Written by Carol Barrete, Community Affairs Officer I, Provincial Social Welfare Development Office, Davao del Norte, for the National Commission on the Role of Filipino Women (NCRFW)

Originally published in the Gender-Responsive Local Governance: LGU Experiences in Using the GAD Budget

The provincial government of Davao del Norte employs the Minimum Basic Needs (MBN) approach as its framework for development. The GAD program was integrated into the MBN approach, resulting in an increased appreciation of the role of women and men in realizing the vision of the province. This case provides information and insights that may prove useful for GAD stakeholders looking for alternative approaches to GAD mainstreaming in government programs and projects.

Overview

The Minimum Basic Needs (MBN) Approach, which the provincial government of Davao del Norte has adopted as its framework for achieving meaningful development in the province, is a strategy that converges all the programs of the various provincial government agencies towards one goal: the attainment of the Dabaonon's fundamental needs for survival, security, and empowerment. The implementation of this approach is participatory, i.e, the people themselves define what they expect from the government – job security, equal access to opportunities, social justice, and equitable enjoyment of the fruits of progress.

To be faithful to these guiding principles, the gender perspective was incorporated into the MBN approach. GAD mainstreaming was made possible through the enactment of necessary policies, issuance of directives, and creation of mechanisms to coordinate and facilitate the mainstreaming process. All LGUs, from the provincial to the barangay levels, and the civil society are involved in the mainstreaming efforts. Their cooperation and compliance are assured through the provision of support systems such as capacity development, linkages and networks, resources, consultations, and participatory methods.

The implementation of the GAD program has enhanced the local government's effectiveness and responsiveness in dealing with the concerns of its constituents. It also fostered greater appreciation of the role and contribution of both women and men in realizing the vision of the province.

MBN and GAD

An MBN survey conducted in 1999 surfaced a number of pressing problems confronting the women in the poorest sectors of the province. Some of the sectoral gender-related problems that were identified are the following:

• Poverty, with more than 57,000 families living below the poverty line (income of P36,000 or less annually);

• Marginalization of women in agriculture due to stereotyping, low access to technology, and low income;

• Inadequate number and poor condition of day care services for children 3-5 years old;

• High incidence of juvenile delinquency and rape among the youth;

• Inadequate protective services, with one police officer per 1,547 persons (the standard is 1:500); moreover, investigation mechanisms and protective support services at the police stations were not gender sensitive;

• Marginalization of men in the traditionally women-centered health services, which may have contributed to a higher male crude death rate of 64.49% (as against 35.51% for females);

• High maternal and child mortality and morbidity; and a limited and women-focused family planning program;

• Inadequate and inaccessible water supply in many areas, unavailability of power supply in a number of barangays, as well as lack of environment-friendly solid waste disposal system; and

• Insignificant participation of women in governance, with only ten of the 127 elective positions in the municipal and city levels occupied by women There are only 14 women out of 223 punong barangays and 351 in the remaining 1,990 elective barangay positions.

The survey findings prompted the provincial government to integrate the GAD Program in the MBN program and its components. At the same time, GAD mainstreaming was envisioned to respond to the fundamental concerns of integrating GAD in local planning at all levels, promoting more gender-fair hiring and promotion systems, and undertaking a more gender-sensitive analysis of employees' needs.

Objectives, strategies, and activities of the GAD Program

The GAD Program was integrated into the overall scheme of governance with clear-cut objectives identified by sector, as follows:

• For the agriculture sector to adopt practices and technologies that will allow equitable participation of women and men in agricultural work; to encourage women's participation in trainings on less labor-intensive and environment-friendly technologies; and to improve women's participation rate in agriculture from 30 percent to 50% by the year 2005;

• For the social sector to enhance the comprehensive and integrated delivery of social services through the MBN Approach; to improve employment opportunities for women and men; to strengthen the youth development and welfare program; and to establish child-friendly day care centers and a Women Crisis Center;

• For the protective services sector to promote people's participation in fostering a safe, peaceful and orderly community; to ensure equal access of women and men in the police force to services and benefits; and to ensure the availability of gender sensitive and responsive services.

The provincial government takes the lead in implementing projects/activities that will help achieve the objectives. It has committed to increase awareness of GAD issues in the male dominated political leadership; build a strong support base for GAD mainstreaming among development agencies, executive and legislative bodies, NGOs, and POs; and mobilize all agencies of government in identifying and developing gender-responsive indicators to be used in planning, programming, budgeting, monitoring, and evaluation systems.

Strategies and activities were put in place taking into consideration the strengths and weaknesses of the organization, as well as the opportunities and threats posed by external factors. The strategies and activities adopted were:

• Advocacy. This includes top-level advocacy and GAD orientation for local chief executives; provincial, city and municipal legislators; administrators; and department heads. To institutionalize the GAD program, a series of resolutions, ordinances, executive orders, memoranda, and circulars were passed, adopted, and issued by the legislative and executive branches of the provincial government. A Provincial GAD Team was constituted. Information-education materials were drafted and reproduced. A local GAD radio program was aired and GAD write-ups were published in the local print media. GAD billboards were also installed in strategic areas around the province.

• Capability building. The Provincial GAD Team went through a series of trainings and capability-building sessions. They, in turn, conducted trainers' trainings and Gender Sensitivity Trainings among identified key persons in the city and municipal levels. These led to the creation of the City and Municipal GAD Teams all over the province. These GAD Teams then took the forefront in championing GAD advocacy in the barangay, purok, and grassroots organizations. The capability-building sessions included a one-day GAD orientation, two-day Gender Sensitivity Training, and one half-day symposium and forum. Strategic Planning sessions for GAD teams, GAD Planning and Budgeting seminars, and seminars on Domestic Violence and Violence against Women were held.

• Formulation of a gender-responsive comprehensive development plan. With GAD advocacy entrenched in the overall scheme of governance, Governor Rodolfo del Rosario issued Executive Order No. 10-99 creating the Provincial Task Force for the formulation of the Gender-Responsive Provincial Comprehensive Development Plan. The task force underwent capability-building sessions on the drafting of the GR-PCDP. The draft GRPCDP was submitted to public consultations. The final draft was submitted to the Regional Office of the Housing and Land Use Regulatory Board and finally presented for approval to the HLURB Central Office. Approved on May 2002, the plan is now being implemented.

• Production of the GAD Module. The Provincial GAD Team, with the technical assistance of consultants and other sectoral representatives, formulated a module customized to the Davao del Norte gender concerns. This module is periodically modified based on the changing needs of the target audiences.

• Conduct of GAD Team meetings and conferences. The GAD Teams in the different levels regularly hold the Kumustahan sa GAD, consultative conferences, and meetings to maintain and sustain their network, and enrich one another with their sharing of their experiences.

• Monitoring, assessment, and evaluation. A monitoring team was formed to keep track of the progress of the various GAD teams, monitor the implementation of GAD programs and projects, and check the implementation of GR-CDP in the local government units. The monitoring team regularly holds semestral and year-end assessments and evaluations with the GAD teams in the different levels.

• Networking and collaboration with GOs, NGOs, and POs. Resource networks were established. The Municipal/City Councils of Women; Provincial Officials' Spouses Initiatives (POSI); Mindanao Commission on Women; Rotary Club-Golden L.A.C.E.S.; UMBN-DXDN Radio; various cooperatives; local offices of the DPWH, TESDA, DENR, DOLE, DOJ, and NIA; and the Upland Development Program for Southern Mindanao are partners in the implementation of gender-oriented, gender-responsive poverty-alleviation programs.

The Provincial GAD Team was institutionalized through an executive order. Its members come from the following departments and offices: PSWDO, PENRO, PHO, PAGCO, PGO, DECS, DILG, PNP, DNPCW, and Sangguniang Panlalawigan. They have been provided with appropriate training to enable them to mainstream GAD in their PPAs. The members are assigned to different committees, e.g. capability building committee, resource and mobilization committee, monitoring and evaluation committee, and advocacy and IEC committee. The present Provincial MBN and GAD Coordinator is the Assistant Department Head of the PSWDO, Ms. Clarita Galagala. She reports directly to the Provincial Governor and is supported by a GAD Secretariat.

The Provincial GAD Coordinator prepares the GAD budget using needs assessment tools and evaluation results generated by the GAD teams. In addition, women legislators and recognized women's organizations submit program and project proposals to the Office of the Governor for funding. All inputs, plans, and proposals are identified and prioritized as to budgetary allocation and implementation. The budgets of the programs are sourced from the General Fund, 20% Development Fund, and national and foreign funds.

Results

The GAD Program in Davao del Norte has attained significant accomplishments. At the institutional level, there are two significant results that ensure the progressive enhancement of GAD mainstreaming in the province:

• First is the institutionalization of the GAD Program in all levels through the issuance of official directives and creation of mechanisms for the purpose. Notable are EO No. 06-97, adopting of the GAD Program and organizing the Provincial GAD team; EO No. 10-99, creating the Provincial Task Force on the Formulation of Gender Sensitive Provincial Comprehensive Development Plan; and MC No. 03-2003, enjoining the component LGUs and provincial departments to take part in the celebration of the GAD Week.

  The Sangguniang Panlalawigan likewise issued relevant resolutions and ordinances such as Resolution Nos. 96-167, which designated a 2,000 square meter area for the establishment of the Women Development Center; Resolution 96-791-C, which declared that all ordinances and resolutions must be gender-sensitive; a set of resolutions confirming LGU ordinances creating their respective Municipal GAD Coordinating Councils; and Resolution 99-111, which authorized the signing of a memorandum of agreement with NCRFW for GAD Mainstreaming. Led by the provincial government, the local chief executives issued a pledge of commitment to institutionalize GAD in all cities and municipalities. GAD teams and trainers pools were formed and extensively prepared for the task of gender mainstreaming. A Provincial GAD Coordinating Office headed by the Provincial GAD Coordinator was formed.

• The second result is the institution of the GAD budget as an integral part of the regular budget allocation of the province. In the latest Annual Investment Plan, the following amounts are earmarked for GAD programs: P1.122 million from the General Fund, P11.061 million from the 20 percent Development Fund, and P3.250 million from national and foreign funding agencies..

Results at the program level show that GAD has been integrated in programs and projects anchored on the Minimum Basic Needs Approach. These programs include: animal dispersal and other livelihood projects, Food Security Program, Solid Waste Management Project, Adolescent Health and Youth Development Program, Population Education Program, Parent Effectiveness Program, Pre-Marriage Counseling Program, Male Reproductive Health Program, Women and Children's Desk, Women's Sports Program, Women Reproductive Health Program, and infrastructure projects. Some of the results emerging from these gender-responsive programs are:

In the economic sector

• Increased adoption of technologies that allow fair participation of women and men in agricultural production and marketing. This was attained through the provision of equal training opportunities for women and men on such concerns as integrated pest management, biological control agents program, and organic and bio-fertilizers production. A total of 1,312 male and 1,141 female participants have been trained. GSTs were conducted among the officers and members of the various Rural Improvement Clubs, and a gender-based data banking system was put in place.

• Enhanced capacity of women for income generation. Aside from farming skills, women have been trained on meat processing, livestock raising; lemon juice processing; agriproducts trading; fish processing; peanut brittle, candy and pastries preparation; and coconut midrib plate- and bag-making. The training programs were conducted through the RICs, the Davao del Norte-Technology and Livelihood Development Center, and the Provincial Agriculture and Cooperatives Office.

• Increased financial resources for women's economic activities. The local councils of women managed livelihood projects and micro-lending programs sourced through grants and aids from national and international institutions. Recently, Abanse Pinay (a party list group) released a substantial sum for the councils' livelihood and enterprise development undertakings. Managed by the Davao del Norte Council of Women, the amount has significantly improved women's opportunities for capital build-up, savings, and investment potentials.

In the social sector

• Improved implementation of the day care program through an accreditation process that ensures the gender- and child-friendliness of day care structures and facilities. There was also a significant increase (additional 39) in the number of day care centers set up in the province.

• Increased education campaign on and implementation of waste management initiatives. The Provincial Officials' Spouses Initiatives (POSI), an organization of the wives of elected provincial officials, spearheaded the Ecological Waste Management campaign. Lectures on waste management were conducted, creative means of recycling scrap were identified, and garbage receptacles and hangers were distributed to the puroks and barangays. The POSI also launched the "Bangga Sa Kalimpyo Sa Barangay", a provincewide contest for the cleanest and most livable barangay.

• Intensified implementation of the Special Program for the Employment of Students and provisions of more opportunities for qualified out-of-school youth to avail of scholarship grants.

• Refocusing of the reproductive health program to involve the men, leading to the creation of a Male Reproductive Health Clinic in every rural health unit, city health office, and district hospital. Provincial Ordinance No. 2000-2003 mandated the Provincial Health Office to carry out the program, which has been widely recognized and cited as the only functional Male RH Program in the Philippines. The DOH and UNICEF have also adopted the program as a model for the implementation of a Male RH Program in the country.

  As a result of the male family planning advocacy, the FP prevalence rate in the province increased from 60% to 72% in 2001. Andropause, STD, other renal tract infections, and sexual dysfunctions are now subjects of open discussion in symposia, counseling sessions, and advocacy campaigns. Prostate and testicular problems are diagnosed and treated in the regular medical facilities. Determining family size and child spacing have become the couple's shared responsibility.

• Presence of more gender- and children- sensitive protective services. The "Kinder Cop" Program of the Provincial Police Office (PPO) included information-education campaigns in schools to lessen the incidence of child abuse and regain the confidence of the youth on the authorities. The PPO also conducted GAD orientations and GST among its ranks, particularly for the PNP's Women and Children's Desks.

• Increased attention to ensuring accessibility of basic services such as water. The women played a crucial role in making this possible. For example, the Talaingod Women's Association, Inc. was instrumental in realizing the establishment of a Level III community potable water project through sourcing a grant from the Government of New Zealand.

• Availability of comprehensive services for women victims of violence. The Davao del Norte Council of Women and the Provincial Government established and made operational the Women Development Center to extend shelter, and legal and psychological assistance to women and children victims of violence.

Problems and remaining challenges

The GAD team members and resource networks are confronted with some organizational problems. One is the heavy workload of the GAD focal persons, making it inevitable for the program to take a backseat in terms of prioritization. Finding a mutually convenient schedule for meetings and activities continues to be a challenge for the Provincial GAD Coordinator. Finally, the modules for the gender sensitivity training are not customized to the unique contexts of the Muslims, indigenous communities, and the youth sector.

Lessons and insights

GAD mainstreaming brought together the different sectors in Davao del Norte: the government, civil society organizations, churches, schools, and the grassroots sector. This resulted in their unified commitment to pursue gender equity and equality in their homes and in their communities. A number of these stakeholders have testified to the liberating experience the awareness and sensitivity seminars brought into their personal and social relationships. Indeed, people are the central force in GAD mainstreaming. Greater awareness on gender and development issues among local chief executives and local officials paves the way for the formulation of policies and legislation responsive to the cause of women and children, and facilitates funding for gender-related plans and programs. Sponsors, focal persons, and GAD advocates play pivotal roles in pursuing GAD endeavors. The earnest effort of the GAD teams to involve men in GAD endeavors bridges the gender gap.

A holistic mechanism for women's participation in problem identification, problem resolution, and local governance, from the provincial to the municipal and city levels, is the turnkey to GAD mainstreaming. Regular capability-building exercises, and constant meetings and conferences enhance teambuilding and provide GAD team members with avenues for mutual learning. An established system for GAD planning, budgeting, monitoring, and evaluation makes possible the coordinated and efficient implementation of gender mainstreaming programs and projects at various levels.

Certainly, GAD ushered in a paradigm shift in conventional governance. In Davao del Norte, local governments have visibly veered away from looking at male and female statistics as mere figures; they now see in these statistics women and men with sensibilities and sensitivities. More importantly, GAD is contributing immensely to the attainment of the Dabaonons' vision for Davao del Norte: to become a globally competitive and economically stable province, where God-loving, synergistically involved, and empowered women and men live in harmony in a gender-fair society and an ecologically balanced environment.

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