West Visayas State University

College of Arts and Sciences

La Paz, Iloilo City

Violence Against Women and Children (VAWC) Initiatives in Iloilo City:

Analyzing Regulation Ordinance 2017-201 Using Institutional Model of Policy Analysis

In Partial fulfillment of the Requirements in Philippine Public Administration

Submitted to: Professor Voltaire Jacinto

Dynli Charm A. Potato

A.B. Political Science 2A
 West Visayas State University
College of Arts and Sciences
La Paz, Iloilo City

INTRODUCTION

Violence against women and children is not an uncommon problem in the Philippines. For the
past several years, it has caused alarm to the national government and has been therefore taken as an area
of grave concern. According to the Philippine Statistic Authority, one in every four women have
experienced spousal violence as of the preliminary results from the 2017 National Demographic Health
Survey. Although too many cases had manifested themselves, only few had been reported. Fear inhibits
these vile acts to be exposed.

However, with the legislations passed to ensure protection for women and children, VAW has
been condemned and aimed to be eliminated. Along with the laws, various movements have taken place
to vanquish this criminal offense and raise awareness among the public. The LGUs were concerned as
much as the central government. Particularly, Iloilo City had positioned itself as one of the LGUs that had
taken initiatives to further the evaluation of VAWC cases.

The “One Billion Rising Initiative”, is a global campaign calling to end violence against women
in which Iloilo City became not only its venue but also one of the various sectors in Western Visayas that
joined the said event. The efforts to put an end to VAW in Iloilo City continued to prosper with the
ordinances being passed. Regulation Ordinance No. 2017-201 or otherwise called as An Ordinance
Institutionalizing the Establishment of Barangay Violence Against Women and Their Children (VAWC)
Desks, Including the Establishment of Protocol in Handling VAW Cases at Barangay Level in All
Barangays in the City of Iloilo is the recent action of the local government to continue with its goals.

This exhibited the ideals of the LGU in maintaining a gender responsive environment especially
in addressing the needs of women for protection. The ordinance delivers the proper engagement of
institutions in the implementation as well as the formulation of its arrangements. Not only does it serve
for the purpose of national interest but it also inspects the problem as community-based. This paper
studies the importance of institutions as attributes in the policymaking of the LGU and how this
engagement developed into response measures to the issue in the barangay-level. Within the contents of
this study, a policy analysis using the institutional model discussed the role of government agencies and
non-governmental organizations in crafting policy. By understanding how the process works in the
institutional perspective, developments of future policies may b
 West Visayas State University
College of Arts and Sciences
La Paz, Iloilo City

POLICY OVERVIEW

As of the 45th regular session of the 8th Sangguniang Panlungsod of Iloilo City, Philippines, held
at the Session Hall, 6th floor New City Hall Building, Plaza Libertad, Iloilo City, on Tuesday, December
5,2017, REGULATION ORDINANCE NO. 2017-201, AN ORDINANCE INSTITUTIONALIZING
THE ESTABLISHMENT OF BARANGAY VIOLENCE AGAINST WOMEN AND THEIR
CHILDREN (VAWC) DESKS, INCLUDING THE ESTABLISHMENT OF PROTOCOL IN
HANDLING VAW CASES AT BARANGAY LEVEL IN ALL BARANGAYS IN THE CITY OF
ILOILO was passed and granted effective immediately. This was sponsored by Hon. Liezl Joy Zulueta-
Zalasar and co-sponsored by Hon. Eduardo L. Penaredondo and Hon. Joshua Alim.

The initiative was fundamentally in light of Republic Act 9710, otherwise known as the Magna
Carta of Women, a women’s human rights law that seeks to eliminate discrimination against women by
recognizing, protecting, fulfilling and promoting the rights of Filipino Women, especially those in
marginalized sectors. In which, under Chapter IV, section 9 (d) of the said Republic Act, states that;

“Chapter IV, Rights and Empowerment; Sec. 9: Protection from Violence:

(d) all local government units shall establish a Violence Against Women’s Desk in every
barangay to ensure that violence against women cases are fully addressed in a gender-
responsive manner.”

Furthermore, Iloilo City pursues to embrace good governance. The Department of Interior and
Local Government, through its Seal of Good Local Governance, implores LGUs to develop a mechanism
in handling cases of violence against women and children as a Core Indicator of Social Protection. As
such, Iloilo City highly accounts to all sectors of the society to be served and provided with the necessary
avenues to access services as prescribed within Regulation Ordinance No. 2017-201. This ordinance, by
the guidelines set through the Joint Memorandum Circular No. 210-2, includes essential tools to counter
any act of violence against women and children and establishes convenient institutions within the
barangay level to handle VAWC cases. In addition, the LGU of Iloilo City furthers its aims for good
governance by raising awareness of the public with regard to violence against women and children
through the said policy.
 West Visayas State University
College of Arts and Sciences
La Paz, Iloilo City

The contents of Regulation Ordinance No. 2017-201 or Institutionalizing the Establishment of

Barangay Violence Against Women and their Children (VAWC) Desks, Including the Establishment of
Protocol in Handling VAW Cases at Barangay Level in All Barangays in the City of Iloilo, particularly
the organization of VAWC Desks and the formulation of protocols (Sections 4,5,6 & 7) vis-à-vis the Joint
Memorandum Circular 210-2 follow below:
 West Visayas State University
College of Arts and Sciences
La Paz, Iloilo City

Section 11, Effectivity Clause, of Regulation Ordinance 2017-201, the ordinance shall take effect upon
approval. It was concluded and thereafter enacted on December 5, 2017 along with its following
signatories.
 West Visayas State University
College of Arts and Sciences
La Paz, Iloilo City

The local government of Iloilo City had shown great interest in ensuring women and children
protection through Regulation Ordinance No. 2017-201. The said policy maintains the institutionalization
of the establishment of VAWC desks as well as appropriate protocols in addressing VAW cases at
barangay level within the city of Iloilo. It seeks to achieve the goals it had identified; reinforce Chapter
IV, Section 9 of Republic Act 9710, accomplish preconditions for good governance set by the DILG
through its Seal of Good Governance, provide proper avenue for women and children protection and
advocate VAWC consciousness to the public.

The ordinance involved government agencies for its implementation. The Joint Memorandum
Circular No. 2010-2 directed the LGU of Iloilo City and thereafter determined coordinating government
agencies. The Department of Interior and Local Government, Department of Social Welfare and
Development, Department of Education, Department of Health and Philippine Commission on Women
were recognized as coordinating government institutions with the ordinance. In terms of monetary
assistance, Section 8 of Regulation Ordinance 2017-201 provided that the entire cost including the
establishment and operations of the Barangay VAWC Desk and the personnel shall be charged under the
respective Barangay Gender and Development (GAD) Budget for the former and LGU GAD budget for
the latter.

In plain sight, the model of implementation for this ordinance is seen likely to be organized
under the first-generation model which adopts a “top-down approach”. The foundations of this ordinance
were primarily constitutional and from initial proposals of Joint Memorandum Circular No. 2010-2.
Considering that the ordinance is a stemmed initiative, top-down approach is considerable. An analysis of
the foregoing will be discussed.
 West Visayas State University
College of Arts and Sciences
La Paz, Iloilo City

ANALYSIS

Regulation Ordinance 2017-201, An Ordinance Institutionalizing the Establishment of Barangay

Violence Against Women and their Children (VAWC) Desks, including the Establishment of Protocol in
Handling VAW Cases at Barangay Level in All Barangays in the City of Iloilo presented critical ideals in
managing protection for women and children. In the national level, VAWC had already been criminalized
and instituted in the constitution. The challenge, thereafter, is the comprehensive and substantial
implementation of these laws to reach every sector especially the local government. This initiative of
Iloilo City proves that the law is surely acknowledged.

Despite having the best intentions for women and children protection, it is inevitable that the
ordinance may fall short in its process of policy making and its accomplishments of identified goals. This
paper provides an in-depth evaluation and analysis of the aforementioned. The analysis employs the
institutional model as a perspective in understanding the ordinance and its overall structure. Moreover,
the model for policy implementation will also be discussed. By the end of this study, recommendations
for prospective policy development will be brought forth.

The institutional model in Regulation Ordinance 2017-201 views the role of institutions as vital
components in the policy making process. Policymakers were keen on considering how the ordinance can
maintain legitimation and can be convenient in many terms. Within this context, the paper understood the
policymakers’ strategies by using institutions in strengthening the policy. Concerns regarding this
ordinance will be further elaborated in the policy cycle including agenda setting, policy formulation,
policy adoption, policy implementation and evaluation.

Agenda Setting and Policy Formulation

Policymakers were practical in introducing this ordinance. By considering the engaged

institutions in the process of policymaking, it holds more promising potentials. With the Joint
Memorandum Circular No. 2010-2, the LGU of Iloilo City maintained its association with other agencies
and managed to acquire assistance from them. The memorandum, accompanied by bureaucratic
institutions, provided guidelines for policymakers in shaping the ordinance and determining its goals.
 West Visayas State University
College of Arts and Sciences
La Paz, Iloilo City

Furthermore, in terms of agenda setting, public outcry for VAWC cases to be addressed were
utmost relevant to the national government. However, it is too broad to fall under the jurisdiction of an
LGU. Since we are setting agenda that are within the capacities of the LGU of Iloilo City, most definitely,
prospects for policymaking for VAWC rely on a specific content of the bigger picture. In this case, any
other models of analysis would not benefit the policymakers. Primarily, institutional model is more
befitting due to the fact that this ordinance was structured upon a higher policy with the National
Government as a primary institution.

The LGU of Iloilo City subsequently involved the central government in its process of
policymaking. Beginning from the first stage, RA 9710 established the agenda for the initiative and. It
enabled the LGU to reinforce the law to reach every sector as possible. Whereby, awareness of VAWC
especially within the barangay level was increased. The LGU saw the national government as an
instrument to fashion its policies.

In addition, non-governmental organizations as institutions bring great importance to policy

formulation. They are organized for a distinct purpose and act as an external entity that provides services
whenever the government cannot take action. NGOs in this ordinance are duly recognized under Section
5 or the Functions of the VAWC Desk. On occasions that the intervention of NGOs is deemed necessary
in VAWC cases, the person-in-charge shall refer them to the aforementioned.

On this note, policymakers plan to develop more capabilities by ensuring the quantity of internal
and external help. They see NGOs as alternative immediate responders in events wherein the government
agencies cannot directly attend to. Giving the NGOs such opportunity reflects the mechanism of the
policymakers in dealing with immediate response that this issue demands and offering avenues to exhaust
services most especially from the external.

Policy Adoption

Regulation Ordinance 2017-201 had already stern approval since it is capsuled within the
constitution, particularly in R.A. 9710. On this premise, the ordinance holds strong ground to be
implemented. The national government as primary institution in providing legitimacy to the ordinance
reflects significant institutional participation in the adoption part of the process of policymaking.

In addition, it is favorable for the policymakers to approach institutions for the ordinance to
gain support. Institutions help in approving a policy and obtaining positive voting turnout. Policymakers,
 West Visayas State University
College of Arts and Sciences
La Paz, Iloilo City

for one, need to maximize the number of interagency connections not only for the process to run
smoothly-----since VAWC is a national issue and the involvement of bureaucracies is inevitable----but
also to increase favor and become more convincing. Thus, the greater the number in support, the more
credible the ordinance will be.

Policy Implementation

Institutions are very essential when it comes to implementation. However, within this
ordinance, the deliberation of the policymakers on which agencies or institutions to coordinate with was
not strenuous. As it is prescribed in Memorandum Circular No. 210-2, the government agencies that were
to called upon to provide assistance were the Department of Interior and Local Government, Department
of Social Welfare and Development, Department of Education, Department of Health and Philippine
Commission on Women. Moreover, the direct institution to facilitate this ordinance will be the barangays
as the ordinance aims to address barangay-level problem. The role of government agencies as institutions
are quite prominent but the LGU also opens its doors to external bodies such as the NGOs.

The intentions for a massive and comprehensive policy integration by the policymakers are
evident with it amassing each relevant institution. The LGU finds it certainly motivating for its policy to
involve various institutions as its function and participation to implement it is limited. On section 5,
which states the functions of VAWC desk in Regulation Ordinance 2017-201, the DILG and the CSWDO
present themselves as offices for quarterly submitted gender-based violence reports. Institutions on the
memorandum helps the LGU mobilize the policy. These agencies foster the issues or concerns that do not
fall within the jurisdiction of the LGU. Policymakers sought bureaucratic institutions for policymaking to
comprehensively attend to problems which they do not have the function to operate on. Participation from
institutions is required for the ordinance to take effect and carry out appropriate actions.

Model of Policy Implementation

As mentioned, Regulation Ordinance 2017-201 used the First-Generation Model of Policy

Implementation or commonly known as “top-down approach”. In the stage of policy implementation in
the policy cycle, it is important to place concern on how or which ideal way a certain policy is going to be
driven to action. This paper inferred that the top-down approach for implementation fits the structure of
the ordinance.

Since the policy traced its foundation back to the constitution, specifically R.A. 9710, the type
of implementation begins with the central government down to the barangays. One key feature that brings
 West Visayas State University
College of Arts and Sciences
La Paz, Iloilo City

advantage to this model is accessibility to institutions. In this ordinance, institutions are instruments
which make them extremely imperative, at least in the perspective of institutionalism. Moreover,
downward implementation is rightfully appropriate for this policy because it contains protocol that
requires a hierarchical management. This policy relies on the capacity of it policymakers to enable it to
achieve its goals and determine which strategies are compatible for its implementation.

Policy Evaluation

Evaluation of the policy is easier to administer especially when you have enough resources. In
this ordinance, data for evaluation may be more than satisfactory. Besides a plentiful of government
agencies engaged, the ordinance can be thoroughly processed for evaluation with the barangays as
institutions. Policymakers saw the convenience of determining gray areas of the ordinance by making
institutions as facilitators.

RECOMMENDATIONS

The LGU of Iloilo City must be well-defined in the linkages between internal and external
institutions. Under section 5 of the ordinance, between the contending functions of government agencies
and NGOs, policymakers must thoroughly navigate the conditions in which the personnel will not
contemplate on the reference of VAWC cases. On this aspect, policymakers were practicing indiscretion
by relying on whatever service was available. It will backlash eventually and create tensions among
institutions.

In addition, the Barangay Protection Order as part of the formulation of policy, must also be
keenly arranged. It can be observed that it seemed to lack full substance of what sort of protection it
offers and what the barangay can do for the meantime while the victim is in their custody. The only
institution involved here is the barangay. It would be rather more reassuring if the LGU could bring in
another institution that could be as available as the barangay to strengthen the protection programs.

As for the evaluation of the ordinance, the LGU were hopeful that positive results would be
brought back as feedback after its implementation. However, the barangay seemed to be unresponsive as
there had not been any informative medium to notify the locals in a respective barangay regarding the
establishment of VAWC desks. It is highly recommended that, as part of the evaluation, other than
submitting reports, the barangay shall also organize a body of individuals for the purpose of information
dissemination.