Originally published in Gender-Responsive Local Governance: LGU Experiences in Using the GAD Budget. Written by Teresa Banaynal-Fernandez, Executive Chairperson, Cebu City Women and Family Affairs Commission and Executive Director, Lihok Pilipina

In Cebu City, the private sector and civil society are active stakeholders in governance. This case on the Bantay Banay, a program to stop violence against women, shows how the strong partnership among these sectors succeeded in promoting gender-responsive governance in the city.

Overview

Cebu City is noted for the active participation of its private sector and civil society in local governance. Among the efforts where this partnership is most visible is the Urban Basic Services Program (UBSP). Having identified violence against women as one of the most serious problems in the communities, the UBSP set up a crisis center for women. This center later became the Bantay Banay (Family Watch) program led by Lihok Pilipina. Under Bantay Banay, communities are organized to respond to incidences of violence against women.

Between 1995 and 1997, Bantay Banay recruited and trained 5,000 community and agency representatives in the various ways of dealing with VAW, which include: immediately stopping violence, counseling, referrals for medical and medico-legal services, shelter and food, training for alternative livelihood and legal assistance. Different stakeholders together have so far responded to a total of around 13,000 cases.

The impact of the program has been very encouraging. The women now claim that the number of VAW victims has dropped from six out 10 women to only two out 10 women. For the agencies and groups involved in Bantay Banay, the partnership has taught them important lessons: that not one agency can face the problem alone and the contribution of each one must be recognized; and that women and men, if given the chance, have the biggest contribution to their own development.

This program has contributed greatly to making domestic violence a public and governance issue in the country. It is a model for community-based, multi-stakeholder approach for addressing the problem of domestic and other gender-based violence. It serves as one of the most effective arguments for mainstreaming gender concerns in the programs, policies, and budget of local governments. The program has been replicated in 70 cities and municipalities all over the country.

Background of the Bantay Banay project

The partnership between the Cebu City government and civil society began during the first election after martial law in 1988, when urban poor and NGO groups came up with an agenda for governance which they asked the candidates to commit to. The candidates were rated based on how they responded to these agenda, and those who rated highly were endorsed by the urban poor and NGO groups. The candidates they endorsed for mayor and vice-mayor won the elections; some of the councilors they endorsed also won. Observers say that in the 1988 elections, the 10% swing vote in Cebu City was the urban poor vote. Recognizing this, the mayor took his oath of office in one of the city's depressed communities. He also announced the creation of an office for the urban poor. He asked an NGO to head this office and invited other NGOs to help his administration.

The Urban Basic Services Program (UBSP) was created in 1989 as a coordination and convergence mechanism for basic services in the barangays. UNICEF funded the program; the City Health Department and Lihok Pilipina served as its coordinators. Its members were the line agencies and NGOs in the city that were involved in basic services, such as health and nutrition, water and sanitation, women's livelihood, street and working children, etc. Four of the membergroups – the Lihok Pilipina, Federacion International de Abogadas (FIDA), Zonta Club and City Health Department – were strong advocates for women's rights. They agreed to put up a women's crisis center to respond to women's issues.

Lihok Pilipina took the lead in the establishment of the crisis center. To get its own crisis support program for women going, the organization accessed funds from CIDA-Diwata.2 One of the program's first activities was the conduct of a study about VAW. Results revealed a high incidence of VAW in some communities in the city, specifically that six out of 10 women were being battered by their partners. The study described the forms, magnitude, and implications of VAW, and highlighted the need for a more concerted action to curb the problem.

The UBSP responded by setting up a task force called Bantay Banay (BB) in January 1992. Lihok Pilipina headed the task force; its members included the USBP's partner agencies and some barangays and community groups. The task force's objectives were to 1) help the women and children victims of violence, 2) make VAW an issue of governance rather than a personal issue, and 3) generate public awareness on other gender issues. Initial activities included discussions and meetings, workshops, training, family day activities, and referrals of VAW cases. The city government provided the BB with space, funds, and other logistical support.

How Bantay Banay works

Bantay Banay's projects and activities consist of the following:

• Organizing and training of community groups: BB has trained around 5,000 barangay representatives, women's groups, community associations, health practitioners, police personnel, academe, lawyers, court personnel, and other stakeholders on such concerns as gender sensitivity, laws and legal processes regarding VAW including documentation of cases, and VAW crisis intervention and counseling. BB also trains groups interested in replicating its program.

• Case handling: The BB partners developed a referral system that would facilitate the handling of VAW cases. Instead of insisting on a strict protocol for clients seeking assistance, the BB decided that VAW victims should be able to run to the nearest agency or person for help, be this their neighbor, the barangay, the Tanods, an NGO, DSWD, or the hospital. Arrangements were made so that the agency that receives the client first would be able to provide the initial crisis intervention assistance such as food or shelter. She would then be referred to the agency that is in a better position to respond to her problem, e.g. the police (for blotter), hospital (for medico-legal help), DSWD (for longer shelter), NGO (for counseling and quick mobilizations), etc.

• Programs and services: Services across partner agencies include medical and medico-legal assistance, temporary shelter, food and transportation, legal assistance, and counseling. Organized communities were trained as paralegals, to assist in mediation and conciliation or do direct intervention to stop violence like throwing stones on the roofs or making noise. Women jam-pack the courts during hearings to support the victim. Cases with multi-agency intervention are usually discussed in case conferences called by the lead agency.

• Management, coordination and reporting: Interagency councils and committees have been formed to facilitate the coordination of BB activities. The councils/committees meet every month to discuss updates on individual agency efforts, cases with multi-agency interventions, updates on laws or skills in crisis interventions, and other joint activities. Lihok Pilipina, which acts as the BB secretariat, prepares the consolidated report of the councils and committees. To facilitate referrals, the partner agencies and community volunteers have been provided with a directory of service providers. This directory contains the list and telephone numbers of partner agencies, community volunteers per barangay, the barangays captains, police stations, hospitals, and schools.

By the end of 2002, the BB has handled a total of 13,000 cases of battering, rape and sexual abuse, child abuse, and other cases. The breakdown of these cases is as follows: battering - 7,219; rape and sexual abuse – 2,821; child abuse – 776; and other cases – 1,300. Rape cases include incestuous rape. Child abuse includes physical abuse, neglect, and sexual abuse. Other cases include abuse of domestic helpers, complaints regarding custody or support, and in-law violence.

Related efforts to promote gender-responsive governance

The very strong partnership between the GOs and NGOs under the UBSP and the Bantay Banay Task Force has translated into crucial GAD initiatives by the local government of Cebu City in terms of resource allocation, policies, and programs. The joint advocacy and mobilizations of the GO-NGO-PO groups prompted the City Council to pass several resolutions and ordinances setting up the following GAD mechanisms and policies:

• The Cebu City Women and Family Affairs Commission (CCWFAC): Created in 1997, the Commission's principal concern was to provide the women's sector with a direct link with the city government in policy formulation and program implementation. One of its initial activities was the Sugboana award for women achievers. Later it also initiated consultations with the different women's groups. Since its re-composition in 2001, the Commission worked more closely with the Cebu women's coalition partners and the Bantay Banay groups in pushing for the approval and funding of the activities and programs prepared by the coalition members. It also worked hard to ensure the implementation of the GAD Code, around which it coordinates GAD efforts and pushes for their integration in the regular government programs of the city. The Commission conducts training programs on gender sensitivity and GAD planning and budgeting for city hall employees and barangay leaders. It collaborates with the city hall GAD Focal Persons in reviewing the differential impacts of programs and projects on women and men. It pushes for data disaggregation especially in frontline agencies like human resource development, social welfare, health, and education departments. The Commission reports directly to the Mayor, and draws funding from the city government.

• The Cebu City GAD Code: GAD planning and budgeting is guided by the GAD Code. Every year, the CCWFAC collates the programs and projects of the various GAD stakeholders – i.e., the Bantay Banay groups, NGOs, GOs including CCWFAC, etc. – and classifies these vis-àvis the various articles and provisions of the GAD Code. These are then integrated into a GAD Plan that summarizes the proposed GAD activities for the coming year, and their corresponding responsible agencies, targets and other details including budgetary requirements.

• Other mechanisms and policies: The City Government passed the Anti-Domestic Violence Ordinance in March 2002 to strengthen the legal basis for the Bantay Banay program and ensure its sustainability. Additional resources (P1.22M) were allocated from the Annual Investment Plan to popularize the ordinance in courts and barangays, and to support GAD training of city hall officials, homeowners, academe, etc. A Committee on Decorum and Investigation (CODI) on Sexual Harassment in City Hall was created in August 2002 to address sexual harassment in the workplace.

The joint GO-NGO-PO advocacy also played a significant role in the city government's decision to pass several resolutions allocating resources for various gender related concerns. One of these resolutions is the approval of a supplemental budget of P2M in 2003 for the following activities: 16 days of activism against violence, consultation with the elderly, quarterly assessment of GAD plans and budget implementation with GAD focal points in the barangays, and BB meetings with judges and agencies. Another resolution approved the allocation of P3.191M for the creation of a GAD data base, preparation of brochures, provision of multi-stakeholder strategy and legal assistance for victims for abused women and children, sectoral consultations on GAD, computerization for women skills inventory, etc. Finally, the City Development Council set aside P29.6M for the NGO/PO/PS development projects (2002-2004) on social services and economic projects affecting children, women, and gender relations.

Resources for gender and development

With the approval of GAD Code for Cebu City, budgeting for GAD was integrated with GAD planning. As mentioned, stakeholders involved in various GAD programs including the Bantay Banay submit their proposed plans and budget, and these are then consolidated by the CCWFAC as the GAD Plan and budget of Cebu City.As early as 1991, the City Government has provided budgetary and logistical support for GAD initiatives. The first concrete support along this line was the provision of an office space for the crisis center and drop in center for women victims of violence and prostitution. The next assistance was the release of funds for the gender sensitivity training program for police personnel in 10 police stations. In 1995, P1.8M was allocated for the Bantay Banay building and two years later, counterpart fund amounting to P0.8M was released for the organizing work in 22 barangays under the Bantay Banay program.

The issuance of the GAD budget policy further secured support for gender-related initiatives. In October 1999, the mayor, barangay captains and representatives of the BB and Cebu Women's Coalition signed a commitment to implement the GAD budget policy. The signing took place in the presence of NEDA, DILG, and DBM. On this same occasion, the women's groups from the Bantay Banay Network and the Cebu Women's Coalition presented proposals for inclusion in the budget.

Lihok Pilipina and the DILG trained many barangays on GAD budgeting, so that barangay volunteers are now able to prepare their own GAD budget. For 2000-2003, the barangays' GAD budget allocations amounted to P34M, or an average of P9M yearly. In 2003, P2M was released for the regular quarterly assessment of barangay GAD focal points, and other activities proposed by the Coalition partners.

For 2004, a P15-million GAD budget has been allotted from the annual investment plan. The budget releases are facilitated by the CCWFAC. Funds for some activities proposed by Bantay Banay and the CWC partners are released directly to the partners. The NGO implementer submits reports to the Commission. Since most of the GAD budget comes from the Annual Investment plan, copies of the report are also given to the CDC through the City Development Planning Office and the Committee on Private Sector Monitoring and Evaluation. Private sector groups with unliquidated funds cannot request for the release of more funds.

Results

Bantay Banay has greatly enhanced the culture of collaboration – the mutual contribution of resources and the sharing of gains – among the various stakeholders in the urban basic services program, as well as in other areas of concern. This collaboration has resulted in significant benefits for women and men. The combination of the NGOs' expertise, extensive experience in grassroots work, and dedication, on the one hand, and the government's strong political will, on the other, has yielded major accomplishments in two areas:

• Mechanisms and structures in place: The strong Bantay Banay network and convergence of its partner agencies' services has translated into 5,000 trained volunteers who have handled 13,000 cases. Moreover, the Bantay Banay experience has served as an impetus for the creation of GAD structures. The city now has an operational Women's Commission working with GO and NGO groups, as well as a GAD Code that guides annual GAD planning and budgeting. Resources for these mechanisms and processes are provided by the city government. There are also functional GAD focal points in the barangays and the various departments of the city government. These focal points work together with the CCWFAC to ensure sustainability and enhancement of GAD efforts. The city established the CODI for sexual harassment and passed an anti-domestic violence ordinance to further the objectives of gender-responsive governance.

• Sustained resources for the program: Through local resolutions and ordinances, and with strong political will, the GAD program of Cebu City is assured technical and financial resources for its sustenance. The GAD budget is regularly provided; and the training on GST and GAD planning and budgeting ensures the continuing integration of GAD in the city and barangays' regular programs and projects. A very important resource of the city is the tireless and unstinting support of NGO groups that have been working very closely with the city, even taking the leadership in important programs such as the Bantay Banay. This strong partnership with civil society accounts for the city's enduring and fruitful efforts towards genderresponsive governance.

Bantay Banay earned for the city government the Galing Pook Foundation award for gender sensitive governance. In March 2004, the city also received the Women Friendly Cities Award for Asia Pacific sponsored by the UN Habitat and UNIFEM for the same program. Further, Bantay Banay has made the women's program more visible, i.e., it has highlighted women's issues as well as capacities. Many people are now seeing women differently, and have begun to recognize that women constitute a very reliable workforce in barangay operations as well as during elections. Also, a number of barangay and city councilors regard the Women's Committee as one of the committees that they should seek to be part of.

Bantay Banay has been replicated in several cities and municipalities in Cebu as well as other areas in Visayas, Mindanao, and Luzon. These programs feature the same components that have made the BB a success: NGO-GO collaboration, setting up of mechanisms in the local government for more sustained GAD action, passage of resolutions and ordinances for setting up of a task force or interagency partnership, and inclusion of the VAWC effort in the LGU GAD budget.

Outcomes

The efforts of Bantay Banay have brought several notable improvements in the gender situation in Cebu City, both at the institutional and community levels:

• Reduced incidence of VAW: Among the public, domestic violence has ceased to be regarded as a private issue but is now seen as a public issue and an issue of governance. There is a considerable increase in the reporting of domestic violence and other VAW cases, probably because women now see that there are institutions that can help them. The Anti-DV Ordinance also serves as a deterrent to more violence. In the areas where VAW incidence was initially reported to victimize six out of 10 women, residents say that the incidence is now down to two out of 10 women.

• Improved coordination among various stakeholders on VAW: The representatives of the partner agencies have learned to go beyond their respective turf and not work on parallel lines. They have come to recognize that no single agency can do everything alone. Among them, the culture of referral has developed. Moreover, government agencies now appreciate that the civil society has a critical role to play in governance.

• Enhanced understanding of VAW and other gender issues: Bantay Banay brought into people's consciousness the issue of power relations among partners and family members, which has led to discussions and reflections on one's personal values and lifestyle. Many people have come to realize that the personal is political. A group among men opposed to violence has been formed. Joint parenting is no longer an idea that is out of the blue. Most of the volunteers have also gained a deeper understanding of gender realities, violence against women, and women's role in society in general. Other issues affecting women are now becoming more visible to barangay leaders and city officials. The need for sexdisaggregated data is recognized as well as the need for assessing the differential impacts of programs and projects on men and women.

• Increased women's participation in governance and in addressing their own concerns: The women's active participation in policy advocacy has raised the capability of women's groups to advocate/lobby for the implementation of, and budgetary provisions for, specific programs. More women are now involved in the barangay through the GAD Desks and barangay committees; they also now participate more actively in the implementation and monitoring of projects. After the barangay, the city departments have started to be sensitized and they are now starting to see the importance of having sex-disaggregated data, reviewing projects and programs that might differently impact on men and women, and providing such services as a child-minding center in the city hall.

Lessons learned

Bantay Banay's multi-stakeholder partnerships and community-level action for responding to VAW cases have proven effective in lowering VAW incidence and in assisting abused women and children. The convergence of services maximizes the use of the partner agencies' resources and facilitates referrals and information/feedback sharing. The partnership has also taught everyone concerned several valuable lessons:

• No agency can do the work alone. It is better to refer and engage than work in parallel lines.

• Civil society (NGOs, POs and community groups including the media) have a role to play in governance of a city.

• Partnership develops ownership of efforts among the various stakeholders, thus making these efforts more sustainable. Partnership also generates more commitment and counterpart contributions from individuals and agencies. The more these individuals and agencies get involved and invest their time and selves in a project, the greater their stake to make the effort succeed.

It would benefit any government to recognize the important contributions of the private sector and the civil society to governance. The government can, and should, provide infrastructure support, level the playing field, pass the necessary regulations but in the end it is the people who know their problem best. Thus, the government should support their initiatives in responding to the issues affecting them.

In Cebu, women and their families have shown it can be done.

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