A PATTERN OF STATE AND NON-GOVERNMENTAL ORGANIZATION
(NGO) COOPERATION- THE PHILIPPINE CASE
by
Ernesto s.
Bachelor
Gorospe
of Arts
University of
in
the Philippines
Quezon City,
Philippines
1974
October,
Submitted
In
Economics
Partial
Fulfilment
Of The Requirements
For
The
Degree Of
Master
Of City Planning
At The
Massachusetts
Institute
June,
Ernesto
S.
Of Technology
1988
Gorospe
1988
The author hereby grants to M. I. T. permission to reproduce and
thesis document in whole or in part.
to distribute
copies of this
Signature of Author
partment of
Certified
Ur
-n
Studies and Planning
by___
-tiIishwapriya Sanyal
})hes... Aivisor
Accepted
Ph.D.
by_M
5ml
WEMMIUSErTS
OF TE0LOGY
AUG 16 19,
Donald C.
Chairman,
Sc
MCP
n Ph. D.
Committee
i
THESIS ABSTRACT
Third World
development organizations including governments
and NGOs, had been
drawn to
an increasing
realization that the
central
task
of
development
was
not
simply
the transfer of
resources
but
rather
the
development
of
the
human
and
institutional
will
to put
whatever resources are available in a
democratic
and
sustained
manner.
In
the
rural development
scene, the
impact of
both government
and N3GOs efforts
had been
limited
because
of
the
failure
to
exploit
beneficial areas
ofcooperation.
While
models
of
public-private
sector
cooperation were well-established in
theory, they
lacked fuller
understanding in
practice.
The study illustrates
that there are
particular
roles that the state and NGO can assume in
the formal
context of a rural development program, that reinforces the power
and legitimacy
of both
rather than
diminishing them.
It also
outlines
the
possibilities
and
requirements
as
to
how such
interdependence between the state
and
an
NGO
in participatory
rural development
can grant the poor more economic and political
power and provide better access to resources.
ii
ACKNOWLEDGEMENT
In
the
to Prof.
following:
subject
conduct
as
students
early
and
of
this
to
of
my
in
of
(NEDA)
S.
the study;
the
the
reformist-oriented
to Prof.
has guided
Economic
Government
Florian Alburo
for
their
bureaucrats
in
proper
the conduct of
National
Pasimio
the
and reader,
at
superiors
Harry
of
and
the
and Assistant
support
and
government;
to
of the LRM Project whose dedication and vision to help
the Philippine rural
Ernesto
Garilao,
poor
who
is
as
and materials despite his
and to
in
necessary course background for
the
Director-General
the staff
formulation of
Deputy Director-General
encouragement
advice
both as academic adviser
Authority
Philippines,
useful
providing
who
Development
interest
the core practicum course for MCP
during
Alan Strout
research;
nurturing my
to the
as
and methodological
the
am most grateful
for
for
obtain
I
Bish Sanyal
theoretical
me to
study
Dr.
Idrian
Khaidir
a constant
source of
PBSP executive director
hectic schedule
inspiration;
to
lent his time
at Harvard
University
who gave valuable time and assistance
in the word-processing of the manuscript.
Finally
men and
right
and most
important,
to the
Almighty God
organizations to serve my best needs and
times.
who moved
purposes at the
iii
PREFFACE
My interest
in State-NGO
relations grew out of my exposure
and involvement in the field as
half
years
of
major rural
the
development
Government in 1983.
a
new
government
empirical
Local
program
the takeover by
1986,
had
to
lay
became
been
down
leave
implications of
a
It
convinced
generated
it
clear
was
policy
and
from my
fall
short
of
the
I
that
I
document the policy
standards
imprecise
evaluated and
of
what would
findings.
I
tested
offer
generalizing from
this
study and its
a pro-government
in
viewpoint
stand as hypotheses to be
other
settings
or through
viewpoints.
have
interests
have
for the
I am aware of the inadequacies of
with the understanding that the results
alternative
timely
more
on NGO role in rural
position to
conclusions as someone who articulates
discussed,
enough
the
was with this purpose in.mind
good case study.
and
with
very
data and specific examples and the pitfalls of
limited
that
the LRM experience.
study
constitute a
1
environment,
one-year
This
implemented
(LRM) Project, a
Within that period and until
development activities.
took a
Resource Management
and a
the Philippine
evidence
government
for five
by
in
supportive political
project manager
had
of
the
attempted
students of
to
write
the study bearing
government-NGO
predisposition
relations.
in
mind the
However,
I
to write imbibing the optimism of
Public policy implementation.
addressed
of
NGOs
myself
in
Thus
I
have
to those who are directly
programs
and
pro.jects
also
particularly
involved with the use
in
settings
different
inculcating beneficiary participation as an approach.
Although I
have tried to be objective,
supporter of the role of the
development.
state
as
I regard myself
the
At the same time I also believe
lead
as a
intervener
in
in the virtues and
strengths inherent in NGO work but not in downplaying government.
I see
a place
for
both the state and NGOs as major channels for
helping the poor cope with
society.
the
problems
of
living
in
a rural
To
been the
NWoel Paul
my w f
Rn
insp i rat
and
whseoxa nne
i on of
Christian.
my
i ntel
ar vt i
t
lectual
J and cr eat iv
p3LUi tIS and
talnt
t0o my
.- av
ISoM
TABLE
OF CONTENTS
Abstract
Acknowledgement
Preface
Chapter
I-
ii
Introduction
Effective CollaborationOrganization
of
the
Is it Possible ...................
Study.
4
..........................
6
Beneficiary Participation and Rural Development ........... 7
The Search for the Commons..
................
9
The Developmental NGOs- The Third Generation ..
.... ...
12
Laying the Groundwork for State-NGO Relations.............
14
Chapter
II-
The State and NGO In
Present
Rural
Development-
Past and
Challenges of a New Regime......... ......
...............
Participatory Development in the 1970s- Fact or Fiction..
Current Government Attitude Towards NGOs..............
Involving NGOs in a Rural Development Program..........
Beneficiary Participation Component .
..................
Chapter
III-
16
19
22
23
27
The Philippine Business for Social ProgressEmpowering Rural Organizations and Structures
The Search
for
A Model...........................
29
.......
Getting Involved in a Government Program-................
Of Poverty Groups and Municipal Development Councils.....
34
36
Empowering
39
the
Poverty
Groups-..-.........................
Organization Building for Poverty Groups.................
Key Concerns in Organizational Development.............
Accomplishments of Program Interventions............
Breaking Structural
Barriers
to Poverty............ .......
Reaching the Poor Through Municipal Development Councils.
Building the MDCs Partner Development Organization .......
Key Concerns in MDC Organizational Building..............
Trained Leaders and Functioning MDCs-.-- --...........
Chapter
IV-
Towards A Strategy for State-NGO
Participatory Development
Validity of COMMUnity
Empowering the
Poverty
Activating
Decentralization
Organization
Groups.
and Restructuring
of
as
. .
Cooperation
an
Approach
in
.......
56
60
.....................
the Bureaucracy...............
Authority..................
40
42
44
46
48
49
50
52
62
....
.....
Beneficiary Participation as a Basic Approach............
65
66
Chapter
V
Conclusion
NGOs-- the Catalytic Role.
..................................
Towards Lasting State-iNGO Relations......................,.
Notes and References.
Bibliography.
...................................
...................................................
7
7
,......
76
1
A PATTERN OF STATE AND NON-GOVERNMENTAL
ORGANIZATION (NGO) COOPERATION - THE PHILIPPINE CASE
CHAPTER
INTRODUCTION
I-
not
whatever
put
the
of
use
equitable
the service of
themselves and their
Democratization
it
community
through
which
people
individual
interests
policy.
These
supported by State
create
function
the
in
organizations
guiding
to
structures
social
members:
framework
order
in
institutional
necessary
their
the
within
and
interests.
that we now see the emergence
of substantially
of
prosper
and
national
must
be
pol i ci es that
space for them to
political
It
and
collective
their
pursue
and
define
organizations
local
of independent
of a network
level
can
development at the
a similar
there is
accomplished if
authority.
public sector
substantive democratiz at:ion
that real
in
operationally translated
been
has sometimes
became apparent
only be
a
communities.
decentralization of
State into
manage the resources
mobilize and
to control,
But
in
the opportunity and
poor people
that give
conditions
the incentive
by the
poor,
the
particularly
This task can only be accomplished under more
sustai ned manner.
democratic
people,
and
productive
into
available
are
resources
the
capacity to
and
will
institutional
the human and
development
reSources but rather
of financial
simply the transfer
development of
task of
that the central
realization
to an increasing
is
developing countries have been drawn
governments of
National
is
within
this
increased
context
interest
of
State
the
g poverty,
and increasi
as
cheaply to the poor
economic
and
more
and
directly
able to accomplish
than governments have been
over
programs
graduall y
orientation.
more
small
involved supporting scattered
primarily
prospects for
consequence,
in
actors
But
significant
projects producing
limited
Partly
replicability.
viewed as
have been
they
as a
bit
players by the major
of
the
the development scene.
the
awareness of
limitations
has been growing
number of
NGOs
are
the necessary
about effecting
the
and
has
work
but too often with
localities
sustainability
projects approach
a growing
a few
in
impressive results
more operational
developmental
their
roles,
intermediary
intermediaries in
as
assuming
Yet whether
NGOs.
support of national
have moved beyond a
more
serve
to
role
devel opmental
more
a
to
on
NGOs particularly
International
operational
direct
transi ti
the
maki. ng
organizations and
primarily as relief
time starting
their
considerable evolution in
gone through
organizations have
non -governmental
national
and
many international
Similarly,
with
to NGE(s
own.
on their
or
resources
turning
are
benefits
more
nancial
fi
political
the base of
getting
and
decision-making
non-governmental
of
governments
national
broadening
for
means
a
es
iinC
declii
an era of
In
(NGOs)
organizations
rol
devel opriental
the
i n
State
scale
to
sustain
and
about
over
beginning
institutional
local
how
the past
to
scattered small
few years.
think
more
and policy
And
broadly
linkages
on
a
these organizations might
be
development
action
i n hel pi ng devel op these
ef f ect i v e
and
institutions
on rural
programs
impact
comparable
for
has
reshape
to
delivery
control
be
to
programs remain
development
rural
helping
in
NGOs
the potentials
However,
world.
the
around
potenitial
The
kages
es and birth
polici
population
national
by
demosristr ated
:Lmressi vely
been
in
realized.
part
Third
and
Yet in
the
of the
rural
three decades,
last
have wel comed
world governments
public
of
deliverers
sector"
was
symptomatic
deliver
the
kinds of
poor.
To a
ex:tent,
certain
the design and
in
particularly
design
the
in
success
ability to
group
initiate m ore democratic
through
sectors
creation
promote private-public
that
organizations
the
of
and
of
small
discrete,
some
initial
poverty-focused
remained
has
that
NGOs can en hance the
level.
the village
of
the
be successful
despite
i mplementation
and
contrib ution
projects, NGOs potential
is their
implementation
to
sector
possession
to
them
enabled
However,
projects.
development
rural
have
that
attributes
special
"third
poorest of
the
was due to their
th is
a
as
the public
of
benefit
that
services
emergence
+failure
the
of
providers
NGOs as alternate
Their
goods.
a
countries.
developing
in
scene
development
very much
NGOs have been
untapped
decision-making
empowerment
of
strengthening
sector
at
poverty
of
rural
partnerShip
in
development work.
the
Still,
scene has
which
take
been
a
NGos'
limited.
distant
impact
In
and a
part,
in the ov erall
this
suspicious
rural
development
ca n be
e<xplained
by NGOs
at titude
towards
the idea
4
of
structures.
as
hand,
sources of
because NGOs never get to understand
in
expertise
single biggest
heavy
Much
has
of greatest
impact
activities
for scarce foreign
is
particularly
work
through
of
State-NGO cooperation
grow
around
NGO
that
theme
preliminary
the power
Collaboration-
Effective
This
State-NGO
in
a
and autonomy of
Study
1s
attempts
It
to
development
continue
there are areas for
State-NGO
rather
than
both.
Possible?
demistify the myth of
partnership by defining a specific
rural
public
examples of
list
collaboration that strengthen and mutually reinforce
diminish
for
allows
Successful
action.
are rare but the
the
that
mechanism
the
evidence
cases where development
in
strong
In many cases
empirical
however, the
impact on the poor,
of
relationship
this
on
the State and the NGO sector.
amplification
sector
said
been
already
ambivalence between
to
explains their
partly
funding.
donor
on
NGOs fear government
aggressive competition
and
dependence
to access the
country and therefore
a
this
funding and
with
And
the necessary
they fail
population.
client
larger
that comes
control
in
development resource
reach a
to
fail
competition.
and generate
government,
with
working
the other
on
Governments,
threats and
NGOs as
regard
government
the bureaucracy
and red tape in
for effectiveness.
factors
national
and
l ocal
politics
1NOs view
limiting
with
partnership
in
working
program.
area
In so doing,
ineffective
for cooperation
it aims to fill
a
5
gap in
the literature
State
and
where successful
assumed
be
the study
and
as an
survivability
the
that
ensuing
bases for
rural
interactions
cooperation
State-NGO
development
attempts
study also further
the Study
As SUch,
State-NGO
effective
for
pattern
institution.
initiatives
and
legitimacy
its
to
key
responses of an
State development
of
character
the
are
programs
a concrete experience,
of
how the strategic
demonstrate
to
aims
the chanqing
NGO to
the presentation
Through
development.
and
programming
rural
in
decision-making
grassroots
for
necessary
linkages
roles
and policy
necessary institutional
interplay so as to forge the
what
these roles
how
and
NGO
and
State
the
by
insti tut ions rarel y exi st.
seeks to answerthe question of
it
More prescriptively,
can
on rural
cooperation
NGO
the impact of
accounts on
long-term
then proposes
indelible
leave
an
which
can be useful
The
implementation.
to theorize on how the commonality of
ideology and values, development priorities and approaches can be
strategy
implementation
participatory
Progress
(PBSP)
State-NGO cooperation
interesting
participatory
towards
the Philippines'
case
popular government
for
from
Business for
the Philippine
as the key platform to build a pattern
The choice of PBSP was logical,
prominent of
in
development.
The study utilizes the case of
Social
successful
cooperation
State-NGO
for
a
of
formulation
the
in
factors
critical
it
being
NGOs.
rural
development.
the largest
and the most
The cot..tntry
study
since
the
two
decades
of
of
recent
dictatorship
itself
is
emergence of
an
a
was made
possible with the
Orqaniation
Chapter
support of NGOs.
of
the Study.
I
outlines briefly
bases
the study namely the general
emerging
developmental
relations.
r ole of
and
development
r ural
factors
accounting
The chapter frames
in
more prescriptive
of
some courses
point
poverty-oriented
i mpact
l egji ti
role
in
mate
pOI icy
Chapter
interventions.
a
the
rural
mandatory
pursued by both groups.
co llaborative
a prototype
it
would define
What
formulation
for
V summarizes the
from the study.
that there is
both the State and NGOs in
helping
and
in that
State
for
the study proposes
for
IV
Chapter
in participatory d evelopment.
orientation
conclusions that can be drawn
and a
analyze the
and
successful
for
State and
and mechanisms for State-NG0 partnership
action
as a possible take-off
sum,
program
from that experience
State-NGO cooperation
strategy for
In
th e
probe into
and re sults of such collaboration.
the
ex perience.
development policies
Fhe two chapters
in a
rationale
explains
NGOs in
c
and the strategi c responses of PBSP to these p olicies
NGO partnership
is
State-NGiiO
as the
resulting conditions.
It
the
and
as well
rural
evolution of Philippine
nature,
of
more
examine
III
and
II
Chapters
history
intervener
management
NGOs and
the
relations,
for State-NGO
development actor and
the lead
as
government
underpinnings of
the theoretical
that
should
generating
The
poor.
one
a significant
be
needs
the
relationship
place
significant
is
a
to be vigorously
proper
roles and
-7
of
interrelationships
This
di. scovered
first
a
providing
Beneficiary
to
contr i bute
theoretical
map
of
development
there
Generally,
that
theories
on
were
referred
of
of
the
in
of people
process.
participation
in
defined
is
participation
First,
to development
to respond
people
ves
initiati
encourage local
people's
made
been
is
participation
decisions.
development
Second,
includes
processes,
development
by central
combined
together,
as
bureaucrats,
g overnment
to
limited
with
to
f our
those
to
rural
reference
in sharing
eva . U at i C n
of
types
and
implementing
in decision-
involvement
people's
these
well
objectives and activities
in imp Iementati on,
programs and the
of
t his mode of participation,
p articipation
ru ral
sense to
and ability
programs as
plans,
decisions regarding devel opment
already
In
(1).
broad
its
sensitize people and thus increase receptivity
When
that
participation
role
as a continuum from a lesser to a greater
making
earlier.
to
The definitions can be classified
participation and development.
have
going on
perspectives on the relationship
can be cited on the differing
rural
of the
nature
the
the reexamination
three definitions
can be
have been
participation
views
reflect
They
process.
development
about
the area.
of beneficiary
the divergent
reflecting
by
search
that
to
Development
And Rural
Participation
i ntended t o be
is
what
is
study airrs
Various definitions
proposed
s!ector
e-ch
such
of
of
benefits of
programs
participation
(2).
8
comprise
social
given
is
of more
economic and
empowerment
source of resistance is
can be
The
(5).
to
impediments
decision-making,
personnel,
instability
to
give it
of
is
beneficiary
personnel
inadequate
of
greater
level
skills
and
(61).
resources,
technology.
cultural
itself
One
and
where
centralized
of government
and
systems
evaluation
placement
like
where obstacles to
are
participation
the
from various
impetus.
operational,
the
One could also add lack
complexity
delivery mechanisms,
and inappropriate project
changes in
from the government
vaIues,
attitudes,
lack
as
categorized
Since
institutions
and
at the community
activities-based
information,
processes,
people
other
as
(4).
encountered
from
try
governments and NGOs who
participation
resistance is
clear
is
fundamental
can initiate
very structure of society,
This
well-established
is
concept
in
beneficiary participation
of
participation that
of beneficiary participation
validity
the
area,
On this
structural
terms
focus on.
the study will
sources.
in
and access to resources.
action
political
is in this third definition of beneficiary
social
definition.,
this
equated with the process of empowerment
participation
It
In
(3).
control
such
from
and movements
groups
of
part
the
on
situations
excluded
hitherto
in
resources and regulative institutions
over
control
increase
to
efforts
organized
as
also
defined
is
participation
ThirId,
or unequal.
limited
stages is
these
in
participation
practice,
although in
programs,
devel opment
for
cycle
an ideal
lack of
of
planning
coordination
Three is
not much that emerge
from theoreti cal
how to over-come resistance to beneficiary
two fronts.
this
The little
is
done can
experiences.
a number
be drawn
There is
of
different
that
Third
is
a
fr-om
a growing
World NGOs
program
known
not impossible
propositions are
and advocacy.
United States and Canadian
they are
Third World
NGOs draw
(7).
usually low priority
government.
Under
policy-making.
Under
by
NGOs on NGO roles in
four
These
empirical
specialization, consumerism,, services provision
of a delivery system in
which
concentrate on
a problem
or controversial
consumerism,
NGOs
service provision,
it
may complement,
In
the NGO becomes a public
advocacy,
the NGO
mission,
identifying
groups,
urging
performs
its
and articullating
improvements
in
ones not
involve
the NGO is
supplement,
extend or substitute for the government delivery system.
category,
in
to the conviction that
area,
In specialization, NGOs
or a target group,
part
governments
World counterparts.
implementation
policy
clientele in
their
on
propositions and models have been developed from
the experience of
addressed
this
case
however,
seem insourmountable,
In
of
The Commons
A number of
public
number
literature,
working with
to overcome.
First
on these
very limited
settings that give rise
lessons from their
The Search for
participation
of the methodologies on how
body of
while resistance to participation
discussion on
In this
agent purchased by government.
distinctive
the needs
role
of
development policy!
and historic
disadvantaged
and practice
10~
.and criticizing
The
or defending
above
models
government
of
State
with cases examples that
did not
worked,
did
the
relations
government agencies was not
and NGO relations
work.
very well
severe
were playing
intermediary
the public
sector.
were the
poor ,
helping
them
get
supplied the
intermediation
resources.
Under
done in
remote
the only
this
while
set-up,
areas.
that
when NGO competition
with
These
roles
to
are the
between
and
the public
the
poor
and
for
the
sector.
sector
often
The NGO
supplied
worked
conditions,
Thus under these
instances
advocates
the public
relations
tolerated institution
littered
few cases
brokers
access
are
For the
(8).
when NGOs
They
services.
the
best when
the
NGO was
that provided the assistance and
performed organizing among the poor.
The situation changes, however, when the State moves
terri
tory
previously
politically difficult
alternatives
open
go elsewhere,
government.
to
the
reformist
place
dilemma
under
a
in
more
is
but
image
progressiv e
reformist
programs
doing
the NGO contribution
that
marginal
image,
and
may
redundant.
the NGO is
forced
NGO.
to
so
itself
becomes
NGOs.
situation
in
The
are either
the
service
to
of
the
heightened particularly
by cases of
repressive
the
this
government,
may
suddenly turn
The
government.
completely
loses
Sometimes
to
There it
tolerate
NGO given thi s
government turnover. Under a
be
an
government
for
bow-out or
This
by
occupied
into a
reactionary
government's
overwhelm what
its
in
new
an NGO is
distinctiveness,
order
do something
NGO may
become
to preserve
different
or
its
selfdo work
:11
somewhere
In
else.
additio
n to
this
State-NGO
relat
idea
partn ershi p
of
ions,
innovative and
funding
hard
to
work.
being
w ork
a
'tool
with
governmental
distinctiveness
of
evid ence
governmental
that
there
is
of
one
when the government
done.
When
contribution
could
that
relationship
exist
in
a
they
is
why
This
fact
claim to
another non-
just
claim
to
a thorny issue
(9).
the NGO themselves
wh ere
area
copies,
be
can
significant
of
relationship
are properly
adopts
describe d
be
the
(10).
is
less
acknowledged,
it
ta kes over or expands on what NGOs
government
of health,
limited number
But
often
good number
the field
their
NGO programs were shaped more by
government entities of embarking
showing
Sometimes by
lose
being
in
government
and they work very
provider.
complicated and NGO contributions
have
idea of
in terests, priorities and funds than by experimental
and innovative initiatives
is
they
by
service
show
The
government'.
and innovativeness is
Available
the bases for
that complicate the
position
government,
public
of
NGOs pride themselves on being more
distinctiveness and innovativeness
If
factors
a difficult
them in
avoid
choosing
there. are other
efficient than government.
places
to
character
ever-shifting
NGO
programs,
as having
programs by first
In
(11).
and
often
success cases in
this
NGO
lowered the cost -to
upon certain
don e
the
this
very
area,
family pl anning and nutrition,
the
case,
good.
There
particularly
but only a
in production-rela ted activities.
does
government-N GO
interdependence work well
in
12
some cases?
role of
The answer may
or
in
the evolving
The activities
NGOs themselves.
have more
lie
The Developmental
Over the
NGOs--
based
The Third
years, there
NGO community both,
assistance
a
NGOs,
reflecting
Many
relief
of
first
by the
making
NGO
broadly-
Towards this effort,
there
assistance strategies of
the
literature
as three
(12).
generation started as charitable
organizations, relying on private contributions to deliver
welfare
services
be found.
welfare
continue
action.
to the poor and unfortunate wherever
As a
efforts
immediate need,
to
But
response
Then in
to
an appropriate
and it
expected
arise,
as
a
is
demanding
a diminishing
the development
community,
situations,
that
immediate
development
the mid-1970's,
that attempting
emergency
represented
currently has had
food,
the
toward
self-sustaining,
what are categorized in
NGOs
local governments.
and national
in the
generations of thought and action
aInd how deep
a continuing effort
major force for
considerable diversity
how far
Generation
has been
international
efforts
and
development in the Third World.
arose a
in
surrounding these roles
less dictated the boundaries of
they would collaborate with national
inter-generational
strategy,
they might
rel
ief
and
response to a real
such
and
situations
effective
relief
and
will
relief
and
welfare
number of adherents.
among NGOs and other
organizations
there was an increasing recognition
to relieve poverty through the direct
health care and shelter attacked only its
delivery of
symptoms without
13
addressing
cause.
its
scale development
representing
development effort.
capabilities
in
practices,
seeing them as
towards small-
to
was towards developing
promote
organizations
might
local
with
their
that
government
as
that
their
own
emulation
by public programs.
The third generation
development
Currently,
dimension
recurrent cost
political
corrupt,
the
issues of
realization
village
that
development
institutional
Indeed
xist.
substantially
in
second
interests.
incompetent
bypass it,
generation
conducting
sustainability,
At the
discouraged
dependence on central
the
of
this
and
even
and
of
of impact
reexamination
and
is
the
supportive
many cases do not
local
overshadowed
programs
reexamination of
system of
which in
instances,
efforts.
outcomes of self-reliant
depends on a
and policies
many
a
breadth
heart
sustaining
sponsored and administered
local
in
is
initiative
linkages
local
role of NGOs adds a sustainable systems
missing
recovery.
Some
/
activities are intended as models for
the NGO community
strategy around
development
created
hostile to their efforts, have sought to avoid or
claiming
farming
public development
own
competing
program
such NGO efforts,
independently
represent
perceiving
improved
self-reliance.
to discourage and control
fearing
of private
generation
and other community
competitive
and
NGOs,
second
infrastructure,
governments attempted
Some
a
The new focus
intended
programs
was directed
areas such as preventive health,
local
activities
NGO attention
initiative
is
by bureaucrati cal ly
State
which create
subsidies and extend societal
control
14
to
the lowest
ot..itcomes
on
of
working
other
societal
government
both public
institutional
and
local
The number
to
competence,
analysis,
into
place
support
third
such efforts
Most
sector
is
self-
generation
are presently
now more
another
in
coalition
own
purpose
developing
policy
and
building
and
a
range
institutional
with private
and
but use them
for State-NGO Relations
or
less
that
find
government.
NGOs that
themselves
Usually,
institutional
and
that
can
For
Similarly,
policy
government
result
the NGO,
settings on a municipal,
a
less
this
in
the
effective
one
impact
the
self-reliant
mobilization of
changes in
or even on
operational
a
programs
command of
stunt
means facilitating
provincial
direct
may
in
broader
government
setting
take on
working
the resources necessary to attain
ineffectively.
implies
explicit
strategy would
with
already possess
resources.
their
institutions.
generation
initiative
of
for example
and
Laying the Groundwork
This
put
will
while simultaneously
as
networking
way or
to
themselves to
definition
clearer
of new capacities--
third
wide range of
private initiative.
of NGOs committing
a
distinctive
It
which
ul ti matel y
infancy, presenting demands on NGOs that undertake them
achieve
public
and a
and private---
linkages
strategies is growing rapidly.
in their
instances, the successf Ul
initiatives may depend
coillaboratively. with
sustaining
such
In
devel opment
rural
institutions--
policies
levels.
a national
involvement
these
basis.
at
the
1.5
communitv
private
level
and more
orQanizations
bear
on
local
suspicions
involvement
that
difficult
The relationship
ways.
it
not
a variety
resources
of
and
public
policies
given
sometimes
government-NGO
that
the mutual
hostility,
outright
and
forging
relationship
a
becomes a
challenge.
Though
and
But
if
harmonious and effective
serious
control
development.
involved,
with
may seem,
as it
at
can be initiated
One
by the mutual
is
the common
requires
realization
development
of
agenda.
complementarity
the task at
the
open
impossible.
in
one
hand
relationship
is
so large
to
carry
can
cooperation.
The
two
of
agenda
of the development
resources and efforts
Thus
and
not
the minimum
acceptance
that
the pooling
the task is
that
out the
be
one
second
of
type
of
relationship can be described as critical
collaboration where the
NGO
and
views
the
government
as
corrupt
anything right while the government
real
NGO
incapable
is distant
of
and suspicious of
intentions.
Be that
as
it
may, the
potential
for
cultivating a long-
term and sustainable relationship presents itself,
if
managed
harbored to mature in accordance with the following stages
First,
freedom
power
the
services
the
to
work
structure.
services
to
NGO
doing
State
allows
within the
the
context
The NGOs delivers
the poor segments of
also
develops
made available
an
NGO the opportunity
of
the
national
the contracted
the
expertise
population.
over
to community clientele
skills
(13).
and the
and local
assistance
At
and
this
and
whether
and
stage,
range
of
public
or
16
private.
Second,
the
NGO proves
and services at lowest possible
itself
to
transfer
replicates
its
expertise
role
in
base
and
government
puts
move
program
The
additional
in
reSources
to
permits
Since it
from
the
advocacy
and
programs
over and
advocacy
policy
support
organization
its
implementation.
and
policies,
enumerated
above
coordinated fashion.
the
Government
has the
pop Ulation,
influence
to
decision-making
in
its
II-
proceed
in
:a neat,
State as represented b.' the
NGO as
Progress
IN RURAL
represented by the
(PBSP)--
illustrates.
DEVELOPMENT--
PRESENT
a New Regime
just
about
two
has initiated
to redemocratize
to its
not
the Philippines and the
PAST AND
administration
the
case--
THE STATE AND NGO
Challenges of
do
In fact, the process is bound to be a messy
prototype
of
steps
Philippine Business for Social
back
The government
st ructures.
institutional
In
in
into
organized
accepts
reorientation of
CHAPTER
to others.
credibility
established
the NGO can
and programs,
as
technology
impact.
having
Third,
one
cost and the opportunity presents
the technology and
achieve a greater
above
the
can deliver the asistance
i t
that
years,
President
important
Philippine society
republican structure.
Corazon
political
Aquino's
reforms
designed
and to bring the government
Two
dec:adEs
of
rule under
17
former
President Ferdinand
dicctatorial
control)
democratic
rights.
Marcos
inexorably
institutions
and
Since 1972,
(fourteen
of them
emascUlat ed
eroded
the thwarting
years
the
people's
of popular
courntry 's
constitutional
sentiments aRnd the
consequent deceleration of economic growth in the early
to the polarization
of the poor,
All
these
under
1980s led
of Philippine society, the disenfranchisement
and the rapid expansion of
conditions
Philippines was ripe
point
towards
the insurgency movement.
direction
the
the
for a revolution.
But the resilience and the democratic
the Filipinos
that
as part
of their
principles imbibed by
colonial
heritage made
them opt
for a less violent means of political
change.
of people
the streets on February 22-
25,1986
power, Filipinos
supported
took to
a breakaway military group,
duly-constituted
civilian
government
and thus ended Marcos'
President,
The
swift,
transition
without
massive
In
from
popular
support.
precedent
by Mrs. Aquino as
regime.
dictatorship
historical
installed their own
headed
dictatorial
a rare display
to
democracy
and
Immediately,
continues
the
has been
to
new
government
restored basic
freedoms, undertook military and judicial
and
bureaucratic
initiated
ratification
of
a
congressional
and
solid
basis
legal
political
new
local
and
enjoy
reforms
reorganization.
The overwhelming
constitution
and
the
the
government
elections
placed
accomplished
the
holding
of
on
a
main agenda for full
normalcy.
The
euphoria
that
greeted
the
ascension
of
the
new
is
admi ni strati
on,
of
ac compani ed
was
on the one hand,
expectations,
account
however
the economic
crisis,
on
the other.
was under very strong pressure
lives
a large
rural
poor.
The
can
expectations
high
popular
and diminished public resources on
therefore
of
by
to
The government,
improve
quickly the
percentage of the population particularly,
extent
be met
with serious political
to
in
which
this
revolution
the next few years is
implications
for
the
the
of rising
a crucial
issue
future stability
of
the country.
Given the
economic
seventy percent of
recession since 1983,
the population
disproportionate number of
live
a
below the poverty line--
these undoubtedly live
Notwithstanding what appears to have been
in
rural
an economic
areas.
upturn
in
to progressive and enlightened strategy and
1986-87 attributable
policies,
estimates are that
assured economic recovery and development
is
not yet in
sight.
Among
for
the guiding principles
development
reliance
on
are a strong free market
the
private
sector,
overall
reduction of poverty.
based
employment
agricultural
banking
priority
marketing
system for the
selected
orientation
with
sector
reforms.,
expansion
with
supports
on
reduction
as incentives for agricultural
commodities
a heavy
special
is
credit
and
and the
strategy is
to
to
other
ruralto
attention
be
strengthening
of
program
increased efficiency
The core of the
generation
This
agriculture.
of the new government's
supported
of
the
producers,
forms
development.
of
by
rural
price
risk
19
is
It
of
the mobilization
the
that
the
on
it
on
is
the
Dev elopment
1970's,
By the early
that the
prevailing
results th ey
they
claimed
inequality ha d
increased.
resource,
plans,
They
le
gave
also
planning,
care and e ducation.
ion in
a
the
the
on efforts
poverty
and
reappraisal
of
and
more
wider
central
with better
industries
as an abundant
labor
distribution
administration
among
small
housing, health
Since then, the concern for more beneficiary
development has become quite widespread.
its
of
to community
role
to raise production
the poor
approaches
and related
of
the
economy had
the new development
use
more
not brought
if,
of
a
the Philippines
absolute
result
the
of the expressed interest was
was divested of
in
an emphasis on decentralized
farmers, a nd on providing
much
a
GNP,
generation
employment
participat ion through
participat
in
of
or Fiction?
strategies had
role for agriculture
d evelopment
benefits.
and flexib
As
Fact
Although
at all
development.
quite evident
WOul d.
gains
emphasized a greater
the
it was
1970's--
p olicies and progra ms,
developmen t
in
The
development
si gnificant
attained
In
remain
If they are
assignment
generalized role and space for NGOs in rural
Farticipatorv
level,
rhetorical
of
matter
A
1970' s shows
the
in
policies
similar to those of the past.
substantially
different,
least
at
policies
the
1
sector and poverty alleviation.
rural
development
cursory review of rural
emphasis the
gives
government
that the present
clear
real
simply rhetoric,
significance
Because
participation
for development.
Thus by
20
the
late
supposedl y
of
areas
sponsored and coordi nated programs
1970'sg,
overnment
based
on part i c ipattory
health, care,
primary
i ntegrated rural
development,
farming systems and social
During the
approaches
communal
irrigation developmerint,
mar k et i ng
cooperatives,
the anchor for
the Philippine rural
development strategy was the integrated rural
It
its primary components.
was distinguished by
systems approach to development
program
physical
sector
participation
IRD program
development.
primary
Despite
investment.
in
its
was
still
of
bureaucrats and
the
development and on
the funding
which might
an
program
agencie s,
IRD
land
of
regarding the
than,
vari ous
cooperati v es,
government
types
have
the
sites and
heavily
lending agencies.
infrastructure
on
are the priorities
for
the
are made by government
foreign
the
focused
rather
processes,
top-down ap proach to rural
project
assume t he benefi ciaries
si gnif i cant medi a of
further
and promote private
i ncreasing productivity,
Concomitantly,
particularly
a
decisions
con sul tants
IRD
service S,
and implementation
essentially
components
expand
_to
its claims of enlist ing beneficiary
planning
Substa ntive
were
program
productivity,
agricultural
increase
reform,
or
holistic
geographic
basic
improve
infrastructure,
its
within a def ined
the
of
objectives
The overall
area.
Also,
development
a program that claimed beneficiary particip ation as one of
(IRD),
total
communal
(14).
forestry
same period,
in the
mushroomed
example,
would be in
of
been
development
land reform
of
of
favor.
rural
wi del v
pol i cy.
organizations,
promoted
as
However ,
-the
21
A study of post-
dismal.
1970 rural
not succeeded in
they have
masses or
in mobilizing their participation
efforts
(15).
provided
they
benefits
populace.
organizations merely
served as
the
of
services and
to the privileged rather than the
went
rural
poor
the
reinforced
as the
insofar
development
rural
in
organizations
the
society
inequalities of the larger
of the rural
interests
the
described as
concluded that
organizations
furthering
Rather,
be
can
cooperatives
with
experience
Philippine
In
these
general,
rural
channels for government programs
and services but
have not resolved the problems
and inequality.
Furthermore,
these rural
of
poverty
organizations were used
the rural masses
to control
by the government and elite sectors
rural
peasant radicalism and leadership and thus served
by neutralizing
interest
peasant
of
the articulation
to obstruct
dominant groups
of the
interests
thereby supporting the political
and demands,
in society.
Under
to
martial
rural
restructure
development
law from
organization
did
schemes, the rural poor
and
organizations
were
to
unable
the
state
tactics
and
neglected
raised by rural
to
inevitably
heighten
the
them
as
their own
vehicles for
militant
When
in
rural
they were viewed as subversive threats to
legitimacy
actions
Such oppressive
suppressed.
were
protest movements
peasant
control
not
use
attempts
participation
and
participation in decision-making processes.
organizations emerged,
government
despite
1972-80,
of
the
issues and problems
and over time
into
have only served
increasingly
more
radical
ons.
mani festati
There was no doubt therefore that by the early 1980's,
development efforts
the so-called participatory
IRD
the
really
allowed
grant
not
in the
real
failures of
was the
people
rural
total
Philippine institutions,
finding that
popular
that
roles in development
had direct
implications
beneficiary participation to take place
involvement of
Among
NGOs.
only NOs possessed the technology
community organization
experience in
was never
pseudo-participation
significant
of significant
lack
especially
scope of
and
nature
represented
Another major
activities.
The
occur.
oftentimes
participation
did
to
not
was
participation
beneficiary
participatory because real
In
in participatory development
programs
other
and
not brought
have
the disadvantaged.
and
poor
Philippine experiment
essence, the
through
the
to
benefits
substantial
was clear that
It
in.steady proportions.
growing
:insurgency was
rural
and self-reliant
and
community
development activities.
Current Government Attitude Towards NGOs
Historically,
important role
in
disenchantment
with
sharp rise
in
and policy
have
economy
the Marcos
the number of
shortcomings of
the Aquino
the
NGOs
of
the
government
NGOs as
a
played
Philippines.
in
the
is
reforms but
in the process of
so far
more
Growing
1980s caused a
they attempted
the government at the grassroots.
government
and
more
to span the
For its part,
working out structural
has only began to engage NGOs in
and progr am implemrientation.
project
visible, if
are barely
contact
government
whom the national
apparent
that
and
bottom-up
the
downward,
extending
between
on
the
basis
is generally understood that
welcomes volunteerism
sustaining
attitudes
well
as
as
and
support for
However,
policy.
the
occasional
programs from government entities,
plans and
announcement of
is then
development.
precedents,
of
to
organizations
donor
constitute a coherent national
yet
poor
from the
working
NGOs
could form a valuable linkage for
Statements regarding government
not
It
priority.
large
and
government
widespread economic and social
NGOs do
the rural
is according
complementarity
in direct
already
are
participants
their
and have among
with
hand,
other
the
on
N6Os,
grassroots.
can have little impact on the
all and
at
programs
government
below which
and programmatic floor
conceptual
and
remains a
there
were applied,
actions
and
policies
meaningful
increased
-actions
government
of
tempo
the
if
Even
government
the Philippine
it
actively
and that government policy tends to regard
NGOs as important partners in
national
development.
Never before
was the need been more relevant and necessary for the formulation
national
of a
government
policy
and
development
rural
Involvin..
NtOs in
NGOs
and
strategy
jointly
in
that
define
the
role of
working towards participatory
programs.
a Rural
Development
Program
A concrete expression of the Philippine
government
attempts
24
to
Resource
was the Local
activities
development
the mainstream of
into
N3Os
introduce
formal ly
government
Management
Program
(LRM)
a
was
LRM
local
governments become more
more
disadvantaged
long-term
reorienting
fishermen and
development,
replication
innovative approaches to local
achieve
to
institutions
supporting
of
supported
and
policies
its
reform
and
decentralized
more
Through
workers.
the program
development,
the
upland and
institutionalization
and
to
efforts
government
national
landless rural
gradually
at
:i.e.,
poverty groups,
specific
farmers,
coconut
the
of
efforts
self-help
aimed
effort
capacities towards
government
local
The program entailed a
(16).
development
of their
the needs
responsive to
constituents
institutional
designed to help
multi-phased program
ten-year
locally
responsive development action.
The program
required
blueprint
top-down,
adaptive mode of
them
central
government
support of
The first
identifying
their
local
phase of
groups that could
governments by
local
over the allocation of
improve
and
financial
ability
their
resources
human
the
program
in itiated
the
to
in
process of
more responsive planning approaches for
be
/
programs.
identified
new,
and
and
flexible
implementation.
among
influence
move beyond their
open,
more
a
local project
resources
effectively
locally
to
self-reliance
increase
helping
mobilize
approach
planning and
The program promoted
to
local governments
replicated
and
sustai ned
over
poverty
time and
I
.25
seven
provinces
services involving
while
and training
country's
the
serve
better
to
capacities
their
increasing
To support
and private resource
assistance,
technical
development,
systems
process
adjustment,
(17).
combination of
which provided a
institutions
The
incremental
on local
program relied
the
implementation,
financial
budgeting,
processes
and
evaluation of new approaches
appropriate
locally
participation.
experimentation,
continual
on he'lping
focused
install
beneficiary
and
initially
evaluation,
planning,
administration,
entailed
and
develop
t
approaches
It
local it ies.
different
ac ross
development needs.
public
process.
moved
The next
partnerships
capacities
sufficient
into
fully
more
provinces
the
in
activities
program
needs,
municipalities
both
institutions,
and
priorities more towards meeting the beneficiary
reoriented their
group
developed
private,
and
local
other
and
governments
local
As
key aspects of the
the
full
stage involved the development of
between
provincial
working
government
municipal
and
and
officials, the private sector and members of targeted beneficiary
groups.
Through
these arrangements,
identify their own
develop basic
management,
needs,
organize
and other
requirements
sustained dialogue with them,
assisted
officials
further
priorities
acceptable
action,
self-help
for
related to negotiation,
business skills
legal
poor groups were assisted to
provincial
areas.
groups
to develop initiatives
financial
maintaining
and municipal
disadvantaged
to them,
By
and
a
government
to establish
responsive
26
which
in
them obtain their
helped
line agencies, and
for
agency
for
The
projects.
linking
national
working
at
beneficiaries
provincial
subnational
at
the municipal
gove r nments
LRM
province.
They
a re
and
primarily
to
activities and
(RDCs)
programs and
policies,
the decentralized mechanisms for
level
and authorities
local
governments and
levels.
Under LRM, the
with
and barrio
governments work
responsible
local
local
all
evaluating
The municipal
conducive
At
primary resposibility for planning,
had
m o nitoring
progr a M.
development
Councils
line agencies, councils, boards
under the
environment
provided
RDCs
the
implementing,
of
activ:it ies
line agencies.
Development
Regional
and
a key positi o)n to
in
also
and was
implementation
coordinated the
government
and resources from national
level,
regional
local
NEDA coord inated
it was
maintenance
implementati on,
regi onal offices
mobilize support
the
including
planning,
development
national
coordinating
promotion of LRM.
through its
levels
Being the central
(NEDA).
Aothority
Development
and
responsible
and
the National
by
level
the national
LRM was implemented at
Philippine
other organizations,
and
donors.
international
Economic
al
commitment,
local
of
i-nanci
resources available from higher
supplemented by additional
of government,
human,
available
evidence
as
resources
physical
resources
The process resulted
objectives.
of local ly
the increased use
additional
access to
to gain
and
to these priorities
for
development,
linkages
to
the
activities
through the
establishing an
given
that
all
beneficiaries take
27
pl ace at
1 evel
that
Benefici arv Participation
The
Component
successful
NGO efforts
municipal
level
The
into
and
municipal
in
community organizing
most
NGO
approaches
regional
planning and.
were
incorporated
then
and
planning
subproject
the
work
have
efforts
had
Government,
localized impact.
important
an
However,
Philippines.
of these organizations was that
with the government
universally
experience in
substantial
NGOs with
the effectiveness
there was no link
almost
and
provincial
many local
There were
to
program
systems.
implementation
constraint to
this
of integrating bottom-up
provincial
Successful
systems.
target
support
of
objective
main
the feasibility
planning approaches with
budgeting
which
activities
development
to test
was
on
linkaging beneficiary organization with
in
poverty group strategies.
component
focused
component
participation
beneficiary
LRM
the NGOs preferring
sector,
quite independently.
its
for
and
effect
spread
limited
Consequently,
looked to
has seldom
part,
only.
these organizations as an important development resource, despite
its
own general
The program
for
building
development
individual
application
beneficiary organization.
lack of capacity in
provided resources
cost-effective,
between
approaches
beyond
to test
collaborative
local
government
generated
the
to NGOs
pilot
and
showed
provinces
approaches
for
linkages
beneficiaries.
potential
participating
for
The
expanded
in
the
28
prog ram.
The efforts
requi ring
substantial
development
involved
provinces an d
th-e
i.n
the
support the expansion of the approaches to new
municipaliti es to
communities and to
transfer
capacity
and
experimental
al so
They
flex-,ibility.
an institutional
of
hi g h 1 y
considered
were
other
private
and
agencies,
to facilitate
experience and methods.
of
The Phi lippine
of the three
NGOs
Social
to
encouraged
work
Progress
(PBSP) was one
closely
with municipal
Aside from assessing the extent by which municipal
governments.
capacity in
governments'
the
developed,
Business for
with beneficiary groups could
working
were expected to provide an
NGOs
participating
be
additional
perspective to the poverty analysis and planning based
on direct
beneficiary contact and input.
involvement with
little direct
1982,
this
changed
agencies of
government.
development
conditions
portends a narrowing of
priorities
and
government-NGO
CHAPTER
III-
as
involving
it undertook
a variety of
donors
and various
foreign
analysis of the
The following historical
fostered
by
that
approaches
THE PHILIPPINE
in
rural
BUSINESS
State.
the
the ideological
cooperation
responses to concrete
shows dynamic
PBSP strategy
evolution of
with LRM in
government. Starting
dramatically
collaborative activities
Prior to LRM, PBSP had
set
gap and
the
development
FOR SOCIAL
EMPOWERING RURAL ORGANIZATIONS
AND
Its
evolution
differences in
stage
closer
for
initiatives.
PROGRESS
(PBSP)
STRUCTURES
0
4
ThE Sear c:h
In
or
a Model
197-),,
country
was
credit,
an
insurgency,
random
corruption.
On
leaders met at a workshop
discuss
business
the
how
conference sponsored
political
business
by the Council
for
business association,
a private Filipino
Economic Development,
unrest,
Philippine
fifty
197(
19,
September
The
tight
labor
pervasive
and
violence
urban
high prices,
and
student
slowdown,
economic
.
turmroi
i n
on
nati
floods and typhoons,
by
race::ed
a
was
Phil i ppi nes
the
stem
might
community
to
the national
decline.
c ipants
Parti
the workshop
left
development
that
been
by a
in part
inspired
Dividendo
Executive Director of Venezuela's
Communidad
by
organization sponsored
Venezuelan
Voluntario
Para La
Community),
the
for
Dividend
(Voluntary
Hugo Manzanilla,
Dr.
from
briefing
They had
the poor.
well-being of
a
the national
of
the well-being
would increase
community and especially the
development,
Philippine
of
style
resources to promote a new
for an
business community could channel
which the
organization through
the need
convinced of
industrialists
an
to expand
economic opportunities for the poor of Venezuela.
On December
groups,
namely
Philippine
Action,
16
the
Business
1970.,
with the
sponsorship of three business
Council
for
Economic
Council,
and
the
representatives
of
fifty
Filipino
business firms signed a document creating
for Social
Progress
(PBSP).
Each
Development,
Association
and
the
for Social
international
the Philippine Business
corporate member
pledged to set
30
investments.
Sixty percent of this
social
projects of
the
of
responsibility
business philanthropies,
professionally managed
among
making
expression
business
sector
the
was a
It
deve opi ng
agency dedicated to
vehicle for
a
was
and social
its
projects directly,
some
corporate
charity.
It
of
life
Unl ike typical
(13).
low-income groups.
While it undertook
normal
operation was to fund project proposals from a variety of
series of
primarily engaged
project models
potential
of
management
a
projects
housing
heavily
project,
integrated area development
a
project.
involved
produce
to
intended
nutrition
It
PBSP
1971-75,
low-
in a
was
development
the country.
throughout
replication
was
it
and
two decades
in the testing of prototype social
period,
this
including
for
Over almost
from
years,
five
first
of a proje ct
(19).
work
years program of
its
for social,
grants
of PBSP strategy was reflected
the evolution
five
During
components
activities.
interest loans for economic
existence,
provide
would
It
organizational
or
educational,
During
of
quality
of
a
not
was
PBSP
development
proponent organizations.
of
PBSP's corporate
investments that would pay both economic
social
returns.
mode of
an
as
poor
Filipino
self-reliance
by the company for
improve the
was to
of PBSP
The mission
the
by PBSP,
increased to 137 companies.
had
membership
be managed
year
a
Within
own.
its
was to
would be managed
percent
forty
the remaining
before taxes for social
net profits
annual
percent of
aside one
in
the direct
such prototypes,
project,
also provided
and
an
funds and
31
techn i c-al
social
development.
serve
as
Regional
to
accessibility
PBSP
enhance
to
project
research
intervention.
development
of
also intended to
so funded was
Each project
action
an
intent
capacity to carry out effective
nati onal
total
the
i ncreas i ng
devel opment
the
with
country
the
throughout
orqanizations
soc i al
of
var i ety
a
to
assi stance
a
test
established to
were
offices
prototype
and
proponents
project
to
project monitoring.
facilitate
PBSP's second five years from
consol i dation,
lives of
the
poor.
programs,
prio
rity
In
appropriate te chnology,
a
that covered
other activities
me t
locally
and youth,
functional
Attention
training
established
institutes
some 300
centers
universities.
and
proponent
inflation and
made to enable PBSP to contract
financing grants
After
from external
three
at
contributions,
donors.
regional
PESP had assisted
in
However
out its
was given to
organizations through
ten years,
organizati ons.
shrinking member
proponents or PBSP
identified by
of proponent
was
"assisted projects"
called
defined needs.
literacy,4
Flexibility
nutrition.
strengthening the capabilities
regional
scale industry
small
category
including
staff that
area development
minorities,
and applied
maintained by
had
proponent projects
was given to development of
p rograms for women
development,
that
on those activities
addition to two managed
on wor king with cultural
period of
contribution to improving the
promise of effective
shown greatest
focused
resources
focusing
a
were
1976-198C
a
services,
'1979,
due to
key decision was
and to seek
co-
Co-financing agreements
were to be accepted only for programs
and objectives
mission
organizational
mutually acceptable
and with
1981-86, reflected further
The third five year plan,
human
and
attention was directed to
its
in
role
proponent organizations.
making,
it
up a
credible presence in
and put
through
financial
resource
institutionalized.
Adding
donor
with international
agencies,
private social
development agencies.
as a grant
through
contributions
grantees'
limited
with
NGO
making
poverty groups and communities,
the
years,
it
professional
close tie-up
working relationships
generated
the
has
staff
diversified
and
were linkages established
strength
community and
However,
micro-enterprise
was
that
base
farming,
and
capable and motivated
a
developed
integrated
credit
community
Organizationally
development.
with
the country. It generated
in
technologies
organization-building,
a
of grant
established a network
appropriate
gradually
years
of
has completed over 800 projects,
areas in the different regions of
proven
and
roughly fourteen
After
of 402 proponents nationwide
rural
capabilities
management
the
program and
development
its proponent
strengthening
Increased
development.
resource
program
food production,
consolidation around three major themes, namely
business
be under the
of PBSP.
management and control
small
and
an expl i cit
they would
that
understanding
with PBS3P' s own
consistent
a
number
business
the
PBSP had
capacities
of effective
channeled resources
which
from
with the business
sector to
always been confronted
to
properly
utilize
nettwork
its
on
rely
to
had
donor
PBSP
as
a
development
private
of
grassroots
and
institutions
educati onal
organizations
work,
to do development
order
In
esources Provi ded.
organi zati ons..
with
deal
limited
available
to
in
development work
would survive this
process.
assessed that
the existing
PBSP correctly
management
to
an
becoming
wider
to
donors,
it
with
involvement
As
development.
sensitized
it
contract out
to
began
government
a
the
leve.
development and
that
of
its
consequence,
importance
a resource provider
the
seriously
in
to establish
country.
joint
consider
a
With the
expanding its
in
initiatives
rural
increasingly
became
PBSP
of the policy context of village
increasing)l y recognnized
proponent
PBSP began
and seek co-financing with
services
to
social
on
1981,
starting
in
NGO structures
effective
had reached their
work
strictly
organization-builder,
base of viable
mandate
other
role from being
its
to slowly shift
assistance
capacity of NGO-
By the early
become necessary.
had
doing
intervention
training
basic
a
that
and
limits
development
effective
do
to
grantees
the
to the first
ated
for
capacity
the
with
those
only
was rel
This
the future.
in
would be ex:< tended
if
that
no further
good use,
into
put
not
condition
the
with
organizations
were
assistance
but these were by
was to make resources
other
The
number.
One was to
action.
NGO-grantees,
only the most qualified
definition
since
two courses of
presented with
PBSP was
organizations
to
its
have
potentials and
a
beneficial
Getting
of
life
of
quality
the
"improving
mission
to
and
mission by helping to
qualitatively
clarify
causes,
its
poverty,
the poor.
congruence with
total
in
was
program
LRM
the
interested in
interventions for
of development
the nature and type
research
factors that would help define
location, key
quantification and
Thus
Philippine
of
nature
the
understanding
that could be
had been
it
years,
many
For
activities.
answers
terms
participatory
poverty-focused
by undertaking
generated
real
situation
poverty
the
on
issues
basic
the
poor".
the Filipino
in
LRM provided PBSP an opportunity to situate
with its
consistent
was
design
evaluated that the LRM program
correctly
It
LRM.
key NGO under
a
role
strategic
its
in
shift
this
as
participated
PBSP
that
Program
a Government
the context of
in
was
It
in
Involved
and programs.
policies
influence on government
the PBSP
and quantitatively
the poverty concept.
Another
into
the program was the opportunity of working
government
local
most
that time,
assistance to
worsening
were
precipitated
consideration that
major
governments
that
moral
would
pressures
political
operationalize
require
a
development
sector
private
and
earmarked
been primarily
poverty
the
and
At
government.
development organizations.
private sector
entry
with national
the resources of
using
PBSP resources had
insurgency,
under
process
while
PBSP's
for
Due to
organizations
to
alleviating
active involvement
help
local
development
of
poverty
something
which
organize the poverty groups
with the local government
structures
which control
resources so that they were
This was
structures.
interests would get incorporated
government
LRM
the
through
power
that their
development programs.
their
to work
social
its
was
program
The LRM program was experimental
orientation.
is
able to deal
order
necessary in
convinced PBSP
consideration that
A final
in
that
or other
to negotiate
these
was
organizations that
into functioning
were able
with
LRM1
--
doing
started
already
has
PBSP
p1 a nni n g
under
given
task
The
evaluation.
and
monitoring
strItegy
program/ proj ect
imp 1 ementat ion
and
f ormul at i on
analy Si S,
structure
poverty
bene(:f i ci a ries,
group
with the
learning
nature and its
in
operationalization was based on a design that allowed flexibility
the
system in
the spirit of
aspects of
experiences encountered
Given
practical,
above
the
work,
partnership
via
under
participation
implemented
entered
grant
the
Under
program.
a
ons
modi fi cati
the
assessments
technical
non-traditional
the
agreement
realm
it
on specific
of
concrete
fitted PBSF' s
approach
of
that
beneficiary participation
LRM,
PBSP the
phase to another.
program considerations that
it
a
the program gave
from one implementation
management-oriented,
development
the
on
based
program
the
necessary
the
make
to
delivery
In other words,
learning along the way.
the learning process characteristic of
opportunity
program
the
in
adjustments
necessary
in making
subsequently
to
NGO-government
formalized
component
formulated
its
of
and
assistance strategy appropriate to the
role
a third
functions of
and
the key client
the poverty groups in
In
fishermen,
the
Pandan.
of
the
the LRM program
the
sugarcane
fishermen
landless agricultural
of Tibiao, Bugasong and
workers
planting
and
do
the
motorized pumpboats owned
gatherers which represent
harvesting
off-shore
traditional
non-motorized
dry
by
boats.
well-off
the greatest
price of their catch.
fry
provinces
seasons.
The
fishing either
engage
Some
in
number
families.
the fry
of fishermen.in
dictate
the
the selling
The system was so ex:.fploitative that it was
to the capitalists and
and buy the produce is
the municipal
hand to
Others serve as crew to
season.
some
a
go to nearby
industry have low incomes because capitalists
more beneficial
the residents
live
largely
migratory
rented
during
salt-making
and Southern
Antique
and the
They
activities.
The
using their own or
are
towns subsisting mainly in off-shore fishing
three pilot
sustenance
gather
context.
The poverty groups comprise the majority of
mouth existence.
planning
these were the sustenance
Antique,
the municipalities
live in
and limited farming
during
provinces--
upland farmers
marginal
workers who
of
institutional
Councils
beneficiaries of
two pilot
Province
a rural
Development
Of Poverty Groups and Municipal
Leyte.
in
implementation
process and program
public
poverty-focused
a more democratic,
structures to attain
Some of
and
private
with
linkages
building
capacitating and
generation NGO,
government.
The fry
middlemen.
The right to
given to the highest bidder by
gatherers
are always outbidded
in
farmers
upland
in
b cause
process
the
subsistence.
They
months .Iean
fish
prevalence of
of the
was reported to be generally low., Regardless of
showed
statistics
$390
income of
ates i nto
Southern
average
With an
capital
has
familIy
activities
exchange for
source
as well
of
The
land
of
fact that
some farmers
account
the monthly
is
way below
of
their
still
sell
capita income
a
technology and lack of
in
either
of
to others in
has
been the main
farmers
upland
one-fourth
hectare
some were owned
labor
individual
labor
payment
marginal
individualistic
in
marine and
ov'e r
control
selling
Tomas Oppus.
and
per
as poor
their
poverty groups
the
Burgos
six,
cash or material
ihood.
Notwithstanding the
tenanted,
through
or
pieces
annual
sustenance fishermen who
Self-employment
low.
minimal
lack
to
Due
Padre
size of
household
been
l ivel
of
cultivating
On
of
resources,
agricultural
1983
which
$5
hand,
and
farmers
upland
$8.50.
is
month
the other
the municipalities
in
dwel.1
occupation,
At those figures.
approximately
on
Leyte,
marginal
include
annum
of roughly $33.
the poverty threshold
In
cycle per
that the poverty groups were earning an
(or $33 per month).
transl
per capita
fishing
traditional
production
two-crop
the
Similarly,
practices.
at 404 kilograms for a
catch has been computed
family of six because
peak fishing
the
during
fish
to
down
go
for
other vegetables
rootcrops and
They plant
living
are not
to landowners who
serv%/e as tenants
barr i os.
the
The
l ack the nece ssary capi tal.
they
or
were
less.
and others merely
for
a day's income.
farming
style,
the
38
monocultture
cropping
producti vi t y
and
systems
inefficient
sustenance fishermen,
equipment
their
marginal
living
addition
benefi ci ari
services
to
low fish
who were
were
-the
municipal
of
of
non-functional
structure
efforts
at
projects,
the
Department
a
government
on
Among
large,
of the
much
more
seeing
to
the pilot
the MDCs
which were
coordinate
government,
line
convened and not
produced,
muni cipalities
it
they
the
of
Government
with
in
agencies
and
functioninq
were more
in
as
each t own
Not
of
a sin gle
focusing
development
the delivery of
such
po verty groups.
Antiqu e
and Southern Leyte,
supposed to integrate municipal
development
the
MDCs w ere
paper.
that
and
interventions of
activities,
implement ation
the
throug h a
side was actually
government
The
(MDCs).
created
operating
field
client
assistance
agency,
and existed only on
synchroni zing
Councils
of Local
instrumentalities
the
PBSP
technical
development
projects were accruing to or targeted at
and
that
other
with
At the time PBE P commenced its
In
By and
to
structures
coc rdinating the
the various government
the
Development
government
Developmer t.,
responsibility
groups,
Mv
lunicipal
Community
local
similar
low
gears and
production.
provided
also
circular
fact
to
patterns.
fishing
was comparably
memorandum
in
production
of traditional
poverty
es
were
(13).
resul ted
farmers.
In
MDCs
the
to
practices
crop
the. use
attributed
standard of
and
porgram
of
the
local
organizations
they
should.
If
compliance with national
level
plans
municipal
were rarely
plans were
directives
and generate all
With
1 Ead
councils,
municipal
most
loggerhead
at
is
more for their visible and
pusued
independently
and
Other
impact
performed
by national
were
there
councils.
political
these
However,
municipalities.
in the
based
inevitable
was
nature and were chosen
in
immediate
were being
activities
development
with the legislative
legislative
and the
infrastructure
also mostly
In
and projects undertaken were based
programs
on needs as perceived by the mayors
They were
ricials-
the scenes.
Thus it
usually prevailed.
latter
the
force behind
the leading
is
of-
and program devel opment.
ng
pl ocy-setti
mayor
the
where
cases
in
municip;al
v\ar i Ous
non-functional
role
the mayor
Usually,
that
MDCs
the
he
too,0 k
ocati on of funds.
agencies
activi ties
were
little efforts to effect
program linkages and coordination.
PBSP formulated
With the poverty groups,
organizing
community
functioning
a
strategy
organizations.
rural
organization
capability
to
manage
capacities
to
and impl emented
mobilize poverty gr oups
with the MDCs,
And
building
program
to
into
directed
it
dev elop
development
poverty-focused
a
MDC
program
interventions.
Empowering
The
the Poverty Groups
use
heavily on
the
strategy.
Though not
the actual
mobilization
group
poverty
translation
community
of
an original
of
adopted
organizing
social
the community
by
(CO)
PBSP
as
relied
a core
development strategy,
organizing process into
40
adaptations to fit the institLtions
action had undergone several
more than a decade
after
interests
of
experience in
accumulated
undertak i ng development work.
CO
The
focused
awareness of
was
on
the
in
developing their
itself
with
problems
skills on
Some of
gave
restructuring,
people's
and
interest
The
This
in
situati<>n
second stage
client-beneficiaries
undertake concrete action to
how to
developed were in
the skills
implementation and
of planning,
to
focus
initiated
evaluation.
The last
setting-up
the
and
structures that would carry
to
undertaken
action
the
building
combat their difficulties.
planned
people's
the
and needs.
concerned
out
the environment.
to do something about their
common
strengthening of
client-beneficiaries
commitment
their
the area
in
obtaining
arousing
especially,
capabilities and
the
developing
the realities
considered
stage,
The awakening
awakening, empowerment and restructuring.
process:
stage
by PBSP contained a three-stage
followed
strategy
meet
group
the
needs and
problems.
Organization Buildinq Framework for Poverty Groups
purposes of
Operationally for
strategy was
framework: for
The framework
into
translated
both
the
a
technical
assistance,
the CO
organization- building
common
Provinces of Antique and Southern Leyte.
reflected the stages of growth that poverty groups,
undergo
organizations
could
organizational
development
as
well
as
the
that would be applied.
key
inputs
in
41
The stages of
were
seen
as:
organizational
expansion
growth that the
leadership
maintenance.
organization formation
process
gave
understand the
the
basis for
them
to
requirements
of
participatory
At
this
local
client
community
poverty
building process.
months to
on
improving
stage.
consolidation
li-Fe.
and
developed
and
undertaken by PBSP
on
and
with the
PBSP
organization
six
to eight
Then the second stage which
capacity
and project
operationalized
project management.
included
organizational
conduct
and
while assisting
building
of
the bits
concerns, systems and
by poverty groups in
respective organizations while enhancing their
organizational
stage.
with the formal
the
took
Heavy
this
focused on the consolidation of
procedures
clinics
of
spin-off
i t
need for
respond to the
themselves
rapport
to
the
that
local residents,
average
of organizational
in
This served as
done during
famil iarized
members
and pieces
their
quality
established
the
This stage
define and
of
organi zations
leaders and
On
the organization
beneficiaries
were
and
consciousness-raising
inevitability
activities
group
in
to
their
complet e the first
organization
initiated.
working
and
orientation
the poverty situation.
the field staff
environment
stage
group
the
res earch
stage,
informal
poverty
rationalizing
in to
first
emphasis
causes of
bond
and organizational
Leadership
as the
activities to help the
could undergo
orientation/organi zational -formation,
consolidation/capacity building
and
building
poverty groups
capabilities
Critical
training
activities
programs and
and project management, organizational
42
assessment
and
linkage
After eighteen
mobilization .
organizations
were
stage.
The
expansion
is
group
stage
organizations
organizational
changes in
councils.
This meant
empowerment
stage
operational
terms.
independent
that
the
directed
development
its involvement
the following:
or second
maintenance
skilled
and
leaders, refined
and active
advocacy aimed
development and
have
realization
of
legislative
reached
the CO concept
the
in
Development
its
efforts
that
were given
under LRM.
organizational
first
organizations
full
In Organizational
also
the
and functioning poverty
and
the municipal
resource
for
the assisted poverty
organizational
active
or the
organizational
period of
with
all
either
systems and procedures
at policy
PBSP
in
of
of
period
activities
months,
classified
third
the
Key Concerns
building
key
to
in
emphasis during the
These
management,
areas
key areas included
project
management
and
advocacy.
The organizational
organizing
effort
do
building
with
capability
PBSF' was to
management component of
focused on the provision
structure
development.
lend support
On
structure
to
the
poverty groups
themselves
barangay-based
organization
groups.
Areas
of
and
assistance
or
inputs
developing
building,
type
decided
of
the poverty group
to
of
set-up
barangay
included
structure
and
federations
defining
that
had
to
the emphasis
of
institutional
which
the
organize e.g.,
of
poverty
organizational
43
systems
and
procedure
both
for
sustai ning organizing efforts
PBSP assi stance
group
according to
projects
project
project
technical
In
promot i ngq
organizations,
the milkfish
with
specific
systems
and
the
advocacy
lobbying
production
zones or concessio n areas
catchers'
and officials
group
for
concerns.
a
developing
ccess
the
local
su ccess
groups' organizat ions was for land
farmers.
In all
these cases,
developing
the
poverty
bargaining
with
local
matters that faci litated
productive resources.
varied
defining
poverty
with
and
the
well
their
over
as
in mobilizing
PBSP assistance was
of
skills
policies
leaders
local
of
poverty
on advocacy by poverty
stewardship by marginal
sk i lls
nat i onal
ability
the
policy-makers
supportive of
story
and
mi l kf i sh
upland
PBSP assistance was instrumental
gro ups'
and
This was
provi ncial
control
as
groups'
were provi ded e.g.
negotiating with
in
changes in
Another
of
wo irking capital.
funds as
associ ations
for
and
and specific
in the province of Antique.
reference to
towards
made in
procedures
inputs
governments
directed
procedures
pursuits
t ailored
fry catchers
available
group
required.
municipal
local
priority
Interventions were
specifically
particular
their
short-term and long-range social
type.
skills
and for
poverty group organization.
define
whose
project opportunity areas,
purposes
management was generally geared
organizations
This was done for
economic
each
on project
towards helping the
projects.
in
operations
in
negotiating
government
to
access
in
and
structures on
.:nd control
44
Accomolishments
After
of
PBSP Proaram
first
the
organizing
in
Interventions
collaboration with
institutions
under
months
.eighteen
LRM,
of
national
program
poverty
and
success
local
groups'
government
was expressed in the
increasing number
of trained
committed
of the poverty groups and action-oriented
members
and functioning
organizations of poverty groups
The
trained
provinces of
and
community
poverty
beneficiaries.
responsible for
organizer
looking after
maintenance of
the overall
the
lead
role
in
grassroots
to
In
and
officers
have
of
been
including
of the organizations.
the
officers
and
providing organizational
terms
in
the
organization
officers
assist
continuously
group planning
rural
in
day operations,
the stability
leaders exhibited skills
facilitating
of each
day to
inputs to the organized groups.
leaders
included the
These
The volunteers have been installed
take
grassroots
Southern Leyte
and the volunteer
group
leaders,
(21).
functioning
Antique and
grassroots
of
conducting
assessment
capability,
group
the
meetings,
sessions, promoting
plan implementation and project management
All
in
all,
a combined
total
of
were assisted and trained with PBSP
two provinces.
In
made to reflect
on
has
always
been
all
the training
the extent
the
basis
opportunity given regularly
leaders
assistance
in the
technical
programs,
of
for
to
1,749 poverty g roup
their
were always
poverty situation
concerted
client
efforts
group
which
action.
beneficiaries
This
opened up
45
that
daily
their
confront
and causes of problems
pinpointing the effects
in
horizons
their
a
of
out
nine action-oriented
rural
membership
from
expanded
the
done
short-term
started with
group
poverty
in
the groups
of
failures
food
coconut-based
and
management
concession
or
social and
economic projects were the key decision
projects that they eventually undertook.
four
of
rounds
enabled
exper ience
organizations
the
even
projects
long-term
undertake
short-term
successful
type
the
choosing
in
members
fry
production.
undertaking
successes
orqanizations
social
projects such as milkfish
livelihood
long-term
and
activities
small
e.g.,
fund raising
and
backyard food production
infrastructures,
The
sectors.
and economic projects,
social
with
organized,
assisted organizations
the
by
thirty-
leaders,
were
organizations
group efforts
collaborative
of potential
nucleus
small
plight.
to their
out concr ete measures that. would respond
Also
them to work
also enabled
It
living.
In
most
project
as short
short-term
points of
and duration
the
of
three to
cases,
implementation
decisions
make
to
The
to
duration endeavors
continue to be done.
For
an easy
one as
programs was
the implementation
some of
Among the
would show.
difficult
poverty
commitment
of
groups,
the
Difficulties
group members
selection
were
due to
attendance
of
was not
problems encountered
constraints.
to financial
due
also some haphazardness in
beneficiaries.
development
institutional
process of
this
PBSP,
group
encountered
in
family survival
to training
There
leaders
was
and
sustaining
activities.
46
ome
poverty
group
off.F i ci a 1s
programs an d
government
me'mbers shoWed apathy towards
p roj ects.
cooperati on
and
to
leaders
activities promoted
there was initial
leaders
political
by
were
by PBSP for
hesitant in
political
administrators.
originated from
basic lack
of information
and
proportions
these
effects
building pr ograms
project
problems
enouhg to invalidate
poverty group
ge tting
involved in
ve reactions from
such
as
and
line
with
dealt
problems
awareness
of
agencies of
in
varying
by community organizi ng and capability
implemented
operational
were
pr evi ous
lack of
Other
the basic s ervices provided by the municipal
All
in
fear of vindicti
uncooperati ve
government.
gover nient
experiences in
negative
some areas,
In
interest
Some
concerns.
due
1 oc al
by
PBSP.
objectives,
they
While
negating certain
were not
the poverty restructuring
forces powerful
objectives of the
LRM program.
Break ing Str
In
in
uctural
more
Southern
fundamental
depressed
Barriers
structural
terms,
Leyte,
for
issue
(22).
example,
to historic
investment
province grew
other
found
industry.
coconut workers
asset
control
a
The economy of the province was severely
lows.
coconut had produced a good
or
PBSP
as the prices of coconut products in
markets fell
effort
while organizing
on
almost none
During
living
their
of
When prices fell,
for
part.
its
the international
more favorable times
land owners with almost
As
a
consequence.,
no
the
own food and had developed no
it
became an
economic disaster
Lj. 7
hunger.
area with severe and widespread
of
interest
in
actually
working
their
land.
They
hope,
both for
poor
in
of
experimented
was
approach
obtain credit
involved
the
the
buy
encouraging
landowning
land
at
default
in
the
seemed
because of
groups involved.
PBSP
transfer.
One
land
depressed
through
municipalities
the lands
to
of
now-organized landless laborers to
the
encourage
action
were exempted
lands
approaches
private
with
to
possession of
coconut
of
power
political
government
Prospects for
province.
the lot
for improving
economic recovery and
Land reform
limited.,
the
the
was the only viable
the land to the tiller
transfer of
that the
the analysis suggested
crops.
diversified
lands to
convert the
landless
no position to
and so were in
of tenure
no rights
no
had simply
The
collected for years the earnings from the coconuts.
laborers had
had
and
farmers
real ly
not
were
the coconut landowners
that many
fact
the
analysis brought to light
PBSP's poverty
prices. -Another
their
for their
MDC to take
unpaid taxes
for
redistribution to prospective tillers.
In Antique,
capitalists on
raising
the
rewards
(23).
that
on the
the
milkfish
fry
concessions
sustenance, fishermen's
bid
for
in
the
the
key to
i ndustr'S
increased by
concessionaires realize
for
100 percent
a larger share in
They
rights.
concession
the concessions having paid
incomes have
share
was
PBSP organized the fry gatherers into associations
competitively
controlled
local
other hand, breaking the hold of
the
rights.
as the fry gatherers
the sale of
the fry.
then
Final
cum
43
The key has
gatherers but
not
been
equally important
of the municipal
group and
only
development
to transform
the
organization
the organization
councils to
deal
of
the fry
and activation
with
the poverty
through advocacy the normally competitive
bidding process into one of negotiation.
The
Antique experience
has been that the MDC was readied to negotiate with the organized
poverty sector
have a
in
provinces.
PBSP's next
gatherers
associations
fry
middleman.
intervention was
in
Thus by replacing the local
of the resource,
into
Since the province did not
industry, the fry must be moved to the fishponds
fishpond
nearby
the
as an empowered group.
a powerful
the milkfish
sector in
order
to
to federate
displace
the
capitalists as controller
fry gatherers
the municipality.
have been transformed
For once,
a poverty
group in the province had the upper hand.
Reaching the Poor
The
Municipal
development
LRM
Throuqh the Municipal
Development
The
MDCs were local
membership consisted of the
operating
legislative council
private sector.
unify
all
integrated
Councils
(MDCs)
Councils
were the lead
actors of the State collaborating with the
program.
agencies
Development
in
the
government structures whose
national
of
municipality,
representative and
Their
development
development
implementation,
heads
NGO under
government
the municipal
line
mayor,
representatives from the
mandated
function was to synchronize and
efforts
in
planning,
provision of technical
the
municipality
coordination
services and
and
through
plan
sourcing
of
for
opportunities
as poverty analysis,
concepts such
planning,
adopted
three levels of
formation,
program
and evaluation
Organization
Development
which
growth
organizational
also contained
are organizational
and
consolidation
organizational
It
guide in
a
as
used
structures.
into functioning
PBSP also
poverty groups,
for organizing
an organization building framework
developing MDCs
legitimate
basic program
to capture
monitoring
of
(24).
As Partner
framework
Like the
structures
dynamic
strategy formulation,
implementation,
and resource mobilization
the MDC
composition
provided PBSP with
MDC functions
entry points to realign
Building
LRM
government.
and
functions
MDCs'
them as truly
developing
municipal
and project
the
through
saw
PBSP
the
resources.
assistance and financial
technical
organizational
expansion.
By actual
can be
made functional
at the
first
and
growth
of
The speed
months.
to
attributed
work with
among the
members
off.
and the
organization
willingness of
the MDC
poverty groups even as they pursue their
PBSP persistence
biases.
MDC
key MDC
who command
Equally,
to eight
six
within
the nature and consistency of
two factors--
provided by the NGO
stage
a
that a MDC
PBSP noted
implementation experience,
in groundwork
members such
inputs
members to
mother
agency
activities particularly
as the municipal
influence especially in
the time and efforts
can be
mayor
and other
decision-making paid
contributed by MDC
members in
50
undertak i ng
common
programs
whose
into
to
the
to
attendance
.
poverty
training
c .L1 aborat i ve
were
outcomes
si tuati
were also
on
d the speed of growth of
that facilitate
factors
the MDC
functioning organizations.
In
Key Concerns
MDC
Organization Buildinq
area of concern was to develop the ca pabilities
The first
MDC
e.g,
uItimate
response
organiz-ational
critical
activities,
in
members
managing
respective MDCs an I
their
project operations.
undertaken in
activities
Critical
to generate
a s program
as well
internal
could support its
resources that
of
developing
MDCs included conduct of baseline studies with highl ights
on the
activities, planning and
situation, team-building
poverty
local
and
plan implementation sessions.
In
to
trying
with
organizations
features
structural
develop
the
MDCs
the
above-cited
into
activities.,
critical
In
varied.
assisted municipalities
of the
functioning
Southern Leyte, the members of the assisted MDCs decided from the
provided with
very start to work and be
entire
completion
standing
later
body
of
committees
MDCs,
operationalized
short-term
created to focus on
assisted
on
the
and
long-term
later
on
specific poverty
various
properly defined by members
Closely related
and
work
to
In Antique,
committees
were
of the
In all
programs.
whose
up the
speed
tasks.
executive
committees
as the
assistance even
functions
were
evolved based on needs.
to developing the capacities of
the
MDCs,
a
51
towns..
Critical activities were directed at
the poverty groups,
MDC mission vis-a-vis
the pilot
in
situations
poverty
the specifi(c
which highlighted
baseline studies
municipal
the
of
findings
the
from
took off
and implementation
strategy formulation
municipal
of
key concern
of the
reorientation
formulation
of
a change
strategy and determination of the development program packages.
of the municipal
a component
with
process especially
project
in
implementation.
support project
project
on
Finally,
structure and
transformed
to
converts
MDCs
the
of poverty
concerns.
efforts
projects
this
the
establishing
and
resource mobilization
cause
the
into
were
of
local
poverty
of
setting-up
poverty
groups.
in
They
development
in advocating for
the national
continued to
on
contributed
government
now focused
groups before
as they
in
assistance to the
undertaken
activities
analysis and
governments even
of
and evaluation procedures.
critical
the
organizations whose
the needs
preparation,
proposal
monitoring
implementation,
making MDCs
undertaken
The activities
poverty-focused
of
feasibility
component
especially funds to
groundworking to provide technical
regard were
members
resource sources,
possible
with
development program
critical
a
was
implementation
This was responded to by mobilizing the MDCs
management.
linking
the
to
reference
as
has been treated
strategy
development
management
Resource
packages.
key concern,
another
management,
Program
and provincial
attend to municipal-wide
Tr ained Le.aders and Functi oningMDCs
PBSP technical
MDCs as local government
activating
of
facilitated
the division of
standing committees which
ad-hoc and
key MDC
managing
these programs
of the program and projects jointly
identified,
in
worked together
have closely
officers
the assistance of
mayors with
The municipal
'local development
managed
with a more defined agenda effectively
programs.
This also
directions.
towards common
creation of
the
in
held
officers
key
while transforming into reality
labor
of efforts
The proper
of
responsibilities
and
duties
definition
in
looked after
that
structures
extent
development efforts.
municipal
the synchronization of
the coordination
to a great
assistance inputs helped
packages.
In
Antique,
MDCs ,
prototypes
two
there
These are the fry
innovations.
the
gatherers projects,
payments
farm
integrated
upland
both
implemented by
developed and
the
on
some MDCs
associations
that
generated remarkable
projects.
no
imposed
and 30 percent
sum
concession
payments in
hand,
the
pioneering
fry
percent of all
to the municipal
fee,
the
integrated
upland
the fry
In
case
of
or
very
low initial
to operate the concessions.
farm
to the associa tion
Instead
governments.
governments
from total
now
sales.
projects
inthe province since they were
The
and the associations
production went
municipal
percentage shares
project
projects and
gatherers management
sharing system was also devised by the MDCs
whereby 70
and the
groups
poverty
the
were
the first
On
of
a
lump
received
the other
considered
group-owned,
and
operated
upl and
managed
leased hectares of
i
instances where a group or an assocation
first
areas
upland
with
Together
the
facilitated
farmers,
upland
beneficiaries
as
well
and
MDCs
the
of
availability
as
and sharing
cultivation
social
where
prevailed.
agencies
line
zones
forest
inputs
provided
were the
They
farms.
integrated
to
target
in
project
implementation.
in
participated
were
area -based
li vestock
upland-based
such
as
(romblon)
of
sloping
industr y
fishing
and purse seine
program
provincial
and
around gaining
which
mat
in
and
agricultural
development such
land
as boat
prototypes
municipal
were
governments
access to
and
aegis
and
of the MDCs.,
pack:ages
capitalized small,
micro agribusiness
bag weaving;
in
technol ogy;
and
ac quisition,
fina nced
by
revolved
resources., conservation,
the
in
deep sea
Essentially,
fishing and fish processing.
project
and
crafts.,
e
a nd project
programs
projects;
and crop
palm
application
under th
financing
associ ations
implementation
planning,
development
development
farm
in
selection,
the
group
poverty
development projects
evaluation of
Among~hese
the
Leyte,
Southern
In
these
both
the
thematically
replenishment
and resource co ntrol.
Also
advocating
majority
poverty
reached
the realization
efforts
would
in
their
of
-focused
that
not only promote
respective
MDC
members
development
the
sy.nergy
were
reoriented
thrusts.
in
but
much
They have
various agencies'
the welfare of the entire
municipalities
into
populace
more positively
54
f fect
the
realization
buil
and
program
responi bi l i ty
CHAPTER
for
the
TOWARDS A STRATEGY FOR STATE-NGO
IV-
improvement
of
0f
the
poverty groups.
local
of
standards
living
bias
sense
members
MDC
the
d-up
helped
This
sectors.
priviIeged
less
their
of
lives
IN
COOPERATION
PARTICIPATORY DEVELOPMENT
a pattern
a
programming
strategy
action-oriented,
i t
put
is
measures
contains
conditions
can serve as
rural
development
models
to be
conceptual
broadly oriented
strategy contains procedures or
wider-based
has
it
succeed,
To
enough.
reforms at the community
development
control
in
and
is
level
tangible
structures whether
and
direct
This
partic
order
ipation
undertaken
are
mechanisms
that
such
for the transfer
ways
public or private.
to
that
to promote
It
such as
y reforms
also necessary
capacity building
normative
the
initiatives.
macro polic
supporting
policy
in
development
that
previously
mandated
nationally
rural
in
participation
stated
been
State and NGO
by the
be implemented
undertaken or the
of State-NGO relations.
propositions of
are to
a model,
being more
because
operation
into
put
-
together
one
that
Rather than formulating
implementation.
and
an implementation
necessary
participatory
for
other,
on the
for State-NGO cooperation
strategy
a
of
basis
PBSP and the poverty
and the MDCs
group organizations on one hand,
can derive
between
interactions
ensuing
the
From
local
are
not
micro policy
as systems
of power and
level
rural
The
derived
development
of
efficacy
with
together
NGO-initiated
p rocedures
so
because the
si mi 1ar ly
nature
interdependent..
the
of
the obstacles to
The
PBSP case for
without
addressing the ideological
role
The
other
of
the
of
side
of
decentralization
of authorityr- and
poverty
groups
programming
the
and
external
in
local
basic
the
implementation.
requisites
strategy.
participatory
required
as
the
the local
They
proved that
participation
in
people's
implementation
advocacy of
approach
Together
to
in
is the
agency,
the
bureaucracy,
par-ticipation of
rural
development
these elements comprise
implement
a successful
the
changes
development
agency in
delineate
government
ex< aumple
government
necessary
This
others.
part icipation are
development
local
restructuring
to promote
a useless ex:.ercise.
the strategy for
and
national
the
obstacles evident
and perceptions turned into
attitudes
some
each element
constraints to
tural
struc
alleviating
poverty group
level
at the community
merel y
group
by outlining
initiatives
has to be pursued by an NGO in conjunction with
is
elaborated
poverty
of
While conceptually distinct,
participation.
more
is
directly
address
rura .1 development
participation in
useful
elements
These
organizations.
and
the validity
process
empowerment
resulting
the
a
as
organizing
community
government
local
and
the NGO,
of
Under the role
agency.
proposed are
i s
the NGO and the poverty
national
the
and
organizations
group
roles:
dimensional
on two primary
focused
that
the
and
cooperati on
State-NGO
implementation
for
strategy
SLceedintg
f or
pattern
that
are
terms of
its
pol ic:i es
poverty groU)
recommendations.
are concerned with the mitigation of
within the local government
to
promote
the
in
and the
central
that need to be addressed
is
It
on
participate
is
poverty
groups
have
its
As to its
members
collective
its
equal
and
elites
local
internal
action
external
in
in
and
of their
pursuit
properties,
in
organized
be
order to
development projects.
in
a
poverty
members
all
project
to
not
do
properties,
social
their
LRM program that
the.
such that
access
can act cohesively as a unit
group
Approach
and thus reinforce local
benefits or authority
cleavages.
basis
that
decision-making and
issues
necessary to ensure that participation
a collective
on
fostered
to
basis
substantive
a
Community organization
is
have
groups
poverty
to policy
level.
clear from PBSP experience under
rural
poverty groups
of
with regards
As An
levels:
of the procedures that are
at the national
of Community Organizing
Validity
the
level
government
two
at
function
to foster participation
the field
necessary
terms
the proposed
Thus,
seen to
in
level
government
local
obstacles
anti-participatory
participation.
strategy can be
implementation
recommendations
development agency that are necessary
group
poverty
the strategy
of
policy
Such
to facilitate
order
in
These components
part ic ipation.
policy
represent
procedures
and
structures
an
of the
benefits
and
monopolize the
and
stratification
organized poverty
mobilizing and coordinating
material
common
group
resources
interests.
once
As
for
for
organized can
57
concerns
shared
its
express
agencies
appropriate government
decisions.
and
policies
submissiveness
given
to
the organizing
principle
the
Because
in
promoting
in
in
what
develop
or
in
participation
also
capitalized
cooperatives.
In
groups
project
on
the rural
of
poor
(25).
strengthen
can either
the community where
in
there
where
its
due
is
important
leaders
are none.
Anti qLu e,
In
previous association with
to
the
barrio
lethargic
leaders
the extent
community
facilitate
initiatives.
Southern Leyte,
was
ones
Particularly
their
and
they
new
basic
to use depends on the structure and nature
approach
organizations.
which
the NGO
this
Philippines
the
development
organizations
traditional
of
development programs
the interests
participation
their
throughout
the neglect
organization
organizing poverty groups,
of existing
poverty
also because emphasis
methodology and
rural
their
rectify
to
endeavored
of
and
powerIessness
the
process.
already existent
to
and
and Southern
Antique
awareness and participation
succeeded
established or
However,
poor
has been
organization
by PBSP in
can
poor
the
which
membership
mobilizing
In
by
addressed
people for
organize
to
those established by government
have not
in
of
previous
particularly
or
directly
with a specific
situation
Was
it
challenge their
can ut 1 i ze commrriuni ty
NGO
order
success
notable
with
because
Leyte
an
Community
decision-making.
in
employed
influence or
organizations
rural
through
participate
to
a methodology in
organization as
power
articul
Thus
demands to the
ate its
and
13 P
PBS
fishermen's
organization
who
of
had a strong
58
tendency to work
selecting projects
their
In
setting-up
strategy was to
upon
leadership
and
themselves
to
and manageme nt
Thus.,
it
activities,
the
develop
assume
organizing,
clear
mobilizing t 0 participate in
it s
capacity
NGO
skills
of
group
orqanizational,
the
people
distribution
organizers
community
to
prepare
be
merely
the poverty groups
soc i o-economi c
the people
for
itself to
Such
concerned
with
but also with the
activities
resources
are
project.
a development
pro ject
worked with
and
the poverty
enabled
grou ps
not
own to improve its
community organizers
their
of
role was
staff
that
should
N0
poverty
resource
poverty
a
however,
organization al
the
responsibility
on an organized basis in
participate
The
By serving as a means
th
skills
from the NO field
is
established
mobilize
and
proces s
project
technical
assist
t o
necessary
enhanced
organization was not imposed
corporate un i t s.
promoted
associ ations
action on
a formal
Thus the organizations were
as
in
participation
cleavages
existing
strategy,
the poverty group themselv es .
take ac tion
groups to
poverty
By that
the organi z i ng
to facilitate
for
an d
the poverty groups.
and controlled by
all
of
th e municipality and to encourage existing
reinforced
not
PBSP' s
organizations,
members
individual
cooperation.
patterns of
example
1
for
over activities.
control
sole
poverty group
new
wi th
in
groups and factions
were
demanded
of
work
own benefit,
their
i mplementation that would benefit them or
for
or who
relatives,
the
for
primaril y
to take collective
condition.
on activities
sustained
PBSP
that
development.
59
since
nature,
of
a more economic
upon effective
beneficiary
activities
of
advance
in
and
from
apart
built
the latter
were
organizing
process
both
themselves,
vi ties
acti
pro.j ect
i mportant
as
effectively
to participate
the poverty groups
of
the preparation
vi ewed
They
participation.
NGO
The
organizational
well
participation
implementation were begun.
through problem
poverty groups
the outset of project
groups
project
to
approach
Also
problems.
in
simple, concrete
whole,
the people,
a
the NGO
while
it
leadership
structural
their
to
pre-identified
around their needs and
people
that
the poverty
presenting
than
was best
it
short-term and personal
abstract and long-term
to move from
issues to more complex,
issues over time.
Thus,
should assume an active role in
must not take decision-making
position.
the
found to be a more viable
solutions
concerns, PBSP experience proved
organizing
and
identification and resolution at
development
organizing
beneficiary
activities
that
found
was
planning has been
prepackaged
with
It
the
solutions.
their
design
project
before
local
labor,
for
provided
process
of
needs by
considering
by
and
capital
procedures necessary to implement
organizing
PBSP
The
and
time
technology,
terms
in
resources
and
skills
their
eval.uating
perceived problems and
solutions to their
strategies or
propose possible
then
should
groups
poverty
The
problems.
or
interests
salient
more
and assessing their
identifying
clients
with potential
begin
should
Throughout
the
on
the
organizing
from them nor
assume
community organizing
60
The Poverty GrOUPS
Empowerinc
Empowering
part of
groups and movements
In
context of
a formal
development
programs
.
in
will
ensure their
not
the
crucial
in
control
over
which
their
needs
or
empowered
the poverty
success of
their
capabilities
concerns.
in
participation
PBSP under
projects
under
stated
a re
PBSP
gr Oups.
their
is
level
Simply
to
representatives
the program.
the program
it
and control
po wer
LRM was the
capability-
central
local
What was
poverty groups'
and the extent
were developed to address their
The
rural
is necessary,
of
to the poverty groups or
authority
transfer
ways to
and direct
tangible
they could
status under the
a
conditions
strategies and procedures for the transfer
the key
par ticipatory
participation
necessary
Other
sufficient.
so that
while
that
such control.
l ike LRM,
program
of their
revealed
government policy supportive of
not
and on the
experience in
Previous Philippine
development
situations
poverty groups
rights and responsibilities
accept the
resources and
excluded from
hitherto
issue was how to empower the
program.
social
given
in
institutions
over
control
as the organized efforts to increase
regulative
ultimately
is
of participation
follows from a definition
This emphasis on power
the
substantive participation.
groups'
poverty
the
for
the basis
empowerment
strategy since
of
primary element
a
is
the poverty groups
proposed participatory
the
own decisions.
poverty groups should make their
the
processi
buil
dinq
to
pressing
proqram
the poverty group members to develop organizational
and
61
1 eadershi p
assume operation
NGO
staff
resources
provided
It
ski Ills.
and maintenance
capacity building
was a
necessary
approach insofar
as it
promoted
development
program
resources.
For
example,
given
recognition
legal
through
empowering
coconut
the
farmers
poverty
an
establishment of
certain
in
Antique,
to
fry
ove r
tenure
was
the
that
important
particularly
objective
perceived needs
Leyte,
poverty
eeCut ive
responsibilities
making
and
and
Is
and
that
address
problems.
for
the
In
steering
overseeing
monitoring
of
the
groups:
both
the
municipal
assign to
to
is
in
development
Under
objectives.
more
members
This
signi ficant
and Southern
Anti que
of
committees
various MDC
that
long-term planni ng,
and
it
LRM,
groups have had
poverty
group representatives were
project
and
rights
rights
substantive roles in the formulati on of project
ensured
by according
land rights that
to evaluation.
from planning
and
some forest resources.
poverty group orga nizations decisi on-making
activities
was through
Southern Leyte,
In
Another means of empowering p overty groups
project
over
rights
legal
associations
leasehold
land
of
1 ocal control
a rural
accomplished
was
groups
granting
in
empowerment
gatherers'
landless laborers
the
facilitated
and
groups
poverty
over concession areas.
rights
their
self-reliance
efforts.
grant them
to
is
the participatory
of
aspect
the
empowering
of
One means
Such
terminated.
was
poverty group
of development
the sustainability
from the
activities
project
assistance
techni cal
once
of
to eventuallv
for them
national
had
policy-
development
62
in
projects
is
It
worth
were
efforts
at
was directed
under-went
significant
planning
and
the advocacy of poverty
in
by
restructuring
to foster participation
and
Activatinq
place among the MDCs.
Bureaucracy
reorganization is
necessary
order
in
that the
administrative structure and operations of the development
entire
committed
agency are directed and
In
rhetoric.
policy
to
essence,
approach required a restructuring of
greater
a
allow
over
effect,
the State through
local,
its
bureaucracy
and ultimate
the
generation
at
bureaucratic
reorientation process
ideological
obstacles
all
It
levels.
poverty groups'
among
those
participation.
must
that
and
both national
exppansion
and
In
the poverty groups.
instrumentalities
initiatives
obstruct
government
promote the necessary policy environment
should
encourage
with
development activities
control
more participatory
decision-making
of
sharing
local
of development
level
implement a
to
approach
the participatory
does not remain at the
so that participation
to
such organi Z:-'ational
LRM
took:
the
Restru..cturing
Bureaucratic
Under
poverty groups.
participation
for
allowed
that
process
development
project
interests
order to come out with a
in
restructuring
group
The bureaucracy
bureaucracy.
government
local
organizing
the empowerment
that
in
score
on this
successful
the N0
that
point
mentioning at this
reflected
process as
areas.
respective
their
participatory
of
also
re-moves
development
that will
be
open
to
structural
ag:gencies
a
and
that
63
In
implementing
changes
its
personnel,
For
e.'ample,
in
attitudes.
in
associations
projects and
simply
development but
such a
perceived
the
the
development efforts
decision-making
i mpl emen tat
a
physical
framework
for
was
groups
rather than
authority
change
goal
members
poverty
policy and
These
the basic
in
so
of their
change on
that
they now
active collaborators
as their
as passive
planning,
the
sustaining
attitudinal
required
in
municipal
for
capability
Such
extended basis.
MDC
infrastructure
in
fundamental
group
beneficiaries
project
in
with no
design
and
i on.
Through
addressed
poverty
allowing
also building a social
structure on
the part of
MDCs.
building
between the
viewing
from
MDC members
of
as
in
a
to actual
coordination
monitoring of construction costs.
engendered
A one year
instances where
in
and construction work
hiring
changes
procedural
attitudes
established
wer e
Procedures
their
p overty group associations.
and
members
agency
technic al
eliciting
Mechanisms were developed
technical
and
i nstitutional
for closer
and
community
take place prior
had to
implementation.
project
devI/elopment
task
planning cycle
the
norms
of
staff
groups in
poverty
building activities
institution-
a
planning and i mplementation.
in
wa s imputed
time lag
develop ed
with
municipal
involvement in
MDC
worked
who
organizers
and procedures,
policies
it
MDC require=d
the
strategy,
oryv
c ipat
A parti
its
capability-
the anti-partici
The reoriented
building
program,
patory structures and
MDC policies
PBSP effectively
ideologies in
and procedures
the
ensured that
to
design.1
and
operate
rural
accorded to their
and programming,
beneficiary-
the
authority
legal
the poverty
MDC planning
in
to participate
Real
t hey were further able to develop organizational
to
necessary
skills
in
And because
organizations.
were allowed
organizations
group
proj ects.
poverty-foCLused
maintain
po v erty
v groups was evident
of
empowerment
capacity
developed organizational
org an i zations
the poverty group
initi
ated
and
design
development
more
implement
complex,
and projects upon
activities
determination that they already possessed such capability.
expe rience under
The MDC
other
agencies in
devel opment
involve developing local
development
other
planni ng and
The
settings.
various
government.
The primary
defined
implementation,
projects.
labor
their
factor
is
rights
monitoring
as
rights
These
base for building
to
participate
poverty group
organizations as a
A third
groups.
factor is
mobilize their
financing development
of
in
devel opment
of
The second
maintain the projects over time.
them
design,
association.
more organized
developing the capability
the
entities
committing
the poverty group organizations must
of
in
give them clear reason for
of existing
to contribute to the cost of
in
mai ntenance
and time to developing their
the use
legal
are
they
responsibilities
and
relevant
be
is the clear authority of
factor
first
may
that
programming
and
lessons
capacity in poverty-focused rural
social
poverty group associations insofar
with
lessons for
LRM provides
The fourth
the
planning
factor
organizations
and
project
that
own resources
projects and
is
the policy
by allowing
development
65
go
a
have
al ready
groups
poverty
projects
Thus before the
decisions.
decisions.
considerable experience in.maki ng and implementing
It
in
that
advocates
that
requires
level
to be
program,
of
devolution
in
situations
in
priorities
to
to
authority
development
for
is
specific
requirements,
and
design may not
policy and program
which an overall
This
their
in
problems,
needs,
their
terms of
rural
communities.
the
variations
capture
to
order
necessary
government
local
the
capacities and stra:tegies call
level
local
these
to
centralized approach
LRM-type
an
Under
effective.
at
strategies
appropriate
important
however
a de-facto top-down
still
is
program success
to take
government mandated policy
A
participation,
beneficiary
of power
transfer
program.
a participatory
place
real
strategies are
is now clearly apparent that village-level
a necessary condition -for the effective
with
organization
viable
the
pipeline,
the
in
easily be adapted.
Decentralization
Within
Authoritv
of
strategy,
participatory
groups.
For e>xampIe,
through
that
authority.,
the poverty group organiz ations
project activities
terms
In
authority.
decentralization should be
the sense of devolution of
means to
another
is
to beneficiary participation
obstacles
decentralization
to poverty
State,
a development agency of the
structural
eliminate
through
Of
is
under LRM,
with
understood
transfer
the MDCs
decision-making
recognition
of their
of
legal
a
in
of power
empowered
control
in
authority
66
the poverty
groups which are
problem were
in
to
power
the
given
were
groups
project
adapted to
other municipal
confronted
elites
capturing
from
precluded
groups were
organized poverty
the benefits of
were
designs
local
but
own
their
call
can
level
Not only were there projects that the poverty
variations.
local
local
to
project
planning and decision-making,
also because they
And
contribute
on their
based
problems
to
and resources.
skills
knowledge of their
and evaluate them
to identify
solutions
possible
or
affected by a situation
directly
the best position
proposed
and
MDCs recognized that
The
management.
project
for
and capability
most
by
of
projects.
development
Beneficiary Participation As Basic Approach
On the basis of the merits
as
the
approach
basic
necessary
in
While
beneficiary participation
in
statements are
sometimes
not provide for
the
development
essential
process.
contradiction in
are internal.
participation
rural
These
that
rural
attaining
in
the State may make provision for
development
implemented
poor
programming and
has been established as
condition
significant
and
development objectives.
the
development
rural
Beneficiary participation
implementation.
a
should be advocated and adopted by the State
that it
stands out
it
participation,
of beneficiary
initiatives, such policy
through
strategies that do
The
forces
government
in
significantly
to participate
that
rural
account for this
development
programs
are the structures and ideologies of
are
permitted
to
reirain
in
anti--
government
67
deve/alopment
a
of
restructuring
of
decentralization
the
administrative
the
assume
In
authority.
participate
development
programming
both the State and
CHAPTER
IV-
PBSP
groups
implementation
a
organizing
in
experience
defines
prototype
possible
processes that
has
evolved both
generation developmental
had been
It
third
The Catalytic
both the
generation
a
catalytic,
groups
and
help empower
in
poverty
and effective
close
development
as
program
in
State-NGO cooperation
been
from
abstracted
the
the MDC
which as
an
agent of
actor for
lead institutional
local
NGO assistance.
Role
in
was mentioned earlier
performing
roles of
the
where
rural
for
on PBSP as a NGO performing a third
role and
development and beneficiary of
NGOs--
of
Using a rural
relations.
development
participatory
the State
a participatory
poverty
organizations that
an implementation strategy for
venue,
of
CONCLUSION
government -NGO
a
that come with
NGO are key.
MDCs as rural
activating
and
be willing
will
framework
different
radically
a
require
approach
and
implementation
advocacy and
sum,
and
bureaucracy
and responsibilities
obligations
be
within the development agency so
authority
that people can be empowered to
to
there must
such obstacles,
To eliminate
agencies.
program
the study that NGOs that
strategies
foundation-like
will
role
find
embrace
themselves
rather
than an
68
operati onal
a signal
qiv es
deli very
service
it
that
development
thrusts
can do this
while
poverty-focused
the country.
the depressed regions of
in
working
and
for
searching
on
a service
fronting the implementation of programs and projects at
level.
like
In
in
posture could develop competence
local
organizations or
and
collaboratively
Whether
poverty
structures could
pursuing private-
in
efforts
of
coalition
sectors
PBSP's
beneficiaries.
intended
experience gives evidence of the feasibility of
public
group
and effectively manage development
benefit
therefore
the area
working
these
units
government
to efficiently
be capacitated
inputs
structures.
delivery
local
with
in
a NGO assuming a PBSP-
building efforts,
coalition-
its
it
its direct efforts
that would require less of
delivery system
its
with
proceed
can
ex per ience under LRM
P BSF'
role.
poverty--focused
development work.
Real power
because
of
perspective that
it
its
of
brought to bear in
and
size
shaping
its
but
do good
to
make a
programs.
of
development
reliant
development
it
of
this
than
other
under
ability
It
F'hilippine
was successful
NGOs
the concept of strategy based
and
local
is very rare among NGOs.
particular
distinctive.
particularly
was much closer
internalizing
initiatives,
to
The
not only to
shaping policies
in
structures that determine the result
institutional
FBSP's
difference
real
in the PBSP
the strategic
to think about how to position NGO resources,
ability
makes
combination
the
is found
impact
in terms of potential
selfIt is
LRM that
because it
accepting and
on particular
poverty
69
Thus for
program.
PB3ESF',
beyond communities of
It
in
government
rural
of
knowledge
worked
independently before,
High
skills
in
of both
working
NGOs
these
way
a
which
define and
of technical
levels
those which have
to develop
need
would
as to
in-depth
an
which
For
as members
collaboratively
this
needs
NGO
required.
are
competence
strategic
case a
organizations
and
regulate the program being addressed.and
in
organizations
the
the
so,
do
actors
the
by
of NGO
such
in
larger coalitions
of
public and private organizations.
Organization
to seek
competence
strategic
learning drives
greater heights., PBSP's third generation experience validated
further strengthened
approaches
survival
of
only carry
as
its
workable
PBSP as a
out its
have a certain
Thus
impact
If
done over
and
even
time,
An
projects well
programs and
strategic
was central
it
organization.
long-term
which other NGOs
programs.
models.
in
its
area
government
but
NGO
it
and
and CO
organization building frameworks
as the PBSP experience proves,
program then
after
a
positioning
program--
program--
learning
To
program.
comprise the
skillful
its
target
a
development
accelerated
facilitate
an NGO performing
that success for
to
relation
resources
efforts
its
entry.
initial
role depends on
generation
third
development
expand
to
easier
was
therefore
clear
is
it
and asset
ihood
livel
of the rural
heart
the
were
which
i ssues
control
on the
was more sharply focused
groups and
in the
must
not
must also
of operations.
The
can become the model
can
pattern their
NOs can transform themselves into
70:
majo(:r
pl ayers
d(::vev eop
men t
sustainable and strong
emergence of
networking
and
-
development
significant
a further
can lead to
capability
the
in
actors
bit
building
alliance
Their
scene.
bei ng
simply
than
rather
the
relations.
government-NGO
Towards Lasting State-NGO Relations
state has broader
Usually the
reach than NGOs.
aim to reach society as a whole both
in
As the state conceives of development
NGOs on
other
the
They responcI
perspectives.
parts of rural
But
for both state and NGO.
subordinated
one
NGO a privileged partnership
goal
of
the
LRM
helping to alleviat
proved
program
indigenous NGOs
eliminated
if
there
like
:e rural
are
ex-, per i ence
LRN program showed
workability
of
that
in
NGO-government
with
the
a common
The PBSP case under
poverty.
governments
between
tensions
can be reduced or
ideology,
and
with the government
working
there
especially a
common
development approaches.
development priorities and c:ommon
PBSF" s
micro level,
action towards
values
shared
specific
MDCs may find
traditional
that
Bfy
Such may be the case
the
space for
r iational
and their
at a
they operate
an agent of the state,
localized
and
interests of
and efficiency.
efficacy
they manage to join
groups.
and localized
restricted
to localized
Si nce
society.
more
have
hand,
lacks
and efficiency.
objectivity
lose depth,
governments
generalizing,
terms.
it
terms,
national
certain social
areas or with
certain
effectiveness in
spatial
and
social
in
Governments
is
credence
partner sh i p
and
in
initiated
proof
on the
area-specific,
71
organized
the
in
benef i c i ary participation
themselves through federations
poverty groups mobilized
projects.
At
organizations made representations
with
group
initiated
that
The
process.
development
local
of
p r omot i on
an d
p r ogr ammi n g
devel opment
ocused
p over ty-f
these
time,
same
the
which developed
MDCs
poverty alleviation programs for the achievement of poverty group
groups became
legitimate members of
and therefore participated in
examples that
can be
localities
specific
concerns
common
the poor- who
with
closely
live
in
to address
empowered
and
organized
working
while
in fact,
This
IDCs.
by the
setting the development agenda as envisioned
presented concrete
of the poverty
Similarly, representatives
objectives.
goals and
government
local
structures.
The experiences revealed general
the
challenging
as
tasks
participative development
community
of
NGO
well
to specific
as the unique pressures that a
intervention entail.
as
organizing
analysis,
the areas of poverty situation
progr'am
and
project
evaluation, and
resource mobilization.
approach
initiated LRM process
strategy formulation,
implementation,
planning,
use by the
The
development
a
complemented the demands of the governmentin
perspectives on
monitoring
The key requirements
the program were done with the poverty groups and members
MDCs while
situation
identification
These
the NGO
analysis,
performed organizing
community and
tasks in
and
of
of the
the areas of
resource mobilization,
leader
and group formation.
concrete
outcomes
of
the implementation
of LRM-type
77
in
programs provi de a number of cases
to
vi abi l i t y
the
present
a third
NGO assuming
operationalization.
of the LRM-type of
program
government units,
the state
greater
that
could redirect
impact
the use of
in
accrue
could
to
its
local
development work
in order
to achieve
resources through benefits
financial
the
a
and expansion
Through
its
This is
targeted poverty groups.
focus on
for adoption
role,
generation
assistance of
with the
for-government,
opportunities
Such c.aSes
par tner sh i p,.
government-NGO
of
give credence
wh ich
point
less
opportune
would
be
of
sectors
the
popul at ion.
doing
In
define
implement
and
in
adjustments
operating systems
and
for
government
This would
pol ici
priorities,
development
to
feasible delivery
of a process.
this kind
es
and
For instance, the state could
and procedures.
but real
espouse not only decentralization
devol ution of powers
government units.
to local
Enhancing the
functioning
rural
can pursue
decision-making. With the NGOs
would not
and mobilizing resources to
the rural
poor.
linkages
with poverty groups,
democratic process
a more
public-private
promote
By adopting the NGO-established
and
approach
the government
could
organizations
institution-building
the state
poverty group sectors through
of
empowerment
partnership in development work.
life of
a need
complicated
less
would support
systems that
entail
there
this,
and poverty
be alone
benefit
in
and
in planning and
group organizations,
programming
interventions
improve the
quality
of
NOTES AND REFERENCES
1
h-e Design 0f Rural Development,
Lel e., Uma.
Hopkins University Press,1975). Chapter I.
(Baltimore: John
Norman
T.
Uphoff.
Rural
Development and
2Cohen,
John
and
for
Concept
and
Measures
Participation:
Project Design,
for
Center
and
Eval
uation,
(Ithaca:
Implementation
International S tudies, Cornel l Univers ity,1977). p.6.
and
Mathias
Steifel.
Inquiry Into
Pearse,
Andrew
(New York:United Nations
ParticipationA Research Approach,
Research Institute
for Social Development,1979). p. 83.
4
Briefly
the arguments supporting beneficiary participation
run
no say
in the
have virtually
The
rural poor
as follows.
events
that
affect
their
lives
and development strategies
being a
basic human right,
Besid-es
failed to reach them.
beneficiary
participation
with
decentrali:zation and local
equity
and
wel fare
involvement
reinforce
productivity,
objectives. Thus
a greater
chance in
rural development :i s
for them
best what
is good
expected.
The rural poor know
and
they
represent
a
massive
resource
in
terms
of
Community projects are
knowledge and ideas.
labor,practical
people
had
participated in their
better
maintained
if
emphasis
on selfAlso
the
implementation.
design and
Because it
enables
reliance lowers the cost of development.
contributes
participation
beneficiary
access to resources,
social action to bring about a new
forms of
to non-violent
social order.
5
Oak:ley , Peter
in
Rur a 1
Offi ce, 1984)
6
.pa t ion:
F. , Community
Partici
A Manaciem--ent
Korten,
Frances
Options. In
Dav id C. Korten
on
Obstacles and
Perspectives
and
Bureaucra cv
the
(Eds.).
Alfonso
and
Felipe
Poor,
the
Gap,
(Manila: Asian Insti tute of Management),
Closing
pp.
183-189.
7
Kramer, R., Voluntary
Agencies
Berkeley:
and
Angeles
Press,1981).pp. 1-13.
8
Into
Judith, "Turning
Vol untary
Tendler,
rgatnizat i ons
f'r or
Eval uat i on" , Program
Qhuesti ons
Agenci es:
Deve1._op men t.
(Washi ngton, D. C. A enc y
Eval uation Discussion Paper No. 122,
1932) U pp.81-95.
for International Development,
9
Ibid.,pp.96-105.
Marsden. ,Approaches to Partic ipation
and David
Labour
(Geneva: International
Development,
p. 3 0 - 3 1 .
In
a study of
In
the
Iniversity
75 project
Welfare
of
State, (Los
California
evaluations, Tendler
74
(NG;)
to
be
PVOs
of
claIfms
the
that
concludes
in
reachin g
than
government
effective
poor
the
coul d
not
assistance
development
innovative
substantiated.
pp.
mor e2
wi t h
be
1L0
Kramer,
152-170.
11
"US
and
Canadian
PVOs
As
Transnational
Smith,
B. H.,
Gorman, Private
Robert
F.
in
Institutions",
Development
(Boulder,
of Development,
Voluntary Organizations As Agents
CO: Westview Press,1984) pp.115-164.
12
and
Experiences
Management: Asi-an
D.C., Community
Korten,
Press,.1987) pp.3 0 9 Perspectives, (Wets HartfordCT:KF:umarian
318.
13
"Indigeneous NGOs
E.D.,
Garilao,
With
Relationship
Managing
Vol.
Agencies"World Development,
119.
14
Participatory
(Eds.) ,
Okamura, J.Y.,
and
Osteria, T.S.,
Experiences In The Philippines.,
Development
to
Approaches
(Manila:De La Salle University Research Center,1986)pp. 1-7.
15
Ibid.,pp. 221-239.-
As Strategic In st i tut ions:
Resou!rce
and
Gov ernment
I 937),
pp.
113I55 (Autumn,
15
Local
for
International Developmentt,
Agency
United
States
(Manila:
Project
Paoer
And
Annexes.
Managjement
Resource
USAID,1982), pp. 16-13.
17
for
J., (Eds.) ,Implementation
Van
Sant,
G.
and
Honadle,
Rural
Integrated
from
SuStainability: Lessons
pp..
Press, 1935),
CT. :Kumarian
Hartford,
Development, (West
the projects evaluated that adopted a
one of
92-94.LRM was
the
from
distinguished
as
approach
design
rolling
was considered as one of
approach. It
blueprint
traditional
during that
projects
USAID-assisted
innovative
more
the
time.
Social Progress, Board Policy Manual
Business for
13 Philippine
chapters 1-2.. More
(Manila: PBSP,1987).,
Prototype Edition,
the
of
in
pursuit
was
mission
the
PBSP
specifically,
assist and finance sociofollowing objectives: a) initiate,
low-i ncome
help
which
projects
development
economic
groups, b) increase the earning power of the underprivileged
and
entrepreneurship
self-reliance,
promoting
by
workers in
skilled
and
professionals
innovation, c) train
implementation of
effective
a
more
for
socialdevelopment
and
executives
corporate
involve
Actively
d)
projects,
time and
member companies in sharing their
professionals of
expertise in PBSP programs.
I.-
19
Ibid.,
chapters
3-4.
20
Memorandum
21
Philippine
Business
for
Social
Progress,Empowering
Rural
Organizations
and
Structures
Through
the
LRM
Protram-A
resource Manual,
(Manila: PBSF July 1986),pp. 1-27,29 -37.
Circular
76-1107 of
the
Department
of
Local
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