MARAWI RESPONSE PROJECT

CO-CREATION PROCESS

MRP is noted to be the first USAID/Philippines development intervention that underwent a co-creation process. USAID’s principle of co-creation as a design approach is intended to bring people together to collectively produce a mutually valued outcome that involves participatory process assuming some degree of shared power and decision-making. This is affirmed by the following KII narratives:

• “The co-creation process brought together various stakeholders with multi-disciplinary expertise and experience. Most importantly, ECOWEB and MARADECA who are our implementing partners were part of the process. Their experience in implementing development programs in the area were captured in the process.”

  (KII, COP, Plan International)

CO-CREATION PROCESSMRP is noted to be the first USAID/Philippines development intervention that underwent a co-creation process. USAID’s principle of co-creation as a design approach is intended to bring people together to collectively produce a mutually valued outcome that involves participatory process assuming some degree of shared power and decision-making. This is affirmed by the following KII narratives:
The co-creation process served as the foundation in ensuring that the project’s interventions are relevant to the needs of the IDPs and HCMs. The process resulted in the project’s Results Framework (RF) shown in Figure 1. Moreover, interview data indicate that the co-creation process influenced the project design decision of targeting both IDPs and HCMs.

MRP has implemented mechanisms to address social inclusion issues. One of the key mechanisms that MRP employed to address barriers and opportunities to women’s participation in economic and social cohesion activities was the establishment of gender-specific CSGs. Around 278 all-women CSGs have been established. These CSGs played significant roles in community conversations, prioritization workshops, participatory conflict assessments, and TNAs, which informed the design and implementation of MRP activities.

Another mechanism was the development of community champions from the youth, women, and religious leaders. The efforts of the community-based champions helped shape the decision-making and programming of the target barangays in addressing child protection and GBV issues. In total, MRP trained 82 CSG champions who also organized GBV community roll-out sessions reaching 879 CSG members.

Furthermore, document review data suggest that 51% of beneficiaries in Year 3 are women. Currently, 43% of the CSGs are all-women, while 59% are led by women. These show that women have been taking the lead in most of MRP’s major activities. While participation in activities does not immediately translate to women empowerment, their involvement forms part of the essential initial steps in the process of confidence-building. The table below shows the project’s performance in terms of gender-related accomplishments for Year 3.

It is worth noting that the conditions within which women struggle still persist despite good participation numbers among MRP women. Document review data indicate that women are still confronted with the double burden of working to earn a living and at the same time performing domestic work. It has been noted that gender-based violence (GBV) still exists. Moreover, project reports indicated that the prevailing culture of silence and pressure for women to go along and accept amicable settlements pose challenges to the gender equality champions that MRP developed. However, MRP’s continued implementation of GBV-related interventions during the pandemic addressed the noted rise of gender-based violence during this period. This rise has been highlighted by the UN Women organization (2021) as shown in the organization’s explanation below:

• “Gender-based violence, already a global crisis before the pandemic, has intensified since the outbreak of COVID-19. Lockdowns and other mobility restrictions have left many women trapped with their abusers, isolated from social contact and support networks. Increased economic precarity has further limited many women’s ability to leave abusive situations.”

The following narratives lend support to the efforts placed by MRP on addressing the needs of the women including those that are related to GBV:

• “MRP asked people about their needs. The women expressed they needed support for dressmaking to earn income. During the graduation ceremony, I saw the products of women beneficiaries. The women worked hard and committed to support their families.”

  (KII, MLGU, Bubong)

The story of an all-women CSG member in Box 2 shows how the grant they received from MRP empowered them to meet the economic needs of their families.

The team finds that the composition of the Community Solidarity Group (CSG) is pivotal in addressing the needs of the IDPs and HCMs. The CSG is the primary mechanism through which the MRP identifies and solicits grant proposals. The role of the members in identifying and prioritizing community needs, suggesting opportunities for collaborating to address these needs, and for identifying potential community tensions is essential.
The MRP team together with the local consortium partners (LCPs) identified key activities required from pre-community entry to grant proposal submission. The participatory processes that the LCPs facilitated served as opportunities to strengthen the relationships of CSG members. As such, the CSGs are helping build social cohesion and a sense of common understanding among members. From September 2018 to March 2022, MRP organized 665 CSGs. Of the total, 552 are intact while 113 are dissolved. Refer to Annex 10 for the community engagement and grant application cycle.
The evaluation team identified models of successful and sustainable CSGs as follows:

• Active CSGs that have received grants and have successfully implemented their projects;
• Active CSGs that have received grants even if they were not successful in implementing their projects;
• Active CSGs that are yet to receive their grants but remain hopeful to eventually receive them; and
• Active CSGs even with disapproved grants and with no chance to receive them.

The factors contributing to these models include established community leadership, existing social relationships, level of group maturity, socially cohesive local environments, and inherent and acquired skills in managing their projects. Conversely, the examples of unsuccessful CSGs include the following:

• Dissolved CSGs even after receiving grants and successfully implementing projects, which happened mostly in urban areas;
• Dissolved and frustrated CSGs that have not received any grant; and
• Dissolved CSGs not able to successfully implement projects due to various factors including lack of management skills.

Document review data show the following as reasons behind the CSG’s dissolution: Presence of Rido (feud between families/clans) or conflict in the area; CSG members/leaders lost interest and expressed to discontinue their participation; CSG declared themselves as dissolved after dividing grants equally, and no longer meet as a group; CSG members returned to Marawi and/or transferred to other places due to livelihood/work reasons; or No one from the CSG can be contacted/traced.

The narratives below highlight the value of the CSGs based on the perspective of the selected stakeholders:

• “I like MRP’s approach of CSG organizing. They included both IDPs and the members of the host communities. I believe that such organization is appropriate for socio-economic intervention.”

  (KII, Asst. Regional Director, DTI, Lanao del Norte)

MRP’s development interventions complemented the functions of Task Force Bangon Marawi (TFBM). The project’s interventions are particularly relevant to TFBM’s role in providing an environment conducive to the revival of business and livelihood activities as stated in Administrative Order No.3 s.2017. MRP has been pivotal in fostering economic recovery by taking an active role as a member of TFBM’s Subcommittee on Business and Livelihood.

Moreover, MRP contributed to the formulation and implementation of the TFBM’s Sustainability Plan for Scaling Up Business and Livelihood of Marawi IDPs. The plan serves as platform to scale up the interventions relating to business and livelihood and ensure their sustainability. The following KII narratives from provide insights how MRP complemented government programs:

• “The first convergence of DTI with MRP, as the undertaking was economic, particularly on the area of legitimization of the business – registration, business name, input/lectures from DTI onwards to securing business permits.”

  (KII, Asst. Regional Director, DTI, Lanao del Norte)

• “I always say to the people that infrastructure assistance from the government will end. You [IDPs and HCMs] are provided with livelihood assistance so you will not depend on government support. It fits the context because the Maranaos are business oriented.”

  (KII, Field Office Manager, Task Force Bangon Marawi)

Moreover, MRP’s business and livelihood grants, which benefitted a number of cooperatives in Lanao del Sur and Norte with IDP and HCM members are in harmony with the government’s project dubbed as “Marawi Rehabilitation through Cooperativism Project.” The Cooperative Development Authority (CDA) under the aegis of TFBM implemented the project in 2018. The team finds that MRP contributed to the goal of this project of reactivating the cooperatives in Marawi City to provide business and livelihood opportunities to the residents.

On a different vein, MRP assisted various LGUs in addressing COVID-19 through its COVID Quick Response initiative at the onset of the pandemic. It provided COVID-19 essentials (e.g., PPE, masks, thermal scanners, and disinfectants), conducted information, education and communication activities, capacity building and technical training (e.g. treatment facility management, and specimen collection and handling). This is corroborated by the KII narrative shown below:

• “From the start of the pandemic, MRP actively coordinated with the Inter Agency Task Forces (IATF) of the different LGUs. Specific attention was accorded to participation in the Lanao del Sur (LDS) IATF as it covered the majority of MRP project areas. MRP was invited and participated in a number of the LDS IATF meetings.”

  (KII, COP Plan International; AR 2020, p.32)

Table 5 shows a sample of the collaborative activities between government agencies and MRP. Annex 11 presents an expanded list.

USAID’s 2013-2018 Country Development Cooperation Strategy (CDCS)

• Development Objective 1: Broad-Based and Inclusive Growth Accelerated and Sustained
• Development Objective 2: Peace and Stability in Conflict-Affected Areas in Mindanao Improved
• Development Objective 3: Environment Resilience Improved

MRP is relevant to USAID’s 2013-2018 (extended through 2019) Country Development Cooperation Strategy (CDCS). In particular, it is relevant to the objective of improving peace and stability in conflict-affected areas, particularly in Mindanao (Development Objective 2). In terms of the specific objectives set to meet this broader goal within the context of the Marawi siege, MRP helped in addressing the objectives of transitioning IDPs to social and economic stability (Objective 2) and establishing the conditions for local governments and communities in and around Marawi to address their long-term rehabilitation needs (Objective 3).

USAID’s 2019-2024 Country Development Cooperation Strategy (CDCS)

• Development Objective 1: Democratic Governance Strengthened
• Development Objective 2: Inclusive, Market-Driven Growth Expanded
• Development Objective 3: Environmental and Community Resilience Enhanced

The positive changes in the social cohesion indicators (i.e. polarization and public participation) as shown in the endline survey results contribute to the achievement of the objective of strengthening democratic governance (Development Objective 1) in the 2019-2024 CDCS. In particular, the team finds that MRP’s development interventions are relevant to the realization of building more responsive local governance (IR 1.4) considering that “USAID anticipates that during this CDCS, civil society will become more engaged, better networked, and more inclusive as they connect across regions and sectors”. The noted positive changes in social cohesion provide support to the enhancement of environmental and community resilience (Development Objective 3) particularly in increasing social connectedness (IR 3.3.2).

These findings support USAID’s belief and approach that “Increasing social connectedness and social cohesion is one of a set of responses to strengthen community resilience. USAID will work through civil society to build formal and informal networks that include populations vulnerable to such threats and tie together areas affected by shocks and disasters, including violence and conflict.”

The economic outcomes of the project are essential to the expansion of inclusive, market-driven growth (Development Objective 2) particularly in improving private enterprise development (IR 2.4.1). The team also finds that MRP’s approach of tapping cooperatives in its business and livelihood grants is consistent with USAID’s perspective which suggests that: “Cooperatives play a critical role in addressing livelihood challenges, especially in rural areas, and benefit host communities through various social initiatives. A huge potential exists for small and medium-sized enterprises as development partners.”