View
252
Download
1
Tags:
Embed Size (px)
DESCRIPTION
Mainstreaming Peace and Conflict Impact Assessment (PCIA) Mainstreaming Peace and Conflict Impact Assessment (PCIA) in Local Governance in Local Governance Processes Programme de soutien aux gouvernements locaux
Citation preview
Mainstreaming Peace and Conflict Impact Assessment (PCIA)
A Feld Guide
Programme de soutien aux gouvernements locaux
in Local Governance
Mainstreaming Peace and Conflict Impact Assessment (PCIA)
A Field Guide ACT for Peace Programme
in Local Governance Processes
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field- testing purposes; 2007 i
PREFACE
This is more than a field guide. It is a story of how people who seek peace have come together in different
capacities and roles to challenge the way they think and do their work in conflict-prone communities. It
started in 2003 when, building on experiences of looking at peace and conflict impact of initiatives in Sri
Lanka, Kenneth Bush of the International Development Research Center, offered a process that would
enable peacebuilders to do their work differently. A series of LGSP II-supported workshops were conducted
to systematically introduce the PCIA process to peace institutions and programs in the Philippines-- the first
was held at Marco Polo Hotel in Davao City on January 14-17, 2003 and the second at Eden Nature Park,
Davao City on June 14-17, 2003. After these workshops which brought together civil society, government
officials and donor agencies, Ken Bush left with casual remark: “if you find it (PCIA) useful, use it; if not,
discard it”.
From the seeding ground in Marco Polo and Eden, community-based and LGU-led efforts to try PCIA in their
respective areas of influence have grown. It took off from the re-echo seminar conducted by Sindaw Ko
Kalilintad for its fourteen (14) area leaders with resources pooled in from project savings of their partner-
NGO, the CO Multiversity. From there, more leaders were trained and a manual was produced with the
support of The Asia Foundation. Community projects within the peace zones were appraised and enhanced
using the process suggested in PCIA. A three-year community-based peacebuilding program of the CO
Multiversity was developed using the five PCIA impact areas as its focus or peace lens and has significantly
woven both development and peace concerns in their current work in Mindanao.
In 2005, twelve (12) LGU facilitators were carefully selected and trained to lead hands-on PCIA processes in
seven (7) provinces in ARMM. The GoP-UN MDP ACT for Peace Program, through the ARMM-Area
Management Office, saw the strategic importance of the process and judiciously allocated program
resources for this pioneering effort.
These and other NGO-led efforts to mainstream PCIA have signaled the need to consolidate on-the-ground
learnings and practical approaches into a user-friendly guide for present and would-be facilitators of PCIA.
Starting with the LGU as primary user, this field guide has thus been developed to respond to the need to
build LGU capacities in peacebuilding, which the LGSPA and ACT for Peace seek to address collaboratively.
It is envisioned that the fruit of the independent but interconnected efforts of the NGOs, individuals and
government agencies mentioned above will continue to be shared and enjoyed by those who find this
process not only useful but, more importantly, meaningful as they continue to create the impact in our
communities and society that we all envision: peace by peaceful means.
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 ii
ACKNOWLEDGEMENTS
This field guide is a result of collaboration and convergence among individuals and institutions that have
been at the forefront peacebuilding and local governance in Mindanao.
Acknowledgement goes first of all to the community leaders and local government officials who have blazed
the trail in integrating peace and conflict impact assessment into their work. The Sindaw ko Kalilintad, an
alliance of peace advocates in Central Mindanao, is especially recognized for taking the initial steps towards
PCIA mainstreaming in their peace zone initiatives.
Journeying with them is the Community Organizers’ Multiversity which, together with the resource persons
of the first PCIA workshop in 2003, pooled their resources and expertise to build the capacities of local
communities in peace and conflict impact assessment as a process.
Support institutions and programs such as the Local Government Support Program-II (LGSP-II) and the Local
Governance Support Program in ARMM (LGSPA), GoP-UN MDP ACT for Peace Programme, National
Democratic Institute (NDI), and the Office of the Presidential Adviser on the Peace Process (OPAPP) have
been providing the necessary assistance to make the PCIA activities happen since the first workshop held in
Eden Nature Park up to the most recent Roundtable Discussion some four (4) years later.
The ACT for Peace (ARMM office)-trained facilitators on PCIA were the second batch of community
facilitators who provided key inputs into the enhancement of the PCIA process based on the hands-on PCIA
that they undertook among seven (7) ARMM LGUs and academic institutions involved in peace work.
Other NGOs and government agencies such as the DILG, Minland, Assisi Development Foundation, Institute
of Peace and Development in MSU-Marawi and MSU-Maguindanao joined the growing momentum for PCIA
as they sent their representatives to two major activities, the Roundtable Discussion and Writeshop held in
February and May 2007 respectively, which led to the drafting of this guidebook.
Of course, special acknowledgement goes to Kenneth Bush, Myn Garcia and Madett Gardiola who worked
together under the LGSP-II and paved the way for all the current initiatives through their pioneering effort to
introduce PCIA to peace advocates in Mindanao.
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 iii
TABLE OF CONTENTS
INTRODUCTION ………………………………………………………………………..……………………………… 1
CHAPTER 1: THE IMPERATIVES FOR MEASURING PEACE AND
CONFLICT IMPACT IN LOCAL GOVERNANCE …………………………………..………………… 3
CHAPTER 2: THE ROLE OF LOCAL GOVERNMENTS IN PEACE WORK ………………..…….………….….… 11
CHAPTER 3: MAINSTREAMING PCIA IN LOCAL GOVERNANCE PROCESSES …………..…………………. 15
CHAPTER 4: HOW TO MAKE INTERNAL PROCESS IN LOCAL GOVERNANCE
MORE PEACE AND CONFLICT-SENSITIVE……………………………….………………………… 17
A. Performance Management ………………………………………………………………………….. 17
B. Policy Development …………………………………………………………………………………….. 18
C. Operationalization of Local Special Bodies (LSBs) .……………………………………….. 20
D. Barangay Justice System .…………………………………….…………………………..…………. 21
CHAPTER 5: HOW TO MAKE INTERVENTIONS MORE PEACE AND CONFLICT SENSITIVE …………..…. 25
A. Local Development Planning/Executive and Legislative Agenda …………………. 25
B. Capacity Development ………………………………………………………………………………. 29
C. Service Delivery……………………………………………………………………………………………. 30
D. Integrated Area Community Public Safety Program……………………………………. 36
E. Emergency Response………………………………………………………………………………….. 39
CHAPTER 6: HOW TO USE THE FIELD GUIDE ……………………………………………………………….. 43
Annexes:
ANNEX A: FIELD TESTING GUIDE FOR PCIA FACILITATORS ……………………………………………….. 45
ANNEX B: SESSION GUIDE FOR COP/PCIA ORIENTATION ……………………………………………….. 49
BIBLIOGRAPHY ………………………….……………………………………………………………………………… 59
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 1
INTRODUCTION
The field guide has been written for the use of LGUs, local functionaries and local elected officials as the
primary target audience. Support institutions who engage LGUs will also find the field guide useful in
improving the effectiveness of their initiatives in the areas of capacity development, project
implementation, and evaluation.
The specific purpose for which this guide has been produced are as follows:
• To equip users with know-how on strategies for awareness raising and integrating Culture of Peace
and Peace and Conflict Impact Assessment (PCIA) in local governance processes
• To generate interest and commitment on the use of PCIA as a guide for project implementation
processes
• To provide guidelines on how to strengthen capacity of LGUs using PCIA in local governance
processes
Chapter 1 of the field guide opens with The Imperatives for Measuring Peace and Conflict Impact, which
provides the context, and reasons why PCIA is important for LGUs. It also explains the basic principles, key
areas for assessment and steps in conducting PCIA culled out from the Hands-on PCIA primer developed by
Kenneth Bush who pioneered the PCIA process in Sri Lanka, Sierra Leone and Bosnia.
Chapter 2 focuses on The Role of LGUs in Peace Work where the mandates for LGUs are spelled out together
with more specific goals and strategies for peace outlined in the National Peace Plan. This is supposed to set
the tone for the subsequent topics of the field guide on mainstreaming and local governance processes
where PCIA can be integrated.
Mainstreaming PCIA in Local Governance Processes can be found in Chapter 3 which defines the parameters
for mainstreaming and suggests areas where this can happen. Challenges to mainstreaming which had been
identified by the participants of the PCIA roundtable discussion are also presented in this section.
Chapters 4 and 5 present the two main strategies or approaches for mainstreaming which are awareness
raising and application where respective LGU processes are described in terms of their function, importance
to peace work, steps involved and the measurable results which can be attained through PCIA. Key
questions or indicators are also listed which can be used to assess the specific local governance process for
its potential and actual peace and conflict impact.
Chapter 6 wraps up the field guide with recommended steps for field-testing and describes the key people
who should be involved in the activities outlined.
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 2
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 3
Chapter 1:
IMPERATIVES FOR MEASURING THE PEACE AND CONFLICT IMPACT
IN LOCAL GOVERNANCE
LGUs play a crucial role in peace work with mandates emanating from the Comprehensive Peace Plan of the
national government and the LGU mandate in maintaining peace and order. As they perform key roles
related to efforts to address the root causes of conflict, LGUs undertake processes for internal management
and strengthening as well as provide services address the needs of their constituents which can impact on
the peace and conflict situation positively or negatively.
Anticipating, monitoring and measuring the impact of these processes are important in enabling LGUs to
play their roles in peace work more effectively. Skills in peace and conflict impact assessment are thus
necessary for LGUs to ensure that their work in delivering services, facilitating local economic development,
pursuing infrastructure development among others promotes peace and prevents conflicts. A fundamental
requirement in this, however, is developing the awareness of LGUs on the significance of their role in peace
beyond the traditional mindset of “peace and order” to a more holistic framework of a culture of peace.
What is Peace and Conflict Impact Assessment (PCIA)?
PCIA Primer, by Kenneth Bush, June 2006
PCIA is a means of anticipating, monitoring, and evaluating the ways in which an intervention may affect or
has affected the dynamics of peace or conflict in a conflict-prone region.
PCIA is a process, similar to Gender Analysis and Environmental Impact Assessment, which helps identify and
understand the impact of an initiative on peace or conflict. PCIA can be used in a broad range of conflict-
prone settings, i.e. places where there is a risk that non-violent conflict may turn, or return, to violence. PCIA
must be integrated into every stage of the project cycle - design, implementation and evaluation - if it is to
help us in our work.
PCIA is an extremely important and useful process that will help you ensure that the initiatives you are
working on do not aggravate violent conflict and, as far as possible, contribute to building peace within and
between communities
Where should you "do" PCIA?
PCIA should certainly be integrated into initiatives located in areas of militarized violence. However, they
should also apply to initiatives in a far wider range of conflict-prone settings – that is, places where there is a
risk that non-violent conflict may turn (or return) to violence. This includes areas:
� where the control over, or use of, territory or resources is disputed;
� where the socio-economic gap between groups is increasing; or
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 4
� where unemployment is rising while living standards and human security are declining.
In each of these examples, violence and bloodshed may not have occurred. However, the likelihood that
violence may occur is significant – especially if the tools for resolving conflict non-violently are weak or
absent (e.g., where the political and legal systems have collapsed or become corrupt). In these settings,
PCIA is essential.
When should you "do" PCIA?
Ideally, PCIA should be undertaken at all stages of a project, programme or initiative. However, it may be
used for different purposes at different stages of an initiative:
How can a development initiative have a peacebuilding or conflict-creating impact?
Imagine a municipal water project that seeks to improve access to clean water in an area where there have
been tensions between communities.
We could say that this initiative has had a positive peacebuilding impact if:
� it helped to bring members of the communities together because of their shared interest in clean
water and the benefits this has for public health and general quality of life
� it created the communication channels and opportunities for diverse members of different
communities to work together on issues beyond water management
� it increased inclusion and participation of both women and men from violence-affected groups in
decision making at the community level on issues they consider a priority
� professional or interpersonal relationships began to grow across community lines and perhaps
encouraged communities to work together in other areas of activity
That same water project could have a conflict-creating impact if, for example, one community starts to think
that the other community is benefiting more than its own -- or worse, if it believes that the other
PHASE OF
INITIATIVE How is PCIA used? Objective
PRE-INITIATIVE
Planning Tool for Initiative Design,
and Formulation
Anticipating/ "guesstimating" future
impacts; "Building in" conflict prevention/
peacebuilding mechanisms
IN-INITIATIVE Performance Monitoring and
Management tool
Monitoring Immediate Impacts
POST-INITIATIVE
Strategic Planning for future phases
Evaluation, Institutional Learning
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 5
community will benefit by "stealing" its water. Or, conflict may be created (or worsened) if some members
of the population are excluded from decision-making, participation, and so on (women, marginalized social,
economic, ethnic, linguistic, religious, cultural groups).
How should we integrate peace and conflict issues into our work in conflict-prone
areas?
Peace and Conflict Impact Assessment is different from the way planning, monitoring, and "evaluation" is
usually done, because it focuses on impacts far beyond the stated outputs, outcomes, goals and objectives
of an initiative or programme. It looks for impacts on the peace and conflict environment – in areas that an
initiative may not have been designed to affect. We need to "read between the lines" of what is happening
or has happened.
PCIA tries to learn from the successes and failures of efforts to mainstream" gender and environment into
our work. Until we developed the tools to see and to measure the impact of our development work on
women, girls and the environment, all we had were short, disconnected, stories of how a particular
intervention seemed to have an impact. We did not have the full story; we did not have a larger
understanding that could help those of us working in the field. For example, someone might have a story of
how an initiative increased household access to clean water, but removed the opportunity for women to
socialize, mobilize, and organize around the community well.
How does PCIA differ from Conflict Analysis?
Conflict analysis is done to understand the dynamics, stages and manifestations of conflict; the design of an
intervention is then based on this understanding. PCIA, on the other hand, helps one determine what
impact the project or intervention will create – peace or conflict – in the community that already has an
existing conflict.
What principles are used in PCIA?
PCIA is not about introducing or imposing foreign or abstract peacebuilding techniques, it is about
identifying, supporting, and most importantly, systematizing existing peace and conflict-sensitive practices
that have grown from very specific conditions (social, political, economic, military, organizational, and so
on).
PCIA is a process -- not a tool. While some people would like a "PCIA Tool Kit" that can be applied
everywhere to fix everything, PCIA will not make a difference unless it challenges and changes the way we
do our work in conflict zones. We may not have to do different work, but will have to do our work
differently. PCIA challenges us all to fundamentally rethink all of our work in areas prone to violent conflict.
PCIA helps us to understand the specific rather than the general. "We know a lot of things to be true about
social violence, we just don't know when they will be true." (James Rule) PCIA help us to see, and to
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 6
understand, when, why, and how a particular factor, in a particular situation, is likely to contribute to peace,
or violent conflict. For example, many believe that poverty leads to violent conflict. However, when we
look closely at different cases, we see that sometimes it appears related, and sometimes it does not. Peace
and Conflict Impact Assessment helps to identify and understand when, why, and how poverty may
contribute to violent conflict, for example, when a collective sense of injustice, indignity, and hopelessness is
added to conditions of impoverishment. As importantly, PCIA helps us to make the changes to our
initiatives to improve the likelihood that they achieve both their developmental impacts and peacebuilding
impacts. Indeed, often reaching development goals is dependent on positive peacebuilding impact.
PCIA is not static. PCIA is an on-going and dynamic approach taken before, during, and after a particular
intervention in a conflict-prone region.
PCIA Needs to be transparent, shared, and People-Centered. The real experts of PCIA are the women, men,
girls and boys living in conflict zones. If they are not centrally involved in peace and conflict analysis and
interpretation, then the exercise will fail, or worse, will disempower communities – that is, it will remove
them from decisions that fundamentally affect their lives. If a community does not believe a PCIA is genuine
or legitimate; if they believe that it is not in their interests; if they believe that it will be used for force
unwanted initiatives or decisions on them; then they are completely justified in rejecting the process and its
outcomes. PCIA is too important to leave in the hands of so-called "experts." As a colleague in Mindanao
put it, "don't rely on documents, live in the community."
It is all about ownership, control, and capacity. Undertaking PCIA is a sensitive, and potentially conflict-
generating, exercise – and this is when it is done properly! This underscores the importance of building on
existing networks of trust and communication. However, to ensure that any PCIA initiative will have a
positive peacebuilding and developmental impact, it only needs to be able to answer “yes” to the following
two questions:
(1) Is the initiative increasing the capacities of participants – particularly those on the
ground to (a) identify the real and potential peace and conflict impacts of an
intervention; and (b) formulate and implement their own solutions non-violently
and effectively?
(2) Is the initiative built on a partnership that leads towards the genuine ownership
by partners on the ground?
Building peace includes "un-building" the structures of violence. Just as the removal of the structures of
violence does not automatically bring peace, neither does the simple adding (or strengthening) of peace
capacities automatically stop violence. For this reason, peacebuilders must strategically consider how to
unbuild the structures of violence as well as to build the capacities for peace – otherwise they risk seeing
their hard work washed away in the next flood of violence.
Neither development nor peacebuilding on its own will magically create peace. Development and
peacebuilding activities can make important positive contributions to peace and unity (or they can increase
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 7
existing tensions). However, on their own they will not create peace. Full, genuine, and lasting peace
requires substantive and on-going efforts by a wide range of actors (local, national, regional, international)
in a broad range of activities (military, trade, development and humanitarian assistance, diplomatic, and so
on).
Haste makes waste – PCIA takes time. Despite the time pressures that always affect the planning and
implementation of a project or initiative, there needs to be time for genuine dialogue, learning and capacity-
building. A rushed PCIA is a doubtful PCIA.
What are the steps in doing PCIA?
STEP 1: Assessing the Environment
The first step is to look at the environment with which you are dealing and establish whether it is conflict-
prone. There are two important reasons why you need to be able to tell whether or not an area is conflict-
prone:
1) PCIA is required only in conflict-prone areas: it would be burdensome, unnecessary and possibly
counter-productive to apply PCIA to every project, program or initiative. The ability to tell the
difference between a conflict-prone and a non-conflict-prone area (or more and less conflict-prone
areas) allows you to decide when and where PCIA is necessary.
2) Different types of conflicts have different patterns, intensities, and impacts. The ability to analyze
conflicts is essential for anticipating and responding to possible impacts on a project or initiative.
How to tell you are in conflict-prone setting – before it is too late?
� Violent – usually militarized –
conflict is taking place, or has
taken place (conflict zones, post-
conflict settings, transitional
settings)
� Competition over scarce
resources (such as: water,
agricultural land, and fish; grazing
lands; access to education, public
employment, or housing)
� Absence of effective conflict
management and resolution
mechanisms
� More than one group claims the
right to have, govern, or use the
same piece of land
� Competition or disagreement
over the allocation of the
benefits of newly discovered
resources (oil, diamonds,
strategic minerals, etc.)
� Unresolved socio-economic
tensions (e.g., workers vs.
plantation owners; laborers vs.
land owners; unemployed vs.
corrupt government officials
� A feeling by a group (or groups)
that they have been "wronged"
or exploited, and, possibly, the
presence of a leader who is
trying to use this feeling to fight
for "justice." Or, the absence of
a leader able to harness dissent
constructively.
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 8
Risk & Opportunity Assessment
Focus ���� Impact of Peace & Conflict
Environment on an initiative
STEP 2: Risk and Opportunity Assessment
Now that you have mapped the peace and conflict geography
of the space around an initiative, the next step is to undertake
a Risk and Opportunity Assessment. This will help you to
better understand how the specific peace and conflict
environment may affect a project or initiative.
Before starting an initiative or project we need to decide whether it makes sense to try to work in a
particular conflict environment, i.e., is there enough room to work in the area, or are the levels of
risk/violence too high and peace opportunities too low? Is the initiative appropriate – that is, does it have
the right ingredients for success (personnel, operating procedures, peace and conflict sensitivities? What
needs to be done to reduce the chance of failure of an initiative cause by conflict?) To answer these
questions, we need to do a basic Risk and Opportunity Assessment of the ways in which the conflict may
hinder a proposed initiative and to determine whether (and how) existing or newly-emerging peace
capacities and resources may help it.
While Risk and Opportunity Assessment needs to be undertaken before starting an initiative or project, it
should be repeated throughout the life of an initiative. Because both the peace and conflict environment
and the initiative itself will change over time, it is important that we monitor the on-going feasibility and
appropriateness of the initiative throughout its life.
There may be cases where the risks are too high – and the opportunities are too low – to proceed with a
project. If this is the finding of the assessment, then it would be a useful exercise to determine what
specific requirements or conditions would need to be in place (or what would need to change) before you
would rethink about launching the project.
Step 3, 4 and 5: Pre-, In, Post Project Assessment
Having analysed ways in which the peace or conflict environment might affect a proposed initiative, the next
task is to assess how the proposed initiative may affect peace or conflict both in the immediate area in
which it will be working and beyond.
To be useful PCIA should be applied at every stage of the project cycle. You will notice that the same analysis
is applied to each stages of an initiative:
Pre-initiative PCIA. This application involves looking for the potential peace and/ or conflict impact of
an initiative before an initiative begins, during the design and planning stage.
In-initiative PCIA. This application involves looking for peace and/ or conflict impact while an initiative
is underway, during initiative implementation. At this stage you are monitoring immediate impacts,
both formally and informally, and making changes to initiative design and direction as necessary.
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 9
Post-initiative PCIA. The final application involves looking for the peace and/ or conflict impact after
an initiative has been completed. PCIA should be integrated into formal initiative evaluations, though
an assessment can be done outside of the evaluation process as well.
What are the Benefits of PCIA?
PCIA is an extremely important and useful process that will help you ensure that the initiatives you are
working on do not aggravate violent conflict and, as far as possible, contribute to building peace within and
between communities.
Some organizations like the Sindaw Ko Kalilintad for example have been able to enhance their project
designs through the introduction of strategies that can help mitigate potential conflict and promote more
peace. Perhaps the clearest manifestation of its benefit is when a community based organization was able
to put on hold the implementation of projects which were assessed to be conflict-creating.
What are some of the challenges and limitations to doing PCIA?
In advocating for the use of PCIA, the challenge lies in mobilizing the LGU, generating commitment and buy-
in from various stakeholders, identifying who should and can initiate the process, and building champions
In building the capacity of LGUs for PCIA, there is a need to: a) simplify technical jargon into more user
friendly terms; b) gain more experiential grounding and application; c) sustain and further develop coaches;
d) identify ways to meaningfully and strategically integrate the application of PCIA in key LGU processes and;
d) ensure that Culture of Peace is factored into the process.
In mainstreaming PCIA, it is important to be able to harness mechanisms (such as MPOC, LT, LSB/LDC, ELA)
for integration of peace and conflict impact assessment, sustain PCIA process and integrate PCIA into donor
processes for project development and appraisal.
Philippine Experience in Broad Strokes
In 2002, partners and key institutions working around peace issues were brought together in an LGSP II-
supported workshop where PCIA was introduced by Kenneth Bush who started working on the PCIA concept
and process in 1998 under the auspices of the International Development Resource Center (IDRC) based in
Canada.
The seeds that were planted then took root in two main fields: a) community based initiatives where PCIA
was used as a means to assess organizational projects of the a Central Mindanao Alliance of Peace
Advocates called the Sindaw Ko Kalilintad; and, b) LGU-led projects in which ACT for Peace-trained
facilitators introduced the process in a series of PCIA workshops.
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 10
The learnings from field experiences were consolidated and summarized in a roundtable discussion held in
February 2007 which also became the springboard for a continuing convergence of major programs such as
the LGSPA, ACT for Peace Program, Conflict Prevention and Peacebuilding Program, National Democratic
Institute and the Office of the Presidential Adviser on the Peace Process.
Recognizing the challenges of mobilizing LGUs for peace work and specifically for PCIA, a smaller group of
practitioners and facilitators were convened in a three-day writeshop to level off on basic concepts,
principles and processes of PCIA in the context of local governance processes. The results of the writeshop
have come in the form of this field guide which is envisioned to strengthen the role and involvement of LGUs
in peace work through mainstreaming of PCIA processes in local governance.
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 11
Chapter 2:
THE ROLE OF LOCAL GOVERNMENTS IN PEACE WORK
National Mandate
Executive Order No. 3 entitled “ Defining Policy and Administrative Structure for Government’s Peace
Efforts” provides the framework for the implementation, coordination, monitoring and integration of all
government peace initiatives in the pursuit of a just and lasting peace in the country. Signed by President
Gloria Macapagal Arroyo on February 28, 2001, the EO mandates the Office of the Presidential Adviser on
the Peace Process (OPAPP) to coordinate and implement the “Six Paths to Peace” which outlines the six
components of the comprehensive peace agenda defined by the National Unification Commission (NUC) as a
result of a series of consultations held in 1992 and 1993.
The six paths include: a) social, economic and political reforms; b) consensus building; c) peace talks with
different groups; d) reconciliation; e) protection of civilians and de-escalation of conflict including the
recognition of peace zones and protection of human rights; and, f) building and nurturing of a climate
conducive to peace.
These are concretized into five (5) goals in Chapter 14 entitled “ National Harmony: The Peace Process” of
the Medium-Term Philippine Development Program 2010 as follows:
National Peace Plan
1. Completion of comprehensive peace agreements with rebel groups resulting in cessation of
armed hostilities by 2010
2. Completion of implementation of all final peace agreements signed since 1986
3. Implementation of an enhanced and integrated reintegration, rehabilitation and amnesty
program to mainstream former rebels into society
4. Rehabilitation, development and healing of conflict-affected areas; and,
5. Strengthening the peace constituency and citizens; participation in the peace process
Goals and Action Plans
Local Government Units play key roles in the achievement of these goals as the administration has
identified in a peace plan comprising two major strategies of: a) peacemaking and peacekeeping; and, b)
peacebuilding and conflict prevention.
Strategies Action Plans and Role of LGUs
a. Peacemaking and
peacekeeping
1. Continuation of peace talks and conclusion of final peace agreements with each
of the rebel groups
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 12
Strategies Action Plans and Role of LGUs
• Conduct of confidence building measures, adoption of interim or humanitarian
ceasefire mechanisms, and negotiations on the substantive agenda constituting
reforms to address the roots of armed conflict
2. Complementary measures to minimize the level of violence arising from armed
conflict
• Support for grassroots peacekeeping initiatives including the community
declaration of peace zones and other spaces for peace, citizens’ campaigns for
and monitoring of ceasefire agreements and localized peace talks
• Tapping of traditional and indigenous mechanisms for conflict settlement
• Informal education to promote nonviolent means of conflict resolution
3. Full implementation of existing final peace Agreements
• Support for the full implementation of RA 9054 or the new Organic Act for an
expanded ARMM
• Provision of livelihood/ direct development assistance to unserved MNLF state
commands and Bangsamoro women’s cooperatives
4. Implementation of an enhanced and integrated reintegration, rehabilitation and
amnesty program to mainstream former rebels into society
• LGUs taking the lead role in the reintegration program in their own localities
under the coordination of the Amnesty and Reintegration Commission (ARC)
1. Rehabilitation and development of conflict areas
• Delivery of core shelter units and immediate livelihood assistance for displaced
families
• Infrastructure and basic services for conflict affected communities
2. Catch up development program for ARMM and affirmative action agenda for
Muslims
• Completion of devolution of national agencies to the ARMM
• Budget reform to enhance fiscal autonomy
• Completion of infrastructure for inter-connectivity of ARMM-constituent
provinces and city
• Catch up plan for health and education to raise the Human Development Index
• Filling up of all vacancies and support for effective operation of shari’ah courts
• Land tenure improvement for actual occupants
• Enhanced agricultural productivity program
• Support for the implementation of the ARMM Special Economic Zone Act of
2003
• Holding of peaceful, orderly and meaningful elections in the ARMM in
accordance with RA 9333
b. Peacebuilding and
Conflict Prevention
3. Conduct of healing and reconciliation programs in conflict affected communities
• Conduct of community based interfaith and intercultural peace education and
advocacy campaigns, trauma counseling and rehabilitative services for
displaced families especially women and children victims of armed conflict
• Holding of community rituals and traditional practices for cleansing, healing
and reconciliation
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 13
In the accomplishment of these goals and action plans, LGUs would be able to play their roles better through
the use of impact assessment processes which can help them gauge the potential peace and conflict impact
of their interventions in peacemaking, peacekeeping, conflict prevention and peacebuilding.
The capacity to anticipate and identify peace and conflict impact can help make the LGU processes more
effective and contribute more meaningfully to the peace process at whatever level of intervention and
engagement. As such, peace and conflict impact assessment should be built into the mainstream of LGU
processes which have a direct and indirect bearing on peace.
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 14
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 15
Chapter 3:
MAINSTREAMING PCIA IN LOCAL GOVERNANCE PROCESSES
What is mainstreaming?
According to the LGSP-II Mainstreaming Toolkit, in any society or organization, there is a “mainstream”
where choices are considered and decisions are made which affect the economic, political and social
position, and options, of the citizens of that society or organization.
Mainstreaming is a strategy to ensure that concerns related to a specific issue or theme are considered
within this central decision making area. It is an approach to governance that makes mainstreamed
considerations a part of planning, budgeting and program formulation.
Mainstreaming contributes to more responsive government and better service provision because it takes
into account special issues, such as impact assessment in this case, that “cut across” various government
departments and impacts on all sectors. It is a long process that takes place in many fronts, requiring
changes in awareness, attitudes, policies, plans and programs
The end goal of mainstreaming is to ensure that initiatives to address cross cutting issues have been woven
into the fabric of society in a way that contributes to sustainable development
Why is PCIA important to good governance?
Government policies and programs affect the peace and conflict situation in an area as outlined in Chapter
II. Thus, the LGU has a strategic role to play in creating an environment of peace and unity within and
between different communities.
LGU activities have a strong potential to positively contribute to peace. For example, local government can
create opportunities for constituents to cooperate and form linkages and productive relationships in pursuit
of LGU-driven projects and programs like delivery of health services, clean water or waste management. On
the other hand, LGU projects can inadvertently create conflict by increasing competition for scarce
resources or increasing inequities in service delivery.
PCIA will enable the LGU to anticipate, monitor and evaluate the impact of their interventions on peace and
conflict.
What are the main challenges to integrating PCIA in LG processes?
In a recent roundtable discussion held among PCIA practitioners, some challenges faced in their efforts to
integrate PCIA in LG processes were identified as follows:
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 16
• Insufficient understanding of the concepts of peace work beyond the traditional mindset of peace,
equating it with peace and order and policing
• The usual assumption that development automatically brings peace, which leads to the lack of
continuous attention to building a culture of peace and addressing the root causes of conflict
• Lack or absence of technical skills, resources or authority for conflict resolution or to integrate peace
and conflict considerations into local legislation and development programs
• LGU initiatives themselves can contribute to conflict
• Political dynamics brought about by patronage politics as well as incompatible goals, interests and
processes traditional leadership and elected officials
• Maximizing the role of the Municipal Peace and Order Councils (MPDO) in peace work
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 17
Chapter 4:
HOW TO MAKE INTERNAL PROCESSES IN LOCAL GOVERNANCE
MORE PEACE AND CONFLICT-SENSITIVE: Awareness Raising Approach
An Awareness Raising Approach involves changing mindsets, attitudes and developing the commitment of
the LGUs to peace as measured through the peace and conflict impact assessment lens. The strategy is
directed towards those who are involved in policy and decision making such as LCEs, legislative bodies and,
in the case of project implementation, the MPDCs.
LG Processes where PCIA can be mainstreamed
a. Policy Development
b. Operationalization of Local Special Bodies (LSBs)
c. Barangay Justice System (Katarungang Pambarangay)
A. Performance Management
This section focuses on a specific aspect of Performance Management which is the Local Governance
Performance Management System (LGPMS) as an internet–based self evaluation tool in assessing LGU
performance. LGPMS serves as a guide in identifying the strengths and weaknesses of the LGU service
delivery system. It can also be used as a management tool in the project implementation cycle. It is
composed of series of structured questionnaire divided into five performance areas (Governance,
Administration, Social Services, Economic Administration and Economic Development) and distributed along
17 service areas with 107 indicators.
LGPMS is an important tool and is used in prioritizing programs, projects and activities that will be outlined
in the Executive and Legislative Agenda which is the basis for determining projects that will be funded by
the 20% Development Fund under the Internal Revenue Allotment of the LGU.
In the processes involved, in LGPMS a potential conflict that may arise is how agencies are dealt with and
the reliability of data. Thus, it is important to subject this process to PCIA in order to mitigate possible
conflict that may arise. Likewise, if the LGPMS goes through a PCIA process, it can help ensure the
transparency, accountability and participation in decision making among respective agencies and personnel
which can, in turn, contribute to the success of LGU operations.
Steps involved in LGPMS
Convening the
LGPMS Team
Tasking/
Date setting Data Gathering
Validation
and Data encoding
SLGR Preparation
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 18
Observable Results and Key Questions to Ask
Step What can result from PCIA
mainstreaming Key Questions to ask
1. Convene LGPMS
Team
2. Tasking, date
setting
3. Data Gathering
4. Validation and
Data encoding
5. SLGR Preparation
� Willingness of concerned
agencies to accept
responsibility for data
gathering
� Reliable data are generated
and used as a basis for policy
formulation and local
development planning
� More effective validation
process
� Stronger sense of ownership
and consensus on the data
and report
� Appreciation of the LGPMS
process as an effective tool
for self assessment such that
issues/ weaknesses that are
identified will be addressed
at different levels
� Concrete steps taken by LGU
which manifest how it is able
to promote rights and
responsibilities and the other
principles of Culture of Peace
� What processes/ mechanisms are in
place that help the LGU/ agencies
appreciate LGPMS and their role in
data gathering and validation?
� What potential conflict (issues and
problems) can arise from the process of
gathering and validation of data?
� What mechanisms should be in place in
gathering data so that potential conflict
is avoided?
� What methods should be utilized to
help ensure gathering and validation of
reliable data?
� What is coming out of the report that
may induce conflict (i.e. blaming,
defensiveness and loss of face)? What
measures can be done to mitigate
potential conflict?
� How should the SLGR be written so that
the language is sensitive, particularly
when the report tackles not so positive
results? How can we come up with
accurate reports that are not offensive?
B. Policy Development
Policy Development is a very crucial step in the LGU processes. The kind of services that the LGU delivers
emanate from the policies which are crafted on the basis of a systematic process of issue identification and
analysis up to policy formulation. These policies may originate from the executive and made legal through
the passage of a resolution/ordinance approving the project including the budgetary requirements by the
Legislative Branch.
Since resources are very scarce in the LGU, policy development should be done in such a way that conflict
among the policy makers and beneficiaries alike will be minimized. The policies that will be developed
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 19
should redound to the improved status and conditions of the constituents and environment. Policies that
are developed should also answer specific issues and needs of the populace and the environment.
Steps involved in Policy Development
Areas for Mainstreaming and Key Questions to Ask
Step What can result from PCIA
mainstreaming Key Questions to ask
1. Issue / Problem
identification
2. Research/ drafting
stage
3. Committee Hearing
4. Public Hearing
5. Plenary (Adoption of
Policy)
6. Implementation of
Policy
7. Monitoring and
Evaluation
� Strengthened participation and
representation of constituents and line
agencies being affected by the policy
� Contributed to increasing the
transparency, accountability and
appropriateness of public decision-
making
� Formulation of quality and consistent
policies
� Well informed and skilled lawmakers
who are able to craft peace-promoting
and conflict-sensitive policies through
an effective policy monitoring and
research process
� LGU demonstrates how it is able to
promote rights and responsibilities and
the other principles of Culture of Peace
� Who will be affected by the
policy being developed? How
will they be affected? In what
way can they be involved in the
process of policy development?
� What measures can be
adopted/ instituted to mitigate
potential conflict arising from
the policy?
� How will these policies be
implemented and monitored?
� How are the results of the
monitoring and research
process being fed back to the
lawmakers?
� Are the policies peace-
promoting or conflict-creating?
Issue / Problem
identification
Research Committee Hearing
Public Hearing
Monitoring and
Evaluation
Plenary
(Adoption of Policy) Implementation
of policy
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 20
C. Operationalization of Local Special Bodies (LSBs)
Organization/formation of the Local Special Bodies (LSBs) is mandated under RA 7160 known as the Local
Government Code of the 1991. One of the major functions of these bodies is policy advisory to the
Sangguniang Bayan. It is also mandated that the composition of LSBs should have Civil Society Organization
representative so that the concern of the latter will be heard.
Specific guidelines are provided in terms of how LSBs should be operationalized in a way that participation
from key sectors in the community is ensured. With more sectors able to participate in governance, there is
bound to be greater confidence among the constituents in their capacity to deal with peace and conflict
issues in a non-violent way. Participation in legitimate channels of authority also builds the credibility of the
governance system especially in communities where conflict has arisen from the failure of law and order.
Perhaps the most important benefit which this local governance process of operationalizing the LSBs can
achieve is the improvement of social communication between and among those who are in positions of
authority and those whom they have committed to serve as public servants. These include the unorganized
and organized groups of women, children, peasants, fisherfolks, elders, and others whose interests, if
addressed, could contribute to a more inclusive local peace process.
Organization/formation of the Local Special Bodies (LSBs) is mandated under RA 7160 known as the Local
Government Code of the 1991. One of the major functions of these bodies is policy advisory to the
Sangguniang Bayan. It is also mandated that the composition of LSBs should have Civil Society Organization
representative so that the concern of the latter will be heard.
Specific guidelines are provided in terms of how LSBs should be operationalized in a way that participation
from key sectors in the community is ensured. With more sectors able to participate in governance, there is
bound to be greater confidence among the constituents in their capacity to deal with peace and conflict
issues in a non-violent way. Participation in legitimate channels of authority also builds the credibility of the
governance system especially in communities where conflict has arisen from the failure of law and order.
Perhaps the most important benefit which this local governance process of operationalizing the LSBs can
achieve is the improvement of social communication between and among those who are in positions of
authority and those whom they have committed to serve as public servants. These include the unorganized
and organized groups of women, children, peasants, fisherfolks, elders, and others whose interests, if
addressed, could contribute to a more inclusive local peace process.
Organization/
Reconstitution of
LSBs
Reorientation
Conduct of
Regular meeting
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 21
Mainstreaming PCIA and Key Questions to Ask
Step What can result from PCIA
mainstreaming Key Questions to ask
1. Organization/
Reconstitution of
LSBs
2. Reorientation
3. Conduct of
Regular meeting
� Designation of appropriate CSO
representative to the appropriate LSBs
� More cohesive relationship and
effective communication between and
among the LSB members
� Effective participation of LSB members
� Enhanced LSB capacities to perform
their duties and responsibility
� Peace-promotive and conflict-
sensitive LSB members
� LGU demonstrates how it is able to
promote rights and responsibilities
and the other principles of Culture of
Peace
� How will the process ensure the
selection of appropriate CSO
(genuine and credible)
representatives?
� What are the strategies that will
promote cohesiveness among the
LSB members?
� How can these be supported by the
systems (e.g., financial/budget
allocation) of the LGU?
� How does the LGU ensure effective
participation of the LSB members?
� How is peace defined by LSB
members particularly that of the
MPOC?
� What measures are being
undertaken to develop the abilities
of LSB members for peace work?
D. Barangay Justice System (Katarungang Pambarangay)
The Katarungang Pambarangay or the Barangay Justice System, as an innovation of the Philippine Justice
system, provides the traditional mode of resolving disputes at the barangay level to achieve peace and
harmony within the community and to provide an accessible and effective form of justice for community
members. It provides for local disputes which fall under its jurisdiction to be resolved through mediation,
conciliation, or arbitration by the Lupong Tagapamayapa of which the Punong Barangay is the Chairman.
The essence of the Katarungang Pambarangay is the amicable settlement of disputes to arrive at peaceful
resolution of conflicts.
The disputants must arrive at a mutually gainful agreement to obtain a peaceful resolution of the dispute
and thus avoid litigation and elevation to the formal confines of the courts. The important consideration in
amicable settlement is the extent to which the parties are willing to compromise their respective claims
against each other within the limits imposed by law, morals, good customs, public order and public policy.
It is designed to achieve the following objectives: 1) to obtain a just, speedy and inexpensive settlement of
disputes at the barangay level; 2) to preserve Filipino culture and traditions concerning amicable settlement
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 22
of disputes; and, 3) to relieve the courts of docket congestion and thereby enhance the quality of justice
dispensed by them (Suarez, 1999).
Steps and Processes Involved
Mainstreaming PCIA in the Barangay Justice System and Key Questions to Ask
Step What can result from PCIA
mainstreaming Key Questions to Ask
1. Filing of Complaint
2. Sending of Summon to
the other party
3. Mediation by the
Punong Barangay
4. If settlement failed,
submit the dispute to
the Pangkat for
conciliation
(mediation).
5. If not settled by
� Consensually generated
solutions arrived at through
the Brgy. Justice System
process
� Increase in confidence and
trust among people in the
Barangay Justice System
� Increase in number of cases
resolved through the Brgy.
Justice System
� Enhanced capacities of
mediators/ local conflict
� In addition to the usual procedures for
settling of disputes, what steps should
be taken by the mediator in order to
enable parties in conflict to arrive at
mutually satisfying solutions and
settlement?
� What principles and approaches
should be emphasized in laying the
ground rules so that both parties are
enjoined to adopt a principle-based
and mutually satisfying mediation
process?
Filing of Complaint
Issue Summons to the Parties
Mediation
KATARUNGANG PAMBARANGAY
PROCESS
Settlement no
Execution
yes
Constitute Pangkat
Conciliation
Settlement
yes
Execution
Arbitration
no
Certificate to
File Action
Arbitration Award
Execution
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 23
Step What can result from PCIA
mainstreaming Key Questions to Ask
Pangkat, issue
certificate to file
action
6. At any stage of the
proceedings, the
disputants can agree
in writing to submit
their disputes for
arbitration and they
shall abide of the
award made by either
the lupon or pangkat
chair
7. If settlement is
reached either in
punong brgy./pangkat,
execute a settlement
agreement
resolution facilitators for a
more consensus building and
mutually gainful approach to
conflict resolution
� Recognition of the importance
of local conflict resolution
processes
� LGU demonstrates how it is
able to promote rights and
responsibilities, living with
justice and compassion and
the other principles of Culture
of Peace
� How can both parties be provided
with opportunities to articulate their
understanding of the conflict issues?
� What can be done to enable both
parties to surface their interests and
how they want these interests to be
addressed?
� What can be done to avoid parties
getting into positional bargaining and
instead be encouraged to explore
common interests and possible
options to resolve their conflict?
� Does the composition of the Lupon
represent the different disadvantaged
sectors?
� Does the process allow for enough
time for both parties to arrive at
consensually generated solutions?
� To what extent have both parties
engaged in healing and reconciliation
processes?
� Has there been a decrease or increase
in the recurrence of conflict between
parties? Are there parties who kept on
appearing before the Lupon either as
an accused or complainant?
� What knowledge and skills do the
mediators need to develop in order to
enhance the mediation process into a
more mutually satisfying one for
parties in conflict?
� What can be done to tap into the
traditional (formal and informal)
conflict resolution processes to
complement the barangay justice
system?
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 24
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 25
Chapter 5:
HOW TO MAKE INTERVENTIONS MORE PEACE AND CONFLICT-SENSITIVE:
Applying PCIA in Local Governance Processes
Application Strategies involves influencing processes, systems, procedures and mechanisms in local
governance in a way that LGU initiatives contribute positively to peace rather than further exacerbating
conflict dynamics. This involves a series of steps which lead to a decision on how the project/initiative can be
further improved or whether it should be implement-ed at all considering the potential impact on the peace
and conflict situation.
One approach could be to weave into the LG process particular steps in PCIA which can complement and
enhance it. Another would be to stimulate conflict-sensitive thinking by asking key questions focused on
impact areas such as: a) conflict management capacities; b) armed violence and sense of security; c)
political processes; d) economic processes; and, e) social empowerment.
LG Processes where PCIA can be mainstreamed
a. Local Development Planning/ ELA
b. Capacity Development
c. Delivery of Services and Facilities
d. Integrated Area and Community Public Safety Plan
e. Emergency Response
A. Local Development Planning And Executive Legislative Agenda
Local Development Planning is a major function of the LGU that entails
analyzing, identifying issues and concerns. The aim is to come up with priority programs to utilize LGU
resources that would bring about development to its constituents. The process of planning calls for the
participation of both internal and external stakeholders. In this manner they ensure quality and appropriate
plans for the municipality. Said plans are also provided with proposed budgetary allocations. Approval shall
be done by the Legislative Body after having been presented to them.
The LGU budget process undergoes several stages: department heads prepare budget proposals, and then
LFC consolidate and presents them on a budget hearing which will be approved by the Sanggunian through
passing and enacting ordinance on appropriation. When all this will be achieved, the budget is ready for
implementation or allocation.
A well prepared plan means appropriate, responsive and relevant interventions that would contribute
towards the building of positive peace. It will contribute to the dismantling of structural violence such as
poverty, diseases, unemployment, lack of adequate education and others. Equally important, the LGU will
be working towards the dismantling of the cycle of conflict caused by lack of development.
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 26
Steps Involved in Local Development Planning
The Rationalized Planning System (RPS) recommends four major steps to local planning:
LDP and Budgeting Process (realities described by the LGU participants)
Authorization
- Budget hearing
- Approval by the
Sanggunian
Review
- By the higher Sanggunian
Execution
- LCE
STEP TWO:
Gathering data on local realities specifically for
selected data or key local development indicators
STEP THREE:
Identifying gaps between “Vision” (Step 1) and “Reality” (Step 2)
that needs to be addressed by the comprehensive land use plan
(CLUP) or comprehensive development plan (CDP)-ELA
STEP FOUR:
Formulating goals, and objectives to address these gaps and
translating these goals and targets to concrete policies,
programs and projects
STEP FIVE onwards:
Executive and Legislative Agenda Formulation
STEP ONE:
Drafting a vision for the municipality or
province
Situational Analysis:
- Review of Plans
- Objective Setting
- Strategy formulation
- Review of Program
Structures
- Elevate municipality
projects to province
Budget Plan & Approval:
- Dep’t. heads submit budget
proposal
- LFC conducts budget hearing
- LFC consolidates budget into
LEP & BESF
Planning:
- Elevate provincial
projects to RO, NGA
- LFC prepares proj. briefs
to be financed by GF
- Budget call LFC computes
budget ceiling
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 27
How PCIA can be mainstreamed in LDP/ELA
LDP Process and BP PCIA Step
Applicable
Who Should
Participate and
Facilitate?
Key Questions
1. Drafting a vision for
the municipality or
province
MDC - Does the vision reflect an awareness of peace
values and aspirations?
- How does it describe the state of peace that is
desired?
2. Gathering data on
local realities
specifically for
selected data or key
local development
indicators
MDC
3. Identifying gaps
between “Vision”
(Step 1) and
“Reality” (Step 2)
that needs to be
addressed by the
comprehensive land
use plan (CLUP) or
comprehensive
development plan
(CDP).
Assessing the
conflict
environment
focusing on:
Nature and
sources of
conflict, Stage
of conflict,
Timeline,
Stakeholders
Mapping
(Onion Ring),
ABC Triangle,
Conflict Tree,
Pillars
MDC (Municipal
Development
Council)
- What are the types of conflict & stages of the
conflict being experienced in the area?
- Is there competition over resource: what kind of
resource, who are the groups interested to have
control of resource, how is the allocation of
benefits being done?
- Is there a conflict management and conflict
resolution mechanism in place?
4. Formulating goals,
and
objectives to
address these
gaps and
translating these
goals and targets to
concrete policies,
programs and
projects.
- ROA (what
are risks or
opportunities
existing in the
environment)
- MDC (Municipal
Development
Council)
Location
- What are the possible impacts of the location on
the proposed programs/ projects?
Timing
- How might the timing of the proposed project
affect its chances of success?
Political Factors
- How might the changing political context affect the
proposed programs/ projects?
Armed Conflict & Sense of Security
- What is the possible impact of armed conflict on
the proposed programs/ projects?
- What socio-economic factors might affect the
proposed programs/ projects?
- Is the project appropriate in terms of structure,
objectives, process and etc.?
- Are there other factors that might affect the
proposed programs/projects (e.g. national disaster,
environment fragility)
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 28
LDP Process and BP PCIA Step
Applicable
Who Should
Participate and
Facilitate?
Key Questions
3. Plan & Budget
Approval
a. finalization of
priority projects w/
budget by
MDC
b. submission to
legislative body
c. approval by
Sanggunian
- Peace &
Conflict Impact
Assessment
(on the
different area
per project)
- MDC (Municipal
Development
Council)
Key questions in relation related to the different
impact areas:
Conflict Management Capacities:
- Will the proposed programs/projects provide
opportunities for individuals/ groups to get
involved in responding to peace building efforts?
Armed conflict and sense of security
- Will the proposed programs/projects affect the
people’s sense of security positively or negatively?
how?
- Will the proposed programs/projects affect the
military/paramilitary/ criminal environment directly
/indirectly, positively/negatively? How?
- Will there be real improvements in the
political, economic, physical, food security among
men and women?
- How can benefits be more broadly or fairly
distributed?
Political structure & processes
- Will the proposed programs/projects help or
hinder the strengthening of
the relationship among stakeholders in the
municipality? How?
- Will the proposed programs/ projects have positive
or negative impact on the political structures and
processes?
- What will be the impact of the proposed
programs/ projects on the HR conditions within
the municipality?
Economic structure & Processes
- Will the proposed programs/ projects contribute to
or distract from efforts to reconstruct damaged
economic and social infra?
- Will the proposed programs/ projects address the
unequal distribution of
wealth?
Social Empowerment
- Will the proposed programs/projects create or
support equity and justice?
- Will the benefits of the proposed programs/ be
shared equitably by both genders?
- Will the proposed programs/ projects contribute to
positive communication or interaction?
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 29
B. Capacity Development
Capacity Development is a program intended towards the enhancement of the knowledge, skills and
attitude (KSA) of the LGU personnel. The Human Resource Management Office is in charge in the delivery of
this program.
Capacity Development becomes strategic if it is based on a strategic plan of an LGU such as a CDP or an ELA.
Any effort to improve LGU capacity should be geared towards contributing to the attainment of its
development objectives and goals.i
A Capacity Development Agenda outlines the capacity development strategies, programs and initiatives that
need to be undertaken to address identified organizational competency gaps, indicating the target groups,
specific approaches that are recommended, resources required and the timeline. For purposes of this
fieldguide, and to be able to demonstrate concretely how mainstreaming of PCIA can be done in this area,
this section will focus on the more specific capacity needs that are usually addressed through provision of
training interventions
Delivery of basic services has a direct impact in building confidence in the capacity and sincerity of the
LGU to address one of the causes of conflict in the communities. Measures that guarantee a higher success
rate in terms of service delivery should thus be instituted, including the development of LGU capacities
towards peace-oriented service delivery.
As the LGU personnel are the frontline of the delivery of basic services of the LGU, it is equally important for
the LGU to equip their staff with appropriate knowledge, skills and attitudes that will gear them towards
more effective service delivery. Peace promoting attitudes and conflict management capacities, for
example, are essential skills which can enhance the ability of the LGUs to connect service delivery with the
goals of peacebuilding. Harmonious relationship among the personnel can also be fostered with capacity
building strategies aimed at inculcating in them the principles of the Culture of Peace.
Steps involved in the Capacity Building Process (focused on Training Strategies)
Training Needs
Assessment
Design and/or Selection
of appropriate training
programs
Selection of
participants
Implementation of
training program
Monitoring and
evaluation
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 30
Observable Results of Mainstreaming PCIA and Key Questions to Ask
Step What can result from
PCIA mainstreaming Key Questions to ask
1. Training Needs
Assessment
2. Selection of
appropriate program
3. Selection of
Participants
4. Implementation of
program
5. Monitoring and
evaluation
� Less conflict among the
personnel
� More positive
communication/ interaction
among personnel
� More objective and
transparent processes of
selection and access to
training opportunities for the
personnel
� Increased capacities of the
personnel in identification
and transformation of
problems
� LGU demonstrates how it is
able to promote rights and
responsibilities and the other
principles of Culture of Peace
� Increased intra/interpersonal
relationships among the
personnel
� Is there an established Human Resource system
that supports the implementation of the capacity
development program?
� What tools are being used to identify the needs
for capacity development program?
� How does the LGU measure the relevance and
appropriateness of the training program?
� How does the CapDev Program support the HR
goals of the LGU?
� To what extent are the Culture of Peace
principles and goals integrated in the Cap Dev
Program?
� Are both men and women being benefited by the
HR Program?
� What are the criteria and mechanisms in selecting
participants for specific training opportunities?
� How will the CapDev Program develop more
peace-promoting attitudes and skills that the
personnel can apply in their work?
� Is there an established monitoring and evaluation
system to measure changes in behaviors resulting
from the application of their learnings?
C. Service Delivery
Section 16 of the Local Government Code states that “every Local Government Unit shall exercise the
powers expressly granted, those necessarily implied thereon, as well as powers necessary, appropriate, or
incidental for its efficient and effective governance, and those which are essential to the promotion of the
general welfare. Within their respective territorial jurisdictions, local government units shall ensure and
support, among other things, the preservation and enrichment of culture, promote health and safety,
enhance the right of the people to a balanced ecology, encourage and support the development of
appropriate and self-reliant scientific and technological capabilities, improve public morals, enhance
economic prosperity and social justice, promote full employment among their residents, maintain peace and
order, and preserve the comfort and convenience of their inhabitants. “
As such, LGUs are mandated to take the lead in the efficient and effective delivery of basic social services
for health, education, shelter, emergency relief in times of disasters, as well as provision of facilities, services
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 31
and infrastructure to support economic development to their respective constituents. Development
planning processes and Performance Management Systems are put in place to ensure that constituents and
other multi stakeholders are able to participate in the planning, implementation and monitoring / evaluation
of services and programs undertaken by the LGU.
Structural violence characterized, among other things, by the majority poor having no access to inadequate
social services especially provided by the government, has spawned not only human misery but also the
three decade- long insurgency problem and the quest for Bangsamoro self-determination.
The provision of social services to address the basic problems of food scarcity, homelessness, poverty to
name a few, restores people’s faith in governance processes and machineries and is counted as essential to
peacebuilding work.
However, because a large number of population do not have access to basic social services, the LGU could
encounter problems in project delivery. To encourage the LGU to undertake the PCIA in the process of
service delivery should be an advocacy aimed at helping LGUs further develop its capacity for conflict
prevention and peace building.
The steps herein describe the normal project cycle, where the LGU identifies its priority needs and usually
includes this in formulating its Executive and Legislative Agenda or in other planning processes. However,
sourcing of funds could come from its development fund of not less than 20% or from outside sources,
either ODA or from line agencies.
Steps in Service Delivery
Needs analysis
/ contained in
ELA
If disapproved
Project
Evaluation
Project Concept
Development /
Planning
Budget /
Appropriation
not less than
from 20%
Project
Implementation
Project Validation
if approved/
MOA signed/
Project Planning
Resource
Mobilization /
Proposal
Development and
Packaging
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 32
Mainstreaming PCIA in Service Delivery
Steps in
ServiceDelivery
Steps of PCIA
which can be used
Who will be
involved? facilitate? Key questions or indicators of impact
Pre-Project
Implementation
Meetings and
Consultations
- planning for
implementation to
include:
� review of project
documents and /
or MOA with
donor agency
(ies)
� project concept
validation
� identification of
personnel
involved
� activation of Bids
and Awards
Committee
� Assessing the
environment
� Risk and
Opportunity
Assessment
� Assessing
potential peace
and conflict
impacts during
project
validation of
proposal design,
target
beneficiaries,
implement-
tation structure
and budget
appropriation
MPDC, Municipal
Dev’t Council/
concern agencies;
or LCE and LGU;
concerned
function-aries as
may be identified
Socio – Economic
� How will the project impact on the peace and
development processes of the LGU?
� Will the project contribute to:
� social cohesion?
� support to development of people’s
organizations /CSOs/ private sector?
� developing trust and confidence of revolutionary
groups in government processes?
� Are women and men equally represented in the
planning processes?
� Will the emerging economic environment be
conducive to women’s empowerment or will it
rather reinforce economic marginalization and
increase women’s vulnerability?
� What measures are in place to ensure the
effective participation of other sectors and
stakeholders in the design of the project?
� What mechanisms and processes will ensure
that criteria for selection of beneficiaries is made
clear to all stakeholders?
� Will the processes ensure prioritization of least
served and marginalized constituencies?
transpa-rency in selection? in fund appropriation
and work scheduling?
Timing
� Are there major activities that might be involved
in that can affect project implementation? (e.g.
elections, peace talks, eruption of violence, etc.)
� What are the factors (cultural, religious, political,
ethnic, gender bias) that may affect the
implementation of the project?
� How will local resources (financial and human) be
mobilized for the requirements of project
implementation?
� Will the project contribute to poverty reduction?
Will it contribute to increased income, generate
employment opportunities or increase
productivity especially those of “marginalized
sectors/communities?”
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 33
Steps in
ServiceDelivery
Steps of PCIA
which can be used
Who will be
involved? facilitate? Key questions or indicators of impact
� Is the project relevant to the condition of the
target community?
� How will the project be sustained such that
benefits accrue to more members of the
community?
Conflict Management Capabilities
� How can the project increase the capacity of
structures or individuals in the LGU esp. of the
target beneficiaries to manage peace and conflict
dynamics in the community?
� How will the project contribute to enriching, if
not installing, an LGU initiated and supported
mechanisms that keep track of violent conflicts?
Or contribute to their just resolutions?
Political structures and processes
� What specific policies or mandates does the
planned project/ program address?
� How can the project/ program strengthen
mutually beneficial relationships between the
LGU and community and CSOs including
members of revolutionary groups in the
community?
� What mechanisms are in place what would allow
for project policy enforcement?
� Will the emerging political system recognize and
protect women’s rights and interests? And will
women be enabled to influence and participate
in the political process?
Armed Conflict and Sense of Security
� Is the peace and order situation in the area
favorable for project implementation? Are there
perceived threats of military operations? Or
eruption of clan feuds? Or threats from lawless
elements?
� How might the level of “trust and confidence” of
the target communities in relation to LGU/
donor-initiated project assistance affect the
entry of the project in the area?
� What project strategies could be developed or
strengthened to raise the awareness and
activities of the community on human rights and
protection issues?
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 34
Steps in
ServiceDelivery
Steps of PCIA
which can be used
Who will be
involved? facilitate? Key questions or indicators of impact
During project
implementation
� conduct of
activities according
to workplan
� procurement of
materials or other
goods as the case
may be
LGU personnel or
from Line
Agency/iesas
designated by
project document
in the
Implementation
Structure and
Plans
Political Structures & Processes
� How is accountability and transparency practiced
among project implementers and stakeholders
especially when relating to beneficiaries and
donor agencies /partners?
� How does the project ensure effective
participation of partners and beneficiaries in the
different phases of the project?
� Will women be enabled to influence and
participate in the political process?
� What mechanisms ensure clear coordination
among staff, beneficiaries, principals & partners
during project implementation
� What can be done to avoid exploitation of the
project for partisan interests of elected officials?
� How does the changing political climate, (i.e.,
leadership changes) affect project
implementation?
Social Empowerment
� Does the project create avenues for social
cohesion such that people are able to participate
regardless of gender, belief, ethnic origins and
class?
� Does the project support gender & capacity
enhancement of both formal and informal
community structures such as the Barangay
Development Council, Katarungang Pambarangay
or others that are present in target
communities?
� Will women’s capacities and skills be recognized
and incorporated in the provision of social
services? Will they generate socio-economic
relationships that are advantageous to women?
� Does the project enable marginalized people to
have confidence in their ability to engage in
governance and economic activities?
Environment
� Do project activities contribute to greater
awareness of human responsibility to protect
specific eco-systems and the international
covenants to which the country is a signatoree
Economic processes
� Are there mechanisms in place to ensure
efficient and timely delivery of services to the
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 35
Steps in
ServiceDelivery
Steps of PCIA
which can be used
Who will be
involved? facilitate? Key questions or indicators of impact
target beneficiaries?
� What new skills and technologies were promoted
or enhanced by the project to warrant
application? Increased productivity?
Engagement in alternative gainful employment?
to enable beneficiary communities to transform
conflict ravaged and mainly rural economies to
develop?
Armed Conflict and Sense of Security
� Does the project seek to engage military
personnel in the implementation of planned
activities?
� Are other revolutionary forces present in the
area supportive of the project?
� What structures, policies and processes help in
addressing potential conflict areas during project
implementation that may come from any armed
group?
� Does the project have corresponding IEC
activities that could contribute to people’s
feeling of security?
Post project
implementation
monitoring
evaluation /
assessment
Benefi-ciaries /
Project Manage-
ment Structure /
Donor Agency
Socio-Economic
� What were the factors and processes that may
hinder or facilitate the smooth project
implementation?
� What social benefits will the project bring to the
community that will foster greater cohesion and
harmony?
� What new skills and technologies will be learned
and applied in the project to effect development
changes in the target conflict prone
communities?
� Will the emerging economic environment be
conducive to women’s empowerment or will it
rather reinforce economic marginalization and
increase women’s vulnerability?
� What the management system is in place that
would ensure project sustainability?
� Does this system promote transparency,
accountability, participation and project
ownership?
Political structures and processes
� How will local governance structures (such as the
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 36
Steps in
ServiceDelivery
Steps of PCIA
which can be used
Who will be
involved? facilitate? Key questions or indicators of impact
BDC, LT, BC, Inter-Agency Bodies, LSBs) be
enhanced because of engagement in project
implementation?
� Will women be enabled to influence and
participate in the political process?
� Does the project allow for participation of other
stakeholders and sectors?
� What support will be generated by the LGU from
bilateral bodies and other agencies to expand
social services delivery and pave the way for
convergence of services?
� What processes will contribute to promoting
trust and confidence among beneficiary
communities in government?
� What potential tensions could erupt as a result of
the project, if any?
� What measures will be taken to avoid these
tensions?
D. Integrated Area and Community Public Safety Plan (IACPSP)
The Integrated Area/Community Public Safety Plan (IA/CPSP) is a document that contains the detailed
plans, programs, projects and activities which are designed for the primary objective of enhancing the role
of the local government units in fostering a safe, secure, peaceful and progressive community. This is
prepared by the local peace and order council (POC) which is created by law where issues and concerns on
peace, public safety are discussed.
A good and sound IA/CPSP springs from community-based consultations/assessments involving
representatives from all sectors. Participatory consultations and planning ensures the inclusion of the issues
of the different sectors and not just those of the few; the acceptance and ownership of the stakeholders of
the plan; and also the gathering of broad-based supporters for the plan.
IA/CPSP serves as guide for the local government units on what programs, projects and activities which
they can implement in their area as an answer to the peace and order problem, including public safety,
disaster, environmental protection and health and sanitation.
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 37
Steps in Preparing an IACPSP
Mainstreaming PCIA in IA CPSP
Components
Of IA/CPSP
Relevant
PCIA Steps
Who is
involved
Who
would
facilitate
Areas of
Assessment
Key Questions/Indicators of Measuring
Impact on Peace and Conflict
1. Community
Based Safety and
Security Assessment
a. Assessment of the
State of Peace &
Order in the
Locality
Step 1
Scanning the
Environment
POC
Members
DILG,
COP-
PCIA-
trained
CSO,
LGSP
Armed
Violence and
Security
b. Identification of
major problems
affecting peace
and order
Step 1
Scanning the
Environment
using the
Scanning
Assessment
and Response
Analysis
(SARA)
method
POC
Members
DILG,
COP-
PCIA-
trained
CSO,
LGSP
Aside from PRA and PSA tools which can
be used in assessing the local situation,
the National Democratic Institute has
developed a module focused on
identifying the community’s familiarity
on basic rights, community dynamics,
community profile, public safety
assessment and community peace
commitment building.
Using the PCIA lens would entail asking
the following questions:
What are the types of conflict being
experienced by the locality?
Is the control over, or use of territory or
resources being disputed?
Is the socio-economic gap between
groups is increasing?
Is the unemployment rising while living
standards and human security are
declining?
Does the IA/CPSP committee have
adequate representatives from
disadvantaged sectors?
Community-based
Safety and Security
Assessment
Assessment of the State
of Peace and Order in
the Locality
Resources and
Constraints
Strategies and
Interventions Implementation of
Programs, Projects and
Activities
Monitoring System
Identification of major
problems affecting peace
and order
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 38
Components
Of IA/CPSP
Relevant
PCIA Steps
Who is
involved
Who
would
facilitate
Areas of
Assessment
Key Questions/Indicators of Measuring
Impact on Peace and Conflict
Location What are the possible impact of the
location on the proposed interventions?
What is happening in the peace and
conflict environment (related to
location) that may affect the
intervention?
Timing How might the timing of the proposed
intervention, affect its chances of
success? What is happening in the
peace and environment (relating to
timing) that may affect the
intervention?
2. Resources and
Constraints
Step 2
Risk and
Opportunity
Assessment
Political
Context
How might the changing political
context (environment) affect the
proposed intervention? What is
happening politically that may help or
hurt the intervention?
Military
Context
What is the possible impact of
militarized conflict on the proposed
intervention? What is happening in the
peace and conflict environment
militarily that may affect the
intervention?
Socio-
Economic
What socio-economic factors might
affect the proposed intervention? How?
What is happening in the peace and
conflict environment socio-economically
that may affect the intervention? Are
there any exclusionary barriers that
prevent inclusion and participation of a
certain category of populations?
Other factors Are these cultural beliefs and practices
that could undermine the role of
women in the implementation of the
project/ initiative?
Are there any other factors that might
affect the intervention? How might they
help or hurt?
4. Design of
Strategies and
Intervention
Step 3-5
(pre, in, post
PCIA)
POC
Members
DILG,
COP-
PCIA-
trained
CSO,
Conflict
Management
Capacities
? absence of violence in the area
? presence of IEC on the anti-crime
prevention efforts and public safety
? politicians without armed bodyguards
? presence of violence due to
competition for natural resources
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 39
Components
Of IA/CPSP
Relevant
PCIA Steps
Who is
involved
Who
would
facilitate
Areas of
Assessment
Key Questions/Indicators of Measuring
Impact on Peace and Conflict
Militarized
violence and
human
security
? number of internally displaced
persons
? number of persons who are victims of
violence and human rights abuses
Political
structures
and
processes
? presence of organizations helping for
the attainment of peaceful
? Role and participation of women
Economic
structures
and
processes
? ratio of peace and order funds to
total annual appropriations
? decrease in income/increase of
unemployment in the locality
? increase number of new business
establishments
5. Programs,
Projects and
Activities
6. Monitoring
System
LGSP
Social
Empower-
ment
? number of school-age children who
are out of schools due to violence
? levels of tolerance/distrust within
cultural, social, ethnic, political,
religious organizations
? rejection of a gun culture/ militarized
culture
? increase budget allocation for health
and sanitation
? number of women availed maternal
and reproductive health care
? recognition and incorporation of
women’s capacities and skills in the
provision of services
E. Emergency Response
Section 17 of the Local Government Code states that Local Government Units shall endeavor to be self-
reliant and shall continue exercising the powers and discharging the duties and functions currently vested
upon them. They shall also discharge the functions and responsibilities of national agencies and offices
devolved to them pursuant to this Code. Local government units shall likewise exercise such other powers
and discharge such other functions and responsibilities as are necessary, appropriate, or incidental to
efficient and effective provision of the basic services and facilities. Among the services is social welfare
which include programs and projects for rebel returnees and evacuees; relief operations; and population
development services.
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 40
It is also the mandate of the Local Government Units to organize an Area Coordinating Center or a Disaster
Coordinating Center which, in times of emergency, is the responsible entity tasked to coordinate and
facilitate the management of relief operations, mobilize resources, and see to it that operations are
properly conducted and responsive to the needs and concerns of the evacuees.
As peace work is relative to development, responding to emergencies, if done in accordance with standards
can also empower people, eliminate fear and prejudices, and build people’s confidence so that they can be
active players in governance.
Emergency response of the Local Government Units is very crucial in peace work, as disasters can set back
development and increase vulnerability. However, if done with people’s involvement and if it is grounded in
uplifting human dignity it can also provide opportunities for development and decrease vulnerability.
The Local Government through the Area Coordinating Center and the Disaster Coordinating Center should
be responsive to the needs of the evacuees and displaced people.
Steps and Processes involved in Emergency Response
Mainstreaming PCIA in Emergency Response Processes
Steps in
Emergency Response
PCIA Steps which
can be applied
Who will be
involved/ facilitate Key questions on indicators of impact
1. Convene the
Disaster Coordinating
Council Conduct
(Rapid assessment of
the emergency
situations)
1. Assessing
the environment
2. Risk and
Opportunity
Assessment
Governor or Mayor
as the case maybe or
the Executive
Officer/Action Officer
Location:
� What is the nature of the disaster and its
location? How many are affected?
� Are there factors in the location which
could affect emergency response? (e.g.
accessibility, etc.)
� Is the affected community experiencing
some form of conflict? What type and what
stage is the conflict in? Who are involved in
the conflict?
Political, social, economic, military and
cultural context
� What factors in the political, economic,
Convene
DCC
Conduct
Rapid Assessment
Plan out
relief operations
Conduct of
relief operations
Post emergency
situation assessment
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 41
Steps in
Emergency Response
PCIA Steps which
can be applied
Who will be
involved/ facilitate Key questions on indicators of impact
military and socio-cultural context could
affect emergency response?
2. Delivery of
emergency relief
assistance
> procurement and
distribution,
evacuation center
management,
monitoring
Human Security
� Is the provision of emergency assistance
adequate, appropriate, given in a timely
manner, in good condition and according
to SPHERE standards? What mechanisms
are used to ensure this?
� What initiatives are being taken to
negotiate ceasefire and peace talks etc.
that could help restore a sense of security
among the residents?
� What preventive measures are in place?
� What specific rights of the IDPs are being
guaranteed in the emergency response
processes?
� What mechanisms are in place that can
help address violations of IDP rights?
� Are there protection measures for relief
workers?
� What mechanisms are in place to ensure
equitable distribution of relief assistance?
� Are women’s capacities and needs
considered in determining relief strategies
and resource allocation?
Conflict Resolution Management Capacities
� How does the ER processes ensure that the
conflicts among the IDPs are dealt with
effectively?
� What mechanisms are in place to facilitate
the resolution of conflicts?
� Who are involved in mediating these
conflicts? What knowledge, skills and
attitudes can the ER processes train them
to develop so that they can effectively deal
with conflict?
Social Empowerment
� How does the emergency assistance
promote people’s participation instead
of dependency ?
� How does the emergency assistance
demonstrate respect for the human dignity
of the IDPs?
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 42
Steps in
Emergency Response
PCIA Steps which
can be applied
Who will be
involved/ facilitate Key questions on indicators of impact
� Are gender considerations factored into
planning and evacuations management?
� What is the level of participation of
community in the relief management?
� How does the emergency assistance
promote awareness of the social and
political aspects of the peace process?
Political processes
� What is the level of response of local
government departments, line agencies in
the emergency situations?
� How does the emergency assistance
processes ensure the development
emerging leaders or organizations?
� Will women be enabled to influence and
participate in the political processes
3. Post Emergency
Situation Assessment
and Evaluation
Governor or Mayor
or the action officer
of the Disaster
Coordinating Center
Social Empowerment
� What is the level of participation of
stakeholders? Men? Women?
� How does the relief operations provide
avenues for interaction among and
between groups?
� How does the relief operations impact on
women and children?
� Was the relief operations done in a
manner that uplift human dignity?
Sense of Security
� Are the relief services appropriate?
Timely? In good condition and in
accordance with SPHERE standards?
� How does the emergency assistance ensure
the safety and security of the relief
workers?
� In what way does the emergency response
restore the individual’s sense of security?
� Does the emergency assistance provide
opportunities for people to develop their
capacity for emergency preparedness?
� To what extent are IDPs involved in efforts
to resolve the armed conflict situation? e.g.
through calls for cessation of hostilities
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 43
Chapter 6:
HOW TO USE THE FIELD GUIDE
The following steps are being recommended as a process, which the LGUs and support institutions can
adopt in introducing and utilizing the field guide:
1. Getting support from leadership
In order to get the support of the LCE for the mainstreaming of PCIA, there is a need to engage them from
the beginning. A simple courtesy call or an orientation meeting with the LCE can be a good opportunity to
present the following: a) context which the field guide seeks to address; b) benefits of mainstreaming PCIA
in LG processes; c) content and processes for mainstreaming outlined in the field guide; d) possible ways in
which the field guide could be utilized by the LGU; and, e) requirements for mainstreaming.
The commitment of the LCE can be firmed up formally with the signing of a Memorandum of Agreement
which or informally with an expression of consensus on the activities and schedule which the LGU will
undertake to start the process of mainstreaming.
2. Consensus Building on PCIA Mainstreaming
Previous experiences illustrate the need to anchor the PCIA process on a more comprehensive nderstanding
of peace and conflict frameworks. A session on Culture of Peace would thus be very useful at this point.
The session can happen in one day and will introduce the participants to the six major areas of
peacebuilding based on the framework developed by Swee Hin Toh*.
The Culture of Peace framework will lay the foundation for an orientation to Peace and Conflict Impact
Assessment (PCIA) which should focus on its background, principles, key concepts and processes. After the
participants have gained adequate information on PCIA, the LGU should be able to decide on the steps they
can jointly undertake to pilot test PCIA mainstreaming. The LGU can choose to focus on one (1) specific
Local Governance process where they think they will be able to demonstrate the mainstreaming initiative.
Having identified areas for mainstreaming, the pilot testing strategies and activities should be decided upon.
These should all be outlined in an action plan that they can monitor using methods, which can measure the
attainment of the observable results identified in the mainstreaming matrix.
It will help if a PCIA team is organized and given the task of ensuring that the plans are carried out in
accordance with the PCIA principles of transparency, participation, inclusiveness, etc.
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 44
3. Capacity Building on Mainstreaming PCIA
There is a need to demonstrate how PCIA could be integrated in the specific local governance processes
through a training intervention designed for the respective LGU department or unit which has been selected
for pilot testing. The participants of the department or unit will be trained to: a) assess the environment for
conflict issues and stakeholder interests; b) identify risks and opportunities in the environment which can
affect the peace initiative; c) assessing peace and conflict impact before, during and after the initiative has
been implemented. Similar to the orientation session described above, the foundation for this should be
the concepts and strategies spelled out in the Culture of Peace framework.
Focus on mainstreaming in the specific LG process will be sharpened through the use of key questions and
indicators to determine possible and actual impacts of the process on the stakeholders involved. These are
outlined in the PCIA mainstreaming matrix corresponding to the LG process being assessed. After the key
questions and indicators are considered, the participants will be able to come up with recommendations in
terms of how the specific LGU process can be further enhanced.
All these should lead to the participants’ commitment to follow through activities which will enable them to
take action on the recommended steps for improving the LGU process. These activities should be organized
into a coherent plan which can be monitored on the basis of observable results and expected outputs
outlined in the mainstreaming matrix. This means the development of a monitoring plan which the
participants should agree on.
4. Monitoring the application of PCIA in specific Local Governance processes
Monitoring of the mainstreaming steps and the results should be undertaken on the basis of the plans which
have been formulated. This requires an investment of time and energy in documentation and information
management.
The results of monitoring will be consolidated in a Learning Forum where the LGU participants should be
able to share what the mainstreaming process has enabled the LGU to achieve, the factors which facilitated
or hindered the achievement of targets, lessons learned from the mainstreaming efforts and
recommendations on how to further improve the PCIA mainstreaming field guide.
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 45
ANNEXES
Annex A:
FIELD-TESTING GUIDE FOR PCIA MAINSTREAMING
1. Background
The PCIA Field Guide is meant to be used by LGUs and support institutions who work to strengthen LGU
capacities. Being the result of a roundtable discussion and a writeshop, it has generated significant inputs
from field practitioners in the areas and strategies for mainstreaming PCIA. In order to further test the
viability and effectiveness of the process which have been articulated in the guide, field testing initiatives
should be undertaken by LGU partners.
Mainstreaming PCIA can help LGUs to develop more peace-oriented initiatives and processes which in the
long run can contribute to more effective governance. It can also help enhance relationships among
personnel and with the constituencies that they serve. As an important process, it needs to be introduced to
as many LGUs as possible so that a critical mass of peace practitioners can be developed and capacitated to
address to immediate and root causes of conflict particularly in the ARMM.
This guide for field testing hopes to outline the objectives, methods and specific steps that can be
undertaken by those who wish to make use of the PCIA Field Guide.
2. Objectives for Field Testing
The field testing activities are aimed at generating feedback on the extent to which the PCIA mainstreaming
processes outlined in the field guide are useful for the LGUs. It also seeks to generate recommendations on
how the PCIA mainstreaming processes can be further improved based on the actual experiences of LGUs.
Specifically, the following objectives are expected to be achieved:
a. to introduce PCIA based on an understanding of peace and conflict concepts and dynamics
which affect the development initiatives and projects in conflict-prone areas;
b. to generate LGU appreciation for the importance of PCIA as a means of strengthening the peace
impact of development initiatives and projects;
c. to demonstrate how PCIA can be mainstreamed in specific LGU processes identified by partner-
institutions; and,
d. to establish ways and mechanisms for monitoring mainstreaming efforts in the LGU.
3. Recommended Strategies and Steps
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 46
Strategy Activity Expected Outputs Timeframe
a. Courtesy Call with the CEO
� The partner-institution sets a meeting
with the CEO in order to explain the
objectives of the field testing and
generate support from the leadership to
convene an Orientation Session
� A copy of the PCIA field guide will be
provided for the reference of the CEO
and specific dates and venue for the
Orientation will be arranged. Logistical
preparations will also be agreed upon.
� Commitment from the LGU on
the PCIA mainstreaming
process generated and
formalized with a MOA
� Date, venue and logistics for
orientation session agree upon
2-3 hours
1. Consensus
Building
b. Orientation Session with LGU (with the
participation of the CEO, Administrative
Officer, SB representatives, Department
Heads and other key LGU personnel)
� Participants will be oriented to peace
and conflict theories which will be the
foundation for appreciating the Culture
of Peace framework as a way of
identifying peacebuilding strategies
based on the six paths or issues related
to peace
� PCIA will introduced as a process of
determining peace and conflict impacts
of LGU processes
� Towards the end of the orientation
session, participants will select one (1)
specific process where the LGU can
demonstrate mainstreaming of PCIA on
the basis of the following criteria:
- political will or support from the
department head
- support and cooperation from the
other personnel involved in the
respective LGU process
� To ensure that plans are monitored and
implemented according to the
objectives and expected outputs, a PCIA
team will be formed which will be
4 hours
4 hours
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 47
Strategy Activity Expected Outputs Timeframe
composed of at least 2-3 key personnel
in the department who can help
facilitate the recommended processes
for mainstreaming
a. Workshop on PCIA Mainstreaming
� Participants coming from the respective
departments involved in the LG process
which has been identified for
mainstreaming will be introduced to
COP and PCIA concepts and processes
� The LG Process will be reviewed on the
basis of PCIA questions outlined in the
matrix (refer to Chapter 4-5) pertaining
to that process.
� Recommendations on how the LG
process can be improved will be
generated from the participants
� Monitoring mechanisms on the actions
taken on the recommendations will be
agreed upon
� The results of the mainstreaming steps
will be documented for presentation in
the learning forum which will be
convened after all the participating
LGUs have undergone their processes
1 day
2. Capacity
Building
b. Learning Forum on PCIA Mainstreaming
experiences
� Participating LGUs will be convened to
enable them to share their experiences
and insights on their mainstreaming
efforts pertaining to specific LG
processes
� Recommendations on how to further
improve the field guide will be
generated and summarized
1 day
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field-testing purposes; 2007 49
Annex B:
ORIENTATION SESSION ON PEACE AND CONFLICT IMPACT ASSESSMENT (PCIA) FOR LGUS
SESSION GUIDE FOR FACILITATORS
1. Rationale
Development players use many tools to monitor and evaluate the development impact of projects with the
use of such indicators as increased water access, agricultural production, public health, literacy and so on.
Yet, when a project is situated in a conflict-prone region such as ARMM, there are more than just
development impacts to consider. Projects such as these affect, and are affected by the dynamics of peace
and conflict within such regions. Thus, in order to ensure that they do not further exacerbate the conflicts in
the area but contribute to the overall goals of peacebuilding, there is a need to measure these impacts in a
comprehensive or systematic way.
Peace and Conflict Impact Assessment (PCIA) seeks to address this need for impact measurement in conflict-
prone areas. PCIA is a means of anticipating, monitoring and evaluating the ways in which an intervention
may affect or has affected the dynamics of peace or conflict in a conflict-prone region. It is a process, similar
to Gender Analysis and Environmental Impact Assessment, which helps identify and understand the impact
of an initiative on peace or conflict. It can be used in a broad range of conflict-settings, i.e., places where
there is a risk that non-violent conflict may turn, or return, to violence. PCIA must be integrated into every
stage of the project cycle- design, implementation and evaluation—if it is to help us in our work.
2. Objectives
The one-day Orientation Session on PCIA aims to enable LGUs to appreciate the importance of the process
in developing LGU capacities for peacebuilding. Specifically, at the end of the one-day orientation session,
participants are expected to be able to:
a. articulate their understanding of conflict and peace based on personal experiences and
theoretical frameworks
b. explain the different conceptions of peace and a framework for building a culture of peace
c. discuss the principles and guidelines for the use of PCIA
d. determine the need for PCIA based on an assessment of LGU processes that impact on peace
and conflict
e. identify ways in which PCIA can be mainstreamed in different LGU processes
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field- testing purposes; 2007 50
3. Design
Schedule Session/Activity Process Materials Needed Expected Output
Day 1
1 hour
I. Welcome Rites
� Opening ritual
� Welcome Remarks
Opening Prayer
� With the principle of punctuality as a starting point,
participants will be asked to open the training with
prayers to be led by a Muslim, Christian and IP.
� Alternatively, an ecumenical prayer or song can be
used to open the training
Welcome Remarks
� Welcome remarks will be formally given by the
sponsoring organization
PowerPoint on
“Orientation Session”
At the end of the session,
participants should have:
II. Orientation Session
� Introductions and
sharing of objectives
� Program overview
Introduction “Colors of Peace”
� Each participant will be asked by the facilitator to
introduce him/herself by sharing their name,
designation and the color which for them represents
peace and why. They will also be requested to share
their expectations (15 mins.)
Program Overview
� The facilitator will present the objectives, methods
and activities that have been designed for the
orientation and relate these to the expectations of
the participants. S/he can identify expectations which
are beyond the training and which can perhaps be
addressed in other trainings. (15 mins.
for the participants:
- manila paper (half)
- fine-tipped
permanent markers
for facilitator:
manila paper
white board marker
masking tape
PowerPoint slides
Created a conducive
learning atmosphere with a
clarification of the
expectations, objectives,
content and methods of
the orientation workshop
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field- testing purposes; 2007 51
Schedule Session/Activity Process Materials Needed Expected Output
2 hours
III. Understanding the
Dynamics of Conflict
� Definition of Conflict
� Experience of Conflict
and Peace
� Conflict concepts and
theories
Introduction
� The session will be introduced as a discussion in which
the participants are expected to be able to level off
on their understanding on basic concepts and
theories of conflict based on their own experiences
Definition of Conflict: “Word Association Relay”
� Participants will be asked to form two lines with
equal number of members each.
� Two manila papers will be posted on the front and
each group will line up before each manila paper
� Facilitator instructs the participants to write one
word, in turns, which they associate with the word
conflict. After each pax has finished writing, s/he
passes on the marker to the next person and goes to
the end of the line
� When the music stops, the writing of words will also
stop and the facilitator counts the number of
responses (should not repeat what others have
already written)
� The facilitator processes the words to come up with a
basic working definition of conflict
Understanding the Dynamics of Conflict: “Circles and
Triangles”
� Two lines will be formed with 15 members each. The
rest of the participants will form an outer circle and
act as observers
two whiteboards
whiteboard markers
(2)
permanent markers
(fine point) 1 each
participant
permanent markers
(broad tipped) 4
assorted colors
manila paper
masking tape
Manila paper with
grid of six horizontal
and six vertical
Articulated their
understanding of conflict
and peace based on
personal experiences and
theoretical frameworks
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field- testing purposes; 2007 52
Schedule Session/Activity Process Materials Needed Expected Output
� The following instructions will be given:
1. This is an activity to enable us understand conflict
on a deeper level
2. Each group will gather valuables and invest them
in the activity
3. A shape will be assigned to each group (circle or
triangle)
4. The objective of the activity is for each group to be
able to form three lines of five shapes either
horizontally, vertically or diagonally
5. There will be three rounds and for each round, the
group representative will alternate with the other
group’s representative in marking the shape on
the grid posted on the board. The grid will have six
squares horizontally and six squares vertically.
6. For each round, the groups will be given two
minutes to plan their move. Representatives can
be changed at the start of each round if they wish
to do so
7. The principle of “touch move” applies
� Processing: the facilitator will process the experience
by asking the participants how they felt during each
round and generate their insights from the activity
� Discussion: The facilitator will lead the discussion on
Conflict Theories focusing on the following key
learning points:
- Conflict is neutral, not negative
columns
Two markers
Manila paper
Permanent Marker
Masking Tape
PowerPoint Slides
with definition of
Conflict
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field- testing purposes; 2007 53
Schedule Session/Activity Process Materials Needed Expected Output
- Conflict is not a contest; its about problem solving
- When conflict becomes violent, it is destructive
- When conflict is transformed into stronger
relationships it is good
- There are different sources of conflict, namely:
community relation, interest, needs,
- The continuum of strategies for conflict resolution
include: peacemaking, peacekeeping and
peacebuilding
Reference Material:
Working With
Conflict, p.4-15
1 hour IV. Strategies for
Conflict Resolution
� Continuum of
strategies
� Conflict Resolution
Theories
� Culture of Peace
Framework
Introduction of Session
Continuum of Strategies for Conflict Resolution: “Pier
Stop”
� Three PIER stops will be set up with manila paper
indicating the following range of strategies each:
Peacemaking, Peacekeeping, and Peacebuilding
� Three groups will be formed using cut out puzzles that
they should form.
� Strategies will be defined as the means or ways in
which peace can be achieved or conflict can be
resolved.
� Participants will pretend they are in a boat ( to
symbolize the way to a goal) and assign a captain to
facilitate the discussion and a conductor to write the
responses on the “pier stop”
� The song “Bugsay” will be introduced
“Bugsay, bugsay, bugsay ngadto sa lawud
Ngadto sa gidamgo nga lawud (2x)
Ngadto sa, ngadto sa, ngadto sa gidamgo nga
Reference Material:
Colored cartolinas
Permanent marker
Pier stops
Peaceful Ways of
Dealing with Conflict,
p. 80-90
Identified processes which
promote win-win strategies
in conflict resolution
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field- testing purposes; 2007 54
Schedule Session/Activity Process Materials Needed Expected Output
lawud (2X)”
� Participants will go around the pier stops, spend 5
minutes in each stop and write the different
strategies that they know which are related to
peacemaking, peacekeeping and peacebuilding. Each
strategy will be defined specifically
� When they get back to their original pier stops, they
will be asked to summarize the strategies listed and
present it in plenary
Synthesis and Inputs
� The facilitator provides inputs on the continuum of
strategies in peacebuilding focusing on:
a) Map of Peacebuilding
b) Nexus of Peacebuilding
� Key Learning Points:
- Peacebuilding is all- encompassing in our social
structures; it is connected to everything
PowerPoint Slides :
Understanding
Conflict
1 hour Lunch Break
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field- testing purposes; 2007 55
Schedule Session/Activity Process Materials Needed Expected Output
1 ½ hrs.
V. Integrating Peace
and Development
� Introduction to Peace
and Conflict Impact
Assessment (PCIA)
Elements of Successful and Unsuccessful Peace
Initiatives: Group Work
� Form groups according to areas or those who are
familiar with the proposal they will be assessing.
� Let each group discuss their experience with projects
being implemented in their community. Each one will
share briefly (3 mins):
a. a project which you have experienced to be
successful
b. the impact it created on the community
c. 2-3 features which made it a success
� Creative presentations (poem or song: “ganito sila
noon, paano sila ngayon”) are done in plenary. (45
mins)
� While the participants are presenting, the facilitator
can already cull out the impact of the peace
initiatives and visualizing these on the board. The
column heading may be: Ganito sila noon, Ganito
sila ngayon, and Success factors.
� After all have presented, the facilitator shall go over
(read) and summarize the ideas drawn from the
presentations and link this to PCIA.
Variation to the grouping method and generating
experiences and ideas on elements of successful peace
initiatives:
� Participants will be asked to think of a sound that they
relate to peace.
Manila paper and
masking tapes
Permanent markers
Discussed the principles
and guidelines for the use
of PCIA
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field- testing purposes; 2007 56
Schedule Session/Activity Process Materials Needed Expected Output
� While making their sound, they will go around and look
for four other people whose sound they relate to.
� They sit together and share their experiences of
peace programs that have been: a) successful and b)
unsuccessful
� After each one has shared they will come up with a
list of words that describe successful and
unsuccessful peace programs. They will they come up
with a group song or poem combining the key words
that they use to describe the features of a successful
and unsuccessful peace program. The song or poem
should be composed of at least 4 stanzas.
� They will write the song or poem on manila paper
and post it on the background while they present in
front of the big group
Synthesis
� The facilitator will cull out the key words describing
the principles of a successful peace program and
discuss PCIA concepts and principles
� Discussion Outline: (refer to PowerPoint)
- What is PCIA?
- Why PCIA?
- Difference between development indicators and
peace indicators
- When to do PCIA?
- Principles of PCIA
- Steps in doing PCIA
Reference Material:
PCIA Manual
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field- testing purposes; 2007 57
Schedule Session/Activity Process Materials Needed Expected Output
1 1/2 hrs
VI. Mainstreaming PCIA
in Local Governance
Processes
� Awareness Raising
Presentation of LG Processes involved and key
questions to ask (refer to field guide)
Determined the need for
PCIA based on an assess-
ment of the LG processes
which impact on peace and
conflict
1 ½ hrs � Application in Local
Governance Processes Presentation of Local Governance Processes and Steps
in Applying PCIA (refer to field guide)
Identified ways in which
PCIA can be mainstreamed
in different LGu processes
1 hr VII. Planning for
Mainstreaming of PCIA
VIII. Closing
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field- testing purposes; 2007 58
Produced by LGSPA and GOP-UN MDP ACT for Peace Programme for field testing purposes; 2007 59
BIBLIOGRAPHY
Bush, Kenneth. Hands-On Peace and Conflict Impact Assessment Manual. June 2006.
Bush, Kenneth. One-Page Primer on PCIA. June 2006.
Pelayo, Jenny. Post Activity Report, A Measure of Peace: Roundtable Discussion. LGSPA and ACT for Peace
Programme. February 2006.
Toh, Swee Hin. Towards a Culture of Peace. Walking the Path to Peace Kit. LGSP-II. May 2001
A Toolkit for Mainstreaming: Gender Equality, Environment, Peace and Unity, Poverty Reduction, and
Participatory Governance. LGSP-II. 2003.