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UNIVERSITY OF HAWAI'I LIBRARY FROM SOCIAL ACTIVISTS TO DEVELOPMENT BROKERS: THE TRANSFORMATION OF PHILIPPINE NON-GOVERNMENT ORGANIZATIONS INTO DEVELOPMENT INTERMEDIARIES A DISSERTATION SUBMITTED TO THE GRADUATE DIVISION OF THE UNIVERSITY OF HAWAIl IN PARTIAL FULFILLMENT OF THE REQUIREMENTS FOR THE DEGREE OF DOCTOR OF PHILOSOPHY IN SOCIOLOGY DECEMBER 2002 By Liza 1. Lim Dissertation Committee: Hagen Koo, Chairperson Herbert Barringer Kiysohi Ikeda Rick Baldoz Belinda Aquino 1 ACKNOWLEDGMENTS It took me a while to complete the writing ofthis dissertation. In process, however, I came to know people who have blessed me with their gifts ofideas, time and more importantly, friendship. I would like to express my gratitude to my chair, Dr. Hagen Koo, for his patience in reading and commenting on the earlier drafts ofthis paper. I have learned a lot from him. I also appreciated his willingness to allow me to sit in on his Civil Society class where I came across ideas that I found very useful for this paper. I am also thankful to Dr. Benedict Tria-Kerkvliet for taking time to comment on some chapters ofthis paper despite his busy schedule. The members ofmy dissertation committee, Dr. Herbert Barringer, Dr. Kiyoshi Ikeda~ Dr. Belinda Aquino and Dr. Rick Baldoz had also been gracious in reading my draft, despite its volume. I am especially appreciative, however, ofDr. Ikeda who not only provided me with insights on how to improve my paper, but also with the much needed advise and inspiration. In the course ofwriting this paper, I also came across individuals who helped facilitate my data gathering and who provided me with inspiration and moral support. Fr. Salvador Orara, SJ gave me the opportunity to get involved with the ISO and the permission to use it as a case study. I also appreciated the time and effort he spared to share with me some ofhis insights about the ISO and the NGO sector as a whole. I am also indebted to Fr. Antonio Moreno, SJ who took on some ofmy responsibilities at the ISO in 1996 so I could pursue the writing this dissertation. Fr. John Carroll, SJ shared 11 with me most ofthe information about the early years ofthe ISO. He has been my mentor and my friend. Dr. Mary Racelis, Dr. Angelita Gregorio-Medel and Ms. Maria Lourdes Melegrito provided me not only a comprehensive overview ofthe history ofcivil society in the Philippines, but also significant insights on how these came to be. Mr. Alberto Catangcatang helped me locate materials and resource persons that I would not have been able to get, ifI am going to look for them myself. The earlier study conducted by Krononalysts, Inc., on the other hand, relieved me ofhaving to conduct the interviews with some key informants directly. Lastly, I would like to thank the people whose friendships encouraged me to pursue this project at times when I almost wanted to let it go - my family, Eleanor Japon, Emma Porio, Patricia Calcetas, Antonio Femadez, Jr., Mayumi Ma. Quintos, Clint and Josie Clausen, Macrina Abenoja, Diosdado Pascual, Lloyd Kuniyoshi, Tyros Buyama, Veronica Soriano, Maria Eva Pangilinan, and Youngjin Choi. III ABSTRACT Since the 1986 People Power Revolution, the Philippine civil society groups, particularly the NGOs, had been considered as one ofthe most active in the world in terms ofpromoting democratization. Although it has only been recognized recently, the Philippine civil society has been in existence as early as the 16th century. Moreover, it is not only comprised ofthe middle class-based NGOs, but also the people's organizations whose roles in the democratization process were crucial, yet underplayed. Oflate, however, the NGOs are more recognized as representatives ofthe Philippine civil society because ofthe critical roles they play as development intermediaries. As such, they broker influence and resources between the organized grassroots and the formal social institutions such as the state, the Catholic Church and the ideological parties. Because of this, they allowed some fractions ofthe Filipino middle class to get mainstreamed in the field ofdevelopment administration and enabled them to strategically position themselves to countervail the influence ofthe elites on the state. This paper examines how the Philippine social development NGOs emerged and over time, evolved into development intermediaries. It identifies the development within the Catholic Church, the changes in the ideological parties, the socio-economic situations at particular historical junctures and the responses ofthe state towards organized efforts ofthe citizenry as major factors that shaped the Philippine civil society's transformation. It likewise described how such macro-processes compelled a particular NGO, the Institute of Social Order, to undertake professionalization and transform itselfinto a development intermediary organization over time. IV TABLE OF CONTENTS Acknowledgements 11 Abstract IV List ofTables ix List ofFigures and Illustrations x List ofAcronyms xi Chapter 1. Introduction " 1 Chapter 2. Literature Review 13 The Nature and Characteristics ofCivil Society ..... 14 Historical vs. Analytic Conception ofCivil Society.. 17 Civil Society and the Democratization Process 19 The NGOs and POs as Civil Society Organizations.. 24 NGO Typologies, Features and Characteristics 26 Why Social Development NGOs Become Development Intermediaries 35 Organizational Implications ofBecoming Development Intermediaries 37 The Middle Class Dimension ofNGO Initiatives ..... 41 Summary 45 Chapter 3. Conceptual Framework and Research Methodology. ...... ... 48 Definition ofTerms 48 Assumptions and Thesis 54 Research Focus 61 v Data Collection 63 Data Analysis 65 Limitations ofthe Study 65 Chapter 4. Early Forms ofPhilippine Civil Society: Informal Voluntary Associations and Social Movement (16th Century to 1972) 69 The Birth ofthe Philippine Civil Society 71 Beginnings ofthe "Organized" Philippine Civil Society Movement (1946-1960) 84 Expansion and Radicalization ofthe Philippine Civil Society (1961-1971) 91 Conclusion 104 Chapter 5. The Rise ofthe Philippine NGOs (1972-1986) 115 The Suppression and Outlawing ofCivil Society (1972-1977) 115 Cause-Oriented Groups and the Service Delivery NGOs (1978-1983) 125 The NGOs as a ''Middle'' Force (1983-1986) 135 Conclusion 145 Chapter 6. The Institutionalization ofCivil Society: The NGOs As Intermediary Organizations (1986-Present) 153 The Emergence ofthe "Social Development" Industry (1986-1992) 154 The Mainstreaming ofCivil Society (1992-1997) 164 VI Civil Society vs. "Civil-ized" Society (1997-Present) 184 Conclusion 197 Chapter 7. An NGO in Transition: The Case ofThe Institute ofSocial Order (ISO) 208 Sowing the Seeds ofCatholic Social Action: The Social Justice Crusade 209 Taking Roots: The Era ofTrade Unionism 211 First Blossoms: Experimenting on New Strategies OfPropagating Faith that does Justice 219 Thriving on Stony Grounds: Catholic Social Action Under the Dictatorship 226 The Flowering ofAnti-Dictatorship Movements: LIAC during the EDSA Revolution 238 Gleaning and Replanting: Reorganization and Transfer to Ateneo de Manila Campus 239 The Pruning: ISO's Early Years as a Professional Social Development Agency .244 Grafting Ideological Politics with Social Development: The ISO in Organizational Crisis .....251 Reseeding: ISO in Contemporary Times 257 Conclusion 260 Chapter 8. The ISO As An Arena OfConflict 273 Volunteers for Social Action 273 Extension Workers for Community Organizing 277 Vll Professionals for Social Development 286 Conclusion 298 Chapter 9. The ISO-PO Partnership: A Case OfCivil Society Making Civil Society 305 The Grassroots Sectors as Passive Acceptors ofIdeas 305 A Relationship between the Leaders and the Led.... 308 Organizing Communities for Power 311 Building Sectoral Federations as Mass Bases for The Anti-Dictatorship Movements 316 "Contractualizing" NGO-PO Partnership for Social Development 319 ISO as a Full-Pledged Development Intermediary Institution 327 Conclusion 330 Chapter 10. Analysis And Conclusion 336 Nature and Characteristics ofthe Evolving Philippine Civil Society 336 External Factors that Shaped the Evolution ofthe Philippine Civil Society 346 Implications ofthe Transformation from Social Activist to a Development Intermediary Organization: The ISO Experience 357 NGO-GO Partnership 360 Vlll Appendices Appendix 1. Interview Guide for For Key Informants on the History ofthe NGO Movement in the Philippines Appendix 2. Interview Guide/Focus Group Discussion Guide for ISO Management and Staffs Appendix 3. Focus Group Discussion Guide for Leaders and Officers onso's Partner People's Organizations Appendix 4.1 Summary ofChanges in the Nature and Characteristics ofthe Philippine Civil Society, By Historical Period - Pre-Authoritarian Period (16th Century to 1972) Appendix 4.2 Summary ofChanges in the Nature and Characteristics ofthe Philippine Civil Society, By Historical Period - Authoritarian Period (1972-1986) Appendix 4.3 Summary ofChanges in the Nature and Characteristics ofthe Philippine Civil Society, By Historical Period - Re­ democratization Periods (1986-Present) Appendix 5. Summary ofthe Changing Organizational Characteristics and Roles ofthe Institute ofSocial Order, 1931-2002 Bibliography Xl LIST OF ACRONYMS AND ABBREVIATIONS AF Association ofFoundations ALAMAT A/yansa ng mga Manggagawa ng Tanay AMRSP Association ofMajor Religious Superiors ofthe Philippines ATOM August 21 Movement AWU Associated Workers' Union BANDILA Bansang Nagkakaisa sa Diwa at Layunin BAYAN Bagong Alyansang Makabayan
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