Title
Guidelines for PAMANA Program Implementation
Law
Da Administrative Order No. 14, S. 2013
Decision Date
Feb 20, 2013
The PAMANA Program, initiated by the Department of Agriculture, aims to foster lasting peace in conflict-vulnerable areas through poverty reduction, improved governance, and community empowerment by implementing targeted interventions and promoting social cohesion from 2011 to 2016.
administrative law
peace process
conflict resolution

Policy, Purpose, and Peace-Building Frame

  • The Government adopts a two-pronged approach of (1) negotiated political settlement of armed conflict through peace negotiations and (2) interventions on the ground to address root causes of armed conflict.
  • The PAMANA Program is implemented to complement peace negotiation efforts by addressing causes of conflict and issues affecting the peace process.
  • The PAMANA Program aims to contribute to lasting peace by reducing poverty and vulnerability in conflict areas and improving governance.
  • The Program empowers communities by strengthening capacities to address issues of conflict and peace through activities that promote social cohesion.
  • PAMANA is implemented within a five-year period from 2011 to 2016, and includes DA implementation for FY 2013 focused on Pillar 3 projects.

PAMANA Objectives and Strategies

  • The Program reduces poverty and vulnerability in conflict areas and in areas covered by Peace Agreements.
  • The Program improves governance.
  • The Program empowers communities to strengthen capacities to address conflict and peace issues through activities promoting social cohesion.
  • The Program’s strategies include:
    • Convergence of delivery of basic services.
    • Good governance through responsive, transparent, and accountable allocation and utilization of resources.
    • Community empowerment to enhance local demand for services in conflict-affected barangays.
    • Asset reform to address agrarian unrest and issues on encroachment, including unimpeded exploitation of ancestral domain and natural resources.
  • The Program applies principles of social cohesion—inclusion, participation, transparency and accountability, and conflict-sensitivity—to ensure interventions are truly peace-building.

Program Structure: Three Pillars

  • PAMANA is built on three complimentary strategic pillars that define core interventions for lasting peace.
  • Pillar 1 supports the establishment of foundations of peace and building resilient communities through policy reform and development.
  • Pillar 2 promotes micro-level convergent delivery of services and goods focused on households and communities by national and local agencies/units.
  • Pillar 3 addresses meso-level regional and sub-regional development challenges that contribute to peace building.
  • PAMANA is implemented by national line agencies in partnership with local government units (LGUs) through modalities appropriate to their mandates.

Coverage, Fund Source, and Geographic Zones

  • PAMANA covers seven geographical zones with target areas selected and prioritized based on peace process lines:
    • Central Mindanao
    • Zamboanga-Basilan-Sulu-Tawi-Tawi (ZamBaSulTa)
    • Bicol-Quezon-Mindoro
    • Samar Island
    • Davao-Compostela Valley-CARAGA/Region XIII
    • Cordillera Administrative Region (CAR)—barangays covered by the 2011 Government of the Philippines (GPH)-Cordillera Bodong Administration (CBA)-Cordillera People’s Liberation Army (CPLA) Closure Agreement
    • Negros-Panay—areas covered by the peace process with the Rebolusyonaryong Partido ng Manggagawa - Pilipinas (RPMP)/Revolutionary Proletarian Army (RPA)/Alex Boncayao Brigade (ABB)
  • For FY 2013, the DA implements Pillar 3 projects with DILG, DENR, DOE-NEA, and ARMM, while Pillar 2 is implemented by DSWD and DAR.
  • The PAMANA Program Fund for CY 2013 is sourced from the General Appropriations Act (GAA) allotted to DA-Regional Field Units (DA-RFUs), BFAR, and NIA Regional Offices (ROs) and other Special Allotment Release Order (SARO).
  • The Fund finances budgetary requirements of sub-regional development projects under Pillar 3.
  • The Fund may also support community projects identified under closure programs with CBA-CPLA and RPMP/RPA/ABB.

Eligibility and Project Access Requirements

  • Eligible LGUs are those previously selected and prioritized, based on criteria set by OPAPP, in close coordination with the Security Sector, or as defined by relevant Peace Agreements.
  • Eligible projects are anchored on high-impact sub-regional economic integration, connectivity and development.
  • Eligible projects are locally-driven and owned and must reflect community needs, especially vulnerable sectors.
  • Communities must be consulted in planning, implementation, and evaluation, and Municipal/City and Provincial LGUs must have discussed and mutually agreed on the project to be financed.
  • Eligible projects must be:
    • Conflict-sensitive and peace-promoting through conflict-sensitive planning and programming as defined by DILG.
    • Designed to address security, justice and economic stressors, contributing to sustainable peace and development characterized by social cohesion, human development and social justice.
    • Adopted in the relevant development planning instruments:
      • Provincial Development and Physical Framework Plan/Annual Investment Plan for provinces.
      • Comprehensive Development Plan/Annual Investment Plan for municipalities and cities.
    • Identified under the terms of the different Peace Agreements.
  • Eligible local projects under PAMANA include agri-fishery infrastructure and non-infrastructure projects in conflict affected areas and IP areas.
  • PAMANA infrastructure and non-infrastructure project planning must adhere to PAMANA Peace and Social Cohesion Standards.

Project Design Submission and Approvals

  • Eligible LGUs may seek technical assistance from DA-RFUs/BFAR RO/NIA ROs in preparing Project Design, using the format/template in Annex B.
  • Project Designs for infrastructure and non-infrastructure projects are prepared by MLGUs/CLGUs/PLGUs covering their jurisdiction.
  • Project Designs must be submitted to DA-RFUs/BFAR ROs/NIA ROs together with these documents:
    • Procurement Plan
    • Work and Financial Plan
    • Program of Works and Detailed Estimates
    • Detailed Technical Description (for non-infrastructure projects) or Detailed Engineering Plans (for infrastructure projects)
    • Geo-tagged project data, with DA Regional Office technical assistance if the LGU lacks capability
    • Appropriate Sangguniang Resolution that:
      • authorizes the Local Chief Executive to enter into a Memorandum of Agreement (MOA); and
      • approves allocation of LGU counterpart funds, if needed
  • For Closure Programs involving CBA-CPLA and RPMP/RPA/ABB, the pertinent DA Regional Offices prepare the Project Design and related documentary requirements in close coordination with OPAPP Project Management Offices.
  • DA-RFUs/BFAR ROs/NIA ROs review and approve project designs prepared by the LGUs.
  • Counterpart funds are required from eligible MLGUs/CLGUs/PLGUs based on existing Agri-Pinoy Commodity Programs / BFAR / NIA Guidelines.
  • PAMANA 2013 projects may be implemented through:
    • proponent Provincial/Component City/Municipal Governments by administration or by contract,
    • DPWH by administration or by contract, or
    • AFP Engineering Brigades/Units,
    • with DA-RFUs/BFAR ROs/NIA ROs tapping these bodies through competitive bidding when LGUs are not capable to implement agrifishery projects.
  • Project implementing partner assessment considers capability/capacity, readiness and absorptive capacity, and peace and security concerns.
  • MLGUs/CLGUs/PLGUs with outstanding DA or OPAPP-PAMANA funds for liquidation do not qualify as implementing partners.

Project Replacement and Fund Approval

  • Proposed projects may be replaced due to:
    • Double funding, with a recommendation that if both programmed proposals have yet to be implemented, the project in question be implemented under the PAMANA Program Fund; or
    • a finding that the proposed project is technically unfeasible after project appraisal.
  • Replacement requests must be transmitted by DA-RFU/BFAR RO/NIA RO to the Regional Peace and Order Council (RPOC) for deliberation, with copy furnished to DA-Office of the Secretary.
  • The RPOC, with the participation of OPAPP, recommends a replacement project after consultation with the proponent LGU.
  • Final approval of the replacement project is subject to validation of the DA-RFU/BFAR RO/NIA RO.
  • Replacement projects must be:
    • sourced from results of a conflict-sensitive planning process as defined by DILG,
    • priced so they have no additional project cost (they must cost the same as the allocation of the original project to be replaced), and
    • supported by proof of conflict-sensitivity.
  • Project changes must be reported by DA-RFUs/BFAR ROs/NIA ROs to DA/BFAR/NIA Central Offices and OPAPP.
  • Areas covered by Peace Agreements allow replacement only with clearance from the Project Management Offices of the GPH-CBA/CPLA and the GPH-RPMP/RPA/ABB Closure Processes.
  • After verification of satisfactory compliance, the appropriate regional head (DA-RFU Regional Executive Director / BFAR Regional Director / NIA Regional Manager) executes a MOA with the designated implementing partner.
  • Within ten (10) days after MOA signing, the DA-RFU/BFAR RO/NIA RO issues a Certificate of Availability of Funds (CAF) to the implementing partner for the approved project amount, subject to:
    • a certification from a Government Bank that the implementing partner opened a Special Trust Account for PAMANA Program; and
    • the Appropriations Ordinance covering total project cost from the MLGU/CLGU/PLGU-Implementing Partners.

Trust Accounts, Release Tranches, and Liquidation

  • Applicable COA Circular No. 94-103 dated December 13, 1994 on Rules and Regulations in grant utilization and liquidation of funds transferred to implementing agencies must be followed.
  • COA Circular 2012-001, Series of 2012 dated June 14, 2012 on revised guidelines and documentary requirements for Common Government Transactions must be followed.
  • DA-RFUs/BFAR ROs/NIA ROs must open a Special Trust Account (STA) exclusively for PAMANA Program Funds management.
  • The recipient implementing partner must open a Special Trust Account in a Government Bank.
  • Funds are transferred directly by the DA-RFU/BFAR RO/NIA RO to the implementing partner through the STA by tranches, with amounts based on the approved Work and Financial Plan and the prescribed tranches.
  • Fund releases for all project types (infrastructure, livelihood, procurement of equipment/goods) are released in three (3) tranches:
    • 50% for the first tranche to cover mobilization and other project costs in the detailed implementation and procurement plan or program of works,
    • 40% for the second tranche released once 70% of the first tranche has been disbursed and properly liquidated, and
    • 10% for the final tranche released upon LGU submission of evidentiary support that 80% has been fully disbursed, plus:
      • Certificate of Completion for infrastructure and livelihood projects, or
      • Certificate of Acceptance for procurement of equipment/goods.
  • Sub-projects requiring one-time procurement receive funds in full upon release to the LGUs.
  • Requests for fund releases must be submitted to DA-RFUs/BFAR ROs/NIA ROs with required supporting documents.
  • Liquidation of fund releases is made by the recipient Municipal/City/Provincial LGUs and other entities to DA-RFUs/BFAR ROs/NIA ROs.

Governance Committees and Implementing Partners

  • The Program National Steering Committee (PNSC) is co-chaired by Undersecretaries of OPAPP and DA and includes Assistant Secretaries and Directors of OPAPP and DA as members, as assigned by the heads of both agencies.
  • The Regional Secretary of DA and Fisheries-ARMM and representatives of BFAR, NIA, and other agencies are invited as needed.
  • The PNSC provides program guidelines and policy directions for PAMANA Pillar 3 projects.
  • The PNSC reviews and endorses to the DA and OPAPP Secretaries the annual work and financial plan of the PAMANA Program.
  • The PNSC oversees PAMANA Program implementation.
  • The Program Regional and Provincial Steering Committees (PR/PSC) comprise members of the Regional and Provincial Peace and Order Councils and their Secretariats.
  • The PR/PSC serves as the regional and provincial coordinating body and project clearing house for PAMANA.
  • The PR/PSC coordinates with RDC and PDC Secretariats to ensure Peace and Conflict-Sensitive PDPFP/AIPs or CDP-ELA/AIPs integrate into the region and province peace and development plans.
  • The PR/PSC coordinates regional/provincial PAMANA programs, activities, and funding requirements for program-identified areas.
  • The PR/PSC ensures mainstreaming of regional/provincial PAMANA interventions into concerned government agencies and LGU plans and programs.
  • The PR/PSC coordinates with relevant agencies, development partners, CSOs, and project management offices in PAMANA implementation and provides technical support to OPAPP in monitoring.
  • The PR/PSC includes review of project replacement.
  • Implementing partners include eligible Municipal/Component City/Provincial LGUs, DPWH, and AFP Engineering Brigades/Units.
  • Implementing partners must enter into a MOA with DA-RFUs/BFAR ROs/NIA ROs for fund releases.
  • Implementing partners must open a Special Trust Account for transfer of funds.
  • Implementing partners must designate a focal person/appropriate focal unit to manage and coordinate implementation.
  • Implementing partners must implement projects by administration or by contract through competitive bidding, adhering to RA 9184 and its IRR, and also COA Circular No. 94-103 and COA Circular 2012-001.
  • Implementing partners must oversee physical implementation to ensure compliance with the MOA provisions, including requirements tied to Section III, Item D.
  • Implementing partners must submit monthly financial and physical accomplishment reports to DA-RFUs/BFAR ROs/NIA ROs and submit updated geo-tagged data.
  • Implementing partners must be responsible for liquidation reports submitted to DA-RFUs/BFAR ROs/NIA ROs.
  • Implementing partners must return unexpended balances of released funds or applicable portions related to cancelled components to DA-RFUs/BFAR ROs/NIA ROs when applicable.
  • Implementing partners must install billboards on each PAMANA project site showing the project title, period of implementation, fund allocation, implementing agency, and other relevant information, consistent with PAMANA guidelines on community and project billboards in Annex E.

Monitoring, Reporting, and Transparency Requirements

  • OPAPP acts as the lead agency in monitoring PAMANA, in partnership with PAMANA implementing agency partners.
  • DA conducts regular monitoring and evaluation to ensure timely approval, fund release, implementation, and project completion.
  • Site visits must assess project status and integration of peace and conflict-sensitive tools and processes in local governance aspects.
  • DA monitors its projects supported by the PAMANA Program Fund.
  • Alert mechanisms must be established to ensure timely resolution of issues before, during, and after project implementation.
  • CSOs are tapped by OPAPP as third-party monitors to conduct project monitoring as part of the Program’s Transparency and Accountability Mechanism.
  • Project implementation status, including geo-tagged information, is posted on the PAMANA website and the DA website (pamana.net and da.gov.ph).
  • Full disclosure of project information and implementation status is made through tri-media.
  • Implementing agency partners must submit monthly and quarterly progress reports to the Secretaries of DA and OPAPP, and furnish copies to the PPOC and RPOC.
  • OPAPP includes updates in its quarterly monitoring report to:
    • the Office of the President,
    • DBM,
    • the Appropriations Committee of the House of Representatives, and
    • the Senate Committee on Finance.
  • OPAPP’s quarterly monitoring report must include a consolidated report on PAMANA Program implementation.

Termination, Suspension, and Sanction Mechanisms

  • The Regional Executive Director / BFAR Regional Director / NIA Regional Manager, after consultation with the RPOC, is authorized to terminate/cancel project implementation if:
    • the implementing partner fails to comply with prescribed project processes, standards, and requirements,
    • there is corruption and fraudulent practices, or
    • circumstances make it improbable for the project to continue,
    • or upon request of the LGU.
  • If a project is partially or fully cancelled due to the fault of the implementing partner, the implementing partner must return the unexpended balance of the released portion or the portion related to the cancelled component, whichever applies.
  • The same regional authority, after consultation with the RPOC, is authorized to suspend/withhold release of the final tranche if:
    • procurement of any contract is inconsistent with RA 9184 provisions, and the implementing partner performs unsatisfactorily or substantial slippage occurs, or
    • extraordinary conditions such as force majeure and fortuitous events make suspension necessary.
  • Implementing partners are given one (1) month to resolve the issue, improve performance, or remedy the situation.
  • Termination is resorted only if implementing partners, after due notification, do not institute measures to address issues at hand.

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