Escalante City, Negros Occidental
Working Together for Women and Children: The Bantay Pamilya Experience
Working Together for Women and Children: The Bantay Pamilya Experience Copyright Š 2005 Philippines-Canada Local Government Support Program (LGSP) The Philippines-Canada Local Government Support Program encourages the use, translation, adaptation and copying of this material for non-commercial use, with appropriate credit given to LGSP. Although reasonable care has been taken in the preparation of this book, neither the publisher and/or contributor and/or editor can accept any liability for any consequence arising from the use thereof or from any information contained herein. Printed and bound in Manila, Philippines Published by: Philippines-Canada Local Government Support Program Unit 1507 Jollibee Plaza Emerald Ave., Pasig City 1600 Philippines Tel. Nos. (632) 637-3511 to 13 www.lgsp.org.ph This project was undertaken with the financial support of the Government of Canada provided through the Canadian International Development Agency (CIDA).
Working Together for Women And Children: The Bantay Pamilya Experience Escalante City, Negros Occidental
Philippines-Canada Local Government Support Program (LGSP) Documentation of LGU Exemplary Practices Replicable Practice
WORKING TOGETHER FOR WOMEN AND CHILDREN: THE BANTAY PAMILYA EXPERIENCE ESCALANTE CITY, NEGROS OCCIDENTAL (5TH CLASS CITY)
CONTENTS Summary
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Project Description: An LGU’s response to gender issues
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History: Replicating a positive community experience
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Results: Effective community-based service for women and children Key Implementation Steps
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Analysis and Lessons Learned
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Annexes: Annex A - Sample City Resolution Annex B - Sample Client Intake Form Annex C - Sample Training Program Annex D - Sample Training Design
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Working Together for Women And Children: The Bantay Pamilya Experience Escalante City, Negros Occidental
SUMMARY Bantay Pamilya or Family Watch is a two-tiered multi-stakeholders Quick Response Team (QRT) at the barangay and city levels in Escalante City promoting reproductive health (RH) and advocating against family violence. Created through a Sangguniang Panglungsod (SP) resolution, it aims to provide reproductive health counseling and assist victims of family violence and their families. The project was made possible with funding from the Philippines-Canada Local Government Support Program (LGSP) in partnership with a non-government organization, the Development through Active Women Networking (DAWN) Foundation. Bantay Pamilya was formally launched in Escalante City on February 13, 2002, and continues to make a difference to this day. It mobilizes a group of volunteers at the barangay level who act as case-finders and barangay reproductive health workers. A barangay QRT ensures that proper information on reproductive health is readily available to residents and that abuses against women and children are reported to proper authorities and are immediately acted upon at the barangay level. The city level QRT on the other hand, takes charge of policy legislation, advocacy, rescue operations and case management. It also directly manages all problems concerning children and women. With the City Social Welfare and Development Office (CSWDO) acting as the coordinating body, local government and non-government entities are able to effectively work together to safeguard the wellbeing of women and children in the city. In over 3 years, Bantay Pamilya has successfully broken the culture of silence associated with family violence in Escalante City while helping conquer the social stigma of reporting domestic and family violence. It has also increased local awareness on the importance of reproductive health while mobilizing community participation in addressing family violence and reproductive health concerns. Moreover, it has raised LGU and community commitment and capacity in addressing gender concerns.
Project Description: An LGU’s response to gender issues Escalante City is located in the northeastern tip of Negros Occidental and has twentyone (21) coastal and upland barangays. It has a young population, with males slightly outnumbering females. Before the project, family problems were regarded as a private issue and family violence was rarely reported. The shame and humiliation associated with family violence discouraged victims and their families from reporting such problems to proper authorities.
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Working Together for Women And Children: The Bantay Pamilya Experience Escalante City, Negros Occidental
It was thus difficult for the city government to accurately gauge the extent of violence against women and children (VAWC) in the city and to address it comprehensively. However, local government officials had some indication that domestic violence was on the rise from the increasing number of victims who were coming to them for assistance.
A Basic Profile of Escalante City Location:
Northeastern tip of Negros Occidental Population: 79,098 (2004) Income Class: 5th class city No. of barangays: 21 Major industries: Farming and fishing
At the same time, local government officials also recognized that other local problems related to women and children had to be addressed, including: • • • • •
Lack of legal mechanisms to address domestic violence and reproductive health concerns at the barangay level Economic and social dependence of women Prevalent ignorance on women’s and children’s rights and lack of appreciation of reproductive health Lack of temporary shelter for VAWC victims No separate prison cell/s for women and children
This situation pushed City Mayor Santiago G. Barcelona Jr. to welcome the assistance of LGSP and the DAWN Foundation and to champion the establishment of a quick response team (QRT) on family violence and reproductive health in the city. Project objectives: Escalante City’s Bantay Pamilya or Family Watch aims to address family violence as well as promote reproductive health among women in the city. More specifically, it intends to: Assist women and children victims of abuse Document cases of violence against women and children so as to report them to authorities for appropriate action; and Counsel youths and parents about adolescent reproductive health and sexuality. Project components: The project has the following components: o
Formation of Quick Response Teams providing timely assistance for women and children
o
Construction of an Escalante City Women Center, with: Function Room/Training Room Counseling Room Dormitory, for victims who need temporary shelter
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Working Together for Women And Children: The Bantay Pamilya Experience Escalante City, Negros Occidental
o
Purchase of Quick Response Vehicles (QRVs) for each of the 21 barangays, used during QRT rescue operations as well as in responding to other forms of crime and violence
o
Construction of separate prison cell for women and children to protect their wellbeing
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Reproductive health counseling and advocacy
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On-going advocacy campaign on VAWC, RH and QRT services: Quarterly Assemblies dubbed “Pulong-Pulong sa Barangay” Billboards in each of the 21 barangays, containing announcements on the services of the QRT, schedules of for a and assemblies, and other information on domestic violence and reproductive health Periodic exposures in local mass media, announcing schedule of activities, featuring the programs and accomplishments of the different city departments, including the CSWDO
Project History: Replicating a positive community experience Sometime in 1997-2000, Bacolod City had a partnership agreement with Kamloops, British Columbia under the auspices of the Federation of Canadian Municipalities (FCM). Exchange visits between the two cities were facilitated as a learning activity in order to identify areas of cooperation. Local government officials and nongovernment organization representatives of Bacolod City were impressed when they observed communities in Kamloops mobilizing and providing social services for women and other vulnerable sectors. A local NGO, the DAWN Foundation together with the city government thus decided to undertake a similar initiative in Bacolod City. A community project against domestic violence was thus undertaken in one of Bacolod’s barangays which achieved positive results. Given positive results in Bacolod City, DAWN Foundation requested LGSP and FCM for assistance so that it could replicate the practice in the two newest cities in Negros Occidental: Escalante and Sipalay. (The experience of DAWN replication in Escalante and Sipalay is captured in a 5-volume LGSP publication entitled, FREEDOM FROM FEAR: Establishing a Quick Response Team for Violence Against Women. A Guide for Local Government, done with Strides, Inc., an LGSP Local Resource Partner.) Bantay Pamilya is the product of DAWN’s attempt at replication in Escalante City. It was conceived as a multi-stakeholder project to address the needs of victims of violence and abuse in the home. Later, it would also be tasked to assist in the promotion of reproductive health in the city.
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Working Together for Women And Children: The Bantay Pamilya Experience Escalante City, Negros Occidental
Results: Effective community-based service for women and children Bantay Pamilya helped the city of Escalante achieve the following: Increased reporting and documentation of VAWC cases in the city In 2002, soon after QRT started to operate, the number of reported cases of violence against women and children in the city increased by almost 300 percent (54 in 2001 and 146 in 2002). During the first quarter of 2003, the total number of incidents reported was already 32.19 percent more than the 2002 figure. Increased reporting of VAWC in the city indicated that the city’s advocacy against family violence was working and there was growing public awareness on the issue. Provided timely assistance to victims of family violence as well as conducted reproductive health counseling for youth and couples As of October 2004, the Escalante’s QRT assisted more than fifty cases, some of which had their day in court. Raised awareness on VAWC and Reproductive Health At the community level the project increased people’s awareness and understanding on the rights of women and children, the nature and scope of VAWC, the harm exacted by VAWC on its victims and their families, as well as the services available to them. Consequently, increased awareness had led to greater empowerment for victims of abuse. Today, domestic violence is viewed as a public concern and a crime against the people of Escalante. It also enabled women and couples to become more aware of the importance of reproductive health for their general wellbeing. Increased participation of various sectors in the advocacy for reproductive health and anti-VAWC At the same time, the project encouraged the involvement of the various sectors of Escalante City, including the City Council for Women and members of the Bantay Escalante (Escalante Watch) Movement. It has also revived women’s organizations at the barangay level. Improved LGU and barangay capacity in responding to VAWC and providing reproductive health services The project also improved the capacities of the QRT members at the city and barangay levels in counseling, mediation, surveillance, rescue and paralegal concerns. It has also increased their knowledge on VAWC, reproductive health, the
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Working Together for Women And Children: The Bantay Pamilya Experience Escalante City, Negros Occidental
laws protecting women and children. These have consequently improved social services for women and children in the city The information gathered on the plight of its women and children has also enabled the city government to come up with more concrete responses to the problem of VAWC, with various services that comprehensively address the needs of both the victims and survivors of VAWC. Achieved things beyond project objectives The QRT has enabled the city to go beyond providing immediate response against family violence and reproductive health. It now also continues to explore ways to create an environment that discourages violence in homes and workplaces. It has also given birth to other women-empowerment ventures such as building women’s capacities though the provision of livelihood training and micro-lending under the Piso Araw-Araw (1 Peso a Day) Project.
Key Implementation Steps In implementing QRT, Escalante City undertook the following key steps: 1. Mobilizing stakeholders at the city and barangay levels As a first step, the City of Escalante enlisted the support of organizations operating at the city level. Given mandate from the City Mayor, the City Social Welfare and Development office (CSDWDO) partnered and forged a partnership agreement with DAWN, an NGO working on the advocacy of women issues in Bacolod City. Together, they conducted a series of orientation meetings on violence against women and children (VAWC) and reproductive health (RH) issues for local government officials and personnel as well as civic organizations in the city These raised the awareness and built the commitment of city government officials as well as civic organizations in the city to do something about VAWC and RH. At the barangay level, communities were made aware of the problems related to keeping silent about VAWC and the importance of reproductive health. DAWN and the CSWDO encouraged the communities to rally behind the concept of a QRT. Meetings were held with barangays council representatives of women’s organizations operating in the barangay. During these meetings, barangays were also assessed for their readiness to take the responsibility of forming a Quick Response Team in their barangay.
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Working Together for Women And Children: The Bantay Pamilya Experience Escalante City, Negros Occidental
2. Obtaining local mandate and support The city government then adopted Sangunniang Panglungsod Resolution 02-026 on February 13, 2002 creating the QRT on domestic violence (See Annex A for Sample Resolution). The local chief executive (LCE) of Escalante City also pledged support to the QRT, committing to providing for its future resource requirements. 3. Organizing QRTs at the city and barangay levels With an official mandate, the city government and DAWN Foundation worked to organize QRTs at the city and barangay levels. They put together a multi-sectoral network at the city level which included the CSWD Officer, City Health Officer, DepEd representative, Women’s Desk Officer of the local PNP, MTCC representative, Sangguniang Panglungsod member, City Council for Women representative, and Bantay Escalante Movement representative. At the barangay level, the community QRT included the Barangay Captain, Barangay Kagawad (Chair of the Committee on Social Services or related committee), midwife, day care worker, barangay health worker, barangay tanod, representative of the women’s organization, and others who handle cases of domestic violence in the locality (i.e., members of the Lupong Tagapamayapa) as members. To make the start-up at the community-level manageable, the community-based QRTs were first established in four pilot barangays: Binaguiohan, Old Poblacion, Mabini and Balintawak, with each barangay representing upland, coastal, rural and urban communities in the city. These were also the areas where incidents of domestic and family violence were relatively higher. This allowed experimentation and further learning which improved Escalante’s actual implementation to other communities. By the second year, Mayor Barcelona expanded the operation of these QRTs to the remaining 17 barangays in the city. The Quick Response Teams formed by Escalante at the city and barangay levels, worked in coordination with each other in carrying out their different yet complementary functions. 4. Conducting capacity building and training sessions for QRT members Dawn Foundation implemented a training program to increase participants’ knowledge and skills base in addressing VAWC and RH issues. Participants were taught how to address the problem of violence and abuse and how to assist victims and their families. Some of the topics covered by the series of sessions were:
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Working Together for Women And Children: The Bantay Pamilya Experience Escalante City, Negros Occidental
• • • • • • • •
Basic gender sensitivity; Orientation on VAW and Philippine laws on VAW; Pillars of justice; Barangay Justice System; Paralegal training and case management; Feminist counseling; Reproductive health and safety; and Protocol development.
(Please refer to Book 5 of Freedom from Fear publication for training modules. See Annexes C & D for excerpts). 2. Developing protocols and or guidelines for the QRT operations 2.1
Assessing community needs and identifying QRT services that can address these needs
An assessment of community needs and the identification of corresponding QRT services formed part of ‘Protocol Development’, a component of the capacity building program of DAWN Foundation. This was participated in by the preidentified members of the barangay and city-level QRTs. As a first step to protocol development, an assessment of VAWC and RH situation in the city was conducted. This was done to gauge degree and types of abuses committed against the women and children of Escalante City, the types of services that the LGU provides the victims and their families, the problems that hinder effective service delivery, and consequently, the most pressing concerns that needed immediate attention. Based on the assessment, QRT services were identified and crafted by the QRT. Bantay Pamilya came up with the following services which they wanted to develop and provide: Psychosocial counseling for victims and their families Reproductive Health counseling Shelter for victims Medico-legal services Transportation, food and related assistance to victims and their families Assistance, financial and otherwise, during hearings Livelihood assistance to VAWC survivors and their families Referrals
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Working Together for Women And Children: The Bantay Pamilya Experience Escalante City, Negros Occidental
Other support services: Advocacy Documentation of cases Provision of Quick Response Vehicles Construction of Women and Children Prison Cell 2.2
Developing operational guidelines or protocols
In order for the Escalante QRTs to provide these services effectively, protocols were developed to guide members’ actions. They crafted general guidelines in the conduct of their day-to-day operations, especially those related to how QRT members should respond to the needs of its clients. They also defined the roles and responsibilities of the team members, their working relationships, as well as the procedures in and the requirements for providing services to VAWC victims. These protocols were developed through a workshop attended by QRT members and facilitated by DAWN. Using Bacolod City’s set of protocols as the guide, needs related to anti-VAWC and RH in the city were identified and existing protocols were either refined or developed. Through the workshop, the city and community level QRTs tried to improve on the existing system of the CSWDO in managing its clients. Bantay Pamilya also involved more agencies, particularly non-government entities, in the flow of responsibilities and case management, but with CSWDO still providing overall coordination. (Please see Annex B for sample intake form) 3. Operationalizing and promoting the QRTs Once the protocols or the structures, systems and processes were in place, Escalante’s two-tiered QRT started operating. The city-level QRT took charge of policy legislation, advocacy, rescue operations and case management. It also directly took care of all cases/problems concerning children. The barangay level QRT served as case-finders, providing counseling and mediation for amicable settlements, conducting initial documentation of cases, referring cases that could not be settled at the barangay level to the city-level QRT and monitoring victim-survivors who had returned to the barangay for re-integration. The City allocated regular funding for the Bantay Pamilya operations from the five percent Gender and Development budget of the LGU. One year of operation incurred the team an estimated expense of PhP100, 000. This amount was taken from the 5 percent GAD budget and was spent for various operating expenses i.e., advocacy and information campaign, monitoring and evaluation, and for the following needs of the clients: food assistance, medical expenses, and November 2005
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Working Together for Women And Children: The Bantay Pamilya Experience Escalante City, Negros Occidental
communication and transportation expenses during court hearings. The amount excludes the cost incurred in purchasing the 21 Quick Response vehicles. – Bantay Pamilya was officially launched on February 13, 2002. The launch included a presentation of the various services offered by the QRTs. Information dissemination continued from then on – through the mass media, barangay assemblies, billboard announcements and advocacy-fora on VAWC and RH related issues. The QRT has also been reporting its accomplishments to the people, including the number of beneficiaries it has served, during assemblies and other gatherings. It has also established linkages with lawyers, doctors, nurses and other stakeholders which greatly helped the project, Bantay Pamilya also linked with a TV network in Bacolod City which featured its services and the stories of VAWC victim-survivors in Escalante City. The members of the QRT continue to build working relationships with doctors and lawyers in Negros Occidental in order to gather a pool of medical and legal experts. At present, the QRTs provide assistance to more than fifty clients with cases pending in court. 4. Conducting monitoring and evaluation Regular monitoring and evaluation is done to gauge the progress of the QRT activities vis-à-vis its targets, as well as its impact on the general situation of women and children in the city. To facilitate such, barangay and city QRTs gather information on potential or new cases of domestic/family violence, as well as generate regular updates on the conditions/recovery of victims and their families. They also make a regular assessment on how well the victim-survivors are adjusting to community re-integration. Monthly home visits by case-handlers are done to check the progress of the victim/s’ recovery, the results of which are recorded in the client progress reports. The information gathered from monitoring activities is analyzed during the meeting of the city level QRT. The QRT members both at the city and barangay levels periodically do these activities and report their results to the CSWDO. The QRTs also meet quarterly to gauge their progress and impact on the community. 5. Ensuring sustainability--working for a Safe City for Women and Children Escalante worked to adopt the following measures towards ensuring project sustainability: Institutionalized Bantay Pamilya through legislative and executive action
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Working Together for Women And Children: The Bantay Pamilya Experience Escalante City, Negros Occidental
Allocated funding for Bantay Pamilya operations from their 5 percent GAD budget Established and institutionalized the service delivery mechanism that will guide future implementers of the project Constructed the Escalante City Women Center to provide a home for the various services for women and children victim-survivors Conducted continuous advocacy on QRT services, women and children’s rights and VAWC to effect awareness among various stakeholders and ensure a critical mass that shall continuously rally behind the program Implemented a capacity building program for service providers at the barangay level to ensure that community-based efforts against VAWC are sustained and expanded Networked with the civil society organizations and other service providers within and outside the city to ensure that QRT efforts gain support from within and outside the locality MATRIX ON KEY IMPLEMENTATION STEPS Key Implementation Steps 1. Mobilize stakeholders at the City and community level through meetings with LGU – CO
Expected Outputs Raised awareness; support and commitment of stakeholders; identification of pilot areas; legal basis for QRT
Timeframe 1 month
Person/Agency Responsible CO, Dawn rep. VM and SPM
Resources/budget Required Political will of leadership; support from stakeholders
CO, heads of offices/agencies and GO
Meetings with heads of offices/agencies and GO Acceptance of QRT program 2. Obtain local mandate and support
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Resolution adopting the program Legal basis for the project; ensured allocation of resources
Continuous
LGU
Support of LGU
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Working Together for Women And Children: The Bantay Pamilya Experience Escalante City, Negros Occidental Key Implementation Steps 3. Organizing QRTs at the barangay and city levels.
4. Capability building and skills enhancement.
5. Develop Protocols and guidelines for QRT operations.
Expected Outputs
Timeframe
QRT members were identified QRTs at the city and community levels are formed 4 pilot barangays were identified based on statistics of cases with the most numbered reported incidence of cases referred to the CSWD office and cases handled by the barangay level.
1 month
Gender-sensitive skilled case workers and case finders.
1 year
Increase level of awareness on issues of VAWC Identify strength and weaknesses of case handling and intervention practices
Person/Agency Responsible CO and CSWO
Identified QRT members, DAWN foundation
Resources/budget Required
Resource speakers, board and lodging Transportation and allowance – c/o Local Government Unit Food
2 months
A set of protocols to guide QRTs in their daily operations 6. Operationa-lize and promote QRTs and respond to identified weaknesses of case handling and case intervention.
Protocols agreed upon are implemented IEC program running Strengthened internal impact of the campaign against family and domestic violence.
Throughout project duration
LGU, LGSP-Dawn Foundation CO and CSWD Barangay and city level QRTs
Resource speakers and food Transportation, mobilization of participants and venue Resource speakers and transportationResource materials Fund for staff
7. Monitor and evaluate progress and QRT performance and VAWC cases
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Reports on cases of VAWC and the progress of the cases Standard intake and monitoring form
Throughout project duration
QRT
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Working Together for Women And Children: The Bantay Pamilya Experience Escalante City, Negros Occidental Key Implementation Steps 8. Ensure Project Sustainability
Expected Outputs Institutionalization of QRT practice Strengthen linkages among different agencies/departments and GO as service providers Replication of QRT to all 17 barangays
Timeframe Throughout project duration
Person/Agency Responsible LGU,CSWDO, NGOs, QRT
Resources/budget Required LGU support and commitment of QRT members
Analysis and Lessons Learned Escalante’s experience in the establishment and operations of its Bantay Pamilya yielded the following lessons: Networking as key tool The support of a broad range of stakeholders in the project contributes to its smooth implementation. It is thus important to build linkages with various government agencies and civil society organizations involved in women and children issues. This will enable the LGU to have access to a variety of support services that are not readily available in the locality while ensuring resource sharing and project sustainability. Legislative support and executive action It is important to obtain official LGU support for the QRT, both through legislative and executive action in order to institutionalize QRT operations and services. Piloting before expansion Starting with pilot barangays (4 barangays as per the Escalante experience) is a good way to experiment and model a new initiative. Once the QRT is proven successful in a few barangays, it can be replicated to other barangays. Before expanding, however, it is important to ensure that the QRTs in the pilot areas are running effectively and efficiently. This means that, among others, the QRT members have been trained, they have regular budgetary allocation, and that the mechanisms for service delivery have been institutionalized. Setting up the necessary structures For the QRT to effectively and efficiently operate, necessary structures and support mechanisms must be built/established, i.e., protocols, crisis center, transportation and communication support, personnel and volunteers, funding and other logistics. November 2005
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Working Together for Women And Children: The Bantay Pamilya Experience Escalante City, Negros Occidental
Need for extensive information campaign To ensure a critical mass support to the QRT, there must be extensive information campaign on VAWC, its perils to society, the ways that the problem can be addressed, and the services that QRT provides for VAWC victims, among others. Continuous information campaign aimed for the public breaks the culture of silence. On-going capacity development for QRT members There must be on-going capacity building for QRT members to enhance their knowledge on VAWC and their issues affecting women and children, as well as to improve their skills in handling cases of VAWC and providing services to the victims. QRTs taking on other tasks Once initial functions become second nature to the QRT members, the QRT can take on other functions that can safeguard the wellbeing of women and children. Replicating the practice A QRT on VAW and RH can be replicated successfully by a local government unit of any income class, especially if the local government unit has a dynamic and gendersensitive local chief executive who believes in the necessity of responding to the needs of the women and children and is supported by competent personnel who share his/her sentiments. Replicating LGUs will also need to partner with civil society groups as well as community organizations that can rally support for women and children’s rights. Replicating LGUs can also decide to replicate only a component of the program if resources are limited. Who to contact if interested in replication: Suzette Canete, City Social Welfare and Development Officer City Government of Escalante 034-450362 034-7243015
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Working Together for Women And Children: The Bantay Pamilya Experience Escalante City, Negros Occidental
Annex A: Sample City Resolution
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Working Together for Women And Children: The Bantay Pamilya Experience Escalante City, Negros Occidental
Annex B: Sample Client Intake Form
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Working Together for Women And Children: The Bantay Pamilya Experience Escalante City, Negros Occidental
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Working Together for Women And Children: The Bantay Pamilya Experience Escalante City, Negros Occidental
Annex C: Sample Training Program
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Working Together for Women And Children: The Bantay Pamilya Experience Escalante City, Negros Occidental
Annex D: Sample Training Design
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