ASSESSMENT OF THE CENTERS OF LOCAL GOVERNANCE: IMPLEMENTATION OF THE THE BARANGAY JUSTICE SERVICE SYSTEM (BJSS) PROJECT IN MINDANAO, PHILIPPINES Submitted to: USAID Prepared by: Dr. Richard N. Blue Prof. Emmanuel Leylo Agnes Devanadero, Esq. Submitted by: Development Associates, Inc. 1730 North Lynn St. Arlington, VA, 22209-2023 December 2002 TABLE OF CONTENTS Acronyms..............................................................................................................................v Executive Summary............................................................................................................. vi I. Introduction and Background ................................................................................1 II. The Assessment Scope of Work..............................................................................3 III. Methodology .............................................................................................................4 IV. Findings.....................................................................................................................5 A. The Katarungang Pambarangay.....................................................................5 1. Katarungang Pambarangay Development..........................................5 2. Katarungang Organizational Structure ..............................................6 3. Functions of the Katarungang Pambarangay .....................................7 4. Jurisdiction.........................................................................................7 5. Modes/Processes of Settling Disputes ...............................................8 6. Repudiation........................................................................................9 7. General Assessment of the Impact of the KP at the National Level .................................................................................................9 a. National Level Impact Assessment..........................................9 b. Impact of KP on Peace and Harmony at the Local Level........10 B. Barangay Justice Service System Program (BJSS) Support to the Katarungan Pambarangay ..............................................................................10 1. The Barangay Justice .........................................................................11 2. Institutional Assessment of the GRF and the CLG Consortium........12 a. Institutional Motivation .........................................................12 b. Organizational Capacity.........................................................13 c. Leadership..............................................................................13 d. Organizational Structure........................................................14 e. Mindanao-based Centers for Local Governance....................14 3. BJSS/BJA Training Program Assessment ........................................18 a. Profile of Respondents...........................................................21 b. Training Selection..................................................................24 c. Training Effectiveness ...........................................................25 4. Role of Lupong Tagapamayapa & the BJA.......................................26 a. Becoming a BJA....................................................................26 b. The Trainees Assessment: Does the project make a Difference ..............................................................................28 c. Limiting Factors to Success of BJSS.....................................29 d. Improving the Role of BJSS/BJA..........................................30 e. Effectiveness of the BJSS and the BJA in Relation to KP ....32 The Barangay Justice Service System December 2002 (BJSS) Project Report Development Associates, Inc. 5. Case Studies of KP/BJSS Implementation in Selected LGUS .........33 a. Island Garden of Samal..........................................................33 b. Banaybanay Governance.......................................................33 c. The Muslim Regions, Dispute Settlement and the BJSS Program..................................................................................33 6. Why the System of Philippine Barangay Justice System Cannot (May not) be Successful in a Muslim Community?..............38 a. The concept of territory and governance ...............................38 b. The Concept of Settling Conflicts and Dispensing Justice in a Muslim Community ............................................39 c. Who are the Key Players in the Mediation Process ...............39 d. How can the next BJSS work in a Muslim community .........40 7. Summary of Findings ........................................................................40 a. Impact of the KP at the National Level .................................40 b. Value Added of the BJSS ......................................................40 c. Institutional-Building of the Consortium and the CLGs........41 IV. Conclusions & Recommendations ..........................................................................42 A. Background Conclusions: The KP and National Court and Crime Data ......42 B. Specific Conclusions......................................................................................42 Organizational Effectiveness of the BJSS Project ......................................... 42 Training Effectiveness and Utilization........................................................... 43 Introduction of BJSS into Muslim Areas ........................................................44 Specific Recommendations .............................................................................44 References ............................................................................................................................47 List of Tables Table 1: Allocation of Funds from GRF............................................................................17 Table 2: Training Budget ...................................................................................................17 Table 3: List of Trainings Conducted (Phase III) ..............................................................18 Table 4: Regional Representation in Davao Survey ..........................................................20 Table 5: Respondents KP Position.....................................................................................21 Table 6: Gender Representation of Trainees......................................................................21 Table 7: Respondents’ Occupations...................................................................................22 Table 8: Age Distribution...................................................................................................23 Table 9: Educational Level ................................................................................................23 Table 10: Religion................................................................................................................24 Table 11: Selection of BJSS Trainees..................................................................................24 Table 12: BJSS Overall Training Usefulness.......................................................................26 Table 13: Becoming a BJA ..................................................................................................27 Table 14: BJA Reporting Activities, 2002...........................................................................27 Table 15 Past Effectiveness of the BJSS ............................................................................28 Table 16 Current Effectiveness of BJSS.............................................................................29 Table 17 BJA Job Satisfaction............................................................................................29 Table 18 Proposals for BJSS/BJA Improvement................................................................31 The Barangay Justice Service System December 2002 (BJSS) Project Report Development Associates, Inc. Table 19 Continuing CLG Support for BJSS......................................................................32 Cases Filed Covering Periods July 1, 2000 to June 30, 2001 & July 1, 2001 to June 30, 2002 .........................................................................................................................3-4 List of Graphs Graph 1: Number of Cases Settled by the Lupons & Cases filed in First-level Courts, 1989-1999 ............................................................................................................3-1 Graph 2: Number of Cases Settled by Barangay Justice System & Crime Rates, 1992-1999 ............................................................................................................3-3 Case Studies Case 1: The Case of the Urban Poor Association Case 2: Non-payment of a Debt Case 3: Attempted Murder that Leads to “Rido” (clan war) Appendices Appendix 1 Scope of Work ...............................................................................................1-1 Appendix 2 BJSS Assessment Team.................................................................................2-1 Appendix 3 Analysis of National Level KP and Court Case Load Statistics ....................3-1 Appendix 4 Training Assessment Questionnaire ..............................................................4-1 Appendix 5 Guide for Group Discussion for the BJSS Training Assessment ..................5-1 Appendix 6 Conference-Workshop for the