case-study on equity focused and gender responsive …

CASE-STUDY ON

EQUITY FOCUSED

AND GENDER

RESPONSIVE M&E

SYSTEM IN

PHILIPPINES Katerina Stolyarenko, Independent Consultant

January 2015

SLEvA

Case-Study on EF&GR M&E System in Philippines

Parliamentarians Forum on Development Evaluation and Sri Lanka Evaluation Association

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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

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

http://www.adb.org/sites/default/files/publication/148792/results-based-management-framework.pdf

http://www.pcw.gov.ph/sites/default/files/documents/resources/harmonized-gad-guidelines-2nd_ed_0.pdf



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0

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

http://www.gov.ph/2011/12/21/administrative-order-no-25-s-2011-2/

http://www.dbm.gov.ph/wp-content/uploads/Issuances/2011/National%20Budget%20Circular/NBC532/NBC532.pdf

http://www.dbm.gov.ph/wp-content/uploads/Issuances/2011/National%20Budget%20Circular/NBC532/NBC532.pdf

http://www.dbm.gov.ph/wp-content/uploads/EO/EO43.pdf

http://www.gov.ph/2012/07/20/executive-order-no-80-s-2012/

http://pcw.gov.ph/law/pcw-memorandum-circular-no-2012-01

http://www.philmech.gov.ph/upload/TRANSPARENCY%20SEAL/Approved%20Budgets/CY%202013%20Approved%20Budget.pdf

http://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

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/

http://www.pcw.gov.ph/

http://www.dole.gov.ph/fndr/bong/files/DO%2037-03.pdf

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

http://www.neda.gov.ph/?page_id=1188




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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/

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://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.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.pcw.gov.ph/sites/default/files/documents/resources/gmrk-mainstreaming-gender-development-planning.pdf


case-study on equity focused and gender responsive …

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