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CASE-STUDY ON
EQUITY FOCUSED
AND GENDER
RESPONSIVE M&E
SYSTEM IN
PHILIPPINES Katerina Stolyarenko, Independent Consultant
January 2015
SLEvA
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Table of Contents
GENDER INFORMATION BRIEF ........................................................................................................................ 2
ACRONYMS .............................................................................................. Ошибка! Закладка не определена.
1.0 INTRODUCTION ............................................................................................................................................... 5
2.0 ORGANIZATIONAL ARRANGEMENTS OF PHILIPPINES NEPS AND EF&GR
ASPECTS OF THE M&E SYSTEM ...................................................................................................................... 6
A. M&E Context ........................................................................................................................................................ 6
C. NEPS’s Focus and Purposes ............................................................................................................................... 9
E. Philippines NEPS Legal and Policy Framework ........................................................................................... 11
F. Philippines Gender Legal and Policy Framework ....................................................................................... 12
G. Philippines RPBMS Institutional Arrangements ........................................................................................... 13
H. Philippines Gender Institutional Arrangements .......................................................................................... 15
J. Professional Capacity for M&E ....................................................................................................................... 18
K. Utilization of M&E .............................................................................................................................................. 19
3.0 SUCCESS FACTORS AND CHALLENGES ......................................................................................... 20
4.0 CONCLUSION .................................................................................................................................................... 21
5.0 RECOMMENDATIONS ................................................................................................................................... 21
6.0 BIBLIOGRAPHY ................................................................................................................................................. 22
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ACRONYMS ADB Asian Development Bank
ARMM Autonomous Region of Muslim Mindanao
BPR Budget Performance Review
BWYW Bureau of Women and Young Workers
BWW Bureau of Women’s Welfare
CESB Career Executive Service Board
CSC Civil Service Commission
COA Commission on Audit
CHEd Commission on Higher Education
CEDAW Convention on the Elimination of all Forms of Discrimination against Women
DBM Department of Budget and Management
DOF Department of Finance
DOLE Department of Labor and Employment
DSWD Department of Social Welfare and Development
DAP Development Academy of the Philippines
EO Executive Order
FAR Financial Accountability Reports
FPW Framework Plan for Women
GAD Gender And Development
GAA General Appropriations Act
GDP Gross Domestic Product
GPMF Global Partnership Monitoring Framework
GCGOCC Governance Commission for the Government-Owned and Controlled Corporations
GOJ Government of Japan
GRB Gender Responsive Budgeting
GPH Government of the Philippines
HDI Human Development Index
TF Inter-agency Task Force
JICA Japan International Cooperation Agency
JAW Joint Analytic Work
MCW Magna Carta of Women
MFO Major Final Outputs
MOA Memorandum of Agreement
MDG Millennium Development Goals
M&E Monitoring and Evaluation
NCC National Competitiveness Council
NEDA National Economic and Development Authority
OES Office of the Executive Secretary
OP Office of the President
ODA Official Development Assistance
ODAPR Official Development Assistance Portfolio Review
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PAP Performance Indicators and the Restructuring of Activities
PCW Philippine Commission on Women
PDP Philippine Development Plan
PPGD Philippine Plan for Gender-Responsive Development
PHILDEV Philippines Development Evaluators Association
PMES Philippines Monitoring and Evaluation Society
PMS Presidential Management Staff
PPIES Programs and Projects Information Exchange System
PSM Public Sector Management
RPBMS Results-Based Performance Management System
RPBMS Results-Based Performance Management System
SHIPDET Shanghai International Program for Development Evaluation Training
SER Socioeconomic Report
SPMS Strategic Performance Management System
PIDS The Philippine Institute for Development Studies
WPLA Women’s Priority Legislative Agenda
WTO World Trade Organization
WB World Bank
KEY DEFINITIONS
NEPS Normative and operational framework that guides the evaluation of
major national development strategies in a country
GR M&E System Provide a holistic and meaningful monitoring and assessment of how an
intervention is guided by gender equality approaches
GRB Gender Responsive Budgeting is a tool through which gender
perspective is mixed with all steps of budgeting process i.e. planning,
implementation, monitoring and evaluation
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GENDER INFORMATION BRIEF
Human Development Index
Human
Development
Index Rank
Human
Development
Index Value
Life Expectancy
At Birth (Years)
Adult Literacy
Rate (% Age 15
And Above)
GDP Per
Capita
(PPP US$)
Education
Index
117 0.66 68.7 1,01 6,381 1,000
Gender-related Development Index
Gender-Related Development Index
(GDI)
Life Expectancy at Birth (Years) Adult Literacy Rate
(% Age 15 and above)
Rank Value Female Male Female Male
5 0,7832 72,2 65,4 96 95 (0.00 = inequality,
countries) 1.00 = equality)
Expected years of schooling Estimated Earned Income
(PPP US$)
Female Male Female Male
11,5 11,1 3,301 5,52
Gender Empowerment Index
Gender Empowerment Measure
(GEM)
Seats In
Parliament Held
By Women (%
In Total)
Female
Legislators,
Senior Officials
and Managers (%
Of Total)
Female
Professional and
Technical
Workers (% Of
Total)
Ratio of
Estimated
Female To Male
Earned Income Rank Value
78 0.406 26,5 100 100 68
Convention (UN System) YES/NO YEAR
CEDAW International Convention on all forms of Discrimination Against Women
(1979)
YES 1981
CEDAW Optional Protocol (2000) YES 2001
CERD International Convention on the Elimination of all forms of Racial
Discrimination (1966)
YES
1967
CRC Convention on the Rights of the Child (1989) YES 1990
ILO C100 – Equal Remuneration (1951) YES 29 Dec 1953
ILO C111 – Discrimination (1958) YES 17 Nov 1960
ILO C156 – Workers with Family Responsibilities (1981) NO -
ILO C183 – Maternity Protection (2000) NO -
Population 94,85 mln
Female population 49,6
Women’s Life expectancy (in years) 72,2
Men’s Life expectancy (in years) 65,4
Fertility rate (average births per female) 3,08
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1.0 INTRODUCTION The Philippines is a sovereign island country in Southeast Asia situated in the western Pacific Ocean. It
consists of 7,107 islands that are categorized broadly under three main geographical divisions: Luzon,
Visayas, and Mindanao. It is predominantly a Roman Catholic country, but Muslims constitute about 5%
of the population. The country is administratively divided into 17 regions, 81 provinces, 136 cities (of
which 24 are considered highly urbanized), 1,495 municipalities, and 41,995 barangays (the smallest
political unit). With a population of about 100 million people, the Philippines is the seventh-most
populated country in Asia and the 12th most populated country in the world. Its location on the Pacific
Ring of Fire and close to the equator makes the Philippines prone to earthquakes and typhoons, but also
endows it with abundant natural resources and some of the world's greatest biodiversity.
The Philippines has a democratic government in the form of a constitutional republic with a presidential
system. It is governed as a unitary state with the exception of the Autonomous Region in Muslim
Mindanao.
The Philippine economy is the 39th largest in the world, with gross domestic product (nominal) of
$454.3 billion and per capita $4,700 in 2013. Real growth rate is 6.8% and Inflation Index - 2.8%. The
country is rich in natural agriculture resources: sugarcane, coconuts, rice, corn, bananas, cassavas,
pineapples, mangoes; pork, eggs, beef; fish. Arable land is 18%. Also the country is rich in natural
resources: timber, petroleum, nickel, cobalt, silver, gold, and salt, copper. The structure of the Philippine
economy are agriculture 32%, industry 15%, services 53% (2013). The Philippine economy has been
transitioning from one based upon agriculture to an economy with more emphasis upon services and
manufacturing. Of the country's total labor force of around 40.813 Million, the agricultural sector
employs close to 32% of the labor force, and accounts for 14% of GDP. The industrial sector employs
around 14% of the workforce and accounts for 30% of GDP. Meanwhile the 47% of workers involved in
the services sector are responsible for 56% of GDP. The unemployment rate stands at 7.4% in 2013. Average annual GDP growth per capita since 1966 stands at 1.45%, in comparison to an average of
5.96% for the East Asia and the Pacific region as a whole. The daily income for 45% of the population of
the Philippines remains less than $2. The economy is heavily reliant upon remittances from overseas
Philippines. Regional development is uneven, with Luzon – Metro Manila in particular – gaining most of
the new economic growth at the expense of the other regions, although the government has taken steps
to distribute economic growth by promoting investment in other areas of the country. Despite
constraints, service industries such as tourism and business process outsourcing have been identified as
areas with some of the best opportunities for growth for the country.
Goldman Sachs includes the country in its list of the "Next Eleven" economies. Goldman Sachs estimates
that by the year 2050, it will be the 20th largest economy in the world. HSBC also projects the
Philippine economy to become the 16th largest economy in the world, 5th largest economy in Asia and
the largest economy in the South East Asian region by 2050. The Philippines is a member of the World
Bank, the International Monetary Fund, the World Trade Organization (WTO), the Asian Development
Bank which is headquartered in Mandaluyong, the Colombo Plan, the G-77 and the G-24 among other
groups and institutions.
The Philippines has had an often tumultuous experience with democracy, which includes a People Power
Revolution overthrowing a dictatorship. The nation's large population size and economic potential have
led it to be classified as a middle power. It is a founding member of the United Nations, World Trade
Organization, Association of Southeast Asian Nations, and East Asia Summit.
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2.0 ORGANIZATIONAL ARRANGEMENTS OF
PHILIPPINES NEPS AND EF&GR ASPECTS OF THE M&E
SYSTEM
A. M&E Context
To ensure that development results are achieved for the Filipino people, the government has, over the
decade, implemented reform initiatives in all stages of the planning, budgeting, and implementation and
monitoring and evaluation processes. Government thus consciously adopted Managing for Development
Results (MfDR) as a management strategy to improve the effectiveness of public sector management.
Modest growth and fiscal deficits have affected the government’s ability to allocate resources for the
basic services needed to achieve the Millennium Development Goals (MDGs). The slow decline in the
poverty incidence and high inequality provided a push for public sector reforms toward more efficient
use of resources for service delivery. Some of the significant events and developments over the last 30
years, which have led to the gradual evolution of the RBMF, include the following:
Table 1. Timeline of M&E Development in Philippines1
1 Source: National Economic and Development Authority
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The Philippine Development Plan (PDP) is the country’s overall development framework, which contains
the policy directions, development goals, strategies, and priority programmes and projects of the
government for a period of 6 years. The PDP 2011-2016 focuses on high growth that is sustained,
generates mass employment and reduces poverty.
Table 2. PDP 2011-20162
2 http://www.neda.gov.ph/?p=1128
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B. Gender Context
The Philippines scores relatively highly on global gender equality indices indicating an overall
improvement in recent decades in the situation of women. It ranks 9th among 134 countries in the 2013
World Economic Forum gender gaps index in providing equal opportunities and resources for women.
The adult literacy rate is one of the highest in the region, with a higher percentage of women completing
secondary education than men. Improvements have been made in women’s political representation,
where about 20% of parliamentary seats are now held by females. The country has a vibrant civil society
and a dynamic women’s movement, a key factor in it becoming the first in the ASEAN region to ratify
the Convention on the Elimination of all Forms of Discrimination Against Women (CEDAW) in 1981.
Article 2 of CEDAW mandates all State Parties to ensure the advancement of women in order that they
may exercise and enjoy their human rights and fundamental freedoms on an equal basis with men. To
fulfill this goal, the Philippine government has vigorously pursued the goal of gender equality since 1986
through a process of gender mainstreaming. With almost a quarter of a century of experience in
promoting women’s economic empowerment and almost fifteen years in mainstreaming a gender
perspective in government, the Philippines has become an example of best practice in gender
mainstreaming, as well as a learning laboratory in the continuing struggle for women’s rights and
empowerment. Since 1986, the Philippines has put in place a strong policy framework, a core of
dedicated and capable gender-aware staff in a number of government agencies, and appropriate tools
and systems to facilitate mainstreaming gender perspective in the overall work of government. The
government has also built effective partnerships and active collaboration with civil society groups and
the private sector to ensure that women are empowered to both contribute and benefit from
development.
However, there still remain a number of gender issues:
(i) The unequal participation of women in the formal labor market;
(ii) The high percentage of female migrant workers employed mostly in low-skilled, low-paid,
and unprotected jobs;
(iii) The declining enrollment and completion rates in elementary and secondary education; and
(iv) High maternal mortality ratio and insufficient access of women and men to reproductive and
basic health services.
While the overall poverty rate in the Philippines has decreased, many parts of the country, including the
Autonomous Region of Muslim Mindanao (ARMM), remain deeply affected, with people lacking access to
basic goods and services, education and healthcare. The impact on women is significant, linked (as both
cause and effect) to high maternal mortality and fertility rates, human trafficking, migration, and
overrepresentation in the ‘informal’ employment sector, where women are especially vulnerable to
poor working conditions, discrimination and exploitation.
The Philippines is a source country for migrants. As of 2012, about 8.6 million work overseas in
permanent, temporary or irregular work. More women than men migrate, with a majority of them
seeking employment as domestic helpers or caregivers. Migrant women workers are often in precarious
situations abroad, lacking adequate protections, and vulnerable to abuse and unsafe working conditions.
In addition, the Philippine economy is heavily reliant on the billions of dollars in remittances sent home
by migrant workers an amount that surpasses foreign direct investment. Violence against women rates
are high, largely due to entrenched patriarchal attitudes and imbalanced power relationships within the
family. One in five women has experienced physical violence since age 15, and 18% who have ever been
married have been physically and sexually abused by their spouse. One in seven women agree that a
husband is justified in beating his wife for certain reasons, with the most common being neglecting the
children. In addition, the Philippines is a source country for trafficking in persons: men, women and
children are subject to sex trafficking, forced labour and involuntary servitude worldwide.
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C. NEPS’s Focus and Purposes
NEPS in Philippines is just in the process of development. Country’s evaluation policy and evaluation
manual are in the process of drafting. Nevertheless, Philippines has a well-established Results-Based
Performance Management System (RPBMS), which focuses on the results of public spending to ensure
transparency and accountability in the use of public resources and enhance delivery of results in the
pursuit of fulfilling the commitments made by the GOP to achieve the Millennium Development Goals
(MDGs) of the United Nations. RPBMS in Philippines incorporates results in all the five stages of public
sector management (PSM) from planning, budgeting, and implementation to monitoring and evaluation
with focus on the overall achievement of the goal of inclusive growth and poverty reduction.
Table 3: RPBMS Model in Philippines3
D. Incorporation of Gender into M&E System
The harmonized gender and development guidelines4 for project development, implementation,
monitoring, and evaluation were developed by the National Economic and Development Authority
(NEDA) and the Philippine Commission on Women (formerly National Commission on the Role of the
Filipino Women)in collaboration with the official development assistance(ODA) gender and
development (GAD) network, with funding assistance from the United Nations Development
Programme and the Asian Development Bank (ADB). It serves as a tool for all development
stakeholders to ensure integration of gender in the various stages of the project cycle. NEDA collects
information from development partner agencies to determine the contribution of ODA gender-
responsive programs and projects. The Commission on Audit is also required to audit the
implementation of GAD programs on an annual basis.
3 http://www.adb.org/sites/default/files/publication/148792/results-based-management-framework.pdf
4 http://www.pcw.gov.ph/sites/default/files/documents/resources/harmonized-gad-guidelines-2nd_ed_0.pdf
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The Guideline requires at the planning stage of development projects and programmes to include
gender issues through:
1) conducting gender analysis to identify the gender issues that the project needs to consider, and
to ascertain its likely gender impacts;
2) specifying relevant gender equality and women’s empowerment objectives, outcomes and
outputs;
3) including activities or strategies that address the identified gender issues or needs, or that will
enable the project to achieve gender equality results;
4) committing human and financial resources, such as providing for the hiring of a GAD specialist,
GAD training of project personnel and partners during project implementation, and
development of a gender database – to achieve its gender equality and women’s empowerment
goals;
5) having a gender-sensitive monitoring and evaluation system with gender equality indicators and
targets. This system also requires the collection of sex-disaggregated data and information to
assess changes in gender roles and relations; how resources are distributed among women and
men; and how women/men are differently affected by the project.
Sector-Specific GAD Monitoring Indicators in different fields including Agriculture and Rural
Development, Infrastructure, Private Sector Development, Health, Education, Housing and Settlement
are also defined in this Harmonized Guideline. Gender analysis is required at two points of the project’s
pre-implementation stage: as part of project identification, and after the project has been designed.
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E. Philippines NEPS Legal and Policy Framework
The Government of the Philippines (GPH) has been continuously enhancing its own development
processes to deliver results, and there have been recent efforts to establish a results-based management
system. There are ongoing initiatives in incorporating results in all the five stages of public sector
management (PSM) from planning, budgeting, and implementation to monitoring and evaluation. In the
Philippine context, all stages of PSM are focused on the overall achievement of the goal of inclusive
growth and poverty reduction, as stated in the PDP.
The Government of the Philippines (GPH) issued the following policy instruments to support the
mainstreaming of results-based initiatives within the public sector management in Philippines:
Administrative Order No. 25 (2011)5 created the Inter-agency Task Force (TF) on
Harmonization of NG Performance Monitoring, Information and Reporting System to promote
transparency by providing access to information about the programs, targets and performance
of all agencies in the public sector
National Budget Circular (NBC) 532 (2011)6 orders government agencies to review and
update of major final outputs (MFOs) and its performance indicators and the restructuring of
activities (PAPs)
Executive Order No. 43 (2011)7 obliges Reorganization of the Cabinet Clusters into 5
clusters composed of: (a) Good Governance and Anti-Corruption; (b) Human Development and
Poverty Reduction; (c) Economic Development; (d) Security, Justice and Peace; and (e) Climate
Change Adaptation and Mitigation in order to serve as a venue and mechanism for coordination,
harmonization, complementation, and synergy among the Departments and other Government
instrumentalities with the main purpose of attaining national development goals and objectives,
as disaggregated into annual performance targets
Executive Order No. 80 (2012)8 directing the Adoption of a Performance-Based Incentive
System for Government Employees. It mandates the AO25 IATF to determine the good
governance conditions for the PBB on a yearly basis
Memorandum Circular No. 2012-01 (2012)9 Guidelines on the Cascading of Department
Performance Targets in Line with Executive Order (EO) No. 80
Appropriations Act of 2013 (RA 10352) (2013)10 mandates all departments to have a
Transparency Seal on their respective websites that should contain the following information:
the agency’s mandates and functions, names of its officials with their position and designation,
and contact information; Annual Statements of Allotments and Obligations; Annual Financial
Accountability Reports (FARs); Approved budget and the corresponding MFO targets for fiscal
year; Major programs and projects, categorized along the five key results areas of the Aquino
Social Contract; Program/projects beneficiaries as identified in the applicable special provisions;
Status of implementation and program/project evaluation and/or assessment reports; and Annual
procurement plan, contracts awarded and the name of contractors/suppliers/consultants
5 http://www.gov.ph/2011/12/21/administrative-order-no-25-s-2011-2/
6 http://www.dbm.gov.ph/wp-
content/uploads/Issuances/2011/National%20Budget%20Circular/NBC532/NBC532.pdf 7 http://www.dbm.gov.ph/wp-content/uploads/EO/EO43.pdf
8 http://www.gov.ph/2012/07/20/executive-order-no-80-s-2012/
9 http://pcw.gov.ph/law/pcw-memorandum-circular-no-2012-01
10http://www.philmech.gov.ph/upload/TRANSPARENCY%20SEAL/Approved%20Budgets/CY%202013%20Approved
%20Budget.pdf
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F. Philippines Gender Legal and Policy Framework
The country has a strong legal and policy framework for the protection and promotion of women's
rights.
o 1987 – Gender equality provision was enshrined in Art. II, Sec. 14 of the Philippine
Constitution: “The state recognizes the role of women in nation building, and shall ensure
the fundamental equality before the law of women and men”.
o 1989 – Formulation of the Philippine Development Plan for Women (1989-1992)
Addressed gender issues in the economic sector, infrastructure, science and technology and ran
parallel with the country’s medium-term development plan.
o 1992 – Enactment of the RA 7192 or Women
in Development and Nation-Building Act
Provides the legal mandate involving women in
development. Through RA 7192, the Philippines is
committed to address issues of poverty, violence
against women and other abuses of women’s
human rights, and the continuing invisibility of
women in public affairs.
o 1995 – Issuance of President Ramos’ Executive
Order 273 or Approving and Adopting the
Philippine Plan for Gender-Responsive
Development (PPGD) 1995-2025 and
enactment of Republic Act 7877 or the Anti-
Sexual Harassment Act
Envisions a society that promotes gender equality
and women’s empowerment, and upholds human
rights, among others. It was aligned with the areas
of concern of the Beijing Platform for Action.
o 1996-present – Integration of the Gender and Development (GAD) provision in General
Appropriations Act (GAA) Laws enacted from 1997
Requires all government agencies (including local government units) to utilize at least 5% of their
respective total budgets for programs, activities and projects that address the needs and uphold
rights of women. This policy has since been incorporated annually in the General Appropriations Act
(GAA), though revisions have been made to ensure effective implementation of the GAD budget
policy.
o 1997 – Republic Act (RA) 8353 or Anti-Rape Law
o 1998 – RA 8505 or the Rape Victim Assistance Act
2001 - Framework Plan for Women (2001-2004)
Focuses on the economic empowerment of women, protection and fulfillment of women’s human
rights, and promotion of gender responsive governance. The Philippine Government has adopted
gender mainstreaming as its principal strategy for pursuing these goals.
o 2003 – RA 9208 Anti-Trafficking in Persons Act
o 2004 – RA 9262 or the Anti-Violence Against Women and their Children Act; Formulation
of the Framework Plan for Women (FPW), a time slice of the PPGD
o 2009 – RA 9710 or the Magna Carta of Women (MCW)
Mandates gender mainstreaming in all government offices, and the generation of gender statistics
and sex-disaggregated data to aid in planning, programming, and policy formation.
RA 7192 (Rule 1, Section 2)
“The State recognizes the role of women in
nation building and shall ensure the fundamental
equality before the law of women and men. The
State shall provide women rights and
opportunities equal to that of men.
“To attain the foregoing policy:
a. A substantial portion of official development
assistance funds received from foreign
governments and multilateral agencies and
organizations shall be set aside and utilized by the agencies concerned to support programs and
activities for women
b. All government departments shall ensure that
women benefit equally and participate directly in
the development programs and projects of said
department, specifically those funded by official
foreign development assistance.
c. All government departments and agencies shall
review and revise all their regulations … to
remove gender bias therein.”
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G. Philippines RPBMS Institutional Arrangements
AO25 Inter-Agency Task Force (IATF)11
Serves as single performance management system for the whole of the Executive Branch. The AO25
IATF is chaired by the Department of Budget and Management (DBM) and co-chaired by the Office of
the Executive Secretary (OES). Its membership includes the National Economic and Development
Authority (NEDA), the Presidential Management Staff (PMS), and the Department of Finance (DOF). It is
composed of a technical working group with the following members: Civil Service Commission (CSC),
Commission on Audit (COA), Office of the Ombudsman, Commission on Higher Education (CHEd),
Career Executive Service Board (CESB), National Competitiveness Council (NCC) and Governance
Commission for the Government-Owned and Controlled Corporations (GCGOCC). The Development
Academy of the Philippines (DAP) serves as the Technical Secretariat and Resource Institution of the
AO25 IATF.
Oversight agencies and implementing departments/agencies have the following key roles:
DBM ensures that the allocation of funding to MFOs is consistent with government priorities
reflected in the PDP, RM, PIP, and MTEF. It monitors the delivery of MFOs in accordance with
performance targets. It coordinates the preparation of the budget submitted to Congress. A
medium-term expenditure framework is in place, which includes medium-term fiscal targets and
forward estimates of the costs of ongoing programs and projects. Performance indicators
monitor the delivery of outputs by ministries and agencies at different levels of results. Since
2002, the Department of Budget and Management has also been reviewing agencies’ financial and
physical statements and reports as the basis for decisions about the release of funds in
subsequent periods. Zero-based budgeting has been adopted in 2011 to assess the continued
relevance of programs and projects and guide subsequent resource allocation.
NEDA evaluates societal and sector goals and measures the effectiveness of MFO impacts on
sector and societal outcomes. It serves as National and Regional Development Plan and Program
Coordinator (by issuing planning guidelines and conducting multisectoral/regional consultations);
Public Investment Evaluator and Programmer (by coordinating the Official Development
Assistance and appraising programs and projects); Development Plan, Program and Project
Monitor (by conducting program/project evaluation and on-site reviews and consultations); and
Technical Assistance Provider (by providing technical/secretariat services to the NEDA Board
and its Committees, Regional Development Councils, Philippine Council for Sustainable
Development, National Land Use Committee, inter-agency bodies, and other clients, including
local government units). The NEDA Board is headed by the President with selected Cabinet
secretaries and other executive staff officers as members. On the other hand, the NEDA
Secretariat is the research arm of the NEDA Board. It provides technical support in matters
involving policy development, policy formulation, implementation and evaluation. The NEDA
Director-General heads the Secretariat, and is also the Socio-Economic Planning Secretary.
DOF funds the budget through borrowing and taxes subject to the performance contract with
the government.
COA performs accounting and audit functions, including a performance audit that validates the
integrity of OPIF information.
CSC promotes the continuous improvement of individual performance through a performance
management system linked to OPIF.
Implementing departments/agencies deliver MFOs to clients and monitors corporate
and individual performance as reflected in performance contracts.
11
http://www.doh.gov.ph/sites/default/files/MC2014-01PBB.pdf
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Role of Oversight and Implementing Agencies12
Function Results Monitoring & Evaluation Role
NEDA Evaluates effectiveness of MFO impacts
on societal goals and sector goals --
measures effectiveness
Facilitates formulation of PDP
Develops and runs an econometric model to
measure contribution of MFOs in delivering
change at the national level.
Monitors the performance of the mix of MFOs
produced by government agencies to deliver
societal goals and sector goals in terms of
broad economic and social statistics
DBM Negotiates delivery of MFOs on a value
for money basis from
departments/agencies – negotiates
performance contracts
Ensures allocation of funding to MFOs is
consistent with MTEF/FEs, PDP, and PIP
Monitors the delivery of MFOs in accordance
with performance targets agreed upon with
departments/agencies
Carries out analysis to ensure performance
targets are realistic and reported performance
is valid
DOF Funds the budget through borrowing
and taxes subject to a performance
contract with the government
Supervises revenue operations and manages all
public debt
CSC Promotes continuous improvement
through an individual performance
incentive system; Collaborates with
DBM on a performance based
remuneration framework linked to
delivery of MFOs
Manages personnel performance evaluation
COA Quality assurance, accounting, and
auditing, including performance audits;
ensures accuracy of
departments/agencies’ reported
performance
Monitors the reporting of performance by
departments/agencies and ensures the quality
of the numbers produced
Implementing
Agencies
MFO delivery, continuous improvement
through monitoring internal
performance, and strategy
implementation subject to
performance contract or agreement
Gathers data and reports statistics against
performance targets agreed upon with DBM
and uses this data to continuously improve its
own performance
Provides performance reports on the delivery
of its MFOs to the President and Congress to
promote transparency and accountability
12 ADB. 2011. Framework for Results-Based Public Sector Management and Country Cases. Manila
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H. Philippines Gender Institutional Arrangements
In the Philippines, there are three government agencies that deal specifically with the women’s issues.
1. The Philippine Commission on Women (PCW)13
It is the Philippines’ national machinery for the advancement of women established on January 7,
1975 under the Office of the President through Presidential Decree No. 663. With the
enactment of the Republic Act 9710 in 2009, the PCW was strengthened and mandated to be
the “the primary policy-making and coordinating body of the women and gender equality
concerns under the Office of the President.”
2. Bureau of Women and Young Workers (BWYW) of the Department of Labor and Employment
(DOLE)14
It formulates policies and promulgates orders, rules and regulations implementing the provisions
of the Labor Code affecting working women and minors
3. Bureau of Women’s Welfare (BWW) of the Department of Social Welfare and Development (DSWD)15
It promotes women’s welfare with specific attention to the prevention or eradication of
exploitation of women in any form such as, but not limited to prostitution and illegal
recruitment, as well as the promotion of skills for employment.
Other structures, which serve as instruments and the enabling mechanisms in advancing the promotion
and advancement of gender issues in the country include:
o The GAD Focal Point Mechanism is the primary structure for Philippine Development Plan for
Women (PDPW) implementation. The focal points are envisioned to serve as catalysts for
gender responsive planning and programming in various line agencies. The GAD Focal Point
Mechanism is composed of the agency head or local chief executive, an executive committee
with an Undersecretary, local government unit official or an office in a strategic decision-
making position as a Chair and a technical working group or secretariat which is composed
of representatives from various divisions within the agency or local government unit.
o The Senate and House Committee on Women and Family Relations serve as the women’s
mechanism in the Philippine legislature.
o The academe/NGOs undertake continuing studies and researches on women’s conditions in
varied sectors and geographical areas, and on issues affecting them such as the impact of
mainstreaming gender development programs and policies on Filipino women, violence
against women, reproductive health, overseas work and others.
o Women’s Priority Legislative Agenda (WPLA) was laid down by the NCRFW in 2008, anchored
on the Philippine Plan for Gender-Responsive Development (PPGD), Framework Plan for
Women (FPW), and the provisions of the CEDAW, particularly its Concluding Comments.
13
http://www.pcw.gov.ph/ 14
http://www.dole.gov.ph/fndr/bong/files/DO%2037-03.pdf 15
http://www.dswd.gov.ph/
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I. M&E Tools, Components, Evaluation Methodologies and Quality of Data
Results are monitored and evaluated in the GOP through the Official Development Assistance Portfolio
Review, the Budget Performance Review, the Results Matrices monitoring, the Strategic Performance
Management System, and audit reports.
The Official Development Assistance Portfolio Review (ODAPR)16 is conducted annually by
NEDA to review all ongoing foreign-assisted programs and projects and their financing. The review is
done to further improve the quality of ODA performance and the relevance of projects to national
priorities in the PIP and PDP.
DBM, in coordination with departments/agencies, conducts the Budget Performance Review
(BPR)17. The BPR
focuses on the
performance of a
department/agency in
delivering MFOs and
is conducted midyear
and annually. It
analyzes financial and
physical performance
data (MFO
performance
indicators and
targets) captured
from agency budget
accountability
reports submitted to
DBM. At year-end,
all financial and
physical performance
information is
analyzed and
consolidated as a report to the President and Congress on the performance of departments/agencies in
delivering MFOs.
Oversight agencies have their own M&E systems to monitor results of GOP performance. NEDA
monitors results by analyzing indicators with baseline levels and targets set in the Results Matrices,
which were used in formulating PDP and department plans.
The Civil Service Commission (CSC) develops the Strategic Performance Management System
(SPMS) for monitoring and assessing individual employee performance. The SPMS uses outcome
indicators to determine how an employee’s performance contributes to the agency’s goals. Lastly, the
Commission on Audit (COA) conducts an audit of the financial performance of departments/agencies
and produces annual audit reports for each government agency and for the whole of government.
16
http://www.neda.gov.ph/?page_id=1188 17
http://www.dbm.gov.ph/wp-content/uploads/2012/03/OPIF%20Reference%20Guide.pdf
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NEDA also facilitates the annual review of the results of the PDP and the reporting of results through
the Socioeconomic Report (SER). The SER summarizes and monitors the government’s
achievements during the year to meet the goals and targets set in the PDP, RM, and PIP, as well as its
commitments to the Millennium Development Goals. The SER also spells out the outlook and policy
directions for the coming year.
The periodic performance reports to the President and Congress required of departments/agencies
under Executive Order 292, or the Administrative Code of 1987, will include budget performance based
on MFO performance indicators and targets.
In addition, in 2013, NEDA established the following M&E systems and frameworks to aid the
management of PAPs:
Ex-post Evaluation Manual, a product of multi-stakeholder consultation that aims to guide users in
evaluating completed projects consistent with international standards and Philippine results-
based monitoring instruments.
Development Effectiveness Initiative: Global Partnership Monitoring Framework (GPMF), a
framework that tracks the progress of commitments made by country signatories to the Busan
Partnership for Effective Development Commitments. NEDA serves as the GPMF Philippine-
secretariat and undertook the baseline survey to generate country-level information of ten key
indicators.
Programs and Projects Information Exchange System (PPIES), an interactive web-based query system
that integrates three existing project monitoring systems in NEDA. The PPIES Roadmap
envisions further systems improvement, including the incorporation of geospatial data, as well as
vertical and horizontal integration of M&E systems across regions.
NEDA was instrumental in preparing a draft M&E Roadmap that bridges the gap among various M&E
initiatives of the Office of the President (OP), Department of Budget and Management (DBM) and other
implementing agencies. The Roadmap will ultimately enhance the M&E of PDP and PAPs, as well as
strengthen the government’s capacity to conduct results-based M&E. However, the draft M&E Roadmap
does not refer specifically to gender responsiveness.
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J. Professional Capacity for M&E
To address the need to enhance evaluation capacities, GOP has advocated the continuous participation
of its officials in various evaluation fora conducted by various institutions.
Primarily, the traditional mode of capacity building was through the participation of officials in evaluation
workshops and seminars. Foremost of these is through the annual ODA Evaluation Workshops hosted
or cohosted by the Government of Japan (GOJ). Starting in 2007, the Asian Development Bank has also
supported the annual participation of select policy-makers in government to attend the Shanghai
International Program for Development Evaluation Training (SHIPDET). Through these opportunities,
capacities of evaluation champions and advocates were enhanced. These workshops have not included
gender responsive components.
In addition, GOP entered into a Memorandum of Agreement (MOA) separately with a number of its
development partners for the conduct of joint evaluations and Supervision Missions. NEDA and JICA
entered into a MOA in 2006 to enhance NEDA’s project monitoring and evaluation capabilities. Under
the MOA, joint ex-post evaluations of 13 JICA-assisted projects were undertaken up to 2012. In 2008,
MOU was signed between the International Fund for Agricultural Development (IFAD) and NEDA for
undertaken joint Supervision and Implementation Support missions of the IFAD-assisted projects in
Philippines as well as organization of M&E trainings by IFAD for NEDA Regional Offices (NROs) and
Central Office officials. All that allowed NEDA staff to deepen their knowledge and understanding of
evaluation concepts and processes.
Moreover, Philippines has a very active M&E network, which unites development partners, academe,
M&E practitioners/consultants, civil society organizations (CSOs), oversight agencies, and implementing
agencies, in particular:
Monitoring and Evaluation Network Philippines18
o Started in 2010, formally launched in November 2011
o Initiated by NEDA and financial supported by UNICEF
o Project Monitoring Staff of NEDA serves as the interim Secretariat of the Network
o Goal: to enhance the likelihood of accomplishing development objectives by utilizing and
continuously improving evaluation systems and procedures with the vision to ensure
achievement of development results
o Established a web-site, organized 3 M&E Network Forums (2011-2013), conducted of
evaluation capacity-building seminars/workshops. Nevertheless, gender responsive
statements were not included in it.
Philippines Development Evaluators Association (PHILDEV)
o Formed in 2009, obtained government recognition in March 2010
o 26 members
o Goal: Emphasis on advocating M&E for transparency, integrity and accountability in
governance and building M&E capacity in members and society
o Participated in local & international evaluation events
Philippines Monitoring and Evaluation Society (PMES)
o Formed 2007, registered 2010
o 76 members
18
http://devplan.neda.gov.ph/m&e-network/
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o Goal: To raise the status and standard of M&E practice in the Philippines, build M&E capacity
in members and society, and advocate M&E for transparency, integrity and accountability in
governance
o Organized two major Training workshops held for members, helped NEDA design the
national M&E Forum held in November 2011
K. Utilization of M&E
As the Plan’s primary M&E instrument, the RMs serve as the basis for the NEDA and the National
Statistical Coordination Board in preparing the Socio-Economic Report (SER) and the Statistical
Indicators on Philippine Development Report, respectively. These reports document the annual
accomplishments and achievements made by the government based on priorities laid out in the PDP as
well as included reporting on gender equality issues. Likewise, reporting on the accomplishments of the
government through the President’s State of the Nation Technical Report (STR) is also based on the
PDP-RM targets. There is an ongoing initiative between the Office of the President, the DBM and NEDA
to come up with a harmonized reporting template responding to the data needs of the abovementioned
oversight agencies which shall be used in future STRs.
An evaluation of the medium-term national plan is undertaken before preparing the successor plan.
Programs and projects are evaluated after their completion to assess achievements of impact, outcomes,
and outputs. It is done by The Philippine Institute for Development Studies (PIDS), the government’s
think tank attached to NEDA. NEDA is also mandated to monitor the level of ODA resources allocated
for gender responsive PAPs.4The ODA-Gender and Development (GAD) report is based on
information gathered from development partners using the “Harmonized Gender and Development
Guidelines for Project Development, Implementation, M&E.” The report is annexed in the ODA
Portfolio Review. To assess and recommend options that address crosscutting and recurrent
implementation issues in the ODA portfolio, NEDA conducts Joint Analytic Work (JAW) exercises with
key development partners like the Asian Development Bank (ADB), Japan International Cooperation
Agency (JICA) and World Bank (WB).
Despite the many evaluations, project reports, and studies related to results conducted in the
Philippines, findings have not always been effectively disseminated and feedback mechanisms remain
weak. Studies have not been fully used and their recommendations have not been fully adopted.
In terms of gender, it was incorporated into the Philippine Development Plan 2011–2016, where gender
interests (e.g., health needs, the raising of children, and the prevention of domestic violence) are seen as
issues arising from the unequal division of power between men and women. These needs and
deprivations cannot be addressed without redressing gender inequality. The PDP states that the
government will mainstream GAD concerns in planning, policy formulation, program and project
development and implementation, and monitoring and evaluation. So gender responsiveness is a thread
that runs through all government planning and policy in Philippines.
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3.0 SUCCESS FACTORS AND CHALLENGES
Success factors with Gender
Adoption of gender mainstreaming as a strategy for women’s empowerment and gender equality
in the country (Philippine Development Plan for Women, Philippine Plan for Gender-Responsive
Development, Women in Development and Nation-Building Act, GAD Budget Policy and GAD
Focal System)
Inclusion of Magna Carta of Women (MCW) into law, which prohibits the discrimination against
women and recognizes, promotes and protects their rights
Development of Philippine Development Plan with incorporation of Results Matrices
Establishing of Results-Based Performance Management System (RPBMS) to monitor the
performance of government agencies, in line with the GOP’s commitment to good governance
by encouraging exemplary performance and effective service delivery by the public sector
Key Challenges with Evaluation While planning is strong and budgeting is progressing toward results orientation, implementation
remains a weaker component in the PSM cycle. Complicated procurement processes, slow
releases of funds, and tight internal controls to deter leakages strain budget execution
As part of the Philippines’ decentralization policy, national government agencies have been
partnering more with their regional offices and local governments in project implementation.
Nevertheless, remaining overlapping mandates among national ministries, agencies, and local
governments affect the coverage and quality of service delivery
Need for a policy framework to guide evaluation activities (i.e., National Evaluation Policy) and
focus on accountable and gender-responsive governance especially in areas of representation
and financing for gender equality, peace building and disaster risk reduction
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4.0 CONCLUSION The Government of the Philippines (GPH) has currently achieved significant gains in integrating results-
based management (RBM) culture in its processes, although NEPS is just in process of development. It
has also made significant progress in enhancing the opportunities and welfare of its women and men.
The Government’s Framework Plan for Women emphasizes women’s economic empowerment,
women’s human rights (particularly access to basic social services), and gender-responsive governance as
the keys to gender equality and the empowerment of women. The Philippines has succeeded in putting
in place many of the components of results-based PSM, including strong planning that is being
progressively aligned to the budget, and adequate results monitoring focused on outputs rather than
inputs. In addition, broad consultation at various points in the PSM process helps ensure ownership of
the plan and transparency in the process. Nevertheless, challenges remain in overcoming weak linkages
among PSM components, particularly in implementation, monitoring, and evaluation. On the one hand,
adequate monitoring mechanisms are in place, but on the other hand while evaluation systems are also
in place, ex post facto audits and reports may be delayed, findings may not be effectively disseminated,
and feedback mechanisms remain weak to sufficiently inform succeeding plans and budgets. In spite of
the well-designed gender framework and strong monitoring and planning functions within the public
sector, Philippines does not have clear linkages between gender and M&E agencies. As of now, they
work in parallel rather than jointly..
5.0 RECOMMENDATIONS o Finalize and approve a policy framework to guide evaluation activities and align it with GAD
framework
o Ensure greater coordination between national and regional agencies, implementing and
oversight agencies, and statistical agencies
o Advocate for increase in usage of evaluation as a tool for learning, accountability and
transparency by the GOP
o Improve data quality (also baseline) and use monitoring data in evaluation. Evidence-based
decision-making processes depend on quality reports; quality reports depend on quality data
analysis; and quality data analysis depends on quality data
o Establish evaluation training in universities for strengthening evaluation capacity development
of public officials, civil society organizations and private practitioners
o Strengthen advocacy for results (use of RM in reporting accomplishments e.g., SER, RDR,
SONA technical reports)
o Integrate gender responsiveness in all evaluation practice
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6.0 BIBLIOGRAPHY
Laws on Women, An Annotated List, Volume I
National Commission on the Role of Filipino Women (NCRFW) Manila, Philippines, December 2000
Laws on Women, A Compilation, Volume II, NCRFW, Manila, Philippines, December 2000
“Make Women Matter”, Women’s Priority Legislative Agenda, 14th Congress, NCRFW, 2008
General Appropriations Act, FY 2008, Volume No. 104, No. 1, Official Gazette, Department of Budget
and Management, 2008
ADB. 2011. Framework for Results-Based Public Sector Management and Country Cases. Manila
National Economic and Development Authority (NEDA). 2011. Guidelines for the revalidation of the
2011-2016 Philippine Development Plan- Results Matrices, NEDA, Manila, Philippines.
National Economic and Development Authority (NEDA). 2011. Philippine Development Plan Results
Matrices 2011- 2016, NEDA, Manila, Philippines.
http://devplan.neda.gov.ph/
http://www.neda.gov.ph/
http://www.nscb.gov.ph
http://www.pcw.gov.ph
http://www.neda.gov.ph/wp-content/uploads/2013/10/pdprm2011-2016.pdf
http://www.mdsoftinnovators.com/__staging/dap/wp/wp-content/uploads/2013/10/AO-25.pdf
http://www.neda.gov.ph/wp-content/uploads/2014/08/PH-5TH-MDG-PROGRESS-REPORT_Nov-4-
ver.pdf
http://www.pcw.gov.ph/sites/default/files/documents/resources/gmrk-mainstreaming-gender-
development-planning.pdf
http://www.dbm.gov.ph/wp-content/uploads/2012/03/OPIF%20Reference%20Guide.pdf