CHAPTER 1

INTRODUCTION

Overview

The government effort in sustaining campaign against illegal drugs adopted an

integrated approached by securing the assistance of the Local Government Unit and

other government agencies. Philippine Drug Enforcement Agency (PDEA) as

frontline agency in this campaign conducted a reorientation of Barangay Anti-Drug

Abuse Councils (BADACs) as grassroots level to render assistance to law

enforcement agencies in the eradication and clearing operation of illegal drugs.

Since this campaign is considered as multi-agency efforts, there is a need to

evaluate their capability in the conduct of barangay drug clearing operations and to

determine their issues and concern and eventually, to formulate an action plan for the

successful conduct of barangay drug clearing operations. On the basis of the

foregoing concepts, this study advanced the idea that the goal of a “drug-free”

community depends on the collaborative efforts of the members of the community.

More so, it lays upon the shoulders of the local leaders on how to use their personal

assets to mobilize the community in addressing the perennial issue of illegal drug use.

One of the national issues prior to President Duterte’s assumption to office

was the prevalence of illegal drugs in the country. Between 2008 and 2016, 14.8

million Filipinos had used illegal drugs at least once (Dangerous Drugs Board, 2016).

In his State of the Nation Address on July 25, 2016, the President vowed to launch an

intensified the battle against illegal drugs. Accordingly, drug abuse is the excessive,

maladaptive, or addictive use of drugs for non-medicinal purposes. It also defines an

emotional and sometimes physical state characterized by compulsion to take drugs on

 2

a constant basis in order to experience its mental effects. Drug abuse gives rise to

dependence both physical and psychological leading to mental, emotional, biological

or physical, social and economic instability.

Peace and order has become an increasingly urgent concern for Filipinos.

Since 2004, peace and order in the country (as well as criminality and terrorism)

consistently ranked in the top five urgent national concerns in nationwide surveys

(Pulse Asia, Ulat ng Bayan, 2004 – 2006). In fact, peace-related problems altogether

rank as the 2nd highest national concern, second only to economic-related

concerns like controlling inflation, low wages and poverty.

According to United Nations Office on Drugs and Crimes (UNODC) there is a

direct link between terrorism and international illicit drug markets. Terrorist

organizations may be related to drug trafficking either through direct involvement in

both activities or through a “marriage of convenience.” There are two principal ways

terrorist groups benefit from trafficking narcotics. First, some terrorist organizations

tax the drug traffickers and farmers directly. Second, terrorist groups are drug

traffickers themselves.

Most of the efforts lie upon the shoulder of law enforcement, however it is

more on reactive and punitive approach, and we sometimes overlook the proactive

approach which is the role of our local officials in the grassroots level – the barangay

officials, the local government executives, and the different agencies involved in the

anti-drug abuse campaigns. Being the frontline implementer of the government’s

policies and programs where they have direct access to each member of the

community, their participation in this national issue is imperative and indispensable.

Long before the passage of other legal orders, the Local Government Code of 1991

framed after the 1987 Philippine Constitution, recognized and mandated the local
 3

officials of the different government agencies the authority to act and take part of

providing a “drug-free” community. Now, despite all of these, and looking back at

what is happening in our country, what went really wrong?

Drug problem is not merely a security or health issue, but also encompasses

social, economic, psychological, and economic interests requiring the unified

involvement of various stakeholders.

Highlighting the drug problem in the City of Tabaco, Albay wherein, almost

ninety-six percent of forty-five out of forty-seven barangays are classified as “drug

affected”. And as of October 2019, only four from the forty-five drug affected

barangays were declared as “Drug Free” by the Regional Oversight Committee on the

Drug Clearing Program. It is in this context that the study on the level of capability of

the implementing agencies on barangay drug clearing operations came into fore.

Statement of the Problem

This study aims to determine the level capability of the implementing agencies

on Barangay Drug Clearing Operations in Tabaco City, Albay. Specifically, this study

sought answers to the following questions:

1. What is the profile of the implementing agencies involved in Barangay

Drug Clearing Operations in Tabaco City, Albay in terms of:

a. Manpower

b. Budget

c. Logistics

2. What is the level of capability of the implementing agencies in terms of

the following:

a. Manpower

b. Budget
 4

c. Logistic

3. What are the problems encountered by the implementing agencies in the

conduct of Barangay Drug Clearing Operations?

4. What are the recommendations of the implementing agencies to improve

the Barangay Drug Clearing Operations?

5. What action plan can be formulated to enhance the capability of the

implementing agencies in Barangay Drug Clearing Operations in Tabaco City, Albay?

Significance of the Study

The findings of this study will give valuable insights on the level of capability

of the different implementing agencies on Barangay Drug Clearing Operations in

Tabaco City, Albay pursuant to their functions provided by existing laws and

regulations. Relatively, the results will benefit the concerned agencies as it will

disclose the end-users and arrive at decisions to initiate measures to address and

strengthen the barangays to become an active participant and a self-policing entity in

the campaign against illegal drugs. This study may be useful to the following

agencies:

The Department of Interior and Local Government will be made aware of

the level of capability of Tabaco City Anti-Drug Abuse Council (ADAC). The results

of this study will aid in the formulation of policies and extension of necessary support

in the form of trainings, seminars, and developing monitoring system to ensure the

functionality of ADACs in the barangay drug clearing operation.

The Philippine National Police will gain insights from the results of this

study as baseline data for synchronized strategies to strengthen proactive measures in

anti-illegal drugs campaign, such as intensification of drug-demand and supply

reduction strategies through information operations, barangay visitations, awareness

 5

lecture, BADAC mobilization, and training on basic information gathering and

reporting.

The City Government of Tabaco can use the result of this study as a guide

on how to synchronize the efforts of all the implementing agencies to fast track the

barangay drug clearing operations in Tabaco City.

The result of this study will help the Barangay Officials to be more aware of

their roles and their responsibilities in the Barangay Drug Clearing Operation.

The Barangay Anti-Drug Abuse Councils (BADACs) will be guided by this

research on how they can help the implementing agencies in the barangay drug

clearing operations in respective barangay.

The heads of different government implementing agencies will be made

aware by this study of their duties and responsibilities being public officials – to

exercise with highest degree of commitment and performance their duties towards the

attainment of a “drug-free” Tabaco City, Albay. Likewise, it will give them the

opportunity to express the problems they have encountered in implementing the

Barangay Drug Clearing Operations, and their recommendation to improve the

Barabgay Drug Clearing Operations.

The community in general can gain insights from the result since they will be

made aware of how the different agencies involved in barangay drug clearing

operations take actions against the proliferations of illegal drugs, and in the same

manner, made them aware of their responsibilities in the anti-drug campaign,

particularly in reporting drug related information.

Coverage of the Data Set

This study assessed the level of capability of the implementing agencies on

Barangay Drug Clearing Operations in Tabaco City, Albay. The variables included in
 6

this study are: (1) the profile of the implementing agencies in terms of manpower,

budget, and logistics; (2) capabilities of the implementing agencies in terms of

manpower, budget, and logistics, (3) the problems encountered in the implementing

agencies on Barangay Drug Clearing Operations, and (4) the recommendations of the

offered. The coverage data of the study was from Calendar Year 2017 to 2018

following the issuances of different regulations on Barangay Drug Clearing

Operations by DDB and DILG.

The locale of the study is the City of Tabaco, Albay. Since the study focused

on barangay drug clearing operations, the respondents will be delimited to the focal

persons of the different implementing agencies stipulated under Section 6 of DDB

Regulation No. 3, series of 2017 – “Strengthening the Implementation of Barangay

Drug Clearing Program”. Their inclusion is that as frontline implementer of the

program, they are supposed to comply with the parameters set forth under existing

regulations on barangay drug clearing programs prior to the declaration and issuance

of certifications as “drug-free barangay”.

In reference to Section 6 of Dangerous Drugs Board Regulation No. 3, series

of 2017, the implementing agencies – respondents of this study were the following:

(1) The City Mayor as the CADAC Chairman; (2) City Local Government Operation

Officer of Tabaco City; (3) Chief of Tabaco City Police Station; (4) Local

Government Health Officer; (5) Local Government Social Welfare and Development

Officer; (6) DepEd representative; (7) CHED representative; (8) Sangguniang

Kabataan Federation Chairman; (9) PDEA; (10) Municipal Prosecutor; and (11)

Barangay Captains – BADAC Chairpersons of the forty barangays in Tabaco City,

Albay.
 7

For the barangay captains – BADAC chairpersons, excluded as respondents

were the barangay captains from the identified drug unaffected barangays, island

barangays and Communist NPA Terrorist (CNT) affected barangays of Tabaco City,

Albay. Their exclusions are mainly for the security and safety of the researchers.

The drug unaffected barangays of Tabaco City were Brgy. Vista (island

barangay) and Brgy. Sua-Igot. The island barangays of Tabaco City are as follows:

Brgy. Agnas; Brgy. Hacienda; Brgy. Rawis; Brgy. Vista (drug unaffected barangay)

and Brgy. Sagurong, all of San Miguel Island, Tabaco City. Meanwhile, Brgy.

Tabiguian and Brgy. Sua-Igot (drug unaffected barangay) are CNT affected barangays

based on the 2nd Quarter Periodic Status Report (PSR) on Threat Groups.

Other implementing agencies on barangay drug clearing operations outside the

jurisdiction of Tabaco City, Albay will no longer be covered by the study.

Theoretical Framework

This study is supported by the idea of Bridging Leadership which is a

management approach that promotes processes that address social inequities

introduced by the Asian Institute of Management TeaMEnergy Center (AIMTEC). It

is all about leading collaborative action to bring about social change. The concept

behind the theory is for attaining social objectives and outcomes. Key to the

leadership concept is the capacity of the individual to move from a personal

understanding and ownership of a social issue to a collective action to resolve the

issue. One segment of the process is focused on self-awareness and involves

developing a sense of personal Ownership of a societal problem and the response to

it. The bridging leader acknowledges the range of his assets (i.e. values, education,

experiences, family background, etc.) which when accumulated comprise his

leadership capital. Knowing his capital, the leader examines how these assets are put
 8

to use to benefit the wider society. Another aspect of bridging is moving from self to

forging relationships with those who have stake on the problem. Building Co-

Ownership involves getting stakeholders together to deepen their understanding of

the issue, to recognize how they are part of the problem and the solution, and to

acknowledge the need for collective response. This part involves convening various

parties to the issue (including those who are in conflict with others), facilitating

constructive dialogue to arrive at a common understanding of the issue, managing

conflicts, and coming up with a collaborative response. The third part of bridging is

Co-Creation, or the actual work of collaboration. Here, the commitment to work

collaboratively is translated into clear goals, outputs, and targets that will lead to the

resolution of the problem. Innovative plans and programs are drawn by the collective

effort, guided by the principles of transparency, accountability, participation, and

resource sharing. In pursuing the programs, the group tries to attain their common

vision through concrete mechanism and strategies.

The study is also concerned on determining the implementing agencies’

profile and their capabilities in terms of manpower, budget, and logistics.

Consequently, these variables pertain to the respondent’s personal assets necessary in

developing self-awareness and sense of personal ownership to the societal problem on

illegal drugs and response to it.

Likewise, this study determines the problems encountered and

recommendations concerning manpower, budget, and logistics in the conduct of

barangay drug clearing operation. Once all these variables are answered, an action

plan will be formulated to enhance the capability of the implementing agencies in the

conduct of Barangay Drug Clearing Operations in Tabaco City, Albay.

 9

Figure 1. The Bridging Leadership Framework

Operational Planning Framework

Figure 2 shows the Operational Planning Framework of the study wherein the

profile of the implementing agencies, their capabilities, problems encountered, and

recommendations along manpower, budget, and logistics were identified as the inputs

in the transformation process. After digging into these inputs, a plan of action will be

formulated which serves as the output of this study. The formulated plan of action,

once adopted and executed, envisions a "Drug-Free" Tabaco City, Albay.

INPUT PROCESS OUTPUT

OUTCOME
Profile of the
E
Implementing Determining the Formulated
agencies, implementing Action Plan
in terms of: agencies’ on "Drug-Free"
Capabilities, Barangay Tabaco, City
a. Manpower Problems Drug
Encountered and Clearing
b. Budget
Recommendations Operation
 10

FEEDBACK

Figure 2. Operational Planning Framework

Operational Definition of Terms

The following terms are operationally and/or conceptually defined to provide

clear understanding of the study:

Action Plan refers to the output of this study which intends to enhance the

capability of the implementing agencies in the conduct of barangay drug clearing

operation. Eventually, once implemented, the action plan envisions of a “drug-free”

Tabaco City by the year 2025.

Barangay Drug Clearing Operations are the clearing of drug-affected

barangays specified particularly in the Dangerous Drugs Board Reg. No. 3 series of

2017. These are the programs, activities and strategies undertaken by different

implementing agencies prior to the issuance and declaration of “drug-cleared

barangay” status.

Budget is used in this study as one of the capability parameter focused on the

implementing agency’s financial capability and/or availability of financial resources

intended for barangay drug clearing operations.

Dangerous Drugs (Illegal Drugs) include those listed in the Schedules

annexed to the 1961 United Nation (UN) Convention on Narcotics Drugs as amended
 11

by the 1972 Protocol, and in the Schedules annexed to the 1971 UN Convention on

Psychotropic Substances as enumerated in the attached annex of, and an integral part

of RA 9165 otherwise known as the “Comprehensive Dangerous Drugs Act of 2002”

(source: Revised PNP Manual on Anti-Illegal Drugs Operations and Investigation).

Drug Affected Barangay refers to a barangay that has reported presence of

drug user, pusher, manufacturer, marijuana cultivator, or other drug personality, drug

den, marijuana plantation, clandestine drug laboratory and facilities related to

production of illegal drugs.

Drug Cleared Barangay refers to a barangay classified as previously drug

affected and subjected to drug clearing operation and declared free from any illegal

drug activities pursuant to the parameters set forth by the DDB Regulation No. 3

series of 2017.

Drug Unaffected Barangay is a barangay which has not ever been plagued or

beset by any illegal drug activities.

Implementing Agencies refers to the different government agencies

responsible in the barangay drug clearing operations. Based on Section 6 of

Dangerous Drugs Board Reg. No. 3 series of 2017, the agencies/focal persons

involved are the followings: CADAC; City Local Government Operation Officer;

Local PNP; Local Government Health Officer; Local Government Social Officer;

DepEd representative; CHED representative; Sanggunaing Kabataan; PDEA; and

Municipal Prosecutor.

Level of Capability, as used in this study, refers to the implementing

agencies’ capability in terms of manpower, budget, and logistics that may or may not

have an effect on their level of performance on anti-illegal drugs campaign. The level
 12

of capability is measured in a four-point scale as: 4 – Very Capable, 3 – Capable, 2 –

Fairly Capable; and 1 – Low Capability.

Logistics is used in this study as one of the capability parameter which refers

the implementing agency’s logistical capability in terms of transportation or mobility,

facilities, supplies, paraphernalia and other equipment intended for barangay drug

clearing operations.

Manpower is used in this study as one of the capability parameter which

includes training, skills, knowledge or experience acquired for the conduct of

Barangay Drug Clearing Operations.

Moderately Affected barangay refers to a barangay which has reported

presence of drug pusher/s and/or user/s.

Problems Encountered refers to problems which may or may not have

significant effect to the implementing agencies’ capability on barangay drug clearing

operations.

Slightly Affected Barangay refers to barangay which has reported presence

of drug user/s.

Background/Realities

National Reality

According to Dangerous Drugs Board’s (DDB) 2015 National Household

Survey, there were around 1.8 million drug users in the country wherein 38.36% of

which are unemployed. Further cited, the Philippine Drug Enforcement Agency

(PDEA) February 2016report showed that 26.91% or 11,321 barangays were said to

be “drug-affected”, mostly in urban areas. A barangay is said to be drug-affected

when there is a proven existence of drug user, pusher, manufacturer, marijuana

cultivator or other drug personalities regardless of number in the area. Per record, the
 13

National Capital Region (NCR) has the highest rate of affectation with 92.96% of the

region’s barangays, followed by CALABARZON at 49.28%. Based on PDEA’s 2015

arrest data, methamphetamine hydrochloride or "shabu" (90%) reportedly tops the list

of most abused illegal drugs, followed by marijuana and costly party drugs like

cocaine and ecstasy.

Based on DDB CY 2017 Statistics, the Profile of Drug Abusers revealed that

majority are Mono-drug users or abuse of one drug only, the mean age of drug

abusers is 31 years old, majority are male with 10:1 ratio to female, single, were

unemployed, majority in High School level and residing in urban areas.

Republic Act No. 9165, otherwise known as the Comprehensive Dangerous

Drugs Act of 2002, provides that: "the State needs to enhance further the efficacy of

the law against dangerous drugs, it being, one of today's more serious social ills.

Towards this end, the government shall pursue an intensive and, unrelenting

campaign against the trafficking and use of dangerous drugs and other similar

substances. The government shall however aim to achieve a balance in the national

drug control program so that people with legitimate medical needs are not prevented

from being treated with adequate amounts of appropriate medications, which include

the use of dangerous drugs".

Corollary, the Republic Act 9165 mandated the Dangerous Drugs Board to be

the policy-making and strategy-formulating body on drug prevention and control. Part

of its task is to develop and adopt a comprehensive, integrated, unified and balanced

national strategy against drugs. Thus, paves way to the creation of the Philippine

Anti-Illegal Drugs Strategy. The Executive Order No. 66, Series of 2018 directed all

government offices, departments, bureaus; agencies including government owned and

 14

control corporations, state universities and colleges to institutionalize the Philippine

Anti-Illegal Drugs Strategy in accordance with the respective agency mandates.

Cognizant to this, the Local Government Code of 1991 recognizes the

barangay as the basic political unit in the Philippines. Accordingly, it serves as the

primary planning and implementing unit of government policies, plans, programs,

projects, and activities in the community to promote the general welfare of the

inhabitants therein.

Further, Chapter 4, Section 391 of the Local Government Code under Powers,

Duties, and Functions of the Sangguniang Barangay states that the Sangguniang

Barangay, as the legislative body of the Barangay, shall adopt measures towards the

prevention and eradication of drug abuse.

In support to the foregoing provisions, DILG MC No. 2015-063 referring to

the “Revitalization of the Barangay Anti-Drug Abuse Council (BADAC) and their

role in Drug Clearing Operation”, gave emphasis to the local authorities, particularly

the barangay officials, their principal responsibilities in support of overall government

efforts to address peace and order, particularly to curb illegal drugs and other

substances.

Anent to this, the DDB Regulation No. 3 Series of 2017 provided the

guidelines on the implementation of drug clearing program highlighting the creation

and functions of the BADAC. Likewise, the said regulation gave emphasis on the

specific functions of the different implementing agencies in barangay drug clearing

programs. Accordingly, all this entities must be actively involved in anti-drug

activities to help maintain the drug-liberated status of the barangay.

Corollary to the aforesaid regulation, the DDB issued Regulation No. 12,

series of 2004, which provided guidelines on clearing of drug-affected barangays

 15

empowering the different government and non-government entities to implement

government strategic policies on drug operations given the political and police power

of the barangay to administer the affairs of the community (cited in DDB Regulation

No. 2, Series of 2007).

Focal Reality

The locale of the study is Tabaco City which is a 4th class city in the province

of Albay, Philippines. It is one of the three component cities of the province, along

with Legazpi City and Ligao City. According to the 2015 Philippine Statistics Office

(PSA) census, Tabaco City has a population of 133,868 people.

The mainland part of the city is bordered by the town of Malinao to the north,

the towns of Polangui and Oas to the west, Ligao City to the southwest, Malilipot

town to the southeast, and Lagonoy Gulf to the east. The symmetric Mayon Volcano,

the most active volcano in the Philippines, lies south of the city. Tabaco is one of the

eight towns and cities that share jurisdiction on the volcano, dividing the peak like

slices of a pie when viewed from above. The island of San Miguel, the westernmost

of the four main islands in the Lagonoy Gulf, falls under the jurisdiction of Tabaco.

Five of the barangays of the city are located on the island for a total of 47 barangays

composing the city.

As to Tabaco City’s drug situation, the 2019 updated reports on Barangay

Drug Clearing Operation disclosed that from the total number of 47 barangays, two

are classified as “drug unaffected barangays” while 45 are categorized as “drug

affected barangays”. From the 45 “drug affected barangays”, six are “slightly” drug

affected while 45 are “moderately” drug affected barangays. Further, only four from

the drug affected barangays were declared as “drug cleared barangay”. Table 1

presents the data on Drug Clearing Operations in Tabaco City, Albay.

 16

Table 1
Data on Drug Clearing Operation in Tabaco City, Albay

Drug Unaffected Drug Affected Barangays

Barangays Slightly Affected Moderately Affected
1. Visita San Miguel 1. Agnas (San Miguel Island) * 1. Bacolod
2. Sua-Igot 2. Bogñabong 2. Bangkilingan
3. Bonot 3. Bantayan
4. Buhian 4. Baranghawon
5. Hacienda (San Miguel Island) 5. Basagan *
6. Magapo 6. Basud
7. Bombon
8. San Isidro (Boring)
9. Buang
10. Cabagñan
11. Cobo
12. Comon *
13. Cormidal
14. DivinoRostro
15. Fatima
16. Guinobat
17. Mariroc
18. Matagbac
19. Oras
20. Oson *
21. Panal
22. Pawa
23. Pinagbobong
24. QuinaleCabasan
25. Quinastillojan
26. Rawis (San Miguel Island)
27. Sagurong (San Miguel Island)
28. Salvacion
29. San Antonio
30. San Carlos
31. San Juan
32. San Lorenzo
33. San Ramon
34. San Roque
35. San Vicente
36. Santo Cristo
37. Tabiguian
38. Tagas
39. Tayhi
Source: Tabaco City Police Station; * Drug Cleared Barangays (source: Updates on Barangay Drug
Clearing Operation as of September 2019)
Based on the foregoing figures, the present scenario of drug situation in

Tabaco City is alarming as majority of the barangays were drug affected. Thus, this

study on the level of capability of the implementing agencies on barangay drug

clearing operations came into the fore with the objective of formulating a plan of
 17

action to enhance the capability of the implementing agencies in barangay drug

clearing operation in Tabaco City, Albay.

Review of Related Literature

This chapter presents the conceptual researches and literatures related to the

present study. Towards the end, the analyses and synthesis of this study are also

presented.

Conceptual Research

Vargas (2019) in his study Barangay Anti-Drugs Abuse Council (BADAC):

Extent of Performance on Anti-Illegal Drugs Campaign focused on the performance

of the BADAC along the following areas: a) Revitalization of the BADAC; b)

Conduct of drug abuse prevention advocacy campaigns in the barangay; c) Assistance

for Persons Who Use Drugs (PWUDs); d) Support to the implementation of barangay

drug clearing operations; e) Encouragement to the community in reporting drug-

related information as embodied in DILG and DDB regulations.

The previous study is similar to the present study as it covers the barangay

drugs clearing operations being one of its parameters. It is also similar as the present

study utilizes the descriptive-quantitative approach utilizing questionnaire as the main

instrument in data gathering. However, while the previous study focused on the

BADAC alone, the present study covers all implementing agencies on barangay drug

clearing operations.

Manzano (2011) in his study Performance of the Philippine National Police in

the Implementation of Anti-Illegal Drug Program in the Municipality of San Gabriel

disclosed that among the identified problems encountered, weak prevention programs

for illicit drug use and inactive Barangay Anti-Illegal Drugs Abuse Council
 18

(BADAC) was among the top problems encountered by the Philippine National Police

in the implementation of anti-illegal drug program in San Gabriel, Dagupan.

While the previous study deals with the performance of the PNP in the

implementation of anti-illegal drug program, the present study addresses the findings

of the previous study focusing on the implementing agencies’ level of capability

barangay drug clearing operations.

Gualberto (2015) in his study exhibited the comparative responses of the PNP

and barangay officials on the extent of implementation of selected provisions from

Republic Act 9165 (Comprehensive Dangerous Drugs Act of 2002) in Virac,

Catanduanes.

The previous study has direct bearing with the present study in the following

aspects; both studies were anchored on R.A. 9165 and utilized descriptive research

design. However, while the previous study focused on the implementation of R.A.

9165, the present study focused on determining the level of capability of the

implementing agencies on Barangay Drug Clearing Operations.

The descriptive-documentary analysis study conducted by Camano (2015)

titled Crime Situation in Virac, Catanduanes: Basis for Crime Mapping, highlighted

the different index and non-index crimes committed covering the period of 2010 to

2014 in the Municipality of Virac, Catanduanes. Among others, the violation of

specials laws, particularly, RA 9165 – Comprehensive Dangerous Drugs Act of 2002

ranked number three with 47 reported cases covering the said period.

The previous study highlighted the violations to RA 9165 as one of the most

prevalent crimes committed in the municipality of Virac, Catanduanes which

supported one of the anchorages of this study – that the issue of illegal drugs is

alarming. While both studies utilized the descriptive type of research, they differ as
 19

the previous study made use only of documentary analysis. The present study is a

descriptive-quantitative approach utilizing triangulation – Questionnaire,

Documentary Analysis, and Focus Group Discussion (FGD) in data gathering.

As featured in the 2018 International Journal of Advanced Research, Rovero

et.al. (2018) assessed the functionality of BADAC members in the performance of

their duties and functions in the three (3) phases of Drug Clearing Operations in the

barangay as embodied in DILG Memorandum Circular No. 2015-63. It likewise

included the profile of the respondents and the significant difference of the perception

on functionality between the two groups of respondents - BADAC Members and

resident-respondents. From the results the study, the following recommendations were

drawn: (a) there is a need for further intervention program from the DILG, City

Government of Tuguegarao and all other concerned government agencies in order to

further capacitate the members of the BADAC; (b) the members of the community

must lend hand to the BADAC and must also serve as its watchdog so that the

members continue to strive in performing their duties and that complacency on their

part will never find its place; and (c) all members of the community and other

stakeholders must be engaged and mobilized by the BADAC members in the

campaign against Illegal Drugs so that a Drug free community becomes achievable.

The above cited study showed similarity to the present study as it analysed the

functionality of the BADAC as embodied in the DILG Memorandum Circular No.

2015-63. On the other hand, the present study differs as it determines the

implementing agencies level of capability in terms of trainings, budget, and logistics

to come-up with a recommendatory plan of action in support to strengthen the

barangay drug clearing operations.

 20

In the published 2014 University of Cebu Journal of Research in Multi-

Disciplinary Studies, Tagsa Jr. et.al. (2014) conducted a study titled, Assessment of

Anti-Illegal Drug Reduction Strategy of Panglao PNP which assessed the

effectiveness of anti-illegal drugs reduction strategy of Panglao PNP in the context of

drug demand reduction and drug supply reduction. The study also dealt with the

problems encountered by the PNP. The study revealed that the anti-illegal drug

reduction strategy enforced by Panglao PNP is rated effective. One beneficial

strategy, which can be implemented in Bohol, is the Drug Supply Reduction Strategy

for police officers and Drug Demand Reduction Strategy for the community. The

study recommended that drug education activities should be continuously conducted

to raise community awareness and to orient the people regarding their significant role

in the campaign against illegal drugs. Likewise, full activation of BADAC and BIN is

highly encouraged to eradicate entirely or curb the drug demand and supply in the

community.

The previous study is also similar to the present study based on the variables

used – drug demand reduction and drug supply reduction strategies, as these form part

of the BADAC’s core functions in Barangay Drug Clearing Operations. However, the

present study differs from the previous study as it covers all implementing agencies

and it does not delimits to the drug demand and drug supply reduction strategies

alone.

In the study Evaluation of Drug Abuse Prevention Programmes For

Adolescents in Secondary Schools, Bhengu (2014) aims to evaluate the drug abuse

prevention programmes for adolescents in secondary schools and the effect that they

have on attitudes, knowledge, and behavior. Results of the study concluded that

behavioral change and attitude change cannot be solely the responsibility of the
 21

school, but that this also needs the involvement of other role players like parents and

the community.

Chanila (2015), in his study Assessment of Strength and Limitations of Drug

Use Interventions: A Case of Kinondoni Municipality revealed that among the

identified factor/conditions that hinder effectiveness of the fight on drug abuse in

Tanzania, limited awareness of the community happened to be the leading of all

factors mentioned. Thus, the study recommended the need of the government to

enhance community awareness initiatives against drug use in the entire country and

collaboration between actors and intervention programmes should be enhanced to

utilize the merger resources effectively.

Ronoh (2014) conducted a study titled Effectiveness of Drug and Substance

Abuse Prevention Programs in Selected Public and Private Universities in Kenya,

findings showed that Primary Prevention Level - targeting the general public or whole

population or group before the problem starts, was the predominant intervention

activity with low rate student awareness of prevention programs and activities. It also

showed poor student participation, inadequate resources, poor implementation

methods and negative student attitude being the major challenges to effective

implementation.

The cross-sectional descriptive study of Reis and Oliveira (2015) titled Drugs

and Violence: Social Perception in a Community aimed at investigating social

perception on street drugs and violence in a community in Northwestern Paraña,

revealed that the main reason for drug use and distribution was related to the absence

of policing. People perceived that the presence of violence was mostly related to drug

abuse as a result of the absence of policing and drug traffic fighting in the community.

Research Literature
 22

Organizations are defined as social units of people that are structured and

managed to meet a need, or to pursue collective goals (Edwards, 2017). Commitment

is a whole of being and remaining a member of organization, having desire to strive

for the organization, and beliefs in organizational goals, and values. The main factor

that makes employees pleased to be a member of an organization and commit to the

organization emotionally is on account of the congruence of values and goals through

individual and organizational level.

Mathieu and Zajac (1990) as cited by Starnes and Truhon, have identified age,

gender, education, perceived competence, and protestant (or puritan) work ethic as

personal characteristics which are important factors or prerequisites for the

development of an individual’s level of organizational commitment.

Leadership is an important element that often determines a team's success or

failure. The primary purpose of leadership is to ensure that the group fulfills all

critical functions necessary to its own maintenance and the accomplishment of its

task. The leader helps the team develop strategic direction, promotes effective

teamwork, and supports the coordination of collective actions. When team members

are able to work together effectively, the team can devote its resources to its tasks

rather than to internal team functioning. As a result, effective team leaders take on

different role functions that are required for team's performance and goal attainment.

For example, by encouraging team participation in decision making, leaders induce

the feelings of empowerment. A sense of ownership and responsibility for work

outcomes facilitates goal commitment, even when encountering setbacks (Cohen,

et.al. 2018).

Potter (2004) as cited by Mazo (2017) identified the qualities of

transformational leadership as inspirational motivation, intellectual stimulation,

 23

individualized consideration, management by exception, and contingency reward; that

transformational leadership is centered on the capacity to move resources for greater

productivity. Bower (1997) as cited by Mazo (2017) said that it requires adaptability

and flexibility. It is about leadership with values and meaning, and a purpose that

transcends short-term goals and focuses on higher order needs. In his study, the

characteristics of a transformational leader were observed in the decisions and actions

taken by the local chief executive in spearheading the creation of the community-

based approach to rehabilitate the drug “surrenderers”.

Social cohesion — the ties that bind people together in communities and

society — can be an indicator of the health of communities, and drug abuse and

criminality can be a symptom of a “fractured” society — a society suffering from lack

of cohesion (International Narcotics Control Board, 2012). Drug use has long been

considered an important social problem. Proposals for dealing with drugs can be

grouped into three categories: increased or continued legal repression, better treatment

of individual drug users, and increased tolerance of drug use. Repression and

improved treatment aim at reducing the social problem drug use creates (Coleman &

Cressey, 1984).

Indeed, the presence and proliferation of illegal drugs is a sign of a “fractured

society” which calls for a collaborative action with attention to lead the action by our

government officials. As the forefront implementer and trustee of the government’s

basic services, barangay officials’ responsiveness to the issue on illegal drugs attests

their leadership. Leadership is central to the concept of accountability. A leader is

responsible for all that his/her organization either does or fails to do. For a community

policing project to be successful, it must have full support of the leaders of that
 24

agency. Leaders must not only voice their support, they must demonstrate it by their

deeds and actions. Leaders, at all organizational levels, need to “walk their talk”.

Article II, Section 5 of the Philippine Constitution states that the maintenance

of peace and order, the protection of life, liberty, and property, and promotion of the

general welfare are essential for the enjoyment by all the people of the blessings of

democracy (Garcia, 2015).

With the end aim of ensuring that the exercise of this state principles and

policies are felt down to the very core members of the community, the Local

Government Code of 1991 paved way to the creation and empowerment of Barangays

and Barangays officials. As the basic political unit, the Barangay serves as the

primary planning and implementing unit of government policies, plans, programs,

projects, and activities in the community, and as a forum wherein the collective views

of the people may be expressed, crystallized and considered, and where disputes may

be amicably settled. Pursuant to Section 16 of this Code, the Sangguniang Barangay

shall exercise powers and perform duties for efficient, effective and economical

governance purposely to promote the general welfare of the Barangay and its

inhabitants.

Corollary to the above, several memorandum circulars and regulations with

the aim of capacitating the Barangays for the active participation in the anti-illegal

drugs campaign program of the government have been passed to accelerate the drive

against illegal drugs in our communities and to promote participation of local

institutions in the suppression of drug trafficking and abuse, Anti-Drug Abuse

Councils were created in the province, city, municipality, and barangay.

In support to the foregoing, DDB Resolution No. 12, Series of 2004, was

issued empowering the BADAC to implement government strategic policies on drug

 25

prevention and control given the political and police powers of the barangay to

administer the affairs of the community.

In 2015, DILG MC No. 2015-63 mandates the principal responsibilities with

emphasis on the local authorities particularly the barangay officials, in support of

overall government efforts to address peace and order, particularly to curb illegal

drugs. Accordingly, the barangays, as the first line of defense, should lead the fight

against illegal drugs through the campaign, “Mamamayan, Sugpuin ang Iligal na

Droga” (MASID).

Further, DDB Regulations No. 3, series of 2017 among others, provides for

operational guidelines in the conduct of drug clearing operations at the barangay level,

set parameters for declaring “drug cleared” barangays and status of drug-affected

barangays, and establishment of oversight committees. In addition, the existing roles

and responsibilities of the BADAC and its committees created under DILG MC 2015-

63 re: Revitalization of the Barangay Drug Abuse Council and its Roles in Drug

Clearing Operations was strengthened by the said regulation.

On May 21, 2018, DILG and DDB issued Joint MC No. 2018-01 with subject

Implementing Guidelines on the Functionality and Effectiveness of Local Anti-Drug

Abuse Councils. The overall objectives of this Joint Memorandum Circular are the

following: (a) Set minimum standard functionality and effectiveness of local anti-drug

abuse councils that cover all provinces, cities, municipalities, and barangays; (b)

Harmonize the inter-operability of all ADAC at all level; (c) Systematize an effective

ADAC monitoring and reporting mechanism; and (d) Set performance indicators of a

functional ADAC as measurement of effectiveness in support to the reduction of drug

affectation.
 26

The government believes in addressing the problem of substance abuse in its

totality. This includes creating awareness, early identification, treatment and

rehabilitation, and sustained follow-up care. Further, the government is of view that

substance abuse is a psycho-social medical problem which can be best addressed

through community-based interventions. Hence, special emphasis has been given for

involving and mobilizing the community (Saini & Puri, 2016).

In the Philippines, peace and order is always associated with problems on

drugs. A great deal of domestic violence is associated with drug abuse and a huge

proportion of criminal acts are committed by individuals who are trying to satisfy

their drug habits (Asucan, et.al, 2006).

At the community level, drug use can prevail when neighbors are inattentive,

barangay officials do not exercise supervision and control, and drug dealing is seen as

an alternative form of generating income. These individual, family, school, and

community factors contribute to the frequency, intensity, and quality of drug

dependency problems. Thus, drug dependents vary on their level of needs with some

individuals exhibiting multiple problem areas. Therefore, interventions must address

specific factors, be multi-level, and have multiple components of supervision, support,

and mentoring. Barangays are in the best position to implement sustainable programs

as they have contacts with individuals, families, schools, and community. The

barangays have also links with external agencies whose resources, personnel, and

expertise can be tapped, and thus source the sharing of costs to run the program

(Matic, 2017).

An essential component of effective local programming is collaboration

among various sectors of the community. Prevention, treatment, and law enforcement

systems, personnel, and resources are all part of the continuum of care vital to the
 27

success of anti-drug strategies, and they can work together to respond to the costs of

substance abuse. Community leaders from schools, family groups, social services,

police, probation, the courts, and others are more effective working together than

working alone. To combat substance abuse and related crime, it is also important for

communities to spend their often-limited resources in implementing programs that

have shown promise. The growing emphasis on “what works” requires that

communities learn from each other and implement program models with track records

of success (Reno, et.al. 2000).

Alongside the picture of drug problems as reinforcing community

disintegration is the reality of the problems bringing about a mobilization of

community actions and effort, reflecting a broader movement of community

involvement in tackling local problems, and in turn, influencing the motivation of

government and institutions to respond (Cullen, 2003).

As cited in one article of Ateneo School of Government: Policy Dialogue

Report, Davide 2016 reiterated the important role of leadership at the local level in

addressing illegal drugs under the leadership of Cebu Provincial Anti-Drug Abuse

Council (CPADAC). He recognized the CPADAC strong partnership with different

agencies, the private sector, civil society, and non-government and government

organizations for Cebu’s anti-drug abuse programs. Furthermore, the City of Cebu

focuses and addresses its problems in accordance with its capabilities and resources. It

also supports the strengthening of local and barangay-based institutions, and it

embraces the participation of community and church-based organizations, as well as

other organizations. This allowed the city to reach more communities more

effectively, as partnerships amplified the scale and scope of its efforts. Drug problem

of the country will not be solved through government polices alone. He emphasized
 28

the importance of the shared responsibility of the government and the community, as

well as coherent and sustained policy approaches.

The fight against illegal drugs is not solely the responsibility of the police, it is

the responsibility of everybody. Recognizing the importance of information

education campaigns to capacitate parents, teachers, community leaders, etc., Porio

(2016) identified the significance of communities building a safe environment for

everyone. This underscores the need for child/youth/gender-sensitive drug policy

framework, a supportive bureaucracy, and budget and other resources to support the

fight against illegal drugs.

The National Anti-Drug Plan of Action for 2015 – 2020 depicted that despite

the significant efforts and achievements in the fight against drug abuse and illicit

trafficking, numerous challenges and problems have been identified by the drug

prevention control community as well as the citizenry. In law enforcement, one of the

discerned challenges is the conduct of barangay drug clearing operations which is not

prioritized by the Local Government Units. Likewise, in the fields of Civic Awareness

and Drug Demand Reduction, one of the identified problems which continue to persist

is the lack of interest or enthusiasm in the implementation of anti-drug abuse

programs at the elementary and high school and barangay levels (Dangerous Drugs

Board).

The above cited readings were all related to the present study in the sense that

as public officials, barangay officials are viewed as leaders vested with powers and

functions to act on issues affecting the general welfare of the community, particularly

on the issue of illegal drugs. On the other hand, the related literatures presented were

in consensus with the context that the success of anti-illegal drugs campaign depends

on the participation of the different agencies involved and, the community in general.
 29

Analyses and Synthesis

The extant conceptual research and research literature presented supports

salient points in the study. They explained that the anti-illegal drugs campaign

requires a concerted effort from all agencies of the government and civil society. It

also postulated strengthening the campaigns in the grassroots level, the barangay, due

to weak policy implementations. The different implementing agencies, then plays a

significant role as they are in the best position to act and lead in the prevention,

detection, reporting and response to any forms of drug abuse in the barangay.

The above presented related literature and researches revealed that while most

of the studies on anti-illegal drugs campaign focused on preventive measures

conducted by schools and different agencies, the performance of the PNP in the

implementation of anti-illegal drug program, and the implementation of selected

provision of R.A. 9165 as perceive by the PNP and barangay officials, there is no

study yet conducted determining the implementing agencies’ capability on barangay

drug clearing operations.

Further, the present study aims to address the recommendations made by the

earlier researchers that the community itself, the local leaders and the different

agencies, can address the issue of illegal drug abuse in the barangay level. It also aims

to contribute to the scant local research material available on anti-illegal drugs

campaign, particularly focused on barangay drug prevention. At the same time, it also

aims to produce baseline data by determining the implementing agencies’ capability

on Barangay Drug Clearing Operations towards the formulation of a Plan of Action to

strengthen barangay drug clearing operations towards a “Drug-Free” Tabaco, City,

Albay.