Organizing for Democracy: NGOs, Civil Society, and the Philippine State 9780824844592

Table of contents :
Contents
Preface
List of Acronyms
Map
Part I NGOs in Context
1 Introduction
2 From the Present Looking Back
3 The Transnational Relations of Philippine Non-Governmental Organizations
Part II NGOs Confront the Issues
4 Non-Governmental Organizations and Rural Poverty
5 Philippine NGOs Confront Urban Poverty
6 NGOs and Indigenous Peoples
7 Human Rights Non-Governmental Organizations in the Philippines
8 Environmental Activism
Part III NGOs and the State
9 Local Governance
10 The Growth of a Public Interest Law Movement
11 Citizen Movements and Philippine Democracy
Contributors
Index

Citation preview

Organizing for Democracy

Organizing for Democracy NGOs, Civil Society, and the Philippine State

G. S i d n e y S i l l i m a n and Lela G a r n e r Noble, editors

University of Hawai'i Press Honolulu

© 1 9 9 8 University of Hawai'i Press All rights reserved Printed in the United States of America 03

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99

98

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Library of Congress Cataloging-in-Publication Data Organizing for democracy: N G O s civil society, and the Philippine State/ G. Sidney Silliman and Lela Garner Noble, editors, p.

cm.

Includes bibliographical references and index. ISBN 0 - 8 2 4 8 - 1 9 4 7 - 0 (cloth:alk.paper). — ISBN 0 - 8 2 4 8 - 2 0 4 3 - 6 (pbk.ralk.paper) 1. Civil society—Philippines.

2. Democracy—Philippines.

3. Philippines—Politics and government—1986organizations—Philippines.

4. Non-governmental

I. Silliman, G. Sidney, 1 9 4 4 -

II. Noble, Lela Garner. JQ1416.074

1998

322.4'09599—dc21

97-38490 CIP

University of Hawai'i Press books are printed on acid-free paper and meet the guidelines for permanence and durability of the Council on Library Resources

Designed by Nina Lisowski

Contents

PREFACE LIST OF A C R O N Y M S MAP

VA XI XXI

Part I NGOs in Context 1

Introduction

3

G. Sidney Silliman and Lela Garner Noble

2

From the Present Looking Back: A History of Philippine NGOs Karina

3

26

Constantino-David

The Transnational Relations of Philippine Non-Governmental Organizations

49

G. Sidney Silliman

Part II NGOs Confront the Issues 4

Non-Governmental Organizations and Rural Poverty

77

James Putzel

5

Philippine NGOs Confront Urban Poverty

113

John J. Carroll, S.J.

6

NGOs and Indigenous Peoples

138

Steven Rood v

VI

7

Contents

Human Rights Non-Governmental Organizations in the Philippines: A Case Study of Task Force Detainees of the Philippines

157

Gerard Clarke

8

Environmental Activism

193

Lela Garner Noble

Part III 9

NGOs and the State

Local Governance: People Power in the Provinces?

223

Terrence R. George

10

The Growth of a Public Interest Law Movement: Origins, Operations, Impact, and Lessons for Legal Systems Development

254

Stephen Golub

11

Citizen Movements and Philippine Democracy

280

G. Sidney Silliman and Lela Garner Noble

CONTRIBUTORS

311

INDEX

313

Preface

This book originated in a request from the Asia Society in 1988, two years into the presidency of Corazon Aquino, that I do a paper on local government in the Philippines. Unable to generalize about a phenomenon so varied and so much in flux, I focused instead on what seemed to be the most striking and significant new development in Philippine local politics—the proliferation and role of non-governmental organizations (NGOs). In an attempt to draw a parallel with the simultaneous process by which many of the state-owned or state-controlled economic "assets" of the Marcos administration were being turned over to private companies, I subtitled the paper "The Privatization of Politics." In this instance, I argued, many of the functions and processes normally associated with governments had been assumed by private groups trying to compensate for the inadequacies of the current Philippine political system. Thereafter, I moved on to study one such set of groups, those involved in environmental protection. Meanwhile, Sidney Silliman had moved from studying the role of international non-governmental organizations in protecting human rights in the Philippines to a general interest in the complex and changing relations of Filipino groups with activists and organizations outside the country. The result of these shifting interests was a joint decision to look more systematically at the origins, roles, and consequences of non-governmental organizations in the Philippines. Our intention was to solicit the participation of Filipino activists or academics and foreign researchers involved with groups, Vll

viii

Preface

issues, or political structures and processes. As the table of contents suggests, we were less successful than we had hoped in recruiting Filipinos, whose commitments frequently precluded the time required for reflection and writing. Hence, some of the topics we had planned to cover—women's groups and legislative action, for example—are also missing. We believe, however, that the range of authors and chapters in this volume allows at least a preliminary assessment of the causes and effects of the extraordinary level of civic activism that has characterized the Philippines in recent years. We see this assessment as useful not simply for those concerned with Philippine democracy and development, but also for those who are interested more generally in the roles of non-governmental organizations. As Irene Tinker has noted, there is a dearth of published country-level studies of non-governmental organizations. Because both civic activism and the debate over the nature of democracy and the state have been particularly intense in the Philippines, the study may highlight issues appropriate for comparative study: the effects of particular political circumstances on organizations and their choice of tactics, the factors serving to fragment or to facilitate cooperation with other groups and the government, the political consequences of emphasizing advocacy or community organizing, the impact of foreign donors, the evolution of organizations and their leaders, for example. Obviously, some of these issues can—and should —be dealt with in case studies of organizations individually or in crossnational comparisons. But there also seems to be value in looking at organizations as they evolve and interact within a common political context, as we are attempting to do here. Readers should be aware that in the Philippines and elsewhere NGOs are normally referred to by acronyms. We have generally followed the established editorial practice of using the full title of an organization on first usage in a chapter, followed by the acronym that is used subsequently. However, we have made exceptions for organizations known only by their acronyms or not known by their acronyms; for these we have simply used what is familiar. The list of acronyms at the beginning of the book contains full titles and English translations; we have provided translations in the text only if acronyms are not used. It should be noted that some titles have been contrived to produce pronounceable or catchy acronyms, that some organizations have changed titles but kept acronyms, and that there is frequently no consensus about either titles or translations.

Preface

ix

Because of differences in the timing of our sabbaticals, Sidney Silliman assumed primary responsibility for organizing the project and drafting the first and last chapters. I thank him; we both thank those who wrote chapters and reviewed and edited the manuscript; we all thank the Filipinos who made our research possible.

—Lela Garner Noble

List of Acronyms

ACT

Alliance of Concerned Teachers

ADB

Asian Development Bank

AF

Association of Foundations

AAFLI

Asian-American Free Labor Institute

AFP

Armed Forces of the Philippines

AFRIM

Alternative Forum for Research in Mindanao

AHRC

Ateneo Human Rights Center

AI

Amnesty International

ALUMAHAD

Alyansa ng mga Lumad sa Habagatang Mindanaw Alang sa Democrasya (Alliance of Lumads of Southern Mindanao for Democracy)

AMMRS

Association of Men Major Religious Superiors

AMRSP

Association of Major Religious Superiors of the Philippines

ANGOC

Asian NGO Coalition for Agrarian Reform and Rural Development

ANP-PnB

Alliance for New Politics-Partido ng Bayan

API

Alyansa ng mga Pesante sa Irosin (Irosin Peasants' Alliance)

ARC

agrarian reform community

ARMM

Autonomous Region of Muslim Mindanao

BANDILA

Bansang Nagkaisa sa Diwa at Layunin (Nation United in Spirit and Purpose) xi

xii

List of

Acronyms

BATAS

Sentro ng Batas Pangtao (Center for People's Law)

BAYAN

Bagong Alyansang Makabayan (New Patriotic Alliance)

BBC

Bishops-Businessmen's Conference for Total Human Development

BCC

basic Christian community

BISIG

Bukluran sa Ika-uunlad ng Sosyalistang Isip at Gawa (Alliance for the Advancement of Socialist Thought and Action)

BONGO

business-organized NGO

BOT

build-operate-transfer

BRAC

Bangladesh Rural Action Committee

CAFOD

Catholic Fund for Overseas Development

CAP

Cement Association of the Philippines

CART

Center for Alternative Rural Technology

CASAFI

Camarines Sur Social Action Foundation

CBCP

Catholic Bishops' Conference of the Philippines

CCJP

Citizens' Council for Justice and Peace

CCM

Concerned Citizens of Carmona

CD

community development

CEBEMO

Centrale Bemiddeling bij Medefinanciering van Ontwikkelingsprogramma's (Central Organization for Joint Financing of Development Programs)

CenDHRRA

Center for the Development of Human Resources in Rural Asia

CHDF

Civilian Home Defense Force

CHESTCORE

Community Health, Education, and Services in the Cordillera Region

CHR

Commission on Human Rights

CIC (or CIIC)

Cagayan-Iligan industrial corridor

CIDA

Canadian International Development Agency

CMLC

Church-Military Liaison Committee

CNL

Christians for National Liberation

CO

community organizing

CODE-NGO

Caucus of Development NGO Networks

COME N'GO

non-governmental organization entrepreneur

COPE

Community Organization of the Philippines Enterprises

List of Acronyms

CORD

Coalition of Organizations for the Restoration of Democracy

COSE

Coalition of Services for the Elderly

CPA

Cordillera People's Alliance

CPAR

Congress for a People's Agrarian Reform

CPD

Council for People's Development

CPF

Cordillera People's Forum

CPLA

Cordillera People's Liberation Army

CPP

Communist Party of the Philippines

CRCC

Cordillera Regional Consultative Commission

CWAFPI

Council of Welfare Agencies and Foundations of the Philippines, Inc.

CWERC

Cordillera Women's Education and Research Center

DAHRA

Davao Alliance of Human Rights Advocates

Dalight

Davao Light and Power Company

DANIDA

Danish International Development Assistance Agency

DAR

Department of Agrarian Reform

DARAB

Department of Agrarian Reform Adjudication Board

DENR

Department of Environment and Natural Resources

DILG

Department of Interior and Local Government

DIWATA

Development Initiatives for Women's Alternatives and Transformative Action

DJANGO

development, justice, and advocacy non-governmental organization

DLS

developmental legal services

DLSO

developmental legal services organization

DOJ

Department of Justice

DPA

deep penetration agent

EARTH

Ecological Association in Ranao: A Tribal Homeland

ECD

Ecumenical Center for Development

ECOSOC

United Nations Economic and Social Council

ECTF

Episcopal Commission on Indigenous Peoples (formerly Episcopal Commission on Tribal Filipinos)

EDSA

popular uprising of February 1986 on Epifanio de los Santos Avenue

xiii

xiv

List of Acronyms

EIA

environmental impact assessment

EKD

Evangelische Kirche in Deutschland (Evangelical Church in Germany)

EMJP

Ecumenical Movement for Justice and Peace

ERB

Energy Regulatory Board

FAO

United Nations Food and Agriculture Organization

FDA

Foundation for Development Alternatives

FFF

Federation of Free Farmers

FFW

Federation of Free Workers

FIND

Families of the Victims of Involuntary Disappearances

FLAG

Free Legal Assistance Group

FPE

Foundation for the Philippine Environment

FSRP

TFDP's Family Self-Reliance Programs

FUERSA

Fisherfolks' Unity in the Entire Ragay Gulf Shoreline Association

FUNDANGO

funding agency non-governmental organization

G-10

Group of Ten

GABRIELA GATT

General Assembly Binding Women for Reforms, Integrity, Equality, Leadershipon and Action General Agreement Tariffs and Trade

GFP

Green Forum-Philippines

GRINGO

government-run and initiated non-governmental organization

GRIPO

government-run and initiated people's organization

GUAPO

genuine, autonomous people's organization

GZOPI

Gaston Z. Ortigas Peace Institution

HRAN

Human Rights Alliance of Negros

Hukbalahap

Hukbo ng Bayan Laban sa Hapon (People's Anti-Japanese Army)

ICCO

Interkerkelijke Coordinatie Commissie voor Ontwikkelingssammenwerking (Interchurch Coordinating Commission for Development Cooperation)

ICJ

International Commission of Jurists

List of Acronyms

xv

ICSI

Institute on Church and Social Issues

HT

Iligan Institute of Technology

IRA

internal revenue allotments

ISO

Institute of Social Order

ISP

Indirect Service Program

JAJA

Justice for Aquino, Justice for All

JRC

Judicial Reorganization Committee

KABATID

Kilusan ng Kababaihan na Tumataguyod sa Demokrasya (National Women's Movement for the Nurturance of Democracy)

KAHRA

Kotabato Alliance of Human Rights Advocates

KAISAHAN

Kaisahan Tungo sa Kaunlaran at Repormang Pansakahan (Union for Agricultural Progress and Reform)

KALAYAAN

Katipunan ng Kababaihan Para sa Kalayaan (Women's Association for Freedom)

KAMP

Kalipunan ng mga Katutubong Mamamayan ng Pilipinas (Association of Indigenous Citizens of the Philippines)

KAMPI

Alliance of Persons with Disabilities of the Philippines

KAPATID

Kapisanan para sa Pagapalaya at Amnestiya ng mga Detenidong Pulitikal (Association for the Release and Amnesty of Political Detainees)

KASAMA

Katipunan ng Samahang Magsasaka (Association of Farmers' Organizations)

KASAPI

Kapulungan ng mga Sandigan ng Pilipinas (Assembly of Persons upon Whom the Philippines Rely)

KBL

Kilusang Bagong Lipunan (New Society Movement)

KDSP

Katipunan ng Demokratikong Sosyalista ng Pilipinas (Association of Democratic Socialists of the Philippines)

KFI

Kinaiyahân (Nature) Foundation, Inc.

KKKP

Kilusang Kristiyano ng Kabataang Pilipino (Christian Youth Movement of the Philippines)

KKRP

Kilusang Khi Rho ng Pilipinas (Khi Rho Movement of the Philippines)

KMP

Kilusang Magbubukid the Philippines)

KMU

Kilusang Mayo Uno (May First Movement)

ng Pilipinas (Peasant Movement of

xvi

List of Acronyms

KOMPIL

Kongreso ng Mamamayang Pilipino (Congress of Filipino Citizens)

LACC

Labor Advisory and Consultative Council

LASURECO

Lanao del Sur Electric Company

LIKAS

Lingap para Kalasugan ng Sambayanan (Care for the Health of the Nation)

LRC

Legal Rights and Natural Resources Center-Kasama sa Kalikasan (Friends of the Earth)

LTI

Land Tenure Improvement

MABINI

Movement of Attorneys for Brotherhood, Integrity and Nationalism Inc.

MAG

Medical Action Group

MAKIBAKA

Makabayang Kilusan ng Bagong Kababaihan (Nationalistic Movement of the New Women)

MAPCO

Movement to Abolish the PCO

MARTYR

Mothers ánd Relatives Against Tyranny and Repression

MFPC

Multi-Sectoral Forest Protection Council

MINCODE

Mindanao Caucus of Development NGO Networks

MIPC

Mindanao Inter-Faith People's Council

MODE

Management and Organizational Development for Empowerment

MOSDEV

Movement for Sustainable Development

MPD

Movement for Popular Democracy

MSPC

Mindanao-Sulu Pastoral Conference

MSU

Mindanao State University

MUNGO

mutant non-governmental organization

NACFAR

Nationwide Coalition of Fisherfolk for Aquatic Reform

NACUPO

National Congress for Urban Poor Organizations

NAJFD

Nationalist Alliance for Justice, Freedom and Democracy

NAMFREL

National Citizens' Movement for Free Elections

NAPACOR

National Power Corporation

NASSA

National Secretariat for Social Action; after 1969, National Secretariat for Social Action, Justice, and Peace

NATCCO

National Association of Training Centers of Cooperatives; later, National Confederation of Cooperatives

nat-dems

national democrats

List of Acronyms

xvii

NBI

National Bureau of Investigation

NCARRD

National Consultations on Agrarian Reform and Rural Development

NCCLG

National Coordinating Council for Local Governance

NCCP

National Council of Churches in the Philippines

NCSD

National Council of Social Development Foundations of the Philippines

NDF

National Democratic Front

NEDA

National Economic and Development Authority

NEGORNET

Negros Oriental N e t w o r k of N G O s and POs

NGC

National Government Center

NGI

non-governmental individual

NGO

non-governmental organization

NIPA

N G O s for Integrated Protected Areas

NIPAS

National Integrated Protected Area System

NO VIB

Nederlandse Organisatie voor Internationale Ontwikkelingssamenwerking (Netherlands Organization for International Development Cooperation)

NPA

N e w People's Army

NPC

National Peace Conference

NTMQC

Nagkakaisang Tinig ng mga Maralita sa Quezon (United Voice of the Poor of Quezon City)

ODA

official development assistance

OECD

Organization for Economic Cooperation and Development

PA CAP

Philippine-Australian Community Assistance Program

PACD

Presidential Arm on Community Development

PACO

professional, academic, and civic organization

PAHRA

Philippine Alliance of H u m a n Rights Advocates

PAKISAMA

Pambansang Kilusan ng mga Samahang Magsasaka (National Movement of Farmers' Organizations)

PANDAYAN

Pandayan para sa Sosyalistang Socialist Philippines)

PANGOP

Philippines-Australia N G O Program

PANLIPI

Tanggapang Panligal ng Katutubong for Indigenous Filipinos)

City

Pilipinas (Forgers for a

Filipino (Legal Office

xviii

List of Acronyms

PARCODE

People's Agrarian Reform Code

PBSP

Philippine Business for Social Progress

PCGG

Presidential Commission on Good Government

PCHR

Presidential Committee on Human Rights

PCHRD

Philippines-Canada Human Resource Development Program

PCO

Presidential Commitment Order

PCPD

Presidential Committee on Political Detainees

PCPM

Philippine Council for Print Media

PCUP

Presidential Commission for the Urban Poor

PCUPM

Pagkakaisa ng Carmona Upang Umunlad ang Pilipinong Mahihirap (Carmona Union for the Advancement of Poor Filipinos)

PDAP

Philippine Development Assistance Program

PDI

Project Development Institute

PDP

Partido Demokratiko Party)

PDP-LABAN

Partido Demokratiko ng Pilipinas (Philippine Democratic Party)-Lakas ng Bayan (Spirit of the Nation)

PDSP

Partido Demokratiko Sosyalista ng Pilipinas (Social Democratic Party of the Philippines)

PEAN

Philippine Environmental Action Network

PECCO

Philippine Ecumenical Committee for Community Organization

PhCHR

Philippine Coalition for Human Rights

PhilDHRRA

Philippine Partnership for the Development of Human Resources in Rural Areas

PhilSSA

Partnership of Philippine Support Service Agencies

PHRC

Presidential Human Rights Committee

PICOP

Paper Industries Corporation of the Philippines

PILIPINA

Kilusan ng Kababaihang Movement)

PKP

Partido Komunista ng Pilipinas (the "old" Philippine Communist Party)

PLLP

Protestant Lawyers' League of the Philippines

PNOC

Philippine National Oil Company

PO

people's organization

ng Pilipinas (Philippine Democratic

Pilipina (Philippine Women's

List of Acronyms

PROCESS

Participatory Research, Organization of Communities and EducationTowards Struggle for Self-Reliance

PRRM

Philippine Rural Reconstruction Movement

PSD

Productivity Systems Development

PVO

private voluntary organization

RAM

Reform the Armed Forces Movement

RAs

those who "reaffirm" the decisions of the CPP's Tenth Party Plenum

RCDN

Ranao Community Development Network

RJs

those who "reject" the orthodox position of CPP leader Jose Sison

xix

SALAG

Structural Alternative Legal Assistance for Grassroots

SALAM

Save Lake Lanao Movement

SALIGAN

Sentro ng Alternatibong Lingap Panlegal (Center for Alternative Legal Concerns)

SEC

Securities and Exchange Commission

SELDA

Samahan ng mga Ex-Detainees Laban sa Detensiyon at para sa Amnestiya (Association of Ex-Detainees against Detention and for Amnesty)

SIBOL

Sama-Samang Inisyatiba ng Kababaihan sa Pagbabago ng Batas at Lipunan (Women's Combined Initiative for Legal and Social Reform)

SIBS

Social Infrastructure Building and Strengthening

SIGLAYA

Isang Siglo ng Pakikibaka, Bagong Siglo ng Paglaya (One Century of Resistance, A New Century of Freedom)

SNV

Nederlandse Ontwikkelingsorganisatie Development Organization)

soc-dems SPD

(Netherlands

social democrats Special Projects Department

SRP

TFDP's Self-Reliant Projects

TABAK

Tunay na Alyansa ng Bayan Alay sa Katutubo (Genuine National Alliance Supporting Indigenous People)

TANGO

traditional non-governmental organization

TFDG

Task Force Data Gathering

TFDP

Task Force Detainees of the Philippines

xx

List of Acronyms

TK

Tanggol Kalikasan (Defend Nature)

trapos

traditional politicians; trapo also means "cleaning rag" in Tagalog, hence the implication that traditional politicians are soiled or tainted

TriPARRD

Tripartite Partnership for Agrarian Reform and Rural Development

UCCP

United Church of Christ in the Philippines

UDHA

Urban Development and Housing Act of 1992

UGMA

Ugnayan ng mga Magsasaka ng Quezon (Alliance of Farmers of Quezon)

ULR-TF

Urban Land Reform Task Force

UMMMA

Ugyon kang mga Mangunguma, Mangingisda kag Mamumugon sa Antique (Alliance of Farmers, Fisherfolk, and Day Laborers of Antique)

UNCED

United Nations Conference on Environment and Development

UNDP

United Nations Development Program

UNIDO

United Nationalist Democratic Organization

UPCN

Urban Poor Coordinating Network

UPPVO

University of the Philippines Paralegal Volunteer Organization

USAID

United States Agency for International Development

UUSC

Unitarian Universalist Service Committee

VISNET

Visayas Network of Development NGOs

WAND

Women's Action Network for Development

WLB

Women's Legal Bureau

YCSP

Young Christian Socialists of the Philippines

ZOTO

Zone One Tondo Organization

ZOTTO

Zone One Tondo Temporary Organization

The Philippines Batan Islands