undaf inside

The United NationsDevelopment

Assistance Frameworkin the Philippines

(2005-2009)

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2 The United Nations Development Assistance Framework in the Philippines2 The United Nations Development Assistance Framework in the Philippines

3(2005-2009)

Message of the United Nations 4Message of the National Economic and Development Authority 5Government of the Philippines and United Nations Joint Declaration of Commitment 6United Nations Declaraton of Commitment 7Executive Summary 9

I. Introduction 10

II. Results 122.1 National Development Goals, Strategies and Priorities 122.2 Strategic Areas of Development Cooperation 122.3 Expected Outcomes 14

2.3.1 Macroeconomic Stability, Broad-Based and Equitable Development 142.3.2 Basic Social Services 152.3.3 Good Governance 162.3.4 Environmental Sustainability 172.3.5 Conflict Prevention and Peace Building 18

2.4 Cooperation Strategies 19

III. Estimated Resource Requirements 20

IV. Implementation 204.1 Focus on MDGs, Rights and Gender Equality 214.2 Harmonisation of Programme Cycles 214.3 Development Coordination Mechanisms 22

V. Monitoring and Evaluation 225.1 Internal Reviews 225.2 Joint and External Reviews 23

UNDAF Results Matrix 24

Monitoring and Evaluation Framework 33

Monitoring and Evaluation Programme for Cycle Calendar 64

Programme Resources Framework 65

Acronyms 66

List of References 69

Table of Contents

4 The United Nations Development Assistance Framework in the Philippines

THE United Nations Secretary-General, Mr. Kofi Annan, has given the United Nations a

renewed purpose and energy through his reform agenda. Now in its second generation,

this agenda points the way towards a stronger, more focused United Nations, better placed to

support national partners in achieving their own development goals. As part of this reform, the

United Nations system at the country level now prepares a Common Country Assessment

(CCA) of the development challenges of a country in full consultation with its key stakeholders.

A United Nations Development Assistance Framework (UNDAF) is then proposed to spell out

how the United Nations believes it can best contribute to supporting progress on the issues

identified in the Common Country Assessment.

The United Nations Development Assistance Framework (UNDAF) is the United Nations’

covenant with the government and people of the Philippines. It holds the United Nations sys-

tems accountable for certain development outcomes resulting from the individual efforts of

United Nations organizations and equally important, the synergy of the various United Nations

organizations working together as a team.

Stemming from the analysis of the Common Country Assessment, the United Nations De-

velopment Assistance Framework (UNDAF) for the Philippines 2005-2009 has identified five

key strategic areas to which the United Nations in the Philippines believes it can contribute:

macroeconomic stability, broad-based and equitable development; basic social services; good

governance; environmental sustainability; and conflict prevention and peace-building.

Coordination and partnerships will continue to be the hallmarks of United Nations work in the

country going forward, focusing on assisting the Government of the Philippines in meeting the

Millennium Development Goals.

The United Nations is deeply committed to the Government and people of the Philippines

and looks forward to continuing its support to the country in the years ahead.

DEBORAH LANDEYUnited Nations Resident Coordinator

United Nations

Message

5(2005-2009)

National Economic and Development Authority

MessageON behalf of the Philippine Government, I would like to congratulate the UN Country Team

under the leadership of UN Resident Coordinator Deborah Landey for coming up with the

UN Development Assistance Framework (UNDAF) 2005-2009, which takes off from a Com-

mon Country Assessment (CCA).

I laud the men and women comprising the UN Country Team for taking on the task of assist-

ing the Philippine Government in fighting poverty through this UNDAF. I am well aware that this

framework was completed through a broad participatory consultation process.

The UNDAF will surely help realize our aspirations for a better quality of life for all Filipinos,

linked as it is to the Millennium Development Goals (MDGs) and the priorities of the Philippine

Government.

The adoption of a common framework such as the UNDAF gives greater meaning to the

partnership among the UN agencies, the Philippine Government, civil society, private sector

and other stakeholders. Forging this kind of partnership is critical to enhancing development

effectiveness and efficiency.

Moreover, I believe a knowledge partnership must be in place so that such intellectual capital

is maximized and shared for the improvement of productivity and income. Let me invite the

entire UN Family along with other donor agencies and stakeholders to establish a knowledge

partnership at NEDA.

The task at hand is to make UNDAF useful and meaningful. Thus, there is a need to set up

necessary structural systems for knowledge to reach the poor. Together, let us realize this

commitment.

Again, I commend the efforts of those who were involved in coming up with this document.

May your dedication and zeal inspire other organizations and sectors of society to work coop-

eratively in uplifting the lives of the Filipino people.

ROMULO L. NERISocioeconomic Planning Secretary and

NEDA Director-General

6 The United Nations Development Assistance Framework in the Philippines6 The United Nations Development Assistance Framework in the Philippines

The United Nations Country Team, and Government of the Republic of the Philippines, arecommitted to support the national goals of the country and international human develop-

ment commitments.

Putting people first, our overriding mission is to help Filipinos achieve their full potentialthrough expanding choices and enlarging opportunities, especially for poor and vulnerable com-munities, families and individuals. We will strive to develop national capacity and provide qualityservices to promote development objectives and further policy dialogue complementary to theMillennium Declaration, the Millennium Development Goals and other international commit-ments and treaties.

In order to enhance the impact of our initiatives, the United Nations shall work together,fostering cooperation and coordination with government agencies and other stakeholders soas to enhance the performance and impact of development assistance in the country.

To advance the cause of humanity, to respond to the multifaceted challenges faced by thePhilippines, and to execute development strategies, we the United Nations and the Govern-ment of the Republic of the Philippines commit to effectively implement this United NationsDevelopment Assistance Framework, 2005-2009.

MR. ROMULO NERI MS. DEBORAH LANDEYDirector- General Resident Coordinator

National Economic and Development Authority United Nations

Government of the Republic of the Philippines and United Nations

Joint Declaration of Commitment

7(2005-2009) 7(2005-2009)

United Nations

Declaration of Commitment

We, the United Nations Country Team, are determined to support the national development

goal of eradicating mass poverty through sustainable, equitable and broad based socio-

economic development; improved access to quality basic social services; enhanced sustain-

able use of natural resources; preservation of cultural heritage; and promotion of peace, hu-

man rights, gender equality and good governance.

Guided by the national development needs and priorities, the global Millennium Declaration and

the Millennium Development Goals, and principles embodied in the UN Charter and other fun-

damental UN instruments, we will strive to provide the best assistance and strengthen national

institutional and human resource capacities. We will target our assistance to the most vulner-

able and poor, in particular women, children and youth, Indigenous Peoples, the informal sector

and the rural population.

While supporting the Philippines’ development goals, we are committed to implementing the

UN Development Assistance Framework, 2005-2009, with emphasis on forging partnerships

among the government, civil society, and the private sector. Respecting the specific identities

and mandates of our organisations, we aim to improve our coordination, effectiveness and

efficiency, to reinforce the impact of our assistance, and to provide the best possible service to

the Government and the Filipinos.


Kariya Mei Werner Konrad BlenkFAO Representative ILO Sub-regional Director

Kyo Naka Dr. Zahidul A. HuqueUNDP Deputy Resident Representative UNFPA Country Representative

Dr. Nicholas K. Alipui Dr. Raffaello TarroniUNICEF Country Representative UNIDO Country Representative

Thamrongsak Meechubot Dr. Jean Marc J. OliveUNHCR Representative WHO Country Representative

Dr. Ma. Elena F. Borromeo Lowie C. RosalesUNAIDS Country Coordinator UN-Habitat Country Coordinator

Sylvia Olive-Inciong Atty. Brenda PimentelUNIC National Information Officer IMO Regional Coordinator

Deborah LandeyUN Resident Coordinator

9(2005-2009)

The United Nations Development Assistance Framework (UNDAF) is the result of an

ongoing consultative process intended to provide an analysis of how the United Nations

System can respond to national priorities and needs. The UNDAF is guided by the goals and

targets of the Millennium Declaration of 2000, signed by the Government of the Philippines,

and the detailed national priorities of the Medium-Term Philippine Development Plan 2001-

2004. The UNDAF translates these into a common operational framework for development

activities upon which the individual United Nations Agencies, Funds and Programmes will

formulate their actions for the period 2005-2009.

The UNDAF thus frames the United Nations System’s assistance to the people and

Government of the Republic of the Philippines (GRP). Five inter-related areas of cooperation

have emerged as particularly critical for the United Nations System’s support between 2005

and 2009: macroeconomic stability, broad-based and equitable development; basic social

services; good governance; environmental sustainability; and conflict prevention and peace-

building.

Executive Summary


Section 1:

Introduction

Human development is likeliest to improvewhen Governments, civil society, United

Nations organisations and development part-ners concentrate their human and financial re-sources –- and their efforts –- toward realisinga set of clearly articulated goals. Such objec-tives are embodied in the Millennium Declara-tion and the eight Millennium DevelopmentGoals (MDGs) for 2015, which are universallyaccepted goals for improved quality of life forthe Earth’s 6 billion people. Each goal ad-dresses an aspect of human rights and themost compelling of human desires –- a worldfree of poverty and the misery that povertybreeds. Multisectoral responses that tacklethese goals simultaneously are required.

To assist the Government of the Republicof the Philippines (GRP) in meeting these glo-bal goals as well as national priorities, theUnited Nations System will draw upon itsunique diversity and better coordinate its ef-forts at the country level through this UnitedNations Development Assistance Framework2005-2009, or UNDAF. Keeping in mind theUnited Nations Agencies’ own distinct man-dates, competencies and resources, theUNDAF provides the basis for individual orga-nizations’ Country Programmes, which sup-port expected UNDAF Outcomes.

Human security and human developmentwill be the comprehensive focus, includingprotecting people’s lives from poverty as wellas from conflict. In particular, people whoface critical and pervasive threats –– poor andvulnerable groups –– will be at the center ofthe development agenda. In all of these ef-forts, the United Nations System, with theGRP, will promote increasing participation of

the Philippines’ multiethnic society, encour-aging social inclusion through active publicparticipation and partnership, and will pay par-ticular attention to the social dimensions ofthe country’s efforts toward poverty reduc-tion and sustainable growth.

Coordinated action is particularly neededfor a country such as the Philippines, whichconfronts extraordinary constraints and un-certainties despite much progress in imple-menting complex reforms. As analysed in theCommon Country Assessment (CCA), thekey underlying causes of poverty and exclu-sion in the country are rooted in three broadthemes: inequitable economic growth and

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that of any other Asian country. Total popula-tion is estimated at 82 million, growing at anannual rate of 2.36 percent, one of Asia’s high-est. Had the population grown only at the samerate as Thailand’s, where the fertility rate is1.8, it has been estimated that per-capita GDPwould have been 50 percent higher than it nowstands. In addition, about 172 women for ev-ery 100,000 livebirths in the Philippines diefrom maternal causes. Nearly 1 in 5 childrenaged 5 to 17 is working, many in hazardousand exploitative conditions. Only 40 percentof members of groups at high risk of contract-ing HIV consistently use condoms –– posinga serious threat despite the current low preva-lence rate –– while tuberculosis is the sixth-leading cause of mortality and malaria theeighth-leading cause of morbidity.

Ensuring that the benefits of growth anddevelopment are equitably shared among citi-zens is particularly daunting. Poor and vulner-able groups include the rural and urban poor;working children, children without primarycaregivers; abused/trafficked women; dis-placed persons; children caught in armed con-flicts; and Indigenous Peoples. To achieve theMDGs by 2015 or earlier –– as well as to un-derscore the UNDAF’s continuing relevance–– the United Nations Country Team (UNCT)has emphasised the creation of an enablingenvironment that enhances Government’sability to formulate rights-based and pro-poorpolicies as well as to build capacities to pur-sue and institutionalise political, economic andsocial reforms. In addition, the UNDAF is a liv-ing document and has been designed to beflexible enough to reflect the priorities/platformof the administration after the 2004 elections.

ownership of assets; severely unequal ac-cess to opportunities and basic social ser-vices; and inability of key change agents,particularly women, to play an active role inimproving their lives and those of others. Allhave significantly undermined rights-baseddevelopment, and all may be widened furtherby the effects of globalisation, even as thePhilippines advocates for a more equitableglobal trade regime.

Based on the national per-capita povertythreshold of PhP11,605 (USD264), incomepoverty has been reported as remaining muchhigher in the Philippines than in any other na-tion in Southeast Asia–at 34 percent (2000poverty incidence of population), even higherthan during the 1997-98 Asian financial cri-sis. The most prosperous third of the popu-lation earns two-thirds of total national in-come, the poorest third only 7.9 percent.Moreover, nearly two-thirds of the poor live inrural areas–where more than 7 in 10 farm-ers do not own the land they cultivate–and incertain regions, such as those with largepopulations of Indigenous Peoples, locatedin 50 out of 78 provinces, representing 8.2percent of the population.

But there is more: The Philippines’ total fer-tility rate is 3.5 children per woman, well above

Based on the national per-capita

poverty threshold of PhP 11,605

(US$264), income poverty has been

reported as remaining much higher

in the Philippines than in any other

nation in Southeast Asia–at 34 percent.


2.1 National Development Goals,Strategies and Priorities

In its quest to become a modern and pros-perous nation, the Philippines has focused itsdevelopment agenda on four areas: (1) mac-roeconomic stability with equitable growthbased on free enterprise; (2) agriculture andfisheries modernisation with social equity; (3)comprehensive humandevelopment and protec-tion of the vulnerable; and(4) good governance andthe rule of law. These priori-ties are reflected in the Me-dium-Term Philippine Devel-opment Plan (MTPDP) 2001-2004. The MTPDP is supportedby the Government’s bannerprogramme for poverty re-duction, the Kapit-BisigLaban sa Kahirapan(KALAHI), a compre-hensive and inte-grated conver-gence strategy todeliver services tothe poorest areas of the country through localgovernment units (LGUs), improvement of ef-ficiency and effectiveness of the use of publicfunds and the involvement of the private sec-tor. The Philippines signed the Millennium Dec-laration in 2000, committing itself to interna-tional peace and security, development andpoverty eradication through achievement ofthe MDGs, and attendance to the needs of themost vulnerable, while promoting humanrights, democracy and good governance.

2.2 Strategic Areas of DevelopmentCooperation

Not only does the UNDAF provide a frame-work for future collaboration, but it also resultsfrom a comprehensive, dynamic and partici-patory process that ensures learning frompast performance. Preparations for the Com-mon Country Assessment (CCA) and UNDAFexercises began in late 2002 with trainings onthe rights-based approach to development andthe conduct of a gender assessment of de-

Section 2:

Results


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velopment trends, challenges and outcomesin the country.

Following development of an initial CCAframework, the Executive Committee Agen-cies (UNDP, UNICEF, UNFPA) conducted in-dividual assessments of the national develop-ment situation, involving causality and SWOTanalysis, clustering of issues and scenario-building. A multisectoral workshop with Gov-ernment and civil society analysed nationalpriorities, the Millennium Declaration andMDGs and developed six themes for furtherconsideration. Thematic Working Groups thenconducted individual in-depth workshops foreach theme, which led to a further plenarysession with key partners where the concep-tual analysis of the final CCA was developed.Throughout these efforts, the CCA Core Groupof senior United Nations programme officersand experts in individual thematic areas wasactive. At an UNDAF prioritisation workshopin October 2003, the CCA findings were re-fined in line with national priorities, the Millen-nium Declaration and the MDGs, and consen-sus was reached on five priority areas ofUNDAF cooperation.

The priority areas are:• Macroeconomic stability, broad-based

and equitable development• Basic social services• Good governance• Environmental sustainability• Conflict prevention and peace buildingIn all five areas, the United Nations Sys-

tem offers comparative advantages with re-gard to achieving tangible progress toward theMDGs, drawing on its values, its successfulglobal knowledge base, best practices andlessons learned; its strong normative man-date; its neutrality; and its ability to encourageefficient coordination and facilitate account-ability among donors. The United Nations Sys-tem is well placed to advocate broad policy,legislative and administrative reforms, for ex-ample, by supporting the voices of the under-represented, and investing in capacity build-ing. The United Nations System likewise cannurture community-based initiatives that aimto enhance the participation of individuals intheir own development. Furthermore, theUnited Nations System can help formulate tar-geted interventions and providing technical

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In all five areas, the United NationsSystem offers comparative advantageswith regard to achieving tangibleprogress toward the MDGs, drawingon its values, its successful globalknowledge base, best practices andlessons learned; its strong normativemandate; its neutrality; and its abilityto encourage efficient coordinationand facilitate accountability amongdonors.

(2005-2009)


assistance in support of data collected andanalysed that will inform the extent of the plightof the poor and vulnerable.

All five areas are interlinked and mutuallyaffect one another, yet are being exacerbatedby the wide disparities existing in the countrywith regard to ownership, access and partici-pation and decision-making power. Maintain-ing broad-based and equitable economicgrowth at higher levels is an imperative forpoverty reduction. Even so, no country hasdone well in reducing poverty without also pro-viding widespread basic education, health andsocial protection services. Improving the en-vironment and strengthening the national re-sponse to natural disasters will contribute tobetter health, education and social protectionas well as lessen vulnerability. Good gover-nance and participatory development will bethe mechanisms through which an effectivecoalition of the state, civil society, the privatesector, the donor community, the media andthe United Nations System can deliver the citi-zens of the Philippines out of poverty. Finally,the root causes of conflict often involve issuesof governance, poverty, inequality and environ-ment, which also must be seen through the“lens” of peace-building.

Under its global mandate, the United Na-tions also has identified a series of fundamen-tal crosscutting issues that will be highlightedand addressed in all five areas of coopera-tion, including respect for human rights, gen-der equality, access to information and ser-vices, population and development, and youthand adolescents. These have been consid-ered in selecting programme priorities, estab-lishing rights standards, identifying duty-bear-ers and claims-holders, and establishingmechanisms for redress.

It should be noted that lack of inclusion asa collaborative priority in the UNDAF in no wayprecludes other themes from receiving sup-port from individual United Nationsorganisations. Overall, however, the goal is swiftconvergence in planning –- designing certainUnited Nations activities collaboratively andsharing these plans as an integrated whole.

2.3 Expected OutcomesArising from the CCA analysis, common

United Nations development issues have beendetermined by their impact on the poorest andmost vulnerable, based on the following crite-

ria: (a) if the issue is addressed, it will solvemost, if not all, of the other issues; (b) suc-cesses and best practices have occurred inthe past and will need to continue in address-ing the issue; (c) the issue has reached analarming situation and needs immediate at-tention; (d) it is critical to the achievement ofthe MDGs; and (e) there is potential for longer-term impact on national goals and priorities.In addition, these issues focus on the key ar-eas of competence and comparative advan-tage of the United Nations System in the Phil-ippines. Other key development challengesnoted in the CCA either do not fall under thesecategories or are being addressed primarilythrough other members of the donor commu-nity.

Based on national priorities contained in theMedium-Term Philippine Development Plan2001-2004, the United Nations has, in eacharea of cooperation, identified CountryProgramme Outcomes to be achieved during2005-2009, Country Programme Outputs, theRole of Partners and Resource MobilisationTargets. Details are described in the UNDAFResults Matrix.

2.3.1 Macroeconomic Stability, Broad-Based and Equitable Development

Sustainable economic growth that bringsimprovements in standards of living to all seg-ments of the population is the continuing eco-nomic challenge confronting the Philippines.As noted above, some one-third of thecountry’s population –- nearly 26 million people-– lives below the annual per-capita povertythreshold of PhP 11,605. The transient poor,who are vulnerable to economic, political, en-vironmental and other “shocks,” raise num-bers even higher. The Gini ratio in 2000 was0.48 –- with no notable improvement over thepast nine years at 0.47 in 1991.

Unemployment has steadily increased,reaching 10.2 percent during the third quarterof 2002, while underemployment is chronicand widespread at 15.3 percent during thesame period. Furthermore, nearly half of theworking population is engaged in informal-sec-tor jobs that are easy to find but are low inboth productivity and pay. In particular, theagricultural sector is undeveloped and with lowproductivity, having grown at an average of only1 percent annually in the 1980s and 1.5 per-cent in the 1990s. Investor confidence is weak,

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at about 20 percent of GDP compared to anorm of 30-35 percent of other newlyindustrialised countries. The fiscal deficit is un-sustainable at its high level of more than 37percent of total revenue, or PhP210.7 billion(US$4.1 billion, 2002).

While the level of economic growth is im-portant, it is the pattern of growth, howeverthat will determine its sustainability: The moreequitable the growth, the more widely will thefruits of economic expansion be distributed,especially to the poor, and the greater the like-lihood of social stability. Interventions of theUnited Nations System will focus on supportto formulation of propoor policies and strength-ening management and planning capacitiesfor vulnerable groups.

In this priority area, the United Nations Sys-tem anticipates the following outcome of itsdevelopment assistance:

UNDAF Outcome 1: By 2009, increased in-comes for both women and men among pov-erty groups in XX priority areas through en-abling policies, public-private partnerships andassets reform measures that lead to expan-sion of sustainable livelihoods, communityenterprises and Decent Work, increased pro-ductivity and managed population growth

Country Programme outcomes adoptedunder this UNDAF Outcome include:

• By 2009, the policy and planning frame-work in the country more extensively incorpo-rates effective, people-centered approachesto development planning, budgeting and moni-toring, with a special focus on women, chil-dren and vulnerable groups

2.3.2 Basic Social ServicesAttainment of the highest standard of

health, nutrition, education and social protec-tion services is a fundamental right of everyhuman being. At the same time, the Philip-pines’ decentralised system of governance –-despite many breakthroughs that have ben-efited the poor and vulnerable –- has also re-sulted in divisions of labor and financial re-sponsibility that give rise to serious weak-nesses in local Governments’ ability to deliveradequate basic services to their constituen-cies.

Social services expenditures as a shareof GDP fell from 5.46 percent in 1997 to 4.25percent in 2003. In health, major gaps inwomen’s health care and nutrition arise fromwomen’s poor health-seeking behavior; lackof empowerment, which results in widespreadgender-based violence; and health servicedelivery that often does not comply with pre-scribed medical standards. Wide disparitiesalso exist across regions in the nutritional sta-tus of children. At the same time, reported HIVinfections among high-risk groups have beenrising and now stand at more than 100 casesper year –– a comparatively low though alarm-ing figure, considering that only 19 percent of15- to 24-year-olds could correctly identifyways of preventing the sexual transmissionof HIV. Levels of tuberculosis, malaria and den-gue are very high, requiring accelerated andcoordinated interventions. In education, signifi-cant issues include wide disparities in retain-ing children in the secondary level, betweenurban and rural areas, rich and poor regions;low quality, arising from unwieldy class sizesand congested curriculum; and poor accessto and quality of early childhood care and de-velopment services, with at least two-thirdsof 3- to 5-year-olds not enrolled. Lastly, de-mand for safe drinking water needs to be in-creased, given that 36 percent of water forurban slum dwellers is contaminated at thepoint of consumption, while another 17 per-cent is contaminated at the source becauseof improper transport, handling and storage.

United Nations concerns under this areaof cooperation are focused both on demandand delivery for health, education, and socialprotection/social security. For quality healthcare, the United Nations System will supportmaternal health, reproductive health and childhealth in particular, with strategic approaches


directed toward adolescents and youth and to-ward increasing the involvement of parents,caregivers and families in monitoring theprogress of children’s growth and develop-ment. Improvements in quality of education willfocus on building a strong foundation for inte-grated early childhood care, transformingschools into child-friendly institutions, devel-oping alternative delivery schemes for particu-lar groups, and reaching out to national prior-ity areas.


UNDAF Outcome 2: By 2009, increased andmore equitable access to and utilisation ofquality, integrated and sustainable basic so-cial services by the poor and vulnerable

Country Programme Outcomes adoptedunder this UNDAF Outcome include:

• By 2009, more Filipinos, especially chil-dren, adolescents and women, are aware oftheir rights, including reproductive rights, andare empowered to claim their rights to healthand education

• By 2009, key policies, plans andprogrammes on comprehensive, quality,rights-based and culturally sensitive educa-tion, health, nutrition, food and social protec-tion and security services for poor and vulner-able groups are designed, implemented, moni-tored and evaluated

2.3.3 Good GovernanceKey national documents all point to the

centrality of effective and equitable governancerelative to other challenges. Through direct andindirect engagement with governance issues,other issues to be advanced include humansecurity; gender equality; the rights of womenand children; quality education and health ser-vices, including case detection and treatment,prevention of tuberculosis and malaria; socialprotection; HIV/AIDS prevention, care and sup-port; and adequate standards of living andworking conditions, including access to suffi-cient food, water, decent housing and income.

Implementing governance reform in thePhilippines, however, has been hampered bymany factors, including inadequate budgetaryresources; conflicting interpretations or gapsin the implementing rules and regulations ofnew laws; consequent prolonged litigation to

resolve disputes in legal interpretations; inad-equate capacities or resistance within the bu-reaucracy to implement reforms andmodernise systems; pervasive graft and cor-ruption; and intense partisan politics and po-litical disruptions. To cite an example, out of atotal national budget of PhP781 billion (2001),PhP100 billion, or 13 percent, was at risk ofbeing lost to corruption.

Other serious concerns in implementinggood governance in the country, as identifiedin the CCA, include weak fiscal management,with the outstanding national debt more thandoubling from 1997 to 2003, standing atPhP4.1 trillion; challenges to decentralisation,with 90 percent of Local Governments con-tinuing to depend on the NationalGovernment’s Internal Revenue Allotment de-spite legal provisions allowing them to gener-ate resources from local taxes and other formsof resource mobilisation; the inefficient bu-reaucracy noted earlier; numerous questionsabout the reliability and competency of the ju-dicial system; and deficiencies in the politicaland electoral system that undermine publicconfidence in election outcomes because ofwidely alleged irregularities. Relevant MDGsand other development commitments will notbe possible if there is no substantial progressto curb graft and corruption, improve respon-siveness and effectiveness of all branches ofGovernment, enhance resource mobilisationefforts and optimise public expenditure deci-sions. United Nations System interventions willhave to focus on justice and human rights,public sector and decentralised governance,and political, electoral and legislative reformsthat facilitate citizen participation.


17(2005-2009)

UNDAF Outcome 3: By 2009, good gover-nance reforms and practices areinstitutionalised by Government, local govern-ment units (LGUs), civil society organisationsand the private sector in a manner that con-tributes substantively to poverty reduction, pro-tection of rights, sustainable human develop-ment and promotion of gender equality

Country Programme Outcomes adoptedunder this UNDAF Outcome include the fol-lowing:

• By 2009, public and private institutionsadhere better to the rule of law, human rightsand gender equality, toward greater accessto justice and human security by poor andvulnerable groups

• By 2009, national, subnational and localinstitutions promote and practice transpar-ency, accountability, gender equity and partici-patory governance for greater accessibility andcost-effectiveness in the delivery ofprogrammes and services toward improvedhuman development, especially for poor andvulnerable groups

• By 2009, governance institutions pursueand institutionalize reforms in the political, elec-toral and legislative systems for greater citi-zens’ participation, especially among poor andvulnerable groups, toward meaningfuldemocratisation of governance at all levels

2.3.4 Environmental SustainabilityThe Philippines continues to be highly vul-

nerable to environmental damage that threat-ens the nation as well as the planet, given thattwo-thirds of the poor remain dependent onnatural resources for income and sustenance.In particular, Indigenous Peoples are mostlylocated in remote but resource-rich areas,many in protected and ecologically fragile sites.

The coastal and marine environment, onwhich millions of Filipinos depend, deservesspecial mention; island ecosystems are proneto human-induced disruptions. Some 98 per-cent of coral reefs in the country have beendamaged by human-related activities. At thesame time, water, air and soil pollution are in-creasing in many parts of the country, bring-ing serious consequences for health. Naturaldisasters also are confronted on a recurrentbasis. The Philippines is located in an activepart of the Earth characterised by an ocean-circling belt of active volcanoes and earthquakefault lines. Major disasters, such as typhoons,

floods, landslides, fires, and maritime inci-dents also added to estimated damages ofUS$ 46.6 million in 2002.

To be sustainable, economic growth can-not be achieved at the cost of environmentaldegradation. Indeed, such degradation repre-sents a manifestation of deeper causes rela-tive to weak institutions, conflicting and unequalaccess to ownership, poverty, population pres-sures, urbanisation and insufficient training ingood environmental management. The UnitedNations System has identified its role in sup-porting the Government to achieve national andglobal environmental goals and better naturaldisaster response through a stronger policy en-vironment and local capacity building; accessto services also will be highlighted.


UNDAF Outcome 4: By 2009, increased ca-pacity of stakeholders to protect/enhance thequality of the environment and sustainablymanage natural resources.


• By 2009, sustainable environmental poli-cies, especially with regard to agriculture andindustrial development, are in place andphases of implementation are specified

• By 2009, key stakeholders are better ableto manage population, environmental andnatural resources, use sustainable energy andmaintain sustainable development

• By 2009, the poor and vulnerable groups,especially women and children, are able toprepare for and cope with the impacts of envi-ronmental emergencies


2.3.5 Conflict Prevention and Peace-Building

Highlighting the interconnectedness ofwhat Secretary-General Kofi Annan has iden-tified as “freedom from fear” and “freedom fromwant,” human security examines the underly-ing political, economic and social factors thatpromote or hinder people’s security in a com-prehensive sense and addresses problemsof socially excluded groups. As identified in theCCA, root causes of human insecurity in thePhilippines–and thus, threats to overall peaceand development–include conditions of ineq-uity, with an elite few controlling power and eco-nomic resources; abject poverty; poor gover-nance; injustice, abuse of authority and viola-tions of human rights; and marginalisation ofminority groups, especially IndigenousPeoples. A rights-based approach provides anoverarching strategy to hold both states andpeople accountable for safeguarding humanlives and providing a framework for makingnonstate actors accountable. In addressingthreats to human security, the rights-basedapproach of protection and empowerment pro-vides a conceptual link between the domainsof conflict and poverty.

Perhaps in no way do the poor suffer morethan during a conflict situation, where theirvulnerability, lack of opportunities and formalpowerlessness come to the forefront. Theprimary challenge to peace, development andhuman security in the Philippines today is thearmed conflict that has lasted for 35 years,mainly involving a communist insurgency andsecessionist rebellion. The effects of armedconflict are most apparent in certain areas ofMindanao, especially in the provinces of theAutonomous Region of Muslim Mindanao(ARMM). Given that Mindanao is a primary re-source base of the Philippine economy, theconflict most likely affects the nation’s GDP.In particular, the plight of children and womenin situations of armed conflict renders themvulnerable to physical abuse and exploitation.Children are estimated to comprise up to 13percent of the total rebel population. IndigenousPeoples also are often violently displaced sothat armed combatants can use their com-munities as “safe havens.”

Development efforts must be used strate-gically, not just to prevent and settle conflicts,but also to consolidate peace when settle-ments have been reached. In so doing, ad-

dressing such issues as those at the basis ofall peace and development issues –- gover-nance, justice, poverty, environment –- musttake into account the long-term peace build-ing “lens” noted above, recognising that dia-logue can triumph over discord. The impor-tance of realising a peaceful and secure soci-ety is reflected in the Millennium Declaration.United Nations interventions are focused onstrengthening the policy environment; buildingcapacity for Government, civil society, formercombatants and communities; and ensuringthe rights of those affected by armed conflict.


UNDAF Outcome 5: By 2009, the level of vio-lent conflict has been reduced, and humansecurity and the culture of peace have beenpromoted nationwide.


• By 2009, the peace-building dimensionof development cooperation is better estab-lished, based on a common understandingwith civil society, and is mainstreamed intopolicies and practices


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• By 2009, key actors are better able toprevent, manage and resolve conflict and tobuild peace and security

• By 2009, individuals and communitiesaffected by armed conflict have improved ac-cess to increased incomes, basic social ser-

vices and participation in governanceIt should be noted that the United Nations

System already has joint programming oper-ating under this area of cooperation. Since2001, five United Nations Agencies (UNDP,UNFPA, UNESCO, FAO, ILO), supported byfour more Agencies (UNICEF, WHO, UNIDO,UNHCR), have engaged in a joint programmein conflict areas of the ARMM to strengthenlasting peace and development in the prov-ince and to assist former rebels in reintegrat-ing into society. The United Nations Systemwill continue to support future peace-buildingin Mindanao.

2.4 Cooperation StrategiesClearly, the needs and expectations for

sustainable human development in the Phil-ippines and for achieving global goals, tar-gets and principles call for multidimensionalpartnerships, with the Government, amongUnited Nations Agencies, and with other de-velopment partners, including civil society.The United Nations will pursue complemen-tary and collaborative strategies in the inter-est of furthering concerted efforts towardnational priorities, particularly including a part-nership strategy that involves joint dialogueand maintaining a high-quality environmentfor the state, civil society organisations andthe private sector.

Through policy dialogue, the United Na-tions System will facilitate a comprehensiveapproach to aid coordination, linking such co-ordination to the evolution of the institutional,legal and administrative sectors. The UnitedNations System will exert efforts tostrengthen capacities of institutions andorganisations at all level, enabling them to bet-ter deal with major challenges arising fromthe urgent need to reduce wide disparitiesamong the population. Lastly, through in-creased advocacy, the United Nations Sys-tem will support policy makers on specific is-sues that it considers as priorities.

These strategies will be further refined dur-ing UNDAF implementation through the coor-dination mechanisms discussed in Section 5.Some may require collaborative programmingor funding; others will be a matter of concertedfacilitation of access to data and research.The Government and people of the Philippinesmust work together in delivering assistanceeffectively.

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Section 4:

Implementation

Section 3:

EstimatedResourceRequirements

The estimated financial resources requiredby the United Nations System for its con-

tribution to the achievement of each expectedUNDAF Outcome are presented in theProgramme Resources Framework. Thesecontributions include (1) the financial alloca-tions by each participating United Nationsorganisation, or direct resources; and (2) re-sources that organisations expect to mobiliseduring the UNDAF cycle in addition to their di-rect resources. The table presents a break-down of targets by organisation and area ofconcentration; the breakdown of the lattershould be seen as indicative only.

The total anticipated resources to bemobilised in support of UNDAF strategiesamount to USD107.755 million. About 23 per-cent of the total resources will be spent on thefocus area of Macroeconomic Stability, Broad-Based and Equitable Development, 35 per-cent on Basic Social Services, 13 percent onGood Governance, 18 percent on Environ-mental Sustainability and 11 percent on Con-flict Prevention and Peace-Building. This dis-tribution reflects UNCT priorities and nationaldevelopment needs, as well as provides foraligning United Nations cooperation with overalldevelopment assistance.

It should be noted that resource commit-ments are made not through the UNDAF, butrather through in-country programmes orproject documents, according to the proce-dures and approved mechanisms of eachorganisation. Given the differences in budget-ing approaches of United Nations Agencies,the time frame of each programme varies aswell.

The United Nations System, through theUnited Nations Country Team (UNCT)

and the Resident Coordinator, will beresponsible for effective United Nationsactivities, especially in cases where re-sources are combined. UNDAF TechnicalWorking Groups will meet regularly and willserve as the main mechanism for imple-menting and monitoring the UNDAF, underthe oversight of the UNCT. The followingstrategies will be employed:

• Selection of lead Agencies for eachfocus area of collaboration, if such do notalready exist.

• Development of individual WorkingGroup workplans on collaborative activitieswith clear goals and objectives, to beintegrated into the Annual Report andWorkplan of the Resident Coordinator.

At the same time, it has long beenrecognised that a number of developmentchallenges faced as a System requirestrong partnerships with the specialisedUnited Nations Agencies, including nonresi-dent organisations, some of whom do notinclude participation in the UNDAF in their

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mandate. The UNCT will develop a mecha-nism to engage the valuable knowledge andinputs of these specialised Agencies in orderto further catalyze the full UNDAF implemen-tation. Regional cooperation will also besupported and encouraged with Govern-ment, particularly in discussions on commit-ments to international treaties and UnitedNations instruments.

4.1 Focus on MDGs, Rights andGender Equality

A human rights-based and gender-respon-sive approach –- bringing human rights andgender-responsive standards and values tothe core of everything the United Nationsdoes –- offers the best prospect of achievingthe MDGs and institutionalising the values ofthe Millennium Declaration. Likewise, it canleverage the organisation’s influence toempower the Filipino people to advance theirown claims, to prevent discrimination andmarginalisation, and to bridge the account-ability deficits that have chronically hampereddevelopment progress. The principal frame-work for integration of human rights and

gender responsiveness into the work of theUnited Nations System is represented bythis UNDAF and the CCA.

Throughout implementation of theUNDAF, the United Nations System willfocus on the most vulnerable groups insociety, with explicit provisions for ensur-ing their active and meaningful participa-tion in decision-making. Moreover, tocontribute to the reduction of regionaldisparities that underlie much of thepoverty in the Philippines, the UnitedNations System will target poor regionsand specific impoverished groups. Effec-tive links and relationships among thestate, civil society, and private sector shallbe a priority consideration.

4.2 Harmonisation of ProgrammeCycles

UNDP, UNFPA and UNICEF alreadyhave harmonised programme cycles thatcoincide with the UNDAF cycle of 2005-2009. The duration of cycles varies amongother Agencies, however, with most work-ing on a biennial basis.


Section 5:

Monitoring and

Provisions of the UNDAF will be imple-mented through the country cooperationframeworks and programmes agreed to bypartner organisations. Selection and defini-tion of individual Agencies’ goals, objectivesand strategies will be fully consistent withthe UNDAF. Individual Country Programmesand project documents will also specify howthey contribute to UNDAF objectives andcooperation strategies.

4.3 Development CoordinationMechanisms

A number of coordination forums atdifferent levels allow for enhanced coopera-tion between multilateral and bilateral fund-ing agencies. The annual ConsultativeGroup meetings, under the leadership of theGovernment and World Bank, provide theoverall framework for coordination support.Within this larger context, donor workinggroups meet in a number of key areas, suchas Mindanao. Aid coordination meetings arealso held to discuss development assis-tance for specific issues and concerns,such as the health sector reform agenda,tuberculosis and malaria and HIV/AIDS.Such meetings offer opportunities for coop-eration at the operational level and helpavoid duplication of efforts. Within the UnitedNations System, there are also a number ofworking groups.

The United Nations System will continueto facilitate dialogue between the Govern-ment and the donor community on issuesof common interest. It will encourageimproved coordination among the develop-ment community through greater exchangeof information and enhanced collaborationas an active participant in specific donorworking groups.

In addition, the United Nations Systemwill continue its collaborative efforts in thearea of common premises and services.United Nations Agencies, through the Com-mon Premises Working Group, are workingcollectively to arrange to shift the UnitedNations House to a new building and haveundertaken a pilot programme for commonprovision of travel and courier services. TheSecurity Management Team is extremelyactive and the Disaster Management Teamincreasingly so, both of which include WorldBank and Asian Development Bank.

Provisions for follow-up and review of theUNDAF are based on the principle that the

UNDAF is a living document. Because devel-opment is a process, the UNDAF may haveto be adapted to respond to changes in thePhilippines’ economic, political or social situ-ations. The UNCT will establish continuousmonitoring and evaluation mechanisms thatrely on a results-based management ap-proach. A set of indicators has been formu-lated for each Country Programme Outcomeunder each of the five priority areas of coop-eration. [See the Monitoring and EvaluationFramework for comprehensive monitoring andevaluation indicators to be used.] A clear moni-toring and evaluation workplan also will bedeveloped.

5.1 Internal ReviewsDuring the UNDAF cycle, each Technical

Working Group will undertake an annual inter-nal review in order to assess the progress ofimplementation and the opportunities and con-straints still faced. These reviews will involvepartner agencies in Government, wheneverappropriate, as well as other donor agenciesthat are members of the groups. Annual re-views will also allow adjustments in CountryProgramme Outcomes and Outputs, if nec-essary. At the same time, the Working Groupswill establish a linkage between the indicatorsestablished to measure UNDAF outputs and


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the contribution of these outputs to the achieve-ment of the MDGs. Joint field assessmentsand monitoring will be promoted.

In addition to the Annual Report of the Resi-dent Coordinator, the Millennium DevelopmentGoals Report for the Philippines will serve asan important means for reporting on and ad-justing UNDAF activities. Overall, the UNCT,under the leadership of the Resident Coordi-nator, will be responsible for the review andvalidation of the cooperation betweenorganisations on the UNDAF priority areas inorder to ensure that individual Agencies’ coun-try programme documents reflect such objec-tives as appropriate. It will also ensure the ef-fective functioning of the Technical WorkingGroups. Regular UNCT meetings will estab-lish an ongoing, high level of information ex-change and strengthen partnerships, as wellas improve coordination and collaboration ofthe United Nations System as a whole. Effec-

tive inter-Agency collaboration will be includedin all Agency workplans and reviews.

5.2 Joint and External ReviewsA joint mid-term evaluation by the Govern-

ment, United Nations System and other part-ners will be conducted at the midpoint of theUNDAF period (2005-2009), synchronised asmuch as possible with respective Agencies’mid-term country programme reviews. Thiswill provide the opportunity for any mid-courseadjustments to ensure that United Nations ef-forts remain focused on national priorities.During this review, it will be particularly impor-tant to re-examine the Programme ResourcesFramework.

Similarly, a joint end-of-cycle evaluation ofthe UNDAF will be undertaken, with the objec-tive of obtaining substantive feedback onprogress toward stated UNDAF outcomes ineach priority area. It will focus on (1) the con-tribution of the Agencies toward achieving theoutcome, specifically, how complementaryand collaborative programming has enhancedthe effectiveness of the United Nations Sys-tem; and (2) how much associated outcomestogether have, or have not, contributed toachieving the desired impact, particularlythrough the MDGs. Achievements, lessonslearned and best practices will be dissemi-nated, as will constraints encountered, to in-form the design of the next UNDAF.

Evaluation

A joint mid-term evaluation by the

Government, the UN System and

other partners will provide the

opportunity for any mid-course

adjustments to ensure that UN

efforts remain focused on national

priorities.

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