Social Accountability

Practice in the Philippines

A Scoping Study

Affiliated Network for Social Accountability

in East Asia and the Pacific
...connecting citizens to improve governance
 Social Accountability
Practice in the Philppines
A Scoping Study
© 2010 by the Affiliated Network for Social Accountability in East Asia and the Pacific
(ANSA-EAP). This is a release edition, published January 2010.

Henedina Razon-Abad
writer

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Table of Contents
1. INTRODUCTION 3

2. METHODOLOGY FOR STOCKTAKING 5

3. CONCEPTUAL FRAMEWORK: ACCOUNTABILITY AND

SOCIAL ACCOUNTABILITY 6

A. Conceptualizing Accountability: Power Relationship

Between State and Citizen 6
B. Social Accountability: Claiming People’s Right to Development 9

4. SOCIAL ACCOUNTABILITY PRACTICE IN THE PHILIPPINES 12

A. Accountability Deficit Despite People Power

Constitution and Legislation 12
B. Pervasive Corruption 15
C. Mapping Social Accountability Practice: Main Findings 16
D. Forces Driving Current Social Accountability Practice 16

5. VARIOUS APPROACHES 19

A. Political and Democratic Accountability 19

B. Financial Accountability 21
C. Accountability for Performance 21
D. SAc Practices in the Philippines 22
E. Tools and Approaches 26

6. SIGNIFICANT OUTCOMES 31

A. Critical Factors 31
B. Dilemmas and Challenges 32
Annex A. Information on the Different Social Accountability
Practices in the Philippines 33

Annex B-1. Social Accountability Practices: Political/

Democratic Accountability 38

Annex B-2. Social Accountability Practices: Financial Accountability 41

Annex B-3. Social Accountability Practices: Performance

Public Oversight/Monitoring 47
2 Social Accountability in the Philippines: A Scoping Study

ACRONYMS AND ABBREVIATIONS USED

AER Action for Economic Reforms

ANSA-EAP Affiliated Network for Social Accountability in East
Asia and the Pacific
ATIN Access to Information Network
CAC Coalition Against Corruption
CBCP Catholic Bishops Conference of the Philippines
CCAGG Concerned Citizens of Abra for Good Government
CMFR Center for Media Freedom and Responsibility
CNGG-Negros Citizens Network for Good Governance Negros
Code-NGO Coalition of Development NGOs in the Philippines
CSO Civil society organization
DepEd Department of Education
FDC Freedom from Debt Coalition
G-Watch Government Watch
GPRA Government Procurement Review Act
InciteGov International Center for Innovation, Transformation,
and Excellence in Government
IPD Institute for Popular Democracy
IPER Institute for Political and Electoral Reform
IRA Watch Internal Revenue Allotment Watch
LGU Local government unit
MBC Makati Business Club
MOA Memorandum of Agreement
NASSA National Secretariat for Social Action-Justice and
Peace
NGO Non-government organization
PAJDGG Provincial Advocates for Justice Development and
Good Government
PCIJ Philippine Center for Investigative Journalism
PDAF Watch Priority Development Assistance Fund Watch
SAc Social accountability
TAN Transparency and Accountability Network
WAND Women’s Action Network for Development
 Introduction 3

1. INTRODUCTION

R ecent years have witnessed a growing

apprehension about the quality of
governance and accountability of public
apparatus but whose access to the
state is nonetheless its principal way
of accumulating wealth. The result is a
officials for their decisions and actions. situation that has been caricatured over
Public investments have failed to achieve and over again in political commentaries
significant poverty reduction. Lack of about our condition: a small network of
transparency, absence of rule of law families and clans monopolize power
and corruption continue to beleaguer and economic wealth, while the great
developing countries, revealing the mass of people live in poverty and
inability of existing accountability misery.
mechanisms to resolve these problems
(Paul: 2005). In a survey conducted A very thin layer of middle class in the
in 2005 for the World Economic pyramidal structure exists but most
Forum to measure citizen trust in have gambled the little possession they
government, respondents identified have and reluctantly left their families
four deficiencies: responsiveness, to seek their fortune as overseas
accountability, transparency and workers in unfamiliar cultures
effectiveness (Ramkumar and Krafchik abroad. Over the years, this condition
2008). has fostered a culture of political
patronage, which breeds and thrives
In the Philippines, democracy is on the insecurity and helplessness
handicapped by the continuing of the poor. The deeper the poverty,
dominance of a political aristocracy the greater the dependency, the more
whose source of wealth is derived from secure the hold over power. One of the
their control of the state apparatus and persistent problems beleaguering the
an economic oligarchy whose economic Philippines is this culture of corruption
base may be independent of the state and patronage that permeates its
4 Social Accountability in the Philippines: A Scoping Study

political and governance institutions. The of a healthy and active civil society does
result is a weak state engaged in rent not preclude the existence of a robust
seeking activities that cause corruption state, and vice versa” (Reuben: 2003).
and mismanagement of the Philippine
political economy. This study builds on a number of
scoping studies on social accountability
Amidst this context, several non- mechanisms in the Philippines and
government organizations (NGOs) in the in the region that have already been
country have initiated various actions conducted1. A more in-depth analysis
to assert their right to participatory will be undertaken to define from
governance and to make government actually practice the following: (1) social
account for its policy choices and decisions. accountability framework that contains
Initially, perhaps their interventions have a set of principles and indicators of
not been called social accountability performance; (2) environmental factors
interventions until the World Bank that enable civil society to play the role
developed the label. This is not surprising of informing and engaging citizens in
since the Philippines is known to have one exacting accountability from government;
of the most vibrant, dynamic and capable (3) approaches, tools and techniques used
civil society in the world – providing to ensure significant outcomes from SA
policy inputs, delivering social services, interventions; (4) significant outcomes
pursuing socioeconomic development and of SAc mechanisms in governance,
generating accountability. sustainable development and citizen
As the sector substantially responsible for empowerment; and (5) challenges facing
the transition from authoritarian rule, civil civil society and strategies to address
society believes that it still need to play these challenges.
a critical role in deepening democracy in
the country amidst persistent problems
of weak political institutions, unabated
corruption and increasing poverty. The
invaluable role of civic engagement 1 World Bank Institute, 2007, “Empowering the Margin-
alized: Case Studies of Social Accountability Initiatives
in development is similarly argued by in Asia”. Arroyo, Dennis and Sirker, Karren, “Stocktak-
Reuben as he asserts that the “existence ing of Social Accountability Initiatives in Asia and the
Pacific”, World Bank Institute.
 Methodology For Stocktaking 5

2. METHODOLOGY FOR
STOCKTAKING

T he main elements of the methodology

used in the stocktaking are the
Songco (2008). Questions to understand
how the space for engagement is
following: created are added to the template.
Information was initially gathered
Survey of Literature: Review of studies through the Internet and literature
on social accountability to understand reviews. Identified civil society
the content and substance of the organizations (CSOs) were requested to
discourse as well as the issues being complete the template.
deliberated by theorists, practitioners
and advocates. The literature reviewed Deepening and Clarification of Facts:
covered social accountability practices Face-to-face interviews, email and
in the Philippines as well as in other telephone contacts were conducted
parts of the world. to clarify and amplify the information
gathered through the completed
Scoping: Inventory of social templates
accountability initiatives undertaken
by civil society organizations based on Data Analysis: Data gathered from the
review of literature, extensive Internet accomplished templates were reviewed
searches and previous scoping studies and analyzed. Patterns and trends
undertaken. Social accountability or were identified across the different SAc
SAc interventions were selected based interventions.
on proposed definition and framework
of social accountability. Other SAc interventions that were
implemented in the past were also
Template: Adaptation of the World considered. On the whole there were
Bank’s template used in initial scoping 40 social accountability interventions
studies conducted by Arroyo and Sirker identified. Templates for 34 SAc
(2004), Sirker and Cosic (2007) and the interventions were completed.
more recent preliminary scoping by
6 Social Accountability in the Philippines: A Scoping Study

3. CONCEPTUAL FRAMEWORK
ACCOUNTABILITY AND
SOCIAL ACCOUNTABILITY

T
he virtues of social accountability Accountability implies both an
have been extolled in various good obligation of public officials and a right
governance literature. Most recently, of people or citizens. It means “being
it has been a favorite buzzword. If held to account” (compliance) as well
social accountability is to be more than as “giving an account” (transparency)
a fad, conceptual and analytical clarity of one’s performance while “taking
is necessary. This section aims to account of” (responsiveness) the
help in clarifying the concept and help needs and aspirations of constituents.
in laying down the fundamentals to It also implies both answerability and
ensure that social accountability adds enforceability. The very function of
enduring value to anti-poverty work and accountability is to ensure that those
sustainable development outcomes. who wield power on behalf of others
are answerable for their conduct.
A.Conceptualizing Accountability: Officials have the obligation to inform
Power Relationship Between citizens and explain to them what they
are doing (Schroeder 2002). They are
State and Citizen
morally and legally bound to account
for their conduct or adherence to
Accountability is about how to control
rules and the performance of their
the exercise of power. How to restrain
responsibilities and mandates to the
power, prevent abuses and keep it
citizens, who, in turn, have the right to
in line with established rules – this is
demand accountability from political
the question that preoccupied political
and bureaucratic officials. (Singh 2004)
thinkers since the time of ancient
philosophers (Newell and Bellour:
This obligation of public officials to
2002). Today, the notion of accountability
report their actions to their citizens can
continues to reflect the same concern:
be traced back to the Roman period
how to apply checks, oversight and
where public examination of accounts
institutional constraints on the exercise
was done. These were verified through
of power.
 Conceptual Framework Accountability and Social Accountability 7

reference to witnesses and vouchers called social contract between state and society
auditus or “hearings” were conducted. is enforced. In a democracy, the state
The auditus, however, was presented performs many essential functions for the
orally because many of the parties were welfare and development of its citizens
illiterate1. and provides essential services many of
which are “public goods”. It collects taxes
Accountability involves the construction of from the people to discharge its functions
a “grammar of conduct and performance and is accountable to society for proper
and the standards” used to assess use of the resources entrusted to it.
performance of public sector actors,
which then defines expectations and order Precisely because citizens have delegated
social relationships (Paul 2005). There are certain responsibilities to individuals in
two universal expectations. First, they are public office to carry out specific tasks
expected to obey the law and not abuse in their behalf, citizens have the right to
their powers. Second, they should serve hold those in power answerable for their
the public interest in an efficient, effective decisions and that those in power have
and fair manner. To enforce this code of the obligation to listen and respond to the
conduct and standards of performance, views of the citizens, and that a system of
there must also be the capacity to sanctions should be in place to enforce
sanction. Capacity on the part of the these rights and obligations. It is this
accounting agencies to impose sanctions understanding of accountability in which
on power holders who have violated their rulers explain and justify actions to the
public duties as well as reward those who ruled, which traditionally distinguished a
have complied with the code of conduct democratic society from a tyrannical one
and standards of performance. This is to (Sollis and Winder 2002).
provide incentives so that public officials
become strongly motivated to perform at Traditional mechanisms to enforce
their maximum capacity and not to break accountability can be both horizontal
the rules. For example, this may take the and vertical. Horizontal accountability is
form of voting out of office a scoundrel the most direct form of accountability.
or meting out a penalty or issuing an It refers to the formal power of state
indictment. institutions to monitor one another.
Horizontal accountability systems
The principle of accountability lies at the include the following: (1) political
heart of a democratically governed society. mechanisms (constitutional constraints
How it is articulated and implemented to power, separation of powers, legislative
determines the manner in which the oversight and investigative bodies); (2)
fiscal mechanisms (formal systems of
auditing and financial accounting); (3)
1 The root of the meaning of accountability is the Latin administrative mechanisms (hierarchical
verb audire, which means, “to hear”. Sollis, Peter and reporting, norms of public sector probity,
Winder, Natalia. “Building Local Accountability in Cen-
tral America: Lessons Learned and Future Challenges public oversight); and (5) legal mechanisms
in the Social Sector”. 2002
8 Social Accountability in the Philippines: A Scoping Study

(corruption control agencies, judiciary and officials and political parties accountable
ombudsman. through elections, they must be engaged
and knowledgeable about the issues and
The vitality of the horizontal accountability performance of those in power and turn
hinges on strong and capable institutions out to vote in large numbers (Diamond and
that are able to check and monitor Morlino 2005).
one another while protecting their
independence, rising above patronage or To be effective, good governance
partisanship. The separation of powers, accountability discourse emphasizes
the recognition of fundamental rights and that horizontal accountability should be
the system of check and balances are reinforced by strong vertical accountability,
all aimed at curbing the arbitrariness of in which citizens, mass media and civil
power. (Diamond and Morlino 2005 ) For society organizations have the right to
mechanisms of legal accountability to scrutinize public officials and government
function effectively, the legal system must practice. But it is also important that public
be capable of enforcing the law and to officials are not simply open to criticism
make the rulers obey the law. (March and but must proactively work with society
Olsen 1995) to improve honesty and performance
of government. They need to engage in
Vertical accountability, on the other hand, dialogue, explain and justify their plans
is the obligation of electoral political of action, behavior and results of these
leaders to answer for their political actions and are consequently sanctioned.
decisions demanded by citizens and Hence, accountability by itself is a process.
civil society groups2. The ballot is the (Ackerman 2005 ).
classic formal mechanism of vertical
accountability that allows citizens to
hold the government to account for their
rule. Political competition and informed
participation are crucial conditions for
strong vertical accountability. For citizens
to effectively use the ballot to hold public

2 Vertical accountability is also referred to as political

accountability.
 Conceptual Framework Accountability and Social Accountability 9

Box 1: Factors for Strong Accountability Mechanisms

The following factors help in building capable political accountability

mechanisms:

• Established rights for civil society groups to function competently and

independently, such as freedom of association, right to information and a
rule of law to protect them from intimidation and retribution;

• Political competition, fair distribution of power and informed

participation to enable voters to hold their public officials and ruling
parties accountable through elections;

• Legal system with the capability to enforce the law and to make the
rulers obey the law.

B. Social Accountability: Claiming range of actions and mechanisms that

People’s Right to Development rely on civic engagement to hold the
state to account for its decisions, polices,
There is widespread perception that programs and actions (Malena: 2004), it
traditional forms of accountability – instead complements and strengthens
vertical mechanisms such as elections horizontal and vertical accountability
and horizontal mechanisms such as mechanisms.
institutional checks and balances fail
to ensure an effective watch on the use At the core of social accountability are the
of public authority (Joshi: 2008). This principles of citizen’s rights, inclusion,
perception is created by evidence of empowerment and social justice. It
corruption and poor-decision-making by involves informed action based on rigorous
public authorities in most governments. In analysis of data where citizens use their
response to this “crisis in accountability” rights responsibly to put an end to abuse
civil society organizations began to and misuse of public power. Since social
engage in different forms of collective accountability is anchored on rights, it does
action demanding accountability from not merely focus on asserting interests and
government. concerns of the poor. More importantly,
it includes developing people’s abilities
Social accountability does not replace to influence and negotiate directly with
traditional institutions of accountability. official decision-makers (Fischer).
Primarily because, SAc includes a broad
10 Social Accountability in the Philippines: A Scoping Study

In their most promising forms, ‘social groups participate in institutions designed

accountability’ innovations offer for continuous citizen involvement in
disadvantaged people opportunities to policy formation and implementation to
operationalize rights and to shift the minimize the opportunities for the misuse
terrain of governance from technical of public resources.
solutions to social justice issues1. In
other words, accountability systems are Accountability has traditionally been
expected to, not just satisfy concerns with based upon an assessment of whether
procedural integrity, but also respond to procedures have been followed diligently,
norms of social justice. In the context of not whether a socially desirable outcome
development, this means holding state has been produced. However, Brinkerhoff
and non-state actors accountable for their asserts that social accountability is
contribution to poor people’s opportunities not simply concerned with procedures
to reach substantive levels of human but rather it is concerned with three
development and to realize substantive governance issues. First issue is how to
freedoms. prevent or control the misuse and abuse
of public resources and/or authority.
Social accountability can be done after The second is ensuring the citizens that
the fact or ex post accountability where resources are used and authority is
citizens mobilize and sanction public exercised according to appropriate and
officials for specific transgressions legal procedures, professional standards
that already occurred. It could also be and societal values. The third is improving
continuous accountability, i.e. citizens service delivery and management through
feedback and learning (Brinkerhoff: 2004).

1 Former Philippine Senator Jose Diokno’s definition of Social accountability practice show
social justice reflects the connection between governance
and development: “Social justice, for us Filipinos, means that citizens’ efforts to hold officials
a coherent intelligible system of law, made known to us
and enacted by a legitimate government freely chosen responsible for their actions have moved
by us and enforces fairly and equitably by a courageous, beyond the periodic elections and have also
honest, impartial and competent police force, legal
profession and judiciary, that: begun to engage in a number of activities
(1) Respects our rights and our freedoms both as aimed at exacting fiscal, administrative
individuals and as a people
(2) Seeks to repair the injustices that society inflicted and political or democratic accountability
on the poor by eliminating poverty as rapidly as our
resources and our ingenuity permit. from government. These actions are
(3) Develops a self directed and self- sustaining concerned with making sure that (1)
economy that distributes its benefits to meet, at first,
the basic material needs of all, then to provide an public resources are used according to
improving standard of living for all, but particularly for the rules – responsibly and efficiently; (2)
the lower income groups, with enough time and space
to allow them to take part in and enjoy our culture government agencies perform according
(4) Changes our institutions and structures, our ways
of doing things and relating to each other, so that to agreed-upon performance standards
whatever inequalities remain are not caused by those and targets (3) government officials (both
institutions or structures, unless inequality is needed
temporarily to favor the least favored and its cost is elective and appointive) are true to their
borne by the more favored; and oath of office; (4) public institutions are
(5) Adopts means and processes that are capable of
attaining those objectives. governed by the rule of law in carrying
 Conceptual Framework Accountability and Social Accountability 11

out their functions. Social accountability is no longer mere adherence to procedure

strategies simultaneously focus on citizen but the achievement of outcomes assessed
participation, enforcement of the rules in terms of improving the lives of the poor
and improving performance. The standard and vulnerable groups.

Box 2. Definition of Social Accountability

Social accountability is a set of principles with a range of tools and activities –

that includes the perspectives of those who are traditionally and structurally
disadvantaged and with rigorous analysis of information and evidence seeks
to hold public sector actors responsible for the performance of their functions
(Clark: 2007). SAc initiatives and practices are based on principles of citizen’s
rights, inclusion, empowerment and social justice.
12 Social Accountability in the Philippines: A Scoping Study

4. SOCIAL ACCOUNTABILITY
PRACTICE IN THE
PHILIPPINES

T he emergence of SAc in the country

was brought about by political and
constitutional reforms that created
or form party-list groups to run for
Congress in the case of sectoral groups
(Pangalanan: 2002) (Sison: 2002)
spaces for CSO involvement and
participation in deliberation processes The enactment of the Local Government
and service delivery. However, Code in 1991 devolved powers from
sustaining these reforms to further the central government to the local
deepen democracy and improve the government units1 The Code aimed to
lives of the poor remains to be a bring government closer to the people
gargantuan challenge. with LGUs bearing the responsibility
for providing services to meet the
A. Accountability Deficit Despite development needs of the people.
People Power Constitution and Shift from the center to the local also
provided opportunities to practice
Legislation
participatory governance as enshrined
in the 1987 Constitution2.
Institutions, whether formal of informal,
“Public office is a public trust and public
are the means through which authority
officials and employees must at all
is exercised in the management of
resources of the state. The most
significant contributions of the 1987
Constitution to democratization are 1 The Local Government Code declared that it is
the policy of the state “to ensure the accountability
the provisions for direct participation of local government units through the institution
of effective mechanisms of recall, initiative and
such as people’s initiatives to recall referendum”. The Code also provided for the
officials and propose laws and charter following (1) mobilization of people’s participation
in local development efforts; and the (2) preparation
amendments, recall officials, question of barangay development plans based on local
the sufficiency of the factual basis of requirements.

the declaration of martial law or the 2 The Local Government Code also provided for
membership of CSO representatives in Local Special
suspension of the writ of habeas corpus, Bodies and a process of consultation through
barangay assemblies.
 Social Accountability Practice in the Philippines 13

times be accountable to the people, serve the basis of all social interaction. Getting
them with utmost responsibility, integrity, information from government is difficult.
loyalty and efficiency, act with patriotism Government does not easily release data
and justice and lead modes lives”. This despite Section 5 of Republic Act 6713:
Article XI of the 1987 Constitution sets the Code of Conduct and Ethical Standards”
standard as to how public sector actors which states that “ all public documents
should behave. The Constitution not only must be made accessible to and readily
provided in detail the obligations and the made available for inspection by the public
available mechanisms that provide checks within reasonable working hours”. 4
to the exercise of authority also provided
in detail an impeachment procedure There is also no viable Freedom of
and the creation of an independent Information Act in the country. Without a
Ombudsman 3 and a special anti-graft court freedom of information act, citizens and
called Sandiganbayan as the mechanisms civil society organizations are have difficulty
to sanction erring officials. getting access to important documents
and records to monitor and scrutinize
The accountability deficit in the public affairs. This limits the opportunities
Philippines, therefore, refers not so much for public oversight and renders the policy
to the absence of laws and regulations decisions and public actions vulnerable to
and formal institutions that provides for the discretion of those who are in positions
accountability in governance but the lack of authority. When politicians and public
of enforcement and actual application of officials are not required to disclose
accountability. While there is no dearth information regarding their actions and
of laws and institutions, they have been transactions, the administration of public
reduced to mere formalities. Clientelism funds is susceptible to the prerogatives of
and bureaucratic capture continue to individuals in power rather than dictated
characterize governance institutions by public interest, for their actions and
in the country. They are not driven by decisions need not be justified to an
public interest but are in fact captured by affected public 5. (Grimes: 2008)
economic and political interests. According to the Access for Information
Network (ATIN), governments resists full
Bureaucratic capture and corruption transparency because of the following
resulted not only in monetary costs by also reasons6: (a) providing access is seen
weakened trust relationships between not as a part of the regular duties of
government and citizens that constitute

4 Advances in technology have been enabling agencies

3 The Office of the Ombudsman is believed to be the to increase transparency in their dealings and make data
most potent institution created by the 1987Constitution. available. However, data available online is outdated
It is seen as the answer to the clamors of the people and is not useful for closer and deeper scrutiny.
for greater public accountability. The mandate of the 5 Examples would be the following: grave allegations of
Ombudsman is to act promptly on complaints field in any corruption, such as the NBN-ZTE deal, where the right
form or manner against public officials or employees not to divulge information to the public was rationalized
of the government, or any subdivision, agency, or under the so-called principle of executive privilege.
instrumentality, including government-owned or
controlled corporations (Hilbay: 2002 ) (Gutierrez:2002). 6 Position Paper of ATIN
14 Social Accountability in the Philippines: A Scoping Study

government, but as a favor subject to the Adequate freedom and pluralism in media
custodian’s discretion and convenience; likewise strengthens the ability of media
and (b) vested interest in the non- to take up a cause and assist in mobilizing
disclosure of information – information a broader segment of the population
is controversial and may open agency to for social accountability causes. Media
questions and criticisms or information is should be protected from intimidation and
related to some anomaly or irregularity in retribution. There should be freedom of
the official transaction of an office. speech, information and assembly.7

Diamond and Morlino asserts that political Philippine media have been subjected to
competition and the distribution of power legal harassment in the form of libel suits
must be fair and robust enough to allow and continuing murders of journalists.
for genuine alternatives at the various According to the Center for Media Freedom
levels of government and to produce and Responsibility (CMFR) in its report
some electoral alternatives over time, so entitled “The State of Press Freedom
that incumbents face a credible threat of Report 2007”, 71 journalists were killed
electoral punishment (Diamond & Morlino: in the line of duty since democracy was
2005). Robust political competition does restored in the country in 1986 and of these,
not only affect the responsiveness of 54 were killed under the administration of
political leaders but also strengthens the President Gloria Macapagal-Arroyo. CMFR
capability of citizens and organizations for also noted in its report that 90 percent
social accountability work. The existence of those killed had exposed corruption
of sympathetic and supportive of public in government (Inquirer.net: 2008).
officials, whether they are in institutions Freedom House classified the country
of public oversight or in political office, since 2005 until the present as “partly
affects the feasibility of civic action to hold free” noting many freedom indicators for
public officials accountable. the Philippines have declined since 2005
with press freedom being undermined by
But strong and healthy political killings of journalists and a poor record of
competition in the country does not exist in prosecuting those responsible (Freedom
the Philippines. Rocamora and Hutchcroft House Report 2008).
in analyzing political institutions in the
country lament that “political parties
and the electoral process in the country
remain dominated by personalities rather
than programs; legislative institutions
continue to be the domain of many of the
same old political clans and trapos; and
the legislative process is still driven by the
politics of pork and patronage” (Rocamora 7 The Philippines ranked in the bottom 20 (142nd place
& Hutchcroft: 2003). out of 168 countries surveyed) of the 5th Annual World-
wide Press Freedom Index released by international
press freedom watchdog – Reporters without Borders
(RSF).
 Social Accountability Practice in the Philippines 15

Table 1. Freedom House Scores, Philippines8

Scores 2005 2006

Accountability and Public Voice 4.46 4.16
Civil Liberties 3.92 3.85
Rule of Law 3.30 3.29
Anticorruption and Transparency 3.50 3.38

To this date, the persistent problem that plagues the country is how to build institutions
for democratic and accountable governance. As most reform advocates realize – good
governance does not simply happen. Definitely, it requires a particular kind of politics and
leadership (Leftwich: 1993).

8 Scores are based on a scale of 0 to 7, with 0 representing weakest and 7 representing strongest performance.

B. Pervasive Corruption 45.1 percent in 1996 to 22.0 percent in

2007 (World Bank: 2007). Transparency
Another reality that continues to impair International gave the country a score
government’s consistency, effectiveness of 2.5, on a scale of 10, with 10 as the
and efficiency is the presence of rent- cleanest. The Philippines ranked 117th
seeking agents in government. Corruption among 159 countries; indicating that
minimizes the gains of democratization, the country has a “severe” corruption
stunts productivity, makes prompt problem (PCIJ: 2005). In September
response difficult, strains and obstructs 2006, a World Bank Report on World Wide
state-society interaction (Magadia:2003). Governance Indicators showed a sharp
CSOs responded to this problem through decline in the Philippines ranking in the
various methods and approaches – from control of corruption, from 50.5 percent in
confrontation to constructive engagements 1998 to 37.4 percent in 2005 (World Bank:
with government (Arugay: 2005) . 2007). The Philippines was perceived as
the most corrupt in the 2008 survey of the
According to a World Bank study released Hong Kong-based Political and Economic
in June 2008, corruption in the Philippines Risk Consultancy, using a grading system
is perceived to be the worst among East with 10 as the worst possible score, the
Asia’s leasing economies. The ranking of Philippines got 9.4, worsening from its
the Philippines on corruption control has grade of 7.8 in 2006.
worsened over the past 11 years, from
16 Social Accountability in the Philippines: A Scoping Study

C. Mapping Social Accountability state. They are supported by multilateral

Practice: Main Findings and bilateral funding agencies. There
are 34 practices included in the scoping
Despite this indication, social exercise9. Through their SAc initiatives,
accountability initiatives in the country CSOs are gaining access to arenas of public
continue to emerge and take on the account and procurement processes, as
difficulty tasks of scrutinizing government well as performance monitoring of public
performance as well as addressing the sector actors. Citizens are beginning to
weak public accountability prevailing in assert their citizenship by demanding
the country. Intermediary CSOs have also answers directly from power-holders –
played critical roles in supporting poor auditing local spending, observing public
people’s capabilities, assisting to access bidding and demanding to know the
and understand information and use the whereabouts of funds that are missing.
information to demand from government These are relatively new arenas for most
responsive and efficient delivery of CSOs.
services.
D. Forces Driving Current Social
The proliferation of social accountability Accountability Practice
projects is related to the increasing
interest of the international donors’ While there may be different initiatives,
community in good governance plus the there are common aspirations and
mounting desire of ordinary citizens to objectives that unify the different
hold public sector actors accountable. initiatives. These are the following; (1)
put an end to pervasive corruption and
Social accountability work of CSOs in arrest further weakening of institutions by
the Philippines is a response to the need pushing for institutional transparency and
to deepen democratic politics and good responsible leadership from public sector
governance, specifically to monitor and actors; (2) exercise of the people’s right
assess performance of government as to influence the public choices that shape
well as to curb corruption that seems their lives; (3) show that democracy works
to be endemic to and embedded in the by pushing anti-poverty agenda and better
culture of government. While there are service delivery through community driven
a number of organizations seeking to development strategies; and (4) actualize
exercise social accountability are anti participatory citizenship through inclusion
corruption organizations, there are and empowerment in social accountability
also organizations seeking to secure work.
entitlements for their own community or
for marginalized communities.

Most of the SAc practices were initiated 9 Information on two of the 34 practices included in the
scoping study was based on write-ups and published
by the CSOs themselves as a response to reports. These are the Lifestyle check of PCIJ and the
the weak accountability institutions of the Report Card Survey by the Development Academy of the
Philippines.
 Social Accountability Practice in the Philippines 17

Box 3. Driving Forces for Social Accountability Practice

1. Put an end to pervasive corruption

2. Exercise of the people’s right to influence the public choices that shape
their lives
3. Demonstrate that democracy works for the poor
4. Actualize participatory citizenship through inclusion and empowerment

Matrix 1 summarizes trends in the Philippines based on five fundamental questions that
should be asked to understand accountability relationships. (A more detailed matrix is
presented in Annex A.) 10

Matrix 1. Five Fundamental Questions for Social Accountability

Questions Trends in the Philippines

1. Who is seeking Civil society organizations (coalitions and networks)
accountability? mobilizing ordinary citizens to directly engaged power
–holders to answer for their decisions and actions as
state actors

2. From whom? Bureaucrats and elected officials of national govern-

ment agencies and local government units; Members
of Congress

10 Social accountability experience of other countries shows that as various methods and tools are used to hold state
actors accountable for their actions, there are also more ordinary people seeking to engage directly in efforts to make
power holders answer for their actions, rather than relying upon intermediaries. There is also an emergence of a wider
range of accountability jurisdictions intended to expose poor governance or abuses of power – from local governments
to national to international public domains. (Goetz) Philippine experience, likewise, is not far behind. Goetz in her
article “Reinventing Accountability: Making Democracy Work for the Poor” enumerates five fundamental questions
that should be asked to understand accountability relationship: (1) Who is seeking accountability? (2) From whom? (3)
Where? (4) How? (5) For what?
18 Social Accountability in the Philippines: A Scoping Study

Questions Trends in the Philippines

3. Where? There are more avenues for social accountability:
- Local and sub-national government
- National government

4. How? Diverse set of Approaches and Tools:

(1) Policy Advocacy
(2) Self-awareness workshops
(3) Information dissemination
(4) Participatory budgeting
(5) Budget Analysis
(6) Expenditure Tracking
(7) Monitoring of Government Procurement Process
(8) Monitoring of Government Infrastructure Projects
(9) Report Cards
(10) Opinion Polls

5. For what? Strengthen transparency, responsiveness and acces-

sibility of government
 Various Approaches 19

5. VARIOUS APPROACHES

C lassifying SAc initiatives that would

capture the full range of experiences
Information Act,1 lobbying for electoral
reforms,2 catalyze the creation of a
as well as distinctly differentiate one “graft intolerant culture”3 or ensuring
initiative from the other was difficult. This that appointees of the President of the
stocktaking study classified initiatives Philippines are persons of integrity and
according to objectives, using the three competence. 4
categories of Brinkerhoff: political or
democratic accountability, financial
accountability and accountability
performance (Brinkerhoff: 2004).
Matrix 2 summarizes this typology of
SAc practices.

A. Political and Democratic 1 The campaign for a Freedom of Information Act

Accountability was started by ATIN in 2002. Through a series of
consensus-seeking meetings the network produced
a draft bill aimed at compelling disclosure from
government through a uniform, simple and speedy
Essentially political/ democratic procedure (ATIN position paper).
accountability involves actions
2 IPER.
that creates and strengthens the
societal institutions to actualize 3 Ehem!

social accountability and in the 4 Bantay Korte Suprema is one of the activities
of Appointments Watch. The objective was to
process increase the citizens’ trust in ensure that President Arroyo appoints only those
government and enhanced its legitimacy. deserving to the upcoming seven vacancies of the
Supreme Court. Involving people with integrity and
It includes defining and enforcing competence, such as xx-magistrates, firmer and
the standards and code of conduct incumbent legislators and lawyers’ associations,
low deans and businessmen Bantay Korte Suprema
and ethics for assessing government led the public in monitoring the screening process
of the Judicial Bar Council that is authorized by
performance. In the Philippines, this law to short-list and nominate candidates for the
includes campaigning for a Freedom of position. The final decision, however, still rests on
the President.
20 Social Accountability in the Philippines: A Scoping Study

Matrix 2. Types of Accountability Based on Objectives and Outcome

Type Objectives Tools/ Outcome

Techniques
Political/ Ensure that Transparency Increased levels
Democratic government and openness of of citizen’s trust in
Accountability delivers on electoral government records government
promises, fulfills the and transactions
public trust, responds Clear agreed upon
to ongoing and Policy advocacy and standards of probity,
emerging societal lobbying ethics, integrity
needs and concerns and professional
Public discussions responsibility
Effective political
accountability Enhanced legitimacy of
enhances the government
legitimacy of
government in the
eyes of citizens
Financial Tracking and Tools of auditing, Proper financial
Accountability reporting on budgeting and management
allocation, accounting
disbursement, and Reduced opportunities
utilization of financial for graft and corruption
resources, including
procurement and
contracting
Performance Demonstrating Performance Policies/projects/
Accountability and accounting for measurement and programs responsive to
performance based evaluation the needs of the poor
on agreed-upon
performance targets Achievement of service
delivery targets
Focus is on the
services, outputs Service delivery
and results of improvement
public agencies and
programs Public sector
management reform

Brinkerhoff, Derick. “Accountability and Health Systems: Toward Conceptual Clarity and Policy Relevance”. 2004
 Various Approaches 21

B. Financial Accountability Participatory budgeting. Participatory

budgeting relates to the involvement and
According to Brinkerhoff, financial consultation of citizens in the budgeting
accountability is concerned with how cycle. Citizens participate in the different
government “allocates, disburses and phases of budget formulation, decision-
utilizes financial resources” (Brinkerhoff: making and monitoring of budget
2004). SAc practices under this category execution. Practitioners hope to increase
can be further differentiated into the government responsiveness to the needs
following sub-categories (1) informed of the poor and at the same time increase
budget advocacy; (2) public expenditure transparency to allow citizens and officials
tracking; and (3) participatory budgeting. to understand and commit themselves to
difficult trade-offs inherent in budgeting
Informed budget advocacy. Budgets are processes.
the basic instrument of governments to
mobilize, allocate and monitor scarce SAc practices such as Priority Development
resources. Thoughtful and methodical Assistance Fund (PDAF) Watch and
scrutiny of the public budget enables Internal Revenue Allotment (IRA) Watch
citizens and civil society groups to introduce the social justice element in the
raise important governance and policy accountability discourse. These practices
issues and advocate reforms on public recognize the imperative of addressing
expenditure priorities, distribution of the pressing needs of the poor as well as
benefits to different groups of people and actualizing their right to hold government
revenue raising schemes. officials accountable. After all, the poor
are the group most affected by corruption.
Informed budget advocacy focus on the (Sallis Peter)
impact of the budget on transparency,
accountability and responsiveness to C. Accountability for Performance
development needs of the country,
especially the poor. It involves solid fiscal The principal focus of SAc practices under
research; production and dissemination of this category is the delivery of public goods
timely, accessible and useful information and services and how public sector actors
to a wide range of stakeholders and fulfill their roles and responsibilities.
mobilization of people to influence public Main strategy in these types of SAc is
budget processes and outcomes. monitoring by citizens through the use
of report cards, citizen feedback through
Public expenditure tracking. The primary opinion polls and participatory audits. The
objectives of this practice are to identify principal motivation is to ensure relevance,
leakages and to improve efficiency in the responsiveness and sustainability of local
delivery of public goods and services. development programs and services.
This involves scrutinizing how specific
government agencies actually spend the
money appropriated to them.
22 Social Accountability in the Philippines: A Scoping Study

D. SAc Practices in the Philippines

1) Typology based on objective

Chart. 1 Social Accountability Practices, According to Type

Typology of Social Accountability Practices

70%

60%

50%

40%

30% Local
National
20%

10%

0%
Political Financial Performance Total
Local 0% 15% 24% 38%
National 21% 32% 9% 62%

Chart 1 shows that 47% of the SAc level with 32% of these practices focused
practices scoped in this study are focused on financial accountability; 21% centered
on financial accountability. Thirty-three on political/democratic accountability and
percent of scoped practices centered on 9% on performance.
accountability for performance with 24%
of the initiatives implemented at the local Thirty-eight percent of the scoped
government unit (LGU) level while 21% practices were being implemented at the
were aimed at enabling and strengthening local level with 24% of these practices
political/democratic accountability. concerned with holding local governments
to account for their performance and 15%
Sixty-two percent of the SAc practices focused on financial accountability.
studied were being done at the national
 Various Approaches 23

Table 2. Clustering of SAc Practices by Objectives: Political/Democratic; Financial;

Performance

Type by SA Practice Implementing Organization

Objective
Political/ Freedom of Information Bill ATIN
Democratic Campaign
Lifestyle Check PCIJ
Citizen’s Participation in TAN
Lifestyle Check
Electoral Reform Consortium for Electoral Reform
Pera’T Pulitika (Monitoring of Tam. Libertas, ATIN
Campaign Funds)
Ehem! (Anti-Corruption) Society of Jesus, Philippine Province
Appointment Watch TAN
Co-financing and Co- IPD
Production of Basic Services
Financial DA Budget Analysis Code-NGO
Education Watch AER
Philippine National Budget InciteGov, The Budget Network
Monitoring Project
PDAF-Watch Code-NGO
ODA Watch MODE
Debt and Public Finance Cam- FDC
paign
Local Gender Budgeting WAND
IRA Watch CBCP-NASSA
CSO Participation in Monitoring Procurement Watch
Public Procurement
Alternative Budget Initiative Social Watch Philippines

Textbook Count and Textbook G- Watch - Ateneo School of

Walk Government
24 Social Accountability in the Philippines: A Scoping Study

Type by SA Practice Implementing Organization

Objective
Building Bridges Towards Good CNGG-Negros
Governance with LGUs and
Other Agencies
Participatory Local Governance La Salle Institute of Governance
Counter Corruption in CAC – MBC
Procurement and Delivery of
Services
Capacity-building for BAC MSAC and EBJF
Observers
Performance Participatory Planning and Naga People’s Council and City
Budgeting government
Report Card Survey Development Academy of the
Philippines
Monitoring Infrastructure CCAGG
Projects for Good Governance
Localized Anti-Poverty CODE-NGO
Program 2
Road Watch TAN
SWS Surveys Social Weather Station
Transparent and Accountable Iloilo-CODE
Governance
Participatory Monitoring PAJDGG
of Barangay Infrastructure
Projects and Procurement of
Medicines in the Province of
Isabela

Social accountability work, both at the local and national levels, is undertaken
predominantly by coalitions rather than individual organizations. Although there’s a
wide spread of social accountability practices, there is a narrow spectrum of groups and
organizations involved in such practices. There is an overlap of membership in the various
networks and coalitions involved.
 Various Approaches 25

Table 3. SAc Practices According to Geographical Scope and Types of Implementing

Organizations

Local National Total

Type of Practice Coalition Single Org Coalition Single Org
Political 15% 6% 21%
Financial 6% 9% 32% 47%
Performance 15% 9% 3% 6% 32%
Total 21% 18% 50% 12% 100%

Majority of the SAc practices reviewed participatory governance. It is interesting

were being implemented independent to note that at the local level, the SAc
of government and are primarily driven practices reviewed by the study were
by the desire to curb corruption and implemented in partnership with local
promote transparency and accountability government.
in government within the framework of

Chart 2. SAc Practices, According to Type of Engagement

Type of Engagement

40% 35%
29%
26%
30%

20% Local
9%
National
10%

0%
Independent Partnership w/
Government

Partnership with government were relevant data. Again, without a Freedom

covered with MOAs that defined roles and to Information Act, such access is difficult.
responsibilities of the different parties However, CSOs also expressed that even
involved in the partnership. Working with MOAs, access to relevant data remain
with government is largely driven by a challenge.
the need to have access to reliable and
26 Social Accountability in the Philippines: A Scoping Study

Table 4. SAc Practices, According to Type of Engagement with Government

Local National
Type of Practice Independent Partnership Independent Partnership Total
w/ Gov’t. w/ Gov’t.
Political 15% 6% 21%
Financial 6% 9% 18% 15% 47%
Performance 3% 21% 3% 6% 32%
Total 9% 29% 35% 26% 100%

E. Tools and Approaches 5 financing and co-production approach of

the Institute for Popular Democracy (IPD)
Social accountability work challenged where communities identify projects or
CSOs to venture in unfamiliar terrain, services that they need and raise funds,
such as budget processes, government which they leverage with the LGU for
accounting, public procurement, and additional funding.
public sector oversight. The practices
reviewed in this study showed a variety of Ehem! Self-Awareness Workshops
tools and approaches. (Corruption Sensitivity Seminars).
Unlike other anti-corruption campaigns
Policy advocacy. The principal focus of and programs, which are exclusively
policy advocacy in social accountability oriented towards exposing wrongdoings in
is to strengthen the accountability government, the Ehem! approach aims to
mechanisms of government as well sensitize people to their own involvement
as create the enabling environment in in dishonest and corrupt practices. It is
holding public leaders accountable. premised on the behavioral principle that
Among the SAc practices reviewed in this sustained action in combating corruption
study – campaigns were launched to enact emanates from self-aware individuals.
important legislations, such as freedom The focus is value transformation. It is
of information act, electoral reforms and introspective and aimed at individual and
effective enforcement of anti-corruption personal change. Corruption sensitivity
laws. workshops are conducted to facilitate
individual’s self-examination of their role
At the local level, policy advocacy takes in perpetuating corruption in Philippine
on a different form through the “co- society and likewise assist participants in
crafting their own individual action plans.

5 Complete descriptions of practices are in Attachment

A and B.
 Various Approaches 26

Budget Advocacy and Analysis. Fifty-six Field monitoring of government projects

percent of the financial accountability- and service delivery. A number of CSOs
SAC practices center on budget advocacy were focused on scrutinizing government
and analysis. Recognizing that the budget projects and service delivery as citizen
is the most important public policy watchdogs through field monitoring of
produce by government every year, there government projects and service delivery.
are increasing initiatives aimed at making Infrastructure for transport, such as
public sector budgets – both local and roads and bridges; public education, such
national – transparent, accountable and as textbook delivery and construction
responsive. The practices using this of school buildings; and delivery of
approach utilized a number of methods: health services, such as procurement of
formulation of alternative budgets; fiscal medicines are the areas covered by the
research for sectoral and national budget SAc practices reviewed in this study. One
analysis, website- maintenance and of the more outstanding CSOs in this field
networking with media to provide timely is Concerned Citizens of Abra for Good
and reliable information on the budget. Government (CCAGG), a pioneer in the
area of monitoring public projects. Using
Guarding Procurement as Observers. community organizing to mobilize the
The enactment of the Government people and on-sight monitoring to collect
Procurement Reform Act provided CSOs facts and public meetings to analyze
to engage government as observers in the findings they have been inspired the spirit
public procurement process. A number of of volunteerism for social accountability.
CSOs got initiated in social accountability
primarily through their involvement in Social Covenants. This is a performance
improving the transparency, efficiency evaluation and public disclosure/feed
and accountability of government backing mechanism through active
procurement processes. When the policy citizens’ query in the form of public
reforms were put into place through the meetings and for a. The process begins
enactment of Government Procurement during the electoral campaign period.
Review Act (GPRA), CSOs also re-tooled Political candidates are asked to
themselves to make sure that the law is sign “covenants for clean and honest
properly implemented. Procurement elections with the winners committing
Watch, G-Watch, Transparency and to hold themselves accountable to the
Accountability Network, Coalition Against people through performance evaluation
Corruption and MSAC are partnering with undertaken by constituents. Basis for such
government agencies – playing the role of evaluation would be the promises made by
independent observers aimed at curtailing the winning candidates during the election
corruption that is perceived to prevail in campaign as reflected in the “platforms”
most bidding activities of government. or agendas. Iloilo – Code created this
innovation and has been implementing it
to monitor the city government of Iloilo.
28 Social Accountability in the Philippines: A Scoping Study

Objective Public Sector SAc Practice Methods and Tools

Function
Political/ Policies and Political and Policy advocacy
Democratic Plans that builds Electoral Reforms
Accountability or strengthens Self-awareness
the enabling Campaign for a workshops
environment for Graft- Sensitive
democratic practice Culture Engaging and
and accountable empowering
institutions Participatory communities for service
Policy Making and improvement
Planning
Financial Revenue, Informed budget Budget Advocacy and
Accountability Appropriations, advocacy Budget
Allocations, Analysis
Expenditures Tracking Public
Expenditure Training workshops

Participatory
Budgeting
Accountability Delivery of Goods Public Monitoring Monitoring by Public
for and Services and Oversight Watchdogs
Performance
Citizens’ Charter

Social Covenants

Report Cards

Opinion Polls

Matrix 3. Summary of Social selected services provided for by the local

Accountability Practice in the Philippines government units. These services are
Report Card Survey 6. The objective garbage collection, traffic management,
of the survey is to establish what the public (neighborhood) safety; public
local residents think about the quality of market management, and permit
issuance/licensing.

6 Report Card Survey on Specific Services of Nine Cities The findings as well as the experiences
in the National Capital Region in implementing the RCS demonstrated
Development Academy of the Philippines. Manila Phil-
ippines, February 2002. the tool’s ability to empower citizens to
provide feedback on public services even
 Various Approaches 29

Box 4. Example of Innovative Social Accountability Practice
Covenant for Social Accountability: Beyond Lip Service
The Philippine Experience

Concrete practices of social contracts or covenant-types of agreement between

the citizen-electorates, politicians and bureaucrats, pro-actively promoted a
performance-based, platform-oriented politics and good citizenship. Specifically,
in the late 1990’s with the graft and corruption issues in its unabated notoriety,
innovations for Transparent Accountable Governance took the form of Social
Contracts were introduced by Iloilo-CODE. The key model is the Kwentahan Hindi
Kwentuhan that literally means Accountability not Lip Service, a performance
evaluation and public disclosure/feed backing mechanism thru Citizens’ Query.

Politicians have the penchant for talking and making empty promises in order to
win over people’s votes. Adopting the principle that elected officials have social
contract with electorates, Philippine CSOs have introduced innovative modes
of citizens engagement with politicians to provide greater opportunities to be
heard and at the same minimizing the vulnerability of the electorates from being
hoodwinked by money politics and empty promises. The key is the participation of
a critical mass… as the politician’s fear is always the greater numbers.

Starting with the election campaign, candidates’ forums were organized by

multi-sectoral stakeholders (churches, peasant/laborer organizations, media,
professionals and academe) for platform watch. During the process, political
candidates sign a “Covenant” for clean, honest election with the winners holding
themselves accountable for performance evaluation.

The CSOs gather the platforms of each candidate, and an assigned body documents
these. The electorates would use these later as solid evidences in exacting social
accountability. The politicians have learned the lessons: “Keep your promises...
or bust.”
Source: Mr. Emmanuel C. Areño; Executive Director, Iloilo CODE NGOs.
30 Social Accountability in the Philippines: A Scoping Study

those who do not belong to organized Networking with Media. An important

groups. However, effort to RCS was not tool of social accountability practioners is
sustained. media. It is through media that information
generated and analysis undertaken by
Opinion Polls/Surveys. Scientific surveys social accountability groups reaches the
of the general public and of various general public. In fact, in a number of
stakeholder-groups to monitor the quality innovations, media people are involved
of governance are useful approaches in either as observers or initiators of social
evaluation performance of government. accountability practices.
Among the SAc practices reviewed is
the regular survey conducted by SWS on Use of Internet. The use of the Internet
corruption as part of the Transparent and is seen as another means of reaching
Accountable Governance project funded by a wider public and making information
The Asia Foundation. The survey focuses readily available and easily accessible.
on perception of the business sector as Use of the Internet would be in the form
to prevalence of corruption as well as the of website maintenance and networking
effectiveness of government efforts to in the Internet – where documents can be
curb corruption. uploaded and downloaded.
 Significant Outcomes 31

6. SIGNIFICANT OUTCOMES

T he ultimate test of success of SAc is

whether they result in fundamental
be a reflection that social accountability
work in the Philippines is still work in
reforms/changes in how government progress.
does things – promoting the
principles of citizen’s rights, inclusion, A. Critical Factors
empowerment and social justice.
Despite the potential power and impact Professional bureaucracy and
of social accountability work of CSOs, credibility of public institutions.
they could not by themselves address Framework of social accountability work
the accountability deficit. Pressure of CSOs in the Philippines is premised
may make service providers and on an analysis that poverty could not
public agencies more accountable but be eradicated without the necessary
they cannot assume the role of the political reforms and that many of
institutions of government that have the development outcomes cannot be
been assigned the responsibility of achieved, much more sustained without
making accountability mechanisms changes in the way socio-economic
work. In the final analysis, it is the and political resources are managed.
government that has a duty to make But good governance requires a
accountability a reality. (Arugay) capable and more professional state
Increasingly, the standard is no longer rather than a government mobilized by
the simple adherence to procedure political patronage. CSOs, through their
but the achievement of outcomes, involvement in social accountability
assessed in terms of their value for seek to help in building this capable
poor and vulnerable groups. state as described by Grindle – “having
the required political and institutional
The scoping study yielded vague answers capacity to respond to issues of security,
to the question of impact and outcome of entitlements, social justice and social
SAc work. Responses were general and delivery” (Grindle).
not measurable nor verifiable. This may
32 Social Accountability in the Philippines: A Scoping Study

Responsible and reform-oriented weakest spot in Philippine political culture.

leadership. Experience also tells us that In his book “Engaging Society”, points out
leadership matters in the practice of good stories in Philippine history that reflects
governance to ensure that development the failure of Filipinos to mete out the
outcomes endure (Leftwich: 1993).1 punishment these wrongdoers rightfully
deserved, such as the amnesty granted to
Empowered citizenry includes attitude the collaborators of Japanese occupation
and capacities of CSO actors. Change in the and the easy treatment given to way in
mentality of the people is critical, from one which family members and former allies
of mendicancy -looking always for help from of President Marcos. (Carroll: 2006) These
above – to one of responsible citizenship. actions convey the message that the public
Local grassroots organizations could help interest is not that important after all and
the poor to assume responsibility to some that a “thick face” – with power and wealth
degree for their own welfare and that of – could violate it with little risk (Carroll:
their communities. These local groups 2006).
of individuals, asserting not only their
rights but also their duties as citizens to Greatest challenge for social
be concerned for the common good, are accountability advocates and practitioners
the building blocks of true democracy. in the Philippines is the culture of impunity
(Carroll) and increasing policy framework of the
Macapagal-Arroyo administration against
B. Dilemmas and Challenges information disclosure and transparency
and the continued perception of increasing
One of the hurdles in the practice of corruption. How can CSOs engage
social accountability is the “inability or government in this environment?
unwillingness of society to call powerful and
prominent people for their wrongdoings”, How do CSOs guard and preserve their
which Fr. John Caroll refers to as the independence and integrity as they partner
with government?

1 Leftwich, A. “Governance, democracy and Development

in the Third World”, 1993 Third World Quarterly 14 (3),
605-625
 Significant Outcomes 33

Annex A. Information on the Different Social Accountability Practices in the Philippines

SAc Who is Seeking From Where? How? For what?

Practice Accountability? Whom?
Campaign for Access to Legislature Nationwide Policy Advocacy Access to
the passage Information and and Lobbying information on
of a Right to Network Executive decisions and
Information Branch Coalition actions done by
Act building government
IRA Watch Diocesan Social LGU - 144 Monitoring the Transparent
Action networks Barangay barangays use of Internal and responsible
of the Catholic officials in 3 Revenue utilization of the
Church Dioceses Allotment of Internal Revenue
the barangay Allotment

Monitoring Citizens of Abra LGU Province of Field Responsible use

Infrastructure through the Abra monitoring and of public funds
Projects Concerned Citizens evaluation of and efficient
for Good of Abra for Good infrastructure delivery of
Governance Government projects services

Ehem Society of Jesus in Government Nationwide Anti corruption Build a graft

the Philippines and officials; seminars intolerant culture
Ateneo de Davao general that link anti-
University public corruption
work with value
transformation

Production and
dissemination
of manual
PDAF Watch CODE NGO and the Members of Legislative Public Transparent
Coalition Against the House of Districts - Expenditure and responsible
Corruption Representa- Nationwide tracking of for utilization of the
tives funds released PDAF and CA
for Legislator’s funds
PDAF
34 Social Accountability in the Philippines: A Scoping Study

SAc Who is Seeking From Where? How? For what?

Practice Accountability? Whom?
DA Budget CODE-NGO Executive National Independent Transparency and
Analysis Branch, spe- budget analysis accountability in
cifically of- the DA budget
ficials of the process – from
Department preparation to
of Agricul- execution
ture

Localization CODE-NGO LGU 9 provinces Poverty Improved

Anti-Poverty and 100 Indicator responsiveness of
Program 2 barangays Monitoring local government
priorities to
Participatory poverty situation
Budgeting

Participatory
Monitoring and
Evaluation
Monitoring of Citizens of LGU of Province CSO Transparent,
Procurement Negros through Negros of Negros participation accountable and
the Citizens’ Occidental Occidental (as observers) professional
Network for and regional of the agency public
Good Governance offices of procurement procurement
(CNGG) in the DPWH, SSS, process process
Province of Negros PPA and the
DOH-run
Regional
Hospital

Debt and Freedom from Legislature Nationwide Policy Advocacy Public finance
Public Debt Coalition and and Lobbying policies to
Finance Executive address national
Campaigns Public audit debt burden
of public debt
and contingent
liabilities
 Significant Outcomes 35

SAc Who is Seeking From Where? How? For what?

Practice Accountability? Whom?
Transparent Caucus of Non- LGU Provinces Public Feed Utilization of
and Government in Region 8 backing public funds
Accountable Organizations in and fulfillment
Governance Ioilo Performance of campaign
Reporting promises and
commitments of
Participatory political officials
Monitoring

Citizens’
Service
Satisfaction
Index

Use of social
contracts and
covenants

Public
Expenditure
Management

Philippine Network of NGOs Legislature National Independent National Budget:

National Philippine National and budget analysis Process and
Budget Budget Monitoring Executive Priorities
Monitoring Project Mentoring
and Analysis of NGOs in
Budget
Analysis and
Monitoring
36 Social Accountability in the Philippines: A Scoping Study

SAc Who is Seeking From Where? How? For what?

Practice Accountability? Whom?
Guarding G-Watch – Textbook Districts – Monitor Procurement of
Procurement Ateneo School publishers nationwide textbook Textbooks – from
of Textbooks, of Government; and delivery procurement
Medicines Boy Scouts and Department to contract
and School Girl Scouts of of Education Systems implementation
buildings the Philippines; officials improvement
NAMFREL; Barug! f(national
Pilipino; Concerned and local
Citizens of Abra for levels)
Good Government;
Naga City People’
Council; Social
Watch Visayas;
Negros Center
for People
Empowerment
and Rural
Development;
Coca- Cola Bottling
Philippines, Inc.
and Kaakbay

Participatory Rural communities LGU 20 LGUs Building Delivery of basic

Planning and and 2,000 community local services,
Budgeting barangays capacity for particularly water
tariff and and health
service delivery
designs that
includes
communities
contributing to
the financing
of services
that they will
received
 Significant Outcomes 37

SAc Who is Seeking From Where? How? For what?

Practice Accountability? Whom?
Policy Members of Legislature Nationwide Campaign and Comprehensive
Advocacy – Consortium of and legislative reform in
Campaign Electoral Reform COMELEC lobbying the Omnibus
for Electoral Election Code to
Reform ensure fair and
honest electoral
competition

Changes in
election relation
laws such as party
list, automation
and campaign
finances

Training CSOs Local CSOs LGUs Northern Capacity Local budgets

for Good Luzon building for and development
Governance CSO members priorities
in Local Special
Bodies in Local
Budgeting
and Project
Monitoring

Coalition Civil Society Government Nationwide Training of

Against Organizations, procurement BAC observers
Corruption Business, agencies Procurement
Integrated bar of Monitoring
the Philippines Information
Dissemination

Multi-sectoral Network of CSOs Procurement Nationwide Training Effective

Coalition participating entities Participation of Enforcement of
Against as observers in Ombudsman CSOs in Bids- GPRA
Corruption bidding process of and-Awards Abatement of
government Committees Corruption
38 Social Accountability in the Philippines: A Scoping Study

Annex B-1. Social Accountability Practices: Political/Democratic Accountability

Classification/ Objectives Focus SAc Practice Organization

Type
Based on
Objective Local National

Political/ Push for the Information Freedom of Access to

Democratic passage of a Disclosure Information Information
Accountability Freedom of an Bill Advocacy Network
Focus on Information Law (ATIN)
establishing the based on the Secretariat: AER
fundamentals principles of
for political disclosure and
and social public interest
accountability to
be feasible and Investigate Lifestyle Lifestyle Philippine
effective the lifestyle of Check checks Center for
government Investigative
officials of the BIR Journalism
to weed out the (PCIJ)
corrupt from the
bureaucracy

Develop a tool Lifestyle Citizen’s Transparency

that the public Check Participation and
can utilize in in Lifestyle Accountability
conducting a Checks Network (TAN)
citizens’ lifestyle
check of public
officials

Push for the Electoral Electoral Institute for

reforms in existing Reforms Reform Political and
electoral laws Electoral
to ensure clean, Reform
honest and fair (Secretariat)
elections
Consortium
for Electoral
Reform (40
organizations)
 Significant Outcomes 39

Classification/ Objectives Focus SAc Practice Organization

Type
Based on
Objective Local National

Identify areas Campaign Monitoring Transparency

where reform on Finance of Campaign and
campaign finance Reform Funds Accountability
can be proposed “Pera’t Network
and considered by Pulitika” (Secretariat)
policy makers; Consortium
for Electoral
Heighten public reforms
awareness of
the importance
of monitoring
campaign
expenditures
of parties and
candidates
Sensitize every Value Trans- Ehem! Anti- Society of Jesus,
Filipino about formation Corruption Philippine
Corruption Movement Province

Facilitate a Ateneo de Davao

process for University
various sectors
to understand
the culture of
corruption and
allow serious
reflection on
societal values
that reinforce
corruption

Build a graft
intolerant culture
40 Social Accountability in the Philippines: A Scoping Study

Classification/ Objectives Focus SAc Practice Organization

Type
Based on
Objective Local National

Encourage Credible Appointment TAN

civil society appointment Watch
participation in process
the appointment
process to ensure
transparency and
accountability

Cause politicians Co-financing Institute

to respond to real and Co- for Popular
needs of people production Democracy
of Basic
Replace patronage Services
politics with
new practices of
service delivery
 Significant Outcomes 41

Annex B-2. Social Accountability Practices: Financial Accountability

Classification/ Objectives Focus SAc Practice Organization

Type
Based on
Objective Local National

Financial Promote Independent DA Budget CODE-NGO

Accountability transparency and Budget Analysis
accountability in Analysis
the formulation
and execution of Public
the budget of the Expenditure
Department of Tracking
Agriculture

Monitor the na- Independent Monitoring InciteGov

tional budget Budget the National
thoughtfully and Analysis Budget
systematically to
ensure efficient Public
and responsible Expenditure
allocation and uti- Tracking
lization of public
funds

Build interest and

capacity of Philip-
pine NGOs and
media in national
budget monitoring
to influence pol-
icy and program
priorities of the
legislative and ex-
ecutive branches
of government
42 Social Accountability in the Philippines: A Scoping Study

Classification/ Objectives Focus SAc Practice Organization

Type
Based on
Objective Local National

Influence Public PDAF-Watch Code NGO

individual Expenditure
legislators Tracking
towards a more
transparent
and responsible
utilization of the
PDAF and CA
funds
Build broadest Public ODA Watch Management
unity among CSOs Finance and
in promoting ODA Policies Organizational
that serves the Development for
people and social Empowerment –
accountability in Secretariat
the conduct of
ODA projects

Create awareness
on ODA

Engage
governments
(host and donors)
in ODA policy,
priority, design
and processes
 Significant Outcomes 43

Classification/ Objectives Focus SAc Practice Organization

Type
Based on
Objective Local National

Push for specific Debt and Debt and Freedom from

progressive public Public Debt Coalition
changes on debt finance Finance
and public finance policies Campaign
policies of the
government, such
as the following:

• Comprehensive
audit of all
public debts
and contingent
liabilities

• Institute a
transparent and
participatory
budget process
and progressive
spending, revenue
generation and
borrowing policies
44 Social Accountability in the Philippines: A Scoping Study

Classification/ Objectives Focus SAc Practice Organization

Type
Based on
Objective Local National

Move from quota Local Gender WAND Women in

based budgeting Budget Local Level Nation-
system to a Gender Building and
totally gender Budgeting Development
responsive one;
results-oriented
and rights-based
planning and
budgeting

Assess gender
impact of local
government
policies, budgets
and expenditures
on maternal
health and
agriculture

Curb corruption at IRA Watch CBCP-NASSA

the barangay level
Explore how funds
can be used for
community

Develop a tool Monitoring Development Procurement

that would be Procurement of a Watch
easy to use by Diagnostic
the procurement Reporting
observers Template
Develop a tool/
template that
would provide
reports/feedback
to an agency in
relation to its
procurement
process
 Significant Outcomes 45

Classification/ Objectives Focus SAc Practice Organization

Type
Based on
Objective Local National

Develop and Monitoring Differential Procurement

demonstrate a Procurement Expenditure Watch
process of public
participatory Efficiency
assessment Measurement
of government Tool
expenditures
Develop a tool
that would provide
accurate baseline
data for future
measurement
of efficiency/
inefficiency in an
agency

Ensure adequate Informed Alternative

funding for Budget Budget
social services,
health, education, Advocacy Initiative
environment and
agriculture
Institutionalize
CSO participation
in budget process
Broaden CSO
participation in the
budget process
Strengthen CSO
capacities for
research work on
budget analysis.
Information and
media work,
campaigns,
lobbying and
networking
Build awareness
and development
champions in
government
46 Social Accountability in the Philippines: A Scoping Study

Classification/ Objectives Focus SAc Practice Organization

Type
Based on
Objective Local National

Remove Guarding Textbook G-Watch –

corruption Public Count Ateneo School
in textbook Procurement Textbook of Government
procurement Walk (including Boy
Scouts of the
Systematize Philippines,
deliveries Girls Scouts of
nationwide the Philippines,
NAMFREL)
Make suppliers
more responsive
to clients’ needs

Establish
benchmark
for DepEd
performance

Mobilize citizens
for monitoring
and inspection
for greater
transparency
 Significant Outcomes 47

Annex B-3. Social Accountability Practices: Performance Public Oversight/Monitoring

Classification/ Objectives Focus SAc Practice Organization

Type
Based on
Objective Local National

Performance Establish what the Performance Report Card Development

Public local residents Monitoring Survey on Academy of the
Oversight/ think about Specific Philippines
the quality of
Monitoring the following Services in
services: garbage NCR LGUs
Entails citizen collection, traffic
groups or management,
communities public safety
(within the
monitoring neighborhood),
and evaluating public market
the execution management and
of plans and permit issuance/
programs as licensing
well as the Develop a tool
performance to empower
of roles and citizens to provide
functions of feedback on public
public agencies services
and officials
according to
indicators they
themselves have
selected.
48 Social Accountability in the Philippines: A Scoping Study

Classification/ Objectives Focus SAc Practice Organization

Type
Based on
Objective Local National

Create a sense of Public Participatory Concerned

citizenship and Expenditure Monitoring of Citizens of
capability of ordi- Tracking Infrastructure Abra for Good
nary citizens to be Governance
public watchdogs
of government
infrastructure
projects

Monitor imple-
mentations of
government proj-
ects to ensure that
funds meant for
the projects are
judiciously used
and that projects’
plans and specifi-
cations are fol-
lowed

Enforce honesty
and integrity in
public service

Track public Public SWS Surveys Social Weather

satisfaction with satisfaction Station
performance of on
key government government
officials performance
institutions in
general as well
as along spe-
cific tasks such as
fighting corruption
 Significant Outcomes 49

Classification/ Objectives Focus SAc Practice Organization

Type
Based on
Objective Local National

Exercise role Performance Transparent Iloilo –CODE

of CSOs as Monitoring and
watchdogs and Accountable
hold political Governance
leaders to account
for promises
Train local CSO/ Responsive- Localized CODE-NGO
community for ness of local Anti-Poverty
better governance budget to Program 2
responsive to anti-poverty
poverty situation

Gather poverty
data through
the use of
Poverty Indicator
Monitoring

Involve community
in budget planning
to make local
budget more
responsive and
involve them in
Project Evaluation
and Monitoring
 50 Social Accountability in the Philippines: A Scoping Study

Classifica- Objectives Focus SAc Practice Organization

tion/Type
Based on
Objective Local National

Mobilize NGO Participatory Bantay TAN – Secretariat

and private Monitoring of Lansangan Members:
stakeholders Road Construc- (Road Watch) Roads Users: (Alliance
and official tion Projects of Unified Transport and
development Telecom Organizations;
assistance Automobile Association of
partners to the Philippines; Federation of
work hand- Jeepney Operators and Drivers
in-hand with Association of the Philippines;
the DPWH Inter City Bus Operators
and other Association, Provincial Bus
government Operators Association of the
stakeholder Philippines
agencies in Governance Advocates:
enhancing de- Ateneo School of Government-
Government Watch;
livery of qual-
Procurement Watch, Inc.;
ity national
Concerned Citizens of Abra
road services
for Good Government;
through more
TAN;Investigative Journalism
responsive,
(observer)
efficient and Road Service Providers:
transparent Confederation of Filipino
use of public Consulting Organizations
resources of the Philippines; National
Constructor Association of
Minimize the Philippines; Philippine
corruption in Constructors Association
DPWH National Road Asset
Managers: DPWH
Government Partners: Office
of the Ombudsman; PAGC
Regulators and Enforcers: LTO
Centers of Expertise: National
Center for Transportation
Studies

Road Board
Philippine Construction
 Significant Outcomes 51

Classification/ Objectives Focus SAc Practice Organization

Type
Based on
Objective Local National

Provide capability Monitoring of Building

training to vol- Procurement Bridges
unteer observers Towards Good
and the members Governance
of the BAC-Sec- with LGUs
retariat and TWG and Other
members on the Government
GPRA and its IRR Agencies
to serve deterrent
to collusion, con-
nivance and other
acts detrimental
and disadvanta-
geous to govern-
ment
Improve transpar- Participatory Participatory People’s
ency in the utiliza- Monitoring Monitoring of Alliance
tion of provincial Infrastructure for Justice,
funds allotted to Projects Democracy
barangays under and Drug and Good
the Ugnayan ng Procurement Governance
Bayan project of in Public
the Governor and Hospitals, Incite Gov
health projects Isabela

Introduce moni-
toring and evalu-
ation of end users
to village level
infrastructure

Establish stan-
dards for trans-
parency in the
allocation and uti-
lization of public
funds at the local
level
52 Social Accountability in the Philippines: A Scoping Study

Classification/ Objectives Focus SAc Practice Organization

Type
Based on
Objective Local National

Build capacity CSOs on

of CSOs in local Participatory
special bodies, Local
specifically on Governance:
budgeting, project Participatory
monitoring and Planning and
implementation Budgeting

Influence LGUs
Upscale capacities Training Multi-Sectoral
of CSO-BAC of CSO- Coalition Against
observers Observers in Corruption
Procurement
Link BAC
observers with
their government
counterparts

Bring to the city Participatory Naga People’s

government Planning and Council and City
sectoral agenda Budgeting Government
to empower
communities
The Affiliated Network for Social Accountability in East Asia and the Pacific (ANSA-EAP)
is a networking facility for networks promoting the “social accountability” approach to good
governance. It provides capacity building through a learning-in-action approach and serves as an
information gateway on social accountability tales, tools and techniques.

Social accountability is the process of constructive engagement between citizens and government
in monitoring how government agencies and their officials, politicians, and service providers use
public resources to deliver services, improve community welfare, and protect people’s rights.

The social accountability approach needs four basic conditions to work: a) organized, capable
citizen groups; b) responsive government; c) context and cultural appropriateness; and d) access
to information.

ANSA-EAP operates in a large and diverse region. It pursues a geographic strategy that currently
puts priority on support and technical assistance to social accountability activities in Cambodia,
Indonesia, Mongolia, and the Philippines. It also follows a thematic and sector strategy by supporting
mainly local social accountability efforts that deal with service delivery (education, health, local
infrastructure), procurement monitoring, the youth, extractive industries, and climate change.

Pacifico Ortiz Hall, Fr. Arrupe Road ANSA-EAP is currently hosted by

Ateneo de Manila University Ateneo School of Government,
Loyola Heights, Katipunan Avenue Ateneo de Manila University.
Quezon City 1108, Philippines
Telephone: (632) 426 6062
E-mail: ansa_eap@yahoo.com
Website: www.ansa-eap.net