IID Policy Environment in the Philippines

Policies, Programs and Institutions

Prof. E. E. RicoteASPAP Inc.

Situational Backgrounder (Policy Context)

• Policymaking process (agenda-setting-formulation-formalization- adoption-implementation) formalized in institutions with policy making mandate (legislative branch)

• Executive Branch translates legislation into executive policies (Exec/Admin Orders) at the sector and/or department levels (Implementing Rules and Regulations, Dept Order, Memo Circular, etc) and down to local governments (Local Council Provisions)

• Critical role of institutions with specific legal mandates (policymaking, regulatory, oversight, implementing, etc) in translating policies to programs, projects and activities

• Has provisions for participation by non-state governance actors

• Politicized and constrained by institutional and fiscal limitations

Public Policy Process in the Philippines Policy Cycle POLICY STAGES in the PHILIPPINES Institutions

Agenda Setting Public sector’s development requirements; Amendments to current policies; Sectoral advocacies, etc.

State actors – legislators, executive offices, Non-state actors – development agencies, industry, private business, NGOs/Pos, etc.

Policy FORMULATON

Policymakers in the legislative and executive (national and local) take up the agenda

Congress (Republic Acts) Executive (Implementing Rules and Regulations, Exec Order, Admin Order, Dept. Order, Memo Circular, etc) LGUs (Council Resolutions)

Policy ADOPTION Formal enactment of the official and legal policy instrument after a series of dialogues and consultations with state and non-state sectors; presentation of options

Policy FORMALIZATION

Policy IMPLEMENTATION

Translation of the policy into programs and projects at the executive branch - from the President to the line agencies and concerned institutions at the national and local levels; Mobilization of resources - funds, personnel, etc.

Executive Branch – Departments, Agencies, LGUs, Budget Department Office, Civil Service, Regulatory and Oversight Agencies

Policy Evaluation Policy Implementation Review and Evaluation towards Agenda Setting

The Phil Inclusive Dev Agenda

1) High and sustained economic growth - attain a high and sustained economic growth that provides productive employment opportunities

2) Equal access to development opportunities – a) better education, primary health care and nutrition and other basic services; b) equal access to infrastructure, credit, land, technology and other productive inputs; c) improve governance and strengthen institutions to promote competition

3) Effective and responsive social safety nets – protect and enable those who do not have the capability to participate in the economic growth process

INCLUSIVE GROWTH AND DEVELOPMENT

OUTCOMES Reduce Poverty

Increase Employment

PHIL DEVELOPMENT

PLAN 2011-2016

3 BROAD STRATEGIES

1.High and Sustained Economic Growth

2. Equal Access to Dev Opportunities

3.Effective and Responsive Social

Safety Nets

Selected Phil IID Policies Criteria – a) critical inclusive growth driver; b) has a formally

adoptedlegal/policy basis; b) went through the policy processes; c) under

implementation PDP 2011-2016

Chapter

Public Policies

Program Implementing Institutions

Chapter 5 – Infrastructure

RA 7718 EO 8EO136

Public-Private Partnership (PPP) Program

NGA, NEDA-ICC GOCCs, LGUs,

Chapter 8Social Development

RA 10354 Reproductive Health Program

DOH, LGUs

EO 221AO 15

Conditional Cash Transfer Program (Pantawid Pamilyang Pilipino Program – 4Ps)

DSWD, DOH, DepEd, LGUs

RA 8425 KALAHI-CIDDS NAPCC, DSWD, HDPRC, LGUs

Chapter 10Environment

RA 10121 Disaster Risk Reduction and Management Program

NDRRMC, LGUs

Profiling the Public Policies (1) Public-Private-Partnerships (PPP) Policy

Policy Cycle

Policy Formulation

Emanated from constitutional provision on the role of private sector in development; Private sector finance regarded as resource under the development assistance program

Policy Adoption RA 7718 – (Amended BOT Law, 1994) - Enacted to provide solid legal basis to engage private sector financing and technology in critical infrastructure and development sectors; IRR committee created to develop Implementing Rules and Regulations (IRR) which was amended in 2012Executive Order # 8 (2010) – Formalized PPP Program; Established a PPP Center as main coordinating agency; Mandated implementing agencies (IAs/GOCCs/LGUs) to develop PPP projects; create PPP unitsExecutive Order 136 (2013) – Established a PPP Governing Board

Policy Formalization

Policy Implementation

PPP Center established to provide project development and capacity building interventions to IAs/GOCCs/LGUs; DBM mobilized funds for the PPPC and its Project Development Monitoring Facility (PDMF), DOF (Contingent Liability Fund) and Infra Agencies (Strategic Support Fund)

Current Pipeline of PPP Projects – 6 Awarded Projects (PhP45 B); 4 Projects Under Bidding (PhP121 B); 16 Projects Under Review and Structuring; 18 projects under study

Policy Evaluation

Proposed amendment to RA 7718 submitted to Congress; Certified priority bill

Profiling the Public Policies (2) Reproductive Health Policy

Policy Cycle

Policy Formulation

Draws historical basis on 1967’s Declaration on Population by 12 countries including the Phil whereby population be considered a principal element for long term economic development; Proposed by the health department as a comprehensive response to guarantee universal access to methods on contraception; fertility control, sex education and maternal care

Policy Adoption Republic Act 10354 (2012) – Responsible Parenthood and Reproductive Health ActWhile there was general agreement about its provisions on maternal and child care, there remains a huge debate about its mandate that the state and private sector will fund and undertake widespread distribution of family planning devices, birth control pills and IUDs and government continues to disseminate information on their use in health centers

Policy Formalization

Policy Implementation

Implementing Rules and Regulations (IRR) has yet to be developed Funding allocation has yet to be mobilized through DOH and other agencies with specific roles – FDA, LGUs, etc. Family planning and responsible parenthood component to be integrated in anti poverty programs (Chapter 12)

Policy Evaluation

A petition questioning the constitutionality of the RH Law was raised to the Supreme Court which voted, in March 2013, to issue a status quo ante order halting its implementation

Profiling the Public Policies (3) Disaster Risk Reduction and Management (DRRM) Policy Policy Cycle

Policy Formulation

Drew urgency from old law’s (P.D. 1566) disaster management policy focused only around the hazard and the impacts of a disaster. It assumed that disasters cannot be avoided. Most of the plans were on the provision of relief goods and infrastructure. The DRRM Act came as a response to increasing risk of disasters in the face of intensified global climate change.

Policy Adoption Republic Act 10121 – DRRM Act Amending previous policies and providing a comprehensive DRRM Program. The DRRM Act adopts and adheres to principles & strategies consistent with the international standards set by the Hyogo Framework for Action (HFA), a comprehensive, action‐oriented response to international concern on disaster impact on individuals, communities & national development.

Policy Formalization

Policy Implementation

Implementing Rules and Regulations (IRR) – Focus on integrated priorities for action towards disaster risk reduction – a) disaster preparedness; b) risk assessment; c) vulnerability reduction; d) knowledge management and, e) governanceInter-agency National Disaster Risk Reduction and Management Council (NDRRMC) with defined roles for government agencies, local governments, civil society, private sector and the affected local communities

Policy Evaluation

Evaluation of policies, processes and institutional roles reiterated in the light of recent disasters that highlighted readiness and coordination challenges between national and local governments

Profiling the Public Policies (4) Kapit Bisig Laban sa Kahirapan- Comprehensive Integrated Delivery of Social Services (KALAHI-CIDSS) Policy Cycle

Policy Formulation

Framed from the National Anti-Poverty Program (Social Reform Act) Consolidated the lessons and strategies of the two poverty reduction programs – CIDSS (DSWD) and Kecamatan Development Program (Indonesia)

Policy Adoption Social Reform and Poverty Alleviation Act (RA 8125 - 1998) Embodied in Philippine Development Plan (PDP 2011-2016) and NAPC’s community driven development (CDD) thrust . Scaling up of the CDD through the Human Development and Poverty Reduction Cluster - NAPC, DAR, DA, DepEd, DOE, DILG, DOLE, etc.

Policy Formalization

Policy Implementation

First Phase (KC-1) 2003-2010 – 42 poorest provinces (over 50% nationwide) assisted in small scale but responsive to community-identified needs (e.g. school buildings, health stations, day-care centers, post-harvest facilities, etc)By end of 2010, the project funded partially by WB has covered a total of 5,543 barangays (villages) in 200 municipalitiesMillennium Challenge Account Phil (MCA-Phil) funded KC-II (Aug 2011) and benefited 160 municipalities in 24 provinces, as 2,672 subprojects completed including 249 school buildings, 198 water systems, 117 day-care centers, 99 health stations, 45 flood and river control systems

Policy Evaluation

Consolidation of lessons and challenges (c/o DSWD) particularly on the role of local governments - towards policy, process and implementation improvements

Case Study - Conditional Cash Transfer Guidelines (Pantawid Pamilya Program)

Policy Cycle

Policy Formulation

Evolved from the social development objective of breaking the inter-generational poverty cycle through investments (health, education) in human capital; Inspired and adopted from other developing countries’ cash transfer schemes to selected beneficiaries provided they comply with program conditionsExpected to help fulfill Phil’s MDG Goals – 1) Eradicate extreme poverty and hunger; 2) Achieve universal primary education; 3) Promote gender equality; 4) Reduce child mortality; 5) Improve maternal health

Policy Adoption Executive Order 221 (2003) - Redirected the functions and operations of the DSWD to provide assistance to LGUs, NGOs, Pos, etc. effectively implementing services to reduce poverty; empower poor individuals/families/communities Administrative Order 15 (2008) – Guidelines on the Implementation of a Pantawid Pamilya Program (Conditional Cash Transfer Program)

Policy Formalization

Policy Implementation

Program Coverage – 79 provinces covering 1,484 municipalities and 143 key cities in all 17 regions nationwideProgram Cycle – 1) selection of target beneficiaries; 2) supply side assessment; 3) selection of households; 4) registration and validation; 5) family registry preparation6) initial payment; 7) verification of compliance; 8) 2nd and succeeding releases Program Package – Ph6,000 a year or Ph500 per household for health and nutrition expenses; Ph3,000 a school year (10 months) or PhP300/month/child for educational expenses; maximum of 3 children per household

Case Study - Conditional Cash Transfer Guidelines (Pantawid Pamilya Program)

Policy Cycle CHALLENGES ENCOUNTERED

Policy Formulation

Translation of policy objectives into specific implementing guidelines covering various sectors (education, health) , levels of implementation (national and local governments and communities) and the multi-sector participants and stakeholders (private/NGO conduits, development agencies

Policy Adoption

• Clarification of mandates/roles/deliverables of concerned public institutions and private/non-public actors/participants • Monitoring and evaluation framework and mechanics • Accountability mechanisms (systems, processes, institutions, fiscal, etc)

Policy Formalization

Policy Implementation

• Local constraints and realities – database/documentation and ICT concerns• Location/distance concerns relative to disbursements, tracking, monitoring• Political and community considerations relative to selection, verification, transparency and accountability • Creativity and Innovation in handling/managing challenges • Public Communications

Policies and Programs

Innovations Inclusiveness Aspects

Public-Private Partnerships(PPP)

Creative project structures that tap private sector financing instead of government budget or official development assistance

Tapping of private sector efficiencies (i.e. construction, operations, maintenance, ICT, etc)

Risk sharing arrangements facilitated risks transfer from government to private partners

The Project Development Facility (PDMF) facilitated due diligence in project preparation and procurement at no cost to government

The expanded definition of infrastructure to include development projects (i.e. social infrastructure such as education, health, etc)

Generation of jobs and related economic activities that directly impact on poverty reduction targets

Infrastructure directly impacts on expansion of logistic chains and integration of multimodal national transport and logistics systems

Savings generated (Avoided Cost)which can be allocated to social requirements

Reproductive Health Law

Proper policy context and content that include social dimensions of reproduction that made the law take its appropriate social relevance and urgency

Creative approaches to drive and articulate policy objectives

Social and economic considerations (i.e. quality of family life, health and nutrition, women’s health, children welfare, etc) appropriately captured in all phases of the policy process and dialogue

Reproductive health’s direct correlation with economic productivity prudent use of public sector resources

KALAHI-CIDDS Simplification of processes and procedures The community driven development (CDD)

approach facilitated people empowerment The sense of ownership among the participants

and stakeholders encouraged by the CDD approach built up a renewed sense of accountability in them

Participation by the entire community, including formal and traditional leaders, representatives of different sectors, individuals, groups, and local organizations

Participation of women and indigenous people and broadening the base of participation prevents elite capture of project activities and benefits.

Disaster Risk Reduction and Management Program (DRRM)

Clarity in the delineation of roles and tasks by various national and local institutions

Utilization of ICT-based methodologies/approaches Primacy of public communications (i.e. traditional

and social media) as a tool

Participation by all state and non-state actors both at the national and local levels

Direct correlation between disaster reduction, rehabilitation and management and productivity, employment, resource generation and sustainable development

The Conditional Cash Transfer Program

Creative consolidation of health/nutrition, education and productivity-inducing interventions into one program

Customization of similar best practice and experience from other countries

Direct benefit to education, health/nutrition targets Generation of productive activities that bring about

employment, access to opportunities and resources

Lessons and Recommendations

• Innovation can be institutionalized into the policy process. Diligence in the development and processing of policy inputs is crucial

• Inclusive and innovative development need not always

require new legislation. It can take the form of amendments to existing legislation or translation of policies into more focused policy instruments further broken down into specific programs and projects

• Institutions play a central role in the IID policy advocacy. Their strength or weakness (authority, structure, systems, fiscal/human resources) spell the difference in making innovation evolve and thrive in an inclusive manner throughout the policy process, especially at implementation

• Context is key. The existing and evolving policy, institutional and socio-political realities are as important as the Content of the IID policy

Lessons and Recommendations

• Innovations at inclusiveness can be replicated, customized and expanded. There is a need to document and make available information and knowledge

• Capacity building for all policy actors – state and non-state stakeholders – should be continuous and accessible

• Credible institutions (or network of institutions such as UNIID-SEA) should lead the advocacy and action to – Build up an IID policy research agenda in the region in a collaborative

manner– Forge partnerships with organizations/partners pursuing similar

advocacies– Document learning, develop knowledge, disseminate and

communicate – Facilitate a thriving venue/platform for continued discourse, learning,

sharing and capacity building of institutions, organizations, persons and other IID champions

Thank you.

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