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Republic of the PhilippinesDepartment of Social Welfare and Development

IBP Road, Batasan Pambansa Complex, Constitution Hihsl,19ut7;o~e(i),8l126Telephone Nos. (632) 931-8101 to 07; Telefax (632) 931-8191

e-mail:

Website:

Administrative Order No. _Series of 2008

Subject: Guidelines on the Implementation of Pantawid PamilyangPilipino Program(4Ps)

I. RATIONALE

Conditional Cash Transfer Program in Latin American countriesand the Carribean such as Mexico, Brazil, Honduras, Jamaica andNicaragua in the late 1990s shows effectiveness in promoting hi,.Jmancapital accumulation among poor households. There is clearevidence of success in increasing enrollment rates, improvingpreventive health care and raising household consumption on nutrientdense foods. Conditional Cash Transfer program provides cash grantto poor families to enable them to invest in human capital by sendingtheir children to school and bringing them to health centers forpreventive health check ups.

The Government of the Philippines, through the leadership of theDepartment of Social Welfare and Development was challenged toreplicate or adopt the Conditional Cash Transfer (CCT) Programdubbed as Pantawid Pamilyang Pilipino Program to address key healthand educational issues and growing incidence of poverty thatcontinues to affect the extremely poor Filipino families.

The main goal of the Pantawid Pamilyang Pilipino Program is tobreak the inter-generational cycle of poverty by fostering change inbehavior among parents to invest in their children's (and their own)future (health, nutrition, education) because low schooling and highmalnutrition rate are strongly associated with poverty cycle in thePhilippines.

To effectively implement the program, a well designed and efficientprogram procedures and mechanics are needed to serve as guides tolocal implementers. This will help define and delineate roles andresponsibilities of the local government implementers, ensureavailability of the demand-side on health, nutrition, education andsupport services for the beneficiaries in order to achieve success inprogram implementation.

II. LEGAL BASIS

The implementation of Pantawid Pamilyang Pilipino Program IS Inpursuant to the Millennium Development Goals addressing thefollowing:

a. Eradicate extreme poverty and hungerb. Achieve universal primary educationc. Reduce child mortalityd. Improve maternal healthe. Promote gender equality and empower women

The Department as one of the national agencies workingtowards the achievement of the Millennium Development GQals iscommitted to implement the Pantawid Pamilyang Pilipino Program.

Executive Order No. 221 of 2003 Amending EO No. 15, series of1998, entitled "Redirecting the Functions and Operations of theDepartment of Social Welfare and Development" mandates the DSWDto provide assistance to Local Government Units (LGUs), non­government organizations (NGOs), other national governmentagencies (NGAs), people's organizations (POs) and other members ofcivil society in effectively implementing programs, projects andservices that will alleviate poverty and empower disadvantagedindividuals, families and communities for an improved quality of life aswell as implement statutory and specialized programs which aredirectly lodged with the Department and/or not yet devolved to LGUs.

III. DESCRIPTION

The Pantawid Pamilyang Pilipino Program (4Ps) is a povertyreduction strategy that provides cash grant to extreme poorhouseholds to allow the members of the families to meet certainhuman development goals. It is focused on building human capital ofpoorest families (health/nutrition and education) because lowschooling and high malnutrition rate are strongly associated withpoverty cycle in the Philippines.

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GOAL and OBJECTIVES

Goal:

To promote human capital among poor families specially children,to break the intergenerational cycle of poverty.

Objectives:

1. To improve preventive health care of pregnant women andyoung children

2. To increase enrollment/attendance of children at elementarylevel

3. To reduce incidence of child labor

4. To raise consumption of poor households on nutrient densefoods.

5. To encourage parents to invest in their children's (and theirown) future

6. To encourage parent' s participation in the growth anddevelopment of young children, as well as involvement in thecommunity.

6. TARGET AREAS and CLIENTElE

a. Areas

In the selection of target areas for the implementation ofthe program, priority is given to the 20 poorest provincesbased on the 2006 Family Income and Expenditure Survey(FIES) issued by the National Statistical Coordination Board(NSCB). Further, the poorest province in the regions which arenot included in the 20 poorest were likewise considered toensure a regional spread/nationwide implementation.

The Small Area Estimates (SAE) developed by the NSCBshall be used to select the municipalities in the poorestprovinces.

Cities shall be selected using the list of poor areas issued bythe National Anti- Poverty Commission (NAPC).

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Selection of barangay is done in consultation with the LocalGovernment Units giving consideration to the socialdevelopment projects of the government. Barangays areonly selected in urban areas while the municipality in ruralareas are fully covered by the project.

b. Clientele

Eligible Households

Eligible households for the program shall meet thefollowing qualifications:

• Residents of the municipalities and barangays identifiedas areas of implementation of the 4Ps.

• Selected by the statistical formula (Proxy Means Test)developed for the program and belongs to theextremely poor household classification as defined bythe poverty threshold of the municipality/provincebased on the issuance of the National Statistical and

Coordination Board (NSCB)at the time of selection.

• Household with children 0 - 14 years old or withpregnant woman at the time of selection.

IV. IMPLEMENTING PROCEDURES

The following illustration describes the cycle of implementationof the 4Ps:

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Cycle of Implementation

3Selection of

Families

2

Supply-sideAssessment

t1

Selection ofProvinces/

Municipalities

4Organization of

Assemblies

82nd/Suceeding

Release

5FamilyHegistry .

Preparation

61st Payment

7Verification of

Compliance withConditions

Conduct of sessions on familyplanning, PESand others

1. Selection of Eligible Provinces, Municipalities, Cities andBarangays

1.1. Selection of Provinces/Municipalities

Selection of provinces shall be based on theclassification developed by the National StatisticalCoordination Board (NSCB) using the 2006 Family Income andExpenditure Survey (FIES).

1.2. Selection of Municipalities/Cities

The Small Area Poverty Estimates (SAEs)developed bythe NSCB shall be used to select municipalities within theselected provinces.

1.3. Selection of Barangays

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Selection of barangays will only apply in urban areasand shall be based on the availability of supply side on healthand education based on the results of the supply sideassessment conducted by the regional office. Likewise,consultation with the Planning Office of the concerned LocalGovernment Unit shall be done to ensure that the barangaysidentified for the 4Ps implementation will not be affected byany development projects that may lead to the relocation ofresidents for at least the next three years.

2. Supply Side Assessment

Supply side assessment shall be conducted uponidentification of the target areas using the supply sideassessment tool on health and education. The supply sideassessment aims to determine the readiness of thecity/municipal local government units in ensuring delivery ofpriority health and education services for the target poorhouseholds. Prior to the conduct of assessment, an orientationof the local government units on the mechanics and tools onsupply side shall be conducted.

3. Selection of Households

A Household Survey shall be conducted in the target areas, usinga two-page assessment tool. The Household Assessment Toolcovers the necessary information to run the Proxy Means Test thatidentifies/determines the poorest of the poor in the target areas.The results of the Proxy Means Test shall be a ranking of householdsbased on the socio-economic profile. Prior to the conduct ofhousehold assessment, proper orientation on the use of thehousehold assessment tool shall be undertaken.

4. Organization of Initial Community Assemby

When the household beneficiaries have already been identified,the community assembly in the barangay shall be undertaken.The main thrusts of the initial community assembly includeidentification and validation of potential beneficiaries andorientation about the program. The conduct of the initialcommunity assembly shall be initiated by the regional office inclose coordination with the local government units.

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Orientation on the Program and Conditionalities

During the initial community assembly, the potential beneficiariesshall be oriented well on the conditionaltiies of the program asfollows:

a) Pregnant women must get pre natal care starting from the 1sttrimester, child birth is attended by skilled/trained professional,get post natal care thereafter

b) Parents / guardians must attend family planning sessions/mother's class, Parent Effectiveness Service and others

c) Children 0-5 years of age get regular preventive health checkups and vaccines

d) Children 3-5 years old must attend day care program/pre­school

e) Children 6-14 years of age are enrolled in schools and attendat least 85% of the time

Other Duties And Responsibilities of Household Grantees

a) Attend meetings and group sessions and coordinate with 4Psmother-leader on concerns relative to the program in thecommunity such as schedules of release of cash grants andinformation on household information such as address,stopping of children in school or transfer to other school.

b) Attend parenting education sessionswith the spouse and otherrelated seminars for 4Ps beneficiaries

c) Provide regular update on meeting the conditionalities of theprogram to the 4Ps mother-leader as part of verification

5. Family Registry Preparation

All potential beneficiaries who agreed to participate in theProgram will sign the oath of commitment indicating theirwillingness to comply with the conditionalities of the program.

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Issuance of 4Ps identification cards shall also be undertakenincluding enrollment to the Land Bank Cash Card Program.

6. Provision of Program Package

Upon registration of household beneficiaries, appropriateprogram package shall be determined based on the qualifiednumber of children in the household particularly on educationgrant. For Health grant, P 500.00/month per household shall begiven or a total of P6,OOO.OO/year.

For Education grant, 3-14 years old children enrolled at theDay Care Program/Pre-school and elementary education shallreceive P300.00/month for 10 months or a total of P3, 000.00 in ayear with a maximum of 3 children per household.

Thus, household with 3 children shall receive P1,400.00 permonth and those with one or 2 children shall receive P800.00and P1,100.00 per month respectively.

Based on the registry, the Project Management Office willmake the payment lists and the amounts to be paid. The firstcash transfer shall be made upon signing by mothers of theagreement to participate and comply with the conditionalities.The 1sf cash transfer does not require the verification of any ofthe conditions. Subsequent cash transfer shall be made everytwo months subject to verification of compliance toconditionalities as specified in the agreement.

Cash trdnsfer shall be coursed through the most responsibleadult person (usually the mother) in the household via credit toelectronic card banking system particularly through the LandBank Cash Card program, or other delivery mode most feasiblein areas where Landbank and its network banks are notavailable.

7. Monitoring and Verification of Compliance

Compliance of beneficiaries to the conditionalities set forth bythe program shall be monitored by the DSWD ProgramManagement Office. A monitoring and verification mechanismshall be installed in all schools and health centers where childrenbeneficiaries of education grant and mothers are availingeducation and health services. Focal persons in each school

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and health centers shall be identified to assist the beneficiariesto enroll and access to this monitoring and verification system.

Compliance refers to carrying out the specific conditionalities onhealth and education by the household grantee. Non­compliance to any of the conditionalities may havecorresponding repercussion which may lead to termination fromthe program.

8. Succeeding Release

The DSWD-Project Management Office is responsible in theconsolidation of reports on monitoring and verification ofcompliance of household's beneficiaries. The results ofverification shall be used to determine the amount ofsubsequent release of cash grants to beneficiaries.

B. Regular Conduct of Community Assemblies

Regular community assembly shall be conducted in thebarangay to bring all concerns of the household grantees to theoverall operation of the program. In the conduct of communityassembly, a cluster of 20-30 household grantees in aneighborhood are organized to form into a group calledassembly.

The conduct of the community assembly shall aim primarily tomonitor compliance of household grantees to programconditionalities, remind household grantees of their commitmentsand responsibilities, facilitate activities and interventions neededby the household members and the community in general,facilitate grievances and complaints and facilitate the conduct ofsessions on family planning, mother's class, parent effectivenessseminars and other parenting education activities. Communityassembly is scheduled to be done twice a month and to befacilitated by the municipal link and/or mother leader.

C. Organization of Grievance Committee

To provide quick access to and due process in resolving non­compliance and complaints and to promote a graft-free programby evolving a transparent approach in resolving grievancesparticular to meeting the conditionalities of the program, a

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grievance committee shall be organized at the national, regionaland municipal levels.

The National Grievance Committee is composed of DSWD,DepEd, DOH, NAPC,DILG and DBM. The Program Director servesas the Chairman. It shall have the functions of reviewing andconducting investigation filed by the Regional GrievanceCommittee. It shall act on and provide decisions andrecommendations on cases endorsed at the national levelparticularly on cancellation/termination of household granteesresulting from 3rd instance of non-compliance to programconditionalities as well as provide technical assistance on mattersfiled at the regional level.

The Regional Grievance Committee composed of RegionalDirector from DSWD, DepEd, DOH, DILG and the Provincial SocialWelfare Officer. DSWD Director chairs the Regional GrievanceCommittee. It shall monitor the progress of compliance toconditionalities on filed cases at the municipal level and shallmonitor resolution of grievances, disputes, comments andcomplaints of cases filed at the municipal level. The RegionalGrievance Committee shall serve as the main repository of intakeforms on all grievances at the municipal level, and conductquarterly ex-post facto review of at least 10% of all decisionsmade at the municipal level. The Regional Grievance Committeeprovides decisions pertaining to suspension in cases of 2ndinstance of non -compliance to 4Ps conditionalities. The RegionalGrievance Committee shall likewise forward to the NationalGrievance Committee cases recommended for termination.

The Municipal Grievance Committee is composed ofCity/Municipal Social Welfare Officer, Municipal Health Officer,Municipal Link, School Principal and Parent Leader of theConcerned Barangay. It shall receive filed cases of non­compliance to APP conditionalities from any of the members ofthe community. It shall provide clarifications and resolutions toany form of complaints and problems from the householdgrantees and/or between and among the grantees and anymember from the community, and shall refer and file unresolvedcases at the regional level on cases of suspension.

V. INSTITUTIONAL ARRANGEMENTS

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The National, Regional and Local Advisory Committeesshall be created and be chaired by the Department of SocialWelfare and Development. It shall draw inter-agency policies forthe implementation of the program in accordance with themandates of the agencies concerned such as the Department ofEducation, Department of Health and National Anti-PovertyCommission. Organization of Advisory Committee shall beundertaken down to the regional and municipal levels in order tostrengthen coordination in the implementation andoperationalization of sectoral activities to better execute therequirements in the implementation of the program in order tomeet the conditionalities on education and health.

To ensure effective and efficient implementation, thefollowing are the specific roles and functions of the Department asthe lead implementing agency, and partner agencies:

Department of Social Welfare and Development

Central Office:

a. Oversee and coordinate the implementation, monitoringand evaluation of the Program.

b. Chair the Advisory Committee at the National andRegional levels.

c. Jointly conduct assessment of supplies for health andeducation in partnership with concerned agencies

d. Identify target areas based on existing data and selectpotential beneficiaries;

e. Forge agreements with the LGUs to ensure availability ofthe supply side

f. Provide technical assistance to the regional, provincial,city/municipal level on the over-all operations of theprogram

g. Serve as repository of data and information about theprogram

h. Develop and implement grievance system for theprogram

I. Mobilize, manage and account program funds andresources

Regional Office:

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a. Translate national policies to region specificoperational guidelines to ensure smoothimplementation of the Program,

b. Coordinate the implementation/operationaiizationof sectoral activities to better execute Programobjectives and functions at the regional, provincialand municipal levels

c. Review and resolve all Regional concerns andrequirements needing actions,

d. Ensure that supply side on health and education areavailable at the target municipalities,

e. Hold regular monthly committee meetings, andf. Prepare/submit monthly/quarterly accomplishment

reports.

Department of Health

DOH shall:

a. Ensure representation in the Advisory Committees at thenational, regional, city/municipal levels

b. Ensure that supply of health and nutrition services areavailable in target provinces/cities/municipalities/barangays.

c. Augment the LGUs logistics needs to enable them toprovide the supply-side for 4Ps, including enrollment toPhilhealth

d. Assign/designate a permanent staff to form part of the4Ps Team at the national, regional/ provincial/ city/municipal levels

e. Help monitor program operation particularly oncompliance of conditions for health

Department of Education

DepEd, which is mandated to provide basic education that isequitably accessible to all children shall:

a. Ensure representation in the Advisory Committee at thenational, regional, city and municipal levels

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b. Ensure that supply of schools, teachers and educationmaterials are available to 4Ps targetprovi nces/ cities/ munici pa Iities/ba rang ays

c. Assign/designate a permanent staff to form part of the4Ps Team at the regional/ provincial/ city/ municipal/school levels

d. Help monitor Program operation particularly oncompliance of conditions on education amongbeneficiaries

Department of the Interior and Local Government

DILG, which mandated to promote peace and order, ensurepublic safety and further strengthen local governmentcapability aimed towards the effective delivery of -basicservices to the citizenry, shall:

a. Actively participate in the activities of the NationalAdvisory Committee and Technical Working Groups thatmay be created in all levels for the implementation ofthe Pantawid Pamilyang Pilipino Program (4Ps)

b. Encourage LGUs to incorporate pro-poor programsparticularly on health and nutrition in their plans andbudget

c. Assist lead implementing agencies in capacitatingtarget LGUs in accessing resources for the upgrading offacilities to meet the MDG goals

d. Assist lead implementing agencies in the monitoring andeva!uation of Program implementation specifically at thebarangay level

National Anti-Poverty Commission

NAPC as the "coordinating and advisory body" that exercisesoversight functions in the implementation of Social ReformAgenda shall:

a. Ensure representation In the Advisory Committee at thenational level

b. Provide data/statistics on poor families nationwidec. Help monitor Program operations at the regional level

The Local Government Units

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The Local Government Units (LGUs)shall:

a. Ensure availability of the supply side on health and education inthe target areas

b. Provide necessary technical assistance for Programimplementation

c. Coordinate the implementation/operationalization of sectoralactivities at the City/Municipal level to better execute Programobjectives and functions

d. Coordinate with various concerned government agencies at thelocal level, sectoral representatives and NGO to ensure effectiveProgram implementation

e. Prepare reports on issues and concerns regarding Programimplementation and submit to the Regional Advisory Committee,and

f. Hold monthly committee meetings

VI. MONITORING AND EVALUATION

Monitoring shall be conducted to assessthe household grantees'ability to follow or comply with the conditionalities both for healthand education. Monitoring shall be conducted at the localgovernment unit level to determine the availability of the supplyside on health and education. Appropriate Monitoring Tools shall beused in monitoring the compliance to program conditionaltiies andsupply side to ensure that basic sectoral services are provided tohelp the target beneficiaries meet the conditionalities particularlyon health and education.

The Advisory Committee at the National, Regional and Municipallevel shall have the main functions of overseeing the overallimplementation of the program in their respective levels and shallundertake monitoring visits to assess the efficiency andeffectiveness of the program and provide appropriaterecommendations in strengthening program implementation.

An Independent Monitoring and Advisory Committee shalllikewise be created at all levels to function as independent monitorof the program. This is a group of imminent personalities meetingregularly to discuss issues and concerns, provide inputs andrecommend actions to further improve program implementation.

Program impact can only be measured by doing evaluation onprogram policies and implementation. For 4Ps, evaluation shall be

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done by an outside group to ensure objectivity. The PMO and thefield offices shall provide all the necessary support to the evaluatingteam at all levels of evaluation processes. Evaluation is necessary inall social development programs as it defines the effectiveness ofpolicies set forth, the mechanisms installed and the implementationprocedures with the aim of improving the program.

VII. EFFECTIVITY

Issued in Quezon City, this !6!Joi July 2008.

RANZA I. CABRAL

Secretary

DSWD - OSEe

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