devt - policy paper [poverty in the indigenous sector of the philippines]
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POLICY PAPERIndigenous Sector in the
Philippines: Examining theircauses of poverty
Submitted by:
Espinosa, Cyril Ann
Fernandez, Jade AyannaSantos, Maria Farina Kim
IV- AB ISD
Submitted to:
Girlie Casimiro
ISD 105
Aid, Development, and Fiance
February 11, 2012
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SITUATIONER
The Philippines is the only Asian country that has officially used the term indigenous
peoples and recognized their rights as such (ADB, 2002). Indigenous Peoples, as defined by The
Indigenous Peoples Rights Act or IPRA (1997), are:
A group of people or homogeneous societies identified by self-
ascription and ascription by others, who have continuously livedas organized community on communally bounded and defined
territory, and who have, under claims of ownership since timeimmemorial, occupied, possessed and utilized such territories,
sharing common bonds of language, customs, traditions and otherdistinctive cultural traits, or who have, through resistance to
political, social and cultural inroads of colonization, non-indigenous religions and cultures, become historically
differentiated from the majority of Filipinos.
There are about 171 different languages in the Philippines, 168 of these are still being
used today, while 3 of are already considered extinct. These different languages also represent
the different tribes of indigenous peoples in the country (Summer Institute of Linguistics, 2012).
According to the National Commission of Indigenous People (NCIP), the estimate count of
indigenous peoples in the Philippines, as of 1998, is between 12 - 15 million (ADB, n.d.).
There is an estimate of about 40 different indigenous groups in the Philippines and
majority of them, 61%, resides is Mindanao. Luzon has the 33% of their population, while
Visayas houses the remaining 6% of them (ADB, n.d.). But most importantly, it should be noted
that the actual number of indigenous population in the Philippines might even exceed 20% more
of the recorded total as there may have been individuals or groups that were excluded in the
count because of the qualifications indicated in the technical definition of the term 'indigenous'
(ADB, n.d.). Indigenous groups situated in Luzon, particularly the northern mountains or
Cordillera, are collectively termed as Igorots (IWGIA, n.d.), Mangyan for those in Visayas
(ADB, 2002), while those belonging in southern Mindanao are collectively called Lumadwhich
is the self-ascription and collective identity of the non-Moro indigenous peoples of Mindanao
(ADB, n.d.).
Indigenous peoples usually live in isolated areas that lack access to social aid and
economic activities (IWGIA, n.d.) but as perks of living in these areas, they have the first hand
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access to natural resources such as forests and rivers. Although some IPs may have adopted some
ways of modernity, these groups still believe and practice their culture, rituals, and traditions
(IWGIA, n.d.).
Poverty and the Indigenous Sector
According to the International Fund for Agricultural Development (IFAD), there are 900
million people, 75% of the worlds extremely poor mostly living in rural areas. Indigenous
peoples make up an important group of rural poor. According to them, there are about 300
million indigenous people living in more than 70 countries, and the majority of them are poor.
They are also among the most vulnerable and marginalized of the rural poor (IFAD, 2003 &
2009).
In the Philippines, half of its population lives in rural areas where people living below the
poverty line are the most severe and common. In general, illiteracy, unemployment and the
incidence of poverty are higher among indigenous people than those living in the cities. The
situations of indigenous people who are in the midst of the poverty line are living as small-scale
farmers, landless workers, and fishers. There are also differences in the level of poverty between
the regions and provinces, and the poverty gap between urban and rural areas is increasing.
Indigenous people living in fragile and vulnerable places, like people in the uplands of theCordillera highlands and on Mindanao Island are among the poorest in the country (IFAD, 2002).
The National Commission on Indigenous Peoples (NCIP) stated under the established
Indigenous Peoples Rights Act (IPRA) that indigenous peoples are spread widely throughout the
Philippines. Indigenous peoples and their communities are located throughout the Philippine
archipelago, in the main islands of Luzon to the north and Mindanao to the south, and in several
islands of the Visayan chain in the central Philippines (NCIP, 2002).
In the Philippines, the main issues of the indigenous people are the ancestral domain and
traditional land rights, and local self-governance and respect for traditional institutions (Plant,
2002). The causes of poverty in rural areas in the Philippines vary. Among the causes of rural
poverty are: (1) diminished productivity and profitability of farming, (2) smaller farm sizes and
(3) unsustainable practices that have led to deforestation and depleted fishing waters because of
this, rural areas are lagging in economic growth and have higher underemployment rate. People
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living in poverty along these areas also have little access to productive assets and business
opportunities. Some vulnerable groups also face specific problems. For example: (1) indigenous
peoples have high illiteracy rates and are affected by the violation of modernization, cultures,
traditional norms and practices; (2) fishers face problems of reduction in their catches and they
have few opportunities outside fishing; and (3) the indigenous women have limited roles outside
of marketing and family responsibilities (ADB, 2002).
Lands and their rights to the land were considered as the most sensitive among all the
issues because there are always threats in their traditional lands and forest, and this has often
been regarded as the principal cause of poverty. Land grabbing of ancestral domains are likely to
be problems of overlapping claims between indigenous communities, mining and other external
interests. These lands are mostly converted into industrialized areas, mining site, and other
economic means for the government or the private sector. Indigenous people are forced to leave
their own ancestral land and to find another place to live (ADB, 2002).
Some people in Southeast Asia often hold the most burden of living in poverty.
Indigenous peoples in the Philippines, being in the Southeast Asian region, live in areas where
basic services are weak. Their access to the lands, forests, and other natural resources are their
only source of livelihood but these are being threatened by the processes of development and
modernization. Their traditional land areas are opened up for settlement to non-indigenous
groups and outside investment (Plant, 2002).In the report of the Asian Development Banks about the topic of Indigenous People and
Poverty Reduction - to act upon the needs of the indigenous people is to first identify who they
are, where they are located, and their population.
They say that it is important to determine if they are a minority or not in order to know if
they earn or not in their livelihood and if they have access in development and modernization
without disregarding their cultural values and traditional beliefs. However, some members of
ethnic groups that are part of the minority are not really vulnerable or experiencing
disadvantages. For example, there are some families that have acquired land tenure for their own
production and distribution and some even had an access to political power in the government,
but still, they consider themselves as part of the minority group or indigenous people. Because of
this, indigenous people who are truly in need of assistance from the government are disregarded
(ADB, 2002).
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Indigenous People are generally members of the ethnic groups that are considered living
in or below the poverty line throughout their lives. They usually lack or have a limited access to
resources such as capital, transportation, and machineries. They lack in opportunities like time
and money to learn new skills and ideas. They become indebted; they dont have a regular source
of income, and do not have alternative amenities for a television, appliances, or LPG for cooking.
Some doesnt even have properties like fields for farming, and are therefore forced to work on
other peoples land. They lack food to eat, moneyto buy their basic needs, their children are not
properly clothed, and have difficulties on sending their children to formal schools therefore
instigating illiteracy (IFAD, 2002).
Basically, economic statuses do have a very particular meaning for the indigenous
peoples as it is usually equated with their cultural integrity the concept of poverty. Also,
indigenous peoples share the same aspirations as other population groups with regard to
educational achievement, productivity, and income earning opportunities. As indigenous people
wishes to maintain the integrity of their community, they also wish that their children can earn a
livelihood outside the community.
POLICY PAPER DEVELOPMENT: FRAMEWORK
People living below the poverty line often are faced with deprivation of food, shelter,education, and health that allows them to become vulnerable to ill health, economic dislocation,
and natural disasters (World Bank, 2001). More specifically, the indigenous sector in the
Philippines faces much weakness to poverty because of unsustainable development practices like
deforestation, kaingin, and, bombing of fishing waters. Also, the indigenous sector in the
Philippines experiences high illiteracy rates and limited mobilization of resources and
opportunities (IFAD, 2002).
The World Development Report in 2001 by the World Bank reiterates that poverty is not
just an outcome of one specific dimension, but rather, it is an outcome of economic, social, and
political processes that interact with and reinforce each other in ways that can worsen or ease the
deprivation poor people face everyday. Therefore, the question is now: how to achieve a rapid,
sustainable, and pro-poor development (World Bank, 2001). And in order to help alleviate
poverty, there are three measures that should be properly observed - giving opportunity, assist
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empowerment, and improve security at the local, national, and international levels (World,
Bank, 2001).
The following framework for action is the proposed framework by the World Bank in order to
successfully attack poverty:
Figure 1: Framework for Action
The first box in the framework is opportunity: This means expanding opportunities
for indigenous peoples. Giving them more opportunities suggests that there should be an
improvement in their markets and helping them build their assets (World Bank, 2001).
Markets are central to the lives of poor people (World Development Report, 2001) and
therefore, there should be reforms that can (1) eliminate marginalization in the markets, (2)
building registries that should allow the establishment of small producers, and (3) developing
insurance policies that can help and assist small-scale businesses. On another note, gaining assets
are also crucial in achieving opportunities. These assets do not only mean material assets like
houses, lands, and properties but also, human capabilities such as health and education are of
intrinsic value and social networks, often also play an instrumental role (World Development
Report, 2001). This means that gaining access by the indigenous sector in the Philippines toproperties are not the only essential key in attaining development, but other assets like education,
health, and social connections also play key roles in assuring them of a longer-term solution that
is important in alleviating poverty. And in order to ensure assets, the state should have a central
role that can facilitate rules and policies that can provide attainment and access to basic assets
and services (World Bank, 2001).
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The second box in the framework is empowerment: This means raising awareness of
the indigenous sector regarding their condition in order to properly allocate resources and
use knowledge to reduce poverty. Empowerment of indigenous peoples would mean (1)
increasing their capacities and capabilities that can help them partake in decision-makings, and
(2) removing barriers that can marginalize the indigenous sector (World Bank, 2001).
Empowering the indigenous sector should be part of the governments plan for the people,
because it would mean good governance for the citizens. It is true that opening opportunities for
the indigenous sector can serve as one way of empowering them, but more efforts are needed in
order to empower them. Aside from turning social institutions and the state to adopt pro-poor
programs, more specific actions like mobilizing these indigenous peoples in their own
organizations to hold state institutions accountable and ensuring the rule of in their daily lives
are also crucial in empowering them (World Bank, 2001).
Empowerment on social interactions also begets a vital significance in alleviating poverty
in the indigenous sector. The indigenous sector is very much dependent in their culture their
traditional ways and norms and this could be a cause of marginalization and discrimination that
can hinder their empowerment. By removing discrimination of the indigenous peoples through
confronting gender inequalities, and other forms of marginalization, can the indigenous sector
only experience faster empowerment and development (World Bank, 2001).
The third box in the framework is security: This means increasing the sense of
security of the indigenous sector to decrease susceptibility to different types of risks like ill
health, economic shocks, and natural disasters. This sense of security is the guaranteeing and
ensuring the indigenous sector of the right poverty reduction strategies and of what they truly
need (World Bank, 2001).
Increasing security is strengthening, supporting, and maintaining of the programs
addressed to reduce poverty in the indigenous sectors. This would mean providing the
indigenous sectors with means in order to manage themselves during risks and disasters,
strengthening their market through the help of public and private institutions, supporting assets
of the indigenous people, supporting institutions that help the indigenous sectors, and supporting
risk management institutions that upholds poverty reducing strategies. Aside from these, a more
people-oriented approach of securing security is needed. This would entail covering health
insurances, giving assistance and pensions to older people, unemployment insurance, sustaining
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social funds, establishing microfinance programs, and more importantly, ensuring safety nets to
support immediate consumption needs and to protect the accumulation of human, physical, and
social assets of the indigenous sectors (World Bank, 2001).
The fourth box, lying under the three main boxes indicates proper interactions
between the local, national, and international levels in order to make sure that
opportunities, empowerment, and security are well implemented and monitored. Just like
how the different dimensions that causes poverty are intrinsically linked, areas for action should
also be interconnected (World Bank, 2001).
Local and national governments should work hand-in-hand to ensure proper flow of
poverty reduction program, maintenance of these programs, and proper monitoring of these
programs. They should be able to set up certain policies and rules that do not only eliminate
poverty causes but should also put forward the material and well-being development of the
indigenous sectors. As the central government that houses the Indigenous sector, they should feel
responsible and feel the need to ask for help when the need arises (World Bank, 2001).
International actions should also be sought because sometimes, the local and the
government actions are not enough to alleviate poverty in the indigenous sectors. This would
mean (1) acknowledging in international conferences and conventions the voices of those
countries that cannot properly implement poverty reduction programs to help their indigenous
sectors, and (2) providing aid that can help provide opportunities, empower, and secureindigenous peoples (World Bank, 2001).
POLICY RECOMMENDATIONS
In order to address poverty in the Indigenous Sector of the Philippines, it very important
to identify first the causes of poverty along with its effects and toll among the indigenous peoples
of the Philippines. The following policy recommendations seek the help, guidance, action, and
monitoring of the Philippine government, along with local governments and the international
community:
y To have an intensive and extensive research on the situation and experiences ofindigenous people. Before doing any action, it is vital that data gathering and research
should be well-implemented. This will aim to know the different histories and conditions
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in life of the indigenous peoples which will allow the government to identify their needs.
By conducting a thorough research, the government will be able to properly line up
agendas, policies, and other programs that will surely be accurate and fitting to the needs
of the people. Therefore, more strategic actions that are directed in a focused subject
matter will be implemented. This will reduce the risks of failure and wrong
implementation because of the lack of understanding of the experiences of the indigenous
peoples.
y Developing different fields for interventions. Governmental agencies and organizationsshould avoid the one size fits all solution. There should be an establishment of varying
divisions for action implementation in order to specialize in a particular issue to solve.
This would mean decentralization of national works in order to put into action, manage,
and monitor programs more effectively and closely.
y Ensuring effective partnerships between the governing body and the governed. Thiswould mean engaging development planners and organizations in the community of the
indigenous peoples. This will enable trust to flow therefore enabling data gathered to be
more accurate and specific. Building effective partnerships would serve as a means of
giving respect to the cultural identity of the indigenous people while promoting long-term
sustainable programs because of the trust built between the governing body and the
governed.
y To put more efforts in resolving land conflicts. Indigenous peoples are known asterritory markers, meaning, they only declare their properties through verbal
announcement or markings. Because of this, clashes and tensions are created. The
government should put an effort into land appropriations for short-term solutions
accompanied by land titles for long-term solutions.
y To improve the indigenous sectors well-being. This means strengthening not only theeconomic profitability of the indigenous sector but also their social and mental skills in
order to have more opportunities in life. This would mean (1) setting up local markets
where indigenous peoples can sell their products and agriculture without marginalization
and discrimination; (2) providing intensive basic education to indigenous peoples without
pay and not too far from their community; and (3) organizing personality workshops that
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will empower indigenous peoples and develop their confidence and communication
skills.
These policy recommendations only serve as a stepping stone in a proposed strategy outlined
by the researchers: To establish an institution that utilizes the educational capacity of a
school and the lending services of a cooperative. This institution will have different branches
in the communities of the indigenous peoples and will have staffs, development practitioners,
law makers, and volunteers that will serve as their people. This institution will serve as a school
of empowerment, raising awareness, and conducting economic workshops and seminars about
livelihood and other means of income. If they have achieved a certain level in the school they
will be allowed to borrow money from the lending arm of the institution in order to put their
gained knowledge into action. Aside from fact that the institution will be able to help the
community in terms of their well-being, they are also being exposed to the situations of the
indigenous peoples by living with them in their communities. This means implementing
governmental policy with the complete cooperation and partnership by its people.
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REFERENCES
International Fund for Agricultural Development (2009) Enabling poor rural people to overcomepoverty in the Philippines.
International Fund for Agricultural Development (2003) Indigenous People and Sustainable
Development.
Plant, R. (2002) Indigenous People/Ethnic Minorities and Poverty Reduction Regional Report.Asian Development Bank
Plant, R. (2002)IndigenousPeople/Ethnic Minorities and Poverty Reduction Philippines. Asian
Development Bank
Plant, R. (2002)Issues in Indigenous Poverty and Development. Asian Development Bank
International Fund for Agricultural Development (2009) Enabling poor rural people to overcomepoverty in the Philippines.
International Fund for Agricultural Development (2003) Indigenous People and SustainableDevelopment.
Plant, R. (2002) Indigenous People/Ethnic Minorities and Poverty Reduction Regional Report.
Asian Development Bank
Plant, R. (2002)IndigenousPeople/Ethnic Minorities and Poverty Reduction Philippines. AsianDevelopment Bank
Plant, R. (2002)Issues in Indigenous Poverty and Development. Asian Development Bank
World Bank. (2001). The World Bank: Attacking Poverty . Retrieved February 3, 2012, from The
World Bank: http://siteresources.worldbank.org/INTPOVERTY/Resources/WDR/English-Full-Text-Report/ch2.pdf