Arakan, Cotabato Institutionalizing Participatory Governance: The Civil Society Organization (CSO) Desk
Institutionalizing Participatory Governance: The Civil Society Organization (CSO) Desk in Arakan, Cotabato 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).
Institutionalizing Participatory Governance: The Civil Society Organization (CSO) Desk ARAKAN, COTABATO
Philippines-Canada Local Government Support Program (LGSP) Documentation of LGU Exemplary Practices
Replicable Practice
INSTITUTIONALIZING PARTICIPATORY GOVERNANCE: THE CIVIL SOCIETY ORGANIZATION (CSO) DESK IN ARAKAN, COTABATO (3RD Class Municipality)
CONTENTS Summary
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Project Description: Challenges to harnessing diversity and civil society participation
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History: introducing participatory approaches to local governance
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Results: Mainstreaming CSO participation
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Key Implementation Steps
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Analysis and Lessons Learned: Sustaining civil society participation in local governance
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Annexes: Annex A – Covenant of Commitment between CSOs and the Municipal Government Annex B – Memorandum of Agreement between CSOs and the Sangguniang Bayan Annex C – CSO Accreditation Forms and Requirements
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Institutionalizing Participatory Governance: The Civil Society Organization (CSO) Desk ARAKAN, COTABATO
SUMMARY The establishment of the Civil Society Organization or CSO Desk in Arakan, Cotabato is an interesting tale of a simple executive action triggering more meaningful citizen participation. Launched in 2001, the project was championed by Arakan’s local chief executive (LCE) and other officials as an offshoot of the LGU’s Executive Agenda (EA) formulation and Annual Capacity Performance Assessment. These earlier efforts promoted participatory and consensus-building approaches in planning and helped the local government of Arakan recognize the vital role that CSOs can play in improving local conditions. Relations between the LGU and local non-government organizations (NGOs) and people’s organizations (POs) have since been transformed. Previously distrustful, indifferent and even openly hostile to one another, the local government unit (LGU) and NGOs/POs are now partners in development, signing a Covenant of Commitment and a Memorandum of Agreement for partnership, and joining hands to implement the CSO-LGU Arakan Partnership Program (CLAP). CLAP aims to further mainstream the participation of CSOs in local governance, facilitate coordination between the LGU and CSOs and ensure greater transparency and accountability in governance efforts. CSOs have also enhanced their capacities for participating in governance: they have formed a CSO federation to pool their strengths and resources; they have also been able to reach more communities in the municipality. Sectoral concerns and issues are now more fully considered through a) the formulation and implementation of an Indigenous People’s Development Plan (IPDP) to address the conditions of marginalized Manobo and Bagobo communities in Arakan and b) greater representation of various sectors in the local special bodies (LSBs). Local governance has become more responsive to the concerns of women, children, indigenous peoples, farmers and other sectors in Arakan.
Project Description: Challenges to harnessing diversity Though officially declared a municipality only in 1991, Arakan has been inhabited for centuries by several ethno-linguistic tribes such as the Manobos, Bagobos and Matigsalogs.
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Institutionalizing Participatory Governance: The Civil Society Organization (CSO) Desk ARAKAN, COTABATO
The municipality’s name, in fact, was derived from the Manobo term ‘ara’ meaning abundance of nature, and ‘kan’ meaning heroism. Today, however, only one-fourth (24.7%) of Arakan’s population of 34,588 people (2000 Census) are indigenous peoples (IP) from 8 tribes. The majority of the population are descendants of Christian settlers from the Visayas and Mindanao who came to the area from the 1970s onwards. Along with its diverse population of indigenous communities and migrant settlers, Arakan plays host to various NGOs Basic Profile: Arakan, Cotabato and POs, particularly the latter which have Location: Arakan is located in the northeastern tip been established by farmers and IPs of Cotabato province; bounded in the North by affected by deforestation and displacement. Bukidnon, in the east by Davao city and in the south by Magpet. Arakan’s local government unit (LGU), Land Area:61,355.33 hectares however, has been unable previously to Population: 37,880(2000 Census) Population growth: 2.64% harness such diversity for local Income class: 3rd class municipality development. Decades-long marginalization IRA: Php 49.46 M Local Revenues: Php52.78 M and displacement have made IPs distrustful No. of barangays: 28 of government. Also, because CSOs and Land use/Terrain: 22% agricultural, 4% forestland, the rest mountainous LGUs often took conflicting stands on Major industries/economic activities: mainly governance issues, both were suspicious of agricultural activities, with corn and upland rice as major crops; limited aquaculture each other’s efforts. The CSO desk was established to harness this diversity for local governance and development. As a result, a CSO desk was established to encourage more meaningful CSO participation in local governance. Project Objectives Arakan’s CSO Desk was established with the following objectives: 1. Encourage more meaningful CSO participation in local governance 2. Facilitate the serve as a mechanism for strengthening the partnership between the local government and the civil society 3. Help ensure participatory and transparent governance with the greater involvement of civil society in local government affairs Based on these objectives, the desk’s concrete functions included: Take charge of the overall coordination of LGU affairs with CSOs Assist in the processing of documents for CSO accreditation with the Sangguniang Bayan Take custody of the records of accredited CSOs Undertake the profiling and updating of CSO records Facilitate the implementation of any MOAs and other instruments between the CSO and the legislative body
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Institutionalizing Participatory Governance: The Civil Society Organization (CSO) Desk ARAKAN, COTABATO
Submit to the Local Chief Executive the proposed work plans and budget of the CSO Desk for the following year Facilitate the conduct of a capacity and skills development program for CSOs Administer the mobilization funds of CSOs and monitor project implementation Undertake community organizing and institutional building Execute such other functions and responsibilities as necessary and required or agreed upon by the LGU and the CSOs.
History: Introducing participatory approaches to local governance In 2001, Arakan elected a new mayor who introduced several changes in local government, including introducing the LGU to more participatory and consensus-building approaches to governance. Mayor Romulo Tapgos first pushed for the formulation of an Executive Agenda (EA) through a consultative process to set clear directions for the local government. In addition, a Task Force was created to conduct the Annual Capacity Performance Assessment, which also called for the conduct of various public and sectoral consultations and dialogues 1 . These activities underscored the need for greater civil society participation in local governance in Arakan. To facilitate CSO participation, Mayor Tagpos issued Executive Order 01-a in January 2002, creating the CSO Desk and designating one staff from the Municipal Planning and Development Office (MPDO) as CSO Desk Officer. After six months, within which a budget was allocated for the project, the CSO Desk finally began functioning.
Results: Mainstreaming CSO participation for better governance From this simple beginning, the CSO Desk has paved the way for transforming the once indifferent or antagonistic relations between the LGU and CSOs into genuine partnerships, as seen in the following accomplishments: Accreditation and Federation of all existing POs and NGOs in Arakan. The CSO Desk has paved the way for the The capacity assessment was a component of the LCE Development Management Program in which Arakan participated. The program was implemented by the Philippines-Canada Local Government Support Program (LGSP) through the Development Academy of the Philippines.
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Institutionalizing Participatory Governance: The Civil Society Organization (CSO) Desk ARAKAN, COTABATO
accreditation and federation of some 35 local CSOs in Arakan. The CSO Desk now provides secretariat services for the CSO federation in terms of processing documents, updating CSO profiles and records and keeping track of activities of Local Special Bodies. The federation’s action plan is also being implemented with financial support from the LGU (with funds taken from its annual budget). All these concretely manifest local government support to the civil society. Institutionalized civil society participation in local governance. CSOs have become members and been actively participating in the Municipal Development Council (MDC) and all Local Special Bodies (LSBs), successfully pushing for the inclusion of sectoral concerns in the local development agenda. CSOs and Sangguniang Bayan (SB; local legislative council) also signed a Memorandum of Agreement which enabled CSOs to be represented in SB standing committees; CSOs have thus been able to actively participate in local legislation and policy making processes. The CSO-LGU Arakan Partnership Program (CLAPP) was also launched to further mainstream CSO participation in local governance. CSOs have become involved in the monitoring and evaluation system of the LGU, resulting in greater transparency in LGU programs. CSO membership in the MDC also has increased from 5 to 14. CSOs have even become members of various standing committees of the Sangguniang Bayan (SB). Identification and prioritization of additional sectoral concerns in the various programs and projects of the LGU. Sectoral committees have also been formed by the Municipal Development Council, composed mostly of CSO/private sector representatives, which support and guide the LDC in meeting technical requirements. As a result, since 2001 sectoral concerns have been included in the local development agenda and funds allocated by the LGU for their implementation. These included the CSO Desk Operation and Mobilization funds, Annual Capacity Assessment and Team Working with LGUs and CSOs, IP Development Plan Formulation and Monitoring and Evaluation.
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Institutionalizing Participatory Governance: The Civil Society Organization (CSO) Desk ARAKAN, COTABATO
Key Implementation Steps As shown by Arakan, realizing the goal of participatory governance can be a relatively simple, straightforward process, with minimal resources involved, but with considerable benefits to be gained. Below are key implementation steps undertaken by Arakan in establishing its CSO Desk. 1. Creating the CSO Desk Arakan’s CSO Desk was created through the issuance of an Executive Order (EO), which established the office and designated one staff from the Municipal Planning and Development Office (MPDO) as the CSO Desk Officer. The EO also outlined the functions of the CSO desk and specified a budget for its operations. A small space and a desk with office supplies were the only other requirements for its creation. Following the issuance of the Executive Order, the Sangguniang Bayan also issued Municipal Ordinance 246 and Resolution 04-119, formally establishing the CSO Desk and allocating funds for its operations. 2. Establishing desk operations The CSO Desk Officer, with the assistance of identified LGU officials and personnel, then took the lead in undertaking the following tasks: Determining the process and developing forms/formats for accreditation, organizational profiling, directory listings, etc. Conducting an information and awareness campaign to identify CSOs and encourage them to apply for accreditation and membership in the MDC and LSBs Profiling and accreditation of CSOs (validating information provided by organizations through site visits, interviews, etc) Creating a directory of CSOs to help facilitate networking and coordination
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Institutionalizing Participatory Governance: The Civil Society Organization (CSO) Desk ARAKAN, COTABATO
2.1 Conducting an information campaign A municipal-wide assembly was called and facilitated by the LGU to raise awareness on the CSO Desk and promote the LGU’s initiative to accredit CSOs and institutionalize their representation in various LGU bodies. The assembly also served to educate CSOs on roles they could play in local governance. In addition, information campaigns and orientations were also conducted per barangay or in barangay clusters (especially for farflung areas) with the LGU Speakers Bureau Team and barangay officials serving as facilitators. Fact sheets were distributed to provide information on various forms of sectoral representation available in the LGU, along with data that CSOs need to provide, and the steps to the accreditation process. 2.2 Profiling and Accreditation of CSOs With the necessary forms prepared and the information campaign conducted, the CSO Desk Officer, with the help of the ELA team and the Municipal Local Government Operations Officer (MLGOO), was able to accredit all NGOs and POs in Arakan, which totaled 3 and 19 initially, including IP, farmers, religious and women’s groups. The accreditation process of each organization took a minimum of three weeks to accomplish. This involved the following: Sending invitations to individual CSOs to avail of accreditation and furnishing them with the necessary forms (See Annex C for CSO Accreditation Forms) Receiving the accomplished forms from the CSOs Validating the information provided by the CSOs through interviews, site visits, telephone follow-ups. A checklist of information required from each CSO included the following: number of members, goals and objectives, implemented projects, and financial status. Endorsing the applications to the Local Council (Sangguniang Bayan or Lungsod) for review and approval. In Arakan, the CSO Desk Officer submits all applications to the MLGOO for endorsement to the Sangguniang Bayan Secretary
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Institutionalizing Participatory Governance: The Civil Society Organization (CSO) Desk ARAKAN, COTABATO
Receiving the Certificate of Accreditation from the SB and furnishing the CSO a copy 3. Conducting a General Assembly of CSOs to facilitate CSO federation and membership in the MDC and LSBs After all CSOs have been accredited, a General Assembly of Accredited CSOs was conducted. The assembly aimed to achieve the following: Formally introduce CSOs and LGU officials to one another and establish rapport Discuss partnership mechanisms between CSOs and LGU Facilitate CSO membership in the MDC and LSBs Encourage and facilitate CSO Federation (if needed) CSOs were asked beforehand to determine what sectoral groups they would like to belong to. The CSO Desk Officer, MLGOO and staff then facilitated the assembly and finalization of sectoral groupings. Nine sectors were identified, namely: Farmers Public transport Disabled/physically challenged individuals Women Indigenous peoples Cooperatives Education Health and social services Environment CSOs were also given an orientation on the various LSBs (Local Housing Board, Local School Board, Local Health Board, etc) and the MDC. Voting was then conducted among the CSOs to determine which CSOs will become members of the MDC and the various LSBs. The results were then submitted to the mayor and the LSB secretariat. As a result of this activity, CSOs were encouranged to link up and form a CSO federation, with the support of the CSO desk. Upon its creation, the CSO Federation then took charge of finalizing their official representation in the various Local Special Bodies and the MDC.
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Institutionalizing Participatory Governance: The Civil Society Organization (CSO) Desk ARAKAN, COTABATO
4. Forging mechanisms and instruments between the LGU and CSOs to ensure partnership sustainability After CSO representation in the MDC and LSBs was established, various mechanisms and instruments for effecting CSO-LGU partnership were developed and implemented, the specific modes of which were determined through dialogues/consultations among CSOs and LGU officials. CSOs and the LGU signed a Covenant of Commitment with the executive branch and a Memorandum of Agreement with the legislative branch to signify their intentions to become partners in various activities. The Memorandum of Agreement signed between the CSO Federation and the SB paved the way for the representation of CSOs in the various standing committees of the SB. By this mechanism, CSOs have been able to participate in local legislation and policy making processes within the LGU. Through this partnership, the CSO Federation-LGU Arakan Partnership Program (CLAPP) was also launched to further mainstream CSO participation in local governance. CLAPP has enabled CSOs to initiate, assess, monitor and facilitate local and foreign-funded development projects in the LGU. (See Annexes A and B for the Covenant of Commitment and MOA.) The CSO Federation, with the help of the CSO Desk Officer and MPDC, has since come up with an action plan for building members’ capacities for leadership, lobbying and negotiation, advocacy, financial management, IP development and local legislation. And as a show of partnership and support, the LGU has allocated a budget for the Federation to pursue these capacity building activities. Lakbay Arals to various NGOs with successful projects outside Arakan were undertaken by Federation members as a result. These included Lakbay-Arals to Kenram ARB Multipurpose Cooperative in Tacurong city, the DECCO-DOLEFIL Employees Cooperative and Landan People’s Multipurpose Cooperative in Polomolok, South Cotabato and the Don Bosco Diocesan Youth Center in Makilala, Cotabato.
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Institutionalizing Participatory Governance: The Civil Society Organization (CSO) Desk ARAKAN, COTABATO
Matrix of Key Implementation Steps Key Implementation Steps 1. Creating a CSO Desk
2. Establishing desk operations 2.1 Conducting an information and awareness campaign 2.2 Profiling and Accrediting CSOs 3. Conducting a General Assembly of CSOs
4. Forging mechanisms and instruments to ensure partnership sustainability
Expected Outputs A CSO Desk with designated officer, office space and budget Information materials produced and distributed Information campaign conducted Accreditation forms produced CSO accreditations accomplished General assembly conducted CSO membership in MDC and LSBs finalized CSO Federation launched/undertaken Partnership instruments and mechanisms
Person/ Agency Responsible Mayor
CSO Desk Officer
Budget/ Resources Required Mayor’s support for the initiative in the form of an executive order; budget allocation for CSO desk; personnel for desk operations Budget for meals/snacks, office supplies, transportation and information materials, salary of CSO Desk officer (Php 30000-50000/year in the case of Arakan)
CSO Desk Officer, MLGOO, CSOs
Budget for general assembly, personnel to facilitate the activity
CSOs, LCE, CSO Desk, other LGU officials
Budget for consultations, meetings and other activities
Analysis and Lessons Learned: participation in local governance
Sustaining
civil
society
With many LGUs often at a loss on how to realize their mandate of effecting civil society participation in local governance, Arakan’s experience can show the way towards making this possible with minimum resources, requiring only sincere effort and openness of both the LGU and CSOs. Some key features that may need to be ensured in replicating the project include the following: A sincere commitment on the part of the LCE and other LGU officials to mainstream participatory approaches and effect meaningful CSO involvement in local governance
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Institutionalizing Participatory Governance: The Civil Society Organization (CSO) Desk ARAKAN, COTABATO
Openness and assertive efforts of CSOs to participate in local governance initiatives Recognition of the need to understand and implement the provision of RA 7160 or the Local Government Code on participation in governance Ensure the forging of institutional arrangements and partnership instruments (such as MDC and LSB representations, MOAs, etc) to increase the prospects of sustaining CSO-LGU partnerships Who to contact if interested in replication: Mayor Romulo M. Tapgos 0919 365 4989
Annexes: A. Covenant of Commitment Between CSOs and the LGU B. Memorandum of Agreement Between the Sangguniang Bayan and CSO Federation C. Sample accreditation forms
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Institutionalizing Participatory Governance: The Civil Society Organization (CSO) Desk ARAKAN, COTABATO
Annex A: Covenant of Commitment Between CSOs and the LGU
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Institutionalizing Participatory Governance: The Civil Society Organization (CSO) Desk ARAKAN, COTABATO
Annex B: Memorandum of Agreement
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Institutionalizing Participatory Governance: The Civil Society Organization (CSO) Desk ARAKAN, COTABATO
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Institutionalizing Participatory Governance: The Civil Society Organization (CSO) Desk ARAKAN, COTABATO
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Institutionalizing Participatory Governance: The Civil Society Organization (CSO) Desk ARAKAN, COTABATO
Annex C: CSO Accreditation Forms F-011 “A” July 1992 APPLICATION FORM FOR ACCREDITATION OF NGO Sec. 108 (RA 7160) Name of NGO: ___________________________________________ Address : __________________________________________ Tel. No. : __________________________________________ Date Organized: _______________Date Registered: ____________ Registering Agency: (Please check appropriate box) ( ( ( ( (
) Securities and Exchange Commission ) Cooperative Development Authority ) Department of Labor and Employment ) Department of Social Welfare and Development ) Others, (Please specify) ____________________________________
NGO Organizational Level: (Please check applicable box) ( ( ( (
) Community based ) Chapter ) Affiliate of a larger NGO: ___________________________________ ) Others, (Specify): _________________________________________
Sectors Represented: ( ( ( ( (
) Management Organization ) Business Sector ) People’s Organization ) Cooperatives ) Other (Specify) __________________________________________
No. of Members: ______________ Purpose/Objectives (please use additional sheet if necessary)
Projects
Cost
______________ ____________ ______________ ____________ ______________ ____________ ______________ ____________ _____________ _____________ _____________ _____________ _____________ _____________
Beneficiaries _____________________ _____________________ _____________________ _____________________ _____________________ _____________________ _____________________
Project Financing (Source/Schemes)
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Institutionalizing Participatory Governance: The Civil Society Organization (CSO) Desk ARAKAN, COTABATO
Services NGO’s/PO’s/ Private Sector Provide/can participate in case (Sec. 17 of RA 7160)
Names of Officers and Members of its Board of Directors:
List of members within the LGU: (Please use separate sheet) Linkages: (Check level and specify) ( ( ( (
) Provincial ____________________________________________ ) Regional _____________________________________________ ) National _____________________________________________ ) International __________________________________________
We hereby certify to the correctness of the above information.
____________________ SECRETARY ATTESTED:
____________________ PRESIDENT
3 copies: 1 Municipal/City/Provincial Office 1 DILG 1 NGO
Requirements for the Accreditation of NGO 1. 2. 3. 4. 5. 6. 7. 8.
Photocopy of registration Resolution requesting the SB for Accreditation Accomplishment Report Financial Statement Organizational Profile (Available, Please filled-up) Application form for accreditation of NGO (Available, Please filled-up) List of officers List of bonafide active members
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Institutionalizing Participatory Governance: The Civil Society Organization (CSO) Desk ARAKAN, COTABATO
Republic of the Philippines Region XII Province of Cotabato Municipality of Arakan OFFICE OF THE SANGGUNIANG BAYAN
CERTIFICATE OF ACCREDITATION This is to certify that having satisfactority complies with the requirements for accreditation as promulgated in Municipal Ordinance No. 69, Series of 1997 dated June 4, 1997 and Memorandum Circular No. 2001-89 dated July 24, 2001 of the Department of the Interior and Local Government. DOROLUMAN TRICYCLE OPERATORS DRIVERS ASSN., INC. ( Name of NGO/PO/PS) is hereby awarded this Certificate of Accreditation and therefore recognized as an accredited NGO/POs/PS duly registered with SECURITIES AND EXCHANGE COMMISSION and established in accordance with law. IN WITNESS WHEREOF, I have hereunto set my hand and caused the seal of the Sangguniang Bayan to be affixed at Arakan, Cotabato, Philippines this 29th day of November 2001.
WINNIE P. CANARIO Presiding Officer Of the Sanggunian
Accredited per SB Res. No. 01-118 Date: 11-29-01
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Institutionalizing Participatory Governance: The Civil Society Organization (CSO) Desk ARAKAN, COTABATO
CIVIL SOCIETY ORGANIZATION DIRECTORY NAME OF ORGANIZATION: ___________________________________ CONTACT PERSON: _________________________________________ DESIGNATION/POSITION: ____________________________________ OFFICIAL ADDRESS: _________________________________________ TELEPHONE/CELLPHONE NO: __________________________________ EMAIL ADDRESS: ____________________________________________ RADIO FREQUENCY: _________________________________________ CALL SIGN: _________________________________________________ BASE: ______________________________________________________ OBJECTIVE AND PURPOSES:
ACCREDITED:
( ) YES
( ) NO
DATE ORGANIZED: ___________________________________________ DATE REGISTERED: __________________________________________ TOTAL MEMBERSHIP: MALE: ______ FEMALE: _______TOTAL:________ REGISTERING AGENCY: Please Check ( ( ( ( ( (
) Securities and Exchange Commission ) Cooperative and Development Authority ) Department of Labor and Employment ) Department of Social Welfare and Development ) Civil Service Commission ) Others, please specify:
ORGANIZATIONAL AFFILIATION: Please Check ( ( ( ( ( (
) National ) Regional ) Provincial ) City ) Municipality ) Others, please specify
NGO ORGANIZATIONAL LEVEL: Please Check ( ( ( (
) Community based ) Chapter ) Affiliate to a large NGO ) Others, please specify, Alternative Development Resource Organization
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Institutionalizing Participatory Governance: The Civil Society Organization (CSO) Desk ARAKAN, COTABATO
SECTORS REPRESENTED: Please Check ( ( ( ( ( ( ( ( ( (
) Business Sector ) Cooperative Sector ) Farmer Sector ) IP’s Sector ) Women’s Sector ) Transport Sector ) Religious Sector ) Education Sector ) Environment Sector ) Social Sector LIST OF OFFICERS AND MEMBERS:
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