FEDERAL MINISTRY FOR ECONOMIC COOPERATION AND DEVELOPMENT

DEPARTMENT 120 JANUARY, 2004

Evaluation of the Program

Rural Empowerment
Through Agrarian/Asset Development

Project Development Institute (PDI)

Manila, Philippines

October 9 – 13, 2003

The opinions presented in this study are those of independent external experts and do not
necessarily reflect the views of the Federal Ministry for Economic Cooperation and
Development.
Table of Contents

1 Introduction

2 Summary

2.1 Summary of major findings

2.2 Summary of major recommendations

2.3 Findings and recommendations in regard to the seven key questions of this series
of evaluations

3 Brief description of the program

3.1 Brief description of the concept

3.2 Tabulated overview

4 General conditions

4.1 Political, economic, ecological, social and socio-cultural conditions

4.1.1 The program area

4.1.2 The extent of poverty in the program area

4.1.3 Relevant processes in the program area

4.2 Brief analysis of the sector in which the program operates

4.2.1 Land ownership, struggle for land and CARP

4.2.2 Status of CARP Implementation

4.2.3 Problems of land distribution

4.2.4 Resistance of landownership and their strategies

4.2.5 Agriculture in Central Luzon

4.2.6 Sustainable and alternative land development efforts

4.3 Analysis of the institutional framework

4.3.1 Local governance, rural development and agrarian reform

4.3.2 The different actors and their interests

4.3.3 Rural poor participation in governance and power relations

4.4 Conclusions in regard to framework conditions

5 The READ program and the quality of aims and planning

5.1 The READ program

5.1.1 The Project Development Institute

5.1.2 The READ program’s aims and objectives

5.1.3 The conceptual framework and strategy of the READ Program

5.1.4 Target groups and area of operation

5.2 Analysis and assessment of aims of the READ program

5.2.1 Assessment of clarity and feasibility of aims and objectives

5.2.2 Assessment of poverty orientation

5.2.3 Consideration of gender issues

5.2.4 Considerations of the needs and interests of the indigenous people

5.2.5 Compatibility with development aims and priorities of country and donors

5.2.l6 Assessment of other aspects

5.3 Assessment of the planning quality

5.3.1 Target group analysis

5.3.2 Participation in the planning process

5.3.3 Assumption of risks

5.4 Overall assessment of program aims and planning

6 Quality of program implementation and management

6.1 Analysis and assessment of the implementation

6.1.1 Develop capacities and organizational strength

6.1.2 Improvement of land ownership

36.1.3 Economic Support measures

6.1.4 Networking, advocacy and lobby work

6.1.5 Principles of program implementation

6.1.6 Orientation on specific groups

6.2 Analysis and assessment of the program’s management

6.2.1 The budget of the PDI’s READ program

6.2.2 Monitoring and evaluation

6.2.3 Cooperation between PDI and EZE/EED

6.3 Overall assessment of program implementation and management

7 The program’s effectiveness in development terms and its significance

7.1 Program results and achievement of aims

7.1.1 Results of building people’s organizations

7.1.2 Results of land transfer to peasants in Agrarian Reform

7.1.3 Results in regard to economic activities

7.2 Assessment of cost/benefit ratio

7.3 Economic, social, socio-cultural and institutional impacts

7.3.1 Empowerment of farmers and Pos

7.3.2 Impacts on indigenous People

7.3.3 Impact on the situation of women and gender relations

7.3.4 Youth
7.3.5 Poverty Reduction

7.3.6 Impacts in regard to the agricultural sector

7.3.7 Social impacts

7.3.8 Impacts concerning political participation

7.3.9 Spill over effects

7.4 Poverty orientation and contribution to International Development Goals

and the German Government’s Program of Action 2015

7.5 Ecological impact

7.6 Sustainability

7.6.1 General Conditions

7.6.2 Program Partner Organization

7.6.3 Target Group

7.6.4 The Sustainability of the impacts

7.7 Cost benefit assessment

8 Recommendations

8.1 Recommendations to the Pos and NMGL

8.1.1 Further develop strength and capacities of the organizations and the federation
and enhance self-reliance as well as independence from PDI

8.1.2 Enhance engagement at municipal and city level in sustainable land development
and livelihood

8.1.3 Strategic development of services for members

8.1.4 Put more emphasis on gender issues

Recommendations to PDI

8.2.1 Continue support to POs and NMGL to enhance their degree of independence and
self-reliance
8.2.2 Develop complementary areas of action

8.2.3 Enhance lobbying at all levels

8.2.4 Increase the strength and some management aspects of PDI

8.2.5 Enhance the integration of gender issues into all aspects of READ program

8.2.6 Carry out reflections on geographic expansion with funding organizations

8.3 Recommendations to EED/EZE

8.4 Recommendations to BMZ

8.5 Recommendations concerning the key questions of the sequence of evaluations

9 General conclusions (lessons learned)

9.1 Clear orientation of the program around issues

9.2 Comprehensive strategy of empowerment and to address poverty

9.3 Relations to farmers and target groups

9.4 Negotiation and dialogue with government and other actors

9.5 Close cooperation but independence from grassroots to national level

9.6 From grassroots to national level

9.7 Flexibility in implementation

9.8 Values, management and emotionally affected staff

9.9 The implementing organization

9.10 Relation to funding partners

9.11 External Factors

10 Other findings

10.1 Influences of development programs on surrounding areas

10.2 Experiences with the methodology of a joint and participatory evaluation

Abbreviations

ACORD Agricultural and Coastal Resource Development

ADB Asian Development Bank
APIS Annual Poverty incidence Survey
AR Agrarian Reform
ARB Agrarian Reform Beneficiary
ARC Agrarian Reform Community
ARRD Agrarian Reform and Rural Development
BDC Barangay Development Committee
BDP Bondoc Development Program
BMZ Bundesministerium fur wirtschaftliche Zusammenarbeit und Entwicklung
(Federal Ministry for Economic Cooperation and Development)
CARL Comprehensive Agrarian Reform Law
CARP Comprehensive Agrarian Reform Program
CDP Comprehensive Development Plan
CLOA Certificates of Land Ownership Awar
CPP Communist Party of the Philippines
DA Department of Agriculture
DAR Department of Agrarian Reform
DENR Department of Environment and Natural Resources
DMC Development Management Course
DOH Department of Health
DTI Department of Trade and Industry
DSWD Department of Social Welfare and Development
EED Evangelische Zentralstelle fur Entwicklungshilfe
FAO Food and Agriculture Organization
FB Farmer Beneficiary
GAD Gender and Development
GATT General Agreement on Tariff and Trade
GDI Gender Development Index
HDI Human Development Index
HMB Hukbong Mapagpalaya ng Bayan (People’s Liberation Army)
ICARRD International Conference on Agrarian Reform and Rural Development
IGA Income Generation Activity
IGP Income Generation Program
IP Indigenous People
IPDP Integrated Participatory Development Programming
IPRA Indigenous People’s Rights Act
KZE Katholische Zentralstelle fur Entwicklungshilfe
LDC Local Development Council
LGU Local Government Unit
LTI Land Tenure Improvement
MARO Municipal Agrarian Reform Officer
MIS Management Information System
MNC Member of National Congress
MPDC Municipal Planning and Development Coordinator
MTPDP Medium-Term Philippine Development Plan
NAPC National Antipoverty Commission
NGO Non Government Organisation
NMGL Nagkakaisang Magsasaka ng Gitnang Luzon (United Peasant of Central
Luzon)
NSCB National Statistical Coordination Board
NSO National Statistics Office
ODA Overseas Development Agency (Now DFID)
OLT Operation Land Transfer
NPA New People’s Army
PARO Provincial Agrarian Reform Officer
PARRDS Partnership for Agrarian Reform and Rural Development Services
PBD Program Beneficiaries Development
PDI Project Development Institute
PDRN Pampanga Disaster Resource Network
PHP Philippine Peso
PME Planning Monitoring and Evaluation
PO People’s Organization
PR Public Relations
PRRM Philippine Rural Reconstruction Movement
READ Rural Empowerment through Agrarian Development
RTD Round Table Discussion
SCAT Special Concern Action Team
SLED Sustainable Local Economy Development
SPF Small Project Fund
SRA Social Reform Agenda
ToR Terms of Reference
TriPARRD Tripartite Partnership for Agrarian Reform and Rural Development
WTO World Trade Organization

Other abbreviations refer to the names of People’s Organizations (see list in the Annex,
page 18-21).

1 Euro = 66.66 PHP

1 Introduction

Objectives of the Evaluation

The programme “Rural Empowerment through Agrarian / Asset Development (READ

Programme)” is implemented by the Project Development Institute (PDI),
Philippines. It is supported by the German Protestant Church Development
Service (EED/EZE) with funds from the Federal Ministry for Cooperation and
Development (BMZ). The evaluation is the second in a series of six annual BMZ
evaluation (2002-2007) of projects of the German Church Development
Organizations EED/EZE and Misereor/KZE with special amphasis on the
projects’ contributions to the objective of “Enhancing the Particpation of the Poor
– Strengthening Good Governance” as defined in the German Government’s
Program of Action 2015 Towards Halving Extreme Poverty Worldwide.

Particular attention should be paid to what extent strategies to strengthen the poor and
their organizations are successful and able to enhance and support “bottom-up
processes” of poverty reduction. Finally, how to improve these strategies and
lessons learned for comparable programs are to be identified. The experiences
made in the bilateral aid project “Bondoc Development Program” shall be used as
reference.

Based on seven key questions of the sequence of evaluations “Enhancing the

participation of the poor – strengthening Good Governance”, specific Terms of
Reference were established for this evaluation (see Annex, page 117).

Period and process of the evaluation

In the preparatory phase of the evaluation, a meeting took place in the Ministry with
representatives of BMZ, EED/EZE and the consultants in order to orient the
evaluation and discuss main objectives. More information about the READ
program and the role and perspectives of the responsible desk officer of EED/EZE
were obtained in a separate meeting in EED/EZE witht the two German
consultants.

Mainly via e-mail, the team of external consultants prepared suggestions concerning the
methodology and the schedule of the evaluation. The exchange between the
external consultants and PDI resulted in a first clarification of the characteristics
of the evaluation, the methodology to be applied and a detailed schedule for the
evaluation.

The period of evaluation in the Philippines was from October 9 to 23. Three main phases
can be distinguished:

1. A workshop setting the stage for the evaluation and clarifying the framework (2 days)
 clarification of objectives and methodology,
clarification of tasks of the members of the large evaluation team and the external
consultants,
presentation of the situtaio9n of the program, its strategies and achievement,
discussion of impact hypothesis as a basis for the evaluation.

2. Field visits in three teams (4 days) 1

• to check the impact hypothesis and to find out the impacts achieved by PDI,
• to discuss the views, perceptions and opinions of other actors involved and
concerned.

3. A final workshop (4 ½ days)

• for sharing the results of the field visit teams,

• analyzing and assessing the results and impacts,
• identification of lessons learned and recommendations,
• evaluation of the evaluation process and results in the large evaluation team.

The evaluation team and actors involved in the evaluation

The evaluation was carried out by a large evaluation team of around 20 members
including

¾ leaders and members of the people’s organizations and federation (8),

¾ staff and director of PDI as the program implementing organization (8),
¾ external consultants (3),
¾ government official (Department of Agrarian Reform) (1).

A list of the evaluation team members is presented in the Annex page 3.

Mainly during the field visits but also in further interviews and discussion, a number of
other actors were involved in the evaluation process, mainly through group
discussions/mini-workshops or interviews:

• about 270 farmers (men and women), mostly organized PO leaders and members
from 49 Pos,
• around 40 non-organized farmers, amongst them beneficiaries of the AR and non-
beneficiaries,
• 10 mayors, Barangay and municipal officials,
• about 10 DAR officials from municipal, provincial and regional level,
• 7 experts and NGO0 representatives at national level,
• some workers, vendors, etc.

1
Due to time spent for traveling, the Nueva Ecija and Bulacan team only had two full days for the
meetings and discussions.
Six provinces of Central Luzon were covered by the visits.

The evaluation methodology

The following aspects guided the team’s selection of an appropriate methodology for this
evaluation.

• The evaluation is learning oriented. The main results are the lessons learned from
the experience of PDI and other actors concerned by the program. These actors
also should learn, not only or mainly the three external consultants. Control
aspects do not play a role in the evaluation.

• The evaluation is part of a sequence of evaluations which focusers on strategies

and impacts on poverty reduction and participation of the poor in decision making
processes as well as good governance. The main results are the identification of
impacts and the respective lessons one can learn from the experiences gained
within the PDI’s program. Therefore, this evaluation is different from a program
evaluation.

As a consequence, the methodology should allow to draw lessons in regard to the

strategies and impacts achieved by PDI and it should favour learning from this
evaluation by actors involved and concerned by PDI’s program.

As a consequence, the three core-aspects of the methodology were:

1. Focus on people, their perceptions and their experiences

2. Active role and involvement of the staff, of target groups and of other actors
3. Open assessment of impacts

These three points are explained in more detail in the following:

An important element of the methodology is to allow and to favour the attitude of the
director and a staff, to understand the evaluation as an opportunity and not to
fear it as a control instrument. As a consequence, the methodology aims at a joint
evaluation. This means that the evaluation is not only supposed to be an external
evaluation but also a critical self-reflection about the program’s interventions and
a self-evaluation of achievements and impacts which is accompanied and
completed by external consultants.

An attitude of curiosity and exploration (and not of defence) is of crucial importance to

see different perceptions as a potential for learning and not to assume a
defensive role. The external consultants have to encourage this attitude and to
assist the staff to perceive differences as a learning opportunity rather than as a
threat.
In order to understand the program, the concerned people, their perceptions and their
visions have to be known. A high degree of participation of the staff and of
target groups and other relevant actors is considered to be important to take
advantage of existing experiences for the evaluation.

This means that in addition to the relevant quantitative and qualitative information and
data, their interpretation by the staff of the program, the people’s organizations
and other actors are essential. Consequently, the staff, the different target groups
and a diversity of other actors will be involved in the reflection process, each with
a specific perception and appreciation. There is no final or “true” and “objective”
assessments / evaluators; however, their assessment is one perception among
others.

In order to offer maximum space for the exchange and discussion of different
perspectives throughout the process, a big evaluation team was established. All
the members of the evaluation team 2 assumed the functions of an evaluator
(analysis, reflection, identification of recommendations, etc.) and played an active
role. Their participation was not limited to providing relevant information for the
three external consultants as “the evaluators”.

Other actors were involved in mini-workshops or through open discussions and

interviews. These discussions were an open and learning-oriented dialogue
where evaluation team members raised questions, avoiding an inspection or
control attitude. This should allow the exploration of the perceptions of the
people and their learning experiences and, as far as possible, initiate a joint
reflection.

The “contracting” between the different partners in the big evaluation team – the
clarifications of expectations, roles and responsibilities – in the beginning of the
process is an essential part of the evaluation process. It assured not only
transparency and the same level of understanding for all the participants but also
was perceived as a source of motivation and pride to commit oneself for the
evaluation process. The external consultants have the role of facilitators guiding
the evaluation process and supporting learning of the other members of the team.
All the participants including the external consultant contribute their professional
view and assessment and their experience but the external consultants are not
owner of the “objective truth” as an expert. It is important that all the me3mbers
feel comformable with the approach. this applies also to the external consultants.
This method has to fit to the attitudes and capacities of the external consultants.

The quantitative data and the qualitative information served as a basis for the in-depth
analysis and the open impact assessment. Impact hypothesis of PDI activities
were formulated as a basis for the further analysis during the field visits. The

2
Direction and staff of PDI, representatives of the Pos, one DAR/government representative and the
three external consultants (see also Annex, page 3).
 visits should also identify unforeseen and negative impacts (see also preparation
of the field visits, workshop documentation in the Annex, pages 79 – 82). This
was mainly done by an analysis of the actual situation compared to the situation
before PDI’s intervention. Other possible factors were considered and identified
as far as possible. It was not possible during the evaluation to compare the
situation in PDI’s intervention area with areas where PDI has not worked.

The following values are considered to have influenced the practice of the evaluation
and the attitudes and behavior of the evaluation team; respect to people
independent from their function or hierarchical position; justice and self-
determined development; the principle that everybody knows something and is
able to contribute and nobody knows everything. Democracy and transparency
in decision making, accountability of leaders. Within the framework of these
aspects, different peerc eptions are possible – there is not only one “objective
truth” which is valid for everybody and which is determined by one person or the
evaluation team. Different perceptions are seen as a potential and as a basis for
further communication.

Expected advantages of the methodology

¾ The experiences and potentials of a broad variety of stakeholders are utilized for
the evaluation process as well as intense discussion among the evaluation team in
order to increase the quality of the result, mainly in regard to realistic,
appropriate and relevant recommendations and identification of substantial
conclusions.
¾ The active role of staff and Pos also enhances commitment to the process and is a
condition for learning from individual and program experiences. In addition, it
facilitates ownership for the results of the evaluation through the high
involvement and active roles in analysis and elaboration of recommendations.
¾ This learning effect which will facilitate the understanding of the
recommendations and is supposed to create the necessary insights into the
advantages or needs for the implementation of the recommendations – the need
for change.
¾ A learning effect in regard to evaluation methods in general has been
appreciated by staff and directors and can influence the future evaluation practice
of the program.
¾ Consequently, the evaluation with this methodology is not only the identification
of conclusions and recommendation, it is supposed to be the first step of change
and an improvement process.

A comparison of this evaluation methodology with an external expert evaluation is

presented in the Annex pages 15 – 17.
Limitations

The focus of this evaluation was on impacts and lessons learned from PDI’s program in
regard to the key questions of the sequence of evaluations. In addition to this, the
ToR also comprehends topics of an individual program evaluation. Consequently,
not all aspects were treated with the same intensity. Some were assessed more on
evidence gained from documents by the external evaluators. The evaluation of
the evaluation process and results by the evaluation team is presented in chapter
10.2, page 105.

The report

The content of this report is a product opf joint efforts of the entire evaluation team.
Although it was written to a large extent by the external consultants, it is mainly
based on the results and interactions in the evaluation team. Additionally, the
comments and remarks of PDI to a first draft have been included.

The editor is aware that it is an unreasonable demand to the interested reader to read this
report due to its volume. This is also due to the fact that the report is supposed to
give answers to questions and interests of a wide variety of readers: farmers in
people’s organizations, PDI staff, responsible person s in EED/EZE and BMZ
who will certainly put emphasis on different points. The authors have tried to
meet these different expectations by integrating all relevant results of the
evaluation and by giving the report a detailed structure and headings which allow
one to concentrate on specific point5s of interest. In addition, a summary gives an
overview about the key-results of the evaluation.

2 Summary
The programme “Rural Empowerment through Agrarian / Asset Development”
implemented by the Project Development institute (PDI), Philippines was
evaluated as the second in a series of six annual BMZ evaluations (2002-2007) of
projects of the German Church Development Organizations EED/EZE and
Misereor. These evaluations are directed primarily at the analysis and assessment
of achievements and experiences with regard to the objective of “Enhancing the
Participation of the Poor – Strengthening Good Governance” as defined in the
German Government’s program of Action 2015 Towards Halving Extreme
Poverty Worldwide. The evaluation was carried out in a learning oriented
methodology by a team of about 20 persons comprising director and staff of PDI,
representatives of the people’s organizations and three external consultants.

The programme “Rural Empowerment through Agrarian / Asset Development (READ

Programme) is supported by the German Protestant Church Development Service
(EED/EZE) with funds from the Federal Ministry for Economic Cooperation and
Development (BMZ). PDI began in 1990 with a vision of strengthening and
building self-reliant organizations and communities through people’s initiatives.
 PDI is committed to the pursuit of genuine agrarian reform and rural
development. PDI’s main role is to encourage and support farmers, farm workers
and indigenous peoples to mobilize themselves into organizations and to stand for
their rights in Agrarian Reform (AR) in order to become legal owners of
agricultural land. The ownership of the land they till should give them a stake in
the social order and contribute to social and po0litical stability. In addition, PDI,
as a NGO, acts as a pressure group urging the government to give the farmers the
opportunity to own land. The Pos in the forefront shall demand their right to land
and basic needs. This NGO-PO partnership is an alternative approach to the top-
down approach being employed by the DAR in the implementation of Agrarian
Reform.

2.1 Summary of major findings

Quality of aims and planning

PDI’s READ program was planned in a very participatory manner in a six month
process involving the relevant target groups. This led to a common understanding
of the program and ideas of empowerment between PDI and target groups. The
planning gives direction and serves as an orientation for implementation.

The READ program fits very well in the development priorities laid down in the
Medium-Term Philippine Development Plan 2001-2004. It addresses
“Comprehensive Human Development and Protecting the Vulnerable” by
focusing on “Agrarian Reform Beneficiaries and Indigenous people” explicitly
mentioned there.

With its poverty orientation the READ Programme is highly in line with the German
Government’s Program of Action 2015, the priority fields of action set out in the
BMZ Asia resources”. The READ programme also directly addresses several of
the priorities of the Southeast and East-Asia Desk of EED.

The formulated aim of the program is achievable for the primary beneficiaries of the
program, but the time horizon o9f the entire program beyond the present phase is
not evident for outsiders. According to PDI, READ is part of a development
process and not as a time-bound project. PDI undertook the effort to formulate
indicators for each program component. However, they are quantified only in
regard to the activities, but hardly in regard to effects and impacts. Indicators are
not differentiated with regard to gender. Consequently, they often do not provide
a more detailed description of the results or objectives.

PDI is committed to gender equality in practice and understands its program objectives as
all encompassing, incorporating men and women. However, this is barely
perceptible for outsiders from the planning documents only.
Quality of program implementation and management

The READ program addresses rural poverty through its empowerment-oriented

approach, networking and lobbying and some additional economic support
services. This strategy is an appropriate answer to the situat5ion in Central Luzon
and to achieving the program’s aim. The program intends to enlarge the
participation of poor farmers by enabling and motivating them to grasp the
opportunities of the legal framework of the Agrarian Reform Law and the Local
Government Code. PDI sees development as a process of achieving changes in
institutional structures that result in sustained improvement in the productive use
of available resources to meet human needs.

The effectiveness of this strategy lies in being centered on people development and the
enhancement of the capabilities of the people. With these capabilities, the people
themselves can become active. Under the READ Program, the strength of
people’s organizations is rooted in the unity of ideas and objectives from the
members themselves. An important element is the formation of values through
training and exposure as well the example of the values of the staff.

The strength of PDI’s READ program also lies in its participatory and dialogue-oriented
approach at different levels with all concerned actors. The highest form of
cooperation achieved by the program so far is the establishment of a tripartite
mechanism called the Special Concerns Action Team (SCAT). It is composed of
key people’s organization leaders, PDI personnel and important regional and
national personnel from the Department of Agrarian Reform. In weekly meetings,
the leaders of the people’s organization have a chance to bring their cases directly
to DAR officials. The DAR is also forced to minimize bureaucratic anomalies
because of the farmers’ vigilance. The SCAT serves as a pressure group that
mobilizes various actors to cooperate and achieve the resolution of Land Tenure
Improvement through the provision of venues for mutually-beneficial negotiations.

PDI also provides direct assistance to farmers in their socio-economic initiatives through
credits and capacity building. These programs such as the hog dispersal program
and the promotion of other income generating activities like dress making, candy
making etc., are mostly addressed to women who appreciate the support.
However, there is a potential to improve the implementation, monitoring and
reporting of the Small Projects Fund.

PDI transforms experiences and initiatives from the grassroots level into policy, advocacy
and lobbying at the national level. PDI has developed a number of links at local,
regional and national level to relevant NGO’s and networks. What makes the READ
program special is not one specific element, but the combination of services
implemented in a very flexible and site-specific manner.

The management of PDI is based on the periodic review of the specific land cases.
Decisions are taken according to the most recent development in each specific case.
 These decisions are based on the principles and values which are in correspondence
with the content of the program, whereas planning documents or indicators play a
secondary role only. The advantage of this kind of management is a high degree of
flexibility and appropriateness for each specific case.

The cooperation between PDI and EED/EZE is based on an agreement defining the roles
and contributions of each partner, the source of funds, financial management and
audit, etc. PDI provides half-yearly reports about the implementation of the program
including audit statements according to a format suggested by EED/EZE. EED/EZE
provides funds and offers its advice while PDI remains fully responsible for the
implementation of the program as well as for its own conceptual and institutional
efficiency. It its cooperation with partners EED/EZE has established a detailed
management system. Guidelines and policies are very clear. The continuity of
cooperation, the bond of trust between EED/EZE and PDI and the high degree of
autonomy PDI is enjoying in the implementation are important factors of success of
the entire READ program.

The program’s effectiveness in development terms and its significance

The results of the READ program

Existence of people’s organizations and a regional federation

PDI has facilitated the establishment of 59 people’s organizations (Pos) with 2,501
members, out of which 20% are women, and a regional peasant federation United
peasants of Central Luzon (NMGL). Within two years only, NMGL has evolved
from an organization representing beneficiaries to an organization acting as
legitimate partner of the Department of Agrarian Reform.

A significant improvement has been achieved in regard to the knowledge about Agrarian
Reform law and procedures as well as the rights and human rights of the PO
members. They have also increased their communications skills and abilities to
analyze their problems and to identify solutions. Many leaders are now able to
speak to government officials, to argue and represent their members demanding
their rights. This is a considerable change and achievement, in particular for
women and the Aeta. The fact that people are able to manage their organizations
themselves and to make decisions without PDI shows the independence of the Pos
from PDI. However, there is lack of economic self-reliance of the people’s
organizations.

Results of land transfer to peasants in Agrrian Reform

As of October 2003, PDI and NMGL have brought about the transfer of 2,953 hectares
to 985 peasants. Around 2,000 hectares of agricultural lands are already in the
pipeline. This signifies a meaningful contribution of the program to the whole
agrarian reform program in the region. It is equivalent to 17 percent of the
 remaining CARP lands in the region. Even if PDI as well as sometimes also DAR
emphasize co-o9wnership of husband and wife in order to protect women’s right
to property, it seems that successes in this respect are rather poor. Most of the
land titles are issued in the name of the male farmer only.

The Economic Support Services

The Economic Support Services (ESS) contribute to additional income; however, the
amount and importance vary considerably. The most encouraging successes exist
with the hog program. Nevertheless, compared to the above mentioned results of
PDI, these aspects are considered as rather marginal. A substantial contribution to
poverty alleviation from these activities cannot be stated and could not be
expected considering the small available funds of 7,500 Euro a year and the
objectives of the program.

Economic, social, socio-cultural and institutional impacts

Empowerment

The members of the Pos and beneficiaries of PDI’s support are now able to see their
situation from a different perspective. Many have obtained new hope in their
struggle for land ownership and livelihood development. Their capacities and
their successful activities have led to PO members developing a new picture of
themselves and have given them motivation to make informed decisions about
social, political and economic choices. There is also a general increase in self-
confidence. As a consequence, other actors have become more aware of the
capacities of groups who had been rather marginalized before. The government’s
political institutions now recognize the people’s organizations as vital political
forces outside of but cooperative with the government. This is a significant and
important change in particular for women and the Aeta. Through increased
formal and non-formal education the latter are now able to negotiate for better
terms in the exchange of foods and services, also from local government agencies.
However, the improved situation is considered to be an important but only first
step.

Poverty Reduction

PO members attribute high importance to increased land security. Even if the size of 3
ha. For each of the 985 farmer-beneficiaries and their families is not always
sufficient to nourish a whole family, the importance of the possession of land
titles has to be seen in the context of the lives of the beneficiaries. The titles
represent a radical change in their status from being landless to new owners. This
achievement is emotionally very important and has impacts on the entire life of
the beneficiaries.
There are also economic benefits through land-ownership and investments in the land by
farmers as they receive 100% benefit from their harvest, which was not the case
as tenants. This increased their ability to provide sufficient food for their family.
Improvements in the poverty situation is also related to significant changes in the
status of education. Most PO members can afford to provide primary and
secondary education to their children.

Social impacts

Some of the most relevant impacts achieved by PDI concern the changed situation of
women members of the Pos. From their point of view, the increased possibility to
earn income has influenced their positions in regard to their husbands. Women
also relate their greater say in family matters and in decision making to their
increased abilities and self-confidence. The value orientation of PDI seems to
have achieved that these changes do not result in a deterioration of relationships,
but rather contribute to good cooperation in the family. Men and women said that
they have learned to discuss their problems in a respectful way. Furthermore,
unity within the community was also developed. Improved information,
dialogues and the formation of values have mitigated the emergence of violent
conflicts in the land redistribution process. However, the successes of PDI and
NMGL have negatively impacted on the interests and plans of big landowners.
There are indications that their resistance to reform has become stronger.

Impacts concerning political participation

PDI has achieved the enhancement and enlargement of the possibilities of political
participation for their target population, in particular on local and regional levels.
The people pooled their strength through organization and began to exercise their
role as a legitimate force in local civil society. Farmers have become active and
the Pos are established as a new actor in the organizational and institutional
landscape. Pos use meta legal tactics to influence decisions and exercise
vigilance in regard to Agrarian Reform law implementation, mainly through
institutionalized discussions and negotiation forums through partnerships. In this
increased participation has several effects:

PDI‘s experiences have changed the governments’ concept of AR implementation and

combined land tenure improvement with economic development. This has
enhanced the efficiency of the public sector in implementing Agrarian Reform.

There are significant changes in the behavior of the government bureaucracy, especially
in the national, regional, provincial and municipal offices of the DAR particularly
in the areas covered by the program. Many DAR officials are now more
committed, more transparent and much more sensitive to the issues brought to
their attention by Pos. The new leadership of DAR at regional level has also
contributed to these changes.
This change in behavior led to accelerated and more complete law implementation by
the DAR. Thanks to the intervention of PDI and the POs, more areas for land
distribution have been identified and the distribution of titles has been achieved
faster in other places thanks to the improved behavior of DAR.

The gap between farmers and DAR has been narrowed. The institutionalization of
regular negotiation meetings was able to break old alliances between DAR and
landowners in many cases. As a consequence, the “distance” between DAR and
farmers has been reduced considerably.

The READ program’s strategy of enabling people and the Pos to constructively work
in the development bodies has allowed their active participation in local
development councils. They were able to influence the allocation of local budgets
and to increase transparency and accountability of council decision. However,
this only happened in some places and changes are only beginning and have not
yet taken place on a larger scale. They also still depend largely on the political
will and on the individuals in the government strubtures. Nevertheless, these
small changes constitute examples for other farmers to organize themselves and to
take action to defend their interests.

There are significant policy changes at the level of local governments particular to
certain municipal and city governments where PO and NGO influence is stronger.
The productive endeavors of farmer-beneficiaries allied to NMGL have induced
the Local Government Units (LGU) to declare some agrarian reform lands as
“food baskets” that are protected by local laws.

Sustainability

The current success of the program has been achieved under specific conducive
environments. In particular, the existence and concept of AR including the
availability of public / government resources, the political will to implement AR
and favorable attitudes and behavior of DAR personnel in the implementation
have been significant. It is important to mention that PDI has contributed to have
these favorable conditions to a large extent through lobbying work at different
levels. However, this environment is not reflective of a general positive
transformation within the DAR, local governments or the land-owning class.
There is the risk that the political will to implement AR can change. The gains
achieved in changing rules in agrarian relations and improving the behavior of the
DAR, local governments and landowners are still very fragile and are vulnerable
to sudden shifts in the external environment.

The Pos have acquired sufficient capacities and status to become relevant players in the
communities. They are able to run their organizations independently from PDI.
However, there is a considerable lack of capacities between frontline-leaders and
 PO members and there is a need to thicken the ranks of second liners, especially
from among the youth. The Pos still require negotiation skills as well as guidance
and orientation for strategy development and further support for the deep-rooting
of values in order to be successful in negotiations and for further federation
building process. In addition, the name and reputation of NMGL still depends to
a large degree on its close relationship to PDI. Also the question of a proper
resource base for the Pos and NMGL has to be addressed.

For women, their co-ownership in land remains an important challenge. The Aeta have
secured their lands and are now recognized as bona fide members of the larger
society in Zambales. Their knowledge and skills will allow them to make
informed decisions regarding their economic way of life and participation in local
government. The increased literacy level (formal and non-formal) can be seen as
one of the most sustainable impacts of PDI’s program.

Agrarian reform beneficiaries are facing big risks in sustaining their gains due to the
adverse policy environments at the level of local governments. Rather that to
develop agriculture many LGUs are determined to raise revenues from external
investments. Trends in land reclassification and land conversion have provided
more impulse to land speculation which creates disincentives for agricultural
development. Consequently, there is the challenge to enhance the ability of the
Pos to negotiate with local governments to provide appropriate policy and
material support for agriculture and land development.

Cost-benefit assessment

Considering the results and impacts on poverty reduction, gender relationship and on
political participation, the costs of 613.550 Euro for the phase of three years seem
very reasonable as the impacts concern much more than only the beneficiaries of
land transfer and the PO members. The READ Program also provides evidence
that the utilization of strategies sensitized to objective conditions can effectively
enforce land reform in big private agricultural lands at less cost compared to other
past and current strategies.

2.2 Summary of major recommendations

Major recommendations to the POs and NMGL

1. Further develop strength and capacities of the organizations and the federation
and enhance self-reliance as well as independence from PDI, in particular through
a vision development process, capacity development of leaders and deep-rooting
of values as well as by enhancing economic independence.
 2. To expand lobbying and advocacy work from village level to municipality, city,
provincial and regional level on land tenure improvement (LTI) and sustainable
land development and livelihood.

Strategic development of services for members. To be more attractive to

members, a reflection process is recommended as to what extent additional
services and activities could be carried out as a kind of service for members and
member POs.

3. Put more emphasis on gender issues. Gender awareness is increasing, but is

limited to first line leaders. There is a need to promote it on a wider scale.

Major recommendations to PDI

1. Continue the support to NMGL and POs to enhance their ability for action in the
above mentioned aspects by putting more emphasis on increasing their self-
reliance and independence from PDI. A more systematic and periodic assessment
of PO capacities should be carried out in order to ensure increasing autonomy of
the POs by further reducing support of PDI to each organization.

2. Pursue supporting sustainable land development and livelihood as well as

legislative lobbying and good governance beyond the land tenure improvement
struggle as a response to new challenges regarding the frame conditions affecting
the small farmers that go beyond AR and as a strategic orientation to reduce PDI’s
dependence on AR. The question of sustainable land development and
improvement of livelihood requires more conceptual efforts in order to achieve
PDI’s objectives of sustainable and self-reliant families and communities. This
goes far beyond an upgrade in quantity and operationalization of the ESS/SPF.

3. PDI should enhance its presence in the local government units’ legislative forums
and continue lobbying for good governance in AR at all levels in order to further
consolidate achieved institutional changes in DAR and to further enlarge the
possibilities of participation of the farmers.

4. Increase the strength and independence of PDI by development of second-line

managers and systematize efforts in research, monitoring and evaluation by
establishing a management information system.

5. PDI has already recognized the need to more systematically integrate gender
issues in the entire READ program of PDI. Significant attention is required in
defining the co-ownership role of women in distributed lands and in securing
succession of ownership at the household level. The gender orientation of the
program requires more clarity on how broader changes regarding the traditional
roles, the division of labor, and political participation of women are to be
promoted. Gender should not constitute a separate activity or program (e.g.
 economic support services); all the programs and activities should consider and
respect gender issues.

6. The priority for the remaining phase is seen as the consolidation of impacts and
the development of strategies on good governance and sustainable livelihood
development. Key indicators for the achievement of these aspects should be
identified in a dialogue between PDI and the funding partner. It is also
recommended to initiate a reflection about expanding the program. EED/EZE and
other funding organizations should be involved in this reflection as a geographical
expansion also would require an increase in funds.

Recommendations to EED/EZE

1. Based on the achievements of PDI, it is recommended that EED/EZE continues

its support to PDI beyond the present program phase. It is evident that
empowerment programs such as the READ-Program need long-term support.
The high degree of autonomy and responsibility given to PDI should be
maintained.

2. EED/EZE should encourage PDI to put more emphasis on impacts in its

management and reporting system as well as to develop second-line leaders.

3. In light of the achievements of the READ program it seems desirable to expand it

to other geographical areas. However, the evaluation team suggests that priority
is given to the consolidation of the empowerment of POs and NMGL in Central
Luzon and to the development of complementary areas of action, in particular
land development and legislative lobbying. Once these respective objectives are
achieved, an expansion of PDI’s program should be considered.

4. It is recommended that EED/EZE should use lessons of the READ program for
other programs in similar fields as well as for lobbying, education and PR in
Germany and “in the North” in general. Partners like PDI can make valuable
contributions to the dialogue between South and North by authentically
explaining and conveying perceptions and perspectives of the civil societies they
are part of. Such deliberate attempts at linking projects in (and actors from) the
South systematically with activities and actors in the North will further gain in
importance.

Recommendations to BMZ

It is recommended that BMZ takes into consideration to create a platform for the
exchange of ideas and experience on evaluation methodology in general and
participatory evaluation in particular. Participatory evaluation methodology should
be considered especially for the rest of the series of annual BMZ evaluations (2002-
2007) of projects of the German Church Development Organizations.
2.3 Findings and recommendations in regard to the seven key questions of this
series of evaluations

The following recommendations are based on the findings of the evaluation and are
addressed to other programs.

Program objective and strategy

A comprehensive strategy for empowerment of the poor uses a combination of capacity

development, organizational development, value formation, and development of
hope for farmers. The strategy also comprises indirect structural poverty
orientation with an additional aspect of direct poverty reduction by increased asset
development and economic programs. The self-reliance of farmers and their
organizations should be an objective from the beginning.

A participatory bottom-up planning process should result in the existence of a shared

vision and objectives among people and staff. The ability and emotional
inclination of staff to translate the planning into action is important. The content
of the program should touch emotions of the farmers. A high ownership and
commitment of farmers can be achieved if the program’s issues correspond with
their felt needs.

Aspects regarding implementation of the program and attitudes and behavior

Clarity of roles, mutual feed-back and the respect of values are essential elements in a
respectful cooperation between program and farmers. Weaknesses should be
communicated and perceived in a motivating way as challenges.

Dialogue orientation and openness for communication with different forces / actors at all
levels are favorable. Negotiation strategies and cooperation should be conceived
according to results of studies and research work. Conflicts should be perceived
as “normal” and as an instrument for change and constructive ways of dealing
with them should be sought.

Similar programs should develop close cooperation and trust with the government while
keeping their own independence as an NGO. Institutionalized discussion and
negotiation forums are able to reduce the distance between civil society and
government. The institutionalization can be facilitated by access to the top
management of relevant government organizations, good reputation and
networking.

Working at all levels from grassroots to national level in a way that each level benefits
from the work at other levels proved to be effective.

Programs should be implemented with a high degree of flexibility, site specific, issue
based and process oriented respecting transparent principles and values rather
 than sticking to fixed working plans. The values behind attitudes and behavior of
director and staff should correlate with the content of the program which is
“preached” to the farmers. Also the management style has to correlate with these
values of the program.

It is very relevant that staff are committed as well as personally and emotionally affected
by the program’s issues.

Independence from political parties should be assured. The work with the farmers and
POs is law implementation and should not be misused for political / ideological
mobilization.

Relation to the funding partner

The high degree of autonomy in implementation for the implementing organization

should be based on a transparent agreement of objectives and shared values and
vision with the funding partner. The correlation in values and vision between
funding organization and implementing partner forms a basis for mutual
understanding and continuity of support offering a broad space of autonomy.

3 Brief description of the program

3.1 Brief description of the concept

The program “Rural Empowerment through Agrarian / Asset Development (READ

Program)” is implemented by the Project Development Institute (PDI),
Philippines. It is supported by the German Protestant Church Development
Service (EED/EZE) with funds from the Federal Ministry for Economic
Cooperation and Development (BMZ).

PDI began in 1990 with a vision of strengthening and building organizations committed
to the pursuit of genuine agrarian reform and rural development. As a NGO, PDI
has worked several years mainly in the provinces of Zambales and Nueva Ecija
with the victims of the Mount Pinatubo eruption and the earthquake victims of
Carranglan in order to organize them and to become owner cultivators of their
land and actively participate in local governance. In the mid 1990s, PDI enlarged
the area of operation to other provinces and covers entire Central Luzon today.

Today, the vision of PDI is to build self-reliant communities through people’s initiatives.
According to PDI, land reform, including legally secure access to land, is one of
the most important preconditions for sustainable rural development.
Consequently, PDI adheres to the Genuine Agrarian Reform (GAR) framework,
which PDI formulates as follows: land tenure improvement (LTI) as well as social
and economic support services should be provided to the farmers simultaneously,
based on and done through people’s participation. Vested interests, particularly
political ones, are to be avoided. The READ program applies these ideas to
 Central Luzon. It focuses on negotiations with the Department of Agrarian
Reform (DAR) and the government for asset redistribution to the peasants and
indigenous people who are also in the forefront of negotiations. They are
empowered by PDI through capacity development, organizational support and
some economic support services.

PDI’s main role is to encourage and support farmers, farm workers and indigenous
peoples to mobilize themselves into organizations and to stand for their rights in
Agrarian Reform (AR) in order to become legal owners of agricultural land. The
ownership of the land they till should give them a stake in the social order and
contribute to social and political stability. In addition, PDI, as an NGO, acts as a
pressure group urging the government to give the farmers the opportunity to own
land. The POs in the forefront shall demand their right to land and basic needs.
This NGO-PO partnership is an alternative approach to the top-down approach
being employed by the DAR in the implementation of Agrarian Reform.

The READ program is the main program of PDI. Other programs (current and past) are
presented in the Annex, pages 27 – 31. Specifically, the 3-year READ program
aims

• To build autonomous rural people’s organizations that can undertake critical

engagement with the state on agrarian matters through institution building.
• To promote and develop sustainable economic activities that meet the most urgent
or priority needs of the farmers and Aeta indigenous people, to integrate
backward and forward linkages and close the production-market finance-
organization loop.
• To develop agrarian reform participatory paralegal and policy research, advocacy
and lobby work with the people’s organizations.

Tabulated overview

Project Partner Project Development Institute

Project Name Rural Empowerment Through Agrarian Development
Project Number 20010281 G (EZE); 2001.7510.9 (BMZ)
Duration of the Program 3 years (11/2001 – 10/2004)
Target Group Peasants and Aeta indigenous people of Central Luzon
Overall Aim Building self-reliant communities through people’s initiatives
Program Aim Build autonomous rural people’s organizations.
Promote and develop sustainable economic activities.
Develop agrarian reform participatory paralegal and policy
research, advocacy and lobby work with the POs.
Desired Results Land transfer and viable economic support services in
organized agrarian reform communities.
Financial Input EZE: 475.500 Euro
Local Contribution: 138.050 Euro
 Total: 613.550 Euro

In addition, the NGO 11.11.11.contributes 83.387 Euro for

Nueva Ecija (2002 - 2003) and PATH contributes
38.710 Euro for Palawan only (2002 – 2003).

4 General conditions
4.1 Political, economic, ecological, social and socio-cultural conditions

4.1.1 The program area

PDI’s READ program is implemented in Central Luzon, Philippines, in the provinces of

Nueva Ecija, Bulacan, Pampanga, Tarlac, Bataan and Zambales.3 Central Luzon
is one of the biggest regions in the Philippines in terms of land area and is located
closely to the National Capital Region. Today, but moreover up to the mid-
1970’2, the region played also a vital role in the country’s development as the rice
granary of the Philippines when the government’s Green Revolution Program
promoted widespread rice production in all parts of the country supported by
substantial investments in irrigation. In the regional division of the Philippine
territory, Central Luzon belongs to Region III. The following table gives an
overview about the main data of Central Luzon.

Land Area, Population and Political Territories of Central Luzon Provinces

Province Land Area Population Munici- Cities Barangays Agricultural
(ha) palities Barangays
Tarlac 305,340 1,068,783 17 1 510 463
Nueva 528,430 1,628,299 27 5 817 404
Ecij
a
Pampanga 218,070 1,618,759 20 2 570 421
Bulacan 262,500 2,234,088 22 2 568 399
Bataan 137,300 580,673 11 1 211 25
Zambales 371,440 433,542 13 1 193 178
(Aurora) 323,950 168,099 8 - 115 11
Total 2,147,030 7,732,243 118 12 2,984 1,901
Aurora Province is not part of PDI’s program area.

PDI’s program area has a total population of almost 8 million on a land area of 1.82
million hectares of which 644.475 hectares are considered arable. In the 1970’s,
Central Luzon had a largely rural and agrarian population. This landscape has
radically changed in the 1990s with urbanization transforming the demographic
landscape with only 40 percent of the population classified as rural.
3
The Province of Aurora is also part of Central Luzon but is not covered by PDI.
The highest rates of urbanization are observed in Bulacan and Bataan (80%) as well as in
Pampanga (70%). These provinces also have the highest population densities with
702 persons per kilometre2 in Pampanga and 573 persons per kilometre2 in
Bulacan. This feature is evidence by the emergence of new types of residential,
commercial and industrial centres which were traditionally confined within the
National Capital Region (NCR) and other main cities. Zambales has the lowest
density of 151 persons per kilometre2.

While agriculture is the economic base of the region, a significant percentage of

economic activities can be seen also in the region’s industrial centers. There are
three special activities can be seen also in the region’s industrial centers. There
are three special economic zones, two of these are actually industrial enclaves that
are hubs of factories engaged in light manufacturing and semi-processing for
export and re-export. The other is the Subic Bay Freeport. Other economic
activities include trading, manufacturing, artisan craftsmanship and urban
underground economy.

Indigenous People

When Mount Pinatubo erupted in 1991, vast areas in Central Luzon, mostly agricultural
lands, were covered by tons of volcanic debris 4 . Flooding became the next big
problem experienced by the people. Aeta 5 , the indigenous people that comprise a
significant portion of the population in Zambales, had to be uprooted from their
ancestral homeland and relocated. A new feature in the demographic arena is the
emergence of indigenous people’s communities resettlement areas in Zambales
and Nueva Ecija for the disaster victims.

Traditionally marginalized, these communities underwent a painful process of integration

into the lowland communities. Relying on subsistence, their quality of life
degenerated when they were uprooted from their upland settlement during the
eruption of Mt. Pinatubo. The government’s massive emergency response
program fell short of expectations. The resettlement areas did not afford victims
sufficient means to access basic services from government or to seek
opportunities for livelihoods.
4
The eruption of Mt. Pinatubo has diminished, if not totally negated, the utility of 59,000 hectares of land
plus another 47.625 hectares which are prone to lahar avalanches. As of 1995, around 10 to 15 million
cubic meters of lahar deposits ahd settled on the affected areas seriously affecting the municipalities of
Bacolor (Pampanga) and Conception (Tarlac). The lahar flow affected 4.19 percent of the total land area
of Tarlac. In Bataan, 11,774 hectares have been affected by lahar flows. Overall , the most affectred
provinces are Zambales, Pampanga and Tarlac. The effects not only increased the vulnerabilities of the
rural poor but also displaced the Aeta from their ancestral domains.
5
The Aeta, like other indigenous tribes in the Philippines, are upland dwellers who were driven away
from thief ancestral lands in the lowlands during colonial times. Some of them who inhabited the areas
around the former Subic Naval Base (Zambales) and Clark Air Force Base (Pampanga) were mobilized
by American forces as orderlies or as guides in special warfare training. They have distinct phusical
features (dark skin, curly hair) that traditionally became a factor in the biases of lowlanders against them.
The Aetas in Zambales, Bataan and Pampanga now co-exist with lowlanders. While they
have assimilated some cultural elements like the lowlanders’ style of clothing and
communication, they have maintained their distinct identity without being ill-
treated as before. In fact, some Aeta leaders also take the lead in POs where
members include lowlanders. In Nueva Ecija, Igorots who had been displaced by
the earthquake in the early 90s resettled in Laur. Changes in livelihood for this
group are not as profound as that of the Aeta in Zambales because agriculture in
similar hilly places also was their source of livelihood before.

4.1.2 The extent of poverty in the program area

As of 1997, 37% of the Philippine population remains below the poverty threshold of
PHP 11.319 per capita, 20% of the entire population, but 42% of the rural
population, live below the food threshold of PHP 7.710 per capita (115 Euro).
Between 1994 and 1997, incidence reduction in urban areas went much faster
than rural areas. These reductions occurred amidst the increase of annual per
capita poverty thresholds from PHP 3.744 in 1985 to PHP 11.388 in 1997.

However, while the number of the urban poor families decreased from 1.52 million to
1.20 million from 1994 to 1997, the total number of poor rural households
increased frp, 3.00 million to 3.30 million during the same period, whqat amounts
to an increase of 10 percent.

According to the latest national statistics of poverty6 , none of the Central Luzon
provinces belong to the 20 provinces with the highest poverty incidence or
magnitude in the Philippines except Nueva Ecija. However, the highest
concentration of poor individuals in on the Luzon island 9excluding the National
Capital Region) with its poor population growing from 10 million in 1985 to 11
million in 1997 or 40% of the national total of 26.7 million.

In 1994, there were a total of 330,000 poor families in the actual intervention area of
PDI’s program, with Nueva Ecija alone contributing 102,000 poor families (see
table below). There are no available poverty figures concerning indigenous
peoples (Aeta and Igorots0 or other groups. 7

6
1997 Philippine Poverty Statistics, NSCB.
7
Their level of poverty can only be inferred from the geographic locations where they reside but then it is
also quite impossible to determine variances because statistics are not sensitive to ethnic identity –
reducing the population to either Christian, non-Christian or Muslim.
Poverty Incidence in the Program Area (Families) – Head & Count measure by
Province
Province 1991 1994
Incidence % Ran Magnitude Incidence Rank Magnitude
%
Philippines 39.9 35.5
Aurora 41.9 50 12.590 51.2 33 17.048
Bataan 35.9 60 32.505 31.3 62 30.949
Bulacan 20.4 71 58.450 17.3 72 53.329
Nueva Ecija 47.6 40 132.005 36.9 58 102.332
Pampanga 29.8 67 82.555 24.8 66 73.123
Zambales 36.9 57 45.067 41.4 51 53.677
Central 25.1 363.172 24.5 330.458
Luzo
n
Source: Family Income and Expenditure Survey, NSO (more recent figures were not
available)

Government strategies and programs to reduce poverty are presented in the Annex (page
55). There are no indications that any programs (e.g. KALAHI convergence
mechanisms) will be established in Central Luzon.

4.1.3 Relevant processes in the program area

Among the lowlanders, there are characteristic changes in the way of life of poor farmers.
These changes are not only influenced by inter-cultural exchanges between them
and other peoples within and outside the country through tourism, radio,
newspapers and television but also because of economic transitions that affect
their traditional livelihoods. The growth of commercial and industrial centers
around farm lands has impacted the choices made by youth. There is a growing
tendency among the youth to prefer non-farm modes of existence by mobilizing
whatever knowledge and skills they have acquired as a means of generating
income. It is for this reason that farming is getting to be associated with the older
population as only a few young people are interested in banking their future on
the land.

Traditionally confined to the agricultural mode of production, farmers are now

confronted with the twin challenges of protecting their interest in agriculture and
competing in the labor markets. Those who do not own land are forced to shift to
wage labor in fluctuating labor markets. Those who own land are threatened with
displacement due to external pressure. Characteristically, rural populations and
agricultural lands are being encircled by fast developing urban, commercial and
industrial centers.
In Central Luzon, Bulacan and Nueva Ecija have been affected by the northern expansion
of Metro Manila. Other provinces like Pampanga, Zambales and Bataan have
been affected by the conversion of the former Subic Naval Base and Clark Air
Base into economic zones that have attracted not only foreign investments but
also created subsidiary industries and commerce over a wide radius. The entry of
foreign investments has attracted the rural-based labor force and has instigated the
emergence of service-related subsidiary industries. New space requirements
outside of the economic zones to absorb new industries and commercial centers as
well as labor entrants have inflated land prices. This feature is evidenced by the
following trends:

Increasing land use conversion (from agricultural to commercial and industrial uses)
at 14 percent per year from 1994-1997 8 , the fastest rate is observed in Bulacan.
Decreasing farm sizes, from 3.22 hectares in 1960 to 1.77 hectares by 1991 (NSO).
Emergence of industrial and commercial centers within a 5 to 15 kilometers radius
from agricultural areas.
Intensive construction of national and provincial highways traversing farm lands thus
creating new opportunities as well as serious threats to farmers and agriculture.
Where farmers are able to modernize their agriculture, they are able to seize
market opportunities. However, where farmers are unable to utilize their lands
effectively, they are tempted to sell their lands to speculators.
Decline in hectarage of rice production in areas under intense pressure from
urbanization. In Bulacan, rice areas have declined by 46 percent from 76.170
hectares in 1993 to 40.857 hectares by 1998. Nueva Ecija, a traditional granary of
the region, has decreased its rice lands by 14 percent from 238.600 hectares in
1993 to 203.460 hectares by 1998.

Based on physical evidence, there are indications that investment flows to the region are
directed towards commercial and industrial activities rather than agriculture. Due
to weak capacities of farming communities, these investments currently represent
a threat to agriculture. Moreover, the conflicting laws, designed by the policy
makers who are themselves big landowners, favor the existing power relations in
the region that protect5 their interests. There is a great need for farmers and for
agriculture to benefit from these investment flows without necessarily giving up
agricultural lands for other uses.

4.2 Brief analysis of the sector in which the program operates

4.2.1 Land ownership, struggle for land and CARP

Historically, land ownership has been the economic base of the political aristocracy. The
pre-colonial notion of ancestral and collective ownership of land was transformed
by the Spaniards. Spanish colonialism introduced the so-called regalian doctrine
where the whole colony was “owned” by the Spanish king. With the rise of

8
According to a study by the Philippine Peasant Institute.
 American colonial power, the Spanish king would later ‘sell” the whole country
to the Americans for $10 million. 9 The Americans introduced the “Torrens”
concept through a series of land laws that was unknown to many and effectively
dispossessed the majority of the native population.

Land remains the most important asset of farmers. For generations, they depended on the
patronage of landowners. Landlessness became the root of more than 300 peasant
revolts during the Spanish colonial period. The same landlessness formed the
basis of a communist-led insurgency. In the late 1930’s, Central Luzon became
the bulwark of the socialist movement that built on the peasant demand for land.
Landlessness and unjust agrarian relations under the tenancy system led to armed
struggles. During the Second World War, the peasantry was led by the Partido
Komunista ng Pilipinas (PKP, or Communist Party of the Philippines) and the
Hukbong Bayan Laban sa Hapon (HUKBALAHAP or People’s Resistance Army
Against Japan).

After the Second World War, the same communist party and a renamed rebel army called
the Hukbong Mapagpalaya ng Bayan ( HMB or People’s Liberation Army) were
active; from the late 1960’s on, the Re-Established Communist Party of the
Philippines (CPP, Maoist) and its armed wing, the New People’s Army (NPA)
were involved.

In 1972, under martial law, the government implemented the land reform titled Operation
Land Transfer (OLT) in rice and corn lands covering 581,567 hectares throughout
the country. At the time, Central Luzon had the highest concentration of these
lands at 198.502 hectares or 34 percent of the national scope. However, the law
exempted other types of land, thus sustaining landlord monopoly.

Many landless peasants of Central Luzon have tried various strategies for claiming their
rights, often at the cost of lives and limbs. A series of land laws during the post-
war period attempted to address the problem of tenancy and landlessness either
through regulation of tenancy or resettlement including the resettlement of former
rebels to Mindanao. But most of the laws fell short of the aspirations of the
tenants and landless. This was basically because the fact that the laws were
framed by landlord-politicians who were unwilling to give up their landholdings.
Today, political power in rural areas is still largely based on land monopoly or
wealth generated from land use or its transformation to other uses. Control of
land also means political dominance over farming families who depend on the
landowner’s land for subsistence.

The present ranks of farmer-claimants are third generation claimants. Their rights claims
bear the mark of preceding struggles. This generation is ageing and most have
lost the chance of getting sufficient education and skills to survive in labor
markets off the land. Without land, they have no other assets but their unskilled
labor. They need the land to support themselves and their children. Landlessness
9
Treaty of Paris, December 1898.
 is the single biggest problem causing poverty in the region. A further
characteristic is the high incidence of share tenancy (and leaseholding from the
70s onward), but also the early emergence of a broad layer of landless laborers.
These people really don’t have any land to till and just depend on income from
seasonal wage labor with landlords or the share tenants and leasehold farmers.
This social stratum, which is economically still below tenants and small owner
operators, risks to not to be considered in CARP.

Agrarian reform was and is supposed to break this economic and political monopoly and
the inequity. However, landowners have always been resistant to reform ever
since the Comprehensive Agrarian Reform Law (CARL) was crafted in 1987. In
1988, the Comprehensive Agrarian Reform Program (CARP) was enacted and
implemented. Land Tenure Improvement (LTI) and Program Beneficiaries
Development (PBD) are the twin goals of the agrarian reform program. LTI
embodies the goal of tenurial reform through the redistribution of land to the
actual tillers. PBD includes economic support services, support for farming and
off-farm activities, infrastructure support etc. and aims to strengthen the farmers’
capability to9 develop the land and eventually improve their socio-economic well-
being and political participation. The law provides for the distribution of all tracts
of land suitable for agricultural production. In addition, leasehold arrangements
are also stipulated under the Comprehensive Agrarian Reform law (CARL). They
can be explored as possible alternatives to solve the land issues of highly
contentious private agricultural lands.

The peasants should be active participants at all levels and stages of decision making
rather than passive recipients of government development aid. Thus, the whole
process should be demand-driven rather than supply-based.

It is paradoxical that in 1998, while the government established the NAPC to

operationalise the war against poverty, it also began to reduce spending for
agrarian reform. This resulted in the slow down of asset redistribution while
increasing the trend in conversion of agricultural land to non-agricultural uses.
Data gathered by the evaluation team indicate that the strategy of addressing
poverty through asset distribution is now largely left in the hands of the
Department of Agrarian Reform and civil society organizations like PDI and
farmers’ organizations. This strategy, however, is saddled not only with resource
constraints such as capital investments, technology and human resource capacities
of agrarian reform beneficiaries but also by policy constraints by local authorities.

4.2.2 Status of CARP Implementation

Many assess the implementation of the Comprehensive Agrarian Reform Program

(CARP) as slow. Some sectors say that this is due to the lack of political will of
the government. Nationwide, DAR is tasked to distribute the remaining 1.38
million hectares of 32% of the total land acquisition and distribution (LAD) scope
 of 4.69 million hectares by 2008. It has not been determined how much support
service still needs to be delivered.

The area of the READ program has a total land area of 1.82 million hectares of which
644.475 hectares are considered arable. Based on physical changes occurring in
the region, there are clear indications that the actual extent of agricultural lands
may have been reduced significantly. Based on ocular observation during the
field visits, the evaluators have noted physical evidence of increasing urbanization
especially in Bulacan, Nueva Ecija, Tarlac, Pampanga and Bataan and in pockets
of territories in Zambales.

The DAR in Central Luzon has a working scope of 406,508 hectares, another 231,447
hectares of CARP lands with more than 18 degrees slope are under the mandate of
the DENR. The DAR’s LTI accomplishment as of July 2003 is 389,419 hectares
or 96 percent of DAR‘s target in Central Luzon. This accomplishment benefited
280,309 farmers or an average of 1.4 hectares against the upper ceiling in AR law
of 3 hectares per beneficiary family. There is no concrete data on the status of the
distributed lands.

The remaining 4% of the working scope (17,089 hectares) are problematic lands affected
by myriad problems within DAR, landowner resistance and LGU development
plans. The most contentious landholdings are those lands owned by big landlord-
politicians fully entrenched in the higher echelons of power.

4.2.3 Problems of land distribution

Most of the remaining lands are hard targets since the landowners are prominent
economic and political players in the region with direct connections to national
politicians. They have resisted agrarian reform since the 1960s using various
means. There are variations in the quality and depth of problems occurring in
these lands.

Lack of funds

In general, the burgeoning annual budget deficits of government and lack of allocation
for agrarian reform have significantly decreased the capacity of the DAR to
effectively implement their lands or negotiate better financial terms with market
players using the loopholes of the agrarian reform law.

Land conversion and LGU support to commercial land use – side by side with
landowners

There are also indications that landowner resistance is being reinforced by land use plans
of local government units that favor non-agricultural investments. There is a
seeming reluctance of local governments to actively support asset redistribution
such as agrarian reform as a means of alleviating poverty. In most instances, local
 government tend to side with landowners who are aiming to retain control of the
land or those who are negotiating with private business with the end in view of
converting agricultural lands to non-agricultural uses in order to generate
revenues for the LGU.

Physical evidence in Central Luzon shows rapid transformation in land use patterns that
indicate capital inflows towards the commercial, residential and industrial sectors
and less on the agriculture sector. Even irrigated lands are not spared. They are
converted for non-agricultural purposes which is a direct violation of the law.
This trend indicates a serious challenge to agrarian reform and exacerbates two
problem areas.

lack of investments in lands already distributed to agrarian reform beneficiaries; and,

increasing land prices of private agricultural lands which make it difficult for landless
farmers to acquire these lands.

In Bulacan, PDI and NMGL are confronting strong resistance due to land conversion.
There was even a time when the office of the Register of Deeds was burned
erasing all records of original titles to property. This affected the redistribution of
around 2,200 hectares of land. Agrarian reform implementation in the province is
now delayed because of the additional process of reconstitution titles.

Delay due to multiple claims, bogus certificates, resistance of landowners, etc.

In Nueva Ecija, the redistribution of government lands formerly reserved for military use
is being delayed due to multiple claims. In Zambales, PDI and NMGL are
working together with the DAR in correcting anomalies that denied legitimate
farmer-beneficiaries from acquiring the land. The DAR in Zambales used to have
a high rate of accomplishment. On record, it has distributed 29,000 hectares from
a total scope of 30,310 hectares or an accomplishment rate of 96 percent.
However, 41 percent of the distributed lands (12,000 hectares) were covered with
bogus certificates.

Tarlac is a typical case where landlord resistance is strong. It is the home base of the
powerful Cojuangco clan to which the former President, Corazon Aquino,
belongs. The province has 140,000 hectares of agricultural land but only 70,000
hectares is covered by CARP. Although the DAR claims a 97 percent
accomplishment in the province, most of the accomplishment is anomalous due to
double counting and provisional distribution where the certificates are not actually
given to farmer-beneficiaries. Records show that more than 3,000 provisional
titles were hidden in a vault at the DAR provincial office by the former PARO
who is now the Assistant Regional Director for Operations in Region III. Many
of the lands in the province were also shielded from redistribution due to land
swap deals with the DAR.
In Bataan, large portions of lands that rightfully belong to the Aeta have not been
distributed. Moreover, land reform in this province but also elsewhere is
hampered by a low level of awareness among farmers. In Tarlac and Pampanga,
PDI, NMGL and the DAR are confronted by strong resistance from powerful
landowners. In fact, the Provincial Agrarian Reform Officer (PARO) of Tarlac
who is a close ally of PDI and NMGL is currently under threat of being replaced
and transferred due to his determination in helping the farmers.

4.2.4 Resistance of landowners and their strategies

While the CARL promotes social justice through land redistribution, it also recognizes
the private property rights of landowners. Hence, landowners can seek protection
using the “just compensation” provision of the law. Even in cases where lands
are transferred to farmer-beneficiaries through Compulsory Acquisition (CA),
landowners can delay the process through various tactics such as hiding the
original copy of the title (without which CLOAs in favor of beneficiaries cannot
be generated and issued) or by refusing to accept the land valuation. Even if
CLOAs are already generated, landowners may refuse to accept the payment
through the Land Bank and use this refusal as an extended mode to delay the
process by going to the Special Agrarian Court to petition for higher valuation.10
Landowners also have other means at their disposal:

they can submit a petition for land conversion and use monetary incentives to convince
government officials, including DAR officials, into endorsing the petition,
like many other big landowners and politicians have already done, they can “distribute”
the land to their preferred beneficiaries, including their drivers and maids, and
then reconsolidate control without any opposition. The Cojuanco property in
Gerona, Tarlac, has traces of redistribution by “preference” such that despite the
supposed generation of CLOAs, the legitimate beneficiaries have never received
them – not until PDI, SMMC and the DAR worked together to correct the
anomaly.

There are also cases where landowners collaborated with the military and tried to
denounce PDI staff as communist underground fighters.

4.2.5 Agriculture in Central Luzon

Small parcels and importance of rice

Almost 80% of the farming population in Central Luzon does not own enough land to till
to support a decent life. It is either they do not own any or have only a small
parcel of land that cannot generate enough earnings. Most of them are engaged in
a share-tenancy relationship with those who own much larger pieces of land.

10
In Mindanao, many agrarian reform cooperatives are now paying amortization of land several times over
the original valuation.
The region remains a rice granary producing 23% of the total national output of 5.5
million tons even as major islands like Panay and Mindanao have developed their
own rice industries on a large scale. Almost 80% of the total crop land area of
644,000 hectares in Central Luzon were cultivated with rice and produced 1.3
million tons of which 50% were obtained solely in Nueva Ecija in 1998. During
that year, the country had a supply deficit of 1.8 million tons. The incentives for
rice production are decreasing and investment in irrigation infrastructure has
stagnated. The long years of chemical-based rice farming has increase production
costs so that Philippine rice can no longer compete with their cheaper counterparts
in Thailand or Vietnam. The only incentive influencing farmers to maintain rice
farms is their food needs and their inability to raise capital to shift to other crops.
Coupled with adverse external factors, there is growing pressure on rice farmers
to give up their lands for other uses 11 . Those without assistance are prone to make
ill-informed decisions, giving up land easily for short term benefits.

Ecological dimensions and effects of modernization of the agriculture in Central

Luzon

There are four major ecological dimensions in the program area: the effects of natural
disasters such as the Mt. Pinatubo eruption, twenty typhoons affecting the region
from 1990 to 1999 damaging rice crops valued at PHP 600 million, the effects of
chemical-based farm practices in rice agriculture since the 1970’s, and, the
potential negative effects of the government’s promotion of hybrid rice
production that is largely dependent on chemical inputs.

Chemical bases rice agriculture modernization in Central Luzon started during the Green
Revolution Program in the 1970s. This was characterized by the introduction of
High Yield Varieties of rice coupled with widespread installation of irrigation
systems in particular in Central Luzon. Presently, extensive irrigation and
chemical based farming have produced negative impacts (for details see Annex,
page 62).

4.2.6 Sustainable and alternative land development efforts

There is no coherent pattern of rural development approaches employed by the

government or its agencies. National policy for rural development is largely
reactive to changes in the international economy. Under the current setting, the
government promotes a neo-liberal approach to the economy with bias towards
promotion of foreign and domestic investments without precautionary measures
11
Metro Manila’s growing needs for space4 has impacted on the southern and northern ends of the
metropolis. Bulacan, being adjacent to the city, has exper5ienced the most rapid changes in terms of
infrastructure development. Former rice lands have been converted into residential and commercial
areas. Land developers and small operators have also leapfrogged into major centers in Eueva Ecija,
Pampanga and Tarlac carving industrial-commercial enclaves that tend to inflate land prices. These
changes create a ripple effect that influences the decision making and planning procces of local farmers.
 against their negative impact on the rural economy 12 . The most crucial and still
un-addressed challenge of the DAR and allied NGOs is the effective utilization of
the lands already acquired under CARP. National data indicate difficulties in
showing economic impact of agrarian reform in terms of improvements in
productivity and incomes.

The DAR’s strategy of land development focuses on agrarian reform communities

(ARCs) which is being supported by a couple of donors (ODA, EU, World Bank
and ADB). The resources are deployed mainly in 170 ARCs covering 687
Barangays which are only 38% of the agricultural Barangays. In terms of
beneficiary access, ODA support is failing below 27 percent of agrarian reform
beneficiaries. In addition, the support is falling below expectations because of
diminishing foreign donor support (also caused by lack of government equity
necessary to9 activated ODA funds) and biased towards supplementary support
rather than direct investments on agrarian reform lands.

The Philippine Rural Reconstruction Movement (PRRM), one of the biggest NGOs in the
country, embarked on medium term Sustainable Local Economy Development
(SLED) Program in Nueva Ecija, Camarines Sur, Bataan, Cotabato and Ifugao
from 1994 until 2002. The model was built around a strong peasant movement
promoting sustainable agriculture and enterprise development with elements of
fair trade. Each province focused on crops where it has the most comparative
advantage. However, none of the local models have shown strong chances of
survival in open markets 13 . In the case of PDI and NMGL areas of operation,
there is a lack of economic strategies that directly address the utilization of lands
covered by the agrarian reform program. The READ Program centers in the
present phase on land acquisition for the farmers. 14

It has become apparent that only the DAR and well-meaning NGOs like PDI are
determined to promote rural development strategies that combine asset
redistribution and appropriate technologies for agriculture development. There
are a number of specific rural development approaches promoted by the NGO
community in the region but most often they fall short of their expectations either
due to lack of resources or due to inefficiency.

12
For the impacts of this strategy on the Philippine economy see Annex, pages 60.
13
In Mindanao, many agriculture-based NGOs have promoted organically-grown rice with substantial
support from donor agencies. Still, the models failed when tested against rules in the open market. The
only successful models are few and often they are evolutions, not by design but by demand side pressure
from markets. One of the features in the failed models is the element of fund driven push from NGOs
and donors. Conversely, one of the strengths of successful models are those driven by demand from
markets where the cost of production is often paid for by markets, not donor funds. Government-
supported agriculture projects through cooperatives supported by the Cooperative Development
Authority (CDA) and the Land Bank of the Philippines (LBP), have suffered more significant losses.
14
In addition, PDI has defined a land-use strategy which espouses sustainable agriculture and establishing
sustainable economic activities that integrate the pre- and post-production linkages and close the
production-market finance-organization loop, however, the resource allocation does not allow to enhance
this aspect.
4.3 Analysis of the institutional framework

4.3.1 Local governance, rural development and agrarian reform

Decentralization and devolution under the Local Government Code of 1991 have
empowered local governments to chart their own economic and political destinies
including changes in land use policies and distribution of power. The Local
Government Code was enacted not only to de-clog government administration
but, more importantly, to promote local government autonomy. The law provides
for decentralization of power by devolving functions of national line agencies.
The only line agency that has not been devolved to local governments is the
Department of Agrarian Reform (DAR) which is a blessing for farmer-
beneficiaries because of the conflict of interest between local officials who are
also land owners and farmer-claimants. The DAR maintains a centrally-managed
structure and operation even as geographic areas are covered by subsidiary offices
at the regional, provincial and municipal level. The only difference is that unlike
other agencies, the local officials of the DAR are not beholden to local
governments.

Two of the major weaknesses of decentralization and devolution are the following:

One, the empowerment of local governments came at a time when poser relations in local
territories have not been democratized in such a manner that the poor are able to
effectively participate in local governance. Thus the empowerment process
bestowed more power to local elites in an environment when rural
democratization was not yet fully developed;
Two, the devolution of functions of the line agencies was not matched with devolution of
resources. Much of line agency resources remain at the national level. Thus,
basic services of government suffer from insufficient funding.

4.3.2 The different actors and their interests

Local Governments

The lack of resources at the local government level provides an explanation as to why
local officials tend to favor external investments without necessarily protecting
their agriculture. The common thinking among local officials is that agrarian
reform does not respond to their needs for revenues. This is exacerbated by
the perception that lands covered by agrarian reform are immediately taken away
from land markets due to restrictions of sale and transfer and agrarian reform
cooperatives are tax free. As a result, local governments have become a counter-
pole to the mandate of the DAR in implementing agrarian reform. While most
local governments have not formally articulated rural development strategies,
their current behavior implies bias towards aggregate growth rather than
addressing inequalities in land ownership.
Department of Agriculture

The functions of the Department of Agriculture have been decentralized but still maintain
a centrally managed budget for programs. This results in difficulties in program
planning and implementation. Nevertheless, the behavior of the Department and
its devolved agencies indicate a bias towards export led growth and promotion of
rice technologies that will encourage reduction of food production areas.

Department of Agrarian Reform

Since the enactment of RA 6657 or the Comprehensive Agrarian Reform Law (CARL),
DAR has prioritized land transfer work, making support service delivery to
farmers a secondary task. The DAR bureaucracy has about 14,000 staff, of which
1,100 are in the Central Office and a total of 12,900 in the field. LTI work
consumes most of the time of the DAR field personnel because their evaluation is
based on LTI targets. The yardstick of performance is the amount of land or
hectarage transferred and not the number of installed farmers and the maximum
utilization of the lands, which will eventually improve the life of the farmers.

However, there is a big question regarding the correlation of the slow pace of the
implementation of agrarian reform and the seeming focus of DAR personnel on
LTI work. There are also questions by agrarian reform advocates on whether they
are serious in working to transfer land to the peasants or helping landowners to
avoid being covered by CARP. According to PDI, the root cause of the problem
is the top-down approach employed by the DAT. There is lack of social
preparation of the farmer be4neficiaries and disregard by the government of social
capital formation.

Civil Society Organizations and Institutions

Other than PDI and NMGL, the most socially perceivable organizations operating in the
region are underground organizations linked to the CPP-NPA and other factions
of the communist movement. Although PDI does not have direct links or any
form of cooperation with them, it is respected and afforded access to remote areas
without being put in harm’s way.

There are a couple of other national and local NGOs operating in Central Luzon.
However, due to the vastness of the region and the variety of problems and needs,
these NGOs either operate bases on sectoral concerns or on specific geographic
locations. The only other organizations that come close to PDI’s program areas
are UNORKA, a national peasant alliance, and its close ally Peace Foundation.
However, both are specialized in claim making and peasant mobilizations. In
Pampanga, there is the Pampanga Disaster Resource Network (PDRN) which is
focused mainly on disaster response and does not have any involvement in
 agrarian reform. The networking partners of PDI are presented in chapter 6.1.4
page 46.

4.3.3 Rural poor participation in governance and power relations

The poor farmers and indigenous people of Central Luzon have traditionally been
marginalized. The implementation of the Local Government Code in 1991 and
the succeeding momentum towards decentralization have gone far ahead of
democratization in asset ownership. Thus, the transformation of political
governance that highlights local government autonomy is not substantiated by
participation of the rural poor and the indigenous peoples. LGUs, in fact,
create/install their own NGOs just to comply with the Local Government Code
and in order to preserve and protect their own interests.

Power relations in the rural areas of Central Luzon remain imbalanced with the power
centers occupied by political elites coming from the land-owning class or the
emerging local bourgeoisie that generated capi9tal from their vast landholdings
including their illegally converted lands which can even surpass the figure of
legally converted agricultural lands. Political clans determine successions in local
politics in conjunction with national political patrons rather than from a
democratic baser of informed rural people. It is for this reason that local
participation in governance is underdeveloped.

Currently, the chances of effective participation by the rural poor and indigenous peoples
are developed mainly through intermediation by NGOs or through their capacity
to organize and become a potent force that can exert pressure on local authorities.
Itinitial successes in Bulacan and Pampanga indicate that it is possible for PDFI
and NMGL to influence local policy making in favor of agrarian reform farmers
and in favor of agricultural development. However, the favorable policy
environment presently influencing the successes of PDI and NMGTL is mainly
confined to the policy processes involving the DAR.

There is a legal basis for civil society penetration of the state bureaucracy in addition to
its autonomous exercise in pressuring government through activities outside of the
system of administration. The Local Government Code 15 allows the creation of
local development councils (LDCs) that invoke the participation of NGOs and
POs. Although recommendatory in nature, the LDCs can influence policy making
through pro-active formulation of policy recommendations and budgetary
allocations. But local government units mostly see the establishment of POs and
NGOs as a threat rather than a process of empowerment for the rural poor.

4.4 Conclusion in regard to framework conditions

15
The Local Government Code (LGC) provides in Chapter 4, section 34 that, “Local government units
shall promote the establishment and operation of people’s and non-governmental organizations to
become active partners in the pursuit of local autonomy”.
General Conditions

The impoverishment of the peasants, indigenous people and women in Central Luzon
remains a problem. Poverty in Central Luzon has been aggravated by the eruption
of Mount Pinatubo. What used to be an agricultural region, known as rice granary
of the Philippines has now significantly changed. There is a co9ntinuing trend
towards urbanization and corresponding transformation of land use patterns
towards residential, commercial and industrial development. These changes are
occurring amidst difficulties in implementing land redistribution. Most of the
changes impose barriers to the completion of agrarian reform objectives.

Developments in local governance accruing from decentralization and devolution by

virtue of the Local Government Code of 1991 have not been substantiated with
resource transfers. Local governments are dependent on Internal Revenue
Allotments (IRA) from the national government. In terms of volume and
percentage, there is very little allocation for agriculture and almost nil for agrarian
reform beneficiaries. This leads to the inability to provide support for the
farmers’ needs. Furthermore, those who have traditionally held economic and
political power too easily manipulate the LGUs.

Agrarian Reform Sector

There has been a significant advance in the LTI objectives of the DAR. However, there
are very little direct investments on lands that have been acquired. Indirect
support to agriculture and agrarian reform beneficiaries comes mainly from
donor-funded programs on a limited scale covering only 38 percent of agricultural
villages and 27 percent of agrarian reform beneficiaries.

Many of the current claimants and new beneficiaries of agrarian reform have struggle to
claim their lands since the 1960’s. Many have been excluded in the past due to
anomalous transactions within the DAR as well as circumventions of the law by
resisting landowners.

However, after ten years, lands that were buried in volcanic debris have become
productive again and can be covered by the CARP.

Institutional Framework

There are clear indications that the pursuit of agrarian reform, especially the
redistribution of remaining private agricultural lands, is borne mainly by farmer-
claimants through their POs, NGO allies and reform-minded DAR officials.
Weak governance of DAR, weak DAR structures, sometimes complying to
private sector interests (landowners, MNDs that own lands etc.) are hindering
factors for CARP implementation. Local governments tend to prefer revenue
 generation from non-agricultural sources. There is a general reluctance of LGUs
to actively support agrarian reform.

NGO presence in the region is defined by sector and geographic preference. There is
little evidence of inter-NGO cooperation at the local (provincial, municipal and
village) level. Most inter-NGO cooperation occurs at the regional and national
level and is mainly based on commonality of visions and objectives. The
effectiveness of their strategies are largely defined autonomously and/or by the
quality of the NGO, PO and government agency.

5 The READ program and the quality of aims and planning

5.1 The READ program

5.1.1 The Project Development Institute

Background

The Project Development Institute (PDI) is a vo9luntary, non-stock, non-profit

organization established by concerned development workers. It is registered with
the Philippine Securities and Exchange Commission.

PDI began in 1990 with a vision of strengthening and building organizations committed
to the pursuit of genuine agrarian reform and rural development. Today, the
vision of PDI is to build self-reliant communities through people’s initiatives.

PDI defines its mission as to institute partnership with non-governmental organizations.

people’s organization and government organizations as well as the private sector
in agrarian reform and rural development through the establishment of viable and
sustainable plans and projects towards the formation of self-reliant communities.

The objectives of PDI

To strengthen the capabilities of people’s organizations in agrarian reform and rural

development.
To conscientise other sectors of society, specifically intellectuals and professionals into
participating in the process of realizing genuine agrarian reform and rural
development through policy advocacy and participatory research.
To develop community-based Comprehensive Development Programs using participatory
methods in pursuit of genuine agrarian reform.
To undertake program implementation and management in selected areas.
To provide training and education to NGOs, POs, and other institutions to further
strengthen their organizations, upgrade their skills, and broaden their service
coverage.
Before the implementation of the READ program, PDI made relevant experiences when
working in the Zambales and Nueva Ecija provinces for several years in
promotion of the Genuine Agrarian Reform.

5.1.2 The READ program’s aim and objectives

Rural Empowerment through Agrarian Development (READ) aims to achieve the

self-sustainability of peasants and the Aeta indigenous peo0ple in the target areas
of Zambales, Bataan, Pampanga, Bulacan, Tarlac and Northern Palawan by
transforming these areas to the benefit of these marginalized sectors in order to
achieve food security and self-sufficiency through local resource control.
Specifically, the program aims to:

• Build autonomous rural people’s organizations (women’s organizations, farmers’

organizations, indigenous people’s group, and others) that can undertake critical
engagement with the state regarding agrarian matters through institution building.

• Promote and develop sustainable economic activities that meet the most urgent or
priority needs of the farmers and Aeta indigenous people, to integrate pre- and
post-production linkages and close the production-market finance-organization
loop in the five impact areas.

• Develop agrarian reform participatory paralegal and policy research, advocacy

and lobby work with the people’s organizations.

These objectives are further specified by qualitative indicators. In addition, five program
components have been identified:

1. Institutional development building on social capital

2. The right to land: the process of land transfer

3. The right to food: The economic support system

4. Participatory research and policy advocacy

5. Linkage work and international networking

For each of these components, strategies are outlined and indicators have been
formulated

5.1.3 The conceptual framework and strategy of the READ Program

PDI’s sees development as a process of achieving changes in institutional structures that
result in sustained improvements in the productive use of available resources to
meet human needs. According to PDI, sustainable human development for the
 poor peasants means sustainable livelihood, including food security, economic,
social and political empowerment and a sustainable environment. Land reform,
including legally secure access to land, is one of the most important preconditions
for sustainable rural development. The farmers and indigenous people can only
achieve sustainability if they own the land, have control over it as a factor of
production, and have the right to decide on the use of the land.

PDI adheres to the Genuine Agrarian Reform (GAR) framework, which PDI formulates
as follows: 16 Land Tenure Improvement (LTI) as well as social and economic
support services should be provided to the farmers simultaneously, based on and
done through people’s participation. Vested interests, particularly political ones,
are to be avoided. Asset redistribution is to be achieved through negotiations with
the DAR and the government with the peasants and indigenous people in the
forefront. Further, the people must be encouraged to mobilize themselves into
organizations. Being organized helps them to overcome the feelings of weakness
and helplessness. In effect, it enables them to articulate their needs and
collectively act on them as well. Securing for farmers, farm workers and
indigenous people the ownership of the land they till is supposed to give them a
stake in the social order, to render them more likely to defend the social system
and to contribute to social and political stability. It opens the door to lasting
peace based on justice in the countryside and makes national development
possible on a sustainable basis.

The strategy comprises several key-elements and addresses also the poverty of the target
group:

• Develop capacities: To empower the poor by information, training and capacity

development for the analysis of their situations and identification and defence of
their interests.

• Develop organizational strength of farmers: To empower poor and marginalize

farmers by assisting them in organizing themselves, building up their own
people’s organizations and federation at regional level.

• Land Tenure Improvement: To improve the control of the production factor

land in agriculture by the poor as asset development for self-reliance and for
sustainable development.

• Economic Support System to develop additional sources of income in order to

target key constraints of livelihood development and production and develop the
newly acquired resources (land).

16
GAR = PP (LTI + ESS = SIBS) / VI, LTI stands for land tenure improvement; ESS, Economic Support
Service; SIBS, Social infrastructure Building and Strengthening; PP, People’s Participation; and VI,
Vested Interests.
 • Enhance participation in decision making: To empower the poor to participate
in decision making processes at local and regional level and to achieve changes
in institutional structures that result in sustained improvements in the
productive use of available resources to meet the farmers needs.

• Advocacy and lobby work to create the policy and institutional setting within
which such POs can flourish and provide their members with a consequential
voice at both local and national levels in order to influence decision making of
government in favor of their interests. Thereby, experiences at the grassroots
level are used at regional and national level and vice versa.

5.1.4 Target groups and area of operation

The program focuses on potential beneficiaries of agrarian reform, actual beneficiaries of

agrarian reform and land reform beneficiaries of the 1970’s who have been
deprived of their rights to land due to incorrect transactions. Within these groups,
specific attention is being given to the Aeta indigenous people, the peasant groups
of Zambales, the coffee plantation workers of Bataan who are mostly women, the
federation of farmers cooperatives in Pampanga, Tarlac and Bataan, as well as
lowland and upland farmers of Nueva Ecija. In the planning document, PDI
names the total number of its target group as around 17,400 peasants in 2,900
farming families in Central Luzon (1,000 peasants indirectly benefiting 15,000
people for the economic support services). One specific target group and area, the
indigenous people in Culion, Palawan has not been considered in the evaluation
due to the far distances and different situations.

Presently, most of these groups are organized under various types of organizations such
as people’s organizations (POs), cooperatives and associations under the banner
of the NMGL.

The underlying common characteristic is poverty and marginalization due to inequality in

the distribution of assets and opportunities in the economy and politics of the
region. There are no indications that PDI’s program areas and beneficiaries are
also assisted by other NGOs or other donor-funded programs. The Aeta IP
receive assistance from other NGO for other purposes, mainly education.

Presently, the PDI’s program deploys iot s financial and human resources in land
acquisition struggles involving five types of lands:

Resettlement areas carved from public lands after the Mt. Pinatubo volcanic eruption in
1991 (Zambales and Nueva Ecija);

Land reform areas that were ‘distributed’ under anomalous circumstances (Zambales and
Tarlac);
Landed estates that are carryovers of undistributed rice lands that were supposed to be
given to farmers in the 1970s and are now used as commercial farms (Pampanga,
Tarlac); and

Upland areas (Zambales, Bulacan)

The above lands co-exist with other lands where land use patterns are rapidly changing
(see chapter 4.1.3, page 21).

It is important to be aware that the primary target groups of PDI are not selected
according to a geographical area, but determined around issues – namely land
tenure improvement in agrarian reform of the above mentioned lands. A second
criteria is the willingness of farmers to stake for their objective and to commit
themselves.

5.2 Analysis and assessment of aims of the READ program

The assessment of READ’s program planning was carried out from different
perspectives.

From the perspective of a planning expert’s point of view which has clear quality
standards in mind and which uses the scale of “good” planning practice putting
emphasis on analytical and systematic aspects.

From the point of view of those who use and implement the planning of the READ
program.

5.2.1 Assessment of clarity and feasibility of aims and objectives

The formulated aim of the program is achievable for the primary beneficiaries of the
program. The specific program objectives are formulated rather as activities (to
build, to promote, to develop) than as results (what has been achieved). The
indicators for strong peasant organizations are very helpful; however, indicators
are lacking for the other objectives. On the other hand, it has to be appreciated
that PDI undertook the effort to formulate indicators for each program
component. Yet, they are quantified only in regard to the activities but hardly in
regard to effects and impacts 17 . Consequently, they often do not provide a more
detailed description of the results or objectives. In addition, their number is so
high (e.g. 16 indicators for the institutional development building) that they do not
facilitate monitoring concentrate in on the most relevant aspects. This makes it
difficult for outsiders to comprehend the concrete results intended by PDI.

17
For example, the indicators “Land transferred to POs” or “Land cases of the POs resolved” give a
direction but they do not specify the objectives in terms of time and quantity. Also it is specified as to
how many trainings are to be carried out for how3 many participants but the effects of trainings are
formulated in general terms or more related to the activities of PDI e.g. “consolidate and provide solid
foundation for POs” or “equip the POs with the necessary skills”.
PDI argues that these indicators are established to provide guidance on what it aims to
achieve. Quantifying indicators is difficult if the approach is participatory. As
results are dependent on the realistic conditions at the ground level, defined
objectives and targets are set in the bimonthly, monthly, quarterly and half-yearly
assessment and planning.

The objectives give a direction for program implementation, but do not provide milestone
and a time horizon beyond the present three-year program, although it is quite
clear to all parties concerned that further support is required in order to achieve
the desired sustainable impacts. This renders monitoring and measuring of the
program success difficult and does not provide a sound basis for result and impact
oriented program steering. The reason for this may be partly found in the practice
of donors to commit funding only for a program period of three years. According
to PDI, the time horizon is assumed because READ is part of a development
process. As PDI is development oriented, it looks at programs and projects in a
continuum as part of a development process and not as a time-bound project.
The development process is clearly specified in the “Integrated Participatory
Development Programming (IPDP)” (see Annex, page 24) which is being used by
PDI in implementing any program. IPDP looks at programming as a development
process, or phases in continuum, towards achieving sustainability of the
communities.

The aim and objective is realistic; however, the degree of achievement depends on
outside factors, in particular the government CARP program, policy changes for
the agrarian reform and agricultural sector in the Philippines as well as Asian and
international evolutions and policies.

5.2.2 Assessment of poverty orientation

The READ program addresses poverty structurally by its empowerment oriented

approach, social capital building and grasping the opportunities of the legal
framework of the Agrarian Reform Law and the Local Government Code which
provides opportunity for greater political participation and influence of various
groups and organizations (e.g. POs, NGOs). The levels of action reach from the
community up to the national level. The program also addresses rural poverty
directly, i.e. mainly through LTI and economic support and components.
Considering the budget of PDI, the poverty orientation is assessed to be very
effective and appropriate.

5.2.3. Consideration of gender issues

PDI is committed to gender equality in practice, and understands its program objectives
as all encompassing, incorporating men and women. However, this becomes
hardly evident in the planning and program proposal. Even if women are
mentioned as a target group and in one specific objective, neither the development
 goal nor the program objective is formulated in a gender differentiated manner or
specified accordingly. There are assumptions about the gender perspective in the
proposal, (e.g. page 7 “There objectives ensure a gender justice oriented
program”) which could give hints. There is also a lack of gender differentiation
in the formulation of indicators.

5.2.4 Consideration of the needs and interests of the indigenous people

The indigenous people are a specific target group. Their priorities are entirely considered
in a holistic approach. Indicators are formulated in a way which specifies specific
activities and results for specific indigenous people.

5.2.5 Compatibility with development aims and priorities of country and donors

Compatibility with the Philippines’ development policy

The development aims of the government of the Philippines are laid down in the
Medium-Term Philippine Development Plan 2001-2004 (MTPDP) 18 . The READ
Program fits very well in the development priorities laid down in this plan. It
addresses “Comprehensive human Development and protecting the Vulnerable”
by focusing on “Agrarian Reform Beneficiaries and Indigenous People” explicitly
mentioned there. Particularly, it aims at achieving the desired social equity in
agriculture through asset distribution with special reference to the opportunities
provided by the Government’s CARP. Furthermore, the MTPDP stresses the
importance of “Good Governance and the Rule of Law” as a pre-requisite for
fighting poverty. This strategy is strongly supported by the READ Program.
(MTPDP 2001-2004: 3-6)

Correspondence with the development priorities and policy of the German

government

The READ Program has a clear poverty reduction orientation. Foremost, it addresses the
rural poor and marginalized target groups whose situation shall be improved by
achieving food security through the opportunities provided by the CARP
framework. Thus, it is highly in line with the German Government’s Program of
Action 2015 towards halving extreme poverty worldwide. Furthermore, it is also
completely in line with the priority fields of action set out in the BMZ Asia
Strategy: fight against poverty, resource protection and environment, and
democratization of government and society.

In addition, it directly focuses on one major reason for the continuing high poverty
incidence, the slow pace of CARP implementation as identified by the world
bank, quoted in the BMZ’s 2003 Country Report Philippines.

18
See also http://www.neda.gov.ph/mtpdp2001 as of 31.10.2003.
On the level of country policy, the program likewise corresponds to the priority area of
“protection of and sustainable use of natural resources” which is one of the four
priority areas of bilateral aid agreed between the Philippine and German
governments in 2001.

Compatibility with the country strategy of EED/EZE

The READ program directly addresses several of the program priorities of the Southeast
and East-Asia Desk of EED/EZE, namely: rural development, participatory civil
society and democracy, fight against poverty through the empowerment of
marginalized social groups. However, the program area of Central Luzon
deviates from the geographical priority areas of EED/EZE in the Philippines.
Nevertheless, this exception seems justified for the following reasons:

Even if Central Luzon is without doubt not one of the poor regions of the country, a high
number of poor live there due to the high population density.
Central Luzon always has been a hot bed of peasant resistance and struggle for agrarian
reform. Historically, it was the center of the politicized peasantry. Due to this
background, it is of particular political significance to make agrarian reform
succeed in this region. The program addresses exactly the difficult cases which
are an expression of the still existing power of the landed elite, of power relations
and power politics not only in the countryside but also on national level. If the
program is successful in achieving its aims through the program strategies, there
will be effects beyond the immediate region if the lessons learned are properly
diffused among other actors for social empowerment.

5.2.6 Assessment of other aspects

Long-term feasibility and sustainability of program impact

The sustainability of program results and impacts are considered in the planning and
reflected in the strategy of the READ program in particular through the following
aspects:

¾ The social and political empowerment of the local population, which

encompasses the capacity development of local organizations and its members,
influence on local politics, control over local resources.
¾ The economic empowerment of the beneficiaries is addressed through the asset
development aspect of the program.
¾ The READ program directly favors and contributes to sustainable development.

The READ program’s strategy is appropriate. It can be even seen as a key factor of
success of the READ program as presented more in detail in chapters 7 and 9.
5.3 Assessment of the planning quality
5.3.1 Target group analysis

From the very start of PDI’s program conceptualization stage, and throughout the past 10
years, land search missions, inventories of lands, actual field validation,
interviews, focused group discussions with pioneer settlers of the areas and
potential farmer beneficiaries have been undertaken. Together with its
participatory approach in planning, this differentiated knowledge about the social,
economic and political conditions of its clientele and the program area is also
reflected in the program implementation. However, this knowledge about the
immediate conditions of the target groups and their immediate social environment
is not evident in the planning as different impact areas are lacking specification.

The situation of women may illustrate this point. Women of landless households are
affected by the economic conditions in different ways than men. The evaluation
identified areas where changes in the gender relations are desired in order to
promote more gender equality. If this would be integrated in the proposal, it
should greatly help specifying the programs’ objectives and the respective
indicators.

In addition, the common denominator of ARBs being below poverty line should not
disguise the fact that ARBs are socially and economically highly differentiated
and are embedded in very different social and economic environments.
Furthermore, it has been observed during the short field visit that the success of
the program itself generates social dynamics which quickly alter the former social
structure of the rural environment. For example, ARBs in an urbanized
environment gain most of their income through non-agricultural employment
(Pampanga) or the fast pace of economic development of many of the ARBs in
Metro-Manila near Bulacan. They allow poor people, often relatives, to build
small huts on their newly acquired land which creates a new layer of poor people
as a result of program success.

Another aspect of the social structure is the existence of a broad layer of day laborers in
many villages of Central Luzon. These people are not entitled to receive land and
are generally poorer than the specified target group of the program. Particularly,
the latter group is hardly represented in the POs. although they are not excluded.

All these groups are affected by the program because they are structurally and
economically closely connected to the former tenants and new landowners. The
indirect impact on these people might have positive and/or negative aspects (for
example, increase/decrease in wage labor opportunities, and wages due to
increased productivityor mechanization). Although the above mentioned groups
(day laborers) are not part of the READ program’s target groups, their existence
should be mentioned in the planning and the impact should be monitored.
5.3.2 Participation in the planning process

The evaluation team appreciated very much the participatory planning practice which
comprised a six month phase of workshops and strategic planning exercises with
POs. The program is based on area conditions and not pre-patterned centrally. It
could be observed that a general understanding of the development process is
shared by PO leaders and PDI staff. However, this understanding could be further
enhanced with the formulation of some key indicators. It would also allow
outsiders to more easily perceive the ideas of the actors in regard to the program.

5.3.3 Assumption or risks

Risks or limiting factors which might endanger the achievement of the objectives are
hardly mentioned in the planning document. They comprise farm size, farm
infrastructure and asset development, relatively old age of beneficiaries,
increasing pressure on the land through large families. Assumptions or risks are
considered in a general manner, e.g. climatic change, soil fertility, WTO, GATT.
However, they are not specified regarding their potential (bad) effects on the
target groups. Consequently, the planning does not provide a basis for monitoring
the risks; however, in the implementation of the program, risks are identified and
measures are identified accordingly. Nevertheless, a clearer formulation of the
risks seems desirable because of the importance for the program’s and farmers’
activities, e.g. the import policy of the Philippine government regarding rice may
well render peasants efforts quite, uneconomical, and, thus counteract the
achievement of the program objective. Another example is the rapid urbanization
and land conversion in quite a number of the program areas (see also chapter
4.1.3, page 21).

5.4 Overall assessment of program aims and planning

The planning of PDI’s READ program has been very participatory with the involvement
of relevant target groups. It contributed to a common understanding of the
program as well as development and empowerment ideas by PDI and target
groups who are both satisfied with the existing planning practice. The planning
gives direction and serves as an orientation for implementation. The program’s
objectives and strategies are an appropriate response to the framework conditions.

Also from an external point of view, the planning permits understanding of the ideas of
the READ program and its objective. However, some aspects remain difficult to
understand from the documents only, in particular the clarity of objectives and
milestones and the time horizon of PDI’s work and implementation. In addition,
the formulation of indicators can be improved also with the involvement of the
target groups. This could be very supportive for joint reviews with the target
groups, internal program review, steering as well as for the program
accompaniment and partner dialogue with EED/EZE.
The evaluation showed the high degree to which objectives and strategies are shared by
the actors involved and how they translate these into actions. The highlight of the
planning is the comprehensive, effective and appropriate strategy of
empowerment to achieve the EAD programs objectives which gives evidence of
the experience of PDI in the program area.

6 Quality of program implementation and management

6.1. Analysis and assessment of the implementation

6.1.2 Develop capacities and organizational strength

Establishing organizations and enabling farmer capabilities are areas nurtured by PDI
through a long and sometimes painstaking process to sensitize, organize and
mobilize the farmers for their own struggle to acquire land and develop it further.
Usually, the partnership starts in the process of identifying the program area,
wherein a PDI staff member conducts social investigation. Subsequently, PDI
staff together with the target population conducts a problem-focused group
discussion.

In their first encounters, most people usually are very suspicious of the organizers.
Others just wait to see if there is a dole-out. PDI tries to show to the farmers that
PDI does not have other intentions than bringing progress to their communities
through own effort, participation and cooperation.

Once they are decided upon and organized, a series of seminars and trainings are
conducted which enhance the organizational capabilities of the POs: organization
and management skills, Barefoot Management Course, Agrarian Reform
Education Seminar (including the translation of AR Primer), leadership and
negotiation skills, savings mobilization and capital build-up, gender training,
Agrarian Reform and Local Governance Training, paralegal training, value
formation, etc.

After organizing in several Barangays, a federation of all the people’s organizations in

the municipality is established. This is followed by the provincial federations and
the regional coalition – the Nagkakaisang Magsasaka ng Gitnang Luzon (NMGL,
United Peasants of Central Luzon). PDI’s role is a provider of services that, at the
outset, are designed to enable the beneficiaries by helping them to form and
develop their organizational and institutional capacity.

In addition, literacy education for the indigenous people in Zambales was organized and
the youth were also given the change to get higher education through a
scholarship program. Selected sons and daughters of members in the local
people’s organizations and program beneficiaries got the opportunity to study in
college. These youths are also being trained to become active leaders in their
 communities. Specific agreements ensure that entire communities will benefit not
only from the services but also in economic terms from these programs.

The capacity development and organizational development activities are considered to be

very effective due to their clear emphasis on their clear emphasis on the self-
reliance of the people. PDI avoids making promises and stresses the
responsibility of the farmers for the improvement of their situation. This clear
responsibility is also expressed in the cooperation between PDI staff and farmers.
Aside from the training, farmers appreciated the continuous support and guidance
they have received from PDI and the monghtly meetings.

6.1.2 Improvement of land ownership

To achieve the objective of Genuine Agrarian Reform, the POs in the forefromt with the
assistance of NMGL and PDI negotiate for land tenurial improvement by pushing
the government, specifically Department of Agrarian Reform (DAR), to
redistribute land according to the Agrarian Reform in the areas identified by the
Aeta and the peasant groups. A negotiation strategy is designed in each target area
specifically according to the following steps:

1. Survey and analysis of land problems, cases and issues

2. Validate the land problems, cases and issues

3. Research and documentation

4. Planning of the negotiation strategy based on the documentation and facts

5. Conduct a series of negotiations with DAR and DENR with POs on the front line

6. Complimentary advocacy and lobby work

7. Regional multi-stakeholder conference (bi-annual)

In the region, PDI principally co-operates with NMGL, the regional peasant federation of
farmers’ organizations in the provinces where PDI operates. The creation of most
of these POs has been facilitated and assisted by PDI. PDI’s experience in direct
bilateral cooperation with the DAR who is responsible for implementing the AR
varies according to the behavior of the agency at various levels. Experience
shows that the behavior of the agency is influenced by the quality of personnel
and their attitude towards various actors in agrarian reform.

The highest form of cooperation achieved by the program so far is the establishment of a
tripartite mechanism called the Special Concerns Action Team (SCAT). The
SCAT 19 is a team composed of key NMGL leaders, PDI personnel and key DAR
19
The SCAT meets every last Friday of the month at the DAR Regional Office.
 regional and national personnel and officials. It has been mandated by the DAR
Central Office to assist both the government and farmer-beneficiaries in hastening
the implementation of CARP, especially in problematic areas where landowner
resistance is strong or where the DAR has fallen short of its obligations. In
SCAT, the leaders of the people’s organizations have a chance to bring their cases
and claims directly to DAR officials. The DAR also is also forced to minimize
bureaucratic anomalies because of the farmers’ vigilance.

The SCAT serves as a pressure group that pushes various actors to cooperate and achieve
the resolution of Land Tenure Improvement through provision of venues for
mutually-beneficial negotiations (see also chapter 7.3.8, page 66). To find ways
to solve land tenure problems, DAR, PDI and NMGL conduct joint action
planning. The SCAT is replicated in every province where NMGL has an allied
organization and has agrarian problems to discuss.

PDI’s links with certain high officials at the DAR Central Office has also served well in
addressing local demands. The mandate given by the DAR Central Office, e.g.
SCAT, has been effective in overcoming the resistance of local DAR officials.
Correspondingly, good relations with DAR provincial officers and in overcoming
the resistance of DAR municipal officers.

This NG0-PO partnership is an alternative approach to the top-down approach being

employed by the DAR in CARP implementation. The use of dialogue and
negotiation and the fact that this mechanism has been institutionalized were key
factors for the successes in LTI. The case specific design of negotiation strategies
has to be highlighted as well.

6.1.3 Economic Support Measure

Objectives of ESS and the Small Project Fund

The READ program rithtly emphasizes the importance of the development of agricultural
production in the post-land-transfer phase and its pre- and post-production
linkages.

PDI also provides direct assistance to farmers in their socio-economic initiatives by

credits and through capacity building of the people’s organizations and program
beneficiaries and facilitating access to other productive resources (e.g. planting
materials, market links).

The credits are given through a Small Project Fund (SPF) with the total budget of PHP
500,000 (7,500 Euro) per year which is the main budget item of the ESS program
component. Most of the individual credits for POs amount to 5,000 to 25,000
PHP (75 to 375 Euro) which are really “small” projects.
Major aspects of PDI’s ESS and SPF

• PDI encourages and equips the POs with knowledge and skills to grasp
opportunities to take up economic development in their hands rather than
providing a “package of economic measures”
• Beside the direct economic benefits, the main objective of the ESS is to provide a
forum in particular for women to organize themselves and to develop
management capacities (holding meetings, bookkeeping, etc.) and provide a room
to gain experiences in entrepreneurship.
• Through ESS, economic endeavors of the POs are supported.
• PDI has developed reasonable “Guidelines for SPF” in 2001 in accordance with
the respective guidelines By EED/EZE. After submission of a proposal, usually
intensive discussions with the applying organizations are conducted before the
proposal is submitted by the PO for approval to the board of PDI.
• The PO is carefully prepared to develop capacities to carry out the economic
endeavors professionally before providing credit. This includes project
development and management, financial management and technical trainings
when needed.
• PDI emphasizes the importance of creating own savings and makes own capital
build-up a condition for approving projects from the SPF.
• PDI wants to support farmers in a way that they become “bankable” farmers.
• Because of the primarily educational and capacity building function of the ESS
and the small amount of the fund, a substantial contribution to broad-based
poverty alleviation cannot be expected.
• For the beneficiaries capacity development, other agencies are tapped for
providing trainings and other inputs (e.g. planting materials, infrastructure).
• Linking with private business is also encouraged and sometimes facilitated by
PDI.
• The monitoring of the economic projects is done by the Livelihood Officer of
PDI. The projects are additionally monitored by the Program Coordinator of PDI.
• Economic ventures supported through the SPF

The actual activities financed from the SPF in many places only started recently, except
for the hog and goat dispersal program which began already in 2001. Most of the
support is directed to women. Very prominent is the hog dispersal program 20 .
From the present SPF between 2001 to 2003, 55% of the available funds of 4,600
Euro have been used for hog and goat raising projects (PHP 307,000 out of PHP
561,000).

20
The pigs and individually owned by the women who also benefit from the income when pigs are sold. It
is obligatory to build a pig pen and care for water supply before the beneficiary receives the piglet. For
each piglet, two female piglets from the first litter have to be returned to PDI who in turn distributes them
to other women complying with certain criteria. Women without own capital can avail of an additional
loan of PHP 1,000 for buying supplementary feeds for the piglet. For this loan, another female piglet has
to be returned upon littering.
Other activities of women POs are, for example, dressmaking, meat processing, candy
making, communal variety stores. Farmers organizations have received support,
for example for water buffaloes and water pumps, nursery or agro-forestry
measures. More details and economic calculations can be found in the Annex 5.4,
pages 50 – 54.

Promotion of savings

The program also emphasizes the importance of generating savings in the process of
becoming economically minded and behaving subjects. The intention of the
program is not to connect individual people to official banks, but to build up
economic ventures of the POs and cooperatives. It is even seen as a precondition
to receive credits. However, only the women save and the savings are restricted
to saving in the organization. The women get individual passbooks on their
savings. However, the program’s intention to make farmer’s bankable seems not
to have succeeded up to this time. In a meeting during the evaluation process
with 70 representatives of 14 POs in Laur N.E., only 3 of the PO leaders had a
personal bank account.

Assessment

The SPF can be seen as useful instrument to achieve its intended effects. The very
careful and thoughtful approach to the economic projects has to be appreciated
very much. In fact, the SPF helps to strengthen the local capabilities of the POs in
terms of development management through hands-on training for small projects.
It, therefore, prepares them for their role as small-owner cultivators or
entrepreneurs. However, room for improvement is seen in the operationalization,
implementation and monitoring of the SPF (see Annex 5.3, Annex page 48.)

6.1.4 Networking, advocacy and lobby work

Beyond the relationships to DAR for LTI, PDI has developed a number of links at local,
regional and national level.

Local level

Differentiated approaches are applied in relations with local government authorities. In

this regard, NMGL or its provincial counterparts takes the lead in engaging local
authorities whenever feasible. In a region where local government plans are
heavily biased towards non-agricultural investments with the intention of raising
more revenues, NMGL takes careful steps in selecting potential allies. This is
typified in the experience of BAFA-NMGL in acquiring the Limcauco Estate in
Angeles City which had to go through a process of mobilizing progressive local
legislators to argue for the protection of agriculture. PDI’s role can be from
assisting NMGL to being an active negotiation and lobbying partner. PDI also
provides research and consultancy in project development and management and
 other related areas. PDI participates on municipal level in governments as
representative of NGOs.

Links to government also include practical cooperation with line agencies like the DTI
and DWSD in the direct provision of services. This form of cooperation has
resulted in the mobilization of resources that not only signify savings on the part
of PDI, but also signify targeted assistance based on concrete needs of
beneficiaries.

National level

Beside the lobby work at DAR at national level, PDI is member and sits on the board of a
network of agrarian reform advocates belonging to the Partnership for Agrarian
Reform and Rural Development Services (PARRDS), an alliance of NGOs and
POs engaged in agrarian reform and rural development. PDI is one of the most
respected and esteemed members of this coalition and is always at the forefront of
PARRDS policy advocacy work and negotiation process with the government on
agrarian issues. PDI also co-operates with the LBC-Net, a network of advocates
for democratization in local governance.

Use of media and songs

For motivation, mobilization and the commitment of farmers, PDI has developed a
variety of methods including Tri Media (TV, Radio, Newspapers). In the
Philippine communications media setting, agriculture and agrarian reform usually
take a back seat in national projection especially in favor of sensational news and
political scandals. Nevertheless, PDI maintains links with radio, print and
television agencies not only to sustain projection of agrarian reform issues, but to
also promote farmers’ rights and claims to land.

PDI publishes a monthly newsletter called “Usaping Bayan” or “National Issues”. It

contains the latest global or national issues and concerns that effect the lives of
the farmers. It is written in Philippine for the peasants and the indigenous people.
This is circulated in the program areas so that PO leaders, members and others
may be aware of the current issues and may discuss their positions and stand
towards them.

In particular, the songs written by a PDI staff member (Mon Ayco) contribute to the
mobilization of farmers to fight for their rights in a dialogue-oriented approach.
 Vision in Colors

by Mon Ayco, PDI

It is sweet to have a vision with colors

If we stumble in the dark
At the time the volcano erupted, people were terrified
If you’ll not evacuate, you’ll be buried alive
In the resettlement area, there is shelter
But there is no livelihood
Land to be tilled is what we need
Agrarian Reform is the answer

Coda
When hacienda Garcia was land reformed
We were now able to have lands to till
And the twin goal of agrarian reform
Is the provision of support services

We can vanquish poverty

And the green pastures will spring again
The rice fields are swaying
Moving along with the winds of change

Look at the rainbow, challenging us

Whether we can make the land productive
The landlords cannot take it back
We will rise from impoverishment

Coda
So many have been given lands
But still cannot rise from their impoverish state
Because they are being cheated and unsupported
Even their CLOAs have been taken back
This is worrisome, fearful.
We should struggle
Vision with colors
There is hope

See also the song “Maria Clara” in Annex, page 39.

6.1.5 Principles of program implementation

The following principles characterize the implementation of the READ program.

1. For PDI, every plan must emanate from the bottom. The people themselves
should make their own plans. PDI gathers these plans through a series of
consultations and workshops. This will assure that every program that the PDI
launches is reflective of the people’s needs and aspirations. This will further
assure that people’s concerns are considered in PDI’s programs, including those
that pertain to environmental protection, gender and especially the indigenous
people.

2. People’s participation: Participation is not limited to the program

conceptualization. The people are also the primary actors in the implementation
of the program.

3. PDI conducts regular periodical assessments of any program being implemented.

There is a planning session every six months plus a monthly assessment. This
tradition is also passes on to every organization that PDI helps through livelihood
support and other assistance. Since it is the people who are actually implementing
the program, they themselves conduct an assessment of their own work. PDI
offers support and guidance to the people’s organization to facilitate the
assessment of its program. This has also become a learning experience for them.
PO leaders expressed an appreciation of learning from their own experiences and
gaining a higher level of understanding guiding them in their work.

4. Periodical performance evaluation of staff is likewise conducted to determine

their capabilities in facilitating implementation. Workshops and seminars are also
being done to further develop the staff’s capability to carry out the task of
implementing the programs.

5. Institutionalization, sustainability and self-reliance: PDI sees to it that the

peasants feel capable, express confidence in their collective efforts and have
leaders who can best fulfill their expectations and who can motivate other
members of the target area to participate in all their undertakings.

6. The READ Program takes a pro peasant stand. It recognizes the peasants’
capabilities and draws up priority concerns based on their needs and interests.

7. It bases its actions and decisions on facts rather than assumption. The READ
Program adopts a scientific method of work, analyzing facts before coming up
with a decision or plan of action.
6.1.6 Orientation on specific groups

Women are addressed specifically in the implementation of the program. The organizing
practice of PDI follows mostly the widespread pattern of organizing in the
Philippines: to organize men according to their profession, i.e. as farmers, and
women according to gender, i.e. women, even though they may also be farmers
and work on the farm. Both sexes have the same access to the services and
support of PDI. However, a gender differentiated pattern exists when the impacts
and results are being analyzed.

PDI’s intervention in Zambales includes resettlement areas for Aeta communities.

Despite a lack of resources, PDI’s approach seeks to provide holistic attention to
the Aeta’s needs: to have food security using indigenous farming systems; to have
education and to be accepted by the larger society as bona fide members of the
community and a community that respects the Aeta’s customs and traditions. PDI
is also assisting the Tagbanuas of Palawan and the Dumagats of Bulacan and
Quezon.

6.2 Analysis and assessment of the program’s management

6.2.1 The budget of the PDI’s READ program

The total amount of the three years budget of PDI amounts to 613.550 Euro, of which
475,500 Euro is a grant from EZE and 138,000 Euro are local contributions from
the farmers. Almost 50% of the budget is attributed to the program costs, almost
30% for personnel (see table below). In addition, the NGO 11.11.11. contributes
83.387 Euro for Nueva Ecija (2202 – 2003) and PATH contributes 38.710 Euro
for Palawan only (2002 – 2003).

The budget of PDI’s READ program in Euro (3 years from 11/2001 – 10/2004)
Euro %
Program costs
Institutional development building 127,567 21
Land Acquisition – LTI 37,836 6
Support to Aeta 38,347 6
Vehicle and maintenance 19,173 3
Transportation 21,986 4
Meetings, communication 8,436 1
Research and policy advice 47,806 8
Total Program costs 301,151 49

Personnel costs 166,170 27

Coordination and administration 54,197 9
Reserve 92,033 15
Total 613,550 100
6.2.2 Monitoring and evaluation

All PDI staff report their activities to the Program Coordinator every 15 days. A monthly
monitoring of the program areas is conducted to gain an actual view of the
development at the program site. The monthly written monitoring forms contain
the results and accomplishments of the previous activities and are the basis for
assessment and action for succeeding activities. They are also the basis for
reporting to the funding agencies, the government and other institutions who are
interested in the work of PDI.

PDI also conducts assessments and planning with the contribution of all staff in the
middle and at the end of the year as a basis for the planning and targeting of
future PDI undertakings.

PDI perceives this monitoring, evaluation and planning system (Integrated Approach to
Participatory Development, see also Annex, page 24) as very effective. Aside
from the report that the field workers furnish the office, the Program Coordinator
conducts his own monitoring to verify what was reported and to gather additional
data that the field workers did not include.

It was not possible for the external consultants to assist such a meeting; however, the
impression is that the discussions in monitoring and evaluation are very much
focused on the issues and the next activities and steps of the respective strategy.
Compared to activities, the assessment of impacts is hardly reflected in PDI’s
monitoring system. This became also evident in the evaluation process in a joint
reflection about impact hypothesis.

6.2.3 Cooperation between PDI and EZE/EED

PDI and EED/EZE have cooperated since 1994. The cooperation is based on an
agreement defining the roles and contributions of each partner, the source of
funds, financial management and audit, etc. PDI submits a detailed program
proposal including objectives and budget which is the base for EZE decision and
approval of funds.

EED/EZE provides the funds every three months. In a tri-partite agreement EED/EZE
and PDI have contracted an independent certified audit company for the periodic
audits. PDI provides half-yearly reports about the implementation of the program
including audit statements according to a format suggested by EED.

The discussions during the evaluation revealed that both partners are happy with the
cooperation. PDI appreciates the clear program guidelines and policies, “there is
transparency about what they expect, what they would like to have from us. This
provides us autonomy for the implementation of the program.”
EED/EZE also provides support in the form of trainings from partners in the Philippines
(PME, organizational development, team development, etc.).

EED/EZE sees its role in accompanying the implementation of the program rather than
steering it. A detailed management system serves this purpose. It comprises
standards for PME, program proposals and progress reports as well as the
establishment of an organizational profile of the implementing organization. The
respective EED/EZE country desk officer visits PDI once every 1 ½ years for
about two days. Additionally, shortest meetings are held with the Director during
each of his visits to the Philippines. Both PDI and EED appreciate the high
degree of continuity and trust in cooperation also in terms of the persons involved.

EED/EZE depicts the cooperation with PDI as close and fruitful and appreciates PDI’s
ability to implement the READ program with a high degree of independence and
quality.

6.3 Overall assessment of program implementation and management

PDI has developed an integrated approach to development that combines provision of
services, organizational development up to the community level and institutional
development. It is innovative in combining several elements and provides an
excellent response to the challenges of the situation described in chapter 4. The
following aspects of implementation and management are seen as the major
strengths and factors of this success.

¾ The effectiveness of PDI’s strategy lies in being centered on people’s

development and self-reliance. With this orientation, PDI gives much emphasis
to the enhancement of the capabilities of the people. With these capabilities the
people themselves can identify and propose programs that can be beneficial not
only to individual members but to the entire community. This further develops
their individual and organizational capacity.
¾ The strength of PDI’s READ program also lies in its participatory and dialogue
oriented approach with the government in contrast to many other past and present
endeavors (see chapter 4.2.1, page 22). In addition, experiences and initiatives
from the grassroots level are transformed into policy, advocacy and lobbying at
the national level. Information and the reputation of PDI at the national level
benefits the local level.
¾ Farmers organize around their shared vision and not because of access to
program’s advantages (e.g. loan). Organizing farmers is certainly not a peculiar
phenomenon to the READ Program. In fact, most of the program beneficiaries
have experienced various forms of organizations and support either initiated by
government agencies or by anti-government forces. However, previous
experiences in organizing were largely determined by external factors such as the
availability of funding from the government or by an ideological or political push
from anti-government forces. Under the READ Program, the strength of the
 organization is rooted in the unity of ideas and objectives from the members
themselves. People have organized themselves in order to unify their voices.
¾ Indirect structural and direct poverty orientation (see chapter 7.4, page 71).
¾ In the cooperation between PDI and farmers, PDI does not promise anything.
PDI clarifies the need for self-help from the very beginning and the importance
for the people’s organizations to be responsible and to stand on their own.
¾ The capacity development comprises value formation through training and
exposures, but also through living of the values by the staff.
¾ The strength of PDI’s empowerment is not a single aspect but the combination of
elements implemented in very flexible plans, the READ program’s
implementation and management is based on principles and values which are in
correspondence with the content of the program. The key values and convictions
as identified by the evaluation team are

• Empowerment and support to the poor and the marginalized for wself-
determined and sustainable development;
• Promotion of self-help is more sustainable that help or promotion only;
• Democratic principles and participation in decision making processes;
• Respect of persons and different opinions;
• Engage for long-term commitment and partnership, commitment and
dedication to service by all staff – staff serve as an example for POs;
• What we say is what we do –what we do is what we say: credibility,
integrity, confidence to partners, honesty.

¾ The basis of values that are common to EED/EZE and PDI and the trust which
has developed thanks to the continuity of cooperation as well as personal contact and
commitment can be considered as a prerequisite of the strength of implementation.

However, the strengths simultaneously make evident potential weaknesses or risks. The
management and implementation of PDI depends to a high degree on one person,
the Director of PDI. Another major weakness of implementation is a lack of
economic strategies that directly address the utilization of lands covered by the
agrarian reform program. However, this is seen as a challenge and is only a
second step after land tenure improvement.

7 The program’s effectiveness in development terms and its significance

7.1 Program results and achievement of aims 21

7.1.1 Results of building people’s organizations

21
This chapter presents the direct results of PDI’s activities. The use of these results by the target group,
the effects of these results for the target group are presented in the chapter 7.3 on impacts.
Existence of people’s organizations and a regional federation

The organizing work, training and other support to people’s organizations has resulted in
the existence of 59 POs with 2.501 members (see Annex, pages 18 – 21). These
figures include 527 women organized in 16 women POs. This expansion is not
simply a product of member listing but, rather, a product of substantive
participation of farmers built around a vision. The degree of federation building
of the POs vary among areas. Zambales has established a provincial organization.
Nueva Ecija has developed its inter-municipal formation while the rest have
Barangay, inter-Barangay and municipal structures. Most of these organizations
can stand on their own. There seems to be a good relationship between the POs
and other members of the communities. Everybody is free to join; however, the
level of personal commitment to the struggle for land varied considerably. Thus,
the most active members have come in the forefront.PDI has also facilitated the
establishment of a regional peasant federation NMGL (United Peasants of Central
Luzon) 22 . In a short period of time, NMGL has evolved from an organization
representing beneficiaries to an organizations acting as legitimate partner not only
of PDI but also of the DAR. In addition, PDI has facilitated the establishment of
a number of alliances with and among other NGOs and peoples’ organizations
both at the local and national level. One factor of strength of the POs is the
number. One farmer mentioned “We are like many small fibers in a broom –
together we can serve and work effectively!”

Increased capacities of POs and NMGL for action

The primary beneficiaries of the program are farmers who are generally literate but most
of whom have never finished secondary school and, much less, tertiary education
due to poverty. A significant difference has been mentioned by the people
involved in the evaluation in regard to their knowledge and skills prior to the
intervention of PDI. The level and capacities of people and POs vary
considerably mainly due to different periods of support but also as support to
some POs has been given also by other NGOs. The following aspects have been
emphasized.

• POs have acquired knowledge about AR and procedures, their rights, human
rights, etc. “We have realized that we as indigenous people have rights”. “We
women realized the we have the same rights as men”. The discussions with
farmers who are not members of POs showed clearly the lack of information
about basic rights or even the existence of the Agrarian Reform in the Philippines
in the rural areas. However, there still seems to be a lack of information between
22
On October 30, 2001, the Project Development Institute facilitated the Central Luzon Farmers’
Conference held at the Social Action Center of Pampanga (SACOP), IN THE CITY OF San Fernando.
This conference was officially attended by the PO representatives from six provinces in Central Luzon.
The assembly culminated in the establishment of the Nagkakaisang Magsasaka ng Gitnang Luzon or
NMGL (the United Farmers in Central Luzon). NMGL, since then, has been an active regional coalition of
farmers helping other farmers in establishing their own organization and further strengthening those who
had build their own organizations.
 frontliners, other PO leaders and members. At the level of the PO leaders, there is
the challenge to improve information and awareness on national and global
processes and issues.
• POs members have increased their skills to analyze their problems and to identify
solutions. “We are now able to confront our main problems of land ownership we
are facing”. POs have also defined other needs beyond land security.
• People have increased their communication skills. Farmer leaders are able to act
as resource persons or speakers in public gatherings even outside their own
villages. Many leaders are now able to speak to government officials, to argue
and represent the members and to demand their rights. This is a considerable
change and achievement in particular for women and the Aeta. “We are now able
to speak to government officials”.
• This is evidenced by the ability of the POs, through NMGL, to directly negotiate
land claims with the DAR or seek support from reform-minded local government
officials. They are able to communicate their own needs to the local government
and are able to say “no’ as well. Further evidence of this is the participation of
POs in Barangay development councils.
• POs can realize advocacy work and lobbying. PO leaders are now able to use a
combination of legal and meta-legal modes and strategies to protect and advance
their interests.
• Information is disseminated by the POs themselves. Farmers are able to increase
awareness among other farmers. POs under the umbrella of NMGL expand to
other areas, assisting and supporting the creation of other POs.

The trainings and seminars conducted by PDI and NMGL are partially echoed by POs in
their villages. This replication created spillover effects to youth in the villages.

Aeta farmer: ”If money would have been given to us, might be it would be gone by now.
But we learned to fight for our rights – this will remain, it will even grow and
bring more fruits to us.”

Improved organization and leadership skills to run the POs and NMGL

The exposure of farmer-leaders to functional education such as the Barefoot managers’

Training and further support of PDI has improved their capacity to9 manage their
own organizations and to take decisions without PDI. These capacities include
leadership skills, communication, basic financial management and accounting,
and other elements in managing organizations 23 . Many POs and NMGL only
need guidance and orientation from PDI for future actions, tactics and strategies
to be applied in the different land cases.

23
E.g. planning: PASAMBOT presented a yearly planning comprising among others the following
elements: Objectives for the period, Capacity development of members and leaders, Linkages with other
NGO and government organizations, Issues to be followed-up, Research of land for AR, Fund raising,
monitoring, assessment and planning.
At least as important as training has been the application of the knowledge and skills in
the day-to-day running of the organizations and the realization of activities which
range from meetings, negotiations with DAR or landowners and even
implementing small economic programs. An Aeta leader of a PO with Aeta and
lowlanders (Hacienda Garcia) formulated: “Before lowlanders looked down at us,
now they have seen our leadership skills and they even proud of us”.

PDI also gave training in values formation in order to ensure management and leadership
according to democratic principles. This is an important aspect for the
sustainability not only of the different POs but also of the entire federation.
According to the results of the evaluation, some achievements have been made
but deep-rooting of respective values in POs such as democratic principles or
transparency still is a challenge. There is also a considerable gap in information
and capacities between members/second-liners and leaders.

The vision and objectives of the POs

A considerable difference in the clarity and kind of vision exists between the members of
the people’s organizations and the leaders at NMGL level. One common aspect is
the democratization of assets. Whereas most of the members mentioned
economic and livelihood objectives as main reason to be organized, the leaders
had more explicitly a vision of effective participation in local governance. One
member expressed: “Today we have a bike, in future we like to have a motorbike
thanks to the PO.” “Now we only have a shelter as office, in future we would like
to have a permanent structure”. This also expresses the common feature that they
won’t stop at the realization of the first demand, but pursue the struggle in order
to have a better life for all.

Degree of autonomy of the POs

According to PDI, the strength of POs is a function of number, capacities, unity,

motivation and commitment and values. For all these criteria, a high or partially
even very high degree can be observed. Certainly, there are still challenges which
have already been mentioned but considering the short period of the
implementation of the READ program, the results are very positive.

7.1.2 Results of land transfer to peasants in Agrarian Reform

As of October 2003, PDI and NMGL had effected the transfer of 2,953 hectares to 985
peasants. Around 2,000 hectares of agricultural lands are already in the pipeline
and can benefit more than a thousand potential farmer-beneficiaries. This
signifies a meaningful contribution of the project to the whole agrarian reform
program in the region. It is equivalent to 17 percent of the remaining CARP lands
in the region. The impacts of land ownership for farmers are discussed in chapter
7.3.5 page 61.
7.1.3 Results in regard to economic activities

Economic Support Services

The economic support program and the small project fund only started recently, except
for the hog and goat dispersal program which began already in 2001. There is no
doubt that the Economic Support Services (ESS) contribute to additional income.
The amount and importance, however, vary considerably. The most encouraging
successes exist with hog dispersal which is also the most widespread activity of
the ESS. The pigs are raised and individually owned by the women. They also
benefit from the income when piglets are sold. The calculations show the
profitability of the activity which was confirmed by all the discussion partners
during the evaluation. The benefit of about 5,000 to 10,000 PHP 975 to 150
Euro) a year is comparable to the income that could be earned from simple farm
labor for the time invested. However, in pig raising risk is also involved, but the
advantage for the women is that the work can be done alongside all the other
activities. This same advantage also applies to other ESS activities. Compared to
the benefits for swine production, the benefits seem lower for the latter activities
and remuneration of labor seems to be less than the local wage rate 24 . However,
the women appreciate the advantages also because the work is not effected in the
hot sun.

Nevertheless, the potential contribution of the ESS is very low compared to the total
income of a household. A substantial contribution to poverty alleviation from
these activities cannot be stated and could not be expected considering the total
credit amount of PHP 500,000 (Euro 7,500). The effects regarding the provision
of a forum to meet and to develop leadership skills and to promote consciousness
and building up of savings/ capital are considered to be even more important than
the economic aspects.

Promotion of savings

Whereas the intention of the program to enhance the financial self-reliance of farmers
from money-lenders are appreciated by the evaluation team, only very few results
could be observed regarding the generation of savings among the POs. The total
savings mobilized by 5 POs amounts only to about 10,000 PHP (150 Euro).
Furthermore, all these POs are women’s groups whereas men do not save. Saving
seems more challenging for men because of their less disciplined manner of
spending money.

24
Concerning dress making, a woman may produce as much as 300 dresses a month which produces an
income of PHP 1,500 (23 Euro). This is almost equivalent to the income of half-time job. In candy
making, usually 12 women of the women’s group engage two times a week for half-a-day. A profit of
PHP 400 is generated for each half day, which divided among the members comes to PHP 66/person for
a full day, if all participated. This is below the usual agricultural wage rate of PHP 150 per day (2.25
Euro).
7.2 Assessment of cost/benefit ratio
A cost benefit assessment of the entire READ program is presented in chapter 7.7, pages
76. It considers the results as well as the impacts of the program which are
presented in the following chapter.

7.3 Economic, social, socio-cultural and institutional impacts

7.3.1 Empowerment of farmers and POs

Most of the achievements of PDI in regard to the empowerment, existence, strength and
capacities of the people’s organizations have already been presented in chapter
7.1. In addition to these direct results of PDI’s activities, the following
empowerment impacts have been observed by the evaluation team.

PDI as eye-opener – new hope, motivation and identity

The improved capacities and knowledge, the activities of the PO members and also their
successes have led to PO members developing a new picture of themselves. The
members of the POs and beneficiaries of PDI’s support have become able to see
their situation from a different perspective. The discussion revealed that many
farmers – discouraged from the long struggle for land – have developed new hope
and motivation.

“I could not sleep for a long time because of the landowner. I had a lot of problems with
him,, he did not want me to use the land and I had to give him too much, only few
of the harvest remained for my family. I did not even have the hope that this
could improve, I did not see anything I can do as there is no other place to go for
me. Today I know my right, I know others facing the same problems – I have the
hope that our struggle will be successful. At least, I can sleep well again thanks to
the PO and our efforts.”

From a perception of rather passive victims, many farmers – members of POs – became
active to make informed decisions about social, political and economic choices.
These factors are at the origin of their commitment to an organized representation
of interests of the poor. They pooled their strength through organization and
began to exercise their role as a legitimate force in local civil society.

Increased self-confidence and pride

Although there are variances in the effects of trainings among individuals and among
men and women, the common denominator among them is the general increase in
self-confidence. The supply of and access to information through the program
has reduced difference, thus improving the level of trust between and among
members of the PO. Many farmers in the POs are proud of their organization and
their achievements and are highly committed.
Increased respect of the marginalized by other actors of the society

Through the PO’s activities and achievements other actors have become more aware of
the capacities of groups who had been rather marginalized before. These include landless
farmers, but more especially women and the Aeta. The government’s political
institutions now recognize the people’s organizations as a vital political force outside of,
but cooperative with, the government. They have the authority, by virtue of their
organization, to represent themselves in engagements with the government. DAR has
even suggested POs and NMGL as an example to other NGOs. This is an important
change according to the perception of the organized farmers and Aeta. “Before, we were
not allowed by the landowner to pass here, we were harassed and threatened with
knives.”

The Empowerment circle

PDI as eye-opener
new hope, motivation
and identity

Increased self-confidence Motivation

and pride Farmer organize
themselves

Empowerment of
farmers and PO’s

Increased respect of the Development of

marginalized by other capacities of farmers
actors of the society

Activities are Farmers’ POs carry

successful out activities

The circle shows the reinforcing effects of the different elements. PDI and the farmers /
POs have managed to brake the “vicious circle” of no hope → passivity → more serious
problems → less hope etc.
7.3.2 Impacts on Indigenous People

Improvement in knowledge and skills and improved recognition of indigenous

peoples by the LGU and other sectors

The combined effects of the scholarship program, trainings and seminars have resulted in
significant changes in awareness, knowledge and skills of organizations and
individuals. All the empowerment results presented in chapter 7.1 are also valid
for the Aeta.

For the Aeta, formal and non-formal education have a particular importance. Indigenous
people have always been subjected to larger society biases due to their lack of
education and marginal existence. Traditionally treated as ignorant minorities and
unable to read, write and count, they used to be cheated by other members of
society, in particular traders and also government officials. They are now able to
negotiate for better terms in the exchange of goods and services. This effect can
also be observed when they negotiate with local government agencies (see
below). Consequently, there are positive impacts in the behavior of other
members of society as well as of the government with regard to the identity and
capabilities of indigenous peoples like the Aeta of Zambales. They are no longer
treated as errand boys as they used to be during the American occupation of Subic
Naval Base or Clark Air Base or as beggars outside military bases. In Pasambot
(Botolan, Zambales), the Aeta are not only recognized as bonafide members of
local civil society, they are also recognized as a leading force in the development
of the community. Aeta POs are invited by the DAR to participate in discussions
and for mobilization. The Aeta receive also respect because of their indigenous
knowledge in organic farming.

“Before when we were trying to talk to government officers as Indigenous People they
were not listening to us. Government looked down at us. Now we are heard by
Government and even invited for some mobilization meetings”.

This increased recognition is very relevant and important for the Aeta; however, the Aeta
re aware that this is only a first step. There are still many actors in the society
where this increased respect can not yet be observed. There is still an important
challenge in tems of quantity and quality of respect of others given to the
indigenous people.

“We are now more equal to the others, we see the light that we can reach higher goals.”

It is important that this improvement of their situation by education did not “destroy”
their culture. The Aeta involved in the discussion have presented with pride their
culture and were very much aware about the cultural aspects they want and need
to keep, e.g. their belief in and concept of god, their concept of cooperation, their
way of organic farming including the utilization of fertilizers prepared from herbs
and grass, etc.
Increased identity and self-confidence

The self-confidence and identity of the Aeta has also been positively influenced by the
other impacts achieved with the support of PDI, in particular through the
development of capacities and skills but also with the successes in security of land
tenure and the increased recognition they now receive by others (see also the
pride of leadership skills, 7.1.1, page 53).

Increased land security

The Aeta are victims of historical marginalization in social life and politics and have been
displaced from their ancestral domain because of the eruption of Mt. Pinatubo in
1991. The program has effectively responded to their demand for land, something
that resulted in an increase in security of land tenure. PDI’s initiatives in
promoting their rights as provided for by the CARP and the Indigenous People’s
Rights Act (1995) have encouraged them to claim their rights and to seek their
rightful place in society.

7.3.3 Impact on the situation of women and gender relations

Some of the most relevant impacts achieved by PDI concern the changed situation of
women-members of the POs. From their point of view, the possibility to earn
income from the income generating activities has influenced their position in
regard to their husbands.

“We have now own money to buy food and send children to school”. “Because we
became productive we are now respected by men”. “We are now able to help our
husbands to support the family.” “We were just hanging around, we were always
gossiping”.

Women also relate their greater say in family matters and in decision making to their
increase of abilities and self-confidence. The men usually confirmed this
statement from their perspective, by also emphasizing the aspect of women
“becoming productive”. In Bulacan, four out of six groups, male as well as
female, ranked the “improvement of the relationship of husband and wife” as a
first or second important impact (see Annex, page 47). Not only that increased
participation in family decision making can be appreciated per se, it also
contributed to good cooperation in the family (men help women more frequently)
than before which in turn is seen as the foundation for progressing and improving
livelihood.

The farmers (men and women) attribute this positive result to the value formation
seminar of PDI where they have learned to discuss their problems in a respectful
way. Before, men and women used to quarrel much more. However, this
important impact seems to be prominent in particular for those families who have
 already received land. Understanding and cooperation in the family therefore
became very important for developing the farm and livelihood. Women also
appreciated their increased capability of communication to freely express
themselves. This has allowed them to bring in thei9r specific needs to the
attention of the LGUs, e.g. with regard to infrastructure on the community level.

Less favorable is the assessment of improvement of land ownership for women. Even if
PDI as well as sometimes also DAR emphasize co-ownership of husband and
wife in order to protect women’s right to property, it seems that successes in this
respect are rather poor. Most of the CLOAs are issued in the name of the male
farmer. Women who have received CLOAs are either widows or married to a
husband not working in the agricultural sector.

Also in terms of knowledge about AR and legal aspects, there seems to be a men-biased
development. Women from some groups felt left behind men regarding legal
knowledge while having the desire to also become more knowledgeable about
this area. Most of the para-legal advisors are men. There are still many
challenges ahead in order to consolidate and further enhance what has been
achieved till now in regard to knowledge, respect, roles and power relations, etc.

7.3.4 Youth

There is little visible impact on youth. This is primarily because the program does not
have a distinct program for youth. There are indications, however, that the
scholarship program has provided positive impacts on some young people due to
the acquisition of knowle3dge and skills from formal education. Those who have
graduated from college (around 70) are now contributing their knowledge and
skills to their communities. Three graduates are now working as PDI staff
members in Nueva Ecija, Tarlac and Zambales and another is working as a
volunteer staff member in a cooperative in Pampanga.

7.3.5 Poverty Reduction

PO members attribute more importance to increased land security than to other aspects of
livelihood improvement such as improvements in nutrition and food security,
education of children beyond the secondary level, and improvement of houses.

While there is no doubt that the READ program has provided benefits to the poor
beneficiaries of the program and those also getting land because of PO/PDI
actions, there is no concreted date that can be used as a basis for assessing the
impact of the rural poor population in the region 25 . The following impacts are

25
In order to position the impacts of this evaluation in the national agrarian reform landscape some
findings from a recent nationwide impact study can be quoted. It confirms the result that AR beneficiaries
stand better than non beneficiaries. This concerns investments, productivity and income from farming.
However, the overall impact of a substantial reduction the poverty incidence among ARBs was not
 results of qualitative discussions and assessments and present mainly the
perception of the beneficiaries.

Increased land security for farmers

PDI’s intervention and the READ program have made a difference in the lives of the
people. According to the perception of the farmer beneficiaries, PDI played a key
role in securing the transfer of 2,953 hectares to 985 farmer-beneficiaries. Also
many other farmers have benefited from the AR and have increased their land
security. However, there is the strong indication that without PDI many cases
would not have been covered by AR.

Even if the size of 3 ha for each of the beneficiaries is not always sufficient to nourish a
whole family, the importance of the possession of land titles has to be seen in the
context of the lives of the beneficiaries. The evaluators observed some CLOA
distributions in Tarlac, Zambales and Pampanga 26 and directly witnessed the
emotional response of the recipients borne out of relief and victory after longt
years of waiting to own the land they till. The titles represent for the farmer-
beneficiaries a radical change of status from being landless to new owners. They
have now the power to decide on what to do with their newly-acquired asset. This
security is not only a product of the agrarian reform law that was passed in 1968,
but a result of the struggles of several generations 27 (see also chapter 4.2.1, page
22). However, the demographics of agrarian reform beneficiaries have the
distinctive feature of being male-dominated. There is the challenge to improve
the rights of women and their land ownership situation.

It is also important to recognize that PDI has achieved the land tenure improvement at
less financial and social cost compared to similar efforts of the DAR and other
NGOs in contested lands (see also chapter 7.7, page 77).

Economic benefits through land ownership and investments in land by farmers

Before they were given CLOAs, farmers worked on the land but did not get the full
benefit of their labor due to unfair sharing practices. Often, tenants receive only
25 to 50 percent of the production as the bulk of the production accrues to the
landowner. Hence, farmers have very little incentive to develop the land. The

confirmed (CARP Impact Assessment Project (CARP-IA): An Integrative Report of thee Comprehensive
Agrarian Reform Program impact Assessment Studies. Internal Summary of UNDP, not author, not dated).
26
In Barangay Carbonnel, Gerona (Tarlac Province), PDI, NMGL and the DAR successfully worked out
the distribution of 48 CLOAs representing 68 hectares for 48 beneficiaries of which only 9 are members
of the PO. In Angeles City (Pampanga Province), the same partnership successfully worked out the
distribution of 70 CLOAs representing 108 hectares of land for 70 members of the Barangay Anunas
Farmers’ Association who have fought for the land since 1963.
27
Under the Torrens concept of land ownership introduced by the American colonialists, the possession of
a land title signifies the strongest basis of security of land tenure. This kind of security has traditionally
been the domain of land monopolists with the protection of the state.
 issuance of the CLOA and the transfer of ownership of the land provide them with
the strongest incentives to develop the land. In addition, once being an owner-
cultivator, loans can be received much easier from formal and informal lenders.
Having enough capital, farmers can purchase the necessary farm inputs to achieve
the desired harvest.

In Bulacan, for example, 47 farmer-beneficiaries who benefited from the redistribution of

the 57-hectare Rodriguez Property are now highly productive in growing high
value crops such as coffee and vegetables. The marketing contract for coffee with
Nestle also aided the highly profitable production. In other areas, some impacts
can be expected in future only due to the recent date of tree planting (Mahogany).

“Now we can eat, we can benefit from the fruits of the land and our work. Before we had
to give most of it to the landowner.”

Additional income from women’s economic activities predominantly through the pig-
program and other small projects of the women POs have contributed (see also
7.1.3, page 56).

Improvement in food security for AR beneficiaries

Agrarian reform beneficiaries in Central Luzon have obtained the opportunity to grow
rice, vegetables and other food crops without being burdened by unequal sharing
schemes with landowners. They have improved chances of securing the food
needs of their families in terms of quality and quantity 28 . In some areas the
production of high value crops has enabled farmers to acquire better food due to
higher incomes. However, no quantitative data exist to confirm these assessments
of farmers. “Before we ate once a day, now we eat three times a day!” In many
communities where POs have been established, still many other families are food-
deficient.

Increased capacities and literacy level (formal and non-formal)

Improvements in the poverty situation are also traceable from significant changes in
human resource capabilities and the institutional capacity of POs to elevate
themselves as social and political actors in their communities. Traditionally
marginalized, farmer-beneficiaries are now equipped with capacities and physical
assts to improve their status in the community. Most PO members can afford to
provide primary and secondary education to their children (e.g. up to high
school), but not college education which requires higher tuition fees and
supporting the children away from home.

28
In Kaybanban, Bulacan for example, before PDI’s Intervention 40% suffered from food shortage. Now,
it is estimated that 70% of village families state to have enough food. This increase can be even higher
when considering only PO-members. However, in other villages the increase of families is much lower,
e.g. from 40% in San Isidro, Bulacan.
For the Aeta, the literacy program as part of the conscientization process has also led to
an increased literacy level (formal and non-formal) and, together with the
scholarship program enhanced self-confidence not only of the students but also of
the entire communities. However, both are also supported considerably by other
actors.

7.3.6 Impacts in regard to the agricultural sector

The most important impact in the agricultural sector is the increased land security for
farmers which has already been presented above. Many areas that were
previously idle have became productive since the implementation of the READ
program in Central Luzon. Farmers have started to cultivate these areas
simultaneously with their struggle to acquire the land. These areas were either
reservations or had been covered with volcanic debris when Mount Pinatubo
erupted but have become agriculturally viable once more. In many other cases,
the previous production system continues putting emphasis on food crops such as
rice and corn.

According to the discussions with the farmers and observations during the field visits,
improvements in agricultural production come about in several ways. In the case
of the IP resettlement, agricultural production usually starts on abandoned land.
Whereas the Aeta in Botolan, Zambales have received land in strategic locations
and of good quality developing it into organic agriculture, the Igorot in Nueva
Ecija try to reduce their dependency on hilly upland rice fields which are
ecologically not sustainable by additionally developing lowland rice fields. Only
in some cases, the farmer beneficiaries get additional support from other sources
e.g. for infrastructure development of their farms or post harvest operations. This
is, for example, the case in some Igorot ARCs in Nueva Ecija, which fall within
the program area of a Japanese assisted AR project (ARISP II). In other cases, as
for example in Kaybanban and San Isidro Bulacan, the proximity of the
metropolitan markets of Manila and favorable contracts with Nestle favored
investments in permanent crops, such as coffee, fruit trees and pineapple and
development of an impressing prosperity among many farmer beneficiaries.

7.3.7 Social Impacts

Prevention of conflicts and contribution to unity of villages

Since the implementation of the program, unity within the community has further
developed. The use of dialogues, partnerships, media and reduction of
information asymmetry has mitigated the emergence of violent conflicts in the
land redistribution process. In some cases, the dialogue orientation and the
formation of values has led to enhanced unity in communities and also at
household level, where effects on power relations between men and women have
been observed (see impacts on gender relations, page 60). “Before there was
 jealousy among us. We saw that this value is not in PDI. We were able to see the
importance of negotiation and discussion.”

Aside from the establishment of the farmers’ organizations in the program areas, several
“exchange labor” groups were also organized and traditional forms of exchange
of simple labor called “Bayanihan” are once again being practiced. Unity among
communities is even more appreciated as landlords use tactics to destroy unity
and to create conflicts between farmers by giving some preferential treatment.

Also, the presence of the media during a confrontation with the landowner and the police
prevented the occurrence of violence in the case of the struggle of the Sto.
Rosario Farmers’ Association (Magalang, Pampanga).

Creation of new social stratum in villages with land security

Another impact observed by the evaluation team in Bulacan is that increased land
security attracts more poor people, often relatives, who are allowed to settle on
the lots and thus create a new poor stratum in the village.

Increased resistance of big landowners

The successes of PDI and NMGL have negatively impacted on the interests and plans of
big landowners. There are indications that their resistance to reform has become
stronger. In Tarlac, big landowners like the Cojuangco family are already
pressuring the DAR to remove the Provincial Agrarian Reform Officer (PARO)
who is not only allied to PDI and NMGL, but is also helping all the people’s
organizations regardless of political affiliation. The Tarlac PARO is also
applying the force of the law against the landowners in implementing agrarian
reform. In Sto. Rosario (Magalang, Pampanga), the landowner is imposing
barriers to the plans of the Sto. Rosario Farmers’ Association (SRFA) by fencing
off the property, mobilizing local government officials and the police against the
SRFA and bringing in other farmers inside the remaining lo9ts as a counter-pole
against the SRFA. This is not to mention the fact that he also destroyed the crops
planted by members of the SRFA, harassed Land Bank personnel by filing
unwarranted cases against them with the Ombudsman, and even bribed DAR
officials. The tactics of landowners are presented in chapter 4.2.4, page 26.

7.3.8 Impacts concerning political participation

Increased participation in decision making processes

PDI has achieved the enhancement and enlargement of the possibilities for political
participation of their target populations in particular at local and regional level.
This cn be observed by the following aspects:

1. Farmers have become active – the POs as a new actor

 2. POs use meta-legal tactics to influence decisions
3. The POs and NMGL exercise vigilance regarding AR law implementation
4. Institutionalized discussion and negotiation forms through partnerships
5. PO representation in elected positions in local governments at Barangay level

1. Farmers have become active – the POs as a new actor

Prior to the intervention of PDI, the primary beneficiaries of the program hardly had a
voice in local politics and had extreme difficulty in claiming their rights to land.
Equipped with sufficient information concerning their rights to land and to
government services as well as the skills to directly negotiate with other actors of
society, they pooled their strength through organization in POs and a federation.
Even if farmers had before been members of political groups or other POs
existing in the Philippines for 40 years, the POs under NMGL can be considered
as a new actor in the scene of agrarian reform and political participation as they
began to exercise their role as a legitimate force in local civil society. They
expanded their influence not only to other farmers but also to local authorities.
The discussions revealed the increased autonomy of the POs to make decisions
regarding their economic life.

2. POs use meta legal tactics to influence decisions

The agrarian reform law has many loopholes. Although knowledge of the law through
paralegal training has improved the capability of farmers in claiming their rights,
legal processes are either circumvented or used by landowners to delay land
reform. To compensate for the weaknesses of the processes, NMGL and its allied
POs use meta-legal tactics in order to influence the pace of legal processes and
swing decisions in their favor. These tactics take the form of mass mobilizations
such as pickets, rallies and conduct of dialogues en masse. These tactics create a
show of unity and strength that obliges DAR officials, local government
authorities and landowners to listen to the voice of the farmers. NMGL also
supports regional and national campaigns on peasant and agrarian issues launched
by PDI and other civil society groups.

3. The POs and NMGL exercise vigilance regarding AR law implementation

Knowledge of the agrarian reform law has encouraged farmers to claim their rights.
However, most often they were not effectively heard. This significantly changed
when farmers, with the assistance of PDI and NMGL, were able to find
information and uncover anomalies pertaining to CARP implementation.
Mistakes were pinpointed and corrections demanded. PDI and the POs became
active participants in agrarian reform implementation and the correction of
anomalies. This important vigilance function of the civil society had not been
assumed before the intervention of PDI. Presently, this function is assumed in
more than 40 agrarian cases.
4. Institutionalized discussion and negotiation forums through partnerships

The tripartite partnership of the DAR, NGO and PO has been recognized by the DAR
since the mid-1990s with the creation of the Special Concern Action Team
(SCAT) (see also chapter 6.1.2, page 43). It shows the ability of the POs through
NMGL to directly negotiate land claims with the DAR or to seek support from
reform-minded local government official. The DAR would like to popularize the
model in all regions of the country. However, this partnership was not fully
institutionalized in other regions and was mainly employed in the distribution of
less contentious lands. The READ Program’s experience has provided evidence
that the tripartite partnership of government, NGO and the PO can also be
effectively employed in the acquisition and distribution of contentious private
agricultural lands.

5. PO representation in elected positions in local governments at Barangay level

Seizing the opportunity provided by the Local Government Code and building on the
successes of LTI struggles, PDI, NMGL and the POs constructively engage with
government structures not only from outside but also from within the mechanisms
and processes inside the various levels. Elective positions in local governments
allow farmer-leaders to represent their organizations in legislation or in execution
of government programs. Not only do they act as watchdogs in budget
deliberations (exercise vigilance), they also exert influence in policy decisions,
legislation, programming and allocation of resources. In some municipal
development councils and Provincial Agrarian Reform Committees, PDI is the
elected NGO representative.

Impacts of the increased participation in decision making – observed changes

1. Changed concept of AR implementation thanks to PDI’s experiences

PDI’s experiences in the Bulawen Resettlement Scheme influenced the DAR’s concept of
Agrarian Reform implementation. PDI’s agrarian reform community model has
been adopted by the DAR and made it into an ODA-funded program called the
Agrarian Reform Communities (ARCs). This approach has enhanced the
efficiency of the public sector. Also the SCAT is already being implemented
nationwide through a memorandum circular29 .

29
There are indications that the DAR leadership has learned lessons from the performance of the SCAT as
a tripartite mechanism for agrarian reform implementation in Central Luzon and replicates the same in
other parts of the country. While the policy environment has been created due to the DAR’s promotion
of the structure throughout the country, there is little evidence showing that SCATs have actually been
formed in other regions. The right combination of good quality POs, NGOs and reform-minded DAR
officials at the regional and provincial levels is not yet traceable in other regions of the country.
 Overview about impacts of increased participation in decision making processes and
observed changes

Farmers have become active

– the Po’s as a new actor

The Po’s and NMGL PO’s use meta legal tactics to

exercise vigilance of AR law influence decisions
implementation
Increased
Participation in
decision-
Institutionalized discussion making PO representation in elected
and negotiation forums processes positions in local
through partnerships governments at Barangay
level

Changed behavior of DAR in

Changed concept of AR the project areas -
Implementation thanks to increased transparency
PDI’s experiences Observed
changes
through
increased
Accelerated and more The gap between farmers and
participation in
complete AR law DAR has been narrowed –
decision making
implementation breaking of old alliance
processes

Mobilization and redirection

of services and budgets in Land use policy changes in
favor of project beneficiaries some cities and
Municipalities

Public consciousness about

good governance has increased
2. Changed behavior of DAR in the program areas – increased transparency

PDI and NMGL have obliged the DAR to improve its behavior and to recognize farmers
as active participants in agrarian reform implementation by the exposition of
anomalies and by reducing asymmetry in information. There are significant
changes in the behavior of the government, especially in the national, regional,
provincial and municipal offices of the DAR particularly in the area covered by
the program.

Many DAR officials and personnel used to be non-receptive to the demands of poor
peasants, their organizations and even NGOs. They are now much more sensitive
to the issues brought to their attention by organized sectors. DAR personnel now
have time to discuss such issues with them. Concerned government agencies and
officials are obliged to respond to issues and to take action. There is also
evidence that the advocacy of PDI and the POs has led to support “friendly
forces” in the government. Without the intervention of PDI and the POs, some
forces within DAR would have been removed because of their “farmer-friendly”
attitudes as perceived by landowners. More consciousness in DAR and more
transparency of the implementation of AR has been achieved. Consequently, it
can be cocluded that government officials in DAR are more committed and
transparent thanks to the READ program.

“Before the DAR did not give us the correct information – they also asked us to come
back again and again. Now, they are cooperating, sometimes they even ask
farmers and interview them about specific case. They are more open towards us.
They did not even have contact before to us orginary farmers.” “Sometimes they
even use us as excuse to the landowners – they tell them they have to decide in
our favor because of us and our strengths.”

Of course, not all the officers have changed their behavior, there are still a lot of
problems according to the perception of PDI and the POs, but considerable
improvements have been achieved. However, the favorable policy environment
influencing the successes of PDI and NMGL is currently mainly confined to
policy processes involving the DAR.

These impacts and changes have not only been identified by the farmers, but also
confirmed by the DAR officials interviewed. They even acknowledged that DAR
still has problems with corruption, but also that it has been improved considerably
due to the new leadership at regional level which contributed also to the
mentioned impacts. However, according to them also the political will from the
top level alone would not have been able3 to achieve what has been achieved now
with the help of POs and PDI. DAR appreciates POs and PDI because they help
to achieve the DAR’s objectives.
3 Accelerated and more complete law implementation

Thanks to the intervention of PDI and the POs, more areas for land distribution have been
identified and the distribution of titles has been achieved faster and/or with
increased quality thanks to the improved behavior of DAR. Also, the exposition
of anomalies surrounding the distribution of 12,000 hectares of land in Zambales
was corrected leading to the redistribution of these lands to legitimate
beneficiaries. In Tarlac and Pampanga, the discovery of un-distributed CLOAs to
legitimate beneficiaries led to appropriate correction leading to the distribution of
CLOAS to rightful beneficiaries.

4 The gap between farmers and DAR has been narrowed – breaking of old
alliances

Before the intervention of PDI and also in the first years, the farmers perceived the DAR
officials to be sided with the landowners. They were hardly accessible and their
position was far away from the farmers’ point of view. Today, the picture has
changed considerably. The “distance” between DAR and farmers has been
reduced considerably. At least as important for farmers simultaneously is that
many of the old alliances between DAR officials and resisting landowners have
been broken or at least the distance has increased allowing DAR to take a more
neutral position. This can be attributed to a large extent to PDI’s intervention
mainly due to the use of the dialogue oriented approach and the
institutionalization of SCAT the tripartite negotiation forums.

“Each week we go to the MARO. Before we were fighting, now we discuss.” “Before
we were not assisted by the DAR. Now, after the support from PDI and the
negotiations we are assisted by DAR. They are doing their job, however, there are
still some in DAR who are corrupt.”

5 Mobilization and redirection of services and budgets in favor of program

beneficiaries

The READ program’s strategy of enabling peop0le and the POs to constructively work in
the development bodies has allowed their active participation in local
development councils. They were able to influence the allocation of local budgets
and to increase transparency and accountability of council decision 30 . Aside from

30
In Nueva Ecija and Bulacan, women’s organizations were able to increase their resources due to
infusions from public resources. In Angeles City, the local legislators allied to NMGL are now
suspended by the City Mayor because of their opposition against lack of transparency and misplaced
allocation of budgets. Another example is the farm-to-market road that was constructed in Morong,
Bataan, along with a solar dryer. In Barangay San Isidro, Laur, Nueva Ecija, a farm-to-market road also
was built while the construction of a communal irrigation system is ongoing. In Botolan, Zambales,
major government line agencies pledged support and assistance to the local peasant federation composed
mostly of Aeta. The Municipal Agriculture Office promised to give them seeds at a subsidized price; the
provincial office of the Department of Trade and Industries agreed to help them in marketing their
 the fast-paced development of LTI cases, the government also initiated several
infrastructure projects in areas with strong PDI-PO partnership. However, these
impacts are only punctual and changes are only beginning and have not yet taken
place on a larger scale. Nevertheless, these small changes constitute examples for
other farmers to organize themselves and to take action to defend their interests.
The gains achieved in political participation are more distinct at the village /
Barangay level. They still depend largely on the political will and on the
individuals in the government structures.

6 Land use policy changes in some cities and municipalities

There are significant policy changes at the level of local governments particular to certain
municipal and city governments where PO and NGO influence is stronger. The
productive endeavors of farmer beneficiaries allied to NMGL have induced the
LGU to declare some agrarian reform lands as “food baskets” that are protected
by local laws.

In Bulacan, farmers claimed a property for land distribution, but there was the intention
of the land owner to convert the land. In Angeles City (Pampanga), the successful
struggle of BAFA people’s organization is partly attributed to the resolution of the
Sangguniang Bayan (City Council) to declare the claimed property as agricultural
land. This impact is significant, especially for rapidly urbanizing areas like
Bulacan or Angeles City where agricultural development tends to be sidelined by
biases towards commercial and industrial development. In general, some LGUs
are challenged by the example of collaboration of PDI with POs and the success
of collaboration.

Sustainable development issues are being more and more discussed, but it sould be too
early to talk about the achievement of considerable impacts, except for some
specific places.

7 Public consciousness about good governance has increased

Through the work of PDI and the people’s organizations on law implementation,
transparency and good governance, a general increase of consciousness about
good governance among the farmer’s communities (civil society) and in
government has increased.

7.3.9 Spill over effects

The wider effects of the program are perceivable but cannot accurately be measured. The
successful LTI struggles jointly waged by PDI, NMGL and the DAR have
benefited not only members of the POs allied to NMGL and PDI but also other

products; the National irrigation Administration together with the Office of the Mayor guaranteed proper
irrigation to their farms. Other examples are the allocation of a budget for a day care center or more
classrooms for school.
 farmer-claimants who are not organized or who are not even sympathetic to
NMGL. These struggles have also provided proof that struggles against big and
well-entrenched landowners can be won.

The combined effects of the success stories and wider benefits have increased awareness
among other farmers. Potential beneficiaries of agrarian reform who have
traditionally been reluctant to claim their rights are now encouraged to do so. In
Angeles City, Pampanga, 64 farmer-members of the Margot Multi-Purpose
Cooperative (MMPC) are now working hand-in-hand with NMGL for the
acquisition of the 164-hectare Lutgarda Property which is adjacent to the
Limcauco Property which has been won by BAFA.

Furthermore, the economic projects undertaken by women groups, particularly the pig
raising, are very attractive also to other women who are not yet members of a PO.

7.4 Poverty orientation and contribution to International

Development
Goals and the German Government’s Program of Action 2015
The main questions in the TOR for this chapter have already been discussed.
Consequently, this is a summary of the main points concerning the poverty
orientation of PDI’s READ program.

The poor are part of the target group (see also chapter 5.1.4, page 35). They are key
actors in the planning process of the program (see also chapter 5.3.2, page 40) and
in implementation. PDI designed the program to be sustainable through the
empowerment of the people. These ideas of PDI’s program are also reflected in
the evaluation itself where almost half of the evaluation team was composed of
representatives of the target groups (see methodology, page 2 and Annex, page 3).

According to PDI, poverty is inequality in asset ownership and marginalization due to

lack of access to education and basic services and due to displacement owing to
natural disasters. The programs’ poverty orientation is indirectly structural with
aspects of direct poverty reduction by increased asset development and economic
programs. The poverty orientation is expressed in the following strategies:

• To empower the poor by assisting in organizing them, building up their own

people’s organizations and federation at regional level.
• To empower the poor by training and capacity development for the analysis of
their situations and identification and defense of their interests.
• To improve the control of production factors in agriculture (land) by the poor –
land tenure improvement for sustainable development.
• To empower the poor to participate in decision making processes at local and
regional level.
• To influence decision making of the government in favor of the interests of poor
by lobby work and advocacy.
 • To enhance opportunities of women for income generation activities.

Important values and principles in the implementation of the READ program are
participation and the self-determined development of the poor. The program
contributes to the Program of Action 2015 of the German government; however,
the contribution can not be assessed in quantitative terms (see also chapter 7.3.5,
page 61).

7.5 Ecological impact

PDI’s vision of building self-reliant communities is grounded on a well-balanced and
sustainable environment. Consequently, PDI is committed to environmental
issues and environmentally friendly agricultural development. There is evidence
of more favorable that negative effects of the READ program on the environment:

Trees and permanent crops are usually planted and are replacing annual crops in hilly
areas to some extent and thereby reducing erosion. Reforestation projects also
exist.
Low External Input agriculture and organic agriculture are being practiced, in particular
by the Aeta in Zambales: making compost from animal wastes, mixed cropping,
use of organic fertilizers and minimization of pesticides.
Risk avoiding trials to prepare shift to organic agriculture: Instead of modern rice
cultivation, one PO tries to grow organically sweet corn and rice on small plots.
Sloping Land Agricultural Technology is being practiced in one upland village.

However, intensive vegetable cultivation in areas close to cities goes hand in hand with
the use of synthetic fertilizers and pesticides.

In general, the READ program does not constitute any risk to the environment of the
program area. It cannot be stated to what extent positive impacts have been
achieved or can be expected in future.

7.6 Sustainability

7.6.1 General Conditions

The LTI achievements of PDI and NMGL have been achieved in areas where there are
strong organizations of farmers and where the two9 have forged effective
partnerships with the DAR. In certain areas, these successes occurred under
conditions where landowners allowed some areas to be carved out their vast
holdings or where local authorities provided policy support for retention and
protection of remaining agricultural lands. The current success of the program
has been achieved under specific conducive environments, in particular:

• The existence and concept of AR including the availability of public / government

resources,
 • The political will to implement AR,
• Favorable attitudes and behavior of DAR personnel in the implementation,
• Readiness for dialogue.

It is important to mention the PDI has brought about these favorable conditions to a large
extent through lobbying work at all levels, through the “new actor” on the scene,
the POs and NMGL, and thanks to its access to the director’s level of DAR which
has also influenced the concept of AR. Finally, the site-specific design of smart
strategies of engagement between PDI, NMGL and the DAR also contributed to a
high degree.

However, this environment is not reflective of a general positive transformation within

the DAR, local governments or the land-owning class. Experience shows that
positive conditions need to be created under specific circumstances and
configurations of actors involved in the struggle.

There is the risk that the political will to implement AR can change. There are also
indications, in fact, that the remaining private agricultural lands will be harder to
redistribute due to insufficiency of public resources to compensate landowners
and the upswing of land prices inducing landowners to either hold on to their
properties or negotiate with market based actors to gain a higher value for their
land. This landlord attitude is supported by general policy trend among local
governments to move towards commercial and industrial development as the
fastest route in generating revenues for their territories.

This poses the challenges:

• To identify appropriate economic strategies for utilization of lands which have

already been acquired and develop sustainable development perspectives for local
units beyond individual farming families.
• To orient PDI’s and NMGL’s lobby work in future more towards influencing
government policy in favor of appreciating the role of agriculture in local
economies.
• To involve local government (and as far as possible landowners) in the SCAT
discussions and to enhance the POs influence in LGUs.
• To continue lobby work and advocacy fo9r the implementation of the AR
according to the law.

7.6.2 Program Partner Organization

Today, PDI has a name and reputation even at national level. All the DAR official at
local to regional level appreciate PDI because it helps DAR to achieve its
objectives concerning AR. NMGL is also appreciated as a federation of POs, but
their name and reputation still depends very much on the support they receive
from PDI.
The capacity of the implementing organization PDI is expressed mainly by the achieved
results and impacts (see above). Consequently, it can be expected that PDI will
achieve its objectives. Concerning the sustainability of PDI, it has never been an
organization which has intended to be self-reliant. PDI as an NGO and in
particular its programs depend and will also depend in future on external funding
organizations. If the level of quality will be maintained, the evaluation team is
confident that it will not be difficult to find appropriate partners for the
implementation of subsequent programs.

7.6.3 Target Group

The program has a high level of acceptance among the target groups because it directly
responds to the peasant demand for land. It also addresses the issue of economic
and political marginalization owing to lack of democratization in the distribution
of the nation’s wealth which influences the marginalization of the poor from
political governance. All the results of the evaluation indicate a high level of
participation among the target groups. The breadth and depth of participation is
relatively higher in the LTI struggles. Here, sometimes the people’s organizations
have achieved a level of autonomy whi9ch rather makes PDI participate in the
POs activities. Considering the participatory character of program planning and
implementation, the question of acceptance does not even apply to the READ
program.

7.6.4 The sustainability of the impacts

According to the understanding of the evaluation team, sustainability of impacts are

achieved if benefits will be continued to be effective for a long period. For
organizations it means that organizations continue working and producing
benefits/effects without further external support. Good Governance was
understood as the rule of law, participation of the concerned, utilization of funds
according to rules and regulations, transparency and accountability of decision
making process and of management. Sustainability is expressed if participation of
concerned people in governance and decision making is institutionalized without
depending on individual persons or the current political will.

Empowerment impacts

Those POs who are still fighting to acquire land can sustain their struggles because of the
knowledge and skills acquired through the support of PDI. The POs have
acquired sufficient capacities and status to become relevant players in the
communities. Land cases won in other areas serve as inspirations in the hearts
and minds of the farmers. They are able to run their organizations independently
from PDI. They have also raised their stature and influence because of the
regional formation under the banner of NMGL.
However, there is a considerable gap of capacities between frontline-leaders and PO
members. The POs still require negotiation skills as well as guidance and
orientation for strategy development in order to be successful in negotiations.
Support still is required for the further federation building process and the deep-
rooting of values as e.g. democratic principles, transparency. The name and
reputation of NMGL still depends to a large degree on the close relationship with
PDI. Also the question of an own resource base for the POs and NMGL has to be
addressed. For full independence from PDI, the evaluation team also saw the need
to increase awareness and the information level of POs and NMGL on national
and global processes and issues.

There is also a need to thicken the ranks of second liners, especially from among the
youth. The present depth of leadership qualities is not yet prepared for immediate
turnovers because of the big gap between the first liners and second liners.

The linkage work of exchanging and using experiences from one case to the others is
actually organized by PDI. There is the challenge for the POs to be more and
more active and managing also the exchange of experiences within NMGL.

“We have achieved some steps in the vision to achieve self-reliance, but there are many
more steps to go for us (and for the support of PDI)”. “PDI is the mother and we
are the child.” The consultant asked the question about the age of the childe. It
was answered “it has just started to walk” from some, others mentioned “grade
one, young child”. Even others expressed “we are no children any more – we
have been provided with land!”

Poverty Reduction impacts

Those who have acquired lands can now use their asset to leverage resources and devise
strategies of improving their productivity and incomes. Nothing can be
sustainable than the land titles as such. However, there is the risk that landowners
might be tempted to sell their land for short term benefit due to several threats.
The sustainability of increased food security at family level depends largely on
the land ownership of the families.

• There is a lack of strategies of sustainable land development.

• Agrarian reform beneficiaries are facing big risks in sustaining their gains due to
the adverse policy environments at the level of local governments. Many LGU
are determined to raise revenues from external investments rather than
development of agriculture. Trends in land reclassification and land conversion
have provided more impulse to land speculation which creates disincentives for
agricultural development. Consequently, there is the challenge to enhance the
ability of the POs to negotiate with local governments to provide appropriate
policy and material support for agriculture and land development.
• There are also limitations concerning the CARP. Small farm sizes below 2 ha
will not be a sustainable resource base for families with five or more children.
 The political will to develop the small holder agricultural sector and provide
financial resources is not perceived. In addition, there is the pending bill in
congress to allow FB to use their newly acquired land as collateral for credit,
something that would be the beginning of the end of AR.

There are concrete advances with regards to sustainable human development, especially
around knowledge and skills that have been acquired through PDI assistance in
literacy training in leadership and management and scholarships. The increased
literacy level (formal and non-formal) in particular for the Aeta can be seen as one
of the most sustainable impacts of PDI’s program.

Sustainability of good governance impacts

External conditions are still generally adverse to the interests of small farmers, especially
those who are still struggling to acquire lands. The expected growth of new
agrarian institutions arising from the CARP has fallen below expectations. There
is little time left to fully mobilize the spirit of the agrarian reform law. Current
development policy depends on the government and its priorities on agricultural
development instead of industrialization. As the future of the entire agrarian
reform also the SCAT depends on the current political will and the quality of the
organizations making claims to the land.

Policy changes at the local government level are still confined to certain localities where
PDI and the POs have strong influence and where reform-minded government
officials are willing to cooperate. These changes are still vulnerable to shifts due
to political turnovers.

Institutional change remains a formidable task. The gains achieved in changing rules in
agrarian relations and improving the behavior of the DAR, local governments and
landowners are still very fragile and are vulnerable to sudden shifts in the external
environment.

Sustainability of Diffusion Impacts

There are insufficient means to measure the sustainability of diffusion impacts. The
sustainability of the wider effects of the program among unorganized farmers is
still dependent on the capacity of the POs to expand their membership rather than
the spontaneous attraction of unorganized farmers to the POs. According to the
perception of the evaluation team, the further quantitative expansion of the
federation depends to a high degree on the future support of PDI.

7.7 Cost benefit assessment

The cost / benefit ratio has to be realized in the context of the objectives and impacts of
PDI’s program. Although economic gains are achieved, other factors such as
social and political ones should also be considered. The benefits can not be
 viewed solely from a financial perspective. It is evident that the character of this
assessment is qualitative. Different approaches are realized to appreciate the
cost/benefit ration of the READ program.

the economic benefits and the political benefits which can not be valued in economic
terms are compared to the cost of the program (analysis within READ)
the cost of the program as well as the benefits are compared with other programs

1. Comparison of benefits and costs of the READ program

The total cost of the READ program for three years is about 613.550 Euro. Until the
period of the evaluation, about two-thirds of the budget had been spent (400.000
Euro. Certainly, it is impossible to value the impacts economically. However, for
the purpose of comparing these costs with other programs, the following
calculations are carried out in order to give a rough impression about some
economical features.

Taking the 59 POs with 2.501 members, about 6.800 Euro have been spent for each PO
or 160 Euro for each member family (or about 27 per person). In terms of land,
420 Euro have been spent for each beneficiary for almost 3 ha of land each. The
program costs are marginal compared to the total value of the transferred land
with a market value of between 25 and 50 million Euro 31 . In addition, the
distribution was done without so much violence or loss of life.

Considering the impact on empowerment, poverty reduction, gender relationship and in

particular also on political participation, the costs seem very reasonable as the
impacts concern much more than only the beneficiaries of land transfer and the
PO members. Certainly, the costs of previous programs also need to be
considered; on the other hand, the 2,000 hectares of land cases already in the
pipeline are not accounted for.

None of these comparisons are a sound basis for a cost benefit analysis. However,
together they confirm the general very positive assessment of the evaluation team
between the costs of the program and its benefits.

2. Cost effectiveness of the READ program compared to other programs in

agrarian reform implementation

The READ Program provides evidence that the utilization of strategies sensitized to
objective conditions can effectively enforce land reform in big private agricultural
lands at less cost compared to other past and current strategies.

The approach used by PDI and NMGL is much more effective and less costly than the
1989-1995 Tripartite Partnership for Agrarian Reform and Rural Development

31
A total of 2.953 hectares were provided to 985 farmer-beneficiaries. The value is based on the
price range of PHP 500.000 PHP 1 million per hectare.
 (TriPARRD) Program implemented by PhilDHRRA, one of the biggest NGOs in
the Philippines, with the support of foreign donor agencies. The program was
implemented in only 3 provinces (Antique, Bukidnon and Camarines Sur) at a
cost of more than PHP 130 million (almost 2 million Euro). At the end of the
term, the program was able to distribute more tnan 9,000 hectares of land. But
these lands were mostly government-owned lands that would have been
distributed without any cost to farmer-beneficiaries and NGOs. In comparison,
PDI and NMGL are dealing with private agricultural lands owned by big
landowners who have traditionally resisted agrarian reform by all possible means.

Other NGOs and POs allied with the communist underground propose models that are
costly in terms of social trust and the physical security of farmer-claimants.
Anchored on the political call for genuine agrarian reform, their model of reform
basically rejects the legitimacy and efficacy of the CARP. Thus, the utilization of
this model effectively negates the value of dialogue and negotiated solutions to
land transfer problems. Thousands of farmers caught in this approach have
already lost their lives during several decades of armed insurgency.

8 Recommendations

Program-related recommendations
8.1 Recommendations to the POs and NMGL
The following challenges for the POs and NMGL sere identified in the evaluation:

¾ To consolidate the strengths of the POs and federation by increasing the

independence from PDI. This refers also to the development of second line
leaders, the enhanced exchange of experiences within the federation, the
strengthening of democratic values and the economic development of the
structure, putting more emphasis on gender issues and geographical expansion.
¾ Widen the scope of action and services in order to respond to the demand of
members and changing situations (obtained land security). This refers mainly to
expand activities to other areas of concern, in particular land development and
sustainable rural development.
¾ To expand lobbying and advocacy work from village level to municipality,
provincial and regional level on LTI and sustainable land development.
¾ To remain independent from political parties and other influential persons and
groups.
8.1.1 Further develop strength and capacities of the organizations and the federation
and enhance self
Vision development
-reliance as well as independence from PDI

Whereas many leaders of the NMGL see themselves as political actors committed to
participation in social, economic and political affairs, the majority of the members
of the people’s organizations are more interested in the economic betterment of
their lives. This is certainly not a contradiction, but a clarification of the
synergies would give more moral strengths and orientation to the organizations.
Consequently, it is recommended:

• to initiate a NMGL-wide discussion about relations and synergy between POs as

political forces to effect change for development as well as economic
development for farmers,
• to initiate a process of clarification of the vision and objectives (vision
development process) starting at the “bottom-level” of the people’s organizations,
• to synthesize the POs’ visions to a jointly shared vision of NMGL (federation) for
orientation.

This process will also allow the clarification of the self-understanding of NMGL and the
POs.

Capacity development of leaders and deep-rooting of values

A gap has been observed in the capacities between leaders and members concerning the
integration and living of values within the organization. Furthermore, the
negotiation skills and development of negotiation strategies by the leaders are not
yet sufficient to continue negotiations without the support of PDI. In order to
increase independence from PDI, it is recommended:

• to put particular emphasis on the development of second line leadership through

management training and training on the job, and to give attention to the youth
leaders,
• to put more emphasis on value formation within NMGL and the POs. Value
aspects also concern internal management style, resolution of conflicts,
application of democratic principles, accountability of PO and NMGL leaders,
control of leaders by the members, etc. It is recommended to put more emphasis
on these aspects e.g. through discussion in meetings and periodic self-evaluations
in order to increase the strength of the organization and to ensure the application
of the principles of food governance internally,
• to increase capacity in legal action and negotiation through paralegals and
establishment of a legal information service,
• to enhance information and awareness on national and global processes and
issues.
In addition to PDI as the main provider for capacity building training, other forms and
sources of training should be identified, e.g. by tapping and using the services of
other NGOs and line agencies of government.

Increase financial independence and self-reliance

The people’s organizations and NMGL have their own capital, but the current level is too
low for an expansion of activities. It is recommended to establish a resource base
for NMGL which allows it to function and act more independently from PDI
through e.g. a campaign for capital build up and savings mobilization, external
resource mobilization, external resource mobilization and a reflection on how the
federation can function sustainably in economic terms. This reflection should
consider the relevant challenges to POs and NMGL, in particular the results of
vision development process (see above), internal capacity development, lobby
work, geographical expansion, etc.

Geographical expansion

Farmers in areas where NMGL is not present (within Central Luzon) have indicated
interest in establishing people’s organizations and joining NMGL. It is
recommended to expand the area of influence through organizing farmers around
LTI, ARRD and sustainable livelihood development.

This recommendation refers to chapter 7.1.1 and 7.6, pages 53/72.

8.1.2 Enhance engagement at municipal and city level in sustainable land

development and livelihood

Certainly, the areas of action will depend on the results of the vision development
process. According to the discussions during the evaluation, the following
aspects can already b e stated. It is important that the POs and NMGL continue to
be active in organizing farmers and struggling for farmers’ interests in land tenure
improvement (LTI). In addition, two direction are recommended:

¾ Concerning the issues: Beyond LTI, NMGL should develop areas of action for
Agrarian Reform and Rural Development (ARRD) and be active also in
Sustainable Land Development and Livelihood e.g. through lobbying, defending
interests and participation in decision making. This is important for those
members who have already obtained land security in order to have a perspective
of how to use the land and to reduce temptations to sell the land for short term
benefit.
¾ Concerning the level of action: The gains achieved in political participation are
up to now most visible at the village level. This poses a challenge to the POs to
upgrade their level of engagement and participation at the municipal and city
levels where the most important concerns of farmers such as land use policies and
budget allocations for agriculture are deliberated. In an enhanced cooperation
 with other partners at provincial, regional and national level, the experiences of
Barangay, municipal and city level could be exchanged which will in turn benefit
advocacy, networking and coalition building around ARRD.

This recommendation refers to chapter 7.3.8 and 7.6, page 65 / 72.

8.1.3 Strategic development of services for members

In order to be more attractive for members, a reflection process is recommended as to

what extent additional services and activities could be carried out for members
and member POs. Several ideas were produced during the evaluation; however, it
was not clear to what extent these are really feasible and what kind of services
should rather be carried out by cooperatives. Some of the ideas include
information and training, as well as facilitating the exchange of knowledge
between members. The relevant contents comprise:

• livelihood development, sustainable land development and farming systems

development (organic farming, diversification through agro-forestry development,
integration of animal husbandry, inter-cropping etc.),

• competitive marketing and post-harvest facilities (processing and

commercialization) as well as input supply,

• entrepreneurship,

• development management.

This recommendation refers to chapter 7.1.1 and 7.6, page 53 / 72.

8.1.4 Put more emphasis on gender issues

Gender awareness is increasing, but is limited to first line leaders. There is a need to
promote it on a wider scale. It is recommended to promote the equal rights of
men and women at the household, PO and community level. The development of
a gender program, training curriculum and the conduction of gender sensitivity
trainings can be a starting point, however, it is more important to have a reflection
at the level of values, attitudes and behavior within the organization e.g. during
regular meetings and in periodic (self-) evaluations. It is self-evaluation that these
measures do not only concern women, but should also be addressed to men.

This recommendation refers to chapter 7.1.1, page 53; chapter 7.1.2, page 55, 7.3.3,
page 60; chapter 7.6 page 72.

8.2 Recommendations to PDI

The main challenges for PDI are the following:
 • Continue the support to NMGL and POs by putting more emphasis on increasing
their self-reliance and independence from PDI.
• Develop further areas of action beyond the LTI as a long-term perspective for
PDI:

• Sustainable Land Development and Livelihood. This concerns the further

development of economic support services for the economic development of the
land acquired through land reform.
• Legislative Lobbying and Good Governance. There is a potential that, through
more participation of citizens, resource allocation and policy decisions can be
influenced.

¾ Integrate more systematically gender issues into the entire READ program
of PDI.
¾ To develop support for youth as important political actors in future.
¾ Increase the strength and independence of PDI by development of second-
line managers and a management information system.

8.2.1 Continue support to POs and NMGL to enhance their degree of independence
and self-reliance

To continue to provide support to the POs and NMGL

The POs and NMGL require further support for the consolidation of the organizations
and to enhance their ability for action, in particular in LTI lobby work and
advocacy. It is recommended that PDI provides support in all the aspects
mentioned under the recommendations to POs and NMGL in chapter 8.1, in
particular:

• Deep-rooting and living of democratic a\values within NMGL and the POs
through discussion in meetings and periodic self-evaluation in order to increase
the strength of the organizations and to ensure the application of the principles of
good governance internally,
• Increasing the management capacities of the POs and the development of second
line leadership, also of youth,
• Enhancing the economic independence of the NMGL and POs, or at least
reducing dependence on PDI,
• Widening the scope of action and services, in particular land development,
sustainable rural development, and entrepreneurship,
• Expanding lobbying and advocacy work from village level to municipality,
provincial and regional level on LTI and sustainable land development,
• Supporting POs and NMGL in remaining independent from political parties and
other functioning of the organization,
 • Conscientizing the youth to lobby for peasant rights: more broadly, to promote the
social, political, cultural and economic rights of the poor (not only peasants but
also women, indigenous peoples, children, etc.).

Systematic assessment of PO capacities in periodic self-evaluations to ensure self-

determined capacity development by the POs

A more systematic assessment of PO capacities should be carried out in order to ensure

the increasing autonomy of the POs by further reducing the support of PDI to
each organization. As the situation and capacities of the POs are very different
and the period of support varies considerably between the provinces, it is
important to develop guiding principles which orient PDI’s support to each PO.
This should enhance their self-determined development and ensure the direction
towards self-reliance. Therefore, it is recommended:

• To demand from the POs and NMGL an identification of their needs for capacity
development / training,
• That the POs and NMGL carry out periodic (annual) self-evaluations defining
their strengths and weaknesses and the priority areas for capacity development.
These evaluations can be facilitated and assisted by PDI,
• That the support of PDI to NMGL and POs is subject to periodic joint evaluations
which should result in agreements about the roles and tasks of each partner. A
monitoring of the agreements will facilitate to follow the decreasing importance
of PDI compared to NMGL/POs in the process of cooperation,
• To carry out a reflection in PDI about the required capacities and elements for
self-reliance of POs and NMGL. This would be a guiding framework for the
evolution of the NMGL/POs and the support given by PDI. The development of
steps or categories can be a starting point; however, in reality there is not one
standard way for the evolution of POs.

This recommendation refers to chapter 7.1.1 page 53; chapter 7.3, page 57; chapter 7.6,
page 72.

8.2.2 Develop complementary areas of action

Sustainable Land Development and Livelihood – strategies for utilization of lands

The work of PDI is presently very much related to the Agrarian Reform (AR). The
continuity and future of AR depends, however, on the political will. The
evaluation team recommends to PDI to develop complementary areas of action in
order to contribute to the availability and application of strategies for the
utilization of lands which have already been acquired. This is simultaneously:

¾ A strategic orientation to reduce PDI’s dependence on AR and to use its

experiences and strengths for other important areas of concern outside AR.
 ¾ A response to new challenges to develop and use the acquired land sustainably for
income and the livelihood of the farmers. Attention has to be given also to the
role of off-farm income development in rural areas 32 . This requires long term
planning to ensure financial viability and to mitigate potential conflicts within the
family with regards to land use. Much more conceptual efforts have to be
undertaken which go far beyond an upgrade in quantity and operationalization of
the ESS/SPF in order to achieve the objective of sustainable and self-reliant
income for families and communities.

The roles of PDI

PDI is not in the position in all cases to identify appropriate strategies, but the role of PDI
seen as following:

• To influence changes in local government policy in favor of the role of agriculture

in local economies. As a consequence, partnership and negotiation strategies
between PDI, NMGL and the DAR should be broadened to directly involve local
authorities and landowners (of course where it seems appropriate – not as a
standard solution). This means upgrading the current level and location of PDI
engagements in local government bodies, and also promoting the active
involvement of POs in their respective local government bodies.

• To assist the organizations of farmer-beneficiaries in developing perspectives for

farmers having achieved land security through e.g. preparing investment and
business plans as well as providing marketing assistance by exploring market
linkages, networks, etc. and to identify organizations ready to undertake business
and facilitate the exchange of experiences. Assist PO in a reflection on their
capacity and appropriateness to support and carry out economic ventures.

• Develop trainings or identify training providers on relevant issues: livelihood and

sustainable land development, competitive marketing, entrepreneurship,
development management, etc.

• Upgrade the administration of the Small Project Fund in regard to the clarity of
the calculation of interest rates and the monitoring of the repayment / revolving
fund. Savings for the capital build-up of the PO’s and cooperatives should be
monitored along with the credit fund. There is also need to clarify institutional
aspects of savings and credits 9for more details, see Annex 5.3, page 48 and
Annex 5.4, page 50).

• To upgrade mobilization of other external resources, including those that may

come from the private (business) sector through mutually-beneficial supply

32
In many cases, farm income from the actual farm sizes alone is not enough for entire families. This will
be worse when ownership of small-sized lands will be inherited by a family of 5-6 persons.
 contracts or marketing arrangements. To mobilize economic support to small
owner cultivators.

• Develop awareness and responsibility of farmers to protect land security.

• Initiate a discussion among POs and NMGL about savings and appropriate
financial organizations and institutions which can provide credits for land
development and economic activities ensuring the access of farmers to these
credits and to make farmers bankable.

• Development of music and poetry for advocacy, also in other areas of concern:
ARRD, Sustainable Land Development and Livelihood as well as Legislative
Lobbying and Good Governance.

This recommendation refers to chapter 6.1.3 page 44; chapter 7.1.2 page 55; chapter
7.3, page 57; chapter 7.6, page 72.

8. 2.3 Enhance lobbying at all levels

The gains achieved in political participation and power relations in Agrarian Reform are
still very fragile and are vulnerable to sudden shifts in the external environment.
There is a need to further consolidate achieved institutional changes in DAR and
to increase advocacy and development of counter measures against vested interest
groups through a variety of methods PDI is using already. PDI should enhance its
presence in the local government units’ legislative forums. However, PDI’s
policy advocacy and lobby work should not be limited to the local level
engagement: work at the national level should continue.

This recommendation refers to chapter 7.3.8, page 65 and 7.6, page 72.

8.2.4 Increase the strength and some management aspects of PDI

The evaluation did not mention negative aspects of the management of PDI. However,
some space for improvements, were identified and responses for future challenges
discussed. These concern mainly three aspects.

¾ Development of a second line leadership in PDI. Many of the strengths of PDI

depend on the person of the Director. However, this is simultaneously a
weakness as PDI and the READ program depend to a large extent on the Director.
There is a considerable gap between the director and staff / second-liners in terms
of capacities, management responsibilities and relations to other organizations. It
is recommended to put more emphasis on this aspect in future and to
systematically develop staff for management tasks in the organization.
¾ Systematize efforts in research, monitoring and evaluation. The evaluation
recommended:
 • To establish a management information system (MIS), including a data
bank of the photo, audio, visual, etc. materials.
• To develop a monitoring and evaluation system putting emphasis on the
achievements of impacts. The formulation of appropriate indicators 33 and
the focus on the most relevant aspects which would reduce the number of
indicators would facilitate considerably a monitoring which assist the
management of the program. This is not contradictory to a participatory
approach when indicators are formulated by or with the respective target
groups in a bottom-up planning process.

This recommendation refers to chapter 6.2.2, page 50 and chapter 6.3, page 51.

8.2.5 Enhance the integration of gender issues into all aspects of READ program

PDI has already recognized the need to put more emphasis on working with women.
This insight was confirmed by the analysis of impacts. A lot of space exists in
AR to increase gender equity. Significant attention is required in defining the co-
ownership role of women in distributed lands and in securing the succession of
ownership at the household level. Also in regard to PDI’s strategies and actions,
gender issues should be given more emphasis and the gender orientation of the
program requires more clarity. It is also recommended to influence the wider
social environment regarding gender equality since it is feared that the gains made
within the organizations will not be sustainable if the surrounding society doesn’t
share the values and practice of gender equality.

It was unanimously agreed in the evaluation that gender should not constitute a separate
activity or program, but that all the other programs and activities should consider
and respect gender issues.

Particular importance should be given:

• To ensure land titles are not only given to men but that both, men and women are
mentioned with the same right to the land (co-ownership role of women),
• To enhance participation of women in training and education for the POs,
• To ensure women’s capacity development for front-liners and second line leaders
in POs and NMGL,
• To integrate gender in the monitoring and evaluation system of PDI,
• To identify needs/problems/opportunities and the threat to gender equality,
• To develop the economic capacities of women by appropriate economic support
to identified women’s IGP, and to enlarge these programs to men also. Care
should be taken that ESS is not an additional program for women to compensate
because women are less involved in political empowerment,
33
Monitoring is facilitated by the formulation of indicators answering the following aspects: What
(parameter), who (people concerned0, where (area), when (date, time span), how much (quantity). The
indicators should contribute to a better orientation of the program but not reduce the flexibility in
implementation (see 9.7, page 102).
 • To policy advocacy fro their socio-economic and political rights through lobby
work training and education on gender equally at all levels,
• To enhance women’s participation (involvement) in local governance,
• To the consolidation and expansion of peasants women’s groups in the areas of
operation and the formation of a peasant women’s federation,
• To enhance participation (involvement) of women in all internal decision making
processes of the people’s organizations,
• To enhance women’s active involvement in future farm and land development
issues in order to increase women’s participation in farm development and
decision making.

This recommendation refers to chapter 6.3, page 51 and chapter 7 from page 53.

8.2.6 Carry out reflections on geographic expansion with funding organizations

PDI should also expand its support to new areas as defined by the POs and NMGL;
however, more and more responsibility should be assumed by the POs themselves
in the evolution and expansion of the structure in geographical terms, capacity
and quantitative development. For the remaining period of this program phase,
the priority should be given to the work on good governance and sustainable
livelihood development; in addition, the evaluation team also identified a
potential to expand P-DI’s activities into other geographical regions. It is
recommended to concentrate for the rest of this program period on the present
funding organizations should be involved in this reflection as a geographical
expansion also would require an increase in funds.

This recommendation is based on the achievements presented in chapter 7, page 53.

8.3 Recommendations to EED/EZE

Continue support to PDI and maintain space for flexible implementation according
to common objectives

Based on the achievements of PDI, it is recommended that EED/EZE continues its

support to PDI. It is evident that empowerment programs such as the READ
program need long-term support. Being an important factor for success (see
chapter 9.2.10, page 97), sufficient space for flexible implementation by PDI
should be maintained.

This recommendation refers to chapter 6.2.3, page 50, chapter 6.3 page 51 and chapter 7
from page 53.

Emphasis on impacts, perspectives and development of second liners

In the cooperation and dialogue, EED/EZE should encourage PDI to put more emphasis
on impact in its management and reporting system. The formulation of
 “milestones” of the development process within and also beyond the present
program phase could render implementation by PDI and accompaniment of
EE/EZE more effective. In addition, the development of second-line leaders
should received particular attention in the dialogue between two partners.

This recommendation refers to chapter 5.2.1, page 36, chapter 5.4, page 41, chapter 6.3
page 51 and chapter 7.6.2, page 73.

Consider expansion

In light of the achievements of the READ program it seems desirable to expand it to other
geographical areas. However, the evaluation team suggests that priority is given
to the consolidation of the empowerment of POs and NMGL in Central Luzon
and to the development of complementary areas of action, in particular land
development and legislative lobbying. Once these respective objectives are
achieved, an expansion of the program – with increased funds – should be
considered. According to PDI, the amount of EED/EZE funding should be related
flexibly to the quality of the partners’ work rather than fixed ceilings for each
organization.

This recommendation is based on the achievements presented in chapter 7, page 53.

Use experience of PDI for lobbying, education and PR ‘in the North” and for the
dialogue between South and North

It is recommended that EED/EZE should use lessons of the READ program for other
programs in similar fields as well as for lobbying, education and PR in Germany
and ‘in the North” in general. Partners like PDI can make valuable contributions
to the dialogue between South and North by authentically explaining and
conveying perceptions and perspectives of the civil societies they are part of.
Such deliberate attempts at linking projects in (and actors from) the South
systematically with activities and actors in the North will further gain in
importance 34 .

This was an idea produced in the evaluation process which is not directly based on a
finding of the evaluation

Reflection on criteria of success as decision criteria for funding programs

The evaluation made evident that the success of PDI’s program depends on may factors,
including clearly identified values which are being lived by management and
staff, emotionally affected staff as a basis for a high commitment etc. (see chapter
9.8, pages 102-103). Most of these factors do not become evident from the

34
BMZ for its part has taken the necessary steps in 2003 by unlocking budgetary regulations in order to
facilitate the granting of funds for such linkage activities. These adjustments take effect in the Ministry’s
2004 budget.
 program proposal, but they are nevertheless important for EED/EZE decisions
about funding programs.

The evaluation team has not analyzed the procedure at EED/EZE for making decisions
about funding a program. However, it could be interesting to learn from the
present case and to reflect about the criteria for the selection of partners and
programs which allow to consider these factors. This could contribute to further
develop the basis for funding decisions and to orient the accompaniment of
programs and cooperation according to key factors of success.

This is not a recommendation but just an idea of the evaluation team.

8.4 Recommendations to BMZ

Discuss evaluation methodology

As stated in the introduction, this evaluation was carried out in a participatory fashion.
However, participatory evaluation still seems to be an exception to the rule of
conventional approaches and different opinion prevail what participation means in
an evaluation. Since the evaluation team as a whole feels that this approach was
in case very successful in terms of favoring learning and producing insights it is
recommended that BMZ takes into consideration to create a platform for the
exchange of ideas and experience on evaluation methodology in general and
participatory evaluation in particular. Participatory evaluation methodology
should be considered especially for the rest of the series of annual BMZ
evaluation (2002-2007) of projects of the German Church Development
Organizations.

General Recommendations

8.5 Recommendations concerning the key questions of the sequence of

evaluations
This chapter compiles the main findings of the evaluation concerning the 7 key-questions
of the sequence of evaluation.

1 Which elements of the framework conditions can be considered to be favoring

and hindering the interests of the poor, their organizations and the supporting
organizations? Which possibilities have the organizations (People’s
Organizations, NGOs) to influence and change these framework conditions?

The existence of the Agrarian Reform law and the possibilities to have elected seats in
the Barangay and municipal council for NGOs and people’s representatives
constitute the key favorable factors for the participation of the poor and the
representation of their interests. However, there are manifold hindering factors:
 corruption, unequal power relations, exploitation of the power of the landowners
to defend their interests, etc. (see also chapter 4, 22).

2 To what extent has PDI achieved to enhance and enlarge the possibilities of
participation of their target population at local, regional, national and
international level? What kind of results and impacts have been achieved in this
respect? Can the following impacts be observed in the program area
- sustainable re-allocation of government resources,
- change in the allocation process, and an increased transparency,
- stimulus for sustainable development for the poor?

The following impacts in regard to participation of the target population could be

observed (see also chapter 7.3.8, pages 65 – 70).

Increased participation in decision making processes

A Farmers have become active – the POs as a new actor

Prior to the intervention of PDI, the primary beneficiaries of the program hardly had a
voice in local politics and had extreme difficulty in claiming their rights to land.
Equipped with sufficient information concerning their rights to land and to
government services as well as the skills to directly negotiate with other actors of
society, they pooled their strength through the organization in POs and a
federation. Even if farmers had before been members of political groups or other
POs existing in the Philippines for 40 years, the POs under NMGL can be
considered as a new actor in the scene of agrarian reform and political
participation as they began to exercise their role as a legitimate force in local civil
society. They expanded their influence not only to other farmers but also to local
authorities. The discussions revealed the increased autonomy of the POs to make
decisions regarding their economic life.

B POs use meta legal tactics to influence decisions

The agrarian reform law has many loopholes. Although knowledge of the law through
paralegal training has improved the capability of farmers in claiming their rights,
legal processes are either circumvented or used by landowners to delay land
reform. To compensate for the weaknesses of the legal processes, NMGL and its
allied POs use meta-legal tactics in order to influence the pace of legal processes
and swing decisions in their favor. These tactics take the form of mass
mobilizations such as pickets, rallies and conduct of dialogues en masse. These
tactics create a show of unity and strength that obliges DAR officials, local
government authorities and landowners to listen to the voice of the farmers.
NMGL also supports regional and national campaigns on peasant and agrarian
issues launched by PDI and other civil society groups.
C The POs and NMGL exercise vigilance regarding AR law implementation

Knowledge of the agrarian reform law has encouraged farmers to claim their rights.
However, most often they were not effectively heard. This significantly changed
when farmers, with the assistance of PDI and NMGL, were able to find
information and uncover anomalies pertaining to CARP implementation.
Mistakes were pinpointed and corrections demanded. PDI and the POs became
active participants in agrarian reform implementation and the correction of
anomalies. This important vigilance function of the civil society had not been
assumed before the intervention of PDI. Presently, this function is assumed in
more than 40 agrarian cases.

D Institutional discussion and negotiation forums through partnerships

The tripartite partnership of the DAR, NGO and PO has been recognized by the DAR
since the mid-1990s with the creation of the Special Concerns Action Team
(SCAT) (see also chapter 6.1.2, page 43). It shows the ability of the POs through
NMGL to directly negotiate land claims with the DAR or to seek support from
reform-minded local government officials. The DAR would like to popularize the
model in all regions of the country. However, this partnership was not fully
institutionalized in other regions and was mainly employed in the distribution of
less contentious lands. The READ Program’s experience has provided evidence
of less contentious lands. The READ Program’s experience has provided
evidence that the tripartite partnership of government, NGO and the PO can also
be effectively employed in the acquisition and distribution of contentious private
agricultural lands.

E PO representation in elected positions in local governments at Barangay level

Seizing the opportunity provided by the Local Government Code and building on the
successes of LTI struggles, PDI, NMGL and the POs constructively engage with
government structures not only from outside but also from within the mechanisms
and processes inside the various levels. Elective positions in local governments
allow farmer-leaders to represent their organizations in legislation or in execution
of government programs. Not only do they act as watchdogs in budget
deliberations (exercise vigilance), they also exert influence in policy decisions,
legislation, programming and allocation of resources. In some municipal
development councils and Provincial Agrarian Reform Committees, PDI is the
elected NGO representative.

Impacts of the increased participation in decision making-observed changes

A Changed concept of AR implementation thanks to PDI’s experiences

PDI’s experiences in the Bulawen Resettlement Scheme influenced the DAR’s concept of
Agrarian Reform implementation. PDI’s agrarian reform community model has
 been adopted by the DAR and made it into an ODA-funded program called the
Agrarian Reform Communities (ARCs). This approach has enhanced the
efficiency of the public sector. Also the SCAT (see question 7) is already being
implemented nationwide through a memorandum circular.

B Changed behavior of DAR in the program areas – increased transparency

PDI and NMGL have obliged the DAR to improve its behavior and to recognize farmers
as active participants in agrarian reform implementation by the exposition of
anomalies and by reducing asymmetry in information. There are significant
changes in the behavior of the government, especially in the national, regional,
provincial and municipal offices of the DAR particularly in the areas covered by
the program.

Many DAR officials and personnel used to be non-receptive to the demands of poor
peasants, their organizations and even NGOs. They are now much more sensitive
to the issues brought to their attention by organized sectors. DAR personnel now
have time to discuss such issues with them. Concerned government agencies and
officials are obliged to respond to issues and to take action. There is also
evidence that the advocacy of PDI and the POs has led to support “friendly
forces” in the government. Without the intervention of PDI and the POs, some
forces within DAR would have been removed because of their “farmer-friendly”
attitudes as perceived by landowners. More consciousness in DAR and more
transparency of the implementation of AR has been achieved. Consequently, it
can be concluded that government officials in DAR are more committed and
transparent thanks to the READ program.

“Before the DAR did not give us the correct information – they also asked us to come
back again and again. Now, they are cooperating, sometimes they even ask
farmers and interview them about specific case. They are more open towards us.
They did not even have contact before to us ordinary farmers.” “Sometimes they
even use us as excuse to the landowners – they tell them they have to decide in
our favor because of us and our strengths.”

Of course, not all the officers have changed their behavior, there are still a lot of
problems according to the perception of PDI and the POs, but considerable
improvements have been achieved. However, the favorable policy environment
influencing the successes of PDI and NMGL is currently mainly confined to
policy processes involving the DAR.

These impacts and changes have not only been identified by the farmers, but also
confirmed by the DAR officials interviewed. They even acknowledged that DAR
still has problems with corruption, but also that it has been improved considerably
due to the new leadership at regional level which contributed also to the
mentioned impacts. However, according to them also the political will from the
top level alone would not have been able to achieve what has been achieved now
 with the help of POs and PDI. DAR appreciates POs and PDI because they help
to achieve the DAR’s objectives.

C Accelerated and more complete law implementation

Thanks to the intervention of PDI and the POs, more areas for land distribution have been
identified and the distribution of titles has been achieved faster and/or with
increased quality thanks to the improved behavior of DAR. Also, the exposition
of anomalies surrounding the distribution of 12,000 hectares of land in Zambales
was corrected leading to the redistribution of these lands to legitimate
beneficiaries. In Tarlac and Pampanga, the discovery of un-distributed CLOAs to
legitimate beneficiaries led to appropriate corrections leading to the distribution of
CLOAs to rightful beneficiaries.

D The gap between farmers and DAR has been narrowed – breaking of old
alliances

Before the intervention of PDI and also in the first years, the farmers perceived the DAR
officials to be sided with the landowners. They were hardly accessible and their
position was far away from the farmers’ point of view. Today, the picture has
changed considerably, the “distance” between DAR and farmers has been reduced
considerably. At least as important for farmers simultaneously is that many of the
old alliances between DAR officials and resisting landowners have been broken
or at least the distance has increased allowing DAR to take a more neutral
position. This can be attributed to a large extent to PDI’s intervention, mainly due
to the use of the dialogue oriented approach and the institutionalization of SCAT,
the tripartite negotiation forums.

“Each week we go to the MARO. Before we were fighting, now we discuss.” “Before
we were not assisted by the DAR. Now, after the support fromPDI and the
negotiations we are assisted by DAR. They are doing their job, however, there
are still some inDAR who are corrupt.”

E Mobilization and redirection of services and budgets in favor of program

beneficiaries

The READ program’s strategy of enabling people and the POs to constructively work in
the development bodies has allowed their active participation in local
development councils. They were able to influence the allocation of local budgets
and to increase transparency and accountability of council decisions 35 . Aside
35
In Nueva Ecija and Bulacan, women’s organizations were able to increase their resources due to
infusions from public resources. In Angeles City, the local legislators allied to NMGL are now
suspended by the City Mayor because of their opposition against lack of transparency and misplaced
allocation of budgets. Another example is the farm-to-market road that was constructed in Morong,
Bataan, along with a solar dryer. In Barangay San Isidro, Laur , Nueva Ecija, a farm-to-market road also
was built while the construction of a communal irrigation system is ongoing. In Botolan, Zambales,
major government line agencies pledged support and assistance to the local peasant federation composed
 from the fast-paced development of LTI cases, the government also initiated
several infrastructure projects in areas with strong PDI-PO partnership. However,
these impacts are only punctual and changes are only beginning and have not yet
taken place on a larger scale. Nevertheless, these small changes constitute
examples for other farmer to organize themselves and to take action to defend
their interests. The gains achieved in political participation are more distinct at
the village / Barangay level. They still depend largely on the political will and on
the individuals in the government structures.

F Land use policy changes in some cities and municipalities

There are significant policy changes at the level of local governments particular to certain
municipal and city changes at the level of local governments particular to certain
municipal and city governments where PO and NGO influence is stronger. The
productive endeavors of farmer-beneficiaries allied to NMGL have induced the
LGU to declare some agrarian reform lands as “food baskets” that are protected
by local laws.

In Bulacan, farmers claimed a property for land distribution, but there was the intention
of the land owner to convert the land. In Angeles City (Pampanga), the successful
struggle of BAFA people’s organization is partly attributed to the resolution of the
Sangguniang Bayan (City Council) to declare the claimed property as agricultural
land. This impact is significant, especially for rapidly urbanizing areas like
Bulacan or Angeles City where agricultural development tends to be sidelined by
biases towards commercial and industrial development. In general, some LGUs
are challenged by the example of collaboration of PDI with POs and the success
of collaboration.

Sustainable development issues are being more and more discussed, but it would be too
early to talk about the achievement of considerable impacts, except for some
specific places.

G Public consciousness about good governance has increased

Through the work of PDI and the people’s organizations on law implementation,
transparency and good governance, a general increase of consciousness about
good governance among the farmer’s communities (civil society0 and in
government has increased.

mostly of the Aeta. The Municipal Agricultural Office promised to give them seeds at a subsidized
price; the provincial office of the Department of Trade and Industries agreed to help them in marketing
their products; the National Irrigation Administration together with the Office of the Mayor guaranteed
proper irrigation to their farms. Other examples are the allocation of budget for a day care centre or more
classrooms for school.
3 What is the role of networks, alliances and co-operation between non-
government actors and NGOs with government actors at local, regional and
national level as well as at international level (north/south)?

Without the establishment and institutionalization of the SCAT mechanism, the

partnership between people’s organizations, as well as PDI as an NGO and DAR
as the government organization, many results and successes would not have been
possible. This cooperation was essential and has changed the power relation
among the actors. It has brought the government organization DAR closer to the
organized poor farmers and simultaneously broke the alliances of DAR officials
with big landowners. Connecting the different levels from grassroots work at
village level up to lobby work and advocacy at national level was very important.
Both levels benefit each other. Experience from the grassroots level improve the
lobby work at national level, the national level reputation of the NGO helped the
successful resolution of land cases at the grassroots level.

4 What concrete causes induce the creation of organized representation of

interests of the poor (self-help, advocacy, etc.)

The main factor was the fact that the NGO managed to mobilize the hope of the farmers
for a better future in areas where their felt needs are. Land ownership and its
respective problems are emotionally important to them. In addition, PDI
managed to have a wide variety of methods to mobilize farmers, including those
which appeal to the farmers emotionally and affectively 9e.g. songs) and not only
to the cognitive aspects.

5 What kind of favorable and hindering reactions of decision makers can be

observed? What kinds of factors have particular influence on the organizations
representing the poor and their interests? What are strategies of the
organizations to cope with these factors? Are these strategies appropriate?

PDI and NMGL have obliged the DAR to improve its behavior and to recognize farmers
as active participants in agrarian reform implementation by the exposition of
anomalies and by reducing asymmetry in information. There are significant
changes in the behavior of the government, especially in the national, regional,
provincial and municipal offices of the DAR particularly in the areas covered by
the program (see question 2).

The program has facilitated these changes by its negotiation and dialogue strategy with
government and other actors. This is an innovation considering the history of
Agrarian Reform and the political struggle for the rights and betterment of
landless in the Philippines, PDI. The dialogue orientation has led to
institutionalized forums of exchange and negotiation between different partners;
farmer organizations, PDI and DAR. However, dialogue orientation does not
mean to become softer or reduce the demands. PDI’s strategy is to be hard in the
subject but stick to the law and respect persons. This is also represented in a
 constructive way of dealing with conflicts. The research work on individual land
cases was an important basis for the development of the negotiation strategies and
for lobbying. One important factor of the success of PDI was also to have
obtained access to the secretary level of DAR thanks to its reputation and
experiences, but also thanks to personal relations.

6 What are the lessons learned concerning the effectiveness of the means and
actions and strategies of PDI related to the achieved impacts? What aspects are
specific for the respective situation, what can be generalized for similar
programs?

Specific for the situation of the program are the two favoring factors:

Process in society resulted in openness / space for dialogue – POs / farmers have
undergone a learning process before: After a period where violent and non-
dialogue oriented methods were prominent in the political field, Philippine society
became more and more open to dialogue as a form to negotiate and to give
orientation to the development of the country. Before, PDI would have had
difficulties to find acceptance for its dialogue oriented and negotiation approach
in the society and particularly among farmers.

Existence of AR law. One key factor which allows the success of PDI is the existence of
the AR law. Also the existence of “friendly” forces in the government
administration and in DAR particularly are preconditions for the dialogue oriented
approach.

A number of other lessons were learned from the experience of PDI which can be
generated

Existence of a shared vision and objectives among staff and the ability of staff to
translate them into action

The program of PDI has a clear objective around the issue of Agricultural Reform and
specific land cases and a population in a specific geographical area or according
to social criteria. The vision and objectives are clear. They are probably more
clear in the heads and translated into the actions of staff than in printed
documents. This makes evident that “nicely’ formulated objectives might be
helpful, but are far from being a warranty for success. Much more relevant is the
degree to which objectives are commonly shared. It seems also an important
factor that PDI does not offer a broad variety of support in the field of rural
development etc., but that the scope of actions is limited.

The content of the program touches the emotions of the farmers – issues correspond
to the felt needs of the farmers
The PDI’s program corresponds to the felt needs of the farmers. It is not one aspect
beyond others, but it figures among the priority questions for many farmers. The
word “fell” needs is important as the content of the program touches the emotions
of the farmers – and also of the staff. This emotional level beyond cognitive
aspects is considered to be important. This is a much more relevant source of
motivation and personal commitment of the farmers themselves which is in turn a
key factor for the success of the program.

Comprehensive strategy of empowerment and to address poverty

The programs poverty orientation is indirectly structural with an additional aspect of

direct poverty reduction by increased asset development and economic programs.
The strength of PDI’s strategy of empowerment is the combination of the
following elements:

• Capacity development (knowledge and skills) to develop human resources,

• Organization of farmers around their shared vision and not because of access to
programs advantage (e.g. loans),

• Mobilization of people through information and development of hope for a better

future (which must be realistic),

• Value formation through training and exposures as well as through the living of
the values by the staff,

• No promises to the farmers by the program – clarification of the need of self-help

and the importance for the people’s organizations to stand on their won from the
very beginning,

• Transfer of financial resources to develop management skills in livelihoods and

enterprises, and

• Transfer of land to improve land tenure security.

Self-reliance of farmers, POs and NMGL as an objective from the beginning

The self-reliance of the organizations has been intended from the beginning of PDI
support. PDI provided space for self-determined development and commitment.
This is also promoted an increase in the self-confidence of the farmers and
people’s organizations which in turn enhanced further commitment and
motivation.

Close cooperation and trust with government keeping the own independence also
from political parties
PDI has managed to cooperate closely with government Institutions, mainly DAR, but
has always managed to remain completely independent from the Government by
pointing out their positions and the positions and interests of the POs. PDI serves
as a bridge to bring together government and civil society. The objectives of PDI
and its commitment to political issues for a clear target group are very close to the
objectives of political parties or forces which, however, apply very different
strategies and means. It is one factor of the success of PDI that it has remained
neutral in regard to political parties and has kept its independence:

Working at all levels from grassroots to national level in a way that each level
benefits from the work at other levels

One of the key factors of success is the fact that PDI works at all levels, from the very
grassroots level at Barangay and village level up to the national level. It has been
impressive to see how each level benefits from the other:

• The local level benefits from the reputation, experiences and the success of
lobbying work at the national level.

• The national level benefits from the broad experiences and detailed knowledge
about the situation at grassroots level. This knowledge is more easily
communicated within PDI than in other organizations, in particular DAR. This
results in a considerable advantage in terms of concrete knowledge, for example
about anomalies in the law implementation. This knowledge is also appreciated
by DAR and contributes to the good name and reputation of PDI. The strength of
PDI as an NGO lies also in transforming grassroots development initiatives into
policy for advocacy at the national level.

See also the lessons learnt presented in the following point.

7 What is the evolution and process of co-operation between the poor, their
representing organizations (PO) and the advocacy organizations (NGO).
Which factors influence the acceptance of the supporting and advocating
organizations by the target groups? What are the lessons learned for future
program?

In the region, PDI today principally co-operates with NMGL, the regional peasant
federation of farmers’ organizations in the provinces where PDI operates. The
creation of most of these POs has been facilitated and assisted by PDI. PDI’s
experience in direct bilateral cooperation with the DAR who is responsible for
implementing the AR varies according to the behavior of the agency at various
levels. Experience shows that the behavior of the agency is influenced by the
quality of personnel and their attitude towards various actors in agrarian reform.

The highest form of cooperation achieved by the program so far is the establishment of a
tripartite mechanism called the Special Concerns Action Team (SCAT). The
 SCAT is a team composed of key NMGL leaders, PDI personnel and key DAR
regional and national personnel and officials. In SCAT, the leaders of the
people’s organizations have a chance to bring their cases and claims directly to
DAR officials. The DAR also is also forced to minimize bureaucratic anomalies
because of the farmers’ vigilance. The SCAT serves as a pressure group that
pushes various actors to cooperate and achieve the resolution Land Tenure
Improvement through provision of venues for mutually-beneficial negotiations.
To find ways to solve land tenure problems, DAR, PDI and NMGL conduct joint
action planning. The SCAT is replicated in every province where NMGL has an
allied organization and has agrarian problems to discuss.

PDI’s links with certain high officials at the DAR Central Office has also served well in
addressing local demands. The mandate given by the DAR Central Office, e.g.
SCAT, has been effective in overcoming the resistance of local DAR officials.
Correspondingly, good relations with DAR provincial officers aid in overcoming
the resistance of DAR municipal officers.

The NGO-PO partnership is an alternative approach to the top-down approach being

employed by the DAR in CARP implementation. The use of dialogue and
negotiation and the fact that this mechanism has been institutionalized were key
factors for the successes in LTI. The following are the key-lessons learnt which
can be generalized also for other programs:

Respectful cooperation with farmers through clarity of roles and mutual feed-back

A six month participator planning allowed the program to be based on the demand and
ideas of the potential beneficiaries and the use of their experiences as well as
those of PDI. Respectfulness in the cooperation is expressed in the participatory
decision making between PDI and the POs and the clarity of the role of each
partner. Equality is also expressed in the fact that feed-back and criticisms of POs
towards PDI are welcomed. On the other hand, weaknesses as perceived by PDI
are fed back to POs in a constructive way as challenges.

Combination of flexibility in implementation, but respect for transparent principles

and values – Process-oriented implementation versus concentration on the
working plan

The strategy of PDI is based on the existing law and seeks to apply the law in each
individual case. As each case is different, the strategy for each land case is also
designed according to the specific situation based on research and analysis. The
implementation and further development of the strategy follows the evolution of
the process, of negotiations, of the case, etc. The staff considers each case in the
context of PDI’s values and what the most appropriate steps would be. It is an
important factor for success that PDI even working in an entire region does not
stick to strict working plans or implementation schedules. In addition, the
 research work of PDI and the use of a broad variety of other methods, e.g. songs
and poems affecting the emotional level of the people, are factors in success.

Rather than on planned results and indicators, the READ program’s implementation and
management is based on principles and values which are in correspondence with
the content of the program. This high degree of flexibility is to a large extent
made possible and even encouraged by EED/EZE’s philosophy of partnership and
development.

“Preached” values of the program are also lived by management, staff and in the
cooperation with farmers

The work of PDI is characterized by values. It is a factor of its success that these values
are not only “preached” by PDI to the people’s organizations and to other actors,
but that PDI internally also lives these values and practices these values in
management. The key values as identified by the evaluation team are presented in
chapter 6.3, page 52. In the relations between PDI staff and the people’s
organizations these values are also exhibited. Staff exercise these values in their
attitudes and behavior and do not only talk about them.

The staff is personally motivated to commit themselves to the vision and objectives of
PDI. Each member has had own experiences of injustice which today constitute
their main motivation for commitment. They are emotionally affected by the
content of their work. The READ program it is not just their job to earn a living
for the family. This is considered to be also an important aspect.

9 General conclusions (lessons learned)

After the compilation of the most relevant lessons learned in the following,

¾ The recommendations and key ideas for other future programs are printed
in bold letters.

9.1 Clear orientation of the program around issues

The program of PDI has a clear objective around the issue of Agricultural Reform and
specific land cases and a population in a specific geographical area or according
to social criteria. The vision and objectives are clear. They are probably more
clear in the heads and translated into the actions of staff than in printed
documents. This makes evident that “nicely” formulated objectives might be
helpful, but are far from being a warranty for success. Much more relevant is the
degree to which objectives are commonly shared. It seems also an important
factor that PDI does not offer a broad variety of support in the field of rural
development etc., but that the scope of action is limited.
 ¾ Ensure the existence of a shared vision and objectives among staff and the
ability of staff to translate them into action

The PDI ‘s program corresponds to the felt needs of the farmers. It is not one aspect
beyond others, but it figures among the priority questions for many farmers. The
word ‘felt” needs is important as the content of the program touches the emotions
of the farmers – and also of the staff. This emotional level beyond cognitive
aspects is considered to be important. This is a much more relevant source of
motivation and personal commitment of the farmers themselves which is in turn a
key factor for the success of the program.

¾ The content of the program touches the emotions of the farmers – issues
political / ideological mobilization
¾ The work with the farmers and PO is law implementation – it is not misused
for political /ideological mobilization

9.2 Comprehensive strategy of empowerment and to address poverty

The programs poverty orientation is indirectly structural with an additional aspect of
direct poverty reduction by increased asset development and economic programs.
The strength of PDI’s strategy of empowerment is the combination of the
following elements:

• Capacity development (knowledge and skills) to develop human resources.

• Organization of farmers around their share vision and not because of access to
programs advantages (e.g. loan),

• Mobilization of people through information and development of hope for a better

future (which must be realistic),

• Value formation through training and exposures as well as through the living of
the values by the staff,

• No promises to the farmers by the program – clarification of the need of self-help

and the importance for the people’s organizations to stand on their own from the
very beginning,

• Transfer of financial resources to develop management skills in livelihoods and

enterprises, and

• Transfer of land to improve land tenure security.

 ¾ A comprehensive strategy of empowerment of the poor as a
combination of capacity development, organization, value formation,
transparency in the cooperation and development of hope for farmers

¾ Indirect structural poverty orientation with an additional aspect of

direct poverty reduction by increased asset development and
economic programs

9.3 Relations to farmers and target groups

A six month participatory process allowed the program to be based on the demand and
ideas of the potential beneficiaries and the use of their experiences as well as
those of PDI. Respectfulness in the cooperation is expressed in the participatory
decision making between PDI and the POs and the clarity of the role of each
partner. Equality is also expressed in the fact that feed-back and criticisms of POs
towards PDI are welcomed. On the other hand, weaknesses as perceived by PDI
are fed back to POs in a constructive way as challenges.

¾ Participatory bottom – up planning process

¾ Respectful cooperation with farmers through clarity of roles and mutual freed-
back

¾ Perceiving weaknesses as challenges

The self-reliance of the organizations has been intended from the beginning of PDI
support. PDI provided space for self-determined development and commitment.
This also promoted an increase in the self-confidence of the farmers and people’s
organizations which in turn enhanced further commitment and motivation.

¾ Self-reliance of farmers, POs and NMGL as an objective from the beginning

9.4 Negotiation and dialogue with government and other actors

Considering the history of Agrarian Reform and the political struggle for the rights and
betterment of landless in the Philippines, PDI has come up with an innovation in
the methods and style of dealing with other parties / actors having different
opinions or “being on the other side”. This innovation is the orientation to
dialogue and to communicate with government officials as well as with
landowners.

The dialogue orientation has led to institutionalized forums of exchange and negotiation
between different partners: farmer organizations, PDI and DAR. However,
dialogue orientation does not mean to become softer or reduce the demands.
PDI’s strategy is to be hard in the subject but stick to the law and respect persons.
 This is also represented in a constructive way of dealing with conflicts 36 . The
research work on individual land cases was an important basis for the
development of the negotiation strategies and for lobbying. One important factor
of the success of PDI was also to have obtained access to the secretary level of
DAR thanks to its reputation and experiences, but also thanks to personal
relations.

¾ Dialogue orientation and openness for communication with different forces /

actors at all levels – respect for others

¾ Being hard in the subject but sticking to the law and respecting persons

¾ Develop negotiation strategies according to the results of studies and

research work

¾ Reduce the distance between civil society and government through

cooperation and institutionalized discussion and negotiation forums

¾ Look for access to top management of government organizations

¾ Perceive conflicts as “normal” and instruments for change

¾ Look for constructive ways of dealing with conflicts

9.5 Close cooperation but independence from grassroots to national

level
PDI has managed to cooperate closely with government Institutions, mainly DAR, but
has always managed to remain completely independent from the Government by
pointing out their positions and the positions and interests of the POs. PDI serves
as a bridge to bring together government and civil society. The objectives of PDI
and its commitment to political issues for a clear target group are very close to the
objectives of political parties or forces which, however, apply very different
strategies and means. It is one factor of the success of PDI that it has remained
neutral in regard to political parties and has kept its independence.

¾ Close cooperation and trust with government keeping its own independence

¾ Independence from political parties

36
In the implementation of the program and in standing for the values and interests of the farmers,
conflicts are being faced by PDI. PDI did not try to avoid conflicts, but saw the necessity to accept
conflicts as one hurdle on the way to improvement. The opportunities of conflicts to change situations
and structures were seen. Consequently, conflicts were being addressed in a constructive way with the
principles to stick to the law and to respect persons and different opinions also to defend the interests of
farmers.
9.6 From grassroots to national level
One of the key factors of success is the fact that PDI works at all levels, from the very
grassroots level at Barangay and village level up to the national level. It has been
impressive to see how each level benefits from the other.

• The local level benefits from the reputation, experiences and the success of
lobbying work at the national level.

• The national level benefits from the broad experie4nces and detailed knowle3dge
about the situation at grassroots level. This knowledge is more easily
communicated within PDI than in other organizations, in particular DAR. This
results in a considerable advantage in terms of concrete knowledge, for example
about anomalies in the law implementation. This knowledge is also appreciated
by DAR and contributes to the good name and reputation of PDI. The strength of
PDI as NGO lies also in transforming grassroots development initiatives into
policy for advocacy at the national level.

¾ Working at all levels from grassroots to national level in a way that

each level benefits from the work at other levels

9.7 Flexibility in implementation

The strategy of PDI is based on the existing law and seeks to apply the law in each
individual case. As each case is different, the strategy o\for each land case is also
s\designed according to the specific situation based on research and analysis. The
implementation and further development of the strategy follows the evolution of
the process, of negotiations, of the case, etc. The staff considers each case in the
context of PDI’s values and what the most appropriate steps would be. It is an
important factor for success that PDI even working in an entire region does not
stick to strict working plans or implementation schedules. In addition, the
research work of PDI and the use of a broad variety of other methods, e.g. songs
and poems affecting the emotional level of the people, are factors in success.

Rather than on planned results and indicators, the READ program’s implementation and
management is based on principles and values which are in correspondence with
the content of the program. This high degree of flexibility is to a large extent
made possible and even encouraged by EED/EZE’s philosophy of partnership and
development.

¾ High degree of flexibility, site-specific and issue-based action in implementation

¾ Creative use of a broad variety of methods

¾ Combination of flexibility in implementation, but respect for transparent

principles and values
 ¾ Process-oriented implementation versus concentration on the working plan

¾ High degree of autonomy in implementation for the implementing organization

based on a transparent agreement of objectives, shared values and vision with the
funding partner

9.8 Values, management and emotionally affected staff

The work of PDI is characterized by values. It is a factor of its success that these values
are not only “preached” by PDI to the people’s organizations and to other actors.
But that PDI internally also lives these values and practices these values in
management. The key values as identified by the evaluation team are presented in
see chapter 6.3, page 52. In the relations between PDI staff and the people’s
organizations these values are also exhibited. Staff exercise these values in their
attitudes and behavior and do not only talk about them.

¾ Ensure the transparency of values which are behind attitudes and behavior
of director and staff

¾ Ensure the correlation of these values with the “preached” content of the
program

¾ Management style correlates to the values of the program

¾ “Preached” values of the program are also lived in the cooperation with
farmers

¾ Behavior of staff as an example for farmer organizations

The staff is personally motivated to commit themselves to the vision and objectives of
PDI. Each member has had own experiences of injustice which today constitute
their main motivation for commitment. They are emotionally affected by the
content of their work. The READ program it is not just their job to earn a living
for the family. This is considered to be also an important aspect.

In addition, many of the staff have engaged themselves for the same vision and objectives
before, but with other mainly non-dialogue oriented means. They have gone
through a learning process. They also have seen the personal change they have
undergone. This experience and the awareness of the difficulties as well as the
possibilities of personal changes helps them to assist others / farmers and PO s to
change. They cease their rather passive attitude in favor of personal commitment
to take their development into their hands.

¾ Committed as well as personally and emotionally affected staff who have

gone through learning processes
9.9 The implementing organization
PDI has gained the respect of both farmers and the government as a trustworthy, honest
and committed organization involved in development work. Many successes
would not have been possible without the good reputation of PDI. As a result,
NMGL as its main cooperating partner has been considered by DAR as a serious
regional people’s federation that champions genuine agrarian reform in Central
Luzon.

In the present setting, the empowerment of farmers and people’s organizations can
effectively be done only by an NGO. It is hardly imaginable that a government
organization could develop the same reputation and credibility when cooperating
with farmers and “preaching” the above mentioned values in the cooperation with
farmers.

¾ Considering and developing the name and repuitation of the implementing

organization

¾ The organization must be appropriate for propagating and living the content
of the program

9.10 Relation to funding partners

EED/EZE has supported PDI over a period of almost 10 years. The key factors according
to PDI are personal continuity and openness in the communication as well as the
fact that EED/EZE has offered space for the detailed design of strategies and
activities in the framework of a shared vision and agreed-upon objectives. It was
also important that PDI’s vision correlates with EED/EZE ideas of development
and justice and the values behind them.

¾ Ensure the correlation in values and vision between funding organization

and implementing partner

¾ Ensure mutual understanding and continuity of support offering broad space

of autonomy for PDI

The German Church Development Organization emphasize a specific philosophy of

partnership and development that is giving full responsibility for the
implementation of programs as well as for conceptual and institutional efficiency
to their partners in the South. The German Ministry for Economic Cooperation
and Development bases cooperation and funding of the German Church
Development Organizations on similar principles and values. Both relationships
(BMZ/churches as well as churches/partners0 are characterized by a high degree
of autonomy based on common objectives and values, trust and proven reliability.
 ¾ It is important that BMZ maintains the means and the spirit of its proven
and reliable cooperation with the Church Development Organizations while
carefully improving development policy complementarily and coherence.

9.11 External Factors

Process in society resulted in openness / space for dialogue – POs / farmers have
undergone a learning process before

After a period where violent and non-dialogue oriented methods were prominent in the
political field, Philippine society became more and more open to dialogue as a
form to negotiate and to give orientation to the development of the country.
Before, PDI would have had difficulties to find acceptance for its dialogue
oriented and negotiation approach in the society and particularly among farmers.

Existence of AR law

One key factor which allows the success of PDI is the existence of the AR law. Also the
existence of “friendly” forces in the government administration and in DAR
particularly is preconditions for the dialogue oriented approach.

10 Other findings

10.1 Influences of development programs on surrounding areas

Scarcity of direct investments on acquired lands

Direct investments in agrarian reform lands that have been transferred are minimal, if not,
nil. This is prevalent not only in Central Luzon, but also in other parts of the
country. Agriculture performance in CARP areas remains relatively low
compared to national averages except in ARCs where ODA presence has
provided sufficient external support in terms of infrastructure development.
Nevertheless, there are indications that the proximity of ARCs and ODA
programs to areas where land reform is not complemented has also increased the
difficulties of land redistribution due to the increase of land prices encouraging
landowners to resist land reform.

10.2 Experiences with the methodology of a joint and participatory

evaluation
At the end of the evaluation period, a joint assessment of the evaluation was realized in
order to draw lessons and experiences with the methodology of a big evaluation
team and a joint and participatory evaluation. The methodology is described in
chapter 1, page 2.
The evaluation concerned the emotional level, process and results and the expected
impact from the evaluation. The main results can be summarized as follows (see
also Annex, pages 111 – 114 for the complete results):

Exhausted but satisfied with learning’s

The members of the evaluation team (PDI and POs) felt the evaluation process was very
demanding and most members were physically and mentally exhausted at the end
of the evaluation. However, they were also happy because of the new insights
and learning which they have acquired in course of the process. This also gave
them strength, motivation and hopes to carry on amidst the changing
environment. Most of the members also appreciated the broadened knowledge
base. The evaluation also gave them increased self-confidence because they were
proud of having been evaluators and that their capacities were recognized.
According to their experiences the method and the process allowed all the
members in the evaluation team to analyze strengths and weaknesses and the
whole development process critically but in an easy and graceful manner. The
methodology helped to accept criticisms constructively. It does not constrain the
evaluators to be prejudiced in favor of their hypothesis and assumptions.

Fruitful results giving directions for the future

Also for the further use of the results, the methodology was appreciated as fruitful
because it brought to light valuable lessons that can be used by the POs and PDI
to improve the chances of the organization. It gave broader perspective and
direction for the future to PDI and helped the POs to strengthen themselves and
expand to ensure their sustainability. It gives opportunities to PDI and POs to
process the findings. It was also mentioned that the evaluation provided new
methods of work between NGO and POIs. Finally, the evaluation was assessed to
have strengthened PDI’s partnership with the POs in pursuing GAR and ARRD
and also to have enhanced PDI’s partnership with EED/EZE in helping the
peasants.

The external consultants were satisfied and partly impressed with this participatory
approach. The most important new aspect of this evaluation was that it has been
agreed explicitly that all participants of the team are really evaluators. All the
members of the evaluation team were highly motivated and a strong sense of
ownership of the evaluation was perceived. The process resulted in lessons
learned and substantial insights.

Weaknesses of the methodology and the evaluation process

However, some weaknesses and difficulties were also observed, mainly by the external
consultants:
 • It was not always easy for all the members of the team to assume the role of an
evaluator in the area of that member’s own responsibility. In this case, members
were more tempted to act as resource persons.

• The joint evaluation made it necessary to have some joint terms and framework
for analysis, e.g. about what an impact is compared to results, activities, etc. (see
also Annex, page 77). The two days at the beginning of the evaluation are
considered to be too short to establish a common framework, to carry out a self-
evaluation and to formulate impact hypothesis.

The field visits were assessed by one external consultant as too short, also due to long
travel times. Consequently, only a superficial understanding of the field
processes was possible in this case as time to look, observe, discuss, reflect and
assess what is going on in the field from the perspective of their new evaluators
role was too short.

• A further limitation has to be seen in the fact that, in most of the meetings in the
field one of the three teams and in the workshops, only the leaders of the POs
attended. There was no opportunity to experience groups in their natural
composition. Therefore, the evaluation results represent mostly the view of the
leaders. It has to be considered that the leaders usually have a higher education
and are economically often better off than the common members. However, the
meetings in the two other teams of field visits were different.

• One opinion stated that the time of two weeks does not allow enough time to
analyze all the details and activities of the program in detail as would be possible
in a longer scientific research.

• Participation of people’ organization representatives made it necessary to translate

all discussion in the evaluation team, in particular for one of its members. This is
not only time-consuming, but it also reduces the spontaneity of discussions
sometimes and limits the depth of discussions due to language. Even if there are
methods to cope with this, it makes a difference whether translation is required or
not.

Conclusions and recommendations from this experience

All the members of the evaluation team including the external consultants suggest the use
this method in future for other evaluations because of its effectiveness and
efficient thoroughness. Some suggested to use the participatory method as a
standard for evaluations.

The importance of an intense preparation of the evaluation has been stressed. This
preparation concerns the discussion and establishment of a joint understanding of
a joint understanding of the objectives of the evaluation and the methodology to
be applied. This will also determine the appropriate program and other
 preparation required (compilation of quantitative data, first self analysis,
identification of interests towards the evaluation by all concerned, etc.).

Furthermore, the preparation of all the relevant quantitative data before the start of the
evaluation helps to render the evaluation period more fruitful.

Sufficient time has to be invested among the external consultants to have clarity about the
desired approach. This should also be reflected in the contracts provided.

According to some of the members of the evaluation team, the quality of an evaluation
approach can not be assessed per se. It has to be seen in relation to the objective
of the evaluation and the members of the evaluation team – in particular the
external consultants. They have to feel comfortable and the approach must fit to
them, their ideas, etc.
Annex

Table of Contents

1 The program of the evaluation

2 The evaluation team

3 Sources

3.1 List of discussion partners

3.2 Literature

3.3 Comparison of different methodologies of evaluations

4 Material about PDI’s program

4.1 List of the People’s organizations under the umbrella of NMGL

4.2 Composition of the Board, Staff Members and positions

4.3 PDI’s approaches

4.4 Other programs of PDI

4.4.1 Rural Development Programs

4.4.2 Education programs

4.4.3 Special programs

4.5 Conferences conducted by PDI

4.7 Books, documents, songs of PDI

5 Results of the evaluation

5.1 Presentation of three concrete land struggle cases in Tarlac and Pampanga

5.2 Results of impact ranking in Bulacan and Nueva Ecija

5.3 Background information about the ESS

5.4 Additional information, assessment and recommendations concerning the SPF

5.4.1 List of approved Small Projects (Loans)

5.4.2 Further information and comments on the SPF and ESS

5.5 Background about the poverty situation and measures and strategies
to reduce poverty in the Philippine context

5.6 Rural Development Strategies

5.7 Effects of the Neo-Liberal Approach

5.8 The situation of Agrarian Reform Beneficiaries

5.9 Negative impacts of extensive irrigation and chemical based farming

6 Preliminary Report – Workshop Documentation

7 Terms of Reference

8 Comparative analysis of lessons learned from the READ program

and Bondoc Development Program
1 The program of the evaluation
Date Program
Oct. 7, • Meeting of Dr. Melsbach with Mr. Ronald Grafe, Counselor and
Tuesday Deputy Head of the Embassy of the Fedral Republic of Germany,
2003 Manila
• Meeting of Dr. Melsbach with Dr. Hannsjorg Woll, former
Project Manager Quririno Forest Management
Oct. 9 Meeting of Dr. Melsbach with Ms. Corazon Urico, UNDP:
Thursday Discussion on UNDP-Support to AR and getting Materials on
UNDP’s programs.

Arrival of Oliver Karkoschka in the late afternoon and first

discussions among the external consultants.
Oct. 10 Meeting with PDI Director and staff in PDI office :
Friday
• Introduction to PDI,

Orientation to the evaluation and discussion of the program

Afternoon: Travel to Tarlac

Oct. 11 and 12 Workshop in Tarlac
Saturday,
Sunday 1. Introduction to the evaluation

• Opening remarks and introduction of participants

• Clarification of the character, objectives and the program of

the evaluation

• Discussion of the evaluation methodology and the role of

external consultants, PDI and PO members

2. Issue based presentations and discussions:

• AR – Central Luzon Situation – Presentation by PARO

• LTI and Economic support program by Province

• Social Infrastructure building

3. Establishment of impact hypothesis and preparation of the field

visits.
Oct. 13 – 15 Field and area visits in three teams each composed by PO members,
Monday - PDI staff and one external consultant
Wednesday 1. Bulacan and NE
2. Pampanga and Tarlac
3. Bataan and Zambales
Oct. 16 World Food Day Celebration in Iba, Zambales, informal discussions.
Oct. 17, Travel to Subic and preparation of the Workshop
Friday
Oct. 18 – 22 Workshop in Subic

1. Sharing and discussion of the results of the field visits

2. In-depth analysis and assessment of specific findings

3. Recommendations and lessons learned

4. Evaluation of the process

Oct. 22 Travel to Manila
Afternoon
Meeting and dinner with four NGO coordinators directors in Manila
(Manuel Quiambao, President PEACE Foundation), Gerry Bulatao
(Coordinator Local Governance Coalition-Network/LGC-Net),
Conrado Navarro (Former Undersecretary of the DAR; Vice-
President Philippine Rural Reconstruction Movement, PRRM),
Ricardo B. Reyes Executive Director Partnership for Agrarian
Reform and Rural Development Services Inc. (PARRDS).
Oct. 23 Meeting with Dr. Ute-Hubner, German Cooperation: Support to
Wednesday Agrarian Reform and Rural Development and Minda Dolarte, Project
Development and Management Service, DAR.*

Meeting with Atty. Sidiangelo*

Departure of Oliver Karkoschka to Germany.

Oct. 24, Lunch Meeting of Dr. Melsbach with Ria Miclat-Teves, Ruel
Thursday Punongbayan, Jheng Julio Rodrigo de Guia: Topic: Planning System
of PDI.
*Meeting conducted by Ed Quitoriano and Dr. Gerlind Melsbach.
2 The evaluation team
Name Organization and Designation Remarks
PDI

Aurea G. Miclat-Teves Executive Director, PDI Zambales/Bataan team

Ruel Punongbayan Coordinator, PDI Central Office Nueva Ecija/Bulacan team
Julio R. de Guia (Jheng) PDI – Organizer for Pampanga Pampanga/Tarlac team
and Tarlac
Gina de Fiesta PDI – Organizer for Nueva Ecija Nueva Ecija/Bulacan team
Myrna Arandia PDI – Zambales
Al Carillo PDI, Bataan-Zambales Zambales/Bataan team
POs NMGL

Eddie Ibabao Adviser, NMGL; PDI Organizer- Nueva Ecija/Bulacan team

Bulacan
Carlito Domulot President, PASAMBOT, LAKAS, Zambales/Bataan Team
Local Leader, Aera Community
Loida Rivera Secretary, NMGL; Sto Rosario Pampanga/Tarlac team
Farmers’ Association
Wynona Corilla Auditor, NMGL-Zambales Pampanga/Tarlac team
Paula Patoc Treasurer, NMGL-NE; President, Nueva Ecija/Bulacan team
Women Fed.
Maxima Valdez Vice-President, NMGL Pampanga/Tarlac team
DAR / Government

Dr. Edson Arceo PARO, DAR-Tarlac Pamapanga/Tarlac team

External Consultants / Visitors

Eddie Ll. Quitoriano Independent Consultant Pampanga/Tarlac team

Dr. Gerlind Melsbach Independent Consultant Nueva Ecija/Bulacan team
Oliver Karkoschka Independent Consultant Zambales/Bataan team
Jorg Schwieger EED, Evaluation Unit Only October 9 and 10
Dr. Sebastian Bartsch BMZ, Coop. with Church Only from October 15
Organizations
Persons participating only temporary

Amado Higante President, NMGL; Manager, Only in Tarlac

BAMPCI
Angelita Deliquena Member, LAKAS Only in Tarlac
Tony Santos PDI, Palawan Only Tarlac Workshop
Calanat Domulot Adviser, LAKAS Only in Tarlac
Ben Jugatan Adviser, LAKAS Only in Tarlac
Pablo Bocable BOD Member, NMGL-Nueva Only in Tarlac
Ecija; President, PASAMA-Laur
Aida Noceto Board Member, NMGL Nueva Ecija/Bulacan team
Evarea Manglicmot Program Staff, PDI-Nueva Ecija Only Nueva Ecija and
Subic
Alejandro Carillo Program Staff, PDI-Bataan Only in Subic
Ramon Ayco Program Staff, PDI Central Office Only in Subic

3 Sources
3.1 List of discussion partners
Team Tarlac and Pampanga

Team of Workshops

1. Roundtable Discussion with FBs, DAR Officials, PDI staff and Barangay
LGU, Carbonel, Gerona, Talac, October 13, 2003.
Name Organization and Designation
Genciano Gabriel Farmer-Beneficiary
Arcenio Garcia Farmer-Beneficiary
Daniel de la Rosa Farmer-Beneficiary
Cosme Castillo MARO (DAR), Gerona
Virginia Gabriel Farmer-Beneficiary
Nenita Palomo DARPO, DAR-Tarlac
Editha Petero DARPO, DAR-Tarlac
Maxima Taruc Valdes Brgy. Kagawad; Vice-President, NMGL
Rose Duran Leader, KALAYAAN Sinta Chapter
Nicolas Salvador CARPO, DAR-Tarlac
Edson Arceo PARO, DAR-Tarlac
Fernando Luis Farmer-Beneficiary
Julio Rodrigo de Guia PDI Staff
Loida Rivera NMGL-Pampanga
Francisco Joaquin Farmer-Beneficiary
Total: 9 Farmers, 5 DAR Officials
2. Focus Group Discussion, Members of Brgy. Anunas Farmers’ Association
(BAFA) and Nagkakaisang Sipag ng Kababaihan ng Anunas (NAGSIKAP),
BAMPCI Metalcrafts Center, Brgy. Anunas, Angeles City, October 14, 2003
Name Organization
Juliana Puno NAGSIKAP
Lourdes Macabasag NAGSIKAP
Iluminada Sondian NAGSIKAP
Baby de los Reyes NAGSIKAP
Lanie Elarde NAGSIKAP
Mercy Iway NAGSIKAP
Karina Pangilinan NAGSIKAP
Sally Dayrit NAGSIKAP
Pedro de Guzman BAFA
Roque Gatchalian BAFA
Gonzalo Cabrera BAFA
Benedicto Dayrit BAFA
Rod de Guzman BAFA
Mateo Gigante Jr. BAFA
Adolaido Manalo BAFA
Amado Higante BAFA
Arnel Torres BAFA
Maring Garcia BAFA
Eduardo Palo BAFA
Total: 19 farmers
3. Panel Interview with Non-Beneficiaries, Carbonel, Gerona, Tarlac, October
13, 2003

Name Remarks
Dominador Punzalan, 54 Tenant, 0.5 hectares; rice and corn
Matua Carmen Alfonso Tenant
Juanito Gomez, 67 Tenant; bribed by landowner for P3,000
Mario Zacanas, 43 Tricycle Driver
Rodolfo de la Cruz, 51 Tenant
Fernando Salazar, 43 Tenant
Arthur Gomez, 39 Farmer
Ernesto Joaquin, 52 Tenant, 0.25 hectare
Moises de la Cruz, 43 Taho Vendor
Angelito Gomez, 34 Tricycle Driver
Sotero Alfonso, 64 Wage Worker
Total: 8 Farmers, 3 others (vendors,
worker, driver)

4. Focus Group Discussion, Officers and Members of the Margot Multi-

Purpose Cooperative/Claimants of the Lutgarda Torres Property, Brgy.
Cauayan, Angeles City. October 14, 2003.

Name Position
Rustico Dimarucot, 54 President
Jose Dimarucot, 67 Member
Dante Agustin, 48 Member
Ernesto Dimarucot, 64 Member
Vicente Agustin Member
Narciso Magbanua, 50 Member
Noel Agustin, 38 Member
Total: 7 farmers
5. Focus Group Discussion, Officers and Members of Sto. Rosario Farmers’
Association, Brgy. Sto. Rosario, Magalang, Pampanga. October 15, 2003.

Name Position
Norlita Rivera Member
Juanito Mangulid Member
Alfredo Jaqul Vice President
Allan Anunciacion Member
Roman Rivera President
Rico Jaqui Member
Rodolfo Rivera Member
Lanie Tizon Member
Rosita Mangilit Member
Norman Rivera Member
Dennis Roman Rivera Member
Amado Higante NMGL President
Markcis Gigante Member
Jose Rivera Jr. Secretary
Loida Rivera Member
Total: 15 farmers
List of Interviews
Name and Personal Details
Godofredo Concepcion, 64; CLOA
recipient but non-member of NMGL
Alfredo Facun, 60; CLOA recipient but
non-member of NMGL
Harmes Sembrano, Municipal Mayor,
Gerona, Tarlac
Rodolfo Alfonso, Brgy. Captain, Carbonel,
Gerona, Tarlac
Norlita Rivera, 49, member of Sto. Rosario
Farmers’ Association
Mrs. Mangilit, Member, Sto. Rosario
Farmers’ Association
Rodolfo Rivera Sr., Member, Sto. Rosario
Farmers’ Association
Remigio Espiritu, 56; farmer-claimant of
the Lutgarda Torres Property, Angeles City
Roque Gatchalian, BAFA President
Eduardo Pelo, BAFA Secretary
Maria Lourdes Macabasag, BAFA
Treasurer
Prudencio Dayrit, 65; non-beneficiary
farmer
Rodolfo Nacu, 66; former Brgy. Captain
Librado Ocampo, 56; BAFA member
Vicente Nacu, 73; BAFA member
Miriam Patio, Municipal Agriculture
Officer (MAO), Angeles City
Rommel Medina, ARPT-DAR, Angeles
City
Dr. Ute Huebner, Advisor, RP-German
Cooperation: Support to Agrarian Reform
and Rural Development
Minda Dolarte, Project Development and
Management Service, DAR
Josefina Sytangco, Legal Expert, Study on
Agrarian Conflicts Management: Bondoc
Development Program (BDP)
Ricardo Reyes, Executive Director,
Partnership for Agrarian Reform and Rural
Date and Location
Carbonel, Gerona, Tarlac, October 13,
2003
Carbonel, Gerona, Tarlac, October 13,
2003
Carbonel, Gerona, Tarlac, October 13,
2003
Sto. Rosario, Magalang, Pampanga,
October 13, 2003
Sto. Rosario, Magalang, Pampanga,
October 13, 2003
Sto. Rosario, Magalang, Pampanga,
October 13, 2003
Catholic Chapel, Brgy. Anunas, Angeles
City, Pampanga, October 14, 2003
BAMPCI Office, Brgy. Anunas, Angeles
City, Pampanga, October 14, 2003
BAMPCI Office, Brgy. Anunas, Angeles
City, Pampanga, October 14, 2003
BAMPCI Office, Brgy. Anunas, Angeles
City, Pampanga, October 14, 2003
Catholic Chapel, Brgy. Anunas, Angeles
City, Pampanga, October 14, 2003
Catholic Chapel, Brgy. Anunas, Angeles
City, Pampanga, October 14, 2003
Catholic Chapel, Brgy. Anunas, Angeles
City, Pampanga, October 14, 2003
Catholic Chapel, Brgy. Anunas, Angeles
City, Pampanga, October 14, 2003
Catholic Chapel, Brgy. Anunas, Angeles
City, Pampanga, October 14, 2003
Catholic Chapel, Brgy. Anunas, Angeles
City, Pampanga, October 14, 2003
DAR Central Office, Quezon City, October
23, 2003
DAR Central Office, Quezon City, October
23, 2003
Sulo Hotel, Quezon City, October 23, 2003
Muang Thai Restaurant, Diliman, Qquzon
City, October 22, 2003
Development Services (PARRDS)
Manuel Quiambao, President, PEACE
Foundation
Gerry Bulatao, Coordinator, Local
Governance Coalition-Network (LGC-Net)
Conrado Navarro, Former Undersecretary
of the DAR; Vice President, Philippine
Rural Reconstruction Movement (PRRM)
Muang Thai Restaurant, Diliman, Qquzon
City, October 22, 2003
Muang Thai Restaurant, Diliman, Qquzon
City, October 22, 2003
Muang Thai Restaurant, Diliman, Qquzon
City, October 22, 2003

Totals:

Farmers beneficiaries but non-PO-members: 2

Local Government representatives, Mayor, Brgy. Captain: 2

POs and NMGL: 9

Other farmers (non-beneficiaries); 2

Municipal Agricultural Officer, DAR, etc.:

Experts and NGO representatives at national level: 7

Team Bulacan and Nueva Ecija

Total:

Organized farmers (men and women):

Bulacan: 54: 21 women and 33 men from 5 POs

Non-Beneficiaries: 1

Municipal officials: 2

Nueva Ecija: 75: 48 women and 27 men from 13 POs

Non-beneficiaries: 2

Barangay and municipal officials: 5

Monday, Oct. 13, Morning: Travel to Kaybanban, Bulacan

2003
Meeting with 6 people’s organizations (4 Farmers’, Kilos Ka MPCI
(Coop), San Isidro, SAMAGRA, Graceville, Samaka, Kaybanban,
Kilusan ng Kalalakihan, Kaybanban)

2 women org.: KABISIG, Kaybanban; Kilos Kabuhayan Kababaihan,

San Isidro)

Travel to San Isidro: Meeting with 5 Representatives of Kilus Ka Coop.

Tuesday Oct. 15, Morning: Visiting plantations in Brgy. Kaybanban; Brief talk to one
2003 non-member of PDI-organized peasant organization

Afternoon: Travel to Laur, Nueva Ecija

Evening: Evaluation Team Meeting for preparation next day

Wednesday, Oct. 1. Meeting with Barangay and municipal officials in Brgy. San Isidro,
15, 2003 Laur, N.E.

2. Meeting with rreprewsentatives of People’s organizations of NMGL,

N.E.

3. Visit of fields and plantations in Brgy. Borac, N.E.

Team Zambales and Bataan

Village Locality Persons

13 morning Anahao, Brgy. Sabang, Morong, KASAM-Anahao
Bataan 13 members
13 afternoon Upland village Samahan 18 persons
14 morning PO leaders meeting in Iba PDI- 40 PO leaders from 20 POs
Office
14 afternoon Village meeting 12 members Name ??
14 afternoon Village meeting 8 members / all beneficiaries
Name of organization ??
15 morning Distribution of CLOAs Informal interviews with

• 4 farmers two non-

beneficiaries, 2 beneficiaries
but non-members
• 3 DAR officials from Regional
Office (RARO)
15 afternoon Carlings Aeta village 10 members
15 afternoon Mayor of Botolan Mayor of Botolan

Total:

40 PO leaders from 20 POs

43 members and office bearers of 4 POs

around 20 non-organized farmers

1 Mayor

3 Regional DAR officials

Total of all the three groups: see Introduction

3.2 Literature

GTZ Stabsstelle 04 (2001): Evaluierung Landliche Regionalentwicklung BONDOC

Philippinen. Hauptbericht und Anhang, Eschbom 2001.

National Statistics Office (NSO), 1998: Annual Poverty Incidence Survey (APIS).

National Statistics Office (NSO), 1997: Philippine Poverty Statistics.

National Statistics Office (NSO), 1997: Family Income and Expenditure Survey,

Putzel, Morales, Lara and Miclat-Teves editors Power in the Village: Agrarian Reform,
Rural Politics, institutional Change and Globalization, PDI-UP Press Publication,
2001

Quitoriano, Eddil Ll. (2002), FAO; Agrarian Reform in the Philippines, Ten years of
Italian Support, FAO, Rome, 2002

Websites:

Department of Agrarian Reform: http://www.dar.gov.ph

Government of the Philippines www.gov.ph
National Economic and Development Authority http://www.neda.gov.ph
Website PDI www.pdi-asia.org

PDI Publications:

PDI (2001): Important points for the woman question. Occasional paper

PDI (2001): Bataan Case Study on Effective extension Service By the Private Sector: The
Case of Nestle Philippines, Inc. (June)

PDI (not dated): Community Enterprise for Development in Zambales Program (CEDZ
Program). Terminal Report and narrative report for the period April-September
2001.

PDI (2001): Decentralization and democratic participation with the LGU-DAR-NGO-PO

interface in Nueva Ecija. (December)

PDI (2001): Interfacing Agrarian Reform and Local Governance: A Review.

A People-Powered Entry to the New Millennium (2001)

Anomaly in Agrarian Reform: The Flora Garcia Case (2001)

Zambales Accomplishment – Grand Slam or Grand Manipulation: an Analysis of LTI-

PBD Integration (2001)

The Aeta’ Land and Life: An Advocacy Paper on the Land Claim of the Aeta of Botolan,
Zambales (2001)

PDI (2000), Aurea Miclat-Teves ed.: The Emerging Alternative Rice Marketing System:
Selling High Volume Excellent Quality Rice: a preliminary study of an emerging
alternative rice marketing system in Manila and Luzon Provinces, ILEIA and PDI
Publications, March 2000.

PDI 2000: The role of women in the new Millennium

Francisco Lara: Promoting Civic Entrepreneurship among Agrarian Reform

Stakeholders, 2000

Tadem Eduardo, Asumen, Efaniel (2000): Building Social Capital Among Agrarian
Reform Stakeholders in the Philippines

Food Security, Agrarian Reform and rural development: Opportunities and challenges for
Regalado, Aurora: action

A Review of Institutional Efforts in Development through Agrarian Reform: LTI-PBD

Integration in Nueva Ecija (2000)

The Disappearing Rice Industry of Central Luzon (2000)

The Role of Programs and Policy Research in NGO Work with the Civil Society in
Retrospect (2000)

The Role of Women in the New Millennium (2000)

Securing the Basic Rights of the People: The PDI Laur Experience (1999)

The Central Luzon Experience on LTI-PBD Integration (1999)

Miclat-Teves, Aurea (ed.) (1999): The emerging alternative Rice Marketing System:
Selling High Volume Excellent Quality Rice. A preliminary study of an
Emerging Alternative Rice Marketing System in Manila and Luzon Provinces,
(ILEIA and PDI). Quezon City.

PDI (November (1998): The reconstruction phase of the Bulawen Resettlement Area and
the surrounding Barangays of Palauig, Zambales (1995-1998) (Final Report to
EZE)
The Alternative Production and Marketing Support Program of the Project Development
Institute (1997)

Bulawen Resettlement: Responding to the Mount Pinatubo Disaster (1996)

Emergency Seed Distribution (ESD) in the Mount Pinatubo Disaster (1996)

Pangolingan Resettlement Project (1996)

The NGOs as a Force for Development (1996)

Other reports and proposals to EED/EZE

3.3 Comparison of different methodologies of evaluations 37

External evaluation Participatory / Joint Evaluation

Main objective of the evaluation

Identification of recommendations by the Joint analysis, reflection and identification of

evaluators – presentation and main lessons learned and recommendations.
documentation. Motivation and mobilization of the concerned
people so that they are able to and want to
make improvements.
Main interest of the evaluators

The program and the activities are the The program and the people, the relevant
centre of interest. Often one “true” actors and stakeholders, constitute the focus
perception based on the quantitative data is of the evaluation. Their individual perceptions
the base for the recommendations. which determine their decisions as well as
actions are explored and accepted. The
quantitative data is seen in relation to its
interpretation by the different stakeholders.
The role of the external evaluators

Evaluator: acquire information, analyze Facilitator, consultant and evaluator.

data, establish recommendations.
The main resources for the evaluation

The experiences of the evaluator are the The experiences of staff and other concerned
main resource. They are the base for the stakeholders are mobilized and exploited for
analysis and the establishment of the the evaluation. This increases relevance and
recommendations. the quality of the jointly established
recommendations
The role of staff and directors

They are object of the evaluation and not Active role and involvement in all the steps of
an active subject. Their main contribution the evaluation. Identification of the main
is providing information, data and their tasks for the evaluation team, analysis of
opinion which will be analyzed and experiences, exploration of perceptions,

37
This overview has been established during a different evaluation by one of the external consultants. It is
presented here in order to nourish the discussion about evaluation methodologies. It is evident that there
are not only these two cases of evaluation methodologies but all sorts in between (or beyond).
interpreted by the external evaluators. establishment of recommendations, etc. With
They finally receive recommendations. All an attitude of curiosity and learning they
in all, they play a rather passive role. become the acting subjects of the evaluation
which is considered to be important for the
creation of learning effects.
Who learns how?

Most of the lessons are learned by the
external evaluators. They learn during the
evaluation process. Only after the
presentation of the recommendations, the
concerned staff and directors can learn
through the recommendations (this does not
always provide a favorable learning
atmosphere as criticism often generates a
defensive role).
How are changes initiated?
Learning takes place by all the persons
involved actively in the evaluation in the
course of the reflection process. The change
of perspectives, the exploration of different
perceptions and also the integration of the
external view of the evaluators for further
discussion allows all team members to learn.
Also, learning about evaluation
methodologies can take place through active
involvement of the staff and directors.

The external evaluator does not intervene.
He/she formulate the recommendations
which are supposed to lead to
improvements
Expected results
The external evaluators intervene in the
system of the program through their
facilitation and interaction with staff and
directors. He/she works with the people. In
the joint interaction process among the team
but also with other stakeholders, impulses are
given rather than only at the end of the
process.

The experiences are analyzed by the The experiences are analyzed jointly and the
evaluator and the recommendations are recommendations are formulated by those
formulated in the report. The ownership of responsible for their implementation and they
the persons responsible for implementation have ownership for their implementation.
can vary considerably as the
recommendations are those of the
evaluator.
The methodology has to be seen in relation to the objective of the evaluation and the
external consultants who are charged to conduct the evaluation process. They have to
determine the appropriate methodology fitting to their personality and capacities. A joint
evaluation is demanding for the external consultants tasks and attitudes which do not only
include all the tasks of an evaluator but in addition facilitation tasks, enabling and
supporting learning of the other members of the evaluation team and also the creation of
an appropriate atmosphere and ambience of learning and exchange among the evaluation
team. It also includes openness for new suggestions and contributions and flexibility.
This means that the focus of attention must not only be directed towards the issues (the
subjects to be analyzed and evaluated) but also to the people, their learning process and
the dynamics within the evaluation team (energy of the group, process of discussions and
reflections, …). It means also not being fixed in a “real reality’ as perceived by the
consultant, but to look for facts and in addition to perceptions and interpretations of
actors of these facts. Finally, the capacity of the external evaluators to restrain their own
opinions and assessments to the required degree in order to give the same space for
assessments and opinions of the other members of the evaluation team is essential for a
joint and fruitful exchange and reflection process. This makes a learning oriented
evaluation different from an expert study or scientific research. This is not only in terms
of focus and nature of data, but also regarding the process how the data are being
collected. This influences the further use of the data.

For the organizations responsible for the evaluation, it is important to give clarity on the
objectives of the evaluation and also the methodology of the evaluation. This has
implications also on the appropriate consultants not only in terms of subject of the
evaluation but also methodology.
4 Material out PDI’s program
4.1 List of the People’s organizations under the umbrella of NMGL

BULACAN
People’s No. of Brgy / Town / Landholding Project
Organization Members Province
SAMAKA 62 Kaybanban, San Antonio Coffee
SJDM, Bulacan Dev’t Corp. Production /
Goat Raising
KILOS KA (women) 80 SJDM, Bulacan PCI Bank Candy
Property Making
KKK 47 Kaybanban, JL Rodriguez Candy
SJDM, Bulacan Estate Making
San Roque Farmers 50 San Roque, AM Rodriguez
Association SJDM, Bulacan Estate
Carriedo East 40 Muzon, SJDM, Filinvest Dev’t
Bulacan Corporation
Graceville 30 Brgy. Graceville, ORO
SJDM, Bulacan Enterprises

PAMPANGA
People’s No. of Brgy / Town / Landholding Project
Organization Members Province
BAFA 60 Margot and Anunas, Forform/Amaco/ Carabao loan
Angeles City, Lutgarda Torres
Pampanga
BAMPCI 80 Anunas, Angeles Forform/Amaco Handicraft
City, Pampanga making
Nagsikap 18 Anunas, Angeles Hog dispersal/
(women) City, Pampanga handicrat
SMSR 10 Sto. Rosario, Tinio Property Water pump /
Magalang, Pampanga carabao
ZAMBALES
People’s No. of Brgy / Town / Landholding Project
Organization Members Province
Pasambot 286 San Juan, Botolan Garcia Property Agro-reforerstation
SMBBK 80 Bangantalinga BMC Hog Dispersal
SAMATT 27 Taltal, Masinloc Yap Property Hog Dispersal
NKAP 32 Loob-Bunga, Villar Hog Dispersal
SKKP 30 Poob Bato Hog Dispersal
SAMATT-K 27 Togue Yap Property
(women)
SKBA (women) 24 Bangantalinga BMC
Lakas 156 Bihawo GTreeting cards /
Hog Dispersal
ABDSS 34 Amungan Garcia Property
MABAYAPI 30 Candelaria Bogus
accomplishment
Samlapi 13 Candelaria Ortin Property
SAMMAKAB 49 Baluganon, Yap, Edañp
Masinloc Property
SKP-ARC 34 Pangolingan Stick Marketing,
Sari-sari Store
VIPS 34 Loob-Bunga.
Poon Bato
SKT (women) 30 Taposo, Candelaria Handicraft
SMB 60 Bangatalinga Perez Property Hog Dispersal
SKAB 24 Loob-Bunga, Villar
SKP (women) 50 Poob Bato
Ubat 20 Masinloc Edañp Property
SAMAKA 17 Sto. Rosario Estrella Property
SAMARAL 30 San Lorenzo Perez Property
SAMACA 20 Carael Lisaca Property
SAKASAMA 30 Sta. Maria ARC
Sibol Coop 60 Sibol ARC
TARLAC
People’s No. of Brgy / Town / Landholding Project
Organization Members Province
SINTA 36 Kalayaan/Victoria, Daos Property Hog Dispersal
(women) Tarlac
Carbonel 28 Carbonel, Tarlac Cojuangco Property
Farmers
KKK (women) 26 Carbonel, Tarlac Cojuangco Property Hog Dispersal
Oloy-Buaya 14 Oloy-Buaya,
Tarlac
Parsolingan 12 Parsolingan, Josephine
Neighborhood Tarlac Cojuangco
Linao-Balite 16 Linao-Balite, Cojuangco Property
Farmers Tarlac

BATAAN
People’s No. of Brgy / Town / Landholding Project
Organization Members Province
PASAMA-Anahao 60 Anahao, Morong, BTPI Soap, Candle
Bataan Landholding Making
SAKANIKAN 70 Kanawan, Morong. DENR, BTPI Soap, Candle
Bataan Landholding Making
NUEVA ECIJA
People’s No. of Brgy / Town / Landholding Project
Organization Members Province
Buracc (women)
Pintol (women)
San Josep
(women)
Sagana (women)
Sabik Coop
(women)
Casa Real Coop
(women)
Bigkis
San Isidro
Manganese
SMP
PMIA
Bayog
Casa Real
Women
Pinamalisan
Women
Pinamalisan
Greenhills
Camachile
Women
South Poblacion
Coop
TUFA
4.2 Composition of the Board, Staff Members and positions
Composition of the Board:

Mr. Francisco Lara, Jr., Board Chairman (VSO Director)

Ms. Rhodora Angping, Treasurer (President, Angping Development Foundation for

Education)

Ms. Elin Mondejar, Secretary (Chairman, Mondejar Foundation)

Mr. John P. Sevilla, member (Vice President, Goldman Sachs, Inc)

Dr. Edson Arceo, member (Professor, Tarlac State University)

Mr. Amado Higante, member (President, NMGL)

Ms. Aurea Miclat-Teves, member (Executive Director-PDI)

Staff Members and Positions:

National Office:

Aurea Miclat-Teves, Executive Director

Ruel Punongbayan, Program Coordinator

Blen Espartero, Educ coordinator (ADFE-PDI)

Mirriam Balatan, finance officer

Ramon Ayco, researcher

Sigfred Balatan, photo documentor

Jean Buan, bookkeeper

Boyet Adraneda, driver

PDI Central Luzon:

Al Carillo, Regional LTI Coordinator

Gina de Fiesta, Regional Livelihood Officer

Local Leaders:

Carling Domulot, Local leader for Zambales

Ernesto Acera, Local leader for Zambales

Loida Rivera, Local leader for Pampanga

Amado Higante, Local leader for Pampanga

Eddie Ibabao, Local leader for Bulacan

Maxima Taruc-Valdez, Local leader for Tarlac

Emma Jimenez, Local leader for Bataan

Paula Patok, Local leader for Nueva Ecija

Pablo Bocable, Local leader for Nueva Ecija

Aguinaldo Bacu, Local leader for Palawan

Francisco Glimaco, Local leader for Palawan

PDI-Zambales

Al Carillo – Coordinator

Myrna Arandia, community organizer

German Dizon, ADC officer-in-charge

Virgilio Domingo, ADC assistant

Analiza Mariano, community organizer

Danilo Balatan, local volunteer

Manuel Paanan, local volunteer

PDI Bataan

Edgar Domulot, local volunteer

Butog Domulot, LTI organizer

PDI – Pampanga and Tarlac

Julio de Guia, Coordinator

Azenith Patok, organizer

Fer Luis, organizer

PDI-Nueva Ecija

Gina de Fiesta, Coordinator

Francis Budtan, organizer

Eva Manglicmot, community organizer

Johnson Sabio, local volunteer

PDI-Palawan

Tony Santos, Coordinator

Bernadette Legan, RH staff

Ely Santos, finance officer

Darwin Fetalver, tech. assistant

Gerry Gevel, agriculturist

4.3 PDI’s approaches
The integrated Participatory Development Programming approach

PDI’s planning concept is named “The Integrated Participatory Development

Programming approach”. It consists of the following elements:

Environmental Scanning

• Strategic Planning: Problem Focused Group discussion

• Participatory area management

• Participatory Review and analysis.

The planning is carried out through the “Area Bases Strategic Planning Process”

In practice this means that the planning in each area is based on a common analysis of
this specific area. Furthermore, all the groups in the program areas yearly undertake a
comprehensive review and analysis of the activities carried out in the last year and
delineate the plans for the next year. These plans are then synthesized on the next higher
level of NMGL with representatives of the lower levels participating. These plans are the
foundation for PDI to plan its activities for next year. On the regional level these plans
are then transferred into activity plans, with specifying responsibilities of PDI staff and
POs. Usually PDI assists the planning processes on the different levels of NMGL.

The plans called “Comprehensive Development Plan” encompass the more social aspects
including the capacity building of the POs by either internal means or outside support
(PDI and others) as well as economic endeavors of various sorts. Aside from the yearly
comprehensive review and forward planning, quarterly reviews and adjustment of plans
are undertaken by the groups and on PDI-level.

Programming Approach

The principles of the Integrated Participatory Development Programming guide PDI

in undertaking development projects in communities. These principles are development
imperatives, which require community projects and activities to be (1) participatory, (2)
integrated, (3) appropriate, (4) sustainable, and (5) adaptable.

1 Participatory

The very people who are to be the beneficiaries of a development undertaking are the
ones who supply the basic information used in formulating and implementing their
community programs. They should be active participants in the whole development
process rather than passive recipient of aid. The mechanism used here is called the
“problem-focused group discussion”. This is done through workshops and consultations
with key people in the area. This process enables the people to discuss freely their
present condition, their problems and the ways to overcome them. It makes them grasp
their marginalized conditions and then envision an ideal community. It culminates in the
formulation of a comprehensive development plan.

2 Integrated

The Comprehensive Development Plan (CDP) includes the program schedule that tries to
cover all the significant aspects of the people’s lives. The program has trainings on
values formation, leadership and management to address institutional strengthening. It
also involves capital build-up and savings program for economic empowerment. Gender
sensitivity and educational programs for the youth are also vital to gr4oaden their
perspective on the human condition and for socio-political empowerment as well.
Construction of physical infrastructure for the community, on the other hand, allows the
people to enjoy the benefits of technology. Social infrastructure empowers the people to
undertake the program implementation.

Moreover, the work plan ensures effective implementation of the program by training
people to undertake monitoring and evaluation work.

3 Appropriate

The activities of the integrated development program are planned and implemented
according to the capabilities and needs of the people. The training to be provided to them
depends on the degree of their maturity as an organization. With this approach, the
people are not rushed to something they are unprepared for and whose results do not last
long. The appropriateness of training guarantees learning and long-term fulfillment of
objectives.

4 Sustainable

With the emphasis on the social preparation of the people, the sustainability of the project
is ensured. PDI treats sustainability as the ability of the people to handle the organization
independently or with minimal assistance from external agents.

5 Adaptable

The IPDP process is easy to use and can be replicated in other communities. The people
themselves can likewise use its system by themselves.
Objective of the IPDP (Integrated Participatory Development Programming)

The IPD aims to develop grassroots-oriented Integrated Area Development plan, which
will detail and prioritize the necessary intervention projects appropriate to the areas.

Methodology of the IPDP

The IPDP has three main components, namely I. Community Development Planning, II.
Area Management, and III. Review and Assessment.

Community Development Planning

There are two parts in Component I, namely: Environmental Scanning and Problem
Detection Analysis and Focused Group Discussions. The primary objective of this
component is to plan and formulate comprehensive development intervention programs
appropriate for each area through participatory methods. Participatory means after
grassroots consultations and dialogues have been conducted in order to elicit the felt
basic needs of the beneficiaries. The output of this phase is a Comprehensive
Development Plan (CDP).

Environment Scanning involves a two-step process: the internal assessment and the
external assessment. The internal assessment is the review of the organization’s
orientation in terms of work, organization and personnel in the light of their current views
and vision. This process helps analyze the strengths and weaknesses of the organization
in order to maximize the former and minimize the latter.

The external assessment involves a thorough study of the outside conditions that affect
the organization’s capability to implement the program. Review of external conditions
involves the analysis of the land, people and other organizations working in the area.
Knowing and understanding thee factors is necessary in evaluating the available
opportunities as well as the obstacles that may hinder implementation. Maximum
participation shall be emphasized in this process. Knowing the opportunities and
obstacles as well as the strengths and weaknesses enables PDI and the community to
prepare more a realistic community-based planning.

Problem Detection Analysis and Focused Group Discussions are strategy formulation
processes that involve serious round-table discussions and small group workshops with
key leaders in the area concerned. A comprehensive development plan is discussed;
ventilating and prioritizing support programs, development objectives and subsequent
strategies and approaches. These round table discussions and workshops are guided to
come up with a CDP that will assure maximum benefits for the community.

Finalization follows these discussions and all data gathered and views presented are
integrated in one document that outlines the major interventions for a social services-
based and grassroots-oriented Comprehensive Development Plan. The CDP will be the
guide to program implementation and input to participatory area management.
Participatory Area Management

Participatory Area Management is an integral part of the CDP. It is the tool used in the
implementation and management of the Comprehensive Development Plan. The basic
concept of participatory area management is for NGOs to provide guidance in a manner
that would maximize people’s participation in the operation and maintenance of the
program. A CDP task force composed of representatives from the area-community is
organized to oversea and coordinate the CDP components. Maximum participation of the
people means that they are treated as partners in development and not merely recipients
of the CDP. It is a process that involves the people in both implementation and
management of the CDP. Thus, the area management team including the people in the
area/community is responsible for the management, operation and maintenance of the
program components. Building and strengthening area management by the people give
meaning to people empowerment. The key to the success of the Comprehensive
Development Plan is not only the integrated approach in development planning but also
the participatory area management approach undertaken. All socio-economic work in the
area are prioritized and implemented based on the people’s judgment. The CDP ensures
sustainability by training the people to assume such responsibilities. Furthermore, the
socio-economic program is based on the capabilities of the farmer-victims.

The people are part of the whole process from conceptualization to evaluation. Since
they are the most important factor in the development effort, the responsibility of
liberating themselves become solely theirs as they become the implementers of their own
development program. PDI acts only as a support structure, providing technical help,
organizational training and education. The support provided by PDI serves to enhance
the people’s skills and capabilities. The people’s vision for their community can only be
achieved through the successful implementation of each activity in the CDP.

Monitoring, Review and Assessment

Monitoring is a control system of checks and balances to ensure the high quality of
program implementation. This will help track the day-to-day operation of the CDP. A
Monitoring Task Force composed of the beneficiaries themselves will help review and
monitor the daily operation of the program.

A strict monitoring system shall be followed to unsure that the major and minor
objectives of the CDP are met. Problems are immediately resolved. Funds, whenever
appropriated, are properly utilized. If any problem occurs with regard to program
implementation, this will be reflected in the monitoring reports. Monitoring guides the
Area Management Task Force in identifying and resolving program bottlenecks and other
problems. This also supplies the information on the CDP needed by PDI and other
concerned offices and funding agencies. In Component III, the CDP objectives are
translated into objectively verifiable indicators. PDI sets a quantifiable gauge for each
parameter.
Monitoring and review cut across each program component. For each component, a
special set oft parameters will be used. These are selected based on the CDP.
Assessment follows every review and becomes the basis for the succeeding courses of
action that could lead to amendments of the contents of the CDP based on changing
conditions. Participatory development planning thus ensues and the whole cycle is
repeated.

4.4 Other programs of PDI

4.4.1 Rural Development Programs

Community Enterprise Development in Zambales, 1998-present

The Community Enterprise Development in Zambales (CEDZ) was developed in line

with the vision of building self-reliant communities through people’s initiative. The
program provides financial and technical assistance to identified individuals, clusters and
organizations that have the desire to engage in small and medium enterprises.

The take-off point of CEDZ was PDI’s prior program Resettlement and Reconstruction:
An Integrated Response to the Problems Caused by the Mount Pinatubo Eruption. In a
holistic rural development program, enterprise development is deemed especially crucial
in sustaining the welfare of rural communities. This will give farming families
alternative livelihood, which can augment their seasonal farm income and can save them
from the effects of low farm production.

The CEDZ has at least three components: [1] capital build-up, [2] promotion of saving as
a value, and [3] strengthening of social capital. An organization can only start to
implement a livelihood program upon fulfillment of these requisites and the type of
project they can engage in depends on the degree of their financial credibility and
organizational maturity. These mechanisms secure their preparedness to handle
enterprise projects in both financial and organization aspects. Thus, dole-outs are
avoided and program failure is minimized. Their capacity for repayment of loans or any
assistance is also initially guaranteed.

Current Status. The CEDZ Program is currently operating in Botolan. Candelaria,

Pangolingan and Iba. It is now assisting 13 enterprise projects distributed among seven
organizations and three individuals. The organizational projects include sari-sari or
variety stores, hog raising, carinderia (canteen operation), seedling maintenance, Botika
sa Barangay (Village Pharmacy) and transport (using jeepneys). Three individual
enterprises were also identified, namely wood and aluminum framing, footwear making
and nursery. PDI assistance to these enterprise projects ranges from P5,000 to P20,000
and from P30,000 to P300,000.
To assist the beneficiaries in proper management of their enterprises, PDI is providing
them with training-seminars on Leadership and Basic Bookkeeping. PDI community
organizers are also carrying out continuous organizing and monitoring of the projects.

Simultaneous with the CEDZ Program, PDI is continuing other development activities
relevant to the Zambales rural communities. The LTI desk is currently handling agrarian
reform advocacy for the Aeta of Botolan (See Research and Conferences for related
information), and for farmers of Palauig, Taposo and Candelaria. An informal education
or a literacy and numeracy program for indigenous people is also being given to the Aeta
of Sta. Martha, Pangolingan (See Education Programs).

The Reconstruction Program in Nueva Ecija, 1994-present

The Reconstruction Program inNueva Ecija started as a response to the need for land of
the Igorot earthquake victims from Carranglan, Nueva Ecija. PDI’s initial area of
coverage was a 3,100-hectare portion of the Fort Magsaysay military reservation in Laur,
in south Nueva Ecija.

The comprehensive and integrated rural development program aims to empower the
people both economically and politically, by helping them acquire homes and lands to
till. Through the program, the Igorots were able to rebuild their lives and once again
become productive members of society. Through negotiations with the government and
local residents, the Igorot migrants and the original farmer-settlers received their land
ti9tles in1996. Each Igorot family received a 2-hectare farm-lot and a 500-sq.m. home-
lot. The farmers in the lowland portions were provided with logistical support in the
surveying and titling of their home-lots and their new farms.

The program applies the conceptual framework used by PDI in the Zambales program
Resettlement and Reconstruction: An Integrated Response to the Problems Caused by the
Mount Pinatubo Eruption, which integrates agrarian reform with support services and
social infrastructure building. The program consequently replicates, with considerable
success, the Model Agrarian Reform Community (MARC) approach used in Zambales.

With the people’s recognition of PDI’s effort in providing new land and livelihood to the
Igorot farmers, PDI is now a member of the Barangay council. It is one of the three
member-organizations of the Land Tenure Improvement (LTI) Committee, which was
organized to settle land problems within the military reservation.

Current Status. PDI already covers the whole of Nueva Ecija through advocacy and
policy work and the entire town of Laur, with focus on Laur Poblacion (town centre);
sitios of Buracc, Manganese, Casa Rijal, San Isidro and Sagana for import projects.

As part of the goal of sustainability, PDI supports a group of LEISA (low external input
sustainable agriculture) practitioners in Laur Poblacion. It has 25 members, who grow
rice and onions in lowland, irrigated areas. They have impressively made a 100%
repayment after four cropping seasons.
PDI also sponsored projects on Alternative Reforestation, Goat’s Meat and Milk
Production/Livestock, and Hog and Carabao Dispersal. Alternative Reforestation aims to
reforest portions of the vast mountain ranges of Fort Magsaysay through community
initiatives. Three nurseries have already been set up, one of which was established with
the participation of public school children.

Through the Goat’s Meat and Milk Production/Livestock Project, the LRRP envisions to
establish a goat centre in Southern Nueva Ecija. PDI has Anglo-Nubian and Bower goats
in its demonstration farm. Local goats have been dispersed, and are being repaid by the
beneficiaries. The imported goats are currently being acclimatized in the area and will be
use to upgrade the local breed. Production of goat’s meat and milk will provide the
community alternative livelihood. The Hog and Carabao Dispersal Project provides the
Igorot farmers with additional income. They use the carabaos in the field and rent them
out to nearby farms while women raise hogs in their backyards. There is still a land
dispute over the Fort Magsaysay Reservation. PDI is engaging the community in various
consultations with government agencies to negotiate these disputes. (See Researches and
Conferences).

Agricultural and Coastal Resource Development Program for Culion, 200-present

Food security for the people of Culion is the main concern of the Agricultural and
Coastal Resource Development (ACORD) Program. It is envisioned to be achieved
through the maximum and efficient, yet sustainable, utilization of the island’s agricultural
and coastal resources. Crucial in this undertaking is the promotion and strengthening of
the people’s social and political participation

Formerly known as a leper colony, Culion, a resource-rich group of islands in the

northern part of Palawan, became a municipality in 1992 by virtue of Republic Act 7193.
The island with its new municipal government, is now faced with the challenge of
eradicating poverty and the stigma of being a former leper colony.

PDI facilitated a multi-sectoral focused group discussion with the people in the
minucipality, which resulted in the formation of a municipal vision, mission and program
of action. It also conducted a Development Management Course (DMC) for selected
participants from the municipal office, including the mayor and the Sangguniang Bayan.
The DMC included topics on approaches to development, project development and
development planning. Seminars on agricultural and coastal resource management to
achieve food security are also being extended to the farmers of Culion.

Current Status. PDI has two central areas of operation in Culion, namely Patag and
Galoc. Rice Production in the framework of sustainable agriculture is the main program
in Patag. A cooperative with 22 members has been set up in this area to undertake the
program. The cooperative currently manages a Seed Propagation Demonstration Farm
and engages in Fertilizer Trading and Seed Dispersal.
In Galoc, a cooperative with 32 members has been activated. PDI has set up a seaweed
demonstration farm in Galoc to show the yearlong viability of seaweed farming. A
program for electrification for the entire Galoc community was also sponsored by PDI,
with support from the Local Government.

Bulawen Resettlement and Reconstruction: An Integrated Response to the Problems

Caused by the Mount Pinatubo Eruption, 1991-1998

The PDI program in Zambales began as a long-term response to the needs of the victims
displaced by the Mount Pinatubo eruption in 1991. Together with partner organizations,
PDI instituted a resettlement program for the farmer-victims using the concept of genuine
agrarian reform. The concept pertains to the integration of land distribution with
provisions on economic and social infrastructures for the beneficiaries. Under the
program, each family received 1 240-sq.m. home-lot and a 1.3 hectare farm-lot. The
program also provided support services, from housing to food production assistance, all
necessary to sustain the people through the long and arduous process of resettlement in a
new place

The resettlement phase of the program is already complete. Sibol, the name given by the
people to their new home, is now a vibrant community. The problems and aspirations of
the people are already beyond those that came with the eruption of Mount Pinatubo. The
Sibol Agrarian Reform Beneficiaries Multi-Purpose Cooperative, Inc. (SARBMPCI) is
now one of the most active cooperatives in the Zambales province. The women’s
organization in the area, Samahan ng Kababaihang Magbubukid ng Sibol (SKMSI), has
initiated several projects of its own. PDI expanded its program reach by initiating LEISA
(low external input sustainable agriculture) projects in the Barangays of Bulawen, Salaza
and Santo Niño. PDI is also helping in the reorganization of the people’s organizations
in these Barangays. The unique situation in each area, nonetheless, suggests that new and
creative approaches be used. Instead of reviving the cooperatives in each of the
Barangays, PDI is organizing associations of LEISA/SA practitioners. The LEISA
practitioners in the areas are the direct beneficiaries of the PDI marketing program.

For its effort and for developing and putting into practice suc a concept, PDI was given
world recognition in the Basic Needs category at the World Expo 2000 held in Hannover,
Germany.

Agro-Industrial Development Program in Pampanga, 1992-1995

This program has established an agro-industrial centre in Floridablanca, Pampanga.

PDI’S clientele consisted of cooperative members of Floridablanca Federation of Multi-
purpose Cooperatives, Inc. (FFMPCI). The FFMPCI has a total membership of 2,197
farmers cultivating 2,777 hectares. This is another PO-NGO-GO partnership involving
the FFMPCI, PDI and the Department of Agrarian Reform. DAR distributed the land,
PDI handled the social infrastructure building, and the federation implemented the agro-
industrial project.
4.4.2 Education programs

PDI Scholarship Program

The PDI Scholarship Program is intended for the indigents in the provinces of Pampanga,
Nueva Ecija, Zambales, Palawan and Metro Manila. The beneficiaries include street
children, children of farmers and indigenous people (Aeta, Igorot and Tagbanua). The
scholarship program is now in its fifth year and has been supporting 53 scholars, of
which nine have graduated.

The program depends mainly on the generosity of benefactors. Sustaining the education
of the students will be better assured as more pledges and more benefactors join the
program. This will also facilitate plans to accept more deserving students in the coming
years.

Day Care Program

PDI supports a Day Care program in Zambales by providing supplies and materials for
the school and an honorarium for Day Care teachers.

Indigenous People’s Informal Education Program

PDI has development programs for at least three major indigenous groups in the
Philippines, namely the Aeta in Zambales, the Igorots in Nueva Ecija and the Tagbanuas
in Palawan. Because of their lack of access to conventional education, PDI devised a
program that will at least give the young people basic knowledge in writing, reading and
counting. This has been operationalized since 2000 for the Aeta of Pangolingan and
Palauig in Zambales.

4.4.3 Special Programs

International Conference on Agrarian Reform and Rural Development (ICARRD),

5-8 December 2000

The International Conference on Agrarian Reform and Rural Development (ICCARD)

was organized by PDI with other NGOs, GOs and POs. It was participated in by leading
agrarian reform advocates, the academe and five governments that are implementing
agrarian reform in their respective countries. It was held at last December 5-8, 2000 in
Tagaytay City, Philippines. The context of the conference is the reassertion of the
indispensable role of agrarian reform in poverty reduction and rural development. It
locates AR within the objectives of development and peace; and institutionalizes the need
for an interface between and among the state, civil society, private sector and the market.
The ICARRD has been successful in bringing together international and national
scholars, policy makers and civil society groups/social movements to generate
interdisciplinary and multi-sectoral support for agrarian reform. It has also identified
strategic options and the next steps in influencing agrarian reform and rural development
policies at the national and international levels. Finally, it has revived agrarian reform as
a necessary social reform in the context of globalization and an open economy.

Community-Managed Agrarian Reform Program, 1999-2000

PDI Director coordinated the conduct of the Community Managed Agrarian Reform
Program (CMARP) Feasibility Study for the Office of the Secretary of the Department of
Agrarian Reform (DAR) sponsored by the World Bank. Based on the feasibility study
results, the DAR proposed that CMARP be the alternative model to the Market Assisted
Land Reform model espoused by the World Bank.

Fund Management of the Institute for Low External Input Agriculture (ILEIA)
Program in the Philippines, 1996-1999

PDI served as fund manager of the ETC, The Netherlands ILEIA Project. PDI was fund
manager for the ILEIA from 1996-1999.

Institutional Evaluation and Strategic Planning for the Mindoro Institute for
Development (MIND), 1990-1991

In this project, PDI undertook institutional evaluation and strategic planning for POs and
NGOs in Mindoro. The project was commissioned by the Mindoro Institute for
Development (MIND) in 1990 and lasted through 1991. It was a breakthrough project
for PDI because it demonstrated that the participatory development processes could be
done. Throughout the process, the farmers and the concerned agencies, namely the DAR
and the Department of Agriculture, have all been active in formulating and implementing
the plan of action.

4.5 Conferences conducted by PDI

Agrarian Reform and Governance: Multi-Stakeholders’ Forum in Central Luzon,

San Fernando, Pampanga, 03 May 2001.

The International conference on Agrarian Reform and Rural Development (ICARRD)

held in December 2000 brought about a renewed concern for agrarian reform and rural
development, which served as the take-off point for this forum. ICARRD provided a
venue for the discussion of existing agrarian-reform issues and concerns particularly in
Central Luzon amongst which includes financial/budgetary constraints. In emphasizing
the national government’s share of responsibility in the shortcomings of agrarian reform,
this forum pushes for the inclusion and prioritization of agrarian reform in President
Arroyo’s social and political reform agenda. Among those who participated in the forum
were Ms. Linda Hermogino (Assistant Regional Director for Operations, Region III), Dr.
Edson Arceo (Provincial Agrarian Reform Officer, Zambales), Mr. Efren Moncupa
(DAR Undersecretary for Operations), Mr. Ricardo B. Reyes (National Coordinator,
PARRDS) and Cong. Etta Rosales (AKBAYAN Partylist Representative).
Agrarian Reform in Nueva Ecija: Development Within Reach, Cabanatuan City,
Nueva Ecija, 22 May 2000.

In preparation for the International Conference on Agrarian Reform and Rural

Development (ICARRD) in December 2000, a Provincial Consultation-Workshop on
Agrarian Reform was held in Nueva Ecija. It focused on the prospects for agrarian
reform and rural development in the province. Nueva Ecija was chosen since it has a
lo9ng experience inagrarian reform implementation being a pilot province for Operation
Land Transfer in the 1970s. Through this forum, members of DAR, POs and NGOs were
able to review the status of agrarian reform in Nueva Ecija and identify strategies to
improve their work. Workshops on land issues, support services and civil society
followed. Linda Hermogino, assistant regional director for operations of DAR Region
III, was the guest speaker.

Agrarian Reform in Zambales: Development Within Reach, Iba, Zambales, 27 July

2000.

A provincial Consultation-Workshop was held in Zambales in preparation for the

International Conference on Agrarian Reform and Rural Development (ICARRD). Vice
Governor Cheryl Deloso, three town mayors, representatives from DAR and inter-agency
groups, three NGOs and six POs attended it. They discussed the agrarian reform
situation in Zambales and how it could be further improved. Afterwards, they were
spread into three groups for a workshop on three main components of agrarian reform
implementation. These were on [1] land tenure improvement, [2] support services
delivery, and [3] civil society involvement.

Ang Lupang Ninuno ng mga Aeta ng Botolan (Botolan Aeta’ Ancestral Domain),
PDI Alternative Development Center, Palauig, Zambales, 15 August 2000.

From a consultation-workshop in July 2000, where the Botolan Aeta brought up their
case in the Puyat area, a more up-close consultation with the Aeta regarding the same
case was conducted. The Aeta hoped that CARP would cover a portion of the disputed
area, which they also claim as their ancestral domain. Along with this concern, the Aeta
also voiced their need to improve their livelihood. To address this, they thought that
assistance from government and non-government agencies would be helpful.

Consultation-Workshop with Panayotti Farmers, Pampanga, 16 August 2000.

After the farmers revived the Panayotti lands from under the lahar, they re-negotiated the
CARP coverage area. They suggested a lower price, which the landowner did not accept.
Aside from the landowner’s resistance, another problem regarding the land was its lahar
danger status. In a consultation-workshop with representatives of PDI, PRIDI, and
KMDP, the farmers expressed hopes that the PHIVOLCS would lift the lahar risk status
of the land. They were also prepared to continue their negoti9ations with the landowner
for a lower price of the land. They cited organizational strengthening as a necessary
requirement for improving their strategy in dealing with these matters.

Casa Rijal Consultation-Workshop, San Isidro, Laur, Nueva Ecija, 18-19 August
2000.

Attended by 59 Igorot farmers and r epresentatives from DAR, LBP and PDI, the
consultation updated the farmers on the coverage status of their land under CARP. The
land in question was the resettlement area in Fort Magsaysay in Laur, Nueva Ecija, where
the Igorot farmers were brought after the 1990 earthquake. However, it turned out later
that the area is privately owned. During the consultation, the farmers tried to haggle with
LBP for lower valuation. They contented that they were responsible for the development
of the land. Thus, the land should not be priced based on its current developed state.

Aeta’ Land and Life: Prevailing Issues on the Tenth Year of the Mt. Pinatubo
Eruption, Bahay ng Alumni, UP Diliman Campus, Quezon City, 21 September 2000.

The conference tackled the Aeta’ land problems in Zambales. The Aeta of Zambales
were among those hardest hit by the Mt. Pinatubo eruption in 1991. The role of agrarian
reform and the ancestral domain provision in the Indigenous Peoples’ Rights Act were
discussed. The recurring threat of lahar in the area being claimed by the Aeta was
likewise highlighted. PHIVOLCS Director Raymundo Punongbayan was the key
speaker.

Kababaihan sa Kanayunan at Kasiguruhan sa Pagkain (Rural Women and Food

Security), PDI Alternative Development Center, Palauig, Zambales, 16 October
2000.

The forum is PDI’s response to the need to recognize and strengthen the role of women in
the food security of the family and the community. Such need is especially evident in the
rural sector where the women’s role in farming is considered secondary. The forum
employed three guideposts in evaluation food security. These are access to as stable
source of income, such as land; sufficiency in food supply and some allowance for
surplus for added income; and the quality of food for the health and nutrition of the
family. Ten women’s organization of Central Luzon attended the forum.

Agrarian Reform Multi-Stakeholders: PO-NGO-GO Conference, Angeles,

Pampanga, 16 November 2000.

The regional conference aimed to assess the accomplishment and the current advocacy
for agrarian reform and rural development in the Central Luzon Region. Central Luzon
has been and still is a historical site for the implementation of agrarian reform in the
Philippines. It is the rice granary of the country, but its agricultural resources are slowly
deteriorating posing threat to food security. The land issues in the region were also tied
with national issues, namely the Estrada leadership crisis, the holding of the International
Conference on Agrarian Reform and Rural Development (ICARRD), and the
Community-Managed Agrarian Reform Program (CMARP). Several representatives
from POs, NGOs and government agencies attended.

4.6 Films produced by PDI

“A Place Called Sibol” (1994)

The Mt. Pinatubo eruption in June 1991 drove people from the mountain’s foothills to
find new homes. A place christened “Sibol” was one of their resettlement areas, which
served as a new-found home to a mixed group of farmers displaced by the eruption.
Previously idle land and densely covered by cogon grass, Sibol is now a cleared land of
429 hectares, which has a communal farm and orchard. Not has it only been a home to
the families that settled there, but it also became a source of livelihood for farmers, who
have been given individual farm lots to work on. The Project Development Institute
(PDI) and the Philippine Peasant Institute (PPI) are instrumental in the realization of this
“dream”, being the catalysts that pushed the government to fulfill its duties and
obligations. PDI, on its own, has been assisting the community to develop a sense of
autonomy by encouraging community people to make decisions on their own as one
community. Over with the Resettlement Stage, PDI takes on with the Reconstruction
Program in Sibol for a longer term of feasibility and sustainability of the community.

“Laur – A Home for the Igorots” (1997)

The devastating earthquake experienced by Nueva Ecija in July 16, 1990 caused the loss
of many homes of Igorots of the Carballa mountain. In the search for a new home for the
displaced indigenous people, a 3,100-hectare land situated within Fort Magsaysay was
identified by PDI as a prospect resettlement site. Through PDI’s coordination with DAR,
it was able to successfully resettle the Igorot farmers and ensure the awarding of CLOAs
to them. PDI also made it possible for the community to have its own supply of patable
water as well as an irrigation system through the construction of a water reservoir, with
the nearby spring as water source. PDI continues in assisting the Igorots through its
different programs – Production Assistance Program, Food Security Program, Low
External Input Sustainable Agriculture (LEISA) and Alternative Reforestation Program.

“Pangolingan – A New Beginning” (1997)

With the assistance of PDI, Sta. Martha, Pangolingan now serves as a new home for
Aeta, who have been displaced by the Mt. Pinatubo eruption in June 1991. Formerly idle
land covered with cogon grass, it is now divided into home lots and farm lots for each
Aeta family. It has a communal farm of 4 hectares where a family is made to work in
line with the community’s Food for Work Program. As agricultural assistance to Aeta
farmers, the Carabao Dispersal Program was launched. PDI also established
SAKASAMA, a women’s organization, which helps out in finding solutions to
community problems regarding health and sanitary. A scholarship program was also
undertaken by PDI to educate the Aeta. In turn, the chosen beneficiaries of the
scholarship program, as a community service, share what they have learned with fellow
Aeta.

4.7 Books, documents, songs of PDI

Books

Power in the Village: Agrarian Reform, Rural Politics, Institutional Change and
Globalization, Putzel, Morales, Lara and Miclat-Teves editors, PDI-UP Press
Publications, 2001.

The Emerging Alternative Rice Marketing System: Selling High Volume Excellent
Quality Tice; a preliminary study of an emerging alternative rice marketing system in
Manila and Luzon Provinces, Aurea Miclat-Teves ed., ILEIA and PDI Publications,
March 2000.

Monographs

A People-Powered Entry to the New Millennium (2001)

The Filipinos greeted the new millennium with the dramatic staging of People Power 2
on January 16-20. The massive protest eventually ousted President Estrada from office.
The democratic strength of People Power 2 lies in the fact that it involved different
sectors of the society, including the church, the business community, the labor groups,
the Left, the military, and artists. Credits must also be given to Cardinal Sin and Cory
Aquino.

Anomaly in Agrarian Reform: The Flora Garcia Case (2001)

The cancellation of CLOAs has been a major concern of agrarian reform task forces in
various provinces. One such case is the Compromise Agreement entered into by the
government with Florencia Garcia-Diaz in the more popularly known Flora Garcia case.
Many farmers can no longer use their CLOAs as a guarantee of land ownership because
of widespread cancellations. This development threatens not only farmers, but also the
implementation of CARP.

Zambales Accomplishment – Grand Slam or Grand Manipulation: An Analysis of

LTI-PBD Integration (2001)

The PBD accomplishment in Zambales is just slowly catching up with LTI. There is still
limited funding for the province’s agrarian reform communities, and farmers still face
food insecurity. While Zambales’ accomplishment in land redistribution is already 98%,
such accomplishment is still way below expectation in the context of the implementation
of CARP for the past 12 years. LTI issues must be addressed, including the possible re-
inclusion of lahar-affected lands and the anomalous issuance of CLOAs.
The Aeta’ Land and Life: An Advocacy Paper on the Land Claim of the Aeta of
Botolan, Zambales (2001)

The Aeta claim to the Puyat land emerged in the course of community organizing work
by PDI. The Aeta are using two legal weapons to claim the land, namely the ancestral
domain provision in the Indigenous people’s Rights (IPRA), and the Comprehensive
Agrarian Reform Law (CARL). As of now, advocacy is centred on agrarian reform. It
is, however, being stressed that the Aeta’ cause transcends the land issue. Ultimately, it
is the Aeta’ welfare, in the form of economic and socio-political education and
empowerment that must serve as the main objective of the Aeta advocacy.

A Review of Institutional Efforts in Development through Agrarian Reform: LTI-

PBD Integration in Nueva Ecija (2000)

From the perspective of LTI-PBD Integration, where land provision must be merged with
physical and social infrastructures, Nueva Ecija still needs more integrative efforts to
attain development. LTI implementation in Nueva Ecija has not been synchronized with
PBD, which left farmers unprepared for farm management. Also, infrastructure and
credit facilities remain inadequate and institutional efforts to train development workers
are still in “retooling” stage. Cohesion among DAR, civil society, local government and
private sector is still lacking. DAR’s also needs to improve its ability to reach out to the
community.

The Disappearing Rice Industry of Central Luzon (2000)

Both man-made and natural problems have contributed to the declining productivity of
the rice industry of Central Luzon. The man-made problems include the high demand for
expensive chemicals and hybrid seeds, which were carried out through Green Revolution.
Globalization and modernization later caused massive conversions of agricultural lands
for industrial and commercial uses. Natural calamities, such as El Niño and La Niña
phenomena, earthquakes and the Mount Pinatubo eruption, also left immeasurable
damages. While the region can still sustain its food or cereal requirements, the future
stability of its rice industry remains precarious. This threat is particularly true in the
context of the national food security condition.

The Role of Programs and Policy Research in NGO Work with the Civil Society in
Retrospect (2000)

NGO work aimed at institutional reforms through democratic processes must also
become effective conduits of knowledge and information. It can be done by linking the
citizens to the policy makers and decision-makers through citizens’ participation in
researches. But aside from aspiring fro a reliable and credible research output, NGOs
must also be able to influence government policy makers to accept and use these
research materials.

The role of Women in the New Millennium (2000)

Women’s movement seeks the improvement of women’s conditions in various aspects of
life. The status of Filipino women in Philippine society still needs more attention.
Domestic helpers, who are mostly women, are underpaid and the contribution of women
farmers’ is largely unrecognized. Rape cases are numerous and they are usually not
reported because of fear of humiliation. These problems are also coupled with other
issues, such as the negative perception of and the theoretical infirmities of the movement.
It is perceived as too radical and very much associated with Western feminism.

Securing the Basic Rights of the People: The PDI Laur Experience (1999)

After losing their land in northern Luzon and in northern Nueva Ecija due to armed
conflict and an earthquake, the Igorots of the Cordilleras, with the help PDI and DAR,
sought out new lands to claim for their own. A portion of land inside Fort Magsaysay,
Laur, Nueva Ecija, was identified for their resettlement. There were numerous obstacles
before their right to the land was finally recognized – bureaucratic red tape; land
speculators who attempted to block the land transfer, and harassment. Despite all these,
the farmers did not lose hope. With allies helping them and through continued
engagement, they succeeded in acquiring a new home.

The Central Luzon Experience on LTI-PBD Integration (1999)

After the eruption of Mount Pinatubo in Central Luzon, the PDI developed a resettlement
and reconstruction program for the displaced farmers. PDI succeeded in this agrarian
reform program using the concept of a model agrarian reform community (MARC).
DAR then developed its on program following PDI’s MARC approach. This led to the
identification and formation of several ARCs in the province of Zambales. Potential
beneficiaries were first identified and then relocated to designated arable lands. They
were also provided support services.

The Alternative Production and Marketing Support Program of the Project

Development Institute (1997)

The Alternative Production and Marketing Support (APSMP) offers fund support for on-
farm activities. It has provisions on technical, financial and organic material inputs for
farmer-beneficiaries. The APSMP has five important features – easy access, needs-
oriented, values-oriented, area-specific and sustainable. The program sees to it that
farmers receive training before they are given provisions and their organization is
encouraged to develop a savings and credit program. PDI has used APMSP in the
Bulawen Resettlement Project in Zambales.

Bulawen Resettlement: Responding to the Mount Pinatubo Disaster (1996)

Right after the Mount Pinatubo eruption, PDI responded to the needs of the victims by
helping set up the Bulawen Resettlement Area. It is a 429-hectare CARP land located in
Brgy. Bulawen-Salaza, Palauig, Zambales. The settlers, who were Aetas and Ilocanos,
named the place Sibol, or spring of life. Aside from residential lots, the settlers were also
provided farmlands. Other important provisions of the rehabilitation program included
financial support, food production, health and sanitation and organizational
strengthening.

Emergency Seed Distribution (ESD) in the Mount Pinatubo Area in Central Luzon
(1996)

PDI started an Emergency Seed Distribution (ESD) program after the Mount Pinatubo
eruption. The farmers have been using traditional rice varieties (TRVs) in their farms
because these varieties were better and stronger than the new breeds. But sources of
TRVs were mostly wiped out and very few were saved. In cooperation with another
NGO, many sacks of different recommended varieties of these TRVs were purchased in
Occidental Mindoro and distributed to the farmers in Palauig, Zambales. With these
TRVs and some seedlings of frui9t trees, the farmers have started to make their lands
productive again.

Pangolingan Resettlement Project (1996)

The Pangolingan Resettlement Project was intended exclusively for Aeta, who had lived
around Mount Pinatubo. The project, which involved 110 hectares of agrarian reform
land, started in December 1993. The indigenous background of the Aeta necessitated an
unconventional development approach. Aside from culture, language was a big barrier in
interacting with the Aeta. Nevertheless, data pertinent to the intervention measures were
gathered through diagrams and drawings. During the research period, food security
remained the most important concern among the Aeta.

The NGOs as a Force for Development (1996)

Non-government organizations are a social force that represents a democratic and

pluralist society. They are particularly recognized as democratic entities, poverty
alleviators, advocates of sustainable development, and efficiency enhancers. However,
NGOs must not replace the government’s role in development, but only aid government
organizations in their quest for development. While GOs have the resources for their
work, they usually suffer from slow implementation due to the snail-paced bureaucratic
processes. NGOs, in partnership with GOs and with people’s organizations, can mobilize
these resources through advocacy and networking to speed up development.
 Maria Clara – a PDI song (Women by Mon Ayco, PDI)
Are you the Maria Clara, Hule or Sisa
Who does not know how to fight
Why are you crying over your oppression,
Women, are you naturally weak?
Women, hoping for freedom
Are you Cinderella,
Whose only hope are men?
Are you really Nena
Who lives by prostitution?
Women, are you made for bed?

Let us open our minds

Let’s open our minds and analyze our societal conditions
We can mould our minds. How our minds were moulded
Or is it your fortune to become a prostitute? For us to accept that we are mere toys
You want to rely on crying? Women, is this your fate?

Why are there Gabrielas

Theresa’s and Tandang Soras,
Who did not cry nor depend on the pity of others,
They took up arms,
Fought, hoping to be free.

Why are there Lisas,

Liliosas and Lorenas,
Who were not afraid to fight,
And now, they have convinced others to join
Women, whose aim is to be free
Women, who hope to be free
 5 Results of the evaluation
5.1 Presentation of three concrete land struggle cases in Tarlac and
Pampanga

Overview of the three cases

Cojuangco Property Tinio Property Umcauco Property
Land size 300 ha. 60 ha. 108 ha.
Location Gerona Paniqui, Sto. Rosario, Brgy. Anunas,
Ramos, Pura, Tarlac Magalang, Angeles City,
Pampanga Pampanga
Name of PO SMMC SRFA BAFA
No. of members ? 15 members 70
(10 families)
Size of land claimed 300 ha. 60 ha. 108 ha.
Size of land acquired 68 ha. 30 ha. (in process) 108 ha.
Actual No. of 48 10 70
beneficiaries
a) PO members 9 (25 ha.) 10 70
b) non PO members 39 None None

Chronology

Cojuangco Property

April 2003: PUMASOK AND PDI

Establishment of SMMC

Sep. 2003: Establishment of K 4 (Women’s organization)

Oct. 2003: Distribution of CLOA

Sto. Rosario, Magalang, Pampanga

1992: Farmers were invited by the land owner to till the land

2000: Farmers eje4cted – PUMASOK ang PDI

2001: LGU approved reclassification of the areas to residential and industrial zone

2002: Court order allowing farmers to till the land again – farmers now pay rental (P.
4,000 per ha per year)

2003: DAR survey: papers at land Banil for validation process

Limcauco Property

1963: Start of LTI struggle

1992: Establishment of BAFA

2000: PUMASOK ANG PDI

2003: Distribution of CLOA

1988: Property classified as commercial farm

1998: Property classified as agricultural land

2002: LGU Resolution to fast track distribution of land

Case Study

LTI Struggle of Farmers in Carbonnel, Tarlac

The Cojuangco clan is the most powerful clan in Tarlac Province. It also owns large
landholdings, the most known being the 4,000-hectare Hacienda Luisita which is now
being developed as a commercial and industrial centre.

The Cojuangco also own most of the lands in the towns of Gerona, Paniqui, Ramos and
Pura, in Tarlac Province. The aggregate size of their landholdings in these towns is
around 300 hectares. Most of these lands have been covered by the 1972 land reform
program for rice and corn lands. In fact, land titles in favor of farmer beneficiaries were
actually generated. However, the supposed beneficiaries of the program never received
their titles to the land. The farmers of Brgy. Carbonel, in Gerona, are among those who
never received their titles to the land.

PDI intervened in Gerona in April 2003, aiming to assist farmers in claiming the 300
hectares owned by the Cojuangco family. Previously, Carbonel was considered a hot
area because of the infiltration activities of the New People’s Army. PDI came into the
area under an environment where outsiders, even NGOs, are suspected of being
communists. The Cojuangco family and its farmer-allies used the communist scare to
discourage PDI from organizing the community.

Against the odds, PDI organized the Samahan ng mga Magsasaka at Manggagawa sa
Carbonnel (SMMC; lit. Carbonel Farmers and Farm Workers Association). Beginning
with only a few members, the organization would soon expand to include 18 members.
Many other farmers did not join the organization because they did not believe that
organizing can e an effective means of claiming the land. Besides, they were afraid that
if they joined the organization, the landowner would kick them out of the land.

By September 2003, a women’s organization was established in the community. This

organization would provide additional support to the struggle of the SMMC apart from
the women’s initiative of improving their lots in the community through livelihood
activities.

Mobilizing PDI’s partnership with the DAR at the national, regional and provincial level,
the SMMC would be able to acquire information that would facilitate the land transfer
process. Anomalous transactions were discovered forcing local DAR officials to respond
and to act more positively.

In October, during the evaluation period, PDI and SMMC succeeded in persuading the
DAR to initiate the redistribution of some portions of the Cojuangco land. During a
special ceremony attended by the evaluators on October 13, 2003, 48 Certificates of Land
Ownership Award (CLOA) were distributed to 48 farmer-beneficiaries. These CLOAs
represented 68 hectares of land.

Only 9 members of SMMC benefited from the distribution. The majority of the
beneficiaries, 39 farmers, are non-members of the organization.

The distribution of the CLOAs made a strong impact on the community, especially
unorganized farmers who lost their faith in the agrarian reform law and in the value of
organizing.

The initial success in Gerona can be attributed to the following factors:

• The determination and strength of SMMC despite its small size.

• The inputs of PDI in terms of organizing and strengthening the SMMC.
• The acquisition of information from the DAR that surfaced anomalies and
pressured local DAR officials to respond and act more positively; and,
• The potency of the PDI-PO-DAR partnership that is mandated by the DAR
Central Office.

The beneficiaries have long been in possession of the land they till. The issuance of the
CLOA strengthened their ownership status. What they need to overcome is the strong
pressure from speculative land markets where artificially generated rise inland prices are
expected to tempt farmers to sell their land.

There is a need for PDI and the SMMC to look into land development. Having secured
the CLOAs, the next challenge for the farmer-beneficiaries is to prove that they can make
their lands financially viable. Given their low income positions and limited access to
external resources, they see the need for PDI to continue its support. This is not to
mention that 68 hectare represent only a small portion of the 300 hectares claimed by
farmers.
 Case 1: Activities
• Organizing for LTI
Cojuangco property, Gerona • Organizing for ESS
• Scholarship

Negative external Factors

• Owners resistance Activities
• History of connivance • Acquisition of Positive external
information factors
with DAR and LGU • Farmers willingness
officials • Consultations (farmers,
PDI) to own land
• Landowners prearranged
list of FB • Training, planning
• Farmers “wait-and-see-
attitude”
• Farmers fear

Activities Positive external factors

• Dialogues through SCAT • Partnership with DAR
• Internal consolidation of • Willingness of farmers
farmers to acquire the land
• Threat of militarization
• Local government view
towards development
• Landowners strong
Results
• Formation of
SMMC, 4K
• Distribution of
CLOAs

Impacts
• Land Security
• Strong organization

Results
• Encouragement of other
farmers
• LGU recognition on the
strength of the farmers
organization
 Case 2: Activities
• Organizing for LTI
Umcauco property • Organizing for ESS
• Strengthening the organization
• Knowledge on legal
procedures

Negative external Factors Activities Positive external factors

• Owners resistance
• Non-cooperation of local
government (barangay,
municipal level)
• DAR conviviance with
the landowner
• Landowners resistance
• Formation of CBL
• Dialogue and petitions
Activities
• Series of consultation
• Trainings, plannings,
acquisition of information
• Support from the LGU
• Farmers willingness to
acquire the land
Positive external factors
• Partnership with DAR
• Farmers informed about
the legal procedures

Results
• Formation of SRFA
• Farmers active
pursuit of land claim
• Increased cropping

Impacts
• Change in behavior of DAR personnel
• Increased income
• Landowners strong resistance

Results
• Strengthening of the farmers
organization (PO)
 Case 3:

Umcauco property

Activities
• Support to land claim
• Organizing for ESS
• Strengthening the organization

Negative external Factors
• Local maneuvers of the
land owner
• DAR connivance with
the landowner
Activities
• Series of consultations, Positive external factors
trainings, planning • Support from the LGU
• Acquisitions of • Farmers willingness to
information acquire the land

Activities
• Dialogues (SCAT) and
Positive external factors
petitions at regional and
provincial level • Partnership with DAR
• Organizational meetings • Farmers informed
for strengthening of the about the legal
• Landowners resistance PO procedures
• Trainings and • PDI support
acquisition of

Results
• Distribution of
CLOA
• Active engagement
with City Court

Impacts
• Security on land tenure
• Stronger unity
• Change in DAR personnel’s behaviour

Results
• Encouragement of other
farmers
• Policy change at the LGU
level
Scheme – working steps in LTI

The following scheme presents an example of implementation in LTI.

1. Monthly meeting

2. Reporting per Province

3. Define problems and issues

4. Definition of tactics – clarifications and assignment of actions to be taken

5. negotiate at different levels

- municipal
- provincial
- regional
- national

6. complementing rallies and other advocacy work and actions

7. feed back and discussion of achievements and evolutions in the next monthly
meeting

8. etc…
5.2 Results of impact ranking in Bulacan and Nueva Ecija
Results of impact ranking or most important results of the READ program in
Bulacan and Nueva Ecija. Number of mentionings
Rank
Impact I II III IV V

Bulacan (5 working groups)

Improvement of relationship between 3 1 1

husband and wife
Level of knowledge and self-confidence 3 1 1
increased
Security of land ownership 2 3

Improvement of Livelihood 1 1 3

Impacts Nueva Ecija (4 groups)

Security of land ownership 3 1

Improvement of Women’s Situation; * 1 1 1

Level of knowledge 2 2

Increased influence through People’s Org. 1 3

Improvement of Livelihood ** 1 1 1

*meaning: women becoming productive, increase in abilities and position in the family.

** one group didn’t rank this impact at all, therefore only 3 counts
5.3 Background information about the ESS
Pig production

From the project’s SPF since 2001 to 2003, 55% of the available funds have been used
for hog and goat raising projects (PHP 307,000 out of PHP 561,000).

The following estimation concerns the economic profitability of the pig production
activity supported by PDI

Estimated production cost and benefits from pig raising

PHP Totals (PHP) Total (PHP)
Without labor With labor
Costs for feeds 3,700

Medicine 300

Fertilization 1,200

Total production cost 5,200

Costs for mother sow* 2,500

Labor** 7,200

14,900

Income 15 piglets x PHP 1200 18,000

Total Benefit 12.800 3,100

Total Benefit in Euro 192 50

* Calculated costs are 10,000 PHP after 4 years

** Work input on the average is 1 hour/day for 11 months or 335 days = 335 hours = 48
working days x daily wage rate of 150 = PHP 7,200 (108 Euro).

Costs Calculation doesn’t contain depreciation for pig pen

Dressmaking

Women insane Isidro, Laur, N.E. engage in Baby Dress making for local markets. The
production process is based on division of labor in which different production steps are
carried out by different persons: Purchasing of materials, cutting, sowing, marketing in
own sari-sari store or in nearby markets. The women work on their own sewing
machines at home.

Without marketing costs the costs for materials of one piece is PHP 35.00 + labor costs
for cutting and sewing is PHP 10, which amounts to a total production cost of PHP 45.
With a selling price of 65 PHP the profit amounts to PHP 20 (0.30 Euro) or about 30% of
the production cost. Marketing costs are not considered, since this is done in
combination with other economic activities.

A sewer may get 3 pieces per hour finished for which she earns 3 x PHP 5 PHP = PHP
15. With a 7 hour working day which is equivalent to the working hours for farm wage
labor a woman can earn about 105 PHP. This is somewhat less than the local rate for
agricultural wage labor which is 120 PHP.

For none of the women sewing is a full time job. But a woman may produce as much as
300 dresses a month, which amounts to an income of PHP 1500 (22,50 Euro) which is
roughly equivalent to a half-time job.

Candy Making, Kaybanban, Bulacan

The women’s group in Kaybanban engages in the production of candies, which are made
from local fruits and sugar. They also try out new recipes, e.g. making candies from low
quality pineapples. Usually 12 women of the women’s group engage two times a week
for half-a-day in candy making. A profit of PHP 400 is generated for each half day,
which divided among the members comes to PHP 66/person for a full day, if all
participated. This is below the usual agricultural wage rate of PHP 150 per day.

Another favorite economic project of women is setting up village stores (“tindahan”) fro
supplying cheaper goods or a buying opportunity in places where no other shops exist.
Furthermore, women engage in manufacturing handicrafts, soap or candles. Farmer
organizations more use the fund for coffee production, agro-forestry, irrigation.
5.4 Additional information, assessment and recommendations
concerning the SPF

5.4.1 List of approved Small Projects (Loans)

Approved Small Projects (Loans)

Project Project Title Recipient Cost/Amount Own Remarks
No. Approved Means
1 Hog Dispersal Galoc 10,251 pigpen on-going
2 Seed Dispersal Bintuan 12,000 labor on-going
3 Hog Dispersal NKAP 20,000 pigpen on-going
4 Carabao & Pump SMSR 47,000 labor on-going
5 Variety Store SKP-ARC 23,175 labor on-going
6 Handicraft SKAB 9,000 labor on-going
7 Local Trading NKAP 12,000 labor on-going
8 Hog Dispersal LAKAS 12,500 pigpen on-going
9 Hog Dispersal SKT-ARC 25,000 pigpen on-going
10 Hog Dispersal SKP 12,500 pigpen on-going
11 Hog Dispersal SKKP 12,500 pigpen on-going
12 Carabao BAFA 25,000 labor on-going
13 Hog Dispersal NAGSIKAP 25,000 pigpen on-going
14 Hog Dispersal SINTA 24,000 pigpen on-going
15 Stick Marketing SKP-ARC 12,000 labor on-going
16 Hog Dispersal NKAP 42,500 pigpen on-going
17 Hog Dispersal SIWA 15,600 pigpen on-going
18 Hog Dispersal CWA 7,200 pigpen on-going
19 Hog Dispersal PWA 16,800 pigpen on-going
20 Hog Dispersal BWA 10,800 pigpen on-going
21 Goat Dispersal SWA 4,200 labor on-going
22 Hog Dispersal Camachile 6,000 pigpen on-going
23 Hog Dispersal Pinamalisan 6,000 pigpen on-going
24 Hog Dispersal Poblacion 3,600 pigpen on-going
25 Meat Processing SMC 22,000 labor on-going
26 Dress Making SIWA 22,375 labor on-going
27 Card Making LAKAS 8,000 labor on-going
28 Agro-Forestry Pasambot 14,275 labor on-going
29 Meat Processing LAKAS 10,000 labor on-going
30 Coffee Production SAMAKA 10,000 labor on-going
31 Goat Dispersal SAMAKA 15,000 labor on-going
32 Food Processing KABISIG 10,000 labor on-going
33 Handicraft/Metal BAMPCI 15,000 labor on-going
34 Hog Dispersal Carbonel 25,000 pigpen on-going
35 Agro-Nursery LAKAS 2,500 labor on-going
36 Hog Dispersal Morong 12,500 pigpen on-going
Total 561,276 (7,500 Euro)

5.4.2 Further information and comments on the SPF and ESS

Major principles and Rules of the SPF (Small Project Fund)

• The SPF is a credit fund for POs

• Lower and upper ceilings for projects are defined

• Interest rate and processing fee are specified

• A project proposal will be approved by the board of PDI

• The project proposal will be approved by the board of PDI

• The monitoring of the projects is done regularly by PDI

• The terms and conditions are laid down in a contract between PDI and the PO

The project proposals vary in quality. After submission of the proposal usually intensive
discussions with the applying organizations are conducted before the proposal is
submitted by the PO for approval to the board of PDI. The monitoring of the economic
projects is done by the livelihood officer of PDI, which at the same time is the
coordinator for Nueva Ecija. The projects are additionally monitored by the program
coordinator of PDI. This very careful and thoughtful approach to the economic projects
has to be appreciated very much.

The principles and rules laid down in the guidelines for the SPF are reasonable. Based on
this the SPF can be seen as useful instrument to achieve its intended effects. Whereas the
principles and the implementation with its careful preparation and monitoring are
assessed positively, it seems that the operational procedures still need improvements.

Means and savings of the beneficiaries: With good reasons PDI stated as its principle
that “… savings reflect discipline. The policy will be no savings, no assistance”. In the
PDI guidelines on the SPF it is stated that “The organization should have a counterpart in
the project financial requirement of not less than 25% of the total project cost.” It is not
required that this counterpart refers to monetary counterpart. However, from experiences
gained with credit programs it definitely is favorable if savings proceed credit. The most
recent, undated, summary report of all projects, however, states no financial counterpart
at all but only in-kind counterparts. In the case of the pigs, this is a pigpen, which of
course has a monetary value. In all other cases it is labor. Likewise, neither the project
proposals nor the contracts state an own capital share. This raises the question if the
principle of savings and own capital share is made clear to the project proponents and if it
is observed for the approval of projects.
Savings and the “bankable” farmer

The project proposal emphasized the importance of generating savings in the process of
becoming economically thinking and acting subjects. Furthermore, the habit of saving is
seen an urgent necessity in order to gain freedom from local money lenders and to build
up own capital.

Capital formation and the start-up savings of POs:

People’s Organization Savings in bank (PHP)
Pintol Women’s Association 1,300
San Josep Women’s Association 2,070
Sagana Mothers Club 1,786
Casa Realo Women’s Association 1.200
San Isidro Women’s Association 4,000

There are some particulars about the saving program. First it is only the women of the
women’s organizations who save. Secondly the savings are restricted to saving in the
organization. The women get individual passbooks on their savings. The rules are
differing from organization to organization. But at least in some organizations the whole
amount deposited can not be withdrawn. Interests are also paid on the deposits.

The objective is not to connect individual people to official banks but to build up
economic ventures of the POs and cooperatives. It was argued that it is very difficult to
get an account in a banking institution because the formalities for opening a bank account
are too demanding.

An inquiry in one meeting where about 70 people attended brought out that only 3 of
them had a bank account, i.e. were connected to a formal banking institution. These three
people were all leaders of organizations. The percentage might be higher in more
urbanized settings.

The intention of the project of making the people used to save first before economic
projects are sanctioned and encouragement of capital build-up is a very necessary and
reasonable one. But it seems that until now the results in this regard are not yet
pronounced.

Furthermore, the question arises why it is only women who save, why not also men? Men
are often accused of squandering money on their personal vices (more than women) such
as cockfight and gambling. Therefore, it seems reasonable that men are in even greater
need to develop a habit of saving. Additionally men’s POs undertake economic projects
for which capital needs to be build up.
From a conceptual perspective it could be asked if the POs are the appropriate institutions
for financial business. Do they provide sufficient incentives for the deposits of their
members? Do they have the right legal status for financial business? Is there a long-
term, perspective of the POs as financial institutions or is it necessary to either pass over
the financial and business aspect to organizations with an appropriate legal status, e.g.
cooperatives, or connect the farmers to existing banks?

Monitoring and accounting in the different project types

A great part of the fund is attributed to pig and goat dispersal. There the credit amount is
calculated in terms of animals. All repayment is in kind, i.e. piglets, small goats, and is
recycled at once to other beneficiaries. There are no monetary repayments and thus no
money will not get back to the SPF to use as new capital. Because monitoring about
repayment status is in kind this project type needs separate accounting and reporting. It
does not make sense to put it in one list with monetary credits. Monitoring data for this
project type could be the number of returned piglets, number of distributed piglets, and
number of beneficiaries, and mortality rate. After one year one could see how many pigs
should have been and actually have been returned. The value of these pigs could be
expressed in monetary terms, in order to see the growth rate of the “pig fund”. The list
presently used, which follows the EED format, is not appropriated for this kind of credt
provision. Of course the expenditures for the hog dispersal have to be accounted for and
included in the financial report in monetary terms.

For the credit which is repaid with interest and where the money is ploughed back to
build up a monetary revolving project fund held by PDI, a separate accounting and
reporting is needed.

Another small project, the card making of the LAKAS organization, has no repayment
mentioned at all in its agreement. With this project it is furthermore the question if it can
be sustained for its purpose of earning income for scholarships, because the profit is
small, and considering interest payments it would be so small that hardly any capital can
be generated for reinvestment.

The present monitoring and reporting lists do not provide information on the repayment
status of the revolving fund, i.e. the comparison about payments due and actual payments
made. The lists are not differentiated on the duration of the loan, principal approved,
processing fees and interest to the paid and date due. This, however, is an important
aspect for monitoring and making a revolving fund work. Furthermore, the payment and
repayment status of credit programs should be always accounted for immediately and at
least a monthly status report should be in the first week of the following months.
The contracts

The contracts are clear in most of the points except the terms and conditions of
repayment. The amount of loan is stated as a whole. It usually states that the whole
amount including 3% processing fee and 1% interest per month to be paid within one
year. No absolute figures are provided for the amount released, since this is not identical
for the loan amount because 3% processing fee are immediately deducted from this. In
the next paragraph it is stated that if the PO is able, a certain amount of x PHP should b e
paid each month. In one example on a loan of PHP 15,000 there should be paid 12
monthly rates of 1,400 PHP. This would amount to a sum of PHP 16,800. But
considering the monthly down payments in calculating the interest the repayment would
only amount to PHP 15,975 which is PHP 825 less, i.e. almost half the amount of
interest. In the above case the rates for the monthly repayment were based on the whole
loan amount. In another case (water buffalo and water pump loan) the calculation of the
repayment was obviously based on the actual capital available (loan amount less
processing fee). These contradictions or misunderstandings about the calculation could
be avoided if a clear calculation rules would be written down. Furthermore, a repayment
schedule with information on the absolute figures for repayment rate, interest on the
respective (remaining) loan amount, total repayment for the month and remaining loan
may be attached to the contract. Loan rescheduling has to be adjusted if this case occurs.
Based on this it also will be easy to monitor the fund. “If able” (kung kaya) clauses are
confusing, clear agreements are better.

Repayment schedules: Repayment schedules sometimes seem unrealistic for the type of
project. Water pump and carabao loan are more an example of a long-term investment.
Even if one harvest already would bring sufficient income to repay the loan the question
is if there is enough benefit to establish a maintenance and replacement fund. It seems
that the repayment scheduling is not deduces from realistic assumptions about the
expected returns.
5.5 Background about the poverty situation and measures and
strategies to reduce poverty in the Philippine context

The situation of poverty

Magnitude of Poverty, 1997

NCR Luzon Visayas Mindanao Phil
Population 874 10,747,000 6,692,000 8,455,000 26,769,000
Poor 128 1,797,000 1,165,000 1,421,000 4,511,000
Families
Source: National Statistics Office (NSO), Annual Poverty incidence Survey (APIS) 1998

PHILLIPINE POVERTY STATISTICS

%
Item 1985 1997 change

Poverty Threshold (P) 3744 11388 204.2

Food Threshold (P) 2609 7724 196.1

Poor Families (‘000)

Below subsistence Threshold 2403 2337 -2.7
Below Poverty Threshold 4355 4553 4.5

Poor Population (‘000)

Below subsistence Threshold 15400 14792 -3.9
Below Poverty Threshold 26231 27250 3.9

Poverty Incidence (%)

Population 49.3 37.5 -23.9
Families 44.2 32.1 -27.4

Subsistence Incidence (%)

Population 28.5 20.4 -28.4
Families 24.4 16.5 -32.4

Source: 1997 Philippine Poverty Statistics, NSCB

Poverty by Province
20 Provinces with largest magnitude, 20 Provinces with highest Poverty
1994 Incidence, 1994
Philippines: 4,531,000 National Mean: 40.2
Province Families Province Incidence

1. Negros Occ. 231,742 1. Romblon 79.5

2. Cebu 210,920 2. Masbate 77.7

3. Pangasinan 194.507 3. Ifugao 72.1

4. Iloilo 181,968 4. Abra 71.0

5. Davao Sur 180,975 5. Kalinga-Ap. 70.3

6. Quezon 158, 706 6. Agusan Sur 67.6

7. Zambo. Sur 142,610 7. Mt. Province 67.1

8. Camarines S. 137,780 8. Zambo Norte 62.7

9. Leyte 135,070 9. Dvo. Oriental 62.1

10. Masbate 119,215 10. Sulu 60.1

11. NCR 118,365 11. Capiz 59.8

12. Batangas 111,698 12. Camiguin 59.5

13. Nueva Ecija 102,332 13. Quirino 59.4

14. Misamis Or. 99,973 14. Bukidnon 58.8

15. Bukidnon 97,336 15. Tawi-Tawi 57.5

16. Albay 93,629 16. Davao Sur 57.4

17. Zambo N. 92,059 17. Surigao N. 56.4

18. Negros Or. 86,636 18. Lanao Norte 55.3

19. N. Cotabato 84,526 19. S. Kudarat 54.9

20. S. Cotabato 84,363 20. Palawan 54.5

21. Isabela 83,493 21. N. Cotabato 54.5

Source: NSO, FIES 1994

Measures and programs to reduce poverty

The call to wage war against poverty in the Philippines was first declared in 1995 during
the Ramos administration when the government proclaimed the Social Reform Agenda
(SRA). This proclamation paved the way for changing the paradigm in poverty analysis.
From a pure “means” perspective whereby poverty is measured according to income and
expenditure (by measuring people’s capacity to9 procure a fixed level of living based on
a 2,000-calorie index) and measuring the magnitude of the poor through an incidence
index, the government then designed then moved to also measure poverty from the
“ends” perspective by measuring outcomes such as the Human Development Index
(HDI), Gender Development Index (GDI), Gender Empowerment Measure (GEM),
Capability Poverty Measure (CPM) and other indices.

Through Proclamation 548 (March 6, 1995), the government adopted the Minimum Basic
Needs (MBN) approach in analyzing poverty. The MBN looks at incomer and outcome
measures and analyzes eight (8) criteria as follows: a) number of families below the
poverty line; b) poverty incidence; c) infant mortality rate; d) malnutrition rate; e) cohort
survival rate; f) adult illiteracy rate; g) proportion of households without access to safe
water; and h) proportion of households without access to sanitary toilets. However, the
national MBN measure was computed only once based on 1991 data. Succeeding
measures were decentralized at the local government level but without sustained effort.

Government Anti-Poverty Strategies

Objectives Strategies
KALAHI • Reduce poverty • Accelerated asset reform
• Improved governance • Improved access to human
• Community empowerment development services
• Provision of employment and
livelihood opportunities
• Social protection and safety nets
for the vulnerable sectors
• Institutionalized and strengthened
participation of the basic sectos in
local governance
CIDSS • To enable families to attain • Community Organizing
their minimum basic needs • Total family approach
(MBN) • Convergence of services
• Focused targeting
KALAHI- • Poverty reduction • Social mobilization, capacity
CIDSS- • People empowerment building and implementation
KKB 38

38
Under the Macapagal-Arroyo administration, the flagship anti-poverty program is officially called the
KALAHI-CIDSS-KKB Program. This acronym derives from three different programs that are merged
under one flagship program. CIDSS stands for “Comprehensive and Integrated Delivery of Social
 •Improved local governance support
•People’s access to • Seed funds for community
government development
• Seed funds for community • Monitoring and evaluation (M&E)
investment programs studies
Source: NAPC, DSWD

In 1998 the government proclaimed Republic Act 8425 otherwise known as the Social
Reform and Poverty Alleviation Act that created the National Anti-Poverty Commission
(NAPC) as the premier agency that would coordinate efforts of government and civil
society in alleviating poverty. The NAPC highlights the partnership of government and
civil society in addressing the issue of how the poor can attain their minimum basic needs
(MBN).

The NAPC has two components: the government sector composed of all government
agencies, and the Basic Sectors composed of fourteen sectors that include farmers,
workers, women, indigenous peoples, urban poor and others. Currently, the NAPC takes
the lead in implementing the World Bank funded Kapit Bisig Laban sa Kahirapan
(KALAHI) Program (Convergence Program against Poverty; literally, hand in hand in the
fight against poverty) in coordination with the Department of Social Welfare and
Development (DSWD). This program is led by a National KALAHI Convergence Group
(NKCG) which is composed of 34 representatives of national and local government
agencies and bodies and the 14 basic sector representatives.

KALAHI-CIDSS-KKB was formally launched in January 18, 2003 and will be

implemented until 2008 with a total project cost of P9.3 billion funded by 55% by the
World Bank, 17% Government of the Philippines counterpart and 28% from local
contributions. The focus is on empowering the poorest 5,030 Barangays in 197
municipalities of 40 provinces covering approximately 1.9 million households. However,
there are no indications that the KALAHI convergence mechanisms are established in
Central Luzon. On the contrary, primary data gathered during the evaluation indicate
local government preference for aggregate growth strategies biased towards revenue
generation through private sector investments.

KALAHI-CIDSS-KKB was formally launched in January 18, 2003 and will be

implemented until 2008 with a total project cost of P9.3 billion funded by 55% by the
World Bank, 17% Government of the Philippines counterpart and 28% from local
contributions. The focus is on empowering the poorest 5,030 Barangays in 197
municipalities of 40 provinces covering approximately 1.9 million households.

Services” and KKB stands for “Kaunlaran at Kapangyarihan sa Barangay” (lit. Barangay Development
and Empowerment). The CIDSS used to be a program under the Department of social Welfare and
Development while the KALAHI was directly under the Office of the President. Having been merged
into the KALAHI-CIDSS-KKB, this program is now under the Office of the President through the
NAPC.
The selection parameters of municipalities includes

a) level of deprivation of the municipality;

b) willingness and capacity to contribute to the project (counterpart/cost-sharing); and

c) presence and willingness of other stakeholders (i.e., civil society and media) in the
municipality to participate in the project.

The program will be implemented in five (5) phases, with each phase covering different
target areas.

Project Phasing of KALAHI-CIDSS-KKB

Phase 1 10 provinces
(Starts January 2003) 11 municipalities
201 barangays PHP 334 M
Phase 2 57 municipalities PHP 2.75 B
(Starts July 2003) (1,531 barangays)
Phase 3 68 municipalities PHP 2.8 B
Starts January 2004) (1,716 barangays)
Phase 4 61 municipalities PHP 2.669 B
(Starts January 2005) (1,583 barangays)
Phase 5 400 urban poor puroks (or PHP 672 M
(Starts January 2005) sections of a Barangay)

Phase 1 covers 201 Barangays in 11 municipalities of 11 provinces in 11 regions.

Essentially, it covers 11 municipalities. Central Luzon (Region III) is not covered in
Phase I. Additionally, however, the NAPC has developed a KALAHI-in-Conflict-Areas
component of the program. One project involves support for the peace agreement
between the government and the leftist RPMP-RPA-ABB (Rebolusyonaryong Patido ng
Manggagawang Pilipino – Revolutionary People’s Army – Alex Boncayao Brigade).
This group is one of the factions that bolted out of the CPP-NPA-NDF in the early 1990s
and opted to negotiate with the government. However, since the RPMP-RPA-ABB has
mass bases mainly in the Visayas islands, the KALAHI project is piloted only in the
provinces of Iloilo, Negros Oriental, Negros Occidental and Aklan. This covers 21
Barangays in seven (7) municipalities.

Notwithstanding the phasing, the convergence mechanisms are supposed to be replicated

at the regional, provincial and municipal levels. However, since the local mechanisms
are led by local executives, the formation of the local convergence groups is not only
slow but also susceptible to exclusions of civil society organizations that are not favored
by local authorities.
List of Phase I of KALAHI-CIDSS-KKB Project Areas
REGION PROVINCE MUNICIPALITY NO. OF
BRGYS.
CAR Ifugao Hingyon 12
IV Quezon Dolores 16
V Masbate Batuan 14
VI Iloilo Concepcion 25
VII Siquijor Enrique Villanueva 14
VIII Eastern Samar Sulat 18
IX Zamboanga del Norte Katipunan 30
X Lanao del Norte Munai 26
XI Davao del Norte Sto. Tomas 19
XII Sarangani Malapatan 12
CARAGA Agusan del Norte Jabonga 15
Total 11 provinces 11 municipalities 201 brgys.
Source: NAPC, DSWD

5.6 Rural Development Strategies

There is no coherent pattern of rural development approaches employed by the
government or its agencies. National policy for rural development is largely reactive to
changes in the international economy. In the 1970s, the settlers’ market in international
finance influenced the promotion of chemical based agriculture. In the late 1980’s, after
the overthrow of the Marcos regime, the government promoted agrarian reform as a
strategy for rural development and arresting agrarian unrest. In the mid-1990s, the
government adopted the prescriptions of the GATT-WTO even as the country’s accession
to new terms of trade negatively and abruptly affected agriculture.

Under the current setting, the government promotes a neo-liberal approach to the
economy with bias towards promotion of foreign and domestic investments without
precautionary measures against their negative impact on the rural economy. This trend is
exemplified in the establishment of free trade zone and economic zones that, as a result,
instigated changes in land use patterns over a wide radius. South of Manila, the
provinces of Cavite, Laguna, Batangas, Rizal and Quezon have been converted into an
economic zone called the CALABARZON area where agricultural lands have been
affected not only by the emergence of commercial and industrial centres but also by
changes in land markets and levels of taxation.

In Central Luzon, Bulacan and Nueva Ecija have been affected by the northern expansion
of Metro Manila. Other provinces like Pampanga, Zambales and Bataan have been
affected by the conversion of the former Subic Naval Base and the Clark Air Force Base
into economic zones that have attracted not only foreign investments but also created
subsidiary industries and commerce over a wide radius. The entry of foreign investments
has attracted the rural-based labor force and has instigated the emergence of service-
related subsidiary industries. New space requirements outside of the economic zones to
absorb new industries and commercial centers as well as labor entrants have jacked up
land prices.

5.7 Effects of the Neo-Liberal Approach

Even before the Philippines acceded to the WTO in 1995, the government has embarked
on a unilateral tariff reduction program since 1981. This was part of the World Bank
prescription for structural adjustments and government effort to attract investments.
Tariffs for MFN (Most Favored Nation status applicable to goods from non-ASEAN
countries such as the US, EU, Japan and China) plunged from an average of 19.72
percent in 1994 to 9.98 percent in 1999. By 2001, the MFN tariff further plunged to 7.71
percent compared to Thailand’s 16 percent. By January 2004, the final phase of the tariff
reduction program, MGN tariff rates are expected to slide down to 0-5 percent.

Although it is true that tariff reduction has attracted investments, it is likewise true that
the country is now flooded with imported goods, including subsidized agricultural
products. Vegetables and meat are now flown in from China, Australia or New Zealand.
Local producers are forced to contend with ballooning debts and unfairly priced imported
goods, not to mention high power costs.

According to the Fair Trade Alliance (FTA), a local coalition of civil society
organizations and small industries, the WTO regime and the tariff reduction program has
negatively impacted the economy in the following areas:

• Continuing lay off of workers from 67,624 in 2000, 71,864 in 2001 and 77,601 in
2002.

• Around 540,000 workers lost their jobs as of July 2003.

• Increase in unemployment from 3.8 million in 2002 to 4.3 million as of July 2003.

• Closure of companies – 2.258 firms in 2000, 2,859 firms in 2001 and 3,296 in 2002.

The approach has not only impacted on the economy, it has also impacted on the capacity
of the state to produce revenues. Tariff contribution to the GNP has declined from 5.3
percent in 1993 to 2.7 percent in 2000. As a result, the government’s budget deficit rose
to PHP 147 billion in 2001 and further ballooned to PHP 212 billion in 2002. Not only is
the economy in crisis, the whole government – the single biggest employer and provider
of goods – is in financial crisis. The country’s standing debt is now at PHP 5 trillion

5.8 The situation of Agrarian Reform Beneficiaries

To understand the potential of improving the situation of the poor a recent national study
on the impact of AR and AR-Projects shall be quoted here. Some of the impacts
mentioned before coincide with the results of the evaluation.
• ARBs invest more in farm assets than non-ARBs.

• ARB’s have better perception of their social and economic standing and are more
optimistic about their future than non-ARBs.

• ARBs achieve on an average more than twice the productivity per ha than Non-
ARBs, i.e. PHP 20,000 vs. PHP 8000

• The length of time somebody is an ARB and is in an ARC reduces the chances of
being poor.

• Poverty incidence is lower among ARB households in both survey years 1990 and
2000. A decline in poverty incidence from 47.6% to 4.2% was found in the two
survey years. The result seems marginal, but becomes more significant when
compared to the figures of the bib-ARB’s where an increase in the poverty from
55.1% in 1990 to 56.4% in 2002 rate was stated.

• ARBs own about 20% more farm and household assets than non-ARBs.

• ARBs have a real income that is about 30% higher than that of non-ARBs. However,
it also was found that real income decreased for both groups between 1990 and 2000
by more than 10%. This decline is rooted in the long-term fall in per capita value
added in agriculture.

Overview of Agriculture Reform Communities (ARC) and respective Barangays

Province No. of ARCs No. of ARC-Brgys.
Tarlac 27 90
Aurora 23 52
Nueva Ecija 46 205
Pampanga 17 55
Bulacan 28 104
Bataan 14 53
Zambales 14 38
Total 169 597
5.9 Negative impacts of extensive irrigation and chemical based
farming
Presently, the combined effects of extensive irrigation and chemical based farming have
produced negative impacts in the following areas:

• widespread distribution of agro-chemical contaminants;

• fragmentation of upland and lowland ecosystems due to radical changes in water use
and water management;

• alterations of water flow due to damming and timing of drains resulting in flooding
and formation of bog and waterlogged areas;

• loss of biodiversity in farms due to introduction of chemicals;

• waste in water resources due to inefficiency as irrigation farms consume only 50

percent of water they receive;

• loss of 3,000 traditional rice varieties due to the introduction of new varieties;

• and, emergence of new pests and diseases such as the brown leaf hopper and Tungro
virus.
6 Preliminary Report – Workshop Documentation
FEDERAL MINISTRY FOR ECONOMIC COOPERATION AND DEVELOPMENT

Department 120

Evaluation of the Program

Rural Empowerment
Through Agrarian / Asset Development

Project Development Institute (PDI),

Manila, Philippines

October 9 – 23, 2003

Workshop Documentation

The Evaluation Team End of October, 2003

Table of Contents

1. The program of the evaluation

2. Introduction

The workshop in Tarlac

3. Introduction to the evaluation and the workshop

4. The methodology of the evaluation and the workshop

5. Presentation about AR and PDI’s program

5.1 AR – Central Luzon Situation – Presentation by the PARO

5.2 LTI and Economic support program by Province

5.3 Social Infrastructure Building

6. Impact hypothesis and preparation of field visits

6.1 Discussion of the vision

6.2 Clarification of the relation between activities, results, impacts

6.3 Impact Hypothesis

6.4 Clarification of points to be analyzed during the field visits

The workshop in Subic

7 Presentation of the results of the field visits

7.1 Group Nueva Ecija and Bulacan

7.2 Group 2: Tarlac and Pampanga

7.3 Group 3 – Bataan and Zambales

8 Discussion of impacts and sustainability

8.1 Results of the working group on impacts

8.2 Group work on Gender, Economic Projects, Agriculture and Environment

8.3 The sustainability of the impacts

8.4 Assessing Management and implementation of PDI program

9 Recommendations

9.1 Recommendations to the POs and NMGL

9.2 Recommendations to PDI

10 Lessons learned from PDI’s experience

11 Evaluation of the methodology, the process and

the results of the evaluation

11.1 Evaluation by NMGL / Peoples organizations

11.2 Evaluation by PDI

11.3 Evaluation of the evaluation by the external consultants

12 Closing remarks
Abbreviations

AR Agrarian Reform

ARRD Agrarian Reform and Rural Development

BDC Barangay Development Committee

CARP Comprehensive Agrarian Reform Program

CDP Comprehensive Development Program

CLOA Certificate of Land Ownership Awar

EED Evangelischer Entwicklungsdienst

ESS Economic Support Service

EZE Evangelische Zentralstelle fur Entwicklungshilfe

FB Farmer Beneficiary

GAD Gender and Development

IAP

IGA Income Generation Activity

IGP Income Generation Program

IP Indigenous People

LGU Local Government Unit

LTI Land Tenure Improvement

MARO Municipal Agrarian Reform Officer

MIS Management Information System

MPDC

NGO Non Government Organization

PARRDS Partnership for Agrarian Reform and Rural Development Services

PDI Project Development Institute

PRRM Philippine Rural Reconstruction Movement

1. The program of the evaluation
Date Program
Oct. 7, Tuesday • Meeting of Dr. Melsbach with Mr. Roland Grafe, Counsellor and
2003 Deputy Head of the Embassy of the Federal Republic of Germany,
Manila

• Meeting of Dr. Melsbach with Dr. Hannsjorg Woll, former Project

Manager Quirino Forest Management
Oct. 9 Meeting of Dr. Melsbach with Ms. Corazon Urico, UNDP: Discussion
Thursday on UNDP-Support to AR and getting Materials on UNDP’s programs.

Arrival of Oliver Karkoschka in the late afternoon and first discussions

among the external consultants.
Oct. 10 Meeting with PDI Director and staff in PDI office :
Friday
• Introduction to PDI

Orientation to the evaluation and discussion of the program

Afternoon: Travel to Tarlac

Oct. 11 and 12 Workshop in Tarlac

1. Introduction to the evaluation

• Opening remarks and introduction of participants

• Clarification of the character, objectives and the program of the

evaluation

• Discussion of the evaluation methodology and the role of external

consultants, PDI and PO members

2. Issue based presentations and discussions:

- AR – Central Luzon Situation – Presentation by PARO

- LTI – and Economic support program by Province

- Social Infrastructure building

3. Establishment of impact hypothesis and preparation of the field

visits.
Oct. 13 – 15, Field and area visits in three teams each composed by PO members,
Monday - PDI staff and one external consultant
Wednesday 1. Bulacan and NE
 2. Pampanga and Tarlac
3. Bataan and Zambales
Oct. 16 World food Day Celebration in Iba, Zambales, informal discussions.
Oct. 17, Friday Travel to Subic and preparation of the Workshop
Oct. 18 – 22 Workshop in Subic

5. Sharing and discussion of the results of the field visits

6. In-depth analysis and assessment of specific findings

7. Recommendations and lessons learned

8. Evaluation of the process

Oct. 22 Travel to Manila
afternoon
Meeting and dinner with four NGO coordinators directors inManila
(Manuel Quiambao (President PEACE Foundation), Gerry Bulatao
(Coordinator Local Governance Coalition-Network/LGC-Net), Conrado
Navarro (Former Undersecretary of the DAR; Vice-President Philippine
rural Reconstruction Movement, PRRM), Ricardo B. Reyes Executive
Director Partnership for Agrarian Reform and Rural Development
Services Inc. (PARRDS).
Oct. 23 Meeting with Mrs. Hubner, German Cooperation: Support to Agrarian
Wednesday Reform and Rural Development and Minda Dolarte, Project
Development and Management Service, DAR.

Departure of Oliver Karkoschka to Germany

Oct. 24, Lunch Meeting of Dr. Melsbach with Ria Miclat-Teves, Ruel
Thursday Punongbayan, Jheng Julio Rodrigo de Guia: Topic: Planning System of
PDI.
2. Introduction
The background and objectives of the evaluation

The evaluation of the program “Rural Empowerment through Agrarian / Asset

Development (READ Program)” implemented by the partner organizations “Project
Development Institute (PDI)”, Philippines is the second of six evaluations of programs of
the German Church Development Organizations EED/EZE and Misereor.

This sequence of evaluations is to analyze and assess achievements and experiences of

programs in regard to the obje4ctive of German Development Co-operation “Enhancing
the participation of the poor – strengthening Good Governance” (Program of Action
2015).

Particular attention should be paid to what extent strategies to strengthen the poor and
their organizations are able and successful to enhance and support “bottom-up processes”
of poverty reduction. Finally, how to improve these strategies and lessons learned for
comparable programs are to be identified. The experiences made in the bilateral aid
project “Bondoc” shall be used as reference.

The findings and conclusions in terms of lessons learned are seen as the main outcome of
the evaluation. They should provide insights and give orientation for the future of this
and other respective programs. The evaluation is learning-oriented and the methodology
to be applied is characterized by participation and process orientation rather than by
control. The specific tasks are presented in the TOR (see main report).

The evaluation period was form October 9 – 23 in Manila and Central Luzon, Philippines

This Workshop documentation

This workshop documentation presents the key-findings and results of the evaluation as
discussed in the evaluation team during the evaluation period. It serves as a working
document for the evaluation team and as a basis for the preparation of the evaluation
report.

The evaluation team

The evaluation team consisted of around 20 persons, members of peoples organization,

PDI director and staff, one DAR official and three external consultants. All assumed a
role and function as evaluator in a team. In addition, one person from EED and from
BMZ joined the function as evaluator in a team. In addition, one person from EED and
from BMZ joined the evaluation team for a part of the entire evaluation period. For the
list of all members see last page.
The Workshop in Tarlac
3 Introduction to the evaluation and the workshop

Opening and welcome address

After a prayer and the national anthem, Ria Teves welcomed all the participants of this
workshop and gave an introduction to the evaluation. She also asked all the participants
to introduce themselves by stating their name, organization and function.

Objectives and general character of the evaluation – introduction by the consultants

The external consultants also gave an introduction to the evaluation. Oliver Karkoschka
highlighted the following aspects

• the evaluation is learning oriented. The main results are the lessons learned from the
experience of PDI and other actors concerned by the program. These findings are of
interest not only for the program of PDI but also for EED and BMZ for their
respective programs in the Philippines and in other countries as well as for respective
concepts.

• the appropriate method for this kind of evaluation is characterized by a high degree of
participation. This means that as far as possible other actors beyond the three
external consultants, in particular the PDI director and staff and also the people’s
organizations are active part an not only subject of the evaluation. Oliver Karkoschka
suggested that all the members of the evaluation team do not only take part as a
source of information for the external consultants – this would mean that their main
task is only to explain and answer to the questions of the consultants – but that PDI
Director and staff and PO leaders are active evaluators – they are invited to evaluaqte
themselves. He explained the idea of the large evaluation team (see also chapter 4,
methodology of the evaluation).

• the evaluation is part of a series of evaluations which focuses on strategies and

impacts on poverty reduction and participation of the poor in decision making
processes as well as good governance. Main results are the identification of impacts
and the respective lessons one can learn from the experiences gained within the PDI’s
program. It is the second of six evaluations of programs of the German Church
Development Organizations EED/EZE and Misereor/KZE which focuses on 7
questions. Therefore this evaluation is different from a program evaluation.
Establishment of the program

In a discussion about the preparations already made and the objectives of these first days
of the evaluation, the following program was established.

1. Orientation A:

2. Orientation B:

3. Presentation and discussions:

• AR – Central Luzon Situation – Presentation by PARO

LTI and Economic support program by Province

• Social Infrastructure building

4. Impact hypothesis

5. Preparation of the field visits (points to be analyzed, methodology, etc.)

The Tarlac workshop was also put into the framework of the entire evaluation program.
This clarified the idea of the Tarlac workshop to have a first analysis of the PDI/READ
program, mainly based on a self-evaluation assisted by the external consultants and the
formulation of impact hypotheses. The objective of the field visits is to analyze in-depth
the hypotheses and to explore the views of all the other concerned actors.

The subsequent workshop in Subic is to share and discuss the results, to assess the
findings and to come up with lessons learned and recommendations.

Presentation of EED and its interest in the evaluation

Mr. Jorg Schwieger of EED/EZE presented the vision of EED and the interests of
EEC/EZE towards the evaluation. The EED supports the development work of the
churches, Christian organizations and private agencies through funding, seconding
qualified personnel and by offering consultancy services. Within the framework of a
global partnership network, the EEC plays its role in creating a fairer society. It opposes
all forms of discrimination on the grounds of race, sex or religious affiliation. Thus, the
EED assists those who live in poverty and need, whose dignity is violated or whose lives
are threatened by war or other natural disasters.

The EED creates and strengthens awareness among people in the churches, the general
public and in politics, increasing the potential for advocacy against need, poverty,
persecution and conflict and, in this way, contributes towards improving the political and
economic pre-conditions for a more humane development. For the benefit of the poor
and needy, the EED is involved in transforming society and championing their cause. In
the face of the complex challenges ensuing from global structural changes, the EED
shares the development philosophy of the ecumenical movement and is striving for
justice, peace and the integrity of creation.

The EED’s work receives impulses and inputs from a variety of complementary sources
in society, politics, the church and the ecumenical movement. Through its global
network of partnerships, it is part of a process of learning from one another within the
church in the One World. In order to enhance the impact of its work, the EED
collaborates with other organizations in joint ventures and is actively involved in
Fair Trade initiatives.

Mr. Schwieger stressed the vision of EED to help poor, disadvantaged and oppressed
people to develop their life with their own strength and in their own responsibility.
EED/EZE is interested to find out, also through this evaluation, to which extent PDI
affects the daily life of the concerned people, their organizations and legal procedures and
participation in decision making processes. These results will also show to what extent
the support given by EZE is of relevance for the partners and target groups of PDI.

4. The methodology of the evaluation and interests of the

evaluation team
The external consultant Oliver Karkoschka facilitated a reflection about different ways to
carry out an evaluation. He drew the map of the program area Central Luzon and then
three birds flying over this area, representing the three external consultants. As a result
of this evaluation, the report will be written. However, many times – according to his
experiences – the report disappears in a drawer or shelf.

However, in a second drawing he also sketched the map of Central Luzon but many birds
were flying over the program area. These birds represented all the participants being
present in the Tarlac Workshop and being member of the evaluation team. As a result of
this kind of evaluation, a report will be established as well. In addition to the report, a
major result expected from the evaluation will be the lessons learned of all participants,
of all members of the evaluation team in the process of evaluating. These lessons and
experiences re supposed to help the implementation of improvements and changes in the
respective organization. The following discussion highlighted some major differences
between the two methods.

Finally, the second approach was appreciated and favored by all the participants due to
the following reasons:

• the degree of involvement and participation of all the participants is much higher
• the communication between all concerned is easier as all are “birds” / evaluators

• being an evaluator / bird allows to gain more experiences and insights and to learn
more than just being evaluated by the external evaluators.

• the results by following this method are expected to be more relevant for the
participants.

• The use of the results will be more intense by the participants if they really evaluate
and are not only subject to the evaluation.

Tasks of an evaluator (of a bird)

The subsequent discussion was facilitated to clarify the tasks of an evaluator. The
following elements were seen as major functions for all the evaluators during the
evaluation period:

• to identify strengths and weaknesses and opportunities,

• to observe and to interview,

• to analyze and to understand processes,

• to assess the performance of strategies,

to share and to dialogue and to integrate each one’s experiences and knowledge into the
evaluation process and discussions,

to identify recommendations,

to report,

• to learn.

The following have been mentioned as favoring attitudes for an evaluator:

• to be neutral – not to be based,

• to be open minded,

• to be committed and assume responsibilities,

• to share and distribute tasks,

to have democratic attitudes and behavior – respect for others.

• in addition to these tasks, the external evaluators were changed to

give guidance and orientation to the process,

to facilitate discussions and reflections,

to report about the evaluation process and results.

All the participants expressed their interest to carry out the evaluation in a real evaluation
team – which means that everyone is “a bird” / an evaluator assuming the above
mentioned tasks.

In regard to the report, the consultants committed themselves to establishing a first draft
proposal for the evaluation report which will be sent to PDI before submitting it to BMZ.
This will give an opportunity to the entire evaluation to integrate comments, corrections
and other observations into the version which is being submitted to BMZ. Consequently,
the evaluation report is also supposed to be a result of the entire evaluation team – as far
as possible considering the geographical distance.

A short Feedback of the participants at the end of this session gave evidence of the
satisfaction of the participants.

being proud to be an evaluator, the opportunity to be an evaluator was appreciated,

the nature of the evaluation being a collective effort has been highlighted.

Interests in the evaluation by the members of the evaluation team

The process of the evaluation

The consultants asked all the members of the team to imagine a situation in two weeks
just after the end of the evaluation to facilitate a reflection about their expectations
towards the evaluation process. They would talk with colleagues about the evaluation.
They would say that the evaluation was very good because …. . Several small buzzing
groups came up with the following results:

everybody participated in the evaluation process – different sectors and stakeholders,

• a comprehensive data and information and opinion gathering process has been carried
out,

• strengths and weaknesses are identified,

• indicators of change are identified,

• the management and implementation and running of an organizations has been
clarified,

• all the data and information are synthesized and conclusions are identified,

• everybody is sensitive to needs of other concerned in the evaluation process,

• a lot is learned through sharing among the evaluation team – discussions,

• all evaluators respect punctuality,

• good food is provided.

The issues and aspects to be analyzed in the evaluation

Impacts and level of achievement

• Impacts on living conditions, poverty reduction and cultural impacts, fund allocation
by the government, gender, power relations, empowerment, impacts on soil
productivity, etc.

• Capacity development.

• Degree of self-reliance of organizations – the capacities which are still to be

developed in order to achieve sustainability.

• LTI.

Reasons and effects of exception of land in CARP.

• Social consciousness and awareness.

Activities and strategies of PDI

• Economic support programs

• Education

• Technology transfer

• PDI program management

• Linkages and networking – relations among different actors.

• Who are beneficiaries and non-beneficiaries, what is the difference of impacts?

• Land classification purpose.

• Motivation to become member in POs.

• How can the process be institutionalized?

5. Presentations about AR and PDI’s program

5.1 AR – Central Luzon Situation – Presentation by the PARO
PARO Edson Arceo of the Department of Agrarian Reform presented the status of AR
and LTI for the Regional and Provincial level. He presented also some land issues of
highly contentious landholding cases which are being covered under Comprehensive
Agrarian Reform Program (CARP) with the help of partner PDI and NMGL, who are
very resourceful in researching the lacking requirements and coordinating with DAR at
the Provincial, Regional and National level (see overhead presentation on separate file on
CD).

5.2 LTI and Economic support program by Province

Staff of PDI and leaders of POs of each Province gave an overview about the situation,
their struggle, the achievements and the challenges which they are still facing.

¾ Ka Loida Rivera, NMGL-Pampanga, shared her experience how the landowner

made use of his influence over the Local Government and Philippine National
Police when they entered the Feliciano property for survey. She also shared about
the Landowner’s resistance to cooperate with Land Bank of the Philippines and
Department of Agrarian Reform.

¾ Ka Amado Higante, NMGL President, Pampanga, discussed about the Forform

and the AMACO property, how they pushed for the acquisition of the landholding
for almost two decades of struggle.

¾ Ka Alfredo San Diego, NMGL-Bataan, discussed about the conversion of lands in

Bataan. They have pushed the acquisition of 10landholdings, about 800 hectares.

¾ Ka Pablo Bocable, NMGL-Nueva Ecija, discussed the Flora Garcia property, part
of Fort Magsaysay Military Reservation of about 4,000 hectares.

¾ Ka Eddie Ibabao, NMGL-Bulacan, shared about their province as the most

battered province b ecause of many conversion cases due top its proximity to
Manila and the object of court litigation because of the value of the land.
 ¾ Julio Rodrigo (Jeng) de Guia, PDI Coordinator discussed the process in dealing
with cases in Tarlac particularly the landholding of Cojuangcos in Barangay
Carbonel, Gerona, Tarlac. He was also tag as an organizer of the New People’s
Army because of his strategy in organizing the farmers. Jeng also mentioned the
MARO of Ferona as very cooperative in covering the land. He also discovered
that there are many titles that are not distributed because they are provisionally
registered. There are some other obstacles in covering the land like the delayingt
the process and the militarization in the area.

The PDI Director Ria Teves summarized the strategy of PDI as follows:

9. Monthly meetin

10. Reporting per Province

11. Define problems and issues

12. Definition of tactics – clarifications and assignment of actions to be taken

13. Negotiate at different levels

- municipal
- provincial
- regional
- national

14. Complementing rallies and other advocacy work and actions

15. Feed back and discussion of achievements and evolutions in the next monthly
meeting

16. etc…

Some of the services and strategies of PDI:

• Direct Farmers Assistance – PDI provides assistance to farmers in their socio-

economic initiatives. PDI believes in genuine agrarian reform and thus assists in the
acquisition of land for the landless farmers and the provision of social and economic
support system.

• Development Programming at the Community Level – PDI provides consultancy

services for development programs at the community level. The Comprehensive
Development Program (CDP) is the participatory approach in addressing every aspect
of the communities needs to effect genuine changes through socio-economic
 upliftment. The CDP makes peasants active participants in the whole development
cycle, from conceptualization to evaluation of programs and projects.

• Policy Advocacy and Participatory Research. PDI provides research and consultancy
in project development and management, and related areas.

• System Installation at the Local Level – PDI provides services for NGOs and POs to
have effective management systems. These are developed to simplify day-to-day PO
and NGP operations.

5.3 Social Infrastructure Building

Ruel Punongbayan, PDI Program Coordinator, presented the elements and strategies of
PDI in regard to social infrastructure building:

1. Paralegal Training

2. Translation of AR Primer

3. Barefoot Management Course

4. Value Formation

Also PO and NMGL leaders presented their particular experience with social
infrastructure building and their achievements. Ka Carling, head of the Indigenous
People in Central Luzon said that land is life and the people are the one working on the
land (Ang lupa ay buhay at ang tao ang nagtratrabaho sa lupa). He stress also the
importance of literacy and the support by PDI for the Aetas to be respected by
Government Officials and lowlanders.

6. Impact hypotheses and preparation of field visits

6.1 Discussion of the vision
As an introduction to the formulation of the impact hypothesis, the consultants asked all
evaluators to discuss their vision in small buzzing groups. The following elements have
been emphasized:

NMGL:

Advocate in GAR, recognize the rights of farmers, have democratic processes of rural
development with participation of men and women (gender equity).

PDI:
To have self-reliant communities and people’s initiatives; empowerment of men and
women.

6.2 Clarification of the relation between activities, results, impacts

Before the group work on impacts, a joint reflection served to clarify the relationship
between activities, project outcomes, direct use of the outcome and impacts. For this
purpose, a concrete example from the prededing presentation has been selected:

Level Example
PDI – Activity Training on soap production
PDI – Outcome Women have the capacity to produce soap
Direct use of PDI outcome Women apply this knowledge – they produce soap
by the target group
Direct Benefit Soap is available
Impacts Increased income

Better education Food Security drinking / alcohol

Of children has increased has increased

When analyzing impacts, we should be open to all kind of impacts be it positive or

negative. For the purpose of this exercise, however, impacts are particularly important
which indicate a process towards the achievement of the vision.
6.3 Impact hypothesis
Results of the Group work on impacts

Results of group 1: Impact hypothesis

Barangay Municipal Provincial Regional National
Poverty Food security Food security Education Education
reduction access to access to
basic needs basic needs
education education
Empower- Fruitful SCAT SCAT SCAT SCAT
ment negotiations advocacy advocacy advocacy advocacy
and dialogue, work work work work
SCAT,
advocacy
work
Good Commitment, Commitment, Transfer of Transfer of Transfer of
Governance actual transfer actual transfer land. Joint land. Joint land. Joint
of land, of land, action action action
participation recognition in planning planning planning
in BDC MPDC
Institutional Number of Number of Number of Formation Formation
impacts organized organized organized of NMGL of SCAT
groups groups groups
Environment Reforestation Reforestation,
organic
farming
Gender Women’s Formation of
organizations women’s
exist municipal
federations
Results of Group 2: Impact hypothesis
Barangay Muni- Provin Regio- Natio-
cipal -cial nal nal
Poverty 1. Ownership of land
reduction
2. Food security x

3. Increased income x
Empower- 1. Active organization X x x x
ment
2. Membership expansion x x x x

3. Increased capacity (skills) x x x x

4. Able to participate in local x x x x

governance

5. Women participation x x x x
Good 1. Networking and collaboration X x x x
Governance (LGU, NGO, Private Sector,
Line agencies, and others of
civil society)

2. Linking x x x x

3. Advocacy, x x x x

4. Alliance building x x x x
Institutional 1. Strength x x x x
impacts
2. Protection of identity and x x x x
culture of IP

3. Rights of IP to own land x x x x

(through AR)

4. Recognition and acceptance as x x x x

an IP and Filipino

5. Same rights of IP and x x x x

lowlanders
Environment Protection and preservation of the x x x x
land through organic agriculture
Results of group 3: Impact hypothesis
Barangay Municipal Provincial Regional National
Poverty Food security Food security education education education
reduction access to
basic needs
Scholarship
Program
Empower- DAR-PO-PDI DAR-PO-PDI IAP DAR- SCAT
ment Consultation Consultation, NMGL-PDI
Robing consultation
consultation
Good BDC Recognition
Governance participation by MP
in Barangay
development Resource
planning mobilization.
Resource
mobilization
Institutional Formation of Formation Formation Formation
impacts local organizations, organizations of NMGL
organizations,
farmers and
women
Environment Organic Reforestation
Farming,
Reforestation
Gender women’s Formation of
organizations women’s
exist municipal
federations

The discussion made evident that all the groups have presented many elements which can
not be considered as impacts. Sometimes the aspects are activities, as e.g. advocacy work
or scholarship program. Therefore, the PDI director explained again the difference and
relation between activities and impacts using the following pattern.

Impact – Output – Effect - Impact

6.4 Clarification of points to be analyzed during the field visits
The following guiding questions were suggested for the field visits:

¾ What impacts can be observed / stated (possibly according to the above presented
format but with openness for other categories) ?

¾ To what extent has PDI contributed to these impacts ?

¾ What were contributions of other actors (roles and responsibilities) ?

¾ What were favorable and hindering factors ?

¾ What are attitudes and behavior of different actors and what are the principles
behind (development ideas and hypotheses, etc.) ?

¾ What is the overall economic and political impact on beneficiaries and non-
beneficiaries? What is the method of selecting beneficiaries ?

¾ How sustainable are the impacts?

¾ What are ideas and recommendations of farmers to PDI?

The consultants asked again for the clarification of the responsibilities of all the members
in the evaluation during the field visits. The following aspects were mentioned:

• to look for answers to the questions,

• to communicate and share observations in the team,

• to have joint reflection and open discussions,

• to be open minded,

• to be sensitive to the people.

It was also clarified that during the field visits different participatory methods should be
used. If possible, a joint reflection should be held with the discussion partners.
The workshop in Subic

7 Presentation of the results of the field visits

7.1 Group Nueva Ecija and Bulacan
1. General Situation

of the two sites Kaybanban and San Isidro, Bulacan and San Isidro and Sitio Borak,
Nueva Ecija

• Location: in the North-East of Central Luzon

a. Bulacan: At the doorsteps of Metro Manila, Within the 70 km Radius; Mun. San
Jose del Monte City very near to Manila)

b. Nueva Ecija: Distant from Mla; part of Palayan City, & Laur, Gabaldon). But near
to Bulacan; both provinces are within Region 3

• Population

Both provinces thickly populated due to urbanization except of few far flung villages in
N. Ecija; and presence of ethnic minorities, i.e. indigenous people (IP).

• Education

Both provinces have a high rate of literacy, due to nearness to Manila, broader spectrum
of professional background and experiences in Bulacan compared to N.E.

• Economy

Both are classified agricultural productive, except on some place in Bulacan which are
near to the city; there, high-value crop production possible (vegetables, coffee); Transfer
income of migrant workers much higher in Bulacan than in N.E.

• LTI-Situation

Bulacan and N. Ecija = facing stiff and strong struggle in the implementation of CARP

Bulacan Speculation for Land conversion rampant because of rapid urbanization at the
fringes of Metro Manila

2. Methodology
2.1 Group meeting

In both sites in Bulacan and N.E. a meeting with representatives of POs (Farmers and
women’s organizations) had been organized, with whom discussions were held in the
meeting in Kaybanban 7 organizations (3 women’s and 4 farmers’ organizations, 38
participants some more men than women) attended, while in that of San Isidro N.E.
Representatives of 14 organizations (8 women, 6 men’s org.; 75 participants, more
women than men) attended.

After the meetings which took about 4-5 hours a short impression on the surroundings
through field visits was facilitated. Furthermore, the team also talked to non-
beneficiaries 1 in the Bulacan and 2 in the N.E. visit.

During the meetings the following procedure was followed.

1. Brief Introduction of participants and organizations, introduction of the

evaluation purpose and intention

2. Brainstorming on impacts experienced and observed by the participants

3. Synthesizing of brainstorming results into four or five impacts by the

evaluation team which mostly correspond to the impact areas identified in the
preparation workshop.

4. Organization-wise group work on discussing and ranking the impact

according to their importance, and reasons for ranking the impact in this
position.

5. Presentation of group work, additional questions and discussion

2.2 Field visits

In both sides fields and plantations were visited together with farmers.

Remarks on methodology: The methodology employed in the group discussions was

working out well. A certain difficulty was to lead the discussions from the naming of
effect to higher impact levels, by going into deeper and deeper questioning. This could
not be achieved in some cases. Furthermore, because predominantly the leaders/officers
of the organizations attended the meetings, it can be assumed that the impact was
somewhat overrated in comparison to simple members. This is so because officers
mostly have a higher education than simple members and are economically better off.

In both sites the participants of the group discussions were very cooperative.
From the three teams the Bulacan-Nueva Ecija Team had the least time for interaction
with target groups and field visits. From the 3 days available for site exposure, because
of long travel times (16 hours all in all)

3. Impact Observations

3.1 Poverty Reduction

¾ Land security is viewed as a pre condition for improving livelihood by most PDI
beneficiaries

¾ PDI plays / played a key role in securing land for farmer beneficiaries

¾ The PDI bargaining / negotiating strategy proves to be effective towards securing

lands

¾ Great impact on agricultural production was confirmed and validated in Bulacan

in their market oriented agriculture with coffee and other high value crops

Ecology: Positive: Permanent crops increased – Negative: External inputs increased

3.2 Agricultural Productivity

Bulacan: High productivity increases of high value crop production (vegetables), hog
raising, marketing contract for coffee with Nestle

Nueva Ecija: => agriculture is food crop oriented: increase in productivity because of
more long term investments due to land security

future impacts expected from recent tree planting

Observation on new settlement of Igorot in Borak, Nueva Ecija: farming system develops
slowly

3.3 Food Security:

Bulacan, Kaybanban: Before PDI Intervention: 40% of the community did not have
enough food to eat; Now: 70% of village already have enough to eat.

Nueva Ecija: Estimate for PO-members: Before PDI-Intervention: 40% didn’t have
sufficient food; now: 90% have sufficient to eat. But, presence of large poorer layer
beyond target groups. (estimate for San Isidro: 40% of population)

Open question: How does PDI respond to the strata that are much poorer than its primary
target group?
3.4 Off-farm income

Off-farm production activities (incl. Hog raising) create additional income (explanation:
additional to that of men)

Example:

Net income of a pig of 100 kg = value of income of 30 cavan (1 cavan 0 50 kg) of rough
rice which is the corresponds to the net harvest value of 1 ha.

3.5 Good Governance

Ö POs participate on barangay level

• Contribute to unity of village

• More transparency and accountability through budget control

Ö PDI participates on Municipal Level

Ö PO-PDI-Government Cooperation leads to realization of benefits intended by

Gov. Programs

3.6 Empowerment

Increase of

• Knowledge and security

• Self-confidence and awareness

• The women are highly regarded and this results to self-respect

• Self-respect of women increases; respect of men for women increases because

they are productive now

• Family relation improved: Discussion and negotiation now instead of quarrelling.

7.2 Group 2: Tarlac and Pampanga

Presentation of three concrete cases
Overview of cases
Cojuanco property Tinio property Umcauco property
Land size 300 ha. 60 ha. 108 ha.
Location Gerona Paniqui, Sto. Rosario, Brgy. Anunas,
Ramos, Pura, Tarlac Magalang, Angeles City,
Pampanga Pampanga
Name of PO SMMC SRFA BAFA
No. of members ? 15 members (10 70
families)
Size of land claimed 300 ha. 60 ha. 108 ha.
Size of land 68 ha. 30 ha. (in process) 108 ha.
acquired
Actual No. of 48 10 70
beneficiaries
a) PO members 9 (25 ha) 10 70
b) non PO members 39 none none

Chronology

Cojuanco property

April 2003: PUMASOK ANG PDI

Establishment of SMMC

Sep. 2003: Establishment of K 4 (Women’s organization)

Oct. 2003: Distribution of CLOA

Sto. Rosario, Magalang, Pampanga

1992: Farmers were invited by the land owner to till the land

2000: Farmers ejected – PUMASOK ang PDI

2001: LGU approved reclassification of the areas to residential and industrial zone

2002: Court order allowing farmers to till the land again – farmers now pay rental (P.
4,000 per ha per year)

2003: DAR survey: papers at Land Bank for validation process

Umcauco property

1963: Start of LTI struggle

1992: Establishment of BAFA

2000: PUMASOK ANG PDI

2003: Distribution of CLOA

1988: Property classified as commercial farm

1998: Property classified as agricultural land

2002: LGU Resolution to fast track distribution of land

Case Study

LTI Struggle of Farmers in Carbonel, Gerona, Tarlac

The Cojuangco clan is the most powerful clan in Tarlac Province. It also owns large
landholdings, the most known being the 4,000-hectare Hacienda Luicita which is now
being developed as a commercial and industrial center.

The Copjuangcos also own most of the lands in the towns of Gerona, Paniqui, Ramos and
Pura, in Tarlac Province. The aggregate size of their landholdings in these towns is
around 300 hectares. Most of these lands have been covered by the 1972 land reform
program for rice and corn lands. In fact, land titles in favor of farmer beneficiaries were
actually generated. However, the supposed beneficiaries of the program never received
their titles to the land. The farmers of Brgy. Carbonell, in Gerona, are among those who
never received their titles to the land.

PDI intervened in Gerona in April 2003, aiming to assist farmers in claiming the 300
hectares owned by the Cojuangco family. Previously, Carbonnel ws considered a hot
area because of the infiltration activities of the New People’s Army. PDI came into the
area under an environment where outsiders, even NGOs, are suspected of being
communists. The Cojuangco family and its farmer-allies used the communist scare to
discourage PDI from organizing the community.

Against the odds, PDI organized the Samahan ng mga Magsasaka at Manggagawa sa
carbonel (SMMC; lit. Carbonel Farmers and Farm Workers Association). Beginning
with only a few members, the organization would soon expand to include 18 members.
Many other farmers did not join the organization because they did not believe that
organizing can be an effective means of claiming the land. Besides, they were afraid that
if they joined the organization, the landowner would kick them out of the land.

By September 2003, a women’s organization was established in the community. This

organization would provide additional support to the struggle of the SMMC apart from
the women’s initiative of improving their lots in the community through livelihood
activities.

Mobilizing PDI’s partnership with the DAR at the national, regional and provincial level,
the SMMC would be able to acquire information that would facilitate the land transfer
process.

Anomalous transactions were discovered forcing local DAR officials to respond and to
act more positively.

In October, during the evaluation period, PDI and SMMC succeeded in persuading the
DAR to initiate the redistribution of some portions of the Cojuangco land. During a
special ceremony attended by the evaluators on October 13, 2003, 48 Certificates of Lan
Ownership Award (CLOA) were distributed to 48 farmer-beneficiaries. These CLOAs
represented 68 hectares of land.

Only 9 members of SMMC benefited from the distribution. The majority of the
beneficiaries, 39 farmers, are non-members of the organization.

The distribution of the CLOAs made a strong impact on the community, especially
unorganized farmers who lost their faith in the agrarian reform law and in the value of
organizing.

The initial success in Gerona can be attributed to the following factors:

• The determination and strength of SMMC despite its small size.

• The inputs of PDI in terms of organizing and strengthening the SMMC.

• The acquisition of information from the DAR that surfaced anomalies and pressured
local DAR officials to respond and act more positively; and,

• The potency of the PDI-PO-DAR partnership that is mandated by the DAR Central
Office.

The beneficiaries have long been in possession of the land they till. The issuance of the
CLOA strengthened their ownership status. What they need to overcome is the strong
pressure from speculative land markets where artificially generated rise inland prices are
expected to tempt farmers to sell their land.
 There is a need for PDI and the SMMC to look into land development. Having secured
the CLOAs, the next challenge for the farmer-beneficiaries is to prove that they can make
their lands financially viable. Given their low income positions and limited access to
external resources, they see the need for PDI to continue its support. This is not to
mention that 68 hectares represent only a small portion of the 300 hectares claimed by
farmers.

Case 1: Activities
• Organizing for LTI
Cojuangco property, Gerona • Organizing for ESS
• Scholarship

Negative external Factors

• Owners resistance Activities
• History of connivance • Acquisition of Positive external
information factors
with DAR and LGU • Farmers willingness
officials • Consultations (farmers,
PDI) to own land
• Landowners prearranged
list of FB • Training, planning
• Farmers “wait-and-see-
attitude”
• Farmers fear

Activities Positive external factors

• Dialogues through SCAT • Partnership with DAR
• Internal consolidation of • Willingness of farmers
farmers to acquire the land
• Threat of militarization
• Local government view
towards development
• Landowners strong
Results
• Formation of
SMMC, 4K
• Distribution of
CLOAs

Impacts
• Land Security
• Strong organization

Results
• Encouragement of other
farmers
• LGU recognition on the
strength of the farmers
organization
 Case 2: Activities
• Organizing for LTI
Umcauco property • Organizing for ESS
• Strengthening the organization
• Knowledge on legal
procedures

Negative external Factors Activities Positive external factors

• Owners resistance
• Non-cooperation of local
government (barangay,
municipal level)
• DAR conviviance with
the landowner
• Landowners resistance
• Formation of CBL
• Dialogue and petitions
Activities
• Series of consultation
• Trainings, plannings,
acquisition of information
• Support from the LGU
• Farmers willingness to
acquire the land
Positive external factors
• Partnership with DAR
• Farmers informed about
the legal procedures

Results
• Formation of SRFA
• Farmers active
pursuit of land claim
• Increased cropping

Impacts
• Change in behavior of DAR personnel
• Increased income
• Landowners strong resistance

Results
• Strengthening of the farmers
organization (PO)
 Activities
Case 3: • Support to land claim
• Organizing for ESS
• Strengthening the organization
Umcauco property

Negative external Factors
• Local maneuvers of the
land owner
• DAR connivance with
the landowner
Activities
• Series of consultations, Positive external factors
trainings, planning • Support from the LGU
• Acquisitions of • Farmers willingness to
information acquire the land

Activities
• Dialogues (SCAT) and
Positive external factors
petitions at regional and
provincial level • Partnership with DAR
• Organizational meetings • Farmers informed
for strengthening of the about the legal
• Landowners resistance PO procedures
• Trainings and • PDI support
acquisition of

Results
• Distribution of
CLOA
• Active engagement
with City Court

Impacts
• Security on land tenure
• Stronger unity
• Change in DAR personnel’s behaviour

Results
• Encouragement of other
farmers
• Policy change at the LGU
level
7.3 Group 3 – Bataan and Zambales:
Impacts

Empowerment

Capacities of the POs

• Organization and leadership skills resulted in strength and unity.

• High commitment of members of PO.

POs have become active, e.g. they hold meetings and take decisions without PDI.

• POs have acquired knowledge about AR and procedures, their rights, human rights,
etc.

• POs are able to identify their needs and to communicate needs to the local
government (they are also able to say “no”!).

• POs have increased their communications skills – they are now able to speak in
public and in front of government officials (in particular for women and Aetas this
constitutes an important achievement).

• Many POs have a kind of vision and are proud about their organizations and
achievement.

In regard to indigenous People

• Aetas and POs have an own identity independent from PDI.

• Increased self-confidence

• Aetas are now respected by the government as citizens – they respect their rights
(even respect of lowlanders to Aetas has increased).

• POs are invited by the DAR to participate in discussions and for mobilization.

Sustainability and challenges

• Capacities are sustainable, but POs still need consolidation and guidance by PDI, in
particular for the identification of future activities and negotiations.

• The level and capacities of POs vary considerably mainly due to different periods of
support and support to some POs also by other NGOs.
• POs and NMGL still need the “name” of PDI and its credibility to be fulle accepted
and to be successful in the negotiations.

• POs and NMGL need guidance and orientation mainly for future actions, tactics and
strategies to be applied in the different cases.

Good Governance

• POs and NMGL are new actors in the system and constitute a factor of strength.

• Thanks to POs and NMGL the gap between farmers and DAR has been more and
more bridged.

• POs and NMGL assume important functions like vigilance / watchdog and they
demand their rights – the realization and application of the law.

• The Government recognizes Aetas and POs and their indigenous knowledge (e.g.
organic farming).

• The Government recognizes POs.

• The advocacy of PDI and the POs has led to support friendly forces in the
government.

• In the process, more “friendly” forces in the government have increased, more
committed persons are there in DAR.

• More consciousness in DAR and more transparency of the implementation of AR has

been achieved.

• The concept of AR was influenced by PDI (GAR).

• PDI helps to achieve the objectives of DAR and to find out anomalies through the
feedback and monitoring me4chanisms (periodical meetings).

• DAR suggests POs and NMGL as an example to other NGOs.

• LGUs are challenged by the example of collaboration of PDI with POs and the
success of collaboration – they feel the need to invest and to improve!
Poverty reduction

• Some encouraging successes at village level (hog dispersal) do exist.

• All in all, ESS has only marginal impacts in economic terms except some specific
families.

• Food security has increased for the beneficiaries.

• Land security has increased (is there) for those who have received their titles.

• The scholarship program as part of the conscientization process has led to self-
confidence not only of the students but also of the entire communities.

• Literacy level has increased (in particular important for Aetas), which was also
supported considerably by other NGO.

Important indicator for success

Ö POs are becoming more and more attractive to non-members

Values and ideas behind the actors

PDI:

• respect, support to the poor and the marginalized

• integrity – to do what one says,

• credibility, confidence to partners, honesty,

• long term commitment and dedication to service by all staff – staff serve as an
example for POs.

Farmers:

land security and economic and developmental benefits are the most important aspects
ambitioned by farmers

Key factors which have allowed the achievement of the impacts

• PDI intends farmers self-reliance from the beginning of the cooperation.

• Trust to POs and people in handling funds.

• Periodical, evaluations of the work and the use of funds.

• Weaknesses are fed back to POs in a constructive way as challenges.

• Feed back and criticisms of POs towards PDI are welcomed.

• Participatory decision making between PDI and POs.

• PDI is not dictatorial.

• The key issues of PDI’s program (land tenure improvement) are emotionally felt
needs of the farmers.

• PDI uses a variety of methods, not only knowledge and training but also songs which
can touch the farmers emotionally.

• PDI acts at all levels, from the Barangay to the national level.

• The research work as a basis for the development of the negotiation strategies and for
lobbying.

• PDI sticks to the law.

• Regular meetings with DAR.

• Linkage work and networking.

• The negotiation approach.

• PDI has access to top level of DAR – personal friendship of PDI Director with
important DAR officials thanks to her former employment in DAR.

• EED’s vision correlates with PDI’s ideas – mutual understanding between NGO and
funding partner – continuity of support and involved persons).

Challenges

• Expansion by POs to other areas

• Sustain values within all POs and the entire organization NMGL.

• POs and NMGL to become partners of PDI and not < only > target group.
• Capacities of POs and NMGL need to be more explicitly identified on a basis of a
self-evaluation of POs. These self-evaluations should serve as a basis for the POs to
identify their support – and as a basis for negotiation of support between POs and PDI
and other organizations.

• POs to become advisers to farmers and to develop services for members

(organizations).

• PDI to develop an effective support for farmers and supporting POs in becoming
entrepreneurs.

• To enhance importance of < political > intentions compared to economic and

developmental aspects among POs and NMGL.

• To increase impacts on poverty reduction.

• More gender equality and equity.

• Enhance and develop second line leadership in PDI.

Open question

Who actually benefits from PDI – to what extent are they poor (the 10% of the poorest of
the poor) ?

8 Discussions of impacts and sustainability

8.1 Results of the working group on impacts

Empowerment
Strategies Impacts Challenges
1. Transfer of • Increased knowledge and • More clarity on the
knowledge and skills skills of both men and gender orientation of
through trainings, women the program
seminars, dialogues • Stronger unity of the PO • Need to increase the
and information • Expansion of influence of level of engagement
dissemination the POs with local governments
• Increased self-confidence • To give more attention
of the individual to the development of
 • Indirect impact on the second liners and the
youth through re-echo of youth
trainings
• Recognition of the identity
and capacities of
indigenous peoples by the
LGU and other sectors
• Have organized 59 POs
with 2,501 members
2. Transfer of resources • Increased the autonomy of • Need to assist the POs
through ESS support the POs to make decisions in preparing investment
regarding their economic plans and business
life plans
3. Transfer of Assets • Security of land tenure and • Need to assist the POs
through LTI power to decide on what to in preparing investment
do with their newly- plans and business
acquired asset plans

Poverty Reduction
Strategies Impacts Challenges
1. Asset redistribution • Security of tenure of • To sustain LTI
through Genuine farmer-beneficiaries struggles involving 31
Agrarian Reform • Created incentives for cases covering 2,331
(GAR) farmers to develop their hectares
lands • To increase the level of
• Increased resistance of big economic support
landowners • Focus on development
• Encouraged other farmers of lands already
to claim their rights under acquired
CARP • Heighten advocacy for
• Encouraged some LGUs to the retention and
retain and protect protection of
agricultural lands agricultural lands and
• Distributed 2,953 hectares allocation of budgets
to 985 beneficiaries for agriculture
• Promotion of
sustainable agriculture
2. Introduction of • Improvements in capacity • Need to conduct
alternative to provide food needs research in
livelihoods • Improved capacity of PDI understanding and
to deliver services measuring poverty and
food security
3. Literacy • Improved knowledge and • To undertake
skills interventions in health
• Improved capacity to and sanitation
manage organizations
4. Mobilization of • Mobilization and • Need for more
other external redirection of services and penetration of local
resources budgets in favor of project government units
beneficiaries • Need to institutionalize
support for agriculture
and agrarian reform
beneficiaries

Political Participation
Strategies Impacts Challenges
1. Acquisition of • POs became active • Need to increase level
information to participants in the of political
expose anomalies of resolution of cases participation by
agrarian reform penetrating the state
2. Building partnership • Hastened the bureaucracy through
between NGO, PO implementation of agrarian running in local
and DAR reform development council
• Active participation of
beneficiaries
• Changes in the behavior of
the DAR in certain areas
3. Meta-Legal tactics • Voice of the farmers was
(mobilization and heard
dialogues, pressure • Aroused other farmers to
tactics) claim their rights
4. Mobilization of the • Wider dissemination of
tri-media information
• Mitigation of potential
violence

8.2. Group work on Gender, Economic Project, Agriculture and

Environment

Deepening impact analyses and defining challenges

Members: Bebe, Cheng, Eva, Gina, Mirna, Ruel, Gerlind

Goals Where are we Challenges Questions, Remarks,
now? Preliminary
Recommendations
Gender
Equality
? Responsibility To involve men into How to chane wider
?Have a say in work now primarily social environment?
livelihood done by women (for
? Division of facilitating freedom of Training in GUST and
labor movement) GAD
? Decision Break traditional roles
making of men and women Women and men of PO’s
? At a Open doors for should engage in politics
community political participation
political level Women should
? Self- become able to
development negotiate to different
partners in private and
public sector
Livelihood
Development
Satisfaction of Agricultural Develop farm
most important production went up productivity
needs
Most of the
1. Food beneficiaries have Processing of
2. Education of enough food to eat agricultural products
children
3. Housing PO’s earn from To create
livelihood activities broader/deeper impacts

Sustainabilitv PO’s are able to There are still more What should PO/PDI do
manage small “other” poor about this?
projects Explore market links / Analyses/study situation
networks
? Organizations PO’s conduct Develop position
?Activities regular org’l
?projects activities
? Productivity Most PO members
?Environment can send their
children to primary
+ secondary school
Government does
not provide
sufficient support to
 agriculture
Most farmer
beneficiaries are not
able to support
higher studies of
children
Environment / Clean environment Little knowledge about Develop ecologically
Ecology Rich biodiversity waste management sustainable agriculture
Sound ecosystemn Permanent crops have Make organic fertilizer
been planted PO/LGU info campaign
(mahogany, mangoes, on value management
etc) and practice it within
community
Community training on
organic agriculture
Zero waste management
8.3 The sustainability of the impacts
What is sustainability? Results of a short reflection of the working group:

• Impacts producing benefits for a long period

• Organization continue working without further support

In Good Governance: institutionalized participation of concerned people in Governance

and decision making without depending on persons, political will etc.
Empowerment – self-reliant communities
What shows us What is still lacking?
sustainability What is a risk to sustainability
POs can argue, PO lack power to negotiate also because of lack of
communicate and information
represent the members and
disseminate information Deep-rooting of respective values in POs as e.g. democratic
principles, transparency, etc. is still a challenge
POs can realize advocacy
work and lobbying “Name” and reputation of PO / NMGL – presently the
successes also are due to the “name” and reputation of PDI
PO-frontliner have the – the POs have not yet acquired a comparable reputation.
capacity to negotiate
There is the gap between front-liners and members in terms
POs have defined other of capacities and motivation
needs beyond land
security There is the challenge to increase second line leadership in
number and capacities

Defined means and ways to address livelihood issues – to

have land development once land security is achieved
important aspects:
• land productivity
• competitive marketing
• entrepreneurship
• development management

Sustain the motivation in POs and expand to other areas

Threats: politicians, land speculators

Information and awareness on national and global processes

and issues

POs being a social economic and po9litical force to effect

change for development

Good governance

• transparency, accountability, rule of law, participation of concerned

• utilization of funds according to rules and regulations

What shows us sustainability What is still lacking?

What is a risk to sustainability
POs participation at barangay and municipal Risk: prevailing development policy
level – is already institutionalized (mandated depends on government and its priorities
by law (LGU Council) on agricultural development (and not on
industrialization).
Achievements but not really sustainably:
Law enforcement is not ensured
Public consciousness about good governance
has increased All depends on the political will (this
concern also regular committees e.g.
• Consciousness in Government about SCAT
Good Governance has increased

• NGOs are approached by government for

concept development

Poverty reduction
What shows us sustainability What is still lacking?
What is a risk to sustainability
Land security Temptation to sell land if priority is given
to short term benefits.
Food security at family level
Challenge to PDI: To clarify long-term
Increased literacy level (formal and non- perspectives
formal)

8.4 Assessing Management and implementation of PDI program

Level Strengths Weaknesses Recommendations,
Challenges
EED Vision and ideas correlate Fund allocation should be
with those of PDI. based on work of the
organization and not on
Long term commitment “ceiling” per organization.
and continuity
Transform experiences of
Trust and confidence programs into policy and
 advocacy in Europe.
Offers space and Partners should be
autonomy for integrated in advocacy as
implementation well.
PDI Board Advisory function. Increase openness for
expansion to other areas
Policy direction and of concern e.g. land
guidelines. development issues

Control function by the

treasurer who has to sign
each cheque.

Voluntary assistance in
implementation (e.g. s
lecturer in trainings,
spiritual guidance, etc.).

High availability
PDI Director Competencies and More control ??
knowledge.

Commitment, integrity,
credibility.

Relational capacities at all

levels

Sensitivity and intuition,

analytical skills.

Lives values of the

program in management.

Critical to staff
performance avoids
quarrels, dislikes
jealousies.

Too much trust in persons.

Program Knowledge of the situation Multiple tasks Focus more on facilitation
coordinator in communities – assume to role towards the POs –
much enhance facilitation.
Area Offer solutions to responsibilities
coordination, problems. Offer more space for the
Organization leading role of POs.
work Dedication
commitment.
Multiple tasks – assume to
much responsibilities
NMGL / POs Dissemination of
information about AR –
law and procedures.
and
Increase second liners in
number and capacities
Enhance education and
information
dissemination.

Clear and eligible in To face and confront

objectives opposing forces.

Ability to confront
problems, issues and
challenges.

9 Recommendations
9.1 Recommendations to the POs and NMGL

Results of a working group of NMGL / PO members

A Capacities

• Develop second liners through training.

• Broaden the capacity of POs through training in basic management, paralegal
capacity and entrepreneurship.

• Maintain the vision for Agrarian Reform and Rural Development (ARRD).

• Hands-on training.

• Advocacy and Networking, coalition building around ARRD.

• Local level plans as base for NMGL planning.

• Use of tri-media for advocacy and for confronting landowners and local politicians.

• External resource mobilization.

B Sustainable Land Development and Livelihood

• Agro-forestry development.

• Production of high quality and high value crops.

• Diversification of farms through inter-cropping.

• Training on farm system development.

• Promotion of organic farming at the regional and national levels.

C Internal Management and Development

• In-depth seminars on values formation and political affairs.

• Training of Council of Leaders; maintain regular meetings.

• Develop second liners.

• Expand area of influence through organizing around ARRD; community organizing

around LTI.

• Campaign for capital build up and savings mobilization.

• Strengthen political participation and engagements with external actors.

D Vision

• More participation in social, economic and political affairs: livelihoods, participation

in barangay and municipal development planning.

E Gender

• Development of a gender program and training curriculum.

• Conduct gender sensitivity training.

• Promote equal rights of men and women at the household, PO and community level.

Discussion Notes:

1. PDI as main provider for capacity building training; other forms of training (e.g.
livelihood skills, etc.) will be sourced out by tapping line agencies of government.

2. Gender awareness is increasing but is limited to first line leaders. There is a need to
promote it on a wide scale.

3. Sustainable land development and livelihoods will include promotion or integration

of animal husbandry; the lands already acquired will given more attention by seeking
support for pre-harvest and post-harvest facilities.

4. Organic farming will be promoted by showing workable models such as in Bulacan

and Zambales.

5. Regarding capital build up: the current level is too low for expansion activities
although they are sufficient to fund internal activities as well as LTI activities.

9.2 Recommendation to PDI

Results of a working group of PDI staff

1 The Right to Land

Recommendations Specifications
Awareness and responsibility of farmers to • New role as small landowner
protect land security. cultivators optimize.

• Intensive land improvements /

 development.

• Ownership.
Increase advocacy/development counter • Training.
measures against vested interest groups.
• Education.

• Lobbywork.

• Resource mobilization
Ensure Commitment of POs in the Fast tracking of unresolved land cases
continuing struggle of AR. (pending).
Establishment of paralegal committee
(A.J.).
Expansion of area coverage as defined by
PO’s needs
Legislative Lobbying

2 The Right to food

Recommendations Specifications
Economic support to small owner Explore market linkages, networks.
cultivators.
Identify organizations ready to undertake Resource mobilization
business.
Skills Development Enhancement
(Identify).

Technology needed.
Identify business ventures/enterprises Entrepreneurial training.
fitting to the identified organizations.
Training and education on business chosen. Installation of Check and balances.
Setting the systems and procedures for
PO/small landowner for business venture.
Establishment of the business and Develop ecologically sustainable
installation of the system. agriculture (organic farming).
Operationalization of Business by PO.
Monitoring and Evaluation of business. Development of monitoring and evaluation
system.

3 Gender
Recommendations -Specifications
Consolidation and expansion of peasant Equality based on
women’s group in the areas of operation.
• Social

• Political

• Cultural

• Economic Equality
Identify needs/problems/opportunities and Reproductive rights
the Threat to Gender equality.
Reproductive roles
Formation of Peasant Women’s Federation.
Policy advocacy for the socio-economic Lobby work at all levels
and political rights.
Training and education on gender equality
Enhance participation (involvement)
Develop economic capacity of women. Economic support to identified Women’s
IGP

Resource Mobilization

Implementation
Enhance participation (involvement) in
local governance.
Monitoring and evaluation of gender
program.

4 Good Governance

Training and education on good governance: Tri-Media: TV, Radio, Print, website,
Usaping Bayan, video doc.

Reaseach and policy advocacy.

Lobbying and negotiation on policy change for peasant rights.

Active participation in local governance.

Symposia monitoring/evaluation.

5 Indigenous people
Beneficiaries’ definition of needs and concerns, profiling.

Continuing non-formal education and higher studies.

• Identification of economic project

• Training + education, skills development

• Define technology needed

• Establishment of IGP

Provision of economic support

Training and Education on ARRD/IPRA, e.g. on Indigenous knowledge systems.

Expansion IP organization and membership.

Lobbying and advocacy.

6 Role of PDI and relation to NMGL

Advisory and Monitoring

Training and education

Support services

• Values

• Exposure

• Volunteers

Training and education e.g. ARRD leadership.

7 Youth

Formation of youth organizations.

Involvement and participation in PO9’s struggles.

Increasing scholarship beneficiaries.

Conscientize youth sector to lobby peasant rights, e.g. Training and education e.g.
ARRD leadership.

Social preparation for retraining service to the local communities.

8 Research and monitoring

Establishment of management information system (MIS); Data banking: Photo, audio,

visual.

Development of monitoring and evaluation system.

Development of policy research for advocacy; RTD’s conferences for AR; workshops,
Lobbying advocacy.

ARRD Library Development.

Enhancement of PDI websites.

Development of ARRD music and poetry for advocacy.

10 Lessons learned from PDI’s experience

Working group of the external consultants

1. Values and working style

• Dialogue orientation and openness for communication with different forces / actors at
all levels

• Constructive way of dealing with conflicts

• Management style reflects values of the program

• High degree of flexibility : issues are tackled according to the evolution of the process
– not according to a rather strict working plan

• High degree of trust but also means and ways to avoid misuse

• Independence from political parties

• Staff has gone through a learning process and is personally affected (also at emotional
level)

2. Aspects related to the program

• The program has a clear scope

Target group exist around issues

• Issues correspond with the felt needs of the farmers

• Self-reliance of farmers, POs and NMGL as an objective from the beginning

• Institutionalization of for a of negotiation (e.g. SCAT)

• Working at all levels in a way that each level benefits from the work at other levels

• The work is law implementation and not misused for political / ideological
mobilization

• Creative use of a broad variety of methods

3. External Aspects

• POs / farmers have undergone a learning process before

Process in society resulted in openness / space for dialogue

• Existence of AR law

• EED’S correlation in values and vision as well as continuity of support offering broad
space of autonomy for PDI

• EED’s wide autonomy in relation to BMZ

11 Evaluation of the methodology, the process and the

results of the evaluation
The consultants presented a list of questions in order to reflect on the process and results
of the evaluation.

1. How do you feel now at the end of the evaluation?

2. How do you assess the process and the methodology?

3. How do you assess the results?

4. What kind of impacts do you expect from the evaluation?

- For you personally

- For PDI
- For NMGL / POs

5. Any other comment – recommendations for further evaluations - …?

They also suggested to split into three groups for the assessment: PDI, NMGL/POs and
external consultants. The groups presented the following results:

11.1 Evaluation by NMGL / Peoples organizations

1. How do you feel now at the end of the evaluation?

It was a demanding job to evaluate, we feel exhausted. But we are happy because we
learned new things. We are also proud that we are recognized as evaluators.

2. How do you assess the process and the methodology?

We like the method and the process because it allows us to analyze each other’s strengths
and weaknesses.

3. How do you assess the results?

The evaluation is very fruitful because it surfaced valuable lessons that can be used to
improve the chances of success of the organizations.

What kind of impacts do you expect from the evaluation?

• On the individual: broadened the knowledge base, has increased self-confidence and
flexibility of the individual.

• On PDI: will become more supportive to the community organizations.

• On the PO-NMGL: will continue to expand and strengthen itself to ensure

sustainability.

5. Any other comment – recommendations for further evaluations - …?

Overall assessment: the method is simple but effective.

11.2 Evaluation by PDI

1. How do you feel now at the end of the evaluation?

• Physically and mentally exhausted.

• Renewed strengths and commitment to service.

• Emotionally invigorating.

• Very optimistic.

• Validation of our assessment about our work.

• Gives us hope to carry on amidst the changing environment.

• This is a very significant event for PDI after hard work and dedication to work.

2. How do you assess the process and the methodology?

• Politically correct method to assess NGO and PO – work.

• Fair, all stakeholders are heard.

• Provides new methods of work between NGO and POs.

• The method was not one-sided. It gives opportunities to the NGO and POs to process
the findings. Both parties define the results.

• The method was able to analyze the whole development process critically but in an
easy and graceful manner.

• The method allows criticisms to be accepted constructively.

• The method does not box the evaluators to be prejudice in their hypothesis and
assumptions.

3. How do you assess the results?

• Provided PDI with deeper insights in our strengths and weaknesses, opportunities and
threats.

• Provided PDI a broader perspective and direction for the future.

• Showed PDI accomplishments and gaps in work undertakings.

• The results deepen our commitments and resolve to continue our work.

• The results validated framework and approach in development work.

4. What kind of impacts do you expect form the evaluation?

For PDI:

• Will strengthen PDI’s partnership with EED in helping the peasants.

• Will strengthen PDI’s partnership with the POs in pursuing GAR and ARRD.

• Will provide opportunities for PDI to service wider clientele.

• Sets the direction and focus of PDI for the next 10 years.

• Deeper understanding of the cause and effects of our work in society in general and in
peasants in particular.

5. Any other comment – recommendations for further evaluations - …?

• To continue and expand EEDs commitment to PDI.

• To use the participatory approach for evaluation and other projects in other countries
because of its effectively and efficient thoroughness.

• To use the participatory method as a standard for evaluation.

11.3 Evaluation of the evaluation by the external consultants

1. How do you feel now at the end of the evaluation?

Different opinions existed in the team. On the one hand the external consultants are
satisfied with the overall results and also a feeling of being relieved; relieved that the
initial difficulties with the methodology encountered in the Tarlac workshop were
overcome.

On the other hand one person also was afraid of report writing because it is difficult to
measure impacts due to lack of monitoring data; some data are not well founded.
However, this impression was not shared by the others who also stressed the difference
between an evaluation and a research study.

2. How do you assess the process and the methodology?

In general all the external consultants and M. Bartsch were satisfied and impressed with
the participatory approach; the participants were highly motivated; there was a strong
sense of ownership of the evaluation. However, as it was the first time for some of the
external consultants to follow systematically this participatory approach, a more intense
preparatory phase was found helpful or necessary in order to clarify the process
beforehand.

Also some suggestions concerning the plenary discussions in Subic were made. The
external evaluators came in too early with strong questions which reduced the space and
reflection of the other members of the evaluation team which were more presenting their
own experiences that raising questions.

One person found that more time should be spent for field research.

3. How do you assess the results?

Satisfied and a lot of substance – many aspects and lessons are learned from the
experiences – fruitful evaluation.

4. What kind of impacts do you expect from the evaluation?

For Dr. Bartsch: The experience will shape his understanding of how evaluations can
work and what space for participation and full involvement of people (Staff and PO-
members) as evaluators exist in evaluations. This evaluation gave also a strong argument
to promote autonomy of the church development organizations in relation to EED.

Ed Quitoriano was already used to a participatory approach but not at this level where
project implementers and beneficiaries are full participants as evaluators. He will use the
approach in succeeding evaluation projects.

Oliver Karkoschka has been used to this method and process and has become all the more
convinced that the method is effective.
For Dr. Gerlind Melsbach some doubts exist whether this approach can also be used in
problematic organizations. However, others argued that in particular in problematic
programs staff and beneficiaries have to be involved intensively in order to develop
potential for change and improvements in course of the evaluation process. Change and
improvements can hardly been induced through the recommendations in the report only.

5. Any other comment – recommendations for further evaluations - …?

The approach to involve staff and beneficiaries as evaluators is recommended also for
other evaluations. During the preparatory phase there is need to enhance the clarity of the
concept for the participatory evaluation.

12 Closing remarks
For the external consultant team, Oliver Karkoschka emphasized the joint and common
efforts of this evaluation. If this evaluation was a success it is thanks to all the “birds” 39 .
He thanked all the participants for their high commitment and engagement in this
evaluation.

He also appreciated the openness with which PDI and the People’s organizations received
the external consultants and allowed a work as a team. Even when the evaluation is over,
the external consultants will be together with PDI and the POs in the continuation of their
efforts and the realization of the ideas produced and discussed during the evaluation –
even if only in mind.

Aurea Teves appreciated the evaluation as a very significant event for PDI and for the
people’s organizations. This process provided new strength by learning lessons from the
past and developing perspectives for the future. She appreciated particularly the
participatory character of this evaluation process starting from the ground level. It
allowed to strengthen the relationship between the partners – PDI and people’s
organizations. This evaluation was also significant for EED as it validated the trust and
support of EED. Finally, she thanked BMZ for having initiated this evaluation and in
particular Dr. Bartsch for being open-minded and having contributed also with his heart
in this evaluation.

39
See chapter 4, methodology of the evaluation, pages 6 – 9, all members of the evaluation team wanted to
be a “bird” – meaning to be an evaluator and not only a participant of the evaluation as information
source, etc.
Carling thanked the external consultants who have given him the opportunity to become a
bird – an evaluator. He is very proud about his and he appreciated this recognition of the
capabilities of all the members of the evaluation team. He compared the evaluation
process with a rice field. The soil was well prepared and the seeds planted during the
first workshop in Tarlac – then the field visits constituted a good part of the growing
period and now at the end of the Subic Workshop we were able to harvest the results of
this process. The whole process was very enlightening for him and constituted a moral
boosting. He stressed again the results of the evaluations are not only the findings and
recommendations but also all the birds which have been produced by this evaluation. He
again thanked PDI to be one of the few NGO who really understand the situation and
aspirations of the indigenous people.

Loida also added the importance of the trust which was given to all the participants. The
trust was earned by all the birds – she was proud of it and thanked.

For Dr. Bartsch this was the first opportunity to be so close together with an NGO
collaborating with farmers and their organizations as does PDI. He appreciated the
openness of PDI very much to offer him the opportunity to see what kind of work is
being done. It was also the first time for him to be so direct part of an evaluation and not
only through reports and discussions of findings. He appreciated very much the way how
he was welcomed as part of the evaluation team. This experience was important for him
in particular to have observed the methodology which has allowed to highly participate
PDI staff and people’s organization members as evaluators. It was impressive to follow
the discussions and to see results of such a participatory evaluation process. He is proud
having been part of this process.

The evaluation team

Name Organization and Designation Remarks
Aurea G. Miclat-Teves Executive Director, PDI Zambales/Bataan team
Ruel Punongbayan Coordinator, PDI Central Office Nueva Ecija/Bulacan team
Julio R. de Guia PDI – Organizer for Pampanga Pampanga/Tarlac team
(Jheng) and Tarlac
Gina de Fiesta PDI – Organizer for Nueva Ecija Nueva Ecija / Bulacan
team
Tony Santos PDI, Palawan
Myrna Arandia PDI-Zambales
Al Carillo PDI, Bataan-Zambales Zambales/Bataan team
Eddie Ibabao Adviser, NMGL; PDI Organizer - Nueva Ecija/Bulacan team
Bulacan
Carlito Domulot President, PASAMBOT, LAKAS, Zambales/Bataan team
Local Leader, Aeta Community
Loida Rivera Secretary, NMGL, Member, Sto. Pampanga/Tarlac team
Rosario Farmers’ Association
Wynona Corilla Auditor, NMGL-Zambales Pampanga/Tarlac team
Paula Patoc Treasurer, NMGL-NE; President Nueva Ecija/Bulacan team
Women Fed
Maxima Valdez Vice-President, NMGL Pampanga/Tarlac team
Dr. Edson Arceo PARO, DAR-Tarlac Pampanga/Tarlac team
Eddie Ll. Quitoriano Independent Consultant Pampanga/Tarlac team
Dr. Gerlind Melsbach Independent Consultant Nueva Ecija/Bulacan team
Oliver Karkoschka Independent Consultant Zambales/Bataan team
Jorg Schwieger EED, Evaluation Unit Only October 9 and 10
Dr. Sebastian Bartsch BMZ, Coop. with Church Only from October 15
Organizations
Amado Higante President, NMGL; Manager, Only in Tarlac
BAMPCI
Angelita Deliquena Member, LAKAS Only in Tarlac
Calanat Dumulot Adviser, LAKAS Only in Tarlac
Ben Jugatan Adviser, LAKAS Only in Tarlac
Pablo Bocable BOD Member, NMGL-Nueva Only in Tarlac
Ecija; President, PASAMA-Laur
Aida Noceto Board Member, NMGL Only in Subic
Evarea Manglicmot Project Staff, PDI-Nueva Ecija Only in Subic
Ramon Ayco Projet Staff, PDI Central Office Only in Subic

7 Terms of Reference

FEDERAL MINISTRY FOR ECONOMIC COOPERATION AND DEVELOPMENT

Division 120 (Aid Evaluation) Bonn, August 2003
Terms of Reference (TOR)

for the Evaluation of the Program

“Rural Empowerment through Agrarian / Asset Development (READ Program)”

implemented by the “Project Development Institute (PDI)”, Philippines

supported by BMZ through EED/EZE

1 Objectives of the Evaluation

The evaluation of the program “Rural Empowerment through Agrarian / Asset

Development (READ Program)” implemented by the partner organization “Project
Development Institute (PDI)”, Philippines. It is the second of six evaluations of
programs of the German Church Development Organizations EED/EZE and Misereor.

This sequence of evaluations is to analyze and assess achievements and experiences of

programs in regard to the objective of German Development Co-operation “Enhancing
the participation of the poor – strengthening Good Governance” (Program of Action
2015).

Particular attention should be paid to what extent strategies to strengthen the poor and
their organizations are able and successful to enhance and support “bottom-up processes”
of poverty reduction. Finally, how to improve these strategies and lessons learned for
comparable programs are to be identified. The experiences maid in the bilateral aid
project “Bondoc” shall be used as reference.

Seven key questions are the basis for the sequence of evaluations “Enhancing the
participation of the poor – strengthening Good Governance”. These key questions are
emphasized bold and italics in the matrix below.

2 The report and key questions

The main report to be submitted by the evaluation team should follow the matrix given
below as closely as possible in order to facilitate the comparison of reports. The matrix is
also intended as a checklist for the evaluation, which may be supplemented by special
sets of questions to meet the needs of the evaluation.

Findings and recommendations are interdependent. Wherever substantial deficiencies are

identified, the summary must include a cross-reference to the relevant recommendation
(recommendation No.) and another reference to any detailed mention in the text (item,
page).
In the same way, recommendations must be cross-referenced to the findings on which
they are based (finding No.) and to any detailed mention in the text (item, page). The
addressee for the recommendation should also be named.

Recommendation which deal with the same subject or complement each other should be
arranged in such a way as to show their contextual relationship, this can usually be
ensured by following the structure for the report item by item as given below (Nos. 4-10).

The evaluation must in principle be directed towards analyzing and assessing the
contribution made by the project towards poverty alleviation.

Evaluation Matrix

1. Introduction

- Reason for and purpose of the evaluation

- Methods applied for the evaluation

- Period of evaluation

- Composition of the evaluation team

- Participation of other actors in the evaluation

2. Summary

2.1 Summary of major findings (Nos. 4-10)

2.2 Summary of major recommendations (indicating to whom the recommendations are

addressed, the findings upon which they are based, item, page)

2.3 Findings and recommendations in regard to the seven key questions of this
sequence of evaluations
3. Brief description of the program

3.1 Concept (idea, manner of operation, target group, formulated goals of the project)

3.2 Tabulated overview

Project Partner:

Project name:

Project number:

Duration of the project:

Target group (are poor people part of the target group?)

Overall aim:

Project aim:

Desired results:

Financial input:

Previous investigations:

4. General conditions

4.1 Political, economic, ecological, social and socio-cultural frame conditions

- Brief description of the relevant frame conditions of the program and their
target groups

- Which are main causes of poverty in the program region?

- What are government strategies and measures to reduce poverty in the program
region?
 - What kind of rights of participation of the local population do exist and to what
extent are these also exercised?

- What are relevant processes affecting the poor and the program?

- In which way does the government respond to traditional forms of participation

and representation of the local population – i.e. indigenous people?

- Which factors are favorable/unfavorable for the participation of the local

population within the legal framework of the Local Government Code of the
Philippines?

- Description of the ecological dimension of the agrarian r eform and the

resettlement issue

- Which elements of the frame conditions can be considered to b e favoring and

hindering the interests of the poor, their organizations and the supporting
organizations?

- Which possibilities have the organizations (People’s Organizations, NGOs) to

influence and change these frame conditions?

4.2 Brief analysis of the sector in which the project to be evaluated is embedded

- Brief description of land use patterns in the project area

- Brief description of land tenure in the project area

- Brief description of non-agricultural economy in the project area

- Brief description of the Comprehensive Agrarian Reform Program (CARP), its

present status, impacts and major problems

- What are the strategies of rural development of the government and other
organizations in the program area?

4.3 Analysis of the institutional framework (showing its relevance for the success of the
project)

- Description of the organizational landscape and the position of PDI: What other
actors, organizations, institutions are working in the program area to similar
objectives – relations to Government – legitimacy from the poor, etc.

- What kind of relations and networking exist between PDI and other
organizations/institutions?
 - What is the distribution of roles and responsibilities?

- What are experiences of co-operation and networking?

- Which understanding of democracy is applied by the different actors and what

role is given to civil society?

4.4 List of the conclusions to be derived from 4.1 – 4.3 (is this an effective promotional
strategy?)

5. Quality of the aims and planning of the project

5.1 Analysis and assessment of aims

- Strategic aim, project aim, concrete desired project results with the relevant
indicators, assumptions, etc.

- Overall aim, project aim, concrete desired project results with the relevant
indicators, assumptions, etc.

- Analysis and assessment of the aims of the project in terms of

- their correspondence to the priorities of the partner country’s development

policy

- their correspondence to the objectives of the German government’s

development policy (Program of Action 2015)

- their compatibility with the country strategy and specific priorities for the
EED/EZE co-operation in Philippines

- their clarity and prioritization (as a prerequisite for feasible planning and as a
standard against which to measure the success of the project)

- whether the aims are realistic (is realistic account being taken of the partner’s
capacity (general conditions), the assumptions and risks?)

- any adjustment/changes during project implementation

- the contribution of the aims to identified target groups (by gender)

- the consideration of the needs and interests of women

 - acceptance by the target group, their level of development (will and capacity)

- direct/indirect structural poverty orientation

- the consideration of environmental issues

- the consideration of sustainable significance (what contributions are being

sought so as to achieve the overall aim/sector aims?)

- the consideration of the needs and interests of the indigenous people?

5.3 Overall assessment of project aims and planning

- Are the project measures based on a structured, participatory planning process

and are they sufficient and appropriate for the achievement of the aims –
especially the aim of poverty reduction?

- Was appropriate attention given to aspects relating to the significance and long-
term feasibility of the project and its intended effects as well as its contribution
to sustainable development?

- Are there suit able indicators to measure what has been achieved?

6. Quality of project implementation and management

6.1 Analysis and assessment of the quality of project implementation

• Assessment of the project implementation

• Organizational and institutional implementation (roles and responsibilities in

implementation, participation of the target group – by gender)

• Capacity development of staff (duration, content, instruments)

• Relationship to planning (comparison between target and actual achievements,

adaptations of plan during implementation)

6.2 Analysis and assessment of the quality of project management

• Assessment of the quality of management by PDI and its instruments (M+E,

reporting, visits, etc.)
 • Assessment of co-operation between PDI and EED/EZE (agreements, distribution
of roles and responsibilities, contributions of each partner, etc.)

• Assessment of the Monitoring and Evaluation System

6.3 Overall assessment of project implementation and management

7. The project’s effectiveness in development terms and its significance

7.1 Project results and achievement of aims (reasons for deviations from what was
planned)

- To what extent have planned results and objectives been achieved, e.g.

- strengthening of local self-help groups

- development of capacities of the target population

- improvement of situation in regard to the legal land titles

- improvement of agricultural production

- lobbying

- what are strengths and weaknesses of the integrated approach of PDI?

7.2 Assessment of const/benefit ratio

Efficiency and profitability of promoted and supported economic measures

(agricultural production and non-agricultural income generation)

7.3 Recording and assessing economic, social, socio-cultural and institutional impacts
(differentiated by gender, where possible), unintended impacts should also be
recorded and assessed.

Impacts at the level of the target groups

- What kind of changes can be observed at the level of the target population? E.g.

- the mobilization of self-help

- the situation of women and the youth and changes in gender relationship

- conflict situations

- the degree of organization of the target population

- organizational capacities of the People’s Organizations (and the ARC)

- individual “Profitability and efficiency” of PO membership

- changes in level of livelihood and style

- the situation of the indigenous people.

- To what extent can this be attributed to the program? Does this have positive
effects of participation in decision making?

- What concrete causes induce the creation of organized representation of

interests of the poor (self-help, advocacy, etc.)

Impacts in regard to the agricultural sector

- What kind of impacts can be observed in the agricultural sector?

- Changes in the agricultural productivity for different target groups (according to

gender, farm size, etc.)?

- Environmental appropriateness of agricultural production and other land use?

Impacts at the level of the partner organization

- What are the lessons learned concerning the effectiveness of the means and
actions and strategies of PDI related to the achieved impacts? What aspects
are specific for the respective situation, what can be generalized for similar
programs?

Impacts concerning political participation

- To what extent has PDI achieved to enhance and enlarge the possibilities of
participation of their target population at local, regional, national and
 international level? What kind of results and impacts have been achieved in
this respect?

- Can the following impacts be observed in the program area

- sustainable re-allocation of government resources,

- change in the allocation process, and an increased transparency,

- stimulus for sustainable development for the poor?

- What is the evolution and process of co-operation between the poor, their
representing organizations (PO) and the advocacy organizations (NGO).
Which factors influence the acceptance of the supporting and advocating
organizations by the target groups? What are the lesso9ns learned for future
programs?

- What is the role of networks, alliances and co-operation between non-

government actors and NGOs with and government actors at local, regional
and national level as well as at international level (north/south)?

- What kind of favorable and hindering reactions of decision makers can be

observed?

- Do any impacts exist which concern the change of attitudes and behavior of
decision makers or other influential actors?

- What kind of factors have particular influence on the organizations

representing the poor and their interests? What are strategies of the
organizations to cope with these factors? Are these strategies appropriate?

7.4 Poverty orientation and contribution by the project to the International

Development Goals and to the goals of the Program of Action 2015

• Are poor people part of the target group?

• Is the project going to improve the living conditions of the poor and encourage
their productive potential (access to education, health, food, water,
environmental resources)?

• Are the poor involved (participation)?

• To what extent does the project contribute to the International Development Goals
and those of the Program of Action 2015?
 • Assessment of poverty orientation considering the results of the evaluation

7.5 Ecological impact

• Anticipated and actual positive or negative impact on the environment

• effectiveness of protective and monitoring activities

• ecological risks

• ecological sustainability

7.6 Sustainability

General conditions

- Has the condition necessary for project success, namely a conducive

environment in the country and in the sector, been met or have the general
conditions changed during the project and, if so, how has the project reacted to
the changes? Is the project part of a larger program?

Project partner organization

- Performance (Can PDI be expected to achieve the project goal?)

- Goal congruence and acceptance, participation

- Financial sustainability

Target group

- Participation: Is the project based on the felt needs of the target group?

- Acceptance (were the target group’s ideas, expectations and reservations with
regard to the project taken into account?)

Impacts

- Durability of project impacts (relating to the target group, to institutions,

structural impacts, diffusion impacts)
 - Project’s contribution to sustainable development

8. Recommendations

8.1 Project-related recommendations – to whom addressed – (corresponding to finding

No. …, item, page …)

8.2 Sector-related recommendations – to whom addressed - (corresponding to finding No.

…, item, page …)

8.3 Recommendations concerning the key questions of the sequence of evaluations

9. General conclusions (lessons learned)

derived from findings relating to the evaluated project

9.1 With regard to the type of project (inter alia, value as a model)

Comparative analysis of lessons learned from the program area and Bondoc
evaluation

9.2 With regard to future programs (key questions)

9.3 With regard to procedures and instruments

10. Other findings (based on the evaluating team’s know-how and experience)

11. Annex

11.1 Itinerary and work schedule

11.2 Sources (discussion partners, documents, reference literature, primary surveys, etc.)
11.3 General map

11.4 Tables

11.5 Preliminary report

11.6 Terms of Reference

8 Comparative analysis of lessons learned from the READ

program and Bondoc Development Program

Differences between READ program and BDP

There are more differences than similarities between the READ Program and the Bondoc
Development Program (BDP):

The BDP is implemented by the local governments (LGUs) of Bondoc. Key line
agencies in agrarian reform and rural development, namely, the DAR, DA, DECs, DENR
and DOH are excluded from the BDP Board of Directors. In contrast, the READ
Program in Central Luzon is implemented by an NGO with PO partners and the
distinctive participation of the DAR in program implementation. The leading role of the
LGU is apparently problematic in the LTI arena because most leading officials of the
LGUs are also big landowners.

Bondoc Peninsula is mainly rural. Contests in land ownership are around coconut lands
and uplands that are classified as forests but have been titled to private individuals.
Central Luzon consists mainly of flat lands, the bulk of which is used for rice production
and, secondarily, for sugarcane and tree crops like mangoes. One distinctive character of
Central Luzon that is absent in Bondoc is the rapidly changing landscape in favor of
urbanization and the emergence of commercial and industrial zones (see chapter 41.3,
page 21).

Consequently, trends in land reclassification, land conversion and land speculation are
more intense in Central Luzon than in Bondoc. Correspondingly, land prices have
increased rapidly in the region compared to a stagnant land market in Bondoc.

The media has little access to Bondoc compared to Central Luzon. This explains the
significant role played by the media in Central Luzon.

The NGO-PO-DAR alliance that is prominent in the READ Program is not prominent in
the BDP, especially at the local level. The participation of the national leadership of the
DAR in the BDP was prominent only during the Estrada administration when the full
force of the law was applied in acquiring the land of a big loandowner. In the READ
Program, the DAR-NGO-PO alliance cuts across the national, regional and provincial
bodies of the DAR.

As pointed clearly out in the last evaluation of the BDP, the project has concentrated too
much on land acquisition and neglected the economic development of the beneficiaries.
Even after years of acquired land ownership, farmers have not developed ideas as to how
to make their land profitable. They are completely stagnant in this regard. This is
different from the pronounced approach of PDI which emphasizes both aspects and tries
to support the implementation of both.

Similarities

The points of similarity are in the areas of LTI and empowerment, but remain distinct:
LTI is the central component of the READ Program. In the BDP, LTI is just one key
result area among seven.

The two projects have similar attributes around LTI: organizing, mobilization, advocacy,
alliance building as well as information dissemination, education and training. However,
NGO empowerment efforts in the BDP are highlighted mainly in meta-legal
mobilizations to acquire big landed estates. In the READ Program, the empowerment
objective includes, among others, initiatives in women’s empowerment and alternative
livelihoods.

What is common among the two programs is the seemingly universal attitude and
behavior of big landowners to resist land reform using legal as well as extra-legal means.