Evaluation Of The Program Rural Empowerment Through Agrarian And Asset Development (read), By Project Development Institute And Federal Ministry For Cooperation And Development Karkoscha Melsbach And Schwieger

FEDERAL MINISTRY FOR ECONOMIC COOPERATION AND DEVELOPMENT DEPARTMENT 120

JANUARY, 2004

Evaluation of the Program Rural Empowerment Through Agrarian/Asset Development

Project Development Institute (PDI) Manila, Philippines October 9 – 13, 2003

The opinions presented in this study are those of independent external experts and do not necessarily reflect the views of the Federal Ministry for Economic Cooperation and Development.

Table of Contents

1

Introduction

2

Summary

2.1

Summary of major findings

2.2

Summary of major recommendations

2.3

Findings and recommendations in regard to the seven key questions of this series of evaluations

3

Brief description of the program

3.1

Brief description of the concept

3.2

Tabulated overview

4

General conditions

4.1

Political, economic, ecological, social and socio-cultural conditions

4.1.1

The program area

4.1.2

The extent of poverty in the program area

4.1.3

Relevant processes in the program area

4.2

Brief analysis of the sector in which the program operates

4.2.1

Land ownership, struggle for land and CARP

4.2.2

Status of CARP Implementation

4.2.3 Problems of land distribution 4.2.4

Resistance of landownership and their strategies

4.2.5

Agriculture in Central Luzon

4.2.6

Sustainable and alternative land development efforts

4.3

Analysis of the institutional framework

4.3.1

Local governance, rural development and agrarian reform

4.3.2

The different actors and their interests

4.3.3

Rural poor participation in governance and power relations

4.4

Conclusions in regard to framework conditions

5

The READ program and the quality of aims and planning

5.1

The READ program

5.1.1

The Project Development Institute

5.1.2

The READ program’s aims and objectives

5.1.3

The conceptual framework and strategy of the READ Program

5.1.4

Target groups and area of operation

5.2

Analysis and assessment of aims of the READ program

5.2.1

Assessment of clarity and feasibility of aims and objectives

5.2.2

Assessment of poverty orientation

5.2.3

Consideration of gender issues

5.2.4

Considerations of the needs and interests of the indigenous people

5.2.5

Compatibility with development aims and priorities of country and donors

5.2.l6 Assessment of other aspects 5.3

Assessment of the planning quality

5.3.1 Target group analysis 5.3.2 Participation in the planning process 5.3.3

Assumption of risks

5.4

Overall assessment of program aims and planning

6

Quality of program implementation and management

6.1

Analysis and assessment of the implementation

6.1.1

Develop capacities and organizational strength

6.1.2

Improvement of land ownership

36.1.3 Economic Support measures 6.1.4

Networking, advocacy and lobby work

6.1.5

Principles of program implementation

6.1.6 Orientation on specific groups 6.2

Analysis and assessment of the program’s management

6.2.1

The budget of the PDI’s READ program

6.2.2

Monitoring and evaluation

6.2.3

Cooperation between PDI and EZE/EED

6.3

Overall assessment of program implementation and management

7

The program’s effectiveness in development terms and its significance

7.1

Program results and achievement of aims

7.1.1

Results of building people’s organizations

7.1.2 Results of land transfer to peasants in Agrarian Reform 7.1.3

Results in regard to economic activities

7.2

Assessment of cost/benefit ratio

7.3

Economic, social, socio-cultural and institutional impacts

7.3.1

Empowerment of farmers and Pos

7.3.2

Impacts on indigenous People

7.3.3

Impact on the situation of women and gender relations

7.3.4

Youth

7.3.5 Poverty Reduction 7.3.6

Impacts in regard to the agricultural sector

7.3.7

Social impacts

7.3.8

Impacts concerning political participation

7.3.9

Spill over effects

7.4 Poverty orientation and contribution to International Development Goals and the German Government’s Program of Action 2015 7.5

Ecological impact

7.6

Sustainability

7.6.1

General Conditions

7.6.2

Program Partner Organization

7.6.3

Target Group

7.6.4

The Sustainability of the impacts

7.7

Cost benefit assessment

8

Recommendations

8.1

Recommendations to the Pos and NMGL

8.1.1

Further develop strength and capacities of the organizations and the federation and enhance self-reliance as well as independence from PDI

8.1.2

Enhance engagement at municipal and city level in sustainable land development and livelihood

8.1.3

Strategic development of services for members

8.1.4

Put more emphasis on gender issues

Recommendations to PDI 8.2.1 Continue support to POs and NMGL to enhance their degree of independence and self-reliance

8.2.2

Develop complementary areas of action

8.2.3

Enhance lobbying at all levels

8.2.4 Increase the strength and some management aspects of PDI 8.2.5

Enhance the integration of gender issues into all aspects of READ program

8.2.6

Carry out reflections on geographic expansion with funding organizations

8.3

Recommendations to EED/EZE

8.4

Recommendations to BMZ

8.5

Recommendations concerning the key questions of the sequence of evaluations

9

General conclusions (lessons learned)

9.1

Clear orientation of the program around issues

9.2

Comprehensive strategy of empowerment and to address poverty

9.3

Relations to farmers and target groups

9.4

Negotiation and dialogue with government and other actors

9.5

Close cooperation but independence from grassroots to national level

9.6

From grassroots to national level

9.7

Flexibility in implementation

9.8

Values, management and emotionally affected staff

9.9

The implementing organization

9.10

Relation to funding partners

9.11

External Factors

10

Other findings

10.1

Influences of development programs on surrounding areas

10.2

Experiences with the methodology of a joint and participatory evaluation

Abbreviations ACORD ADB APIS AR ARB ARC ARRD BDC BDP BMZ CARL CARP CDP CLOA CPP DA DAR DENR DMC DOH DTI DSWD EED FAO FB GAD GATT GDI HDI HMB ICARRD IGA IGP IP IPDP IPRA KZE LDC LGU LTI MARO MIS MNC

Agricultural and Coastal Resource Development Asian Development Bank Annual Poverty incidence Survey Agrarian Reform Agrarian Reform Beneficiary Agrarian Reform Community Agrarian Reform and Rural Development Barangay Development Committee Bondoc Development Program Bundesministerium fur wirtschaftliche Zusammenarbeit und Entwicklung (Federal Ministry for Economic Cooperation and Development) Comprehensive Agrarian Reform Law Comprehensive Agrarian Reform Program Comprehensive Development Plan Certificates of Land Ownership Awar Communist Party of the Philippines Department of Agriculture Department of Agrarian Reform Department of Environment and Natural Resources Development Management Course Department of Health Department of Trade and Industry Department of Social Welfare and Development Evangelische Zentralstelle fur Entwicklungshilfe Food and Agriculture Organization Farmer Beneficiary Gender and Development General Agreement on Tariff and Trade Gender Development Index Human Development Index Hukbong Mapagpalaya ng Bayan (People’s Liberation Army) International Conference on Agrarian Reform and Rural Development Income Generation Activity Income Generation Program Indigenous People Integrated Participatory Development Programming Indigenous People’s Rights Act Katholische Zentralstelle fur Entwicklungshilfe Local Development Council Local Government Unit Land Tenure Improvement Municipal Agrarian Reform Officer Management Information System Member of National Congress

MPDC MTPDP NAPC NGO NMGL Luzon) NSCB NSO ODA OLT NPA PARO PARRDS PBD PDI PDRN PHP PME PO PR PRRM READ RTD SCAT SLED SPF SRA ToR TriPARRD WTO

Municipal Planning and Development Coordinator Medium-Term Philippine Development Plan National Antipoverty Commission Non Government Organisation Nagkakaisang Magsasaka ng Gitnang Luzon (United Peasant of Central National Statistical Coordination Board National Statistics Office Overseas Development Agency (Now DFID) Operation Land Transfer New People’s Army Provincial Agrarian Reform Officer Partnership for Agrarian Reform and Rural Development Services Program Beneficiaries Development Project Development Institute Pampanga Disaster Resource Network Philippine Peso Planning Monitoring and Evaluation People’s Organization Public Relations Philippine Rural Reconstruction Movement Rural Empowerment through Agrarian Development Round Table Discussion Special Concern Action Team Sustainable Local Economy Development Small Project Fund Social Reform Agenda Terms of Reference Tripartite Partnership for Agrarian Reform and Rural Development World Trade Organization

Other abbreviations refer to the names of People’s Organizations (see list in the Annex, page 18-21). 1 Euro = 66.66 PHP

1

Introduction

Objectives of the Evaluation The programme “Rural Empowerment through Agrarian / Asset Development (READ Programme)” is implemented by the Project Development Institute (PDI), Philippines. It is supported by the German Protestant Church Development Service (EED/EZE) with funds from the Federal Ministry for Cooperation and Development (BMZ). The evaluation is the second in a series of six annual BMZ evaluation (2002-2007) of projects of the German Church Development Organizations EED/EZE and Misereor/KZE with special amphasis on the projects’ contributions to the objective of “Enhancing the Particpation of the Poor – Strengthening Good Governance” as defined in the German Government’s Program of Action 2015 Towards Halving Extreme Poverty Worldwide. Particular attention should be paid to what extent strategies to strengthen the poor and their organizations are successful and able to enhance and support “bottom-up processes” of poverty reduction. Finally, how to improve these strategies and lessons learned for comparable programs are to be identified. The experiences made in the bilateral aid project “Bondoc Development Program” shall be used as reference. Based on seven key questions of the sequence of evaluations “Enhancing the participation of the poor – strengthening Good Governance”, specific Terms of Reference were established for this evaluation (see Annex, page 117). Period and process of the evaluation In the preparatory phase of the evaluation, a meeting took place in the Ministry with representatives of BMZ, EED/EZE and the consultants in order to orient the evaluation and discuss main objectives. More information about the READ program and the role and perspectives of the responsible desk officer of EED/EZE were obtained in a separate meeting in EED/EZE witht the two German consultants. Mainly via e-mail, the team of external consultants prepared suggestions concerning the methodology and the schedule of the evaluation. The exchange between the external consultants and PDI resulted in a first clarification of the characteristics of the evaluation, the methodology to be applied and a detailed schedule for the evaluation. The period of evaluation in the Philippines was from October 9 to 23. Three main phases can be distinguished: 1. A workshop setting the stage for the evaluation and clarifying the framework (2 days)

clarification of objectives and methodology, clarification of tasks of the members of the large evaluation team and the external consultants, presentation of the situtaio9n of the program, its strategies and achievement, discussion of impact hypothesis as a basis for the evaluation. 2. Field visits in three teams (4 days) 1 • •

to check the impact hypothesis and to find out the impacts achieved by PDI, to discuss the views, perceptions and opinions of other actors involved and concerned.

3. A final workshop (4 ½ days) • • • •

for sharing the results of the field visit teams, analyzing and assessing the results and impacts, identification of lessons learned and recommendations, evaluation of the evaluation process and results in the large evaluation team.

The evaluation team and actors involved in the evaluation The evaluation was carried out by a large evaluation team of around 20 members including ¾ ¾ ¾ ¾

leaders and members of the people’s organizations and federation (8), staff and director of PDI as the program implementing organization (8), external consultants (3), government official (Department of Agrarian Reform) (1).

A list of the evaluation team members is presented in the Annex page 3. Mainly during the field visits but also in further interviews and discussion, a number of other actors were involved in the evaluation process, mainly through group discussions/mini-workshops or interviews: • • • • • • 1

about 270 farmers (men and women), mostly organized PO leaders and members from 49 Pos, around 40 non-organized farmers, amongst them beneficiaries of the AR and nonbeneficiaries, 10 mayors, Barangay and municipal officials, about 10 DAR officials from municipal, provincial and regional level, 7 experts and NGO0 representatives at national level, some workers, vendors, etc.

Due to time spent for traveling, the Nueva Ecija and Bulacan team only had two full days for the meetings and discussions.

Six provinces of Central Luzon were covered by the visits. The evaluation methodology The following aspects guided the team’s selection of an appropriate methodology for this evaluation. •

The evaluation is learning oriented. The main results are the lessons learned from the experience of PDI and other actors concerned by the program. These actors also should learn, not only or mainly the three external consultants. Control aspects do not play a role in the evaluation.

•

The evaluation is part of a sequence of evaluations which focusers on strategies and impacts on poverty reduction and participation of the poor in decision making processes as well as good governance. The main results are the identification of impacts and the respective lessons one can learn from the experiences gained within the PDI’s program. Therefore, this evaluation is different from a program evaluation.

As a consequence, the methodology should allow to draw lessons in regard to the strategies and impacts achieved by PDI and it should favour learning from this evaluation by actors involved and concerned by PDI’s program. As a consequence, the three core-aspects of the methodology were: 1. Focus on people, their perceptions and their experiences 2. Active role and involvement of the staff, of target groups and of other actors 3. Open assessment of impacts These three points are explained in more detail in the following: An important element of the methodology is to allow and to favour the attitude of the director and a staff, to understand the evaluation as an opportunity and not to fear it as a control instrument. As a consequence, the methodology aims at a joint evaluation. This means that the evaluation is not only supposed to be an external evaluation but also a critical self-reflection about the program’s interventions and a self-evaluation of achievements and impacts which is accompanied and completed by external consultants. An attitude of curiosity and exploration (and not of defence) is of crucial importance to see different perceptions as a potential for learning and not to assume a defensive role. The external consultants have to encourage this attitude and to assist the staff to perceive differences as a learning opportunity rather than as a threat.

In order to understand the program, the concerned people, their perceptions and their visions have to be known. A high degree of participation of the staff and of target groups and other relevant actors is considered to be important to take advantage of existing experiences for the evaluation. This means that in addition to the relevant quantitative and qualitative information and data, their interpretation by the staff of the program, the people’s organizations and other actors are essential. Consequently, the staff, the different target groups and a diversity of other actors will be involved in the reflection process, each with a specific perception and appreciation. There is no final or “true” and “objective” assessments / evaluators; however, their assessment is one perception among others. In order to offer maximum space for the exchange and discussion of different perspectives throughout the process, a big evaluation team was established. All the members of the evaluation team 2 assumed the functions of an evaluator (analysis, reflection, identification of recommendations, etc.) and played an active role. Their participation was not limited to providing relevant information for the three external consultants as “the evaluators”. Other actors were involved in mini-workshops or through open discussions and interviews. These discussions were an open and learning-oriented dialogue where evaluation team members raised questions, avoiding an inspection or control attitude. This should allow the exploration of the perceptions of the people and their learning experiences and, as far as possible, initiate a joint reflection. The “contracting” between the different partners in the big evaluation team – the clarifications of expectations, roles and responsibilities – in the beginning of the process is an essential part of the evaluation process. It assured not only transparency and the same level of understanding for all the participants but also was perceived as a source of motivation and pride to commit oneself for the evaluation process. The external consultants have the role of facilitators guiding the evaluation process and supporting learning of the other members of the team. All the participants including the external consultant contribute their professional view and assessment and their experience but the external consultants are not owner of the “objective truth” as an expert. It is important that all the me3mbers feel comformable with the approach. this applies also to the external consultants. This method has to fit to the attitudes and capacities of the external consultants. The quantitative data and the qualitative information served as a basis for the in-depth analysis and the open impact assessment. Impact hypothesis of PDI activities were formulated as a basis for the further analysis during the field visits. The 2

Direction and staff of PDI, representatives of the Pos, one DAR/government representative and the three external consultants (see also Annex, page 3).

visits should also identify unforeseen and negative impacts (see also preparation of the field visits, workshop documentation in the Annex, pages 79 – 82). This was mainly done by an analysis of the actual situation compared to the situation before PDI’s intervention. Other possible factors were considered and identified as far as possible. It was not possible during the evaluation to compare the situation in PDI’s intervention area with areas where PDI has not worked. The following values are considered to have influenced the practice of the evaluation and the attitudes and behavior of the evaluation team; respect to people independent from their function or hierarchical position; justice and selfdetermined development; the principle that everybody knows something and is able to contribute and nobody knows everything. Democracy and transparency in decision making, accountability of leaders. Within the framework of these aspects, different peerc eptions are possible – there is not only one “objective truth” which is valid for everybody and which is determined by one person or the evaluation team. Different perceptions are seen as a potential and as a basis for further communication. Expected advantages of the methodology ¾ The experiences and potentials of a broad variety of stakeholders are utilized for the evaluation process as well as intense discussion among the evaluation team in order to increase the quality of the result, mainly in regard to realistic, appropriate and relevant recommendations and identification of substantial conclusions. ¾ The active role of staff and Pos also enhances commitment to the process and is a condition for learning from individual and program experiences. In addition, it facilitates ownership for the results of the evaluation through the high involvement and active roles in analysis and elaboration of recommendations. ¾ This learning effect which will facilitate the understanding of the recommendations and is supposed to create the necessary insights into the advantages or needs for the implementation of the recommendations – the need for change. ¾ A learning effect in regard to evaluation methods in general has been appreciated by staff and directors and can influence the future evaluation practice of the program. ¾ Consequently, the evaluation with this methodology is not only the identification of conclusions and recommendation, it is supposed to be the first step of change and an improvement process. A comparison of this evaluation methodology with an external expert evaluation is presented in the Annex pages 15 – 17.

Limitations The focus of this evaluation was on impacts and lessons learned from PDI’s program in regard to the key questions of the sequence of evaluations. In addition to this, the ToR also comprehends topics of an individual program evaluation. Consequently, not all aspects were treated with the same intensity. Some were assessed more on evidence gained from documents by the external evaluators. The evaluation of the evaluation process and results by the evaluation team is presented in chapter 10.2, page 105. The report The content of this report is a product opf joint efforts of the entire evaluation team. Although it was written to a large extent by the external consultants, it is mainly based on the results and interactions in the evaluation team. Additionally, the comments and remarks of PDI to a first draft have been included. The editor is aware that it is an unreasonable demand to the interested reader to read this report due to its volume. This is also due to the fact that the report is supposed to give answers to questions and interests of a wide variety of readers: farmers in people’s organizations, PDI staff, responsible person s in EED/EZE and BMZ who will certainly put emphasis on different points. The authors have tried to meet these different expectations by integrating all relevant results of the evaluation and by giving the report a detailed structure and headings which allow one to concentrate on specific point5s of interest. In addition, a summary gives an overview about the key-results of the evaluation.

2

Summary

The programme “Rural Empowerment through Agrarian / Asset Development” implemented by the Project Development institute (PDI), Philippines was evaluated as the second in a series of six annual BMZ evaluations (2002-2007) of projects of the German Church Development Organizations EED/EZE and Misereor. These evaluations are directed primarily at the analysis and assessment of achievements and experiences with regard to the objective of “Enhancing the Participation of the Poor – Strengthening Good Governance” as defined in the German Government’s program of Action 2015 Towards Halving Extreme Poverty Worldwide. The evaluation was carried out in a learning oriented methodology by a team of about 20 persons comprising director and staff of PDI, representatives of the people’s organizations and three external consultants. The programme “Rural Empowerment through Agrarian / Asset Development (READ Programme) is supported by the German Protestant Church Development Service (EED/EZE) with funds from the Federal Ministry for Economic Cooperation and Development (BMZ). PDI began in 1990 with a vision of strengthening and building self-reliant organizations and communities through people’s initiatives.

PDI is committed to the pursuit of genuine agrarian reform and rural development. PDI’s main role is to encourage and support farmers, farm workers and indigenous peoples to mobilize themselves into organizations and to stand for their rights in Agrarian Reform (AR) in order to become legal owners of agricultural land. The ownership of the land they till should give them a stake in the social order and contribute to social and po0litical stability. In addition, PDI, as a NGO, acts as a pressure group urging the government to give the farmers the opportunity to own land. The Pos in the forefront shall demand their right to land and basic needs. This NGO-PO partnership is an alternative approach to the topdown approach being employed by the DAR in the implementation of Agrarian Reform.

2.1

Summary of major findings

Quality of aims and planning PDI’s READ program was planned in a very participatory manner in a six month process involving the relevant target groups. This led to a common understanding of the program and ideas of empowerment between PDI and target groups. The planning gives direction and serves as an orientation for implementation. The READ program fits very well in the development priorities laid down in the Medium-Term Philippine Development Plan 2001-2004. It addresses “Comprehensive Human Development and Protecting the Vulnerable” by focusing on “Agrarian Reform Beneficiaries and Indigenous people” explicitly mentioned there. With its poverty orientation the READ Programme is highly in line with the German Government’s Program of Action 2015, the priority fields of action set out in the BMZ Asia resources”. The READ programme also directly addresses several of the priorities of the Southeast and East-Asia Desk of EED. The formulated aim of the program is achievable for the primary beneficiaries of the program, but the time horizon o9f the entire program beyond the present phase is not evident for outsiders. According to PDI, READ is part of a development process and not as a time-bound project. PDI undertook the effort to formulate indicators for each program component. However, they are quantified only in regard to the activities, but hardly in regard to effects and impacts. Indicators are not differentiated with regard to gender. Consequently, they often do not provide a more detailed description of the results or objectives. PDI is committed to gender equality in practice and understands its program objectives as all encompassing, incorporating men and women. However, this is barely perceptible for outsiders from the planning documents only.

Quality of program implementation and management The READ program addresses rural poverty through its empowerment-oriented approach, networking and lobbying and some additional economic support services. This strategy is an appropriate answer to the situat5ion in Central Luzon and to achieving the program’s aim. The program intends to enlarge the participation of poor farmers by enabling and motivating them to grasp the opportunities of the legal framework of the Agrarian Reform Law and the Local Government Code. PDI sees development as a process of achieving changes in institutional structures that result in sustained improvement in the productive use of available resources to meet human needs. The effectiveness of this strategy lies in being centered on people development and the enhancement of the capabilities of the people. With these capabilities, the people themselves can become active. Under the READ Program, the strength of people’s organizations is rooted in the unity of ideas and objectives from the members themselves. An important element is the formation of values through training and exposure as well the example of the values of the staff. The strength of PDI’s READ program also lies in its participatory and dialogue-oriented approach at different levels with all concerned actors. The highest form of cooperation achieved by the program so far is the establishment of a tripartite mechanism called the Special Concerns Action Team (SCAT). It is composed of key people’s organization leaders, PDI personnel and important regional and national personnel from the Department of Agrarian Reform. In weekly meetings, the leaders of the people’s organization have a chance to bring their cases directly to DAR officials. The DAR is also forced to minimize bureaucratic anomalies because of the farmers’ vigilance. The SCAT serves as a pressure group that mobilizes various actors to cooperate and achieve the resolution of Land Tenure Improvement through the provision of venues for mutually-beneficial negotiations. PDI also provides direct assistance to farmers in their socio-economic initiatives through credits and capacity building. These programs such as the hog dispersal program and the promotion of other income generating activities like dress making, candy making etc., are mostly addressed to women who appreciate the support. However, there is a potential to improve the implementation, monitoring and reporting of the Small Projects Fund. PDI transforms experiences and initiatives from the grassroots level into policy, advocacy and lobbying at the national level. PDI has developed a number of links at local, regional and national level to relevant NGO’s and networks. What makes the READ program special is not one specific element, but the combination of services implemented in a very flexible and site-specific manner. The management of PDI is based on the periodic review of the specific land cases. Decisions are taken according to the most recent development in each specific case.

These decisions are based on the principles and values which are in correspondence with the content of the program, whereas planning documents or indicators play a secondary role only. The advantage of this kind of management is a high degree of flexibility and appropriateness for each specific case. The cooperation between PDI and EED/EZE is based on an agreement defining the roles and contributions of each partner, the source of funds, financial management and audit, etc. PDI provides half-yearly reports about the implementation of the program including audit statements according to a format suggested by EED/EZE. EED/EZE provides funds and offers its advice while PDI remains fully responsible for the implementation of the program as well as for its own conceptual and institutional efficiency. It its cooperation with partners EED/EZE has established a detailed management system. Guidelines and policies are very clear. The continuity of cooperation, the bond of trust between EED/EZE and PDI and the high degree of autonomy PDI is enjoying in the implementation are important factors of success of the entire READ program. The program’s effectiveness in development terms and its significance The results of the READ program Existence of people’s organizations and a regional federation PDI has facilitated the establishment of 59 people’s organizations (Pos) with 2,501 members, out of which 20% are women, and a regional peasant federation United peasants of Central Luzon (NMGL). Within two years only, NMGL has evolved from an organization representing beneficiaries to an organization acting as legitimate partner of the Department of Agrarian Reform. A significant improvement has been achieved in regard to the knowledge about Agrarian Reform law and procedures as well as the rights and human rights of the PO members. They have also increased their communications skills and abilities to analyze their problems and to identify solutions. Many leaders are now able to speak to government officials, to argue and represent their members demanding their rights. This is a considerable change and achievement, in particular for women and the Aeta. The fact that people are able to manage their organizations themselves and to make decisions without PDI shows the independence of the Pos from PDI. However, there is lack of economic self-reliance of the people’s organizations. Results of land transfer to peasants in Agrrian Reform As of October 2003, PDI and NMGL have brought about the transfer of 2,953 hectares to 985 peasants. Around 2,000 hectares of agricultural lands are already in the pipeline. This signifies a meaningful contribution of the program to the whole agrarian reform program in the region. It is equivalent to 17 percent of the

remaining CARP lands in the region. Even if PDI as well as sometimes also DAR emphasize co-o9wnership of husband and wife in order to protect women’s right to property, it seems that successes in this respect are rather poor. Most of the land titles are issued in the name of the male farmer only. The Economic Support Services The Economic Support Services (ESS) contribute to additional income; however, the amount and importance vary considerably. The most encouraging successes exist with the hog program. Nevertheless, compared to the above mentioned results of PDI, these aspects are considered as rather marginal. A substantial contribution to poverty alleviation from these activities cannot be stated and could not be expected considering the small available funds of 7,500 Euro a year and the objectives of the program. Economic, social, socio-cultural and institutional impacts Empowerment The members of the Pos and beneficiaries of PDI’s support are now able to see their situation from a different perspective. Many have obtained new hope in their struggle for land ownership and livelihood development. Their capacities and their successful activities have led to PO members developing a new picture of themselves and have given them motivation to make informed decisions about social, political and economic choices. There is also a general increase in selfconfidence. As a consequence, other actors have become more aware of the capacities of groups who had been rather marginalized before. The government’s political institutions now recognize the people’s organizations as vital political forces outside of but cooperative with the government. This is a significant and important change in particular for women and the Aeta. Through increased formal and non-formal education the latter are now able to negotiate for better terms in the exchange of foods and services, also from local government agencies. However, the improved situation is considered to be an important but only first step. Poverty Reduction PO members attribute high importance to increased land security. Even if the size of 3 ha. For each of the 985 farmer-beneficiaries and their families is not always sufficient to nourish a whole family, the importance of the possession of land titles has to be seen in the context of the lives of the beneficiaries. The titles represent a radical change in their status from being landless to new owners. This achievement is emotionally very important and has impacts on the entire life of the beneficiaries.

There are also economic benefits through land-ownership and investments in the land by farmers as they receive 100% benefit from their harvest, which was not the case as tenants. This increased their ability to provide sufficient food for their family. Improvements in the poverty situation is also related to significant changes in the status of education. Most PO members can afford to provide primary and secondary education to their children. Social impacts Some of the most relevant impacts achieved by PDI concern the changed situation of women members of the Pos. From their point of view, the increased possibility to earn income has influenced their positions in regard to their husbands. Women also relate their greater say in family matters and in decision making to their increased abilities and self-confidence. The value orientation of PDI seems to have achieved that these changes do not result in a deterioration of relationships, but rather contribute to good cooperation in the family. Men and women said that they have learned to discuss their problems in a respectful way. Furthermore, unity within the community was also developed. Improved information, dialogues and the formation of values have mitigated the emergence of violent conflicts in the land redistribution process. However, the successes of PDI and NMGL have negatively impacted on the interests and plans of big landowners. There are indications that their resistance to reform has become stronger.

Impacts concerning political participation PDI has achieved the enhancement and enlargement of the possibilities of political participation for their target population, in particular on local and regional levels. The people pooled their strength through organization and began to exercise their role as a legitimate force in local civil society. Farmers have become active and the Pos are established as a new actor in the organizational and institutional landscape. Pos use meta legal tactics to influence decisions and exercise vigilance in regard to Agrarian Reform law implementation, mainly through institutionalized discussions and negotiation forums through partnerships. In this increased participation has several effects: PDI‘s experiences have changed the governments’ concept of AR implementation and combined land tenure improvement with economic development. This has enhanced the efficiency of the public sector in implementing Agrarian Reform. There are significant changes in the behavior of the government bureaucracy, especially in the national, regional, provincial and municipal offices of the DAR particularly in the areas covered by the program. Many DAR officials are now more committed, more transparent and much more sensitive to the issues brought to their attention by Pos. The new leadership of DAR at regional level has also contributed to these changes.

This change in behavior led to accelerated and more complete law implementation by the DAR. Thanks to the intervention of PDI and the POs, more areas for land distribution have been identified and the distribution of titles has been achieved faster in other places thanks to the improved behavior of DAR. The gap between farmers and DAR has been narrowed. The institutionalization of regular negotiation meetings was able to break old alliances between DAR and landowners in many cases. As a consequence, the “distance” between DAR and farmers has been reduced considerably. The READ program’s strategy of enabling people and the Pos to constructively work in the development bodies has allowed their active participation in local development councils. They were able to influence the allocation of local budgets and to increase transparency and accountability of council decision. However, this only happened in some places and changes are only beginning and have not yet taken place on a larger scale. They also still depend largely on the political will and on the individuals in the government strubtures. Nevertheless, these small changes constitute examples for other farmers to organize themselves and to take action to defend their interests. There are significant policy changes at the level of local governments particular to certain municipal and city governments where PO and NGO influence is stronger. The productive endeavors of farmer-beneficiaries allied to NMGL have induced the Local Government Units (LGU) to declare some agrarian reform lands as “food baskets” that are protected by local laws.

Sustainability The current success of the program has been achieved under specific conducive environments. In particular, the existence and concept of AR including the availability of public / government resources, the political will to implement AR and favorable attitudes and behavior of DAR personnel in the implementation have been significant. It is important to mention that PDI has contributed to have these favorable conditions to a large extent through lobbying work at different levels. However, this environment is not reflective of a general positive transformation within the DAR, local governments or the land-owning class. There is the risk that the political will to implement AR can change. The gains achieved in changing rules in agrarian relations and improving the behavior of the DAR, local governments and landowners are still very fragile and are vulnerable to sudden shifts in the external environment. The Pos have acquired sufficient capacities and status to become relevant players in the communities. They are able to run their organizations independently from PDI. However, there is a considerable lack of capacities between frontline-leaders and

PO members and there is a need to thicken the ranks of second liners, especially from among the youth. The Pos still require negotiation skills as well as guidance and orientation for strategy development and further support for the deep-rooting of values in order to be successful in negotiations and for further federation building process. In addition, the name and reputation of NMGL still depends to a large degree on its close relationship to PDI. Also the question of a proper resource base for the Pos and NMGL has to be addressed. For women, their co-ownership in land remains an important challenge. The Aeta have secured their lands and are now recognized as bona fide members of the larger society in Zambales. Their knowledge and skills will allow them to make informed decisions regarding their economic way of life and participation in local government. The increased literacy level (formal and non-formal) can be seen as one of the most sustainable impacts of PDI’s program. Agrarian reform beneficiaries are facing big risks in sustaining their gains due to the adverse policy environments at the level of local governments. Rather that to develop agriculture many LGUs are determined to raise revenues from external investments. Trends in land reclassification and land conversion have provided more impulse to land speculation which creates disincentives for agricultural development. Consequently, there is the challenge to enhance the ability of the Pos to negotiate with local governments to provide appropriate policy and material support for agriculture and land development. Cost-benefit assessment Considering the results and impacts on poverty reduction, gender relationship and on political participation, the costs of 613.550 Euro for the phase of three years seem very reasonable as the impacts concern much more than only the beneficiaries of land transfer and the PO members. The READ Program also provides evidence that the utilization of strategies sensitized to objective conditions can effectively enforce land reform in big private agricultural lands at less cost compared to other past and current strategies.

2.2

Summary of major recommendations

Major recommendations to the POs and NMGL 1. Further develop strength and capacities of the organizations and the federation and enhance self-reliance as well as independence from PDI, in particular through a vision development process, capacity development of leaders and deep-rooting of values as well as by enhancing economic independence.

2. To expand lobbying and advocacy work from village level to municipality, city, provincial and regional level on land tenure improvement (LTI) and sustainable land development and livelihood. Strategic development of services for members. To be more attractive to members, a reflection process is recommended as to what extent additional services and activities could be carried out as a kind of service for members and member POs. 3. Put more emphasis on gender issues. Gender awareness is increasing, but is limited to first line leaders. There is a need to promote it on a wider scale. Major recommendations to PDI 1. Continue the support to NMGL and POs to enhance their ability for action in the above mentioned aspects by putting more emphasis on increasing their selfreliance and independence from PDI. A more systematic and periodic assessment of PO capacities should be carried out in order to ensure increasing autonomy of the POs by further reducing support of PDI to each organization. 2. Pursue supporting sustainable land development and livelihood as well as legislative lobbying and good governance beyond the land tenure improvement struggle as a response to new challenges regarding the frame conditions affecting the small farmers that go beyond AR and as a strategic orientation to reduce PDI’s dependence on AR. The question of sustainable land development and improvement of livelihood requires more conceptual efforts in order to achieve PDI’s objectives of sustainable and self-reliant families and communities. This goes far beyond an upgrade in quantity and operationalization of the ESS/SPF. 3. PDI should enhance its presence in the local government units’ legislative forums and continue lobbying for good governance in AR at all levels in order to further consolidate achieved institutional changes in DAR and to further enlarge the possibilities of participation of the farmers. 4. Increase the strength and independence of PDI by development of second-line managers and systematize efforts in research, monitoring and evaluation by establishing a management information system. 5. PDI has already recognized the need to more systematically integrate gender issues in the entire READ program of PDI. Significant attention is required in defining the co-ownership role of women in distributed lands and in securing succession of ownership at the household level. The gender orientation of the program requires more clarity on how broader changes regarding the traditional roles, the division of labor, and political participation of women are to be promoted. Gender should not constitute a separate activity or program (e.g.

economic support services); all the programs and activities should consider and respect gender issues. 6. The priority for the remaining phase is seen as the consolidation of impacts and the development of strategies on good governance and sustainable livelihood development. Key indicators for the achievement of these aspects should be identified in a dialogue between PDI and the funding partner. It is also recommended to initiate a reflection about expanding the program. EED/EZE and other funding organizations should be involved in this reflection as a geographical expansion also would require an increase in funds. Recommendations to EED/EZE 1. Based on the achievements of PDI, it is recommended that EED/EZE continues its support to PDI beyond the present program phase. It is evident that empowerment programs such as the READ-Program need long-term support. The high degree of autonomy and responsibility given to PDI should be maintained. 2. EED/EZE should encourage PDI to put more emphasis on impacts in its management and reporting system as well as to develop second-line leaders. 3. In light of the achievements of the READ program it seems desirable to expand it to other geographical areas. However, the evaluation team suggests that priority is given to the consolidation of the empowerment of POs and NMGL in Central Luzon and to the development of complementary areas of action, in particular land development and legislative lobbying. Once these respective objectives are achieved, an expansion of PDI’s program should be considered. 4. It is recommended that EED/EZE should use lessons of the READ program for other programs in similar fields as well as for lobbying, education and PR in Germany and “in the North” in general. Partners like PDI can make valuable contributions to the dialogue between South and North by authentically explaining and conveying perceptions and perspectives of the civil societies they are part of. Such deliberate attempts at linking projects in (and actors from) the South systematically with activities and actors in the North will further gain in importance. Recommendations to BMZ It is recommended that BMZ takes into consideration to create a platform for the exchange of ideas and experience on evaluation methodology in general and participatory evaluation in particular. Participatory evaluation methodology should be considered especially for the rest of the series of annual BMZ evaluations (20022007) of projects of the German Church Development Organizations.

2.3

Findings and recommendations in regard to the seven key questions of this series of evaluations

The following recommendations are based on the findings of the evaluation and are addressed to other programs. Program objective and strategy A comprehensive strategy for empowerment of the poor uses a combination of capacity development, organizational development, value formation, and development of hope for farmers. The strategy also comprises indirect structural poverty orientation with an additional aspect of direct poverty reduction by increased asset development and economic programs. The self-reliance of farmers and their organizations should be an objective from the beginning. A participatory bottom-up planning process should result in the existence of a shared vision and objectives among people and staff. The ability and emotional inclination of staff to translate the planning into action is important. The content of the program should touch emotions of the farmers. A high ownership and commitment of farmers can be achieved if the program’s issues correspond with their felt needs. Aspects regarding implementation of the program and attitudes and behavior Clarity of roles, mutual feed-back and the respect of values are essential elements in a respectful cooperation between program and farmers. Weaknesses should be communicated and perceived in a motivating way as challenges. Dialogue orientation and openness for communication with different forces / actors at all levels are favorable. Negotiation strategies and cooperation should be conceived according to results of studies and research work. Conflicts should be perceived as “normal” and as an instrument for change and constructive ways of dealing with them should be sought. Similar programs should develop close cooperation and trust with the government while keeping their own independence as an NGO. Institutionalized discussion and negotiation forums are able to reduce the distance between civil society and government. The institutionalization can be facilitated by access to the top management of relevant government organizations, good reputation and networking. Working at all levels from grassroots to national level in a way that each level benefits from the work at other levels proved to be effective. Programs should be implemented with a high degree of flexibility, site specific, issue based and process oriented respecting transparent principles and values rather

than sticking to fixed working plans. The values behind attitudes and behavior of director and staff should correlate with the content of the program which is “preached” to the farmers. Also the management style has to correlate with these values of the program. It is very relevant that staff are committed as well as personally and emotionally affected by the program’s issues. Independence from political parties should be assured. The work with the farmers and POs is law implementation and should not be misused for political / ideological mobilization. Relation to the funding partner The high degree of autonomy in implementation for the implementing organization should be based on a transparent agreement of objectives and shared values and vision with the funding partner. The correlation in values and vision between funding organization and implementing partner forms a basis for mutual understanding and continuity of support offering a broad space of autonomy.

3

Brief description of the program

3.1

Brief description of the concept

The program “Rural Empowerment through Agrarian / Asset Development (READ Program)” is implemented by the Project Development Institute (PDI), Philippines. It is supported by the German Protestant Church Development Service (EED/EZE) with funds from the Federal Ministry for Economic Cooperation and Development (BMZ). PDI began in 1990 with a vision of strengthening and building organizations committed to the pursuit of genuine agrarian reform and rural development. As a NGO, PDI has worked several years mainly in the provinces of Zambales and Nueva Ecija with the victims of the Mount Pinatubo eruption and the earthquake victims of Carranglan in order to organize them and to become owner cultivators of their land and actively participate in local governance. In the mid 1990s, PDI enlarged the area of operation to other provinces and covers entire Central Luzon today. Today, the vision of PDI is to build self-reliant communities through people’s initiatives. According to PDI, land reform, including legally secure access to land, is one of the most important preconditions for sustainable rural development. Consequently, PDI adheres to the Genuine Agrarian Reform (GAR) framework, which PDI formulates as follows: land tenure improvement (LTI) as well as social and economic support services should be provided to the farmers simultaneously, based on and done through people’s participation. Vested interests, particularly political ones, are to be avoided. The READ program applies these ideas to

Central Luzon. It focuses on negotiations with the Department of Agrarian Reform (DAR) and the government for asset redistribution to the peasants and indigenous people who are also in the forefront of negotiations. They are empowered by PDI through capacity development, organizational support and some economic support services. PDI’s main role is to encourage and support farmers, farm workers and indigenous peoples to mobilize themselves into organizations and to stand for their rights in Agrarian Reform (AR) in order to become legal owners of agricultural land. The ownership of the land they till should give them a stake in the social order and contribute to social and political stability. In addition, PDI, as an NGO, acts as a pressure group urging the government to give the farmers the opportunity to own land. The POs in the forefront shall demand their right to land and basic needs. This NGO-PO partnership is an alternative approach to the top-down approach being employed by the DAR in the implementation of Agrarian Reform. The READ program is the main program of PDI. Other programs (current and past) are presented in the Annex, pages 27 – 31. Specifically, the 3-year READ program aims • •

•

To build autonomous rural people’s organizations that can undertake critical engagement with the state on agrarian matters through institution building. To promote and develop sustainable economic activities that meet the most urgent or priority needs of the farmers and Aeta indigenous people, to integrate backward and forward linkages and close the production-market financeorganization loop. To develop agrarian reform participatory paralegal and policy research, advocacy and lobby work with the people’s organizations.

Tabulated overview Project Partner Project Name Project Number Duration of the Program Target Group Overall Aim Program Aim

Desired Results Financial Input

Project Development Institute Rural Empowerment Through Agrarian Development 20010281 G (EZE); 2001.7510.9 (BMZ) 3 years (11/2001 – 10/2004) Peasants and Aeta indigenous people of Central Luzon Building self-reliant communities through people’s initiatives Build autonomous rural people’s organizations. Promote and develop sustainable economic activities. Develop agrarian reform participatory paralegal and policy research, advocacy and lobby work with the POs. Land transfer and viable economic support services in organized agrarian reform communities. EZE: 475.500 Euro Local Contribution: 138.050 Euro

Total:

613.550 Euro

In addition, the NGO 11.11.11.contributes 83.387 Euro for Nueva Ecija (2002 - 2003) and PATH contributes 38.710 Euro for Palawan only (2002 – 2003).

4

General conditions

4.1

Political, economic, ecological, social and socio-cultural conditions

4.1.1

The program area

PDI’s READ program is implemented in Central Luzon, Philippines, in the provinces of Nueva Ecija, Bulacan, Pampanga, Tarlac, Bataan and Zambales.3 Central Luzon is one of the biggest regions in the Philippines in terms of land area and is located closely to the National Capital Region. Today, but moreover up to the mid1970’2, the region played also a vital role in the country’s development as the rice granary of the Philippines when the government’s Green Revolution Program promoted widespread rice production in all parts of the country supported by substantial investments in irrigation. In the regional division of the Philippine territory, Central Luzon belongs to Region III. The following table gives an overview about the main data of Central Luzon. Land Area, Population and Political Territories of Central Luzon Provinces Province Land Area Population Munici- Cities Barangays Agricultural (ha) palities Barangays Tarlac 305,340 1,068,783 17 1 510 463 Nueva 528,430 1,628,299 27 5 817 404 Ecij a Pampanga 218,070 1,618,759 20 2 570 421 Bulacan 262,500 2,234,088 22 2 568 399 Bataan 137,300 580,673 11 1 211 25 Zambales 371,440 433,542 13 1 193 178 (Aurora) 323,950 168,099 8 115 11 Total 2,147,030 7,732,243 118 12 2,984 1,901 Aurora Province is not part of PDI’s program area. PDI’s program area has a total population of almost 8 million on a land area of 1.82 million hectares of which 644.475 hectares are considered arable. In the 1970’s, Central Luzon had a largely rural and agrarian population. This landscape has radically changed in the 1990s with urbanization transforming the demographic landscape with only 40 percent of the population classified as rural. 3

The Province of Aurora is also part of Central Luzon but is not covered by PDI.

The highest rates of urbanization are observed in Bulacan and Bataan (80%) as well as in Pampanga (70%). These provinces also have the highest population densities with 702 persons per kilometre2 in Pampanga and 573 persons per kilometre2 in Bulacan. This feature is evidence by the emergence of new types of residential, commercial and industrial centres which were traditionally confined within the National Capital Region (NCR) and other main cities. Zambales has the lowest density of 151 persons per kilometre2. While agriculture is the economic base of the region, a significant percentage of economic activities can be seen also in the region’s industrial centers. There are three special activities can be seen also in the region’s industrial centers. There are three special economic zones, two of these are actually industrial enclaves that are hubs of factories engaged in light manufacturing and semi-processing for export and re-export. The other is the Subic Bay Freeport. Other economic activities include trading, manufacturing, artisan craftsmanship and urban underground economy. Indigenous People When Mount Pinatubo erupted in 1991, vast areas in Central Luzon, mostly agricultural lands, were covered by tons of volcanic debris 4 . Flooding became the next big problem experienced by the people. Aeta 5 , the indigenous people that comprise a significant portion of the population in Zambales, had to be uprooted from their ancestral homeland and relocated. A new feature in the demographic arena is the emergence of indigenous people’s communities resettlement areas in Zambales and Nueva Ecija for the disaster victims. Traditionally marginalized, these communities underwent a painful process of integration into the lowland communities. Relying on subsistence, their quality of life degenerated when they were uprooted from their upland settlement during the eruption of Mt. Pinatubo. The government’s massive emergency response program fell short of expectations. The resettlement areas did not afford victims sufficient means to access basic services from government or to seek opportunities for livelihoods. 4

The eruption of Mt. Pinatubo has diminished, if not totally negated, the utility of 59,000 hectares of land plus another 47.625 hectares which are prone to lahar avalanches. As of 1995, around 10 to 15 million cubic meters of lahar deposits ahd settled on the affected areas seriously affecting the municipalities of Bacolor (Pampanga) and Conception (Tarlac). The lahar flow affected 4.19 percent of the total land area of Tarlac. In Bataan, 11,774 hectares have been affected by lahar flows. Overall , the most affectred provinces are Zambales, Pampanga and Tarlac. The effects not only increased the vulnerabilities of the rural poor but also displaced the Aeta from their ancestral domains.

5

The Aeta, like other indigenous tribes in the Philippines, are upland dwellers who were driven away from thief ancestral lands in the lowlands during colonial times. Some of them who inhabited the areas around the former Subic Naval Base (Zambales) and Clark Air Force Base (Pampanga) were mobilized by American forces as orderlies or as guides in special warfare training. They have distinct phusical features (dark skin, curly hair) that traditionally became a factor in the biases of lowlanders against them.

The Aetas in Zambales, Bataan and Pampanga now co-exist with lowlanders. While they have assimilated some cultural elements like the lowlanders’ style of clothing and communication, they have maintained their distinct identity without being illtreated as before. In fact, some Aeta leaders also take the lead in POs where members include lowlanders. In Nueva Ecija, Igorots who had been displaced by the earthquake in the early 90s resettled in Laur. Changes in livelihood for this group are not as profound as that of the Aeta in Zambales because agriculture in similar hilly places also was their source of livelihood before. 4.1.2

The extent of poverty in the program area

As of 1997, 37% of the Philippine population remains below the poverty threshold of PHP 11.319 per capita, 20% of the entire population, but 42% of the rural population, live below the food threshold of PHP 7.710 per capita (115 Euro). Between 1994 and 1997, incidence reduction in urban areas went much faster than rural areas. These reductions occurred amidst the increase of annual per capita poverty thresholds from PHP 3.744 in 1985 to PHP 11.388 in 1997. However, while the number of the urban poor families decreased from 1.52 million to 1.20 million from 1994 to 1997, the total number of poor rural households increased frp, 3.00 million to 3.30 million during the same period, whqat amounts to an increase of 10 percent. According to the latest national statistics of poverty6 , none of the Central Luzon provinces belong to the 20 provinces with the highest poverty incidence or magnitude in the Philippines except Nueva Ecija. However, the highest concentration of poor individuals in on the Luzon island 9excluding the National Capital Region) with its poor population growing from 10 million in 1985 to 11 million in 1997 or 40% of the national total of 26.7 million. In 1994, there were a total of 330,000 poor families in the actual intervention area of PDI’s program, with Nueva Ecija alone contributing 102,000 poor families (see table below). There are no available poverty figures concerning indigenous peoples (Aeta and Igorots0 or other groups. 7

6 7

1997 Philippine Poverty Statistics, NSCB. Their level of poverty can only be inferred from the geographic locations where they reside but then it is also quite impossible to determine variances because statistics are not sensitive to ethnic identity – reducing the population to either Christian, non-Christian or Muslim.

Poverty Incidence in the Program Area (Families) – Head & Count measure by Province Province 1991 1994 Incidence % Ran Magnitude Incidence Rank Magnitude % Philippines 39.9 35.5 Aurora 41.9 50 12.590 51.2 33 17.048 Bataan 35.9 60 32.505 31.3 62 30.949 Bulacan 20.4 71 58.450 17.3 72 53.329 Nueva Ecija 47.6 40 132.005 36.9 58 102.332 Pampanga 29.8 67 82.555 24.8 66 73.123 Zambales 36.9 57 45.067 41.4 51 53.677 Central 25.1 363.172 24.5 330.458 Luzo n Source: Family Income and Expenditure Survey, NSO (more recent figures were not available) Government strategies and programs to reduce poverty are presented in the Annex (page 55). There are no indications that any programs (e.g. KALAHI convergence mechanisms) will be established in Central Luzon. 4.1.3

Relevant processes in the program area

Among the lowlanders, there are characteristic changes in the way of life of poor farmers. These changes are not only influenced by inter-cultural exchanges between them and other peoples within and outside the country through tourism, radio, newspapers and television but also because of economic transitions that affect their traditional livelihoods. The growth of commercial and industrial centers around farm lands has impacted the choices made by youth. There is a growing tendency among the youth to prefer non-farm modes of existence by mobilizing whatever knowledge and skills they have acquired as a means of generating income. It is for this reason that farming is getting to be associated with the older population as only a few young people are interested in banking their future on the land. Traditionally confined to the agricultural mode of production, farmers are now confronted with the twin challenges of protecting their interest in agriculture and competing in the labor markets. Those who do not own land are forced to shift to wage labor in fluctuating labor markets. Those who own land are threatened with displacement due to external pressure. Characteristically, rural populations and agricultural lands are being encircled by fast developing urban, commercial and industrial centers.

In Central Luzon, Bulacan and Nueva Ecija have been affected by the northern expansion of Metro Manila. Other provinces like Pampanga, Zambales and Bataan have been affected by the conversion of the former Subic Naval Base and Clark Air Base into economic zones that have attracted not only foreign investments but also created subsidiary industries and commerce over a wide radius. The entry of foreign investments has attracted the rural-based labor force and has instigated the emergence of service-related subsidiary industries. New space requirements outside of the economic zones to absorb new industries and commercial centers as well as labor entrants have inflated land prices. This feature is evidenced by the following trends: Increasing land use conversion (from agricultural to commercial and industrial uses) at 14 percent per year from 1994-1997 8 , the fastest rate is observed in Bulacan. Decreasing farm sizes, from 3.22 hectares in 1960 to 1.77 hectares by 1991 (NSO). Emergence of industrial and commercial centers within a 5 to 15 kilometers radius from agricultural areas. Intensive construction of national and provincial highways traversing farm lands thus creating new opportunities as well as serious threats to farmers and agriculture. Where farmers are able to modernize their agriculture, they are able to seize market opportunities. However, where farmers are unable to utilize their lands effectively, they are tempted to sell their lands to speculators. Decline in hectarage of rice production in areas under intense pressure from urbanization. In Bulacan, rice areas have declined by 46 percent from 76.170 hectares in 1993 to 40.857 hectares by 1998. Nueva Ecija, a traditional granary of the region, has decreased its rice lands by 14 percent from 238.600 hectares in 1993 to 203.460 hectares by 1998. Based on physical evidence, there are indications that investment flows to the region are directed towards commercial and industrial activities rather than agriculture. Due to weak capacities of farming communities, these investments currently represent a threat to agriculture. Moreover, the conflicting laws, designed by the policy makers who are themselves big landowners, favor the existing power relations in the region that protect5 their interests. There is a great need for farmers and for agriculture to benefit from these investment flows without necessarily giving up agricultural lands for other uses.

4.2

Brief analysis of the sector in which the program operates

4.2.1

Land ownership, struggle for land and CARP

Historically, land ownership has been the economic base of the political aristocracy. The pre-colonial notion of ancestral and collective ownership of land was transformed by the Spaniards. Spanish colonialism introduced the so-called regalian doctrine where the whole colony was “owned” by the Spanish king. With the rise of 8

According to a study by the Philippine Peasant Institute.

American colonial power, the Spanish king would later ‘sell” the whole country to the Americans for $10 million. 9 The Americans introduced the “Torrens” concept through a series of land laws that was unknown to many and effectively dispossessed the majority of the native population. Land remains the most important asset of farmers. For generations, they depended on the patronage of landowners. Landlessness became the root of more than 300 peasant revolts during the Spanish colonial period. The same landlessness formed the basis of a communist-led insurgency. In the late 1930’s, Central Luzon became the bulwark of the socialist movement that built on the peasant demand for land. Landlessness and unjust agrarian relations under the tenancy system led to armed struggles. During the Second World War, the peasantry was led by the Partido Komunista ng Pilipinas (PKP, or Communist Party of the Philippines) and the Hukbong Bayan Laban sa Hapon (HUKBALAHAP or People’s Resistance Army Against Japan). After the Second World War, the same communist party and a renamed rebel army called the Hukbong Mapagpalaya ng Bayan ( HMB or People’s Liberation Army) were active; from the late 1960’s on, the Re-Established Communist Party of the Philippines (CPP, Maoist) and its armed wing, the New People’s Army (NPA) were involved. In 1972, under martial law, the government implemented the land reform titled Operation Land Transfer (OLT) in rice and corn lands covering 581,567 hectares throughout the country. At the time, Central Luzon had the highest concentration of these lands at 198.502 hectares or 34 percent of the national scope. However, the law exempted other types of land, thus sustaining landlord monopoly. Many landless peasants of Central Luzon have tried various strategies for claiming their rights, often at the cost of lives and limbs. A series of land laws during the postwar period attempted to address the problem of tenancy and landlessness either through regulation of tenancy or resettlement including the resettlement of former rebels to Mindanao. But most of the laws fell short of the aspirations of the tenants and landless. This was basically because the fact that the laws were framed by landlord-politicians who were unwilling to give up their landholdings. Today, political power in rural areas is still largely based on land monopoly or wealth generated from land use or its transformation to other uses. Control of land also means political dominance over farming families who depend on the landowner’s land for subsistence. The present ranks of farmer-claimants are third generation claimants. Their rights claims bear the mark of preceding struggles. This generation is ageing and most have lost the chance of getting sufficient education and skills to survive in labor markets off the land. Without land, they have no other assets but their unskilled labor. They need the land to support themselves and their children. Landlessness 9

Treaty of Paris, December 1898.

is the single biggest problem causing poverty in the region. A further characteristic is the high incidence of share tenancy (and leaseholding from the 70s onward), but also the early emergence of a broad layer of landless laborers. These people really don’t have any land to till and just depend on income from seasonal wage labor with landlords or the share tenants and leasehold farmers. This social stratum, which is economically still below tenants and small owner operators, risks to not to be considered in CARP. Agrarian reform was and is supposed to break this economic and political monopoly and the inequity. However, landowners have always been resistant to reform ever since the Comprehensive Agrarian Reform Law (CARL) was crafted in 1987. In 1988, the Comprehensive Agrarian Reform Program (CARP) was enacted and implemented. Land Tenure Improvement (LTI) and Program Beneficiaries Development (PBD) are the twin goals of the agrarian reform program. LTI embodies the goal of tenurial reform through the redistribution of land to the actual tillers. PBD includes economic support services, support for farming and off-farm activities, infrastructure support etc. and aims to strengthen the farmers’ capability to9 develop the land and eventually improve their socio-economic wellbeing and political participation. The law provides for the distribution of all tracts of land suitable for agricultural production. In addition, leasehold arrangements are also stipulated under the Comprehensive Agrarian Reform law (CARL). They can be explored as possible alternatives to solve the land issues of highly contentious private agricultural lands. The peasants should be active participants at all levels and stages of decision making rather than passive recipients of government development aid. Thus, the whole process should be demand-driven rather than supply-based. It is paradoxical that in 1998, while the government established the NAPC to operationalise the war against poverty, it also began to reduce spending for agrarian reform. This resulted in the slow down of asset redistribution while increasing the trend in conversion of agricultural land to non-agricultural uses. Data gathered by the evaluation team indicate that the strategy of addressing poverty through asset distribution is now largely left in the hands of the Department of Agrarian Reform and civil society organizations like PDI and farmers’ organizations. This strategy, however, is saddled not only with resource constraints such as capital investments, technology and human resource capacities of agrarian reform beneficiaries but also by policy constraints by local authorities. 4.2.2

Status of CARP Implementation

Many assess the implementation of the Comprehensive Agrarian Reform Program (CARP) as slow. Some sectors say that this is due to the lack of political will of the government. Nationwide, DAR is tasked to distribute the remaining 1.38 million hectares of 32% of the total land acquisition and distribution (LAD) scope

of 4.69 million hectares by 2008. It has not been determined how much support service still needs to be delivered. The area of the READ program has a total land area of 1.82 million hectares of which 644.475 hectares are considered arable. Based on physical changes occurring in the region, there are clear indications that the actual extent of agricultural lands may have been reduced significantly. Based on ocular observation during the field visits, the evaluators have noted physical evidence of increasing urbanization especially in Bulacan, Nueva Ecija, Tarlac, Pampanga and Bataan and in pockets of territories in Zambales. The DAR in Central Luzon has a working scope of 406,508 hectares, another 231,447 hectares of CARP lands with more than 18 degrees slope are under the mandate of the DENR. The DAR’s LTI accomplishment as of July 2003 is 389,419 hectares or 96 percent of DAR‘s target in Central Luzon. This accomplishment benefited 280,309 farmers or an average of 1.4 hectares against the upper ceiling in AR law of 3 hectares per beneficiary family. There is no concrete data on the status of the distributed lands. The remaining 4% of the working scope (17,089 hectares) are problematic lands affected by myriad problems within DAR, landowner resistance and LGU development plans. The most contentious landholdings are those lands owned by big landlordpoliticians fully entrenched in the higher echelons of power. 4.2.3

Problems of land distribution

Most of the remaining lands are hard targets since the landowners are prominent economic and political players in the region with direct connections to national politicians. They have resisted agrarian reform since the 1960s using various means. There are variations in the quality and depth of problems occurring in these lands. Lack of funds In general, the burgeoning annual budget deficits of government and lack of allocation for agrarian reform have significantly decreased the capacity of the DAR to effectively implement their lands or negotiate better financial terms with market players using the loopholes of the agrarian reform law. Land conversion and LGU support to commercial land use – side by side with landowners There are also indications that landowner resistance is being reinforced by land use plans of local government units that favor non-agricultural investments. There is a seeming reluctance of local governments to actively support asset redistribution such as agrarian reform as a means of alleviating poverty. In most instances, local

government tend to side with landowners who are aiming to retain control of the land or those who are negotiating with private business with the end in view of converting agricultural lands to non-agricultural uses in order to generate revenues for the LGU. Physical evidence in Central Luzon shows rapid transformation in land use patterns that indicate capital inflows towards the commercial, residential and industrial sectors and less on the agriculture sector. Even irrigated lands are not spared. They are converted for non-agricultural purposes which is a direct violation of the law. This trend indicates a serious challenge to agrarian reform and exacerbates two problem areas. lack of investments in lands already distributed to agrarian reform beneficiaries; and, increasing land prices of private agricultural lands which make it difficult for landless farmers to acquire these lands. In Bulacan, PDI and NMGL are confronting strong resistance due to land conversion. There was even a time when the office of the Register of Deeds was burned erasing all records of original titles to property. This affected the redistribution of around 2,200 hectares of land. Agrarian reform implementation in the province is now delayed because of the additional process of reconstitution titles. Delay due to multiple claims, bogus certificates, resistance of landowners, etc. In Nueva Ecija, the redistribution of government lands formerly reserved for military use is being delayed due to multiple claims. In Zambales, PDI and NMGL are working together with the DAR in correcting anomalies that denied legitimate farmer-beneficiaries from acquiring the land. The DAR in Zambales used to have a high rate of accomplishment. On record, it has distributed 29,000 hectares from a total scope of 30,310 hectares or an accomplishment rate of 96 percent. However, 41 percent of the distributed lands (12,000 hectares) were covered with bogus certificates. Tarlac is a typical case where landlord resistance is strong. It is the home base of the powerful Cojuangco clan to which the former President, Corazon Aquino, belongs. The province has 140,000 hectares of agricultural land but only 70,000 hectares is covered by CARP. Although the DAR claims a 97 percent accomplishment in the province, most of the accomplishment is anomalous due to double counting and provisional distribution where the certificates are not actually given to farmer-beneficiaries. Records show that more than 3,000 provisional titles were hidden in a vault at the DAR provincial office by the former PARO who is now the Assistant Regional Director for Operations in Region III. Many of the lands in the province were also shielded from redistribution due to land swap deals with the DAR.

In Bataan, large portions of lands that rightfully belong to the Aeta have not been distributed. Moreover, land reform in this province but also elsewhere is hampered by a low level of awareness among farmers. In Tarlac and Pampanga, PDI, NMGL and the DAR are confronted by strong resistance from powerful landowners. In fact, the Provincial Agrarian Reform Officer (PARO) of Tarlac who is a close ally of PDI and NMGL is currently under threat of being replaced and transferred due to his determination in helping the farmers. 4.2.4

Resistance of landowners and their strategies

While the CARL promotes social justice through land redistribution, it also recognizes the private property rights of landowners. Hence, landowners can seek protection using the “just compensation” provision of the law. Even in cases where lands are transferred to farmer-beneficiaries through Compulsory Acquisition (CA), landowners can delay the process through various tactics such as hiding the original copy of the title (without which CLOAs in favor of beneficiaries cannot be generated and issued) or by refusing to accept the land valuation. Even if CLOAs are already generated, landowners may refuse to accept the payment through the Land Bank and use this refusal as an extended mode to delay the process by going to the Special Agrarian Court to petition for higher valuation.10 Landowners also have other means at their disposal: they can submit a petition for land conversion and use monetary incentives to convince government officials, including DAR officials, into endorsing the petition, like many other big landowners and politicians have already done, they can “distribute” the land to their preferred beneficiaries, including their drivers and maids, and then reconsolidate control without any opposition. The Cojuanco property in Gerona, Tarlac, has traces of redistribution by “preference” such that despite the supposed generation of CLOAs, the legitimate beneficiaries have never received them – not until PDI, SMMC and the DAR worked together to correct the anomaly. There are also cases where landowners collaborated with the military and tried to denounce PDI staff as communist underground fighters. 4.2.5

Agriculture in Central Luzon

Small parcels and importance of rice Almost 80% of the farming population in Central Luzon does not own enough land to till to support a decent life. It is either they do not own any or have only a small parcel of land that cannot generate enough earnings. Most of them are engaged in a share-tenancy relationship with those who own much larger pieces of land. 10

In Mindanao, many agrarian reform cooperatives are now paying amortization of land several times over the original valuation.

The region remains a rice granary producing 23% of the total national output of 5.5 million tons even as major islands like Panay and Mindanao have developed their own rice industries on a large scale. Almost 80% of the total crop land area of 644,000 hectares in Central Luzon were cultivated with rice and produced 1.3 million tons of which 50% were obtained solely in Nueva Ecija in 1998. During that year, the country had a supply deficit of 1.8 million tons. The incentives for rice production are decreasing and investment in irrigation infrastructure has stagnated. The long years of chemical-based rice farming has increase production costs so that Philippine rice can no longer compete with their cheaper counterparts in Thailand or Vietnam. The only incentive influencing farmers to maintain rice farms is their food needs and their inability to raise capital to shift to other crops. Coupled with adverse external factors, there is growing pressure on rice farmers to give up their lands for other uses 11 . Those without assistance are prone to make ill-informed decisions, giving up land easily for short term benefits. Ecological dimensions and effects of modernization of the agriculture in Central Luzon There are four major ecological dimensions in the program area: the effects of natural disasters such as the Mt. Pinatubo eruption, twenty typhoons affecting the region from 1990 to 1999 damaging rice crops valued at PHP 600 million, the effects of chemical-based farm practices in rice agriculture since the 1970’s, and, the potential negative effects of the government’s promotion of hybrid rice production that is largely dependent on chemical inputs. Chemical bases rice agriculture modernization in Central Luzon started during the Green Revolution Program in the 1970s. This was characterized by the introduction of High Yield Varieties of rice coupled with widespread installation of irrigation systems in particular in Central Luzon. Presently, extensive irrigation and chemical based farming have produced negative impacts (for details see Annex, page 62). 4.2.6

Sustainable and alternative land development efforts

There is no coherent pattern of rural development approaches employed by the government or its agencies. National policy for rural development is largely reactive to changes in the international economy. Under the current setting, the government promotes a neo-liberal approach to the economy with bias towards promotion of foreign and domestic investments without precautionary measures 11

Metro Manila’s growing needs for space4 has impacted on the southern and northern ends of the metropolis. Bulacan, being adjacent to the city, has exper5ienced the most rapid changes in terms of infrastructure development. Former rice lands have been converted into residential and commercial areas. Land developers and small operators have also leapfrogged into major centers in Eueva Ecija, Pampanga and Tarlac carving industrial-commercial enclaves that tend to inflate land prices. These changes create a ripple effect that influences the decision making and planning procces of local farmers.

against their negative impact on the rural economy 12 . The most crucial and still un-addressed challenge of the DAR and allied NGOs is the effective utilization of the lands already acquired under CARP. National data indicate difficulties in showing economic impact of agrarian reform in terms of improvements in productivity and incomes. The DAR’s strategy of land development focuses on agrarian reform communities (ARCs) which is being supported by a couple of donors (ODA, EU, World Bank and ADB). The resources are deployed mainly in 170 ARCs covering 687 Barangays which are only 38% of the agricultural Barangays. In terms of beneficiary access, ODA support is failing below 27 percent of agrarian reform beneficiaries. In addition, the support is falling below expectations because of diminishing foreign donor support (also caused by lack of government equity necessary to9 activated ODA funds) and biased towards supplementary support rather than direct investments on agrarian reform lands. The Philippine Rural Reconstruction Movement (PRRM), one of the biggest NGOs in the country, embarked on medium term Sustainable Local Economy Development (SLED) Program in Nueva Ecija, Camarines Sur, Bataan, Cotabato and Ifugao from 1994 until 2002. The model was built around a strong peasant movement promoting sustainable agriculture and enterprise development with elements of fair trade. Each province focused on crops where it has the most comparative advantage. However, none of the local models have shown strong chances of survival in open markets 13 . In the case of PDI and NMGL areas of operation, there is a lack of economic strategies that directly address the utilization of lands covered by the agrarian reform program. The READ Program centers in the present phase on land acquisition for the farmers. 14 It has become apparent that only the DAR and well-meaning NGOs like PDI are determined to promote rural development strategies that combine asset redistribution and appropriate technologies for agriculture development. There are a number of specific rural development approaches promoted by the NGO community in the region but most often they fall short of their expectations either due to lack of resources or due to inefficiency. 12 13

14

For the impacts of this strategy on the Philippine economy see Annex, pages 60. In Mindanao, many agriculture-based NGOs have promoted organically-grown rice with substantial support from donor agencies. Still, the models failed when tested against rules in the open market. The only successful models are few and often they are evolutions, not by design but by demand side pressure from markets. One of the features in the failed models is the element of fund driven push from NGOs and donors. Conversely, one of the strengths of successful models are those driven by demand from markets where the cost of production is often paid for by markets, not donor funds. Governmentsupported agriculture projects through cooperatives supported by the Cooperative Development Authority (CDA) and the Land Bank of the Philippines (LBP), have suffered more significant losses. In addition, PDI has defined a land-use strategy which espouses sustainable agriculture and establishing sustainable economic activities that integrate the pre- and post-production linkages and close the production-market finance-organization loop, however, the resource allocation does not allow to enhance this aspect.

4.3

Analysis of the institutional framework

4.3.1

Local governance, rural development and agrarian reform

Decentralization and devolution under the Local Government Code of 1991 have empowered local governments to chart their own economic and political destinies including changes in land use policies and distribution of power. The Local Government Code was enacted not only to de-clog government administration but, more importantly, to promote local government autonomy. The law provides for decentralization of power by devolving functions of national line agencies. The only line agency that has not been devolved to local governments is the Department of Agrarian Reform (DAR) which is a blessing for farmerbeneficiaries because of the conflict of interest between local officials who are also land owners and farmer-claimants. The DAR maintains a centrally-managed structure and operation even as geographic areas are covered by subsidiary offices at the regional, provincial and municipal level. The only difference is that unlike other agencies, the local officials of the DAR are not beholden to local governments. Two of the major weaknesses of decentralization and devolution are the following: One, the empowerment of local governments came at a time when poser relations in local territories have not been democratized in such a manner that the poor are able to effectively participate in local governance. Thus the empowerment process bestowed more power to local elites in an environment when rural democratization was not yet fully developed; Two, the devolution of functions of the line agencies was not matched with devolution of resources. Much of line agency resources remain at the national level. Thus, basic services of government suffer from insufficient funding. 4.3.2

The different actors and their interests

Local Governments The lack of resources at the local government level provides an explanation as to why local officials tend to favor external investments without necessarily protecting their agriculture. The common thinking among local officials is that agrarian reform does not respond to their needs for revenues. This is exacerbated by the perception that lands covered by agrarian reform are immediately taken away from land markets due to restrictions of sale and transfer and agrarian reform cooperatives are tax free. As a result, local governments have become a counterpole to the mandate of the DAR in implementing agrarian reform. While most local governments have not formally articulated rural development strategies, their current behavior implies bias towards aggregate growth rather than addressing inequalities in land ownership.

Department of Agriculture The functions of the Department of Agriculture have been decentralized but still maintain a centrally managed budget for programs. This results in difficulties in program planning and implementation. Nevertheless, the behavior of the Department and its devolved agencies indicate a bias towards export led growth and promotion of rice technologies that will encourage reduction of food production areas. Department of Agrarian Reform Since the enactment of RA 6657 or the Comprehensive Agrarian Reform Law (CARL), DAR has prioritized land transfer work, making support service delivery to farmers a secondary task. The DAR bureaucracy has about 14,000 staff, of which 1,100 are in the Central Office and a total of 12,900 in the field. LTI work consumes most of the time of the DAR field personnel because their evaluation is based on LTI targets. The yardstick of performance is the amount of land or hectarage transferred and not the number of installed farmers and the maximum utilization of the lands, which will eventually improve the life of the farmers. However, there is a big question regarding the correlation of the slow pace of the implementation of agrarian reform and the seeming focus of DAR personnel on LTI work. There are also questions by agrarian reform advocates on whether they are serious in working to transfer land to the peasants or helping landowners to avoid being covered by CARP. According to PDI, the root cause of the problem is the top-down approach employed by the DAT. There is lack of social preparation of the farmer be4neficiaries and disregard by the government of social capital formation. Civil Society Organizations and Institutions Other than PDI and NMGL, the most socially perceivable organizations operating in the region are underground organizations linked to the CPP-NPA and other factions of the communist movement. Although PDI does not have direct links or any form of cooperation with them, it is respected and afforded access to remote areas without being put in harm’s way. There are a couple of other national and local NGOs operating in Central Luzon. However, due to the vastness of the region and the variety of problems and needs, these NGOs either operate bases on sectoral concerns or on specific geographic locations. The only other organizations that come close to PDI’s program areas are UNORKA, a national peasant alliance, and its close ally Peace Foundation. However, both are specialized in claim making and peasant mobilizations. In Pampanga, there is the Pampanga Disaster Resource Network (PDRN) which is focused mainly on disaster response and does not have any involvement in

agrarian reform. The networking partners of PDI are presented in chapter 6.1.4 page 46. 4.3.3

Rural poor participation in governance and power relations

The poor farmers and indigenous people of Central Luzon have traditionally been marginalized. The implementation of the Local Government Code in 1991 and the succeeding momentum towards decentralization have gone far ahead of democratization in asset ownership. Thus, the transformation of political governance that highlights local government autonomy is not substantiated by participation of the rural poor and the indigenous peoples. LGUs, in fact, create/install their own NGOs just to comply with the Local Government Code and in order to preserve and protect their own interests. Power relations in the rural areas of Central Luzon remain imbalanced with the power centers occupied by political elites coming from the land-owning class or the emerging local bourgeoisie that generated capi9tal from their vast landholdings including their illegally converted lands which can even surpass the figure of legally converted agricultural lands. Political clans determine successions in local politics in conjunction with national political patrons rather than from a democratic baser of informed rural people. It is for this reason that local participation in governance is underdeveloped. Currently, the chances of effective participation by the rural poor and indigenous peoples are developed mainly through intermediation by NGOs or through their capacity to organize and become a potent force that can exert pressure on local authorities. Itinitial successes in Bulacan and Pampanga indicate that it is possible for PDFI and NMGL to influence local policy making in favor of agrarian reform farmers and in favor of agricultural development. However, the favorable policy environment presently influencing the successes of PDI and NMGTL is mainly confined to the policy processes involving the DAR. There is a legal basis for civil society penetration of the state bureaucracy in addition to its autonomous exercise in pressuring government through activities outside of the system of administration. The Local Government Code 15 allows the creation of local development councils (LDCs) that invoke the participation of NGOs and POs. Although recommendatory in nature, the LDCs can influence policy making through pro-active formulation of policy recommendations and budgetary allocations. But local government units mostly see the establishment of POs and NGOs as a threat rather than a process of empowerment for the rural poor.

4.4 15

Conclusion in regard to framework conditions

The Local Government Code (LGC) provides in Chapter 4, section 34 that, “Local government units shall promote the establishment and operation of people’s and non-governmental organizations to become active partners in the pursuit of local autonomy”.

General Conditions The impoverishment of the peasants, indigenous people and women in Central Luzon remains a problem. Poverty in Central Luzon has been aggravated by the eruption of Mount Pinatubo. What used to be an agricultural region, known as rice granary of the Philippines has now significantly changed. There is a co9ntinuing trend towards urbanization and corresponding transformation of land use patterns towards residential, commercial and industrial development. These changes are occurring amidst difficulties in implementing land redistribution. Most of the changes impose barriers to the completion of agrarian reform objectives. Developments in local governance accruing from decentralization and devolution by virtue of the Local Government Code of 1991 have not been substantiated with resource transfers. Local governments are dependent on Internal Revenue Allotments (IRA) from the national government. In terms of volume and percentage, there is very little allocation for agriculture and almost nil for agrarian reform beneficiaries. This leads to the inability to provide support for the farmers’ needs. Furthermore, those who have traditionally held economic and political power too easily manipulate the LGUs. Agrarian Reform Sector There has been a significant advance in the LTI objectives of the DAR. However, there are very little direct investments on lands that have been acquired. Indirect support to agriculture and agrarian reform beneficiaries comes mainly from donor-funded programs on a limited scale covering only 38 percent of agricultural villages and 27 percent of agrarian reform beneficiaries. Many of the current claimants and new beneficiaries of agrarian reform have struggle to claim their lands since the 1960’s. Many have been excluded in the past due to anomalous transactions within the DAR as well as circumventions of the law by resisting landowners. However, after ten years, lands that were buried in volcanic debris have become productive again and can be covered by the CARP. Institutional Framework There are clear indications that the pursuit of agrarian reform, especially the redistribution of remaining private agricultural lands, is borne mainly by farmerclaimants through their POs, NGO allies and reform-minded DAR officials. Weak governance of DAR, weak DAR structures, sometimes complying to private sector interests (landowners, MNDs that own lands etc.) are hindering factors for CARP implementation. Local governments tend to prefer revenue

generation from non-agricultural sources. There is a general reluctance of LGUs to actively support agrarian reform. NGO presence in the region is defined by sector and geographic preference. There is little evidence of inter-NGO cooperation at the local (provincial, municipal and village) level. Most inter-NGO cooperation occurs at the regional and national level and is mainly based on commonality of visions and objectives. The effectiveness of their strategies are largely defined autonomously and/or by the quality of the NGO, PO and government agency.

5

The READ program and the quality of aims and planning

5.1

The READ program

5.1.1

The Project Development Institute

Background The Project Development Institute (PDI) is a vo9luntary, non-stock, non-profit organization established by concerned development workers. It is registered with the Philippine Securities and Exchange Commission. PDI began in 1990 with a vision of strengthening and building organizations committed to the pursuit of genuine agrarian reform and rural development. Today, the vision of PDI is to build self-reliant communities through people’s initiatives. PDI defines its mission as to institute partnership with non-governmental organizations. people’s organization and government organizations as well as the private sector in agrarian reform and rural development through the establishment of viable and sustainable plans and projects towards the formation of self-reliant communities. The objectives of PDI To strengthen the capabilities of people’s organizations in agrarian reform and rural development. To conscientise other sectors of society, specifically intellectuals and professionals into participating in the process of realizing genuine agrarian reform and rural development through policy advocacy and participatory research. To develop community-based Comprehensive Development Programs using participatory methods in pursuit of genuine agrarian reform. To undertake program implementation and management in selected areas. To provide training and education to NGOs, POs, and other institutions to further strengthen their organizations, upgrade their skills, and broaden their service coverage.

Before the implementation of the READ program, PDI made relevant experiences when working in the Zambales and Nueva Ecija provinces for several years in promotion of the Genuine Agrarian Reform. 5.1.2

The READ program’s aim and objectives

Rural Empowerment through Agrarian Development (READ) aims to achieve the self-sustainability of peasants and the Aeta indigenous peo0ple in the target areas of Zambales, Bataan, Pampanga, Bulacan, Tarlac and Northern Palawan by transforming these areas to the benefit of these marginalized sectors in order to achieve food security and self-sufficiency through local resource control. Specifically, the program aims to: •

Build autonomous rural people’s organizations (women’s organizations, farmers’ organizations, indigenous people’s group, and others) that can undertake critical engagement with the state regarding agrarian matters through institution building.

•

Promote and develop sustainable economic activities that meet the most urgent or priority needs of the farmers and Aeta indigenous people, to integrate pre- and post-production linkages and close the production-market finance-organization loop in the five impact areas.

•

Develop agrarian reform participatory paralegal and policy research, advocacy and lobby work with the people’s organizations.

These objectives are further specified by qualitative indicators. In addition, five program components have been identified: 1. Institutional development building on social capital 2. The right to land: the process of land transfer 3. The right to food: The economic support system 4. Participatory research and policy advocacy 5. Linkage work and international networking For each of these components, strategies are outlined and indicators have been formulated

5.1.3 The conceptual framework and strategy of the READ Program PDI’s sees development as a process of achieving changes in institutional structures that result in sustained improvements in the productive use of available resources to meet human needs. According to PDI, sustainable human development for the

poor peasants means sustainable livelihood, including food security, economic, social and political empowerment and a sustainable environment. Land reform, including legally secure access to land, is one of the most important preconditions for sustainable rural development. The farmers and indigenous people can only achieve sustainability if they own the land, have control over it as a factor of production, and have the right to decide on the use of the land. PDI adheres to the Genuine Agrarian Reform (GAR) framework, which PDI formulates as follows: 16 Land Tenure Improvement (LTI) as well as social and economic support services should be provided to the farmers simultaneously, based on and done through people’s participation. Vested interests, particularly political ones, are to be avoided. Asset redistribution is to be achieved through negotiations with the DAR and the government with the peasants and indigenous people in the forefront. Further, the people must be encouraged to mobilize themselves into organizations. Being organized helps them to overcome the feelings of weakness and helplessness. In effect, it enables them to articulate their needs and collectively act on them as well. Securing for farmers, farm workers and indigenous people the ownership of the land they till is supposed to give them a stake in the social order, to render them more likely to defend the social system and to contribute to social and political stability. It opens the door to lasting peace based on justice in the countryside and makes national development possible on a sustainable basis. The strategy comprises several key-elements and addresses also the poverty of the target group:

16

•

Develop capacities: To empower the poor by information, training and capacity development for the analysis of their situations and identification and defence of their interests.

•

Develop organizational strength of farmers: To empower poor and marginalize farmers by assisting them in organizing themselves, building up their own people’s organizations and federation at regional level.

•

Land Tenure Improvement: To improve the control of the production factor land in agriculture by the poor as asset development for self-reliance and for sustainable development.

•

Economic Support System to develop additional sources of income in order to target key constraints of livelihood development and production and develop the newly acquired resources (land).

GAR = PP (LTI + ESS = SIBS) / VI, LTI stands for land tenure improvement; ESS, Economic Support Service; SIBS, Social infrastructure Building and Strengthening; PP, People’s Participation; and VI, Vested Interests.

•

Enhance participation in decision making: To empower the poor to participate in decision making processes at local and regional level and to achieve changes in institutional structures that result in sustained improvements in the productive use of available resources to meet the farmers needs.

•

Advocacy and lobby work to create the policy and institutional setting within which such POs can flourish and provide their members with a consequential voice at both local and national levels in order to influence decision making of government in favor of their interests. Thereby, experiences at the grassroots level are used at regional and national level and vice versa.

5.1.4

Target groups and area of operation

The program focuses on potential beneficiaries of agrarian reform, actual beneficiaries of agrarian reform and land reform beneficiaries of the 1970’s who have been deprived of their rights to land due to incorrect transactions. Within these groups, specific attention is being given to the Aeta indigenous people, the peasant groups of Zambales, the coffee plantation workers of Bataan who are mostly women, the federation of farmers cooperatives in Pampanga, Tarlac and Bataan, as well as lowland and upland farmers of Nueva Ecija. In the planning document, PDI names the total number of its target group as around 17,400 peasants in 2,900 farming families in Central Luzon (1,000 peasants indirectly benefiting 15,000 people for the economic support services). One specific target group and area, the indigenous people in Culion, Palawan has not been considered in the evaluation due to the far distances and different situations. Presently, most of these groups are organized under various types of organizations such as people’s organizations (POs), cooperatives and associations under the banner of the NMGL. The underlying common characteristic is poverty and marginalization due to inequality in the distribution of assets and opportunities in the economy and politics of the region. There are no indications that PDI’s program areas and beneficiaries are also assisted by other NGOs or other donor-funded programs. The Aeta IP receive assistance from other NGO for other purposes, mainly education. Presently, the PDI’s program deploys iot s financial and human resources in land acquisition struggles involving five types of lands: Resettlement areas carved from public lands after the Mt. Pinatubo volcanic eruption in 1991 (Zambales and Nueva Ecija); Land reform areas that were ‘distributed’ under anomalous circumstances (Zambales and Tarlac);

Landed estates that are carryovers of undistributed rice lands that were supposed to be given to farmers in the 1970s and are now used as commercial farms (Pampanga, Tarlac); and Upland areas (Zambales, Bulacan) The above lands co-exist with other lands where land use patterns are rapidly changing (see chapter 4.1.3, page 21). It is important to be aware that the primary target groups of PDI are not selected according to a geographical area, but determined around issues – namely land tenure improvement in agrarian reform of the above mentioned lands. A second criteria is the willingness of farmers to stake for their objective and to commit themselves.

5.2 Analysis and assessment of aims of the READ program The assessment of READ’s program planning was carried out from different perspectives. From the perspective of a planning expert’s point of view which has clear quality standards in mind and which uses the scale of “good” planning practice putting emphasis on analytical and systematic aspects. From the point of view of those who use and implement the planning of the READ program. 5.2.1

Assessment of clarity and feasibility of aims and objectives

The formulated aim of the program is achievable for the primary beneficiaries of the program. The specific program objectives are formulated rather as activities (to build, to promote, to develop) than as results (what has been achieved). The indicators for strong peasant organizations are very helpful; however, indicators are lacking for the other objectives. On the other hand, it has to be appreciated that PDI undertook the effort to formulate indicators for each program component. Yet, they are quantified only in regard to the activities but hardly in regard to effects and impacts 17 . Consequently, they often do not provide a more detailed description of the results or objectives. In addition, their number is so high (e.g. 16 indicators for the institutional development building) that they do not facilitate monitoring concentrate in on the most relevant aspects. This makes it difficult for outsiders to comprehend the concrete results intended by PDI. 17

For example, the indicators “Land transferred to POs” or “Land cases of the POs resolved” give a direction but they do not specify the objectives in terms of time and quantity. Also it is specified as to how many trainings are to be carried out for how3 many participants but the effects of trainings are formulated in general terms or more related to the activities of PDI e.g. “consolidate and provide solid foundation for POs” or “equip the POs with the necessary skills”.

PDI argues that these indicators are established to provide guidance on what it aims to achieve. Quantifying indicators is difficult if the approach is participatory. As results are dependent on the realistic conditions at the ground level, defined objectives and targets are set in the bimonthly, monthly, quarterly and half-yearly assessment and planning. The objectives give a direction for program implementation, but do not provide milestone and a time horizon beyond the present three-year program, although it is quite clear to all parties concerned that further support is required in order to achieve the desired sustainable impacts. This renders monitoring and measuring of the program success difficult and does not provide a sound basis for result and impact oriented program steering. The reason for this may be partly found in the practice of donors to commit funding only for a program period of three years. According to PDI, the time horizon is assumed because READ is part of a development process. As PDI is development oriented, it looks at programs and projects in a continuum as part of a development process and not as a time-bound project. The development process is clearly specified in the “Integrated Participatory Development Programming (IPDP)” (see Annex, page 24) which is being used by PDI in implementing any program. IPDP looks at programming as a development process, or phases in continuum, towards achieving sustainability of the communities. The aim and objective is realistic; however, the degree of achievement depends on outside factors, in particular the government CARP program, policy changes for the agrarian reform and agricultural sector in the Philippines as well as Asian and international evolutions and policies. 5.2.2 Assessment of poverty orientation The READ program addresses poverty structurally by its empowerment oriented approach, social capital building and grasping the opportunities of the legal framework of the Agrarian Reform Law and the Local Government Code which provides opportunity for greater political participation and influence of various groups and organizations (e.g. POs, NGOs). The levels of action reach from the community up to the national level. The program also addresses rural poverty directly, i.e. mainly through LTI and economic support and components. Considering the budget of PDI, the poverty orientation is assessed to be very effective and appropriate. 5.2.3. Consideration of gender issues PDI is committed to gender equality in practice, and understands its program objectives as all encompassing, incorporating men and women. However, this becomes hardly evident in the planning and program proposal. Even if women are mentioned as a target group and in one specific objective, neither the development

goal nor the program objective is formulated in a gender differentiated manner or specified accordingly. There are assumptions about the gender perspective in the proposal, (e.g. page 7 “There objectives ensure a gender justice oriented program”) which could give hints. There is also a lack of gender differentiation in the formulation of indicators. 5.2.4 Consideration of the needs and interests of the indigenous people The indigenous people are a specific target group. Their priorities are entirely considered in a holistic approach. Indicators are formulated in a way which specifies specific activities and results for specific indigenous people. 5.2.5 Compatibility with development aims and priorities of country and donors Compatibility with the Philippines’ development policy The development aims of the government of the Philippines are laid down in the Medium-Term Philippine Development Plan 2001-2004 (MTPDP) 18 . The READ Program fits very well in the development priorities laid down in this plan. It addresses “Comprehensive human Development and protecting the Vulnerable” by focusing on “Agrarian Reform Beneficiaries and Indigenous People” explicitly mentioned there. Particularly, it aims at achieving the desired social equity in agriculture through asset distribution with special reference to the opportunities provided by the Government’s CARP. Furthermore, the MTPDP stresses the importance of “Good Governance and the Rule of Law” as a pre-requisite for fighting poverty. This strategy is strongly supported by the READ Program. (MTPDP 2001-2004: 3-6) Correspondence with the development priorities and policy of the German government The READ Program has a clear poverty reduction orientation. Foremost, it addresses the rural poor and marginalized target groups whose situation shall be improved by achieving food security through the opportunities provided by the CARP framework. Thus, it is highly in line with the German Government’s Program of Action 2015 towards halving extreme poverty worldwide. Furthermore, it is also completely in line with the priority fields of action set out in the BMZ Asia Strategy: fight against poverty, resource protection and environment, and democratization of government and society. In addition, it directly focuses on one major reason for the continuing high poverty incidence, the slow pace of CARP implementation as identified by the world bank, quoted in the BMZ’s 2003 Country Report Philippines.

18

See also http://www.neda.gov.ph/mtpdp2001 as of 31.10.2003.

On the level of country policy, the program likewise corresponds to the priority area of “protection of and sustainable use of natural resources” which is one of the four priority areas of bilateral aid agreed between the Philippine and German governments in 2001.

Compatibility with the country strategy of EED/EZE The READ program directly addresses several of the program priorities of the Southeast and East-Asia Desk of EED/EZE, namely: rural development, participatory civil society and democracy, fight against poverty through the empowerment of marginalized social groups. However, the program area of Central Luzon deviates from the geographical priority areas of EED/EZE in the Philippines. Nevertheless, this exception seems justified for the following reasons: Even if Central Luzon is without doubt not one of the poor regions of the country, a high number of poor live there due to the high population density. Central Luzon always has been a hot bed of peasant resistance and struggle for agrarian reform. Historically, it was the center of the politicized peasantry. Due to this background, it is of particular political significance to make agrarian reform succeed in this region. The program addresses exactly the difficult cases which are an expression of the still existing power of the landed elite, of power relations and power politics not only in the countryside but also on national level. If the program is successful in achieving its aims through the program strategies, there will be effects beyond the immediate region if the lessons learned are properly diffused among other actors for social empowerment. 5.2.6 Assessment of other aspects Long-term feasibility and sustainability of program impact The sustainability of program results and impacts are considered in the planning and reflected in the strategy of the READ program in particular through the following aspects: ¾ The social and political empowerment of the local population, which encompasses the capacity development of local organizations and its members, influence on local politics, control over local resources. ¾ The economic empowerment of the beneficiaries is addressed through the asset development aspect of the program. ¾ The READ program directly favors and contributes to sustainable development. The READ program’s strategy is appropriate. It can be even seen as a key factor of success of the READ program as presented more in detail in chapters 7 and 9.

5.3 Assessment of the planning quality 5.3.1 Target group analysis From the very start of PDI’s program conceptualization stage, and throughout the past 10 years, land search missions, inventories of lands, actual field validation, interviews, focused group discussions with pioneer settlers of the areas and potential farmer beneficiaries have been undertaken. Together with its participatory approach in planning, this differentiated knowledge about the social, economic and political conditions of its clientele and the program area is also reflected in the program implementation. However, this knowledge about the immediate conditions of the target groups and their immediate social environment is not evident in the planning as different impact areas are lacking specification. The situation of women may illustrate this point. Women of landless households are affected by the economic conditions in different ways than men. The evaluation identified areas where changes in the gender relations are desired in order to promote more gender equality. If this would be integrated in the proposal, it should greatly help specifying the programs’ objectives and the respective indicators. In addition, the common denominator of ARBs being below poverty line should not disguise the fact that ARBs are socially and economically highly differentiated and are embedded in very different social and economic environments. Furthermore, it has been observed during the short field visit that the success of the program itself generates social dynamics which quickly alter the former social structure of the rural environment. For example, ARBs in an urbanized environment gain most of their income through non-agricultural employment (Pampanga) or the fast pace of economic development of many of the ARBs in Metro-Manila near Bulacan. They allow poor people, often relatives, to build small huts on their newly acquired land which creates a new layer of poor people as a result of program success. Another aspect of the social structure is the existence of a broad layer of day laborers in many villages of Central Luzon. These people are not entitled to receive land and are generally poorer than the specified target group of the program. Particularly, the latter group is hardly represented in the POs. although they are not excluded. All these groups are affected by the program because they are structurally and economically closely connected to the former tenants and new landowners. The indirect impact on these people might have positive and/or negative aspects (for example, increase/decrease in wage labor opportunities, and wages due to increased productivityor mechanization). Although the above mentioned groups (day laborers) are not part of the READ program’s target groups, their existence should be mentioned in the planning and the impact should be monitored.

5.3.2 Participation in the planning process The evaluation team appreciated very much the participatory planning practice which comprised a six month phase of workshops and strategic planning exercises with POs. The program is based on area conditions and not pre-patterned centrally. It could be observed that a general understanding of the development process is shared by PO leaders and PDI staff. However, this understanding could be further enhanced with the formulation of some key indicators. It would also allow outsiders to more easily perceive the ideas of the actors in regard to the program. 5.3.3 Assumption or risks Risks or limiting factors which might endanger the achievement of the objectives are hardly mentioned in the planning document. They comprise farm size, farm infrastructure and asset development, relatively old age of beneficiaries, increasing pressure on the land through large families. Assumptions or risks are considered in a general manner, e.g. climatic change, soil fertility, WTO, GATT. However, they are not specified regarding their potential (bad) effects on the target groups. Consequently, the planning does not provide a basis for monitoring the risks; however, in the implementation of the program, risks are identified and measures are identified accordingly. Nevertheless, a clearer formulation of the risks seems desirable because of the importance for the program’s and farmers’ activities, e.g. the import policy of the Philippine government regarding rice may well render peasants efforts quite, uneconomical, and, thus counteract the achievement of the program objective. Another example is the rapid urbanization and land conversion in quite a number of the program areas (see also chapter 4.1.3, page 21).

5.4 Overall assessment of program aims and planning The planning of PDI’s READ program has been very participatory with the involvement of relevant target groups. It contributed to a common understanding of the program as well as development and empowerment ideas by PDI and target groups who are both satisfied with the existing planning practice. The planning gives direction and serves as an orientation for implementation. The program’s objectives and strategies are an appropriate response to the framework conditions. Also from an external point of view, the planning permits understanding of the ideas of the READ program and its objective. However, some aspects remain difficult to understand from the documents only, in particular the clarity of objectives and milestones and the time horizon of PDI’s work and implementation. In addition, the formulation of indicators can be improved also with the involvement of the target groups. This could be very supportive for joint reviews with the target groups, internal program review, steering as well as for the program accompaniment and partner dialogue with EED/EZE.

The evaluation showed the high degree to which objectives and strategies are shared by the actors involved and how they translate these into actions. The highlight of the planning is the comprehensive, effective and appropriate strategy of empowerment to achieve the EAD programs objectives which gives evidence of the experience of PDI in the program area.

6 Quality of program implementation and management 6.1. Analysis and assessment of the implementation 6.1.2 Develop capacities and organizational strength Establishing organizations and enabling farmer capabilities are areas nurtured by PDI through a long and sometimes painstaking process to sensitize, organize and mobilize the farmers for their own struggle to acquire land and develop it further. Usually, the partnership starts in the process of identifying the program area, wherein a PDI staff member conducts social investigation. Subsequently, PDI staff together with the target population conducts a problem-focused group discussion. In their first encounters, most people usually are very suspicious of the organizers. Others just wait to see if there is a dole-out. PDI tries to show to the farmers that PDI does not have other intentions than bringing progress to their communities through own effort, participation and cooperation. Once they are decided upon and organized, a series of seminars and trainings are conducted which enhance the organizational capabilities of the POs: organization and management skills, Barefoot Management Course, Agrarian Reform Education Seminar (including the translation of AR Primer), leadership and negotiation skills, savings mobilization and capital build-up, gender training, Agrarian Reform and Local Governance Training, paralegal training, value formation, etc. After organizing in several Barangays, a federation of all the people’s organizations in the municipality is established. This is followed by the provincial federations and the regional coalition – the Nagkakaisang Magsasaka ng Gitnang Luzon (NMGL, United Peasants of Central Luzon). PDI’s role is a provider of services that, at the outset, are designed to enable the beneficiaries by helping them to form and develop their organizational and institutional capacity. In addition, literacy education for the indigenous people in Zambales was organized and the youth were also given the change to get higher education through a scholarship program. Selected sons and daughters of members in the local people’s organizations and program beneficiaries got the opportunity to study in college. These youths are also being trained to become active leaders in their

communities. Specific agreements ensure that entire communities will benefit not only from the services but also in economic terms from these programs. The capacity development and organizational development activities are considered to be very effective due to their clear emphasis on their clear emphasis on the selfreliance of the people. PDI avoids making promises and stresses the responsibility of the farmers for the improvement of their situation. This clear responsibility is also expressed in the cooperation between PDI staff and farmers. Aside from the training, farmers appreciated the continuous support and guidance they have received from PDI and the monghtly meetings. 6.1.2 Improvement of land ownership To achieve the objective of Genuine Agrarian Reform, the POs in the forefromt with the assistance of NMGL and PDI negotiate for land tenurial improvement by pushing the government, specifically Department of Agrarian Reform (DAR), to redistribute land according to the Agrarian Reform in the areas identified by the Aeta and the peasant groups. A negotiation strategy is designed in each target area specifically according to the following steps: 1. Survey and analysis of land problems, cases and issues 2. Validate the land problems, cases and issues 3. Research and documentation 4. Planning of the negotiation strategy based on the documentation and facts 5. Conduct a series of negotiations with DAR and DENR with POs on the front line 6. Complimentary advocacy and lobby work 7. Regional multi-stakeholder conference (bi-annual) In the region, PDI principally co-operates with NMGL, the regional peasant federation of farmers’ organizations in the provinces where PDI operates. The creation of most of these POs has been facilitated and assisted by PDI. PDI’s experience in direct bilateral cooperation with the DAR who is responsible for implementing the AR varies according to the behavior of the agency at various levels. Experience shows that the behavior of the agency is influenced by the quality of personnel and their attitude towards various actors in agrarian reform. The highest form of cooperation achieved by the program so far is the establishment of a tripartite mechanism called the Special Concerns Action Team (SCAT). The SCAT 19 is a team composed of key NMGL leaders, PDI personnel and key DAR 19

The SCAT meets every last Friday of the month at the DAR Regional Office.

regional and national personnel and officials. It has been mandated by the DAR Central Office to assist both the government and farmer-beneficiaries in hastening the implementation of CARP, especially in problematic areas where landowner resistance is strong or where the DAR has fallen short of its obligations. In SCAT, the leaders of the people’s organizations have a chance to bring their cases and claims directly to DAR officials. The DAR also is also forced to minimize bureaucratic anomalies because of the farmers’ vigilance. The SCAT serves as a pressure group that pushes various actors to cooperate and achieve the resolution of Land Tenure Improvement through provision of venues for mutually-beneficial negotiations (see also chapter 7.3.8, page 66). To find ways to solve land tenure problems, DAR, PDI and NMGL conduct joint action planning. The SCAT is replicated in every province where NMGL has an allied organization and has agrarian problems to discuss. PDI’s links with certain high officials at the DAR Central Office has also served well in addressing local demands. The mandate given by the DAR Central Office, e.g. SCAT, has been effective in overcoming the resistance of local DAR officials. Correspondingly, good relations with DAR provincial officers and in overcoming the resistance of DAR municipal officers. This NG0-PO partnership is an alternative approach to the top-down approach being employed by the DAR in CARP implementation. The use of dialogue and negotiation and the fact that this mechanism has been institutionalized were key factors for the successes in LTI. The case specific design of negotiation strategies has to be highlighted as well.

6.1.3 Economic Support Measure Objectives of ESS and the Small Project Fund The READ program rithtly emphasizes the importance of the development of agricultural production in the post-land-transfer phase and its pre- and post-production linkages. PDI also provides direct assistance to farmers in their socio-economic initiatives by credits and through capacity building of the people’s organizations and program beneficiaries and facilitating access to other productive resources (e.g. planting materials, market links). The credits are given through a Small Project Fund (SPF) with the total budget of PHP 500,000 (7,500 Euro) per year which is the main budget item of the ESS program component. Most of the individual credits for POs amount to 5,000 to 25,000 PHP (75 to 375 Euro) which are really “small” projects.

Major aspects of PDI’s ESS and SPF • •

• •

•

• • • • • • •

PDI encourages and equips the POs with knowledge and skills to grasp opportunities to take up economic development in their hands rather than providing a “package of economic measures” Beside the direct economic benefits, the main objective of the ESS is to provide a forum in particular for women to organize themselves and to develop management capacities (holding meetings, bookkeeping, etc.) and provide a room to gain experiences in entrepreneurship. Through ESS, economic endeavors of the POs are supported. PDI has developed reasonable “Guidelines for SPF” in 2001 in accordance with the respective guidelines By EED/EZE. After submission of a proposal, usually intensive discussions with the applying organizations are conducted before the proposal is submitted by the PO for approval to the board of PDI. The PO is carefully prepared to develop capacities to carry out the economic endeavors professionally before providing credit. This includes project development and management, financial management and technical trainings when needed. PDI emphasizes the importance of creating own savings and makes own capital build-up a condition for approving projects from the SPF. PDI wants to support farmers in a way that they become “bankable” farmers. Because of the primarily educational and capacity building function of the ESS and the small amount of the fund, a substantial contribution to broad-based poverty alleviation cannot be expected. For the beneficiaries capacity development, other agencies are tapped for providing trainings and other inputs (e.g. planting materials, infrastructure). Linking with private business is also encouraged and sometimes facilitated by PDI. The monitoring of the economic projects is done by the Livelihood Officer of PDI. The projects are additionally monitored by the Program Coordinator of PDI. Economic ventures supported through the SPF

The actual activities financed from the SPF in many places only started recently, except for the hog and goat dispersal program which began already in 2001. Most of the support is directed to women. Very prominent is the hog dispersal program 20 . From the present SPF between 2001 to 2003, 55% of the available funds of 4,600 Euro have been used for hog and goat raising projects (PHP 307,000 out of PHP 561,000).

20

The pigs and individually owned by the women who also benefit from the income when pigs are sold. It is obligatory to build a pig pen and care for water supply before the beneficiary receives the piglet. For each piglet, two female piglets from the first litter have to be returned to PDI who in turn distributes them to other women complying with certain criteria. Women without own capital can avail of an additional loan of PHP 1,000 for buying supplementary feeds for the piglet. For this loan, another female piglet has to be returned upon littering.

Other activities of women POs are, for example, dressmaking, meat processing, candy making, communal variety stores. Farmers organizations have received support, for example for water buffaloes and water pumps, nursery or agro-forestry measures. More details and economic calculations can be found in the Annex 5.4, pages 50 – 54. Promotion of savings The program also emphasizes the importance of generating savings in the process of becoming economically minded and behaving subjects. The intention of the program is not to connect individual people to official banks, but to build up economic ventures of the POs and cooperatives. It is even seen as a precondition to receive credits. However, only the women save and the savings are restricted to saving in the organization. The women get individual passbooks on their savings. However, the program’s intention to make farmer’s bankable seems not to have succeeded up to this time. In a meeting during the evaluation process with 70 representatives of 14 POs in Laur N.E., only 3 of the PO leaders had a personal bank account. Assessment The SPF can be seen as useful instrument to achieve its intended effects. The very careful and thoughtful approach to the economic projects has to be appreciated very much. In fact, the SPF helps to strengthen the local capabilities of the POs in terms of development management through hands-on training for small projects. It, therefore, prepares them for their role as small-owner cultivators or entrepreneurs. However, room for improvement is seen in the operationalization, implementation and monitoring of the SPF (see Annex 5.3, Annex page 48.) 6.1.4 Networking, advocacy and lobby work Beyond the relationships to DAR for LTI, PDI has developed a number of links at local, regional and national level. Local level Differentiated approaches are applied in relations with local government authorities. In this regard, NMGL or its provincial counterparts takes the lead in engaging local authorities whenever feasible. In a region where local government plans are heavily biased towards non-agricultural investments with the intention of raising more revenues, NMGL takes careful steps in selecting potential allies. This is typified in the experience of BAFA-NMGL in acquiring the Limcauco Estate in Angeles City which had to go through a process of mobilizing progressive local legislators to argue for the protection of agriculture. PDI’s role can be from assisting NMGL to being an active negotiation and lobbying partner. PDI also provides research and consultancy in project development and management and

other related areas. PDI participates on municipal level in governments as representative of NGOs. Links to government also include practical cooperation with line agencies like the DTI and DWSD in the direct provision of services. This form of cooperation has resulted in the mobilization of resources that not only signify savings on the part of PDI, but also signify targeted assistance based on concrete needs of beneficiaries. National level Beside the lobby work at DAR at national level, PDI is member and sits on the board of a network of agrarian reform advocates belonging to the Partnership for Agrarian Reform and Rural Development Services (PARRDS), an alliance of NGOs and POs engaged in agrarian reform and rural development. PDI is one of the most respected and esteemed members of this coalition and is always at the forefront of PARRDS policy advocacy work and negotiation process with the government on agrarian issues. PDI also co-operates with the LBC-Net, a network of advocates for democratization in local governance. Use of media and songs For motivation, mobilization and the commitment of farmers, PDI has developed a variety of methods including Tri Media (TV, Radio, Newspapers). In the Philippine communications media setting, agriculture and agrarian reform usually take a back seat in national projection especially in favor of sensational news and political scandals. Nevertheless, PDI maintains links with radio, print and television agencies not only to sustain projection of agrarian reform issues, but to also promote farmers’ rights and claims to land. PDI publishes a monthly newsletter called “Usaping Bayan” or “National Issues”. It contains the latest global or national issues and concerns that effect the lives of the farmers. It is written in Philippine for the peasants and the indigenous people. This is circulated in the program areas so that PO leaders, members and others may be aware of the current issues and may discuss their positions and stand towards them. In particular, the songs written by a PDI staff member (Mon Ayco) contribute to the mobilization of farmers to fight for their rights in a dialogue-oriented approach.

Vision in Colors by Mon Ayco, PDI It is sweet to have a vision with colors If we stumble in the dark At the time the volcano erupted, people were terrified If you’ll not evacuate, you’ll be buried alive In the resettlement area, there is shelter But there is no livelihood Land to be tilled is what we need Agrarian Reform is the answer Coda When hacienda Garcia was land reformed We were now able to have lands to till And the twin goal of agrarian reform Is the provision of support services We can vanquish poverty And the green pastures will spring again The rice fields are swaying Moving along with the winds of change Look at the rainbow, challenging us Whether we can make the land productive The landlords cannot take it back We will rise from impoverishment Coda So many have been given lands But still cannot rise from their impoverish state Because they are being cheated and unsupported Even their CLOAs have been taken back This is worrisome, fearful. We should struggle Vision with colors There is hope See also the song “Maria Clara” in Annex, page 39.

6.1.5 Principles of program implementation The following principles characterize the implementation of the READ program. 1. For PDI, every plan must emanate from the bottom. The people themselves should make their own plans. PDI gathers these plans through a series of consultations and workshops. This will assure that every program that the PDI launches is reflective of the people’s needs and aspirations. This will further assure that people’s concerns are considered in PDI’s programs, including those that pertain to environmental protection, gender and especially the indigenous people. 2. People’s participation: Participation is not limited to the program conceptualization. The people are also the primary actors in the implementation of the program. 3. PDI conducts regular periodical assessments of any program being implemented. There is a planning session every six months plus a monthly assessment. This tradition is also passes on to every organization that PDI helps through livelihood support and other assistance. Since it is the people who are actually implementing the program, they themselves conduct an assessment of their own work. PDI offers support and guidance to the people’s organization to facilitate the assessment of its program. This has also become a learning experience for them. PO leaders expressed an appreciation of learning from their own experiences and gaining a higher level of understanding guiding them in their work. 4. Periodical performance evaluation of staff is likewise conducted to determine their capabilities in facilitating implementation. Workshops and seminars are also being done to further develop the staff’s capability to carry out the task of implementing the programs. 5. Institutionalization, sustainability and self-reliance: PDI sees to it that the peasants feel capable, express confidence in their collective efforts and have leaders who can best fulfill their expectations and who can motivate other members of the target area to participate in all their undertakings. 6. The READ Program takes a pro peasant stand. It recognizes the peasants’ capabilities and draws up priority concerns based on their needs and interests. 7. It bases its actions and decisions on facts rather than assumption. The READ Program adopts a scientific method of work, analyzing facts before coming up with a decision or plan of action.

6.1.6 Orientation on specific groups Women are addressed specifically in the implementation of the program. The organizing practice of PDI follows mostly the widespread pattern of organizing in the Philippines: to organize men according to their profession, i.e. as farmers, and women according to gender, i.e. women, even though they may also be farmers and work on the farm. Both sexes have the same access to the services and support of PDI. However, a gender differentiated pattern exists when the impacts and results are being analyzed. PDI’s intervention in Zambales includes resettlement areas for Aeta communities. Despite a lack of resources, PDI’s approach seeks to provide holistic attention to the Aeta’s needs: to have food security using indigenous farming systems; to have education and to be accepted by the larger society as bona fide members of the community and a community that respects the Aeta’s customs and traditions. PDI is also assisting the Tagbanuas of Palawan and the Dumagats of Bulacan and Quezon.

6.2 Analysis and assessment of the program’s management 6.2.1 The budget of the PDI’s READ program The total amount of the three years budget of PDI amounts to 613.550 Euro, of which 475,500 Euro is a grant from EZE and 138,000 Euro are local contributions from the farmers. Almost 50% of the budget is attributed to the program costs, almost 30% for personnel (see table below). In addition, the NGO 11.11.11. contributes 83.387 Euro for Nueva Ecija (2202 – 2003) and PATH contributes 38.710 Euro for Palawan only (2002 – 2003). The budget of PDI’s READ program in Euro (3 years from 11/2001 – 10/2004) Euro % Program costs Institutional development building 127,567 21 Land Acquisition – LTI 37,836 6 Support to Aeta 38,347 6 Vehicle and maintenance 19,173 3 Transportation 21,986 4 Meetings, communication 8,436 1 Research and policy advice 47,806 8 301,151 49 Total Program costs Personnel costs Coordination and administration Reserve Total

166,170 54,197 92,033 613,550

27 9 15 100

6.2.2 Monitoring and evaluation All PDI staff report their activities to the Program Coordinator every 15 days. A monthly monitoring of the program areas is conducted to gain an actual view of the development at the program site. The monthly written monitoring forms contain the results and accomplishments of the previous activities and are the basis for assessment and action for succeeding activities. They are also the basis for reporting to the funding agencies, the government and other institutions who are interested in the work of PDI. PDI also conducts assessments and planning with the contribution of all staff in the middle and at the end of the year as a basis for the planning and targeting of future PDI undertakings. PDI perceives this monitoring, evaluation and planning system (Integrated Approach to Participatory Development, see also Annex, page 24) as very effective. Aside from the report that the field workers furnish the office, the Program Coordinator conducts his own monitoring to verify what was reported and to gather additional data that the field workers did not include. It was not possible for the external consultants to assist such a meeting; however, the impression is that the discussions in monitoring and evaluation are very much focused on the issues and the next activities and steps of the respective strategy. Compared to activities, the assessment of impacts is hardly reflected in PDI’s monitoring system. This became also evident in the evaluation process in a joint reflection about impact hypothesis. 6.2.3 Cooperation between PDI and EZE/EED PDI and EED/EZE have cooperated since 1994. The cooperation is based on an agreement defining the roles and contributions of each partner, the source of funds, financial management and audit, etc. PDI submits a detailed program proposal including objectives and budget which is the base for EZE decision and approval of funds. EED/EZE provides the funds every three months. In a tri-partite agreement EED/EZE and PDI have contracted an independent certified audit company for the periodic audits. PDI provides half-yearly reports about the implementation of the program including audit statements according to a format suggested by EED. The discussions during the evaluation revealed that both partners are happy with the cooperation. PDI appreciates the clear program guidelines and policies, “there is transparency about what they expect, what they would like to have from us. This provides us autonomy for the implementation of the program.”

EED/EZE also provides support in the form of trainings from partners in the Philippines (PME, organizational development, team development, etc.). EED/EZE sees its role in accompanying the implementation of the program rather than steering it. A detailed management system serves this purpose. It comprises standards for PME, program proposals and progress reports as well as the establishment of an organizational profile of the implementing organization. The respective EED/EZE country desk officer visits PDI once every 1 ½ years for about two days. Additionally, shortest meetings are held with the Director during each of his visits to the Philippines. Both PDI and EED appreciate the high degree of continuity and trust in cooperation also in terms of the persons involved. EED/EZE depicts the cooperation with PDI as close and fruitful and appreciates PDI’s ability to implement the READ program with a high degree of independence and quality.

6.3 Overall assessment of program implementation and management PDI has developed an integrated approach to development that combines provision of services, organizational development up to the community level and institutional development. It is innovative in combining several elements and provides an excellent response to the challenges of the situation described in chapter 4. The following aspects of implementation and management are seen as the major strengths and factors of this success. ¾ The effectiveness of PDI’s strategy lies in being centered on people’s development and self-reliance. With this orientation, PDI gives much emphasis to the enhancement of the capabilities of the people. With these capabilities the people themselves can identify and propose programs that can be beneficial not only to individual members but to the entire community. This further develops their individual and organizational capacity. ¾ The strength of PDI’s READ program also lies in its participatory and dialogue oriented approach with the government in contrast to many other past and present endeavors (see chapter 4.2.1, page 22). In addition, experiences and initiatives from the grassroots level are transformed into policy, advocacy and lobbying at the national level. Information and the reputation of PDI at the national level benefits the local level. ¾ Farmers organize around their shared vision and not because of access to program’s advantages (e.g. loan). Organizing farmers is certainly not a peculiar phenomenon to the READ Program. In fact, most of the program beneficiaries have experienced various forms of organizations and support either initiated by government agencies or by anti-government forces. However, previous experiences in organizing were largely determined by external factors such as the availability of funding from the government or by an ideological or political push from anti-government forces. Under the READ Program, the strength of the

¾ ¾ ¾ ¾

organization is rooted in the unity of ideas and objectives from the members themselves. People have organized themselves in order to unify their voices. Indirect structural and direct poverty orientation (see chapter 7.4, page 71). In the cooperation between PDI and farmers, PDI does not promise anything. PDI clarifies the need for self-help from the very beginning and the importance for the people’s organizations to be responsible and to stand on their own. The capacity development comprises value formation through training and exposures, but also through living of the values by the staff. The strength of PDI’s empowerment is not a single aspect but the combination of elements implemented in very flexible plans, the READ program’s implementation and management is based on principles and values which are in correspondence with the content of the program. The key values and convictions as identified by the evaluation team are • • • • • •

Empowerment and support to the poor and the marginalized for wselfdetermined and sustainable development; Promotion of self-help is more sustainable that help or promotion only; Democratic principles and participation in decision making processes; Respect of persons and different opinions; Engage for long-term commitment and partnership, commitment and dedication to service by all staff – staff serve as an example for POs; What we say is what we do –what we do is what we say: credibility, integrity, confidence to partners, honesty.

¾ The basis of values that are common to EED/EZE and PDI and the trust which has developed thanks to the continuity of cooperation as well as personal contact and commitment can be considered as a prerequisite of the strength of implementation. However, the strengths simultaneously make evident potential weaknesses or risks. The management and implementation of PDI depends to a high degree on one person, the Director of PDI. Another major weakness of implementation is a lack of economic strategies that directly address the utilization of lands covered by the agrarian reform program. However, this is seen as a challenge and is only a second step after land tenure improvement.

7 The program’s effectiveness in development terms and its significance 7.1 Program results and achievement of aims 21 7.1.1 Results of building people’s organizations

21

This chapter presents the direct results of PDI’s activities. The use of these results by the target group, the effects of these results for the target group are presented in the chapter 7.3 on impacts.

Existence of people’s organizations and a regional federation The organizing work, training and other support to people’s organizations has resulted in the existence of 59 POs with 2.501 members (see Annex, pages 18 – 21). These figures include 527 women organized in 16 women POs. This expansion is not simply a product of member listing but, rather, a product of substantive participation of farmers built around a vision. The degree of federation building of the POs vary among areas. Zambales has established a provincial organization. Nueva Ecija has developed its inter-municipal formation while the rest have Barangay, inter-Barangay and municipal structures. Most of these organizations can stand on their own. There seems to be a good relationship between the POs and other members of the communities. Everybody is free to join; however, the level of personal commitment to the struggle for land varied considerably. Thus, the most active members have come in the forefront.PDI has also facilitated the establishment of a regional peasant federation NMGL (United Peasants of Central Luzon) 22 . In a short period of time, NMGL has evolved from an organization representing beneficiaries to an organizations acting as legitimate partner not only of PDI but also of the DAR. In addition, PDI has facilitated the establishment of a number of alliances with and among other NGOs and peoples’ organizations both at the local and national level. One factor of strength of the POs is the number. One farmer mentioned “We are like many small fibers in a broom – together we can serve and work effectively!” Increased capacities of POs and NMGL for action The primary beneficiaries of the program are farmers who are generally literate but most of whom have never finished secondary school and, much less, tertiary education due to poverty. A significant difference has been mentioned by the people involved in the evaluation in regard to their knowledge and skills prior to the intervention of PDI. The level and capacities of people and POs vary considerably mainly due to different periods of support but also as support to some POs has been given also by other NGOs. The following aspects have been emphasized. •

22

POs have acquired knowledge about AR and procedures, their rights, human rights, etc. “We have realized that we as indigenous people have rights”. “We women realized the we have the same rights as men”. The discussions with farmers who are not members of POs showed clearly the lack of information about basic rights or even the existence of the Agrarian Reform in the Philippines in the rural areas. However, there still seems to be a lack of information between

On October 30, 2001, the Project Development Institute facilitated the Central Luzon Farmers’ Conference held at the Social Action Center of Pampanga (SACOP), IN THE CITY OF San Fernando. This conference was officially attended by the PO representatives from six provinces in Central Luzon. The assembly culminated in the establishment of the Nagkakaisang Magsasaka ng Gitnang Luzon or NMGL (the United Farmers in Central Luzon). NMGL, since then, has been an active regional coalition of farmers helping other farmers in establishing their own organization and further strengthening those who had build their own organizations.

• •

•

• •

frontliners, other PO leaders and members. At the level of the PO leaders, there is the challenge to improve information and awareness on national and global processes and issues. POs members have increased their skills to analyze their problems and to identify solutions. “We are now able to confront our main problems of land ownership we are facing”. POs have also defined other needs beyond land security. People have increased their communication skills. Farmer leaders are able to act as resource persons or speakers in public gatherings even outside their own villages. Many leaders are now able to speak to government officials, to argue and represent the members and to demand their rights. This is a considerable change and achievement in particular for women and the Aeta. “We are now able to speak to government officials”. This is evidenced by the ability of the POs, through NMGL, to directly negotiate land claims with the DAR or seek support from reform-minded local government officials. They are able to communicate their own needs to the local government and are able to say “no’ as well. Further evidence of this is the participation of POs in Barangay development councils. POs can realize advocacy work and lobbying. PO leaders are now able to use a combination of legal and meta-legal modes and strategies to protect and advance their interests. Information is disseminated by the POs themselves. Farmers are able to increase awareness among other farmers. POs under the umbrella of NMGL expand to other areas, assisting and supporting the creation of other POs.

The trainings and seminars conducted by PDI and NMGL are partially echoed by POs in their villages. This replication created spillover effects to youth in the villages. Aeta farmer: ”If money would have been given to us, might be it would be gone by now. But we learned to fight for our rights – this will remain, it will even grow and bring more fruits to us.” Improved organization and leadership skills to run the POs and NMGL The exposure of farmer-leaders to functional education such as the Barefoot managers’ Training and further support of PDI has improved their capacity to9 manage their own organizations and to take decisions without PDI. These capacities include leadership skills, communication, basic financial management and accounting, and other elements in managing organizations 23 . Many POs and NMGL only need guidance and orientation from PDI for future actions, tactics and strategies to be applied in the different land cases.

23

E.g. planning: PASAMBOT presented a yearly planning comprising among others the following elements: Objectives for the period, Capacity development of members and leaders, Linkages with other NGO and government organizations, Issues to be followed-up, Research of land for AR, Fund raising, monitoring, assessment and planning.

At least as important as training has been the application of the knowledge and skills in the day-to-day running of the organizations and the realization of activities which range from meetings, negotiations with DAR or landowners and even implementing small economic programs. An Aeta leader of a PO with Aeta and lowlanders (Hacienda Garcia) formulated: “Before lowlanders looked down at us, now they have seen our leadership skills and they even proud of us”. PDI also gave training in values formation in order to ensure management and leadership according to democratic principles. This is an important aspect for the sustainability not only of the different POs but also of the entire federation. According to the results of the evaluation, some achievements have been made but deep-rooting of respective values in POs such as democratic principles or transparency still is a challenge. There is also a considerable gap in information and capacities between members/second-liners and leaders. The vision and objectives of the POs A considerable difference in the clarity and kind of vision exists between the members of the people’s organizations and the leaders at NMGL level. One common aspect is the democratization of assets. Whereas most of the members mentioned economic and livelihood objectives as main reason to be organized, the leaders had more explicitly a vision of effective participation in local governance. One member expressed: “Today we have a bike, in future we like to have a motorbike thanks to the PO.” “Now we only have a shelter as office, in future we would like to have a permanent structure”. This also expresses the common feature that they won’t stop at the realization of the first demand, but pursue the struggle in order to have a better life for all. Degree of autonomy of the POs According to PDI, the strength of POs is a function of number, capacities, unity, motivation and commitment and values. For all these criteria, a high or partially even very high degree can be observed. Certainly, there are still challenges which have already been mentioned but considering the short period of the implementation of the READ program, the results are very positive. 7.1.2 Results of land transfer to peasants in Agrarian Reform As of October 2003, PDI and NMGL had effected the transfer of 2,953 hectares to 985 peasants. Around 2,000 hectares of agricultural lands are already in the pipeline and can benefit more than a thousand potential farmer-beneficiaries. This signifies a meaningful contribution of the project to the whole agrarian reform program in the region. It is equivalent to 17 percent of the remaining CARP lands in the region. The impacts of land ownership for farmers are discussed in chapter 7.3.5 page 61.

7.1.3 Results in regard to economic activities Economic Support Services The economic support program and the small project fund only started recently, except for the hog and goat dispersal program which began already in 2001. There is no doubt that the Economic Support Services (ESS) contribute to additional income. The amount and importance, however, vary considerably. The most encouraging successes exist with hog dispersal which is also the most widespread activity of the ESS. The pigs are raised and individually owned by the women. They also benefit from the income when piglets are sold. The calculations show the profitability of the activity which was confirmed by all the discussion partners during the evaluation. The benefit of about 5,000 to 10,000 PHP 975 to 150 Euro) a year is comparable to the income that could be earned from simple farm labor for the time invested. However, in pig raising risk is also involved, but the advantage for the women is that the work can be done alongside all the other activities. This same advantage also applies to other ESS activities. Compared to the benefits for swine production, the benefits seem lower for the latter activities and remuneration of labor seems to be less than the local wage rate 24 . However, the women appreciate the advantages also because the work is not effected in the hot sun. Nevertheless, the potential contribution of the ESS is very low compared to the total income of a household. A substantial contribution to poverty alleviation from these activities cannot be stated and could not be expected considering the total credit amount of PHP 500,000 (Euro 7,500). The effects regarding the provision of a forum to meet and to develop leadership skills and to promote consciousness and building up of savings/ capital are considered to be even more important than the economic aspects. Promotion of savings Whereas the intention of the program to enhance the financial self-reliance of farmers from money-lenders are appreciated by the evaluation team, only very few results could be observed regarding the generation of savings among the POs. The total savings mobilized by 5 POs amounts only to about 10,000 PHP (150 Euro). Furthermore, all these POs are women’s groups whereas men do not save. Saving seems more challenging for men because of their less disciplined manner of spending money.

24

Concerning dress making, a woman may produce as much as 300 dresses a month which produces an income of PHP 1,500 (23 Euro). This is almost equivalent to the income of half-time job. In candy making, usually 12 women of the women’s group engage two times a week for half-a-day. A profit of PHP 400 is generated for each half day, which divided among the members comes to PHP 66/person for a full day, if all participated. This is below the usual agricultural wage rate of PHP 150 per day (2.25 Euro).

7.2 Assessment of cost/benefit ratio A cost benefit assessment of the entire READ program is presented in chapter 7.7, pages 76. It considers the results as well as the impacts of the program which are presented in the following chapter.

7.3 Economic, social, socio-cultural and institutional impacts 7.3.1 Empowerment of farmers and POs Most of the achievements of PDI in regard to the empowerment, existence, strength and capacities of the people’s organizations have already been presented in chapter 7.1. In addition to these direct results of PDI’s activities, the following empowerment impacts have been observed by the evaluation team. PDI as eye-opener – new hope, motivation and identity The improved capacities and knowledge, the activities of the PO members and also their successes have led to PO members developing a new picture of themselves. The members of the POs and beneficiaries of PDI’s support have become able to see their situation from a different perspective. The discussion revealed that many farmers – discouraged from the long struggle for land – have developed new hope and motivation. “I could not sleep for a long time because of the landowner. I had a lot of problems with him,, he did not want me to use the land and I had to give him too much, only few of the harvest remained for my family. I did not even have the hope that this could improve, I did not see anything I can do as there is no other place to go for me. Today I know my right, I know others facing the same problems – I have the hope that our struggle will be successful. At least, I can sleep well again thanks to the PO and our efforts.” From a perception of rather passive victims, many farmers – members of POs – became active to make informed decisions about social, political and economic choices. These factors are at the origin of their commitment to an organized representation of interests of the poor. They pooled their strength through organization and began to exercise their role as a legitimate force in local civil society. Increased self-confidence and pride Although there are variances in the effects of trainings among individuals and among men and women, the common denominator among them is the general increase in self-confidence. The supply of and access to information through the program has reduced difference, thus improving the level of trust between and among members of the PO. Many farmers in the POs are proud of their organization and their achievements and are highly committed.

Increased respect of the marginalized by other actors of the society Through the PO’s activities and achievements other actors have become more aware of the capacities of groups who had been rather marginalized before. These include landless farmers, but more especially women and the Aeta. The government’s political institutions now recognize the people’s organizations as a vital political force outside of, but cooperative with, the government. They have the authority, by virtue of their organization, to represent themselves in engagements with the government. DAR has even suggested POs and NMGL as an example to other NGOs. This is an important change according to the perception of the organized farmers and Aeta. “Before, we were not allowed by the landowner to pass here, we were harassed and threatened with knives.” The Empowerment circle

PDI as eye-opener new hope, motivation and identity Motivation Farmer organize themselves

Increased self-confidence and pride

Empowerment of farmers and PO’s Increased respect of the marginalized by other actors of the society

Activities are successful

Development of capacities of farmers

Farmers’ POs carry out activities

The circle shows the reinforcing effects of the different elements. PDI and the farmers / POs have managed to brake the “vicious circle” of no hope → passivity → more serious problems → less hope etc.

7.3.2 Impacts on Indigenous People Improvement in knowledge and skills and improved recognition of indigenous peoples by the LGU and other sectors The combined effects of the scholarship program, trainings and seminars have resulted in significant changes in awareness, knowledge and skills of organizations and individuals. All the empowerment results presented in chapter 7.1 are also valid for the Aeta. For the Aeta, formal and non-formal education have a particular importance. Indigenous people have always been subjected to larger society biases due to their lack of education and marginal existence. Traditionally treated as ignorant minorities and unable to read, write and count, they used to be cheated by other members of society, in particular traders and also government officials. They are now able to negotiate for better terms in the exchange of goods and services. This effect can also be observed when they negotiate with local government agencies (see below). Consequently, there are positive impacts in the behavior of other members of society as well as of the government with regard to the identity and capabilities of indigenous peoples like the Aeta of Zambales. They are no longer treated as errand boys as they used to be during the American occupation of Subic Naval Base or Clark Air Base or as beggars outside military bases. In Pasambot (Botolan, Zambales), the Aeta are not only recognized as bonafide members of local civil society, they are also recognized as a leading force in the development of the community. Aeta POs are invited by the DAR to participate in discussions and for mobilization. The Aeta receive also respect because of their indigenous knowledge in organic farming. “Before when we were trying to talk to government officers as Indigenous People they were not listening to us. Government looked down at us. Now we are heard by Government and even invited for some mobilization meetings”. This increased recognition is very relevant and important for the Aeta; however, the Aeta re aware that this is only a first step. There are still many actors in the society where this increased respect can not yet be observed. There is still an important challenge in tems of quantity and quality of respect of others given to the indigenous people. “We are now more equal to the others, we see the light that we can reach higher goals.” It is important that this improvement of their situation by education did not “destroy” their culture. The Aeta involved in the discussion have presented with pride their culture and were very much aware about the cultural aspects they want and need to keep, e.g. their belief in and concept of god, their concept of cooperation, their way of organic farming including the utilization of fertilizers prepared from herbs and grass, etc.

Increased identity and self-confidence The self-confidence and identity of the Aeta has also been positively influenced by the other impacts achieved with the support of PDI, in particular through the development of capacities and skills but also with the successes in security of land tenure and the increased recognition they now receive by others (see also the pride of leadership skills, 7.1.1, page 53). Increased land security The Aeta are victims of historical marginalization in social life and politics and have been displaced from their ancestral domain because of the eruption of Mt. Pinatubo in 1991. The program has effectively responded to their demand for land, something that resulted in an increase in security of land tenure. PDI’s initiatives in promoting their rights as provided for by the CARP and the Indigenous People’s Rights Act (1995) have encouraged them to claim their rights and to seek their rightful place in society. 7.3.3 Impact on the situation of women and gender relations Some of the most relevant impacts achieved by PDI concern the changed situation of women-members of the POs. From their point of view, the possibility to earn income from the income generating activities has influenced their position in regard to their husbands. “We have now own money to buy food and send children to school”. “Because we became productive we are now respected by men”. “We are now able to help our husbands to support the family.” “We were just hanging around, we were always gossiping”. Women also relate their greater say in family matters and in decision making to their increase of abilities and self-confidence. The men usually confirmed this statement from their perspective, by also emphasizing the aspect of women “becoming productive”. In Bulacan, four out of six groups, male as well as female, ranked the “improvement of the relationship of husband and wife” as a first or second important impact (see Annex, page 47). Not only that increased participation in family decision making can be appreciated per se, it also contributed to good cooperation in the family (men help women more frequently) than before which in turn is seen as the foundation for progressing and improving livelihood. The farmers (men and women) attribute this positive result to the value formation seminar of PDI where they have learned to discuss their problems in a respectful way. Before, men and women used to quarrel much more. However, this important impact seems to be prominent in particular for those families who have

already received land. Understanding and cooperation in the family therefore became very important for developing the farm and livelihood. Women also appreciated their increased capability of communication to freely express themselves. This has allowed them to bring in thei9r specific needs to the attention of the LGUs, e.g. with regard to infrastructure on the community level. Less favorable is the assessment of improvement of land ownership for women. Even if PDI as well as sometimes also DAR emphasize co-ownership of husband and wife in order to protect women’s right to property, it seems that successes in this respect are rather poor. Most of the CLOAs are issued in the name of the male farmer. Women who have received CLOAs are either widows or married to a husband not working in the agricultural sector. Also in terms of knowledge about AR and legal aspects, there seems to be a men-biased development. Women from some groups felt left behind men regarding legal knowledge while having the desire to also become more knowledgeable about this area. Most of the para-legal advisors are men. There are still many challenges ahead in order to consolidate and further enhance what has been achieved till now in regard to knowledge, respect, roles and power relations, etc. 7.3.4 Youth There is little visible impact on youth. This is primarily because the program does not have a distinct program for youth. There are indications, however, that the scholarship program has provided positive impacts on some young people due to the acquisition of knowle3dge and skills from formal education. Those who have graduated from college (around 70) are now contributing their knowledge and skills to their communities. Three graduates are now working as PDI staff members in Nueva Ecija, Tarlac and Zambales and another is working as a volunteer staff member in a cooperative in Pampanga. 7.3.5 Poverty Reduction PO members attribute more importance to increased land security than to other aspects of livelihood improvement such as improvements in nutrition and food security, education of children beyond the secondary level, and improvement of houses. While there is no doubt that the READ program has provided benefits to the poor beneficiaries of the program and those also getting land because of PO/PDI actions, there is no concreted date that can be used as a basis for assessing the impact of the rural poor population in the region 25 . The following impacts are

25

In order to position the impacts of this evaluation in the national agrarian reform landscape some findings from a recent nationwide impact study can be quoted. It confirms the result that AR beneficiaries stand better than non beneficiaries. This concerns investments, productivity and income from farming. However, the overall impact of a substantial reduction the poverty incidence among ARBs was not

results of qualitative discussions and assessments and present mainly the perception of the beneficiaries. Increased land security for farmers PDI’s intervention and the READ program have made a difference in the lives of the people. According to the perception of the farmer beneficiaries, PDI played a key role in securing the transfer of 2,953 hectares to 985 farmer-beneficiaries. Also many other farmers have benefited from the AR and have increased their land security. However, there is the strong indication that without PDI many cases would not have been covered by AR. Even if the size of 3 ha for each of the beneficiaries is not always sufficient to nourish a whole family, the importance of the possession of land titles has to be seen in the context of the lives of the beneficiaries. The evaluators observed some CLOA distributions in Tarlac, Zambales and Pampanga 26 and directly witnessed the emotional response of the recipients borne out of relief and victory after longt years of waiting to own the land they till. The titles represent for the farmerbeneficiaries a radical change of status from being landless to new owners. They have now the power to decide on what to do with their newly-acquired asset. This security is not only a product of the agrarian reform law that was passed in 1968, but a result of the struggles of several generations 27 (see also chapter 4.2.1, page 22). However, the demographics of agrarian reform beneficiaries have the distinctive feature of being male-dominated. There is the challenge to improve the rights of women and their land ownership situation. It is also important to recognize that PDI has achieved the land tenure improvement at less financial and social cost compared to similar efforts of the DAR and other NGOs in contested lands (see also chapter 7.7, page 77). Economic benefits through land ownership and investments in land by farmers Before they were given CLOAs, farmers worked on the land but did not get the full benefit of their labor due to unfair sharing practices. Often, tenants receive only 25 to 50 percent of the production as the bulk of the production accrues to the landowner. Hence, farmers have very little incentive to develop the land. The confirmed (CARP Impact Assessment Project (CARP-IA): An Integrative Report of thee Comprehensive Agrarian Reform Program impact Assessment Studies. Internal Summary of UNDP, not author, not dated). 26 In Barangay Carbonnel, Gerona (Tarlac Province), PDI, NMGL and the DAR successfully worked out the distribution of 48 CLOAs representing 68 hectares for 48 beneficiaries of which only 9 are members of the PO. In Angeles City (Pampanga Province), the same partnership successfully worked out the distribution of 70 CLOAs representing 108 hectares of land for 70 members of the Barangay Anunas Farmers’ Association who have fought for the land since 1963. 27

Under the Torrens concept of land ownership introduced by the American colonialists, the possession of a land title signifies the strongest basis of security of land tenure. This kind of security has traditionally been the domain of land monopolists with the protection of the state.

issuance of the CLOA and the transfer of ownership of the land provide them with the strongest incentives to develop the land. In addition, once being an ownercultivator, loans can be received much easier from formal and informal lenders. Having enough capital, farmers can purchase the necessary farm inputs to achieve the desired harvest. In Bulacan, for example, 47 farmer-beneficiaries who benefited from the redistribution of the 57-hectare Rodriguez Property are now highly productive in growing high value crops such as coffee and vegetables. The marketing contract for coffee with Nestle also aided the highly profitable production. In other areas, some impacts can be expected in future only due to the recent date of tree planting (Mahogany). “Now we can eat, we can benefit from the fruits of the land and our work. Before we had to give most of it to the landowner.” Additional income from women’s economic activities predominantly through the pigprogram and other small projects of the women POs have contributed (see also 7.1.3, page 56). Improvement in food security for AR beneficiaries Agrarian reform beneficiaries in Central Luzon have obtained the opportunity to grow rice, vegetables and other food crops without being burdened by unequal sharing schemes with landowners. They have improved chances of securing the food needs of their families in terms of quality and quantity 28 . In some areas the production of high value crops has enabled farmers to acquire better food due to higher incomes. However, no quantitative data exist to confirm these assessments of farmers. “Before we ate once a day, now we eat three times a day!” In many communities where POs have been established, still many other families are fooddeficient. Increased capacities and literacy level (formal and non-formal) Improvements in the poverty situation are also traceable from significant changes in human resource capabilities and the institutional capacity of POs to elevate themselves as social and political actors in their communities. Traditionally marginalized, farmer-beneficiaries are now equipped with capacities and physical assts to improve their status in the community. Most PO members can afford to provide primary and secondary education to their children (e.g. up to high school), but not college education which requires higher tuition fees and supporting the children away from home.

28

In Kaybanban, Bulacan for example, before PDI’s Intervention 40% suffered from food shortage. Now, it is estimated that 70% of village families state to have enough food. This increase can be even higher when considering only PO-members. However, in other villages the increase of families is much lower, e.g. from 40% in San Isidro, Bulacan.

For the Aeta, the literacy program as part of the conscientization process has also led to an increased literacy level (formal and non-formal) and, together with the scholarship program enhanced self-confidence not only of the students but also of the entire communities. However, both are also supported considerably by other actors. 7.3.6 Impacts in regard to the agricultural sector The most important impact in the agricultural sector is the increased land security for farmers which has already been presented above. Many areas that were previously idle have became productive since the implementation of the READ program in Central Luzon. Farmers have started to cultivate these areas simultaneously with their struggle to acquire the land. These areas were either reservations or had been covered with volcanic debris when Mount Pinatubo erupted but have become agriculturally viable once more. In many other cases, the previous production system continues putting emphasis on food crops such as rice and corn. According to the discussions with the farmers and observations during the field visits, improvements in agricultural production come about in several ways. In the case of the IP resettlement, agricultural production usually starts on abandoned land. Whereas the Aeta in Botolan, Zambales have received land in strategic locations and of good quality developing it into organic agriculture, the Igorot in Nueva Ecija try to reduce their dependency on hilly upland rice fields which are ecologically not sustainable by additionally developing lowland rice fields. Only in some cases, the farmer beneficiaries get additional support from other sources e.g. for infrastructure development of their farms or post harvest operations. This is, for example, the case in some Igorot ARCs in Nueva Ecija, which fall within the program area of a Japanese assisted AR project (ARISP II). In other cases, as for example in Kaybanban and San Isidro Bulacan, the proximity of the metropolitan markets of Manila and favorable contracts with Nestle favored investments in permanent crops, such as coffee, fruit trees and pineapple and development of an impressing prosperity among many farmer beneficiaries. 7.3.7 Social Impacts Prevention of conflicts and contribution to unity of villages Since the implementation of the program, unity within the community has further developed. The use of dialogues, partnerships, media and reduction of information asymmetry has mitigated the emergence of violent conflicts in the land redistribution process. In some cases, the dialogue orientation and the formation of values has led to enhanced unity in communities and also at household level, where effects on power relations between men and women have been observed (see impacts on gender relations, page 60). “Before there was

jealousy among us. We saw that this value is not in PDI. We were able to see the importance of negotiation and discussion.” Aside from the establishment of the farmers’ organizations in the program areas, several “exchange labor” groups were also organized and traditional forms of exchange of simple labor called “Bayanihan” are once again being practiced. Unity among communities is even more appreciated as landlords use tactics to destroy unity and to create conflicts between farmers by giving some preferential treatment. Also, the presence of the media during a confrontation with the landowner and the police prevented the occurrence of violence in the case of the struggle of the Sto. Rosario Farmers’ Association (Magalang, Pampanga). Creation of new social stratum in villages with land security Another impact observed by the evaluation team in Bulacan is that increased land security attracts more poor people, often relatives, who are allowed to settle on the lots and thus create a new poor stratum in the village. Increased resistance of big landowners The successes of PDI and NMGL have negatively impacted on the interests and plans of big landowners. There are indications that their resistance to reform has become stronger. In Tarlac, big landowners like the Cojuangco family are already pressuring the DAR to remove the Provincial Agrarian Reform Officer (PARO) who is not only allied to PDI and NMGL, but is also helping all the people’s organizations regardless of political affiliation. The Tarlac PARO is also applying the force of the law against the landowners in implementing agrarian reform. In Sto. Rosario (Magalang, Pampanga), the landowner is imposing barriers to the plans of the Sto. Rosario Farmers’ Association (SRFA) by fencing off the property, mobilizing local government officials and the police against the SRFA and bringing in other farmers inside the remaining lo9ts as a counter-pole against the SRFA. This is not to mention the fact that he also destroyed the crops planted by members of the SRFA, harassed Land Bank personnel by filing unwarranted cases against them with the Ombudsman, and even bribed DAR officials. The tactics of landowners are presented in chapter 4.2.4, page 26. 7.3.8 Impacts concerning political participation Increased participation in decision making processes PDI has achieved the enhancement and enlargement of the possibilities for political participation of their target populations in particular at local and regional level. This cn be observed by the following aspects: 1. Farmers have become active – the POs as a new actor

2. 3. 4. 5. 1.

POs use meta-legal tactics to influence decisions The POs and NMGL exercise vigilance regarding AR law implementation Institutionalized discussion and negotiation forms through partnerships PO representation in elected positions in local governments at Barangay level Farmers have become active – the POs as a new actor

Prior to the intervention of PDI, the primary beneficiaries of the program hardly had a voice in local politics and had extreme difficulty in claiming their rights to land. Equipped with sufficient information concerning their rights to land and to government services as well as the skills to directly negotiate with other actors of society, they pooled their strength through organization in POs and a federation. Even if farmers had before been members of political groups or other POs existing in the Philippines for 40 years, the POs under NMGL can be considered as a new actor in the scene of agrarian reform and political participation as they began to exercise their role as a legitimate force in local civil society. They expanded their influence not only to other farmers but also to local authorities. The discussions revealed the increased autonomy of the POs to make decisions regarding their economic life. 2.

POs use meta legal tactics to influence decisions

The agrarian reform law has many loopholes. Although knowledge of the law through paralegal training has improved the capability of farmers in claiming their rights, legal processes are either circumvented or used by landowners to delay land reform. To compensate for the weaknesses of the processes, NMGL and its allied POs use meta-legal tactics in order to influence the pace of legal processes and swing decisions in their favor. These tactics take the form of mass mobilizations such as pickets, rallies and conduct of dialogues en masse. These tactics create a show of unity and strength that obliges DAR officials, local government authorities and landowners to listen to the voice of the farmers. NMGL also supports regional and national campaigns on peasant and agrarian issues launched by PDI and other civil society groups. 3.

The POs and NMGL exercise vigilance regarding AR law implementation

Knowledge of the agrarian reform law has encouraged farmers to claim their rights. However, most often they were not effectively heard. This significantly changed when farmers, with the assistance of PDI and NMGL, were able to find information and uncover anomalies pertaining to CARP implementation. Mistakes were pinpointed and corrections demanded. PDI and the POs became active participants in agrarian reform implementation and the correction of anomalies. This important vigilance function of the civil society had not been assumed before the intervention of PDI. Presently, this function is assumed in more than 40 agrarian cases.

4.

Institutionalized discussion and negotiation forums through partnerships

The tripartite partnership of the DAR, NGO and PO has been recognized by the DAR since the mid-1990s with the creation of the Special Concern Action Team (SCAT) (see also chapter 6.1.2, page 43). It shows the ability of the POs through NMGL to directly negotiate land claims with the DAR or to seek support from reform-minded local government official. The DAR would like to popularize the model in all regions of the country. However, this partnership was not fully institutionalized in other regions and was mainly employed in the distribution of less contentious lands. The READ Program’s experience has provided evidence that the tripartite partnership of government, NGO and the PO can also be effectively employed in the acquisition and distribution of contentious private agricultural lands. 5.

PO representation in elected positions in local governments at Barangay level

Seizing the opportunity provided by the Local Government Code and building on the successes of LTI struggles, PDI, NMGL and the POs constructively engage with government structures not only from outside but also from within the mechanisms and processes inside the various levels. Elective positions in local governments allow farmer-leaders to represent their organizations in legislation or in execution of government programs. Not only do they act as watchdogs in budget deliberations (exercise vigilance), they also exert influence in policy decisions, legislation, programming and allocation of resources. In some municipal development councils and Provincial Agrarian Reform Committees, PDI is the elected NGO representative.

Impacts of the increased participation in decision making – observed changes 1.

Changed concept of AR implementation thanks to PDI’s experiences

PDI’s experiences in the Bulawen Resettlement Scheme influenced the DAR’s concept of Agrarian Reform implementation. PDI’s agrarian reform community model has been adopted by the DAR and made it into an ODA-funded program called the Agrarian Reform Communities (ARCs). This approach has enhanced the efficiency of the public sector. Also the SCAT is already being implemented nationwide through a memorandum circular29 .

29

There are indications that the DAR leadership has learned lessons from the performance of the SCAT as a tripartite mechanism for agrarian reform implementation in Central Luzon and replicates the same in other parts of the country. While the policy environment has been created due to the DAR’s promotion of the structure throughout the country, there is little evidence showing that SCATs have actually been formed in other regions. The right combination of good quality POs, NGOs and reform-minded DAR officials at the regional and provincial levels is not yet traceable in other regions of the country.

Overview about impacts of increased participation in decision making processes and observed changes Farmers have become active – the Po’s as a new actor PO’s use meta legal tactics to influence decisions

The Po’s and NMGL exercise vigilance of AR law implementation

Institutionalized discussion and negotiation forums through partnerships

Changed concept of AR Implementation thanks to PDI’s experiences

Accelerated and more complete AR law implementation

Increased Participation in decisionmaking processes

Observed changes through increased participation in decision making processes

Mobilization and redirection of services and budgets in favor of project beneficiaries

PO representation in elected positions in local governments at Barangay level

Changed behavior of DAR in the project areas increased transparency

The gap between farmers and DAR has been narrowed – breaking of old alliance

Land use policy changes in some cities and Municipalities Public consciousness about good governance has increased

2.

Changed behavior of DAR in the program areas – increased transparency

PDI and NMGL have obliged the DAR to improve its behavior and to recognize farmers as active participants in agrarian reform implementation by the exposition of anomalies and by reducing asymmetry in information. There are significant changes in the behavior of the government, especially in the national, regional, provincial and municipal offices of the DAR particularly in the area covered by the program. Many DAR officials and personnel used to be non-receptive to the demands of poor peasants, their organizations and even NGOs. They are now much more sensitive to the issues brought to their attention by organized sectors. DAR personnel now have time to discuss such issues with them. Concerned government agencies and officials are obliged to respond to issues and to take action. There is also evidence that the advocacy of PDI and the POs has led to support “friendly forces” in the government. Without the intervention of PDI and the POs, some forces within DAR would have been removed because of their “farmer-friendly” attitudes as perceived by landowners. More consciousness in DAR and more transparency of the implementation of AR has been achieved. Consequently, it can be cocluded that government officials in DAR are more committed and transparent thanks to the READ program. “Before the DAR did not give us the correct information – they also asked us to come back again and again. Now, they are cooperating, sometimes they even ask farmers and interview them about specific case. They are more open towards us. They did not even have contact before to us orginary farmers.” “Sometimes they even use us as excuse to the landowners – they tell them they have to decide in our favor because of us and our strengths.” Of course, not all the officers have changed their behavior, there are still a lot of problems according to the perception of PDI and the POs, but considerable improvements have been achieved. However, the favorable policy environment influencing the successes of PDI and NMGL is currently mainly confined to policy processes involving the DAR. These impacts and changes have not only been identified by the farmers, but also confirmed by the DAR officials interviewed. They even acknowledged that DAR still has problems with corruption, but also that it has been improved considerably due to the new leadership at regional level which contributed also to the mentioned impacts. However, according to them also the political will from the top level alone would not have been able3 to achieve what has been achieved now with the help of POs and PDI. DAR appreciates POs and PDI because they help to achieve the DAR’s objectives.

3

Accelerated and more complete law implementation

Thanks to the intervention of PDI and the POs, more areas for land distribution have been identified and the distribution of titles has been achieved faster and/or with increased quality thanks to the improved behavior of DAR. Also, the exposition of anomalies surrounding the distribution of 12,000 hectares of land in Zambales was corrected leading to the redistribution of these lands to legitimate beneficiaries. In Tarlac and Pampanga, the discovery of un-distributed CLOAs to legitimate beneficiaries led to appropriate correction leading to the distribution of CLOAS to rightful beneficiaries. 4

The gap between farmers and DAR has been narrowed – breaking of old alliances

Before the intervention of PDI and also in the first years, the farmers perceived the DAR officials to be sided with the landowners. They were hardly accessible and their position was far away from the farmers’ point of view. Today, the picture has changed considerably. The “distance” between DAR and farmers has been reduced considerably. At least as important for farmers simultaneously is that many of the old alliances between DAR officials and resisting landowners have been broken or at least the distance has increased allowing DAR to take a more neutral position. This can be attributed to a large extent to PDI’s intervention mainly due to the use of the dialogue oriented approach and the institutionalization of SCAT the tripartite negotiation forums. “Each week we go to the MARO. Before we were fighting, now we discuss.” “Before we were not assisted by the DAR. Now, after the support from PDI and the negotiations we are assisted by DAR. They are doing their job, however, there are still some in DAR who are corrupt.” 5

Mobilization and redirection of services and budgets in favor of program beneficiaries

The READ program’s strategy of enabling peop0le and the POs to constructively work in the development bodies has allowed their active participation in local development councils. They were able to influence the allocation of local budgets and to increase transparency and accountability of council decision 30 . Aside from 30

In Nueva Ecija and Bulacan, women’s organizations were able to increase their resources due to infusions from public resources. In Angeles City, the local legislators allied to NMGL are now suspended by the City Mayor because of their opposition against lack of transparency and misplaced allocation of budgets. Another example is the farm-to-market road that was constructed in Morong, Bataan, along with a solar dryer. In Barangay San Isidro, Laur, Nueva Ecija, a farm-to-market road also was built while the construction of a communal irrigation system is ongoing. In Botolan, Zambales, major government line agencies pledged support and assistance to the local peasant federation composed mostly of Aeta. The Municipal Agriculture Office promised to give them seeds at a subsidized price; the provincial office of the Department of Trade and Industries agreed to help them in marketing their

the fast-paced development of LTI cases, the government also initiated several infrastructure projects in areas with strong PDI-PO partnership. However, these impacts are only punctual and changes are only beginning and have not yet taken place on a larger scale. Nevertheless, these small changes constitute examples for other farmers to organize themselves and to take action to defend their interests. The gains achieved in political participation are more distinct at the village / Barangay level. They still depend largely on the political will and on the individuals in the government structures. 6

Land use policy changes in some cities and municipalities

There are significant policy changes at the level of local governments particular to certain municipal and city governments where PO and NGO influence is stronger. The productive endeavors of farmer beneficiaries allied to NMGL have induced the LGU to declare some agrarian reform lands as “food baskets” that are protected by local laws. In Bulacan, farmers claimed a property for land distribution, but there was the intention of the land owner to convert the land. In Angeles City (Pampanga), the successful struggle of BAFA people’s organization is partly attributed to the resolution of the Sangguniang Bayan (City Council) to declare the claimed property as agricultural land. This impact is significant, especially for rapidly urbanizing areas like Bulacan or Angeles City where agricultural development tends to be sidelined by biases towards commercial and industrial development. In general, some LGUs are challenged by the example of collaboration of PDI with POs and the success of collaboration. Sustainable development issues are being more and more discussed, but it sould be too early to talk about the achievement of considerable impacts, except for some specific places. 7

Public consciousness about good governance has increased

Through the work of PDI and the people’s organizations on law implementation, transparency and good governance, a general increase of consciousness about good governance among the farmer’s communities (civil society) and in government has increased. 7.3.9

Spill over effects

The wider effects of the program are perceivable but cannot accurately be measured. The successful LTI struggles jointly waged by PDI, NMGL and the DAR have benefited not only members of the POs allied to NMGL and PDI but also other products; the National irrigation Administration together with the Office of the Mayor guaranteed proper irrigation to their farms. Other examples are the allocation of a budget for a day care center or more classrooms for school.

farmer-claimants who are not organized or who are not even sympathetic to NMGL. These struggles have also provided proof that struggles against big and well-entrenched landowners can be won. The combined effects of the success stories and wider benefits have increased awareness among other farmers. Potential beneficiaries of agrarian reform who have traditionally been reluctant to claim their rights are now encouraged to do so. In Angeles City, Pampanga, 64 farmer-members of the Margot Multi-Purpose Cooperative (MMPC) are now working hand-in-hand with NMGL for the acquisition of the 164-hectare Lutgarda Property which is adjacent to the Limcauco Property which has been won by BAFA. Furthermore, the economic projects undertaken by women groups, particularly the pig raising, are very attractive also to other women who are not yet members of a PO.

7.4

Poverty orientation and contribution to International Development Goals and the German Government’s Program of Action 2015

The main questions in the TOR for this chapter have already been discussed. Consequently, this is a summary of the main points concerning the poverty orientation of PDI’s READ program. The poor are part of the target group (see also chapter 5.1.4, page 35). They are key actors in the planning process of the program (see also chapter 5.3.2, page 40) and in implementation. PDI designed the program to be sustainable through the empowerment of the people. These ideas of PDI’s program are also reflected in the evaluation itself where almost half of the evaluation team was composed of representatives of the target groups (see methodology, page 2 and Annex, page 3). According to PDI, poverty is inequality in asset ownership and marginalization due to lack of access to education and basic services and due to displacement owing to natural disasters. The programs’ poverty orientation is indirectly structural with aspects of direct poverty reduction by increased asset development and economic programs. The poverty orientation is expressed in the following strategies: • • • • •

To empower the poor by assisting in organizing them, building up their own people’s organizations and federation at regional level. To empower the poor by training and capacity development for the analysis of their situations and identification and defense of their interests. To improve the control of production factors in agriculture (land) by the poor – land tenure improvement for sustainable development. To empower the poor to participate in decision making processes at local and regional level. To influence decision making of the government in favor of the interests of poor by lobby work and advocacy.

•

To enhance opportunities of women for income generation activities.

Important values and principles in the implementation of the READ program are participation and the self-determined development of the poor. The program contributes to the Program of Action 2015 of the German government; however, the contribution can not be assessed in quantitative terms (see also chapter 7.3.5, page 61).

7.5

Ecological impact

PDI’s vision of building self-reliant communities is grounded on a well-balanced and sustainable environment. Consequently, PDI is committed to environmental issues and environmentally friendly agricultural development. There is evidence of more favorable that negative effects of the READ program on the environment: Trees and permanent crops are usually planted and are replacing annual crops in hilly areas to some extent and thereby reducing erosion. Reforestation projects also exist. Low External Input agriculture and organic agriculture are being practiced, in particular by the Aeta in Zambales: making compost from animal wastes, mixed cropping, use of organic fertilizers and minimization of pesticides. Risk avoiding trials to prepare shift to organic agriculture: Instead of modern rice cultivation, one PO tries to grow organically sweet corn and rice on small plots. Sloping Land Agricultural Technology is being practiced in one upland village. However, intensive vegetable cultivation in areas close to cities goes hand in hand with the use of synthetic fertilizers and pesticides. In general, the READ program does not constitute any risk to the environment of the program area. It cannot be stated to what extent positive impacts have been achieved or can be expected in future.

7.6

Sustainability

7.6.1

General Conditions

The LTI achievements of PDI and NMGL have been achieved in areas where there are strong organizations of farmers and where the two9 have forged effective partnerships with the DAR. In certain areas, these successes occurred under conditions where landowners allowed some areas to be carved out their vast holdings or where local authorities provided policy support for retention and protection of remaining agricultural lands. The current success of the program has been achieved under specific conducive environments, in particular: •

The existence and concept of AR including the availability of public / government resources,

• • •

The political will to implement AR, Favorable attitudes and behavior of DAR personnel in the implementation, Readiness for dialogue.

It is important to mention the PDI has brought about these favorable conditions to a large extent through lobbying work at all levels, through the “new actor” on the scene, the POs and NMGL, and thanks to its access to the director’s level of DAR which has also influenced the concept of AR. Finally, the site-specific design of smart strategies of engagement between PDI, NMGL and the DAR also contributed to a high degree. However, this environment is not reflective of a general positive transformation within the DAR, local governments or the land-owning class. Experience shows that positive conditions need to be created under specific circumstances and configurations of actors involved in the struggle. There is the risk that the political will to implement AR can change. There are also indications, in fact, that the remaining private agricultural lands will be harder to redistribute due to insufficiency of public resources to compensate landowners and the upswing of land prices inducing landowners to either hold on to their properties or negotiate with market based actors to gain a higher value for their land. This landlord attitude is supported by general policy trend among local governments to move towards commercial and industrial development as the fastest route in generating revenues for their territories. This poses the challenges: • • • •

7.6.2

To identify appropriate economic strategies for utilization of lands which have already been acquired and develop sustainable development perspectives for local units beyond individual farming families. To orient PDI’s and NMGL’s lobby work in future more towards influencing government policy in favor of appreciating the role of agriculture in local economies. To involve local government (and as far as possible landowners) in the SCAT discussions and to enhance the POs influence in LGUs. To continue lobby work and advocacy fo9r the implementation of the AR according to the law. Program Partner Organization

Today, PDI has a name and reputation even at national level. All the DAR official at local to regional level appreciate PDI because it helps DAR to achieve its objectives concerning AR. NMGL is also appreciated as a federation of POs, but their name and reputation still depends very much on the support they receive from PDI.

The capacity of the implementing organization PDI is expressed mainly by the achieved results and impacts (see above). Consequently, it can be expected that PDI will achieve its objectives. Concerning the sustainability of PDI, it has never been an organization which has intended to be self-reliant. PDI as an NGO and in particular its programs depend and will also depend in future on external funding organizations. If the level of quality will be maintained, the evaluation team is confident that it will not be difficult to find appropriate partners for the implementation of subsequent programs. 7.6.3

Target Group

The program has a high level of acceptance among the target groups because it directly responds to the peasant demand for land. It also addresses the issue of economic and political marginalization owing to lack of democratization in the distribution of the nation’s wealth which influences the marginalization of the poor from political governance. All the results of the evaluation indicate a high level of participation among the target groups. The breadth and depth of participation is relatively higher in the LTI struggles. Here, sometimes the people’s organizations have achieved a level of autonomy whi9ch rather makes PDI participate in the POs activities. Considering the participatory character of program planning and implementation, the question of acceptance does not even apply to the READ program. 7.6.4

The sustainability of the impacts

According to the understanding of the evaluation team, sustainability of impacts are achieved if benefits will be continued to be effective for a long period. For organizations it means that organizations continue working and producing benefits/effects without further external support. Good Governance was understood as the rule of law, participation of the concerned, utilization of funds according to rules and regulations, transparency and accountability of decision making process and of management. Sustainability is expressed if participation of concerned people in governance and decision making is institutionalized without depending on individual persons or the current political will. Empowerment impacts Those POs who are still fighting to acquire land can sustain their struggles because of the knowledge and skills acquired through the support of PDI. The POs have acquired sufficient capacities and status to become relevant players in the communities. Land cases won in other areas serve as inspirations in the hearts and minds of the farmers. They are able to run their organizations independently from PDI. They have also raised their stature and influence because of the regional formation under the banner of NMGL.

However, there is a considerable gap of capacities between frontline-leaders and PO members. The POs still require negotiation skills as well as guidance and orientation for strategy development in order to be successful in negotiations. Support still is required for the further federation building process and the deeprooting of values as e.g. democratic principles, transparency. The name and reputation of NMGL still depends to a large degree on the close relationship with PDI. Also the question of an own resource base for the POs and NMGL has to be addressed. For full independence from PDI, the evaluation team also saw the need to increase awareness and the information level of POs and NMGL on national and global processes and issues. There is also a need to thicken the ranks of second liners, especially from among the youth. The present depth of leadership qualities is not yet prepared for immediate turnovers because of the big gap between the first liners and second liners. The linkage work of exchanging and using experiences from one case to the others is actually organized by PDI. There is the challenge for the POs to be more and more active and managing also the exchange of experiences within NMGL. “We have achieved some steps in the vision to achieve self-reliance, but there are many more steps to go for us (and for the support of PDI)”. “PDI is the mother and we are the child.” The consultant asked the question about the age of the childe. It was answered “it has just started to walk” from some, others mentioned “grade one, young child”. Even others expressed “we are no children any more – we have been provided with land!” Poverty Reduction impacts Those who have acquired lands can now use their asset to leverage resources and devise strategies of improving their productivity and incomes. Nothing can be sustainable than the land titles as such. However, there is the risk that landowners might be tempted to sell their land for short term benefit due to several threats. The sustainability of increased food security at family level depends largely on the land ownership of the families. • •

•

There is a lack of strategies of sustainable land development. Agrarian reform beneficiaries are facing big risks in sustaining their gains due to the adverse policy environments at the level of local governments. Many LGU are determined to raise revenues from external investments rather than development of agriculture. Trends in land reclassification and land conversion have provided more impulse to land speculation which creates disincentives for agricultural development. Consequently, there is the challenge to enhance the ability of the POs to negotiate with local governments to provide appropriate policy and material support for agriculture and land development. There are also limitations concerning the CARP. Small farm sizes below 2 ha will not be a sustainable resource base for families with five or more children.

The political will to develop the small holder agricultural sector and provide financial resources is not perceived. In addition, there is the pending bill in congress to allow FB to use their newly acquired land as collateral for credit, something that would be the beginning of the end of AR. There are concrete advances with regards to sustainable human development, especially around knowledge and skills that have been acquired through PDI assistance in literacy training in leadership and management and scholarships. The increased literacy level (formal and non-formal) in particular for the Aeta can be seen as one of the most sustainable impacts of PDI’s program. Sustainability of good governance impacts External conditions are still generally adverse to the interests of small farmers, especially those who are still struggling to acquire lands. The expected growth of new agrarian institutions arising from the CARP has fallen below expectations. There is little time left to fully mobilize the spirit of the agrarian reform law. Current development policy depends on the government and its priorities on agricultural development instead of industrialization. As the future of the entire agrarian reform also the SCAT depends on the current political will and the quality of the organizations making claims to the land. Policy changes at the local government level are still confined to certain localities where PDI and the POs have strong influence and where reform-minded government officials are willing to cooperate. These changes are still vulnerable to shifts due to political turnovers. Institutional change remains a formidable task. The gains achieved in changing rules in agrarian relations and improving the behavior of the DAR, local governments and landowners are still very fragile and are vulnerable to sudden shifts in the external environment. Sustainability of Diffusion Impacts There are insufficient means to measure the sustainability of diffusion impacts. The sustainability of the wider effects of the program among unorganized farmers is still dependent on the capacity of the POs to expand their membership rather than the spontaneous attraction of unorganized farmers to the POs. According to the perception of the evaluation team, the further quantitative expansion of the federation depends to a high degree on the future support of PDI.

7.7

Cost benefit assessment

The cost / benefit ratio has to be realized in the context of the objectives and impacts of PDI’s program. Although economic gains are achieved, other factors such as social and political ones should also be considered. The benefits can not be

viewed solely from a financial perspective. It is evident that the character of this assessment is qualitative. Different approaches are realized to appreciate the cost/benefit ration of the READ program. the economic benefits and the political benefits which can not be valued in economic terms are compared to the cost of the program (analysis within READ) the cost of the program as well as the benefits are compared with other programs 1.

Comparison of benefits and costs of the READ program

The total cost of the READ program for three years is about 613.550 Euro. Until the period of the evaluation, about two-thirds of the budget had been spent (400.000 Euro. Certainly, it is impossible to value the impacts economically. However, for the purpose of comparing these costs with other programs, the following calculations are carried out in order to give a rough impression about some economical features. Taking the 59 POs with 2.501 members, about 6.800 Euro have been spent for each PO or 160 Euro for each member family (or about 27 per person). In terms of land, 420 Euro have been spent for each beneficiary for almost 3 ha of land each. The program costs are marginal compared to the total value of the transferred land with a market value of between 25 and 50 million Euro 31 . In addition, the distribution was done without so much violence or loss of life. Considering the impact on empowerment, poverty reduction, gender relationship and in particular also on political participation, the costs seem very reasonable as the impacts concern much more than only the beneficiaries of land transfer and the PO members. Certainly, the costs of previous programs also need to be considered; on the other hand, the 2,000 hectares of land cases already in the pipeline are not accounted for. None of these comparisons are a sound basis for a cost benefit analysis. However, together they confirm the general very positive assessment of the evaluation team between the costs of the program and its benefits. 2.

Cost effectiveness of the READ program compared to other programs in agrarian reform implementation

The READ Program provides evidence that the utilization of strategies sensitized to objective conditions can effectively enforce land reform in big private agricultural lands at less cost compared to other past and current strategies. The approach used by PDI and NMGL is much more effective and less costly than the 1989-1995 Tripartite Partnership for Agrarian Reform and Rural Development 31

A total of 2.953 hectares were provided to 985 farmer-beneficiaries. The value is based on the price range of PHP 500.000 PHP 1 million per hectare.

(TriPARRD) Program implemented by PhilDHRRA, one of the biggest NGOs in the Philippines, with the support of foreign donor agencies. The program was implemented in only 3 provinces (Antique, Bukidnon and Camarines Sur) at a cost of more than PHP 130 million (almost 2 million Euro). At the end of the term, the program was able to distribute more tnan 9,000 hectares of land. But these lands were mostly government-owned lands that would have been distributed without any cost to farmer-beneficiaries and NGOs. In comparison, PDI and NMGL are dealing with private agricultural lands owned by big landowners who have traditionally resisted agrarian reform by all possible means. Other NGOs and POs allied with the communist underground propose models that are costly in terms of social trust and the physical security of farmer-claimants. Anchored on the political call for genuine agrarian reform, their model of reform basically rejects the legitimacy and efficacy of the CARP. Thus, the utilization of this model effectively negates the value of dialogue and negotiated solutions to land transfer problems. Thousands of farmers caught in this approach have already lost their lives during several decades of armed insurgency.

8

Recommendations

Program-related recommendations 8.1

Recommendations to the POs and NMGL

The following challenges for the POs and NMGL sere identified in the evaluation: ¾ To consolidate the strengths of the POs and federation by increasing the independence from PDI. This refers also to the development of second line leaders, the enhanced exchange of experiences within the federation, the strengthening of democratic values and the economic development of the structure, putting more emphasis on gender issues and geographical expansion. ¾ Widen the scope of action and services in order to respond to the demand of members and changing situations (obtained land security). This refers mainly to expand activities to other areas of concern, in particular land development and sustainable rural development. ¾ To expand lobbying and advocacy work from village level to municipality, provincial and regional level on LTI and sustainable land development. ¾ To remain independent from political parties and other influential persons and groups.

8.1.1 Further develop strength and capacities of the organizations and the federation and enhance self Vision development -reliance as well as independence from PDI Whereas many leaders of the NMGL see themselves as political actors committed to participation in social, economic and political affairs, the majority of the members of the people’s organizations are more interested in the economic betterment of their lives. This is certainly not a contradiction, but a clarification of the synergies would give more moral strengths and orientation to the organizations. Consequently, it is recommended: • • •

to initiate a NMGL-wide discussion about relations and synergy between POs as political forces to effect change for development as well as economic development for farmers, to initiate a process of clarification of the vision and objectives (vision development process) starting at the “bottom-level” of the people’s organizations, to synthesize the POs’ visions to a jointly shared vision of NMGL (federation) for orientation.

This process will also allow the clarification of the self-understanding of NMGL and the POs. Capacity development of leaders and deep-rooting of values A gap has been observed in the capacities between leaders and members concerning the integration and living of values within the organization. Furthermore, the negotiation skills and development of negotiation strategies by the leaders are not yet sufficient to continue negotiations without the support of PDI. In order to increase independence from PDI, it is recommended: • •

• •

to put particular emphasis on the development of second line leadership through management training and training on the job, and to give attention to the youth leaders, to put more emphasis on value formation within NMGL and the POs. Value aspects also concern internal management style, resolution of conflicts, application of democratic principles, accountability of PO and NMGL leaders, control of leaders by the members, etc. It is recommended to put more emphasis on these aspects e.g. through discussion in meetings and periodic self-evaluations in order to increase the strength of the organization and to ensure the application of the principles of food governance internally, to increase capacity in legal action and negotiation through paralegals and establishment of a legal information service, to enhance information and awareness on national and global processes and issues.

In addition to PDI as the main provider for capacity building training, other forms and sources of training should be identified, e.g. by tapping and using the services of other NGOs and line agencies of government. Increase financial independence and self-reliance The people’s organizations and NMGL have their own capital, but the current level is too low for an expansion of activities. It is recommended to establish a resource base for NMGL which allows it to function and act more independently from PDI through e.g. a campaign for capital build up and savings mobilization, external resource mobilization, external resource mobilization and a reflection on how the federation can function sustainably in economic terms. This reflection should consider the relevant challenges to POs and NMGL, in particular the results of vision development process (see above), internal capacity development, lobby work, geographical expansion, etc. Geographical expansion Farmers in areas where NMGL is not present (within Central Luzon) have indicated interest in establishing people’s organizations and joining NMGL. It is recommended to expand the area of influence through organizing farmers around LTI, ARRD and sustainable livelihood development. This recommendation refers to chapter 7.1.1 and 7.6, pages 53/72. 8.1.2

Enhance engagement at municipal and city level in sustainable land development and livelihood

Certainly, the areas of action will depend on the results of the vision development process. According to the discussions during the evaluation, the following aspects can already b e stated. It is important that the POs and NMGL continue to be active in organizing farmers and struggling for farmers’ interests in land tenure improvement (LTI). In addition, two direction are recommended: ¾ Concerning the issues: Beyond LTI, NMGL should develop areas of action for Agrarian Reform and Rural Development (ARRD) and be active also in Sustainable Land Development and Livelihood e.g. through lobbying, defending interests and participation in decision making. This is important for those members who have already obtained land security in order to have a perspective of how to use the land and to reduce temptations to sell the land for short term benefit. ¾ Concerning the level of action: The gains achieved in political participation are up to now most visible at the village level. This poses a challenge to the POs to upgrade their level of engagement and participation at the municipal and city levels where the most important concerns of farmers such as land use policies and budget allocations for agriculture are deliberated. In an enhanced cooperation

with other partners at provincial, regional and national level, the experiences of Barangay, municipal and city level could be exchanged which will in turn benefit advocacy, networking and coalition building around ARRD. This recommendation refers to chapter 7.3.8 and 7.6, page 65 / 72. 8.1.3 Strategic development of services for members In order to be more attractive for members, a reflection process is recommended as to what extent additional services and activities could be carried out for members and member POs. Several ideas were produced during the evaluation; however, it was not clear to what extent these are really feasible and what kind of services should rather be carried out by cooperatives. Some of the ideas include information and training, as well as facilitating the exchange of knowledge between members. The relevant contents comprise: •

livelihood development, sustainable land development and farming systems development (organic farming, diversification through agro-forestry development, integration of animal husbandry, inter-cropping etc.),

•

competitive marketing and post-harvest commercialization) as well as input supply,

•

entrepreneurship,

•

development management.

facilities

(processing

and

This recommendation refers to chapter 7.1.1 and 7.6, page 53 / 72. 8.1.4 Put more emphasis on gender issues Gender awareness is increasing, but is limited to first line leaders. There is a need to promote it on a wider scale. It is recommended to promote the equal rights of men and women at the household, PO and community level. The development of a gender program, training curriculum and the conduction of gender sensitivity trainings can be a starting point, however, it is more important to have a reflection at the level of values, attitudes and behavior within the organization e.g. during regular meetings and in periodic (self-) evaluations. It is self-evaluation that these measures do not only concern women, but should also be addressed to men. This recommendation refers to chapter 7.1.1, page 53; chapter 7.1.2, page 55, 7.3.3, page 60; chapter 7.6 page 72.

8.2

Recommendations to PDI

The main challenges for PDI are the following:

• • • •

Continue the support to NMGL and POs by putting more emphasis on increasing their self-reliance and independence from PDI. Develop further areas of action beyond the LTI as a long-term perspective for PDI: Sustainable Land Development and Livelihood. This concerns the further development of economic support services for the economic development of the land acquired through land reform. Legislative Lobbying and Good Governance. There is a potential that, through more participation of citizens, resource allocation and policy decisions can be influenced. ¾ Integrate more systematically gender issues into the entire READ program of PDI. ¾ To develop support for youth as important political actors in future. ¾ Increase the strength and independence of PDI by development of secondline managers and a management information system.

8.2.1 Continue support to POs and NMGL to enhance their degree of independence and self-reliance To continue to provide support to the POs and NMGL The POs and NMGL require further support for the consolidation of the organizations and to enhance their ability for action, in particular in LTI lobby work and advocacy. It is recommended that PDI provides support in all the aspects mentioned under the recommendations to POs and NMGL in chapter 8.1, in particular: •

• • • • •

Deep-rooting and living of democratic a\values within NMGL and the POs through discussion in meetings and periodic self-evaluation in order to increase the strength of the organizations and to ensure the application of the principles of good governance internally, Increasing the management capacities of the POs and the development of second line leadership, also of youth, Enhancing the economic independence of the NMGL and POs, or at least reducing dependence on PDI, Widening the scope of action and services, in particular land development, sustainable rural development, and entrepreneurship, Expanding lobbying and advocacy work from village level to municipality, provincial and regional level on LTI and sustainable land development, Supporting POs and NMGL in remaining independent from political parties and other functioning of the organization,

•

Conscientizing the youth to lobby for peasant rights: more broadly, to promote the social, political, cultural and economic rights of the poor (not only peasants but also women, indigenous peoples, children, etc.).

Systematic assessment of PO capacities in periodic self-evaluations to ensure selfdetermined capacity development by the POs A more systematic assessment of PO capacities should be carried out in order to ensure the increasing autonomy of the POs by further reducing the support of PDI to each organization. As the situation and capacities of the POs are very different and the period of support varies considerably between the provinces, it is important to develop guiding principles which orient PDI’s support to each PO. This should enhance their self-determined development and ensure the direction towards self-reliance. Therefore, it is recommended: • • •

•

To demand from the POs and NMGL an identification of their needs for capacity development / training, That the POs and NMGL carry out periodic (annual) self-evaluations defining their strengths and weaknesses and the priority areas for capacity development. These evaluations can be facilitated and assisted by PDI, That the support of PDI to NMGL and POs is subject to periodic joint evaluations which should result in agreements about the roles and tasks of each partner. A monitoring of the agreements will facilitate to follow the decreasing importance of PDI compared to NMGL/POs in the process of cooperation, To carry out a reflection in PDI about the required capacities and elements for self-reliance of POs and NMGL. This would be a guiding framework for the evolution of the NMGL/POs and the support given by PDI. The development of steps or categories can be a starting point; however, in reality there is not one standard way for the evolution of POs.

This recommendation refers to chapter 7.1.1 page 53; chapter 7.3, page 57; chapter 7.6, page 72. 8.2.2

Develop complementary areas of action

Sustainable Land Development and Livelihood – strategies for utilization of lands The work of PDI is presently very much related to the Agrarian Reform (AR). The continuity and future of AR depends, however, on the political will. The evaluation team recommends to PDI to develop complementary areas of action in order to contribute to the availability and application of strategies for the utilization of lands which have already been acquired. This is simultaneously: ¾ A strategic orientation to reduce PDI’s dependence on AR and to use its experiences and strengths for other important areas of concern outside AR.

¾ A response to new challenges to develop and use the acquired land sustainably for income and the livelihood of the farmers. Attention has to be given also to the role of off-farm income development in rural areas 32 . This requires long term planning to ensure financial viability and to mitigate potential conflicts within the family with regards to land use. Much more conceptual efforts have to be undertaken which go far beyond an upgrade in quantity and operationalization of the ESS/SPF in order to achieve the objective of sustainable and self-reliant income for families and communities. The roles of PDI PDI is not in the position in all cases to identify appropriate strategies, but the role of PDI seen as following:

32

•

To influence changes in local government policy in favor of the role of agriculture in local economies. As a consequence, partnership and negotiation strategies between PDI, NMGL and the DAR should be broadened to directly involve local authorities and landowners (of course where it seems appropriate – not as a standard solution). This means upgrading the current level and location of PDI engagements in local government bodies, and also promoting the active involvement of POs in their respective local government bodies.

•

To assist the organizations of farmer-beneficiaries in developing perspectives for farmers having achieved land security through e.g. preparing investment and business plans as well as providing marketing assistance by exploring market linkages, networks, etc. and to identify organizations ready to undertake business and facilitate the exchange of experiences. Assist PO in a reflection on their capacity and appropriateness to support and carry out economic ventures.

•

Develop trainings or identify training providers on relevant issues: livelihood and sustainable land development, competitive marketing, entrepreneurship, development management, etc.

•

Upgrade the administration of the Small Project Fund in regard to the clarity of the calculation of interest rates and the monitoring of the repayment / revolving fund. Savings for the capital build-up of the PO’s and cooperatives should be monitored along with the credit fund. There is also need to clarify institutional aspects of savings and credits 9for more details, see Annex 5.3, page 48 and Annex 5.4, page 50).

•

To upgrade mobilization of other external resources, including those that may come from the private (business) sector through mutually-beneficial supply

In many cases, farm income from the actual farm sizes alone is not enough for entire families. This will be worse when ownership of small-sized lands will be inherited by a family of 5-6 persons.

contracts or marketing arrangements. To mobilize economic support to small owner cultivators. •

Develop awareness and responsibility of farmers to protect land security.

•

Initiate a discussion among POs and NMGL about savings and appropriate financial organizations and institutions which can provide credits for land development and economic activities ensuring the access of farmers to these credits and to make farmers bankable.

•

Development of music and poetry for advocacy, also in other areas of concern: ARRD, Sustainable Land Development and Livelihood as well as Legislative Lobbying and Good Governance.

This recommendation refers to chapter 6.1.3 page 44; chapter 7.1.2 page 55; chapter 7.3, page 57; chapter 7.6, page 72. 8. 2.3 Enhance lobbying at all levels The gains achieved in political participation and power relations in Agrarian Reform are still very fragile and are vulnerable to sudden shifts in the external environment. There is a need to further consolidate achieved institutional changes in DAR and to increase advocacy and development of counter measures against vested interest groups through a variety of methods PDI is using already. PDI should enhance its presence in the local government units’ legislative forums. However, PDI’s policy advocacy and lobby work should not be limited to the local level engagement: work at the national level should continue. This recommendation refers to chapter 7.3.8, page 65 and 7.6, page 72. 8.2.4 Increase the strength and some management aspects of PDI The evaluation did not mention negative aspects of the management of PDI. However, some space for improvements, were identified and responses for future challenges discussed. These concern mainly three aspects. ¾ Development of a second line leadership in PDI. Many of the strengths of PDI depend on the person of the Director. However, this is simultaneously a weakness as PDI and the READ program depend to a large extent on the Director. There is a considerable gap between the director and staff / second-liners in terms of capacities, management responsibilities and relations to other organizations. It is recommended to put more emphasis on this aspect in future and to systematically develop staff for management tasks in the organization. ¾ Systematize efforts in research, monitoring and evaluation. The evaluation recommended:

• •

To establish a management information system (MIS), including a data bank of the photo, audio, visual, etc. materials. To develop a monitoring and evaluation system putting emphasis on the achievements of impacts. The formulation of appropriate indicators 33 and the focus on the most relevant aspects which would reduce the number of indicators would facilitate considerably a monitoring which assist the management of the program. This is not contradictory to a participatory approach when indicators are formulated by or with the respective target groups in a bottom-up planning process.

This recommendation refers to chapter 6.2.2, page 50 and chapter 6.3, page 51. 8.2.5 Enhance the integration of gender issues into all aspects of READ program PDI has already recognized the need to put more emphasis on working with women. This insight was confirmed by the analysis of impacts. A lot of space exists in AR to increase gender equity. Significant attention is required in defining the coownership role of women in distributed lands and in securing the succession of ownership at the household level. Also in regard to PDI’s strategies and actions, gender issues should be given more emphasis and the gender orientation of the program requires more clarity. It is also recommended to influence the wider social environment regarding gender equality since it is feared that the gains made within the organizations will not be sustainable if the surrounding society doesn’t share the values and practice of gender equality. It was unanimously agreed in the evaluation that gender should not constitute a separate activity or program, but that all the other programs and activities should consider and respect gender issues. Particular importance should be given: • • • • • •

33

To ensure land titles are not only given to men but that both, men and women are mentioned with the same right to the land (co-ownership role of women), To enhance participation of women in training and education for the POs, To ensure women’s capacity development for front-liners and second line leaders in POs and NMGL, To integrate gender in the monitoring and evaluation system of PDI, To identify needs/problems/opportunities and the threat to gender equality, To develop the economic capacities of women by appropriate economic support to identified women’s IGP, and to enlarge these programs to men also. Care should be taken that ESS is not an additional program for women to compensate because women are less involved in political empowerment,

Monitoring is facilitated by the formulation of indicators answering the following aspects: What (parameter), who (people concerned0, where (area), when (date, time span), how much (quantity). The indicators should contribute to a better orientation of the program but not reduce the flexibility in implementation (see 9.7, page 102).

• • • • •

To policy advocacy fro their socio-economic and political rights through lobby work training and education on gender equally at all levels, To enhance women’s participation (involvement) in local governance, To the consolidation and expansion of peasants women’s groups in the areas of operation and the formation of a peasant women’s federation, To enhance participation (involvement) of women in all internal decision making processes of the people’s organizations, To enhance women’s active involvement in future farm and land development issues in order to increase women’s participation in farm development and decision making.

This recommendation refers to chapter 6.3, page 51 and chapter 7 from page 53. 8.2.6 Carry out reflections on geographic expansion with funding organizations PDI should also expand its support to new areas as defined by the POs and NMGL; however, more and more responsibility should be assumed by the POs themselves in the evolution and expansion of the structure in geographical terms, capacity and quantitative development. For the remaining period of this program phase, the priority should be given to the work on good governance and sustainable livelihood development; in addition, the evaluation team also identified a potential to expand P-DI’s activities into other geographical regions. It is recommended to concentrate for the rest of this program period on the present funding organizations should be involved in this reflection as a geographical expansion also would require an increase in funds. This recommendation is based on the achievements presented in chapter 7, page 53.

8.3 Recommendations to EED/EZE Continue support to PDI and maintain space for flexible implementation according to common objectives Based on the achievements of PDI, it is recommended that EED/EZE continues its support to PDI. It is evident that empowerment programs such as the READ program need long-term support. Being an important factor for success (see chapter 9.2.10, page 97), sufficient space for flexible implementation by PDI should be maintained. This recommendation refers to chapter 6.2.3, page 50, chapter 6.3 page 51 and chapter 7 from page 53. Emphasis on impacts, perspectives and development of second liners In the cooperation and dialogue, EED/EZE should encourage PDI to put more emphasis on impact in its management and reporting system. The formulation of

“milestones” of the development process within and also beyond the present program phase could render implementation by PDI and accompaniment of EE/EZE more effective. In addition, the development of second-line leaders should received particular attention in the dialogue between two partners. This recommendation refers to chapter 5.2.1, page 36, chapter 5.4, page 41, chapter 6.3 page 51 and chapter 7.6.2, page 73. Consider expansion In light of the achievements of the READ program it seems desirable to expand it to other geographical areas. However, the evaluation team suggests that priority is given to the consolidation of the empowerment of POs and NMGL in Central Luzon and to the development of complementary areas of action, in particular land development and legislative lobbying. Once these respective objectives are achieved, an expansion of the program – with increased funds – should be considered. According to PDI, the amount of EED/EZE funding should be related flexibly to the quality of the partners’ work rather than fixed ceilings for each organization. This recommendation is based on the achievements presented in chapter 7, page 53. Use experience of PDI for lobbying, education and PR ‘in the North” and for the dialogue between South and North It is recommended that EED/EZE should use lessons of the READ program for other programs in similar fields as well as for lobbying, education and PR in Germany and ‘in the North” in general. Partners like PDI can make valuable contributions to the dialogue between South and North by authentically explaining and conveying perceptions and perspectives of the civil societies they are part of. Such deliberate attempts at linking projects in (and actors from) the South systematically with activities and actors in the North will further gain in importance 34 . This was an idea produced in the evaluation process which is not directly based on a finding of the evaluation Reflection on criteria of success as decision criteria for funding programs The evaluation made evident that the success of PDI’s program depends on may factors, including clearly identified values which are being lived by management and staff, emotionally affected staff as a basis for a high commitment etc. (see chapter 9.8, pages 102-103). Most of these factors do not become evident from the 34

BMZ for its part has taken the necessary steps in 2003 by unlocking budgetary regulations in order to facilitate the granting of funds for such linkage activities. These adjustments take effect in the Ministry’s 2004 budget.

program proposal, but they are nevertheless important for EED/EZE decisions about funding programs. The evaluation team has not analyzed the procedure at EED/EZE for making decisions about funding a program. However, it could be interesting to learn from the present case and to reflect about the criteria for the selection of partners and programs which allow to consider these factors. This could contribute to further develop the basis for funding decisions and to orient the accompaniment of programs and cooperation according to key factors of success. This is not a recommendation but just an idea of the evaluation team.

8.4 Recommendations to BMZ Discuss evaluation methodology As stated in the introduction, this evaluation was carried out in a participatory fashion. However, participatory evaluation still seems to be an exception to the rule of conventional approaches and different opinion prevail what participation means in an evaluation. Since the evaluation team as a whole feels that this approach was in case very successful in terms of favoring learning and producing insights it is recommended that BMZ takes into consideration to create a platform for the exchange of ideas and experience on evaluation methodology in general and participatory evaluation in particular. Participatory evaluation methodology should be considered especially for the rest of the series of annual BMZ evaluation (2002-2007) of projects of the German Church Development Organizations. General Recommendations

8.5

Recommendations concerning the key questions of the sequence of evaluations

This chapter compiles the main findings of the evaluation concerning the 7 key-questions of the sequence of evaluation. 1

Which elements of the framework conditions can be considered to be favoring and hindering the interests of the poor, their organizations and the supporting organizations? Which possibilities have the organizations (People’s Organizations, NGOs) to influence and change these framework conditions?

The existence of the Agrarian Reform law and the possibilities to have elected seats in the Barangay and municipal council for NGOs and people’s representatives constitute the key favorable factors for the participation of the poor and the representation of their interests. However, there are manifold hindering factors:

corruption, unequal power relations, exploitation of the power of the landowners to defend their interests, etc. (see also chapter 4, 22). 2

To what extent has PDI achieved to enhance and enlarge the possibilities of participation of their target population at local, regional, national and international level? What kind of results and impacts have been achieved in this respect? Can the following impacts be observed in the program area - sustainable re-allocation of government resources, - change in the allocation process, and an increased transparency, - stimulus for sustainable development for the poor?

The following impacts in regard to participation of the target population could be observed (see also chapter 7.3.8, pages 65 – 70). Increased participation in decision making processes A

Farmers have become active – the POs as a new actor

Prior to the intervention of PDI, the primary beneficiaries of the program hardly had a voice in local politics and had extreme difficulty in claiming their rights to land. Equipped with sufficient information concerning their rights to land and to government services as well as the skills to directly negotiate with other actors of society, they pooled their strength through the organization in POs and a federation. Even if farmers had before been members of political groups or other POs existing in the Philippines for 40 years, the POs under NMGL can be considered as a new actor in the scene of agrarian reform and political participation as they began to exercise their role as a legitimate force in local civil society. They expanded their influence not only to other farmers but also to local authorities. The discussions revealed the increased autonomy of the POs to make decisions regarding their economic life. B

POs use meta legal tactics to influence decisions

The agrarian reform law has many loopholes. Although knowledge of the law through paralegal training has improved the capability of farmers in claiming their rights, legal processes are either circumvented or used by landowners to delay land reform. To compensate for the weaknesses of the legal processes, NMGL and its allied POs use meta-legal tactics in order to influence the pace of legal processes and swing decisions in their favor. These tactics take the form of mass mobilizations such as pickets, rallies and conduct of dialogues en masse. These tactics create a show of unity and strength that obliges DAR officials, local government authorities and landowners to listen to the voice of the farmers. NMGL also supports regional and national campaigns on peasant and agrarian issues launched by PDI and other civil society groups.

C

The POs and NMGL exercise vigilance regarding AR law implementation

Knowledge of the agrarian reform law has encouraged farmers to claim their rights. However, most often they were not effectively heard. This significantly changed when farmers, with the assistance of PDI and NMGL, were able to find information and uncover anomalies pertaining to CARP implementation. Mistakes were pinpointed and corrections demanded. PDI and the POs became active participants in agrarian reform implementation and the correction of anomalies. This important vigilance function of the civil society had not been assumed before the intervention of PDI. Presently, this function is assumed in more than 40 agrarian cases. D

Institutional discussion and negotiation forums through partnerships

The tripartite partnership of the DAR, NGO and PO has been recognized by the DAR since the mid-1990s with the creation of the Special Concerns Action Team (SCAT) (see also chapter 6.1.2, page 43). It shows the ability of the POs through NMGL to directly negotiate land claims with the DAR or to seek support from reform-minded local government officials. The DAR would like to popularize the model in all regions of the country. However, this partnership was not fully institutionalized in other regions and was mainly employed in the distribution of less contentious lands. The READ Program’s experience has provided evidence of less contentious lands. The READ Program’s experience has provided evidence that the tripartite partnership of government, NGO and the PO can also be effectively employed in the acquisition and distribution of contentious private agricultural lands. E

PO representation in elected positions in local governments at Barangay level

Seizing the opportunity provided by the Local Government Code and building on the successes of LTI struggles, PDI, NMGL and the POs constructively engage with government structures not only from outside but also from within the mechanisms and processes inside the various levels. Elective positions in local governments allow farmer-leaders to represent their organizations in legislation or in execution of government programs. Not only do they act as watchdogs in budget deliberations (exercise vigilance), they also exert influence in policy decisions, legislation, programming and allocation of resources. In some municipal development councils and Provincial Agrarian Reform Committees, PDI is the elected NGO representative. Impacts of the increased participation in decision making-observed changes A

Changed concept of AR implementation thanks to PDI’s experiences

PDI’s experiences in the Bulawen Resettlement Scheme influenced the DAR’s concept of Agrarian Reform implementation. PDI’s agrarian reform community model has

been adopted by the DAR and made it into an ODA-funded program called the Agrarian Reform Communities (ARCs). This approach has enhanced the efficiency of the public sector. Also the SCAT (see question 7) is already being implemented nationwide through a memorandum circular. B

Changed behavior of DAR in the program areas – increased transparency

PDI and NMGL have obliged the DAR to improve its behavior and to recognize farmers as active participants in agrarian reform implementation by the exposition of anomalies and by reducing asymmetry in information. There are significant changes in the behavior of the government, especially in the national, regional, provincial and municipal offices of the DAR particularly in the areas covered by the program. Many DAR officials and personnel used to be non-receptive to the demands of poor peasants, their organizations and even NGOs. They are now much more sensitive to the issues brought to their attention by organized sectors. DAR personnel now have time to discuss such issues with them. Concerned government agencies and officials are obliged to respond to issues and to take action. There is also evidence that the advocacy of PDI and the POs has led to support “friendly forces” in the government. Without the intervention of PDI and the POs, some forces within DAR would have been removed because of their “farmer-friendly” attitudes as perceived by landowners. More consciousness in DAR and more transparency of the implementation of AR has been achieved. Consequently, it can be concluded that government officials in DAR are more committed and transparent thanks to the READ program. “Before the DAR did not give us the correct information – they also asked us to come back again and again. Now, they are cooperating, sometimes they even ask farmers and interview them about specific case. They are more open towards us. They did not even have contact before to us ordinary farmers.” “Sometimes they even use us as excuse to the landowners – they tell them they have to decide in our favor because of us and our strengths.” Of course, not all the officers have changed their behavior, there are still a lot of problems according to the perception of PDI and the POs, but considerable improvements have been achieved. However, the favorable policy environment influencing the successes of PDI and NMGL is currently mainly confined to policy processes involving the DAR. These impacts and changes have not only been identified by the farmers, but also confirmed by the DAR officials interviewed. They even acknowledged that DAR still has problems with corruption, but also that it has been improved considerably due to the new leadership at regional level which contributed also to the mentioned impacts. However, according to them also the political will from the top level alone would not have been able to achieve what has been achieved now

with the help of POs and PDI. DAR appreciates POs and PDI because they help to achieve the DAR’s objectives. C

Accelerated and more complete law implementation

Thanks to the intervention of PDI and the POs, more areas for land distribution have been identified and the distribution of titles has been achieved faster and/or with increased quality thanks to the improved behavior of DAR. Also, the exposition of anomalies surrounding the distribution of 12,000 hectares of land in Zambales was corrected leading to the redistribution of these lands to legitimate beneficiaries. In Tarlac and Pampanga, the discovery of un-distributed CLOAs to legitimate beneficiaries led to appropriate corrections leading to the distribution of CLOAs to rightful beneficiaries. D

The gap between farmers and DAR has been narrowed – breaking of old alliances

Before the intervention of PDI and also in the first years, the farmers perceived the DAR officials to be sided with the landowners. They were hardly accessible and their position was far away from the farmers’ point of view. Today, the picture has changed considerably, the “distance” between DAR and farmers has been reduced considerably. At least as important for farmers simultaneously is that many of the old alliances between DAR officials and resisting landowners have been broken or at least the distance has increased allowing DAR to take a more neutral position. This can be attributed to a large extent to PDI’s intervention, mainly due to the use of the dialogue oriented approach and the institutionalization of SCAT, the tripartite negotiation forums. “Each week we go to the MARO. Before we were fighting, now we discuss.” “Before we were not assisted by the DAR. Now, after the support fromPDI and the negotiations we are assisted by DAR. They are doing their job, however, there are still some inDAR who are corrupt.” E

Mobilization and redirection of services and budgets in favor of program beneficiaries

The READ program’s strategy of enabling people and the POs to constructively work in the development bodies has allowed their active participation in local development councils. They were able to influence the allocation of local budgets and to increase transparency and accountability of council decisions 35 . Aside 35

In Nueva Ecija and Bulacan, women’s organizations were able to increase their resources due to infusions from public resources. In Angeles City, the local legislators allied to NMGL are now suspended by the City Mayor because of their opposition against lack of transparency and misplaced allocation of budgets. Another example is the farm-to-market road that was constructed in Morong, Bataan, along with a solar dryer. In Barangay San Isidro, Laur , Nueva Ecija, a farm-to-market road also was built while the construction of a communal irrigation system is ongoing. In Botolan, Zambales, major government line agencies pledged support and assistance to the local peasant federation composed

from the fast-paced development of LTI cases, the government also initiated several infrastructure projects in areas with strong PDI-PO partnership. However, these impacts are only punctual and changes are only beginning and have not yet taken place on a larger scale. Nevertheless, these small changes constitute examples for other farmer to organize themselves and to take action to defend their interests. The gains achieved in political participation are more distinct at the village / Barangay level. They still depend largely on the political will and on the individuals in the government structures. F

Land use policy changes in some cities and municipalities

There are significant policy changes at the level of local governments particular to certain municipal and city changes at the level of local governments particular to certain municipal and city governments where PO and NGO influence is stronger. The productive endeavors of farmer-beneficiaries allied to NMGL have induced the LGU to declare some agrarian reform lands as “food baskets” that are protected by local laws. In Bulacan, farmers claimed a property for land distribution, but there was the intention of the land owner to convert the land. In Angeles City (Pampanga), the successful struggle of BAFA people’s organization is partly attributed to the resolution of the Sangguniang Bayan (City Council) to declare the claimed property as agricultural land. This impact is significant, especially for rapidly urbanizing areas like Bulacan or Angeles City where agricultural development tends to be sidelined by biases towards commercial and industrial development. In general, some LGUs are challenged by the example of collaboration of PDI with POs and the success of collaboration. Sustainable development issues are being more and more discussed, but it would be too early to talk about the achievement of considerable impacts, except for some specific places. G

Public consciousness about good governance has increased

Through the work of PDI and the people’s organizations on law implementation, transparency and good governance, a general increase of consciousness about good governance among the farmer’s communities (civil society0 and in government has increased.

mostly of the Aeta. The Municipal Agricultural Office promised to give them seeds at a subsidized price; the provincial office of the Department of Trade and Industries agreed to help them in marketing their products; the National Irrigation Administration together with the Office of the Mayor guaranteed proper irrigation to their farms. Other examples are the allocation of budget for a day care centre or more classrooms for school.

3

What is the role of networks, alliances and co-operation between nongovernment actors and NGOs with government actors at local, regional and national level as well as at international level (north/south)?

Without the establishment and institutionalization of the SCAT mechanism, the partnership between people’s organizations, as well as PDI as an NGO and DAR as the government organization, many results and successes would not have been possible. This cooperation was essential and has changed the power relation among the actors. It has brought the government organization DAR closer to the organized poor farmers and simultaneously broke the alliances of DAR officials with big landowners. Connecting the different levels from grassroots work at village level up to lobby work and advocacy at national level was very important. Both levels benefit each other. Experience from the grassroots level improve the lobby work at national level, the national level reputation of the NGO helped the successful resolution of land cases at the grassroots level. 4

What concrete causes induce the creation of organized representation of interests of the poor (self-help, advocacy, etc.)

The main factor was the fact that the NGO managed to mobilize the hope of the farmers for a better future in areas where their felt needs are. Land ownership and its respective problems are emotionally important to them. In addition, PDI managed to have a wide variety of methods to mobilize farmers, including those which appeal to the farmers emotionally and affectively 9e.g. songs) and not only to the cognitive aspects. 5

What kind of favorable and hindering reactions of decision makers can be observed? What kinds of factors have particular influence on the organizations representing the poor and their interests? What are strategies of the organizations to cope with these factors? Are these strategies appropriate?

PDI and NMGL have obliged the DAR to improve its behavior and to recognize farmers as active participants in agrarian reform implementation by the exposition of anomalies and by reducing asymmetry in information. There are significant changes in the behavior of the government, especially in the national, regional, provincial and municipal offices of the DAR particularly in the areas covered by the program (see question 2). The program has facilitated these changes by its negotiation and dialogue strategy with government and other actors. This is an innovation considering the history of Agrarian Reform and the political struggle for the rights and betterment of landless in the Philippines, PDI. The dialogue orientation has led to institutionalized forums of exchange and negotiation between different partners; farmer organizations, PDI and DAR. However, dialogue orientation does not mean to become softer or reduce the demands. PDI’s strategy is to be hard in the subject but stick to the law and respect persons. This is also represented in a

constructive way of dealing with conflicts. The research work on individual land cases was an important basis for the development of the negotiation strategies and for lobbying. One important factor of the success of PDI was also to have obtained access to the secretary level of DAR thanks to its reputation and experiences, but also thanks to personal relations. 6

What are the lessons learned concerning the effectiveness of the means and actions and strategies of PDI related to the achieved impacts? What aspects are specific for the respective situation, what can be generalized for similar programs?

Specific for the situation of the program are the two favoring factors: Process in society resulted in openness / space for dialogue – POs / farmers have undergone a learning process before: After a period where violent and nondialogue oriented methods were prominent in the political field, Philippine society became more and more open to dialogue as a form to negotiate and to give orientation to the development of the country. Before, PDI would have had difficulties to find acceptance for its dialogue oriented and negotiation approach in the society and particularly among farmers. Existence of AR law. One key factor which allows the success of PDI is the existence of the AR law. Also the existence of “friendly” forces in the government administration and in DAR particularly are preconditions for the dialogue oriented approach. A number of other lessons were learned from the experience of PDI which can be generated Existence of a shared vision and objectives among staff and the ability of staff to translate them into action The program of PDI has a clear objective around the issue of Agricultural Reform and specific land cases and a population in a specific geographical area or according to social criteria. The vision and objectives are clear. They are probably more clear in the heads and translated into the actions of staff than in printed documents. This makes evident that “nicely’ formulated objectives might be helpful, but are far from being a warranty for success. Much more relevant is the degree to which objectives are commonly shared. It seems also an important factor that PDI does not offer a broad variety of support in the field of rural development etc., but that the scope of actions is limited. The content of the program touches the emotions of the farmers – issues correspond to the felt needs of the farmers

The PDI’s program corresponds to the felt needs of the farmers. It is not one aspect beyond others, but it figures among the priority questions for many farmers. The word “fell” needs is important as the content of the program touches the emotions of the farmers – and also of the staff. This emotional level beyond cognitive aspects is considered to be important. This is a much more relevant source of motivation and personal commitment of the farmers themselves which is in turn a key factor for the success of the program. Comprehensive strategy of empowerment and to address poverty The programs poverty orientation is indirectly structural with an additional aspect of direct poverty reduction by increased asset development and economic programs. The strength of PDI’s strategy of empowerment is the combination of the following elements: •

Capacity development (knowledge and skills) to develop human resources,

•

Organization of farmers around their shared vision and not because of access to programs advantage (e.g. loans),

•

Mobilization of people through information and development of hope for a better future (which must be realistic),

•

Value formation through training and exposures as well as through the living of the values by the staff,

•

No promises to the farmers by the program – clarification of the need of self-help and the importance for the people’s organizations to stand on their won from the very beginning,

•

Transfer of financial resources to develop management skills in livelihoods and enterprises, and

•

Transfer of land to improve land tenure security.

Self-reliance of farmers, POs and NMGL as an objective from the beginning The self-reliance of the organizations has been intended from the beginning of PDI support. PDI provided space for self-determined development and commitment. This is also promoted an increase in the self-confidence of the farmers and people’s organizations which in turn enhanced further commitment and motivation. Close cooperation and trust with government keeping the own independence also from political parties

PDI has managed to cooperate closely with government Institutions, mainly DAR, but has always managed to remain completely independent from the Government by pointing out their positions and the positions and interests of the POs. PDI serves as a bridge to bring together government and civil society. The objectives of PDI and its commitment to political issues for a clear target group are very close to the objectives of political parties or forces which, however, apply very different strategies and means. It is one factor of the success of PDI that it has remained neutral in regard to political parties and has kept its independence: Working at all levels from grassroots to national level in a way that each level benefits from the work at other levels One of the key factors of success is the fact that PDI works at all levels, from the very grassroots level at Barangay and village level up to the national level. It has been impressive to see how each level benefits from the other: •

The local level benefits from the reputation, experiences and the success of lobbying work at the national level.

•

The national level benefits from the broad experiences and detailed knowledge about the situation at grassroots level. This knowledge is more easily communicated within PDI than in other organizations, in particular DAR. This results in a considerable advantage in terms of concrete knowledge, for example about anomalies in the law implementation. This knowledge is also appreciated by DAR and contributes to the good name and reputation of PDI. The strength of PDI as an NGO lies also in transforming grassroots development initiatives into policy for advocacy at the national level.

See also the lessons learnt presented in the following point. 7

What is the evolution and process of co-operation between the poor, their representing organizations (PO) and the advocacy organizations (NGO). Which factors influence the acceptance of the supporting and advocating organizations by the target groups? What are the lessons learned for future program?

In the region, PDI today principally co-operates with NMGL, the regional peasant federation of farmers’ organizations in the provinces where PDI operates. The creation of most of these POs has been facilitated and assisted by PDI. PDI’s experience in direct bilateral cooperation with the DAR who is responsible for implementing the AR varies according to the behavior of the agency at various levels. Experience shows that the behavior of the agency is influenced by the quality of personnel and their attitude towards various actors in agrarian reform. The highest form of cooperation achieved by the program so far is the establishment of a tripartite mechanism called the Special Concerns Action Team (SCAT). The

SCAT is a team composed of key NMGL leaders, PDI personnel and key DAR regional and national personnel and officials. In SCAT, the leaders of the people’s organizations have a chance to bring their cases and claims directly to DAR officials. The DAR also is also forced to minimize bureaucratic anomalies because of the farmers’ vigilance. The SCAT serves as a pressure group that pushes various actors to cooperate and achieve the resolution Land Tenure Improvement through provision of venues for mutually-beneficial negotiations. To find ways to solve land tenure problems, DAR, PDI and NMGL conduct joint action planning. The SCAT is replicated in every province where NMGL has an allied organization and has agrarian problems to discuss. PDI’s links with certain high officials at the DAR Central Office has also served well in addressing local demands. The mandate given by the DAR Central Office, e.g. SCAT, has been effective in overcoming the resistance of local DAR officials. Correspondingly, good relations with DAR provincial officers aid in overcoming the resistance of DAR municipal officers. The NGO-PO partnership is an alternative approach to the top-down approach being employed by the DAR in CARP implementation. The use of dialogue and negotiation and the fact that this mechanism has been institutionalized were key factors for the successes in LTI. The following are the key-lessons learnt which can be generalized also for other programs: Respectful cooperation with farmers through clarity of roles and mutual feed-back A six month participator planning allowed the program to be based on the demand and ideas of the potential beneficiaries and the use of their experiences as well as those of PDI. Respectfulness in the cooperation is expressed in the participatory decision making between PDI and the POs and the clarity of the role of each partner. Equality is also expressed in the fact that feed-back and criticisms of POs towards PDI are welcomed. On the other hand, weaknesses as perceived by PDI are fed back to POs in a constructive way as challenges. Combination of flexibility in implementation, but respect for transparent principles and values – Process-oriented implementation versus concentration on the working plan The strategy of PDI is based on the existing law and seeks to apply the law in each individual case. As each case is different, the strategy for each land case is also designed according to the specific situation based on research and analysis. The implementation and further development of the strategy follows the evolution of the process, of negotiations, of the case, etc. The staff considers each case in the context of PDI’s values and what the most appropriate steps would be. It is an important factor for success that PDI even working in an entire region does not stick to strict working plans or implementation schedules. In addition, the

research work of PDI and the use of a broad variety of other methods, e.g. songs and poems affecting the emotional level of the people, are factors in success. Rather than on planned results and indicators, the READ program’s implementation and management is based on principles and values which are in correspondence with the content of the program. This high degree of flexibility is to a large extent made possible and even encouraged by EED/EZE’s philosophy of partnership and development. “Preached” values of the program are also lived by management, staff and in the cooperation with farmers The work of PDI is characterized by values. It is a factor of its success that these values are not only “preached” by PDI to the people’s organizations and to other actors, but that PDI internally also lives these values and practices these values in management. The key values as identified by the evaluation team are presented in chapter 6.3, page 52. In the relations between PDI staff and the people’s organizations these values are also exhibited. Staff exercise these values in their attitudes and behavior and do not only talk about them. The staff is personally motivated to commit themselves to the vision and objectives of PDI. Each member has had own experiences of injustice which today constitute their main motivation for commitment. They are emotionally affected by the content of their work. The READ program it is not just their job to earn a living for the family. This is considered to be also an important aspect.

9 General conclusions (lessons learned) After the compilation of the most relevant lessons learned in the following, ¾ The recommendations and key ideas for other future programs are printed in bold letters.

9.1 Clear orientation of the program around issues The program of PDI has a clear objective around the issue of Agricultural Reform and specific land cases and a population in a specific geographical area or according to social criteria. The vision and objectives are clear. They are probably more clear in the heads and translated into the actions of staff than in printed documents. This makes evident that “nicely” formulated objectives might be helpful, but are far from being a warranty for success. Much more relevant is the degree to which objectives are commonly shared. It seems also an important factor that PDI does not offer a broad variety of support in the field of rural development etc., but that the scope of action is limited.

¾ Ensure the existence of a shared vision and objectives among staff and the ability of staff to translate them into action The PDI ‘s program corresponds to the felt needs of the farmers. It is not one aspect beyond others, but it figures among the priority questions for many farmers. The word ‘felt” needs is important as the content of the program touches the emotions of the farmers – and also of the staff. This emotional level beyond cognitive aspects is considered to be important. This is a much more relevant source of motivation and personal commitment of the farmers themselves which is in turn a key factor for the success of the program. ¾ The content of the program touches the emotions of the farmers – issues political / ideological mobilization ¾ The work with the farmers and PO is law implementation – it is not misused for political /ideological mobilization

9.2 Comprehensive strategy of empowerment and to address poverty The programs poverty orientation is indirectly structural with an additional aspect of direct poverty reduction by increased asset development and economic programs. The strength of PDI’s strategy of empowerment is the combination of the following elements: •

Capacity development (knowledge and skills) to develop human resources.

•

Organization of farmers around their share vision and not because of access to programs advantages (e.g. loan),

•

Mobilization of people through information and development of hope for a better future (which must be realistic),

•

Value formation through training and exposures as well as through the living of the values by the staff,

•

No promises to the farmers by the program – clarification of the need of self-help and the importance for the people’s organizations to stand on their own from the very beginning,

•

Transfer of financial resources to develop management skills in livelihoods and enterprises, and

•

Transfer of land to improve land tenure security.

¾ A comprehensive strategy of empowerment of the poor as a combination of capacity development, organization, value formation, transparency in the cooperation and development of hope for farmers ¾ Indirect structural poverty orientation with an additional aspect of direct poverty reduction by increased asset development and economic programs

9.3

Relations to farmers and target groups

A six month participatory process allowed the program to be based on the demand and ideas of the potential beneficiaries and the use of their experiences as well as those of PDI. Respectfulness in the cooperation is expressed in the participatory decision making between PDI and the POs and the clarity of the role of each partner. Equality is also expressed in the fact that feed-back and criticisms of POs towards PDI are welcomed. On the other hand, weaknesses as perceived by PDI are fed back to POs in a constructive way as challenges. ¾ Participatory bottom – up planning process ¾ Respectful cooperation with farmers through clarity of roles and mutual freedback ¾ Perceiving weaknesses as challenges The self-reliance of the organizations has been intended from the beginning of PDI support. PDI provided space for self-determined development and commitment. This also promoted an increase in the self-confidence of the farmers and people’s organizations which in turn enhanced further commitment and motivation. ¾ Self-reliance of farmers, POs and NMGL as an objective from the beginning

9.4

Negotiation and dialogue with government and other actors

Considering the history of Agrarian Reform and the political struggle for the rights and betterment of landless in the Philippines, PDI has come up with an innovation in the methods and style of dealing with other parties / actors having different opinions or “being on the other side”. This innovation is the orientation to dialogue and to communicate with government officials as well as with landowners. The dialogue orientation has led to institutionalized forums of exchange and negotiation between different partners: farmer organizations, PDI and DAR. However, dialogue orientation does not mean to become softer or reduce the demands. PDI’s strategy is to be hard in the subject but stick to the law and respect persons.

This is also represented in a constructive way of dealing with conflicts 36 . The research work on individual land cases was an important basis for the development of the negotiation strategies and for lobbying. One important factor of the success of PDI was also to have obtained access to the secretary level of DAR thanks to its reputation and experiences, but also thanks to personal relations. ¾ Dialogue orientation and openness for communication with different forces / actors at all levels – respect for others ¾ Being hard in the subject but sticking to the law and respecting persons ¾ Develop negotiation strategies according to the results of studies and research work ¾ Reduce the distance between civil society and government through cooperation and institutionalized discussion and negotiation forums ¾ Look for access to top management of government organizations ¾ Perceive conflicts as “normal” and instruments for change ¾ Look for constructive ways of dealing with conflicts

9.5

Close cooperation but independence from grassroots to national level

PDI has managed to cooperate closely with government Institutions, mainly DAR, but has always managed to remain completely independent from the Government by pointing out their positions and the positions and interests of the POs. PDI serves as a bridge to bring together government and civil society. The objectives of PDI and its commitment to political issues for a clear target group are very close to the objectives of political parties or forces which, however, apply very different strategies and means. It is one factor of the success of PDI that it has remained neutral in regard to political parties and has kept its independence. ¾ Close cooperation and trust with government keeping its own independence ¾ Independence from political parties

36

In the implementation of the program and in standing for the values and interests of the farmers, conflicts are being faced by PDI. PDI did not try to avoid conflicts, but saw the necessity to accept conflicts as one hurdle on the way to improvement. The opportunities of conflicts to change situations and structures were seen. Consequently, conflicts were being addressed in a constructive way with the principles to stick to the law and to respect persons and different opinions also to defend the interests of farmers.

9.6

From grassroots to national level

One of the key factors of success is the fact that PDI works at all levels, from the very grassroots level at Barangay and village level up to the national level. It has been impressive to see how each level benefits from the other. •

The local level benefits from the reputation, experiences and the success of lobbying work at the national level.

•

The national level benefits from the broad experie4nces and detailed knowle3dge about the situation at grassroots level. This knowledge is more easily communicated within PDI than in other organizations, in particular DAR. This results in a considerable advantage in terms of concrete knowledge, for example about anomalies in the law implementation. This knowledge is also appreciated by DAR and contributes to the good name and reputation of PDI. The strength of PDI as NGO lies also in transforming grassroots development initiatives into policy for advocacy at the national level. ¾ Working at all levels from grassroots to national level in a way that each level benefits from the work at other levels

9.7

Flexibility in implementation

The strategy of PDI is based on the existing law and seeks to apply the law in each individual case. As each case is different, the strategy o\for each land case is also s\designed according to the specific situation based on research and analysis. The implementation and further development of the strategy follows the evolution of the process, of negotiations, of the case, etc. The staff considers each case in the context of PDI’s values and what the most appropriate steps would be. It is an important factor for success that PDI even working in an entire region does not stick to strict working plans or implementation schedules. In addition, the research work of PDI and the use of a broad variety of other methods, e.g. songs and poems affecting the emotional level of the people, are factors in success. Rather than on planned results and indicators, the READ program’s implementation and management is based on principles and values which are in correspondence with the content of the program. This high degree of flexibility is to a large extent made possible and even encouraged by EED/EZE’s philosophy of partnership and development. ¾ High degree of flexibility, site-specific and issue-based action in implementation ¾ Creative use of a broad variety of methods ¾ Combination of flexibility in implementation, but respect for transparent principles and values

¾ Process-oriented implementation versus concentration on the working plan ¾ High degree of autonomy in implementation for the implementing organization based on a transparent agreement of objectives, shared values and vision with the funding partner

9.8

Values, management and emotionally affected staff

The work of PDI is characterized by values. It is a factor of its success that these values are not only “preached” by PDI to the people’s organizations and to other actors. But that PDI internally also lives these values and practices these values in management. The key values as identified by the evaluation team are presented in see chapter 6.3, page 52. In the relations between PDI staff and the people’s organizations these values are also exhibited. Staff exercise these values in their attitudes and behavior and do not only talk about them. ¾ Ensure the transparency of values which are behind attitudes and behavior of director and staff ¾ Ensure the correlation of these values with the “preached” content of the program ¾ Management style correlates to the values of the program ¾ “Preached” values of the program are also lived in the cooperation with farmers ¾ Behavior of staff as an example for farmer organizations The staff is personally motivated to commit themselves to the vision and objectives of PDI. Each member has had own experiences of injustice which today constitute their main motivation for commitment. They are emotionally affected by the content of their work. The READ program it is not just their job to earn a living for the family. This is considered to be also an important aspect. In addition, many of the staff have engaged themselves for the same vision and objectives before, but with other mainly non-dialogue oriented means. They have gone through a learning process. They also have seen the personal change they have undergone. This experience and the awareness of the difficulties as well as the possibilities of personal changes helps them to assist others / farmers and PO s to change. They cease their rather passive attitude in favor of personal commitment to take their development into their hands. ¾ Committed as well as personally and emotionally affected staff who have gone through learning processes

9.9

The implementing organization

PDI has gained the respect of both farmers and the government as a trustworthy, honest and committed organization involved in development work. Many successes would not have been possible without the good reputation of PDI. As a result, NMGL as its main cooperating partner has been considered by DAR as a serious regional people’s federation that champions genuine agrarian reform in Central Luzon. In the present setting, the empowerment of farmers and people’s organizations can effectively be done only by an NGO. It is hardly imaginable that a government organization could develop the same reputation and credibility when cooperating with farmers and “preaching” the above mentioned values in the cooperation with farmers. ¾ Considering and developing the name and repuitation of the implementing organization ¾ The organization must be appropriate for propagating and living the content of the program

9.10 Relation to funding partners EED/EZE has supported PDI over a period of almost 10 years. The key factors according to PDI are personal continuity and openness in the communication as well as the fact that EED/EZE has offered space for the detailed design of strategies and activities in the framework of a shared vision and agreed-upon objectives. It was also important that PDI’s vision correlates with EED/EZE ideas of development and justice and the values behind them. ¾ Ensure the correlation in values and vision between funding organization and implementing partner ¾ Ensure mutual understanding and continuity of support offering broad space of autonomy for PDI The German Church Development Organization emphasize a specific philosophy of partnership and development that is giving full responsibility for the implementation of programs as well as for conceptual and institutional efficiency to their partners in the South. The German Ministry for Economic Cooperation and Development bases cooperation and funding of the German Church Development Organizations on similar principles and values. Both relationships (BMZ/churches as well as churches/partners0 are characterized by a high degree of autonomy based on common objectives and values, trust and proven reliability.

¾ It is important that BMZ maintains the means and the spirit of its proven and reliable cooperation with the Church Development Organizations while carefully improving development policy complementarily and coherence.

9.11 External Factors Process in society resulted in openness / space for dialogue – POs / farmers have undergone a learning process before After a period where violent and non-dialogue oriented methods were prominent in the political field, Philippine society became more and more open to dialogue as a form to negotiate and to give orientation to the development of the country. Before, PDI would have had difficulties to find acceptance for its dialogue oriented and negotiation approach in the society and particularly among farmers. Existence of AR law One key factor which allows the success of PDI is the existence of the AR law. Also the existence of “friendly” forces in the government administration and in DAR particularly is preconditions for the dialogue oriented approach.

10

Other findings

10.1 Influences of development programs on surrounding areas Scarcity of direct investments on acquired lands Direct investments in agrarian reform lands that have been transferred are minimal, if not, nil. This is prevalent not only in Central Luzon, but also in other parts of the country. Agriculture performance in CARP areas remains relatively low compared to national averages except in ARCs where ODA presence has provided sufficient external support in terms of infrastructure development. Nevertheless, there are indications that the proximity of ARCs and ODA programs to areas where land reform is not complemented has also increased the difficulties of land redistribution due to the increase of land prices encouraging landowners to resist land reform.

10.2 Experiences with the methodology of a joint and participatory evaluation At the end of the evaluation period, a joint assessment of the evaluation was realized in order to draw lessons and experiences with the methodology of a big evaluation team and a joint and participatory evaluation. The methodology is described in chapter 1, page 2.

The evaluation concerned the emotional level, process and results and the expected impact from the evaluation. The main results can be summarized as follows (see also Annex, pages 111 – 114 for the complete results): Exhausted but satisfied with learning’s The members of the evaluation team (PDI and POs) felt the evaluation process was very demanding and most members were physically and mentally exhausted at the end of the evaluation. However, they were also happy because of the new insights and learning which they have acquired in course of the process. This also gave them strength, motivation and hopes to carry on amidst the changing environment. Most of the members also appreciated the broadened knowledge base. The evaluation also gave them increased self-confidence because they were proud of having been evaluators and that their capacities were recognized. According to their experiences the method and the process allowed all the members in the evaluation team to analyze strengths and weaknesses and the whole development process critically but in an easy and graceful manner. The methodology helped to accept criticisms constructively. It does not constrain the evaluators to be prejudiced in favor of their hypothesis and assumptions. Fruitful results giving directions for the future Also for the further use of the results, the methodology was appreciated as fruitful because it brought to light valuable lessons that can be used by the POs and PDI to improve the chances of the organization. It gave broader perspective and direction for the future to PDI and helped the POs to strengthen themselves and expand to ensure their sustainability. It gives opportunities to PDI and POs to process the findings. It was also mentioned that the evaluation provided new methods of work between NGO and POIs. Finally, the evaluation was assessed to have strengthened PDI’s partnership with the POs in pursuing GAR and ARRD and also to have enhanced PDI’s partnership with EED/EZE in helping the peasants. The external consultants were satisfied and partly impressed with this participatory approach. The most important new aspect of this evaluation was that it has been agreed explicitly that all participants of the team are really evaluators. All the members of the evaluation team were highly motivated and a strong sense of ownership of the evaluation was perceived. The process resulted in lessons learned and substantial insights. Weaknesses of the methodology and the evaluation process However, some weaknesses and difficulties were also observed, mainly by the external consultants:

•

It was not always easy for all the members of the team to assume the role of an evaluator in the area of that member’s own responsibility. In this case, members were more tempted to act as resource persons.

•

The joint evaluation made it necessary to have some joint terms and framework for analysis, e.g. about what an impact is compared to results, activities, etc. (see also Annex, page 77). The two days at the beginning of the evaluation are considered to be too short to establish a common framework, to carry out a selfevaluation and to formulate impact hypothesis.

The field visits were assessed by one external consultant as too short, also due to long travel times. Consequently, only a superficial understanding of the field processes was possible in this case as time to look, observe, discuss, reflect and assess what is going on in the field from the perspective of their new evaluators role was too short. •

A further limitation has to be seen in the fact that, in most of the meetings in the field one of the three teams and in the workshops, only the leaders of the POs attended. There was no opportunity to experience groups in their natural composition. Therefore, the evaluation results represent mostly the view of the leaders. It has to be considered that the leaders usually have a higher education and are economically often better off than the common members. However, the meetings in the two other teams of field visits were different.

•

One opinion stated that the time of two weeks does not allow enough time to analyze all the details and activities of the program in detail as would be possible in a longer scientific research.

•

Participation of people’ organization representatives made it necessary to translate all discussion in the evaluation team, in particular for one of its members. This is not only time-consuming, but it also reduces the spontaneity of discussions sometimes and limits the depth of discussions due to language. Even if there are methods to cope with this, it makes a difference whether translation is required or not.

Conclusions and recommendations from this experience All the members of the evaluation team including the external consultants suggest the use this method in future for other evaluations because of its effectiveness and efficient thoroughness. Some suggested to use the participatory method as a standard for evaluations. The importance of an intense preparation of the evaluation has been stressed. This preparation concerns the discussion and establishment of a joint understanding of a joint understanding of the objectives of the evaluation and the methodology to be applied. This will also determine the appropriate program and other

preparation required (compilation of quantitative data, first self analysis, identification of interests towards the evaluation by all concerned, etc.). Furthermore, the preparation of all the relevant quantitative data before the start of the evaluation helps to render the evaluation period more fruitful. Sufficient time has to be invested among the external consultants to have clarity about the desired approach. This should also be reflected in the contracts provided. According to some of the members of the evaluation team, the quality of an evaluation approach can not be assessed per se. It has to be seen in relation to the objective of the evaluation and the members of the evaluation team – in particular the external consultants. They have to feel comfortable and the approach must fit to them, their ideas, etc.

Annex

Table of Contents

1

The program of the evaluation

2

The evaluation team

3

Sources

3.1

List of discussion partners

3.2

Literature

3.3

Comparison of different methodologies of evaluations

4

Material about PDI’s program

4.1

List of the People’s organizations under the umbrella of NMGL

4.2

Composition of the Board, Staff Members and positions

4.3

PDI’s approaches

4.4

Other programs of PDI

4.4.1

Rural Development Programs

4.4.2

Education programs

4.4.3

Special programs

4.5

Conferences conducted by PDI

4.7

Books, documents, songs of PDI

5

Results of the evaluation

5.1

Presentation of three concrete land struggle cases in Tarlac and Pampanga

5.2

Results of impact ranking in Bulacan and Nueva Ecija

5.3

Background information about the ESS

5.4

Additional information, assessment and recommendations concerning the SPF

5.4.1

List of approved Small Projects (Loans)

5.4.2

Further information and comments on the SPF and ESS

5.5

Background about the poverty situation and measures and strategies to reduce poverty in the Philippine context

5.6

Rural Development Strategies

5.7

Effects of the Neo-Liberal Approach

5.8

The situation of Agrarian Reform Beneficiaries

5.9

Negative impacts of extensive irrigation and chemical based farming

6

Preliminary Report – Workshop Documentation

7

Terms of Reference

8

Comparative analysis of lessons learned from the READ program and Bondoc Development Program

1

The program of the evaluation

Date Oct. 7, Tuesday 2003

Oct. 9 Thursday

Oct. 10 Friday

Program • Meeting of Dr. Melsbach with Mr. Ronald Grafe, Counselor and Deputy Head of the Embassy of the Fedral Republic of Germany, Manila • Meeting of Dr. Melsbach with Dr. Hannsjorg Woll, former Project Manager Quririno Forest Management Meeting of Dr. Melsbach with Ms. Corazon Urico, UNDP: Discussion on UNDP-Support to AR and getting Materials on UNDP’s programs. Arrival of Oliver Karkoschka in the late afternoon and first discussions among the external consultants. Meeting with PDI Director and staff in PDI office : •

Introduction to PDI,

Orientation to the evaluation and discussion of the program Oct. 11 and 12 Saturday, Sunday

Afternoon: Travel to Tarlac Workshop in Tarlac 1. Introduction to the evaluation •

Opening remarks and introduction of participants

•

Clarification of the character, objectives and the program of the evaluation

•

Discussion of the evaluation methodology and the role of external consultants, PDI and PO members

2. Issue based presentations and discussions:

3.

Oct. 13 – 15 Monday

•

AR – Central Luzon Situation – Presentation by PARO

•

LTI and Economic support program by Province

•

Social Infrastructure building

Establishment of impact hypothesis and preparation of the field visits. Field and area visits in three teams each composed by PO members, - PDI staff and one external consultant

Wednesday Oct. 16 Oct. 17, Friday Oct. 18 – 22

1. Bulacan and NE 2. Pampanga and Tarlac 3. Bataan and Zambales World Food Day Celebration in Iba, Zambales, informal discussions. Travel to Subic and preparation of the Workshop Workshop in Subic 1. Sharing and discussion of the results of the field visits 2. In-depth analysis and assessment of specific findings 3. Recommendations and lessons learned

Oct. 22 Afternoon

Oct. 23 Wednesday

4. Evaluation of the process Travel to Manila Meeting and dinner with four NGO coordinators directors in Manila (Manuel Quiambao, President PEACE Foundation), Gerry Bulatao (Coordinator Local Governance Coalition-Network/LGC-Net), Conrado Navarro (Former Undersecretary of the DAR; VicePresident Philippine Rural Reconstruction Movement, PRRM), Ricardo B. Reyes Executive Director Partnership for Agrarian Reform and Rural Development Services Inc. (PARRDS). Meeting with Dr. Ute-Hubner, German Cooperation: Support to Agrarian Reform and Rural Development and Minda Dolarte, Project Development and Management Service, DAR.* Meeting with Atty. Sidiangelo*

Departure of Oliver Karkoschka to Germany. Oct. 24, Lunch Meeting of Dr. Melsbach with Ria Miclat-Teves, Ruel Thursday Punongbayan, Jheng Julio Rodrigo de Guia: Topic: Planning System of PDI. *Meeting conducted by Ed Quitoriano and Dr. Gerlind Melsbach.

2

The evaluation team

Name PDI

Organization and Designation

Remarks

Aurea G. Miclat-Teves Ruel Punongbayan Julio R. de Guia (Jheng)

Executive Director, PDI Coordinator, PDI Central Office PDI – Organizer for Pampanga and Tarlac PDI – Organizer for Nueva Ecija PDI – Zambales PDI, Bataan-Zambales

Zambales/Bataan team Nueva Ecija/Bulacan team Pampanga/Tarlac team

Adviser, NMGL; PDI OrganizerBulacan President, PASAMBOT, LAKAS, Local Leader, Aera Community Secretary, NMGL; Sto Rosario Farmers’ Association Auditor, NMGL-Zambales Treasurer, NMGL-NE; President, Women Fed. Vice-President, NMGL

Nueva Ecija/Bulacan team

Gina de Fiesta Myrna Arandia Al Carillo POs NMGL Eddie Ibabao Carlito Domulot Loida Rivera Wynona Corilla Paula Patoc Maxima Valdez DAR / Government

Dr. Edson Arceo PARO, DAR-Tarlac External Consultants / Visitors Eddie Ll. Quitoriano Dr. Gerlind Melsbach Oliver Karkoschka Jorg Schwieger Dr. Sebastian Bartsch

Independent Consultant Independent Consultant Independent Consultant EED, Evaluation Unit BMZ, Coop. with Organizations Persons participating only temporary Amado Higante Angelita Deliquena Tony Santos Calanat Domulot Ben Jugatan Pablo Bocable

Nueva Ecija/Bulacan team Zambales/Bataan team

Zambales/Bataan Team Pampanga/Tarlac team Pampanga/Tarlac team Nueva Ecija/Bulacan team Pampanga/Tarlac team

Pamapanga/Tarlac team

Pampanga/Tarlac team Nueva Ecija/Bulacan team Zambales/Bataan team Only October 9 and 10 Church Only from October 15

President, NMGL; Manager, BAMPCI Member, LAKAS PDI, Palawan Adviser, LAKAS Adviser, LAKAS BOD Member, NMGL-Nueva Ecija; President, PASAMA-Laur

Only in Tarlac Only in Tarlac Only Tarlac Workshop Only in Tarlac Only in Tarlac Only in Tarlac

Aida Noceto Evarea Manglicmot

Board Member, NMGL Program Staff, PDI-Nueva Ecija

Alejandro Carillo Ramon Ayco

Program Staff, PDI-Bataan Program Staff, PDI Central Office

3

Sources

3.1

List of discussion partners

Nueva Ecija/Bulacan team Only Nueva Ecija and Subic Only in Subic Only in Subic

Team Tarlac and Pampanga Team of Workshops 1. Roundtable Discussion with FBs, DAR Officials, PDI staff and Barangay LGU, Carbonel, Gerona, Talac, October 13, 2003. Name Organization and Designation Genciano Gabriel Farmer-Beneficiary Arcenio Garcia Farmer-Beneficiary Daniel de la Rosa Farmer-Beneficiary Cosme Castillo MARO (DAR), Gerona Virginia Gabriel Farmer-Beneficiary Nenita Palomo DARPO, DAR-Tarlac Editha Petero DARPO, DAR-Tarlac Maxima Taruc Valdes Brgy. Kagawad; Vice-President, NMGL Rose Duran Leader, KALAYAAN Sinta Chapter Nicolas Salvador CARPO, DAR-Tarlac Edson Arceo PARO, DAR-Tarlac Fernando Luis Farmer-Beneficiary Julio Rodrigo de Guia PDI Staff Loida Rivera NMGL-Pampanga Francisco Joaquin Farmer-Beneficiary Total: 9 Farmers, 5 DAR Officials

2. Focus Group Discussion, Members of Brgy. Anunas Farmers’ Association (BAFA) and Nagkakaisang Sipag ng Kababaihan ng Anunas (NAGSIKAP), BAMPCI Metalcrafts Center, Brgy. Anunas, Angeles City, October 14, 2003 Name Organization Juliana Puno NAGSIKAP Lourdes Macabasag NAGSIKAP Iluminada Sondian NAGSIKAP Baby de los Reyes NAGSIKAP Lanie Elarde NAGSIKAP Mercy Iway NAGSIKAP Karina Pangilinan NAGSIKAP Sally Dayrit NAGSIKAP Pedro de Guzman BAFA Roque Gatchalian BAFA Gonzalo Cabrera BAFA Benedicto Dayrit BAFA Rod de Guzman BAFA Mateo Gigante Jr. BAFA Adolaido Manalo BAFA Amado Higante BAFA Arnel Torres BAFA Maring Garcia BAFA Eduardo Palo BAFA Total: 19 farmers

3. Panel Interview with Non-Beneficiaries, Carbonel, Gerona, Tarlac, October 13, 2003 Name Dominador Punzalan, 54 Matua Carmen Alfonso Juanito Gomez, 67 Mario Zacanas, 43 Rodolfo de la Cruz, 51 Fernando Salazar, 43 Arthur Gomez, 39 Ernesto Joaquin, 52 Moises de la Cruz, 43 Angelito Gomez, 34 Sotero Alfonso, 64 Total: 8 Farmers, 3 others (vendors, worker, driver)

Remarks Tenant, 0.5 hectares; rice and corn Tenant Tenant; bribed by landowner for P3,000 Tricycle Driver Tenant Tenant Farmer Tenant, 0.25 hectare Taho Vendor Tricycle Driver Wage Worker

4. Focus Group Discussion, Officers and Members of the Margot MultiPurpose Cooperative/Claimants of the Lutgarda Torres Property, Brgy. Cauayan, Angeles City. October 14, 2003. Name Rustico Dimarucot, 54 Jose Dimarucot, 67 Dante Agustin, 48 Ernesto Dimarucot, 64 Vicente Agustin Narciso Magbanua, 50 Noel Agustin, 38 Total: 7 farmers

Position President Member Member Member Member Member Member

5. Focus Group Discussion, Officers and Members of Sto. Rosario Farmers’ Association, Brgy. Sto. Rosario, Magalang, Pampanga. October 15, 2003. Name Norlita Rivera Juanito Mangulid Alfredo Jaqul Allan Anunciacion Roman Rivera Rico Jaqui Rodolfo Rivera Lanie Tizon Rosita Mangilit Norman Rivera Dennis Roman Rivera Amado Higante Markcis Gigante Jose Rivera Jr. Loida Rivera Total: 15 farmers

Position Member Member Vice President Member President Member Member Member Member Member Member NMGL President Member Secretary Member

List of Interviews Name and Personal Details Godofredo Concepcion, 64; CLOA recipient but non-member of NMGL Alfredo Facun, 60; CLOA recipient but non-member of NMGL Harmes Sembrano, Municipal Mayor, Gerona, Tarlac Rodolfo Alfonso, Brgy. Captain, Carbonel, Gerona, Tarlac Norlita Rivera, 49, member of Sto. Rosario Farmers’ Association Mrs. Mangilit, Member, Sto. Rosario Farmers’ Association Rodolfo Rivera Sr., Member, Sto. Rosario Farmers’ Association Remigio Espiritu, 56; farmer-claimant of the Lutgarda Torres Property, Angeles City Roque Gatchalian, BAFA President Eduardo Pelo, BAFA Secretary Maria Lourdes Macabasag, BAFA Treasurer Prudencio Dayrit, 65; non-beneficiary farmer Rodolfo Nacu, 66; former Brgy. Captain Librado Ocampo, 56; BAFA member Vicente Nacu, 73; BAFA member Miriam Patio, Municipal Agriculture Officer (MAO), Angeles City Rommel Medina, ARPT-DAR, Angeles City Dr. Ute Huebner, Advisor, RP-German Cooperation: Support to Agrarian Reform and Rural Development Minda Dolarte, Project Development and Management Service, DAR Josefina Sytangco, Legal Expert, Study on Agrarian Conflicts Management: Bondoc Development Program (BDP) Ricardo Reyes, Executive Director, Partnership for Agrarian Reform and Rural

Date and Location Carbonel, Gerona, Tarlac, October 13, 2003 Carbonel, Gerona, Tarlac, October 13, 2003 Carbonel, Gerona, Tarlac, October 13, 2003 Sto. Rosario, Magalang, Pampanga, October 13, 2003 Sto. Rosario, Magalang, Pampanga, October 13, 2003 Sto. Rosario, Magalang, Pampanga, October 13, 2003 Catholic Chapel, Brgy. Anunas, Angeles City, Pampanga, October 14, 2003 BAMPCI Office, Brgy. Anunas, Angeles City, Pampanga, October 14, 2003 BAMPCI Office, Brgy. Anunas, Angeles City, Pampanga, October 14, 2003 BAMPCI Office, Brgy. Anunas, Angeles City, Pampanga, October 14, 2003 Catholic Chapel, Brgy. Anunas, Angeles City, Pampanga, October 14, 2003 Catholic Chapel, Brgy. Anunas, Angeles City, Pampanga, October 14, 2003 Catholic Chapel, Brgy. Anunas, Angeles City, Pampanga, October 14, 2003 Catholic Chapel, Brgy. Anunas, Angeles City, Pampanga, October 14, 2003 Catholic Chapel, Brgy. Anunas, Angeles City, Pampanga, October 14, 2003 Catholic Chapel, Brgy. Anunas, Angeles City, Pampanga, October 14, 2003 DAR Central Office, Quezon City, October 23, 2003 DAR Central Office, Quezon City, October 23, 2003 Sulo Hotel, Quezon City, October 23, 2003 Muang Thai Restaurant, Diliman, Qquzon City, October 22, 2003

Development Services (PARRDS) Manuel Quiambao, President, PEACE Foundation Gerry Bulatao, Coordinator, Local Governance Coalition-Network (LGC-Net) Conrado Navarro, Former Undersecretary of the DAR; Vice President, Philippine Rural Reconstruction Movement (PRRM)

Muang Thai Restaurant, Diliman, Qquzon City, October 22, 2003 Muang Thai Restaurant, Diliman, Qquzon City, October 22, 2003 Muang Thai Restaurant, Diliman, Qquzon City, October 22, 2003

Totals: Farmers beneficiaries but non-PO-members: 2 Local Government representatives, Mayor, Brgy. Captain: 2 POs and NMGL: 9 Other farmers (non-beneficiaries); 2 Municipal Agricultural Officer, DAR, etc.: Experts and NGO representatives at national level: 7

Team Bulacan and Nueva Ecija Total: Organized farmers (men and women): Bulacan: 54: 21 women and 33 men from 5 POs Non-Beneficiaries: 1 Municipal officials: 2 Nueva Ecija: 75: 48 women and 27 men from 13 POs Non-beneficiaries: 2 Barangay and municipal officials: 5 Monday, Oct. 13, Morning: Travel to Kaybanban, Bulacan 2003 Meeting with 6 people’s organizations (4 Farmers’, Kilos Ka MPCI (Coop), San Isidro, SAMAGRA, Graceville, Samaka, Kaybanban, Kilusan ng Kalalakihan, Kaybanban) 2 women org.: KABISIG, Kaybanban; Kilos Kabuhayan Kababaihan, San Isidro) Travel to San Isidro: Meeting with 5 Representatives of Kilus Ka Coop. Tuesday Oct. 15, Morning: Visiting plantations in Brgy. Kaybanban; Brief talk to one 2003 non-member of PDI-organized peasant organization Afternoon: Travel to Laur, Nueva Ecija Evening: Evaluation Team Meeting for preparation next day Wednesday, Oct. 1. Meeting with Barangay and municipal officials in Brgy. San Isidro, 15, 2003 Laur, N.E. 2. Meeting with rreprewsentatives of People’s organizations of NMGL, N.E. 3. Visit of fields and plantations in Brgy. Borac, N.E.

Team Zambales and Bataan

14 afternoon 14 afternoon

Village Locality Anahao, Brgy. Sabang, Morong, Bataan Upland village Samahan PO leaders meeting in Iba PDIOffice Village meeting Village meeting

15 morning

Distribution of CLOAs

13 morning 13 afternoon 14 morning

Persons KASAM-Anahao 13 members 18 persons 40 PO leaders from 20 POs 12 members Name ?? 8 members / all beneficiaries Name of organization ?? Informal interviews with •

15 afternoon 15 afternoon

Carlings Aeta village Mayor of Botolan

Total: 40 PO leaders from 20 POs 43 members and office bearers of 4 POs around 20 non-organized farmers 1 Mayor 3 Regional DAR officials

Total of all the three groups: see Introduction

4 farmers two nonbeneficiaries, 2 beneficiaries but non-members • 3 DAR officials from Regional Office (RARO) 10 members Mayor of Botolan

3.2

Literature

GTZ Stabsstelle 04 (2001): Evaluierung Landliche Regionalentwicklung BONDOC Philippinen. Hauptbericht und Anhang, Eschbom 2001. National Statistics Office (NSO), 1998: Annual Poverty Incidence Survey (APIS). National Statistics Office (NSO), 1997: Philippine Poverty Statistics. National Statistics Office (NSO), 1997: Family Income and Expenditure Survey, Putzel, Morales, Lara and Miclat-Teves editors Power in the Village: Agrarian Reform, Rural Politics, institutional Change and Globalization, PDI-UP Press Publication, 2001 Quitoriano, Eddil Ll. (2002), FAO; Agrarian Reform in the Philippines, Ten years of Italian Support, FAO, Rome, 2002

Websites: Department of Agrarian Reform: Government of the Philippines National Economic and Development Authority Website PDI

http://www.dar.gov.ph www.gov.ph http://www.neda.gov.ph www.pdi-asia.org

PDI Publications: PDI (2001): Important points for the woman question. Occasional paper PDI (2001): Bataan Case Study on Effective extension Service By the Private Sector: The Case of Nestle Philippines, Inc. (June) PDI (not dated): Community Enterprise for Development in Zambales Program (CEDZ Program). Terminal Report and narrative report for the period April-September 2001. PDI (2001): Decentralization and democratic participation with the LGU-DAR-NGO-PO interface in Nueva Ecija. (December) PDI (2001): Interfacing Agrarian Reform and Local Governance: A Review. A People-Powered Entry to the New Millennium (2001)

Anomaly in Agrarian Reform: The Flora Garcia Case (2001) Zambales Accomplishment – Grand Slam or Grand Manipulation: an Analysis of LTIPBD Integration (2001) The Aeta’ Land and Life: An Advocacy Paper on the Land Claim of the Aeta of Botolan, Zambales (2001) PDI (2000), Aurea Miclat-Teves ed.: The Emerging Alternative Rice Marketing System: Selling High Volume Excellent Quality Rice: a preliminary study of an emerging alternative rice marketing system in Manila and Luzon Provinces, ILEIA and PDI Publications, March 2000. PDI 2000: The role of women in the new Millennium Francisco Lara: Promoting Stakeholders, 2000

Civic

Entrepreneurship

among

Agrarian

Reform

Tadem Eduardo, Asumen, Efaniel (2000): Building Social Capital Among Agrarian Reform Stakeholders in the Philippines Food Security, Agrarian Reform and rural development: Opportunities and challenges for Regalado, Aurora: action A Review of Institutional Efforts in Development through Agrarian Reform: LTI-PBD Integration in Nueva Ecija (2000) The Disappearing Rice Industry of Central Luzon (2000) The Role of Programs and Policy Research in NGO Work with the Civil Society in Retrospect (2000) The Role of Women in the New Millennium (2000) Securing the Basic Rights of the People: The PDI Laur Experience (1999) The Central Luzon Experience on LTI-PBD Integration (1999) Miclat-Teves, Aurea (ed.) (1999): The emerging alternative Rice Marketing System: Selling High Volume Excellent Quality Rice. A preliminary study of an Emerging Alternative Rice Marketing System in Manila and Luzon Provinces, (ILEIA and PDI). Quezon City. PDI (November (1998): The reconstruction phase of the Bulawen Resettlement Area and the surrounding Barangays of Palauig, Zambales (1995-1998) (Final Report to EZE)

The Alternative Production and Marketing Support Program of the Project Development Institute (1997) Bulawen Resettlement: Responding to the Mount Pinatubo Disaster (1996) Emergency Seed Distribution (ESD) in the Mount Pinatubo Disaster (1996) Pangolingan Resettlement Project (1996) The NGOs as a Force for Development (1996) Other reports and proposals to EED/EZE

3.3

Comparison of different methodologies of evaluations 37

External evaluation

Participatory / Joint Evaluation

Main objective of the evaluation Identification of recommendations by the Joint analysis, reflection and identification of evaluators – presentation and main lessons learned and recommendations. documentation. Motivation and mobilization of the concerned people so that they are able to and want to make improvements. Main interest of the evaluators The program and the activities are the centre of interest. Often one “true” perception based on the quantitative data is the base for the recommendations.

The program and the people, the relevant actors and stakeholders, constitute the focus of the evaluation. Their individual perceptions which determine their decisions as well as actions are explored and accepted. The quantitative data is seen in relation to its interpretation by the different stakeholders.

The role of the external evaluators Evaluator: acquire information, analyze Facilitator, consultant and evaluator. data, establish recommendations. The main resources for the evaluation The experiences of the evaluator are the The experiences of staff and other concerned main resource. They are the base for the stakeholders are mobilized and exploited for analysis and the establishment of the the evaluation. This increases relevance and recommendations. the quality of the jointly established recommendations The role of staff and directors They are object of the evaluation and not an active subject. Their main contribution is providing information, data and their opinion which will be analyzed and 37

Active role and involvement in all the steps of the evaluation. Identification of the main tasks for the evaluation team, analysis of experiences, exploration of perceptions,

This overview has been established during a different evaluation by one of the external consultants. It is presented here in order to nourish the discussion about evaluation methodologies. It is evident that there are not only these two cases of evaluation methodologies but all sorts in between (or beyond).

interpreted by the external evaluators. establishment of recommendations, etc. With They finally receive recommendations. All an attitude of curiosity and learning they in all, they play a rather passive role. become the acting subjects of the evaluation which is considered to be important for the creation of learning effects. Who learns how? Most of the lessons are learned by the external evaluators. They learn during the evaluation process. Only after the presentation of the recommendations, the concerned staff and directors can learn through the recommendations (this does not always provide a favorable learning atmosphere as criticism often generates a defensive role).

Learning takes place by all the persons involved actively in the evaluation in the course of the reflection process. The change of perspectives, the exploration of different perceptions and also the integration of the external view of the evaluators for further discussion allows all team members to learn. Also, learning about evaluation methodologies can take place through active involvement of the staff and directors.

How are changes initiated? The external evaluator does not intervene. He/she formulate the recommendations which are supposed to lead to improvements

The external evaluators intervene in the system of the program through their facilitation and interaction with staff and directors. He/she works with the people. In the joint interaction process among the team but also with other stakeholders, impulses are given rather than only at the end of the process.

Expected results The experiences are analyzed by the evaluator and the recommendations are formulated in the report. The ownership of the persons responsible for implementation can vary considerably as the recommendations are those of the evaluator.

The experiences are analyzed jointly and the recommendations are formulated by those responsible for their implementation and they have ownership for their implementation.

The methodology has to be seen in relation to the objective of the evaluation and the external consultants who are charged to conduct the evaluation process. They have to determine the appropriate methodology fitting to their personality and capacities. A joint evaluation is demanding for the external consultants tasks and attitudes which do not only include all the tasks of an evaluator but in addition facilitation tasks, enabling and supporting learning of the other members of the evaluation team and also the creation of an appropriate atmosphere and ambience of learning and exchange among the evaluation team. It also includes openness for new suggestions and contributions and flexibility. This means that the focus of attention must not only be directed towards the issues (the subjects to be analyzed and evaluated) but also to the people, their learning process and the dynamics within the evaluation team (energy of the group, process of discussions and reflections, …). It means also not being fixed in a “real reality’ as perceived by the consultant, but to look for facts and in addition to perceptions and interpretations of actors of these facts. Finally, the capacity of the external evaluators to restrain their own opinions and assessments to the required degree in order to give the same space for assessments and opinions of the other members of the evaluation team is essential for a joint and fruitful exchange and reflection process. This makes a learning oriented evaluation different from an expert study or scientific research. This is not only in terms of focus and nature of data, but also regarding the process how the data are being collected. This influences the further use of the data. For the organizations responsible for the evaluation, it is important to give clarity on the objectives of the evaluation and also the methodology of the evaluation. This has implications also on the appropriate consultants not only in terms of subject of the evaluation but also methodology.

4

Material out PDI’s program

4.1

List of the People’s organizations under the umbrella of NMGL

BULACAN People’s Organization SAMAKA

No. of Brgy / Town / Landholding Project Members Province 62 Kaybanban, San Antonio Coffee SJDM, Bulacan Dev’t Corp. Production / Goat Raising KILOS KA (women) 80 SJDM, Bulacan PCI Bank Candy Property Making KKK 47 Kaybanban, JL Rodriguez Candy SJDM, Bulacan Estate Making San Roque Farmers 50 San Roque, AM Rodriguez Association SJDM, Bulacan Estate Carriedo East 40 Muzon, SJDM, Filinvest Dev’t Bulacan Corporation Graceville 30 Brgy. Graceville, ORO SJDM, Bulacan Enterprises

PAMPANGA People’s Organization BAFA BAMPCI Nagsikap (women) SMSR

No. of Brgy / Town / Members Province 60 Margot and Anunas, Angeles City, Pampanga 80 Anunas, Angeles City, Pampanga 18 Anunas, Angeles City, Pampanga 10 Sto. Rosario, Magalang, Pampanga

Landholding

Project

Forform/Amaco/ Carabao loan Lutgarda Torres Forform/Amaco

Tinio Property

Handicraft making Hog dispersal/ handicrat Water pump / carabao

ZAMBALES People’s Organization Pasambot SMBBK SAMATT NKAP SKKP SAMATT-K (women) SKBA (women) Lakas

No. of Members 286 80 27 32 30 27

Brgy / Town / Province San Juan, Botolan Bangantalinga Taltal, Masinloc Loob-Bunga, Villar Poob Bato Togue

24 156

Bangantalinga Bihawo

BMC

ABDSS MABAYAPI

34 30

Amungan Candelaria

Samlapi SAMMAKAB

13 49

SKP-ARC

34

Candelaria Baluganon, Masinloc Pangolingan

Garcia Property Bogus accomplishment Ortin Property Yap, Edañp Property

VIPS

34

SKT (women) SMB SKAB SKP (women) Ubat SAMAKA SAMARAL SAMACA SAKASAMA Sibol Coop

30 60 24 50 20 17 30 20 30 60

Loob-Bunga. Poon Bato Taposo, Candelaria Bangatalinga Loob-Bunga, Villar Poob Bato Masinloc Sto. Rosario San Lorenzo Carael Sta. Maria Sibol

Landholding

Project

Garcia Property BMC Yap Property

Agro-reforerstation Hog Dispersal Hog Dispersal Hog Dispersal Hog Dispersal

Yap Property GTreeting cards / Hog Dispersal

Stick Marketing, Sari-sari Store

Perez Property Edañp Property Estrella Property Perez Property Lisaca Property ARC ARC

Handicraft Hog Dispersal

TARLAC People’s Organization SINTA (women) Carbonel Farmers KKK (women) Oloy-Buaya Parsolingan Neighborhood Linao-Balite Farmers

No. of Brgy / Town / Landholding Members Province 36 Kalayaan/Victoria, Daos Property Tarlac 28 Carbonel, Tarlac Cojuangco Property 26 14 12 16

BATAAN People’s Organization PASAMA-Anahao SAKANIKAN

Carbonel, Tarlac Oloy-Buaya, Tarlac Parsolingan, Tarlac Linao-Balite, Tarlac

Cojuangco Property

Project Hog Dispersal

Hog Dispersal

Josephine Cojuangco Cojuangco Property

No. of Brgy / Town / Members Province 60 Anahao, Morong, Bataan 70 Kanawan, Morong. Bataan

Landholding

Project

BTPI Landholding DENR, BTPI Landholding

Soap, Candle Making Soap, Candle Making

NUEVA ECIJA People’s No. Organization Members Buracc (women) Pintol (women) San Josep (women) Sagana (women) Sabik Coop (women) Casa Real Coop (women) Bigkis San Isidro Manganese SMP PMIA Bayog Casa Real Women Pinamalisan Women Pinamalisan Greenhills Camachile Women South Poblacion Coop TUFA

of Brgy / Town / Landholding Province

Project

4.2

Composition of the Board, Staff Members and positions

Composition of the Board: Mr. Francisco Lara, Jr., Board Chairman (VSO Director) Ms. Rhodora Angping, Treasurer (President, Angping Development Foundation for Education) Ms. Elin Mondejar, Secretary (Chairman, Mondejar Foundation) Mr. John P. Sevilla, member (Vice President, Goldman Sachs, Inc) Dr. Edson Arceo, member (Professor, Tarlac State University) Mr. Amado Higante, member (President, NMGL) Ms. Aurea Miclat-Teves, member (Executive Director-PDI)

Staff Members and Positions: National Office: Aurea Miclat-Teves, Executive Director Ruel Punongbayan, Program Coordinator Blen Espartero, Educ coordinator (ADFE-PDI) Mirriam Balatan, finance officer Ramon Ayco, researcher Sigfred Balatan, photo documentor Jean Buan, bookkeeper Boyet Adraneda, driver

PDI Central Luzon: Al Carillo, Regional LTI Coordinator

Gina de Fiesta, Regional Livelihood Officer

Local Leaders: Carling Domulot, Local leader for Zambales Ernesto Acera, Local leader for Zambales Loida Rivera, Local leader for Pampanga Amado Higante, Local leader for Pampanga Eddie Ibabao, Local leader for Bulacan Maxima Taruc-Valdez, Local leader for Tarlac Emma Jimenez, Local leader for Bataan Paula Patok, Local leader for Nueva Ecija Pablo Bocable, Local leader for Nueva Ecija Aguinaldo Bacu, Local leader for Palawan Francisco Glimaco, Local leader for Palawan

PDI-Zambales Al Carillo – Coordinator Myrna Arandia, community organizer German Dizon, ADC officer-in-charge Virgilio Domingo, ADC assistant Analiza Mariano, community organizer Danilo Balatan, local volunteer Manuel Paanan, local volunteer

PDI Bataan Edgar Domulot, local volunteer Butog Domulot, LTI organizer

PDI – Pampanga and Tarlac Julio de Guia, Coordinator Azenith Patok, organizer Fer Luis, organizer

PDI-Nueva Ecija Gina de Fiesta, Coordinator Francis Budtan, organizer Eva Manglicmot, community organizer Johnson Sabio, local volunteer PDI-Palawan Tony Santos, Coordinator Bernadette Legan, RH staff Ely Santos, finance officer Darwin Fetalver, tech. assistant Gerry Gevel, agriculturist

4.3

PDI’s approaches

The integrated Participatory Development Programming approach PDI’s planning concept is named “The Integrated Participatory Development Programming approach”. It consists of the following elements: Environmental Scanning •

Strategic Planning: Problem Focused Group discussion

•

Participatory area management

•

Participatory Review and analysis.

The planning is carried out through the “Area Bases Strategic Planning Process” In practice this means that the planning in each area is based on a common analysis of this specific area. Furthermore, all the groups in the program areas yearly undertake a comprehensive review and analysis of the activities carried out in the last year and delineate the plans for the next year. These plans are then synthesized on the next higher level of NMGL with representatives of the lower levels participating. These plans are the foundation for PDI to plan its activities for next year. On the regional level these plans are then transferred into activity plans, with specifying responsibilities of PDI staff and POs. Usually PDI assists the planning processes on the different levels of NMGL. The plans called “Comprehensive Development Plan” encompass the more social aspects including the capacity building of the POs by either internal means or outside support (PDI and others) as well as economic endeavors of various sorts. Aside from the yearly comprehensive review and forward planning, quarterly reviews and adjustment of plans are undertaken by the groups and on PDI-level. Programming Approach The principles of the Integrated Participatory Development Programming guide PDI in undertaking development projects in communities. These principles are development imperatives, which require community projects and activities to be (1) participatory, (2) integrated, (3) appropriate, (4) sustainable, and (5) adaptable. 1

Participatory

The very people who are to be the beneficiaries of a development undertaking are the ones who supply the basic information used in formulating and implementing their community programs. They should be active participants in the whole development process rather than passive recipient of aid. The mechanism used here is called the

“problem-focused group discussion”. This is done through workshops and consultations with key people in the area. This process enables the people to discuss freely their present condition, their problems and the ways to overcome them. It makes them grasp their marginalized conditions and then envision an ideal community. It culminates in the formulation of a comprehensive development plan. 2

Integrated

The Comprehensive Development Plan (CDP) includes the program schedule that tries to cover all the significant aspects of the people’s lives. The program has trainings on values formation, leadership and management to address institutional strengthening. It also involves capital build-up and savings program for economic empowerment. Gender sensitivity and educational programs for the youth are also vital to gr4oaden their perspective on the human condition and for socio-political empowerment as well. Construction of physical infrastructure for the community, on the other hand, allows the people to enjoy the benefits of technology. Social infrastructure empowers the people to undertake the program implementation. Moreover, the work plan ensures effective implementation of the program by training people to undertake monitoring and evaluation work. 3

Appropriate

The activities of the integrated development program are planned and implemented according to the capabilities and needs of the people. The training to be provided to them depends on the degree of their maturity as an organization. With this approach, the people are not rushed to something they are unprepared for and whose results do not last long. The appropriateness of training guarantees learning and long-term fulfillment of objectives. 4

Sustainable

With the emphasis on the social preparation of the people, the sustainability of the project is ensured. PDI treats sustainability as the ability of the people to handle the organization independently or with minimal assistance from external agents. 5

Adaptable

The IPDP process is easy to use and can be replicated in other communities. The people themselves can likewise use its system by themselves.

Objective of the IPDP (Integrated Participatory Development Programming) The IPD aims to develop grassroots-oriented Integrated Area Development plan, which will detail and prioritize the necessary intervention projects appropriate to the areas. Methodology of the IPDP The IPDP has three main components, namely I. Community Development Planning, II. Area Management, and III. Review and Assessment. Community Development Planning There are two parts in Component I, namely: Environmental Scanning and Problem Detection Analysis and Focused Group Discussions. The primary objective of this component is to plan and formulate comprehensive development intervention programs appropriate for each area through participatory methods. Participatory means after grassroots consultations and dialogues have been conducted in order to elicit the felt basic needs of the beneficiaries. The output of this phase is a Comprehensive Development Plan (CDP). Environment Scanning involves a two-step process: the internal assessment and the external assessment. The internal assessment is the review of the organization’s orientation in terms of work, organization and personnel in the light of their current views and vision. This process helps analyze the strengths and weaknesses of the organization in order to maximize the former and minimize the latter. The external assessment involves a thorough study of the outside conditions that affect the organization’s capability to implement the program. Review of external conditions involves the analysis of the land, people and other organizations working in the area. Knowing and understanding thee factors is necessary in evaluating the available opportunities as well as the obstacles that may hinder implementation. Maximum participation shall be emphasized in this process. Knowing the opportunities and obstacles as well as the strengths and weaknesses enables PDI and the community to prepare more a realistic community-based planning. Problem Detection Analysis and Focused Group Discussions are strategy formulation processes that involve serious round-table discussions and small group workshops with key leaders in the area concerned. A comprehensive development plan is discussed; ventilating and prioritizing support programs, development objectives and subsequent strategies and approaches. These round table discussions and workshops are guided to come up with a CDP that will assure maximum benefits for the community. Finalization follows these discussions and all data gathered and views presented are integrated in one document that outlines the major interventions for a social servicesbased and grassroots-oriented Comprehensive Development Plan. The CDP will be the guide to program implementation and input to participatory area management.

Participatory Area Management Participatory Area Management is an integral part of the CDP. It is the tool used in the implementation and management of the Comprehensive Development Plan. The basic concept of participatory area management is for NGOs to provide guidance in a manner that would maximize people’s participation in the operation and maintenance of the program. A CDP task force composed of representatives from the area-community is organized to oversea and coordinate the CDP components. Maximum participation of the people means that they are treated as partners in development and not merely recipients of the CDP. It is a process that involves the people in both implementation and management of the CDP. Thus, the area management team including the people in the area/community is responsible for the management, operation and maintenance of the program components. Building and strengthening area management by the people give meaning to people empowerment. The key to the success of the Comprehensive Development Plan is not only the integrated approach in development planning but also the participatory area management approach undertaken. All socio-economic work in the area are prioritized and implemented based on the people’s judgment. The CDP ensures sustainability by training the people to assume such responsibilities. Furthermore, the socio-economic program is based on the capabilities of the farmer-victims. The people are part of the whole process from conceptualization to evaluation. Since they are the most important factor in the development effort, the responsibility of liberating themselves become solely theirs as they become the implementers of their own development program. PDI acts only as a support structure, providing technical help, organizational training and education. The support provided by PDI serves to enhance the people’s skills and capabilities. The people’s vision for their community can only be achieved through the successful implementation of each activity in the CDP. Monitoring, Review and Assessment Monitoring is a control system of checks and balances to ensure the high quality of program implementation. This will help track the day-to-day operation of the CDP. A Monitoring Task Force composed of the beneficiaries themselves will help review and monitor the daily operation of the program. A strict monitoring system shall be followed to unsure that the major and minor objectives of the CDP are met. Problems are immediately resolved. Funds, whenever appropriated, are properly utilized. If any problem occurs with regard to program implementation, this will be reflected in the monitoring reports. Monitoring guides the Area Management Task Force in identifying and resolving program bottlenecks and other problems. This also supplies the information on the CDP needed by PDI and other concerned offices and funding agencies. In Component III, the CDP objectives are translated into objectively verifiable indicators. PDI sets a quantifiable gauge for each parameter.

Monitoring and review cut across each program component. For each component, a special set oft parameters will be used. These are selected based on the CDP. Assessment follows every review and becomes the basis for the succeeding courses of action that could lead to amendments of the contents of the CDP based on changing conditions. Participatory development planning thus ensues and the whole cycle is repeated.

4.4

Other programs of PDI

4.4.1

Rural Development Programs

Community Enterprise Development in Zambales, 1998-present The Community Enterprise Development in Zambales (CEDZ) was developed in line with the vision of building self-reliant communities through people’s initiative. The program provides financial and technical assistance to identified individuals, clusters and organizations that have the desire to engage in small and medium enterprises. The take-off point of CEDZ was PDI’s prior program Resettlement and Reconstruction: An Integrated Response to the Problems Caused by the Mount Pinatubo Eruption. In a holistic rural development program, enterprise development is deemed especially crucial in sustaining the welfare of rural communities. This will give farming families alternative livelihood, which can augment their seasonal farm income and can save them from the effects of low farm production. The CEDZ has at least three components: [1] capital build-up, [2] promotion of saving as a value, and [3] strengthening of social capital. An organization can only start to implement a livelihood program upon fulfillment of these requisites and the type of project they can engage in depends on the degree of their financial credibility and organizational maturity. These mechanisms secure their preparedness to handle enterprise projects in both financial and organization aspects. Thus, dole-outs are avoided and program failure is minimized. Their capacity for repayment of loans or any assistance is also initially guaranteed. Current Status. The CEDZ Program is currently operating in Botolan. Candelaria, Pangolingan and Iba. It is now assisting 13 enterprise projects distributed among seven organizations and three individuals. The organizational projects include sari-sari or variety stores, hog raising, carinderia (canteen operation), seedling maintenance, Botika sa Barangay (Village Pharmacy) and transport (using jeepneys). Three individual enterprises were also identified, namely wood and aluminum framing, footwear making and nursery. PDI assistance to these enterprise projects ranges from P5,000 to P20,000 and from P30,000 to P300,000.

To assist the beneficiaries in proper management of their enterprises, PDI is providing them with training-seminars on Leadership and Basic Bookkeeping. PDI community organizers are also carrying out continuous organizing and monitoring of the projects. Simultaneous with the CEDZ Program, PDI is continuing other development activities relevant to the Zambales rural communities. The LTI desk is currently handling agrarian reform advocacy for the Aeta of Botolan (See Research and Conferences for related information), and for farmers of Palauig, Taposo and Candelaria. An informal education or a literacy and numeracy program for indigenous people is also being given to the Aeta of Sta. Martha, Pangolingan (See Education Programs). The Reconstruction Program in Nueva Ecija, 1994-present The Reconstruction Program inNueva Ecija started as a response to the need for land of the Igorot earthquake victims from Carranglan, Nueva Ecija. PDI’s initial area of coverage was a 3,100-hectare portion of the Fort Magsaysay military reservation in Laur, in south Nueva Ecija. The comprehensive and integrated rural development program aims to empower the people both economically and politically, by helping them acquire homes and lands to till. Through the program, the Igorots were able to rebuild their lives and once again become productive members of society. Through negotiations with the government and local residents, the Igorot migrants and the original farmer-settlers received their land ti9tles in1996. Each Igorot family received a 2-hectare farm-lot and a 500-sq.m. homelot. The farmers in the lowland portions were provided with logistical support in the surveying and titling of their home-lots and their new farms. The program applies the conceptual framework used by PDI in the Zambales program Resettlement and Reconstruction: An Integrated Response to the Problems Caused by the Mount Pinatubo Eruption, which integrates agrarian reform with support services and social infrastructure building. The program consequently replicates, with considerable success, the Model Agrarian Reform Community (MARC) approach used in Zambales. With the people’s recognition of PDI’s effort in providing new land and livelihood to the Igorot farmers, PDI is now a member of the Barangay council. It is one of the three member-organizations of the Land Tenure Improvement (LTI) Committee, which was organized to settle land problems within the military reservation. Current Status. PDI already covers the whole of Nueva Ecija through advocacy and policy work and the entire town of Laur, with focus on Laur Poblacion (town centre); sitios of Buracc, Manganese, Casa Rijal, San Isidro and Sagana for import projects. As part of the goal of sustainability, PDI supports a group of LEISA (low external input sustainable agriculture) practitioners in Laur Poblacion. It has 25 members, who grow rice and onions in lowland, irrigated areas. They have impressively made a 100% repayment after four cropping seasons.

PDI also sponsored projects on Alternative Reforestation, Goat’s Meat and Milk Production/Livestock, and Hog and Carabao Dispersal. Alternative Reforestation aims to reforest portions of the vast mountain ranges of Fort Magsaysay through community initiatives. Three nurseries have already been set up, one of which was established with the participation of public school children. Through the Goat’s Meat and Milk Production/Livestock Project, the LRRP envisions to establish a goat centre in Southern Nueva Ecija. PDI has Anglo-Nubian and Bower goats in its demonstration farm. Local goats have been dispersed, and are being repaid by the beneficiaries. The imported goats are currently being acclimatized in the area and will be use to upgrade the local breed. Production of goat’s meat and milk will provide the community alternative livelihood. The Hog and Carabao Dispersal Project provides the Igorot farmers with additional income. They use the carabaos in the field and rent them out to nearby farms while women raise hogs in their backyards. There is still a land dispute over the Fort Magsaysay Reservation. PDI is engaging the community in various consultations with government agencies to negotiate these disputes. (See Researches and Conferences). Agricultural and Coastal Resource Development Program for Culion, 200-present Food security for the people of Culion is the main concern of the Agricultural and Coastal Resource Development (ACORD) Program. It is envisioned to be achieved through the maximum and efficient, yet sustainable, utilization of the island’s agricultural and coastal resources. Crucial in this undertaking is the promotion and strengthening of the people’s social and political participation Formerly known as a leper colony, Culion, a resource-rich group of islands in the northern part of Palawan, became a municipality in 1992 by virtue of Republic Act 7193. The island with its new municipal government, is now faced with the challenge of eradicating poverty and the stigma of being a former leper colony. PDI facilitated a multi-sectoral focused group discussion with the people in the minucipality, which resulted in the formation of a municipal vision, mission and program of action. It also conducted a Development Management Course (DMC) for selected participants from the municipal office, including the mayor and the Sangguniang Bayan. The DMC included topics on approaches to development, project development and development planning. Seminars on agricultural and coastal resource management to achieve food security are also being extended to the farmers of Culion. Current Status. PDI has two central areas of operation in Culion, namely Patag and Galoc. Rice Production in the framework of sustainable agriculture is the main program in Patag. A cooperative with 22 members has been set up in this area to undertake the program. The cooperative currently manages a Seed Propagation Demonstration Farm and engages in Fertilizer Trading and Seed Dispersal.

In Galoc, a cooperative with 32 members has been activated. PDI has set up a seaweed demonstration farm in Galoc to show the yearlong viability of seaweed farming. A program for electrification for the entire Galoc community was also sponsored by PDI, with support from the Local Government. Bulawen Resettlement and Reconstruction: An Integrated Response to the Problems Caused by the Mount Pinatubo Eruption, 1991-1998 The PDI program in Zambales began as a long-term response to the needs of the victims displaced by the Mount Pinatubo eruption in 1991. Together with partner organizations, PDI instituted a resettlement program for the farmer-victims using the concept of genuine agrarian reform. The concept pertains to the integration of land distribution with provisions on economic and social infrastructures for the beneficiaries. Under the program, each family received 1 240-sq.m. home-lot and a 1.3 hectare farm-lot. The program also provided support services, from housing to food production assistance, all necessary to sustain the people through the long and arduous process of resettlement in a new place The resettlement phase of the program is already complete. Sibol, the name given by the people to their new home, is now a vibrant community. The problems and aspirations of the people are already beyond those that came with the eruption of Mount Pinatubo. The Sibol Agrarian Reform Beneficiaries Multi-Purpose Cooperative, Inc. (SARBMPCI) is now one of the most active cooperatives in the Zambales province. The women’s organization in the area, Samahan ng Kababaihang Magbubukid ng Sibol (SKMSI), has initiated several projects of its own. PDI expanded its program reach by initiating LEISA (low external input sustainable agriculture) projects in the Barangays of Bulawen, Salaza and Santo Niño. PDI is also helping in the reorganization of the people’s organizations in these Barangays. The unique situation in each area, nonetheless, suggests that new and creative approaches be used. Instead of reviving the cooperatives in each of the Barangays, PDI is organizing associations of LEISA/SA practitioners. The LEISA practitioners in the areas are the direct beneficiaries of the PDI marketing program. For its effort and for developing and putting into practice suc a concept, PDI was given world recognition in the Basic Needs category at the World Expo 2000 held in Hannover, Germany. Agro-Industrial Development Program in Pampanga, 1992-1995 This program has established an agro-industrial centre in Floridablanca, Pampanga. PDI’S clientele consisted of cooperative members of Floridablanca Federation of Multipurpose Cooperatives, Inc. (FFMPCI). The FFMPCI has a total membership of 2,197 farmers cultivating 2,777 hectares. This is another PO-NGO-GO partnership involving the FFMPCI, PDI and the Department of Agrarian Reform. DAR distributed the land, PDI handled the social infrastructure building, and the federation implemented the agroindustrial project.

4.4.2 Education programs PDI Scholarship Program The PDI Scholarship Program is intended for the indigents in the provinces of Pampanga, Nueva Ecija, Zambales, Palawan and Metro Manila. The beneficiaries include street children, children of farmers and indigenous people (Aeta, Igorot and Tagbanua). The scholarship program is now in its fifth year and has been supporting 53 scholars, of which nine have graduated. The program depends mainly on the generosity of benefactors. Sustaining the education of the students will be better assured as more pledges and more benefactors join the program. This will also facilitate plans to accept more deserving students in the coming years. Day Care Program PDI supports a Day Care program in Zambales by providing supplies and materials for the school and an honorarium for Day Care teachers. Indigenous People’s Informal Education Program PDI has development programs for at least three major indigenous groups in the Philippines, namely the Aeta in Zambales, the Igorots in Nueva Ecija and the Tagbanuas in Palawan. Because of their lack of access to conventional education, PDI devised a program that will at least give the young people basic knowledge in writing, reading and counting. This has been operationalized since 2000 for the Aeta of Pangolingan and Palauig in Zambales. 4.4.3

Special Programs

International Conference on Agrarian Reform and Rural Development (ICARRD), 5-8 December 2000 The International Conference on Agrarian Reform and Rural Development (ICCARD) was organized by PDI with other NGOs, GOs and POs. It was participated in by leading agrarian reform advocates, the academe and five governments that are implementing agrarian reform in their respective countries. It was held at last December 5-8, 2000 in Tagaytay City, Philippines. The context of the conference is the reassertion of the indispensable role of agrarian reform in poverty reduction and rural development. It locates AR within the objectives of development and peace; and institutionalizes the need for an interface between and among the state, civil society, private sector and the market. The ICARRD has been successful in bringing together international and national scholars, policy makers and civil society groups/social movements to generate interdisciplinary and multi-sectoral support for agrarian reform. It has also identified strategic options and the next steps in influencing agrarian reform and rural development

policies at the national and international levels. Finally, it has revived agrarian reform as a necessary social reform in the context of globalization and an open economy. Community-Managed Agrarian Reform Program, 1999-2000 PDI Director coordinated the conduct of the Community Managed Agrarian Reform Program (CMARP) Feasibility Study for the Office of the Secretary of the Department of Agrarian Reform (DAR) sponsored by the World Bank. Based on the feasibility study results, the DAR proposed that CMARP be the alternative model to the Market Assisted Land Reform model espoused by the World Bank. Fund Management of the Institute for Low External Input Agriculture (ILEIA) Program in the Philippines, 1996-1999 PDI served as fund manager of the ETC, The Netherlands ILEIA Project. PDI was fund manager for the ILEIA from 1996-1999. Institutional Evaluation and Strategic Planning for the Mindoro Institute for Development (MIND), 1990-1991 In this project, PDI undertook institutional evaluation and strategic planning for POs and NGOs in Mindoro. The project was commissioned by the Mindoro Institute for Development (MIND) in 1990 and lasted through 1991. It was a breakthrough project for PDI because it demonstrated that the participatory development processes could be done. Throughout the process, the farmers and the concerned agencies, namely the DAR and the Department of Agriculture, have all been active in formulating and implementing the plan of action.

4.5

Conferences conducted by PDI

Agrarian Reform and Governance: Multi-Stakeholders’ Forum in Central Luzon, San Fernando, Pampanga, 03 May 2001. The International conference on Agrarian Reform and Rural Development (ICARRD) held in December 2000 brought about a renewed concern for agrarian reform and rural development, which served as the take-off point for this forum. ICARRD provided a venue for the discussion of existing agrarian-reform issues and concerns particularly in Central Luzon amongst which includes financial/budgetary constraints. In emphasizing the national government’s share of responsibility in the shortcomings of agrarian reform, this forum pushes for the inclusion and prioritization of agrarian reform in President Arroyo’s social and political reform agenda. Among those who participated in the forum were Ms. Linda Hermogino (Assistant Regional Director for Operations, Region III), Dr. Edson Arceo (Provincial Agrarian Reform Officer, Zambales), Mr. Efren Moncupa (DAR Undersecretary for Operations), Mr. Ricardo B. Reyes (National Coordinator, PARRDS) and Cong. Etta Rosales (AKBAYAN Partylist Representative).

Agrarian Reform in Nueva Ecija: Development Within Reach, Cabanatuan City, Nueva Ecija, 22 May 2000. In preparation for the International Conference on Agrarian Reform and Rural Development (ICARRD) in December 2000, a Provincial Consultation-Workshop on Agrarian Reform was held in Nueva Ecija. It focused on the prospects for agrarian reform and rural development in the province. Nueva Ecija was chosen since it has a lo9ng experience inagrarian reform implementation being a pilot province for Operation Land Transfer in the 1970s. Through this forum, members of DAR, POs and NGOs were able to review the status of agrarian reform in Nueva Ecija and identify strategies to improve their work. Workshops on land issues, support services and civil society followed. Linda Hermogino, assistant regional director for operations of DAR Region III, was the guest speaker. Agrarian Reform in Zambales: Development Within Reach, Iba, Zambales, 27 July 2000. A provincial Consultation-Workshop was held in Zambales in preparation for the International Conference on Agrarian Reform and Rural Development (ICARRD). Vice Governor Cheryl Deloso, three town mayors, representatives from DAR and inter-agency groups, three NGOs and six POs attended it. They discussed the agrarian reform situation in Zambales and how it could be further improved. Afterwards, they were spread into three groups for a workshop on three main components of agrarian reform implementation. These were on [1] land tenure improvement, [2] support services delivery, and [3] civil society involvement. Ang Lupang Ninuno ng mga Aeta ng Botolan (Botolan Aeta’ Ancestral Domain), PDI Alternative Development Center, Palauig, Zambales, 15 August 2000. From a consultation-workshop in July 2000, where the Botolan Aeta brought up their case in the Puyat area, a more up-close consultation with the Aeta regarding the same case was conducted. The Aeta hoped that CARP would cover a portion of the disputed area, which they also claim as their ancestral domain. Along with this concern, the Aeta also voiced their need to improve their livelihood. To address this, they thought that assistance from government and non-government agencies would be helpful. Consultation-Workshop with Panayotti Farmers, Pampanga, 16 August 2000. After the farmers revived the Panayotti lands from under the lahar, they re-negotiated the CARP coverage area. They suggested a lower price, which the landowner did not accept. Aside from the landowner’s resistance, another problem regarding the land was its lahar danger status. In a consultation-workshop with representatives of PDI, PRIDI, and KMDP, the farmers expressed hopes that the PHIVOLCS would lift the lahar risk status of the land. They were also prepared to continue their negoti9ations with the landowner

for a lower price of the land. They cited organizational strengthening as a necessary requirement for improving their strategy in dealing with these matters. Casa Rijal Consultation-Workshop, San Isidro, Laur, Nueva Ecija, 18-19 August 2000. Attended by 59 Igorot farmers and r epresentatives from DAR, LBP and PDI, the consultation updated the farmers on the coverage status of their land under CARP. The land in question was the resettlement area in Fort Magsaysay in Laur, Nueva Ecija, where the Igorot farmers were brought after the 1990 earthquake. However, it turned out later that the area is privately owned. During the consultation, the farmers tried to haggle with LBP for lower valuation. They contented that they were responsible for the development of the land. Thus, the land should not be priced based on its current developed state. Aeta’ Land and Life: Prevailing Issues on the Tenth Year of the Mt. Pinatubo Eruption, Bahay ng Alumni, UP Diliman Campus, Quezon City, 21 September 2000. The conference tackled the Aeta’ land problems in Zambales. The Aeta of Zambales were among those hardest hit by the Mt. Pinatubo eruption in 1991. The role of agrarian reform and the ancestral domain provision in the Indigenous Peoples’ Rights Act were discussed. The recurring threat of lahar in the area being claimed by the Aeta was likewise highlighted. PHIVOLCS Director Raymundo Punongbayan was the key speaker. Kababaihan sa Kanayunan at Kasiguruhan sa Pagkain (Rural Women and Food Security), PDI Alternative Development Center, Palauig, Zambales, 16 October 2000. The forum is PDI’s response to the need to recognize and strengthen the role of women in the food security of the family and the community. Such need is especially evident in the rural sector where the women’s role in farming is considered secondary. The forum employed three guideposts in evaluation food security. These are access to as stable source of income, such as land; sufficiency in food supply and some allowance for surplus for added income; and the quality of food for the health and nutrition of the family. Ten women’s organization of Central Luzon attended the forum. Agrarian Reform Multi-Stakeholders: Pampanga, 16 November 2000.

PO-NGO-GO

Conference,

Angeles,

The regional conference aimed to assess the accomplishment and the current advocacy for agrarian reform and rural development in the Central Luzon Region. Central Luzon has been and still is a historical site for the implementation of agrarian reform in the Philippines. It is the rice granary of the country, but its agricultural resources are slowly deteriorating posing threat to food security. The land issues in the region were also tied with national issues, namely the Estrada leadership crisis, the holding of the International Conference on Agrarian Reform and Rural Development (ICARRD), and the

Community-Managed Agrarian Reform Program (CMARP). from POs, NGOs and government agencies attended.

4.6

Several representatives

Films produced by PDI

“A Place Called Sibol” (1994) The Mt. Pinatubo eruption in June 1991 drove people from the mountain’s foothills to find new homes. A place christened “Sibol” was one of their resettlement areas, which served as a new-found home to a mixed group of farmers displaced by the eruption. Previously idle land and densely covered by cogon grass, Sibol is now a cleared land of 429 hectares, which has a communal farm and orchard. Not has it only been a home to the families that settled there, but it also became a source of livelihood for farmers, who have been given individual farm lots to work on. The Project Development Institute (PDI) and the Philippine Peasant Institute (PPI) are instrumental in the realization of this “dream”, being the catalysts that pushed the government to fulfill its duties and obligations. PDI, on its own, has been assisting the community to develop a sense of autonomy by encouraging community people to make decisions on their own as one community. Over with the Resettlement Stage, PDI takes on with the Reconstruction Program in Sibol for a longer term of feasibility and sustainability of the community. “Laur – A Home for the Igorots” (1997) The devastating earthquake experienced by Nueva Ecija in July 16, 1990 caused the loss of many homes of Igorots of the Carballa mountain. In the search for a new home for the displaced indigenous people, a 3,100-hectare land situated within Fort Magsaysay was identified by PDI as a prospect resettlement site. Through PDI’s coordination with DAR, it was able to successfully resettle the Igorot farmers and ensure the awarding of CLOAs to them. PDI also made it possible for the community to have its own supply of patable water as well as an irrigation system through the construction of a water reservoir, with the nearby spring as water source. PDI continues in assisting the Igorots through its different programs – Production Assistance Program, Food Security Program, Low External Input Sustainable Agriculture (LEISA) and Alternative Reforestation Program. “Pangolingan – A New Beginning” (1997) With the assistance of PDI, Sta. Martha, Pangolingan now serves as a new home for Aeta, who have been displaced by the Mt. Pinatubo eruption in June 1991. Formerly idle land covered with cogon grass, it is now divided into home lots and farm lots for each Aeta family. It has a communal farm of 4 hectares where a family is made to work in line with the community’s Food for Work Program. As agricultural assistance to Aeta farmers, the Carabao Dispersal Program was launched. PDI also established SAKASAMA, a women’s organization, which helps out in finding solutions to community problems regarding health and sanitary. A scholarship program was also undertaken by PDI to educate the Aeta. In turn, the chosen beneficiaries of the

scholarship program, as a community service, share what they have learned with fellow Aeta.

4.7

Books, documents, songs of PDI

Books Power in the Village: Agrarian Reform, Rural Politics, Institutional Change and Globalization, Putzel, Morales, Lara and Miclat-Teves editors, PDI-UP Press Publications, 2001. The Emerging Alternative Rice Marketing System: Selling High Volume Excellent Quality Tice; a preliminary study of an emerging alternative rice marketing system in Manila and Luzon Provinces, Aurea Miclat-Teves ed., ILEIA and PDI Publications, March 2000. Monographs A People-Powered Entry to the New Millennium (2001) The Filipinos greeted the new millennium with the dramatic staging of People Power 2 on January 16-20. The massive protest eventually ousted President Estrada from office. The democratic strength of People Power 2 lies in the fact that it involved different sectors of the society, including the church, the business community, the labor groups, the Left, the military, and artists. Credits must also be given to Cardinal Sin and Cory Aquino. Anomaly in Agrarian Reform: The Flora Garcia Case (2001) The cancellation of CLOAs has been a major concern of agrarian reform task forces in various provinces. One such case is the Compromise Agreement entered into by the government with Florencia Garcia-Diaz in the more popularly known Flora Garcia case. Many farmers can no longer use their CLOAs as a guarantee of land ownership because of widespread cancellations. This development threatens not only farmers, but also the implementation of CARP. Zambales Accomplishment – Grand Slam or Grand Manipulation: An Analysis of LTI-PBD Integration (2001) The PBD accomplishment in Zambales is just slowly catching up with LTI. There is still limited funding for the province’s agrarian reform communities, and farmers still face food insecurity. While Zambales’ accomplishment in land redistribution is already 98%, such accomplishment is still way below expectation in the context of the implementation of CARP for the past 12 years. LTI issues must be addressed, including the possible reinclusion of lahar-affected lands and the anomalous issuance of CLOAs.

The Aeta’ Land and Life: An Advocacy Paper on the Land Claim of the Aeta of Botolan, Zambales (2001) The Aeta claim to the Puyat land emerged in the course of community organizing work by PDI. The Aeta are using two legal weapons to claim the land, namely the ancestral domain provision in the Indigenous people’s Rights (IPRA), and the Comprehensive Agrarian Reform Law (CARL). As of now, advocacy is centred on agrarian reform. It is, however, being stressed that the Aeta’ cause transcends the land issue. Ultimately, it is the Aeta’ welfare, in the form of economic and socio-political education and empowerment that must serve as the main objective of the Aeta advocacy. A Review of Institutional Efforts in Development through Agrarian Reform: LTIPBD Integration in Nueva Ecija (2000) From the perspective of LTI-PBD Integration, where land provision must be merged with physical and social infrastructures, Nueva Ecija still needs more integrative efforts to attain development. LTI implementation in Nueva Ecija has not been synchronized with PBD, which left farmers unprepared for farm management. Also, infrastructure and credit facilities remain inadequate and institutional efforts to train development workers are still in “retooling” stage. Cohesion among DAR, civil society, local government and private sector is still lacking. DAR’s also needs to improve its ability to reach out to the community. The Disappearing Rice Industry of Central Luzon (2000) Both man-made and natural problems have contributed to the declining productivity of the rice industry of Central Luzon. The man-made problems include the high demand for expensive chemicals and hybrid seeds, which were carried out through Green Revolution. Globalization and modernization later caused massive conversions of agricultural lands for industrial and commercial uses. Natural calamities, such as El Niño and La Niña phenomena, earthquakes and the Mount Pinatubo eruption, also left immeasurable damages. While the region can still sustain its food or cereal requirements, the future stability of its rice industry remains precarious. This threat is particularly true in the context of the national food security condition. The Role of Programs and Policy Research in NGO Work with the Civil Society in Retrospect (2000) NGO work aimed at institutional reforms through democratic processes must also become effective conduits of knowledge and information. It can be done by linking the citizens to the policy makers and decision-makers through citizens’ participation in researches. But aside from aspiring fro a reliable and credible research output, NGOs must also be able to influence government policy makers to accept and use these research materials. The role of Women in the New Millennium (2000)

Women’s movement seeks the improvement of women’s conditions in various aspects of life. The status of Filipino women in Philippine society still needs more attention. Domestic helpers, who are mostly women, are underpaid and the contribution of women farmers’ is largely unrecognized. Rape cases are numerous and they are usually not reported because of fear of humiliation. These problems are also coupled with other issues, such as the negative perception of and the theoretical infirmities of the movement. It is perceived as too radical and very much associated with Western feminism. Securing the Basic Rights of the People: The PDI Laur Experience (1999) After losing their land in northern Luzon and in northern Nueva Ecija due to armed conflict and an earthquake, the Igorots of the Cordilleras, with the help PDI and DAR, sought out new lands to claim for their own. A portion of land inside Fort Magsaysay, Laur, Nueva Ecija, was identified for their resettlement. There were numerous obstacles before their right to the land was finally recognized – bureaucratic red tape; land speculators who attempted to block the land transfer, and harassment. Despite all these, the farmers did not lose hope. With allies helping them and through continued engagement, they succeeded in acquiring a new home. The Central Luzon Experience on LTI-PBD Integration (1999) After the eruption of Mount Pinatubo in Central Luzon, the PDI developed a resettlement and reconstruction program for the displaced farmers. PDI succeeded in this agrarian reform program using the concept of a model agrarian reform community (MARC). DAR then developed its on program following PDI’s MARC approach. This led to the identification and formation of several ARCs in the province of Zambales. Potential beneficiaries were first identified and then relocated to designated arable lands. They were also provided support services. The Alternative Production and Marketing Support Program of the Project Development Institute (1997) The Alternative Production and Marketing Support (APSMP) offers fund support for onfarm activities. It has provisions on technical, financial and organic material inputs for farmer-beneficiaries. The APSMP has five important features – easy access, needsoriented, values-oriented, area-specific and sustainable. The program sees to it that farmers receive training before they are given provisions and their organization is encouraged to develop a savings and credit program. PDI has used APMSP in the Bulawen Resettlement Project in Zambales. Bulawen Resettlement: Responding to the Mount Pinatubo Disaster (1996) Right after the Mount Pinatubo eruption, PDI responded to the needs of the victims by helping set up the Bulawen Resettlement Area. It is a 429-hectare CARP land located in Brgy. Bulawen-Salaza, Palauig, Zambales. The settlers, who were Aetas and Ilocanos,

named the place Sibol, or spring of life. Aside from residential lots, the settlers were also provided farmlands. Other important provisions of the rehabilitation program included financial support, food production, health and sanitation and organizational strengthening. Emergency Seed Distribution (ESD) in the Mount Pinatubo Area in Central Luzon (1996) PDI started an Emergency Seed Distribution (ESD) program after the Mount Pinatubo eruption. The farmers have been using traditional rice varieties (TRVs) in their farms because these varieties were better and stronger than the new breeds. But sources of TRVs were mostly wiped out and very few were saved. In cooperation with another NGO, many sacks of different recommended varieties of these TRVs were purchased in Occidental Mindoro and distributed to the farmers in Palauig, Zambales. With these TRVs and some seedlings of frui9t trees, the farmers have started to make their lands productive again. Pangolingan Resettlement Project (1996) The Pangolingan Resettlement Project was intended exclusively for Aeta, who had lived around Mount Pinatubo. The project, which involved 110 hectares of agrarian reform land, started in December 1993. The indigenous background of the Aeta necessitated an unconventional development approach. Aside from culture, language was a big barrier in interacting with the Aeta. Nevertheless, data pertinent to the intervention measures were gathered through diagrams and drawings. During the research period, food security remained the most important concern among the Aeta. The NGOs as a Force for Development (1996) Non-government organizations are a social force that represents a democratic and pluralist society. They are particularly recognized as democratic entities, poverty alleviators, advocates of sustainable development, and efficiency enhancers. However, NGOs must not replace the government’s role in development, but only aid government organizations in their quest for development. While GOs have the resources for their work, they usually suffer from slow implementation due to the snail-paced bureaucratic processes. NGOs, in partnership with GOs and with people’s organizations, can mobilize these resources through advocacy and networking to speed up development.

Maria Clara – a PDI song (Women by Mon Ayco, PDI) Are you the Maria Clara, Hule or Sisa Who does not know how to fight Why are you crying over your oppression, Women, are you naturally weak? Women, hoping for freedom Are you Cinderella, Whose only hope are men? Are you really Nena Who lives by prostitution? Women, are you made for bed? Let us open our minds Let’s open our minds and analyze our societal conditions We can mould our minds. How our minds were moulded Or is it your fortune to become a prostitute? For us to accept that we are mere toys You want to rely on crying? Women, is this your fate? Why are there Gabrielas Theresa’s and Tandang Soras, Who did not cry nor depend on the pity of others, They took up arms, Fought, hoping to be free. Why are there Lisas, Liliosas and Lorenas, Who were not afraid to fight, And now, they have convinced others to join Women, whose aim is to be free Women, who hope to be free

5

Results of the evaluation

5.1

Presentation of three concrete land struggle cases in Tarlac and Pampanga

Overview of the three cases Cojuangco Property 300 ha. Land size Gerona Paniqui, Location Ramos, Pura, Tarlac Name of PO No. of members

SMMC ?

Size of land claimed Size of land acquired Actual No. of beneficiaries a) PO members b) non PO members

300 ha. 68 ha. 48

Tinio Property 60 ha. Sto. Rosario, Magalang, Pampanga SRFA 15 members (10 families) 60 ha. 30 ha. (in process) 10

9 (25 ha.) 39

10 None

Umcauco Property 108 ha. Brgy. Anunas, Angeles City, Pampanga BAFA 70

70 None

108 ha. 108 ha. 70

Chronology Cojuangco Property April 2003: PUMASOK AND PDI Establishment of SMMC Sep. 2003:

Establishment of K 4 (Women’s organization)

Oct. 2003:

Distribution of CLOA

Sto. Rosario, Magalang, Pampanga 1992: Farmers were invited by the land owner to till the land 2000: Farmers eje4cted – PUMASOK ang PDI 2001: LGU approved reclassification of the areas to residential and industrial zone 2002: Court order allowing farmers to till the land again – farmers now pay rental (P. 4,000 per ha per year) 2003: DAR survey: papers at land Banil for validation process

Limcauco Property 1963: Start of LTI struggle 1992: Establishment of BAFA 2000: PUMASOK ANG PDI 2003: Distribution of CLOA 1988: Property classified as commercial farm 1998: Property classified as agricultural land 2002: LGU Resolution to fast track distribution of land

Case Study LTI Struggle of Farmers in Carbonnel, Tarlac The Cojuangco clan is the most powerful clan in Tarlac Province. It also owns large landholdings, the most known being the 4,000-hectare Hacienda Luisita which is now being developed as a commercial and industrial centre. The Cojuangco also own most of the lands in the towns of Gerona, Paniqui, Ramos and Pura, in Tarlac Province. The aggregate size of their landholdings in these towns is around 300 hectares. Most of these lands have been covered by the 1972 land reform program for rice and corn lands. In fact, land titles in favor of farmer beneficiaries were actually generated. However, the supposed beneficiaries of the program never received their titles to the land. The farmers of Brgy. Carbonel, in Gerona, are among those who never received their titles to the land. PDI intervened in Gerona in April 2003, aiming to assist farmers in claiming the 300 hectares owned by the Cojuangco family. Previously, Carbonel was considered a hot area because of the infiltration activities of the New People’s Army. PDI came into the area under an environment where outsiders, even NGOs, are suspected of being communists. The Cojuangco family and its farmer-allies used the communist scare to discourage PDI from organizing the community. Against the odds, PDI organized the Samahan ng mga Magsasaka at Manggagawa sa Carbonnel (SMMC; lit. Carbonel Farmers and Farm Workers Association). Beginning with only a few members, the organization would soon expand to include 18 members. Many other farmers did not join the organization because they did not believe that

organizing can e an effective means of claiming the land. Besides, they were afraid that if they joined the organization, the landowner would kick them out of the land. By September 2003, a women’s organization was established in the community. This organization would provide additional support to the struggle of the SMMC apart from the women’s initiative of improving their lots in the community through livelihood activities. Mobilizing PDI’s partnership with the DAR at the national, regional and provincial level, the SMMC would be able to acquire information that would facilitate the land transfer process. Anomalous transactions were discovered forcing local DAR officials to respond and to act more positively. In October, during the evaluation period, PDI and SMMC succeeded in persuading the DAR to initiate the redistribution of some portions of the Cojuangco land. During a special ceremony attended by the evaluators on October 13, 2003, 48 Certificates of Land Ownership Award (CLOA) were distributed to 48 farmer-beneficiaries. These CLOAs represented 68 hectares of land. Only 9 members of SMMC benefited from the distribution. beneficiaries, 39 farmers, are non-members of the organization.

The majority of the

The distribution of the CLOAs made a strong impact on the community, especially unorganized farmers who lost their faith in the agrarian reform law and in the value of organizing. The initial success in Gerona can be attributed to the following factors: • • • •

The determination and strength of SMMC despite its small size. The inputs of PDI in terms of organizing and strengthening the SMMC. The acquisition of information from the DAR that surfaced anomalies and pressured local DAR officials to respond and act more positively; and, The potency of the PDI-PO-DAR partnership that is mandated by the DAR Central Office.

The beneficiaries have long been in possession of the land they till. The issuance of the CLOA strengthened their ownership status. What they need to overcome is the strong pressure from speculative land markets where artificially generated rise inland prices are expected to tempt farmers to sell their land. There is a need for PDI and the SMMC to look into land development. Having secured the CLOAs, the next challenge for the farmer-beneficiaries is to prove that they can make their lands financially viable. Given their low income positions and limited access to external resources, they see the need for PDI to continue its support. This is not to mention that 68 hectare represent only a small portion of the 300 hectares claimed by farmers.

Case 1: Cojuangco property, Gerona

Negative external Factors • Owners resistance • History of connivance with DAR and LGU officials • Landowners prearranged list of FB • Farmers “wait-and-seeattitude” • Farmers fear

Activities • Organizing for LTI • Organizing for ESS • Scholarship

Activities • Acquisition of information • Consultations (farmers, PDI) • Training, planning

Activities • Dialogues through SCAT • Internal consolidation of farmers • Threat of militarization • Local government view towards development • Landowners strong Results • Formation of SMMC, 4K • Distribution of CLOAs

Impacts • Land Security • Strong organization

Results • Encouragement of other farmers • LGU recognition on the strength of the farmers organization

Positive external factors • Farmers willingness to own land

Positive external factors • Partnership with DAR • Willingness of farmers to acquire the land

Case 2: Umcauco property

Negative external Factors • Owners resistance • Non-cooperation of local government (barangay, municipal level) • DAR conviviance with the landowner

Activities • Organizing for LTI • Organizing for ESS • Strengthening the organization • Knowledge on legal procedures

Activities • Formation of CBL • Dialogue and petitions

Activities • Series of consultation • Trainings, plannings, acquisition of information • Landowners resistance

Results • Formation of SRFA • Farmers active pursuit of land claim • Increased cropping

Impacts • Change in behavior of DAR personnel • Increased income • Landowners strong resistance

Results • Strengthening of the farmers organization (PO)

Positive external factors • Support from the LGU • Farmers willingness to acquire the land

Positive external factors • Partnership with DAR • Farmers informed about the legal procedures

Case 3:

Umcauco property

Activities • Support to land claim • Organizing for ESS • Strengthening the organization

Negative external Factors • Local maneuvers of the land owner • DAR connivance with the landowner

• Landowners resistance

Activities • Series of consultations, trainings, planning • Acquisitions of information

Activities • Dialogues (SCAT) and petitions at regional and provincial level • Organizational meetings for strengthening of the PO • Trainings and acquisition of

Results • Distribution of CLOA • Active engagement with City Court

Impacts • Security on land tenure • Stronger unity • Change in DAR personnel’s behaviour

Results • Encouragement of other farmers • Policy change at the LGU level

Positive external factors • Support from the LGU • Farmers willingness to acquire the land

Positive external factors • Partnership with DAR • Farmers informed about the legal procedures • PDI support

Scheme – working steps in LTI The following scheme presents an example of implementation in LTI. 1. Monthly meeting 2. Reporting per Province 3. Define problems and issues 4. Definition of tactics – clarifications and assignment of actions to be taken 5. negotiate at different levels -

municipal provincial regional national

6. complementing rallies and other advocacy work and actions 7. feed back and discussion of achievements and evolutions in the next monthly meeting 8. etc…

5.2

Results of impact ranking in Bulacan and Nueva Ecija

Results of impact ranking or most important results of the READ program in Bulacan and Nueva Ecija. Number of mentionings Rank Impact

I

II

Improvement of relationship between 3 husband and wife Level of knowledge and self-confidence increased

1

III

IV

V

Bulacan (5 working groups)

Security of land ownership

3

2

Improvement of Livelihood

1 1

1

3 1

1

3

Impacts Nueva Ecija (4 groups) Security of land ownership

3

1

Improvement of Women’s Situation; *

1

Level of knowledge

2

Increased influence through People’s Org.

1

Improvement of Livelihood **

1

1 2

3

1

1

1

*meaning: women becoming productive, increase in abilities and position in the family. ** one group didn’t rank this impact at all, therefore only 3 counts

5.3

Background information about the ESS

Pig production From the project’s SPF since 2001 to 2003, 55% of the available funds have been used for hog and goat raising projects (PHP 307,000 out of PHP 561,000). The following estimation concerns the economic profitability of the pig production activity supported by PDI

Estimated production cost and benefits from pig raising PHP Totals (PHP) Without labor Costs for feeds

3,700

Medicine

300

Fertilization

1,200

Total production cost

Total (PHP) With labor

5,200

Costs for mother sow*

2,500

Labor**

7,200 14,900

Income 15 piglets x PHP 1200 18,000

Total Benefit

12.800

3,100

Total Benefit in Euro

192

50

* Calculated costs are 10,000 PHP after 4 years ** Work input on the average is 1 hour/day for 11 months or 335 days = 335 hours = 48 working days x daily wage rate of 150 = PHP 7,200 (108 Euro). Costs Calculation doesn’t contain depreciation for pig pen

Dressmaking Women insane Isidro, Laur, N.E. engage in Baby Dress making for local markets. The production process is based on division of labor in which different production steps are carried out by different persons: Purchasing of materials, cutting, sowing, marketing in own sari-sari store or in nearby markets. The women work on their own sewing machines at home. Without marketing costs the costs for materials of one piece is PHP 35.00 + labor costs for cutting and sewing is PHP 10, which amounts to a total production cost of PHP 45. With a selling price of 65 PHP the profit amounts to PHP 20 (0.30 Euro) or about 30% of the production cost. Marketing costs are not considered, since this is done in combination with other economic activities. A sewer may get 3 pieces per hour finished for which she earns 3 x PHP 5 PHP = PHP 15. With a 7 hour working day which is equivalent to the working hours for farm wage labor a woman can earn about 105 PHP. This is somewhat less than the local rate for agricultural wage labor which is 120 PHP. For none of the women sewing is a full time job. But a woman may produce as much as 300 dresses a month, which amounts to an income of PHP 1500 (22,50 Euro) which is roughly equivalent to a half-time job.

Candy Making, Kaybanban, Bulacan The women’s group in Kaybanban engages in the production of candies, which are made from local fruits and sugar. They also try out new recipes, e.g. making candies from low quality pineapples. Usually 12 women of the women’s group engage two times a week for half-a-day in candy making. A profit of PHP 400 is generated for each half day, which divided among the members comes to PHP 66/person for a full day, if all participated. This is below the usual agricultural wage rate of PHP 150 per day. Another favorite economic project of women is setting up village stores (“tindahan”) fro supplying cheaper goods or a buying opportunity in places where no other shops exist. Furthermore, women engage in manufacturing handicrafts, soap or candles. Farmer organizations more use the fund for coffee production, agro-forestry, irrigation.

5.4

Additional information, concerning the SPF

assessment

5.4.1

List of approved Small Projects (Loans)

Approved Small Projects (Loans) Project Project Title Recipient No. 1 Hog Dispersal Galoc 2 Seed Dispersal Bintuan 3 Hog Dispersal NKAP 4 Carabao & Pump SMSR 5 Variety Store SKP-ARC 6 Handicraft SKAB 7 Local Trading NKAP 8 Hog Dispersal LAKAS 9 Hog Dispersal SKT-ARC 10 Hog Dispersal SKP 11 Hog Dispersal SKKP 12 Carabao BAFA 13 Hog Dispersal NAGSIKAP 14 Hog Dispersal SINTA 15 Stick Marketing SKP-ARC 16 Hog Dispersal NKAP 17 Hog Dispersal SIWA 18 Hog Dispersal CWA 19 Hog Dispersal PWA 20 Hog Dispersal BWA 21 Goat Dispersal SWA 22 Hog Dispersal Camachile 23 Hog Dispersal Pinamalisan 24 Hog Dispersal Poblacion 25 Meat Processing SMC 26 Dress Making SIWA 27 Card Making LAKAS 28 Agro-Forestry Pasambot 29 Meat Processing LAKAS 30 Coffee Production SAMAKA 31 Goat Dispersal SAMAKA 32 Food Processing KABISIG 33 Handicraft/Metal BAMPCI 34 Hog Dispersal Carbonel 35 Agro-Nursery LAKAS 36 Hog Dispersal Morong

and

Cost/Amount Approved 10,251 12,000 20,000 47,000 23,175 9,000 12,000 12,500 25,000 12,500 12,500 25,000 25,000 24,000 12,000 42,500 15,600 7,200 16,800 10,800 4,200 6,000 6,000 3,600 22,000 22,375 8,000 14,275 10,000 10,000 15,000 10,000 15,000 25,000 2,500 12,500

recommendations

Own Means pigpen labor pigpen labor labor labor labor pigpen pigpen pigpen pigpen labor pigpen pigpen labor pigpen pigpen pigpen pigpen pigpen labor pigpen pigpen pigpen labor labor labor labor labor labor labor labor labor pigpen labor pigpen

Remarks on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going on-going

Total 5.4.2

561,276

(7,500 Euro)

Further information and comments on the SPF and ESS

Major principles and Rules of the SPF (Small Project Fund) •

The SPF is a credit fund for POs

•

Lower and upper ceilings for projects are defined

•

Interest rate and processing fee are specified

•

A project proposal will be approved by the board of PDI

•

The project proposal will be approved by the board of PDI

•

The monitoring of the projects is done regularly by PDI

•

The terms and conditions are laid down in a contract between PDI and the PO

The project proposals vary in quality. After submission of the proposal usually intensive discussions with the applying organizations are conducted before the proposal is submitted by the PO for approval to the board of PDI. The monitoring of the economic projects is done by the livelihood officer of PDI, which at the same time is the coordinator for Nueva Ecija. The projects are additionally monitored by the program coordinator of PDI. This very careful and thoughtful approach to the economic projects has to be appreciated very much. The principles and rules laid down in the guidelines for the SPF are reasonable. Based on this the SPF can be seen as useful instrument to achieve its intended effects. Whereas the principles and the implementation with its careful preparation and monitoring are assessed positively, it seems that the operational procedures still need improvements. Means and savings of the beneficiaries: With good reasons PDI stated as its principle that “… savings reflect discipline. The policy will be no savings, no assistance”. In the PDI guidelines on the SPF it is stated that “The organization should have a counterpart in the project financial requirement of not less than 25% of the total project cost.” It is not required that this counterpart refers to monetary counterpart. However, from experiences gained with credit programs it definitely is favorable if savings proceed credit. The most recent, undated, summary report of all projects, however, states no financial counterpart at all but only in-kind counterparts. In the case of the pigs, this is a pigpen, which of course has a monetary value. In all other cases it is labor. Likewise, neither the project proposals nor the contracts state an own capital share. This raises the question if the principle of savings and own capital share is made clear to the project proponents and if it is observed for the approval of projects.

Savings and the “bankable” farmer The project proposal emphasized the importance of generating savings in the process of becoming economically thinking and acting subjects. Furthermore, the habit of saving is seen an urgent necessity in order to gain freedom from local money lenders and to build up own capital.

Capital formation and the start-up savings of POs: People’s Organization Savings in bank (PHP) Pintol Women’s Association 1,300 San Josep Women’s Association 2,070 Sagana Mothers Club 1,786 Casa Realo Women’s Association 1.200 San Isidro Women’s Association 4,000 There are some particulars about the saving program. First it is only the women of the women’s organizations who save. Secondly the savings are restricted to saving in the organization. The women get individual passbooks on their savings. The rules are differing from organization to organization. But at least in some organizations the whole amount deposited can not be withdrawn. Interests are also paid on the deposits. The objective is not to connect individual people to official banks but to build up economic ventures of the POs and cooperatives. It was argued that it is very difficult to get an account in a banking institution because the formalities for opening a bank account are too demanding. An inquiry in one meeting where about 70 people attended brought out that only 3 of them had a bank account, i.e. were connected to a formal banking institution. These three people were all leaders of organizations. The percentage might be higher in more urbanized settings. The intention of the project of making the people used to save first before economic projects are sanctioned and encouragement of capital build-up is a very necessary and reasonable one. But it seems that until now the results in this regard are not yet pronounced. Furthermore, the question arises why it is only women who save, why not also men? Men are often accused of squandering money on their personal vices (more than women) such as cockfight and gambling. Therefore, it seems reasonable that men are in even greater need to develop a habit of saving. Additionally men’s POs undertake economic projects for which capital needs to be build up.

From a conceptual perspective it could be asked if the POs are the appropriate institutions for financial business. Do they provide sufficient incentives for the deposits of their members? Do they have the right legal status for financial business? Is there a longterm, perspective of the POs as financial institutions or is it necessary to either pass over the financial and business aspect to organizations with an appropriate legal status, e.g. cooperatives, or connect the farmers to existing banks?

Monitoring and accounting in the different project types A great part of the fund is attributed to pig and goat dispersal. There the credit amount is calculated in terms of animals. All repayment is in kind, i.e. piglets, small goats, and is recycled at once to other beneficiaries. There are no monetary repayments and thus no money will not get back to the SPF to use as new capital. Because monitoring about repayment status is in kind this project type needs separate accounting and reporting. It does not make sense to put it in one list with monetary credits. Monitoring data for this project type could be the number of returned piglets, number of distributed piglets, and number of beneficiaries, and mortality rate. After one year one could see how many pigs should have been and actually have been returned. The value of these pigs could be expressed in monetary terms, in order to see the growth rate of the “pig fund”. The list presently used, which follows the EED format, is not appropriated for this kind of credt provision. Of course the expenditures for the hog dispersal have to be accounted for and included in the financial report in monetary terms. For the credit which is repaid with interest and where the money is ploughed back to build up a monetary revolving project fund held by PDI, a separate accounting and reporting is needed. Another small project, the card making of the LAKAS organization, has no repayment mentioned at all in its agreement. With this project it is furthermore the question if it can be sustained for its purpose of earning income for scholarships, because the profit is small, and considering interest payments it would be so small that hardly any capital can be generated for reinvestment. The present monitoring and reporting lists do not provide information on the repayment status of the revolving fund, i.e. the comparison about payments due and actual payments made. The lists are not differentiated on the duration of the loan, principal approved, processing fees and interest to the paid and date due. This, however, is an important aspect for monitoring and making a revolving fund work. Furthermore, the payment and repayment status of credit programs should be always accounted for immediately and at least a monthly status report should be in the first week of the following months.

The contracts The contracts are clear in most of the points except the terms and conditions of repayment. The amount of loan is stated as a whole. It usually states that the whole amount including 3% processing fee and 1% interest per month to be paid within one year. No absolute figures are provided for the amount released, since this is not identical for the loan amount because 3% processing fee are immediately deducted from this. In the next paragraph it is stated that if the PO is able, a certain amount of x PHP should b e paid each month. In one example on a loan of PHP 15,000 there should be paid 12 monthly rates of 1,400 PHP. This would amount to a sum of PHP 16,800. But considering the monthly down payments in calculating the interest the repayment would only amount to PHP 15,975 which is PHP 825 less, i.e. almost half the amount of interest. In the above case the rates for the monthly repayment were based on the whole loan amount. In another case (water buffalo and water pump loan) the calculation of the repayment was obviously based on the actual capital available (loan amount less processing fee). These contradictions or misunderstandings about the calculation could be avoided if a clear calculation rules would be written down. Furthermore, a repayment schedule with information on the absolute figures for repayment rate, interest on the respective (remaining) loan amount, total repayment for the month and remaining loan may be attached to the contract. Loan rescheduling has to be adjusted if this case occurs. Based on this it also will be easy to monitor the fund. “If able” (kung kaya) clauses are confusing, clear agreements are better. Repayment schedules: Repayment schedules sometimes seem unrealistic for the type of project. Water pump and carabao loan are more an example of a long-term investment. Even if one harvest already would bring sufficient income to repay the loan the question is if there is enough benefit to establish a maintenance and replacement fund. It seems that the repayment scheduling is not deduces from realistic assumptions about the expected returns.

5.5

Background about the poverty situation and measures and strategies to reduce poverty in the Philippine context

The situation of poverty Magnitude of Poverty, 1997 NCR Luzon Visayas Mindanao Phil Population 874 10,747,000 6,692,000 8,455,000 26,769,000 Poor 128 1,797,000 1,165,000 1,421,000 4,511,000 Families Source: National Statistics Office (NSO), Annual Poverty incidence Survey (APIS) 1998 PHILLIPINE POVERTY STATISTICS Item

1985

1997

% change

Poverty Threshold (P)

3744

11388

204.2

Food Threshold (P)

2609

7724

196.1

Poor Families (‘000) Below subsistence Threshold Below Poverty Threshold

2403 4355

2337 4553

-2.7 4.5

Poor Population (‘000) Below subsistence Threshold Below Poverty Threshold

15400 26231

14792 27250

-3.9 3.9

Poverty Incidence (%) Population Families

49.3 44.2

37.5 32.1

-23.9 -27.4

Subsistence Incidence (%) Population Families

28.5 24.4

20.4 16.5

-28.4 -32.4

Source: 1997 Philippine Poverty Statistics, NSCB

Poverty by Province 20 Provinces with largest magnitude, 1994 Philippines: 4,531,000

20 Provinces with highest Poverty Incidence, 1994 National Mean: 40.2

Province

Families

Province

1. Negros Occ.

231,742

1. Romblon

79.5

2. Cebu

210,920

2. Masbate

77.7

3. Pangasinan

194.507

3. Ifugao

72.1

4. Iloilo

181,968

4. Abra

71.0

5. Davao Sur

180,975

5. Kalinga-Ap.

70.3

6. Quezon

158, 706

6. Agusan Sur

67.6

7. Zambo. Sur

142,610

7. Mt. Province

67.1

8. Camarines S.

137,780

8. Zambo Norte

62.7

9. Leyte

135,070

9. Dvo. Oriental

62.1

10. Masbate

119,215

10. Sulu

60.1

11. NCR

118,365

11. Capiz

59.8

12. Batangas

111,698

12. Camiguin

59.5

13. Nueva Ecija

102,332

13. Quirino

59.4

14. Misamis Or.

99,973

14. Bukidnon

58.8

15. Bukidnon

97,336

15. Tawi-Tawi

57.5

16. Albay

93,629

16. Davao Sur

57.4

17. Zambo N.

92,059

17. Surigao N.

56.4

18. Negros Or.

86,636

18. Lanao Norte

55.3

19. N. Cotabato

84,526

19. S. Kudarat

54.9

20. S. Cotabato

84,363

20. Palawan

54.5

21. Isabela

83,493

21. N. Cotabato

54.5

Source: NSO, FIES 1994

Incidence

Measures and programs to reduce poverty The call to wage war against poverty in the Philippines was first declared in 1995 during the Ramos administration when the government proclaimed the Social Reform Agenda (SRA). This proclamation paved the way for changing the paradigm in poverty analysis. From a pure “means” perspective whereby poverty is measured according to income and expenditure (by measuring people’s capacity to9 procure a fixed level of living based on a 2,000-calorie index) and measuring the magnitude of the poor through an incidence index, the government then designed then moved to also measure poverty from the “ends” perspective by measuring outcomes such as the Human Development Index (HDI), Gender Development Index (GDI), Gender Empowerment Measure (GEM), Capability Poverty Measure (CPM) and other indices. Through Proclamation 548 (March 6, 1995), the government adopted the Minimum Basic Needs (MBN) approach in analyzing poverty. The MBN looks at incomer and outcome measures and analyzes eight (8) criteria as follows: a) number of families below the poverty line; b) poverty incidence; c) infant mortality rate; d) malnutrition rate; e) cohort survival rate; f) adult illiteracy rate; g) proportion of households without access to safe water; and h) proportion of households without access to sanitary toilets. However, the national MBN measure was computed only once based on 1991 data. Succeeding measures were decentralized at the local government level but without sustained effort. Government Anti-Poverty Strategies Objectives KALAHI • Reduce poverty • Improved governance • Community empowerment

CIDSS

•

KALAHICIDSSKKB 38

• •

38

Strategies • Accelerated asset reform • Improved access to human development services • Provision of employment and livelihood opportunities • Social protection and safety nets for the vulnerable sectors • Institutionalized and strengthened participation of the basic sectos in local governance To enable families to attain • Community Organizing their minimum basic needs • Total family approach (MBN) • Convergence of services • Focused targeting Poverty reduction • Social mobilization, capacity building and implementation People empowerment

Under the Macapagal-Arroyo administration, the flagship anti-poverty program is officially called the KALAHI-CIDSS-KKB Program. This acronym derives from three different programs that are merged under one flagship program. CIDSS stands for “Comprehensive and Integrated Delivery of Social

• •

Improved local governance People’s access to government • Seed funds for community investment programs Source: NAPC, DSWD

• •

support Seed funds for community development Monitoring and evaluation (M&E) studies

In 1998 the government proclaimed Republic Act 8425 otherwise known as the Social Reform and Poverty Alleviation Act that created the National Anti-Poverty Commission (NAPC) as the premier agency that would coordinate efforts of government and civil society in alleviating poverty. The NAPC highlights the partnership of government and civil society in addressing the issue of how the poor can attain their minimum basic needs (MBN). The NAPC has two components: the government sector composed of all government agencies, and the Basic Sectors composed of fourteen sectors that include farmers, workers, women, indigenous peoples, urban poor and others. Currently, the NAPC takes the lead in implementing the World Bank funded Kapit Bisig Laban sa Kahirapan (KALAHI) Program (Convergence Program against Poverty; literally, hand in hand in the fight against poverty) in coordination with the Department of Social Welfare and Development (DSWD). This program is led by a National KALAHI Convergence Group (NKCG) which is composed of 34 representatives of national and local government agencies and bodies and the 14 basic sector representatives. KALAHI-CIDSS-KKB was formally launched in January 18, 2003 and will be implemented until 2008 with a total project cost of P9.3 billion funded by 55% by the World Bank, 17% Government of the Philippines counterpart and 28% from local contributions. The focus is on empowering the poorest 5,030 Barangays in 197 municipalities of 40 provinces covering approximately 1.9 million households. However, there are no indications that the KALAHI convergence mechanisms are established in Central Luzon. On the contrary, primary data gathered during the evaluation indicate local government preference for aggregate growth strategies biased towards revenue generation through private sector investments. KALAHI-CIDSS-KKB was formally launched in January 18, 2003 and will be implemented until 2008 with a total project cost of P9.3 billion funded by 55% by the World Bank, 17% Government of the Philippines counterpart and 28% from local contributions. The focus is on empowering the poorest 5,030 Barangays in 197 municipalities of 40 provinces covering approximately 1.9 million households.

Services” and KKB stands for “Kaunlaran at Kapangyarihan sa Barangay” (lit. Barangay Development and Empowerment). The CIDSS used to be a program under the Department of social Welfare and Development while the KALAHI was directly under the Office of the President. Having been merged into the KALAHI-CIDSS-KKB, this program is now under the Office of the President through the NAPC.

The selection parameters of municipalities includes a) level of deprivation of the municipality; b) willingness and capacity to contribute to the project (counterpart/cost-sharing); and c) presence and willingness of other stakeholders (i.e., civil society and media) in the municipality to participate in the project. The program will be implemented in five (5) phases, with each phase covering different target areas.

Project Phasing of KALAHI-CIDSS-KKB 10 provinces Phase 1 (Starts January 2003) 11 municipalities 201 barangays 57 municipalities Phase 2 (Starts July 2003) (1,531 barangays) 68 municipalities Phase 3 Starts January 2004) (1,716 barangays) 61 municipalities Phase 4 (Starts January 2005) (1,583 barangays) 400 urban poor puroks (or Phase 5 (Starts January 2005) sections of a Barangay)

PHP 334 M PHP 2.75 B PHP 2.8 B PHP 2.669 B PHP 672 M

Phase 1 covers 201 Barangays in 11 municipalities of 11 provinces in 11 regions. Essentially, it covers 11 municipalities. Central Luzon (Region III) is not covered in Phase I. Additionally, however, the NAPC has developed a KALAHI-in-Conflict-Areas component of the program. One project involves support for the peace agreement between the government and the leftist RPMP-RPA-ABB (Rebolusyonaryong Patido ng Manggagawang Pilipino – Revolutionary People’s Army – Alex Boncayao Brigade). This group is one of the factions that bolted out of the CPP-NPA-NDF in the early 1990s and opted to negotiate with the government. However, since the RPMP-RPA-ABB has mass bases mainly in the Visayas islands, the KALAHI project is piloted only in the provinces of Iloilo, Negros Oriental, Negros Occidental and Aklan. This covers 21 Barangays in seven (7) municipalities. Notwithstanding the phasing, the convergence mechanisms are supposed to be replicated at the regional, provincial and municipal levels. However, since the local mechanisms are led by local executives, the formation of the local convergence groups is not only slow but also susceptible to exclusions of civil society organizations that are not favored by local authorities.

List of Phase I of KALAHI-CIDSS-KKB Project Areas REGION PROVINCE MUNICIPALITY CAR Ifugao IV Quezon V Masbate VI Iloilo VII Siquijor VIII Eastern Samar IX Zamboanga del Norte X Lanao del Norte XI Davao del Norte XII Sarangani CARAGA Agusan del Norte Total 11 provinces Source: NAPC, DSWD

5.6

Hingyon Dolores Batuan Concepcion Enrique Villanueva Sulat Katipunan Munai Sto. Tomas Malapatan Jabonga 11 municipalities

NO. OF BRGYS. 12 16 14 25 14 18 30 26 19 12 15 201 brgys.

Rural Development Strategies

There is no coherent pattern of rural development approaches employed by the government or its agencies. National policy for rural development is largely reactive to changes in the international economy. In the 1970s, the settlers’ market in international finance influenced the promotion of chemical based agriculture. In the late 1980’s, after the overthrow of the Marcos regime, the government promoted agrarian reform as a strategy for rural development and arresting agrarian unrest. In the mid-1990s, the government adopted the prescriptions of the GATT-WTO even as the country’s accession to new terms of trade negatively and abruptly affected agriculture. Under the current setting, the government promotes a neo-liberal approach to the economy with bias towards promotion of foreign and domestic investments without precautionary measures against their negative impact on the rural economy. This trend is exemplified in the establishment of free trade zone and economic zones that, as a result, instigated changes in land use patterns over a wide radius. South of Manila, the provinces of Cavite, Laguna, Batangas, Rizal and Quezon have been converted into an economic zone called the CALABARZON area where agricultural lands have been affected not only by the emergence of commercial and industrial centres but also by changes in land markets and levels of taxation. In Central Luzon, Bulacan and Nueva Ecija have been affected by the northern expansion of Metro Manila. Other provinces like Pampanga, Zambales and Bataan have been affected by the conversion of the former Subic Naval Base and the Clark Air Force Base into economic zones that have attracted not only foreign investments but also created subsidiary industries and commerce over a wide radius. The entry of foreign investments has attracted the rural-based labor force and has instigated the emergence of servicerelated subsidiary industries. New space requirements outside of the economic zones to

absorb new industries and commercial centers as well as labor entrants have jacked up land prices.

5.7

Effects of the Neo-Liberal Approach

Even before the Philippines acceded to the WTO in 1995, the government has embarked on a unilateral tariff reduction program since 1981. This was part of the World Bank prescription for structural adjustments and government effort to attract investments. Tariffs for MFN (Most Favored Nation status applicable to goods from non-ASEAN countries such as the US, EU, Japan and China) plunged from an average of 19.72 percent in 1994 to 9.98 percent in 1999. By 2001, the MFN tariff further plunged to 7.71 percent compared to Thailand’s 16 percent. By January 2004, the final phase of the tariff reduction program, MGN tariff rates are expected to slide down to 0-5 percent. Although it is true that tariff reduction has attracted investments, it is likewise true that the country is now flooded with imported goods, including subsidized agricultural products. Vegetables and meat are now flown in from China, Australia or New Zealand. Local producers are forced to contend with ballooning debts and unfairly priced imported goods, not to mention high power costs. According to the Fair Trade Alliance (FTA), a local coalition of civil society organizations and small industries, the WTO regime and the tariff reduction program has negatively impacted the economy in the following areas: •

Continuing lay off of workers from 67,624 in 2000, 71,864 in 2001 and 77,601 in 2002.

•

Around 540,000 workers lost their jobs as of July 2003.

•

Increase in unemployment from 3.8 million in 2002 to 4.3 million as of July 2003.

•

Closure of companies – 2.258 firms in 2000, 2,859 firms in 2001 and 3,296 in 2002.

The approach has not only impacted on the economy, it has also impacted on the capacity of the state to produce revenues. Tariff contribution to the GNP has declined from 5.3 percent in 1993 to 2.7 percent in 2000. As a result, the government’s budget deficit rose to PHP 147 billion in 2001 and further ballooned to PHP 212 billion in 2002. Not only is the economy in crisis, the whole government – the single biggest employer and provider of goods – is in financial crisis. The country’s standing debt is now at PHP 5 trillion

5.8

The situation of Agrarian Reform Beneficiaries

To understand the potential of improving the situation of the poor a recent national study on the impact of AR and AR-Projects shall be quoted here. Some of the impacts mentioned before coincide with the results of the evaluation.

•

ARBs invest more in farm assets than non-ARBs.

•

ARB’s have better perception of their social and economic standing and are more optimistic about their future than non-ARBs.

•

ARBs achieve on an average more than twice the productivity per ha than NonARBs, i.e. PHP 20,000 vs. PHP 8000

•

The length of time somebody is an ARB and is in an ARC reduces the chances of being poor.

•

Poverty incidence is lower among ARB households in both survey years 1990 and 2000. A decline in poverty incidence from 47.6% to 4.2% was found in the two survey years. The result seems marginal, but becomes more significant when compared to the figures of the bib-ARB’s where an increase in the poverty from 55.1% in 1990 to 56.4% in 2002 rate was stated.

•

ARBs own about 20% more farm and household assets than non-ARBs.

•

ARBs have a real income that is about 30% higher than that of non-ARBs. However, it also was found that real income decreased for both groups between 1990 and 2000 by more than 10%. This decline is rooted in the long-term fall in per capita value added in agriculture.

Overview of Agriculture Reform Communities (ARC) and respective Barangays Province No. of ARCs No. of ARC-Brgys. Tarlac 27 90 Aurora 23 52 Nueva Ecija 46 205 Pampanga 17 55 Bulacan 28 104 Bataan 14 53 Zambales 14 38 Total 169 597

5.9

Negative impacts of extensive irrigation and chemical based farming

Presently, the combined effects of extensive irrigation and chemical based farming have produced negative impacts in the following areas: •

widespread distribution of agro-chemical contaminants;

•

fragmentation of upland and lowland ecosystems due to radical changes in water use and water management;

•

alterations of water flow due to damming and timing of drains resulting in flooding and formation of bog and waterlogged areas;

•

loss of biodiversity in farms due to introduction of chemicals;

•

waste in water resources due to inefficiency as irrigation farms consume only 50 percent of water they receive;

•

loss of 3,000 traditional rice varieties due to the introduction of new varieties;

•

and, emergence of new pests and diseases such as the brown leaf hopper and Tungro virus.

6

Preliminary Report – Workshop Documentation

FEDERAL MINISTRY FOR ECONOMIC COOPERATION AND DEVELOPMENT Department 120

Evaluation of the Program Rural Empowerment Through Agrarian / Asset Development

Project Development Institute (PDI), Manila, Philippines

October 9 – 23, 2003

Workshop Documentation

The Evaluation Team

End of October, 2003

Table of Contents

1.

The program of the evaluation

2.

Introduction

The workshop in Tarlac 3.

Introduction to the evaluation and the workshop

4.

The methodology of the evaluation and the workshop

5.

Presentation about AR and PDI’s program

5.1

AR – Central Luzon Situation – Presentation by the PARO

5.2

LTI and Economic support program by Province

5.3

Social Infrastructure Building

6.

Impact hypothesis and preparation of field visits

6.1

Discussion of the vision

6.2

Clarification of the relation between activities, results, impacts

6.3

Impact Hypothesis

6.4

Clarification of points to be analyzed during the field visits

The workshop in Subic 7

Presentation of the results of the field visits

7.1

Group Nueva Ecija and Bulacan

7.2

Group 2: Tarlac and Pampanga

7.3

Group 3 – Bataan and Zambales

8

Discussion of impacts and sustainability

8.1

Results of the working group on impacts

8.2

Group work on Gender, Economic Projects, Agriculture and Environment

8.3

The sustainability of the impacts

8.4

Assessing Management and implementation of PDI program

9

Recommendations

9.1

Recommendations to the POs and NMGL

9.2

Recommendations to PDI

10

Lessons learned from PDI’s experience

11

Evaluation of the methodology, the process and the results of the evaluation

11.1

Evaluation by NMGL / Peoples organizations

11.2

Evaluation by PDI

11.3

Evaluation of the evaluation by the external consultants

12

Closing remarks

Abbreviations

AR

Agrarian Reform

ARRD

Agrarian Reform and Rural Development

BDC

Barangay Development Committee

CARP

Comprehensive Agrarian Reform Program

CDP

Comprehensive Development Program

CLOA

Certificate of Land Ownership Awar

EED

Evangelischer Entwicklungsdienst

ESS

Economic Support Service

EZE

Evangelische Zentralstelle fur Entwicklungshilfe

FB

Farmer Beneficiary

GAD

Gender and Development

IAP IGA

Income Generation Activity

IGP

Income Generation Program

IP

Indigenous People

LGU

Local Government Unit

LTI

Land Tenure Improvement

MARO

Municipal Agrarian Reform Officer

MIS

Management Information System

MPDC NGO

Non Government Organization

PARRDS

Partnership for Agrarian Reform and Rural Development Services

PDI

Project Development Institute

PRRM

Philippine Rural Reconstruction Movement

1.

The program of the evaluation

Date Program Oct. 7, Tuesday • Meeting of Dr. Melsbach with Mr. Roland Grafe, Counsellor and 2003 Deputy Head of the Embassy of the Federal Republic of Germany, Manila •

Oct. 9 Thursday

Oct. 10 Friday

Meeting of Dr. Melsbach with Dr. Hannsjorg Woll, former Project Manager Quirino Forest Management Meeting of Dr. Melsbach with Ms. Corazon Urico, UNDP: Discussion on UNDP-Support to AR and getting Materials on UNDP’s programs. Arrival of Oliver Karkoschka in the late afternoon and first discussions among the external consultants. Meeting with PDI Director and staff in PDI office : •

Introduction to PDI

Orientation to the evaluation and discussion of the program Oct. 11 and 12

Afternoon: Travel to Tarlac Workshop in Tarlac 1. Introduction to the evaluation •

Opening remarks and introduction of participants

•

Clarification of the character, objectives and the program of the evaluation

•

Discussion of the evaluation methodology and the role of external consultants, PDI and PO members

2. Issue based presentations and discussions: - AR – Central Luzon Situation – Presentation by PARO - LTI – and Economic support program by Province - Social Infrastructure building

Oct. 13 – 15, Monday Wednesday

3. Establishment of impact hypothesis and preparation of the field visits. Field and area visits in three teams each composed by PO members, - PDI staff and one external consultant 1. Bulacan and NE

Oct. 16 Oct. 17, Friday Oct. 18 – 22

2. Pampanga and Tarlac 3. Bataan and Zambales World food Day Celebration in Iba, Zambales, informal discussions. Travel to Subic and preparation of the Workshop Workshop in Subic 5. Sharing and discussion of the results of the field visits 6. In-depth analysis and assessment of specific findings 7. Recommendations and lessons learned

Oct. 22 afternoon

Oct. 23 Wednesday

Oct. 24, Thursday

8. Evaluation of the process Travel to Manila Meeting and dinner with four NGO coordinators directors inManila (Manuel Quiambao (President PEACE Foundation), Gerry Bulatao (Coordinator Local Governance Coalition-Network/LGC-Net), Conrado Navarro (Former Undersecretary of the DAR; Vice-President Philippine rural Reconstruction Movement, PRRM), Ricardo B. Reyes Executive Director Partnership for Agrarian Reform and Rural Development Services Inc. (PARRDS). Meeting with Mrs. Hubner, German Cooperation: Support to Agrarian Reform and Rural Development and Minda Dolarte, Project Development and Management Service, DAR. Departure of Oliver Karkoschka to Germany Lunch Meeting of Dr. Melsbach with Ria Miclat-Teves, Ruel Punongbayan, Jheng Julio Rodrigo de Guia: Topic: Planning System of PDI.

2.

Introduction

The background and objectives of the evaluation The evaluation of the program “Rural Empowerment through Agrarian / Asset Development (READ Program)” implemented by the partner organizations “Project Development Institute (PDI)”, Philippines is the second of six evaluations of programs of the German Church Development Organizations EED/EZE and Misereor. This sequence of evaluations is to analyze and assess achievements and experiences of programs in regard to the obje4ctive of German Development Co-operation “Enhancing the participation of the poor – strengthening Good Governance” (Program of Action 2015). Particular attention should be paid to what extent strategies to strengthen the poor and their organizations are able and successful to enhance and support “bottom-up processes” of poverty reduction. Finally, how to improve these strategies and lessons learned for comparable programs are to be identified. The experiences made in the bilateral aid project “Bondoc” shall be used as reference. The findings and conclusions in terms of lessons learned are seen as the main outcome of the evaluation. They should provide insights and give orientation for the future of this and other respective programs. The evaluation is learning-oriented and the methodology to be applied is characterized by participation and process orientation rather than by control. The specific tasks are presented in the TOR (see main report). The evaluation period was form October 9 – 23 in Manila and Central Luzon, Philippines This Workshop documentation This workshop documentation presents the key-findings and results of the evaluation as discussed in the evaluation team during the evaluation period. It serves as a working document for the evaluation team and as a basis for the preparation of the evaluation report. The evaluation team The evaluation team consisted of around 20 persons, members of peoples organization, PDI director and staff, one DAR official and three external consultants. All assumed a role and function as evaluator in a team. In addition, one person from EED and from BMZ joined the function as evaluator in a team. In addition, one person from EED and from BMZ joined the evaluation team for a part of the entire evaluation period. For the list of all members see last page.

The Workshop in Tarlac 3

Introduction to the evaluation and the workshop

Opening and welcome address After a prayer and the national anthem, Ria Teves welcomed all the participants of this workshop and gave an introduction to the evaluation. She also asked all the participants to introduce themselves by stating their name, organization and function.

Objectives and general character of the evaluation – introduction by the consultants The external consultants also gave an introduction to the evaluation. Oliver Karkoschka highlighted the following aspects •

the evaluation is learning oriented. The main results are the lessons learned from the experience of PDI and other actors concerned by the program. These findings are of interest not only for the program of PDI but also for EED and BMZ for their respective programs in the Philippines and in other countries as well as for respective concepts.

•

the appropriate method for this kind of evaluation is characterized by a high degree of participation. This means that as far as possible other actors beyond the three external consultants, in particular the PDI director and staff and also the people’s organizations are active part an not only subject of the evaluation. Oliver Karkoschka suggested that all the members of the evaluation team do not only take part as a source of information for the external consultants – this would mean that their main task is only to explain and answer to the questions of the consultants – but that PDI Director and staff and PO leaders are active evaluators – they are invited to evaluaqte themselves. He explained the idea of the large evaluation team (see also chapter 4, methodology of the evaluation).

•

the evaluation is part of a series of evaluations which focuses on strategies and impacts on poverty reduction and participation of the poor in decision making processes as well as good governance. Main results are the identification of impacts and the respective lessons one can learn from the experiences gained within the PDI’s program. It is the second of six evaluations of programs of the German Church Development Organizations EED/EZE and Misereor/KZE which focuses on 7 questions. Therefore this evaluation is different from a program evaluation.

Establishment of the program In a discussion about the preparations already made and the objectives of these first days of the evaluation, the following program was established. 1. Orientation A: 2. Orientation B: 3. Presentation and discussions: •

AR – Central Luzon Situation – Presentation by PARO

LTI and Economic support program by Province •

Social Infrastructure building

4. Impact hypothesis 5. Preparation of the field visits (points to be analyzed, methodology, etc.) The Tarlac workshop was also put into the framework of the entire evaluation program. This clarified the idea of the Tarlac workshop to have a first analysis of the PDI/READ program, mainly based on a self-evaluation assisted by the external consultants and the formulation of impact hypotheses. The objective of the field visits is to analyze in-depth the hypotheses and to explore the views of all the other concerned actors. The subsequent workshop in Subic is to share and discuss the results, to assess the findings and to come up with lessons learned and recommendations.

Presentation of EED and its interest in the evaluation Mr. Jorg Schwieger of EED/EZE presented the vision of EED and the interests of EEC/EZE towards the evaluation. The EED supports the development work of the churches, Christian organizations and private agencies through funding, seconding qualified personnel and by offering consultancy services. Within the framework of a global partnership network, the EEC plays its role in creating a fairer society. It opposes all forms of discrimination on the grounds of race, sex or religious affiliation. Thus, the EED assists those who live in poverty and need, whose dignity is violated or whose lives are threatened by war or other natural disasters. The EED creates and strengthens awareness among people in the churches, the general public and in politics, increasing the potential for advocacy against need, poverty, persecution and conflict and, in this way, contributes towards improving the political and

economic pre-conditions for a more humane development. For the benefit of the poor and needy, the EED is involved in transforming society and championing their cause. In the face of the complex challenges ensuing from global structural changes, the EED shares the development philosophy of the ecumenical movement and is striving for justice, peace and the integrity of creation. The EED’s work receives impulses and inputs from a variety of complementary sources in society, politics, the church and the ecumenical movement. Through its global network of partnerships, it is part of a process of learning from one another within the church in the One World. In order to enhance the impact of its work, the EED collaborates with other organizations in joint ventures and is actively involved in Fair Trade initiatives. Mr. Schwieger stressed the vision of EED to help poor, disadvantaged and oppressed people to develop their life with their own strength and in their own responsibility. EED/EZE is interested to find out, also through this evaluation, to which extent PDI affects the daily life of the concerned people, their organizations and legal procedures and participation in decision making processes. These results will also show to what extent the support given by EZE is of relevance for the partners and target groups of PDI.

4.

The methodology of the evaluation and interests of the evaluation team

The external consultant Oliver Karkoschka facilitated a reflection about different ways to carry out an evaluation. He drew the map of the program area Central Luzon and then three birds flying over this area, representing the three external consultants. As a result of this evaluation, the report will be written. However, many times – according to his experiences – the report disappears in a drawer or shelf. However, in a second drawing he also sketched the map of Central Luzon but many birds were flying over the program area. These birds represented all the participants being present in the Tarlac Workshop and being member of the evaluation team. As a result of this kind of evaluation, a report will be established as well. In addition to the report, a major result expected from the evaluation will be the lessons learned of all participants, of all members of the evaluation team in the process of evaluating. These lessons and experiences re supposed to help the implementation of improvements and changes in the respective organization. The following discussion highlighted some major differences between the two methods. Finally, the second approach was appreciated and favored by all the participants due to the following reasons: •

the degree of involvement and participation of all the participants is much higher

•

the communication between all concerned is easier as all are “birds” / evaluators

•

being an evaluator / bird allows to gain more experiences and insights and to learn more than just being evaluated by the external evaluators.

•

the results by following participants.

•

The use of the results will be more intense by the participants if they really evaluate and are not only subject to the evaluation.

this method are expected to be more relevant for the

Tasks of an evaluator (of a bird) The subsequent discussion was facilitated to clarify the tasks of an evaluator. The following elements were seen as major functions for all the evaluators during the evaluation period: •

to identify strengths and weaknesses and opportunities,

•

to observe and to interview,

•

to analyze and to understand processes,

•

to assess the performance of strategies,

to share and to dialogue and to integrate each one’s experiences and knowledge into the evaluation process and discussions, to identify recommendations, to report, •

to learn.

The following have been mentioned as favoring attitudes for an evaluator: •

to be neutral – not to be based,

•

to be open minded,

•

to be committed and assume responsibilities,

•

to share and distribute tasks,

to have democratic attitudes and behavior – respect for others.

•

in addition to these tasks, the external evaluators were changed to

give guidance and orientation to the process, to facilitate discussions and reflections, to report about the evaluation process and results. All the participants expressed their interest to carry out the evaluation in a real evaluation team – which means that everyone is “a bird” / an evaluator assuming the above mentioned tasks. In regard to the report, the consultants committed themselves to establishing a first draft proposal for the evaluation report which will be sent to PDI before submitting it to BMZ. This will give an opportunity to the entire evaluation to integrate comments, corrections and other observations into the version which is being submitted to BMZ. Consequently, the evaluation report is also supposed to be a result of the entire evaluation team – as far as possible considering the geographical distance. A short Feedback of the participants at the end of this session gave evidence of the satisfaction of the participants. being proud to be an evaluator, the opportunity to be an evaluator was appreciated, the nature of the evaluation being a collective effort has been highlighted.

Interests in the evaluation by the members of the evaluation team The process of the evaluation The consultants asked all the members of the team to imagine a situation in two weeks just after the end of the evaluation to facilitate a reflection about their expectations towards the evaluation process. They would talk with colleagues about the evaluation. They would say that the evaluation was very good because …. . Several small buzzing groups came up with the following results: everybody participated in the evaluation process – different sectors and stakeholders, •

a comprehensive data and information and opinion gathering process has been carried out,

•

strengths and weaknesses are identified,

•

indicators of change are identified,

•

the management and implementation and running of an organizations has been clarified,

•

all the data and information are synthesized and conclusions are identified,

•

everybody is sensitive to needs of other concerned in the evaluation process,

•

a lot is learned through sharing among the evaluation team – discussions,

•

all evaluators respect punctuality,

•

good food is provided.

The issues and aspects to be analyzed in the evaluation Impacts and level of achievement •

Impacts on living conditions, poverty reduction and cultural impacts, fund allocation by the government, gender, power relations, empowerment, impacts on soil productivity, etc.

•

Capacity development.

•

Degree of self-reliance of organizations – the capacities which are still to be developed in order to achieve sustainability.

•

LTI.

Reasons and effects of exception of land in CARP. •

Social consciousness and awareness.

Activities and strategies of PDI •

Economic support programs

•

Education

•

Technology transfer

•

PDI program management

•

Linkages and networking – relations among different actors.

•

Who are beneficiaries and non-beneficiaries, what is the difference of impacts?

•

Land classification purpose.

•

Motivation to become member in POs.

•

How can the process be institutionalized?

5.

Presentations about AR and PDI’s program

5.1

AR – Central Luzon Situation – Presentation by the PARO

PARO Edson Arceo of the Department of Agrarian Reform presented the status of AR and LTI for the Regional and Provincial level. He presented also some land issues of highly contentious landholding cases which are being covered under Comprehensive Agrarian Reform Program (CARP) with the help of partner PDI and NMGL, who are very resourceful in researching the lacking requirements and coordinating with DAR at the Provincial, Regional and National level (see overhead presentation on separate file on CD).

5.2

LTI and Economic support program by Province

Staff of PDI and leaders of POs of each Province gave an overview about the situation, their struggle, the achievements and the challenges which they are still facing. ¾ Ka Loida Rivera, NMGL-Pampanga, shared her experience how the landowner made use of his influence over the Local Government and Philippine National Police when they entered the Feliciano property for survey. She also shared about the Landowner’s resistance to cooperate with Land Bank of the Philippines and Department of Agrarian Reform. ¾ Ka Amado Higante, NMGL President, Pampanga, discussed about the Forform and the AMACO property, how they pushed for the acquisition of the landholding for almost two decades of struggle. ¾ Ka Alfredo San Diego, NMGL-Bataan, discussed about the conversion of lands in Bataan. They have pushed the acquisition of 10landholdings, about 800 hectares. ¾ Ka Pablo Bocable, NMGL-Nueva Ecija, discussed the Flora Garcia property, part of Fort Magsaysay Military Reservation of about 4,000 hectares. ¾ Ka Eddie Ibabao, NMGL-Bulacan, shared about their province as the most battered province b ecause of many conversion cases due top its proximity to Manila and the object of court litigation because of the value of the land.

¾ Julio Rodrigo (Jeng) de Guia, PDI Coordinator discussed the process in dealing with cases in Tarlac particularly the landholding of Cojuangcos in Barangay Carbonel, Gerona, Tarlac. He was also tag as an organizer of the New People’s Army because of his strategy in organizing the farmers. Jeng also mentioned the MARO of Ferona as very cooperative in covering the land. He also discovered that there are many titles that are not distributed because they are provisionally registered. There are some other obstacles in covering the land like the delayingt the process and the militarization in the area. The PDI Director Ria Teves summarized the strategy of PDI as follows: 9. Monthly meetin 10. Reporting per Province 11. Define problems and issues 12. Definition of tactics – clarifications and assignment of actions to be taken 13. Negotiate at different levels - municipal - provincial - regional - national 14. Complementing rallies and other advocacy work and actions 15. Feed back and discussion of achievements and evolutions in the next monthly meeting 16. etc… Some of the services and strategies of PDI: •

Direct Farmers Assistance – PDI provides assistance to farmers in their socioeconomic initiatives. PDI believes in genuine agrarian reform and thus assists in the acquisition of land for the landless farmers and the provision of social and economic support system.

•

Development Programming at the Community Level – PDI provides consultancy services for development programs at the community level. The Comprehensive Development Program (CDP) is the participatory approach in addressing every aspect of the communities needs to effect genuine changes through socio-economic

upliftment. The CDP makes peasants active participants in the whole development cycle, from conceptualization to evaluation of programs and projects. •

Policy Advocacy and Participatory Research. PDI provides research and consultancy in project development and management, and related areas.

•

System Installation at the Local Level – PDI provides services for NGOs and POs to have effective management systems. These are developed to simplify day-to-day PO and NGP operations.

5.3

Social Infrastructure Building

Ruel Punongbayan, PDI Program Coordinator, presented the elements and strategies of PDI in regard to social infrastructure building: 1. Paralegal Training 2. Translation of AR Primer 3. Barefoot Management Course 4. Value Formation Also PO and NMGL leaders presented their particular experience with social infrastructure building and their achievements. Ka Carling, head of the Indigenous People in Central Luzon said that land is life and the people are the one working on the land (Ang lupa ay buhay at ang tao ang nagtratrabaho sa lupa). He stress also the importance of literacy and the support by PDI for the Aetas to be respected by Government Officials and lowlanders.

6.

Impact hypotheses and preparation of field visits

6.1

Discussion of the vision

As an introduction to the formulation of the impact hypothesis, the consultants asked all evaluators to discuss their vision in small buzzing groups. The following elements have been emphasized: NMGL: Advocate in GAR, recognize the rights of farmers, have democratic processes of rural development with participation of men and women (gender equity). PDI:

To have self-reliant communities and people’s initiatives; empowerment of men and women.

6.2

Clarification of the relation between activities, results, impacts

Before the group work on impacts, a joint reflection served to clarify the relationship between activities, project outcomes, direct use of the outcome and impacts. For this purpose, a concrete example from the prededing presentation has been selected: Level PDI – Activity PDI – Outcome Direct use of PDI outcome by the target group Direct Benefit Impacts

Example Training on soap production Women have the capacity to produce soap Women apply this knowledge – they produce soap Soap is available Increased income

Better education Of children

Food Security has increased

drinking / alcohol has increased

When analyzing impacts, we should be open to all kind of impacts be it positive or negative. For the purpose of this exercise, however, impacts are particularly important which indicate a process towards the achievement of the vision.

6.3

Impact hypothesis

Results of the Group work on impacts Results of group 1: Impact hypothesis Barangay Municipal Food security Food security Poverty access to access to reduction basic needs basic needs education education Fruitful SCAT Empowernegotiations advocacy ment and dialogue, work SCAT, advocacy work Commitment, Commitment, Good Governance actual transfer actual transfer of land, of land, participation recognition in in BDC MPDC of Number of Institutional Number organized organized impacts groups groups Environment Reforestation Reforestation, organic farming Women’s Formation of Gender organizations women’s exist municipal federations

Provincial Education

Regional Education

National

SCAT advocacy work

SCAT advocacy work

SCAT advocacy work

Transfer of land. Joint action planning

Transfer of land. Joint action planning

Transfer of land. Joint action planning

Number of Formation organized of NMGL groups

Formation of SCAT

Results of Group 2: Impact hypothesis Barangay

Poverty reduction

Municipal

Provin -cial

Regional

National

1. Ownership of land 2. Food security

x

3. Increased income 1. Active organization

x X

x

x

x

2. Membership expansion

x

x

x

x

3. Increased capacity (skills)

x

x

x

x

4. Able to participate in local x governance

x

x

x

5. Women participation x 1. Networking and collaboration X (LGU, NGO, Private Sector, Line agencies, and others of civil society)

x x

x x

x x

2. Linking

x

x

x

x

3. Advocacy,

x

x

x

x

4. Alliance building 1. Strength

x x

x x

x x

x x

and x

x

x

x

3. Rights of IP to own land x (through AR)

x

x

x

4. Recognition and acceptance as x an IP and Filipino

x

x

x

5. Same rights of IP and x lowlanders Environment Protection and preservation of the x land through organic agriculture

x

x

x

x

x

x

Empowerment

Good Governance

Institutional impacts

2. Protection of culture of IP

identity

Results of group 3: Impact hypothesis Barangay Municipal Food security Food security Poverty access to reduction basic needs Scholarship Program DAR-PO-PDI DAR-PO-PDI EmpowerConsultation Consultation, ment Robing consultation BDC Recognition Good by MP Governance participation in Barangay development Resource planning mobilization. Resource mobilization Institutional Formation of Formation local organizations, impacts organizations, farmers and women Reforestation Environment Organic Farming, Reforestation women’s Formation of Gender organizations women’s exist municipal federations

Provincial education

Regional education

National education

IAP

DARNMGL-PDI consultation

SCAT

Formation organizations

Formation of NMGL

The discussion made evident that all the groups have presented many elements which can not be considered as impacts. Sometimes the aspects are activities, as e.g. advocacy work or scholarship program. Therefore, the PDI director explained again the difference and relation between activities and impacts using the following pattern. Impact – Output – Effect - Impact

6.4

Clarification of points to be analyzed during the field visits

The following guiding questions were suggested for the field visits: ¾ What impacts can be observed / stated (possibly according to the above presented format but with openness for other categories) ? ¾ To what extent has PDI contributed to these impacts ? ¾ What were contributions of other actors (roles and responsibilities) ? ¾ What were favorable and hindering factors ? ¾ What are attitudes and behavior of different actors and what are the principles behind (development ideas and hypotheses, etc.) ? ¾ What is the overall economic and political impact on beneficiaries and nonbeneficiaries? What is the method of selecting beneficiaries ? ¾ How sustainable are the impacts? ¾ What are ideas and recommendations of farmers to PDI? The consultants asked again for the clarification of the responsibilities of all the members in the evaluation during the field visits. The following aspects were mentioned: •

to look for answers to the questions,

•

to communicate and share observations in the team,

•

to have joint reflection and open discussions,

•

to be open minded,

•

to be sensitive to the people.

It was also clarified that during the field visits different participatory methods should be used. If possible, a joint reflection should be held with the discussion partners.

The workshop in Subic 7

Presentation of the results of the field visits

7.1

Group Nueva Ecija and Bulacan

1.

General Situation

of the two sites Kaybanban and San Isidro, Bulacan and San Isidro and Sitio Borak, Nueva Ecija •

Location: in the North-East of Central Luzon

a. Bulacan: At the doorsteps of Metro Manila, Within the 70 km Radius; Mun. San Jose del Monte City very near to Manila) b. Nueva Ecija: Distant from Mla; part of Palayan City, & Laur, Gabaldon). But near to Bulacan; both provinces are within Region 3 •

Population

Both provinces thickly populated due to urbanization except of few far flung villages in N. Ecija; and presence of ethnic minorities, i.e. indigenous people (IP). •

Education

Both provinces have a high rate of literacy, due to nearness to Manila, broader spectrum of professional background and experiences in Bulacan compared to N.E. •

Economy

Both are classified agricultural productive, except on some place in Bulacan which are near to the city; there, high-value crop production possible (vegetables, coffee); Transfer income of migrant workers much higher in Bulacan than in N.E. •

LTI-Situation

Bulacan and N. Ecija = facing stiff and strong struggle in the implementation of CARP Bulacan Speculation for Land conversion rampant because of rapid urbanization at the fringes of Metro Manila 2.

Methodology

2.1

Group meeting

In both sites in Bulacan and N.E. a meeting with representatives of POs (Farmers and women’s organizations) had been organized, with whom discussions were held in the meeting in Kaybanban 7 organizations (3 women’s and 4 farmers’ organizations, 38 participants some more men than women) attended, while in that of San Isidro N.E. Representatives of 14 organizations (8 women, 6 men’s org.; 75 participants, more women than men) attended. After the meetings which took about 4-5 hours a short impression on the surroundings through field visits was facilitated. Furthermore, the team also talked to nonbeneficiaries 1 in the Bulacan and 2 in the N.E. visit. During the meetings the following procedure was followed.

2.2

1.

Brief Introduction of participants and organizations, introduction of the evaluation purpose and intention

2.

Brainstorming on impacts experienced and observed by the participants

3.

Synthesizing of brainstorming results into four or five impacts by the evaluation team which mostly correspond to the impact areas identified in the preparation workshop.

4.

Organization-wise group work on discussing and ranking the impact according to their importance, and reasons for ranking the impact in this position.

5.

Presentation of group work, additional questions and discussion Field visits

In both sides fields and plantations were visited together with farmers. Remarks on methodology: The methodology employed in the group discussions was working out well. A certain difficulty was to lead the discussions from the naming of effect to higher impact levels, by going into deeper and deeper questioning. This could not be achieved in some cases. Furthermore, because predominantly the leaders/officers of the organizations attended the meetings, it can be assumed that the impact was somewhat overrated in comparison to simple members. This is so because officers mostly have a higher education than simple members and are economically better off. In both sites the participants of the group discussions were very cooperative.

From the three teams the Bulacan-Nueva Ecija Team had the least time for interaction with target groups and field visits. From the 3 days available for site exposure, because of long travel times (16 hours all in all) 3. 3.1

Impact Observations Poverty Reduction ¾ Land security is viewed as a pre condition for improving livelihood by most PDI beneficiaries ¾ PDI plays / played a key role in securing land for farmer beneficiaries ¾ The PDI bargaining / negotiating strategy proves to be effective towards securing lands ¾ Great impact on agricultural production was confirmed and validated in Bulacan in their market oriented agriculture with coffee and other high value crops

Ecology: Positive: Permanent crops increased – Negative: External inputs increased

3.2

Agricultural Productivity

Bulacan: High productivity increases of high value crop production (vegetables), hog raising, marketing contract for coffee with Nestle Nueva Ecija: => agriculture is food crop oriented: increase in productivity because of more long term investments due to land security future impacts expected from recent tree planting Observation on new settlement of Igorot in Borak, Nueva Ecija: farming system develops slowly

3.3

Food Security:

Bulacan, Kaybanban: Before PDI Intervention: 40% of the community did not have enough food to eat; Now: 70% of village already have enough to eat. Nueva Ecija: Estimate for PO-members: Before PDI-Intervention: 40% didn’t have sufficient food; now: 90% have sufficient to eat. But, presence of large poorer layer beyond target groups. (estimate for San Isidro: 40% of population) Open question: How does PDI respond to the strata that are much poorer than its primary target group?

3.4

Off-farm income

Off-farm production activities (incl. Hog raising) create additional income (explanation: additional to that of men) Example: Net income of a pig of 100 kg = value of income of 30 cavan (1 cavan 0 50 kg) of rough rice which is the corresponds to the net harvest value of 1 ha. 3.5

Good Governance

Ö

POs participate on barangay level •

Contribute to unity of village

•

More transparency and accountability through budget control

Ö

PDI participates on Municipal Level

Ö

PO-PDI-Government Cooperation leads to realization of benefits intended by Gov. Programs

3.6

Empowerment

Increase of

7.2

•

Knowledge and security

•

Self-confidence and awareness

•

The women are highly regarded and this results to self-respect

•

Self-respect of women increases; respect of men for women increases because they are productive now

•

Family relation improved: Discussion and negotiation now instead of quarrelling.

Group 2: Tarlac and Pampanga

Presentation of three concrete cases

Overview of cases Land size Location

Cojuanco property 300 ha. Gerona Paniqui, Ramos, Pura, Tarlac

Umcauco property 108 ha. Brgy. Anunas, Angeles City, Pampanga BAFA 70

300 ha. 68 ha.

Tinio property 60 ha. Sto. Rosario, Magalang, Pampanga SRFA 15 members (10 families) 60 ha. 30 ha. (in process)

Name of PO No. of members

SMMC ?

Size of land claimed Size of land acquired Actual No. of beneficiaries a) PO members b) non PO members

48

10

70

9 (25 ha) 39

10 none

70 none

108 ha. 108 ha.

Chronology Cojuanco property April 2003:

PUMASOK ANG PDI Establishment of SMMC

Sep. 2003:

Establishment of K 4 (Women’s organization)

Oct. 2003:

Distribution of CLOA

Sto. Rosario, Magalang, Pampanga 1992: Farmers were invited by the land owner to till the land 2000: Farmers ejected – PUMASOK ang PDI 2001: LGU approved reclassification of the areas to residential and industrial zone 2002: Court order allowing farmers to till the land again – farmers now pay rental (P. 4,000 per ha per year) 2003: DAR survey: papers at Land Bank for validation process

Umcauco property 1963: Start of LTI struggle 1992: Establishment of BAFA 2000: PUMASOK ANG PDI 2003: Distribution of CLOA 1988: Property classified as commercial farm 1998: Property classified as agricultural land 2002: LGU Resolution to fast track distribution of land

Case Study LTI Struggle of Farmers in Carbonel, Gerona, Tarlac The Cojuangco clan is the most powerful clan in Tarlac Province. It also owns large landholdings, the most known being the 4,000-hectare Hacienda Luicita which is now being developed as a commercial and industrial center. The Copjuangcos also own most of the lands in the towns of Gerona, Paniqui, Ramos and Pura, in Tarlac Province. The aggregate size of their landholdings in these towns is around 300 hectares. Most of these lands have been covered by the 1972 land reform program for rice and corn lands. In fact, land titles in favor of farmer beneficiaries were actually generated. However, the supposed beneficiaries of the program never received their titles to the land. The farmers of Brgy. Carbonell, in Gerona, are among those who never received their titles to the land. PDI intervened in Gerona in April 2003, aiming to assist farmers in claiming the 300 hectares owned by the Cojuangco family. Previously, Carbonnel ws considered a hot area because of the infiltration activities of the New People’s Army. PDI came into the area under an environment where outsiders, even NGOs, are suspected of being communists. The Cojuangco family and its farmer-allies used the communist scare to discourage PDI from organizing the community. Against the odds, PDI organized the Samahan ng mga Magsasaka at Manggagawa sa carbonel (SMMC; lit. Carbonel Farmers and Farm Workers Association). Beginning with only a few members, the organization would soon expand to include 18 members. Many other farmers did not join the organization because they did not believe that

organizing can be an effective means of claiming the land. Besides, they were afraid that if they joined the organization, the landowner would kick them out of the land. By September 2003, a women’s organization was established in the community. This organization would provide additional support to the struggle of the SMMC apart from the women’s initiative of improving their lots in the community through livelihood activities. Mobilizing PDI’s partnership with the DAR at the national, regional and provincial level, the SMMC would be able to acquire information that would facilitate the land transfer process. Anomalous transactions were discovered forcing local DAR officials to respond and to act more positively. In October, during the evaluation period, PDI and SMMC succeeded in persuading the DAR to initiate the redistribution of some portions of the Cojuangco land. During a special ceremony attended by the evaluators on October 13, 2003, 48 Certificates of Lan Ownership Award (CLOA) were distributed to 48 farmer-beneficiaries. These CLOAs represented 68 hectares of land. Only 9 members of SMMC benefited from the distribution. beneficiaries, 39 farmers, are non-members of the organization.

The majority of the

The distribution of the CLOAs made a strong impact on the community, especially unorganized farmers who lost their faith in the agrarian reform law and in the value of organizing. The initial success in Gerona can be attributed to the following factors: •

The determination and strength of SMMC despite its small size.

•

The inputs of PDI in terms of organizing and strengthening the SMMC.

•

The acquisition of information from the DAR that surfaced anomalies and pressured local DAR officials to respond and act more positively; and,

•

The potency of the PDI-PO-DAR partnership that is mandated by the DAR Central Office.

The beneficiaries have long been in possession of the land they till. The issuance of the CLOA strengthened their ownership status. What they need to overcome is the strong pressure from speculative land markets where artificially generated rise inland prices are expected to tempt farmers to sell their land.

There is a need for PDI and the SMMC to look into land development. Having secured the CLOAs, the next challenge for the farmer-beneficiaries is to prove that they can make their lands financially viable. Given their low income positions and limited access to external resources, they see the need for PDI to continue its support. This is not to mention that 68 hectares represent only a small portion of the 300 hectares claimed by farmers.

Case 1: Cojuangco property, Gerona

Negative external Factors • Owners resistance • History of connivance with DAR and LGU officials • Landowners prearranged list of FB • Farmers “wait-and-seeattitude” • Farmers fear

Activities • Organizing for LTI • Organizing for ESS • Scholarship

Activities • Acquisition of information • Consultations (farmers, PDI) • Training, planning

Activities • Dialogues through SCAT • Internal consolidation of farmers • Threat of militarization • Local government view towards development • Landowners strong Results • Formation of SMMC, 4K • Distribution of CLOAs

Impacts • Land Security • Strong organization

Results • Encouragement of other farmers • LGU recognition on the strength of the farmers organization

Positive external factors • Farmers willingness to own land

Positive external factors • Partnership with DAR • Willingness of farmers to acquire the land

Case 2: Umcauco property

Negative external Factors • Owners resistance • Non-cooperation of local government (barangay, municipal level) • DAR conviviance with the landowner

Activities • Organizing for LTI • Organizing for ESS • Strengthening the organization • Knowledge on legal procedures

Activities • Formation of CBL • Dialogue and petitions

Activities • Series of consultation • Trainings, plannings, acquisition of information • Landowners resistance

Results • Formation of SRFA • Farmers active pursuit of land claim • Increased cropping

Impacts • Change in behavior of DAR personnel • Increased income • Landowners strong resistance

Results • Strengthening of the farmers organization (PO)

Positive external factors • Support from the LGU • Farmers willingness to acquire the land

Positive external factors • Partnership with DAR • Farmers informed about the legal procedures

Case 3:

Activities • Support to land claim • Organizing for ESS • Strengthening the organization

Umcauco property

Negative external Factors • Local maneuvers of the land owner • DAR connivance with the landowner

• Landowners resistance

Activities • Series of consultations, trainings, planning • Acquisitions of information

Activities • Dialogues (SCAT) and petitions at regional and provincial level • Organizational meetings for strengthening of the PO • Trainings and acquisition of

Results • Distribution of CLOA • Active engagement with City Court

Impacts • Security on land tenure • Stronger unity • Change in DAR personnel’s behaviour

Results • Encouragement of other farmers • Policy change at the LGU level

Positive external factors • Support from the LGU • Farmers willingness to acquire the land

Positive external factors • Partnership with DAR • Farmers informed about the legal procedures • PDI support

7.3

Group 3 – Bataan and Zambales:

Impacts Empowerment Capacities of the POs •

Organization and leadership skills resulted in strength and unity.

•

High commitment of members of PO.

POs have become active, e.g. they hold meetings and take decisions without PDI. •

POs have acquired knowledge about AR and procedures, their rights, human rights, etc.

•

POs are able to identify their needs and to communicate needs to the local government (they are also able to say “no”!).

•

POs have increased their communications skills – they are now able to speak in public and in front of government officials (in particular for women and Aetas this constitutes an important achievement).

•

Many POs have a kind of vision and are proud about their organizations and achievement.

In regard to indigenous People •

Aetas and POs have an own identity independent from PDI.

•

Increased self-confidence

•

Aetas are now respected by the government as citizens – they respect their rights (even respect of lowlanders to Aetas has increased).

•

POs are invited by the DAR to participate in discussions and for mobilization.

Sustainability and challenges •

Capacities are sustainable, but POs still need consolidation and guidance by PDI, in particular for the identification of future activities and negotiations.

•

The level and capacities of POs vary considerably mainly due to different periods of support and support to some POs also by other NGOs.

•

POs and NMGL still need the “name” of PDI and its credibility to be fulle accepted and to be successful in the negotiations.

•

POs and NMGL need guidance and orientation mainly for future actions, tactics and strategies to be applied in the different cases.

Good Governance •

POs and NMGL are new actors in the system and constitute a factor of strength.

•

Thanks to POs and NMGL the gap between farmers and DAR has been more and more bridged.

•

POs and NMGL assume important functions like vigilance / watchdog and they demand their rights – the realization and application of the law.

•

The Government recognizes Aetas and POs and their indigenous knowledge (e.g. organic farming).

•

The Government recognizes POs.

•

The advocacy of PDI and the POs has led to support friendly forces in the government.

•

In the process, more “friendly” forces in the government have increased, more committed persons are there in DAR.

•

More consciousness in DAR and more transparency of the implementation of AR has been achieved.

•

The concept of AR was influenced by PDI (GAR).

•

PDI helps to achieve the objectives of DAR and to find out anomalies through the feedback and monitoring me4chanisms (periodical meetings).

•

DAR suggests POs and NMGL as an example to other NGOs.

•

LGUs are challenged by the example of collaboration of PDI with POs and the success of collaboration – they feel the need to invest and to improve!

Poverty reduction •

Some encouraging successes at village level (hog dispersal) do exist.

•

All in all, ESS has only marginal impacts in economic terms except some specific families.

•

Food security has increased for the beneficiaries.

•

Land security has increased (is there) for those who have received their titles.

•

The scholarship program as part of the conscientization process has led to selfconfidence not only of the students but also of the entire communities.

•

Literacy level has increased (in particular important for Aetas), which was also supported considerably by other NGO.

Important indicator for success Ö

POs are becoming more and more attractive to non-members

Values and ideas behind the actors PDI: •

respect, support to the poor and the marginalized

•

integrity – to do what one says,

•

credibility, confidence to partners, honesty,

•

long term commitment and dedication to service by all staff – staff serve as an example for POs.

Farmers: land security and economic and developmental benefits are the most important aspects ambitioned by farmers Key factors which have allowed the achievement of the impacts •

PDI intends farmers self-reliance from the beginning of the cooperation.

•

Trust to POs and people in handling funds.

•

Periodical, evaluations of the work and the use of funds.

•

Weaknesses are fed back to POs in a constructive way as challenges.

•

Feed back and criticisms of POs towards PDI are welcomed.

•

Participatory decision making between PDI and POs.

•

PDI is not dictatorial.

•

The key issues of PDI’s program (land tenure improvement) are emotionally felt needs of the farmers.

•

PDI uses a variety of methods, not only knowledge and training but also songs which can touch the farmers emotionally.

•

PDI acts at all levels, from the Barangay to the national level.

•

The research work as a basis for the development of the negotiation strategies and for lobbying.

•

PDI sticks to the law.

•

Regular meetings with DAR.

•

Linkage work and networking.

•

The negotiation approach.

•

PDI has access to top level of DAR – personal friendship of PDI Director with important DAR officials thanks to her former employment in DAR.

•

EED’s vision correlates with PDI’s ideas – mutual understanding between NGO and funding partner – continuity of support and involved persons).

Challenges •

Expansion by POs to other areas

•

Sustain values within all POs and the entire organization NMGL.

•

POs and NMGL to become partners of PDI and not < only > target group.

•

Capacities of POs and NMGL need to be more explicitly identified on a basis of a self-evaluation of POs. These self-evaluations should serve as a basis for the POs to identify their support – and as a basis for negotiation of support between POs and PDI and other organizations.

•

POs to become advisers to farmers and to develop services for members (organizations).

•

PDI to develop an effective support for farmers and supporting POs in becoming entrepreneurs.

•

To enhance importance of < political > intentions compared to economic and developmental aspects among POs and NMGL.

•

To increase impacts on poverty reduction.

•

More gender equality and equity.

•

Enhance and develop second line leadership in PDI.

Open question Who actually benefits from PDI – to what extent are they poor (the 10% of the poorest of the poor) ?

8

Discussions of impacts and sustainability

8.1

Results of the working group on impacts

Empowerment Strategies Impacts Challenges 1. Transfer of • Increased knowledge and • More clarity on the knowledge and skills skills of both men and gender orientation of through trainings, women the program seminars, dialogues • Stronger unity of the PO • Need to increase the and information • Expansion of influence of level of engagement dissemination with local governments the POs • Increased self-confidence • To give more attention to the development of of the individual

• •

• 2. Transfer of resources through ESS support

•

3. Transfer of Assets through LTI

•

Indirect impact on the youth through re-echo of trainings Recognition of the identity and capacities of indigenous peoples by the LGU and other sectors Have organized 59 POs with 2,501 members Increased the autonomy of the POs to make decisions regarding their economic life Security of land tenure and power to decide on what to do with their newlyacquired asset

second liners and the youth

•

•

Need to assist the POs in preparing investment plans and business plans Need to assist the POs in preparing investment plans and business plans

Poverty Reduction Strategies Impacts Challenges 1. Asset redistribution • Security of tenure of • To sustain LTI through Genuine farmer-beneficiaries struggles involving 31 Agrarian Reform • Created incentives for cases covering 2,331 (GAR) hectares farmers to develop their lands • To increase the level of economic support • Increased resistance of big landowners • Focus on development of lands already • Encouraged other farmers acquired to claim their rights under CARP • Heighten advocacy for the retention and • Encouraged some LGUs to protection of retain and protect agricultural lands and agricultural lands allocation of budgets • Distributed 2,953 hectares for agriculture to 985 beneficiaries • Promotion of sustainable agriculture 2. Introduction of • Improvements in capacity • Need to conduct alternative research in to provide food needs livelihoods understanding and • Improved capacity of PDI measuring poverty and to deliver services food security

3. Literacy

• •

4. Mobilization of other external resources

•

Improved knowledge and skills Improved capacity to manage organizations Mobilization and redirection of services and budgets in favor of project beneficiaries

•

To undertake interventions in health and sanitation

•

Need for more penetration of local government units Need to institutionalize support for agriculture and agrarian reform beneficiaries

•

Political Participation Strategies Impacts Challenges 1. Acquisition of • POs became active • Need to increase level information to participants in the of political expose anomalies of resolution of cases participation by agrarian reform penetrating the state through bureaucracy 2. Building partnership • Hastened the running in local between NGO, PO implementation of agrarian development council and DAR reform • Active participation of beneficiaries • Changes in the behavior of the DAR in certain areas 3.

4.

Meta-Legal tactics (mobilization and dialogues, pressure tactics)

•

Mobilization of the tri-media

•

•

•

Voice of the farmers was heard Aroused other farmers to claim their rights Wider dissemination of information Mitigation of potential violence

8.2. Group work on Gender, Economic Project, Agriculture and Environment Deepening impact analyses and defining challenges Members: Bebe, Cheng, Eva, Gina, Mirna, Ruel, Gerlind

Goals

Where now?

are

we Challenges

Gender Equality ? Responsibility ?Have a say in livelihood ? Division of labor ? Decision making ? At a community political level ? Selfdevelopment

To involve men into work now primarily done by women (for facilitating freedom of movement) Break traditional roles of men and women Open doors for political participation Women should become able to negotiate to different partners in private and public sector

Livelihood Development Satisfaction of Agricultural most important production went up needs Most of the 1. Food beneficiaries have 2. Education of enough food to eat children 3. Housing PO’s earn from livelihood activities Sustainabilitv

? Organizations ?Activities ?projects ? Productivity ?Environment

Questions, Remarks, Preliminary Recommendations

Develop productivity

How to chane wider social environment? Training in GUST and GAD Women and men of PO’s should engage in politics

farm

Processing of agricultural products To create broader/deeper impacts

PO’s are able to There are still more manage small “other” poor projects Explore market links / networks PO’s conduct regular org’l activities Most PO members can send their children to primary + secondary school Government does not provide sufficient support to

What should PO/PDI do about this? Analyses/study situation Develop position

Environment Ecology

agriculture Most farmer beneficiaries are not able to support higher studies of children Little knowledge about / Clean environment Rich biodiversity waste management Sound ecosystemn Permanent crops have been planted (mahogany, mangoes, etc)

Develop ecologically sustainable agriculture Make organic fertilizer PO/LGU info campaign on value management and practice it within community Community training on organic agriculture Zero waste management

8.3

The sustainability of the impacts

What is sustainability? Results of a short reflection of the working group: • •

Impacts producing benefits for a long period Organization continue working without further support

In Good Governance: institutionalized participation of concerned people in Governance and decision making without depending on persons, political will etc.

Empowerment – self-reliant communities What shows us What is still lacking? sustainability What is a risk to sustainability POs can argue, PO lack power to negotiate also because of lack of communicate and information represent the members and disseminate information Deep-rooting of respective values in POs as e.g. democratic principles, transparency, etc. is still a challenge POs can realize advocacy work and lobbying “Name” and reputation of PO / NMGL – presently the successes also are due to the “name” and reputation of PDI PO-frontliner have the – the POs have not yet acquired a comparable reputation. capacity to negotiate There is the gap between front-liners and members in terms POs have defined other of capacities and motivation needs beyond land security There is the challenge to increase second line leadership in number and capacities Defined means and ways to address livelihood issues – to have land development once land security is achieved important aspects: • land productivity • competitive marketing • entrepreneurship • development management Sustain the motivation in POs and expand to other areas Threats: politicians, land speculators Information and awareness on national and global processes and issues POs being a social economic and po9litical force to effect change for development Good governance •

transparency, accountability, rule of law, participation of concerned

•

utilization of funds according to rules and regulations

What shows us sustainability

What is still lacking? What is a risk to sustainability POs participation at barangay and municipal Risk: prevailing development

policy

level – is already institutionalized (mandated depends on government and its priorities by law (LGU Council) on agricultural development (and not on industrialization). Achievements but not really sustainably: Law enforcement is not ensured Public consciousness about good governance has increased All depends on the political will (this concern also regular committees e.g. • Consciousness in Government about SCAT Good Governance has increased •

NGOs are approached by government for concept development

Poverty reduction What shows us sustainability Land security

What is still lacking? What is a risk to sustainability Temptation to sell land if priority is given to short term benefits.

Food security at family level Challenge to PDI: To clarify long-term Increased literacy level (formal and non- perspectives formal)

8.4

Assessing Management and implementation of PDI program

Level

Strengths

EED

Vision and ideas correlate with those of PDI. Long term commitment and continuity Trust and confidence

Weaknesses

Recommendations, Challenges Fund allocation should be based on work of the organization and not on “ceiling” per organization. Transform experiences of programs into policy and

PDI Board

Offers space autonomy implementation Advisory function.

and for

Policy direction guidelines.

and

advocacy in Europe. Partners should be integrated in advocacy as well. Increase openness for expansion to other areas of concern e.g. land development issues

Control function by the treasurer who has to sign each cheque. Voluntary assistance in implementation (e.g. s lecturer in trainings, spiritual guidance, etc.).

PDI Director

High availability Competencies knowledge. Commitment, credibility.

and

More control ??

integrity,

Relational capacities at all levels Sensitivity and intuition, analytical skills. Lives values of the program in management. Critical to performance quarrels, jealousies.

staff avoids dislikes

Too much trust in persons. Knowledge of the situation Multiple tasks Program in communities – assume to coordinator much Offer solutions to responsibilities Area coordination, problems. Organization

Focus more on facilitation role towards the POs – enhance facilitation. Offer more space for the leading role of POs.

work

Dedication commitment.

and Increase second liners in number and capacities

Multiple tasks – assume to much responsibilities of NMGL / POs Dissemination information about AR – law and procedures.

Enhance education and information dissemination.

Clear and objectives

To face and confront opposing forces.

eligible

in

Ability to confront problems, issues and challenges.

9

Recommendations

9.1

Recommendations to the POs and NMGL

Results of a working group of NMGL / PO members A •

Capacities Develop second liners through training.

•

Broaden the capacity of POs through training in basic management, paralegal capacity and entrepreneurship.

•

Maintain the vision for Agrarian Reform and Rural Development (ARRD).

•

Hands-on training.

•

Advocacy and Networking, coalition building around ARRD.

•

Local level plans as base for NMGL planning.

•

Use of tri-media for advocacy and for confronting landowners and local politicians.

•

External resource mobilization.

B

Sustainable Land Development and Livelihood

•

Agro-forestry development.

•

Production of high quality and high value crops.

•

Diversification of farms through inter-cropping.

•

Training on farm system development.

•

Promotion of organic farming at the regional and national levels.

C

Internal Management and Development

•

In-depth seminars on values formation and political affairs.

•

Training of Council of Leaders; maintain regular meetings.

•

Develop second liners.

•

Expand area of influence through organizing around ARRD; community organizing around LTI.

•

Campaign for capital build up and savings mobilization.

•

Strengthen political participation and engagements with external actors.

D •

E

Vision More participation in social, economic and political affairs: livelihoods, participation in barangay and municipal development planning.

Gender

•

Development of a gender program and training curriculum.

•

Conduct gender sensitivity training.

•

Promote equal rights of men and women at the household, PO and community level.

Discussion Notes: 1. PDI as main provider for capacity building training; other forms of training (e.g. livelihood skills, etc.) will be sourced out by tapping line agencies of government. 2. Gender awareness is increasing but is limited to first line leaders. There is a need to promote it on a wide scale. 3. Sustainable land development and livelihoods will include promotion or integration of animal husbandry; the lands already acquired will given more attention by seeking support for pre-harvest and post-harvest facilities. 4. Organic farming will be promoted by showing workable models such as in Bulacan and Zambales. 5. Regarding capital build up: the current level is too low for expansion activities although they are sufficient to fund internal activities as well as LTI activities.

9.2

Recommendation to PDI

Results of a working group of PDI staff 1 The Right to Land Recommendations Specifications Awareness and responsibility of farmers to • New role as small protect land security. cultivators optimize. •

Intensive

land

landowner

improvements

/

development. Increase advocacy/development counter measures against vested interest groups.

• •

Ownership. Training.

•

Education.

•

Lobbywork.

• Resource mobilization Ensure Commitment of POs in the Fast tracking of unresolved land cases continuing struggle of AR. (pending). Establishment of paralegal committee (A.J.). Expansion of area coverage as defined by PO’s needs Legislative Lobbying

2 The Right to food Recommendations Specifications Economic support to small owner Explore market linkages, networks. cultivators. Identify organizations ready to undertake Resource mobilization business. Skills Development Enhancement (Identify). Technology needed. Identify business ventures/enterprises Entrepreneurial training. fitting to the identified organizations. Training and education on business chosen. Installation of Check and balances. Setting the systems and procedures for PO/small landowner for business venture. Establishment of the business and Develop ecologically sustainable installation of the system. agriculture (organic farming). Operationalization of Business by PO. Monitoring and Evaluation of business. Development of monitoring and evaluation system.

3 Gender Recommendations

-Specifications

Consolidation and expansion of peasant Equality based on women’s group in the areas of operation. • Social •

Political

•

Cultural

• Economic Equality Identify needs/problems/opportunities and Reproductive rights the Threat to Gender equality. Reproductive roles Formation of Peasant Women’s Federation. Policy advocacy for the socio-economic Lobby work at all levels and political rights. Training and education on gender equality Enhance participation (involvement) Develop economic capacity of women. Economic support to identified Women’s IGP Resource Mobilization Implementation Enhance participation (involvement) in local governance. Monitoring and evaluation of gender program.

4

Good Governance

Training and education on good governance: Tri-Media: TV, Radio, Print, website, Usaping Bayan, video doc. Reaseach and policy advocacy. Lobbying and negotiation on policy change for peasant rights. Active participation in local governance. Symposia monitoring/evaluation.

5

Indigenous people

Beneficiaries’ definition of needs and concerns, profiling. Continuing non-formal education and higher studies. •

Identification of economic project

•

Training + education, skills development

•

Define technology needed

•

Establishment of IGP

Provision of economic support Training and Education on ARRD/IPRA, e.g. on Indigenous knowledge systems. Expansion IP organization and membership. Lobbying and advocacy.

6

Role of PDI and relation to NMGL

Advisory and Monitoring Training and education Support services •

Values

•

Exposure

•

Volunteers

Training and education e.g. ARRD leadership.

7

Youth

Formation of youth organizations. Involvement and participation in PO9’s struggles. Increasing scholarship beneficiaries.

Conscientize youth sector to lobby peasant rights, e.g. Training and education e.g. ARRD leadership. Social preparation for retraining service to the local communities.

8

Research and monitoring

Establishment of management information system (MIS); Data banking: Photo, audio, visual. Development of monitoring and evaluation system. Development of policy research for advocacy; RTD’s conferences for AR; workshops, Lobbying advocacy. ARRD Library Development. Enhancement of PDI websites. Development of ARRD music and poetry for advocacy.

10

Lessons learned from PDI’s experience

Working group of the external consultants

1.

Values and working style

•

Dialogue orientation and openness for communication with different forces / actors at all levels

•

Constructive way of dealing with conflicts

•

Management style reflects values of the program

•

High degree of flexibility : issues are tackled according to the evolution of the process – not according to a rather strict working plan

•

High degree of trust but also means and ways to avoid misuse

•

Independence from political parties

•

2. •

Staff has gone through a learning process and is personally affected (also at emotional level)

Aspects related to the program The program has a clear scope

Target group exist around issues •

Issues correspond with the felt needs of the farmers

•

Self-reliance of farmers, POs and NMGL as an objective from the beginning

•

Institutionalization of for a of negotiation (e.g. SCAT)

•

Working at all levels in a way that each level benefits from the work at other levels

•

The work is law implementation and not misused for political / ideological mobilization

•

Creative use of a broad variety of methods

3. •

External Aspects POs / farmers have undergone a learning process before

Process in society resulted in openness / space for dialogue •

Existence of AR law

•

EED’S correlation in values and vision as well as continuity of support offering broad space of autonomy for PDI

•

EED’s wide autonomy in relation to BMZ

11

Evaluation of the methodology, the process and the results of the evaluation

The consultants presented a list of questions in order to reflect on the process and results of the evaluation. 1. How do you feel now at the end of the evaluation?

2. How do you assess the process and the methodology? 3. How do you assess the results? 4. What kind of impacts do you expect from the evaluation? -

For you personally For PDI For NMGL / POs

5. Any other comment – recommendations for further evaluations - …? They also suggested to split into three groups for the assessment: PDI, NMGL/POs and external consultants. The groups presented the following results:

11.1 Evaluation by NMGL / Peoples organizations 1. How do you feel now at the end of the evaluation? It was a demanding job to evaluate, we feel exhausted. But we are happy because we learned new things. We are also proud that we are recognized as evaluators. 2. How do you assess the process and the methodology? We like the method and the process because it allows us to analyze each other’s strengths and weaknesses. 3. How do you assess the results? The evaluation is very fruitful because it surfaced valuable lessons that can be used to improve the chances of success of the organizations. What kind of impacts do you expect from the evaluation? •

On the individual: broadened the knowledge base, has increased self-confidence and flexibility of the individual.

•

On PDI: will become more supportive to the community organizations.

•

On the PO-NMGL: will continue to expand and strengthen itself to ensure sustainability.

5. Any other comment – recommendations for further evaluations - …?

Overall assessment: the method is simple but effective.

11.2 Evaluation by PDI 1.

How do you feel now at the end of the evaluation?

•

Physically and mentally exhausted.

•

Renewed strengths and commitment to service.

•

Emotionally invigorating.

•

Very optimistic.

•

Validation of our assessment about our work.

•

Gives us hope to carry on amidst the changing environment.

•

This is a very significant event for PDI after hard work and dedication to work.

2.

How do you assess the process and the methodology?

•

Politically correct method to assess NGO and PO – work.

•

Fair, all stakeholders are heard.

•

Provides new methods of work between NGO and POs.

•

The method was not one-sided. It gives opportunities to the NGO and POs to process the findings. Both parties define the results.

•

The method was able to analyze the whole development process critically but in an easy and graceful manner.

•

The method allows criticisms to be accepted constructively.

•

The method does not box the evaluators to be prejudice in their hypothesis and assumptions.

3.

How do you assess the results?

•

Provided PDI with deeper insights in our strengths and weaknesses, opportunities and threats.

•

Provided PDI a broader perspective and direction for the future.

•

Showed PDI accomplishments and gaps in work undertakings.

•

The results deepen our commitments and resolve to continue our work.

•

The results validated framework and approach in development work.

4.

What kind of impacts do you expect form the evaluation?

For PDI: •

Will strengthen PDI’s partnership with EED in helping the peasants.

•

Will strengthen PDI’s partnership with the POs in pursuing GAR and ARRD.

•

Will provide opportunities for PDI to service wider clientele.

•

Sets the direction and focus of PDI for the next 10 years.

•

Deeper understanding of the cause and effects of our work in society in general and in peasants in particular.

5.

Any other comment – recommendations for further evaluations - …?

•

To continue and expand EEDs commitment to PDI.

•

To use the participatory approach for evaluation and other projects in other countries because of its effectively and efficient thoroughness.

•

To use the participatory method as a standard for evaluation.

11.3 Evaluation of the evaluation by the external consultants 1. How do you feel now at the end of the evaluation? Different opinions existed in the team. On the one hand the external consultants are satisfied with the overall results and also a feeling of being relieved; relieved that the

initial difficulties with the methodology encountered in the Tarlac workshop were overcome. On the other hand one person also was afraid of report writing because it is difficult to measure impacts due to lack of monitoring data; some data are not well founded. However, this impression was not shared by the others who also stressed the difference between an evaluation and a research study.

2. How do you assess the process and the methodology? In general all the external consultants and M. Bartsch were satisfied and impressed with the participatory approach; the participants were highly motivated; there was a strong sense of ownership of the evaluation. However, as it was the first time for some of the external consultants to follow systematically this participatory approach, a more intense preparatory phase was found helpful or necessary in order to clarify the process beforehand. Also some suggestions concerning the plenary discussions in Subic were made. The external evaluators came in too early with strong questions which reduced the space and reflection of the other members of the evaluation team which were more presenting their own experiences that raising questions. One person found that more time should be spent for field research.

3. How do you assess the results? Satisfied and a lot of substance – many aspects and lessons are learned from the experiences – fruitful evaluation.

4. What kind of impacts do you expect from the evaluation? For Dr. Bartsch: The experience will shape his understanding of how evaluations can work and what space for participation and full involvement of people (Staff and POmembers) as evaluators exist in evaluations. This evaluation gave also a strong argument to promote autonomy of the church development organizations in relation to EED. Ed Quitoriano was already used to a participatory approach but not at this level where project implementers and beneficiaries are full participants as evaluators. He will use the approach in succeeding evaluation projects. Oliver Karkoschka has been used to this method and process and has become all the more convinced that the method is effective.

For Dr. Gerlind Melsbach some doubts exist whether this approach can also be used in problematic organizations. However, others argued that in particular in problematic programs staff and beneficiaries have to be involved intensively in order to develop potential for change and improvements in course of the evaluation process. Change and improvements can hardly been induced through the recommendations in the report only.

5. Any other comment – recommendations for further evaluations - …? The approach to involve staff and beneficiaries as evaluators is recommended also for other evaluations. During the preparatory phase there is need to enhance the clarity of the concept for the participatory evaluation.

12

Closing remarks

For the external consultant team, Oliver Karkoschka emphasized the joint and common efforts of this evaluation. If this evaluation was a success it is thanks to all the “birds” 39 . He thanked all the participants for their high commitment and engagement in this evaluation. He also appreciated the openness with which PDI and the People’s organizations received the external consultants and allowed a work as a team. Even when the evaluation is over, the external consultants will be together with PDI and the POs in the continuation of their efforts and the realization of the ideas produced and discussed during the evaluation – even if only in mind. Aurea Teves appreciated the evaluation as a very significant event for PDI and for the people’s organizations. This process provided new strength by learning lessons from the past and developing perspectives for the future. She appreciated particularly the participatory character of this evaluation process starting from the ground level. It allowed to strengthen the relationship between the partners – PDI and people’s organizations. This evaluation was also significant for EED as it validated the trust and support of EED. Finally, she thanked BMZ for having initiated this evaluation and in particular Dr. Bartsch for being open-minded and having contributed also with his heart in this evaluation.

39

See chapter 4, methodology of the evaluation, pages 6 – 9, all members of the evaluation team wanted to be a “bird” – meaning to be an evaluator and not only a participant of the evaluation as information source, etc.

Carling thanked the external consultants who have given him the opportunity to become a bird – an evaluator. He is very proud about his and he appreciated this recognition of the capabilities of all the members of the evaluation team. He compared the evaluation process with a rice field. The soil was well prepared and the seeds planted during the first workshop in Tarlac – then the field visits constituted a good part of the growing period and now at the end of the Subic Workshop we were able to harvest the results of this process. The whole process was very enlightening for him and constituted a moral boosting. He stressed again the results of the evaluations are not only the findings and recommendations but also all the birds which have been produced by this evaluation. He again thanked PDI to be one of the few NGO who really understand the situation and aspirations of the indigenous people. Loida also added the importance of the trust which was given to all the participants. The trust was earned by all the birds – she was proud of it and thanked. For Dr. Bartsch this was the first opportunity to be so close together with an NGO collaborating with farmers and their organizations as does PDI. He appreciated the openness of PDI very much to offer him the opportunity to see what kind of work is being done. It was also the first time for him to be so direct part of an evaluation and not only through reports and discussions of findings. He appreciated very much the way how he was welcomed as part of the evaluation team. This experience was important for him in particular to have observed the methodology which has allowed to highly participate PDI staff and people’s organization members as evaluators. It was impressive to follow the discussions and to see results of such a participatory evaluation process. He is proud having been part of this process.

The evaluation team Name Aurea G. Miclat-Teves Ruel Punongbayan Julio R. de Guia (Jheng) Gina de Fiesta

Organization and Designation Executive Director, PDI Coordinator, PDI Central Office PDI – Organizer for Pampanga and Tarlac PDI – Organizer for Nueva Ecija

Tony Santos Myrna Arandia Al Carillo Eddie Ibabao

PDI, Palawan PDI-Zambales PDI, Bataan-Zambales Adviser, NMGL; PDI Organizer Bulacan President, PASAMBOT, LAKAS, Local Leader, Aeta Community Secretary, NMGL, Member, Sto. Rosario Farmers’ Association

Carlito Domulot Loida Rivera

Remarks Zambales/Bataan team Nueva Ecija/Bulacan team Pampanga/Tarlac team Nueva Ecija / Bulacan team Zambales/Bataan team Nueva Ecija/Bulacan team Zambales/Bataan team Pampanga/Tarlac team

Wynona Corilla Paula Patoc Maxima Valdez Dr. Edson Arceo Eddie Ll. Quitoriano Dr. Gerlind Melsbach Oliver Karkoschka Jorg Schwieger Dr. Sebastian Bartsch Amado Higante Angelita Deliquena Calanat Dumulot Ben Jugatan Pablo Bocable Aida Noceto Evarea Manglicmot Ramon Ayco

7

Auditor, NMGL-Zambales Treasurer, NMGL-NE; President Women Fed Vice-President, NMGL PARO, DAR-Tarlac Independent Consultant Independent Consultant Independent Consultant EED, Evaluation Unit BMZ, Coop. with Church Organizations President, NMGL; Manager, BAMPCI Member, LAKAS Adviser, LAKAS Adviser, LAKAS BOD Member, NMGL-Nueva Ecija; President, PASAMA-Laur Board Member, NMGL Project Staff, PDI-Nueva Ecija Projet Staff, PDI Central Office

Pampanga/Tarlac team Nueva Ecija/Bulacan team Pampanga/Tarlac team Pampanga/Tarlac team Pampanga/Tarlac team Nueva Ecija/Bulacan team Zambales/Bataan team Only October 9 and 10 Only from October 15 Only in Tarlac Only in Tarlac Only in Tarlac Only in Tarlac Only in Tarlac Only in Subic Only in Subic Only in Subic

Terms of Reference

FEDERAL MINISTRY FOR ECONOMIC COOPERATION AND DEVELOPMENT Division 120 (Aid Evaluation)

Bonn, August 2003

Terms of Reference (TOR) for the Evaluation of the Program “Rural Empowerment through Agrarian / Asset Development (READ Program)” implemented by the “Project Development Institute (PDI)”, Philippines supported by BMZ through EED/EZE

1

Objectives of the Evaluation

The evaluation of the program “Rural Empowerment through Agrarian / Asset Development (READ Program)” implemented by the partner organization “Project Development Institute (PDI)”, Philippines. It is the second of six evaluations of programs of the German Church Development Organizations EED/EZE and Misereor. This sequence of evaluations is to analyze and assess achievements and experiences of programs in regard to the objective of German Development Co-operation “Enhancing the participation of the poor – strengthening Good Governance” (Program of Action 2015). Particular attention should be paid to what extent strategies to strengthen the poor and their organizations are able and successful to enhance and support “bottom-up processes” of poverty reduction. Finally, how to improve these strategies and lessons learned for comparable programs are to be identified. The experiences maid in the bilateral aid project “Bondoc” shall be used as reference. Seven key questions are the basis for the sequence of evaluations “Enhancing the participation of the poor – strengthening Good Governance”. These key questions are emphasized bold and italics in the matrix below. 2

The report and key questions

The main report to be submitted by the evaluation team should follow the matrix given below as closely as possible in order to facilitate the comparison of reports. The matrix is also intended as a checklist for the evaluation, which may be supplemented by special sets of questions to meet the needs of the evaluation. Findings and recommendations are interdependent. Wherever substantial deficiencies are identified, the summary must include a cross-reference to the relevant recommendation (recommendation No.) and another reference to any detailed mention in the text (item, page).

In the same way, recommendations must be cross-referenced to the findings on which they are based (finding No.) and to any detailed mention in the text (item, page). The addressee for the recommendation should also be named. Recommendation which deal with the same subject or complement each other should be arranged in such a way as to show their contextual relationship, this can usually be ensured by following the structure for the report item by item as given below (Nos. 4-10). The evaluation must in principle be directed towards analyzing and assessing the contribution made by the project towards poverty alleviation.

Evaluation Matrix

1.

2.

Introduction -

Reason for and purpose of the evaluation

-

Methods applied for the evaluation

-

Period of evaluation

-

Composition of the evaluation team

-

Participation of other actors in the evaluation

Summary

2.1

Summary of major findings (Nos. 4-10)

2.2

Summary of major recommendations (indicating to whom the recommendations are addressed, the findings upon which they are based, item, page)

2.3

Findings and recommendations in regard to the seven key questions of this sequence of evaluations

3.

Brief description of the program

3.1 Concept (idea, manner of operation, target group, formulated goals of the project) 3.2 Tabulated overview Project Partner: Project name: Project number: Duration of the project: Target group (are poor people part of the target group?) Overall aim: Project aim: Desired results: Financial input: Previous investigations:

4.

General conditions

4.1 Political, economic, ecological, social and socio-cultural frame conditions -

Brief description of the relevant frame conditions of the program and their target groups

-

Which are main causes of poverty in the program region?

-

What are government strategies and measures to reduce poverty in the program region?

4.2

4.3

-

What kind of rights of participation of the local population do exist and to what extent are these also exercised?

-

What are relevant processes affecting the poor and the program?

-

In which way does the government respond to traditional forms of participation and representation of the local population – i.e. indigenous people?

-

Which factors are favorable/unfavorable for the participation of the local population within the legal framework of the Local Government Code of the Philippines?

-

Description of the ecological dimension of the agrarian r eform and the resettlement issue

-

Which elements of the frame conditions can be considered to b e favoring and hindering the interests of the poor, their organizations and the supporting organizations?

-

Which possibilities have the organizations (People’s Organizations, NGOs) to influence and change these frame conditions?

Brief analysis of the sector in which the project to be evaluated is embedded -

Brief description of land use patterns in the project area

-

Brief description of land tenure in the project area

-

Brief description of non-agricultural economy in the project area

-

Brief description of the Comprehensive Agrarian Reform Program (CARP), its present status, impacts and major problems

-

What are the strategies of rural development of the government and other organizations in the program area?

Analysis of the institutional framework (showing its relevance for the success of the project) -

Description of the organizational landscape and the position of PDI: What other actors, organizations, institutions are working in the program area to similar objectives – relations to Government – legitimacy from the poor, etc.

-

What kind of relations and networking exist between PDI and other organizations/institutions?

4.4

-

What is the distribution of roles and responsibilities?

-

What are experiences of co-operation and networking?

-

Which understanding of democracy is applied by the different actors and what role is given to civil society?

List of the conclusions to be derived from 4.1 – 4.3 (is this an effective promotional strategy?)

5. 5.1

Quality of the aims and planning of the project Analysis and assessment of aims -

Strategic aim, project aim, concrete desired project results with the relevant indicators, assumptions, etc.

-

Overall aim, project aim, concrete desired project results with the relevant indicators, assumptions, etc.

-

Analysis and assessment of the aims of the project in terms of

-

their correspondence to the priorities of the partner country’s development policy

-

their correspondence to the objectives of the German government’s development policy (Program of Action 2015)

-

their compatibility with the country strategy and specific priorities for the EED/EZE co-operation in Philippines

-

their clarity and prioritization (as a prerequisite for feasible planning and as a standard against which to measure the success of the project)

-

whether the aims are realistic (is realistic account being taken of the partner’s capacity (general conditions), the assumptions and risks?)

-

any adjustment/changes during project implementation

-

the contribution of the aims to identified target groups (by gender)

-

the consideration of the needs and interests of women

5.3

6. 6.1

-

acceptance by the target group, their level of development (will and capacity)

-

direct/indirect structural poverty orientation

-

the consideration of environmental issues

-

the consideration of sustainable significance (what contributions are being sought so as to achieve the overall aim/sector aims?)

-

the consideration of the needs and interests of the indigenous people?

Overall assessment of project aims and planning -

Are the project measures based on a structured, participatory planning process and are they sufficient and appropriate for the achievement of the aims – especially the aim of poverty reduction?

-

Was appropriate attention given to aspects relating to the significance and longterm feasibility of the project and its intended effects as well as its contribution to sustainable development?

-

Are there suit able indicators to measure what has been achieved?

Quality of project implementation and management Analysis and assessment of the quality of project implementation • Assessment of the project implementation • Organizational and institutional implementation (roles and responsibilities in implementation, participation of the target group – by gender) • Capacity development of staff (duration, content, instruments) • Relationship to planning (comparison between target and actual achievements, adaptations of plan during implementation)

6.2

Analysis and assessment of the quality of project management • Assessment of the quality of management by PDI and its instruments (M+E, reporting, visits, etc.)

• Assessment of co-operation between PDI and EED/EZE (agreements, distribution of roles and responsibilities, contributions of each partner, etc.) • Assessment of the Monitoring and Evaluation System

6.3

Overall assessment of project implementation and management

7. 7.1

The project’s effectiveness in development terms and its significance Project results and achievement of aims (reasons for deviations from what was planned) -

7.2

To what extent have planned results and objectives been achieved, e.g. -

strengthening of local self-help groups

-

development of capacities of the target population

-

improvement of situation in regard to the legal land titles

-

improvement of agricultural production

-

lobbying

-

what are strengths and weaknesses of the integrated approach of PDI?

Assessment of const/benefit ratio Efficiency and profitability of promoted and supported economic measures (agricultural production and non-agricultural income generation)

7.3

Recording and assessing economic, social, socio-cultural and institutional impacts (differentiated by gender, where possible), unintended impacts should also be recorded and assessed.

Impacts at the level of the target groups

-

What kind of changes can be observed at the level of the target population? E.g. -

the mobilization of self-help

-

the situation of women and the youth and changes in gender relationship

-

conflict situations

-

the degree of organization of the target population

-

organizational capacities of the People’s Organizations (and the ARC)

-

individual “Profitability and efficiency” of PO membership

-

changes in level of livelihood and style

-

the situation of the indigenous people.

-

To what extent can this be attributed to the program? Does this have positive effects of participation in decision making?

-

What concrete causes induce the creation of organized representation of interests of the poor (self-help, advocacy, etc.)

Impacts in regard to the agricultural sector -

What kind of impacts can be observed in the agricultural sector?

-

Changes in the agricultural productivity for different target groups (according to gender, farm size, etc.)?

-

Environmental appropriateness of agricultural production and other land use?

Impacts at the level of the partner organization -

What are the lessons learned concerning the effectiveness of the means and actions and strategies of PDI related to the achieved impacts? What aspects are specific for the respective situation, what can be generalized for similar programs?

Impacts concerning political participation -

To what extent has PDI achieved to enhance and enlarge the possibilities of participation of their target population at local, regional, national and

international level? What kind of results and impacts have been achieved in this respect? -

7.4

Can the following impacts be observed in the program area -

sustainable re-allocation of government resources,

-

change in the allocation process, and an increased transparency,

-

stimulus for sustainable development for the poor?

-

What is the evolution and process of co-operation between the poor, their representing organizations (PO) and the advocacy organizations (NGO). Which factors influence the acceptance of the supporting and advocating organizations by the target groups? What are the lesso9ns learned for future programs?

-

What is the role of networks, alliances and co-operation between nongovernment actors and NGOs with and government actors at local, regional and national level as well as at international level (north/south)?

-

What kind of favorable and hindering reactions of decision makers can be observed?

-

Do any impacts exist which concern the change of attitudes and behavior of decision makers or other influential actors?

-

What kind of factors have particular influence on the organizations representing the poor and their interests? What are strategies of the organizations to cope with these factors? Are these strategies appropriate?

Poverty orientation and contribution by the project to the International Development Goals and to the goals of the Program of Action 2015 • Are poor people part of the target group? • Is the project going to improve the living conditions of the poor and encourage their productive potential (access to education, health, food, water, environmental resources)? • Are the poor involved (participation)? • To what extent does the project contribute to the International Development Goals and those of the Program of Action 2015?

• Assessment of poverty orientation considering the results of the evaluation 7.5

Ecological impact • Anticipated and actual positive or negative impact on the environment • effectiveness of protective and monitoring activities • ecological risks • ecological sustainability

7.6

Sustainability General conditions -

Has the condition necessary for project success, namely a conducive environment in the country and in the sector, been met or have the general conditions changed during the project and, if so, how has the project reacted to the changes? Is the project part of a larger program?

Project partner organization -

Performance (Can PDI be expected to achieve the project goal?)

-

Goal congruence and acceptance, participation

-

Financial sustainability

Target group -

Participation: Is the project based on the felt needs of the target group?

-

Acceptance (were the target group’s ideas, expectations and reservations with regard to the project taken into account?)

Impacts -

Durability of project impacts (relating to the target group, to institutions, structural impacts, diffusion impacts)

-

8.

Project’s contribution to sustainable development

Recommendations

8.1 Project-related recommendations – to whom addressed – (corresponding to finding No. …, item, page …) 8.2 Sector-related recommendations – to whom addressed - (corresponding to finding No. …, item, page …) 8.3 Recommendations concerning the key questions of the sequence of evaluations

9.

General conclusions (lessons learned) derived from findings relating to the evaluated project

9.1

With regard to the type of project (inter alia, value as a model) Comparative analysis of lessons learned from the program area and Bondoc evaluation

9.2

With regard to future programs (key questions)

9.3

With regard to procedures and instruments

10.

Other findings (based on the evaluating team’s know-how and experience)

11.

Annex

11.1 Itinerary and work schedule 11.2 Sources (discussion partners, documents, reference literature, primary surveys, etc.)

11.3 General map 11.4 Tables 11.5 Preliminary report 11.6 Terms of Reference

8

Comparative analysis of lessons learned from the READ program and Bondoc Development Program

Differences between READ program and BDP There are more differences than similarities between the READ Program and the Bondoc Development Program (BDP): The BDP is implemented by the local governments (LGUs) of Bondoc. Key line agencies in agrarian reform and rural development, namely, the DAR, DA, DECs, DENR and DOH are excluded from the BDP Board of Directors. In contrast, the READ Program in Central Luzon is implemented by an NGO with PO partners and the distinctive participation of the DAR in program implementation. The leading role of the LGU is apparently problematic in the LTI arena because most leading officials of the LGUs are also big landowners. Bondoc Peninsula is mainly rural. Contests in land ownership are around coconut lands and uplands that are classified as forests but have been titled to private individuals. Central Luzon consists mainly of flat lands, the bulk of which is used for rice production and, secondarily, for sugarcane and tree crops like mangoes. One distinctive character of Central Luzon that is absent in Bondoc is the rapidly changing landscape in favor of urbanization and the emergence of commercial and industrial zones (see chapter 41.3, page 21). Consequently, trends in land reclassification, land conversion and land speculation are more intense in Central Luzon than in Bondoc. Correspondingly, land prices have increased rapidly in the region compared to a stagnant land market in Bondoc. The media has little access to Bondoc compared to Central Luzon. This explains the significant role played by the media in Central Luzon. The NGO-PO-DAR alliance that is prominent in the READ Program is not prominent in the BDP, especially at the local level. The participation of the national leadership of the DAR in the BDP was prominent only during the Estrada administration when the full force of the law was applied in acquiring the land of a big loandowner. In the READ

Program, the DAR-NGO-PO alliance cuts across the national, regional and provincial bodies of the DAR. As pointed clearly out in the last evaluation of the BDP, the project has concentrated too much on land acquisition and neglected the economic development of the beneficiaries. Even after years of acquired land ownership, farmers have not developed ideas as to how to make their land profitable. They are completely stagnant in this regard. This is different from the pronounced approach of PDI which emphasizes both aspects and tries to support the implementation of both. Similarities The points of similarity are in the areas of LTI and empowerment, but remain distinct: LTI is the central component of the READ Program. In the BDP, LTI is just one key result area among seven. The two projects have similar attributes around LTI: organizing, mobilization, advocacy, alliance building as well as information dissemination, education and training. However, NGO empowerment efforts in the BDP are highlighted mainly in meta-legal mobilizations to acquire big landed estates. In the READ Program, the empowerment objective includes, among others, initiatives in women’s empowerment and alternative livelihoods. What is common among the two programs is the seemingly universal attitude and behavior of big landowners to resist land reform using legal as well as extra-legal means.