Philippines: Social Protection Support Project

Sovereign Project | 43407-013


The project will support the Government of the Philippines in implementing and expanding its social protection agenda, especially the conditional cash transfer (CCT) program Pantawid Pamilyang Pilipino Program (4Ps) and the national household targeting system for poverty reduction (NHTS-PR). The associated capacity development TAs will support capacity development and institutional strengthening of the government for efficient implementation of the social protection agenda.

Latest Project Documents

Consulting Notices

See also: CMS

No notices are currently available for this project.

Procurement Notices

See also: Operational Procurement

No notices are currently available for this project.

Procurement Documents

Title Document Date
Social Protection Support Project Apr 2014

Project Data Sheets (PDS) contain summary information on the project or program. Because the PDS is a work in progress, some information may not be included in its initial version but will be added as it becomes available. Information about proposed projects is tentative and indicative.

The Public Communications Policy (PCP) recognizes that transparency and accountability are essential to development effectiveness. It establishes the disclosure requirements for documents and information ADB produces or requires to be produced.

The Accountability Mechanism provides a forum where people adversely affected by ADB-assisted projects can voice and seek solutions to their problems and report alleged noncompliance of ADB's operational policies and procedures.

In preparing any country program or strategy, financing any project, or by making any designation of, or reference to, a particular territory or geographic area in this document, the Asian Development Bank does not intend to make any judgments as to the legal or other status of any territory or area.

Project Name Social Protection Support Project
Project Number 43407-013
Country Philippines
Project Status Approved
Project Type / Modality of Assistance Loan
Technical Assistance
Source of Funding / Amount
Loan 2662-PHI: Social Protection Support Project
Ordinary capital resources US$ 400.00 million
TA 7586-PHI: Capacity Development for Social Protection
Technical Assistance Special Fund US$ 800,000.00
TA 7587-PHI: Strengthened Gender Impacts of Social Protection
Gender and Development Cooperation Fund US$ 300,000.00
Strategic Agendas Inclusive economic growth
Drivers of Change Governance and capacity development
Sector / Subsector Education - Pre-primary and primary - social protection initiatives
Health - Mother and child health care
Public sector management - Social protection initiatives
Gender Equity and Mainstreaming Gender equity
Description The project will support the Government of the Philippines in implementing and expanding its social protection agenda, especially the conditional cash transfer (CCT) program Pantawid Pamilyang Pilipino Program (4Ps) and the national household targeting system for poverty reduction (NHTS-PR). The associated capacity development TAs will support capacity development and institutional strengthening of the government for efficient implementation of the social protection agenda.
Project Rationale and Linkage to Country/Regional Strategy

Despite high economic growth over the past 6 years, poverty incidence in the Philippines increased from 30% in 2003 to 33% in 2006. Key causes of poverty include high inequality and chronic underinvestment in physical and human capital, especially health and education. As a result, the Philippines is lagging on progress in meeting the Millennium Development Goal (MDG) targets for universal primary education, maternal mortality, and access to reproductive health services. Net enrollment in elementary school declined from 99.1% in 1990 to 83.2% in 2007. Only 70% of students who enter grade 1 stay until grade 6, and one in five children 6 11 years old are not in school. Universal immunization against measles has not yet been achieved and malnutrition remains a major concern, with only 64% of children meeting normal weight-for-age standards. Maternal mortality rates remain high at 162 per 100,000 live births in 2006.

Government estimates indicate that about 45% of Filipinos are vulnerable to falling into poverty if confronted by external shocks such as family health problems and deaths, loss of employment, natural disasters, and price increases. In 2007 2008, escalating food prices contributed to a 9.45% reduction in the average standard of living and an increase of more than 50% in the severity of poverty. In the absence of appropriate safety nets, households have developed coping mechanisms to external shocks that tend to erode human capital and perpetuate poverty, such as increasing working hours, changing eating patterns, withdrawing children from school, or foregoing critical health care.

Demand-side constraints, such as financial barriers and lack of awareness of the importance of human capital investment, are key constraints to utilization of health and education services by the poor. Although many public health services are free, health facilities are often located in areas not easily accessible to poor families, leading to high transport costs. The average cost for travel to health facilities is P109 per visit, while outpatient treatment is P1,872 per person. Nearly half of the health care costs are paid out-of-pocket, and 79% of poor households have no insurance coverage. The poor are often unable to afford basic health care since out-of-pocket payments are required at the point of services. For education, demand-side factors are the main determinants of enrollment. Among girls 7 12 years old, the main reasons for being out of school are high associated costs and lack of interest. From 2002 to 2007, the number of out-of-school youth rose markedly for children 13 16 years old, reaching more than 20% in many regions. The leading causes were high cost of education (particularly for girls), lack of personal interest (particularly for boys), and working or looking for work.

Government efforts to address poverty and improve human development outcomes have been compromised by low spending on social sectors, particularly social assistance programs. In 2009, national government spending on social services was only 5.9% of gross domestic product. Spending on social protection was even lower at only 1.2%, although it has increased from an average of 0.8% in 2005 2007. The social protection sector has been characterized by a lack of policy and institutional coordination, with several departments undertaking uncoordinated, and sometimes ineffective, programs. Benefits have been further compromised by weak targeting systems to identify beneficiaries and high leakages to the non-poor.

To respond to these challenges, the government recently increased its focus on reforming and strengthening its social protection system. The reform agenda led by the Department of Social Welfare and Development (DSWD) includes (i) accelerating social protection policy reform; (ii) improving targeting of programs; (iii) expanding the CCT program and strengthening delivery mechanisms, including governance systems and monitoring and evaluation; and (iv) securing adequate and predictable financing for social protection by consolidating programs and gradually expanding overall budget allocation. The reform agenda is well under way and significant government ownership is demonstrated through a doubling of the social protection budget since 2007.

Impact Reduced income poverty and non-income poverty.
Project Outcome
Description of Outcome Increased consumption and utilization of education and health services among poor households and women beneficiaries of 4Ps.
Progress Toward Outcome The indicators have been achieved and exceeded; central and local management structures established. Most national and regional project management office staff are hired under GOP funding, as agreed during the midterm review. DSWD requested that the loan finance 11 contractual project staff, approved through the February 2014 change of scope. Five of these consultants are engaged while recruitment are still ongoing for the rest.
Implementation Progress
Description of Project Outputs

Output 1: National targeting system to select poor households implemented efficiently

Output 2: Conditional health and education cash grants provided to poor households

Output 3: Strengthened capacity for conditional cash transfer program operations

Output 4: Improved systems for monitoring and evaluation of social protection programs

Status of Implementation Progress (Outputs, Activities, and Issues)

48% of those who are in the Listahanandatabase are poor.

NHTS-PR 2011= 5.2M poor HH/10.9M HH assessed. However, by NSCB income-based measure, virtually all poor households are believed to be included in the Listahanan database.

At least 80%, depending on assumptions about exclusion error:

NSCB 2009 = 3.9M poor families

NHTS-PR 2011= 5.2M poor hh, expanded to 5.26M poor hh by August 2013

Baseline of 3.9 million poor families is based on the new methodology being used by the NSCB Philippine Poverty Statistics. More details at

For current PMT model, estimated:

Inclusion 22% (urban) and 25% (rural)

Exclusion=35% (urban) and 25% (rural)

For new PMT model, estimated:

Inclusion 10.6% (NCR) and 13.8% (non-NCR)

Exclusion=19.3% (NCR) and 6.8% (non-NCR)

14 national programs using Listahanan for selecting beneficiaries:

PantawidPamilya (DSWD)

Social Pension (DSWD)

Sustainable Livelihood Program (DSWD)


Universal health coverage of the National Health Insurance Program (PhilHealth)

Student Grant in Aid Program (CHED)

Socialized Housing Project (NHA)

National Program for Municipal Fisherfolk Registration (BFAR)

Rotavirus and Catastrophic Benefit Package (DOH)

Rural Electrification Program (DOE)

Special Program for the Employment of Students (DOLE)

Livelihood and Emergency Employment Program (DOLE)

Child Labor Program (DOLE)

Targeted Actions to Reduce Poverty and Generate Economic Transformation (TARGET) (DA-BFAR)

100% coverage (measured by receipt of at least 1 program):

NHIP: 100% coverage (covers all 5.2 M NHTS-PR registered HHs).

Pantawid Pamilya 76% coverage (3.9 Million Households). Additionally,

76% of the 5.2 million poor

households receive

benefits from at least 2

social protection programs.

Total poor households/families receiving cash grants (Sets 2 & 3): 632,508

Set 2 249,339

Set 3 383,169

% of women recipients (Sets 2 & 3) : 91.6%

Set 2 90.7%

Set 3 92.5%

Average of mothers in beneficiary households receiving cash grants regularly and on time 95.3%

Set 2 95.8%

Set 3 94.8%

Average households/families meeting education conditions regularly : 97.7%

Set 2 98.0%

Set 3 97.5%

Average households/families meeting health conditions regularly : 87.9%

Set 2 89.1%

Set 3 86.6%

Average grantees attend monthly family development sessions : 94.82% Set 2: 95.38%

Set 3: 94.25%

DSWD further developing MapView and GIS-based applications to more effectively use and analyze such data.

NPMO and 17 RPMO established and fully functional supported by various systems

As of Nov 2014, nearly 4,650 local staff trained for gender sensitivity (topics include gender analysis and prevention of sexual harassment) and 1,470 local staff for IP-sensitivity. (Note: The figures reflect both RPMO and NPMO trained staff on GAD and IP- related trainings regardless of fund source.) Additional activities (gender ad analysis training for regional GAD focals and Culture Sensitivty Orientation for NPMO staff) were done by DSWD.

Gender Action Plan (RRP Linked Document

10) under implementation, with some areas for follow-up


Gender audit completed and Municipal gender

action plans (MGAPs) formulated. MGAPs

implemented in 10 pilot areas (activities include gender

sensitivity training, organization of the GAD core group, training on bottom-up planning and budgeting, and conduct

of a capacity needs survey, supported by TA 7587).

GRS, BUS, Payment Systems and CVS Systems in place and being continuously updated/ strengthened

The Jan-Dec 2014 GRS data has garnered a resolution rate of 66%.

Of the total 101,961 complaints recorded in the system, 71% has complied with the resolution time protocol established per category of grievance.

Independent Spot checks:

Spot Check Phases A-B (originally scheduled for 2011) completed in 2013 (reports submitted).

Spot Check Phase C:

Fielded in August 2013 Final report completed in July 2014.

Spot Check Phase D:

Fielded in October 2013. Final rreport completed in October 2014

Spot Check Phase E:

Ongoing procurement of firm.

Spot Check Phase F:

Terms of Reference to approved, DSWd to commence recruitment

Impact Evaluation:

1st wave IE: DSWD-World Bank-ADB-DFAT joint public launch of initial findings from 1st wave on 23 August 2012, and of final report for RCT portion on 26 February 2013 (following Academe forum on 19 February).

2nd wave IE: Completed in November 2014

3rd wave IE: Loan 2662-financed, with ADB and PIDS expected to technically co-lead, in consortium with WB, DFAT, and other TWG members. Data collection targeted in November 2015, subject to further discussion. 3rd wave IE Terms of Reference to be submitted to ADB for approval

Geographical Location The Project supports a nationwide reform agenda, and directly supports interventions in areas throughout the Philippines.
Safeguard Categories
Environment C
Involuntary Resettlement C
Indigenous Peoples B
Summary of Environmental and Social Aspects
Environmental Aspects The Project has no expected environmental impact, and does not involve any civil works, etc.
Involuntary Resettlement The Project will not involve involuntary resettlement.
Indigenous Peoples The project is classified as category B for indigenous peoples (and category C for involuntary resettlement and environment), in accordance with the ADB Safeguard Policy Statement (2009). The project includes about 9,000 indigenous peoples household beneficiaries, who are among the poorest and most marginalized households in the Philippines. The project will significantly improve the health, education, and income status of these households. Key measures include (i) information and training provided to indigenous peoples in a form appropriate to their language and cultures; (ii) working with indigenous leaders and local NGOs to mobilize indigenous households to participate in the program; (iii) seeking transport assistance for indigenous peoples through coordination with LGUs or NGOs; (iv) targets of 10% indigenous women and 12% indigenous peoples total for municipal link positions in indigenous areas; and (v) sensitivity training and coaching to all 4Ps staff. Recent reviews in September/October and December 2011 indicate that the IPP is on-track, while identified some areas for follow-up and further monitoring. Additionally, related support under linked TA 7586 is assisting DSWD to further review IPP-related dimensions and design and assess the viability of a potential modified CCT program specifically targeted at IP communities.
Stakeholder Communication, Participation, and Consultation
During Project Design During project preparation, field consultations were undertaken including for preparing social and poverty analyses. This includes consultations with potential beneficiaries, schools and health facilities, parents groups, project staff and government staff at all levels. Consultations with Non-Government Organizations (NGOs) and other interest groups were also conducted.
During Project Implementation Community participation is a key element of the Pantawid Pamilya CCT program and is integrated into the overall program design. Specific actions to ensure the participation of women, IPs and other vulnerable groups will be included through the preparation of a gender action plan (GAP) and an indigenous peoples assessment and measures. A grievance redress system (GRS) is established, featuring a publicly available grievance database to track and resolve complaints. Linked technical assistance (TA 7586-PHI) is supporting DSWD to expand engagement of CSOs in GRS, family development sessions, other aspects of CCT, and complementary supply-side intervetions (e.g., literacy and livelihood programs). In coordination with AusAID and World Bank, the TA has supported DSWD's conduct of a 3-part series of national and regional "CSO-DSWD Forums on CCT", successfully completed during September-December 2011, with further support planned in 2012.
Business Opportunities
Consulting Services

The Project's original procurement plan indicated loan financing for 57 consultants for the National and Regional Program Management Offices (NPMO and RPMO), with total estimated contract amount of $1.9 million. To date, DSWD has mobilized these NPMO and RPMO consultants using GOP funds. During the Midterm Review, DSWD confirmed that it will not seek Loan financing for 56 of these consultants, but requested the Project to finance the National Financial Analyst (included in the original procurement plan) plus 10 new contractual project staff positions who will carry out tasks directly related to the Project. These 11 positions will be recruited as individual consultants. The Project will also support consulting services on strengthening of the Management Information System. Firms will be recruited to undertake monitoring and evaluation studies, using fixed budget selection (FBS). The firm to undertake impact evaluation (data collection) will be recruited using quality and cost based selection (QCBS) while individual consultants (analysis) will be engaged using ICS. The firm to undertake the spot checks will be recruited using single source selection of the same firm recruited to undertake the spot checks under Set 1 of the 4Ps. Single source selection is justified on the basis of consistency of technical approach and continuity, which is important for this assignment. The firm to conduct spot checks in Set 1 areas were conducted competitively following World Bank guidelines.

The Consultants will be engaged in accordance with the ADB's Guidelines on the Use of Consultants (April 2010, as amended from time to time). All opportunities must be published through both ADB Consulting Services Recruitment Notices (CSRN) and Philippine Government Electronic Procurement System (PhilGEPS).


All procurement of goods and works will be undertaken in accordance with ADB's Procurement Guidelines.

No international and national competitive bidding envisaged for the Project. Shopping will be used for contracts for procurement of works and equipment worth less than $100,000.

Before the start of any procurement, ADB and the Government will review the public procurement laws of the national and local governments to ensure consistency with ADB's Procurement Guidelines.

Responsible ADB Officer Karin Schelzig
Responsible ADB Department Southeast Asia Department
Responsible ADB Division Human and Social Development Division, SERD
Executing Agencies
Department of Social Welfare and DevelopmentCorazon Hills, Batasan Pambansa Complex Quezon City Philippines
Municipal Dev'l Fund Office-(Implementing Agency)Roxas Boulevard corner Pablo Ocampo, Sr.
Street, Manila
Concept Clearance 12 Apr 2010
Fact Finding 12 Apr 2010 to 23 Apr 2010
MRM 25 May 2010
Approval 02 Sep 2010
Last Review Mission -
PDS Creation Date 08 Apr 2010
Last PDS Update 31 Mar 2015

Loan 2662-PHI

Approval Signing Date Effectivity Date Closing
Original Revised Actual
02 Sep 2010 14 Sep 2010 12 Jan 2011 31 Mar 2016 - -
Financing Plan Loan Utilization
Total (Amount in US$ million) Date ADB Others Net Percentage
Project Cost 884.20 Cumulative Contract Awards
ADB 400.00 02 Sep 2010 356.16 0.00 89%
Counterpart 484.20 Cumulative Disbursements
Cofinancing 0.00 02 Sep 2010 366.58 0.00 92%
Status of Covenants
Category Sector Safeguards Social Financial Economic Others
Rating - - - - - Satisfactory

TA 7586-PHI

Approval Signing Date Effectivity Date Closing
Original Revised Actual
02 Sep 2010 12 Oct 2010 12 Oct 2010 31 Aug 2012 31 Aug 2014 -
Financing Plan/TA Utilization Cumulative Disbursements
ADB Cofinancing Counterpart Total Date Amount
Gov Beneficiaries Project Sponsor Others
800,000.00 0.00 200,000.00 0.00 0.00 0.00 1,000,000.00 02 Sep 2010 681,418.69
Status of Covenants
Category Sector Safeguards Social Financial Economic Others
Rating - - - - - Satisfactory

TA 7587-PHI

Approval Signing Date Effectivity Date Closing
Original Revised Actual
02 Sep 2010 12 Oct 2010 12 Oct 2010 31 Jan 2013 31 Dec 2014 -
Financing Plan/TA Utilization Cumulative Disbursements
ADB Cofinancing Counterpart Total Date Amount
Gov Beneficiaries Project Sponsor Others
0.00 300,000.00 125,000.00 0.00 0.00 0.00 425,000.00 02 Sep 2010 260,076.97
Status of Covenants
Category Sector Safeguards Social Financial Economic Others
Rating - - - - - Satisfactory

Safeguard Documents

See also: Safeguards
Title Document Type Document Date
Social Protection Support Project - Additional Financing: Updated Indigenous Peoples Plan Indigenous Peoples Plans/Indigenous Peoples Development Plans Jun 2015
Social Protection Support Project: Indigenous People Plan Indigenous Peoples Plans/Indigenous Peoples Development Plans Aug 2010
Social Protection Support Project Indigenous Peoples Planning Frameworks/Indigenous Peoples Development Frameworks May 2010

Evaluation Documents

See also: Independent Evaluation

No documents found.

The Public Communications Policy (PCP) establishes the disclosure requirements for documents and information ADB produces or requires to be produced in its operations to facilitate stakeholder participation in ADB's decision-making. For more information, refer to the Safeguard Policy Statement, Operations Manual F1, and Operations Manual L3.

Requests for information may also be directed to the InfoUnit.