The Emerging ‘Middle Ground’ Development Role of Non-Government Organizations:

The Case of JPIC-IDC, INC.

Abstract This case study presents a middle ground between service delivery andadvocacy
roles of the NGOs in the governance and development of target beneficiaries. It
documents and analyzes the experiences of JPIC-IDC, INC. - an NGO in the
Philippines that provides various services for indigent communities–with
scavenging families at the resettlement village community. The findings show a
peculiartype of development role being performed by the NGO.Such development
role does not fit exclusively in either Big - D or Little –d.The emerging ‘middle
ground’ development role is an apparent reality that could be imbibed by NGOs in
order to make empowerment inclusive, relevant, and sustainable for all
stakeholders.

Keywords: empowerment, non-government organization, development role, middle ground

development, community development
!

Introduction

Since the late 1970s, Non-Government Organizations (NGOs) have gained a prominent and
prevalent role in the development sector due to them filling in the gaps left by the failure of
states across the developing world in addressing the needs of their poorest citizens (Banks and
Hulme, 2012). Traditionally, NGOs are more focused on bridging the gap between the needs of
the poor and the marginalized as well as the lack of government services, and the constant
reservoir of funding, manpower, and well-defined system of collaboration. With good
governance as the on-going thrust in all efforts for quality of life, NGOs are faced with the
decision to diversify and update their approaches in dealing with poverty, marginalization, and
mismanagement of resources.
Various studies have explored the role of NGOs in development. Literatures reveal that
community development and mobilization, empowerment, sustainability, and participation
arecentral to the role of NGOs in development. In fact, Tagarirofa (2013) contended that
participation and community mobilization are essential tools in achieving the primary objective
of all community development projects which is empowerment. This framework is also reflected
in the work of Omofonmwan and Odia in 2009. They concluded that community development
happens when there is participation from community members. This empowering set-up is
known as “bottom-up approach” according to Nikkhah and Redzuan (2010). When
empowerment becomes one core value in community development, it can be deduced that
sustainable programs, projects, and activities of NGOs arewithin viable reach. Moreover, NGOs
are claimed to have an impact on the sustainable development of rural areas of developing
countries (Hassan and Forhad, 2013). Bangladesh Rural Advancement Committee (BRAC), the

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world’s largest NGO, is worthy of citation as a case study. BRAC is consistent with its effortsin
creating opportunities to move out the poor - particularly amongst the marginalized areas - out of
the harsh realities of poverty. On another note, NGOs have the ability to promote social
mobilization and empowerment in order to foster self-reliance. This is validated in a research
conducted by Neelima (2013) about the role of NGOs in the socio-economic development in
India.
The term development has two conceptualizations. The first one refers to “development
as an immanent and unintentional process” while the second meaning considers “development as
an imminent and intentional activity” (Cowen and Shenton, 1996 as quoted by Asaye, 2013 and
Bebbington, Hickley and Mitlin, 2008). The former is said to be an intervention and process in
developing capitalist-centric projects. It sees development as a consequence of market and
economic prosperity. The latter conceptualization is noted to advocate for deeper structural
changes that are political and economic in form.
It was in 2006 when G. Hart categorized the aforementioned two conceptualizations into
Big – D and Little – d. When development is characterized by approaches such as community
organizing, microfinance, as well as donor-driven interventions such as structural adjustment and
poverty reduction, then it is said to epitomize Big – D. On the other hand, Little – d is a kind of
development that focuses on systematic institutional change rather than interventions at the
community of micro level (Lewis and Kanji, 2009).However, according to Asaye (2013),
prominent scholars like Chhrotay (2008), Guijit (2008) and Kanji (2009) have discarded the
dichotomy between Big – D and Little – ddevelopment roles. Rather, they now see the role of
NGOs in service delivery as an instrument to catalyze and empower the community. It was
construed that the use of service delivery as an entry point or a cause to bring people together
was facilitative in enabling community members in their journey towards sustainable
development. Apparently, the question on whether the development roles of NGOs are
constricted to either Big – D or Little – dbecomes relevant.Could there be other emerging
development roles as a result of the changing contexts of time? What happens when Big – D or
Little – dcomplement each other and eventually emerge as one entity? Is the middle ground
between Big – D or Little – da compelling reality?
This paper presents an alternative perspective on the role of NGOs in the development
sector – that which pursues holisticdevelopment of its target beneficiaries on both aspects
ofmateriality and capabilities. The paper looked into Justice Peace and Integrity of Creation –
Integrated Development Center, Incorporated (JPIC-IDC, INC.) and its community
engagementsas essential components for a case study.

The Study Setting

The research respondents are JPIC-IDC, INC. and the head of households of partner
communities. The former entity is a faith-based NGO that started with the efforts of the Society
of the Divine Word (SVD) priests in partnership with Karl Kuebel Stiftung (KKS) of the Federal
Republic of Germany. Up until today, JPIC-IDC, INC. has numerous pastoral works amongst
women, children, and indigenous peoples.It offers various programs and services intended for
human and community development, economic and cooperative development, education, as well

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as disaster response and rehabilitation. It also aims forholistic development of persons in their
communities in order for them to carve the kind of development that they can pursue.On the
other hand, the Board of Directors of the community cooperative in JPIC-IDC, INC.’s partner
communities facilitated the purposeful sampling or stratification and selection of the head of
households. Such methodology is based on the representativeness of the maximum variation of
the characteristics of the resettlement community, to wit: relocation batch, housing unit, and
primary source of income.
The locale of the study is a resettlement village community called Saint Arnold
Janssenville which is located at Bagalnga, Compostela, Cebu, Philippines. The said village
community is composed of forty target family-beneficiaries. Thesefamily-beneficiaries are
primarily scavenging households who were evicted from living near the Umapad Dumpsite in
Mandaue City, Philippines. The aforementionedhouseholds used to be marginalized from
accessinglivable housing, potable water, and healthy ecology. But it is noteworthy that the same
scavenging families were able to establish connection with JPIC-IDC, INC. initially through its
education sponsorship program. They have also acquainted themselves with the present superior
general of SVD, Fr. Heinz Kulueke.
Moreover, Saint Arnold Janssenville as a project was established through the joint efforts
of Fr. Kulueke, Karl Kuebel Stiftung (KKS), Dekeyser & Friends Foundation, and Dedon
Manufacturing Cebu. The first batch of target beneficiaries moved into the village community in
2011. The second batch was relocated in 2012, while the last batch moved in by 2013. The
overall intended outcome of the project is to sustainably improve the socio-economic living
conditions of forty poor and marginalized familieswho used to reside in informal settlements.
In order for these families to live a just and humane existence, they are provided with
capacity building activities and material endowments. In addition, each of the families is
allocated fifty six square meters of living space with two styles of units – twenty single detached
units and twenty duplex. Now, the village community has access to safe and clean drinking water
supply, connecting roads to schools, connection to the electrical grid, self-sustained or help
cooperative, facilities for merchandising of produced sewn products and handicrafts, and
sustainable and ecological agriculture and animal husbandry to help them subsist and produce
surplus to sell.
Consequently, this study identified the role of JPIC-IDC, INC. in the development of its
target beneficiaries through the use of Big – D or Little – ddevelopment framework. The study
analyzed the practices and strategies in the formulation, implementation, and evaluation stages of
the resettlement project.These practices and strategies are thencompared with the experiences of
the target beneficiaries residing at the resettlement villages in order to ascertain which type of
development role is extended unto them by the identified NGO in this study.
The researchers conducted in-depth, face-to-face, and semi-structured interviews with
three respondent families who were chosen by the community members as their
representatives.The data obtained were processed into three case narratives. The same type of
interview was administered to the field officer of the resettlement project. All interviews were
corroborated withdocuments review on the annual reports and other pertinent documents related
to the resettlement project.

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Findings from the Saint Arnold Jansenville Case Study

The data from the case study revealed that JPIC-IDC, INC. is committed to helping family-
beneficiaries solve their problems such as hunger, lack of support for education andhealth, and
poor sanitation.The institutional mission of the aforementioned NGO even acknowledges that
empowerment is integral to sustainable community development. The Project Coordinator even
shared that the motivation behind Saint Arnold Janssenville was to provide a decent socio-
economic living condition for the scavenging families.Furthermore, thecomponents of the project
primarily include health, housing, livelihood, andeducation. But it can be noted that the benefits
being enjoyed by family-beneficiaries extend even to other equally essential components such as
values formation, community identity and integration, environmental sustainability, safety and
security, as well as participation and ownership of community activities.Such holistic approach
to the resettlement project is integral to the prevention of further marginalization and to the
upliftment of living condition from underprivileged to a truly empowered one.
Given the development objectives and thrust of JPIC-IDC, INC.,it can be surmised that
the said NGO practices both service delivery role (Big – D) and advocacy-driven role (Little – d).
This middle ground development role permeates even to the community, organizational, and
individual dimensions of community governance and development.

Big – D: Service Delivery Role

Aside from the provision of enhancement activities and material endowments into the
resettlement project, JPIC-IDC, INC. is observed to engage in community organizing and
resource mobilization. This set-up corresponds, albeit not entirely, with the service delivery role
characteristics identified by Asaye (2013) and Lewis and Kanji (2008). The authors emphasized
that service delivery roles influenced by the Big – Ddevelopment project is characterized by
providing intervention at the community level.The said role is oriented towards projects with a
focus on material poverty, which has no intention of challenging existing societal arrangements.
NGOs are seen as implementers of intervention through micro-financing, project planning, and
service delivery for education, health, finance, emergency response, democracy building, and
even conflict resolution.
JPIC-IDC, INC. institutionalized Saint Arnold Janssenville as a projectwith
representative participation from its target beneficiaries. To quote Asaye (2013), “It functions to
incorporate the voices and interests of project beneficiaries so that the project is appropriately
planned as well as ownership and sustainability is ensured.” The components of the resettlement
project include public infrastructure, access to affordable and basic health care, livelihood, and
education.
When analyzed using the empowerment theory of Zimmerman (2001), it can be inferred
that the process in institutionalizing Saint Arnold Janssenville was ‘empowering’ in both
organizational and community levels. The project is observed to be ‘empowering’ at the
organizational level when target beneficiaries were accorded with opportunities to participate in
surveys, the results of which were utilized for the design of the resettlement village. On another
note, the project is observed to be ‘empowering’ at the community level when target

4
beneficiaries were provided access to resources. They were also introduced to the concept of
open government structure with tolerance to diversity, hence the election of Board of Directors
for their community cooperative.
However, the process of ‘empowering’ at the resettlement project has not yet permeated
within the individual level. The challenge for the stakeholders, therefore, is to transform
‘empowering’ into an “empowered’ outcome in which family-beneficiaries have sense of control,
critical awareness, and participatory behaviors.

Little – d: Advocacy Role

According to Banks and Hulme (2013), characterizing advocacy-driven NGOs based on Little –
d development is not as straightforward as their Big – Ddevelopment counterparts. The advocacy
roles may be viewed in a spectrum. On one hand, NGOs advocate and engage in radical social
movements that advocate for structural changes in society. On the other hand, NGOs seek
empowerment as an indirect outcome of their wider service deliveries.
JPIC-IDC, INC. institutionalized Saint Arnold Janssenville as a projectto provide means
through which the beneficiaries are enabled (empowerment) in order to have an influence over
their lives (humane existence). This indicates that the aforementioned NGO is concerned with
the underlying process of development, placing emphasis on ways to arrange the economic,
political and social relations of its beneficiaries with each other within the community. This
indicates that the resettlement project breathes life to what the United Nations would language as
‘promotion and protection of human rights against inequalities and discriminatory practices and
unjust distributions of power that impede the progress of development (UN, 2006). Verily,
Cornwall and Musimba (2004) as cited by Asaye (2013) noted that the practice of human rights-
based approach, being political, is an important distinction of Little – ddevelopment.
When analyzed using the empowerment theory of Zimmerman (2001), it can be inferred
that Saint Arnold Janssenville was conceptualized and intended to ensure ‘empowered’ outcomes
in the long run of its operation. This means that all the components of the resettlement project
(i.e. public infrastructure, access to affordable and basic health care, livelihood, and education)
are yet to fulfill the intended outcomes in all levels of empowerment (i.e. individual,
organizational, and community). This means that there is effective competition for resources,
there is functional networking and coalitions with other organizations, there is influence in policy
making with pluralistic leadership, and there are residents whose participatory skills are able to
manifest sense of ownership to the resettlement project.

Purposefully Motivated Type of Empowerment

Process of Empowering. Empowerment at the individual level refers to the belief of one’s
competence and ability to influence control, or to influence one’s life. In the case at hand, the
beneficiaries of the resettlement project had no influence or ability to exert control in developing
their lives before they were evicted from living near the Umapad Dumpsite in Mandaue City,
Philippines. Indeed, JPIC-IDC, INC.acknowledges the importance of involving its target

5
beneficiaries in the formulation, implementation, and evaluation of the resettlement project. The
following strategies and activities were observed to have been performed:
a) In the aspect of formulation:
▪ consultations with community prior to the construction of the resettlement project
▪ survey on the socio-economic profile of the beneficiaries as basis for project
development
▪ organization of self-help groups
b) In the aspect of implementation:
▪ sweat equity on the construction and manufacturing of material for the housing
▪ training on financial management, leadership, farming, animal husbandry, sewing
and handicrafts making amongst others
c) In the aspect of evaluation:
▪ reportorial tasks and/or echo sessions with field staff and KKS representatives

It can be noted that JPIC-IDC, INC. has deliberate consciousness in empowering the
process intended for the sustainability of the resettlement project. It encourages self-reliance and
sense of ownership amongst its beneficiaries in order for them to control their perception towards
powerlessness and marginalization. JPIC-IDC, INC. incorporates bottom-up approach in its
strategies and activities. The purpose of which is for beneficiaries to be able to hone their skills
in critical awareness and understanding of the conditions and necessities for sustainable
community development.
The epistemic value of the aforementioned strategies and activities are consistent with the
pronouncements of Nikkhah and Redzuan (2010) when they determined that capacity building is
linked to empowerment. Here, the role the NGO assumes is that of a capacity builder who helps
community members develop their skills and resources for them to improve their quality of life
in all levels of development (i.e. individual, organizational, and community).
Furthermore, Nikkhah and Redzuan (2010) identified that micro-financing function of an
NGO as a contributor to sustainable community development. Micro-financing is proven by
many case studies to reduce poverty, to create significant jobs, and to promote mechanisms for
income generation.In the case of the community atSaint Arnold Janssenville, a consumer’s
cooperative was established. The primary purpose of which is to obtain and distribute
commodities to its members and non-memberswith the intent of expanding it into a multipurpose
cooperative. Truly, JPIC-IDC, INC.’s micro-financing function ascertains what Zimmerman
(2001) believes, in which equal and accessible resources areindicators of an empowering process
at the community level.

Empowerment for Outcomes.The continued yet guided assistanceof JPIC-IDC, INC. to its
education sponsorship program has promoted individual perceived control amongst its
beneficiaries. In addition, the health and quality of life of the resettlement village community has
improved over the years. Sanitation is especially better since the housing units have individual
comfort rooms. Incomes of the family-beneficiaries are stabilizing.With hard work and diligence,
family-beneficiaries are able to subsist in their daily expendituresas aided by the agriculture and
animal husbandry program of JPIC-IDC, INC.

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 The respondents narrated their experiences during the conduct of Key Informant
Interviews. It was shared that their everyday common practice prior to their relocation at Saint
Arnold Janssenville was to scavenge for expired canned goods and other staplesat the Umapad
Dumpsite. This practice for survival resulted to health complications especially amongst
children. However, since moving into the resettlement village, family-beneficiaries now have
fresh food and subsequently improved health. In fact, respondents do not want to go back to
Umapad dumpsite despite having more opportunities for earning to increase their daily income.
Health issues are cited as the top reason. Now, health care servicesare accessible through
volunteer doctors scheduled to visit the resettlement community twice every month.
In the area of education, children have manifested improved focus and willing to go to
school. High rate of absenteeism amongst school-goers has significantly dropped despite going
to school without allowance for food. Now, children have aspirations, goals, and realizations for
themselves. They have shared stories of encouragement coming from JPIC-IDC, INC.
Consequently, the said NGO has set up a system for rewards and recognition to acknowledgethe
performance of top performing students. As informed by Cavaye (2006), recognition of success
can help lead to the sustainability of community development.
Cases of discrimination are at their minimum as evidenced by the story of Mariza
Tampus, a woman disfigured due to an explosion accident while scavenging for food prior to her
relocation at the resettlement village. The said woman shared that the community membersat
Saint Arnold Janssenvilledo not experience the same environmental barriers to empowerment as
when they were at Umapad dumpsite.
In the aspect of safety and security, respondents cited that community members are
feeling safer when residing at Saint Arnold Janssenville. Vices are discouraged within the
community due to strict enforcement of their policies. Now, they have sturdy house
infrastructures that are capable of protecting them from both man-made and natural occurrences.
This observation was affirmed by Alice Rubilla, a mother of four children and whose family used
to reside at the Umapad dumpsite for nine years. Alice and her family were unsafe at the Umapad
dumpsite because their informal settlement was situated immediately beside a major
thoroughfare and a river. However, residing at Saint Arnold Janssenville for years now has made
them feel significantly safe and secured.
Community members who are involved in conflicts must undergo conciliation and
mediation as facilitated by their local organization. Such conflict resolution practice is noted to
have resulted to significant and purposefully motivated outcomes. In fact, some men and women
in the resettlement village community are recruited as policing officers or locally known as
Barangay Tanods. Others are privileged to perform roles in their community such as local health
workers andenvironmental leaders amongst others.
Moreover, community identity is formed as evidenced by the common pattern in the
stories shared by the respondents. Community is commonly conceptualizedas that which is
united and has integrity. Now, family-beneficiaries who are home owners themselves participate
in community activities such as in collective clean-up drives and in meetings called for byBoard
of Directors of their community cooperative.

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 Furthermore, the community organization is open to hearing the voices of the residents.
Spiritual well-being among the respondent families hasbeen nurtured as evidenced by a growing
number of families attending masses and other faith-sharing initiatives.
Basically, family-beneficiaries in Saint Arnold Janssenville are now able to participate
meaningfully in society without the environmental barriers that hindered them in their previous
informal settlements. Informed by Banks and Hulme (2013),it can be highlightedthat the
improvements of the agency through increases in collective assets is not enough to promote
empowerment - a process that must be accompanied by wider changes in the environment that
improve recognition of the poor and the marginalized.

Challenges.The community cooperative at the Saint Arnold Janssenville ensures common

access of resources for its residents. However, it faces the challenge of capital build-up funds for
its members. This hampers the expansion of the cooperative from a consumer to a multi-purpose
cooperative, which would be able to open up better services like expanded versions of micro-
financing amongst others.
Although community members are able to participate and influence the decisions
affecting the community, their daily responsibilities for survival as well as their daily struggles at
the individual level continue to pose as one important challenge. There is also a challenge on the
implementation of the livelihood program. Few residents are consistent in their practice of
subsistence farming. Sewing and accessories making as well as livestock farming have not yet
completely taken their full and steady implementation. At most times, a number of residents find
it hard to transition from their scavenging orientation towards agricultural and livestock-driven
daily functions.Other external and internal threats are perceivable Saint Arnold Janssenville as in
the case of other active, functional, andevolvingcommunities.
In the grand scheme of things, there is also the challenge of ensuring that the process of
‘empowering’ smoothly transitions to ‘empowered’ outcomes. Here, empowermentcuts across
different levels. It begins from the individual level, permeates into the organizational level, and
then cascades to the community level. Such movement could also be the reverse – from the
community level to the organizational level, and then taking beneficial effect at the individual
level. Noticeably, JPIC-IDC, INC. ismaking progress albeit slowly in itsconscious efforts to
transition its Saint Arnold Janssenville from ‘empowering’ into an ‘empowered’ outcome.

Conclusion

The findings of the case studydo not necessarily conform to existing literature on discarding the
dichotomy between Big - D and Little - d development roles. The experience of JPIC-IDC, INC.
with its resettlement village community (i.e.Saint Arnold Janssenville) is a testament that there is
a simultaneous practice of both service delivery and advocacy development roles. The said
NGO’s development objectives as corroborated by the heartwarming narratives from family-
beneficiaries would serve as means of verification.
JPIC-IDC, INC. pursues community organizing, and integrates human rights-based
approach to its programs, projects, and activities. Its development role is identified by the
researchers as not fitting exclusively to either one of the two set of development roles. The said

8
NGO provides support to their target beneficiaries through a resettlement project in order for
them to build a humanistic existence and to move out from marginalization.
Therefore JPIC-IDC, INC.does not treat empowerment as an indirect outcome of their
service delivery project (Little - ddevelopment role). It also does not disregard empowerment in
their pursuit for material poverty development (Little - d development role). Rather, the NGO in
the case study treats empowerment as a direct outcome of their community organizing and
service delivery activities through the employment of participatory and capacity building
strategies within the stages of the resettlement project.
Furthermore, the findings on empowerment deviate from the caveat identified by Banks
and Hulme (2013) in which they said that empowerment stemming from service delivery
activities does not increase recognition and acknowledgment of the poor and the marginalized in
society. The researchers found out the opposite result, which is that recognition and
acknowledgment of the beneficiaries have developed since moving into the resettlement village
community. JPIC-IDC, INC.shows that by holistically incorporating both roles of development
in community management, the target beneficiaries experience increases in material poverty and
capacity to influence their struggles as well as increased recognition and acknowledgment in
society.
Indeed, incorporating empowering processes in establishing a community has become an
impetus for NGOs to remain relevant and to make their programs, projects, and activities
sustainable. It is therefore important to involvetarget beneficiaries in the agenda setting,
implementation, and decision-making stages for resource management and development.
Acknowledging that the disadvantaged people are aware of their problems and giving them an
opportunity to develop their skills, would enable them to build a sense of control and confidence
in improving their lives. Berger and Neuhaus (1977) even highlighted that increased
opportunities for involvement in community organization will help decrease the perception of
powerlessness, alienation, and withdrawal from community living.
The emerging ‘middle ground’ development role is an apparent reality that could be
imbibed by NGOs if they intend to remain relevant, sustainable, and empowering in their
systems and processes. In today’s complex and globalizing world, the process of ‘empowering’
may diversity in all phases of program development. But the ‘empowered’ outcomes must span
across all layers of development, which is from the individual to the organizational level and all
the way to the community level. Such is a purposefully motivated kind of development.

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