A 6-month UNICEF survey: Mayors' delivery of health and education services

The realization of the Millennium Development Goals (MDG) should start at the local level and is only possible with increased and improved local delivery of basic social services: education, health and water services. This article focuses on the delivery of maternal and child health, public elementary and secondary education. The UN Global Monitoring Report foresees the Philippines’ failure to reduce maternal and infant mortality rate as well as accessing quality education before the end of the UN Millennium Development Goal 2015.

To conduct a study on the local delivery of basic social services with focus on the three sectors, namely maternal and child health, public elementary and secondary education, and potable water supply, UNICEF (United Nations Children’s Fund) commissioned the Philippine Institute for Development Studies (PIDS). Headed by UNESCO Social and Human Science Commissioner and PIDS President Josef T. Yap, the team composed of Allan Layug, Rosario Manasan, Aniceto Orbeta Jr., Michael Cabalfin, Danilo Israel and Rouselle Lavado presented the results of a six-month survey in 10 provinces, 12 cities, 10 municipalities and 30 barangays in ten regions of Luzon, Visayas and Mindanao. Part of an Economic Policy Discussion Series, it was held last June 15 at NEDA where I was among the participants.

This is a part of a large Regional Project on “Improving Local Service Delivery for the MDGs in Asia” based on a methodology for Support to National Policy and MDG Strategies joint effort of UNICEF, UNDP and UDCF AusAid contributed to the Philippine study.

Devolution of powers to mayors since 1991 – Republic Act 7160

After almost two decades of the passage of R.A. 7160 (1991 devolution of power from national to local government), the responsibility of delivering basic social services was devolved to the local government units. The process of devolution entailed the restructuring of DepEd, DA (agriculture), DSWD, DOH (health) from the national to the local levels. This included giving the mayor power to appoint local PNP (policemen) and intervene in teacher appointment and school building priorities. To finance the devolvement strategy, the IRA (Internal Revenue Allotment) and one percent of Real Property Tax were instituted. Consequently, some LGUs became dependent on this limited fund. Instead of developing innovative entrepreneurship among the barangay constituents they remained poor. How have the local government units kept up with these devolved functions, roles and responsibilities?

The study was conducted in mid 2008 with Agusan del Sur (Region XIII, Caraga Administrative Region), Dumaguete City, Negros Oriental (Region 7) as the study areas.

The study has a three-pronged objectives namely (1) to analyze and conduct a comparative assessment of local service delivery (LSD) in the education, water and health sectors, (2) to assess local services and delivery and (3) to identify key findings and recommend policy reforms, program corrections, and resource re-allocation for better outcomes.

UNICEF concern for barangay children and mothers

Colin Davis, UNICEF deputy country representative, stated that UNICEF has been granting 70 percent of its funds to Filipino children and mothers particularly to enact better ordinances for their welfare. Unfortunately, data for results based management are missing since 1991. LGUs prescribe good programs on paper but fail to get things done. There are inadequate professional doctors for pregnant mothers and ailing children. Villagers are forced to resort to “hilot”, local “midwives” without professional training. Without prenatal training and care the maternal and infant mortality rate remains high.

High incidence of Maternal Mortality Ratio in the Philippines per 1000 livebirths are found in: Region XI Davao (1.22); ARMM (1.00); Region IV-B MIMAROPA (.98); Region XIII CARAGA (.95); ILOILO/CAPIZ/NEGROS OCCIDENTAL (.92); BICOL (.90); SAMAR, LEYTE (.88) and ZAMBOANGA (.80).

Children, specially in the mountain areas and coastal land, have no access to primary education or easily drop out of school due to irrelevant curriculum and untrained “parateachers” who receive low wages.

Mr. Davis feels that what could resolve these predicaments is a sincere and well educated local chief who remains fully committed to provide welfare to his constituents specially in the far flung barangays. Corollary to this, he sees the urgency of providing management training to harmonize the efforts of the Local School Board members. The close cooperation led by the mayor, the councilors, LGU treasurers, school principals and Sangguniang Kabataan (SK), Parent Teacher Community Association (PTCA), accredited NGOs can be enhanced. I wonder why the participation of the business sector and the church has been overlooked if governance is to overcome disparity and inequality in the community.

Trends in Special Education Finance (SEF) and expenditures

There is significant and sustainable source of finance for Basic Education provided by SEF in the LGU (Local Government Unit). SEF income grew from P8.5 billion in 2001 to P15 billion in 2008, an average of 23 percent of GDP. However, SEF expenditure grew from P7.8 billion (2001) to P11.5 billion (2008) averaging 19 percent of GDP.

Then SEF income exhibited a declining trend of 25 percent of GDP (2002) to 20 percent of GDP (2008) while SEF expenditure declined from 21 percent GDP (2001) to 15 percent of GDP (2008).

Mayors’ misuse of R.A. 7160

SEF spending priorities consist of large allocation received by sports and other activities in spite of given detachment of Philippine Sports Commission from DepEd under RA 9155. DepEd central office mandates expensive sports activities annually with no funding at local level (except one Luzon and one Visayas province who excel in sports). Actually this can be funded from 10 percent Sangguniang Kabataan budget. It implies that until reforms are put in place at the central office, not much can be done in reducing allocation for these activities.

Regarding instructional materials, budget share is 14 percent in provinces, 12 percent in municipalities and 10 percent in cities. Not all of these materials are viewed as effective in improving student performance. There is a need for DepEd to advocate interventions/materials of proven effectiveness. Supplies for distribution for public school children budget share is four percent in provinces, three percent in cities and 25 in municipalities. Training of teachers/seminars budget share is four percent in cities and municipalities and three percent in provinces.

The Crucial Institutional Actors in Ending Human Poverty- The Barangays

It is high time that civil society organizations link up with government and non-government institutions in creating economic opportunities at the barangay level.

Lobbying for more barangay spending on economic development program is a step in the right direction. Monitoring and evaluation of policies and programs on rural economic development for effective implementation and replication would be another. In the same vein, private sector has a bigger role to play in realizing the economic potential of barangays and their people by investing on entrepreneurship training and skills enhancement, market development and technology intervention, network linkages, and access to capital.

Capacitating them for entrepreneurship-based economic development must therefore start with barangay officials having the political will, commitment, and economic sense of fulfilling the mandate of spending more on economic development as a good practice of fiscal discipline, in particular, and of economic governance.

At the end of the day, meaningful and genuine local autonomy would mean the economic empowerment of the people as contributors to inclusive economic growth. It is hoped that economic empowerment would translate into political empowerment in order for Filipinos to be able to end their poverty.