In 1999, the Philippine Center for Investigative Journalism (PCIJ) reported that 65% of textbook funds were lost to corruption involving suppliers and officials from the then called Department of Education, Culture and Sport (DECS) (Chua 1999). According to the Social Weather Stations’ (SWS) corruption perception survey, in the late 1990s the public saw DECS as one of the most corrupt agencies in the country.26
The public attention to corruption during this period was heightened further by the scandals that led to the ousting of former President Joseph Estrada in January 2001.27 These scandals and the public mobilizations involved pushed government and civil society actors to pay closer attention to corruption in Philippines.
In 2000, the WB released “Combating Corruption in the Philippines,” which included the outline for an anti-corruption strategy (WB 2000). The Philippines’ government made the fight against corruption a higher priority, and presented its first National Anti-Corruption Plan early the same year.
While anti-corruption advocacy was always a concern of civil society and social movements in the country (as in the demonstrations that denounced the excesses of dictator Ferdinand Marcos), they mainly consisted of protest actions. The tactic consisted largely on identifying government officials or agencies involved in corruption and seeking public support through media or public demonstrations to hold corrupt officials to account (Arugay 2005).
In early 2000, a new approach to anti-corruption began to emerge, focused on strengthening citizen oversight. This approach is distinctive in its preventive character and in involving civil society participation.
From this perspective, procurement, including contract implementation, becomes a key issue. According
26 SWS National Survey, October 1999 to September 2000, in World Bank (2001).
27 The first people power movement in the Philippines happened in 1986, putting an end to the dictatorship of Ferdinand Marcos.
to a Procurement Watch report in October 2001, potential leakages from government corruption in the Philippines could reach as much as Php21 billion in 2001 alone.28
In this context, G-Watch embraced a preventive approach to anti-corruption through citizens’ monitoring.
The aim is to preempt non-compliance with standards, corruption or any other form of abuse of authority through real time monitoring; acting while the processes, delivery of services or programs implementation are ongoing. Citizen monitoring serves as a pro-active effort to remind agents what is expected from the relevant process. Coupled with a quick feedback mechanism, this approach has proven to deter non-compliance as well as to support enhanced non-compliance with standards.
G-Watch facilitates linkages at the top-level management of government agencies and accountability institutions.29 The preventive approach also helped to keep G-Watch engagement with government collaborative, focusing on what can be done to improve the system rather than on exposing problems publicly. This form of “constructive engagement” involves working hand-in-hand with reformist allies inside government (identified in the course of engagement itself) to strengthen accountability through active citizen participation.30
Grassroots citizen-monitors rely on easy-to-use monitoring tools to observe the implementation of government policies in real time. The Textbook Count monitoring tool used checklists to document compliance with the performance standards to be monitored. These lists included the cost, quantity, quality, processing and delivery time of textbooks. These standards were specified and agreed upon with the government from the beginning.
Monitoring generates information that can be used for independent citizens’ assessments, as well as for proposing recommendations to improve the process monitored. The government agency or local government involved is given ample time to respond to the findings of the monitors, and to correct the flaws identified, before the results are presented to other stakeholders, including the media.
Textbook Count’s constructive approach included the signing of a Memorandum of Agreement (MOA) with the government at the beginning of implementation. In G-Watch’s experience, this facilitates government buy-in in the initiative, since the MOA sets the parameters of engagement, clarifying the roles and responsibilities of both the government and the CSO participants. This approach assumes that
28 Cited in an unpublished paper of The World Bank in 2009 entitled “Public Expenditure Management.” http://siteresources.
worldbank.org/INTPHILIPPINES/Resources/DB02-PublicExpenditureManagement-June28.pdf.
29 This is the case for some initiatives like Bayanihang Eskwela, G-Watch’s monitoring of school-building projects of the Department of Education (DepEd) and the Department of Public Works and Highways (DPWH).
30 In the Philippines, the term “constructive engagement” was popularized by the Affiliated Network for Social Accountability in East Asia and the Pacific (ANSA-EAP), formed in 2007 as part of a global social accountability program of the World Bank.
ANSA-EAP’s primer entitled “Social Accountability: An Approach to Good Governance” defines Constructive Engagement as
“building of a mature relationship between two naturally opposable parties – i.e., citizens or citizen groups, on the one hand, and government--bound together by a common reality.” However, this type of practice in the Philippines dates back to the restoration of formal democracy in the country, after Martial Law ended in 1986. Particularly, this practice has been common among NGOs doing work on service delivery or in the co-implementation of programs and projects previously called “partnerships” or
“collaborations.” However, only when anti-corruption became a major national issue in early 2000 did this approach get applied to enhancing accountability and responsiveness. In the context of civil society participation, this term attempts to capture a point of departure in how civil society engages the state – moving from acting from the outside usually opposing government or advocating reforms through pressure politics or “parliament of the streets,” to becoming a “partner” of government, working in the inside to supplement the institutional capacity of the government.
government and civil society can find shared goals in support of joint initiatives that maximize their respective strengths, without compromising their different mandates.
Table 1. Textbook Count: Stages, activities and actors (2003-2007)
DepEd Processes CSO Activity CSOs Involved
Bidding
• DepEd, through its Bids and Awards Committee (BAC), conducted pre-procurement, and the opening and awarding of bids
• Ensure the transparency of pre-bid conference
• Sign the abstract of bid when it is opened
• Ensure the transparency of the bid selection process
• DepEd, through the Quality Inspection Team, visits the selected suppliers to inspect the physical quality of textbooks to ensure that they meet contract specifications
• Inspection results forwarded to suppliers for corrections
• Inspect quantity and quality of textbooks, and ensure
• Allocation list is sent to division offices, which in turn forward it to high schools and district offices
Actual Delivery
• Suppliers’ forwarders deliver textbooks to district offices (for elementary school textbooks) and to high schools (for high school textbooks)
• District offices and high schools inspect and accept deliveries
• DepEd’s authorized receiving personnel sign the Inspection and Acceptance Receipts (IARs)
• The four copies of the signed IARs are given to: (1) division office, (2) supplier, (3) district office/ High School, (4) third-party monitor
Post-Delivery
• The division office validates deliveries in district offices/ high schools where IARs were not signed by a third-party monitor
• The Division Office prepares the Certificate of Final Acceptance and submits it to DepEd’s central office
• DepEd’s central office prepares payment to the suppliers
• Help in counting and
• District offices prepare allocation list for elementary schools
• Textbooks are delivered to elementary schools
• Plan for a festive activity