ASSESSMENT OF THE ENABLING ENVIRONMENT FOR CIVIL SOCIETY ORGANIZATIONS IN THE PHILIPPINES in partnership with the Alternative Law Groups (ALG) September 2016 The Enabling Environment National Assessment (EENA) is part of the Civic Space Initiative, implemented by CIVICUS and the International Center for Not-for-Profit Law, in partnership with ARTICLE 19, and the World Movement for Democracy, with support from the Government of Sweden. This report is partially financed by the Government of Sweden. The Government of Sweden does not necessarily share the opinions here within expressed. The author bears the sole responsibility for the content. The Caucus of Development NGO Networks (CODE-NGO) is the Philippines’ biggest coalition of non-governmental organizations (NGOs) working for social development, grouping together six (6) national and six (6) regional member networks, representing more than 1,600 development NGOs, people’s organizations and cooperatives nationwide. CODE-NGO’s mission is to be a trusted national voice of civil society and to advance capacities of civil society organizations (CSOs) to exercise transformative leadership. CODE-NGO aims to be the largest coalition of competent, credible and committed development CSOs in the Philippines that influences public policies, shapes development and creates tangible impact in its partner communities. CODE-NGO and its member networks and organizations have been active in promoting sustainable development for at least 25 years. CODE-NGO has rich experience in promoting asset reform and equitable development (including agrarian and fishery reform, socialized housing and ancestral domain), participatory governance and people empowerment, access to basic services and environmental protection. The Alternative Law Groups, Inc. (ALG) is a coalition of twenty three (23) legal resource NGOs that adhere to the principles and values of alternative or developmental law. These organizations have distinct programs for developmental legal assistance that is primarily concerned with the pursuit of public interest, respect for human rights and promotion of social justice. At the heart of developmental law is the dual work of empowering the poor and the marginalized, and effecting justice system reforms. The first component entails enhancing the capacity of the poor and marginalized groups to access and use judicial, quasi- judicial and other mechanisms for addressing their issues and concerns, and for protecting and enforcing their rights. The second focuses on the pursuit of a favorable policy environment that promotes the rights and interests of the poor and marginalized. ALG members’ operations cover a wide area of concerns involving justice issues of the poor and marginalized groups in the Philippines. These include issues on women, labor, peasant, fisherfolk, children, urban poor, indigenous peoples, persons living with HIV-AIDS, local governance, and the environment. 2 FOREWORD The important role of civil society organizations (CSOs) in national and global development and the need to ensure an enabling environment for CSOs are widely acknowledged. The Busan High Level Forum (HLF) on Development Effectiveness held in 2011 declared in the Busan Partnership for Effective Development Cooperation that: “Civil society organizations (CSOs) play a vital role in enabling people to claim their rights, in promoting rights‐based approaches, in shaping development policies and partnerships, and in overseeing their implementation. They also provide services in areas that are complementary to those provided by states. Recognizing this, we will: a) Implement fully our respective commitments to enable CSOs to exercise their roles as independent development actors, with a particular focus on an enabling environment, consistent with agreed international rights, that maximizes the contributions of CSOs to development.” We view this Assessment of the Enabling Environment for Civil Society Organizations (CSOs) in the Philippines as a vital step in the effort to improve the environment for CSOs in the country. This report assesses the legal, regulatory, policy, financial and social environment in which CSOs operate. It covers the following eight dimensions: (1) formation of CSOs, (2) operation of CSOs, (3) access to resources, (4) freedom of expression, (5) peaceful assembly, (6) CSO-government relations, (7) CSO cooperation and coalition, and (8) taxation. The Enabling Environment National Assessment (EENA) is part of the Civic Space Initiative, implemented by CIVICUS and the International Center for Not-for-Profit Law in partnership with ARTICLE 19 and the World Movement for Democracy, with support from the Government of Sweden. The Caucus of Development NGO Networks (CODE-NGO) worked on this assessment in partnership with the Alternative Law Groups (ALG). We were guided in the assessment by an Expert Advisory Panel composed of: 1) Ma. Fe V. Mendoza, Dean, National College of Public Administration and Governance, University of the Philippines (UP NCPAG); 2) Benedict Balderrama, National Coordinator, Partnership of Philippine Support Service Agencies (PHILSSA); 3) Raul Socrates Banzuela, National Coordinator, Pambansang Kilusan ng mga Samahang Magsasaka (National Confederation of Peasant Organizations) or PAKISAMA; 4) Helen Orande, Executive Director, League of Corporate Foundations (LCF); 5) Marissa Camacho, former Chief of Party, Strengthening CSOs in the Philippines Project, USAID and Ayala Foundation led consortium of CSOs, and, currently, Vice President for Partnerships, Ramon Magsaysay Awards Foundation; 6) Max De Mesa, Chairperson, Philippine Alliance of Human Rights Advocates (PAHRA), and 7) Andrea Maria Patricia M. Sarenas, Chairperson, Mindanao Coalition of Development NGO Networks (MINCODE) and former Chairperson of CODE-NGO. We in CODE-NGO hope that this assessment will lead to actions on the identified key concerns, and the emergence of a more enabling environment for civil society organizations. Sixto Donato C. Macasaet Executive Director CODE-NGO 3 TABLE OF CONTENTS Foreword …………………………………………………………………………………………… 3 Executive Summary ……………………………………………………………………………. 6 Section I. Introduction ..………………………………………………………………………. 10 Section II. Methodology .…………………………………………………………………….. 16 Section III. The Eight Dimensions ……..………………………………………………… 19 A. Formation of CSOs ……………………………………………………………..………. 19 1. Overview ……………………………………………………………………………….. 19 2. Applicable Laws ………………………………………………………………………. 20 3. Organization and Registration ………………………………………………….. 22 4. Other Registration Processes …………………………………………………... 33 5. Implementation Issues ………………………………………………………….... 3 3 6. Summary of Key Challenges ………………………………………………..…… 3 6 B. Operation of CSOs ………………………………………………………………….… 37 1. Overview ……………………………………………………………………………….. 37 2. Reporting Requirements ……………………………………………………..…… 37 3. Secondary Registration, Accreditation and/or Licensing ………….…… 39 4. Dissolution or Cancellation of Registration …………………………………. 42 5. Distribution of Profits and Assets Upon Dissolution …………………….. 46 6. Government Oversight ………………………………………………………….…. 48 7. Implementation Issues …………………………………………………………... 49 8. Summary of Key Challenges …………………………………………………….. 52 C. Access to Resources …………………………………………………………….…… 53 1. Overview ………………………………………………………………………….... 53 2. Applicable Laws ………………………………………………………………………. 53 3. Government Funding ……………………………………………………………. 54 4. Dwindling Resources ……………………………………………………………….. 55 5. Summary of Key Challenges …………………………………………………….. 57 D. Freedom of Expression ………………………………………………………….….. 58 1. Overview …………………………………………………………………………….… 58 2. Applicable Laws ………………………………………………………………….…. 58 3. Implementation Issues ……………………………………………………………. 60 4. Policy Proposals ……………………………………………………………………… 63 5. Summary of Key Challenges …..…………………………………………….… 64 E. Freedom of Assembly ………………………………………………………….…… 65 1. Overview ……………………………………………………………………………... 65 2. Applicable Laws ………………………………………………………………………. 65 3. Implementation Issues ………………………………………………………..…. 68 4. Policy Proposals ……………………………………………………………………... 69 5. Summary of Key Challenges …………………………………………………… 69 4 F. CSO-Government Relations …………………………………..…………………. 70 1. Overview …………………………………………………………………….……….. 70 2. Engaging the Philippine Government ………………………………………... 70 3. Constraints …………………………………………………………………………….. 75 4. Summary of Key Challenges …………………………………………………… 76 G. CSO Cooperation and Coalition …………………………………………………… 77 1. Overview ……………………………………………………………………………….. 77 2. Applicable Laws …………………………………………………………………….. 77 3. Implementation Issues ……………………………………………………………. 78 H. Taxation ………………………………….…………………………………………….. 80 1. Overview ……………………………………………..………………………………. 80 2. Applicable Laws ………………………………………………..…………………… 80 3. Implementation Issues ……………………………………………….…………. 82 4. Summary of Key Challenges …………………………………………………... 83 Section IV. Conclusion……………………………………………………………………… 84 Bibliography ………………………………………………………………………………………. 87 Annex 1: Assessment Matrix…………………………………………………………………. 96 Annex 2: Members of the Expert Advisory Panel (EAP)……………………………. 107 Annex 3: List of participants in the FGDs and National Consultation…………. 108 5 Executive Summary This report explains the assessment of the legal, regulatory, policy, financial and social environment in which civil society organizations (CSOs) operate in the Philippines. Different aspects that impact on CSOs’ ability to register and operate freely, access resources, engage with government, and work collectively,