Women Empowerment in Local...

WOMEN EMPOWERMENT IN LOCAL GOVERNANCE:

THE GENDER AND DEVELOPMENT PROGRAM IN
BARANGAY BASAK SAN NICOLAS, CEBU CITY

Eric Awi1, a
Colegio de San Juan de Letran-Manila1
a
[email protected]

ABSTRACT

Good local governance connotes gender equality and women empowerment. This study focused on how local government
uplifts the morale of the women constituents. Also, this study identified the gender-related concerns in the local government
and the programs and projects in the local government towards women empowerment. The researcher anchors this study on
the CIPP model of Daniel Stufflebeam (1983) to view and evaluate the programs developed by the local government and
their decision-making process. This study employs a descriptive qualitative design and analysis of secondary data. The selected
local government is Barangay Basak San Nicolas in Cebu City. The GAD programs have its essentials in providing the way to
configure an integral part of policy research that will be focusing on policy shaping communities and necessitating potential
political accommodation. The barangay could work hand in hand with other NGOs. There must be a cross-sectoral strategy
between the GAD officers and NGOs. Building more networks could possibly help the GAD programs in the barangay.

Keywords: Gender, local governance, gender and development

perpetuated. The primary goal is to achieve gender

INTRODUCTION equality by transforming the mainstream’(United
Nations 1997). Gender mainstreaming is not an end in
Good Local Governance cannot work if due itself, but a means to the goal of gender equality. As
attention is not given to gender equality and women’s a strategy, gender mainstreaming requires attention to
empowerment (Anna Tibaijuka, UN-HABITAT gender perspectives, making them visible and showing
Undersecretary General, 2008). Gender mainstreaming, the links between gender concerns and achievement of
adopted at the Fourth World Conference in Beijing the goals of development. Moser et al. (1995) illustrated
and captured in the resulting Beijing Declaration that indicators used to assess the gender impact of
and Platform for Action (United Nations 1995), is a programs and projects tend to measure progress in
strategy that involves the mainstreaming of the gender implementation rather than the actual outcomes.
perspective in all aspects of development. This means
going beyond a focus on increasing the numbers of During Cory Aquino’s term, the first woman
women in development projects to bringing gender president, changed the dynamics within the gender
perspectives to the fore in all aspects of development equality. This time, more women from the NGO and
work. This requires ‘assessing the implications for other civil society advocates which were previously
women and men of any planned action’ in order to averse to working with government under the
make their respective concerns and experiences ‘an Marcos presidency were more open in joining the
integral dimension’ of the entire project cycle ‘so that National Commission on the Role of Filipino Women
women and men benefit equally, and inequality is not (NCRFW). This period was notable in shifting
8 Awi
the direction of the NCRFW towards women and departments, NGOs can access this critical resource
development concerns. Gender mainstreaming became at the local through partnership projects with the
the main strategy of a more vigorous NCRFW towards provincial, city or provincial development councils or
the goal of “making government work force (NCRFW, local governments (De Dios, 2001). NCRFW believes
2001). The first Philippine Development Plan for that engendered governance is better governance and the only
Women (1987-1992) was first introduced during this way this can happen is to put resources to empower women
time which is among the first such planning documents at the grassroots levels to undertake programs and projects
in Asia. A landmark law, the Women in Development for women. The dynamic and active participation of
and Nation Building Act or RA 7192 was also passed women in different regional communities’ contexts
at this time. Government’s efforts under President and the development of best practices on GAD
Fidel Ramos’ term continued and sustained the efforts planning and budgeting may yet become the most
of the Cory Aquino government towards gender enduring institutionalized partnership between
equality. A more comprehensive planning document, NGOs and the government as a whole (2001, pp. 6).
the Gender Responsive Development Plan , a 30
year perspective plan was adopted committing the In Cebu, Dr. Rhodora Masilang-Bucoy,
government to a long term and strategic integration an Associate professor of Political Science and
of women’s concerns in national development plans Development in the University of the Philippines
of the government. This was followed by the adoption – Cebu, gave a talk on mainstreaming gender on
of a Gender and Development Budget (at least 5% of the tri-functions of the university. She explained
total departmental and LGU budgets) which enabled about engendering curriculum, bringing the feminist
the NCRFW to monitor the implementation of GAD discourse in the academe, and foregrounding women’s
plans among departments. It was also during this time voices. According to her, gender mainstreaming is
that two important laws on women, the Anti-Rape Law a strategy to integrate women’s and men’s concerns
and the Anti-Sexual Harassment Law – legal advocacies and experiences into the design, implementation,
that brought the NCRFW in close partnership with the monitoring and evaluation of policies, programs, and
women NGOs. At the international level, the NCRFW projects in all political, economic and social agenda. She
actively introduced two major advocacy agenda at the stressed the importance of dealing with gender issues
UN --- the defense of migrant women’s rights and the because “these impede the capabilities of women and
advocacy against trafficking of women and girls which men to attain their full potentials” and to ensure that
were consistently adopted as four resolutions at the both females and males will be able to “do what they
Commission on the Status of Women and the Human need to do in order to attain a full and satisfying life.”
Rights Commission. Further confirming the leadership She asserted that the Philippine Government has been
role of the NCRFW at the international level was committed to gender equality because of international
the Chairpersonship of the Philippines at the Beijing conventions to which it is signatory like the Convention
Conference on Women under Dr. Patricia Licuanan, then on the Elimination of All Forms of Discrimination
the Chair of the Commission on the Status of Women. Against Women (CEDAW) (Inquirer.net, 2012).

During the Estrada administration, the NCRFW Barangay Basak San Nicolas (BSN) is a densely
continued its gender mainstreaming approach and populated coastal barangay located in the southern part
made important strides in regional networking through of Cebu City, facing the island of Mactan and the islet
its central role in hosting the First Women Ministerial of Kawit in Cebu Strait. It is about three (3) to five
Meeting on APEC held in Manila in 1998. Despite its best (5) kilometers from Cebu City Proper or about fifteen-
efforts, the NCRFW could not maximize its advocacy minute drive from Colon (commercial area) via the Cebu
role due to the credibility problem of a national leader South Road It has thirty-six (36) sitios (neighborhood
whose respect for women was always in doubt in the zones) and is bounded by barangays Mambaling, Punta
public perception. Under the administration of Gloria Princesa, and Tisa on the North by Cebu Strait and
Macapagal-Arroyo, a Framework Plan for Women, a slice Mambaling on the East, and Basak Pardo on the South.
of the Philippine Plan for Gender Development based It is approximately three (3) to five (5) kilometers from
on the Beijing Platform for Action agenda was adopted. existing dumpsite of the city located in Inayawan
The plan is focused on three strategic areas: the further South. BSN has a population of 32,000 or 5,090
promotion, defense and protection of women’s human families (City Health Data, 1994) about half of which
rights; the promotion of the economic empowerment are urban poor. According to its barangay captain, total
of women and the development of engendered good 1996 population is estimated to be around 45,000.
governance systems at the national and local levels.
Formerly characterized by vast rice fields, the
One of the most critical areas of cooperation barangay was referred to by the Cebuanos as ‘basakan’
of NGOs and NCRFW has been the implementation which means rice field area or simply rice field.
of the GAD Budget. Although it was mainly spent Before World War II, it was also referred to as San
on gender and development projects of the different Nicolas since it was under the San Nicolas Parish of

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 Women Empowerment in Local... 9
the Roman Catholic Church. The name San Nicolas into concrete changes on the ground, especially at the
was attached to Basakan, which later was contracted local level. In the issue of Capacity.org (2010), they
into ‘Basak San Nicolas’ as it is presently known. look at the capacities that local governments need to
address gender inequalities effectively specifically at the
There were more females than males in the issue of decentralization, which increases the power of
barangay in 2007 with a sex ratio of 96 males for local governments and, by extension, their capacity to
every 100 females. The same sex ratio was recorded boost gender equality. Helen O’Connell (2010) provides
in 2000. Of the household population 10 years old a general overview of the capacities local governments
and over, 48.2 percent were never-married while 40.2 have or need to effectively promote gender equality.
percent were married. The remaining proportion were She also explores to what extent decentralization can
either widowed, divorced/separated, had common- enhance this capacity. As long as women have not
law/live-in marital arrangement, or with no report acquired a critical mass of powerful positions, male
on marital status. Females outnumbered their male leaders need to become gender sensitive. They have
counterparts in all of the categories for marital status. to learn to understand and appreciate situations from
the perspective of the opposite sex. They need to be
Approximately 27 percent of the household aware of and recognize the differences, inequalities and
population 5 years old and over had attended specific needs of women and men. And they have to act
or completed elementary education, 32.5 on this awareness (ibid). Evidence of gender inequality
percent had reached or finished high school, is a powerful resource for generating gender sensitivity
12.9 percent were college undergraduates, and and essential for developing effective gender policies.
14.6 percent were academic-degree holders. So, Gender and Development Programs in the local
government are essentials in promoting gender equality
Women’s Action Group, whose members include not only political but also economic and social aspect.
many of the women leaders of BUPCC organizations,
actively supports the waste management activities Gender Mainstreaming
in BSN in terms of attending BUPCC meetings,
encouraging residents to observe cleanliness, Gender Mainstreaming is an organizational
and of coordinating with BUPCC leaders who strategy to bring a gender perspective to all aspects of
monitor the waste situation in the community. an institution’s policy and activities, through building
gender capacity and accountability (Baden and Reeve,
This study focused on the specific programs/ 2000). The 1970s strategies of integrating women
projects/activities for women in Gender and into development by establishing separate women’s
Development. Specifically, this paper aimed to answer units or programs within state and development
these queries: What are the gender-related issues institutions had made slow progress by the mid- 1980s.
or concerns in the local government? What are the (See National Machineries for Women). In light of this, the
programs/ projects under gender and development need was identified for broader institutional change
programs in the selected local government towards if pervasive male advantage was to be challenged.
women empowerment? How does the local government Adding women- specific activities at the margin was
address the issues? Local government will provide no longer seen as sufficient. Most major development
women from the most marginalized communities with organizations and many governments have now
the chance to engage politically. It plays a key role in embraced ‘gender mainstreaming’ as a strategy for
promoting greater equality and building inclusive moving towards gender equality. With a mainstreaming
societies (O’Connell, 2010). Decentralization has to be strategy, gender concerns are seen as important to
accompanied by mobilization and advocacy if it is to all aspects of development; for all sectors and areas
effectively establish gender equality and equity (2010:4). of activity, and a fundamental part of the planning
process. Responsibility for the implementation of
LITERARY REVIEW gender policy is diffused across the organizational
structure, rather than concentrated in a small central
Women are under-represented in political office unit. Such a process of mainstreaming has been seen
due to a lack of income, education and freedom, not to to take one of two forms. The agenda-setting approach
mention gender divisions of labor (capacity.org, 2010). to mainstreaming seeks to transform the development
Male-dominated leadership often lacks the political will agenda itself whilst prioritizing gender concerns.
to address gender inequality, making it a vicious circle
that is difficult to break. Gender inequality in developing The more politically acceptable integrationist
countries is one of the key factors hampering wealth approach brings women’s and gender concerns into all
creation, poverty reduction and the attainment of the existing policies and programs, focusing on adapting
the Millennium Development Goals (ibid). While institutional procedures to achieve this. In both cases,
international policy has made some progress towards political as well as technical skills are essential to a
addressing gender inequality, it needs to be converted mainstreaming strategy. Any approach to mainstreaming
10 Awi
requires enough resources, as well as high-level cut across these, such as those of class and race, so
commitment and authority. A combined strategy can assumptions cannot be made of women’s solidarity.
be particularly powerful. This involves the synergy of a
catalytic central gender unit with a cross-sectoral policy Gender Planning
oversight and monitoring role, combined with a web of
gender specialists across the institution. The building The purpose of gender planning is to ensure
of alliances both within the institution and with outside gender-sensitive policy outcomes through a
constituencies, such as women’s organizations, is systematic and inclusive process. If gender policy has
crucial for success. Mainstreaming tools include gender transformatory goals, then gender planning as a process
training, introducing incentive structures which reward will necessarily be a political one, involving consultation
efforts on, and the development of gender-specific with and participation of different stakeholders. There
operational tools such as checklists and guidelines. is a variety of gender planning frameworks based on
differing approaches to gender analysis, each with
Gender Needs its own planning principles and tools. For example,
Caroline Moser (1993) developed a gender planning
Certain women’s interests, of a political or framework consisting of gender planning tools,
practical nature, related to their experience as a gender planning procedures, and the components of
gendered person. Such prioritized concerns have been gender planning practice. The gender planning tools
translated into the concept of gender needs (Moser, include gender roles identification, gender needs
1989). This identifies the way in which women’s gender assessment, and the collection of disaggregated data at
interests, defined by women themselves, can be satisfied the household level. The gender planning procedures
in the planning process. Although needs and interests involve the diagnosis of the gender problem,
are conceptually different (Molyneux, 1998), in practice, formulation of gender objectives, procedures for
they are closely related in the planning process. Needs, monitoring and evaluation, gender-based consultation
as well as interests, result from a political process of and participation, and identification of an entry
contestation and interpretation and thus should not be strategy. The final aspect, practice, identifies the need to
externally defined or seen as fixed. Practical Gender institutionalize gender planning, and to operationalize
Needs (PGNs) according to Moser (1989) are the this through recognized procedures. Building capacity
immediate needs identified by women to assist their amongst planners is necessary to ensure policy is
survival in their socially accepted roles, within existing transformed into practice with the minimum of dilution.
power structures. Policies to meet PGNs tend to
focus on ensuring that women and their families have The social relations approach differs in its focus
adequate living conditions, such as health care and food on power in gender relations. This approach uses an
provision, access to safe water and sanitation, but also institutional framework for the analysis of gender
seek to ensure access to income-earning opportunities. inequalities as a tool for gender-aware planning. It
PGNs do not directly challenge gender inequalities, even recognizes that the means through which needs
though these needs may be a direct result of women’s are met is as important as the planned ends of any
subordinate position in society. Strategic gender needs intervention. The planning process is conceived
(SGNs), are those needs identified by women that as participatory and constituted by an analysis and
require strategies for challenging male dominance and evaluation of causes, effects, means and ends. A seven-
privilege. These needs may relate to inequalities in the point ‘Gender audit for development interventions’
gender division of labor, in ownership and control of supports this framework. (Kabeer and Subrahmanian,
resources, in participation in decision-making, or to 1996). Whilst gender transformatory policies are
experiences of domestic and other sexual violence. increasingly being generated, concerns are focusing on
These needs are often seen as feminist in nature as the ‘misbehavior’ of such policies, i.e. a tendency to
they seek to change women’s status and position in slip in implementation from transformatory objectives
society in relation to men. As such, they are more likely to outcomes that fail to challenge existing gender
to be resisted than PGNs. In reality, it is difficult to relations. It has been recognized that GAD approaches
distinguish so clearly between strategic and practical are constrained by resistance and subversion, from
needs. Any policy or program may meet both sets of within both implementing organizations and targeted
needs. Through collective organizing around practical communities. Gender planning needs therefore to be
gender needs, women may achieve more strategic and part of an on-going process of gender mainstreaming,
transformation goals. This politicization of practical backed up by sufficient resources, commitment and
gender needs is a favored entry point for NGOs and authority. Gender planning procedures need to involve
women’s organizations. However, women may not the participation of stakeholders and clear lines of
always recognize or prioritize their strategic gender accountability. At the project level, a variety of planning
needs, particularly if it could threaten their immediate tools are used to operationalize gender policy, including
practical needs. At any time, gender interests may not general and sector-specific checklists and guidelines.
be prioritized over women’s other interests which

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 Women Empowerment in Local... 11
Gender Training restraint and government restructuring has made
claims on resources difficult to advance. Some lessons
‘Gender training…is a tool, a strategy, a space for have been learned. National machineries set up
reflection, a site of debate and possibly for struggle. during democratic transitions (e.g. Philippines, Chile,
Training is a transformative process’ (Macdonald, South Africa, Uganda) have been more influential
1994:31). Gender training is one of a range of and effective, at least in part because of a political
institutional strategies used to integrate gender into commitment to greater social equality and justice.
the work of development co-operation agencies. Its Positive experiences also highlight the importance of
objectives can include raising general awareness of broad and open processes of consultation, for example
the relevance of gender to an organization’s work and in the development of national gender policies. NMWs
skills transfer in gender analysis, gender-aware planning, have therefore had varying degrees of success, and
program design and implementation. Gender training face many challenges in their ability to fulfill a catalytic
typically involves: group discussion and reflection on role and build capacity in other ministries as well as
gender roles and relations; case studies of the impact of their own. There are many constraints remaining
development policies and programs on gender relations; on their effectiveness. These include lack of strong
as well as role plays and simulation games which and clear mandates; underfunding and overreliance
highlight gender dynamics. The trainer’s, as well as the on donor funding; lack of qualified and technically
organization’s, approach to gender and development skilled staff; bureaucratic resistance; inappropriate
influences the training approach, and hence the location; lack of political autonomy; and often lack
framework used. These vary in the degree to which of political support from national political leadership.
they see the need for personal attitudinal and behavioral
change, or focus primarily on changing organizational The 1990s have seen a shift towards new strategies
procedures and practices. Personal transformation for NMWs of institutionalizing or ‘mainstreaming’
tends to be a training objective for Southern NGOs/ gender through advocacy and policy oversight work
women’s organizations rather than development co- across all sectors, ministries and departments. Strategies
operation agencies. and the ‘further reading’ below. include: lobbying for gender in national development
As awareness grows within an organization, so the plans; setting up of focal points in other ministries;
emphasis of gender training shifts to more tailored gender training at all levels; guidelines and checklists
courses to meet specific needs and demands, and to to assist planning and evaluation; and building strategic
more skills-based training. Gender training was initially alliances with NGOs and other women’s organizations.
mainly focused at the project level, but more recently
emphasis has shifted to sectoral and macro-economic Social Justice
policy-making. Attention has recently focused on
the need to evaluate the impact of gender training. Fairness and equity as a right for all in the
Experience suggests that training is most effective when outcomes of development, through processes of
it is part of a broader strategy of organizational change. social transformation the idea of ‘social justice’ as
the outcome of struggles against social inequalities
National Machineries for Women (NMW) implies change towards a more ‘fair’ society. This
requires strategies to redress past injustices, violation
Linking NGOs and women’s organizations with of rights or persistent economic and social inequalities.
policy-makers in government is a key role for NMWs Social movements such as the women’s, worker’s,
in the context of mainstreaming’ (Oxaal, 1997:2). and human rights movements, have fought against
Agencies with a mandate for the advancement of perceived social injustices from a variety of entry
women established within and by governments for points. Such movements have also challenged the
integrating gender concerns in development policy and ideologies and prejudices that legitimate social
planning National Machineries for Women (NMWs) inequalities, in order to mobilize people for change.
- whether offices, desks, or ministries – were central
to the integration strategies of the 1970s (see WID/ There are varying conceptions of ‘justice’.
GAD). They expanded in numbers in the 1980s and Common to them is a formal idea of justice - the
1990s, now being a feature of most governments. idea that inequalities of distribution must be justified
NMWs have made many positive achievements, by an impartial and rational assessment of ‘relevant’
most importantly legitimizing the place of gender differences between the people involved. One key
issues in development planning (Goetz, 1998). theory of justice, based on Rawls’ ideas, translates
this into the idea of ‘justice as fairness’ with its equity
However, NMWs have often proven weak, overtones and need for redistributive strategies. Other
under-resourced, vulnerable to changing political thinking, derived from welfare economics, focuses on
fortunes, and often ghettoized within social and more ‘efficiency’ ideas of maximizing overall utility or
welfare departments. The fact that many national welfare, such that no one can be made better off without
machineries were established during periods of fiscal someone else being worse off. In development, thinking
12 Awi
a ‘capability’ perspective of justice is common, based and on a minimum budget, indicators of success are
on the work of Amartya Sen, i.e. the idea that people not developed, etc. What is forgotten is that women
should have the capabilities to survive and function are already an integral part of development and play a
and the freedom to pursue well-being. This requires very important role. They do not need to be integrated.
both aggregative and redistributive considerations. Rather their contribution needs to be acknowledged, and
Mainstream poverty debates have tended to focus on certain inequalities need to be questioned (Zwart, 1992).
meeting the basic needs of poor people and maximizing
their opportunities, rather than seeing poverty as an WAD (Women and Development) approach
issue of social inequality or injustice. More radical originated in the second half of the 1970s. This
perspectives, often adopted by NGOs, do see poverty perspective emphasizes the economic role played by
as an issue of injustice and focus on organizing and women both inside and outside the home and considers
building capacity for the assertion of rights by the these activities essential for the survival of the family
marginalized Strategies towards social justice have unit. It tends to analyze women as a homogeneous
often overlooked the specific gender injustice or group, taking little notice of important differences of
discrimination, as well as wider social injustices, faced by class, race or ethnicity. Rathgeber (1990) says that even
women. The women’s movement has been working to though the WAD perspective offers a more critical view
ensure that efforts to address injustice, through human of women’s position than does the WID perspective,
rights measures, or economic and social policies, are it also falls short. This is because ‘it fails to undertake
informed by an understanding of gender inequalities. a full-scale analysis of the relationship between
patriarchy, differing modes of production, and women’s
WID, WAD, and GAD subordination and oppression (1990:493). Most people
do not recognize the difference between the WID and
The Women in Development (WID) approach the WAD approach, and we will also not explore the
calls for greater attention to women in development differences here, as these differences are most academic.
policy and practice, and emphasizes the need to The WAD approach is merely a refined and more
integrate them into the development process the WID critical version of the WID concept. Both the WID
perspective evolved in the early 1970s from a ‘liberal’ and WAD perspectives do not address the underlying
feminist framework and was particularly influential in problems of class and gender inequality (Zwart, 1992).
North America. It was a reaction to women perceived
as passive beneficiaries of development. It marked GAD (Gender and Development) approaches
an important corrective, highlighting the fact that generally aim to meet both women’s practical gender
women need to be integrated into development needs and more strategic gender needs (see Gender
processes as active agents if efficient and effective Needs), by challenging existing divisions of labor or
development is to be achieved. Women’s significant power relations. Although WID and GAD perspectives
productive contribution was made visible, although are theoretically distinct, in practice it is less clear,
their reproductive role was downplayed. Women’s with a program possibly involving elements of
subordination was seen in terms of their exclusion both. Whilst many development agencies are now
from the market sphere, and limited access to and committed to a gender approach, in practice, the
control over resources. Programs informed by a primary institutional perspective remains as WID and
WID approach addressed women’s practical needs associated ‘antipoverty’ and ‘efficiency’ policies. There
by, for example, creating employment and income- is often a slippage between GAD policy rhetoric and
generating opportunities, improving access to credit a WID reality where ‘gender’ is mistakenly interpreted
and to education. Women’s ‘problem’ was therefore as ‘women’ (Kabeer, and Subrahmanian, 1996,
diagnosed as insufficient participation in a benign Miller and Razavi, 1995, Moser, 1993, Young, 1993).
development process, through an oversight on behalf
of policymakers (Kabeer, and Subrahmanian, 1996, This school of thought argues that the basis of
Miller and Razavi, 1995, Moser, 1993, Young, 1993). the social assignment of gender roles that contribute
to the exploitation of women (and men) must first
The Women in Development (WID) approach be questioned. As Rathgeber (1990:494) describes:
emerged. Appropriate technology is made available “GAD is not concerned with women perse but with
for women, income generating projects are developed the social construction of gender and the assignment
especially for women, and researchers and policy of specific roles, responsibilities, and expectations
makers try to find ways and means to integrate women of women and men. In contrast to the emphasis on
into development. As these are special women’s projects exclusively female solidarity that is highly prized
there was, and still is, a tendency to lower standards. by radical feminists, the GAD approach welcomes
For example, what is judged to be a reasonable income the potential contribution of men who share a
for women is notably lower than what is considered for concern for issues of equity and social justice”.
men. Women’s income is considered supplementary to
men’s. Projects are usually planned to be small scale In the GAD approach, women are seen as

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 Women Empowerment in Local... 13
‘agents for change, rather than passive recipients called for the establishment in every province and city
of development assistance (Rathgeber, 1990:494). a crisis center for the care and safety of rape survivors.

Gender is used to describe culturally and socially Protection to women workers was given during
determined characteristics, sex to refer to those the early part of the Republic; RA 679 laid down rules
characteristics which are biologically determined. By for the employment of women and minors; these
realizing that gender is culturally determined we should were expanded by RA 6237 and RA 6725. RA 1584
know that what we have created, we can also change, granted maternity leave privileges to women working
perhaps slowly and with struggle and pain. Organizations, in the government. In 1960, The Bureau of Women
programs and projects which follow the GAD approach and Minors was established in the Department of
not only question and examine the sexual division of Labor. Women in the micro and cottage industries
labor but also the sexual division of responsibility. were provided protection by RA 7882. A law exists
The GAD approach is committed to issues of equity. which prohibits lesser compensation for women as
The following clearly shows what is meant by equity: against male employees for work of equal value; RA
7655 also prohibits favoring of male employees with
“A fox and a stork may be given equal opportunity to eat respect to promotion, training, study, and scholarship
from a dish. Who gets most depends on whether the dish is opportunities. The most comprehensive law on
wide and shallow to suit the fox, or deep and narrow to suit women is the so-called Roco-Rasul bill (named after its
the stork. For equitable impact, each would have to eat a sponsors, then Representative Raul Roco and Senator
share of the food from its own dish” (CCIC, 1991:110). Santanina Rasul) the Woman in Development and
Nation-Building Act (RA 7192). On the economic
The GAD approach has often been synonymous aspect, it provides equal rights to wives entering into
with the autonomy view (as opposed to the above contract and loan agreements. It opened military schools
mentioned integration view), which looks beyond the to women as well as the police academies. Furthermore,
functions of women and men in society, to examine the it allowed women equal access to social and cultural
relations between them, the impact of these relations clubs. Passed in 1991, the law led to the acceptance of
on development, and the forces that both perpetuate the first batch of women into the Philippine Military
and change these relations. The GAD approach can Academy, and the increase in the number of women in
be put more simply as an approach which questions the police service. Moreover, with the implementation
traditional views of gender roles and responsibilities of the act, borrowing for livelihood assistance became
and then tries to develop strategies which in the end lead easier for women, who can now obtain credit on their
to empowerment. In the GAD approach women are own. There is now a pending bill in Congress, which
seen as ‘agents for change, rather than passive recipients calls for gender balance in policy and decision-making
of development assistance* (Rathgeber, 1990:494). government positions, elective or appointive, sponsored
by Rep. Loretta Ann Rosales (Pananaw, April-July 2003).
Many people have said that the GAD approach
has been ‘invented’ to talk about women’s issues The Women in Development and Nation
under a new terminology. In a workshop recently, Building Act also provided that a percentage of
participants almost walked out when they discovered foreign assistance be earmarked for programs for
that women’s issues were being discussed (Zwart, women. This was followed through in the General
1992). They said that if they had known that women’s Appropriations Act (GAA) which, in 1995, set aside
issues would be on the agenda that they would have 5% of funds for gender and development (GAD)
never come! It is indeed seen as much ‘safer’ to talk projects. Recently, the Department of the Interior
about gender issues than to talk about women’s issues, and Local Government (DILG) and the Department
but if people do not understand the issues which of Budget and Management (DBM) issued a joint
are being discussed, a different term will not help memorandum circular requiring local government units
much either. The struggle for women’s emancipation to also set aside funds for GAD projects. However,
is much more than using the right terminology, or the mandatory requirement is only 5% of the local
adding a woman to a project or program (1992: 16-21). government’s development fund, which is only 20% of
its IRA (Internal Revenue Allotment). There are many
Gender Reforms from Congress more laws and policies affecting women, but these are
the most significant. Within these parameters, however,
Through the initiative of the first sectoral creative agency heads and local chief executives
representative of women in Congress, Republic Act have come up with their own programs on GAD.
6949 declared March 8 as a special working holiday,
in consonance with International Women’s Day. The Other local government units have followed.
Philippines celebrates March as women’s month. The first cities to establish gender offices are Davao
Assistance to mothers was provided by RA 6972 which in Mindanao, Angeles in Luzon, and Bacolod in the
established a day care center in every barangay. RA 8505 Visayas. Probably the first municipality to do so is
14 Awi
Balayan, Batangas, which has won a Galing Pook the caregivers (Review of Women’s Studies, 2002).
(good local unit) award for its integrated gender
sensitive health program. In northern Luzon, Mayor Theoretical Framework
Mary Jane Ortega has an active gender program. In
Metro Manila, Quezon City and Marikina are the Program Evaluation Theory – CIPP Model
first to establish offices for GAD, with Quezon City
establishing its Gender Resource and Development The study used the Program Evaluation Theory
Office in 2001 and Marikina its Women’s Council in (PET) of Daniel Stufflebeam (1983). He views
2002. With the creation of its GAD Office under the evaluation as an integral part of policy research focused
Office of Mayor Feliciano Belmonte, Jr., there is also a on policy that is shaping communities and necessitating
corresponding GAD Council which maps out projects potential political accommodation (Alkin, 2004).
for women (Palma, RWS, 2002). For its part, Marikina
City under Mayor Marides Fernando is hosting an The said theory evaluates programs developed
international conference of women mayors late this by the government that will ensure the beneficiaries
month. Davao City and Misamis Occidental province or government agencies that is being assessed.
have GAD Codes. These are models used for similar PET scrutinized the result of the programs that
efforts in other local government units. Without are being put into practice based on statements
formal offices established for gender concerns, many of its beneficiaries and analysis of secondary data.
mayors have initiated or supported gender programs.
For instance, Mayor Betty Verzola of Kalinga uses 5% CIPP (Context, Input, Process, and Product)
of her internal revenue allotments (IRA) to support model was developed by Stufflebeam in 1960s to
a livelihood program to further develop the weaving evaluate the decision-making process of a certain
skills of women in the community. Quezon City has agency that is being assessed. It is a model that
established a Grameen type banking where its indigent utilizes four types of evaluation: context, input,
women can avail of livelihood loans without collateral process, and product. Stufflebeam describes the
from a Bulacan rural bank (Almario-Zabat, 2003); they CIPP model of evaluation as a cyclical process.
borrow through their cooperative. A study has shown
the success of this program, where payment of loans CIPP analyzes data to determine goals, priorities
is almost 100% and families have been assisted in small and objectives. It aims to provide an analytic and
entrepreneurial projects. In Sta. Maria, Bulacan where rational basis for program decision-making based on
NGOs are active, then Mayor Reylina Nicolas (now a cycle of planning, structuring, implementing and
Congresswoman) count on the women as partners reviewing and revising decisions. For example, to be
of the municipal government in many projects. able to obtain a certain goal, examination of existing
objectives of the program might be needed. It involves
Among women mayors and Barangay captains, steps and resources to meet the goals and objectives
health and family concerns seem to be priority and might also include identifying successful external
programs. Some women Mayors have won awards for programs and materials as well as information. This
their health service; among these is movie actress-Mayor process of evaluation deals with information about how
Vilma Santos Recto of Lipa City. Two women barangay the program is implemented. By using the program,
captains in Quezon City have been enthusiastically evaluators learn such things as how well it is following
sponsoring awareness workshops on violence against the plans and guidelines, and budgeting problems.
women, where the policewomen’s desk officers
and prosecutors tell women residents of incidence CIPP evaluation model is recommended as a
of violence and how they can bring cases against framework to systematically guide the conception,
perpetrators. In another Quezon City barangay, the design, implementation and assessment of service-
captain has added three day care centers to one existing learning projects. It provides feedback and judgment of
which is co-funded by the City government; her three the project’s effectiveness for continuous improvement.
centers are fully funded by the village. Two Quezon
City barangays have healing centers for survivors of This theory used in the study because of the domain
violence in intimate relationships. A pioneering work created by the proponent, which is “CIPP model”.
is night care for children of working mothers, piloted in Through this model, it was able to examine thoroughly
Taytay, Rizal, and an industrial area where women work the implementation and results of GAD program in
in night shifts. The national government’s Department the local government to its beneficiaries. Thus, gave
of Social Welfare and Development (DSWD), its local a more rational explanation that will benefit the said
counterpart, the municipal government of Taytay, program for gender equality specifically in Cebu City.
the Catholic and Protestant churches in the town,
and the factory management organization combined
efforts to provide the service. Mothers who are off
work some nights volunteer their services to assist

Luz Y Saber Vol. 12 No. 2 (December 2018)

 Women Empowerment in Local... 15
RESULTS AND ANALYSIS
Services enforced by the Gender and Development
Programs for Women Empowerment

GAD as a Social Service Sector for Women

International Women’s Day is the result

of the organizing women’s activities in the early
Theoretical Conceptual Framework 20th century in New York City in their response to
low wages, lack of protective legislation and poor
METHODOLOGY working conditions. During the demonstration, a tragic
happened on March 25, which took the lives of 140
The current study approached the subject matter women (PCW, 2014). In 1917, UN recognized the
qualitatively to describe the evaluation of Gender and IWD to commemorate women’s contribution to all
Development Program in Barangay Basak San Nicolas, society and promote gender equality (Ibid). The local
Cebu City. The data gathering used a descriptive method government celebrates with the annual celebration for
through in-depth Interview and Analysis of Secondary women every March to strengthen the women’s bond
Data. The participants were the 2 officers in the program, in the organization. In this celebration, they organized
random women constituents and 2 government activities and consolidate gains. Their target is to increase
officials implementing the Gender and Development. participation of women and men in the celebration of
women’s month. In March 2014, Barangay
A descriptive method was helpful in recording Basak San Nicolas, together with other barangays,
the answers to the interview sessions done either celebrated the IWD. There are only 50 participants
individually or through a focused group discussion from the barangay who attended the celebration.
(FGD’s). The said technique is an ideal way of eliciting
information from specific population subgroups One of the constituents in the barangay
(Bender and Ewbank, 1994). Moreover, the researcher who joined said, “We had fun (laughs). Before the
deemed significant the conduct of personal interviews celebration, it started with a mass. It is really good to
as well as FGDs for during these sessions of personal see other women from the other barangays who joined. It
encounters; the researcher can adjust the method is always good to see new faces and celebrate with other
of questioning and can give follow-up questions women most especially we know that it is OUR month.”
for verification purposes. At the same time the
researcher can establish rapport with the respondents There were only few participants attended
for the validity of the responses to be ascertained. the said event although the members of GAD
announced about the celebration. One of the
This can help in identifying the problems and constituents said, “I wasn’t able to come because I have to
limitations of the said program and its policies imposed attend my children. My children are studying.” Another
by the local government unit with regard to the benefits constituent said, “I didn’t know that there is such event.”
of the recipient of the program and provide proper
implementation and facilitation of the said program. The testimonials of the constituents show
The data gathered help the researcher to identify the their lack of awareness and lack of participation on
indicators that was used to evaluate the program in the the activities in the barangay because they are attending
said Barangay. These data are policies, programs, annual different event which is more important than the IWD
plan implemented by the Local Government Unit, verbal celebration. Perhaps, the officers of GAD should
data from beneficiaries and officials, labor statistics, and announce to the women constituents their monthly
annual accomplishment reports of the said program. activities. The researcher found out that there was no
posted activities on their calendar even there are activities
The general objective of this paper is to look being planned and were about to be implemented. One
into the implementation of GAD Program in the constituent said, “I am not aware of the programs or projects
barangay particularly towards women empowerment of GAD. All I know is there is GAD program in the barangay.
using CIPP Model or “Context, Input, Process, and And one time I went to the barangay, there were no projects and
Product”. In order to achieve our objective as well programs written on the calendar board regarding GAD projects.”
as our purpose, we developed a thematic strategy of Further, the GAD officers must conduct training
analysis consisting of open, axial and selective coding. seminars to the women constituents regarding their
monthly activities or do house to house integration.
The researchers secured the anonymity of
the participants and assured that the study Another social service from GAD is the
will solely be for academic purpose only. Women and Children Shelter Program which is rooted
16 Awi
from RA 9262 or otherwise known as Anti-Violence Republic Act 8972 or otherwise known
Against Women and their Children Act. This is as Solo Parent Act of 2000, Article 1, Sec. 3 states
implemented the Cebu City proper and it collaborated that these Rules shall be liberally construed in favor
with the location of the study since the present Mayor of the solo parent and applied in accordance with
is a relative to the Barangay Chairman. This program is and in furtherance of the policy and objectives of
for the Violence Against Women and Children (VAWC) the law. In October 2013, Chiz Escudero said that
victims who were trafficked and prostituted women. further benefits and support on top of what is already
According to the statements interviewed by the officers provided in Republic Act 8972 (Solo Parents Welfare
to the victims, women victims of violence do not Act of 2000) should be given to solo parents to lessen
have enough money to sue the perpetrators to court. the burden of raising children alone and to ensure
that their children are given the opportunity for a
The Anti-Violence Against Women and better future (Senate, 2013). He added that, “There are
Their Children Act (RA 9262) seeks to address the already benefits provided for by RA 8972 but we take into
prevalence of violence against women and children, account the challenges of economic realities single parents face.
abuses on women and their children by their partners But this proposal does not discount either the effects it may
like husband or ex-husband, live-in partner or ex-live- entail to businesses, employment and other economic activities.”
in partner, boyfriend/ girlfriend or ex-boyfriend/ ex-
girlfriend, and dating partner or ex-dating partner. This In the orientation, solo parents or single
also refers to “any act or a series of acts committed by mothers, were already aware of their rights. They can
any person against a woman who is his wife, former now avail programs and services offered to them such
wife, or against a woman with whom the person has as having flexible work schedule, not to be discriminated
or had a sexual or dating relationship, or with whom at work wherein no employer shall discriminate
he has a common child, or against her child whether against any solo parent, another benefits are parental
legitimate or illegitimate, within or without the family leave as long as he/she is in service for one year and
abode, which result in or is likely to result in physical, has presented a Solo Parent Identification Card. In
sexual, psychological harm or suffering, or economic totality, there were 500 single mothers who attended
abuse including threats of such acts, battery, assault, the orientation who came from different barangays in
coercion, harassment or arbitrary deprivation of liberty. Cebu City and only 35 belong to the study area. One
of the constituents who attended said, “I just knew about
In the barangay, so far, this year, they were that law. I have no idea that a solo parent like me has benefits
able to help two (2) victims. The victims had the same although I never tried being discriminated by my employer. But
case, which is being battered by their husband. The before you get to enjoy the services and benefits, you have to comply
specific details for the said case was held confidential the requirements mandated which I think it is very tedious for me.”
so the researcher only got a little information from
the interview. But according to the report, last Last activity instituted under GAD program
2013 there were 46 VAWC victims provided with in the barangay for women empowerment was the
temporary shelter and residential care. Legal and Development Program of Elderly Women. This is
financial assistance provided to 11 VAWC victims. because of the vanishing values of the youths were
Forty-three VAWC victims were counseled and they elderly are no longer given the importance. The
assisted 20 clients in court hearings, and livelihood members of the family abuse senior citizens – they are
assistance were provided to 2 trafficked victims. the caregivers of their grandchildren despite their old
age. As a result, there was an RA 9994 orientation, which
Although this program from GAD was is the Expanded Senior Citizens Act of 2010. In their
implemented by the City Government, through orientation, senior citizens were trained how-to feel-
relationships by the leaders of the two LGUs, the barangay good staying at age 65, how to adopt healthy lifestyle, and
had done its role and had contributed a significant how to have proper nutrition for the people like them.
service to those victims. One of the gender needs had
achieved by the barangay, which is protection of women. Not all constituents in the barangay know
the programs/projects / activities in GAD. Even the
Due to lack of awareness of would be couples GAD per se other women had no idea about the GAD
on family life, the barangay assisted marriage counseling program in the barangay. One of the constituents was
and court referrals. The barangay allotted one-week randomly asked about the current projects of GAD
counseling for the would-be couples and for the live-in in barangay then she answered, “What’s that? I have no
partners. They hired counselors for the said project. They idea about GAD (laughs).” Although there are significant
expected an increased parenting capability of couples. programs and activities that the Barangay has produced,
Speaking of parenting capabilities, women constituents the people are still not aware of the news. People
in the barangay joined the development program for chose not to be aware of the programs because they
Single Mothers Orientation held by the city government. need to attend matters that are more important.

Luz Y Saber Vol. 12 No. 2 (December 2018)

 Women Empowerment in Local... 17
GAD aids the inadequacies in women’s lives they will create a business even how small the amount is.”

GAD as Health Service Sector Cebu City released their GAD plan for the year
According to Fe Israel, the focal person of GAD 2013 for economic services. The issue raised were
program in Barangay Basak San Nicolas, the health of lack of capital, lack of gainful employment, lack of
the constituents in the barangay is one of the important opportunity to participate in economic activity. Israel
aspects that they focus on especially there are informal said that the barangay is currently working with the
settlements in the barangay. Barangay Basak San city government for livelihood training seminars for
Nicolas is one of the barangays in a highly urbanized women. Women’s higher labor force participation and
independent city, which is Cebu City. Many people from employment rates have been associated with better
rural areas migrated to urban for better opportunities educational achievements and rising female/male
(Awi, 2012; Domaboc, 2010). As a result, number of earnings ratios, but empirical evidence that attributes
families added to the population in the barangay and it improvements in female-male pay ratios to employment
affects mainly to the health to the children and women in export-oriented industries is not available (Dollar &
particularly pregnant and lactating women. Through Gatti 1999; Joekes 1995 in Dejardin, 2008). According
this issue, Food and Nutrition Program aimed to help to its Spring 1994 newsletter: “The Center intends to
the children and pregnant women in the barangay. Israel provide opportunities for factory women and family
stressed out that, “this is the best way we can do to our beloved subcontractors to reform the male-dominated workers’
constituents especially to the pregnant women who have no money union, and to develop women workers’ union and workers’
especially in maintaining their good health during their pregnancy. movements through the promotion of feminism”.
Through Food and Nutrition Program of GAD in the barangay,
at least we could help them to having a healthy pregnancy.” The researcher witnessed the economic activities
of women in some part of the barangay. Some are doing
The Food and Nutrition program is also a program crafts, some are selling viands and some are doing buy
in the city government. This is another program that the and sell. But these women got their capital from other
barangay collaborates with the city government perhaps sources. One constituent said, “I got my capital from an Indian
the supplies of vitamins and other health-related guy (laughs). I don’t know where to get a capital for my business.”
supplies cannot be shouldered all by the barangay. The
result of the said program showed that it increased Women are usually disadvantaged in terms of
awareness on proper nutrition and health practices and power and material and status rewards (Acker, 1990;
decrease in incidence of malnutrition. Regular monthly Moghadam, 1999). Women workers make up the
meeting of the barangay nutrition scholar, seminar- overwhelming majority of the workforces of labor-
training conducted or attended by BSN, year-end intensive, export industries in developing countries,
evaluation activity, and house visitation to the pregnant dominate the international migration of care services
women are the performance indicators of the barangay. workers, and tend to be concentrated in the most
vulnerable jobs of global production systems (Dejardin,
In lieu with this, Phil health Program for Indigent 2008). Women have the potential to change their own
Families was also in line to decrease morbidity of economic status, as well as that of the communities
women due to pregnancy. The qualification of this and countries in which they live. Yet more often than
program are the persons who have no visible means not, women’s economic contributions go unrecognized,
of income, or whose income is insufficient for family their work undervalued and their promise unnourished
subsistence, as identified by the Department of Social (ICRW, 2010). Women’s economic empowerment is
Welfare and Development (DSWD), based on specific somewhat advancing women’s human rights because
criteria. All indigents identified by the DSWD under of their capacity of bringing economic change for
the National Household Targeting System (NHTS) themselves (ibid). ICRW research has found that
for Poverty Reduction and other such acceptable technology helps women increase their productivity
methods, shall automatically be enrolled and covered as well as launch income-generating pursuits and
under the Program. The female spouse of the entrepreneurial ventures. Those kinds of outcomes
families identified by DSWD may be designated as the empower women to become stronger leaders and
primary member of the Program (philhealth.gov.ph). to more effectively contribute financially to their
families, communities and countries. Investing in
GAD as Economic Service Sector women’s economic empowerment sets a direct path
towards gender equality, poverty eradication and
According to Israel, “in GAD, we also help families inclusive economic growth. Women make enormous
who are in need especially those single mothers or women contributions to economies, whether in businesses,
whose husbands do not have enough income to support their on farms, as entrepreneurs or employees, or by doing
family.” She added, “Most of the issue raised by the women unpaid care work at home (UNWOMEN, 2014).
constituents is that they have lack of capital because women
here are street smart. You will just give them money and
18 Awi
DISCUSSION AND CONCLUSION to the public. However, this time, another cooperative
for women may be created if it would have proper
This paper evaluates the gender and development and clear rules on how to join and again, proper
programs in the local government vis-à-vis women dissemination of the plan. The barangay must conduct
empowerment in the specific locality. There are social a monthly trainings or seminar to the constituents
services in the barangay under gender and development about GAD program. Door-to-door approach to the
programs – women’s month, solo parent act orientation, women would also help in getting them aware about
and VAWC protections –that are seemingly helpful to the programs, activities, projects and the benefits they
the women in the locality. In terms of participation, get from it. The barangay may use the power of social
there are only few women participated on the IWD media to inform most people in the area. Monthly
celebration together with other barangays in Cebu City. check-up to the status of women – who are registered
Most of the women are not aware of the programs voters in the barangay – in each household could pave
or activities of the GAD programs. Women in the way to the development of women empowerment
barangay have important matters to attend to than for they would build trust to the local government.
attending or joining seminars or events. The GAD
officers perhaps lack of initiative in disseminating In relation to Program Evaluation Theory of
the important activities for women. As a result, many Daniel Stufflebeam particularly CIPP model, the GAD
women were somehow ignorant when they were asked programs have its essentials in providing what could be
questions regarding the GAD programs in the barangay. the way to configure an integral part of policy research
that will be focusing on policy shaping communities
It is an opportunity and a great chance of and necessitating potential political accommodation.
having a relative in the same political arena. The Since it can be developed during and after the program
relationship of the barangay chairperson and the city was implemented, the researcher was able to provide
mayor works on the development of the area. The certain proofs from the existing data used in primary
City government has played a significant factor in the data analysis. Those data mainly provide insights
programs implemented in the barangay. Almost all the that GAD can be relied upon the CIPP or “Context,
projects or activities under GAD program is depending Input, Process, and Product” as the basis in creating
on the development plan of the city. Given that city a much-improved policy. The context evaluation refers
government has bigger budget than the barangay, there to the objectives and goals of GAD program, which
are programs and projects that are solely implemented is to empower the women in the local and create
by the city, the barangay must have its own number projects to develop the roles and responsibilities of
of programs and activities for women, not only for women and men. Input evaluation identifies nature
women but also for all its constituents. The barangay of the different projects under GAD program.
could work hand in hand with other NGOs. There The Process evaluation deals on how well these
must be a cross-sectoral strategy between the GAD activities are implemented and the Product evaluation
officers and NGOs. Building more networks could identifies the outcomes if it is indeed effective.
possibly help the GAD programs in the barangay. The
focal person and her staffs shall have enough Gender From the data gathered in the interview and
Training to enhance her leadership. Local governments secondary data analysis, the researcher found out
need to know how to establish meaningful consultation the strengths and weaknesses of the program. The
mechanisms to gather information from a wide range GAD programs in barangay Basak San Nicolas are
of women at the community level on their gender- somehow effective since there are people who were
specific needs and interests. Local government staffs able to join the activities and were able to know their
need the skills to perform gender-sensitive analyses in benefits and services offered by the program. What
order to understand the information they collect and makes it ineffective is most of the women, some
devise policy, programs and budget plans accordingly knew but did not join, are not aware of the activities.
(O’Conell, 2010). Local councilors and officials need to Some are not aware of GAD per se. The local
develop gender expertise and capacity, especially in key government should pay attention to this serious matter.
local administration units such as planning, budgeting The programs were good and helpful to the locale.
and service delivery (O’Conell in capacity.org, 2010)
This study may significantly add help to all
Enhancing economic opportunities could be of barangays in implementing GAD programs. Lastly,
help to the women in the locale. Women are street this may contribute on the field of Development
smart and could find ways how to make money expands studies especially in gender mainstreaming in the
even how small the amount is. The GAD together with local government as it gives impact on policy
the participation of other officials in the barangay formation of GAD towards women empowerment.
could establish a cooperative for women. The barangay
has a cooperative bank but only the officials and staffs
benefit from it and it was not properly disseminated
Luz Y Saber Vol. 12 No. 2 (December 2018)
 Women Empowerment in Local... 19
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