and integrity in the development processto ensure the right of present and future generations to this heritage.

These principles guide PDI in its mission to institute partnerships with peoplesorganizations, NGOs, local government units and the private sector in land reform andrural development. They are built upon a community-based approach to management ofland and resources recognizing and encouraging the participation of communities in thedevelopment process and seek to address the full needs of the peasant and indigenouspeople in PDIs areas of work. They aim to develop the full human potential of peasantsand IPs. However, sustainable human development cannot be achieved withoutresponsible governance.

The Integrated Participatory Development Programming (IPDP): PDIsDevelopment Framework

The IPDP framework is being used by PDI in all its development initiatives. It aims todevelop grassroots-oriented Integrated Area Development Plans, which will detail andprioritize the necessary intervention projects appropriate to specic communities. TheIPDP has three main components: community development planning, area managementand review and assessment.

The IPDP is participatory. Development planning is undertaken through a participatorydevelopment process. This process allows the people to discuss freely their problems,

their present condition as well as nding ways to overcome any predicament.

The IPDP is integrated. It integrates the various sectors involved in development. It allowsthe various sectors to come and work together for sustainable human development, includinghealth services, education, agrarian reform, agriculture, etc. These sectors complement eachother toward achieving the development vision and goals of the community.

The IPDP is sustainable. The activities of the IPDP are planned according to thecapabilities of the people.

It is adaptable because it is easy to use and can be applied as an effective planning tool by anysector of society. The IPDP is an adequate and suitable development approach or strategy thatcomprehensively addresses the needs of the people. (Full text of the IPDP is found in Annex I)

Based on the environmental scanning and problem-focused group discussion (throughthe IPDP) conducted by PDI in Central Luzon and Northern Palawan in the mid-nineties,the key issues and problems that concern the peasant and IP communities are asfollows: weak POs or unorganized peasants; lack of leadership capacities and skills,especially in engaging and negotiating with the government; they lack skills to engageothers in discourse or push their agenda; but their basic problem is their lack of landand other resources for a decent human existence.


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Dening the problems and issues provided avenues for PDI to recommend solutions withthe following objectives:

1. To strengthen the capabilities of peasants and IPs and peoples organizations in landreform and rural development initiatives, particularly in enhancing PO management skills.

2. To provide a package of services in project development and related areas to furtherstrengthen their organizations, upgrade skills, and broaden their service coverage.

3. To develop community-based Comprehensive Development Programs using

participatory methods in pursuit of genuine land reform.4. To conscientize other sectors of society, especially intellectuals and professionals to

participate in the process of realizing genuine land reform and rural development.

II. Laying down the foundation: Enhancing the participation in GoodGovernance through institutional capacity building of PO leaders

PDI has realized that in order for the communities to achieve self-reliance, the peasants andindigenous people should rst have the capacity to initiate and lead the community, engage

other sectors of society to push for their agenda and institute change at the community level.

PDI rst capacitated them through organizing, training and education at thegrassroots level. PDI utilizes development approaches such as participatory planning,integrated area development, training and education for people empowerment ininstitution building and formed organizations committed to the pursuit of genuine landreform and rural development.

By December 2006, PDI already had established three regional federations: NMGLfor farmers (founded in 2001), BUKAL for Indigenous people (founded in 2004) andPASAMAKA-L for rural women (founded in 2003). Within the three regional formations

are 103 peoples organizations with a membership of 9,689. Of this total 4,339 (44.7%)are men, 5,164 (53.2%) are women, and 186 (1.9%) are youth.

Table 1PDI-NMGL PO Building

November 2004-November 2006

ProvinceNumber of

POsLevel/Scope

Members

Men Women Youth Total

Pampanga 6 Barangay Level 62 93 0 155

Tarlac 7 Barangay Level 24 177 0 201

Aurora 9 Barangay Level 118 248 39 405Bataan 12 Barangay Level 580 387 54 1,021

Bulacan 9 Municipal Level 197 228 0 425

Nueva Ecija 23 Barangay Level 110 364 0 474

Zambales 291 Municipal, 28Barangay Level

1,021 986 0 2,007

Palawan 81 Municipal, 7Barangay

2,227 2,681 93 5,001

Total 1032 Municipal, 101Barangay

4,339(44.7%)

5,164(53.2%)

186(1.9%)

9,689


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To empower communities it is imperative to establish strong autonomous peasants, IPsand womens organizations that are able to take up sectoral and community concernswith government bodies. They are now capacitated to claim and exercise their right tobe heard and to inuence local government processes and decisions.

III. Enabling the peasants and indigenous people for multi-stakeholderpartnership and participatory governance: Penetration of Local Government

Bodies

The continuous expansion of community-level POs has increased the capacity of thePDI-NMGL/BUKAL/PASAMAKA-L alliances to strengthen local governance participation bypenetrating local bodies. Organizational activities and mobilizations generally get theattention of local authorities and the general public thus increasing the inuence of POs.They serve as primary force in the peasants and IPs advocacy and claim-making inagrarian reform and ancestral domain struggles.

At the local level, a PDI area management team and its partner POs meet weekly

to assess, solve and dene solutions to problems at the municipal level. Provincialrepresentatives meet at the regional level twice monthly and the federation ofcialsmeet monthly at the national level to discuss the progress of work, nd solutions toproblems that require the intervention of PDI and schedule and monitor program ofactivities. The active participation of PO groups enhances the accountability and sense ofresponsibility of the PO member.

PDI and its partner POs pursue rural development through partnerships and allianceswith peoples organizations and sectoral groups such as farmers, women-IP and youthgroups, the local government units, and government line agencies.

Table 2Peasant Organization Building

As of June 2007

ProvinceNumber of

POsLevel/Scope

Aurora 9 Barangay Level

Bataan 12 Barangay Level

Bulacan 9 Municipal Level

Nueva Ecija 23 Barangay Level

Palawan 8 1 Municipal, 7 Barangay

Pampanga 6 Barangay LevelTarlac 7 Barangay Level

Zambales 29 1 Municipal, 28 Barangay Level

Total 103

PDI and its three partner POS were able to establish 103 village-based organizations ineight provinces as shown in Table 2 by June 2007. The organizations are autonomous andcan independently engage local and barangay units and government line agencies on issuesof vital concern such as land tenure improvement, the provision of basic infrastructures,livelihood projects and other development initiatives. PDI has been continuously developing


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these organizations through constant training, consultations and meetings to increase thecapacities of the members by enhancing their leadership and negotiation skills.

Participation in Local Government Bodies

A testament to the strength and effectivity of local organizing is the degree of penetrationby our allied POs of local government bodies. As shown in Table 3, we have 285 POleaders who have become members of various local government units and line agencies.

In the eld of local governance, our member-POs include 32 IP chieftains, 50 municipalCouncilors, 16 Barangay Captains, 10 Barangay Secretaries, six Barangay Treasurers,three Municipal sectoral representatives and 49 Committee Ofcers. In Local governmentagencies, our members include 37 Barangay Health Workers, 12 Social Workers, 55 daycare workers and 15 Barangay Agrarian Reform Committee (BARC) leaders.

Table 3.Local Government Representation, by Province

As of June 2007

Province Local Representatives/Ofcers

Zambales

8 Chieftains35 Councilors25 Brgy. Health Workers47 Committee Ofcers2 BARC5 Brgy. Captain5 Brgy. Secretary5 Brgy. Treasurer9 Social Workers6 Daycare Workers42 Daycare ofcers3 BARC3 Sectoral Representatives

Bataan17 Chieftains2 Brgy. Health Workers4 Councilors

Pampanga

3 Brgy. Captains

1 Brgy. Secretary2 BARC

Bulacan 5 BARC

Palawan

2 Councilors4 Brgy. Health Workers3 Brgy. Captains4 Chieftains1 Treasurer1 Brgy. Health Workers

Tarlac1 Brgy. Councilor1 Daycare President1 BARC

Nueva Ecija

2 Councilors1 Social Workers3 Brgy. Health Workers1 Committee Ofcer1 Brgy. Secretary2 BARC2 Daycare worker

Aurora

3 Chieftains6 Councilors2 Brgy. Health Workers1 Committee Ofcer5 Brgy. Captain3 Brgy. Secretary2 Social Workers4 Daycare Workers

Total285 Local Reps and Ofcerspracticing Local Governance


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Local Governance and People Empowerment

People participation in local governance has been brought to a new level. On top of orin conjunction with mass mobilizations, dialogues and consultations and other forms ofactions as non-state actors, the POs have deployed capable leaders and members todirectly participate in decision-making processes of local bodies. These actions producea convergence of pressure from within and from the outside, thus hastening localgovernment response to issues.

POs have been very effective in leveraging their strength and capabilities to mobilizelocal government resources for rural development needs. From 2004 to December 2006,they managed to mobilize some PhP21.4.million public and private funds for varioussocial services (see Table 4). Most of the resources generated were for goods andservices for the general public. Around 90% of these consisted of physical infrastructure(such as roads, bridges, irrigation canals) that beneted the general public. Thus, theactual number of beneciaries extended far beyond the membership of the POs.

Table 4Resources Generated by POs

in 2004-2006, by province

ProvinceValue of

Resources(In PhP)

Main bulk of resources

Bulacan 1,848,000.00 Water impounding, barangay road

Zambales 7,461,000.00Bridge, farm-to-market road, schoolbuilding

Aurora 264,000.00Non-formal education (supplies, learningcenter)

Tarlac 214,000.00 School building, daycare center, sewerage

Palawan 465,000.00 Education, literacy

Bataan 3,129,200.00 Road, school building

Nueva Ecija 8,050,000.00 Irrigation, farm-to-market road

Total 21,431,200.00

Thus, in three years time, the POs succeeded in leveraging their strength andcapabilities to mobilize PhP21.4 million worth of local government resources for ruraldevelopment needs. The level and intensity of engagements and the value of resourcesgenerated vary from province to province.

Bulacan The major arena for engagement is the city government of San Josedel Monte. During the last three years (2004-2006) SAMAKA was able to generatePhP1.84 million worth of resources from the city government through the CityDevelopment Council and the City Agriculture Ofce. These resources includedPhP800,000 for a barangay road that beneted 400 families, a PhP1 million waterimpounding project that benet 150 families and PhP48,000 in capital assistancefor the production of Red Lady papaya.

Zambales The POs in Zambales engaged government at various levels, fromlocal government units to national government ofces, including the Ofce of thePresident. LAKAS, SAMATT-K, SAMATT-K Narra and IP communities in Pasambot,


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Botolan, and San Juan were able to mobilize PhP7.46 million worth of governmentand private sector assistance from 2004 to 2006. The biggest chunk was a PhP5million bridge lobbied for by LAKAS with the Ofce of the President and whichcurrently benets 200 families. The next biggest chunk was a PhP1 million farm-to-market road that SAMATT-K in Narra lobbied for. This road currently benets106 families. The rest consists of various assistance such as: a PhP300,000 daycare center in Botolan that benets 200 learners; a PhP600,000 school buildingdonated by a private citizen that currently benets 200 students; a PhP175,000

community lighting system that benets 200 families in the LAKAS settlementarea; a PhP120,000 water project that benets agricultural areas of 100 familiesin Pasambot; and various other forms of assistance that beneted children (e.g.a feeding program), non-formal education (NFE) learners (e.g. honorarium forfacilitators, books), poor families (e.g. medicines) and community leaders (e.g.trainings).

Aurora In Aurora, the focus of engagement was the municipal LGU of Dingalan,the provincial capital. In 2004-2006, the POs were able to generate PhP264,000worth of resources mainly for their NFE projects. These consist of a community

learning center (a PhP90,000 building), school supplies for 150 learners(PhP54,000), contracting scheme for literacy skills beneting 11 barangays(PhP50,000) and a PhP70,000 Alternative Learning System (ALS) program.

Tarlac In Tarlac, the main arena of engagement was the municipal governmentof Sta. Barbara. However, PO engagements included targets such as the PhilippineNational Railways (PNR) and TESDA. In 2004-2006, the POs were able to generatePhP214,000 worth of resources. The biggest chunk of assistance generated wasa PhP100,000 school building donated by the PNR. This building benets 761pupils. The rests consisted of the following: a PhP55,000 day care center for100 learners, a PhP20,000, 20-meter sewerage system for 35 families, TESDA

vocational courses (PhP34,000) beneting 285 trainees and a PhP5,000 solidwaste management project that benet 500 families.

Bataan The POs in Bataan engaged various actors at various levels to generateadditional resources for the communities. These engagements included lobby,dialogue and consultations with the DAR, Catholic Church hierarchy, the provincialgovernment and the municipal governments of Limay, Orion, Bagac and Morong.In 2004-2006, these engagements produced PhP3.12 million worth of resources.The biggest chunk was a PhP2 million farm-to-market road project of the DAR/ARCDP II in Orion, Morong and Bagac. The others consist of the following: aPhP800,000 school building in Limay, PhP328,000 education assistance from theCatholic Church and an amount of PhP1,200 local government assistance for ALSin Morong.

Nueva Ecija - In Nueva Ecija, the main engagements were directly with national lineagencies like the Department of Agrarian Reform (DAR) and the Department of Laborand Employment (DOLE). The resources generated during the period totaled PhP8.05million. The biggest chunks were a PhP5 million farm-to-market road project and thePhP3 million irrigation canal project from the DAR which benet around 80 families inPantoc, San Isidro and Casareal, plus PhP50,000 in nancial assistance from the DOLEto benet 25 women members of a local cooperative in Gabaldon.


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Palawan The POs in Palawan engaged provincial and municipal governmentunits and local counterpart ofces of national line agencies like the Departmentof Education, Department of Social Welfare and Development, Departmentof Agriculture, and the Ofce of Muslim Affairs (OMA). These engagementsproduced PhP465,000 worth of resources in 2004-2006. The biggest chunk wasa joint DepEd and LGU assistance worth PhP360,000 for a literacy contractingscheme that beneted 774 participants in 12 barangays. The rest consisted ofthe following: PhP25,000 for a training seminar on entrepreneurship in Marupo,

PhP20,000 participatory coastal assessment in Buenavista, and PhP60,000 DepEdfor a seminar workshop of ALS implementers in Coron.

Typology of Resources Generated

The NMGL has practical needs especially for the internal development of its organizationsand the livelihood needs of their members. However, they exercised their leverage notonly for their internal requirements. In fact, most of the resources generated weregoods and services for the general public. The main contribution of the POs to resourcegeneration is increasing the pace of decision-making and inuencing the direction of the

assistance. Around 90 percent of these consist of physical infrastructure (such as roads,bridges, irrigation canals). Thus, the actual number of beneciaries extends far beyondthe membership of the POs. In Bulacan, for example, SAMAKA has been able to bring itspineapple production to the market using the barangay road it lobbied for.

Table 5Type and Value of Resources

generated by POs in 2004-2006Type of Resources

GeneratedValue

(in PhP)

Agriculture 48,000.00

Infrastructure 20,210,000.00

Small and Medium BusinessSupport

50,000.00

Education 984,200.00

Social Services 25,000.00

Capacity Building 114,000.00

Total 21,431,200.00

Lobbying and vigilance proved to be successful strategies for the POs since theywere able to get funding support for their communities. Even residents who are not

members of any organization beneted from their efforts. As a result, the POs generatedmuch goodwill in their communities. Most of these resources beneted Zambales andPampanga and were used to build infrastructure farm-to-market roads, water supplysystems and school improvements.

Table 6Resources Generated by POs

By province, January to June 2007

ProvinceValue of

Resources(In PhP)

Main bulk of resources

Zambales 1,889,550.00Farm to market road , schoolimprovements


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Pampanga 1,050,000.00 Water Supply, Farm-to-market road

Aurora 85,000.00Non-formal education (supplies, learningcenter)

Palawan 582,000.00Agricultural production support, inputs,supplies, trainings

Nueva Ecija 259,400.00Post harvest facility, infra-support,sanitation facilities

Bulacan 200,000.00 Livelihood project, commercial store

Total 4,065,950.00

IV. PDI Experiences in Partnership Arrangement with the Local Government

The following case studies attempt to capture the existing condition in local governanceparticipation of PDI in its critical collaboration with the LGUs in its areas of operation.

The cases presented were based on the experiences of PDI and is used as referenceto illustrate possible areas and preconditions where cooperation with the LocalGovernment Unit is possible. It also serves as a take off point to dene the requisites

in partnerships, including the facilitating and constraining factors in local governanceparticipation. Emerging insights and lessons are provided.

a) The Land Resettlement Arrangement in Fort Magsaysay, Laur, Nueva Ecija

On July 10, 1990, a powerful earthquake, with a magnitude of 7.7, hit Central andNorthern Luzon killing hundreds and destroying millions of pesos worth of properties.Relief and rehabilitation efforts focused mainly on the economic centers of theaffected provinces while the remote areas, which were also devastated, received verylittle assistance.

The earthquake did not spare the small tribal village in Caranglan. The tremor createdwide cracks on the earth and caused massive erosion. The slightest rainfall dislodgedhuge boulders which tumble down the mountains that surround the communities.There have also deaths and unexplained illnesses among the people.

The three tribes of Kalanguyas, Ibaloys, and Kankan-eys, decided to look for anotherland to settle on because of the continuing devastation around them. Some 110families, accompanied by Sister Julia Gonzales, a nun of the Religious of the GoodShepherd (RGS), requested the assistance of PDI to help them resettle. PDI hadidentied a piece of land in Barangay San Isidro in 1991 as a possible resettlement

site.

PDI sought the assistance of the Department of Agrarian reform and the ProvincialGovernment of Nueva Ecija through Governor Edno Joson, to provide for the Igorotfarmer-victims lands to re-establish their way of life. A memorandum of agreementwas signed between PDI, DAR/DND (Department of National Defense) and the LGU.

The property is located in a portion of the Fort Magsaysay military reservation, inLaur, Nueva Ecija. This was a pioneering initiative since it was the rst time that amilitary reservation covering 3,100 hectares was converted for agricultural purposes.


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The DAR/DND provided each of the Igorot families with three hectares of agriculturalland. Through further negotiations, the Igorot earthquake victims and original farmer-settlers were able to receive their land titles.

PDI negotiated with the government to provide electricity, a small water impoundingsystem and a complete road network for the new resettlement area. The laborcounterpart was provided by the Igorots, now organized as the Tribal Union forAgricultural Development or TUNAD.

PDI, with assistance from NCOS, a Belgian funding agency, organized and establishedPOs in the area and provided for indigenous housing and the settlers much-neededproduction assistance.

The former reservation is now composed of several thriving communities.

b) The Zambales Experience: Resettlement and Reconstruction An

Integrated Response to the Problems Caused by the Mount PinatuboEruption (LGU-NGO-PO partnership)

PDI adheres to the Genuine Asset reform (GAR) framework, which argues thatrural development and self-reliant communities can be achieved by the positivecombination of changes in land tenure and social and economic support services,minus the inuence of vested interests that impede progress. In this regard, PDIsmain role is to encourage and support farmers, farm workers, women and indigenouspeople who aspire to assert and protect their rights and who pursue their autonomousgoals in their communities.

In 1991, PDI was assisting the peasants of Central Luzon in developing a regionaldevelopment program. In the middle of the process, Mount Pinatubo erupted in June1991, causing massive displacement of the affected population in Central Luzon,especially in Zambales, Tarlac and Pampanga.

After the eruption, instead of producing the Central Luzon Development Plan, PDIassessed the overall condition and analyzed the landscape and basic needs ofthe peasants and indigenous communities. PDI developed the Resettlement andReconstruction Program for the displaced farmers and Aeta indigenous people.Using agrarian reform as a core strategy, PDI responded with a resettlement programfor the disaster victims.

PDI negotiated with the provincial government through Governor Amor Deloso andDAR to provide agricultural land and support services to the displaced people. Theprogram was different from other resettlement sites, mostly initiated by governmentagencies, in that it provided home lots and agricultural lands to the victims. Theproblem after the eruption was the total loss of the land and not merely the lack ofsupport services. The program responded according to these situations. Under theprogram, DAR provided each family a 240-square meter homelot and a 1.3-hectarefarm lot from the government which allocated 429 hectares of land in BarangayBulawen, Salaza, Palauig, and Zambales.


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PDI and the farmer-victims were able to negotiate with the local government forthe parcellary mapping of the land, the establishment of a road network, andelectrication.

PDI, with assistance from EED, provided organization building and institutionaldevelopment and support services in the form of housing, establishment of a watersystem, health service and food production assistance, which are necessary to sustainthe people through the long and arduous process of resettlement in a new place.

The program had already completed the resettlement phase. Sibol, the name givenby the people to their new home is now a new community.

As a monument to the success of the program, the resettlement community of Sibolhas now become a vibrant community with settlers owning the land they till. Theresidents, including women, are now active participants in local governance led bytheir organizations.

PDI has succeeded in this development intervention built upon an agrarian-based

model a model agrarian reform community. PDIs concept of the model agrarianreform community was adopted by the Department of Agrarian Reform, whichcalled it the ARC Program. DAR adopted the concept of the model agrarian reformcommunity but revised the operational design. The ARC Program of DAR has broughtin billions of ODA funds to the department for the development of agrarian reformareas. This led to the identication and formation of DAR-ARCs all over the country.

The success story has, in fact, been shared with the international community whenPDI was invited to participate in the World EXPO 2000 in Hannover, Germany. Itserves as an example of best practices on how to handle programs and projects inthe new millennium.

c) Sustainable Agriculture Project in Coron, Palawan: The LGU/DA-PDI-Tagbanua PO Partnership

PDIs Sustainable Agriculture (SusAg) program is a community development projectbeing implemented by PDI with the Tagbanuas in partnership with the municipalgovernment of Coron and the municipal agricultural ofce. The goal of the sustainableagriculture project is to increase the income of the Tagbanuas through sustainableagricultural practices. The challenge to PDI is to develop and impart practical andcost-efcient farming practices to the Tagbanuas.

The SusAg program is focused on Coron, Palawan. Through this project, the Tagbanuasworked with PDI and an agriculturist of the Municipal government to learn and promotesustainable agricultural practices. The initial involvement has borne fruit with morefarmers becoming interested in SusAg. The municipal agriculturist provided the technicalexpertise while PDI provided institutional capacity building and the need supportservices. The demo farms and technical assistance provided helped considerably inspreading the word about the benets of Sustainable Agriculture. (See Table 7)

Continued coordination with the Ofce of the Provincial Agriculturist (OPA), Ofceof the Municipal Agriculturist (OMA) and the local government units (LGUs),


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coupled with the organizing efforts of the community members have proveneffective in promoting sustainable agriculture in the rural areas. In fact, theOrganic Vegetable Projects which PDI adapted in the farming communities arenow being extended to the public elementary schools in Coron through VegetableGardening classes.

Table 7

Sustainable AgricultureCoron, Palawan

TECHNOLOGIES TRANSFERREDJanuary to June 2007

I. Agricultural Production

1. Rice Production

2. Integrated Pest Management (IPM)

3. Sloping Agriculture Land Technology (SALT)

4. Bio Intensive Gardening (BIG)

II. Organic Fertilizer Making

1. Composting

2. Compost Fungus Activator (CFA)

3. Carbonized Rice Hull making

4. Fermented Fruit Juice (FFJ)

5. Fermented Plant Juice (FPJ)

III. Livestock and Aquaculture

1. Swine Raising

2. Seaweeds Propagation

3. Seganid Monitoring and Management

IV. Demos

1. Farmer Field School

2. Rice Varietal Demo-farm

3. Vegetable Demo-farm

In collaboration with the Department of Agriculture of Puerto Princesa and theMunicipal Agriculture Ofce, simultaneous trainings on Organic Vegetable Productionwere conducted.

PDI is also working with the Regional Fisheries Training Center of the Bureau ofFisheries & Aquatic Resources for trainings on Seaweeds Farming and NurseryManagement to enhance the skills of the Tagbanuas in seaweed production. PDI hasbeen providing seaweed production assistance to the Tagbanuas.

The partnership program of PDI with the Municipality of Coron has expanded witha new arrangement in the agricultural development program under the MediumTerm Development Program of the Municipality involving an annual investmentfund of PhP4.4 million for 2007 alone. This amount has been pledged by theMayor to the peasants and Tagbanuas in a memorandum of agreement signedin February 2007. The adjacent municipality of Busuanga, also in Palawan, hasforged a partnership agreement with PDI similar to the program of Coron, also in2007.


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d) Partnership Arrangement in the Non Formal Education

PDI implements a Non-Formal Education program in the provinces of Aurora, Bataan,Palawan and Zambales. The Program targets the out-of-school youth and illiterateadults of the Dumagat, Aeta and Tagbanua tribes.

The NFE responds to the same compelling problems of marginalization of IPcommunities where education is a lost opportunity. The right to education has

taken a new light with the acquisition of ancestral domain rights that requireadequate knowledge and skills in protecting and developing vast tracks ofthe uplands. NFE has become more relevant at the current stage where IPcommunities need to develop, protect and strengthen ownership of their ancestraldomains.

Indigenous people want to rejuvenate the basic elements of their learningsystems, while they learn new ideas and skills to survive in their rapidly changingenvironment. Indigenous people also want to learn modern sciences, but in thecontext of their own culture and in their own terms and according to their own

pace.

Indigenous peoples want education in their own languages, in a manner appropriateto their cultural methods of teaching and learning. They demand their right to speaktheir own language, along or with the practice of their indigenous education, sincelanguage cannot be divorced from the struggle for self-determination and ancestraldomain.

Thus, in supporting the Alternative Learning System, PDI is emphatic thatassistance must put premium on addressing the learning needs of the IPcommunity. This enabling clause is crucial to secure a planned integration of the

local practices. Given this thrust, PDI, in effect, also seeks to re-orient and sharpenthe Alternative Learning System to become one that is truly situation-based andaction-oriented.

NFE or the Alternative Learning Systems (ALS) involves the acquisition of knowledgeeven outside the school. It is aimed at attaining specic learning objectives for theIPs. For the out-of-school youth and illiterate adults, NFE includes a functional literacyprogram for the non-literate and semi-literate and integrates basic literacy withlivelihood skills training.

The non-formal education program being implemented by PDI addresses thenecessary learning competencies of formal school curricula. This is carriedout in coordination with municipal governments and the district ofces of theDepartment of Education. This assistance seeks to assure the basic learning andcapacity building needs of out-of-school youths and adults. The courses offeredare namely:

Level I Offered to those with no literacy skills; comparable to grades I and II.Level II Offered to semi-literates; reinforces basic reading, writing and math skills,similar to Grades III and IV.Level III-V Flexible competency exercises, designed for functional literates.


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Level III Equivalent to Grades V and VI.Level IV For adequately functional literates; comparable to 1st and 2nd years ofsecondary schoolLevel V Autonomous Learning Level, equivalent to 3rd and 4th year of secondaryschool.

ALS is a parallel learning system that provides a viable alternative to the existingformal education curriculum. It emphasizes both formal and informal sources of

learning. Its course of study covers the following areas: communication skills,critical thinking and problem solving, sustainable use of resources, developmentof a sense of self and community and expansion of the students vision of theworld.

To implement the NFE program, PDI, the Local Government Unit and theDepartment of Education signed a Memorandum of Agreement and mobilizedparateachers. The MOA provides for the form and conditions of the NFE program.The MOA also spells out the role and responsibilities of all parties concerned.PDI assumes responsibility over the projects execution in collaboration with the

NFE coordinator assigned by the DepEd. The NFE coordinator undertakes fieldvisitation and is responsible for the supervision and delivery of required technicaknow-how. PDI monitors and evaluates the classes. DepEd takes care of thevenue and administration. Material development is the responsibility of both PDIand DepEd.

The curriculum and material development for the NFE Program involves the designand production of at least 29 modules for 150 hours of sessions for each competencylevel. Indigenous knowledge systems are used and IP traditions, culture and valuesare taken into consideration in the implementation. Each module consists of ateachers manual and session guide.

The PDI Area Coordinator and the NFE Coordinator meet frequently to discussimplementation issues and formulate remedial measures. They also rene andcalibrate existing NFE curricula to be responsive to the actual situation of the IPs andthe expressed needs of the NFE students.

NFE is conducted in coordination with the Local Government Units in the area and theDistrict Ofces of the Department of Education through its ALS.

In 2006, the Program handled 537 learners (see Table 9). Of this total, 368 or 68percent graduated (see Table 10). More females (239) graduated than males (129)(see Table 11). The Dumagats of Aurora province produced the best percentage oflearners who graduated (74 percent). Some learners do not graduate because ofeconomic reasons, such as when the family has to move to where the parents canearn a livelihood. For the Tagbanua sher folk, this means following the sh thatmove around the waters depending on seasons and tides. For the Aetas, this meansgoing to places where there is farm work to be done or nding new areas in themountains that can be cleared for kaingin (slash-and-burn-farming). And where thefather goes to earn a livelihood, the whole family follows.

For 2007, PDIs entire Non-Formal Education program will teach 539 learners.


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Table 9PDI Non Formal Education Learners

2004-2007

LocationEthnicGroup

Partner 2004 2005 2006 2007

Aurora DumagatDept. of Educ. District ofDingalan, Local Govt. Unitof Dingalan

112 124 70

Bataan AetaDept. of Education Districtof Morong,Local Govt. Unit of Morong

124 35 16 15

Palawan TagbanuaDept. of Education Districtof Coron,Local Govt. Unit of Coron

184 231 349 230

Zambales AetaDept. of Education Districtof Botolan,Local Govt. Unit of Botolan

60 35 48 224

TOTAL 368 413 537 539

Table 10PDI Non-Formal Education Graduates

By Literacy Level2006-2007

ProvinceLevel

0Level

ILevel

IILevelIII

LevelIV

LevelV

Aurora 9292

Bataan 2 2 711

Palawan 163 30 35228

Zambales 20 5 6 637

TOTAL 20168

130 43 7 368

Table 11PDI Non-Formal Education Graduates

By Gender2006-2007

Province Males Females Total

Aurora31

61 92

Bataan2

9 11

Palawan81

147 228

Zambales15

22 37

TOTAL 129 239 368

Partners in Non-Formal Education

PDI and the Department of Education trained parateachers to implement the NFEProgram. Parateachers are not the usual public school teachers who wait for thestudents to enroll and then teach in classrooms. Parateachers seek out-of-schoolyouth and adults in the indigenous communities and among poor peasants in


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remote and mountainous barangays, conducting surveys to determine the sizeand prole of their potential students. They also look for places where they canhold classes. If there are no suitable sites, they hold classes under the trees, as insome Aeta communities in Zambales and Aurora provinces. Parateachers also haveto adjust the schedule of classes according to the farming and shing activitiesof the tribe. Some parateachers hold classes on a Sunday if it happens to be thecommunitys free day.

At present, PDI employs 23 parateachers. Most of them come from the same tribe asthe students to facilitate acceptance and integration.

The NFE Program has been helpful in improving literacy among the Aetas,Tagbanuas and Dumagats. In October 2005, the program was awarded 4th place bythe Department of Education in its Regional Search for Most Outstanding LiteracyProgram. It has also been awarded Certicates of Recognition by the Departmentof Educations Division Ofces in Coron in Palawan, Morong in Bataan, Botolan inZambales, and in Dingalan and San Luis in Aurora.

In 2007, at the initiative of the DepEd, the Zambales parateachers and our PDIcommunity organizers developed three instruction manuals and ve modules forteaching Aetas. The modules cover the following subject matters:

1. Ancestral Domain2. Aeta Culture and Traditions3. Livelihood Activities4. Cleanliness and Personal Hygiene

The modules are pioneering efforts in teaching Indigenous Peoples. They are writtenin Sambal, the language of the Aetas. They integrate the Aetas culture, traditions

and values in teaching Reading, Writing and Arithmetic. Its workbooks are illustratedwith drawings of Aetas in various everyday activities.

The modules have been cited by the Department of Educations Bureau of AlternativeLearning Systems because of its sensitivity and adherence to the Aetas culturalheritage. As a result, the lessons are now included in the Department of Educationsteaching modules for Aetas.

e) The Bulacan Experience: Representation in the City Development Councilprovided impact to the communities

The PDI and the farmer representatives of San Jose del Monte, Bulacan, were ableto negotiate and succeeded in vying for seats in the City Development Council. Theywere able to participate in the planning for the scal year, particularly in allocatingthe nancial resources in the local agricultural sector. Farmer representativesalong with PDI were able to inuence the Council to increase the total annualbudget allocation for the agricultural sector from 17% to 20.5%, an increase of3.5%. Previously the agricultural sector only received PhP147,000 from the CityAgriculture Ofce. This has now been increased to PhP152,145.00 worth of supportservices.


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The farmer representatives of the POs, with guidance from PDI, were also successful inpushing for the City Planning and Development Council to pass a Comprehensive LandUse Plan (CLUP) to protect the farmers and the agricultural sector from rampant illegalconversion in San Jose del Monte, Bulacan. About 250 farmers lobbied city hall for the CLUP.The Land Use Plan designated the farmlands in San Jose as the food basket, the source ofvegetables and fruits, not only of Bulacan but also of the surrounding areas, especially MetroManila. The city of San Jose del Monte has thus developed a clear Land Use Plan.

During the last three years (2004-2006) SAMAKA, the PO of Bulacan, was able to generatePhP1.84 million worth of resources from the city government through the City DevelopmentCouncil and the City Agriculture Ofce. These include PhP800,000 for a barangay road thatbenet 400 families, a PhP1 million water impounding project that benet 150 families andPhP48,000 in capital assistance for the production of Red Lady papaya.

f) Support for Indigenous Peoples Ancestral Domain Rights

The right of the IPs to their ancestral land is the basic tenet of the IndigenousPeoples Rights Act. The IPs claim-making over their ancestral domain must be

vigorously pursued in the halls of justice.

It is the responsibility of the government, specically the National Commission onIndigenous People (NCIP) and the Department of Environment and Natural Resources,to provide the ancestral land titles to the indigenous people. Some gains havebeen achieved in the distribution of the ancestral domain title by the NCIP since itsenactment of the IPRA law in 1997. The right to ancestral domain of the indigenouspeople as a social justice issue should not be left in the hands of the governmentofcials, most of whom represent the landowning class who also wield economic power.Without pressure from POs and NGOs, the ancestral domain claims of the indigenouspeople would not be heard. The IPs lack of education, due largely to their poverty, has

left them helpless in the face of such government ofcials. PDIs negotiation strategyhas laid the foundation that assists the IPs in their struggle for their lands.

IPRA depends heavily on the quality of civil society participation and on socialconsensus. There is evidence that government-led IPRA implementation with thetop-down approach and narrow bureaucratic execution fails to provide the ancestraldomain titles of the indigenous people.

With regard to support for the IPs right to their ancestral domains, PDI was able to cause forthe processing of 34,973 hectares of ancestral domain lands to 3,324 members of the Aeta

IP communities in Pampanga, Bataan and Zambales (see Table 12). The biggest ancestraldomain grant being processed consists of 22,400 hectares located in Botolan, Zambales.

Table 12Ancestral Domain Lands Processed

for Indigenous Communities

Location Size (in Hectares) Number of Beneciaries

Florida Blanca, Pampanga 8,218 1,424

Hermosa, Bataan 4,355 700

Botolan, Zambales 22,400 1,200

Total 34,973 3,324


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PDIs intervention in the IP arena is rooted in its agrarian reform advocacy. Ithas discovered that DAR had insensitively sought to treat IPs as agrarian reformbeneciaries and not IPs with prior rights to their ancestral domains. The resultingbureaucratic tangle between the NCIP, DAR, the DENR and local government unitsexacerbated the bottlenecks in processing ancestral domain claims. PDI stepped in toclear this anomaly.

The NCIP is perceived to be one of the weakest national agencies of government in

terms of resources and capacities to enforce its mandate. Delays in processing ofCADC/CADT application are a common occurrence due to lack of resources and eldpersonnel, inadequate surveying capacity or pure bureaucratic inefciency. This isnot to mention the fact that NCIP actions are vulnerable to legal and bureaucraticcontestations by the DAR, DENR or LGUs. LGUs, for example, generally resent thereduction of their territories with the issuance of CADCs/CADTs that are under themandate of the NCIP. Similarly, for the DENR, CADT/CADC issuances entail additionalprocesses and procedures in the approval of mining and commercial timber licenseapplications.

Having established its inuence at the central stage of national line agencies, PDIwas able to unclog the bottlenecks by simultaneously negotiating with the LGUsto issue permits for the recognition of the ancestral claims and allow the survey ofthe ancestral domain. It has moved DAR to honor the ancestral domain lands andprompted the NCIP to process the ancestral domain titles. Thus, in Zambales wherethe CADC claim has been sitting at the NCIP since 1997, PDI was able to unclog theprocesses and inuence the grant of ownership within two years.

The above, however, resulted not only from PDIs effective engagement withgovernment agencies and reform-minded ofcials. Internally, it involved painstakingwork on fundamental requisites that the IPs were not able to prepare for lack of

attention from the NCIP. The PDI staff had to strengthen the IP claims by settingcertain requirements such as genealogies and technical specications of the landsbeing claimed (e.g. through land survey and maps) as well as preparing the IPorganizations to assume ownership of their domains. The same also indicates theversatility of PDI staff in responding to community needs.

Implications

The recognition of 34,973 hectares as ancestral domain land is momentous for theAetas of Zambales, Pampanga and Bataan. After years of divestment (e.g. theutilization of their ancestral domains as U.S. Military Bases in Clark and Subic),marginalization and deprivation and displacement (due to the Mount Pinatuboeruption), they have re-acquired control and ownership over their ancestral domains.The same is also momentous for the fact that most ancestral domains in the countryare now at risk due to the Supreme Courts December 2004 ruling that afrmed theconstitutionality of the Mining Act of 1995. It reversed its January 2004 decisiondeclaring that some provisions of the Mining Act and its implementing rules andregulations (IRR) were unconstitutional.

That was the year when Gloria Macapagal-Arroyos government started toaggressively promoted mining as a new major arena for foreign investments. In


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January 2004, GMA signed Executive Order 270, otherwise known as the NationalPolicy Agenda on Revitalizing Mining in the Philippines. This formed the basis of theformulation of the Mineral Action Plan that practically opens up 70 percent of nationalterritory to mining investments.

The Mineral Action Plan also shows how the government is willing to sacrice theinterests and rights of IPs over their ancestral domains. The plan suggests that thegovernment is willing to reduce NCIP certication processes by 27 percent and to

hasten the issuance of Environment Clearance Certicate (ECC) if only to induceforeigners to invest in mining.

The threats to IP ancestral domains do not only come from mining. In fact, they arealready reeling from extreme natural resource degradation. According to the DENR,97 percent of the countrys forests has been logged for timber and that only 18percent of the Philippines has forest cover. As of 2001, only 1 million hectares (of thecountrys 30 million hectares) is covered with primary forests.

PDIs unprecedented success in ancestral domain advocacy in Central Luzon has come

under extreme adversity both at the level of policy changes at the national level andat the operational level where PDI has to deal with bureaucratic barriers put up bylocal governments and the NCIP.

V. Facilitating and Constraining Factors in Local Governance Participation

Facilitating Factors and Requisites in the Partnership Arrangement:

The partnership arrangement between the PDI and the LGU has been successfulbecause of the following reasons:

Throughout its 17 years in development work, PDI has embraced itsvision to build self-reliant communities through peoples initiatives by developing effective personnel and PO leaders who committhemselves to tackling challenges, help their community articulate theirproblems and needs, and build the commitments and wherewithal toimprove the lives of people in the community. Organization buildingand leadership development are at the heart of PDIs work to improvecommunities and to create sustainable development.

The establishment of peoples organizations in the areas of operationbefore any engagement with the government is imperative because itprovides a vital link to the success of the undertaking. The voices of thepeople are heard and their needs shape the form of engagement withthe local government units. Projects instituted in partnership with theLGU are based on the peoples needs.

The Local Government Code of 1991 provides for and guaranteespeoples participation in local special bodies, development planning andbudgeting, and the system of direct accountability provisions of localgovernment ofcials. This increases the involvement of POs and NGOs.


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The practice of local governance at the grassroots level is slowly veeringaway from the traditional mode of partnership and is now including thePOs and NGOs.

It is important that the LGU knows that PDI has grassroots constituents.

PDI was able to establish itself in the areas of operation. The LGUsrespect the capacity and skill of PDI in development work and trust PDIs

capacity and structure.

PDIs knowledge of negotiations is a key factor in presenting the agendaof the POs to the LGU and in securing the commitment of the LGUs andwork with government bureaucratic processes. PDI was able to leverage itsexpertise and skills to bargain with local government units in order to obligethem to pledge their counterpart in any activity done with the government.

The LGUs see the relationship as mutually benecial and enablesmultilateral exchanges of resources, knowledge and skills. It is mutually

benecial because it denes the contribution of each party in terms offunds, available skills, and work. The cooperation is also clear cut in termsof the skills of each party to ensure the success of the project undertaking.Furthermore, the cooperation helps each party to fulll what is mandated inthe program of work (e.g. the survey and parcellary mapping of the land).Each party gives contributions to fulll its obligation.

There are clear parameters for partnership, meaning the terms of referencewere the product of consultations among all parties concerned (LGU-PDI-PO). Each party knows its role and responsibility in the partnershiparrangement, and agrees on the goals and strategies and understands the

limitations and possibilities of each others systems and processes.

Partnership has concrete and immediate effects because PDI has alwaysinsisted on undertaking activities based on specic terms of referenceand only after guidelines have been promulgated and claried. Thepartnership arrangement has brought in tangible outputs (like theestablishment of a completely new barangay for the peasant-victims ofMount Pinatubo and the provision of support services). The program ofwork discussed is complete based on the specic time frame. The aimsof the project were accomplished on time and the program has directbenet to the communities.

Strong monitoring. PDI, together with the POs closely monitor projectimplementation.

Constraining Factors in the Partnership Arrangement:

The following serve as constraining factors in the LGU-PDI relationship.

Limitations in funding. LGU budgets do not reect local needs. It is notunusual that LGUs lack budget for implementing the decentralized programs


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of the government. Decentralization without the required nancial resourcesor the capacity to generate local revenues hinder the effective delivery ofservices, much more so the peoples participation in any undertaking.

Many LGUs are weak in terms of capacity to deliver basic services,generating revenues, scal administration and translating policies andprocedures into actions.

Bureaucratic bottlenecks and procedures in the LGU hamper programimplementation.

National policies should be upheld and not contradicted, instead besupported by the LGUs

Lack of communication and coordination among national and local actorslead to confusion and misunderstanding in the interpretation of lawsand ordinances, and in the implementation of rules and procedures,administrative orders and memoranda.

LGU devolved agencies like the DENR do not deliver the requirementspecied in the terms of agreement.

NGOs and LGUs distrust of each other due to previous experiences.Attitudinal biases both among LGU and NGO representatives.

NGO is responsive to the needs of the communities while the LGU isreactive

VI. Emerging Insights and Lessons in Critical Collaborative Undertakings withLocal Governments:

The requisite for a successful LGU-NGO partnership is openness, trust, mutualrespect, and a common goal of achieving an improved quality of life for the people inthe community.Furthermore, based on PDIs experiences in critical collaborative undertakings withthe local government unit and even with the national government, the followingsalient points are key factors in building a partnership:

1. Community development requires working within the context of the communitysculturally instituted structure to ensure functional relevance and acceptability.

2. Humility amongst the key persons involved in the partnership arrangement is anasset. Accepting shortcomings and limitations while knowing our areas of strengthmake us humble. It also denes our terms of engagement in the partnership.

3. A recognition of the distinct competencies of the LGU and the PDI. Before anypartnership can ensue, both parties should recognize each others inherent capacitiesand capabilities.


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4. The acceptance of the LGU and the PDI as partners in development with a welldened written agreement in any undertaking. A written agreement protects theproject partner from the dislocations caused by replacement of government ofcials.

5. Implementing guidelines are important. It is not advisable to undertake a contractor project before the guidelines are issued.

6. Personalities in government make a lot of difference in program implementation.

Any change in program personnel affects project implementation.

7. Goals of development, both quantitative and qualitative, can only be pursuedand realized if partners are willing to make substantive contributions and sharecommensurate responsibility in an undertaking and are conscious of organizationalfactors affecting the NGO and LGU sectors.

8. Teamwork is important in any joint undertaking. LGUs and NGOs can work togetheras long as roles and functions are claried. Nevertheless, the NGO, as a catalyst,should push for and closely coordinate the project. Attitudinal biases among the LGUs

and NGOs can be overcome after some time of working together.

9. The trust inherent between the inter-acting parties is very important in LGU-NGOpartnership. When one starts to feel that the other is just taking advantage of thepartnership for its own self-interest, then the collaboration starts to break down.

10. The communitys culturally instituted structures to ensure functional relevanceand acceptability must be respected.

In order to sustain the LGU-NGO/PO partnership in local governance, the following

need to be address:

1. The need for an information and education program on the NGOs and LGUs. Thereis a need for an information and education program within the LGUs that will helpvarious line agencies realize a common and clear operational denition of NGOsthat will allow them to fully grasp the concrete importance of the NGOs basedon their principles, approaches, methods of work and operation. On the otherhand, NGOs lack basic information on available programs and services offered bygovernment agencies, thereby depend only on their personal relationship withofcials in government to be able to work together. If such remains the case, therewill be no systematic dissemination by LGUs of their program of work, nor willthere be an efcient culling of information by the NGO of LGU work.

2. Institutionalization of systems and procedures that are workable and acceptableto both the LGU and the NGO/PO. There are basic differences in the systems andprocedures that hinder or enhance LGU-NGO/PO partnerships. This has beenovercome partly by the personal relationships among personalities within potentialLGU-NGO/PO partners. The importance of personal ties has been recognized inforging desired modes of collaboration. However, more can be done to improveLGU-NGO relationships. Mutual respect between the concerned parties needs tobe developed. There is also a need for a clear-cut policy on collaboration, and a


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translation of the personal relationship into a formal and concrete system andprocedure that is workable and acceptable to both parties. Therefore, in orderto have a meaningful relationship, a common policy, systems and procedurescovering the tie-up should be drawn up.

3. A recognition of the invaluable assistance of the funding institutions in pursuingdevelopment work, even as we realize that the requirements accompanying theirdonations strongly shape actual program implementation.

The possible elds of critical collaboration could be land acquisition and distribution,extension services, training and education, legislation, manpower development andresearch. There may be possible areas of conict, given the existing differencesin structure, systems, approaches and strategies between the LGU and the NGO.However, these differences can be overcome through dialogues and consultations inorder to work out a jointly agreed framework for critical collaboration.

Documents

Enhancing Local Governance Participation: The PDI Experience in LGU-NGO Partnership, by Aurea G. Miclat-Teves