Indigenous Peoples Plan Philippines: Expanded Social Assistance Project

Expanded Social Assistance Project (RRP PHI 52257-001)

Indigenous Peoples Plan

November 2019 (Draft)

Philippines: Expanded Social Assistance Project

Prepared by the Department of Social Welfare and Development for the Asian Development Bank. This indigenous peoples plan is a document of the borrower. The views expressed herein do not necessarily represent those of ADB's Board of Directors, Management, or staff, and may be preliminary in nature.

In preparing any country program or strategy, financing any project, or by making any designation of or reference to a particular territory or geographic area in this document, the Asian Development Bank does not intend to make any judgments as to the legal or other status of any territory or area.

CURRENCY EQUIVALENTS (as of 15 November 2019) Currency unit – peso (₱) ₱1.00 = $0.0197 $1.00 = ₱50.7220_____

ABBREVIATIONS 4Ps – Pantawid Pamilyang Pilipino Program ADB – Asian Development Bank ALS – Alternative Learning System CCT – Conditional Cash Transfer CF – Community Facilitators CFDS – Community Family Development Sessions DepEd – Department of Education DoH – Department of Health DSWD – Department of Social Welfare and Development ESAP – Expanded Social Assistance Project FDS – Family Development Sessions FGD – Focus Group Discussions FPIC – Free Prior Informed Consent GIDA – Geographically Isolated Disadvantaged Area GRS – Grievance Redress System ICC – Indigenous Cultural Communities IEC – Information-Education-Communication IKSP – Indigenous Knowledge Systems and Practices IP – Indigenous Peoples IPP – Indigenous Peoples Plan IPRA – Indigenous Peoples Rights Act LGU – Local Government Unit MCCT – Modified Conditional Cash Transfer MIS – Management Information System ML – Municipal Links M&E – Monitoring and Evaluation NCIP – National Commission on Indigenous Peoples NEDA – National Economic and Development Authority NPMO – National Project Management Office RCCT – Regular Conditional Cash Transfer RPC – Regional Program Coordinator RPMO – Regional Project Management Office SLP – Sustainable Livelihood Program SPS – Safeguards Policy Statement SSI – Support Services Intervention TA – Technical Assistance

TABLE OF CONTENTS EXECUTIVE SUMMARY 1 I. DESCRIPTION OF THE PROJECT 4 A. Background 4 B. Project Description 4 C. Objectives of the Indigenous Peoples Plan 7 II. LEGAL AND POLICY FRAMEWORK 8 A. Legal and Institutional Framework 8 III. SOCIAL IMPACT ASSESSMENT 11 A. Indigenous Peoples of the Philippines 11 B. Distribution of Indigenous Household Beneficiaries 13 C. Understanding the Experience of Indigenous Peoples in 4Ps 13 D. Level of Vulnerability and Risks Experienced by Indigenous Peoples in 4Ps 18 E. Perceptions of Indigenous Peoples in RCCT and MCCT-IP 22 IV. INFORMATION DISCLOSURE, CONSULTATION, AND PARTICIPATION 24 A. Consultation and Participation During IPP Preparation 24 B. Key Issues Critical for the Design of a Culturally Appropriate CCT for IPs 27 C. Consultation and Participation Mechanisms during Program Implementation 29 D. Information Disclosure 30 V. PROJECT IMPACTS AND MITIGATION MEASURES 31 A. Project Impacts on Indigenous Beneficiaries 31 B. Unanticipated Project Impacts on Indigenous Peoples’ Culture 35 C. Action Plan to Ensure Culturally Appropriate CCT in the Context of IPs 37 VI. CAPACITY BUILDING 42 A. Capacity Building for the Executing Agency 43 B. Capacity Building for Indigenous Beneficiaries 43 VII. CULTURALLY APPROPRIATE GRIEVANCE REDRESS SYSTEM 44 VIII. MONITORING, REPORTING, AND EVALUATION 45 IX. INSTITUTIONAL ARRANGEMENTS 49 X. BUDGET AND FINANCING 50

LIST OF TABLES

Table 1: The RCCT and MCCT-IP Program Design ...... 23 Table 2: Activities Conducted in Davao and Bukidnon ...... 25 Table 3: Activities Conducted in Palawan ...... 26 Table 4: Potential Positive and Negative Impacts of the 4Ps on Indigenous Peoples ...... 31 Table 5: Culturally Appropriate Strategies in Fulfilling 4Ps Conditionalities that Fit the Situation, Needs, and Aspirations of IPs ...... 39 Table 6: Estimated Maximum Timelines for Complaint Resolution ...... 45 Table 7: Monitoring Indicators ...... 46 Table 8: Mitigation Process Indicators ...... 47

EXECUTIVE SUMMARY

1. The project will support the Pantawid Pamilyang Pilipino Program (4Ps), a government program that provides cash grants to poor households conditional on their compliance to the following program requirements: (i) children must maintain an 85% attendance rate in school, receive regular preventive health and nutrition services including check-ups and vaccinations, and receive deworming pills at least twice a year; (ii) pregnant women must avail of pre- and post- natal care, with their births attended to by a professional health worker; and (iii) parents or guardians are required to participate in monthly community-based Family Development Sessions (FDS) to learn about positive child discipline, disaster preparedness, and women’s rights.

2. Of the 15.4% or 643,402 4Ps beneficiaries who are indigenous peoples (IPs), 74% are from Mindanao, 23% from Luzon, and 3% from the Visayas. The program is expected to have positive impacts for IPs by providing additional cash income that will help support their children’s education. It will also allow them to avail of health services, and enhance their acceptance of and participation in the national immunization program. Improved targeting and program monitoring will ensure that indigenous households are included, and will benefit from the various social programs available. Community and Family Development Sessions (CFDS) provide a venue for indigenous communities to learn about their individual and collective rights in addition to topics related to health, food security, and livelihood. They serve as an opportunity for communities to discuss issues affecting their cultural, economic, and social wellbeing.

3. Action Plan to Ensure Culturally Appropriate Conditional Cash Transfer (CCT) in the Context of IPs. This Indigenous Peoples Plan (IPP) provides guidance to guarantee culturally appropriate program implementation for indigenous beneficiaries and to develop measures to minimize and mitigate any unavoidable adverse impacts. The goal is to ensure indigenous beneficiaries receive social and economic benefits that are culturally appropriate and gender responsive. The action points under the IPP are to: (i) Ensure that the ongoing Listahanan 3 will cover the current list of IP beneficiaries and will reach out to geographically isolated and difficult areas (GIDA) where many indigenous peoples reside; (ii) Strengthen collaboration with supply side agencies (DepEd and DoH and local government unit [LGUs]) to ensure that culture sensitive approaches are adopted in providing services to indigenous beneficiaries and that appropriate interventions are utilized as necessary (DepEd’s alternative learning modules and integration of IP curriculum and DoH’s balancing of good health practices with traditional health and birthing practices); (iii) Facilitate meaningful participation of IPs through separate Community Family Development Sessions (CFDS) and other consultation mechanisms; (iv) Support the capacity development of partner institutions (DoH, DepEd, LGUs), program staff and beneficiaries (the latter through CFDS) in culture and gender sensitivity, developing and providing tools, information-education-communication (IEC) materials and modules that further promote culture and gender sensitivity; (v) Ensure that indigenous beneficiaries can effectively access the grievance redress system; (vi) Mapping and profiling to identify and better understand the situation and needs of IP beneficiaries.

4. In addition, the following measures will also be integrated: (i) the National Commission on Indigenous Peoples (NCIP) will be included in the technical working group of the National Advisory Council of Pantawid to ensure that their views are reflected in program implementation;

(ii) the ratio of staff to beneficiaries in IP areas will be higher than in non-IP areas, given the difficulty in reaching these locations and the particular needs of IP beneficiaries. Targeted recruitment of municipal links who will be assigned in the IP areas will ensure they possess the appropriate attitude, sensitivity, and commitment to work with indigenous communities in the project areas; (iii) in locations where IPs are a minority, separate CFDS sessions will be conducted to ensure they are able to voice their concerns and needs; and (iv) support service interventions, especially livelihood, which is a component of the current modified conditional cash transfer (MCCT) program, will continue to be available to indigenous beneficiaries.

5. Capacity Building. The project will utilize a two-pronged capacity building strategy. The first is to enhance the capacity of the executing agency so program staff fully appreciate the issues facing indigenous peoples issues and the vital role of indigenous knowledge systems and practices (IKSP) with regard to indigenous education and indigenous beliefs and health practices. The ADB’s Safeguard Policy Statement (SPS) regarding indigenous peoples safeguards will also be included in the capacity building program. The second part of the strategy is to build the capacity of indigenous beneficiaries through their participation in family development sessions that will focus on strengthening their agency, by concentrating on collective rights and improving organizational management.

6. Culturally Appropriate Grievance Redress System. The establishment of a grievance redress system (GRS) is crucial in facilitating the resolution of issues and concerns related to 4Ps. The ADB SPS states that the borrower/client is required to establish and maintain a grievance redress mechanism to ensure effective resolution of indigenous beneficiaries’ concerns and grievances concerning program implementation. The project will develop mechanisms to resolve complaints in a timely manner through a transparent process that is gender responsive, culturally appropriate, and readily accessible to all indigenous beneficiaries.

7. Information Disclosure. Disclosure of project information will be made available to the indigenous communities and beneficiaries in the form of leaflets or brochures translated into the local language. For indigenous communities where a large number of the adults cannot read, materials will be produced in popularized form throughout the project’s duration. In addition to printed material, project implementers will use visual presentations and other culturally appropriate means to share pertinent project information.

8. Monitoring, Report and Evaluation. The implementation of the IPP will be monitored to: (i) ensure that mitigation measures designed to address negative social impacts and measures to enhance positive impacts are adequate and effective, (ii) determine if the indigenous communities have any issues or concerns regarding project implementation, and (iii) propose corrective actions when needed. The MCCT-IP unit will be in charge of monitoring the IPP and making sure that it is implemented regionally through the IP focal persons. It will conduct a systematic assessment to determine the most effective methods of ensuring that project implementers are aware of the IPP. A system will be established to monitor whether implementation of and compliance with the IPP. The program must allocate financial resources to activities, both at the national and regional levels, that enhance its capacity to fulfill all commitments specified in the IPP.

9. The project IPP monitoring indicators will be disaggregated by sex and ethnicity. The Department of Social Welfare and Development (DSWD) has developed monitoring and evaluation (M&E) system guidelines for geographically isolated and disadvantaged areas to ensure that the system is able to capture IP-specific indicators as reflected in the M&E forms. The M&E systems can be enhanced by developing analytical tools and internal monitoring systems

3 that provide an accurate picture of the situation of indigenous peoples in the 4Ps. The MCCT-IP Unit will prepare and submit semi-annual social monitoring reports to ADB for their review and posting on the ADB website. These progress reports will provide updates on IP beneficiaries, progress of program implementation, challenges related to IPP implementation, and any grievances received.

10. Implementation Arrangement. The National Project Management Office (NPMO) will ensure that all activities and measures detailed in the IPP will be implemented according to the agreed-to time frame. The MCCT-IP Unit, with the support of the 17 regional IP focal persons, will be responsible for IPP implementation at both the national and regional levels.

11. The project will dedicate a National IP Focal whose focus will be the implementation and monitoring of the IPP. The main task of the National IP Focal will be to sensitize program staff and provide guidance in program matters that may impact the social and cultural wellbeing of IP communities. The National IP Focal will be responsible for formulating guidelines, manuals, and training materials that promote the development of culturally competent staff. The NPMO will ensure that the regional IP focal persons are aware of the importance of the ADB SPS and its requirements. The NPMO will also ensure that the regional IP focal persons are supported in the implementation of the IPP.

12. Budget. The activities in the IPP are integrated into the overall budget of the project. Analytical work to support strengthening IP involvement and participation in the program will be supported by the Technical Assistance (TA) Support Facility on an as needed basis.

I. DESCRIPTION OF THE PROJECT

A. Background 13. The Pantawid Pamilyang Pilipino Program, popularly called 4Ps, is a government program that provides cash grants to poor households, conditional on their compliance to the following program requirements: (i) children must maintain an 85% attendance rate in school, receive regular preventive health and nutrition services including check-ups and vaccinations, and receive deworming pills at least twice a year; (ii) pregnant women must avail of pre- and post-natal care, with their births attended to by a professional health worker; and (iii) parents or guardians are required to participate in monthly community-based Family Development Sessions (FDS) to learn about positive child discipline, disaster preparedness, and women’s rights. The 4Ps program is one of the key poverty alleviation strategies of the government that aims to break the cycle of intergenerational poverty in the country.

14. 4Ps has proven to be an effective poverty alleviation strategy. Evidence from 4Ps impact evaluations indicate that the program has improved children’s access to health services, kept children in school, and reduced child labor, insurgent influence, and conflict-related incidents.1 The passage of the Republic Act 11310, an Act institutionalizing the 4Ps program, signals a clear commitment on the part of government to provide social justice to the most vulnerable sectors of society. The law institutionalizes the program, providing conditional cash transfers to poor households for a maximum period of seven years. 4Ps focuses on the most disadvantaged sectors by providing effective social protection measures through improved program strategies sensitive to recipients’ social and cultural conditions. The Department of Social Welfare and Development is the lead agency mandated to plan, coordinate, implement, and monitor the program.

15. The Pantawid Pamilya program is continually strengthening its efforts to reach out to the most vulnerable and disadvantaged groups of society. Modified Conditional Cash Transfer (MCCT) is an approach designed to extend the program to poor households who cannot qualify, either for 4Ps or for other social protection programs because they do not meet the minimum requirements. The current implementation of the Pantawid Pamilya Pilipino Program excludes some of the most vulnerable groups, including indigenous peoples (IPs) in geographically isolated and disadvantaged areas (GIDA), homeless street families, and households affected by natural disasters. These are the people who need social protection programs the most. The MCCT was created to fill that gap, to include the vulnerable, those who are living in extreme poverty unable to meet their basic needs, and those populations who are isolated and hard to reach.

B. Project Description 16. Despite the Philippines’ recent strong economic performance, poverty, inequality and vulnerability persist. Although the poverty rate fell to 21% in the first half of 2018 from 27.6% in 2015,2 nearly 22 million Filipinos continue to live below the poverty line. A far greater number— 11.1 million households, or 48.3% of all households—were vulnerable to falling back into poverty in 2015, more than double the official estimate of the number of poor. Households in rural are more vulnerable than in urban areas. The most vulnerable regions are the Bangsamoro Autonomous Region in Muslim Mindanao, Zamboanga Peninsula, Eastern Visayas, Bicol Region,

1 V. Pacqueo and A. Orbeta 2018. Pantawid Pamilyang Pilipino Program: Boon or Bane? In Pacqueo, V., Orbeta, A., and Llanto, G. (eds). Unintended Consequences: The Folly of Uncritical Thinking. Philippine Institute for Development Studies. Quezon City: 145-164. 2 Philippines Statistics Authority. https://psa.gov.ph/poverty-press-releases/nid/138411

5 and Northern Mindanao. The main sources of vulnerability include: (i) labor and employment disruptions such as losing a job; (ii) demographic, reproductive and health-related causes such as illness, death of a breadwinner, or an unwanted pregnancy; (iii) price increases, especially food price spikes; and (iv) major disasters that cause loss of life, assets, and livelihoods.3

17. The Philippine Development Plan 2017–2022 targets reducing poverty to 14% by 2022. The government’s social strategy consists of accelerating human capital development and reducing the vulnerabilities of individuals and families to various risks. Human capital development interventions aim to improve nutrition and health, ensure availability of lifelong learning opportunities for all, and increase income-earning ability of the workforce. To reduce vulnerabilities, the government will strengthen and rationalize its social protection programs by using convergent and transformative approaches aimed at universal coverage.4 4Ps is designed to be a social protection system that builds the socio-economic resilience of the poor. It supports the Philippine Development Plan strategic goals of (i) more inclusive growth by lowering poverty incidence in rural areas from 30 per cent in 2015 to 20 percent in 2022; (ii) building a high level of human development by 2022; and (iii) enabling more resilient individuals and communities.

18. The proposed four-year Expanded Social Assistance Project (ESAP) will build on a decade of the Asian Development Bank (ADB) support for social protection in the Philippines. The project will (i) finance a portion of the conditional cash transfers (CCT) to 4.4 million poor households identified through an objective and robust targeting system; (ii) strengthen the implementation capacity of the implementing agency; and (iii) enhance targeting and monitoring of the Pantawid Pamilyang Pilipino Program. The project will have the following outcomes: (i) education and health profile of poor children improved, and (ii) poverty and vulnerability to shocks reduced.

19. The ESAP will be aligned with the following impact – a universal and transformative social protection system that builds socioeconomic resilience, as emphasized in the Philippines Development Plan, 2017-2022.5 The outcome will be the education and health profile of poor children improved (i.e. helping children of poor families break out of the inter-generational vicious cycle of poverty). ESAP will achieve this outcome by supporting the following output:

20. Conditional cash transfers delivered effectively and on time – The ESAP will finance a share of the bi-monthly CCT grants to eligible poor households with children aged 0-18 and pregnant women who comply with the conditionalities. The eligible household beneficiaries will continue to be based on the government’s National Household Targeting System for Poverty Reduction (Listahanan). It is expected that while disbursements under ESAP for 2020 and 2021 will be linked to the current list of 4Ps households based on Listahanan 2009, with effect from the second half of 2022, the disbursements will be linked to new list of eligible households based on Listahanan 3. Further, effective 1 January 2020, the 4Ps households will receive grants at the higher rates laid down under the 4Ps law. It should also be noted that since 2017, 4Ps beneficiaries have been receiving an additional ₱600 cash grants per month as rice subsidy. This payment is included in the bi-monthly payment for CCTs. The ESAP funds will, however, be used only for financing the CCT grants for education and health, and not the rice subsidy.

3 J. Albert and J. F. Vizmanos. 2018. Vulnerability to Poverty in the Philippines: An Examination of Trends 2003-2015. Philippine Institute of Development Studies Discussion Paper Series no. 2018-10. Quezon City. 4 National Economic and Development Authority (NEDA). 2016. Philippine Development Plan 2017–2022. Chapter 11, Reducing Vulnerability of Individuals and Families. Pasig City. 5 NEDA. 2017. Philippine Development Plan 2017-2022. See Chapter 11 on Reducing Vulnerability of Individuals and Families. Pasig City.

21. To ensure that CCTs for up to 4.4 million eligible poor households are transferred in a targeted, efficient, and timely manner, ADB will provide the following support through the ongoing Strengthening Social Protection Reforms (Transaction TA Facility – PHI 9079):6 (i) Delivery systems strengthened. During each two monthly payout period, DSWD staff have to coordinate with 84,007 education facilities (daycare centers to grade 12) and 23,607 local health facilities to verify compliance. To reduce this burden and ensure that CCTs reach the eligible poor households in a targeted, efficient, and timely manner, ADB will support this output through the ongoing TA facility.7 TA support to DSWD will include preparation of roadmaps for IT-reforms for IT- reforms to: (i) improve business processes and streamline program systems for registry management, compliance verification, beneficiary updating, payroll, payments, and grievance redress; (ii) upgrade DSWD’s internal management information systems, particularly the Pantawid Pamilyang Information System (PPIS); (iii) facilitate the progressive linking of PPIS with the Learner Information System (LIS)8 of the DepEd and the Integrated Clinic Information System (i- ClinicSys)9 of DOH to automate the verification of education (i.e. attendance) and health-related compliance data respectively; and (iv) explore the scope for using innovative fintech solutions for government-to-person payments (including direct benefit transfers) to support financial inclusion. Financing from ADB’s High-Level Technology Fund10 will be added to the TA Facility to support the proposed IT- related reforms for strengthening delivery systems.

(ii) Awareness building, connections with complementary social programs, project management and evaluation capacity strengthened.

a) FDS and YDS modules updated. Under ESAP, technical assistance will be provided to review and improve the FDS Manual and selected modules (e.g. sanitation and hygiene, teenage pregnancy, drugs, livelihood and skills training, disaster resilience), incorporate gender and cultural sensitivity in all learning material, translate the updated FDS Manual into three local languages (Filipino, Ilocano, Bisaya) for greater outreach. The design of information education and communication (IEC) material will be improved to spread awareness and support social marketing. To ensure effective delivery of the new FDS Manual, ADB will support training of facilitators at the regional level, who will then train the provincial staff. Support will also be provided to complete six volumes of

6 The technical assistance project, Strengthening Social Protection Reform, for $1 million was attached to the SPSP- AF which was approved in 2016. This was converted into a Transaction technical assistance facility in November 2018, with additional funding of $1 million to support the design and implementation of ESAP. 7 The TA, Strengthening Social Protection Reform, for $1 million was attached to the SPSP-AF which was approved in 2016. This was converted into a transaction TA facility in November 2018, with additional funding of $1 million to support the design and implementation of ESAP. 8 The LIS is the national online registry of all students (i.e. learners) who are enrolled in schools (public and private; state and local universities and colleges; and higher education institutions) which are run or licensed by the Department of Education. It includes information on all students including personal data, enrolment history, classes registered for, grades and evaluation results, indication of benefits (including 4Ps), and health and nutritional status. 9 i-ClinicSys is an electronic medical record and health information system to support the functions of primary care facilities and barangay health stations. It automates service delivery processes to monitor patient care efficiently. 10 Financing partner: Government of Japan. Additional TA financing is expected by quarter 2, 2020.

YDS modules focusing on prevention of teenage pregnancy, participation in community development activities, and livelihood skills.11

b) Piloting innovative “Graduation” approaches to help 4Ps households escape poverty. Since 2016, ADB has been undertaking a graduation pilot with the Department of Labor and Employment in partnership with the BRAC, USA by targeting 1,800 beneficiaries of 4Ps in 32 barangays across 5 municipalities in Negros Occidental. Based on the lessons, ADB will reinforce DSWD’s efforts towards providing comprehensive, time-bound, sequenced and tailored package of interventions to help 4Ps households “graduate” out of poverty in a sustainable manner (i.e. while minimizing the risk of slippage).12 These graduation pilots will tap synergies with DSWD’s Sustainable Livelihood Program, which targets vulnerable families and marginalized groups, e.g., person with disabilities, out of school youth, persons in conflict areas, disaster-affected communities. It offers two tracks of assistance: microenterprise development, to help the poor in adding to their livelihood and generating some savings, and employment facilitation to help access jobs. ADB will leverage its own TRTA facility using a grant of $1.1 million from DFAT, Government of Australia, to support the roll-out of different graduation approaches in selected disadvantaged areas of the Philippines.

c) Project management and evaluation capacity strengthened. The TA Facility will be used to build DSWD’s capacity in public financial management, procurement, knowledge management, and convergence with other government agencies. As it did during the three earlier rounds of impact evaluation, ADB will provide inputs for the design of the fourth round scheduled over the period 2021 to 2024.

C. Objectives of the Indigenous Peoples Plan 22. Of the 15.4%, or 643,402 IP beneficiaries of the Pantawid program, 74% are from Mindanao, 23% from Luzon, and 3% are from the Visayas. The project is expected to have positive impacts for IPs by providing additional cash income that will help support their children’s education. It will also allow them to avail of health services and enhance their acceptance of and participation in the national immunization program. Improved targeting and program monitoring will ensure that indigenous households are included and will benefit from the various social programs available. Community and Family Development Sessions (CFDS) provide a venue for indigenous communities to learn about their individual and collective rights in addition to topics related to health, food security, and livelihood. They serve as an opportunity for communities to discuss issues affecting their cultural, economic, and social wellbeing.

23. The principal objective of the various interventions under the Pantawid project is to prevent exclusion of indigenous groups due to lack of information about the program, physical isolation, poverty, and discrimination. The project has been categorized as B for indigenous peoples. This

11 Assessment of Family Development Sessions and Youth Development Sessions (accessible from the list of linked documents in Appendix 2 of the report and recommendation of the President). 12 The four foundational graduation pillars include social protection to provide immediate relief for basic needs, social empowerment to promote inclusion and behavioral change, financial inclusion to provide income management and increase savings, and livelihood promotion to develop productive income-generating activities.

Indigenous Peoples Plan (IPP) has been prepared in accordance with the ADB Safeguard Policy Statement (SPS) on indigenous people safeguards. The plan specifies safeguard provisions to be monitored during project implementation to ensure that benefits are equally distributed. The IPP provides the guidance necessary to guarantee culturally appropriate program implementation for indigenous beneficiaries. The project will employ culturally appropriate and gender sensitive consultation processes when engaging tribal leaders, indigenous communities, and IP representatives.

24. The project will not involve civil works, and will not lead to any land or asset acquisition. There will be no physical displacement or temporary involuntary resettlement impacts under the proposed project.

II. LEGAL AND POLICY FRAMEWORK

A. Legal and Institutional Framework

1. Relevant National Laws and Policies Concerning Indigenous Peoples

25. Philippine national laws include policies that recognize the rights of indigenous peoples to pursue their own economic, social, and cultural development. The ADB IP safeguards are intended to “ensure projects are designed and implemented in a way that fosters full respect for ethnic peoples’ identity, dignity, human rights, livelihood systems, and cultural uniqueness as they define them.” The IPP incorporates principles from both Philippine national laws and the ADB SPS.

26. The Philippine Constitution of 1987. The Constitution recognizes and promotes the rights of indigenous cultural communities within the framework of national unity and development. (iii) Article XIII, Section 11. The State shall adopt an integrated and comprehensive approach to health development which shall endeavor to make essential goods, health and other social services available to all the people at affordable cost. There shall be priority for the needs of the under-privileged, sick, elderly, disabled, women, and children. (iv) Article XIV, Section 2(4). The State shall encourage non-formal, informal, and indigenous learning systems, as well as self-learning, independent, and out-of- school study programs particularly those that respond to community needs.

27. Republic Act No. 8371, Indigenous Peoples Rights Act of 1997 (IPRA). The law represents landmark legislation aimed at correcting historical injustices inflicted upon Indigenous Cultural Communities (ICCs)/IPs. It upholds their rights and is intended to improve their welfare. It calls for enforcing constitutional mandates and observing international norms. IPRA stipulates four basic rights: (i) right to ancestral domains and lands; (ii) right to self-governance and empowerment; (iii) right to social justice and human rights; and (iv) right to cultural integrity. SEC 2(f) states: The State recognizes its obligations to respond to the strong expression of the ICCs/IPs for cultural integrity by assuring maximum ICC/IP participation in the direction of education, health, as well as other services of ICCs/IPs, in order to render such services more responsive to the needs and desires of these communities.

28. The implementing rules and regulations provide the details and conditions, requirements, and safeguards for plans, programs and projects affecting indigenous peoples.

(i) SEC. 25. Basic Services. The ICCs/IPs have the right to special measures for the immediate, effective and continuing improvement of their economic and social conditions, including in the areas of employment, vocational training and retraining, housing, sanitation, health and social security. Particular attention shall be paid to the rights and special needs of indigenous women, elderly, youth, children and differently-abled persons. Accordingly, the State shall guarantee the right of ICCs/IPs to government's basic services which shall include, but not limited to, water and electrical facilities, education, health and infrastructure. (ii) SEC. 26. Women. ICC/IP women shall enjoy equal rights and opportunities with men, as regards the social, economic, political and cultural spheres of life. The participation of indigenous women in the decision-making process in all levels, as well as in the development of society, shall be given due respect and recognition. The State shall provide full access to education, maternal and child care, health and nutrition, and housing services to indigenous women. Vocational, technical, professional and other forms of training shall be provided to enable these women to fully participate in all aspects social life. As far as possible, the State shall ensure that indigenous women have access to all services in their own languages. (iii) SEC. 27. Children and Youth. The State shall recognize the vital role of the children and youth of ICCs/IPs in nation-building and shall promote and protect their physical, moral, spiritual, intellectual end social well-being. Towards this end, the State shall support all government programs intended for the development and rearing of the children and youth of ICCs/IPs for civic efficiency and establish such mechanisms as may be necessary for the protection of the rights of the indigenous children and youth. (iv) SEC. 28. Integrated System of Education. The State shall, through the National Commission on Indigenous Peoples (NCIP), provide a complete, adequate and integrated system of education, relevant to the needs of the children and young people of ICCs/ IPs. (v) SEC. 30. Educational Systems. The State shall provide equal access to various cultural opportunities to the ICCs/IPs through the educational system, public or private cultural entities, scholarships, grants and other incentives without prejudice to their right to establish and control their educational systems and institutions by providing education in their own language, in a manner appropriate to their cultural methods of teaching and learning. Indigenous children/youth shall have the right to all levels and forms of education of the State.

29. Republic Act 11310 (The 4Ps). The government will provide conditional cash transfers to qualified poor households for a maximum period of 7 years to improve their access to health, nutrition and education.

30. Republic Act No. 7160 (Local Government Code of 1991). The law that transferred the control and responsibility on public health services from DOH to the LGUs, in which the latter assumed primary responsibility over the delivery of health services and the provision of health facilities.

31. Republic Act No. 7610 (Special Protection Against Child Abuse, Exploitation and Discrimination, 1992). In Section 19 under Health and Nutrition, it states that “The delivery of basic social services in health and nutrition to children of indigenous cultural communities shall be given priority by all government agencies concerned. Hospitals and other health institution shall ensure that children of ICCs are given equal attention. In the provision of health and nutrition service, indigenous health practices shall be respected and recognized.”

32. Republic Act No. 8423 (Traditional and Alternative Medicine Act, 1997). A law which provides that “It is hereby declared the policy of the State to improve the quality and delivery of health care services to the Filipino people through the development of traditional and alternative health care services and its integration into the national health care delivery system.”

33. Republic Act No. 10606 (National Health Insurance Act of 2013). A law that emphasizes mandatory health care and ensures coverage of the marginalized by prioritizing health care needs of the underprivileged, sick, elderly, persons with disabilities (PWDs), women and children and provide free health care services to indigents.

34. Republic Act No. 10354 (The Responsible Parenthood and Reproductive Health Act of 2012). A national policy which provides “that effective and quality reproductive health care services must be given primacy to ensure maternal and child health, the health of the unborn, safe delivery and birth of healthy children, and sound replacement rate, in line with the State’s duty to promote the right to health, responsible parenthood, social justice and full human development”.

35. DOH Administrative Order No. 2010-0036 (2010). It provides for an overall goal that “The implementation of Universal Health Care shall be directed towards ensuring the achievement of the health system goals of better health outcomes, sustained health financing and responsive health system by ensuring that all Filipinos, especially the disadvantaged group in the spirit of solidarity, have equitable access to affordable health care.”

36. DOH Administrative Order No. 2004-185 (Establishing the Geographically Isolated and Disadvantaged Areas in Support to Local Health Systems Development). Issued to address inequity and improve availability as well as access to health resources/services in the hinterlands or far-flung areas by populations/communities that are marginalized, physically and socio-economically separated from the mainstream health service delivery system.

37. DOH-NCIP-DILG Joint Memorandum Circular 2013-01 (2013). A tripartite issuance that aims to set the guidelines that will address access, utilization, coverage, and equity issues in the provision of basic health care services to achieve better health outcomes for ICCs/IPs in the Philippines.

38. Joint Memorandum Circular No. 2913-01 (Guidelines on the Delivery of Basic Health Services for Indigenous Cultural Communities/Indigenous People). The guidelines that will address access, utilization, coverage, and equity issues in the provision of basic health care services for ICCs/IPs to achieve better health outcomes.

39. Universal Health Care /Kalusugan Pangkalahatan (AO 2010-0036). It aims to improve, streamline and scale-up previous health reform strategies in order to address inequities in health outcomes by ensuring that all Filipinos, especially those belonging to the lowest income quintiles, have equitable access to health care.

40. National Indigenous Peoples Education Policy Framework. Ensures the provision of universal and equitable access of all IPs to quality and relevant basic education services towards functional literacy for all. It also provides for adequate and culturally-appropriate learning resources and environment to IP learners. The framework subscribes to the rights-based approach which gives primary importance to the principles of participation, inclusion, and

11 empowerment. This is an important measure in achieving the country's Education for All commitments and the Millennium Development Goals.

2. ADB Safeguards Policy Statement of 2009 41. The ADB SPS fosters full respect for indigenous peoples’ identity, dignity, human rights, livelihood systems, and cultural uniqueness as defined by them. It ensures that ADB-assisted development interventions that may impact indigenous peoples will be consistent with the needs and aspirations of affected indigenous communities and compatible with their culture and social and economic institutions. This IPP recognizes the vulnerability of indigenous peoples and ensures that all project impacts will be addressed by the implementing agency. The implementing agency will ensure that affected indigenous peoples have the opportunity to fully participate in and benefit equally from project interventions.

III. SOCIAL IMPACT ASSESSMENT

A. Indigenous Peoples of the Philippines13 42. The exact number of the Philippines’ indigenous population remains unknown, but is estimated to be 15% of the 108 million national population (2019 estimate). The NCIP, the sole government agency responsible for indigenous peoples concerns, states that 61% of the country’s indigenous peoples live in Mindanao, 33% can be found in Luzon, and about 6% in the Visayan group of islands. The Summer Institute of Linguistics has documented 171 distinct languages spoken in the country. Most of them by indigenous groups, and 168 are still spoken. Indigenous people are widely recognized as vulnerable, and are often socially and economically disadvantaged. Many live in isolated communities with few government services available.

43. All of the country’s indigenous peoples had tradition-based cultures, and were politically autonomous before Spanish colonization in the 16th century. In 2002, an ADB study summarized the characteristics of indigenous peoples in the seven ethnographic regions defined by the IPRA. The following descriptions, partially culled from that document, describe the diversity of the Philippine indigenous groups. Each group has its own distinct economic, political, and social organization and degree of integration with the mainstream society. The history, current conditions and level of acculturation of these indigenous societies are important factors to consider in any development project that involves them.

44. The Cordillera Peoples (Northern Luzon). The Cordillera peoples are collectively known as the Igorot, an identity that distinguishes them from lowland Filipinos. The Igorot peoples are concentrated in the northern mountain ranges of the Cordillera Mountains, occupying the interior hills, strips of flat land along deep valleys, and plateaus.

45. Other groups such as the Tingguian, Isneg and Northern Kalinga are found in the watershed areas of the Abulag, Tineg and Chico rivers. They are largely swidden cultivators, depending on upland rice, root crops and vegetables. The Bontoc, Sagada, Ifugao, and Southern Kalinga live on mountain slopes and nearby areas, cultivating rice in both irrigated terraces and swidden fields. The Ibaloi and Kankaney live in the southern region of the Cordillera, basing a largely subsistence economy on wet and dry agriculture. In recent times, however, they have become progressively more integrated in the market economy with the growth of commercial farming of temperate vegetables.

13 ADB Draft Basic Manual for Implementing Indigenous Peoples Safeguards in Development Projects (Philippines). 2011.

46. The Cordillera peoples commonly identify themselves by the village to which they belong. Villages are usually supervised by a council of elders, which has the authority to decide on matters affecting the welfare of the community. Councils use customary laws to promote equality and cohesion among group members. There is a clearly divided social stratification based on economic affluence.

47. Indigenous groups in Region II. In northeastern Luzon, several indigenous groups, including the Ibanag, Itawes, Yogad and Gaddang, inhabit lowland areas of the Cagayan Valley. In southern parts of the region, groups including the Ilongot, Ikalahan, Isinai and Agta practice swidden farming, hunting and gathering, wet-rice agriculture and some commercial activities.

48. The rest of Luzon and Sierra Madre mountain range. The indigenous peoples of the Sierra Madre and Zambales mountain ranges in western and eastern Luzon, and the Bicol region in Southern Luzon are for the most part Negritos. Depending on their location, these groups are known as Agta, Aeta, Kabihug, or Tabagnon, among others. Most of them depend on swidden agriculture, hunting and gathering, fishing, gathering of minor forest products for sale, and wage labor for their livelihood.

49. Before Mount Pinatubo in the Zambales Mountains erupted in 1991, and destroyed all its nearby forests, Aeta women gathered wild tubers to help provide the daily food needs of the family. Women possess intimate knowledge of forest foods; they know how to process certain highly toxic wild tubers to make them edible. In the gathering of wild foods, women are in total control of the production of their resources, a fact recognized by their family and other kin groups. Traditionally hunting and gathering societies, the Negrito groups have no formal leadership structures and are constantly flexible and mobile. They no longer practice pure hunting-gathering, but they remain egalitarian societies based on family and kinship ties. Clan elders are always consulted before making community decisions.

50. Island groups. Though smaller in numbers, a wide diversity of indigenous peoples occupy parts of the Visayan Islands and Palawan in the central Philippines. They include the seven Mangyan ethno-linguistic groups on Mindoro Island; the Sulod and Ati in the mountains and remote coastal areas of Panay and Negros islands; and the Batak, Palawanon, Molbog and Tagbanua in Palawan. Most of these groups practice swidden agriculture, some hunting and gathering, gathering of minor forest products, fishing, and wage labor. The most influential members of the Island Groups indigenous communities are those who are the best public speakers and have extensive knowledge of traditional laws and customs. There is no central political authority, but the decisions reached in public meetings facilitated by these influential members of the community are recognized and respected.

51. Mindanao. The indigenous peoples in Mindanao are collectively referred to as Lumad. Depending on how they are identified, the Lumad groups number between 15 and 21. They are often broken down into different clusters, the Manobo, Bagobo-B’laan, T’boli, Tiruray, Mandaya- Mansaka, Subanen, and Mamanwa. The Bagobo mainly occupy the highlands of central Mindanao, along mountainous slopes of the provinces of Bukidnon, Cotabato and Davao. Other groups including the Manuvu, Matigsalug and Ata occupy the headwaters of the Davao, Kulaman and Tinanan rivers. The Mandaya, coastal Bagobo, Agusan Manobo and Ata inhabit coastal areas along the Davao Gulf and interior hinterlands of south-eastern Mindanao, Subanen peoples occupy the hinterlands and coastal lowlands of the Zamboanga peninsula. In the uplands of northern Mindanao, mountain dwelling peoples refer to themselves collectively as Higaonon. Most Lumad groups’ traditional livelihood activities include integral swidden farming, wetland rice cultivation, hunting and gathering, fishing, and gathering of minor forest products.

B. Distribution of Indigenous Household Beneficiaries

52. Of the 4,186,249 4Ps beneficiary households, 643,402 or 15.4% are IPs; 74% of these are from Mindanao, 23% from Luzon, and 3% from the Visayas.

53. Region XI has the highest number of IP beneficiaries accounting for 16.7% of all IP beneficiary households. This is followed by Autonomous Region in Muslim Mindanao (16.0%), Region IX (14.4%), Region XII (12.8%), and Region X (8.8%).

C. Understanding the Experience of Indigenous Peoples in 4Ps 1. Brief Ethnographic Descriptions of the Sites Visited Figure 1: Number of 4Ps IP Beneficiaries by Program

54. The sites visited during the two field trips included in the social assessment, that underpins this IPP, represent a good mix of the diverse social, economic, and physical realities of the indigenous peoples in the country. They included isolated communities with limited access to basic services, communities that are close to roads or population centers and fully integrated with the mainstream society, and communities that have some degree of integration but maintain their traditional practices in managing their affairs.

55. The first site visited was Barangay Tambobong in the Baguio District of Davao City, within the ancestral domain of the Tagabawa, Obo Manobo and Klata. There are 35 sitios14 in the barangay, some of which can only be reached by a 7- to 8-hour walk. Many of those living in the barangay center are agricultural workers for Sumifru Philippines Corporation, an agro-industrial company that operates a large banana plantation. The majority of the population in Tambobong are engaged in agriculture, planting cocoa, abaca, banana, corn, lanzones, durian, and other fruit trees. There is an integrated school and a high school in the barangay and the majority of the teachers are from Tambobong. The barangay has a health clinic staffed by DOH personnel and barangay health workers. Those who live in or near the barangay center have access to basic services including roads, electricity, water supply, health, and education. Residents are fairly acculturated due to their exposure to mainstream culture.

56. Some of the sitios, such as Luyan, are far from the barangay center, making it difficult to access government services. Because of their physical isolation, the Obo-Manobo in remote sitios are less acculturated compared to those who live in the main population center. Their physical isolation has also resulted in their exclusion from the program because they were not included in

14 In a rural setting, a sitio is a geographically separate population center of the barangay and often far from the barangay population center.

14 the household survey as potential beneficiaries. Residents of the remote sitios shared they decided not to join the program due to the difficulty in fulfilling program eligibility requirements. They did not have the required legal documents, such as birth or marriage certificates or other government-issued identification, as they had never had a need for them. For indigenous communities living in remote villages, transportation and other costs involved in acquiring the needed documents can be prohibitive. These clusters of households far from the barangay centers experience the most difficulty in accessing government programs.

57. The second field site visited in Mindanao was Barangay Sinuda in the municipality of Kitaotao, Bukidnon, known for having a large indigenous population. Out of 35 barangays, 26 are populated mainly by indigenous peoples, including the Matigsalug, Manobo, and Talaandig. The Manobo and Matigsalug have been awarded a Certificate of Ancestral Domain Title with a total land area of 102,325 hectares, which gives them full authority to manage and develop their ancestral territory.

58. Most of the residents of Barangay Sinuda are Manobo and Matigsalug. Sinuda is also where the most influential datus live.15 Many of the communities are partially integrated with the mainstream, but still maintain a significant portion of their cultural traditions. Customary laws are observed and traditional leadership roles are dominated by influential elders who have the power to institutionalize and enforce decisions in the village. Most of the communities, especially in the isolated villages, still practice buya, or arranged marriage, where often elders or husbands make the decisions concerning marriages. Early marriage was an issue identified by women during focus group discussions for two reasons: (i) children are not eligible to receive the cash grants if they are no longer in school; and (ii) children who marry early forfeit the opportunity to obtain a higher education and as a result fail to fulfill their parents’ aspirations for their children.

59. The last field visit was to the Batak community in Sitio Lakwasan, Barangay Tanabag, Puerto Princesa, Palawan. The Batak belong to the phenotype generally referred to as Negrito. They are different from the majority of Filipinos because of their dark skin, curly hair, and their strong emphasis on foraging. As hunter-gatherer horticulturists, they traditionally moved in mobile groups, planting swiddens, hunting and gathering wild food and non-timber forest products. Immediate return is a salient cultural trait of the Batak, but with access to forest resources dwindling, it has become increasingly difficult for communities to successfully maintain their traditional forest-based livelihood.

60. The Batak of Sitio Lakwasan comprise a minority in their barangay and their physical isolation and reticent nature often results in their omission from decision making processes in the barangay and municipality. Until recently, they have not felt the need to send their children to school. They believed that the forest provided the resources they needed to survive, and the western-model education their children would receive in school would be of no use to them. However, with their increasing interaction with lowland populations resulting from outsiders’ incursions into their ancestral domain, they now feel it is essential for their children to get an education. Parents said their children need to be able to read, write, and do arithmetic, so they will not be taken advantage of. During the focus group discussions, the Batak beneficiaries were shy and visibly uncomfortable to share their true feelings and insights about their efforts to meet the program conditionalities. As a result of the historical discrimination experienced by the Batak communities at the hands of non-IPs and the feelings of inferiority it has instilled, it was a challenge to get them to discuss their views on their participation in 4Ps in the presence of the non-Batak team members. It took time for them to become comfortable with the facilitator. This

15 Datu is the term for a traditional leader for most indigenous groups in Mindanao.

15 experience can be instructive for the implementation of the 4Ps program when indigenous communities are a minority, and if they are unable to effectively express themselves when dealing with non-IPs. It demonstrates that CFDS must be conducted in the community and by facilitators trusted by the beneficiaries.

61. The experience of the communities in the three visited sites demonstrate how geographic isolation, lack of the government-issued documents required for program enrollment, and discrimination are all contributing factors that lead to the exclusion of indigenous peoples from the 4Ps program. Significant gains in recent years have benefitted the indigenous peoples, including the passage of the IPRA, but the factors that have led to their present situation cannot be overlooked. These include discrimination, historical injustice marked by the dispossession of lands and resources, and denial of access to decision making. An analysis of the ways that geographic isolation, IKSP, and others cultural factors affect how 4Ps is implemented in indigenous communities can provide critical policy direction. Addressing the barriers to participation is essential to ensure that indigenous people have access to an inclusive and culturally appropriate Pantawid program.

2. Positive Impacts of 4Ps in the Context of Indigenous Peoples

62. The impacts described in this section are based on the results of the participatory workshop-style discussions conducted with 4Ps indigenous beneficiaries, non-compliant beneficiaries, non-beneficiaries, and indigenous children. To ensure that participants would be comfortable sharing their perspectives, separate discussions with women, men, youth, non- compliant beneficiaries, and non-beneficiaries were conducted.

63. Overall, the level of satisfaction with the program is high. Beneficiaries said the additional cash transfers have helped them to meet their basic needs and provided money for school uniforms and required class projects. Teachers said that children now seldom come to school hungry and enrollment of indigenous learners has increased. The beneficiaries also shared that their children receive regular checkups and immunizations, mothers are provided pre- and post- natal medical care, and family members can now go to the hospital if they get sick without worrying if they will be able to pay the bill. Common to all the sites visited is the belief that having program conditions is a positive feature of the 4Ps program. The beneficiaries shared that the conditional nature of the program forces them to ensure that their children attend school, receive regular health checkups, and that at least one of the parents participates in family development sessions. With the additional cash they receive, the parents believe that they have the responsibility to keep their children healthy and in school.

64. Impact on access to education. The 4Ps has influenced the importance indigenous parents place on the value of education. This was a common finding in all the sites visited. A teacher at Tanabag Elementary School in Puerto Princesa, Palawan shared that the enrollment of IP students has increased this year. In 2018, only three Batak students were enrolled in the DepEd school. In the 2019–2020 school year, 30 Batak students from Sitio Kalakwasan were admitted. Many of the new enrollees had been studying at a missionary-sponsored school in Kalakwasan. Because of problems with the administration and the belief on the part of the parents that the public school would offer a better education, they transferred their children to the barangay school.

65. During the discussion with DepEd personnel in Bukidnon, a high school principal said that the 4Ps conditionalities have helped lessen the school dropout rate. Parents are now doing a better job making sure their children do not miss school. Some families in isolated sitios are

16 renting a house near the high school to ensure their children can comply with the program’s 85% attendance rate requirement. Others who live near roads or passable trails purchased motorcycles (on credit) to transport their children to school.

66. All beneficiaries claimed that the additional cash they received was a big help in being able to keep their children in school. Parents said that they view education as a way to ensure their children will not experience poverty in the future. Most parents want their children to finish secondary school and get a college education. They don’t want their children to experience the hardships they experience because of a lack of education. The prevailing feeling was that investing in education is good for their children’s future.

67. The child beneficiaries also appreciate the program. They shared that on payout days, their parents usually buy bread, clothes, school supplies, and rice for the entire family. In return, the children said they make sure that they do well in school and dream of earning a college degree and getting a good job.

68. Parents said they benefit from the DepEd-sponsored Alternative Learning System (ALS). One of the program staff told how prior to the start of the program most community members used thumb marks to sign their names on attendance sheets and other documents. After participating in the ALS program, many can now sign their names to documents.

69. In summary, the program has caused indigenous parents to shift their paradigm concerning the importance of formal education. A Batak woman from Sitio Kalakwasan, Puerto Princesa captured the way they see that the program works for them: Our family income is ₱400 a week from gathering and selling almaciga resin and other on- timber forest products. As a mother, my priority is to have food for our daily survival. Because of the program, we are able to eat three times a day and can send our children to school. If my children are educated, they will be less likely to be deceived when they go to the lowlands. Aside from our children attending school, we adults are also getting a basic education through ALS. The FDSs have raised our consciousness about our basic rights, budgeting, health, and population control.

70. Impact on access to health services. The 4Ps program has increased the number of indigenous people who have access to basic health services including: (i) vaccinations, which have lessened the prevalence of communicable diseases among children; (ii) health monitoring of enrolled children, including vitamin supplementation and deworming; (iii) pre- and post-natal care for pregnant mothers; and (iii) the PhilHealth No Balance Billing policy in public health facilities has encouraged indigenous people to seek medical attention when ill. The Batak in Kalakwasan shared that their increased awareness of preventive health care and vaccinations has benefitted their community. There was a measles outbreak in 1981 that killed more than 50 children in the village. Elders said that they did not know about vaccinations in the past, but because of their involvement in 4Ps, they are more aware of health issues. Parents claim that there is less incidence of disease. They attribute this to increased access to health services and information provided by health providers, mainly the barangay health workers, who visit isolated sitios to hold mothers’ classes and administer vaccines.

71. Investing in social inclusion to improve indigenous peoples’ agency: community and family development sessions as an awareness raising strategy. Program beneficiaries are required to attend monthly FDSs where topics discussed include basic human and children’s rights, health, food security, and livelihood. For indigenous communities, the sessions are not

17 limited to 4Ps beneficiaries, but are open to the wider community, so they are called Community and Family Development Sessions (CFDS). Indigenous beneficiaries shared that the CFDS is an effective venue for raising the consciousness of the community about critical issues they face. The relevancy of the topics discussed and the information presented has encouraged both beneficiaries and other community members to attend the CFDSs.

72. The sessions have also helped to build the confidence of community members, a number of whom have become accustomed to speaking up in public during the meeting. This confidence is a valuable asset that can empower communities when they transact with government agencies or other non-IP entities. One of the indigenous women beneficiaries in Mindanao shared that attending CFDSs gave her the confidence to speak in large meetings. The session during which the IPRA was discussed proved to be an eye-opening experience for her. She realized that indigenous peoples indeed have rights, and their cultural identity is something that deserves to be valued. Even though the majority of the community members are well integrated in mainstream society, she said that during the CFDS, they realized that their traditional dress serves as a powerful symbol of their collective identity. The community lauded the value of the sessions, which they said had raised their awareness and provided the opportunity for them to develop their own voice concerning project related issues.

73. A community in Bukidnon used the CFDS as a venue to orient their youth about the importance of rituals. Traditionally, children were always in the community, so they had the opportunity to witness the elders conduct rituals; they learned by observing. Since their lives still revolved around the object of many of the rituals—the spiritual elements of the natural environment—they retained immense significance. When the children grew up, they, in turn, carried on with the rituals they had learned from their elders. Today most of the young generation are in school, and unlike their parents when they were young, the forests, the rivers, and the swidden fields are no longer the focus of their everyday lives. The young generation are more concerned with school and all it entails. The rituals do not have the same significance for them as they did for past generations. In response to the situation, the participants in the CFDS organized the tribal elders to serve as resource persons in an effort to educate the youth during a dedicated CFDS on the role and significance of rituals in their community. When the community and its leaders are involved in decision making, the topics chosen to be addressed are based on the community’s needs and the CFDS can become a tool to strengthen cultural identity in indigenous areas.

74. Aside from serving as a venue for education and awareness-raising, the CFDS provides an opportunity for community members to discuss both program-related concerns—including grievances—and other issues facing the community. During the YDS, in addition to topics such as HIV, the indigenous youth learn about their rights under the IPRA, including the right to claim their ancestral domain and their right to free prior informed consent (FPIC).

75. The case of the Batak in Sitio Kalakwasan, where the MCCT-IP beneficiaries attend the all-Batak CFDSs held in the village and the regular conditional cash transfer (RCCT) beneficiaries attend the mixed Batak-non-IP FDSs in the lowlands, is instructive. The limited participation of the RCCT beneficiaries in the sessions caused by feelings of intimidation and inferiority can be traced to historical and structurally embedded discrimination and marginalization. This is a factor that the program should not overlook when developing strategies for the delivery of family development sessions. Plans must take into consideration this IP-specific context, especially in cases where the indigenous people are a minority.

76. The link between legal identity and access to benefits. Common to all the sites visited was the realization that in order to access government services, one must have legal documentation. Community members said they were required to provide birth certificates for their children to be included in the 4Ps program. Since most of the children did not have birth certificates, program staff assisted them to avail of delayed registration. This is an example that demonstrates how geographic isolation can make indigenous peoples practically invisible, which results in no, or limited access, to basic services. The opportunity to be registered represents the recognition of indigenous peoples’ right to be included as part of the larger society.

77. Improving livelihoods, improving lives. In addition to the educational assistance provided by the program, the MCCT-IP beneficiaries appreciate the livelihood component. Specific livelihood programs under MCCT-IP are identified by the communities, and only those projects that are suited to the economic, social, and cultural situation of the indigenous communities will be funded. Prior to initiating a livelihood program, community facilitators (CF) will assist in identifying the most urgent needs of the community by conducting a participatory livelihood opportunity analysis. After the needs have been identified, the CF will develop a project proposal. In Sitio Kalakwasan, Batak men received a subsidy to establish backyard gardens and almaciga seedlings for planting. In Tambobong, Davao City, the Obo-Manobo and Klata communities identified fruit tree seedlings and agricultural inputs for livelihood assistance. Beneficiaries planted cacao seedlings & vegetables; they also received fertilizers and farm implements, including sprayers, shovels, and hoes. During the field visit, participants in the program were happy to report that the crops they grew with the inputs provided by the program had provided additional income and which they used to further support their children’s education.

78. Facilitating meaningful participation of indigenous peoples in 4Ps. It is crucial for non-IPs working with indigenous communities to understand that indigenous peoples have cultures distinct from that of the mainstream society. They must appreciate what those distinctions are, and how they affect beneficiaries’ participation in the program. Indigenous forms of social organization, livelihood strategies, beliefs, and cultural practices which define their collective identity are rooted in their physical and spiritual relationship with the territories they occupy. This is a reality that may be difficult for non-IPs to grasp, but in an effort to be inclusive, 4Ps has taken steps to recognize and integrate indigenous peoples’ culture in its program design. Over the last 5 years, this has taken the shape of MCCT-IP, which has made adjustments to regular program strategies based on an analysis of the major barriers to the meaningful participation of indigenous peoples in 4Ps. It is considered a major adaptation designed to make the program truly culturally sensitive.

D. Level of Vulnerability and Risks Experienced by Indigenous Peoples in 4Ps

79. Being indigenous and a woman in the mainstream society. Indigenous people experience discrimination on the basis of their social, political, economic, and cultural practices. Indigenous women experience discrimination on two fronts—as members of indigenous cultural communities and as women. Indigenous women often face discrimination if they are illiterate. There are indigenous women who are reluctant to visit health care facilities to receive pre- and post-natal care because they are humiliated by the way they are treated by some health workers. They do not have access to information regarding reproductive or other health issues, because it is seldom provided to them in a form they can understand.

80. Based on the 4Ps experience it is very clear that indigenous communities have approaches to health and education that are sometimes in conflict with government policies. Indigenous women have culture-based notions of body and health; they have beliefs and

19 practices concerning pregnancy, childbirth, mothering and childcare that are often very different from those held by mainstream society. In many cases, health care services providers are either not aware of these beliefs and practices, or are familiar with them, and consider them inferior and backward. As a result, women’s health needs are not provided for in a culturally appropriate manner.

81. Indigenous women experience discrimination when service providers do not respect indigenous health care practices. As an example, the government requires women to give birth in a medical facility that can provide proper care in case of a medical emergency. However, many indigenous women are not used to standard medical procedures utilized by health professionals before, during, and after birth. Raised in a culture with different values than those of the mainstream, many indigenous women do not want to be seen undressed by the doctors and health practitioners during the delivery, often opting to give birth in their homes attended by a traditional midwife from their community.

82. Geographic location is a barrier for indigenous women living in isolated communities that often makes it difficult to comply with the program conditionalities. Indigenous women may be vulnerable during the day they receive their cash allotment, since some must walk long distances to reach the payout location. There are cases during the rainy season that women have taken risks crossing flooded rivers in order to comply with the program conditions. The issue of women’s safety must be considered, especially those living in isolated communities.

83. During discussions in Sinuda, Bukidnon, an indigenous mother shared that she was now considered non-compliant and might be removed from the program. Her daughter is no longer in school as it was decided by the tribal leaders and elders that she should follow the customary practice of arranged marriage. The mother wanted her daughter to finish her studies, but the marriage had been arranged by the village elders. As a woman, it would have been difficult for her to go against their customary laws, which could have led to conflict and punishment. It is important for program implementers to understand the situation of indigenous women and their role and status in their society. Gender analysis must be interpreted in the context of indigenous cultures and take into consideration their indigenous customary laws and practices. To be truly inclusive, the program must explore culturally appropriate options to address hindrances to the fulfillment of program conditionalities.

84. The 4Ps program strives for gender equality, and encourages indigenous women to actively participate in program-related decision making bodies. Women have the opportunity to voice their concerns, and make suggestions for improving the program to better meet the needs of women and children. Their involvement in decision making has the positive effect of making women visible in development programs and proving they have the capacity to represent their interests not only in the household, but also in the public domain. Their experience in 4Ps has been instrumental in building indigenous women’s confidence to assert themselves, especially in public spaces.

85. Parent leaders shared that program-related tasks can be overwhelming, as they are required to fulfill multiple roles in both the family and in the community. They have the responsibility of keeping track of their group members, and making sure they can comply with all the program requirements, reminding them of the program activities, and relaying grievance to the assigned CF. They have the task of explaining the program conditionalities to the customary leaders and how those requirements must be met.

86. Because traditional practices involving health are still widely observed, health is a sensitive issue in Manobo-Matigsalug communities in Sinuda. Parent leaders want to make sure that the program conditions are not in conflict with their traditional birthing practices to avoid being punished by the customary leaders. As parent leaders, they play the role of cultural translator, ensuring that indigenous women are comfortable giving birth in government facilities and the newly born child is registered with the local registrar. MCCT-IP recognizes and respects the role of traditional midwives and other cultural practices in relations to health and education. The adjustments it has made in the program to accommodate these aspects of indigenous culture represent best practices that need to be documented.

87. Voices of indigenous non-beneficiaries and reasons for exclusion in 4Ps. During the field visits, some of the non-beneficiaries shared the reason they were not included in the program is because they were not home during the enumeration of eligible households (Listahanan). When the enumerators visited the village, the Matigsalug-Manobo non-beneficiaries were at their swidden fields, where they stay for extended periods during the planting season. The Batak said they were in the forests gathering resin and honey during the enumeration.

88. Some of the non-beneficiaries living in remote sitios shared that they were unaware of the household survey as they live far from the barangay center. They said that they did not receive information about the program, and only became aware of it when they learned that some of their relatives where receiving cash grants. Others said that they heard there would be a meeting, but was not aware of the exact date. Some non-beneficiaries were still single during the survey. Others were newly married, but their children were not yet of schooling age, so they were not included.

89. When asked how they feel about not being included in the 4Ps, non-beneficiaries said they are disappointed, as they have difficulty meeting the financial obligations of their children’s schooling. They said that they are jealous of the benefits being received by those enrolled in 4Ps, especially as their economic situations are identical. One of the participants said that she felt guilty when her children asked her why they were not enrolled in the program seeing that their 4Ps-enrolled cousins have new notebooks and school uniforms.

90. The Batak non-beneficiaries shared they regret not being included in the program, but they have already accepted the fact saying it is all in the past and cannot be changed. They also said they envy the beneficiaries because they have money to buy rice. They felt, that by being left out, the program was being selective. However, they said that on payout days, beneficiaries share some of their money with those who are not included in 4Ps. Sharing plays a prominent role in the culture of the Negrito groups. During a focus group discussion, Batak children confirmed that what their parents bring home on payout days, including bread and other food items, they share with their non-beneficiary classmates. Even though they are able to partake minimally in benefits through the sharing of the beneficiaries, qualified non-beneficiaries still very much want to be included in 4Ps. They understand the required documents, such as birth certificates, will take effort to obtain, but there are community members who know the process and can help them.

91. Because their subsistence income is often stretched thin with the extra expense of sending their children to school, non-beneficiaries in all the sites visited said they want to be included in the program. Many have approached their tribal leaders and parent leaders asking to be included in 4Ps, and they say they are willing to comply with the program conditionalities.

92. Parents generally place a high value on their children’s education. They say they want their children to be literate, not like their parents, who are unable to read or write their names.

They say farm incomes are unstable, so they would like their children to get jobs with a regular salary. They also hope that there will be more indigenous people from their community who will become teachers and return to the village to teach the children. They say they take pride seeing their children succeed in school and believe education is a treasure that can’t be stolen.

93. Reasons for non-compliance. During focus group discussions, non-compliant beneficiaries shared that one of their fears had always been not meeting the program conditions, which would result in being classified as non-compliant and ultimately removed from the program. Of the non-compliant beneficiaries consulted, some had already lost their benefits, and others were still making attempts to fulfill the program requirements. The reasons given for non- compliance with the health conditionalities include non-attendance during scheduled visits to health centers and other activities and relocation of the beneficiary to a different village or location. For the education conditions, the following were the most commonly stated reasons for non- compliance: (i) difficulty keeping children in school because of lack of motivation (absenteeism); (ii) children who live far from the school facilities incur frequent absences because of inclement weather and difficulty travelling; and (iii) children help with farm work, especially during harvest season, which keeps them from attending class. In partnership with DepEd, efforts are being made to adapt the program to the needs of indigenous learners through schemes such as the ALS, and Alternative Delivery Mode.

94. Community facilitators emphasized the importance of home visits to gain a better understanding of the real causes for non-compliance. Children living in remote areas have to leave their house early in the morning to be on time for school, and arrive home late. There are instances when children cannot comply with 85% attendance requirement during the rainy season, because it would be too dangerous to attempt to cross swollen rivers. There was a case in Mindanao where a female student was raped on her way home from school, causing her to drop out of school. While cases like this are rare, they point to the risks girls sometimes have to face when forced to walk long distances to and from school. Women and children living in geographically isolated areas are more exposed to vulnerabilities in meeting the program conditionalities than those who live closer to the main population centers.

95. During one of the focus group discussions (FGDs) in Mindanao, indigenous women reported that it is an 8-hour walk for them to reach the closest road, so getting pre- and post- natal care, and moreover giving birth in a government health center, is often a major challenge. It is risky for expectant mothers to travel long distances over rough roads or trails on a motorbike. There are four documented cases of women who died while attempting to reach the birthing facility. This is a sad situation that needs attention.

96. Issues of discrimination and inequality. The issues of discrimination, bias, and stereotype experienced by indigenous peoples in the program have their roots in the structural causes of marginalization. Discrimination is manifested in the lack of access to basic services. The lack of information about 4Ps, invisibility in demographic data, an inadequate targeting system, and individual prejudices are some of the expressions of discrimination that can result in the exclusion of indigenous people from the program.

97. During discussions with health providers and program staff about indigenous health knowledge and practices, a common response was that 4Ps has been instrumental in improving indigenous peoples’ personal hygiene. One of the service providers shared that the IPs are now gradually conforming to mainstream cultural values in terms of personal hygiene. This was affirmed by one of the program staff, who stated: “They have really improved because of the 4Ps program. When they attend meetings, they now comb their hair and they take a bath.” During an

22 informal discussion, an indigenous woman said that she makes sure to take a bath and wear clean clothes when she goes to the lowlands to avoid unpleasant reactions from non-IPs. She recounted the time she was offended when one of the service providers covered his nose during a meeting. The offensive odor was coming from a garbage pile near the venue (which was in town), not from the participants. With the fear of being discriminated against, many indigenous people become conscious of their personal hygiene and appearance, especially when dealing with non-IPs.

98. While personal hygiene and cleanliness are important, it appears that program facilitators and health providers need to assess whether their approach to addressing health practices is informed by unconscious biases or hidden transcripts that they are unaware of. To address issues of discrimination and inequality, culture sensitivity training for health providers should include sessions to help them understand how they may unconsciously impose their own personal standards concerning hygiene and cleanliness on indigenous communities. This IPP will provide guidance and develop strategies to address issues of discrimination and inequality.

E. Perceptions of Indigenous Peoples in RCCT and MCCT-IP 99. This section will analyze the following aspects of the RCCT and the MCCT programs in the context of indigenous peoples: (i) whether the program ensures the inclusion and participation of indigenous peoples; and (ii) whether the project design incorporates culturally appropriate approaches to address the needs and improve the well-being of target indigenous groups.

100. The program design: two program strategies in the same IP community. The 4Ps program has been criticized for not reaching out to the poorest of the poor because the targeting system—Listahanan—was flawed. In an effort to remedy the situation, the Modified Conditional Cash Transfer (MCCT) program was launched in 2014. MCCT extends 4Ps to eligible households not currently covered by the regular CCT program. It targets (i) homeless street families, which includes families who live and work on the streets without permanent housing; (ii) indigenous people in geographically isolated and disadvantaged areas (IP-GIDA); and (iii) families in need of special protection, to include disaster stricken families and other vulnerable groups.

101. Due to their physical isolation, far-flung indigenous communities lack, or have very limited access to, basic services, and have no opportunity or power to influence many policies and circumstances that affect their lives. Their societies operate in accordance with customary laws and indigenous beliefs concerning health and education that are still widely held. Since they have minimal interaction with the mainstream population, these indigenous knowledge systems and practices function to meet the needs of the community, but the situation is changing. The government is making an effort to reach out to these geographically-isolated communities to improve their access to basic social services including health, nutrition, and formal and non-formal education.

102. To be more responsive to the needs of indigenous peoples and to be able to reach more isolated communities, in 2014, the 4Ps program piloted the MCCT for IPs in GIDAs. The goal was to allow for the meaningful participation of indigenous peoples, and ensure that the program is implemented in a culturally-appropriate manner. The program was conceived with the recognition that because of their geographic isolation and limited access to health and educational facilities, it was difficult for isolated communities to comply with program requirements. Initially a pilot project, MCCT-IP was expanded to a national scale based on the program’s positive results. The piloting of the strategy produced good practices and lessons learned for engaging indigenous communities in a culturally-sensitive manner.

103. Revisiting the regular and the modified CCT. Table 1 shows that both RCCT and MCCT have the same program conditions for the health and education packages, but the MCCT-IP has an emphasis on integrating indigenous knowledge systems and practices (IKSP) to ensure health and education conditions can be complied with (for example, in some areas when indigenous women give birth in a health facility they are accompanied by a trusted traditional midwife). Unlike the RCCT, the MCCT-IP does not limit the family development sessions to beneficiaries, but opens them to the wider community. With MCCT-IP, the government has made an honest effort to be inclusive and responsive to the needs of indigenous peoples, especially those who live in remote areas. The initiative constitutes a recognition that indigenous people have suffered from historic injustice, discrimination, and isolation, and that the problems they face are multi-faceted.

Table 1: The RCCT and MCCT-IP Program Design RCCT MCCT-IP Enable poor households to meet certain human Recognizing the importance of developing a development goals, particularly involving health and culturally sensitive and inclusive Pantawid education outcomes. The program aims to break the program,16 the MCCT-IP aims to: (i) intergenerational cycle of poverty. demonstrate respect for indigenous peoples’ unique social and cultural situations; (ii) The provision of cash grants is dependent on the integrate IKSP strategies to ensure the health, fulfillment by beneficiaries of the program education and CFDS conditionalities will be met conditionalities. by indigenous beneficiaries.

Program package includes: Utilizes strategies that fit the social and cultural • Health conditions of geographically isolated indigenous • Education communities. Because of their isolation, limited • Family Development Sessions access to basic services, and lack of agency to • Sustainable Livelihood Program influence government policies, the MCCT-IP has made targeted program adjustments to effectively involve indigenous men, women, and children. These adjustments aim to ensure that indigenous communities participate meaningfully in the program by (i) using the sitio as the basis for implementation, (ii) utilizing the convergence approach, and (iii) mobilizing indigenous institutions to enhance program activities.

The MCCT-IP livelihood component utilizes the SSI scheme.

Community Family Development Sessions include members of the wider community. CFDS = Community Family Development Sessions, IKSP = Indigenous Knowledge Systems and Practices, IP = Indigenous Peoples, MCCT = Modified Conditional Cash Transfer, RCCT = Regular Conditional Cash Transfer, SSI = Support Services Intervention.

104. The experience of indigenous peoples with RCCT and MCCT. The Aeta Magbukun of Bataan and Batak of Palawan are collectively referred as Negritos. Both comprise the minority population in their respective barangays, and are in hard-to-reach areas. Both have RCCT and MCCT being implemented simultaneously in their communities.

16 Guidelines for the Pilot Implementation of MCCT-IP in GIDA (2014)

105. The Batak of Sito Kalakwasan are a minority in the area in terms of population, so the 13 RCCT beneficiary households usually join the 4Ps activities with non-Batak beneficiaries in the lowlands. They say they find complying with the program conditions problematic because their geographic isolation makes it difficult for them to access the elementary school and health center in the barangay center, where the FDSs and other meetings are held.

106. The distance and the 11 river crossings between Kalakwasan and the barangay center are a hindrance, especially in the rainy season when the swollen river makes travel dangerous or impossible. During hunting, planting and harvesting seasons, the Batak RCCT beneficiaries are notably absent from required activities. They shared that during FDSs, they do not mix with the larger group because: (i) they are not comfortable with the language being used during the sessions, (ii) the presence of non-IPs makes them uneasy, and (iii) they do not have the confidence to speak up in the presence of non-IPs. As a result, their concerns can be overlooked and their inability to express themselves has made them vulnerable. They said with MCCT-IP, however, the CFDSs are usually held in Kalakwasan and participants from the sixteen households enrolled in that program do not experience the same reticence during the sessions as those in the RCCT program. They are comfortable attending meetings in their own village and feel free to share among themselves in the absence of non-Batak beneficiaries.

107. In Sitio Kanawan, Bataan, the Aeta Magbukun are also a minority in the barangay. Households that were not included in the original household survey (Listahanan) were incorporated in MCCT-IP. The MCCT beneficiaries said that they have to fulfill the same conditionalities as the RCCT beneficiaries, but those in the RCCT program said they would like to receive livelihood support similar to that provided the MCCT-IP beneficiaries. This is a classic example of the failure of the targeting system to identify potential beneficiaries. As a result, MCCT- IP and RCCT are both being implemented in the same indigenous community, causing households to compare the benefits provided under the two separate implementations of the CCT program.

108. The Batak and the Aeta Magbukon cases demonstrate how having two CCT schemes implemented in the same indigenous community can be problematic, causing confusion among the beneficiaries. The Support Services Intervention (SSI) is one of the modifications adopted by MCCT-IP that provides additional cash for community-initiated projects or communal income generating activities. For RCCT, the livelihood component is under a different scheme, the Sustainable Livelihood Program (SLP), which offers two tracks, micro-enterprise development and employment facilitation. In Kalakwasan, the Batak formed a community cooperative under SLP, but they felt the SSI livelihood component of the MCCT-IP, which included the purchase of farm animals, was more suited to their needs. Beneficiaries would not share outright that there is an element of jealousy involved, but indeed comparisons were made of the benefits offered under the two schemes, especially involving the livelihood component. In one of the discussions, RCCT beneficiaries said that they would prefer to be transferred to the MCCT-IP program. This sentiment was also expressed by RCCT beneficiaries in Mindanao in indigenous communities where both schemes were also being implemented simultaneously.

IV. INFORMATION DISCLOSURE, CONSULTATION, AND PARTICIPATION

A. Consultation and Participation During IPP Preparation 109. In the preparation of the IPP, several data gathering techniques were adopted to ensure the perspectives of the RCCT and MCCT-IP beneficiaries, non-beneficiaries, non-compliant, local

25 government officials, and service providers are represented in this IPP. The following data gathering methods were employed: (i) Facilitated workshop-style sessions incorporating dialogical methods were incorporated throughout the data gathering process. (ii) Individual and group interviews provided an understanding of the issues raised during the participatory workshop sessions. (iii) Informal conversations during the field work provided insights on the social and cultural contexts of the indigenous communities visited. (iv) Ethnographic observations furnished an overview of the cultural dynamics in the communities. (v) A review of documents allowed an analysis of the level and quality of participation of indigenous peoples in the CCT programs.

110. Non-traditional data gathering methods that include story telling were used, so indigenous people would feel comfortable sharing their experiences and opinions about 4Ps. The main objective of the FGDs was to capture the experiences of the different stakeholders, and solicit their ideas for how to develop a culturally-appropriate CCT in the context of indigenous communities.

111. Table 2 details the activities conducted in Obo-Manobo and Klata communities in Barangay Tambobong, Davao City and with the Matigsalug community in Barangay Sinuda, Kitaotao, Bukidnon.

Table 2: Activities Conducted in Davao and Bukidnon DATE ACTIVITY PARTICIPANTS Day 1: 6 June 2019 Courtesy call with DSWD’s Regional Director, Region XI, Davao City Regional Program Coordinator Male: 3 Meet with IP Focal (RCCT and MCCT), Monitoring and Female: 16 Evaluation team at the RPMO Total: 19 Courtesy call with MSWDO Discussion with service providers, Municipal Link, and Community Facilitator Day 2: 7 June 2019 Discussion with Municipal Action Team (DepEd Tambobong, Davao City Division Office Superintendent) and Health Office Male: 20 (Baguio District Office) Female: 72 Courtesy call with Barangay Captain and IP leaders Total: 92 FGD with RCCT Program Beneficiaries: 10 IP men Focus Group Discussion with RCCT: 10 IP women Key Informant Interview (KII) with the Community Facilitator Day 3: 8 June 2019 FGD with MCCT program beneficiaries 10-12 IP men Sitio Luyan, Tambobong FGD with MCCT IP women (10-12 participants) Male: 26 FGD with children beneficiaries (mixed group boys and Female: 27 girls) Total: 53 Discussion with non-beneficiaries Day 4: 9 June 2019 Visit Toril- Community Organizing Pilot area MCCT Toril, Davao City Discussion with key leaders and program beneficiaries Male: 27 Travel from Davao to Kitaotao, Bukidnon Female: 48 Total: 75 Day 5: 10 June 2019 Courtesy call LGU/MSWDO in Kitaotao Sinuda, Kitaotao KII with teacher (assigned Pantawid focal) and health Male: 25 (assigned Pantawid focal) Female: 98 Courtesy call and KII (Bgy captain and IP leaders) Total: 123

DATE ACTIVITY PARTICIPANTS FGD with RCCT Program Beneficiaries: 10 IP men Focus Group Discussion with RCCT: 10 IP women Discussion with non-beneficiaries Day 6: 11 June 2019 FGD with MCCT program beneficiaries 10-12 IP men Sitio Pinanabuan FGD with MCCT IP women (10-12 participants) Male: 34 FGD with children beneficiaries (mixed group: boys and Female: 61 girls) Total: 95 Day 7: 12 June 2019 KII with CF (MCCT), ML (RCCT) Kitaotao to CDO Male: 7 Female: 11 Total: 18 Day 8: 13 June 2019 Exit Meeting with RPMO X with RD, RPC, IP Focal, Cagayan de Oro MCCT Focal and M and E DSWD, Region X Male: 5 Female: 4 Total: 9 CF = Community Facilitator, DepEd = Department of Education, DSWD = Department of Social Welfare and Development, FGD = Focus Group Discussion, IP = Indigenous Peoples, KII = Key Informant Interviews, LGU = Local Government Unit, MCCT = Modified Conditional Cash Transfer, ML = Municipal Links, MSWDO = Municipal Social Welfare and Development Officer, RCCT = Regular Conditional Cash Transfer, RD = Regional Director, RPC= Regional Program Coordinator, RPMO= Regional Project Management Office.

112. After the field visits in Mindanao, where most indigenous communities comprised the majority in their barangay or municipality, the IP consultant suggested conducting another field visit to an area where indigenous people are the minority population. It is important to understand how these communities participate in the 4Ps and to compare how the program is implemented vis-à-vis in areas where indigenous communities constitute the majority. To gather this data, DSWD suggested visiting a Batak community in Palawan. Table 3 details the activities conducted during the field visit to Barangay Tanabang, Puerto Princesa, Palawan.

Table 3: Activities Conducted in Palawan DATE ACTIVITY PARTICIPANTS Day 1: 9 July 2019 Meet with RPC and Regional Focal (MCCT, IP, M&E, DSWD FO CB, GAD, FDD) MIMAROPA • Discuss the level of participation and experience of Paco, Manila IP beneficiaries in RCCT Male: 2 • Understand the Pantawid implementation (RCCT Female: 3 and MCCT involving IPs) Total: 5 Courtesy Call with Regional Director Finalize data gathering with M&E team and RPC (impact evaluations, IP data and modules) Day 2: 10 July 2019 Travel to PPC Courtesy Call with LCE of PPC and Discussion with LGU, Puerto MSWDO Princesa City Day 3: 11 July 2019 Discussion with Municipal Links and Community Brgy. Tanabag, Facilitators PPC • Discuss the level of participation and experience of Male: 6 IP beneficiaries in RCCT Female: 19 • Understand the Pantawid implementation (RCCT Total: 25 and MCCT involving IPs) • Obtain data from the team (IP data, modules, and impact evaluations)

DATE ACTIVITY PARTICIPANTS Courtesy Call with Brgy. Captain and IP leaders Discussion with service providers (Education and Health) Discussion with IP beneficiaries (RCCT) Discussion with non-beneficiaries Day 4: 12 July 2019 Discussion with Non-beneficiaries (Batak Tribe) Sitio Kalakwasan, FGD with IP beneficiaries (10 Men): RCCT Brgy Tanabag FGD with IP beneficiaries (10 Women): RCCT Female: 30 FGD with non-compliant beneficiaries (RCCT/MCCT) Male: 25 FGD with Children beneficiaries (Grade 4-5 to 1st year Total: 55 high school): RCCT-MCCT CB = Capacity Building, DSWD FO = Department of Social Welfare and Development Field Office, FDD = Family Development Division, FGD = Focus Group Discussion, GAD = Gender and Development, IP = Indigenous Peoples, LCE = Local Chief Executive, LGU = Local Government Unit, MCCT = Modified Conditional Cash Transfer, MIMAROPA = Region IV-B, MSWDO = Municipal Social Welfare and Development Officer, M&E = Monitoring and Evaluation, PPC = , RCCT = Regular Conditional Cash Transfer, RPC = Regional Program Coordinator .

B. Key Issues Critical for the Design of a Culturally Appropriate CCT for IPs

113. Indigenous beneficiaries expressed satisfaction with 4Ps, claiming the program has helped keep their children in school, improved their health status, and increase awareness among parents through participation in FDSs. There was no instance witnessed of any stakeholder opposing the project in any manner. The common opinion shared during the FGDs was that the program should be expanded to reach out to more indigenous households. Aside from the positive impacts of the project, barriers to the implementation of a truly culture responsive CCT for IPs were identified.

114. The 4Ps program has endeavored to make 4Ps inclusive and responsive to the needs of indigenous peoples. Understanding the barriers and addressing the gaps to inclusivity is essential to contextualizing the program to fit the social and cultural realities of indigenous communities. Following are barriers and gaps in program implementation identified during the field visits.

1. Lack of National Data on IPs for the Targeting Process

115. One of the challenges of 4Ps is the Listahanan targeting system, especially in the case of indigenous peoples where their exact numbers and locations are not known. NCIP estimates that indigenous peoples comprise approximately 15% of the country's population. However, in the absence of reliable data on who, where, and how many indigenous people there are, the role of indigenous institutions and traditional leaders becomes crucial in the identification of indigenous beneficiaries for the MCCT-IP program. Their involvement is vital for the realization of an inclusive 4Ps for indigenous peoples. In some areas, NCIP provincial offices and community service centers can also be a source of local information on the location and approximate number of indigenous communities.

116. DSWD is determined to ensure that all poor households will be surveyed in the next iteration of the National Household Targeting System, Listahanan 3. The revised targeting scheme puts more emphasis on reaching out to indigenous peoples, especially those who live in isolated communities. The initiative includes a GIDA outreach program that will inform communities of the purpose and time frame of the Listahanan 3 survey.

117. DSWD staff at the national office report that, under Listahanan 3, there will be improved coordination and communication among the National Household Targeting Office, Social Marketing Division, and MCCT-IP. Under review is the current policy that states if an enumerator visits the home of an eligible household three times, and no one has been available to be interviewed, the target poor household will not be included in the Listahanan. This policy clearly affects IP households, especially during planting and weeding season when many stay in a secondary house on their swidden farm for an extended period of time.

118. It is crucial that all poor households are surveyed, especially indigenous communities in remote areas. During FGDs, non-beneficiaries shared that they want to be included in the new survey, and will make the time to be interviewed if they know when the enumerators will be in their area.

2. Geographic Isolation and Issues of Access 119. Many indigenous communities are geographically isolated and far from the closest road. There have been gains in recent years to provide access to basic services such as schools, day care centers, and health clinics, but they have mostly been established in the more accessible barangays and sitios. These communities that have had more interaction with mainstream society are generally more acculturated. Indigenous communities in the extremely remote areas where there are no roads and people only have minimal interaction with the mainstream population lack these basic services.

3. Indigenous Peoples’ Experience in MCCT-IP and RCCT 120. Some indigenous beneficiaries shared that they were not included in the original household survey (Listahanan), and were, therefore, incorporated in MCCT-IP. They said that they have to fulfill the same conditionalities as the RCCT beneficiaries to receive cash grants for health and education, and have to attend the family development sessions. On the other hand, those in the RCCT program said they would like to receive livelihood support similar to that provided the MCCT-IP beneficiaries, who felt the livelihood component was an important part of the program. In some instances, MCCT-IP and RCCT are both being implemented in the same indigenous community, causing households to compare the benefits provided under the two separate implementations of the CCT program. Having two schemes simultaneously in one indigenous community can cause confusion and comparison of benefits.

121. With the RCCT program, indigenous beneficiaries are combined with non-IP beneficiaries. The case of the Batak in Sito Kalakwasan demonstrates the disadvantage of this arrangement for minority IP communities that have a minimal level of integration with mainstream society. The Batak shared that during FDSs, they do not mix with the larger non-IP group because: (i) they are not comfortable with the language being used during the sessions, (ii) the presence of non-IPs makes them uncomfortable, and (iii) they do not have the confidence to speak up in the presence of non-IPs. As a result, their concerns can be overlooked and their inability to express themselves has made them vulnerable. They said with MCCT-IP, however, the CFDSs are usually held in the sitio, and participants from the 16 households enrolled in that program do not experience the same reticence during the sessions as those in the RCCT program. They are comfortable attending meetings in their own village, and feel free to share among themselves in the absence of non-Batak beneficiaries.

4. Caseload of Pantawid Staff 122. In 4Ps program, staff who handle individual beneficiaries under the RCCT scheme are called municipal links (ML); under MCCT, they are called community facilitators (CF). The case load for MLs is 1:800, while for CFs, it is 1:300. MLs said that their heavy case load leaves insufficient time to devote to specific cases. With the overwhelming task of administering 800 beneficiary households, they have limited opportunity to interact with indigenous beneficiaries who often live in geographically-isolated areas. A minimal transportation allowance and no hazard pay also serve as barriers that prevent MLs from reaching out to their indigenous beneficiaries.

123. The MLs said that management should review the balance between their case load and reporting requirements, especially with the amount of paperwork they are expected to accomplish. They feel that part of the time they spend accomplishing reports could be better spent on other tasks critical to the success of the program.

5. Implementation and Monitoring Compliance with the IPP 124. The National Project Management Office (NPMO) and Regional Project Management Offices are familiar with the IPP Framework and the IPP, but there is a knowledge gap when it comes to the MLs and CFs. They are aware of the need to involve indigenous peoples and consult indigenous communities, but are not familiar with the IP. Further, there is no system in place for monitoring IPP compliance. There is no localization of plans, especially at the municipal level. The IP unit in the national MCCT division is in charge of monitoring the IPP and making sure that it is implemented regionally through the IP focal persons. At the moment, the IP unit is staffed by only one person. There are IP focal persons in the regional offices, but it is quite a challenge to coach and mentor all municipal level project staff. The CFs, however, shared that they receive technical assistance and mentoring from the IP focal person through phone conversations.

C. Consultation and Participation Mechanisms during Program Implementation 125. The IPP is designed to ensure that indigenous communities continue to be meaningfully consulted, and actively participate in the implementation of 4Ps. Meaningful consultation is one of the most vital features of the ADB IP safeguards. It is a process that ensures that the issues and concerns of indigenous peoples are heard, recognized, and responded to by the program implementers. Meaningful consultation involves the recognition of the right of indigenous peoples to be informed and consulted, and to exercise their option to accept or reject the program. Program staff will utilize culturally-appropriate consultation methods, and provide a venue for indigenous communities to engage in a critical analysis of unintended consequences of the program on their values, culture and traditional practices. The consultation process will allow communities to reach a truly informed decision of whether they wish to participate in the program.

126. The program will have additional facilitation requirements for extremely isolated indigenous areas where traditional values are still practiced. The process will help the community to critically examine if the introduction or increase of cash in the household may lead to the erosion of traditional values and practices. The IP unit will ensure that the following consultation requirements are in place:17 (i) Recognize the indigenous political structure of the indigenous community, and conduct a small group discussion with the customary leaders. Provide them with relevant and adequate information about 4Ps for them to be able to analyze the

17 J. Austria-Young. 2017. Consultations and Participatory Planning for Development Projects Involving Indigenous Peoples: prepared for the ADB and World Bank Training on IP Safeguards. Philippines.

positive and potential unanticipated long- and short-term negative impacts of the program on their culture. (ii) The customary leaders will organize a community consultation together with the project team. If the project team conducting the consultations is from a different ethnic group than that of the community, they should establish a close relationship with the customary leader or members of the indigenous community, or someone who is familiar with their culture and language that can be trusted to fully explain, translate, and interpret all aspects of the project for the community. (iii) Use simple language during meetings to clarify project concepts, and ensure the objectives are thoroughly understood. This often requires things be explained and repeated many times during multiple meetings. Make use of storytelling and local materials in presenting the project information. (iv) After the program has been thoroughly explained and it is determined that the majority of the community has gained adequate understanding of its goals, components, and conditionalities, they will be asked to discuss and decide whether they want to participate in 4Ps. If they need more information before they decide, they can ask the 4Ps team to hold additional meetings to further explain different aspects of the project. (v) Allocate enough time for the community to decide. (a) If the indigenous community asks for additional time, the 4Ps team will allow the time needed to make an informed decision. The indigenous community and the 4Ps team will agree on the time and venue for an additional round of discussions or to receive the decision reached by the community. (b) If there are disagreements among community members, the community must resolve whatever issues exist. The 4Ps team will document the major disagreements, and allow time for the community to reach a decision. (vi) Documentation of formal expression of support or objection to the project will include the following: (a) A summary of issues raised and opinions expressed during consultations that may include minutes of meetings with elected local government officials, the council of elders, women, and youth. (b) The process by which the majority of the involved indigenous community gave their approval, either through their traditionally recognized representatives or during a community meeting attended by the majority of households. (c) The final, formal result of the meeting detailing the decision of the involved indigenous group can be in a form of a tribal resolution attaching the minutes of the community consultation.

D. Information Disclosure

127. Disclosure of project information will be made available to the indigenous communities and beneficiaries in the form of leaflets or brochures translated into the local language. For indigenous communities where a large number of the adults cannot read, materials will be produced in popularized form throughout the project’s duration. In addition to printed material, project implementers will use visual presentations and other culturally appropriate means to share pertinent project information.

128. The monitoring reports on IPP implementation will also be posted on the ADB website. Summaries of the monitoring reports will be posted in barangay offices and tribal halls, and delivered to IPs through their tribal representatives.

V. PROJECT IMPACTS AND MITIGATION MEASURES

A. Project Impacts on Indigenous Beneficiaries

129. The IPP provides guidance to guarantee culturally-appropriate program implementation for indigenous beneficiaries, and to develop measures to minimize and mitigate any unavoidable adverse impacts. Table 4 describes the identified potential positive and negative impacts, as well as the measures to mitigate the unavoidable negative impacts. The suggestions and concerns of indigenous beneficiaries documented during the social investigation conducted in preparation for the formulation of this IPP were taken into consideration in developing the proposed measures specified in the table. The goal is to ensure indigenous beneficiaries receive social and economic benefits that are culturally-appropriate and gender-responsive.

Table 4: Potential Positive and Negative Impacts of the 4Ps on Indigenous Peoples Outputs Anticipated Positive Anticipated Negative Proposed Mitigation Measures Impacts Impacts Timely social At least fifteen percent Indigenous peoples Ensure that national and regional transfers of the eligible and may not avail of the IP focal persons have a thorough delivered active 4Ps households education and health understanding of the diversity of effectively receiving cash grants grants which can indigenous cultures and possess are indigenous result in social the ability to develop culturally households. exclusion. appropriate strategies, avoiding a one-size-fits-all approach. Cash transfers at the For geographically higher rates laid down isolated indigenous Strengthen the consultation in the 4Ps law help the communities, process that allows IP indigenous households increasing the communities to critically analyze improve their presence of money in the unintended consequences of children’s health and self-sufficient, mainly the program that could affect nutrition, and cover cashless societies multiple aspects of their lives. their education may lead to the The output of the consultations expenses. erosion of traditional will be an informed decision by values and practices, the community on if and how to including sharing, engage the program. reciprocity, and redistribution of Commission a team of resources. anthropologists to study the potential impacts of the In communities where introduction of additional cash on traditional livelihood indigenous social structure, strategies are still relationships, redistribution of practiced and resources, and value of sharing. traditional values still held, the introduction of additional money may promote the development of a cash-based economy, with the potential to

Outputs Anticipated Positive Anticipated Negative Proposed Mitigation Measures Impacts Impacts change social relationships and communal integrity. Despite attention to Ensure women’s safety and indigenous women’s practical gender needs during safety, some women payouts. may still be vulnerable • Consolidate relevant during the day they geographic and demographic claim their cash data allotment because of • Produce maps of target the distance they need beneficiaries in GIDA to to travel.18 provide adequate support to indigenous people, especially women. Delivery systems The progressive For extremely remote Establish arrangements with the strengthened automation of areas, individual Land Bank of the Philippines and compliance transportation and other service providers to ensure verification, beneficiary other costs incurred in payouts are strategically located. updates, and claiming the cash grievance redress grants are high. makes it easier for IP households to comply Indigenous with 4Ps beneficiaries may conditionalities. pawn or use the cards as collateral to access The progressive cash before the spread of mobile scheduled payout, banking and points of promoting a culture of sale in remote areas debt. will make it easier for IP households to rely on a combination of OTC and cash cards as convenient.

Improved indigenous Indigenous children do The NPMO with the IP Unit will peoples’ access to not benefit from the define mitigation measures health and education education since it is based on the site-specific services through not responsive to their context. strengthened needs and aspirations. partnership with For indigenous communities that DepEd and DOH in Indigenous women do are accessible and have access monitoring compliance not access health to basic services: to program conditions, services when service • Strengthen the partnership with which take into providers do not DepEd for the integration of the consideration respect their

18 Geographic location is a barrier for indigenous women living in isolated communities that often makes it difficult to comply with the program conditionalities. Indigenous women may be vulnerable during the day they receive their cash allotment, since some must walk long distances to reach the payout location. There are cases during the rainy season that women have taken risks crossing flooded rivers in order to comply with the program conditions. The issue of women’s safety must be considered, especially those living in isolated communities.

Outputs Anticipated Positive Anticipated Negative Proposed Mitigation Measures Impacts Impacts geography and cultural indigenous health IP Education curriculum (formal realities of indigenous beliefs and practices. schooling) beneficiaries in • Strengthen the partnership with fulfilling program the Department of Health to conditions. guarantee culture sensitive • Indigenous children services that respect traditional are able to comply health and birthing practices with education by: (i) providing culture conditionalities with sensitivity training for health access to culturally practitioners, (ii) hiring IP appropriate methods midwives, and (iii) ensuring of teaching and immunization education learning. materials are presented in a • Indigenous women language IPs are comfortable and children are able with. to comply with the health For beneficiaries in isolated or conditionalities with extremely remote areas, other improved access to modes of fulfilling the education essential health requirements that are responsive care, including to the situation, plans, and maternity care that aspirations of the community will meets the criteria of be considered. availability, EDUCATION accessibility, and • Communities articulate the acceptability. purpose and goals they have for education, taking into consideration unintended impacts. • Strengthen partnership with the DepEd IPsEO (Indigenous Peoples Education Office) to ensure quality and responsive education for IP learners. HEALTH • Involve communities to explore all possible options to address the issue of access • Coordinate with service providers to offer alternative service delivery options (e.g., mobile health teams that provide immunization and other health services in GIDAs) • Explore partnerships with other health service providers in isolated communities (e.g., NGOs focusing on health) All indigenous CFDS content is not Enhance existing tools to beneficiaries attend contextualized to the determine the needs of both monthly CFDSs that situation of the indigenous beneficiaries and indigenous community implementers in developing which may result in gender sensitive and culturally

Outputs Anticipated Positive Anticipated Negative Proposed Mitigation Measures Impacts Impacts are responsive to their cultural change and appropriate CFDS modules and needs and aspirations loss of identity. learning materials that serve to and integrate IKSP. strengthen cultural identity. Inadequate capacity of CFDSs promote program staff to Contextualize IEC materials to inclusion and facilitate culturally meet the needs of different target empowerment, which appropriate CFDS. groups (i.e. youth, women, improve the self- indigenous people, elders, and confidence of others). indigenous beneficiaries. Enhance capacities of field staff to facilitate culturally appropriate CFDS.

Ensure that FDS modules and learning packages rolled out are culturally sensitive and gender responsive.

In areas where indigenous people are a minority and are not comfortable in the presence of many non-IP beneficiaries, FDSs should only include IP beneficiaries. Grievance redress Indigenous peoples’ Enhance the capacities of mechanisms are concerns are not program staff to handle all issues readily accessible and captured and properly that have culture and gender tailored to the needs of addressed. implications. the indigenous communities. Institute capacity building activities for indigenous peoples to report grievances issues and concerns. Poverty targeting, All IP households are There is the potential Ensure that no indigenous monitoring and covered under the for enumerators to households are excluded from connections with Listahanan 3 survey bypass indigenous the Listahanan 3 survey by complementary households, especially incorporating the following social programs Customary leaders will in extremely remote measures: enhanced actively participate in areas. • Improve coordination with local the identification of officials, tribal leaders, parent- indigenous leaders, and community beneficiaries. facilitators to identify the location and identity of poor households, not only in the main population centers but also in small or remote sitios. • Conduct culture sensitivity training to build the knowledge and skills of the enumerators for engaging indigenous

Outputs Anticipated Positive Anticipated Negative Proposed Mitigation Measures Impacts Impacts communities in a culturally sensitive manner. • Mobilize indigenous peoples organizations and NGOs working in the area to serve as third-party monitors. They will conduct spot checks to ensure that enumerators do not overlook or avoid remote households in IP areas, especially in isolated communities. The monitoring and The lack of a national Explore strategies to ensure IP evaluation system data set describing the representation during spot accurately reflects the ethno-linguistic checks. physical, social, groups, their number, economic, and political location, and social, Develop culturally sensitive status of both remote, economic and political indicators to capture the context geographically isolated situation will increase of indigenous communities. IP communities and the difficulty of data those that have roads collection. Produce semi-annual social or are more easily monitoring reports detailing the accessible. Unable to regularly strengths and challenges in • Reliable data is monitor program implementing 4Ps in IP areas. collected from the effects on indigenous field to validate communities Conduct an evaluation that population, ethnicity, compares the impacts of the and geographic Selective monitoring program on indigenous coverage of the sites (safety concerns) communities with non-IP indigenous communities. communities • There is better tracking of impacts and program outcomes for IPs

Program impacts are regularly monitored to ensure the IPP is properly implemented 4Ps = Pantawid Pamilyang Pilipino Program, CF = Community Facilitator, CFDS = Community Family Development Sessions, DepEd = Department of Education, FDS = Family Development Sessions, GIDA = Geographically Isolated and Disadvantaged Areas, IEC = Information, Education and Communication, IP = Indigenous Peoples, IPsEO = Indigenous Peoples Education Office, LGUs = Local Government Units, NGOs = Non-Government Organizations, NPMO = National Program Management Office.

B. Unanticipated Project Impacts on Indigenous Peoples’ Culture

130. Education. The main goal of the Pantawid Pamilyang Pilipino Program is to end poverty by investing in the health and education of Filipino children. By promoting education, it is imperative that anticipated and unanticipated future impacts of the program on indigenous culture and lifeways be seriously considered.

131. The Episcopal Commission on Indigenous Peoples produced a consolidated report of their 30-year involvement in indigenous peoples’ education, Indigenous Peoples Education: “From Alienation To Rootedness.” The report captures indigenous peoples’ experience with mainstream education, which has resulted in: (i) alienation of indigenous youth from their own communities, heritage, culture and history; (ii) broken intergenerational ties that is manifested in the youth’s disrespect and sometimes blatant disregard of the elders; (iii) graduates or schooled youth, leaving the community because they imbibed the view that working in the ancestral domain is inferior; and (iv) individual success and growth of schooled indigenous peoples do not translate into community growth and empowerment. “As one elder put it, indigenous youth do not anymore have a sense of the spirit of the tribe—that binds and moves them as one and is the wellspring of the culture that they have given birth to through the centuries; that has guided them as a people to live in dignity. Along with the continued marginalization of indigenous communities is the dying of the spirit of the tribe and consequently, the dying of their culture.”19

132. During one of the focus group discussions in Davao, parents expressed concern that their children who are in school are adopting mainstream culture. One of the parents said that a college education is important, but he is also aware that his children are being acculturated. He said they now spend time on social media, and are no longer interested to help with the farm work. He still hopes that after earning a degree, his children will return to their community and help their fellow IPs. Indigenous people appreciate the value of education, but they also realize the impact it can have on their cultural fabric.

133. Following are the findings of a 2014 study on indigenous education conducted by the Institute of Philippine Culture: (There are) indigenous groups where traditional leadership is informal and situational, meaning power and authority is decentralized, as with the Agta and Batak. They practice limited agriculture and traditionally utilized an immediate-return economic strategy, represented by different forms of hunting-gathering. Education is a recent phenomenon for some of these communities, who view it as a tool for empowerment—a means to counter exploitation and marginalization. Parents want their children to go to school and learn literacy and numeracy skills to prevent them from being deceived, cheated and ridiculed by non-IPs. Literacy allows community members to understand better what is discussed, attend meetings, and read official letters and government documents. For Batak and Agta parents, providing education for their children is about breaking the cycle of discrimination and marginalization.”20

134. For the Agta and Batak, education is viewed as a means to avoid discrimination and marginalization—as an instrument for empowerment.

135. 4Ps can play a vital role by facilitating a process where indigenous communities critically analyze their goals for education in their society, and attempt to fully anticipate its future impacts on their culture and way of life. The process can be a unique opportunity for indigenous people to evaluate the direction they want to take as a community. The following measures should be integrated during project implementation:

19 Episcopal Commission on Indigenous Peoples. 2019. Indigenous Peoples Education: “From Alienation To Rootedness”. Manila. 20 J. Austria-Young and M. Racelis. 2014. Baseline Profiles of Selected Communities Supported by the PRIME Program: Case Study Assessments of Indigenous and Muslim Communities Seeking Responsive and Culture- Sensitive Education. Institute of Philippine Culture and the Department of Education: Manila.

(i) Design and utilize a social impact assessment process that includes: (a) an analysis of local demographic trends; (b) the identification of social change processes and impacts produced by past, current, and future government programs; (c) the identification of social risks and vulnerabilities; (d) identification of the perceived impacts of education on indigenous knowledge systems and practices; and (e) the formulation of mitigating measures to minimize adverse project impacts. (ii) Build the capacity of community facilitators to utilize a social impact assessment tool that will guide indigenous communities to analyze the unintended consequences of 4Ps that could affect multiple aspects of their lives. (iii) For extremely isolated communities, engage a local anthropologist or sociologist who can help identify unintended program impacts, including those potentially resulting from education and the introduction of additional cash on indigenous social structure, relationships, redistribution of resources, and value of sharing.

136. The Indigenous Peoples Education Office has documented the use of culturally appropriate and relevant curriculums for IP learners. The office recognizes that the program must be tailored to the identified needs, situation, and aspirations of indigenous beneficiaries. Their involvement in the program is vital if barriers to education services are to be addressed, especially for those who live in extremely isolated areas, and whose cultures are still largely intact. The Episcopal Commission on Indigenous Peoples study notes: “Elders reiterate that there are competencies needed by indigenous communities like literacy and numeracy that are learned from schools, but they envision school education without the adverse impacts and indigenous peoples’ identity and self-determination constituting the central focus” (footnote 15).

137. From Mobile to Settled Communities. The Matigsalug described how mobility is one of their prominent cultural traits. When a family member marries into a different clan, the whole family moves to the husband’s village. When they long to be near their relatives, they return to their former village. Their definition of their place of residence is their ancestral territory, not a specific village or barangay. Because of 4Ps, they have decided to settle down and be registered in the barangay.

138. This represents an immense change in a defining cultural practice with unknown consequences for the social norms of this indigenous group. An anthropological study should be undertaken to determine the effects of the 4Ps program on present and former mobile groups, and its impact on their social structure, decision-making, and leadership patterns. The results of the study should be used to formulate a program strategy for these groups of indigenous people that will meet both program objectives and communities’ objectives in a manner that preserves and promotes their cultural integrity.

C. Action Plan to Ensure Culturally Appropriate CCT in the Context of IPs

139. Since 2014, the MCCT-IP initiative has attempted to make 4Ps more inclusive and responsive to the realities of indigenous beneficiaries. The modifications adopted by MCCT-IP will be incorporated into 4Ps to make the program responsive to the needs and situation of indigenous communities.

140. This IPP describes how indigenous peoples’ concerns will be incorporated into the program’s design to ensure that proper attention and support is provided during project implementation. The steps taken to address these issues will guarantee equitable and fair distribution of project benefits among indigenous populations.

141. Ensure full program coverage of IPs by improving the identification and selection of beneficiaries in Listahanan 3. In the absence of national data on the population and location of indigenous peoples, the approach to increase program coverage will focus on: (i) improving access to information to ensure that potential beneficiaries are aware of 4Ps and the importance of being included in the Listahanan, (ii) mobilizing customary institutions and tribal leadership in the identification of potential beneficiaries, (iii) enhancing the capacity of enumerators through culture sensitivity training to build the knowledge and skills to engage indigenous communities in a culturally sensitive manner, (iv) providing financial resources to sufficient to allow enumerators to reach isolated communities, (v) using Google Earth imagery to identify areas with limited basic services for potential inclusion in the Listahanan, and (vi) mobilizing indigenous peoples’ organizations and NGOs working in the area to serve as third party monitors who will conduct spot checks to ensure that enumerators do not overlook or avoid remote households in IP areas.

142. In the case of indigenous peoples where their exact numbers and locations are not known, the role of indigenous institutions and traditional leaders becomes crucial in the identification of indigenous beneficiaries for the program. Their involvement is vital for the realization of an inclusive 4Ps for indigenous peoples. In some areas, NCIP provincial offices and community service centers can also be a source of local information on the location and approximate number of indigenous communities.

143. Define strategies to enable indigenous households to meet program conditionalities ensure the conditionalities fit their situation, needs, and aspirations. The NPMO through the MCCT-IP unit will develop guidelines on how to best assist indigenous households in fulfilling the program conditionalities based on the situation, needs, access to services and their aspirations. The case of Kitaotao, Bukidnon represents one of the best practices observed for complying with health and education conditions, and addressing the recurring issue of access and geographic isolation. The local government and the municipal indigenous peoples’ mandatory representative believed that the geographic barrier would prohibit indigenous beneficiaries from complying with the health and education conditions. Recognizing that indigenous beliefs and practices regarding health are sensitive issues for Matigsalug-Manobo communities, the local government organized a convergence approach to orient the different departments on how to effectively engage indigenous communities, especially those in extremely isolated areas. The involvement of tribal leaders and institutionalization of consultation processes in the community is particularly important to ensure the relevance and cultural appropriateness of the approaches used.

144. The DepEd, DOH, Municipal Social Welfare and Development Officer, and engineering team developed a convergence strategy to ensure a holistic approach to health and education in reaching out to indigenous communities. The LGU also established a partnership with German Doctors Hospital, where pregnant indigenous women can have themselves admitted a few days before their delivery date. Local government officials took the lead in explaining to the communities the importance of combining indigenous health practices and science-based health services. As part of the process, the program implementers and tribal leaders conducted consultations with communities to explain the program conditions and the convergence strategy. These innovations will provide useful guidance for effective implementation of the program in IP areas.

145. Table 5 describes proposed strategies for how to better engage indigenous households in fulfilling the conditions in a culturally-appropriate and gender-sensitive manner based on access to services. Access to services is a critical factor in fulfilling program conditions. The two

39 typologies of indigenous communities will inform program guidelines on how to deal with indigenous communities that are accessible and have access to basic service and for indigenous communities who have minimal or no access to basic services (moderately remote to extremely remote areas).

Table 5: Culturally Appropriate Strategies in Fulfilling 4Ps Conditionalities that Fit the Situation, Needs, and Aspirations of IPs Typology Program Conditionality Proposed Strategies for Fulfilling the Conditionalities 1. Indigenous communities • 85% monthly class attendance rate • Partnership with DepEd with that are accessible and for children in school integration of the IP Education have access to basic curriculum (formal schooling) services • Pre-and post-natal care • Partnership with the Department • Delivery in a birthing facility of Health with sensitivities to • Full immunization, monthly weight traditional health and birthing monitoring, and nutrition practices (culture sensitivity counseling training for health practitioners, • Deworming twice a year for hiring of IP midwives, children 6-14 years immunization education materials are translated in a language that IPs are comfortable with) • Attendance at community and • Improved modules and session family development sessions topics contextualized to the social and cultural realities of the indigenous communities • The venue is accessible to the beneficiaries. Time is agreed upon by the beneficiaries. 2. Indigenous communities • 85% monthly attendance rate for For those in isolated or extremely who have minimal or no children in school (not necessarily remote areas, other modes of access to basic services formal classroom schooling) fulfilling the education (moderately remote to requirements that are most extremely remote areas) responsive to the situation, plans, and aspirations of the community should be explored.

• Communities decide on why they want to send their children to school (purpose and goals of education). • Communities can choose between formal, where available, or functional education (ALS or ADM) • Parents and elders play an active role in defining the mode of delivery and content of learning modules. • Establish a partnership with the DepEd IPsEO (Indigenous Peoples Education Office) to ensure quality and responsive education for IP learners.

Typology Program Conditionality Proposed Strategies for Fulfilling the Conditionalities • Pre-and post-natal care • Involve communities to explore • Delivery in a birthing facility different options for addressing • Full immunization, monthly weight the issue of access monitoring, and nutrition • Discuss with service providers counseling alternative service delivery • Deworming twice a year for options to address the recurring children 6-14 years issue of access (e.g., mobile health teams that provide immunization and other health services in GIDAs) • Explore partnering with other health service providers in isolated communities (e.g., German Doctors or other NGOs focusing on health) • Attendance at family development • Should be conducted in the sitio sessions so beneficiaries do not need to travel long distances 4Ps = Pantawid Pamilyang Pilipino Program, ALS = Alternative Learning System, ADM = Alternative Delivery Mode, DepEd = Department of Education, GIDA = Geographically Isolated and Disadvantaged Areas, IP = Indigenous Peoples, IPsEO = Indigenous Peoples Education Office, NGO = Non-Government Organizations.

146. Facilitating Meaningful Consultation. Given the good performance of DSWD implementing 4Ps in IP areas, the ESAP will continue to build on best practices that ensure meaningful consultation of indigenous communities. At the beginning of the social preparation stage and with a particular focus on extremely isolated indigenous communities, program staff will facilitate an FPIC process, during which the program’s goals, conditions, and guidelines are thoroughly explained. The community will decide whether the program will be beneficial for them or not. The community’s decision will be stated in a tribal resolution where they specify whether the community is willing to accept the program or not. FPIC in the context of 4Ps does not involve the long bureaucratic process of acquiring Certification Precondition, a requirement for most development projects involving indigenous people. DSWD has entered into a memorandum of agreement with NCIP that stipulates the program be culturally-sensitive and its benefits equally distributed among the indigenous community members. It is the responsibility of the DSWD to facilitate a genuine FPIC process where communities have the opportunity to assess the positive and negative impacts of the proposed program before they decide if they will participate.

147. The role of indigenous institutions and traditional leadership is key to making 4Ps inclusive. The program staff will ensure that tribal elders and respected indigenous leaders are consulted. The tribal leaders or the indigenous peoples’ mandatory representative can serve as cultural translators for outsiders, providing guidance on how to most effectively engage the community in a culturally appropriate manner. There are isolated indigenous communities that require a ritual be conducted before outsiders can enter the village for the first time. The tribal leaders will initiate the ritual, and help facilitate the community consultation. During the meeting, they can assist in explaining the program conditions in terms that are understood by the community.

148. Staffing Patterns. The current case load for MLs is 1:800, which makes it difficult for them to reach out to isolated communities. Given the workload, it was difficult for MLs to conduct regular home visits to build rapport and trust, which is essential in working with indigenous peoples. There are project areas where indigenous people are not comfortable to speak out during program

41 activities with the presence of non-indigenous counterparts. In order to address these issues, 4Ps must assign a dedicated staff that is in charge of handling all indigenous beneficiaries. The program aims to reach out to 660,000 indigenous households, so a minimum of 1,320 dedicated CFs is required to ensure staff have sufficient time to address the needs of indigenous beneficiaries. The ratio of staff to beneficiaries in IP areas will be lower than in non-IP areas, given the difficulty in reaching these locations and the particular needs of IP beneficiaries.

149. Regional offices will prioritize the hiring of indigenous staff as community facilitators to be deployed in isolated indigenous communities. Targeted recruitment of MLs who will be assigned in the IP areas to ensure that they will have the attitude, sensitivity, commitment to work with indigenous communities in the project areas will be pursued as well. To avoid language and cultural barriers, the community facilitators should ideally be from the same indigenous group as the communities where they are assigned. This is essential, as many isolated communities do not speak the language of the mainstream population, and using their own tongue is the only way beneficiaries will be able to meaningfully participate in meetings.

150. Dedicated National and Regional IP Focal Persons. The National IP Focal Person will be in charge of the implementation and monitoring of the IPP. The National IP Focal Person will determine the most effective methods of ensuring that the regional IP focal persons are aware of the IPP, and how it can be translated into localized plans that respond to the situation on the ground.

151. Institutional engagement of NCIP in 4Ps. The NCIP is the government agency mandated to protect and promote the rights of the country’s indigenous peoples, and the institution best suited to provide specific input on the situation of the indigenous peoples. DSWD and NCIP have an on-going partnership for the implementation of 4Ps, both at the national and regional levels. NCIP should be included in the national and regional advisory councils to provide policy direction for the promotion of indigenous peoples’ welfare in 4Ps. NCIP will serve as a resource for 4Ps staff in the regions, providing demographic data and guidance on culture sensitivity and indigenous knowledge systems and practices. NCIP will be invited in the technical working group of the National Advisory Council of 4Ps to ensure that their views are reflected in program implementation.

152. Strengthen inter-agency partnership toward culturally-sensitive delivery of services for 4P beneficiaries. In partnership with the DepEd, DOH, and LGUs, the following program strategies will serve to maintain and strengthen the cultural integrity of IP communities, and allow the agencies to provide relevant and culture sensitive basic services. (i) Education. 4Ps will partner with DepEd for the fulfillment of the education conditionality. For areas where there are schools, the partnership will focus on strengthening the IP education curriculum to ensure that IKSP concepts are integrated in the curriculum of elementary and high schools, attended by indigenous learners. For beneficiaries in isolated areas, DepEd, in partnership with DSWD, will assess the adoption of alternative modes of education as the basis for compliance with the 4Ps education conditionality. DepEd will ensure the supply side availability of ALS teachers, especially in remote areas. Alternative modes of education will also be an option for learners in areas with existing schools.

Article XIV, Section 2(4) of the Philippine Constitution states: “The State shall encourage non-formal, informal, and indigenous learning systems, as well as self- learning, independent, and out-of-school study programs particularly those that

respond to community needs.” In line with this provision, DepEd should explore broadening the scope of its Memorandum Circular No. 19 Series of 2012, “Mechanics of the Adoption of Alternative Modes of Education in the Pantawid Pamilya Program,” to recognize the critical importance of passing on to younger generations the traditional knowledge, culture and wisdom—IKSP— that has taken centuries to generate and validate (footnote 9). Integral to this passing on of IKSP are the indigenous learning systems promoted in the Constitution, which involve learning by observing and doing. A boy learns to hunt by accompanying adults on a hunt. A girl learns to weave by watching her mother set up a loom, then weaving herself. Children learn how to make a firebreak and properly fire a swidden field without causing runaway forest fires by helping with such activities. Indigenous learning systems involve much more than a teacher inviting a village elder to a class to talk about some aspect of indigenous culture. 4Ps should work with DepEd to recognize and promote these leaning systems. For example, in addition to days spent with an ALS teacher, days spent by children with parents or relatives hunting for honey in the forest, or gathering wild root crops, or building a house, or attending funeral or harvest rituals, can be counted toward the 85% class attendance requirement. Only by promoting the intergenerational transfer of IKSP can cultural integrity be maintained in a changing and modernizing world.

(ii) Health. The Department of Health will guarantee culturally-appropriate services that respect traditional health and birthing practices by providing culture sensitivity training for health practitioners. The trainings will increase health service providers’ awareness of indigenous health care practices and indigenous women’s notions of body and health. The goal of the trainings will be to enable health practitioners to interface indigenous health beliefs and practices with the current science-based health care system.

For beneficiaries in geographically-isolated areas, the Department of Health will ensure that local health offices: (a) identify the needs of indigenous peoples in remote areas, (b) map the available health care providers in the GIDAs, and (c) mobilize local government units to link indigenous people to facilities by providing communication and transport services.

153. Complementary actions through support services interventions. One of the strengths of the MCCT-IP design is the provision for livelihood activities and leadership development for indigenous beneficiaries. Aside from the cash grants, indigenous beneficiaries value the livelihood component, which in many instances has provided additional income for the family. The support services interventions as a complementary action is an important component of 4Ps, especially the livelihood support will continue to be available to indigenous beneficiaries.

VI. CAPACITY BUILDING

154. The project will utilize a two-pronged capacity building strategy. The first is to enhance the capacity of the executing agency so program staff fully appreciate the issues facing indigenous peoples issues, and the vital role of IKSP with regard to indigenous education and indigenous beliefs and health practices. The ADB SPS regarding indigenous peoples safeguards will also be included in the capacity building program. The second part of the strategy is to build the capacity of indigenous beneficiaries through their participation in family development sessions that will focus on strengthening their agency by concentrating on collective rights and improving organizational management.

A. Capacity Building for the Executing Agency

155. To effectively implement 4Ps and ensure benefits to IP communities, the institutions involved in the planning, implementation and management of the project must possess sufficient capacity and knowledge. The program will institutionalize a capacity building program for developing culturally competent project staff. Capability building activities will include culture sensitivity, orientations on the Indigenous Peoples Plan, and rights-based approaches for extending CCT to IP areas. The program will also develop the capacity of staff to facilitate FDSs in the context of indigenous communities, ensuring that learning materials are relevant, easily understood, and learning methodologies are appropriate for IPs. 4Ps will also develop tools, guidelines, and protocols to effectively assist indigenous beneficiaries to manage the unforeseen impacts of the program. A systematized coaching and mentoring program featuring learning sessions during staff meetings, area spot visits, and area simulation activities will be a parallel program intervention apart from the trainings and orientations. NPMO staff will receive training on IP safeguards and the IPP. With knowledgeable oversight from the NPMO, plans can be localized for site-specific conditions at the regional and municipal levels.

156. The program will build the capacity of the grievance redress unit to ensure that indigenous beneficiaries’ complaints and other programs concerns are captured, and resolved in a culturally appropriate manner. The program will also enhance the capacities of program staff to report issues of non-compliance that have culture and gender implications at the national and regional levels.

157. The sensitization and capacity development component is an important program strategy that will help guard against the erosion of indigenous knowledge systems and practices and may result as an unintended consequence of the program. With proper preparation and information, project staff will be equipped to engage indigenous beneficiaries in a culture and gender-sensitive manner. DSWD will endeavor to be as selective as practical, only hiring project staff who have, in addition to the standard employment requirements, the attitude, sensitivity, commitment, and stamina to work with indigenous communities in the project areas.

158. The program will engage the services of an anthropologist who will train and assist program staff to develop tools and manuals that will guide the communities to analyze unintended program impacts on their indigenous knowledge systems and practices, with a focus on maintaining intergenerational ties. The assessment process will allow isolated communities who have minimal interaction with the mainstream society to prepare for the consequences of their involvement in 4Ps on their values and social, economic, and political systems. It will also be a valuable opportunity for less isolated indigenous communities to critically assess what the impacts of their involvement in mainstream society have been, and how 4Ps can serve to minimize future undesirable impacts or help provide solutions to problems attributed to that involvement.

B. Capacity Building for Indigenous Beneficiaries

159. CFDS sessions should serve as a mechanism to build awareness and capacity of indigenous beneficiaries to address issues affecting them. The program will ensure that the content of sessions is based on the needs and aspirations of indigenous communities. Session topics will include laws and policies that protect individual and collective rights, including the Indigenous Peoples Rights Act, the United Nations Declaration on the Rights of Indigenous Peoples, and other legal instruments. Sessions will include topics on leadership development that will increase community members’ confidence to speak in public meetings and voice their

44 concerns about project related issues. Awareness raising about indigenous identity will also be addressed, especially for indigenous youth who may have imbibed much of mainstream culture. CFDSs can be a powerful tool to strengthen the cultural identity of indigenous communities.

VII. CULTURALLY APPROPRIATE GRIEVANCE REDRESS SYSTEM

160. The establishment of a grievance redress system (GRS) is crucial in facilitating the resolution of issues and concerns related to 4Ps. The ADB SPS states that the borrower/client is required to establish and maintain a grievance redress mechanism to ensure effective resolution of indigenous beneficiaries’ concerns and grievances about program implementation. The project will develop mechanisms to resolve complaints in a timely manner through a transparent process that is gender responsive, culturally appropriate, and readily accessible to all indigenous beneficiaries. The Pantawid GRS staff will ensure that indigenous beneficiaries are oriented on the project GRS processes. The goal of the Pantawid GRS is to capture and resolve all grievances effectively. It serves as both a venue for program beneficiaries to voice their concerns and a general guide for staff on how to handle and resolve grievance that are raised.

161. Indigenous Peoples’ Conflict Resolution Practices. Conflicts between two or more indigenous people will be addressed by the community in the context of customary laws and dispute resolution mechanisms. If invited, project-related staff and other stakeholders, e.g., barangay or municipal officials, may participate in the process, but their role will be defined by the officiating tribal leader or council of leaders. Inter-community conflicts will be addressed by the communities themselves according to their customary or agreed upon dispute resolution processes. If an outside facilitator, mediator, or arbiter is required or requested, the project implementing and monitoring units will seek the intervention of the LGU to assume the role. This guideline applies to conflicts or disputes between the affected indigenous group and any of the project units or others groups or individuals involved in project implementation.

162. For project related grievances, the GRS procedures will be followed. At the core of the GRS will be a dedicated division based at the NPMO. The fulltime function of the division is to record and monitor the resolution of grievances. It will build the capacity of people and institutions involved in 4Ps to resolve complaints. It will also maintain a grievance database to ensure efficient and effective tracking of the resolution of complaints.

163. The GRS Division will monitor the resolution of grievances at all levels, including through grievance committees at the national, regional and provincial levels. The main types of grievances anticipated are non-compliance, ineligibility, not listed, problems with payment, and supply-side complaints. The monitoring of resolutions will be ensure conformity with the prescribed GRS rules and procedures.

164. The National Advisory Council will act as the National Grievance Committee, which has the responsibility to handle serious complaints and appeals involving program cancellation for household grantees committing their final offense of non-compliance which may lead to termination. It also provides guidance and supervision for the Regional Grievance Committee.

165. The Regional Advisory Council will act as the Regional Grievance Committee, which will entertain complaints about counseling or suspension from the program. It handles complaints about appeals, external pressure, misdemeanor and corruption-related issues involving program staff, partners, and local officials. It also handles cases that cannot be resolved at the provincial level and offers technical advice to the Provincial Grievance Committees.

166. The Provincial Advisory Council will act as the Provincial Grievance Committee and act on cases reported to it directly and those referred by the municipal link, barangay captain or parent leaders. The Committee will respond to all complaints it receives, either through direct or indirect sources. For major urban areas, the next level appropriate committee is the Regional Grievance Committee and is also the appropriate body to handle cases referred by the city link.

167. The city/municipal link is the main grievance monitor and the key frontline worker of the GRS. These program staff will build the capacity of the other grievance monitors, including parent leaders, service providers and barangay officials, to assist in providing appropriate information and resolutions to grievances and issues associated with program implementation.

168. The Grievance Process. Figure 2 shows how complaints are handled in 4Ps, from the submission and receipt of grievances, to the final feedback.

Figure 2: GRS Process Flow

Submission Record/ Fact-finding Resolution Initial Appeal Final /Receipt of Data Entry/ Feedback Feedback Grievance Distribute

Submission, Grievances Once a Once facts Ensure the If Ensure the reporting or must be grievance is are complainant complainant complainant indirect recorded on the received, established, and relevant is not and relevant capture of Complaints the relevant the stakeholder satisfied, stakeholders grievances Form, entered individual or grievance s are appeal is are informed of through into the MIS, body shall should be informed of available. the decision of various assigned a investigate resolved in the outcome the appropriate means tracking and / or line with of their Decision of committee established number and verify the these complaint. the NGC is level relative to under the distributed to facts of the guidelines. final and their appeal. GRS the appropriate complaint. executory. level

169. Timelines for Complaints Resolution. In order to ensure that appropriate and timely resolution of grievances, the general rule that an initial resolution will be reached no more than one month after the initial receipt of the complaint. Table 6 contains the timeline for grievance resolution. Table 6: Estimated Maximum Timelines for Complaint Resolution

Grievance Handling Phase Working Days Accumulated Working Days

Receipt of Grievance, Clarification, Entry into MIS, 4 4 Categorization and Distribution Fact-Finding 7-14 18 Complaint Resolution 7-14 32 Feedback to Complainant 2-3 35 Appeal 15 50 MIS = Management Information System. 170. In consideration of the one-month general rule for grievance resolution, complaints should be resolved at the lowest level possible, making the city and municipal links’ role in handling complaints fundamental to the resolution process.

VIII. MONITORING, REPORTING, AND EVALUATION

171. The implementation of the IPP will be monitored to: (i) ensure that mitigation measures designed to address negative social impacts and measures to enhance positive impacts are adequate and effective, (ii) determine if the indigenous communities have any issues or concerns regarding project implementation, and (iii) propose corrective actions when needed. The MCCT- IP unit will be in charge of monitoring the IPP and making sure that it is implemented regionally through the IP focal persons. It will conduct a systematic assessment to determine the most effective methods of ensuring that project implementers are aware of the IPP. A system will be established to monitor whether implementation of and compliance with the IPP. The program must allocate financial resources to activities, both at the national and regional levels, that enhance its capacity to fulfill all commitments specified in the IPP.

172. The project IPP monitoring indicators will be disaggregated by sex and ethnicity. DSWD has developed M&E system guidelines for geographically isolated and disadvantaged areas to ensure that the system is able to capture IP-specific indicators as reflected in the M&E forms. The M&E systems can be enhanced by developing analytical tools and internal monitoring systems that provide an accurate picture of the situation of indigenous peoples in the Pantawid program. The monitoring reports include but are not limited to the indicators contained in Table 7. Table 7: Monitoring Indicators Indicators Process Indicators Demographic baseline • The number of IPs by gender, age, habitat (sitio) • Number of households with handicapped, elderly or invalid members; • Number of female-headed households; • Number of poor households; and • Number of households headed by the elderly. Consultation and participation • Number of consultation and participation activities that occur – meetings, FGDs, information dissemination, brochures flyers, training; • Percentage of IPs as participants; • Number of meetings exclusively with indigenous women; • Location of information disclosure; • Languages used at meetings and information disclosure; and • Consultation and participation progress against plan and budget. Grievance redress • Level of involvement of IPs in the grievance resolution; • Total number of IPs using the project level GRM; • Number of grievances received by nature of grievance; • Number of grievances resolved; • Length of time taken to be resolved; and • Number of grievances not resolved and reasons for not being resolved yet. Implementation of mitigation • Number of indigenous beneficiaries benefiting from 4Ps measures and beneficial disaggregated by gender, age group and geographic location; measures • Number of IPs participating in the capacity training programs; • Number of IPs provided with IEC materials disaggregated by gender; • Languages used in the training sessions and IEC materials; • Availability of the alternative route for children going to school; • Safety of indigenous women and children in fulfilling program conditions. 4Ps = Pantawid Pamilyang Pilipino Program, FGD = Focus Group Discussion, GRM = Grievance Redress Mechanism, IEC = Information-Education-Communication, IP = Indigenous Peoples.

173. The MCCT-IP Unit will prepare and submit semi-annual social monitoring reports to ADB for their review and posting on the ADB website. These progress reports will provide updates on IP beneficiaries, progress of program implementation, challenges related to IPP implementation, and any grievances received. Considering critical implementation issues associated with remotely indigenous beneficiaries, Table 8 specifies the mitigation process indicators that will allow the effective monitoring of the implementation of mitigation and beneficial measures provided in this document. Table 8: Mitigation Process Indicators Outputs Mitigation Measure/Commitment Mitigation Process Indicators Timely social transfers Ensure that national and regional IP • Number of national and delivered effectively focal persons have a thorough regional IP focal persons understanding of the diversity of trained in culture sensitivity indigenous cultures and possess the • National and IP regional focals ability to develop culturally appropriate demonstrate a high level of strategies, avoiding a one-size-fits-all appreciation for indigenous approach. knowledge systems and practices

Commission a team of anthropologists • Number of cashless to study the potential impacts of the indigenous societies and introduction of additional cash on former mobile groups in the indigenous social structure, Pantawid program have been relationships, redistribution of identified resources, and value of sharing. • Number of studies conducted on the impacts of 4Ps on the social structure, decision- making, and leadership patterns of the cashless and mobile groups Ensure women’s safety and practical • Consolidated geographic and gender needs during payouts demographic data that will enable the formulation of strategies at the municipal level to ensure the safety of women during payouts • Number of maps produced that specify the identity and location of GIDA beneficiaries • At least 80% of indigenous women beneficiaries affirm during FDS sessions that their practical gender needs are adequately addressed by the program. Delivery systems The NPMO with the IP Unit will For indigenous communities that strengthened implement the mitigation measures for: are accessible and have access (i) indigenous communities that are to basic services: accessible and have access to basic • Number of partner schools services and (ii) beneficiaries in isolated that have integrated the IP or extremely remote areas Education curriculum in formal schooling • Number of culture sensitivity trainings conducted by DoH

Outputs Mitigation Measure/Commitment Mitigation Process Indicators for health practitioners that ensure culture sensitive services that respect traditional health and birthing practices of indigenous communities • Number of IP midwives hired • Culturally appropriate immunization education materials developed For beneficiaries in isolated or extremely remote areas: • Number of community consultations conducted where options to address the issue of access in fulfilling the health and education program conditions are discussed • Modes of fulfilling the education and health requirements that are responsive to the situation, plans, and aspirations of the community are identified Enhance existing tools to determine the • Number of IEC materials that needs of both indigenous beneficiaries are contextualized to meet the and implementers in developing gender needs of the different target sensitive and culturally appropriate groups—youth, women, CFDS modules and learning materials indigenous people, elders that serve to strengthen cultural identity. • Number of field staff with the capacity to facilitate culturally appropriate CFDSs • Number of culture sensitive and gender responsive FDS modules and learning packages rolled out • Number of IP-only FDSs conducted, especially in areas where indigenous people are a minority Institute capacity building activities for • Improved capacities of indigenous peoples to report grievances program staff to handle all and other concerns issues that have culture and gender implications Poverty targeting, Ensure that no indigenous households • Improved coordination with monitoring and are excluded from the Listahanan 3 local officials, tribal leaders, connections with survey parent-leaders, and complementary social community facilitators to programs enhanced identify the location and identity of poor households, not only in the main population

Outputs Mitigation Measure/Commitment Mitigation Process Indicators centers but also in small or remote sitios. 4Ps = Pantawid Pamilyang Pilipino Program, CF = Community Facilitator, CFDS = Community Family Development Sessions, DepEd = Department of Education, FDS = Family Development Sessions, GIDA = Geographically Isolated and Disadvantaged Areas, IEC = Information, Education and Communication, IP = Indigenous Peoples, IPsEO = Indigenous Peoples Education Office, LGUs = Local Government Units, NGOs = Non-Government Organizations, NPMO = National Program Management Office.

IX. INSTITUTIONAL ARRANGEMENTS

174. Advisory Committees. To facilitate effective implementation of the program, advisory committees were created at the national, regional, and municipal levels. The advisory committees ensure the availability of health, nutrition, and education services; promote complementation of services with other service providers; and provide the support needed by beneficiaries to meet the program conditionalities.

175. The DOH and DepEd are the primary partner agencies for the project. The DOH, in partnership with local government units, ensures the availability of supplies and services for the health and nutrition components, and the DepEd, the availability of educational supplies, facilities, and personnel in all Pantawid Pamilya municipalities and barangays. The Department of Interior and Local Government assists the LGUs to fill the gaps in health, nutrition and education services in the municipality.

176. National Program Management Office (NPMO). As the lead agency for the implementation of the program, the secretary of the DSWD acts as the national project director and is responsible for the management of project activities. A full-time national project manager and two senior executives who are designated as national deputy project managers for operations and finance manage the day-to-day operations of the NPMO. The NPMO is staffed by professional and technical support personnel that make up the (i) Planning Monitoring and Evaluation Division; (ii) Social Marketing Division; (iii) Gender and Development Division; (iv) Beneficiary Update and Data Management Division; (v) Grievance Redress Division; (vi) Compliance Verification Division; (vii) Institutional Partnership Unit; (viii) Family Development Division; (ix) Modified Conditional Cash Transfer; (x) Capability Building Division; (xi) Risk Management and Quality Assurance Division; and (xii) Administrative Support Division.

177. The NPMO will ensure that all activities and measures detailed in the IPP will be implemented according to the agreed-to time frame. The MCCT-IP Unit, with the support of the 17 regional IP focal persons, will be responsible for IPP implementation at both the national and regional levels. The MCCT-IP unit will develop a system to monitor IPP implementation and compliance.

178. The project will dedicate a National IP Focal whose focus will be the implementation and monitoring of the IPP. The main task of the National IP Focal will be to sensitize program staff and provide guidance in program matters that may impact the social and cultural wellbeing of IP communities. The National IP Focal will be responsible for formulating guidelines, manuals, and training materials that promote the development of culturally competent staff. The National IP Focal will ensure that the regional IP focal persons are aware of the importance of the ADB SPS and its requirements and are supported in the implementation of the IPP.

179. In coordination with other divisions in the NPMO, the following are specific programs interventions to integrate indigenous peoples’ perspective in the 4Ps: (i) Integrating Culture and Gender in an M&E System. The monitoring and evaluation system must be able to handle specific cultural-based aspects of indigenous beneficiaries, including some communities’ frequent mobility and polygamous marriage. It must accurately reflect the physical, social, economic, and settlement patterns of both remote, geographically isolated IP communities and those that are less isolated, partially or wholly integrated with the mainstream, and have at least partial access to basic services. A reliable database is crucial to the ability to identify and reach out to indigenous communities. An efficient M&E system will increase indigenous peoples’ visibility and allow for effective tracking of program milestones.

(ii) Developing Culturally Appropriate and Gender Sensitive CFDS Materials. CFDS modules and session topics must be based on the unique needs of diverse indigenous communities and contextualized to fit their specific contexts. There are ongoing efforts to revise the CFDS modules to respond to the particular social, economic, and cultural contexts of indigenous peoples but all existing FDS materials should be reviewed to determine whether: (i) they are responsive to the needs of the community (i.e., assess whether personal development, including hygiene and marital relationships are IP-specific needs or whether they can be replaced by other topics such as food security and improving children’s nutrition); (ii) the language and the content of the modules, session topics, and learning materials are free of value judgments; (iii) the topics help the beneficiaries to value their culture and identity as indigenous peoples; and (iv) the topics will empower communities by increasing awareness of how they can improve their participation in decision making in programs and policies that affect them, including local governance.

In areas where the indigenous people are a minority, separate CFDS sessions will be conducted for them to ensure that they are able to voice their concerns and needs. This will ensure that indigenous beneficiaries are free to discuss, learn, and raise awareness using the language of their choice without intimidation.21

(iii) Grievance redress mechanisms tailored to the needs of IPs. As part of DSWD’s ongoing efforts to mainstream IP sensitivity across program divisions, the IP unit will continue to identify ways to strengthen the grievance system to ensure it is easily accessible and responsive to IP communities.

X. BUDGET AND FINANCING

180. The activities in the IPP are integrated into the overall budget of the project. The program should allocate financial resources to activities, both at the national and regional levels, that enhance its capacity to fulfill all commitments specified in the IPP. In order to effectively reach 660,000 indigenous households, a minimum of 1,320 dedicated CFs are required to be funded under Personnel Services. The anthropological study to determine the effects of the Pantawid program on present and former mobile groups and its impact on their social structure, decision- making, and leadership patterns will be funded under the Training budget item. Analytical work to

21 UNICEF. 2018. UNICEF Policy Brief No. 4. (2018): Can the MCCT for IPs in GIDAs Be More Inclusive?. Manila, Philippines.

51 support strengthening IP involvement and participation in the program will be supported by the technical assistance support facility on an as needed basis. Table 9: ESAP Detailed Cost Estimate by Year (in $ million) Total Cost Year 1 Year 2 Year 3 Year 4 Item ($ million) ($ million) ($ million) ($ million) ($ million) A. Investment Costs

1. Cash transfers (Year 1) 1,892.58 - - - 1,892.58

2. Cash transfers (Year 2) - 1,959.59 - - 1,959.59

3. Cash transfers (Year 3) - - 1,981.83 - 1,981.83

4. Cash transfers (Year 4) - - - 1,777.72 1,777.72

Subtotal (A) 1,892.58 1,959.59 1,981.83 1,777.72 7,611.72 B. Recurrent Costs

1. Personnel services 93.54 108.44 108.44 108.44 418.86

2. Bank service fees 9.80 8.04 8.04 8.04 33.91 3. Cost of service (salaries for 29.29 14.39 8.07 14.39 job orders) 66.14

4. Training 4.34 3.85 3.85 3.85 15.88

5. Advocacy 0.55 0.52 0.52 0.52 2.12

6. Administration costs 10.13 11.15 12.26 11.15 44.68

7. Capital outlay - 6.61 - - 6.61

8. Monitoring and evaluation` 15.28 15.28 15.65 15.28 61.48

Subtotal (B) 162.93 168.27 156.82 161.66 649.68

C. Contingencies 0.91 1.25 0.97 0.92 4.06 Financial Charges During D. 4.90 7.54 10.18 12.82 Implementation 35.45 Total Project Cost 2,061.32 2,136.65 2,149.80 1,953.13 (A+B+C+D) 8,300.90 % Total Project Cost 100% 25% 26% 26% 24% Note: Note: Numbers may not sum precisely because of rounding. Source: Asian Development Bank.